100 GPO YEARS 1861-1961 100 GPO YEARS 1861–1961

A History of United States Public Printing

Under Direction of the Public Printer JAMES L. HARRISON

Sesquicentennial Edition 2010 Joint Committee on Printing 111th Congress January 3, 2009 to January 3, 2011

Charles E. Schumer, Senator from New York, Chairman Robert A. Brady, Representative from Pennsylvania, Vice Chairman Patty Murray, Senator from Washington Thomas S. Udall, Senator from New Mexico Robert F. Bennett, Senator from Utah Saxby Chambliss, Senator from Georgia Michael E. Capuano, Representative from Massachusetts Susan A. Davis, Representative from California Daniel E. Lungren, Representative from California Kevin McCarthy, Representative from California

For sale by the Superintendent of Documents, U.S. Government Printing Office Foreword to the Sesquicentennial Edition

Fifty years ago, on the occasion of its centennial, GPO published this official account of its history. It was Public Printer James Harrison’s hope that this book would “serve to stimulate present and future employees of the Government Printing Office, by the dedicated efforts of their predecessors, to give their Government its essential printing requirements, and provide future historians with an accurate account of the first 100 years of service of this great institution.” This book has more than fulfilled that hope. Indeed, 100 GPO Years has proven to be a durable source of information about GPO’s origins, its ability to adapt and take advantage of changing technologies and processes, and its critically important contribution to the life of the Nation through the production and distribution of Government publications. As we approach GPO’s 150th anniversary in 2011, we remain indebted to this book because it serves not only as a window on this great institution’s past but, more importantly, as a prologue to GPO’s future. There are vast differences in the way GPO carries out its work in this Digital Age, but our mission remains fundamentally the same: producing and distributing Government publications—the documents of our democracy—to keep America informed. The men and women of GPO—as well as all those who share daily in the production, distribution, and use of Government information—will see in this newly reissued history an account of the critically important work their predecessors carried out on behalf of the Nation, work which they themselves continue to perform today. This book is dedicated to them and those who will follow in their footsteps.

Robert C. Tapella, Public Printer.

iii Joint Committee on Printing 87th Congress January 3, 1961 to January 3, 1963

Carl Hayden, Senator from Arizona, Chairman Omar Burleson, Representative from Texas, Vice Chairman Mike Mansfield, Senator from Montana Jack Miller, Senator from Iowa Wayne L. Hays, Representative from Ohio Paul F. Schenck, Representative from Ohio

John F. Haley, Staff Director Paul C. Beach, Assistant Staff Director Elizabeth T. Anderson, Administrative Assistant Tempie L. Bailey Louis E. Shomette Clifford P. Reynolds Herbert V. Bibus Paul L. Zenor

iv Government Printing Office Officials [1961]

Public Printer ...... James L. Harrison Deputy Public Printer ...... Harry D. Merold Administrative Assistant to the Public Printer ...... Felix E. Cristofane Special Assistant to the Public Printer ...... Eustis E. Morsberger Director of Personnel ...... Milton J. Havener Comptroller ...... Frank Higginbotham Director of Purchases ...... Daniel H. Campbell Superintendent of Documents ...... Carper W. Buckley Plant Engineer ...... Louis J. Naecker Technical Director ...... Morris S. Kantrowitz Disbursing Officer ...... Walter Spauls, Jr. Medical Officer ...... Allen S. Cross, M.D. Planning-Production Manager ...... Frederick W. Baumann, Jr. Assistant Planning-Production Manager for Production ...... Albert O. Luther Assistant Planning-Production Manager for Planning ...... James W. Tew Assistant Planning-Production Manager for Typography and Design ...... Frank H. Mortimer Night Planning-Production Manager ...... Arthur O. Daniels Superintendent of Binding ...... Harold C. Leonard Superintendent of Composition ...... Morris H. Reaves Superintendent of Letterpress ...... Emil M. Cobabe Superintendent of Offset ...... Herbert C. Much Superintendent of Platemaking ...... Vincent C. Walkendifer Superintendent of Field Service ...... Matthew S. Stepienski Superintendent, Division of Planning Service ...... Russel L. Weaver Superintendent, Division of Plant Planning ...... William T. Meany Chief, Congressional Information ...... Donald W. Casey Congressional Record Clerk at the Capitol ...... Raymond F. Noyes

Centennial Celebration Committee

James L. Harrison, Public Printer, ex officio Harry D. Merold, Deputy Public Printer Carper W. Buckley, Superintendent of Documents, Chairman Eustis E. Morsberger, Special Assistant to the Public Printer Milton J. Havener, Director of Personnel Frederick W. Baumann, Jr., Planning-Production Manager Frank H. Mortimer, Assistant Planning-Production Manager for Typography and Design Harry Schecter, Chairman, GPO Style Board Albert B. Schneider, Linotype Machinist in Charge Hilda B. Ingalls, Chief Receptionist

v THIS HISTORY of public printing is dedicated to Carl Hayden, senior Senator from Arizona and dean of the United States Senate. He is serving in his 50th year in the Congress of the United States and truly exemplifies the American Statesman. As a member of the Joint Committee on Printing since March 4, 1933, and as its chairman for over 18 years, he has been an inspiration to everyone in the Government Printing Office who has been privileged to know him.

vi Foreword [1961]

This history of U.S. public printing and the Government Printing Office has been prepared under my direction and that of former Public Printer Raymond Blattenberger in connection with the celebration of the Office’s centennial. It has been difficult to select appropriate material from the wealth of documents relating to the establishment and operation of the Office, and much has necessarily been omitted to keep it within reasonable confines. It was essential to the purpose of the history to include the somewhat lengthy review of the events and circumstances which preceded the establishment of the Government Printing Office in order to explain its creation by the Congress. The Office is indebted principally to Harry Schecter, Chairman of the Government Printing Office Style Board, for the research and writing which was involved. It is my hope that this history will serve to stimulate present and future employees of the Government Printing Office, by the dedicated efforts of their predecessors, to give their Government its essential printing requirements and, also, to provide future historians with an accurate account of the first 100 years of service of this great institution.

James L. Harrison, Public Printer.

vii Acknowledgments [1961]

In 1881, 20 years after the founding of the GPO, R. W. Kerr, an employee, became the first historian of the GPO, and copyrighted a History of the Government Printing Office (at Washington, D.C.), with a brief record of the Public Printing for a Century, 1789–1881. The present-day historian is indebted to his predecessor for introducing some light into the long-ago Government printing past, for Kerr’s history has lessened the burden of laborious searching of source material. Kerr hoped “to impress upon the minds of those into whose hands the volume may fall its [GPO] magnitude as a printing office, and the power and influence which it wields for the common welfare—aside from the steady employment it gives to its many worthy operatives * * *.’’ In addition to the Kerr History, the following sources were drawn upon, with grateful acknowledgment by this Office:

Adventures of a Tramp Printer, by John Edward Hicks, Midamericana Press, Kansas City, Mo. Book in America, by H. Lehmann-Haupt, R. R. Bowker Co., New York. Collected Works of Abraham Lincoln, Abraham Lincoln Association, Springfield, Ill. Edited by Roy P. Basler, Rutgers University Press, New Brunswick, N.J. Correspondence of Andrew Jackson, by John Spencer Bassett, from The Life of Jackson, by Marquis James, Bobbs-Merrill Co., Indianapolis, Ind. History of the National Capital, by W. B. Bryan, Macmillan Co., New York. Printing in the Americas, by John Clyde Oswald, Gregg Publishing Co., New York. Reminiscences in 1900, by A. F. Bloomer. Reveille in Washington, by Margaret Leech, Harper & Bros., New York. The Sights and Secrets of the National Capital, by Dr. J. B. Ellis, Jones, Junkin & Co., Chicago. Thirty Years in Washington, by Mrs. John A. Logan, A. D. Worthington & Co. Washington: A Not Too Serious History, by George Rothwell Brown, Norman Publishing Co., Baltimore, Md. Washington and Environs, by John Clagett Proctor.

viii Contents

Page Foreword ...... iii–vii Acknowledgments ...... viii Introduction ...... xi–xii Prolog ...... xiii Chapter I. Colonial Publick Printing: 1639–1789 ...... 1 II. Free Enterprise Public Printing: 1789–1861 ...... 7 Government Printing Needs ...... 9 Congressional Proceedings ...... 10 Public Printing in New Capital ...... 13 Government Printers ...... 16 Congressional Investigations—1828 and 1840...... 17 1842 Printing Study ...... 20 Contract System Restored in 1846 ...... 20 Events Leading to Establishment of GPO—1852–1860 ...... 22 1858 Investigation ...... 24 1860 Investigation ...... 26 III. 100 GPO Years: 1861–1961 ...... 35 GPO in Swampoodle ...... 36 Proceedings and Debates of Congress ...... 48 New Printing Act ...... 74 GPO in Peace and War ...... 129 Postwar Operations ...... 143 IV. This Is the GPO ...... 153 Heads of Public Printing: 1852–1961 ...... 153 100 Years of Growth of Government and GPO ...... 154 Organizational Structure ...... 155 Administration and Planning –Production...... 155 History of Building Expansion ...... 159 Role in Government ...... 160 Index ...... 163

ix

Introduction

One hundred years ago, on March 4, 1861, Abraham Lincoln and the GPO were inaugurated. For Abraham Lincoln, the day was close to the beginning of 4 war years; for the GPO it marked the beginning of a century of printing years. The political climate of the day was one of sharp national division and marked by extremely bitter debates in Congress by Northern and Secessionist members. South Carolina had already seceded from the Union on December 20, 1860, and on February 4, 1861, the Confederate Government had been organized in Montgomery, Ala. Washington was thronged with inauguration visitors, with secession and Fort Sumter, Cabinet appointments and political jobs, and Lincoln assassination threats the chief conversation pieces. The Baltimore Sun of March 5 noted that— There is no sense of relief here from the tone of the inaugural. It is regarded “as grim-visaged war’’ under a smooth, deceptive front. On March 11, the Sun said: The rush of office-seekers upon the departments exceed anything of the kind ever before known. From all morning till late in the evening, Uncle Abe and each of the members of the cabinet are beset by men, women and children. The Government printing climate, however, was tranquil. In sharp contrast were the recent events which led to the beginning of the GPO. From a national issue, with the Nation, Congress, and newspapers familiar with the printing situation of the 1850’s, Lincoln’s inauguration and almost inevitable civil war caused the GPO’s opening to go unnoticed. Washington was now preoccupied with more important national matters. Receiving the blessing of Congress on June 23, 1860, and its opening authorized on March 4, 1861, the GPO was aware of its mission, for during the debate on the creation of the GPO, Congressman Gurley had outlined its aims and purposes, as follows: If there is any public service in this country which, in preference to almost any other, should be performed by the immediate and special agents of the Government, it is that of Congressional and executive printing; and this fact will appear the more obvious if we consider that it is necessarily interwoven with the law-making power of each house, and cannot, by any possibility, be separated from it. It is no exaggeration to say that it is not only a leading but an essential element of national legislation; for the information which it affords must always control, to some extent, the action of those engaged in it. Without it, how can gentlemen intelligently frame their bills, draw up their reports, or even vote understandingly? But it is not only a positive, but a daily and almost hourly necessity while Congress is in session. It is just as essential to the healthy action of this legislative assembly when here convened, as our ordinary food is to the healthy action of our bodies and minds. There exists about the same necessity for the regular appearance in print of bills, documents, and reports, as for the appearance every morning upon the table of the breakfast.

xi It is unlike any other department of Government service. For ships you can wait; for guns you can generally wait; and, ordinarily, you are in no special hurry for the various munitions of war; but you cannot be deprived of your printing for a single day without serious embarrassment and loss of time. In the sense, therefore, of a leading element of the law-making power, the public printing underlies your armies, it underlies your navies, and every other arm of the national service; and in this important particular, therefore, bears no analogy to the other departments of the Government. President Buchanan signed the GPO act on June 23, 1860. The act stated that the Superintendent of Public Printing was— authorized and directed to have executed the printing and binding authorized by the Senate and House of Representatives, the Executive and Judicial Departments, and the Court of Claims; and to enable him to carry out the provisions of this act, he is hereby authorized to contract for the erection or purchase of the necessary buildings, machinery and materials for that purpose. In compliance with this law, a building and equipment were purchased. (See “1861, The Office,’’ p. 36.) Thus the GPO began its printing career. The shift of focus from a freewheeling regime to one of correct operation as a Government enterprise required some adjustments. There would be no change in the method of producing Government printing, but the accent would be placed on control, an element lacking in the former public printing system. Its birth took place in the aftermath of congressional investigations; it came of age in the war which began 5 weeks later, and the 1861 GPO thus became the genesis of the present-day GPO.

The following chapters discuss the period from the beginning of American printing in New England in 1639 to the formation of the Union in 1789; from the manner of supplying the printing needs of the small Nation to the rapidly growing country of 1861; and then to the 100 years of the Government Printing Office from 1861 to 1961.

xii Prolog

But, to return to the consideration of printing, it is plain that it is but the other half—and in real utility, the better half—of writing; and that both together are but the assistants of speech in the communication of thoughts between man and man. When man was possessed of speech alone, the chances of invention, discovery, and improvement, were very limited; but by the introduction of each of these, they were greatly multiplied. * * * And yet, for the 3,000 years during which printing remained undiscovered after writing was in use, it was only a small portion of the people who could write, or even read writing; and consequently the field of invention, though much extended, still continued very limited. At length printing came. It gave 10,000 copies of any written matter, quite as cheaply as 10 were given before; and consequently a thousand minds were brought into the field where there was but one before. This was a great gain; and history shows a great change corresponding to it, in point of time. I will venture to consider it, the true determination of that period called “the dark ages.’’ * * * To immancipate [sic] the mind * * * is the great task which printing came into the world to perform. Discoveries, inventions, and improvements, followed rapidly and have been increasing their rapidity ever since.—From a lecture on “Discoveries and Inventions,’’ by Abraham Lincoln, delivered on February 11, 1859, at Illinois College, Jacksonville, Ill.

xiii

Chapter I

COLONIAL PUBLICK PRINTING 1639–1789

HIS CHAPTER covering the 1639–1789 era of public printing has condensed the dramatic period of early American printing into a few pages. Many early Tprinting pioneers associated with this period have been necessarily omitted, and the story of some of the leading characters has been condensed to become part of the overall public printing story. Although an accounting of 100 GPO years would be confined within the strict limits of 1861–1961, it could not be complete unless it were broadened within a wider framework of time. A newly created Government department without prior legisla- tive history would in time yield its story of performance. But “100 GPO Years’’ must necessarily reach back to the beginning of printing in America, because provincial and colonial “publick’’ printers were also government printers and therefore part of a history of Government printing. Although “government’’ was the British Crown in uneasy control of the provinces, and later with diminished control of the Colonies, the pioneer publick printers of America eventually earned a future chapter in a later-day Government Printing Office history.

Printing Arrives in New World in a newly built house on the bleak shore of New England. Printing reached British America in The early English Americans who 1639, 322 years ago, when Stephen Daye arrived on the Mayflower brought with (later Day), set up a printing plant in them a great tradition in the form of lit- Cambridge, Mass., with equipment pur- erature and a growing language. News- chased in England for the use of Har- papers were important media for the vard Academy (later Harvard College). struggling colonials as a source of news Stephen Day, a locksmith by trade, had and information, but the chief source of a son, Matthew, who was versed in the revenue for the early public printers was art of printing, with his knowledge ac- official crown printing. Newspapers of quired in England. Thus the first print- the day were best equipped to perform ing in colonial America was performed such work, for they alone possessed suf- by Matthew Day, who began to set type ficient type and paper, in addition to the

1 possession of political agility in their edi- Virginia: William Nuthead, William Parks, torial attitude toward both the crown and William Hunter, William Rind, John Dunlap the patriots. and James Hayes, John Dixon, Thomas Nicolson.

Early Publick Printers Censorship

The term “publick printer’’ was ap- Printing in British North America was plied to those engaged in printing official not easy on printshop proprietors, for in publications. Most Colonies had publick 1664 censorship was established in Mas- printers, although in some places govern- sachusetts. In 1671, the Colonial Governor ment work was divided among two or of Virginia said: more leading printers. But, I thank God, there are no schools nor Until 1789, the following served as of- printing, * * * for learning has brought disobedi- ficial crown or colonial printers: ence, and heresy, and sects into the world; and printing has divulged them, and libels against Connecticut: William Bradford, Thomas the best government. God keep us from both. Short, Timothy Green, James Parker. Delaware: Benjamin Franklin, James Adams, Royal instructions to the Colonial Gov- Jacob A. Kallen. ernors decreed that— Georgia: James Johnston, John Daniel Ham- merer. you are to provide by all necessary Orders that Maine: Benjamin Titcomb, Jr., Thomas B. noe person have any press for printing, nor that Wait. any book, pamphlet or other matters whatsoever Maryland: William Nuthead, Thomas Read- bee printed without your especial leave & license ing, Benjamin Franklin, John Peter Zenger, first obtained. William Parks, Jonas Green. Massachusetts: Stephen Day, Samuel Green, In England, the number of printers Green & Russell, John Foster, James Franklin, and typefounders was limited, and they Thomas Short. were licensed and operated under strict New Hampshire: Daniel Fowle, Thomas Furber. surveillance, with the same restraints New Jersey: William Bradford, Samuel placed on colonial printers. In 1735, Keimer, Benjamin Franklin, James Parker, Isaac however, John Peter Zenger, publisher Collins. of the New York Weekly Journal, was ac- New York: William Bradford, John Peter Zenger, James Parker, William Weyman,1 Hugh quitted of libel charges brought by Gov- Gaine, John Holt, Francis Childs. ernor William Cosby, who sought to cen- North Carolina: James Davis, Andrew sor Zenger’s attacks on the crown. The Steuart. verdict helped establish freedom of the Pennsylvania: William Bradford, Jacob Tay- lor, Andrew Bradford, Samuel Keimer, Ben- press in America. jamin Franklin, John Dunlap, David C. Clay- poole. Newspapers Rhode Island: William Bradford, James Franklin, William Goddard. South Carolina: Eleazer Phillips, Lewis Tim- The publick printers were hardy and othy. daring men who resisted the control of Vermont: Timothy Green, Judah P. Spooner, the Crown Governors. An independence Alden Spooner. of thought began to assert itself through colonial newspapers. The first newspa- per in the New World was founded in 1 Of Weyman, it is said that in November 1690, with the lengthy title of Public Oc- 1766 he printed an official address which con- currences both foreign and domestick, un- tained so many typographical errors that he and der the sponsorship of Benjamin Harris, his journeyman were ordered to appear before the House with an explanation. An acknowledg- a London bookseller. In 1704, the Boston ment and apology, with a promise not to repeat News-Letter made its appearance. Various the performance, saved them from punishment. other papers followed, but no change of 2 importance occurred until the advent of printer, for John Sanders, “a booke-byn- Benjamin Franklin’s Pennsylvania Gazette der,’’ set up shop in Boston in 1637. in 1729. Franklin was a man of learning, though self-taught; a capable printer; and Continental Congress Printing an enterprising and resourceful business- man, and the Gazette reflected its brilliant At the beginning of the Continen- editor and publisher. tal Congress in 1774, the interest of the Franklin became the publick printer for people in congressional proceedings was Pennsylvania, New Jersey, Delaware, and at fever heat, all the more fanned by the Maryland, in addition to printing paper secrecy enjoined by the members. The money for the Colonies. Rough and Secret Journals from 1774 Between 1690 and 1820, there were to 1789 were written in longhand by published in 30 Colonies and States a Charles Thomson, secretary of Congress, total of 2,120 newspapers, and many were and were printed in 1821 by Thomas B. political party organs. With the struggle Wait. for publick printing awards and equip- The Journal of Congress and other leg- ment and supplies, more than one-fourth islative printing in 1774 were done by expired within their first year, and half William and Thomas Bradford of Phila- gave up before the end of the second year. delphia. However, the Journal produced Thus colonial printers suffered a high by the Bradfords proved unsatisfactory, mortality rate. and from January to May 1776 the Jour- nal was printed by Robert Aitken. The Printing Equipment latter had learned of the dissatisfaction of Congress with the Bradfords’ delay of All type, printing presses, and ink used printing, and thinking the time oppor- by early colonial printers were imported tune for obtaining a part of the printing from England. In 1769, roman type was business of Congress, reprinted a copy of first produced by Abel Buell in Connecti- the Journal as a sample of what he could cut. In the same year, Christopher Sower do. Therefore on September 26, 1776, of Philadelphia built the first American- the committee on publication, which in- made printing press. cluded Thomas Jefferson, appointed Ait- In 1723, at 17 years of age, Franklin ken as congressional printer. manufactured ink in Philadelphia for his It fell to Aitken’s lot to have a disagree- employer, and in 1733 set up an ink-mak- ment with Congress, as had the Brad- ing plant, the first effort toward emanci- fords before him, for in 1778 the printing pation from poor quality inks imported committee announced that it was “em- from England. Franklin was the first to powered and instructed to employ Mr. make and use lampblack as a vital ele- John Dunlap to continue printing the * * * ment in producing better printing inks. journals instead of Robert Aitken.’’ For paper, the Colonies achieved early The Continental Congress on June 22, independence from English suppliers by 1775, authorized the issuance of Conti- the establishment by William Bradford, nental currency to finance the Revolu- in partnership with Samuel Carpenter tionary War. Called “Continentals,’’ to and William Rittenhouse, of a papermill distinguish them from the paper money in 1690. By late 18th century Franklin issued by separate colonies, the currency had established or helped establish 18 was printed from plates engraved by papermills, and by 1787 there was a total Paul Revere. of 90 mills in the Colonies. John Dunlap set the Journal for 1777, In bookbinding, it is noteworthy that but it did not reach the press until March the first bookbinder preceded the first 27, 1779, and he too fell under the ban of 3 Congress because of his tardiness. The The Declaration of Independence was delays in printing the Journals induced printed by John Dunlap of Philadelphia Congress at about this time to pass the for the Continental Congress, which, on following resolution: July 4, 1776, “Ordered, That the Declara- Resolved, That the Journals, * * * except such tion be authenticated and printed. That parts as have been or shall be ordered to be the committee appointed to prepare the kept secret, be printed * * * weekly; and that Declaration superintend and correct the a printer be engaged to print for Congress; and press.’’ Printed copies of the Declara- also a printer or printers be employed to bring tion of Independence were distributed to up the journals from the time of their present publication * * * . Congress, and also proclaimed to citizens and the Continental Army. Produced With the effectiveness of a new broom, from handmade paper, the printed copy Congress on April 9 swept away Dunlap today is in a better state of preservation and in his place David C. Claypoole was than the official engrossed parchment appointed to print for Congress. He im- copy in the National Archives in Wash- mediately began the publication of the ington. most interesting, the most serviceable, Later, in 1787, the printing of the Con- and the costliest of all Journals, and to stitution was placed in the hands of Dun- present-day researchers the rarest and lap & Claypoole who, according to the most valuable. Register of Accounts of the Continental From October to December 1779, Congress, received 3 pounds 10 shillings Claypoole’s printing charges were nearly for 100 copies of the Constitution, and 1 $20,000 in the currency of that time. pound 4 shillings for an additional 100 In October 1783, the secretary of Con- copies. gress was instructed to again employ John Either Dunlap, as “Printer to the Dunlap as congressional printer and “to United States in Congress Assembled,’’ inform him that Congress expect he will or his partner Claypoole, as “Printer to keep his office at the place where they the Honorable the Congress,’’ printed the may reside,’’ for Congress had no fixed Journals of the Continental Congress and home and was moving from one impro- many other official reports, resolutions, vised capital to another. Setting up shop and papers, in addition to the Declara- in Annapolis, the work was delayed, and tion of Independence. Later, in 1796, they in 1784 the secretary wrote that— printed Washington’s Farewell Address. I am sorry the printer [Dunlap] makes no bet- Dunlap served Congress from 1778 to ter progress. I wish you would stimulate him 1783, and both he and Claypoole could be and urge his completing the Journal of 1783 with regarded as the first official printers for all possible expedition. the U.S. Government. Proceedings of the Journal up to this time were printed as separates. On June Labor 1, 1785, Congress decided that the “whole of the Journal ought to be reprinted and Shortly after the invention of movable published.’’ The advertisement inviting type by Gutenberg in 1440, a strike of bids stated that the “proposal must men- compositors in 1471 in Basel, Switzer- tion the time when the work can be en- land, was settled by arbitration by the tered upon, and the quantity which can town authorities. This was the first use be composed daily, and be accompanied of collective bargaining in the printing with specimens of the paper and types.’’ trade. Later, in 1539, printers in Lyons, In the meantime, however, Dunlap is- France, also went on strike, complain- sued the 1784–85 edition of the Journal, ing that their day began at 2 a.m., and and continued its printing until 1789. ended at 8 or 9 at night. In addition, the 4 master printer did not supply sufficient neymen thrown out of work for their re- food, wages had been reduced, and there fusal to accept the employers’ minimum. were too many compulsory holidays These indications of the early solidarity without pay. Collective-bargaining ef- of printers produced uneasiness among forts reduced the workday to 5 a.m. till 8 employers, for in 1792 a Boston employer at night. History does not indicate other complained that “the devil seems to have working concessions. got into the journeymen.’’ From the days of Stephen Day in 1639, hired labor was usually augmented by the Summary printer’s family—his wife, daughters, and sons. Trained journeymen who came to The phase of publick printing as a part the new country as free agents or under of public printing history ended in 1789 terms of indenture were also a source of with the beginning of the First Congress. skilled help, but the chief source was pro- The Revolutionary War had been fought vided by the neighborhood boy through and won, and the peace treaty signed in the apprenticeship system. Wage scales be- Paris in 1783. The Continental Congress tween 1754 and 1792 corresponded closely formed in 1774 in Philadelphia had met to the English rate, with compositors re- in eight improvised Capitals in four dif- ceiving a shilling for a thousand ems of ferent States, residing successively in handset type and pressmen a shilling for Philadelphia, New York, Baltimore, An- a token (240 sheets printed on one side). napolis, Lancaster and York, Pa., and There is little evidence of labor trou- Princeton and Trenton, N.J. In New bles in the shops of colonial America, but York, the Constitutional Convention had labor was beginning to organize in Eng- completed the formation of the Union land and in continental Europe. But the and the work of organizing the United impetus of labor organization was made States of America into a whole was the evident when New York journeymen business of the period. in 1778 formed an association to secure “Publick printing’’ became “public a wage increase by means of a strike. printing,’’ and various colonial Print- Ten years later in Philadelphia, when ers fought for the Federal printing. The employing printers attempted to reduce establishment of a Government printing minimum weekly earnings to $5.831/2, office at first was not considered, for Con- local journeymen formed an association gress and the Capital had no permanent to resist this action. The local union for- home. The following chapter describes bade its members to accept less than a Federal printing from the 1st Congress $6 minimum and, as a preview of 20th- to the 36th Congress, which in 1860 es- century customs, agreed to support jour- tablished the GPO.

5

Chapter II

FREE ENTERPRISE PUBLIC PRINTING 1789–1861

HE ERA OF PUBLICK printing ended with the birth of a Nation and en- tered into, for want of a better term, the “free enterprise’’ public printing Tperiod which closed with the beginning of the GPO in 1861. There has been some printing excitement in the quiet working years from 1861 to the present which saw the GPO grow from a small printshop to a giant printing office. But the printing story of the pre-GPO years from 1789 to 1861 was one of increasing drama. It started quietly, for with the establishment of the Capital in Washington in 1800, the amount of public printing was small. But the country was on the march. U.S. population in 1800 totaled 5,297,000, and by 1820 it had grown to 9,618,000. By 1840 the population had increased to 17,120,000, and in 1861 was 32,351,000. As public business expanded, so did its printing needs, and the printing pace quickened.

First Congress Meets marked by the first filibuster in the U.S. Senate, for there were several candidates The First Congress, under the Consti- for the site of the Nation’s Capital. tution, met in the city of New York on The third session of the First Congress March 4, 1789, pursuant to a resolution met in Philadelphia, December 6, 1790, of the Congress of the Confederation on and convened in Congress Hall, which September 13, 1788. It held its first session was near Independence Hall. At this ses- in the City Hall of that city, remained in sion all of the Original Thirteen States session 210 days, and adjourned on Sep- were represented for the first time. Con- tember 29, 1789. The second session of gress continued to meet in Philadelphia the First Congress began January 4, 1790, until the first session of the Sixth Con- and terminated on August 12, 1790, also gress adjourned on May 14, 1800, to reas- in New York. Congress during this ses- semble in Washington on November 17. sion considered many locations for a per- manent Capital, and on July 9, 1790, a site Government in New Home on the Potomac was approved by a ma- jority of two votes in the Senate and by With primitive travel facilities, Con- three votes in the House. The debate was gress failed to present a quorum for its 7 second session, but by November 21, suf- town, a close-by suburb. In spite of its ficient members had arrived to enable the desolate appearance, historians differ on body to begin its legislative work. the number of homes in the new Capi- In the meantime, the entire Govern- tal. One historian noted 47 brick and 119 ment staff of 136 clerks and officials had frame houses, and another estimated 109 made their way to Washington by ship brick and 253 frame houses. and stagecoach. All expenses, including Thus the Federal Government made salaries, were paid by the Treasury. its appearance on the Washington scene The Government in 1800 comprised in a primitive environment. five departments: State, with 8 employees; Treasury, 75; War, 17; Navy, 16; and Post- First Federal Printing Office, 10. These departments opened for public business, with only the Trea- In 1787, when the Federal Conven- sury boasting its own building. Its 2-story tion for the formation of the Union as- building with 30 rooms was situated on sembled in Philadelphia, James Wilson, a the south front of the present Treasury Delegate from Pennsylvania, in a debate building, and the other departments set on publishing the Journals of the House up shop in leased quarters. and Senate, stated that— the people have a right to know what their Early Washington Agents are doing or have done, and it should not be in the option of the Legislature to conceal As part of a GPO history, it would their proceedings. be well to describe the Washington of With this declaration, Government 1800 when it became the seat of govern- business became public business, for “the ment and the scene of early Government people have a right to know.’’ printing. The first mention of public printing President John Adams moved in on No- found in the Annals of Congress was in vember 1, and addressed a joint session of relation to printing the laws. A report Congress on the 22d. He called the new presented by Mr. Sylvester, a member of Capital a “wilderness city,’’ but some news- the House, early in the first session of the papers were less kind, describing the town First Congress recommended that pro- as “a city of streets without houses, with posals be invited for “printing the laws not one solitary attractive feature,’’ and its and other proceedings’’ of Congress. It is setting “as a mudhole almost equal to the presumed that this resolution covered, by great Serbonian bog,’’ with swarms of mos- “other proceedings,’’ the printing of the quitoes spreading malaria. A visiting Eng- bills and resolutions, and such documents lishman noted that Washington had “more and reports as were necessary in the the appearance of a thickly-settled country transaction of the business of the House. than a city’’; Georgetown was declared “a In May 1789, several petitions were city of houses without streets’’ and Wash- presented to the House by those engaged ington “a city of streets without houses.’’ in the business of printing in New York, In spite of the geographical wilderness, praying to “be employed in the printing it was no literary wilderness. A local for Congress,’’ but the Annals give no in- shopkeeper said that “Folks are most lit- formation as to whether any of the peti- erary here,’’ and a circulating library was tioners were ever so engaged. founded in 1801, but abandoned by the The 1896 Annual Report of the American proprietor beacuse it interfered “with his Historical Association printed a compila- grocery and liquor business.’’ tion of public documents of early Con- The population comprised about 3,000 gresses. It showed that House Journals for citizens, 500 of whom lived in George- the first and second sessions of the First 8 Congress (March 4, 1789, to August 12, of the work were presented in the House; 1790) held in New York were printed by but no change was effected for several Francis Childs and John Swaine of that years. city. For the Senate, John Fenno was the The Senate, up to 1794, sat with closed printer. doors, and as the proceedings preserved Apparently the first document ever were of meager character, rules govern- printed separately for the House was ing printing for that body can be judged the Report of the Secretary of the Treasury by what is found in the proceedings of [Hamilton] to the House of Representatives the House. It was certain, however, that relative to a provision for the support of the the method of doing the work mentioned public credit of the United States, printed above also prevailed in the Senate from by Childs & Swaine in 1790. the beginning of the First Congress until After Congress had adjourned its the second session of the Eighth Congress second session on August 12, 1790, it [1804]. moved to Philadelphia for the third ses- In 1794, an act was passed making ap- sion, which began on December 6, 1790, propriations for the support of the Gov- and adjourned on March 3, 1791. Also ernment and included the first specific moving to Philadelphia were Childs & appropriation for the public printing. Swaine and John Fenno, who printed the As the association with other items will House and Senate Journals, respectively, doubtless appear rather singular to the until the end of the Second Congress on reader of congressional literature of the March 2, 1793. present day, the following extract is of From 1793 to 1800, these printers, in ad- interest: dition to Samuel H. Smith, produced all congressional printing in Philadelphia. For the expenses of firewood, stationery, and A joint arrangement between commit- printing work, and all other contingent expenses of the two houses of Congress, ten thousand dollars. tees of the two Houses was entered into about 1789, which provided “that 600 There was appropriated, in the same copies of the acts of Congress and 700 law, for like purposes: for the Secretary copies of the journals’’ should be printed, of State, including the publication of the and directed the Secretary of the Senate laws of the first session of the Third Con- and Clerk of the House to have the work gress, $2,261.67; for the Treasury Depart- done. This action of the joint commit- ment, $4,000; and for the War Depart- tee was subsequently approved by both ment, $800. Houses. Up to the time of the passage of this It appears that this arrangement did law, printing was paid from the contin- not give very general satisfaction, as nu- gent fund of Congress and the depart- merous propositions looking to more ex- ments, without being specifically men- pedition, accuracy, etc., in the execution tioned in the laws.

Government Printing Needs

Congress and Government, arriving ing demands of the young Government. in muddy Washington, found but two The Centinel of Liberty and Washington newspapers to produce its documents, for Advertiser were printed irregularly, but only the newspapers had sufficient type, beginning October 31, 1800, the National paper, and equipment to meet the print- Intelligencer began regular publication. 9 The printing business, although the active in supplying the printing needs of largest in the city, was precarious, for it the Government. Although very small was limited to the period when Congress in volume, Government printing was at- was in session. During the recess, plants tractive enough for Philadelphia shops to were partially shut down and printers follow the printing trail to Washington. were obliged to seek work elsewhere. As a result of Thomas Jefferson’s advice and encouragement, Samuel H. Smith, Washington Printing Expands publisher of the Philadelphia Universal Gazette from 1797 to 1800, decided in 1800 From 1801, the Intelligencer under to transfer his printing equipment from Smith was the administration’s sole or- Philadelphia to Washington. There he gan, but not in full control of Govern- continued to publish the Gazette in addi- ment printing. The Intelligencer did some, tion to the National Intelligencer, the first and the rest was distributed among other national newspaper and also the official printers with proper party affiliation. organ of the Jefferson, Madison, Monroe, Other printers, noting Smith’s well- and John Quincy Adams administrations paid venture, formed newspaper enter- [1801–29]. The Intelligencer in its first is- prises to serve the new Congress and the sue stated that the vessel bearing the ma- citizens of the Capital. terials for the new enterprise sailed for no In 1800, Rapine, Conrad & Co. of Phila- less than 6 weeks, via the Delaware River, delphia opened the Washington Book Store Chesapeake Bay, and Potomac River. at New Jersey Avenue and B Street SE. Within a short space of 6 weeks, Wash- As usual with booksellers of that period, a ington, Georgetown, and Alexandria had printing office formed a part of the establish- four dailies, two triweeklies, and one maga- ment. Shortly after, on January 7, 1801, the zine. The printing of the Congress at that Washington Repository appeared, and com- time was distributed by officers of the two bined the features of an almanac and a guide Houses to such printers as they might select. to the city, in addition to a list of Members of Imprints on documents indicate that Rapine, Congress and Government employees—the Conrad & Co. and the Apollo Press, owned first of which there is any record. by William Duane & Son, Philadelphians Philadelphia had been the Capital who had also followed the printing trail to from 1790 to 1800 and its printers were Washington, performed public printing.

Congressional Proceedings

The first session of the First Congress Information as to the debates of the convened on March 4, 1789, but not until early Senates was exceedingly meager, April 6 did a quorum appear in the Sen- because the Senate sat with closed doors ate, and in the House not until April 1. to 1794 and the public was admitted only The proceedings of the House during at the beginning of the second session of the period from 1789 to 1794 were very the Third Congress [November 3, 1794]. fully reported by enterprising newspa- The debates, however, were very inac- permen, and appeared in at least two curately reported, or printed, and their newspapers while the sessions of Con- appearance in this imperfect form soon gress were held in New York up to 1790, gave rise to many complaints and much and one or more while the sessions were discussion in the House. held in Philadelphia. In January 1796, a committee reported 10 in favor of having the debates printed by Gales & Seaton authority of the House, and a proposition involving $4,000 for stenographers— Joseph Gales, Jr., had arrived in Wash- of which amount Smith’s Philadelphia ington in 1807, working for Smith’s Intel- Gazette offered to pay $1,500—was sub- ligencer. In 1809 Gales became a partner, mitted. Without further action on the and in 1810 acquired sole ownership. report, the committee early in February On October 8, 1812, the Intelligencer an- was discharged from further consider- nounced that William W. Seaton, Gales’ ation of the subject. brother-in-law, had become a partner: In December 1797, Thomas Carpenter The editor [Gales] of this paper, finding its ex- petitioned Congress, setting forth that tensive concerns too multifarious for the super- he was the editor of the American Sena- intendence of any individual though possessed tor, published during the late session of of more industry and assiduity than he can lay Congress; that at the commencement of claim to, has taken in connection with him in business Mr. William W. Seaton. * * * This ar- the session he had presented a memorial, rangement whilst it will leave the editor at lib- praying its support of his work, i.e., pub- erty to devote more particular attention to the lishing the debates; that he had received Congressional Reports * * *, will, he hopes, en- assurances from numerous individual sure greater correctness and better typographical members of their patronage, but that execution than heretofore. the enterprise had proved unfavorable The resourceful team of Gales & to him; and asked for relief in the sum Seaton then entered the field of reporting of $2,250. A committee was appointed to and printing the debates of Congress. consider the matter, but 2 days later re- On August 24, 1814, during the War of ported that they could not recommend 1812, the British destroyed much of the relief; and the report was concurred in. city, including the Capitol, President’s For the next 2 or 3 years no reference to House, and the Intelligencer’s plant, with the publication of the debates is found in its type, presses, and paper. the Annals of Congress; but they continued Gales and Seaton were both stenogra- to appear regularly in printed form, and phers, and occupied seats at the side of the country is indebted for the very full the Vice President in the Senate and of reports now accessible solely to the spirit the Speaker in the House. One of the per- of individual or private enterprise which quisites shared with those officials was animated the printers of that time. the use of the official snuffbox. Gales was the practical printer, and later served as National Intelligencer mayor of Washington from 1827 to 1830, and Seaton filled the same office from On November 17, 1800, Congress con- 1840 to 1850. vened in Washington, and the proceed- The Intelligencer covered the debates ings of Congress were published in the until 1829, when it was cut off from pub- Intelligencer, which was founded with lic printing, but it still had an asset, for a promise that it would be published “on newspapers over the country relied upon the first day of the next session ofCon- it for reports of congressional business. gress, * * * to appear three times a week In 1822 a congressional committee * * * and conducted on national princi- was appointed and directed to report ples.’’ The Intelligencer published abbrevi- upon the best mode of giving to the ated reports of congressional proceedings public a “full and correct statement of after they were written out and submitted the debates of the House,’’ and on May to members for revision at their leisure. 2 the committee reported that they had This method caused the publication to be considered the matter. They were of the frequently weeks in arrears. opinion— 11 that the Government of the United States being was undertaken “under the excitement of a Government which essentially depends upon the fresh impulse given to national feel- public opinion, it is a consideration of the first importance that the course pursued by the im- ing by the visit of Lafayette to this coun- mediate representatives of the people in Con- try [1824–25].’’ gress should be impartially presented to the The first issue of theRegister of Debates public view. in Congress appeared on December 6, A resolution was framed directing the 1824. Its title page stated that the Register speaker to secure, during the approach- comprised the— ing recess of Congress, proposals for re- leading debates and incidents of the 2d session porting and publishing, from day to day, of the 18th Congress: together with an appendix, a correct account of the debates and other containing the most important state papers and public documents to which the session has given proceedings of the House, and submit the birth: to which are added, the laws enacted dur- same to the House at the commencement ing the session, with a copious index to the whole. of the next session. This proposition found many advocates, but the opposi- Blair & Rives tion—which was principally founded upon the great expense which would at- In 1831, the Globe, a semiweekly tend the enterprise—was too strong for owned by Francis P. Blair, began to report the friends of the measure, and all fur- the debates of Congress. Blair had come ther action was ended by a motion to to Washington from Kentucky with an table the report and resolution. invitation from President Jackson to con- In 1824, the publication of the Annals of duct an organ dedicated to the adminis- Congress was commenced under the au- tration. Shortly after, Jackson introduced thority of Congress and it embraced the John C. Rives, a Treasury clerk and also proceedings and debates of both Houses a Kentuckian, to Blair. Rives stood 7 feet from 1789 to 1824. Comprising some 42 tall, weighed 240 pounds, and was an ex- volumes, the Annals also contained state cellent writer. The firm of Blair & Rives papers, public documents, laws, and was formed, and entered the field which much correspondence. This compilation for years had been monopolized by Gales was performed by Gales & Seaton and & Seaton in reporting and publishing the thus preserved for posterity the legisla- proceedings of Congress in book form. tive history of Congress in its first half The idea of reporting the full proceed- century. ings of Congress originated with Rives, In 1824 Gales & Seaton also began the and on December 7, 1833, the first is- publication of the Register of Debates in sue of the Globe made its appearance as Congress and the American State Papers. a weekly with full reports of congres- The Register was a continuation of the sional activity. Members who desired Annals of Congress and contained many their speeches printed were expected to valuable state papers as well as routine write them out in full. congressional work. Twenty-seven vol- Up to this time, and for a number of umes in book form were published, cov- years later, these publications were made ering the debates from December 1824 to without expense to Congress. Quite full October 1837. This venture was under- reports were also printed by the Intel- taken at Gales & Seaton’s own risk and ligencer, Telegraph, and Union at the ex- expense, and was the first attempt to pub- pense of the proprietors. lish in separate form the debates of Con- The firm of Blair & Rives and its suc- gress. However, public aid was secured cessors remained in business as printers and then a subscription was made by of the Globe until 1873, when the GPO each House for 500 copies at $5 each. As assumed the printing of the Congressional the publishers later explained, the work Record. 12 In 1839, congressional debates were propriated, and James A. Houston of covered by representatives of some six or New York agreed to produce a daily seven District newspapers, in addition to and sessional report, the latter in book “letterwriters’’ who mailed accounts of form. The daily was known as the Congress to out-of-town papers. These United States Reporter, but soon it was reporters occupied seats on the floor of being issued 1 week late, then 2 weeks, the House. This arrangement held un- and in addition the cost was much til December 16, 1857, when the House greater than estimated. moved into its new hall, and a gallery So the Senate went back to newspa- back of the Speaker’s chair was assigned per digests of its proceedings, and the to the gentlemen of the press, with offi- House continued in the same way, with cial reporters given places on the floor. congressional coverage on a pay basis and The Senate in 1835 had permitted only reporting placed in the same class as pub- local reporters to enjoy floor privileges, lic printing. A column rate was adopted, with six letterwriters placed in the gal- and the work assigned to a newspaper lery. The six petitioned the Senate for selected by both Houses. By 1851 con- equal accommodations, but later the re- gressional proceedings were practically porters were returned to the gallery. reported verbatim, instead of portions se- In 1847, Congress again considered the lected according to the whims of report- reporting and publication of its proceed- ers and editors. ings and debates. The question involved As soon as Congress began paying the use of Washington papers to print for newspaper space for its proceedings, verbatim reports of congressional activ- Blair & Rives (of the old Globe which had ity without prospect of compensation. It been sold out in 1853) revived that paper was— and prepared to print daily and sessional an expense which the newspaper never could reports. Although one or both Houses have met but for the actual or anticipated pos- paid other papers for debate printing, the session of the printing of Congress, which each Globe soon became the recognized Offi- in their turn has enjoyed, and which at the rates fixed by law had become sufficiently profitable cial Reporter of Congress, carrying that [by the reduction in paper costs, the introduction title as a column head. Thus the Globe of power presses, and the printing of large extra held that position until Congress and the numbers of heavy documents] to justify a heavy GPO assumed publication of the Con- expenditure in this service. gressional Record in 1873. In 1856, Blair This problem led the Senate to pro- sold his interest to Rives, claiming that vide for the reporting and printing of “the business would not support both,’’ its proceedings—the first action of the and Rives continued the publication with kind by either House. A sum was ap- other associates.

Public Printing in New Capital

In December 1801, during the first ses- multiplying the offices of the House, was sion of the Seventh Congress, the first defeated, with only about 20 members proposition to appoint a printer to the voting in favor of it. House was made by Mr. Randolph. This A very lengthy discussion occurred plan had the sanction of a committee of during the second session of the that body; but the recommendation of Seventh Congress [in February 1803] in the committee, owing to opposition to the House upon the propriety of printing 13 public documents; i.e., communications In 1840, John C. Rives, testifying be- from the President and executive depart- fore a committee studying the feasibility ments. The particular document in ques- of a national printing office, stated: tion was a message from the President, I have been told that an important bill was and accompanying papers, relating to the lost in 1818, for the want of the printing, that expenditures from the contingent fund cost the Government more than the whole print- of the executive departments for several ing of Congress for the 10 years following. years previous. The discussion took a wide range, but the real opposition was National Printing Office Proposed founded upon the expense, which it was estimated would be $10,000. The propo- In December 1818 (15th Cong., 2d sition was finally passed by a vote of 38 to sess.), a resolution was passed appointing 28, and the document was printed. a joint committee of the two Houses of In 1804, in the second session of the Congress to “consider and report whether Eighth Congress, a resolution was passed any further provisions of law are necessary requiring the “Clerk of the House to ad- to insure dispatch, accuracy, and neatness vertise for proposals for supplying the in the printing done for the two Houses of House of Representatives with stationery Congress.’’ In obedience to this resolution, and printing, and to award the contract a committee was appointed to explore the to the lowest bidder.’’ subject. The committee, consisting of Gen. At the next session, the Clerk made James J. Wilson, a Senator from New Jer- a report of his action under this resolu- sey and an editor and practical printer, tion, but the papers were lost, and it has and Gen. Thomas A. Rogers, a member been impossible to record the difficulties of the House from Pennsylvania, visited which he probably encountered in the New York and Philadelphia, and made first attempt at the contract system as diligent inquiry in respect to the costs and applied to the public printing. The Sen- methods of having the work executed. ate also took action on the subject in a Three modes of procuring the printing resolution to “appoint a committee to in- of Congress were studied: (1) Continu- quire into the expediency of establishing ing the low bidder system, (2) a national permanent rules for the regulating and printing office, and (3) fixed rates. In its conducting the printing for the Senate.’’ report of February 19, 1819, the com- The committee to whom the resolution mittee rejected the low bidder method was referred reported favorably, and it because— was passed. at the first glance it may strike the mind as the most economical, experience and observation do not prove it so. Competitors for the work under- First Contract Printing bid each other, until it is undertaken for a less sum than it can be afforded * * *. Hence, both This system—the letting of the print- Houses have frequently to wait long for inter- ing to the lowest bidder, and which was esting and important communications, reports, bills, &c. * * * and the loss of time thus incurred, the first joint attempt to have the print- considering the daily expense at which Congress ing for the Government executed by con- sits, costs the nation much more than the dif- tract—prevailed in both Houses of Con- ference, between the present price, and a more gress until the passage of the resolution liberal allowance, * * * to ensure the dispatch of of 1819. The work was done in a very the work. imperfect manner, and excited from time In addition, low bid prices— to time an endless amount of unfavorable prevent that care and attention * * * which is criticism; it was also very expensive and necessary to its neatness and accuracy. These unsatisfactory because of delays and inac- documents are not only distributed through this curacies in its execution. nation, but disbursed through Europe, which 14 are executed in such an inelegant and incorrect period of the session, and amidst the pressure manner, as must bring disgrace and ridicule on which both Houses experience from the accu- the literature, and the press of our country. mulation of business important to the nation, * * * to submit a proposition on which there The committee felt that a Government would probably be a considerable diversity of printing office would be the best and opinion, and consumption of time. most economical method, and reported The committee recommendation was as follows: not acted upon, but for the first time a na- How far it is reputable for Congress to en- tional printing office had been proposed, deavor to get their work done below a fair and and the report embodied the idea which reasonable price, may be a matter of doubt, but in 1860 was expanded into the organic it does not admit of a question that the com- printing law. pensation ought to be adequate to the object of procuring that work to be done at a proper time and in a suitable manner. A second mode sug- Printing Act of 1819 gested to and considered by the committee was the establishment of a national printing office There still remained the necessity for (with a bindery and stationery annexed), which some legislation, and action by Congress should execute the work of Congress while in session, and that of the various departments of was imperative. The country had greatly Government during the recess, and should do increased in population, and the business all the binding, and furnish the stationery, for of Congress had been so frequently inter- the departments, as well as for Congress. To as- rupted or interfered with because of the certain the amount of expenditures on these ob- jects, inquiries were addressed by the committee delays and inaccuracies in its printing to the Heads of Departments, attorney general, that the resolution of March 3, 1819, was and postmaster general, and an answer received hastily framed and passed. It established from each. Some of the reports were made in a schedule of prices; provided that each such a manner as not to enable the committee to House would ballot and elect a printer to separate the accounts for printing from those for binding and stationery; but the whole amount execute its work; and it further provided exceeds $41,000. Add to this the expenditures that, if occasion arose, the same elected of the Senate and House of Representatives on printer could serve both Houses. the same objects, namely, the former $8,000, and The 1819 joint resolution follows: the latter $15,000, and the aggregate cost of the public printing, binding, and stationery is about Resolved, etc., That the printing of Congress, $65,000 a year, of which probably one-half is unless when otherwise specially ordered, shall for printing; and this, it will be remembered, be done in the following form and manner, viz: does not include the great variety and number Bills, as heretofore, with English type [14 point] of blanks executed elsewhere than at the Seat of on foolscap paper. Rule or table work, in royal Government from copies furnished by the De- octavo size, when it can be brought into that size partments of the Treasury, War, &c., and which by any types not smaller than brevier [8 point]; might all be done here at a much less expense and where it cannot, in such form as to fold con- were a National Printing Office established. veniently into the volume. All other printing The committee are of opinion that such an with a small pica type [11 point], on royal paper, establishment, under the superintendence of a in pages of the same size as those of the last edi- man of activity, integrity, and discretion, would tion of the laws of the United States, including be likely to produce promptitude, uniformity, the marginal notes. accuracy, and elegance in the execution of the And the following prices shall be allowed public printing; and they are not certain that it and paid for the above described work: For the would not, in the result, connecting with it a composition of every page of bills, $1; of every bindery and stationery, as already suggested, be page of small pica type, plain work, $1; of every found the most economical. page of small pica rule-work, $2; every page of brevier rule-work, $3.50; and for a larger form However, it qualified this recommen- of brevier rule-work, in proportion. dation by suggesting that— For the press-work of bills, including paper, folding and stitching: for 50 copies, 25 cents as the principle is somewhat novel, and the de- per page; for 400 copies, $1.25 per page; for the tails would require some deliberation, the com- press-work of tables, other than those in the mittee have not deemed it advisable, at this late regular octavo form: for 600 copies, including as 15 above, $5.50 per form; for the press-work of the of such printer, for executing such work, above journals, of 900 copies, including as above, $1 per what is herein allowed, to the printer guilty of page; for all other printing, in the octavo form, such negligence and delay: Provided, That noth- of 600 copies, including as above, 87 1/2 cents per ing herein contained shall preclude the choice page; and for a larger or smaller number, in pro- of the same printer by the Senate and House of portion. Representatives. That as soon as this resolution shall have been approved by the President of the United States, [The custom of printing the bills of Congress in each House shall proceed to ballot for a printer English type is still followed. Nonpareil [6 point] to execute its work during the next session of has taken the place of brevier type for tabular Congress; and the person having the greater matter, and brevier type is used very extensively number of votes shall be considered duly elected, for extracts.] and shall give bond, with sureties, to the satisfac- tion of the Secretary of the Senate and Clerk of Congress, by establishing fixed rates for the House of Representatives, respectively, for printing, did not anticipate technological the prompt, accurate, and neat execution of the advances in the printing art. As printing work, and in case any inconvenient delay should skills improved, these rates, unchanged be, at any time, experienced by either house in the delivery of its work, the Secretary and Clerk, until 1846, proved extremely profitable. respectively, may be authorized to employ an- The following indicates the printer other printer to execute excess in the account turnover, with breaks in yearly continuity.

Government Printers

Gales & Seaton with a stationery and book store. Force also published, between 1820 and 1836, Under the law of 1819, the House elected the National Calendar and Annals of the Gales & Seaton as its printer from 1819 to United States, a statistical manual which 1827, and again in 1833. They also served included a list of Government employees. the Senate from 1819 to 1825, when Duff Force later served two terms as mayor of Green was elected by that body, but were Washington, 1836–39. He was one of the reinstated in 1833, and reelected in 1835. best-informed men of his time on Ameri- [In 1829, Gales & Seaton’s Intelligencer can history, and had assembled the finest imported the first flat-bed cylinder press collection of printed Americana of the from England. Known as the Napier day. The accumulated historical records press, it incorporated new principles of of Force were purchased in 1867 by the steampower and paper handling.] Library of Congress for $100,000.

Peter Force Duff Green

Another Government printer was the In 1827, in the Senate, Messrs. Duff National Journal which made its appear- Green, Gales & Seaton, Peter Force, and ance in 1823. Peter Force, the Journal’s Thomas Ritchie were nominated for editor and a practical printer, had come election as printers to the Senate. Under to Washington in 1815 with his employer, the law of 1819, a majority of all the votes William A. Davis. The latter had aban- cast was necessary to a choice. Two bal- doned a printing business in New York lots were taken, but with no decision, and to set up shop in Washington to carry the election was declared at an end. On out a contract for congressional printing. the first day of the next meeting of Con- Force joined with his employer Davis, gress, the subject was brought up in the forming the firm of Davis & Force, do- Senate by the introduction of the follow- ing Government printing in conjunction ing preamble and resolution: 16 Whereas, in pursuance of a joint resolution of Blair & Rives the Senate and House of Representatives, passed in 1819, regulating the subject of printing for the two houses of Congress, respectively, an election having Green’s successor was Blair & Rives. been had by the Senate, during the last session, for And upon the demise of Gales & Seaton’s a printer to the Senate, and Duff Green having, ac- National Intelligencer and Green’s Tele- cording to the provisions of said resolution, received graph, Blair & Rives in 1832 built the the greatest number of votes: Therefore, be it Globe. For a long time after 1832 Blair Resolved, That in the opinion of the Senate & Rives and Gales & Seaton alternated in the said Duff Green is duly elected printer to the Senate. doing the public printing. Blair & Rives were first elected print- After a debate of considerable anima- ers to the Senate March 3, 1837, and were tion, the resolution was adopted by a vote reelected February 27, 1839. of 25 yeas to 19 nays. During the extra session of the 5th Con- In 1823, Green was invited to Washing- gress [1837–38], after 12 ballots on Sep- ton by President Jackson. He gave up his tember 5, 6, and 7, 1837, Thomas Allen, law practice, and bought the United States editor of the Madisonian, was elected House Telegraph. Green became Senate printer in printer, and on January 30, 1840, Blair & Rives 1825, 1827, and 1831, and printer to both superseded him. Blair & Rives were again Senate and House in 1829. elected Senate printers February 20, 1841.

Congressional Investigations—1828 and 1840

Public printing up to 1839 was executed Printing to investigate the state of Gov- under the terms of the joint resolution of ernment printing affairs. Its mission 1819, and it was evident that the rates fixed was to report on prices considered just by that law were too high and that printing and reasonable. It was also directed to profits were large. The affluence of Blair inquire and report on the propriety and & Rives was well known, for in 5 years of expediency of entirely separating Gov- public printing they had been able to pur- ernment printing from the newspaper chase their rented building, in addition to publishers. In addition, the committee townhouses (including Blair Mansion [now was ordered to explore the practicality Blair House]) and country estates. of a national printing office. This inves- The first congressional effort to curb tigation was the first full-scale study of printing profits under the 1819 law was public printing, with the conclusion that made in 1828, when the House ordered only a Government printing office could an investigation. correct the inherent faults of the system No action was taken. in effect. On September 6, 1837, the House con- sidered and then rejected the following Rates Reduced resolution: That a committee be appointed to inquire Extensive hearings were held, with for- into the expediency of separating the emolu- mer and present Government printers tes- ments of the public printing of the House from the newspaper presses of the country. tifying. Commercial printers throughout the East also offered testimony. On March On January 30, 1840, the House ap- 26, 1840, the committee recommended a pointed a Select Committee on Public reduction in printing rates of 15 percent. 17 Committee Findings Government Office Proposed

One witness testified: The minority favored a greater slash in The scale of prices adopted by Congress [in printing rates, and then offered witnesses 1819] is obscure and indefinite in its details, and in behalf of a national printing office. It was affords facilities for extravagant charges that known that France had established a Royal must be invisible to any one not familiar with Printing-office in 1538, and in 1640 King the printing business. Louis XIII had created the Imprimerie Na- The committee conceded that public tional as a Government printing office. Al- printing was risky, for— though Congress in 1819 had rejected the idea of a Government printshop, and instead No man of ordinary sagacity will venture to invest a capital of from $40,000 to $50,000 in a had passed the rate-fixing resolution of 1819, Congressional printing office, if he is to receive public printing had increased in volume, with no more profit upon the investment than the proportionate increases in profits. The idea same capital would yield if embarked in a less was now revived, for the minority report hazardous and more certain business. The ex- showed that current Government printing at traordinary risks attendant upon such an invest- ment, the unusual wear and tear of the material 1819 rates had cost $150,000, but under Gov- employed, and the many difficulties of such an ernment supervision would have cost $80,000. establishment, would seem to require a much Fletcher Harper, a New York printer, greater profit to indemnify the proprietor than questioned on the feasibility of a national is expected in newspaper and book offices. The printing office, stated: risk of election, of re-election—the great rapid- ity, despatch, and punctuality required—the I do most truly and sincerely believe that it illegibility and imperfection of a great portion of would be of immense advantage to the country to the manuscript sent—the extra wages for work have a Government printing-office of their own. necessarily done at night and on Sunday—the * * * I believe that it would be a saving of nearly necessity of employing a large number of first * * * one-half of the amount expended in this way. rate journeymen instead of apprentices * * * are As for the disadvantages, I cannot see any that can among the many considerations of disadvantage possibly occur from such an establishment. Many which present themselves to those who are ac- of the largest societies in this and other countries quainted with Congressional printing. If your have establishments of this kind; and I know printer could get fair, legible, and punctuated * * * that some of them are not only very con- copy, and could calculate with any thing like venient, but prove to be the means of saving to certainty the quantity of work he would be re- their proprietors a great deal of money. quired to do—if he were permitted to work only during regular hours, and could be spared from William W. Moore, a former congres- labor on the Sabbath—he could afford to do the sional superintendent of printing, stated printing for much less than he now receives un- that “the whole cost of an office, types, der the joint resolution of 1819. presses, and every thing else—the esti- The committee also “ascertained that mate is $56,000.’’ But Rives estimated there are but two offices in the city capable that a national office employing about 100 of executing the Government printing— persons “would require about $40,000 to the Globe and the National Intelligencer.’’ build, and to furnish with presses, types, Also explored were the effects of im- and fixtures * * *.’’ proved printing techniques on printing The minority buttressed its arguments costs. The committee noted: in favor of a Government-owned office The office of public printer is much more by pointing out that there would be im- lucrative now than formerly * * * because mediate execution of public printing, for the profits have been considerably aug- costly delays in the public printing had mented, as respects presswork and paper, by prevented passage of legislation and sty- reduction in the price of the latter, and the mied the work of executive departments. invention of machine presses, principally in- In addition, “it has taken 2 days or troduced * * * within the last 8 years. more to elect a printer, which costs a 18 large sum to the country. * * * the ar- the prices paid journeymen printers in 1819 rangements, delays, and difficulties * * * were $10 per week during the session, and $9 per week in the recess of Congress. Then, if a have cost at least $20,000.’’ printer worked a reasonable number of hours The minority report rebutted the charge after night—say 3 or 4 hours—he did not charge that a Government printing office would the employer for it. It is believed that all the be an “infraction of constitutional prin- work the printer then did at night did not * * * reimburse the employer for the time he had been ciple’’ in doing its own work, and that the idle in the day waiting for copy. As the business plan introduced “a new principle in our of Congress increased, the night work increased Government.’’ It showed that other Gov- in greater ratio, and became very onerous to ernment departments performed public the printers, so much as to destroy the health of service, for— those who had not very robust constitutions, and to injure the eyesight of all. The Typographical the officers of the Government are the servants Society * * * passed a resolution that, for all night of the people, and they have a right to all their work, after 6 o’clock P.M. in the summer, and af- time and services as long as they pay for them; ter 7 o’clock P.M. in the winter, the journeymen and when offices are created for the use of the should receive an extra allowance of 16 2/3 cents people, they have the right to attach any condi- per hour, the same price that was then paid * * * tions they please, calculated to insure a faithful for work executed in the day. fulfilment of the duties. Rives also testified that 1840 journey- men wages— The minority’s plea for a national printing office and a free press was fol- were $11 per week during the session, and $10 lowed by the introduction of the follow- per week during the recess of Congress; night work 22 cents per hour, and Sunday work 25 ing bill: cents per hour, no matter whether Congress is or * * * That there shall be erected * * * on some is not in session. suitable spot in the city of Washington, to be selected by the President of the United States, a Describing his workers and their building of brick, suitable and convenient for a wages, Rives stated that his average force printing-office, in which all the printing for Con- in December 1836 consisted of 72 men; 31 gress, and for the Executive Departments, and for boys, of 13 to 21 years; and 14 women, for the Post-Office Department, shall be performed. a total of 117. This minority bill failed to pass for In 1840, his force consisted of— lack of votes and the 1840 proposal fol- 1 foreman to superintend compositors lowed the 1819 plan into defeat. 4 proof readers 34 men as compositors 4 boys as compositors, between 17 and 21 years Printers’ Wages, 1815–60 old, very nearly, if not equal to men 2 boys as compositors Since 1815, when printers’ wages were The men were paid for the week * * * an aver- age of $12.17 each; the boys an average of $3.45 fixed at $10 per week, Washington print- each. ers had been content. But in 1836, the * * * upon the presses * * *, three foremen of printers’ society demanded “an advance presses, whose average compensation was $14.13 of about 10 percent on our present tariff each; and twelve boys, from 12 to 18 years old, prices, owing to the advance in the prices * * * $2.59 each. of products generally.’’ Some of the “high’’ Piecework rates for composition of prices pointed out by the compositors were plain work were 31 cents per 1,000 ems; “beef at 12 cents per pound; lamb, 75 cents figure work, 461/2 cents [price and half]; per quarter; chickens, $2 per dozen; and rule and figure, 62 cents [double price]. potatoes, 50 cents a bushel.’’ After a month Pressman received 41 cents per token of of negotiations, the proprietors agreed to a 250 lever pulls. 10-percent, or $1, increase. In 1850 Samuel Langhorne Clemens In the 1840 investigation, John C. Rives [Mark Twain] served as a printer appren- testified that— tice under his brother for $3.50 a week, 19 which to Sam seemed extravagant—“or manent and I shall keep it till I can get a better would have been had it been paid.’’ Mov- one. The office I work in is John A. Grays, 97 Cliff Street, and, next to Harper’s, is the most ing to New York, he wrote to his brother, extensive in the city. In the room in which I who on September 10, 1853, printed the work I have 40 compositors for company. Tak- following letter in the Hannibal (Mo.) ing compositors, pressmen, stereotypers, and Journal: all, there are about 200 persons employed in the concern. * * * They are very particular about The printers here [New York] are badly or- spacing, justification, proofs, etc., and even if I ganized, and therefore have to work for various do not make much money, I will learn a great prices. These prices are 23, 25, 28, 30, 32, and 35 deal. * * * Why you must put exactly the same cents per 1,000 ems. The price I get is 23 cents; space between every two words, and every line but I did very well to get a place at all, for there must be spaced alike. They think it dreadful to are, 30 or 40—yes, 50 good printers in the city space one line with three em spaces, and the next with no work at all; besides my situation is per- one with five ems.

1842 Printing Study

The Committee on Printing issued a Seaton became Senate printers again on report on July 17, 1842, commenting on December 5, 1843. In the House, Gales the state of affairs existing by virtue of & Seaton were elected printers June 11, public printing practices. 1841, and Blair & Rives, December 7, The subject of printers’ charges was 1843. again taken up and examined. The prices In 1845, President Polk entered the were then fixed at 20 percent less than White House. Once again the Globe of those provided for under the law of 1819, Blair & Rives lost its job, and the Washing- but in 1843 an appropriation was added ton Union, owned by Ritchie & Heiss, was to the general appropriation law suffi- granted the printing franchise. The Globe cient to make Gales & Seaton’s compen- establishment was purchased for $35,000, sation equal to the prices fixed by the one-third cash and the balance in two equal resolution of 1819. installments in 1 and 2 years. As soon as At the time of the inauguration of Pres- Congress assembled, both Houses chose ident Harrison [1841], Blair & Rives were Ritchie & Heiss to do the public printing. On March 3, 1845, the following clause the printers to the Senate. At the executive in a general appropriation law was ap- session of the Senate, held after the new proved: President had taken office, Mr. Mangum of North Carolina offered a resolution to And all Congressional printing executed un- der an order of either house, made after the 4th dismiss Messrs. Blair & Rives. of March 1845, shall be paid for at prices 20 per Thomas Allen was elected to replace centum less than those fixed by the joint resolu- Blair & Rives on June 15, 1841. Gales & tion of March 3, 1819.

Contract System Restored in 1846 Various laws relating to the public contract. But agitation continued for a printing were enacted between 1840 change in the manner of procuring all and 1846. Some of these laws provided Government printing, and on August 3, that printing for the departments, the 1846, the Garrett Davis resolution restor- Supreme Court, etc., should be done by ing the contract system became law. 20 This new printing law provided that of the Albany plant to whom the new ven- public printing be given to the lowest ture had been entrusted. Before the end bidder, instead of each House electing a of the contract, Wendell discovered that printer to do work at the rates prescribed he had overextended himself, for he had by law. Earlier, in August 1842, a simi- not anticipated the pressure of produc- lar method had been adopted for depart- ing a great quantity of printed matter in a mental printing. short time, a condition which has extended The resolution provided that the Sec- to present-day Congresses. Faced with retary of the Senate and the Clerk of the losses, he appealed to Congress for relief. House advertise and invite proposals to Nevertheless, he continued in the print- supply the printing needs of the Senate ing business, and 4 years later, in 1852, he and the House, and that the awards be again became officially connected with made to the low bidders. It also provided public printing after the contract plan was for a Committee on Printing, consisting abandoned. In 1852, he was able to pro- of three members of the Senate and three vide the largest and best equipped print- members of the House of Representatives, ing establishment the city had ever seen, which had power to adopt such measures and thereafter executed practically all the deemed necessary to remedy any neglect, public printing as a subcontractor for the delay or waste on the part of the contrac- House and Senate printers. tor to execute the work ordered by Con- Testimony taken before committees gress. This was the beginning of the cur- of the House and Senate, when printers’ rent Joint Committee on Printing, still losses were investigated in 1852, showed comprised of just six members. that Wendell’s firm took the work at such The new contract printing law went low rates that sufficient profits were not into effect at the end of the current Con- possible, and the contractors, although gress, so that Ritchie & Heiss, who were they filled their contract, were greatly out printers to both Houses, were able to con- of pocket. tinue for 2 more years. It can be seen that competition under This system, which proved the most the contract system was fierce. Bids were expensive of any tried up to this time, made, and if the contractor made money, and perhaps the most unsatisfactory, re- he would pocket it. If he lost, he said: “I mained in operation until 1852. unfortunately lost, and surely the Govern- ment does not want me to do work for Wendell Low Bidder them and lose money in the performance.’’ The appeal usually met with a response by With work thrown open to competi- Congress, with deficiencies made up with tion, the bid of Wendell & Van Benthuy- bonuses, sometimes up to $200,000. sen of Albany, N.Y., was the lowest. The The next printer under the contract new deal in public printing, although system was James Ritchie, who per- laudable in purpose, had an unexpected formed the work up to the expiration impact on District printing, for in a short of his contract; but at the next session time “the printers of the city were left of Congress claimed damages for loss, emptyhanded with unemployed estab- which were accorded him in the sum of lishments (dead capital) on their hands.’’ $50,000. The contract winners immediately Boyd Hamilton followed as contractor brought necessary printing equipment to and executed the printing down to 1852, the city and set up shop in a building on when he failed and gave up the contract. Pennsylvania Avenue near 2d Street. The The printing for the 6 years under installation and plant were under the su- the 1846 law cost the Government pervision of Cornelius Wendell, foreman $3,462,655.12, or almost as much as the 21 printing under the act of 1819 cost during the Government had lost $1 million in a single the 28 years it was in force. In addition, year through the neglect of the public printer to the work was of poor quality, for in 1846 print a bill or document required just at the close Senator Benton stated that— of a session of Congress.

Events Leading to Establishment of GPO—1852–60

The free enterprise period of public That there shall be a Superintendent of the printing ended on March 4, 1861. The Public Printing, who shall hold his office for the term of 2 years, who shall receive for his ser- events leading to the birth of the GPO vices a salary of $2,500 per annum, and who shall were cumulative, for the Nation was grow- give bond with two sureties to be approved by ing, and Government printing expanded to the Secretary of the Interior, in the penalty of match the increase in Government. $20,000, for the faithful discharge of his duties under this law. The said Superintendent shall be a practical printer, versed in the various branches Beginning of End of Private Printing of the arts of printing and book-binding, and he shall not be interested, directly or indirectly, In late 1852, Congress returned to the in any contract for printing for Congress or for old practice of electing its own House any department or bureau of the Government of the United States. The first Superintendent un- and Senate printers, under rates fixed der this law shall hold his office until the com- by law instead of the contract system. mencement of the 33d Congress, and the Super- Although the rates of 1852 were moder- intendents thereafter appointed shall hold their ate, profits soon became swollen by the offices for 2 years, commencing with the first day great increase in printing volume. With of the session of each Congress. fixed rates and increased volume, profits In addition to the appointment of a Su- also grew. perintendent of Public Printing to super- The old printing act of 1819 had also vise work ordered by Senate and House fixed rates of composition. Congress did public printers, it also provided that the not adjust these rates until 1845, when Superintendent should receive matter to a 20-percent reduction was ordered. In be printed, not only from the Secretary the meantime private printers favored of the Senate and the Clerk of the House with public printing made great prof- but also from executive departments. its by exploiting new printing methods. There was one exception which permit- Although the 1852 act likewise fixed ted executive departments to employ printers rates of composition, these rates became out of the city of Washington to execute such highly profitable to the printers as fur- department printing required for use out of ther advances were made in printing Washington when they could be executed technology. Thus these rates provided elsewhere as cheap as the specified rates. sufficient reason for printers to make Although the act of 1852 was a decided strenuous efforts to secure Government improvement over that of 1846, the print- printing contracts. ing under it proved very expensive; but the main difficulty was the want of an of- The Law of 1852 fice with proper facilities for executing the printing promptly and uniformly. The de- The next general law on the subject, mands of the Government had increased to and which involved a radical change in such an extent that, up to 1856, no single the system, prices, and mode of executing printing office in Washington was capable the printing, was passed on August 26, of handling all the printing required; and 1852. The act provided— the result was that a variety of styles pre- 22 vailed in the printed documents, which The elected Senate and House printers gave general dissatisfaction and produced were not always practical printers. The con- much inconvenience. The erection in 1856 gressional investigation of 1860 disclosed that by Mr. Wendell of the large private estab- only three House printers between 1852–61 lishment (which afterward became the had the requisite buildings and materials; the GPO) on H and North Capitol Streets, others were not versed in the art of printing. somewhat relieved these troubles; but, as he In many cases, elected printers contracted had to run his chances in getting the work, with Wendell, who in turn subcontracted all no certain remedy followed his enterprise. work. In 3 years after the contract system was As soon as the printing law of 1852 went abolished, practically all Government print- into effect, the Washington Union, now owned ing was produced by Wendell. by Gen. Robert Armstrong, became the print- ing contractor for both Houses, thus again First Superintendent Reports uniting the press and public printing. During the 1852–61 period, the House began the prac- On September 1, 1852, John T. Towers tice of choosing men who were not owners of was appointed by President Fillmore as the Washington newspapers or of printing plants, first Superintendent of Public Printing. A but the Senate successively elected Union practical printer, he had worked in the office owners to perform its printing. These in turn of Duff Green when the latter was Senate were General Armstrong, A. O. P. Nicholson, printer in 1830. Mr. Towers was strong for William A. Harris, Cornelius Wendell, and unionism, as indicated by the following: General Bowman. The only outsider to break As far back as 1832, in the city of New York, I through was Beverly Tucker, who on Septem- was a member of the first trades union in Amer- ber 14, 1853, had established the Washington ica, pledged to maintain the 10-hour system, and Sentinel. When the 33d Congress assembled the principles sustained by me then as a journey- on December 5, 1853, the Senate elected Mr. man printer have been and ever will be sustained Tucker as its printer. The Sentinel was doomed by me as an employer. to an early demise, for the next Congress in On December 1, 1853, Mr. Towers sub- 1855 passed it by. mitted his first report to Congress on the During 1852–61, the following officials condition of the public printing. He noted controlled public printing under the 1852 that the contract system for executing the printing act: public printing had been abolished, and Superintendents of Public Printing after listing congressional printing costs, closed his report by stating that— John T. Towers, September 1, 1852–December 6, 1853 * * * I cannot, in justice to those upon whom the A. G. Seaman, December 7, 1853–December burden of the experiment (as it has been called) of 1857 executing the public printing under the law of 1852 Gen. George W. Bowman, December 1857–May has fallen, close this report without saying that 11, 1859 much credit is due to the public printer [Wendell] John Heart, May 13, 1859–March 4, 1861 for the manner in which he executed his work. * * * he proceeded to fit up an office, ample in -ma Congressional Printers terial and in machinery of the first class, to execute 1852, 32d Congress: Gen. Robert Armstrong, promptly the printing for the Government, and House and Senate. has now by far the most complete printing estab- 1853–55, 33d Congress: General Armstrong, lishment ever used for that purpose. The [printing] House, died while in office and succeeded by has been executed with unexampled rapidity * * * A. O. P. Nicholson; Beverly Tucker, Senate. in a style highly creditable. 1855–57, 34th Congress: Cornelius Wendell, House; A. O. P. Nicholson, Senate. New Superintendent 1857–59, 35th Congress: Gen. James B. Steed- man, House; William A. Harris, Senate. 1859–61, 36th Congress: Tom Ford, House; On December 7, 1853, A. G. Seaman General Bowman, Senate. succeeded Mr. Towers as Superintendent 23 of Public Printing, and the latter then of the investment of capital, the most complete served as mayor of Washington for 1854– and extensive printing establishment on this continent. The printing of Congress, during 55. On February 13, 1856, after numer- late years, has increased to such extent that ous ballots, Wendell was elected House there was no building in the city of Washington printer, and served until March 3, 1857. which afforded sufficient space * * * for bring- ing out the work with desirable expedition and Wendell Builds New Plant neatness; and the tenure by which the Public Printer holds his office is so uncertain, that, un- til now, no one felt disposed to encounter the Following his election, he erected a modern risk involved * * *. The facilities thus afforded printing plant at North Capitol and H Streets. will not only enable this office to furnish the This plant became the GPO in 1861, and it was larger orders for printing with greater dis- adequate to execute not only all Government patch, but will also enable it to make still fur- ther improvements in the general appearance printing but commercial printing as well. of the public printing. In 1856, Superintendent Seaman in his report to Congress noted that— Although the tenure of House and Senate printers was “so uncertain,’’ Wendell was secure, the Printer of the House [Wendell], with a spirit of enterprise worthy of all commendation, for as House printer he could award printing to erected at a very great expense, and doubtless his own plant, and the Senate printer could also with much risk as to the future productiveness subcontract the work to Wendell’s plant.

1858 Investigation

On December 9, 1857, the House Committee Findings charged the Select Committee on Print- ing— On April 21, 1858, the committee in submitting its report to Congress admit- to examine into the laws in relation to the print- ted defects in the system. The following ing for the House, the prices paid therefor, and the duties of the Public Printer; * * * to inquire committee finding describes the pattern into the prices paid for binding, engraving, and of handling the public printing and the paper used for the printing of Congress, and for layers of contractors and subcontractors: the publication and binding of the Congressional Globe; and * * * to examine into and report to The public printer elected by the 33d Con- the House what change * * * is required in the gress [1853–55], and the public printer of the existing [printing] laws * * *. Senate for the 34th Congress, respectively, con- tracted with a third party to do the required The condition of public printing had work, reserving to themselves a large percent- age, which was as a nett [sic] reward or profit for deteriorated. Members of the opposition simply taking, under the name of public printer, in Congress and the newspapers attacked the printing of Congress, and sub-letting it to the costs and the manner of executing another who did, and is still doing, the work Government printing, for the 34th Con- for them. The public printer [Wendell] elected by the House for the 34th Congress, did the re- gress from December 3, 1855, to March 3, quired House printing himself; and, in addition, 1857, had ordered the staggering amount as sub-contractor under the Senate printer, did of $2,258,580 for its own printing. The the work of the Senate for that Congress, as he committee was appointed, “if possible, to did all of the printing for the public printer of devise a system by which the public work the 33d Congress and he is now doing the work for the public printers of the Senate and House * * * can be done in a way to obviate any of the present Congress. The same party is print- defects which might be found at present ing the post office blanks as a subcontractor to exist.’’ under the gentlemen having that work to do. 24 The per centage paid by the sub-contractor $257,421 for publishing the Globe for the referred to, to the various public printers desig- 34th Congress. Rives also enjoyed the con- nated—emoluments of their mere sinecure of- fices amounted to more than $21,000 during the gressional frank, for he could mail single month of January last, and will average nearly copies or bound volumes without charge. $20,000 per month. This includes no allowance The committee stated that a “responsible of per centage upon the House printing for the party * * * has offered to supply the Globe 34th Congress; the sub-contractor mentioned, as * * * at a reduction of $38,000 per annum.’’ public printer of that body, did the work himself, and thus was saved payment for privilege. The The committee was satisfied “that a gross amount thus paid, as a per centage or bonus saving * * * of about three-fourths of a for the privilege of doing the work, by the sub- million of dollars might have been ef- contractor to the government officials, varies but fected by a proper system.’’ little from $240,000 per year; at the same time he realizes, over and above that large profit, a hand- some reserve profit for himself. Bureau of Public Printing The same system extended into the public binding, for in most cases the As in 1819 and 1840, a congressional public printers were also public binders, committee once more recommended the with the same layer of contractors and Government’s entry into the printing subcontractors—and the same profit per- business. The committee concluded: centages. Binding for the 33d Congress To remove these difficulties, and to avoid amounted to $538,458; for the 34th Con- the large expense of the present mode of gress, $384,686. The committee noted doing the public printing, your committee that blankbooks used in Government recommend the establishment of a Bureau cost from 30 to 50 percent higher than of Public Printing connected with, and un- commercial prices, for— der the direction of, the Department of the Interior. In this way your committee be- there is no competition for this work, and no lieve that a large amount of money can be general contract is made for its execution. It is a annually saved. Taking the congressional grand monopoly for a few individuals, who reap therefrom enormous profits. and department printing and binding and the publication of the proceedings and de- The committee found that Govern- bates together, we think that 40 per centum ment engraving was “done in a manner on the gross amount at least can be saved. not dissimilar to that of the printing and This amount, for 1 year, on the cost of the binding.’’ The total cost of engraving, usual and necessary work, would more lithographing, and electrotyping for the than pay the entire expense of establishing 33d Congress cost $829,858, with the the Bureau. But your committee consider greater amount of poor quality, in ad- this annual saving, however important to dition to high rates. The committee also the treasury, to be of minor consideration, noted that the Government could have when compared with the many advantages saved about 20 percent, or $237,342, by and benefits to be gained by the establish- proper supervision. ment of a printing Bureau. Paper for public printing also received The committee was “trusting in better some study, and the committee reported fruits from [their] labor,’’ but its recom- that— mended bill failed to pass and thus joined further checks and safeguards are required, both the aborted 1819 and 1840 national print- in the purchase and in the use of the paper for ing office proposals. public printing. The present mode of supply is open to great abuses, and there are few or no suf- Bowman Protests Printing Abuses ficient checks to correct them. Congressional Globe printing costs In 1856, the House printing bill had were considered, for Rives had received risen to $433,133, the Senate to $248,169, 25 and executive departments to $175,334. Although Mr. Bowman later became an In addition, Superintendent Seaman had important figure in the 1860 investiga- petitioned Congress for a deficiency of tion for his arrangements with Cornelius $246,611 because congressional printing Wendell, as Superintendent he made the appropriations had been exhausted and first attack on what he regarded as waste a large amount of printing had been or- of printing money. dered but the bill had not been paid. On May 12, 1859, John Heart succeeded In December 1857, Gen. George Mr. Bowman as Superintendent of Public W. Bowman succeeded Mr. Seaman Printing and served until the establish- as Superintendent of Public Printing. ment of the GPO on March 4, 1861.

1860 Investigation

Both Bowman and Heart were aware of On August 27, 1858, the second in the the fact that the poor condition of public series of famous Douglas-Lincoln de- printing had been common knowledge bates was held in Freeport, Ill. The de- for some time. Congressional criticism bates were fiercely political and marked had been made in both Houses, and the by intense partisanship. Although Wen- opposition press was again on the attack. dell performed all public printing and Urging abandonment of the system and favored the administration through his divorce of the newspapers from Govern- Union, Wendell’s support of Lincoln in ment, a southern Senator said: “The pur- his campaign for Douglas’ Senate seat pose of public printing is to enlighten the produced an attack by Senator Douglas public * * * not to enrich the printers.’’ against Wendell and the Union. Finally, Congress was forced to act, and As the 35th Congress began, both Sen- in January 1860 three congressional com- ate and House printers immediately after mittees began hearings. All phases of pub- their election contracted with Wendell lic printing and binding were explored. for the performance of the public print- ing for both Houses, and in fact disposed Wendell Key Figure of the privilege for certain fixed sums. Testimony in 1860 disclosed the terms During the 35th Congress [1857–59], between Wendell and Harris by which the printing abuses which up to this time Wendell agreed to execute all of Harris’ had been of mild degree became consider- Senate printing. In return for the— ably more intense. As in earlier years since entire charge, trouble, and expense of [Harris], 1846, when he first arrived in Washington the said Wendell [would] pay to the said Har- to become overlord of Government print- ris the sum of $10,000 per annum for his full ing, Wendell was still the central figure. share of the profits on the said Senate printing On December 17, 1857, the Congress * * *; or if the said Harris prefers it, such sum as had elected William A. Harris as Senate may be due to him shall be retained by him from the money which may pass through his hands in printer and James B. Steedman as House payment for the public printing. printer. Harris had been the editor and proprietor of the Union, a Washington There was one condition, however: newspaper which favored the adminis- Senate printing “shall amount to the sum tration. When he was elected to the post of $100,000 or more.’’ of Senate printer, he sold the Union to It was shown that the printing and Cornelius Wendell. binding bill for Congress from 1852 to 26 1860 was $5,201,459, nearly all of which signs forever, the newspaper establishment Mr. Wendell had executed as contractor * * * known as the Washington Union, and or subcontractor. now owned and published by me, together with all the property thereunto appertaining, meaning to include the name, good will, press, Wendell and Bowman and printing and other materials belonging to and used in the establishment; provided, how- As the investigation unfolded the rami- ever, that said Bowman is to have no part of fications of the public printing story and any debts due the establishment, and is to be the many characters involved, it became responsible for none of its liabilities. To have clear that Wendell and Bowman had and to hold to him, the said Bowman, his heirs played the leading roles. Practically all and assigns forever. * * * testimony by the many witnesses led back to these two men. Bowman Nomination General Bowman as Superintendent of Public Printing from December 1857 The 36th Congress assembled on De- to May 11, 1859, had instituted many re- cember 5, 1859. Battlelines were imme- forms in the public printing and binding. diately formed for the election of House These reforms were so effectively car- and Senate printers. President Buchanan ried out as to produce yearly savings of nominated General Bowman as Senate $200,000. Bowman’s disposition toward printer, and with common knowledge of economy and rigid adherence to the Bowman’s liaison with Wendell, the Sen- printing laws reduced Wendell’s profits ate began a bitter debate. In the investi- by 50 percent. In the 1860 hearings, Bow- gation which followed the debate, one man testified that— witness testified: during the time I was in office there was no I reckon there is hardly a person in town that friendly feeling, for there was a conflict between has not heard these matters talked upon in the his [Wendell’s] interest and what I considered streets. They were subjects of common conversa- to be my duty under my oath. One ground of tion for several months past. the difficulty between us was, that he protested against my suggesting reforms. The press, which had carried stories of the printing situation, almost daily printed Determined to get Bowman out of items concerning the nomination. The the way, Wendell offered the Union, his New York Daily Tribune, on January 5, money-losing administration paper, to 1860, noted that— Bowman without consideration. In ad- dition, Bowman was to receive $20,000 a Mr. Bowman feels confident of success, as the year so long as Wendell performed pub- President has made a personal appeal to every lic printing, plus Wendell’s assurance * * * Senator whom he could reach. that Bowman would be awarded Senate On January 9, the Tribune stated that printing. Bowman then resigned his of- “If the Republican vote could be com- fice to take over the Union. bined with the opposition to Bowman, he On February 28, 1860, Mr. Bowman might be defeated.’’ appeared before the committee and sub- In the meantime, the Senate continued mitted a “bill of sale’’ signed by Wendell its debate, and on January 17, the Tribune on March 26, 1859: reported: Know all men by these presents that I, Mr. Wendell transferred his whole printing Cornelius Wendell, * * * for a valuable con- establishment to the foreman and journeymen sideration to me paid by Geo. W. Bowman, in his office, a few days ago, and, they [Larcombe * * * now Superintendent of Public Printing, & English] now announce, if Mr. Bowman is the receipt whereof I hereby acknowledge, elected the work will be done by them. This do hereby give, grant, bargain, sell, and con- mode was contrived as a compromise between vey unto the said Bowman, his heirs and as- these hostile interests. * * * 27 House Printer Also Opposed the House printer, and John D. Defrees, Ford’s agent, was given the subcontract The post of House printer produced for House printing. They were to repay another protracted struggle. The first Wendell out of their printing profits, and ballot was taken on February 13, 1860, the former owner would participate as a and balloting was continued, with nu- silent partner. merous short postponements, up to March 2, when Gov. Tom Ford of Ohio Hearings Begin was declared elected. Among the candi- dates was John D. Defrees, who, up to the In addition to the testimony dealing 14th ballot, was the leading candidate. with the Wendell-Bowman affair, other Although defeated, Mr. Defrees acquired witnesses appeared before the commit- a one-third interest in House printing tees. because Mr. Ford was “not a practi- John Heart, Superintendent of Public cal printer, and knowing nothing of the Printing, when asked his opinion on the business, [he] agreed to give me an inter- propriety or necessity of a Government est in consideration that I should give it printing office, replied: my personal attention, and help him in My opinion is that Government should do its management.’’ Mr. Defrees insisted this printing as it does its writing, by its own that he “ought to have been elected,’’ but agents, under its own control, to be executed a year later became the first head of the not in conformity to the interests of the contrac- GPO. tors but in accordance with the exigencies of the Government. I believe that a public printing of- After Bowman’s election as Senate fice could be placed upon such a footing that any printer, the differences between himself document, I do not care how voluminous, might and Wendell had sharpened, for Bow- be returned to the House ordering it within 30 man claimed that Wendell had paid but days. For the best interests of the country, it is the only way to correct the present abuses, not $3,000 of the $20,000 in their contract. only in the manner of executing the printing, but But Wendell replied that Bowman “had also the impeding of the public business, which made an arrangement with Mr. Rives, so often occurs by reason of the delay in electing and that he [Bowman] had forfeited his a printer. Both the public interests and the public business would be best consulted by establishing engagement with me.’’ a government office. It is possible that this failure led to the transfer of Senate work from Wendell * * * * * to Rives, for as Senate printer Bowman With [a GPO] permanently devoted to the could bypass Wendell. With his control public printing and binding, a very large re- over Senate printing, Bowman did trans- duction in the cost of these branches of the public service could be effected. And, if under fer his printing to Rives. the control of a public officer, many important In answer to the question: “What reforms in the manner of its execution could was your reason for declining to engage be introduced, which would still further econ- Wendell to do your printing?’’ Bowman omize its cost. replied: Commercial printers of the period There were various reasons. I heard objec- agreed that the Government could save tions at every turn, “I hope you intend to have at least 50 percent on its printing costs. nothing to do with that concern.’’ I found a Most witnesses agreed that a Govern- sentiment prevailing against it. That was the reason. ment printing office would be the cheap- est and best way of having its printing Larcombe and English, late foremen executed, for in 1860, there were Gov- in Wendell’s plant, were now the pro- ernment-owned printing offices in Great prietors by virtue of Wendell’s transfer to Britain, France, Prussia, and Austria. them. The firm, through Governor Ford, For the public binding, as in public 28 printing, each House elected its own tem would cost more than the previous binders, who in turn contracted all work one, and showed that average monthly to the printers or practical binders. The printing costs of $3,500 under the 1852 committee devoted much time in ex- act had dropped to $844.97 by the new ploring the public binding, chiefly on its act, for a total of nearly $32,000 yearly quality and prices. savings. Printing for the Supreme Court re- ceived favorable comment. Produced by Congress Debates a GPO George S. Gideon since 1845, he testified that the work was done for— The Washington Star of June 12, 1860, reported the following resolution adopted 20 or 30 percent less than is paid for congressional or for executive department work. * * * I do the by the Select Committee on the Public Supreme Court printing a good deal too low. I Printing: am still willing, however, to continue the print- Resolved, That the laws regulating the prices ing, although it is a very low price, it being the and mode of printing, and the abuses necessar- only printing I do for government. ily growing out of the expenditures therefor, re- The investigating committee during quire reform. the hearings approved the following res- Feelings ran high in Congress. Propo- olution: nents of a Government printing office Resolved, That, in the opinion of the commit- argued that there was no doubt of the tee, there is nothing in the testimony tending to necessity of the printing reform. In reply, impeach the integrity or efficiency of Mr. John the supporters of the contract system ar- Heart, Superintendent of Printing. gued that a “national office would be a measure of great additional expenditure Post Office Blanks by the creation of a bureau, offices, and a vast expense, * * * and God only knows A source of large profits was the print- where it will end.’’ ing of post office blanks. This printing Finally, in the closing moments of de- was highly remunerative and many per- bate, this was said: sons applied to the administration for I prefer to try at least a Government printing the privilege of printing them. Aided by office to any other mode of executing the public timely awards from the Post-Office De- printing. We have already tried the other two partment, favored contractors in a 4 1/2- plans. We have tried the plan of electing a Pub- year period made charges for composi- lic Printer, and we know how it has resulted in the last 2 years. * * * I think there is a universal tion which they had never rendered in disposition to abandon that mode of executing fact, for testimony showed that the work the work. * * * was run from stereotype plates which re- With these examples staring us in the face, I, quired no composition. for one, feel unwilling to return to that system. * * * The other two systems having failed, I am The abuses in the procurement of post disposed to try something new. We cannot lose office blanks were corrected by the act of a great deal at it. If it fails, then I am for trying February 15, 1860. With the beginning something else; but I am not in favor of return- of the investigation, contracts had been ing to systems which have already worked badly in practice. canceled, and the new law authorized The system in force at this time is condemned, advertisements inviting proposals on a not only by the Senate and House, but by the low-bidder basis. whole country, and deservedly. Good or other- Superintendent John Heart, in his wise, as it may have been in its incipiency, * * * abuses have crept into it. 1860 annual report, stated that by the adoption of the new postal contract sys- On May 31, the House passed H.R. 22, tem, “a great saving has been effected.’’ establishing the GPO, by a vote of 120 He refuted predictions that the new sys- yeas and 56 nays. 29 On a resolution to continue the dis- To enable the Superintendent of the Public credited contract system, the Senate vote Printing to carry into effect the provisions of the joint resolution in relation to the public print- was yeas, 18; nays, 29. By a vote of 31 yeas, 14 ing, approved June 23, 1860, $135,000: Provided, nays, H.R. 22 was passed on June 16, 1860. That no part of this appropriation shall be ex- After the vote on June 16, both Houses pended until the title to the property purchased joined in ironing out their differences. shall have been examined and approved by the The newspapers of the day continued to Attorney General of the United States. cover the public printing story. The New On March 16, the New York Times York Tribune on June 21 noted that— printed the following item: Jefferson Davis gave notice of supplementary The Attorney-General has nearly completed action today to authorize Secretary of the Inte- the examination of the titles to the Public Printing- rior and Superintendent of Printing, to purchase office, purchased by the Government from Mr. materials for the GPO, so as to fix responsibility, Wendell [through Joseph T. Crowell, listed owner]. instead of having it divided with a Joint Com- mittee on Printing. One of the last official acts of Super- intendent Heart was the payment of GPO Established $135,000 on March 2, 1861, to Joseph T. Crowell. The following letter was sent by On June 23, 1860, Joint Resolution No. Mr. Heart to Mr. Crowell: 25, providing for the establishment of Enclosed please find my check on the Treasurer the GPO on March 4, 1861, was signed of the United States for one hundred and thirty-five by President Buchanan. It stated that the thousand dollars ($135,000), being the amount Superintendent of Public Printing was— agreed upon for the purchase of the premises at the corner of H Street north and North Capitol authorized and directed to have executed the Street, with the buildings, machinery, and mate- printing and binding authorized by the Senate rials, known as the Public Printing Office. and House of Representatives, the executive and judicial departments, and the Court of Claims, And so the recommendation for a na- and, to enable him to carry out the provisions of tional printing office of 1818, and also of this act, he is hereby authorized to contract for 1840 and 1858, was finally accepted after the erection or purchase of the necessary build- ings, machinery, and materials for that purpose. 42 years of trial and error in the public printing and binding. Building Contract Approved Printing Act of June 23, 1860 By authorization of the joint resolu- tion, Superintendent Heart contracted The organic printing act as passed by with Joseph T. Crowell for the purchase Congress and signed by President Bu- of the printing establishment formerly chanan follows: owned and occupied by Cornelius Wen- [No. 25.] Joint Resolution in Relation to the dell. He affirmed that the— Public Printing. Resolved by the Senate and House of Rep- buildings are all of brick, built of best materials resentatives of the United States of America in and in the most desirable manner, * * * are in Congress assembled, That the Superintendent of a perfectly sound condition, and the machinery Public Printing be, and is hereby, authorized and materials are ample and efficient for the and directed to have executed the printing and prompt and satisfactory execution of the print- binding authorized by the Senate and House ing and binding for all the departments of the of Representatives, the executive and judicial government * * *. departments, and the Court of Claims. And to Agreement between the parties was enable him to carry out the provisions of this act, he is authorized and directed to contract for the made December 1, 1860, and the Joint erection or purchase of the necessary buildings, Committee on Printing approved the con- machinery, and materials for that purpose; said tract on January 10, 1861. On January 17, contract to be subject to the approval of the Joint Congress passed the following resolution: Committee on Printing of the two Houses of 30 Congress: Provided, That the sum so contracted sum of money, at no time exceding two-thirds of to be paid shall not exceed one hundred fifty the penalty of said Superintendent’s bond. And thousand dollars. the said Superintendent shall settle the account SEC. 2. And be it further enacted, That it of his receipts and disbursements in the manner shall be the duty of the said Superintendent to now required of other disbursing officers: Pro- superintend all the printing and binding, the vided, however, That said Superintendent shall purchase of paper, as hereinafter directed, the not be allowed credit at the treasury for pay- purchase of other necessary materials and ma- ments on account of services rendered in said chinery, and the employment of proof-readers, printing establishment, at higher prices than compositors, pressmen, laborers, and other those paid for similar services in the private hands necessary to execute the orders of Con- printing and binding establishments of the city gress and of the executive and judicial depart- of Washington. ments, at the city of Washington. And to enable SEC. 4. And be it further enacted, That it shall the said Superintendent Moore effectually to be the duty of the said Superintendent to charge perform the duties of his office, he shall ap- himself, in a separate book to be kept therefor, point a foreman of printing, at an annual salary with all paper and other materials received by of eighteen hundred dollars, and a foreman of him for the public use, and to furnish the same binding, at an annual salary of fifteen hundred to the foremen employed by him, on their requi- dollars; but no one shall be appointed to said sitions, herein provided for, as the public service positions who is not practically and thoroughly may require, taking a receipt in all cases there- acquainted with their respective trades. It shall for from the foreman at the head of the depart- be the duty of the said foremen of printing and ment in which the paper, or other material, has binding to make out and deliver to the said Su- been used. perintendent, monthly statements of the work SEC. 5. And be it further enacted, That all the done in their respective departments, together printing and binding, and all blank books or- with monthly pay-rolls, which shall contain dered by the heads of the executive and judi- the names of the persons employed, the rate of cial departments of the government, or of the compensation and amount due to each, and the chiefs of the bureaus thereof, and all the print- service for which it shall be due. They shall also ing and binding, and all blank books ordered by make out estimates of the amount and kind of Congress, or by either house of Congress, shall, materials required, and file requisitions there- on and after the fourth day of March, eighteen for, from time to time, as it may be needed, and hundred and sixty-one, be done and executed shall receipt for the same to the Superinten- under said Superintendent, in accordance with dent. And the said foreman shall be held ac- the provisions of this act: Provided, That all countable for all materials so received by them: the printing ordered, and to be ordered, by the Provided, That the Superintendent shall, at no Thirty-sixth Congress, shall be executed by the time employ more hands in the public printing printers of the Senate and House of Representa- and binding establishment than the absolute tives, as now authorized by law; but no printing necessities of the public work may require; and or binding other than that ordered by Congress further, that the Superintendent report to Con- or the heads of departments, as aforesaid, shall gress, at the beginning of each session of Con- be executed in said office. gress, the number of hands so employed, and SEC. 6. And be it further enacted, That it shall the length of time each has been employed. be the duty of said Superintendent to receive SEC. 3. And be it further enacted, That said from the Secretary of the Senate and the Clerk Superintendent shall take charge of and be re- of the House of Representatives, and from the sponsible for all manuscripts and other matter heads of departments and chiefs of bureaus, to be printed, engraved, or lithographed, and all matter ordered to be printed and bound, or cause the same to be promptly executed. And either printed or bound, at the public expense, he shall render to the Secretary of the Treasury, and to keep a faithful account of the same, in quarterly, a full account of all purchases made the order in which the same may be received; by him, and of all printing and binding done in and when the same shall have been printed and said office for each of the houses of Congress, bound, if the same is ordered to be bound, see and for each of the executive and judicial de- that the volumes or sheets are promptly deliv- partments. For the payment of the work and ered to the officer of the Senate, or House of materials, there shall be advanced to the said Representatives, or department, authorized to Superintendent, from time to time, as the public receive the same whose receipt therefor shall be service may require it, and under such rules as a sufficient voucher, by the Superintendent, of the Secretary of the Treasury may prescribe, a their delivery. 31 SEC. 7. And be it further enacted, That the the contractor in default and his securities shall Joint Committee on Printing for the two houses be charged with, and held responsible for the of Congress shall agree and fix upon a standard same, and shall be prosecuted upon their bond of paper for the printing of congressional docu- by the Solicitor of the Treasury, in the name of ments, to weigh not less than fifty pounds to the the United States, in the Circuit Court of the ream of five hundred sheets, of twenty-four by United States, in the district in which the de- thirty-eight inches; and it shall be the duty of faulting contractor resides; and to enable the the said Superintendent of the Public Printing Solicitor to do so, the said Superintendent shall to furnish samples of said standard paper to report to him the default on its happening, with applicants therefor, and to advertise annually, a full statement of all the facts in the case. The in one or more newspapers having the largest said Superintendent shall keep a just and true circulation in the cities of Boston, New York, account of all the paper received from the con- Philadelphia, Baltimore, Cincinnati, Chicago, tractor or contractors, together with an account Washington, Richmond, Raleigh, Charleston, of all the paper used for the purposes of the New Orleans, and Saint Louis, for the space government under this act, and shall report the of sixty days prior to the first of July, for sealed amount of each class consumed in said printing proposals to furnish the government of the establishment, and in what works or publica- United States all paper which may be necessary tions the same was used, to the Secretary of the for the execution of the public printing, of qual- Interior, at the end of each and every fiscal year. ity and in quantity to be specified in the said ad- SEC. 8. And be it further enacted, That when- vertisements from year to year. He shall open ever any charts, maps, diagrams, views, or other such proposals as may be made in the presence engravings shall be required to illustrate any of the Secretary of the Senate and the Clerk of document ordered to be printed by either house the House of Representatives, and shall award of Congress, such engravings shall be procured the contract for furnishing all of said paper, or by the Superintendent of Printing, under the such class thereof as may be bid for, to the low- direction and supervision of the Committee on est bidder, for the quality of paper advertised Printing of the house ordering the same. for by the said Superintendent, and determined SEC. 9. And be it further enacted, That it shall by the Joint Committee of the two houses of be the duty of the said Superintendent annu- Congress. It shall be the duty of said Superin- ally to prepare and submit to the Register of the tendent to compare the paper furnished by the Treasury, in time to have the same embraced public contractor with the standard quality; and in the annual estimates from that department, he shall not accept any paper from the contrac- detailed estimates of the salaries, amount to tor which does not conform to the standard de- be paid for wages, engraving, binding, materi- termined upon as aforesaid. And in case of dif- als, and for any other necessary expense of said ference of opinion between the Superintendent printing establishment for the second year. And of Public Printing and the contractors for paper, the said Superintendent shall also, on the first with respect to its quality, the matter of differ- day of the meeting of each session of Congress, ence shall be determined and settled by the Joint or as soon thereafter as may be, report to Con- Standing Committee on Printing of the two gress the exact condition of the public printing, houses of Congress. In default of any contrac- binding, and engraving; the amount and cost of tor under this law to comply with his contract in all such printing, binding, and engraving; the furnishing the paper in the proper time, and of amount and cost of all paper purchased for the proper quality, the Superintendent is authorized same; a statement of the several bids for mate- to enter into a new contract with the lowest and rials, and such further information as may be best bidder for the interests of the government within his knowledge in regard to all matters amongst those whose proposals were rejected at connected therewith. the last annual lettings, if it be practicable so to SEC. 10. And be it further enacted, That nei- do, and if not, then to advertise for proposals, and ther the Superintendent nor any other officer award the contract as herein-before provided; to be appointed under this act shall, during his and during any interval which is thus created continuance in office, have any interest, direct by the new advertisement for such proposals, or indirect, in the publication of any newspaper the Superintendent shall purchase in the open or periodical, or in any printing of any kind, or market, by and with the approval of the Secre- in any binding or engraving, or in any contract tary of the Interior, all such paper necessary for for furnishing paper or other material connected the public service, at the lowest price. For any with the public printing; and any violation of increase of cost to the government in procuring this section shall subject the party offending, on a supply of paper for the use of the government, conviction before any court of competent juris- 32 diction, to imprisonment in the penitentiary for Summary a term of not less than one, nor more than five years, and to a fine of five hundred dollars. SEC. 11. And be it further enacted, That if The foregoing chapter has provided a the said Superintendent shall corruptly collude great amount of historical background of with any person or persons furnishing materials pre-GPO history which properly could or bidding therefor, or with any other person or not be regarded as part of a GPO cen- persons, or have any secret understanding with tennial narrative. By spreading out on a him or them, by himself or through others, to broad canvas the story of Government defraud the United States, or by which the gov- ernment of the United States shall be defrauded printing from its infancy to 1861, a better or made to sustain a loss, contrary to the true perspective of the Office of today can be intent and meaning of this act, he shall, upon visualized in the light of the extraordi- conviction thereof before any court of compe- nary events which led to a truly Govern- tent jurisdiction, forfeit his office and be subject ment printing office. Source material was to imprisonment in the penitentiary for a term of not less than three, or more than seven years, derived from congressional committee and to a fine of three thousand dollars. reports and hearings, the Congressional APPROVED, June 23, 1860. Globe, and the newspapers of the day.

33

Chapter III 100 G P O Y E A R S 1861–1961

N THE FOLLOWING 1861–1961 chronology of 100 GPO years, the GPO his- torian has attempted to chronicle the yearly printing highlights in Office history Ias reported by successive Superintendents and Public Printers in their annual reports to Congress. Some Printers, perhaps with an awareness of their place in a future Office history, were voluble and offered interesting sidelights in their narratives; others felt that production statistics were sufficient evidence of their stewardship. The chronology has been supplemented by recourse to early historians, the newspapers of the day, and congressional hearings and reports. But throughout the 100 years, in addition to the printing events of each year, type was being set, presses were running, the bindery was producing the finished product, and the energies of the entire plant were devoted to public printing and binding.

growing pains and gropings for security 1861 in the Federal Establishment, and upon Mr. Defrees fell the task of reorganizing After the exciting years prior to the the mode of executing the public print- opening for business on March 4, 1861, ing. A complete system of keeping the ac- the Office began its public printing career counts, and rendering the proper vouchers in relative obscurity. The subject of bitter for work performed, was inaugurated. He debate in 1860 had been overwhelmed by also set up checks and safeguards for the the feverish excitement of Lincoln’s inau- prompt and economical execution of the guration and the imminence of civil war. public printing—and he had a building, A former newsworthy item in Congress equipment, and labor to begin the job. and the press, it was not until March 21 Published in 1869, The Sights and Se- when the press again noted the GPO. On crets of the National Capital, by Dr. John that day the Baltimore Sun printed the B. Ellis, offered the following profile of following item: Mr. Defrees:

The Senate also unanimously confirmed the He is a plainly-dressed, quiet-mannered nomination of John D. Defrees as Superinten- man, a printer by trade, not above 45 years old, dent of Public Printing. This nomination is a smooth-faced, gray-eyed, with a business look popular one. He will immediately take posses- about him, and he is an Indianian, long pub- sion of and organize the new government print- lisher of the Indianapolis Journal. By birth he is ing bureau. a Kentuckian, of the State which produced Blair and Rives, the pioneers of political printing in As a newly authorized Government Washington. agency, the GPO was to suffer the usual * * * he must superintend the entire business 35 of the office, while all contracts for paper, &c., Government printing orders mush- are made by a committee of the Senate and the roomed. Presses jammed every corner. House. The public printing office is therefore Machines in private shops were rented. relieved from all the imputations of corruption which used to attach to it, and the character of the Paper doubled, trebled in cost, and be- printer himself has never suffered imputation. He came almost unobtainable, and in 1864 is one of the most modest and attentive officials of sold for $560 a ton. Printers demanded the Government, bright in public affairs, and in $24 a week. A private firm lent pay- business a man of parts and powers.* * * roll money to the GPO. Yet in the first 6 months of operation, the Office saved Beginning of Civil War more than its purchase cost of $135,000. The war years created a scarcity of paper The year 1861 was an exciting one in and printing ink in both North and South. the Capital. On April 12, Fort Sumter The South particularly felt the pinch, be- was fired upon. President Lincoln made cause paper, ink, and type had come from the first call for troops 3 days later, at a the North. In the South, newspapers were time when citizens of Washington favor- reduced in size, headlines were omitted, ing the cause of the Union seemed to be and frantic appeals were made for rags in the minority. Throughout the war, ru- and materials for making paper. In some mors of invasion swept the city, and GPO cases, wrapping paper and the blank side printers and other employees not only set of wallpaper were used, with shoeblack- type day and night but also drilled as sol- ing serving as improvised ink. In the diers to protect the building and the city. Confederate States, many printers were (See “1864, Invasion Threat.’’) exempted from military services.

GPO in Swampoodle

Known as Swampoodle, the area The 1861 report of the Superintendent around the building was truly subur- of Public Printing offered the following ban. H Street to the east was only on a description of the first GPO: map, with grading to the turnpike gate The public printing establishment is situated at Bladensburg Road completed in 1863. at the northwest corner of square 624, at the cor- Because the Printing Office had been ner of H Street north and North Capitol Street. placed at North Capitol and H Streets, The lot is 264 feet 9 inches on H Street by 175 H Street to the west had been graded feet 3 inches on North Capitol Street, containing and graveled to New Jersey Avenue in 46,397 square feet, and affording ample space for any additions or improvements that may 1857. There may have been some form be deemed desirable. The building consists of of transportation for GPO workers, but a printing office and bindery, four stories high, the H Street horsecars did not run until with a breadth of 611/2 feet and a depth of 243 9 years later. feet; a paper warehouse, 59 feet 7 inches by 79 feet 2 inches; a machine shop, 22 feet 2 inches by 25 feet, for repairing and renewing the presses The Office and machinery; a boiler house, 20 feet 7 inches by 26 feet; a coal house, 23 by 27 feet; a wagon Erected by Cornelius Wendell in 1856 shed, 25 feet 4 inches by 24 feet; and stables, 23 as a printing office, the GPO was to pro- feet by 41 feet 2 inches. These buildings are all of brick, built of the best materials and in the duce printing and binding for Congress most durable manner * * *. They are completely and the Federal departments, bureaus, isolated from any contiguous building, being and independent offices. bounded on the north and east by public streets, 36 on the south by a 30-foot alley, and on the west Phoenix of a gilt eagle. This eagle, troubled by by a vacant lot of 21 feet 9 inches, included in the proximate confusion of Irish shanties and the purchase. building lots, is less busied with his destiny than with the points of his compass, which he In addition, it had a cupola and bell. If holds transfixed in his talons, and by these you perceive that just to the north is the Catholic it were not the largest printing office in church of St. Aloysius, noisy with a chime of the country, it was surely the largest in bells, while the settled quarter of the city lie Washington. west and behind the printing-office. The modern building contained a Making a straight way from Capitol Hill across Tiber Creek, which you will cross by composing room, proofreading room, stepping-stones deposited in its basin, and tak- machine shop, pressroom, wetting and ing a footpath across lots where geese and pigs drying rooms, bindery room, folding browse upon plentiful barrenness, you will reach room, and office. the printing-house in 10 or 15 minutes, and hear Among the items listed in the inven- the hum of its machinery. The near exterior view is no better than the tory were 1 timepiece, 5 wrenches, one remote one. A huge factory of red brick, about 40-horse engine, 104 pressboards, 2 wet- 350 feet long, with the gables and one side facing ting tubs, and a fair assortment of book separate streets, and the other side fenced up to and job type. enclose boiler houses, paper storehouses, wagon- sheds, wastepaper barracks, and an accessory wing The proofroom had eight armchairs, for stereotyping and for a machineshop—this is all two pine desks, and one mahogany desk. that a passing pedestrian knows of the GPO. The bindery had only 2 ruling and 2 cutting machines, in addition to 10 pairs [See also “1881, GPO Area in 1881.’’] of shears, 4 bodkins, and other minor equipment. As John Clagett Proctor, a former Of- Pressroom equipment consisted of 23 fice employee and Washington historian, Adams presses and 3 cylinder presses. pointed out in 1932, the “passing pedes- The stable had 1 black horse and 1 trian’’ in Civil War days was sometimes subject to danger on— bob-tail bay horse, 1 wagon, and 1 carry- all; the boilerhouse had one 60-horse- Defrees Street, which ran east and west between power boiler and 525 feet of firehose, 5 the block in which stands this old [GPO] build- buckets, etc. ing, and upon the heads of the residents of which All typesetting was done by hand. many a compositor has thrown a handful of pi [mixed type] he did not care to distribute * * *. The 1861 composing room contained 93 double stands for compositors’ cases, 349 Old Tiber Creek pairs of cases, 19 imposing stones, 108 chases, 41,300 pounds of type of various In Washington: A Not Too Serious His- kinds, and 335 galleys, mostly wooden, tory, by George Rothwell Brown, this de- and 2 small proofpresses. scription of the GPO appears:

Neighborhood Near the original GPO building could be found a tributary of old Tiber Creek which In The Sights and Secrets of the National flowed southwest through swampland toward the Capitol. In the spring of the year, this famous Capital, Dr. John B. Ellis thus describes old creek had a habit of overflowing its banks the GPO neighborhood: on its upper reaches. Early Irish settlers living in the general neighborhood * * * gave to the lo- If you stand on Capitol Hill, at the top of the cality the picturesque, if inelegant, nickname of high flight of stairs leading into the Senate, and “Swampoodle,’’ more on account of the swamps, look straight north, you will see the Govern- however, than the poodles, with many goats ment Printing Office. It is in dreary contrast to typical to the settlement. Perhaps Swampoodle the pure whiteness of the Capitol. A long rec- was a corruption of “swamp-puddle.’’ Certainly tangle of sooty brick, domineered by a scorched there were both swamps and puddles galore in cupola, from whose apparent ashes rises the the shadow of the GPO and the Capitol. 37 Old Tiber Creek ran but half a block First Annual Report away, entering the area between North Capitol and First Streets NE., and then On December 11, 1861, Superintendent took a southwesterly course, crossing John D. Defrees submitted his first annual Pennsylvania Avenue at Second Street. report, stating that the superseded— It was known originally as Goose Creek. In 1932, John Clagett Proctor, in exer- law of 1852 provided for the election of a printer cises dedicating a tablet placed on the old for each house of Congress, and fixed the rate of compensation. * * * This method was liable to so building, stated that— many objections other than those of a pecuniary character, as shown during its continuance, that an idea may be had of the size of [Tiber] creek Congress determined to make a change * * * and by the statement of an old chronicler, that during the result has been such as to vindicate the wis- the 1850’s a tavern built on New Jersey Avenue dom of Congress in making the change. * * * it is close to the stream, and known as Foy’s Hotel, safe to say that a saving of at least $60,000 has been was washed away during a flood. effected [for 9 months].

Beginning in 1871, a general and costly The Superintendent, with a sense of system of public works improvement awareness of recent printing cost excesses, was begun in the District. About 1876 listed comparative figures of “cost at for- Old Tiber Creek, the “indescribable cess- mer prices’’ and GPO “amount charged pool,’’ went underground, and the great- and paid,’’ offering evidence of immediate est nuisance of Washington thereby put savings over the former system. out of sight. In its first 9 months the new GPO pro- The area also included three Civil War duced $550,887 of Government print- hospitals which served as constant re- ing, including $510,815 for Congress and minders of war. Two blocks to the west $40,072 for the executive departments. was Stanton Hospital, and in the block immediately to the north was Douglas Number of Hands Employed Hospital, each occupying a whole square of ground. St. Aloysius Church, on North The new printing act required— Capitol and K Streets, had been dedicated in 1859, but war demands had converted that the Superintendent shall at no time employ the new church into a war hospital. more hands in the public printing and binding establishment than the absolute necessities of the Washington public work may require * * *. The Superintendent reported that— An early historian noted that in Wash- ington— No larger force has been or will be employed * * * than its wants absolutely demand, and none Not a street was lighted up to 1860, except- are employed except such as are competent to the ing Pennsylvania Avenue; pigs roamed the prin- discharge of the duties required of them. cipal thoroughfares; pavements, save for a few patches here and there, were altogether lacking. The Office employed 350 compositors, An open sewer carried off common refuse, and pressmen, bookbinders, and laborers. On the police and fire departments might have suf- ficed for a small village rather than for a nation’s the rolls were the names of John Lar- capital. combe and James English, former own- ers of Wendell’s establishment, who were The Atlantic Monthly in 1861 pro- now GPO employees. Hours were from nounced Washington as a “paradise of 8 to 5 for both day and night forces, with paradoxes, a great, little, splendid, mean, 1 hour for lunch, and the night force was extravagant, poverty-stricken barrack for abolished each year with the adjourn- soldiers of fortune and votaries of folly.’’ ment of Congress. 38 Work Destroyed 1863 In 1861, the GPO sustained a loss of some $15,000 to $20,000 in printed mat- On October 24, at about 3 p.m., Presi- ter when fire destroyed a binding con- dent Lincoln visited the Office on invi- tractor’s building on Louisiana Avenue, tation of Superintendent Defrees, and between 9th and 10th Streets. Later in spoke briefly to the employees. the year, all binding was done at the main According to the Washington Star of office. November 13, President Lincoln sent the following note to Mr. Defrees: Engraving Plant Suggested Mr. Defrees—Please see this girl who works Superintendent Defrees reported that in your office, and find out about her brother, the law establishing the Office made no and come and tell me. change in the mode of executing GPO en- On December 15, Mr. Defrees wrote to graving and lithographing in private plants a friend: throughout the country. Therefore— A poor girl in the employment of the GPO this office has no control over it than to see that it had a brother impressed into the rebel service, has been done according to the terms of the con- and was taken prisoner by our forces. He desired tracts made by the Printing Committees. It may to take the oath of allegiance, and to be liberated. be worth the consideration of Congress whether She sought an interview with the President, who a saving may not also be effected in this branch wrote the note, asking me to inquire into the of the public expenditures by directing it to be facts, which I did, and the young man was liber- executed in the GPO. ated on the President’s order.

Engraving expenditures in 1861 to- First Plea for More Space taled $118,658.42, reflecting in part war printing. [In 1923, 62 years later, the GPO Because of “the existing [wartime] began to produce its own engravings.] condition of the country,’’ Mr. De- frees reported that 1862 printing costs of $549,390 had increased in 1863 to $1,404,539. He said: 1862 To meet this increased demand for printing and binding, I have been compelled to add to the machinery and materials to so great an extent that Superintendent Defrees reported that there is no room in the building for any more, and yet much more could be profitably employed printing savings from March 4, 1861, if the present amount of work is to continue. To to September 30, 1862, amounted to facilitate the work as much as possible I have em- $205,506 under pre-GPO costs. ployed, during the past year, several presses in some of the private printing establishments in this First Strike in Bindery city, and yet there are several large documents or- dered by Congress which are unfinished solely for the want of additional presses. * * * I respectfully The 1863 report stated that— [request] an appropriation to enlarge the build- ing and to increase the machinery and materials except for a short period during last fall [1862], * * * as I am confident it would result to pecuniary when the workmen were on strike for higher advantage of the Government. wages and a reduction of the hours of labor, the operations of the bindery have progressed in a In the interest of economy, Mr. Defrees satisfactory manner. added:

Thus was reported the first—and Under the law I am compelled to execute the last—strike in the GPO. orders of Congress and of the Departments, and 39 can have, of course, no control over the amount false and spurious proclamation [was] of a trea- ordered to be printed, but I hope it may not be sonable nature designed to give aid and comfort regarded as improper for me to suggest that a to the enemies of the United States, and to the great saving to the Government may be made rebels now at war against the Government * * *. by omitting to print many documents which are of no general utility, and to ask the attention of Rev. Henry Ward Beecher, an old Congress to the subject. friend of Defrees and an ardent supporter of Lincoln’s antislavery fight, petitioned New Versus Old System the President for Howard’s release. The President, on August 23, instructed Further comparative printing cost fig- Secretary of War Stanton: ures were submitted, showing total sav- ings from March 4, 1861, to September Let Howard, imprisoned in regard to the bo- 30, 1863, of $583,935, with the observa- gus proclamation, be discharged. tion that— Beecher’s letter of thanks was sent to The increased cost of labor and materials of all Superintendent Defrees, who forwarded kinds has, of course, added greatly to the cost it to John Hay, Lincoln’s secretary. of printing and binding done during the last year; yet, the saving effected over the prices paid under the old system has been very considerable Defrees Advises President * * *. The character of the printing and binding, in For many years, Mr. Defrees had been material and workmanship, is superior to that chairman of the Whig Central Commit- furnished under any system which has preceded the present; and the experiment of the Govern- tee of Indiana, and had been a delegate to ment doing its own work, both as regards to the Whig and National Republican con- quality and the economy of its cost, may be re- ventions of 1848, 1852, and 1856. High in garded as completely successful. party councils and concerned with political strategy, Mr. Defrees, on February 7, sent a The 1863 annual report noted that letter to the President suggesting that con- purchases included one horse at $200; sideration should be given to an antislavery one pair of mules, $300; and horse-feed, amendment to the Constitution. $796.91. Now, why not send a message to Congress recommending the passage of a joint resolution proposing an amendment to the Constitution forever prohibiting slavery in the States and ter- 1864 ritories? It would be your measure and would be passed by a two thirds vote, and, eventually, On December 6, President Lincoln three fourths of the states, through their Legisla- delivered his last annual message to Con- tures, would consent to it. gress. In existence today are fragments of If not done very soon the proposition will be the original draft which served as print- presented by the Democracy and claimed by them as their proposition. This may look strange er’s copy. Each fragment carries the en- to those who do not remember with what facility dorsement of Mr. Defrees, who had cut that party can change front. up the draft and distributed them among his friends. On the next day [February 8] Lincoln On May 18, the New York World and replied: the Journal of Commerce had printed a Our own friends have this under consider- proclamation alleged to have been signed ation now, and will do as much without a Mes- by Lincoln. The hoax story had been sage as with it. written by Joseph Howard, Jr., who was arrested immediately on orders from On February 1, 1865, the resolution Lincoln, who stated that the— proposed by the administration was 40 adopted by the requisite three-fourths of included Company F, composed of GPO the States and became the 13th amend- printers and pressmen. Kerr’s History of the ment to the Constitution. GPO states that Company F was formed—

when Washington was threatened from foes Printing Costs within and without, for the purpose of assisting in guarding Government property, and to repel Mr. Defrees noted that public print- any foe in case the city was attacked. This orga- ing for the fiscal year ending September nization was kept up for a year or two, but as the 30 cost $328,249. All work produced in city became filled with soldiers from all sections of the land, it was permitted to die out. * * * in 1864 was listed in his report at prices 1864, when Washington was threatened by the paid under the 1852 act. With 1852 prices rebel General Early, [Company F] was promptly amounting to $616,899, these compara- reorganized, with H. R. Lahee as Captain, W. tive figures showed savings of $288,650 A. Ensminger as First Lieutenant, and Daniel Harbaugh as Second Lieutenant. * * * it appears under the new system. that Company F was mustered into the United Overall costs, including paper and lith- States service about July 11, 1864, and after hav- ographing, amounted to $1,420,069, com- ing been supplied with all the paraphernalia— pared to $549,390 in 1862. Mr. Defrees including arms and ammunition—the company warned Congress of higher printing costs: was marched, on the afternoon of that day, to one of the forts in the vicinity of the Insane Asy- lum, where it remained on duty until the follow- Assuming that the quantity of printing and bind- ing day, when the rebels, having been beaten in ing annually required of this office has reached their fight with the Sixth Army Corps, retreated. its maximum under the existing state of public The printers, having laid aside their weapons of affairs, * * * its cost will, nevertheless, be mate- destruction, resumed their places in the office. rially increased; for * * * the price of labor has been advanced about 121/2 percent on the aver- age, and the price of paper * * * has advanced Agriculture Report * * * an average of 65 percent. The Superintendent reported that— The 1864 report also included a refer- ence to the wasteful practices of the for- One edition of 25,000 copies of the [1863] Re- mer printing system. Mr. Defrees said: port of the Commissioner of Agriculture has been printed, bound, and delivered, and the remain- ing number of copies will be printed as rapidly as Since the establishment of the GPO no elabo- the number of presses which can be withdrawn rately embellished works * * * have been printed from the more pressing demands of the War De- by authority of Congress, and, therefore, the cost partment can accomplish. of this description of work has been small for the last 4 years, as compared with several years im- mediately preceding. He added that delays in printing con- gressional documents had “been occa- Invasion Threat sioned by a want of sufficient number of presses.’’ On July 11, fear swept the city, for the Confederate Army under Gen. Jubal A. Early, had reached a point 6 miles to the 1865 north [where Walter Reed Army Medical Center now stands]. General Grant sent the 6th and part of the 19th Corps to Washing- On April 14, President Lincoln was as- ton, and their arrival saved the city. On the sassinated. The newspapers ran special following day a skirmish took place, which editions which covered the “catastrophe’’ President Lincoln witnessed as a spectator and the pursuit of the conspirators, but at Fort Stevens, exposing himself to fire. no reference was made to indicate that Aiding in the defense of the city was Government departments, including the the Interior Department Regiment which GPO, were closed the next day. On April 41 17, the Star printed an order from the tual printing costs were $2,227,099. He Secretary of State: announced that—

It is hereby ordered that in honor of the mem- the close of the rebellion had caused a consider- ory of our late illustrious Chief Magistrate, all able decrease in the requisitions of the Executive officers and others subject to the orders of the Departments for printing; but with the large Secretary of State wear crape upon the left arm amount of deferred printing for Congress and for the period of 6 months. that which will be ordered at the present ses- sion, there will doubtless be enough to work the The Treasury, Post-Office, and Inte- whole establishment up to its full capacity for rior issued similar orders, but whether the next 2 years. the Superintendent of Public Printing is- sued an order is not known. April 19 was Further System Comparisons proclaimed as a day of “humiliation and mourning.’’ No newspapers were pub- Once again Mr. Defrees supplied lished and it is certain that the GPO was comparative figures of the two printing closed that day. systems—private versus Government. Since the founding of the GPO, these First Expansion before-and-after figures had been of- fered each year, perhaps not in defense An appropriation of $61,000 granted but as eloquent justification for the by Congress was used to expand the GPO printing reform act. He showed savings building to the west. The extension was by Government operation amounted to 60 by 75 feet, 4 stories high, with space $165,525, in spite of the “great advance for nearly 1,000 workers. in the price of labor’’ since 1861 and ear- Mr. Defrees commented that a de- lier, and a 65-percent increase in paper scription of his new equipment “may costs. Wages for compositors and press- not be deemed either inappropriate men in 1861, and for several years previ- or uninteresting.’’ He then stated that ously, had been fixed by their trade so- he had purchased 12 first-class Adams ciety at $14 per week; in February 1863, presses, manufactured by Hoe & Co. of $16; December 1863, $18; June 1864, New York at a cost of $36,000. The Of- $21; November 1864, $24. The increases fice now boasted 57 presses: 35 Adams, 9 had been awarded “on account of the cylinder, 8 Gordon, and 5 hydraulic for increased cost of living in this city, and dry pressing. is believed to be not too high for good From the meager 2 ruling and 2 cut- workmen.’’ ting machines of 1861, the Bindery now Mr. Defrees also noted that— had 17 standing presses, 14 ruling ma- Engraving and printing for the War Depart- chines, 7 cutting machines, 3 number- ment, consisting principally of commissions, ing machines, 5 backing machines, 3 warrants, and discharges for the regular and embossing presses, and 1 smashing ma- volunteer force, on parchment, * * * amounted chine. to $34,353.40, but the return of peace has already caused a very great decrease in the requisitions All pressroom and bindery machines for this class of printing. were driven by two engines: one of 40 horsepower and one of 10 horsepower. Growing Work Volume 1866 Superintendent Defrees in 1864 had On April 14, on the first anniversary stated that the public printing and bind- of Lincoln’s assassination, President ing in 1865 “will approximate the very Johnson ordered all Government depart- large sum of two millions of dollars!’’ Ac- ments, including the GPO, closed. 42 Wendell Returns An act of Congress on July 27 gave the Joint Committee on Printing exclusive Cornelius Wendell, the Government control of contracting for paper for pub- printer from 1846 to 1861, returned to his lic printing, and for “fixing a standard old establishment as Superintendent of of paper for the different descriptions of Public Printing from September 1, 1866, congressional and executive printing.’’ to February 28, 1867. The Baltimore Sun of August 29 reported: Wage Increase and 8-Hour Day

It is announced that Cornelius Wendell, Esq., The 8-hour day was incorporated in * * * has been appointed Superintendent of Pub- lic Printing, vice Defrees. Mr. Wendell was for- the Washington scale of prices in Octo- merly printer to Congress. He came to this city ber. It was accepted by the GPO when [Washington] from Albany, N.Y., about 20 years the employees threatened to strike. Mr. ago, and was long known as the senior member Wendell wrote to the printers’ society of the printing firm of Wendell & Van Benthuy- sen. He is thoroughly conversant with the busi- that— ness of printing, and will undoubtedly make a good officer. hereafter I will pay printers in the GPO a wage of $4 per diem [or $24 a week] for 8 hours’ labor, in accordance with the scale adopted by your On September 3, the Sun stated that— Society. Mr. Wendell * * * entered upon the duties of his office on Saturday [September 1]. He has Bullock Press already made some changes, and among others, about a dozen laborers, whose services he judged Wendell in his brief service as Superin- could be dispensed with, have been discharged. In tendent purchased the Bullock press, the the folding-room Mrs. Kate Shortell will super- sede Mr. Harrison, and Mr. J. H. Roberts takes mechanical marvel of the day. The press the place of Mr. Goff as foreman of the bindery. cost $25,000 and was invented by Wil- liam Bullock of Philadelphia. In 1867, In his only annual report, he stated that Dr. A. P. Bernard noted the advantages with the enlargement of the building and of the press, as follows: the addition of new machinery, he could dispense with the aid of private plants Like the Hoe Press, it carries the forms upon the cylinder, but it differs from that press in re- used during the preceding 5 years. quiring no attendants to feed it, and in deliver- Although Mr. Wendell had been re- ing the sheets printed on both sides. It is a great moved from public printing since 1861, improvement also, realized in this press, that his viewpoint had now changed, for he the sheets are delivered silently, the noisy racks stated that— of the Hoe Press being wholly dispensed with. The substitution of an automatic system of a considerable amount of the printing and bind- feeding for hand-feeding, which is one of the ing for the government * * * is not executed in greatest economical advantages of this press, this establishment, or under its control * * *. As has been effected by introducing the paper our facilities are amply sufficient to execute all the into the machine, after it has been subjected government printing and binding, and at less cost to a moistening operation by passing through than by private establishments, I can see no good a shower of fine spray, in the form of an endless reason why they should not be executed here. roll. A single roll will contain several thousand sheets, and the printing operation, including the cutting of the paper into proper lengths, Mr. Wendell also reported that the will proceed uninterruptedly until the roll is printing of the Nautical Almanac had exhausted. been transferred from Cambridge, Mass., to the Office, and that “complete ar- Superintendent Defrees reported that rangements have been made to publish it the Agricultural Report for 1866 was the yearly in approved style.’’ [This work is first book printed on the Bullock press. still produced in the GPO.] He said that the printing and binding of 43 189,550 copies of the 692-page book were gerated statements of the cost * * * were made in printed at a cost of $159,953, or 84 cents the newspapers, I will state that the actual cost of per copy. printing and binding was $18,179.54.

It is a machine of immense power and rapidity, Patent Printing and the work turned out by it will compare very favorably with that executed by any other power Beginning November, all Patent Of- press in present use. fice work, formerly executed in private offices in Washington, was added to the business of the Office. With a staff of 41 1867 workers, including 2 proofreaders and 33 hand compositors, the GPO began its patent printing career. On March 1, John D. Defrees again Another printing acquisition occurred assumed the post of Superintendent of in July, when the Commissioner of Cus- Printing, displacing Cornelius Wen- toms transferred all his printing and dell. The salary of Superintendent had binding to the GPO. Formerly done by been increased from $3,000 to $3,583.33. private printing offices in various cus- By now, comparative statistics of the toms ports, the transfer “suddenly pre- two printing systems stopped appear- cipated a large amount of business.’’ It ing, for the system of Government as seemed to be a happy arrangement, for its own printer was proved successful. in November 1869 the Commissioner Public printing this year amounted to of Customs informed the Printer “that $1,599,218. [GPO work] was very far superior * * * Horace Greeley, the first president of to any of the kind I have ever seen in any the New York Printers’ Union organ- customhouse, and incomparably superior ized on January 19, 1850, an editor, for 3 to the general average of books.’’ months a Congressman, and a Presiden- tial candidate in 1872, noted complaints by Government and GPO workers of their small pay. He suggested that they 1869 return to Kansas or Nebraska instead of beseeching Congress for larger salaries; besides, “Washington is not a nice place On April 15, Almon H. Clapp of New to live in. The rents are high, the food York became Congressional Printer, a is bad, the dust is disgusting, the mud new title for the head of the GPO. Mr. is deep, and the morals are deplorable.’’ Clapp had founded several newspapers in Buffalo, N.Y. Taking over the GPO, he sold his interest in the Buffalo Express, and shortly after, Mark Twain purchased 1868 an interest in the Express. On February 22, 1867, Congress had authorized the election of “some com- Superintendent Defrees reported that petent person, who shall be a practical the GPO had printed Expressions of Con- printer, to take charge of and manage dolence and Sympathy on the Assassination the Government Printing Office,’’ and of President Lincoln. He noted that Con- provided “that the person so selected gress had authorized 3,000 copies of— shall be deemed an officer of the Sen- a very handsomely printed and bound volume of ate, and shall be designated Congressio- 962 quarto pages, with a correct likeness of the nal Printer.’’ This new official was to be late President engraved on steel. * * * As exag- governed in the discharge of his duties by 44 the laws then in force in relation to the Su- Within a few days all the proposals will have perintendent of Public Printing, and the been received from various parties for printing the debates of Congress. This is a big job, and all latter office was abolished. The salary was the jobbers, little and big, will endeavor to get in now $4,000. upon it. Now, it is plain that these debates can be printed at only two places in the District—at Work Increase the Globe office, where they have been printed these many years, and which is provided with about $200,000 worth of presses and material, or With the acquisition of patent and at the GPO, which is also adapted to do so large customs work in 1868, the Office also an amount of work. Besides these two offices, acquired control of a Treasury printing there are none in the District of Columbia which plant on May 11, 1869. Producing confi- can get out the debates in newspaper shape every day, and be also at work upon the Globe for the dential printing, it was permitted to con- bindery. If, therefore, Mr. Forney, Mr. Moore, or tinue as a branch office, but under direct anybody else, means to bid for this contract, let control of the GPO. However, some of its Congress look to it that the lucky contractor is equipment, including “stereotype imple- not to get the money, and the work afterwards return to the GPO for necessity’s sake. This is ments and * * * an electrotype apparatus the probability, that some speculator, without a complete,’’ was moved to the Office. In cent in his pocket, may be, will bid for this con- this indirect manner the Office on Sep- tract, expecting to compel the proprietors of the tember 15 entered the platemaking field Globe to let their office to him, or expecting, if he fail to get the Globe office, that Congress will which had previously been performed by afford him relief by opening the hospitality of private plants. Mr. Clapp predicted that the GPO. In the latter case the work will be paid Office production of stereotypes would for twice over. Up to this time the Rives fam- yield a saving of at least $5,000 per an- ily has been a good servant of the Government. There has never been any issue about the Globe’s num. In 1870, after 1 year of operation, reliability or integrity. My private belief is, that he reported that his books showed a “sat- Government ought to print its own testaments, isfactory’’ saving of $9,193. In 1871, sav- but it is sure that no new outsider can do any ings were $12,537, and in 1872, $18,854. better. * * * Once again the Office showed signs of growing pains, for Mr. Clapp in his an- nual report recommended an addition on North Capitol Street adjoining the 1870 original building. “Indeed, it is impos- sible now to crowd within its walls suf- The GPO continued to expand as the ficient machinery and operatives to keep Navy Department and Paymaster Gen- up with the demands made upon its re- eral’s printing plants were placed under sources.’’ its control. Disbursements during the year in- cluded 25 barrels of sawdust at 25 cents Plea for Increased Space each; horseshoeing expense, $111.24; and wagon grease, $4. Once again the Congressional Printer called attention— “Globe’’ Printing to the imperious necessity of an increase of building accommodation to meet the pressing There were signs that the Congressional wants of the office, * * * for the work gradu- Globe printing contract of F. & J. Rives ally increases; all the available room * * * is oc- was being eyed by printers with political cupied; * * * a large amount of binding * * * connections. Early in 1869 the Chicago is accumulating without the hope of reaching it in years; * * * [and] the Government has an Tribune noted that bids had been invited, abundance of vacant land adjoining the pres- and printed the following dispatch from ent building on which to erect a commodious Washington: addition * * *. 45 He also noted that— was devoted to the GPO practice of awarding fat composition in contrast to a question of safety to the persons engaged in the the mode of distribution in private print- present building has been raised by the public press, causing much alarm and discontent on the ing plants. Of interest to veteran printers part of the employees * * *. of today were the 1870 methods of auc- tioning fat “takes’’ to speedy typesetters, Information Leak or else compositors would “take their chances’’ by tossing em quads [“jeffing,’’ The Office found itself in difficulty known to printers since 1650] or draw when certain official documents had been lots to decide the winners. published in advance of their transmis- Mr. Wendell, former private printing sion to Congress, “much to the discom- contractor and Superintendent of Public fiture of the Departments to which they Printing in 1866–67, appeared as a wit- relate, and to the scandal of the GPO. In ness and testified. view of the fact that it seems next to an Typical of the charges made by a group impossibility now to prevent these oc- of discharged workers was the following, currences by the strictest vigilance,’’ Mr. which conveyed the flavor of a period 5 Clapp recommended that Congress “by years after the war had ended: judicious legislation, with proper penal- ties,’’ could prohibit and prevent further That the Congressional Printer has dis- charged Union soldiers from his office, and kept leaks to the press. at work men who never fired a gun in behalf of their country, and has now in his employ a man First Office Investigation who left this city at the outbreak of the rebellion and served three years in the rebel army. On July 15, the Joint Committee on Printing submitted the Anthony report In its findings, the Joint Committee on on a study of GPO working conditions Printing stated that— and Office administration. [it] need not remind Senators how often applica- In addition to layoffs, the core of the tions for service in the GPO are made, not on quarrel seemed to concern the manner of the ground that the applicants are good printers, measuring a man’s type output based on but on the ground that they are good republi- accepted production standards and piece cans. Among the grievances alleged * * * is that having rendered good service to the republican rates. Typesetters received $4 a day, or party, [printers] have been superseded by others 60 cents per 1,000 ems piece-work. Tests of inferior political claims. designed to measure a worker’s prod- However necessary it may be under our sys- uct were instituted, and if a man’s rela- tem of government to make political orthodoxy a test of office, * * * it must be plain that the tive earnings fell below $3.50 a day, the introduction of that system into the mechanical worker was transferred to the piece de- service of the Government is fatal to efficiency, partment or discharged. There were two subordination, and responsibility. classes of composition: solid text matter requiring steady and laborious work, In summary, it said: but lean in em count; and tabular work, Your committee do not pretend to say that the known as fat or “phat,’’ which would management of the GPO by the present Con- total in much easier fashion many times gressional Printer has been perfect. But it does the number of ems secured in the lean appear to them that there is no just ground for work. It was claimed that favored work- the allegations of incompetency, extravagance, ers were rewarded, in detriment to oth- mismanagement, or tyranny on his part * * *. The allegations * * * are not sustained by the ers, with fat work and therefore were less evidence, and the services of the Congressional subject to discharge. Printer appear to have been faithful, and in re- Extensive testimony in the hearings sults valuable to the Government. 46 erection of “a wing on the west line of the 1871 property.’’ He also called the attention of Con- gress to the condition of the building The Congressional Printer referred— which had been affected by the newly es- with much pleasure to the enlargement of the tablished grade of H street: building for the accommodation of this Office, under the appropriation of $45,000 made by This grade has been raised—though I have Congress * * *. Through the good judgment, formally protested against it—so as to fill up economy, and taste of the Architect of the Capi- the western entrance * * * considerably above tol, * * * this addition has been erected in a neat, the floor, while the pavement of the sidewalk is substantial manner * * *. sloped toward, instead of from, the wall of the building, thus precipitating the roof and side- walk water upon its foundation and exposing Pay Increase Recommended the press-room, which is filled with valuable and delicate machinery, to a moisture which will be With the large increase of business, injurious alike to property and the health of the Mr. Clapp noted that the “accumulation operatives. So long as it is not practicable to el- of labor and responsibility’’ of foremen evate the floor of the press-room, with its vast and valuable machinery, to the grade of the and clerks was not “adequately remuner- sidewalk, that grade should be depressed so as ated.” He recommended that the “chief to relieve the building of all accumulating water clerk, financial clerk, and foremen of underneath its first floor and save the machinery printing and binding be paid $2,500 a from the inevitable consequences of a moisture year each, and other clerks be paid $2,000 which contracts rust. each,” for in “no subordinate Depart- After this complaint, Mr. Clapp paid a ment * * * is the labor and responsibility tribute to his— so great, and the compensation therefor so small, as in this Office.’’ faithful corps of subordinates * * * [which] have enabled the Congressional Printer to discharge Chicago Fire his duties with comparative ease and comfort, and, he trusts, to the public satisfaction and benefit. Union printers in the Office cheerfully donated the “price of 1 day’s work’’ to al- Paper Suppliers leviate the suffering caused by the Chi- cago fire. In addition, $500 was collected With Office paper needs under the independently. Joint Committee on Printing and the guarding against faulty paper supplies in the hands of the Congressional Printer, 1872 the maintenance of quality standards was a continuing problem.

In his annual report, Mr. Clapp noted Department Printing Funds that “the demand for executive printing and binding grows with each year, as The law of May 8, 1872, effective July the country expands in population and 1, 1873, changed the mode of financing the interests of the Government become department printing and binding. Under enlarged.’’ Government printing had the law, each department or public office increased 15 percent over the previous would be supplied with its printing needs year, and with anticipated Government in accordance with definite appropriations, growth, the “enlarged building is barely which were not to be exceeded. Mr. Clapp adequate to meet the present necessities suggested to Congress that the aggregate of * * *.’’ He therefore recommended the departmental printing allocations should 47 not exceed the amount granted to the GPO, “electric’’ in any annual report, with for the latter’s funds would be exhausted. power possibly derived from batteries In this manner the Office would be forced (see also “1882, Electricity Arrives’’). to suspend operations. New Job for Office Electric Clocks On January 3, the first issue of the Pat- An expenditure of $470 for electric ent Office Official Gazette printed by the clocks appeared in listing “disbursements GPO made its appearance. Published on account of the public printing.’’ This weekly, it included excerpts from pat- was the first appearance of the word ents, decisions, and related matters.

Proceedings and Debates of Congress

commented: “The Globe publishers got 1873–74 their $400,000, but [Congress] will de- prive them of this profitable contract in the near future.’’ Some Members of The faults of public printing in the Congress felt that the amount was from years prior to 1861 which had led to the $100,000 to $200,000 more than it was birth of the GPO in 1861 began to be re- worth. peated in the reporting and printing of At the same time, the Joint Commit- congressional proceedings and debates. tee on Printing was directed to publish The Congressional Globe of Blair & Rives, advertisements once a week for 4 weeks and more recently of F. & J. Rives & Bai- in one paper in each of nine cities, in- ley, had reported and printed congres- cluding New York, Chicago, and San sional activities since 1833, and even after Francisco, inviting proposals for report- the GPO was formed. ing and printing, together or separately, Globe printing from 1861 to 1871 had the debates of Congress until 1879. The cost $744,117. In both Congress and the Times objected to a long-term contract, press there was criticism concerning the for it noted that “6 years—the period for bulk and excessive cost of Globe print- which the contracts were proposed— ing. With the expiration of the printing would give a company work enough contract on March 4, 1871, Congress was to make the establishment of an office reluctant to renew this contract. In the here [Washington] profitable for any meantime Rives & Bailey were forced to printer.’’ borrow $150,000 for operating costs until Several printers submitted bids. The a decision was reached. Congressional Printer likewise offered In Congress, it was admitted that— an estimate based on text composition of solid brevier [8 point] type, and extracts there was so much complaint of the expense to be set in nonpareil [6 point], of “$1.50 of the Globe * * *. The first and most obvious method is to stop talking. That is what makes for each and every 1,000 ems, printer’s the Globe cost so much. measurement,’’ including tabular work and all other work or services. Finally, Congress awarded $400,000 After evaluation of the bids by the to Rives to continue Globe printing un- Joint Committee on Printing, Congress til March 4, 1873. The New York Times on March 3, 1873, passed the following: 48 * * * Provided, That until a contract is made, the facilities of the Office are so extensive, that debates shall be printed by the Congressional prompt publication of the proceedings and Printer, under the direction of the Joint Com- debates of any day’s session, no matter how ex- mittee on Printing on the part of the Senate. tended or voluminous, will be assured the fol- lowing morning without a peradventure, if the The Times of the next day printed the copy thereof is promptly furnished the Printer. following dispatch from Washington: Of the economy of performing this service at the Government Printing Office, there can be no The Senate amendment * * * which sent the doubt. Its resources are so manifold, and its econ- printing of the Globe to the GPO was concurred omy of labor and material is such, that at least 30 in by the House by a very large majority. This percent of the money heretofore expended in ac- is believed to be the final action of Congress on complishing this work will be saved to the Gov- the matter. * * * After the Congressional Printer ernment through the present arrangement. shall have completed arrangements to do the work [March 5], it is hardly probable that any On March 17, the Times printed this effort to get the work into the hands of private item: parties can succeed. Those who have been accustomed to read In this manner, Congress cleared away the Congressional Globe in the form in which it the last trace of the free enterprise print- was furnished during the sessions of Congress will remember how ungainly and inconvenient ing period by transferring to the GPO it was. The Congressional Record * * * is a great the “important and laborious work’’ of improvement. * * * each page is divided into two the Congressional Record, the name se- broad columns; the type is clear and full; and the lected by the Joint Committee on Print- sheets are stitched together. The work is credit- ing. Thus for the first time in American able to the GPO * * *. history, printing for the executive, legis- On May 18, the Committee on Print- lative, and judicial branches of Govern- ing met to consider a new contract for ment was now housed under one roof— Record reporting and printing. Only the GPO. three printers and the GPO submit- The first Office-producedRecord made ted bids. For the previous session, Rives its appearance on March 5, 1873. This had been paid $246,555.50. In a proposal transition from private to public printing made in December 1872, he had specified was noted by the Times of March 7: his charges, suggesting that if— The debates of the extra session of the Senate are now printed at the GPO in quarto form * * *. the work will remain in our hands for 6 years, The paper is styled the Congressional Record, and we can make much more favorable contracts for is decidedly neat in appearance and convenient materials, and we should feel justified in mul- in shape. tiplying our labor-saving machines; and we are willing to give these advantages to the Govern- ment. The Congressional Printer in his an- nual report stated that— As a further inducement, he offered 1 The change in the form and style of this publica- to “make an abatement of 2 /2 percent’’ tion from that previously followed by the Globe from the gross amount on work done for was induced by a desire to secure comeliness, the 44th Congress [1875–77], and an ad- convenience, and economy for the work; and I ditional abatement of 5 percent for the am gratified in the assurance that it meets the 45th Congress. The committee, however, hearty approval of the Senate and such members of the House of Representatives as have given rejected all bids except that of the GPO, the matter their careful attention. and then awarded the contract to the Of- The publication of the proceedings and de- fice, which had offered $161,809.06 com- bates during the special session of the Senate pared with the $246,555.50 paid to Rives. gave fair opportunity for testing the capacity of this Office for the work; and I am fully con- On December 1, the 43d Congress as- vinced, under that experience, that promptness sembled, with the GPO, on its early expe- and economy are secured by the transfer. The rience, now geared to the production of 49 the Record. The Office adapted itself to Printer, from time to time, as the public service the new order, conforming to all congres- may require it, and under such rules as said Sec- retary of the Treasury may prescribe, a sum of sional printing demands, except in one money not exceeding at any time the full penalty instance. The one failure “was caused by of his bond, to enable him to pay for work and a protracted session of the Senate, which material. continued until 7 a.m.’’ It should be The penalty of the bond of the Congressional Printer is $80,000. He is now allowed by law remembered that the Record was all to draw two-thirds of that amount, $53,333.33, handset, for not until 31 years later [1904] in advance, to compensate labor and purchase was the typesetting machine introduced material. This is inadequate to accomplish that into the GPO. purpose, and an amendment of the law in accor- It is interesting to note that the acquisi- dance with this suggestion is a matter of absolute necessity, to enable this Office to compensate the tion of the Record required the purchase labor and purchase the material now required in of one Webster’s Dictionary at $12, a the prosecution of its business. Holy Bible at $3.50, and McPherson’s Po- litical History at $2.50. Binding Backlog Cleared A further footnote was the fact that the Congressional Printer received a sal- The large amount of congressional ary of $4,000 per year, but was respon- binding accumulated prior to 1869, in sible for Government printing totaling addition to increased business since, was $1,757,769. nearly completed. The Congressional In closing his 1874 annual report, Mr. Printer reported that GPO resources Clapp noted that 161 issues of the Record could now be applied to current demands had required 50 percent more columns of the Government. than the advertised proposals, but never- theless final production costs were almost 20 percent below his initial estimate. A. F. Bloomer, in Reminiscences in 1900, 1875 recalled the names of Office printers who produced the first Record: In November 1864, GPO craftsmen M. D. Helm was the foreman; Aven Pearson, as- received $24 a week. This rate was fixed sistant foreman; W. H. Hickman, bankman; and by law and the craft societies were con- among the proof readers were Melvin (“Bones’’) tent with a hold-the-line policy, but in Noyes, Maj. Frank Glenroy, A. T. Cavis, H. G. 1875 criticism was directed at Mr. Clapp Ellis, and Dave McIntosh; and Capt. O. F. Dun- lap was one of the copy holders. B. A. Ford was for maintaining inflated wage scales. He the maker-up. resisted efforts to reduce his workers’ pay, and his annual report reflected his Recommendations to Congress strong opposition toward the proposed economy. With added responsibilities and in- creased work, changes were necessary Pneumatic Tube to Capitol in the fiscal structure of the GPO. In his report, Mr. Clapp requested increased On July 15, 1870, Congress considered working funds, with the following rec- the feasibility of a pneumatic tube be- ommendation: tween the GPO and the Capitol. Issued on March 1, 1875, the Anthony report The financial demands of this Office have stated: now reached a point where it becomes neces- sary that section 3 of the law of June 23, 1860, That the Committee on Printing having relating to the public printing and binding, shall learned, in the spring of 1870, that pneumatic be so amended as to authorize the Secretary of tubes were successfully used in London, Paris, the Treasury to advance to the Congressional Berlin, and elsewhere for the prompt transmis- 50 sion of messages, letters, and parcels, thought of Public Printing, was commissioned by that such a mode of conveyance between the President Hayes on June 1, 1877. Capitol and the GPO would be of great practi- cal benefit, for the speedy transmission of proofs, bills, and reports, and would materially aid leg- House Investigation islation. On May 12, a House committee sub- Interested in speedy service from the mitted its report of a thorough investiga- Office, Congress appropriated $15,000 for tion into the operation of the GPO. Every the project, and digging began in 1873. phase of activity had been explored, with Initial work showed that the shell which chief emphasis placed on excessive costs would house the tube could not support of executing public printing, includ- the weight of the earth. The contractor ing the Congressional Record. Charges admitted “a failure,’’ but promised better had been made that Office management performance if he were permitted to try was “extravagant to a degree that would again. After $12,000 of the $15,000 had bankrupt any private establishment in been spent, Congress reluctantly decided the country.’’ There were some practices, to drop the idea. The report concluded: particularly in cost accounting, which re- The publication of the Congressional Record quired correction. Also involved was the at the GPO makes it more desirable than be- disparity between hours and wages of the fore that there should be some mode of rapid Office compared to private industry. transportation of copy, proofs, instructions about Spearheading a drive for the recap- printing, orders for the Record, &c. ture of Congressional Record printing was Bicycle messengers continued to shut- Franklin Rives, the former printer of the tle between the two points, and the tube Congressional Globe. Deposed by Con- idea was never revived, although Public gress in 1873, Rives charged that the— Printer Stillings in 1906 urged Congress Government had lost at least $100,000 in test- to study the matter. (See “1906, Pneu- ing the question whether its public agents could matic Tube.’’) print the debates more cheaply than its well- tried private contractors. I will only add that if again intrusted with the printing of the debates I will do the work in such a manner as to prove myself worthy of the renewal of the confidence 1876 of the Government.

In this manner Rives sought a return An act approved July 31 provided— to private production of the Record, a sys- that so much of all laws or parts of laws as pro- tem which had been discredited in 1872. vide for the election or appointment of Public Executive printing by the Office was Printer be, and the same are hereby, repealed, also attacked by Theodore L. De Vinne, a to take effect from and after the passage of this act; and the President of the United States shall well-known commercial printer of New appoint, by and with the advice and consent of York. Offering comparative cost figures the Senate, a suitable person, who must be a on individual jobs, he claimed that he practical printer, and versed in the art of book- could have executed the work at prices binding, to take charge of and manage the Gov- far below the GPO. ernment Printing Office, from and after the date aforesaid; he shall be called Public Printer, * * *. De Vinne also maintained that Office pay scales of $24 a week, or 60 cents per Under this law Mr. Clapp exchanged 1,000 ems piecework, were 50 percent the title of Congressional Printer for higher than wages paid in New York, Public Printer through appointment by which were $20 weekly and 50 cents per President Grant, and remained in office 1,000 ems piecework. In addition, the until Mr. Defrees, former Superintendent GPO worked an 8-hour day, compared 51 to 10 hours in New York. Questioned on (See “1878, Printing Savings.’’)] piecework practice in the trade, he stated The committee minority was deter- that piecework was the cheapest way of mined to strip the GPO of its public setting bookwork, not only in New York printing monopoly and return to the free but “it is the usage all over the world, as enterprise system, for it claimed that— far as I know.’’ As to the wage differen- tial between the GPO [in Washington] the theory which persuades the Government to enter the lists as a gigantic competitor with its and New York, he stated: “I have heard own people is wrong, the several branches of in- it alleged that the expenses of living here dustry and their honorable profits belonging by were a great deal higher.’’ right to the people; that * * * it is wise to take im- John G. Judd, a former Office employee mediate steps toward the discontinuance of the Public Printing-Office; that the * * * proposition and member of the firm of Judd & Det- of Franklin Rives * * * for the printing and bind- weiler, also testified. He agreed with De ing the debates of Congress should be accepted Vinne that GPO rates were also higher * * *; that the printing and binding for the Ex- than in Washington private industry, for ecutive Departments should be done under the he paid $4 a day for 10 hours’ work com- control of the heads thereof, with authority to contract for the same upon the most advanta- pared to the same pay in the Office for 8 geous terms to be obtained through the processes hours. Composition in his own plant cost of competition; that, as it is necessary to have the 50 cents per 1,000 ems in contrast to 60 printing and binding ordered by the two Houses cents in the GPO. of Congress done in the city of Washington, and On comparative printing costs, Judd as at the present time there are no private estab- lishments in the city possessing the necessary fa- insisted that GPO charges were about 40 cilities for the successful and satisfactory execu- percent higher than his own. tion of this work, it is not judicious to remove it The hearing also produced information at once from the Public Printing-Office, but that about vote leave for Office employees. the interests of the Government require its re- moval from that office as soon as any responsible In returning to their respective States private party with the facilities will undertake it for voting, workers received their daily upon reasonable terms; that whatever satisfac- wages for periods of “2 to 10 or 12 days. tory contracts can be made for the execution of Only to Philadelphia and Brooklyn and this class of work, the Public Printing-Office and New York, I think.’’ all the property used in connection therewith should be disposed of according to law, and the A committee minority recommended proceeds returned to the Treasury of the United that— States.

it would be in the interest of economy to remove The minority recommendations were the publication of the Congressional Record from the GPO and award the same to Mr. Franklin not adopted, but fiscal and personnel Rives. reforms were instituted and the GPO continued to print the Record and all It added that if the Record contract had other congressional and executive print- been awarded to Rives & Bailey, large ing. However, the airing of Office savings to the Government would have problems produced one byproduct, for been effected. testimony concerning GPO printers’ Further findings charged that during wages resulted in a sharp cut the follow- the past 7 years it had cost the Govern- ing year. (See “1877.’’) ment $31/2 million more to maintain the GPO than would have been required to Agriculture Reports pay for the same quantity and quality of work under private contract. [In 1878, By act of Congress on August 14, 1876, Mr. Defrees in his annual report printed 200,000 copies of the Commissioner comparative tables of the two printing of Agriculture report were ordered to systems which refuted the above charges. be printed. By 1877, orders had risen 52 to 300,000, with 224,000 to the House, I will place your name on my book, and send 56,000 to the Senate, and 20,000 for the you such documents as you desire, when I can get them. Department of Agriculture. As demand The entire [Mexican] war correspondence is and popularity spread, the 1884 edition in course of printing, and will be the best elec- increased to 400,000 copies and in 1892, tioneering document, when completed. I will 500,000. The first Agriculture report was then send you a copy of it. issued in 1849 by the Commissioner of Patents as a part of his own annual report, Beautifully printed according to ty- and directed to be compiled by the Secre- pographic standards of the day and still tary of the Interior. Entitled “Part II, Ag- maintained in the modern Agriculture riculture,’’ the report had been published Yearbook, the 1875 report contained 536 by the Patent Office, for all Federal work text pages and 128 pages of cuts. No cuts in agriculture was centered in that bu- had been specified originally, and the reau because of the close affinity between Public Printer petitioned Congress for agriculture and scientific farming which financial relief, stating that the sum ap- was dependent on chemicals. propriated was considerably less than the These reports were the forerunners estimate. of the present-day Agriculture Yearbook In 1880, the Commissioner of Agricul- which began in 1894. Highly desirable to ture complained that— Members of Congress, they were distrib- The delay in getting the annual report * * * be- uted without charge and public demand fore Congress for distribution to the people * * * was heavy. The “bestseller’’ of the day is something that can and should be remedied. received selective distribution, for Con- The report of 1879 * * * is not yet out of the GPO, and will not be in the hands of the farmers gressmen could please voters with book until the spring of 1881 * * *. If the department favors and thus the report was excellent was intrusted with its own printing it could be political ammunition during election done in a reasonable time, and with no more ex- campaigns. pense than is now incurred in the GPO, which appears to be so overburdened with Congres- In 1873, Geo. Alfred Townsend, in sional and other work * * *. The edition of our Washington: Outside and Inside, wrote as annual report is usually 300,000 and while larger follows: than that of any annual book ever published, is not yet half large enough to meet the reasonable In 1873 it was said that “No enlightened and pressing demand. Government in this age can do without public documents,’’ but the whole system of distribut- Although the Public Printer was cor- ing them should be changed. There are, per- rect in his demands for fiscal responsibil- haps, 3,000-odd counties in the United States. Let Government content itself with presenting a ity on the part of Agriculture, the real copy of every public work to these, and let it sell issue involved the financing procedures the rest to the people at cost price. between Congress, the Treasury, and Of the agricultural report the extraordinary the department, for the Office could not number of 220,000 copies have been ordered for last year alone, at a cost of about $180,000, or grant credit without proper guarantees about 85 cents a copy. This cost is enough to pay from authorized sources. the President, Vice President, all the Cabinet Of- By 1918, however, Agriculture was ficers, the Speaker of the House, and two-thirds eminently satisfied with GPO work, for of the first-class foreign ministers. In these re- it noted that the “printing of the Year- ports are 450,000 pounds of paper, or 225 tons, enough to take 225 double-horse wagons to pull book * * * on a halftone perfecting press them. recently installed at the GPO has resulted in a considerable reduction in the cost of As an example of the demand for pub- production, with an improvement in the lic documents, Congressman Abraham appearance of the publication.’’ In 1921, Lincoln on May 25, 1848, wrote the fol- it was first placed on sale by the Super- lowing to a constituent: intendent of Documents for $1.25. Later 53 Agriculture Yearbooks in 1952 and 1954 office, or filled by a typefounder, since the art achieved such bookmaking excellence of printing was discovered. The long primer type in use in the Document Room alone will that they were chosen as one of the Fifty weigh about 50,000 pounds, the brevier type Books of the Year by the American Insti- about 35,000 pounds, and the nonpareil some- tute of Graphic Arts. thing over 25,000 pounds. Of course, to keep these enormous fonts in the best working or- der, almost daily requisitions are made upon the founder for “sorts.’’ 1877

Mr. Defrees, on his third appearance 1878 on the Federal printing scene but with the new title of “Public Printer,’’ took In annual report, Mr. Defrees indi- over the GPO on June 1, 1877. In the cated an awareness of Office equipment meantime, the salary of the new post needs. He said: had dropped to $3,600, compared to the $4,000 paid the Congressional Printer. Improvements in machinery for more rapid Two months before, GPO workers felt and economical manufacture of newspapers and the effects of the 1876 hearings which books are constantly being made, and those who do not use them work to great disadvantage. had charged that Office pay rates were Seeing no reason why the GPO should not 50 percent higher than in New York. avail itself of some of these improvements, two On March 4, Congress reduced the $24 large presses, on which to print the Congressional weekly wage of skilled workmen to 40 Record, and other work, * * * have been put into it. More work can be done on these presses than cents per hour, or $19.20 a week, and can be done on 12 Adams presses, and by the piece rates were cut from 60 cents per employment of one-third the number of em- 1,000 ems to 40 cents. ployees * * *. The following year, however, GPO Nine book-sewing machines have also been put in operation, by which books are sewed with printers petitioned Congress for restora- wire instead of thread, and at greatly reduced tion of the former scale, stating that fur- cost. loughs had reduced their average com- pensation to about $800 a year. Although Submitting a breakdown of bindery the committee was sympathetic, it noted costs, he showed that weekly operation that the same conditions prevailed in pri- of one machine cost $99, with equivalent vate establishments and insisted that the production by hand at a cost of $515.98, present rates were fair, for— for annual savings of $21,632. On the basis of economies produced by labor- the purchasing-power of money over every nec- saving machinery, the Printer made a essary of life has greatly increased, so that 50 cents today will buy more than 60 cents could “considerable reduction’’ in printing have bought at any time during or since the war charges. * * *. Outside Fire Escapes New Type Not part of a printing history but as In Kerr’s History of the GPO appeared a footnote to the times was the erection the following: of outside fire escapes at a cost of $2,244, “so that should a fire occur in defiance of An order was sent from the office to a New every possible precaution, they would af- York typefounder in July 1877 for 60,000 pounds of type. This amount was subsequently ford additional and ample means of es- increased about 15,000 pounds, making perhaps cape’’ (see also “1883, Fire Safeguards— the largest single order ever given by a printing and Bows and Arrows). 54 “Globe’’ Plates is done. There is not half room enough * * *.’’ Mr. Defrees continued to discuss This year Congress authorized $100,000 his space problems with the Architect for the purchase of 63,000 bound and un- of the Capitol, who was responsible for bound volumes of the Congressional Globe, the GPO building. Feeling the weight of 86,000 stereotype and composition plates, advancing years, for he was now 70, he a two-story brick structure in the rear sent the following note to the Architect of the Globe building on Pennsylvania on March 8: Avenue, and the copyright for the com- plete work. My Dear Sir: I am so stiff in the joints that I cannot climb your [Capitol] steps. Extending back to the 1st session of the You being a young, spry gentleman, would it 23d Congress which began December 2, be asking too much for you to come to the Print- 1833, the plates and volumes covered the ing Office on Monday morning, say 10 o’clock. Globe’s contribution to congressional his- tory. Mr. Defrees recommended the con- Congress authorized the enlargement struction of a fireproof vault for the plates, after the Architect of the Capitol testified but with only two complete sets of the that— printed volumes, the disposition of the re- the old portion of the structure [is] now so over- mainder was in the province of Congress. weighted that its condition is very dangerous, Thus the Rives estate disposed of the last imperiling the property stored there and the of its public printing assets. (See “1919’’ for lives of the persons employed in the building. final disposition of Globe plates.) In many cases the joists have sagged at least 2 inches from a straight line. Heavy trucks and weights are constantly being moved over the Transportation floors, causing considerable vibration; and the motion of the machinery has also the same ef- The Public Printer listed the purchase fect. * * * If a break should come * * * the prob- of one bay horse at $175; one black mare, abilities are that the whole of the old portion of the building would come down like a house of $150; one pair mules, $260; the hire of one cards. Notwithstanding its insecure condition, mule at 75 cents a day for 17 days at a cost large numbers of persons are engaged on every of $12.75; and pasturage of one horse for floor, there being as many as 600 or 700 persons 4 months, $4. Also a bill of $6.50 for vet- * * *. erinary services and medicine. This year Mr. Defrees spent $105 for “erecting telephone line from the Capitol 1879 to the GPO.’’

With a congressional authorization of 1880 $43,800, this year saw the erection of two extensions of the original Office, one to the west and one to the south. As work vol- Public printing expenditures for the ume grew, so did the GPO, but even with year totaled $2,034,750, slightly under the additions the plant was crowded, the record production of 1865, when for it had produced almost 19 million $2,227,099 was spent during the last war pamphlets and documents and over year. 247,000 blankbooks. Mr. Defrees complained that “the Congress Authorizes War Records enormous increase of public printing and binding is such as to require the enlarge- In 1874 Congress had authorized the ment of the building in which the work publication of The War of the Rebellion: 55 a Compilation of the Official Records of the residences and not any places of business in its Union and Confederate Armies. The War immediate vicinity. The square lying directly north of the office * * * was occupied by but Records Office began work on the his- a single residence. Now there are not less than tory, and on December 1, 1880, first copy 150 brick houses on this one square—the aver- reached the GPO and composition be- age value of which cannot be less than $3,000. gan immediately. Mr. Defrees estimated On all that property lying north of H street to that the series would make 96 volumes of K, and extending east to First Street northeast, there were, 20 years ago, less than a dozen resi- 10,050 copies each, aggregating 964,800 dences; but within the past 10 years more than volumes. 100 houses have been erected, and are occupied by clerks, professional and business people, and “Globe” Volumes employees of the office. The property lying south and southeast of the office has also been vastly improved, and hundreds of new houses Of the many incomplete Globe vol- erected. H street both east and west of the of- umes purchased in 1878, the Public fice is assuming metropolitan airs, in a business Printer estimated that $185,000 would be way, and is capable of furnishing man or beast with all the necessaries of life, and many of the required to produce 1,000 complete sets. luxuries. He “respectfully called’’ the attention of Congress to the number of odd vol- The Office area of the 1880’s was also umes which either could be completed or described in Adventures of a Tramp Printer, should be sold “at public auction to the by John Edward Hicks, who quoted an highest bidder as waste paper.’’ itinerant printer who had visited Wash- ington:

The glory that had been Swampoodle’s 1881 was flown; its most noted thoroughfare, Cab- bage Alley, had vanished; and the Tiber, the stream that once overflowed the early Irish of On January 31, 1882, the Committee Swampoodle, was controlled. The once tur- bulent section had become a quiet residential on Printing submitted a report involv- district where the clock on St. Aloysius toned ing payment for 49 hours of lost time out the time of day in chiming the quarters, the suffered by GPO employees during “the halves and the hours. * * * The GPO was con- illness and obsequies of the late President sidered so far out from town that printers em- ployed there seldom met the newspaper print- Garfield.’’ ers from downtown. A committee of employees petitioned Congress for relief, which was granted Office Workrooms after the First Comptroller of the Treasury, in “an elaborate opinion,’’ Kerr’s History also described the GPO ruled that the employees were “entitled typesetting rooms and the proofroom to the payment of such wages as might (then termed the “Brainery’’), in addition have been earned during the period of to other workrooms. The following of- suspension.’’ fers an intimate glimpse into the equip- ment and work practices of 80 years ago GPO Area in 1881 as contrasted to the modern-day GPO.

In Kerr’s History of the GPO is a de- Document Room scription of the GPO neighborhood of The second floor of the main building, in- 1881: cluding the addition of 1865, is known as the Document Room. From 250 to 300 compositors The surroundings of the office have under- can be accommodated here, in addition to floor- gone a great change in the past 20 years. When hands, makers-up, and laborers. the establishment came into the possession of The amount of composition performed in the Government in 1861, there were very few the Document Room in the course of a year is 56 simply enormous; the regular monthly average Proof Room is about 35 million ems, printer’s measurement, To the proof-reader more than to any other giving a yearly total of 420 million ems, which, single individual is the author of a work in- if paid for by the piece, would amount to over debted for the good or bad appreciation of his $200,000 for composition alone in the Document production. He is unbiased and unprejudiced, Room. There are now in constant use 202 double and reads the book with an eye only to its per- stands, 2,400 pairs of cases, 30 imposing-stones, fection. If he is competent and worthy of his more than 200,000 pounds of type, besides about calling, he is as unsparing in his silent criti- 150 fonts of type used for title-pages and head- cisms as he is nimble with his pencil. He does ings, 400 chases of all sizes, 6 proofpresses, in- not stop to criticise it for its statements of facts 1 cluding three 2 /2 by 6 feet, and one Washington or fancy—although his constant reading may press, 24 by 38, and about 20 cabinets for extra often enable him to correct the former and type and cases. ornament the latter—but only for the beauty and symmetry of the language used, and for its Piece Department correct orthography and grammar. The class On the same floor is the Piece Department. of matter passing through a large establish- Employed are some 60 to 80 compositors, en- ment like the GPO necessarily embraces trea- gaged principally upon work for the Supreme tises upon all the known sciences, and involves Court, the Court of Claims, etc. Some of the a knowledge * * * of all the modern and dead more expert compositors in the Piece Depart- languages. It is not an uncommon occurrence ment earn from $75 to $100 per month. Their for the proof-readers in the office to correct constant employment, however, is much more the quotations of authors in the ancient and uncertain than that of their more favored breth- modern languages, and yet * * * not one in the ren in other portions of the office. The Court whole corps has ever had the advantage of a work is always required at the earliest possible collegiate or classical education. The French, moment, and when the money is exhausted, the the German, and the Latin tongues are clev- force is relegated to private life, and sometimes erly handled by several of the workmen in this enforced idleness lasts for two and three the Proof Room, and all their information on months in the year. these subjects has been acquired while serv- ing at the printing business. “Influence,’’ as the Specification Room term is understood in Washington, cannot be permitted to exercise its wonted avoirdupois in In the [Patent] Specification Room about 70 the Proof Room, where men must be selected or 80 of the most rapid typesetters in the office solely for their fitness. are employed during the greater part of the year. The Proof Room is on the second floor, com- The compositors employed in this room are municating directly with the Document Room paid for their labor by the piece—which, by the and Foreman’s Office. In it are employed from way, I believe to be the only correct system of 10 to 12 proof-readers who read by copy, 6 to 8 discharging obligations for the composition of silent or second readers, 2 preparers of copy, 3 type—and, as a result, there is less jar and dis- revisers, a copy-holder to each of the first read- satisfaction among these compositors than in any ers, and 1 messenger, all under the supervision other single branch of the establishment. The of a chief, himself a proof-reader. Almost every material in this room consists of about 10,000 kind of work excepting the Congressional Record, pounds of long primer type, 3,000 pounds of the blank work, and the weekly issue of patents, nonpareil, and 10 or 12 fonts of types for title- is read in this room. pages, headings, etc., about 100 pairs of cases, 11 imposing-stones, and the usual complement of Press Room other auxiliaries that are comprised in the fur- nishing of a complete printing office. The machine that has contributed most to the world’s material progress is the printing “Record” Composing Room press. No other machine can compare with it in contributing to the enlightenment of mankind. The Congressional Record Room is located on From the rude and simple press upon which the fourth floor of the south wing of the new Dr. Franklin learned his trade, to the marvel- extension * * *. The number of hands employed ous printing presses of the present day, the best is 1 Foreman, 1 Assistant Foreman, 7 proof- talent and most consummate mechanical skill readers, 3 copy-holders, 2 makers-up, 3 floor- have been diligently employed in bringing the hands, 1 messenger, 3 laborers, and about 60 printing machine to its highest perfection. Sev- to 80 compositors. This force, of course, varies eral years ago it was believed that the very acme somewhat during the sessions of Congress, and, of rapidity and completeness had been attained; with the exception of the Foreman and one but later still, more rapid and more complete laborer, is dismissed at the close of the session. printing presses were brought out and placed 57 in operation. Without entering into a history 1860 1880 of the progress of printing presses, we may Persons employed (male and female) 46 551 take for comparison the capacities of the Hoe Ruling machines in operation...... 2 21 Presses of different eras. The single-cylinder Cutting machines ruining...... 2 10 Hoe Press of 1843 printed 1,200 papers, on one Standing presses in use...... 4 36 side, per hour; the double-cylinder Hoe Press of Board cutters...... 1 5 1853 printed 2,500 to 3,000 papers, on one side, Wire sewing machines...... — 13 per hour; the four-cylinder Hoe Press of 1858 Numbering and paging machines..... — 17 printed 8,000 to 10,000 papers, one one side, Perforating machines...... — 3 per hour; the eight-cylinder Hoe Press of 1863 Stamping presses...... — 5 Smashing machine...... — 1 printed 16,000 to 22,000 papers, on one side, per Sewing machines...... — 2 hour; the Hoe Double-Web Perfecting Press Cloth cutting machine...... — 1 prints, cuts, pastes, and folds 30,000 papers, on Knife grinding machine...... — 1 both sides, per hour! Backing machines...... — 7 * * * The clank and clatter of 60 ponderous Plows and presses...... — 53 machines, with the whirr and buzz of running ______wheels, and the hurrying to and fro of an army Total machines 9 175 of workmen and workwomen, give to the Press Room an air of bustle and business which is not perceptible in the other departments of the office. * * * Here every style of press is seen: from the 1882 small Allen Press, upon which are printed the en- velopes used by the President of the United States in sending messages to disappointed office-seek- On April 15, Sterling P. Rounds of ers, to the huge Bullock Press, the triumph of Illinois was appointed Public Printer by mechanism as applied to printing presses, capa- President Arthur to succeed John D. De- ble of producing 240 impressions every minute. 1 The Bullock Press runs about 9 months in the frees. The latter had served 12 /2 years in year, and completes about 500,000 volumes. All three separate tours of duty under Presi- publications of 20,000 or over are printed on this dents Lincoln, Johnson, Grant, Hayes, press. * * * and Arthur. Under the old or contract system, the work in the Press Room was all done by men and boys; Electricity Arrives but for the past 15 or 20 years women have taken the place of boys altogether, and they are found to be much more attentive to their work, and After the purchase of electric clocks give greater satisfaction, and endure the labor in 1872, “electric’’ reappeared this year with less complaint. when disbursements included “Electrical If the printing continues to increase in the plant, consisting of two dynamos, lamps, same ratio for the next 20 as it has in the past and all other necessary fixtures and labor, 20 years, it will require a room with double the $3,839.69.’’ capacity of the present one to do the press-work for Uncle Sam. On April 5, 1884, Mr. Rounds sent the following to the Architect of the Capitol: Bindery If you will call at this Office this P.M. you will The Bindery is located on the third story of confer a favor on me, as we are about to put in the GPO building, and occupies the entire floor, a Boiler and Engine to run the Electric Lights, including the east and west wings * * *. and I would like to have you confer with Mr. The employees, 240 of whom are females, are Lincoln our Chief Engineer. divided as follows: forwarders, 140; finishers, 59; rulers, 21; sewers, feeders, and laborers, 297. [In In his 1884 report, Mr. Rounds stated: 1860, the Bindery had 46 employees, but by 1880 the force had grown to 551. The following table The Edison system of electric light, which was from Kerr’s History offers comparative employ- introduced in the Record room [by Mr. Defrees], ment and equipment statistics, in addition to the has been extended to the press and document meager Bindery equipment which performed rooms, with very gratifying results. The light public binding in 1860. In that year the GPO produced is cheaper than gas, far superior in all plant was regarded as the finest in the country.] respects, and is much preferred by the employees. 58 ment workers, Mr. Rounds was forced 1883 to change appointment procedures. The GPO had always operated under the spoils system, with political affilia- Mr. Rounds’ 1882 annual report con- tion the controlling factor. This custom tained little information of Office activi- 1 authorized each foreman to hire or dis- ties, for he had served but 2 /2 months charge at will, and no employee records of the fiscal year. However, his report were kept, except for his position on the of 1883 indicated sweeping reforms in Office procedure and work methods. payroll. Displaying great vigor, he proceeded By instituting reforms in the selection to revitalize the Office. This year the and appointment of employees, he confi- salary of Public Printer had been in- dently believed that— creased from $3,600 to $4,500. shorter hours of service, and better pay than prevails in outside offices, * * * has resulted in making the force * * * of such skill and efficiency Reorganization as was never exceeded, if equaled, in any other printing establishment in the world. An Office survey showed that machin- ery in use consisted of “old and discarded Mr. Rounds also reported that— patterns and badly worn, which caused great delay and needless expense * * *.’’ I found a very heavy force of employees at work, and no vacancies in any positions. I also found His reorganization, “the magnitude of that the distribution of patronage and places which can scarcely be realized,’’ covered was not in accordance with equal justice to all many sections of the Office. Inaugurated States—since the District of Columbia, adjacent reforms included: and Eastern States were represented by a very Better procurement of lithographing much larger number than their proper quotas, while the Western and Southern States had far and engraving, which had aggregated less than the number to which they would be $274,000 the previous year. By requesting entitled on a fair division of the patronage. It advance estimates, he was able to reduce has been my aim to correct this [so] that the expenditures by nearly $100,000. States last named have now a better representa- Stricter inspection of paper shipments tion in the office than at any previous time. by the appointment of a paper expert. A change in the pay disbursing system Drying Room Abolished for over 2,100 workers by providing a suit- able room for the disbursing officer, fixing A casualty of the modernization pro- specific paydays, and paying off in groups gram was the ancient system of wetting of 25 each. The new system “works ad- and then drying paper before running on mirably, avoids all confusion, and there is presses. For many years the process had a great saving of time.’’ Under the former been abandoned in all first-class printing irregular system, with the Public Printer offices for the modern dry paper plan. limited to amounts of money to be with- Even in Benjamin Franklin’s time, pa- drawn from the Treasury, payroll funds per was moistened for running on hand- were exhausted early and workers turned presses. It was then hung up to dry on away until a later day. strings, and in cold weather the frozen paper would have to be thawed before Appointments the opposite side could be printed. The drying room employing 35 work- With the passage of the Civil Service ers was abolished, and the new system Act on January 16, and the blanketing in produced better quality printing, plus of about 10 percent of 132,800 Govern- yearly savings of about $25,000. 59 Piecework in Bindery 1883 was well advanced, but the GPO had “as high as twenty tons of long primer, Noting that discipline “in a great work- brevier, and nonpareil type; probably the shop like the GPO’’ was important, Mr. largest amount of ‘live matter’ ever kept Rounds declared that it had “neither place standing at one time in this or any other nor space for indolent employees or drones.’’ country.’’ Estimated cost was $835,461. An inspection of production or “day’’ tables When census work was completed, many caused the Public Printer to place 130 bind- thousands of work-hours were necessary ery sewers on a piecework basis, instead of to distribute and reclaim the type for fur- $11 per week. He stated that— ther use. worthy, industrious, and careful sewers can earn as much, * * * while those who were not return- Confidential Printing ing a quid pro quo with the needle very natu- rally fell back to their places in the rear. The GPO printed certain publications which were confidential until release. Al- Slow Presses though its “secret’’ classification did not concern national defense, the contents He also found “numerous old-fash- were secret so that no undue advantage ioned printing presses, nearly all of which would be derived by premature publica- have been almost constantly running day tion. Mr. Rounds felt that the Office had and night for a long series of years.’’ He been “unjustly criticized’’ when certain recommended their replacement with a papers were made public before official “new style, two-revolution, fast-cylinder release. He suggested that “rigid exami- press—42 by 56—costing about $2,500.’’ nation into the facts will show * * * un- With a sheet double the old press size due publicity occurred through no fault and twice as fast, the capacity of the new of this office.’’ In the following year, he presses would be four times as great. noted that—

“Congressional Record’’ GPO regulations * * * have been sufficient to protect the confidence reposed, and in no single instance has there been a complaint that confi- The Record department received a dential matter was given out from this office. careful and thorough reorganization, with new type and machinery, and im- Fire Safeguards—and Bows proved workflow methods. The result and Arrows achieved better regularity and prompt- ness of issue, improved typographical In spite of the erection of outside fire appearance and, with rare exceptions, in escapes in 1878, Mr. Rounds was still con- time for the morning mails. In addition, cerned over the safety of the all-wooden- he questioned— interior GPO building and instituted the propriety of printing in the Record speeches additional fire prevention measures. In which were never delivered before Congress the bindery, 500 female employees were [which] has at times been discussed in Congress organized into companies of 40 each, and by the press of the country. If it should be with a captain in charge, and a trial drill decided to stop this practice it would materially lessen the expense of this publication. [The prac- demonstrated that 600 bindery men and tice still prevails in 1961.] women could be cleared from the build- ing in 1 minute. Neighbors of the GPO 1880 Census Printing became familiar with the frequency of Office fire drills, and the spectacle of 500 Census work expanded as the country bindery women leaving the third floor grew. The 1880 census typesetting job in via fire escapes invited a large crowd of 60 more-than-curious citizens who were With the above fire safety measures, more interested in visual excitement than the Public Printer said that— in the serious business of fire safety. To frustrate prying eyes on drill days, the it therefore may be fairly stated that for the first time in the history of the office it is reasonably ladders were covered with canvas strips. safe from fire, and its employees from danger of Also installed were two canvas fire es- loss of life or limb caused by a stampede or want capes (chutes; also known as portable fire of sufficient egress. escapes) which extended from the upper floor to the ground. Mr. Rounds also informed the Archi- By the “kindly cooperation of [the] tect of the Capitol that “with the new fire Architect of the Capitol,’’ 3-inch wa- organization and with these added fa- ter mains, “which barely gave sufficient cilities, I believe this office will be as safe water for daily office use, and * * * in- from fire as it can well be made.’’ adequate for fire purposes,’’ were re- placed, so that the Office now had “more than double the former supply, and quite ample to render the new fire apparatus in 1884 every way efficient.’’ Mr. Rounds noted that hinges on all outside doors “have been changed so as The Public Printer advised Congress to open either way, and egress cannot that the installation of 14 “improved thereby be obstructed.’’ modern fast presses’’ had reduced print- Other safety devices were installed, ing charges for the next fiscal year by but to the present-day reader the one of $339,000. His report showed that new special interest was the use of bows and presses were printing 19,000 to 20,000 weighted arrows, by which lifelines were double-size sheets per day at the same shot or thrown through upper windows expense and running time as the old so that hooks and ropes could be attached badly worn presses were producing 5,000 as a means of escape. The GPO historian smaller sheets. Public printing expendi- can find no clue as to the identity of the tures for the year reached a new high of bow-and-arrow operator, but he may $2,994,050. have been an Indian printer.1 Of further interest are the following operating directions: 1 It also may be conjectured that the follow- ing from Reminiscenses in 1900 will provide some IN CASE OF FIRE BREAK THE GLASS information: TO GET THE KEY “Tom Hughes made his first appearance in 1. If the roof be not over 90 feet high, use a the GPO early in the seventies. He had been leaden-headed arrow with string attached to scout guide, and Indian fighter in the Far West the loop on the arrow. for many years, but with approaching age Take the inner end of the string from in- sought a less exciting and more peaceful life. side of the Ball. Lay the Ball on the ground so There were frequent Indian delegaions to see as to deliver the string easily. Endeavor to shoot the arrow to fall on roof the ‘Great Father,’ and Tom nearly always called as nearly as possible directly over the window on the Indians at their hotel, knowing more or with which communication is to be estab- less of them and being able to talk with them lished. in their own language, of whatever tribe they If the window is low, shoot the arrow into may have been members. About 1886, not long the room through the window. before Tom’s death, ‘Buffalo Bills’s Wild West’ 2. If the height is too great to be reached by a trailing line, use the light arrow having a light show came to town, and Colonel Cody invited line wrapped about its point. This line should him to ride on the ‘Deadwood stage’ in the street be 150 ft. long. parade, an invitation which was accepted* * * .” 61 Cholera-Carrying Paper 1885 The Public Printer suggested to Con- gress that contracting for paper supplies The Public Printer reported that since with the lowest bidder was not the best the adjournment of Congress— method, for bids had been submitted be- low the cost of production, resulting in I have purchased one of the latest improved inferior quality. His chief concern, how- fast web presses, calculated especially for print- ever, involved the use by contractors of ing the Record; [it] will print and fold the whole daily edition * * * within 1 hour. * * * This work imported rags for Office paper. Because was formerly printed on drum-cylinder presses, of the threat of a cholera plague in the with a capacity not exceeding 1,000 per hour. United States, the Treasury had placed an embargo on the importation of such Lithographing and Engraving rags from cholera-infested countries. He stated: As in the previous year, Mr. Rounds further lowered plate costs. In addition, If there is danger in the use of these rags at the [paper] mill, it would seem that the disease he urged tighter control over low-bidder would be communicated in bundles, packages, contract awards by the Joint Committee and paper * * * received at this office. In view on Printing, for “it is not as a rule for the of the expected approach of cholera, and in the best interests of the Government to award name of the 2,300 people under my charge, * * * this class of work to those who may sub- I respectfully submit that this is a proper ques- tion for Congress. mit the lowest bid.’’ His experience in the past showed many cases of delays and in- Thus the 1880’s presented in- ferior work from plants with insufficient dustrial hazards unknown today. capability, and emphasized that “a poor engraving is worse than none.’’ Civil Service Tight Printing Money Mr. Rounds hoped that new Civil Ser- vice Commission regulations concern- Congressional sessions of the period ing Office appointments would relieve consisted of short and long sessions, and him “from the heavy tax on his time’’ so printing appropriations were scaled ac- that he could devote his efforts to “more cording to length of congressional ac- important practical operations of the of- tivity. The House had reduced printing fice.’’ He added that— appropriations by $500,000 for the on- coming long session, compared to the the GPO is * * * a workshop—a manufac- previous long sitting. In an unusual plea tory—the standard required of its employees to the Senate Appropriations Commit- should only be that of skill and efficiency, and tee to override the House cut, the Public as in all successful private establishments of the kind, employees, * * * falling below the average, Printer stated: should give place to others better qualified. * * * * * * If less is appropriated for the long ses- sion, in my judgment a deficiency will be neces- The selection of foremen and assist- sary. There is plenty of work to be done. ant foremen was based on “true merit, practical workmanship, and a thorough He further stated that— knowledge of the duties * * *,” and these officers, “generally without political in- the better way would be for Congress to place a check upon its orders for printing (if there is a fluence, have by faithful and devoted desire to reduce the expense of printing), rather service contributed largely to [GPO] suc- than to make the orders and then neglect to pro- cess.’’ vide sufficient funds * * *. The Public Printer 62 cannot be expected to keep a force day and night as a matter of right and justice to GPO employ- to deliver the large quantity for printing for ees, who have ever been faithful, day and night, Congress * * * and the daily Record with an ex- * * * that they too can be favored with a leave of penditure no larger than is necessary when Con- absence. * * * A more faithful and devoted class gress is not in session and none of these require- of employees cannot be found in any department ments are made upon him. * * *.

Hiring of Personnel In 1884, he renewed his plea, stating that “15 days’ annual leave will be more Mr. Rounds complained about the satisfactory.’’ pressures exerted on him for Office posi- A further recommendation for equity tions. President Cleveland was obsessed was made in 1885, but in 1886 the battle by the same problems, for he wrote to a was won. Effective July 1, the GPO was friend: “I have fallen into the habit, lately, granted 15 days’ annual leave. According of wrestling with this cursed office-filling to the Washington Evening Star of July even in my dreams.’’ 2, “Public Printer Rounds yesterday is- This year there were 2,255 employees sued an address to GPO employees con- —about 800 females and 1,500 males. gratulating them upon the success of the Included were 200 laborers and certain movement to obtain for the employed 15 bindery workers, but the main force con- days’ leave annually with pay.’’ Later, on sisted of— July 6, the Star said that the Public Printer had reported “to resolutions thanking those who have served a regular apprenticeship him, [and] the kindly feelings and sen- * * * in their respective trades. * * * Their tenure should not depend upon Congressional or other timents expressed * * * are fully recip- influence, and as long as they render faithful rocated.’’ Thus through the advocacy service they should be protected by law. Their of Mr. Rounds, Office workers received usefulness must be impaired if they are con- their first leave with pay. stantly disturbed * * * [and] they are subject to furlough or discharge without cause. * * * The Public Printer [should be] able to withstand the New Public Printer constant pressure for position. Within 2 months, however, Mr. Washington Monument Rounds resigned as Public Printer and was succeeded on September 13 by On February 17, President Arthur or- Thomas E. Benedict of New York. The dered the several executive departments Star announced that “Mr. Benedict took and the GPO “be closed on February 21 over today, and was sworn in by Judge to enable the employees to participate in Lawrenson who had sworn in all Public the ceremonies attending the dedication Printers.’’ The Star also noted that— of the Washington Monument.’’ the foremen of printing, binding, paper ware- house, stable, etc., were called in and presented to the new chief. Mr. Benedict, after greeting each one individually, addressed them collec- 1886 tively. He announced that each was continued in his present position for the time being, or until he should further communicate with them * * *. In 1883, Mr. Rounds had recommended to Congress that his employees be placed In his annual report to Congress, Mr. on equal leave footing with other depart- Benedict stated that the leave won for ments. He asked that workers be given the GPO by Mr. Rounds was “a just and some annual leave, in contrast to the 30- beneficent measure,’’ and urged the day annual leave enjoyed by Government adoption of a similar appropriation as a whole. He submitted that— for the next fiscal year. In addition, he 63 recommended semimonthly paydays, so immediate effect on the printing of that that his employees could— period was electric, but the far-reaching implications were not immediately grasped escape from habits of credit-buying which are highly detrimental to proper thrift and economy. by the graphic arts industry. The employees of the GPO are many of them The development of the Linotype was the hardest-worked and poorest-paid servants of best described by Mergenthaler in his the Government, and they are fully entitled to own words: the consideration of Congress. The history of our enterprise is one of evolu- Although he “found the office well tion. We started by printing one letter at a time equipped in many respects, and its and justifying the sentences afterward; then we vast machinery generally in intelligent impressed into papier-mache one letter at a time, justified it, and made a type from it by after pro- hands,’’ he followed the tradition estab- cess. Next, we impressed a whole line and justi- lished by his predecessors by stating that fied it, still leaving the production of type as a many improvements were necessary and second operation; but now we compose a line, a “much greater economy is possible.’’ justify, and cast it all in one machine and by one His recommendations included a re- operation. quest for greater storage space and a new In 1866, the idea which eventually de- set of boilers. The boilers were 14 years veloped into the Linotype was conceived old and had been installed with the Of- by a group of reporters, including two fice one-third its present size. House and Senate reporters. The group * * * they are now entirely deficient in capacity; sought to avoid the tedious work of tran- and their continued use * * * is believed danger- scribing shorthand notes into longhand, ous to life and property. During the recent cold then waiting for the slow process of hand weather it was impossible to furnish heat in cer- tain divisions (a serious and costly defect), and composition by printers. By equipping the office is dangerously liable * * * by an ac- the early typewriters with a typeface cident to the boilers. which would be printed on transfer paper and then transferred to a stone by a litho- He also pledged his administration— graphic process, the Congressional Record to execute the necessary work as efficiently as could be printed. The project failed, but possible, * * * check any tendency to extrava- in 1876 it was revived with the help of a gance in the public printing and binding, must Baltimore manufacturing expert, who meet with resolute denial the constant temp- recommended a cousin, Ottmar Mergen- tations to exceed his powers, and must seek to make use of the best modern facilities and meth- thaler. In 1883, after much trial and error, ods in conducting [GPO] business. the first machine was produced. On July 3, 1886, the editorial page of Branch Office the New York Tribune was composed on the Linotype, and the entire issue of On September 17, the Washington July 6 demonstrated the practical suc- Evening Star announced that arrange- cess of the machine. Shortly afterward, ments had been made for the establish- Linotypes were installed by the Chicago ment of a GPO branch office in the base- News, Louisville Courier Journal, and ment of the State Department. “A small Washington Post. It can be seen that the cylinder press will be used and the office machine was offered first to newspapers, will be under the GPO.’’ for they had financed the Mergenthaler Printing Co. In 1904, 18 years later, an New Typesetting Machine improved version of the machine was in- stalled in the GPO. This year saw the perfection of the Although the Linotype was a success, Linotype by Ottmar Mergenthaler. Its other inventors continued the search for 64 a better typesetting machine. Among fection of mechanical resources * * * for which it these was the Paige Co., which became is designed. [The GPO] should represent, in its personnel, machinery, and material, the highest bankrupt in 1894. Also a loser was Mark development of skill and the latest and most effi- Twain, who had invested $2,000 in the cient appliances of mechanical invention. Noth- company, and later increased his hold- ing less will suffice for the most rapid and eco- ings to $190,000, a staggering amount in nomical production of the public printing, and those days. nothing less * * * will meet the demands of an instructed public sentiment for the best attain- By 1904, 1,520 patents for composing able service * * *. In view of the constant growth machines had been granted by the Patent of the country, and the continued enlargement of Office. the business and necessities of the Government, As the Linotype spelled doom to the due both to the natural growth of the Depart- ments and the creation by Congress of new bu- hand typesetting method, 1886 also saw reaus, commissions, etc., the enlargement and the end of the old-fashioned nomencla- better equipment of this office is now an absolute ture of type sizes. Brevier, minion, small and pressing necessity. pica, etc., gave way to the point system, based on the division of the pica into 12 equal parts. Adopted by American Accent on Plate Printing typefounders, it was accepted 12 years later by English typefounders. Thus the He instituted immediate reforms, the traditional colonial type names became first of which was the greater use of elec- obsolete. trotypes instead of letterpress [printing directly from type]. Mr. Benedict stated:

Political Activity The first step demanded to insure better fa- cilities for meeting the accumulated and current work of the office seemed to be to adopt the best President Cleveland on July 14 di- and most modern methods of electrotyping, rected a circular “To the heads of de- and to put a complete stop to letter-press work. To partments in the service of the general that end, as far as possible within the space at government,’’ warning them and their my disposal, I not only increased the facilities of the Foundry, but practically renewed the plant subordinates against using “their official for electrotype work, so that it was soon capable positions in attempts to control political of electrotyping or stereotyping all the type set in activities in their localities.’’ He said: the Document divisions, in addition to the blank forms of the Job Division. The relief afforded Officeholders are neither disfranchised nor for- both the Composing and the Press rooms were bidden the exercise of political privileges; but immediate, and the results during the year past their privileges are not enlarged, nor is their have exceeded my most sanguine expectations, duty to party increased to pernicious activity by and I am satisfied this measure has contributed officeholding. more largely toward securing the increased out- put of the office than any other improvement adopted. 1887 Other changes included new presses, discarding “slow and worn-out’’ presses, and the introduction of laborsaving ma- In his second annual report, Pub- chinery throughout the workrooms. lic Printer Benedict, with more time to The Bindery, however, “was found in study the GPO in action, stated: many respects the best equipped division * * *, having a vast stock of machinery While this office is undoubtedly the largest of and being capable of executing any class its kind in the world, and is unique in its char- acter and purposes, in its growth and work, the of work * * *.’’ intellectual and business development of the Na- In addition, three Document proof- tion, yet it falls far short of embodying that per- rooms were merged under one respon- 65 sible head in a single well-arranged Additional Electric Lighting room, with an ample library and under prescribed rules as to style. He also “en- The Public Printer recommended the deavored to lessen the cost of proofread- extension of— ing and correcting by putting a limitation to the demands of Departments and au- the electric-light plant to all parts of the work- ing divisions, * * * [for] the use of gas is very thors in the matter of wholesale revision expensive, and the heat arising from its use day or proof-editing.’’ [From 1887 to 1961, and night in the crowded and illy-ventilated di- the problem of authors’ alterations has visions should no longer be permitted for rea- continued to affect printing costs.] sons of humanity, if the economic reasons are not considered of sufficient importance. Through consolidation, improved workflow measures, and general over- Demand for Increased Wages haul of every division, he maintained that efficiency was at its best level “in 1 Mr. Benedict acknowledged that Of- the history of the office.’’ Output of $2 /2 fice craft workers were petitioning Con- million reached a new high, with ac- gress for a wage increase. In his annual tual cost $262,000 less than the previous report he noted that the— year in spite of increase in work and the “payment of a gratuity [annual leave] of rates of wages as fixed by law are now insuffi- $95,000 to employees for the first time in cient. Believing * * * that just compensation is history.’’ necessary to faithful service, I am prepared to fully indorse any such claim based upon recog- nized merit or upon evidence that the Govern- ment rates are now below those prevailing in Leaves of Absence private printing offices.

With the first giant step taken by the In addition to increased wages, Mr. statute of 1886 granting 15 days’ annual Benedict supported the effort toward leave to GPO employees, Mr. Benedict providing premium pay for nightwork made a fresh assault toward the 30 days by stating: enjoyed by other Government workers. He pointed out that— It is just and proper that Congress should make some provision for extra pay for night labor. The rule allowing such extra pay is now universal in [GPO] employees certainly render as necessary the printing trade. Much night work is required and faithful service, are the equals of any class of to be done during the sessions of Congress, and public servants in intelligence, and are entitled those assigned to such work at the same pay for by their surroundings to the equal consideration day work justly feel that they suffer hardship. of the Government. Printing Apprentices Opposed Personal Printing Eliminated For the first time in any GPO annual As a part of the new deal in Office ad- report, the word “apprentice’’ appeared ministration, the Public Printer discon- this year. Traditionally, the apprentice tinued all private and illegal work in the was a necessary manpower element even office. in the early publick printing shops. From There had gradually arisen a practice of do- the ranks of apprentices had come the ing work for officers of the Government and journeymen, and many printers, par- private individuals not authorized by law, and ticularly Benjamin Franklin, had made this practice had grown to such an extent that it important contributions to the rise of the not only embarrassed the execution of the public work but made serious inroads on [printing and Nation. If the Office had any apprentice binding] appropriations. No such work is now system, various Public Printers seemed to executed in the office. be mute on the subject until 1887, when 66 Mr. Benedict stated: about his frame; and he is expected to keep the premises occupied by him neat and clean. To The number of apprentices September 13, 1886, this end I make frequent inspection, and at time was 71. This number has since been diminished when least expected—often, in fact, before 8 and the number now * * * is 35. I am led to a.m. doubt both the expediency and legal authority of the appointment of apprentices to do the work The Proof-Room Division reported of Government printing, and no such appoint- that— ments have been made by me. The rates that have been paid for such labor * * * are absurdly If a good proportion of the compositors are em- large in comparison with the compensation for ployed upon tabular work the proof room has the same class of labor in private printing offices no difficulty in keeping abreast of them; but if, * * * [and] are larger than the same persons can as frequently happens, almost the entire force of earn at full piece rates in the composing divi- compositors is employed upon solid matter, the sions. If it is desirable to employ apprentices in greater amount of reading required throws the [GPO] work, Congress should define their legal proof room behind and embarrasses the office in status and designate their compensation. My various ways. * * * own judgment is that the Government should The work of the office emanates from so many employ only skilled labor, and that it is not different sources and covers such a wide range of beneficial to any class of mechanics to learn their subjects, that it is impossible to hope for an en- trades in the public service. [The Printing Act of tire uniformity of style. Some progress toward 1895 authorized the employment of 25 appren- uniformity has been recently made, however, by tices, but no apprentices were officially hired issuing * * * such rules as have been found ap- until 1922.] plicable to the general work of the office. These rules can probably be amplified * * * in the near Apprentices in Washington private future. [This was probably the first GPO Style plants received $3 a week for the first Manual (See “1933, Revision of Style Manual.’’).] year, and a $1 increase every 6 months thereafter. At that time they served 4 The Foreman of Binding listed needs years, making about $10 weekly the last for new equipment, but complained of year. other matters. There was a critical short- age of workspace, and he noted that cer- Division Annual Reports tain changes would “reduce the crowded condition of the sewing room * * * and This year the Public Printer’s annual [give] the sewing women a better chance report included the first individual re- for health.’’ He also recommended “that ports of division heads. This innovation the wheels of the trucks used in the bind- permitted them to submit an accounting ery be bound with rubber, so that they of their activities, and also to air their dif- will not destroy the flooring so rapidly, ficulties. Offering some insight into the and also add to the quiet of the office.’’ schooling of apprentices is the follow- ing from the Assistant Foreman, Third Building Investigated Document Division:

Apprentices, of whom I now have 18, * * * can- Necessary fire prevention measures not be expected to perform as much work, nor introduced in 1883 in the 30-year-old yet do it so well, as more skilled workmen, al- building appeared to be insufficient in though * * * I am proud of their progress in the the eyes of the city. An investigation by “art preservative’’ [due] to the fact that very soon after my taking charge of the room I distributed a grand jury of the Supreme Court of the them among the journeymen. This has tended District of Columbia recommended fur- to inspire them to better deeds and better work. ther safety measures. Its report stated: They are boys, however, and stand in the way of thorough discipline. To fire-proof this building would be to virtually The same foreman painted this picture of reconstruct it, but certainly provisions should be good housekeeping in his section: made to protect the lives of the persons engaged No compositor is permitted to have dead type in it. 67 Certain corrective measures were taken, who were practical printers, was di- but a later report stated: rected to investigate the GPO. There were charges of printing delays and ir- The precautions taken to guard against fire we regularities in making appointments and find to be much improved of late, [but] we must strongly condemn the building being used in the dismissals, particularly the discharge of manner it now is; as, stored with heavy printing ex-soldiers and sailors and their widows presses, type, material, etc., the building is sub- and orphans, who in that period received jected to far too heavy a strain. * * * We think veterans’ preference. that the building is neither of sufficient size nor properly adapted for the purposes for which it The committee offered the following is used. findings:

(1) The management of the GPO is thoroughly Standard Type Recommended honest and efficient. * * * It is today turning out more work and better work than has ever been Although the Linotype was in use by done before in its history * * * and compares fa- newspapers, the Office continued to set vorably with the best of private printing offices. type by hand, and type purchased from (2) There has been no unusual delay in fur- nishing necessary documents and the committee many typefounders presented problems. found none worthy of notice. The Foreman of Printing reported to the (3) The law has been duly observed in mak- Public Printer as follows: ing appointments and dismissals from office. The large discharges of September–October I would respectfully call attention to a very 1886 were made irrespective of party politics and grave evil which has grown up to the purchase were necessary. While it is natural that politics of type, and suggest that there could be no bet- will always enter somewhat into appointments, ter time to correct it than the present. There is in the office is simply a workshop and it should the office now type from at least a dozen different be freed from political influences. It also found foundries. It is a well-known fact that while the that there were more than double the number of [type] bodies of the different foundries are ap- veterans and dependents employed in the GPO proximately the same, yet no two of them will ac- than under the previous administration. curately justify together, and their mixture causes much annoyance, waste of time, and many acci- dents. No amount of care can keep them separate Work Output in an office as large as this, and consequently more or less trouble constantly arises from this source. The Public Printer reported the great- It is an evil with no compensating benefits in the way of competition in price or superior material, est volume of work in Office history. and should, I think, be corrected. Statistics showed increases over 1885 of 24 percent in department work; and 58 Pay Raise percent in printed pages and 84 percent in work for Congress, which represented The daily average pay for the piece- the largest amount of work ever deliv- work compositors in the Specification ered for a similar period. Room [Patents] increased from $3.80 in July 1886 to $4.16 in November 1887, and Space Shortage and Weather Note the quality of the work improved with the increased earnings, according to the Mr. Benedict also called the attention annual report of Mr. Benedict. of Congress to the lack of proper space in workrooms and for paper storage. For the Office, as a whole, the space shortage affected the health and comfort of the 1888 employees. In addition, he stated that—

In some of the divisions artificial lighting is re- In 1888, the Joint Committee on Print- quired daily, and this, in summer, renders the ing, aided by two additional members heat intolerable, and the eye-sight and general 68 health of many employees suffer in consequence. plained of old presses and type, but his The near proximity of the office stables and first concern was the dangerous condition those of adjoining property-owners, as well as the filthy condition of adjacent alleys and rows of the GPO building. He reported that— of tenements, add to the general unhealthiness of the office, due to the malarious neighborhood The present structure is wholly inadequate in which it is built, and calls * * * for the erec- * * *. It is ill-lighted, ill-ventilated, and so far tion of a new and capacious building in another short in dimensions of the requirements of pub- and more convenient locality for the purpose of lic service, that much of the work is done at a the public printing. [Some 17 years later in 1903, disadvantage. For instance: there is room for a new building was erected to the south of the the storage of only a few days’ supply of paper old building, but the GPO remained in the same for the press-room and bindery. An unusual locality.] catastrophe [flood] like that which recently be- fell Johnstown, Pa., or a recurrence of a storm such as swept the Atlantic coast in March 1888 The inadequacy of the paper ware- * * *, would in all probability cause a stoppage house was also acute. He noted that— of work * * *. its condition is especially worthy of attention. To avoid the danger of collapse, three This division suffers seriously for want of proper space, and the service of the office is embarrassed rows of posts about 10 feet apart were * * * by the inability to carry a stock of paper installed as additional support for the sufficient to meet the large and hurried demands length of the workrooms in the three frequently made. At the time of the great bliz- lower stories. Fire prevention measures zard [of 1888], in March last, with its attendant interruption of transportation, the office nearly were also inadequate, for— came to a stand-still through the exhaustion of with all these precautions the building is liable at the meager supply of paper * * *. all times of the day and night to destruction by fire. * * * Thus the only durable remedy would Increased Annual Leave be the construction * * * of a fireproof building on a new site * * *. The move to provide GPO workers with annual leave was begun in 1883, and in 1886, 15 days’ leave had been granted by Congress. Although other 1890 departments received 30 days, the 15 days was gratefully accepted. This year Mr. Palmer reported that “in response the Office achieved the 30-day leave sta- to urgent appeals by some of my prede- tus long enjoyed by Government. Not- 1 cessors and myself,’’ Congress in August withstanding an 8 /3-percent increase in authorized $250,000 for the acquisition of the work force required to compensate ground by purchase or condemnation of for the additional annual leave, and a a proposed site running south to F Street more rigid enforcement of the 8-hour and Massachusetts Avenue. law, the present force was 10 percent With this promising start, Mr. Palmer lower than the force inherited by Mr. then recommended an appropriation by Benedict in 1886. Congress for the erection of a fireproof structure “in the interest of economy, of security to Government property, and 1889 of humanity.’’ He added that “the new structure should be commenced at the earliest possible day and prosecuted to fi- On May 7, Frank W. Palmer of Illinois nal completion with the utmost vigilance became Public Printer. He was to serve and dispatch.’’ two separate terms, totaling about 13 A commission consisting of the Secre- years. As had his predecessors, he com- tary of the Treasury, the Public Printer, 69 and the Architect of the Capitol was di- New Type and Presses rected to report to the Senate. Invitations to landowners were advertised, and the The Public Printer’s previous request commission devoted much time in ex- for $100,000 to replace wornout type and ploring all aspects, including soil quality, presses was approved by Congress and of the proposed site and on December 10 leading typefounders and press manu- submitted a report. The Joint Commit- facturers were invited to submit sealed tee on Printing on February 26, 1891, proposals. Of interest to veteran printers approved the report and recommended may be the names of companies awarded that Congress appropriate the authorized contracts: Barnhart Bros. & Spindler of funds. Chicago and George Bruce’s Son & Co. However, the next day—February of New York, low bidders for new type; 27—the following amendment to the Walter Scott & Co. and C. Potter, Jr. & appropriation bill was adopted by Con- Co. of Plainfield, and Farmer, Little & gress: Co. and Montague & Fuller of New York, Provided, That the appropriation * * * press equipment. In an additional appro- approved August 13, 1890, to provide priation, new presses were supplied by accommodations for the GPO, * * * be hereby Miehle Printing Press & Manufacturing suspended. Co., Chicago; Cranston Printing Press Co., Norwich, Conn.; and A. D. Farmer Rebellion Records Printing & Son, New York.

In 1880, the GPO began printing the Office Continues to Grow Official Records of the Rebellion. Ten years later, 31 of the authorized 96 volumes Both the country and GPO con- had been completed, and work on this tinued to grow. Congress spent monumental job was continuing. $1,345,972, and the executive and judicial branches spent $1,396,135, for a New Presses total of $2,742,107 for public printing and binding. For administering this The Office now boasted 88 print- large amount, the Public Printer re- ing presses, mostly cylinder. Nine new ceived a $4,500 salary. presses were purchased, and Mr. Palmer requested $100,000 for additional presses to replace wornout presses. 1892 1891 After rejecting the new building pro- The Office was invited by the War De- posal on February 27, 1891, Congress re- partment to take over several small print- vived the measure on March 9, 1892. It ing establishments. A printshop was sup- again authorized the Joint Committee plied by the War Department and thus on Printing to ascertain a site for a new the GPO acquired another branch office. GPO. On December 12 of the same year, The Adjutant-General, in his annual re- the committee suggested a site which port, stated that the change “proved en- encompassed K and L Streets NE., and tirely successful, evidenced * * * by the First Street and Delaware Avenue, the expeditious manner’’ in which this work area now covered by tracks leading to was produced. Union Station. 70 New Typesetting Method thereby drawn to the condition of the GPO building, I respectfully request you to make, at once, a thorough inspection of all portions of this In 1892, the Lanston Monotype machine building, so that whatever additional safeguards was placed on the market. The new machine for the protection of the lives of employees may produced lines of type with single characters, be deemed necessary, may be promptly provided. as compared to the line of type in one slug of the Linotype. The machine in later years was No action was taken. the instrument by which the GPO produced “acres’’ of tabular and technical composition. Acts Printed From Type [In 1961, the greatest battery of Monotypes in the world is found in the GPO.] From the beginning of the Nation, all acts of Congress had been scribed by Effect of Linotype on Wages hand. On December 12, Public Law No. 1, of the 53d Congress, 2d session, was When the Linotype machine was in- the first act printed from type. Known as troduced in Washington in 1892, the the enrolled bill format, its authorization newspaper scale proposal requested a also permitted acts to be “hand scribed in 6-hour shift for daywork. any emergency, especially during the last The publishers countered with a pro- 6 days of a session, when demands on the posal for a 7-hour shift, with a weekly compositors run exceedingly heavy.’’ wage scale of $21 for daywork and $23.62 for nightwork. This rate remained in ef- fect for 10 years, or until 1902. 1894

With political fortunes restored, 1893 Thomas E. Benedict supplanted Mr. Palmer and returned as Public Printer on The inherent dangers of the old build- May 3. ing were dramatically brought into sharp relief when Ford’s Theatre on 10th Street Large Layoffs collapsed on June 9, causing 28 deaths. Used as a record division of the War De- On May 14, he ordered large layoffs. partment, the building was similar to the The furloughing of workers was the rule GPO, and its employees expressed grave for many years before 1894, as Congress apprehension of a similar disaster to alternated in short and long sessions. In a short-session year, congressional work themselves. In the meantime the Office would disappear and the volume of de- rented five buildings for storing printed partmental work could not fill the gap, matter, as the present buildings could not and therefore layoffs were imperative. support increased weight. Mr. Palmer Although layoffs were usually of mild noted that three of these buildings were degree, the 1894 episode was a sharp fire hazards, and the transfer of materials blow to the many who were left stranded from storage to the main building caused on the Washington scene. added labor, delay, and expense. On the theory that his predecessor may On June 13, Mr. Palmer alarmed by the have overstaffed the Office, Mr. Bene- Ford Theatre collapse, wrote to the Ar- dict quoted the law which stated that chitect of the Capitol: the “Public Printer shall not at any time In view of the great calamity which occurred employ * * * more hands than the abso- on Friday last * * * and the public attention lute necessities of the public work may 71 require.’’ As the New York Daily Tribune fully to Congress the serious aspect * * * would noted in its May 21 issue: be a serious, if not criminal, neglect of duty. In addition, he suggested that the new Reducing Printing Office Expenses; Mr. printing bill which was being considered Benedict Serves Notice of Discharge on by Congress, if it became law, would Large Number of Employees An unknown number of GPO employees, es- create “conditions which will add largely timated to be about 700, have received copies of to the work * * * and make necessary a the following notice from Mr. Benedict: very large addition to its present working “Being satisfied that the best interests of the and storage space.’’ In somewhat milder public service and the efficient performance of the work of the GPO necessitates a reduction in language, he suggested that Congress the number of employees, it becomes my duty to would have acted long before— direct the foreman of printing to inform you that your services would not be required after the day but for conflicting opinions regarding the best of this notice. Cashier will settle any balance of location and facilities. Any contention as to wages due you at the earliest possible moment the future location of the Office should not be convenient with the duties of his desk.’’ allowed to affect action for immediate relief, * * * [but] the need of an annex building is press- The Tribune added: ing and vital.

Ever since Mr. Benedict resumed charge of the Office, reports have been current that he intended to reduce the force, but the notices yesterday 1895 came with no less a shock. * * * More removals are looked for this week, as it is said that Mr. Benedict’s intention is to restore the force to The one-note theme of the pressing need something near the total number employed when he left it 5 years ago, which was 2,200. for a new building continued in the annual At the close of [Public Printer] Palmer’s term of report for 1895. The need was constant service the number on the rolls was 3,600. and each Public Printer had expressed impatience with makeshift expedients of No Progress on New Building adding floors to present buildings and the erection of tiny annexes which formed a This year saw no action by Congress on colony of small workshops which did not either an addition or a new building. The alleviate or solve the overall space prob- Chief Engineer of the U.S. Army had sub- lem. Mr. Benedict stated that— mitted a report to the Joint Committee on All past attempts at relief have been mere make- Printing confirming the need for increased shifts; there is no true solution of the difficulty workspace. He estimated safety-insuring in any other plan that has been suggested, for measures in the old building could be the reason that no other plan provided space for installed for about $41,000, but the build- continuing work while rebuilding was going on. ing would not be perfectly safe without The new building should be equipped to meet all the demands of the public service promptly tearing it down and reconstructing it. He and economically, and enable the Government also noted that— to exhibit to the printing and binding trades of this country the practical workings of the high- near the smokestacks, in a high wind, additional est achievements in these trades, both in finished vibration is transmitted to the walls, and when product and in methods pursued to secure the printing presses are running, continual vibra- most desirable results. tions in the walls can be distinctly felt. Increased Printing Demands Mr. Benedict made an impassioned plea for congressional action, for the— Compounding the shortage-of-work- time has arrived for taking up the work of recon- space problem, printing demands were structing this office, and a failure * * * to report accelerated by the new printing act passed 72 January 12. (See “New Printing Act,’’ p. plant capacity was 1,400 16-candlepower 74.) The act created an increased demand lamps, which was inadequate to properly for Government publications because of light one-third of the Office and the re- the free distribution to the people of a mainder was poorly lighted by gas. Ac- price catalog which would be sold by the cordingly, a new electric plant was in- newly created Documents Division. stalled. Mr. Benedict also compared the work In 1896 the entire Office was lighted volume of his former term as Public by electricity. With this new power, it Printer in 1887 in contrast to the current was found that the introduction of mo- year. He showed that in 1887, a long- tors presented a safety problem, for many session congressional year, the Office had machines were operated by women who used 2,718 tons of paper and had printed were wholly without experience in han- 286,491 pamphlets; in 1895, a short- dling such apparatus. By installing au- session year, 4,757 tons of paper and tomatic circuit breakers on each motor, 1,182,955 pamphlets, for an increase of 69 workers were protected against careless- and 500 percent, respectively. In the fol- ness and ignorance. lowing year, paper use increased to 5,457 tons, or 101 percent over 1887. Office in Classified Service

A movement begun by a large major- New Plate Vault ity of employees for the extension of civil A much-needed plate vault with 3 service to the trades in the GPO was suc- miles of shelving was constructed be- cessful when the President on August 1 neath the North Capitol Street wing. placed the Office in the classified service. Known as the GPO Rules, the Office was divided into 10 classes, or grades, and Paper Contracts specified that—

Mr. Benedict recommended to Con- any male citizen of the United States not under gress that paper contracts should re- 21 or over 45 years of age and any female citizen ceive closer control for low bidders had not under 18 or over 35 years of age may be ex- attempted to supply inferior paper to amined for positions in the GPO. save themselves from financial loss. In- However, on August 22, President spection of such paper supplies forced Cleveland amended the Rules by remov- the rejection of thousands of reams of ing “or over 45’’ and “or over 35,’’ thus below-standard paper. Nine cases were eliminating the age ceiling. appealed, but the GPO was supported in By this move, the employees hoped each case by an arbitrator. Mr. Benedict to protect their positions. Mr. Benedict added: questioned such protection by stating * * * it is not for the best interests of the Govern- that “I regret to say that civil service ment to award paper contracts on the basis of the rules cannot remove the cause for large lowest bids, unless the bidders are known to be reductions in force after each short reliable manufacturers or control plants of suf- congressional session.’’ ficient capacity to produce promptly the quantity and quality required * * * to make it possible for books to be preserved for posterity. In addition, he stated that “in view of the oft-repeated remark that this Office New Powerplant had fallen under the ‘baneful influence of the spoilsman,’’’ he printed a table show- Electric power was first used in the ing the number of years worked by em- GPO in 1882. As of 1895, the power- ployees: 73 25 to 35 years and over...... 125 large amount of tabular and “fat’’ copy set at 20 to 24 years and over ...... 202 piece rates prevented a fair distribution of earn- 15 to 19 years and over ...... 324 ings among employees of equal skill and worth 10 to 14 years and over ...... 617 and caused constant trouble * * * because of the 5 to 9 years and over ...... 1,230 anxiety of men to work in the piece divisions. 4 years and over ...... 1,372 * * * The typographical divisions are now 3 years and over ...... 1,538 working with the utmost harmony and zeal, 2 years and over ...... 2,094 and marked improvement is evident in the gen- 1 year and over ...... 2,545 eral work * * *.

Piece System Abolished Office Force Increase

This year saw the abandonment of the The creation of a Documents Division traditional piece system of typesetting. and the transfer of departmental printing Mr. Benedict stated that it was done— plants to the charge of the Public Printer caused an increase in the force. The With a view to securing greater economy, a change from the piece system of com- higher standard of typographical excellence, position to timework also caused a con- greater harmony, a more equitable distribu- tion of wages, and the steady employment of siderable increase of compositors. With the maximum number of compositors. Under the foregoing increases, employees now the part piece and part time system * * *, the numbered 2,677.

New Printing Act On January 12, Congress passed a com- the organic printing act, outlining the prehensive act codifying the public print- duties and functions of the GPO. Its ing laws. The greater part related to size primary achievement was the creation of editions and the distribution of publi- of a Public Documents Division, under cations. a Superintendent of Documents, but it The two main features were: (1) the also contained some loopholes which centralization of printing, and (2) estab- permitted the continuation of certain dis- lishment of the office of the Superin- tribution practices. As the infant division tendent of Documents. It also fixed the grew older and gained experience, later compensation of printers, pressmen, and amendments to the act placed Govern- bookbinders, and set up the working or- ment book selling on a businesslike basis. ganization of the Office. The New York Daily Tribune of Decem- For the first time, the apprentice sys- ber 6, 1894, commented on the new act, tem was officially recognized, but in per- as follows: formance the following provision was While it will not accomplish all that the not effected until 1922, when an appren- friends and advocates of reform in the present tice school was set up. system and methods have been striving for at each successive Congress for many years, the The Public Printer may employ such number new law will be a long step in the right direction. of apprentices, not to exceed 25 at any one time, Under its operation the cost of the public print- as in his judgment will be consistent with the ing and binding will be materially reduced and economical service of the office. a system established which will result not only in a more intelligent distribution of Government publications, but in placing copies of all of them The Printing Act of 1895 attempted in depositories throughout the country where to limit the overgenerous distribution they will be convenient of access to persons who of Government publications. It became may desire to consult them. The bill also pro- 74 vides for the distribution among public libraries partments, hundreds of boxes from the and other depositories of the vast accumulation House and Senate document rooms, and of old documents—numbering nearly 1 million volumes—which now occupy valuable space in over 21,000 publications in the GPO. the Capitol and elsewhere in Washington, and The machinery of distribution to 420 de- against further accumulations of the same sort. pository libraries designated by Congress It also provides for a monthly catalogue of cur- was perfected, and the enormous task of rent publications, giving the price for each and cataloging all Government publications the place where it can be obtained, and for an index of the publications ordered at each session from 1789 was begun. The next year the of Congress. Division received almost 487,000 publi- cations, and depository libraries had in- * * * * * creased to 1,321. It is estimated that a yearly saving of several hundred thousand dollars will result * * *, and it appears certain that many abuses which now Functions prevail will be destroyed or greatly curtailed in extent. 1. To sell at cost any public document in its charge, the distribution of which is not specifi- cally directed by law. Documents Division 2. To receive from any Government office any document published for sale, which sale must be The act imposed new duties, including made under the provisions of section 61. the appointment of a Superintendent of 3. To have general supervision of the distribu- Documents, on the Public Printer. The tion of all public documents (with exceptions as enumerated). act directed the Superintendent to— 4. To prepare and print at the close of each Congress a Comprehensive Index (Document receive and care for all surplus documents in the Catalog) of public documents. possession of Government offices; assort and cat- 5. To prepare and print at the close of each alog them; supervise their distribution and sale; regular session of Congress a Consolidated In- catalog and index monthly and annually all doc- dex (Document Index) of congressional docu- uments published; in fine, to render accessible to ments. librarian and the public generally the vast store 6. To index such single volumes of documents of Government publications. as the Joint Committee on Printing shall direct. 7. To receive all accumulations of documents Mr. Benedict found it necessary to se- from the several executive departments, bureaus, cure a Superintendent of Documents and offices of the Government, and annually to possessing— take over their surplus for distribution or sale. 8. To prepare and publish a Monthly Catalog superior practical ability and literary attain- of Government publications, which shall show ments. After much reflection, I appointed [on the publications printed during a month, where March 26] Mr. F. A. Crandall, of Buffalo, N.Y., obtainable, and the price thereof. * * * whose recommendations * * * were of the 9. To thoroughly investigate the condition of highest, and who possessed an additional qualifi- the designated [library] depositories. cation that he would have nothing to unlearn in 10. To distribute the documents as issued to order to carry out the evident intention of Con- the designated depositories. gress * * *. Depository Libraries The new division was set up in leased quarters on the sixth floor of the Union The task of the Superintendent of Building on G Street NW. near Seventh. Documents was further increased by And once again, the Public Printer la- the maintenance of mailing lists and the mented, “space was too limited to hold all shipment of Government publications the documents committed to my charge to depository libraries. Under the print- by law.’’ ing laws, Senators, Representatives, The new Superintendent then began and Delegates selected libraries within the giant task of taking over 134,000 their districts. There were three classes publications accumulated by the de- of libraries: Designated, geological, and 75 remainder, each with its own mailing American people, have almost invariably origi- list, and the Division devoted all its en- nated with the printing committees of Congress ergies to satisfy these libraries. Free dis- or with patriotic members of the two bodies. tribution by 1902 totaled over 500,000 As an example, he stated that in 1882— publications. The first Superintendent and his successors were appalled by the Senator Anthony, chairman of the Joint Com- waste inherent in this distribution, and mittee on Printing, interrupted a tariff debate to later annual reports voiced their objec- offer a resolution which * * * was “important to the salvation of human life.’’ The resolution re- tions. lated to the overloaded floors of the GPO. The Superintendent was dismayed by the “bewildering congeries of volumes, This early recognition of the inherent numbers, and parts * * * of Congressional dangers of the old GPO building was not documents.’’ Because of the perpetuation remedied until 1896, but Mr. Benedict of improper terms describing Govern- was proud “to state that the office is in ment publications, his task in classifying first-class condition,’’ and that his efforts publications was made extremely diffi- toward a more efficient and safer GPO cult. For example, a congressional pub- had been crowned with success. lication would be entitled: “Part 2 of part Almost with a sense of elation, he enu- 2 of volume 4 of part 5 of No. 1 of part 2, merated plant improvements of the past volume 14, of the House Executive Doc- and present fiscal year: uments of the 51st Congress, 2d session.’’ He stated: Full completion of additions to working space. Of course the present system was not devised by Completion of new seven-story west wing anybody. There was never anybody who could and other floors. have devised it. Like Topsy, it “jist growed.’’ Erection of new boiler house and boilers, ma- chine shop, and storage sheds. New heating plant, toilet rooms, and ventila- He further noted that— tion and filtration systems, in addition to pro- viding better light and improved facilities for One might as well try to commit to memory the cleanliness and for promoting the comfort and lettering on a Chinese tea chest as charge one’s convenience of employees. mind with such a rigmarole.

The Superintendent reported that first year’s Filled with a sense of accomplish- sales amounted to about 3,000 documents for ment, he nevertheless added that “it is $1,000. not intended to convey the impression * * * that the improvements affect in any way the argument in favor of providing a new GPO at as early a date as possible.’’ 1896 Renewing the appeal for a new building in view of the inevitable growth of public Mr. Benedict acknowledged with printing, he stated that— “great pleasure * * * the aid of Congress when built, the office should be one of the at- in the carrying out of many reforms and tractions of the capital city, and it should possess improvements advocated by my prede- the highest economic, mechanical, and scientific cessors and myself for many years.’’ He achievements in the arts of printing and binding added: of the present day. Its lines should be laid upon plans broad and comprehensive enough to meet The office owes its creation to Congress. The not only the demands of the near future, but the initial plans to expand it to the constantly grow- necessities of the coming century. ing needs of the Government, and to make it worthy, in mechanical appliances and progressive [The Public Printer’s prophecy was methods, of the character and intelligence of the fulfilled in 1903, when his dream became 76 reality with the completion of a new build- by some in authority as equal to any demand for ing on North Capitol and G Streets NW. illustration of documents. No doubt the various photographic processes But his vision of the “coming century’’ of zinc etching have produced remarkable re- did not encompass the vast 1961 GPO sults in cheap popular newspaper and magazine printing complex.] illustrating, but it is not always desirable for the Government to copy fads. The production of Authors’ Alterations new engraving houses are peculiarly characteris- tic of the time; but they have burdened the GPO with rather too much responsibility for results In a circular to Government depart- that are a grievance to good printers everywhere. ments, Mr. Benedict reemphasized a de- termination to adhere to his authorization Civil Service from Congress that “the forms and style in which printing and binding * * * shall With the GPO under the classified be executed * * * shall be determined by civil service, the Public Printer stated the Public Printer * * *.’’ His target was that new appointees selected from the the— certified lists averaged as well as those selected heretofore at the will of the ap- wholesale editing of proof sheets—a privilege so dear to the hearts of many gentlemen engaged in pointing power. literary work * * * for the Government. What- ever fancied necessity may have existed in the Early Proofroom past for the furnishing of type proofs * * * for the encouragement of literary style or to give oppor- tunity for the insertion of belated ideas, it does An early historian has provided the not exist in this age of the typewriter. following description of the 1896 GPO proofroom: [It has been said that authors would dis- pense with most of their alterations if I will now take the reader back to the GPO proper, at North Capitol and H streets. We are they had to pay on the spot for making ushered immediately into the proof-reading de- them.] partment, on the ground floor. Here is the great- est aggregation of critics known to the “art pre- The Fad of Photoengraving servative,’’ and it well deserves the title of “the brainery.” Through the hands of the editors and readers passes every scrap of copy that is even- The newly developed art of photo- tually issued in book form by this mammoth engraving first made its appearance in printery. The copy is carefully examined, edited, 1881. Although in later years the process “style’’ is indicated, and then it is sent to the vari- achieved striking effects in illustration ous composing rooms, whence it returns, accom- panied by the proof sheets of the printer’s work, work, according to Mr. Benedict the pro- which are read, first by copy, then silently, and cess fell short of the proved advantages of sent to the printers for correction. With these woodcuts. In his report he acknowledged men is reposed authority as to the technicalities the “just criticism of the imperfect illus- of “style’’ on all Government work. Many of the trations [halftones] appearing not infre- readers are accomplished linguists, and to their varied linguistic acquirements some have added quently in Government publications.’’ Of the benefits of foreign travel. One of them car- interest to present-day [1961] printers is ries a commission from King Kalakaua as consul his following comment: from the Hawaiian Kingdom to Mexico; another over 30 years ago helped to establish the first In former days woodcuts were almost exclusively state printing office in Egypt, under the personal used for * * * text illustrations, and uniformly supervision of the Khedive, and not only reads good results were easily possible. The cheap and nearly all modern and dead languages, but is numerous methods of producing engravings a master of the hieroglyphics of the Pyramids. at the present time have caused something like Several of these gentlemen read proof in from artistic chaos in the GPO, and apparently the 7 to 10 languages, while others are experts in photo-engraving process, particularly the kind the unexcelled rule-and-figure-work so often known technically as “half-tone,’’ is considered seen and admired in Uncle Sam’s publications. 77 The office employs the International [Webster’s] great that there was no power reserve in Dictionary, as well as Worcester’s, the Stan- case of accident to the engines. Two gen- dard, and Century, the Century Cyclopedia of Names, Lippincott’s Gazetteer, together with a erators were purchased, one 300 kilowatt large library, embracing every obtainable book and one 125 kilowatt. The new power of reference. Another feature of importance is source eliminated all belting in work- the system by which the old-time copy holder is rooms, and provided “absolute freedom eliminated and, instead, two experienced proof of stoppages’’ which were the rule when readers work together, alternating proof from time to time, each alike responsible for the ac- a twisted belt around the shafting would curacy of the work done by the desk. shut down the entire Office. 1897 1898

On March 31, former Public Printer For the second time since its founding Palmer returned to the Office. Dispossessed immediately prior to the war in 1861, the by Mr. Benedict on May 2, 1894, favorable GPO was faced with war printing. On political winds blew Mr. Palmer back into February 15, the battleship Maine was office. Mr. Benedict and Mr. Palmer had blown up in Havana Harbor. The coun- in effect been playing Printer “musical try angrily demanded a declaration of chairs,’’ for each had served two separate war, but factfinding was necessary to de- terms, displacing each other in turn. termine the cause. After an investigation, war was declared on Spain on April 21, Pressure for New Building and the role of the GPO as war printer was described by Mrs. John A. Logan in a Mr. Palmer returned to find the new book entitled 30 Years in Washington. seven-story annex in operation. Expressing the view that its erection seemed to settle In the spring of 1898 great excitement fol- lowed the blowing up of the Maine in Havana the “long-disputed question whether or Harbor. Congress was impatient to declare war, not the office should remain on its pres- but was prevailed upon to await the report of ent site,’’ he returned to the subject of the naval court of inquiry and the message of his “greatest solicitude’’—a new GPO. the President accompanying it. On March 28, He recommended extension of the office these were ready for the printer, and on account of the peculiar conditions of the situation, it was south to G Street NW. In addition, he desired that Congress should have them the next noted that the Office was paying $18,560 day. At 3 p.m. of the 28th, the originals for 24 in rent for outlying buildings, particularly full-page illustrations and 1 lithograph in colors a warehouse east of the B. & O. railroad were sent to the GPO and the force was at once tracks. In transporting materials to and set to work to have these illustrations made. The manuscript arrived at 6 p.m. and was immedi- from the warehouse, he cited the neces- ately parceled out to hundreds of compositors, sity of teams crossing and recrossing the and when all in type it made 298 large pages—a tracks, “accompanied by delays and dan- good-sized book. ger from the frequent passage of railway Complete printed and illustrated copies bound in paper covers were laid on the desks of trains.’’ Senators and Representatives 2 hours [10 a.m.] before Congress assembled the next morning Electric Power [29th]. All through the night busy fingers were setting up the type, making up the pages and Within the year all presses were con- stereotyping them; fast presses were dropping the printed and folded sheets at every tick of the verted from belting to electric motive watch; other busy hands were gathering them power. It was noted that on cloudy or and pasting on the covers, while others were rainy days, the load on the engines was so sending complete books away in the mails. 78 Washington in 1800 when it became the seat of government and the scene of early Government printing. Georgetown buildings (left fore- ground). Three-arched stone bridge (left center) built in 1792 to carry the post road (K Street) across Rock Creek, and (to the right of bridge) Robert Peter’s house and tobacco shed. In the distance are to be seen houses along F Street (left) and along Maine Avenue to the riverfront. (Courtesy Library of Congress) First page of Annals of Congress begun in 1824 by Gales & Seaton. The Annals was the first attempt to preserve for posterity the proceedings and debates of Congress from 1789 to 1824. First issue of Register of Debates in Congress, December 6–8, 1824, printed by Gales & Seaton, containing congressional debate on manner of welcoming General Lafayette on his visit to the United States. The Congressional Globe, volume 1, No. 1, founded by Blair & Rives on December 7, 1833. The Globe reported congressional proceedings and debates until March 4, 1873, when it was succeeded by the Congressional Record. First GPO-produced Congressional Record, successor to The Congressional Globe. Washington about 1850. Bird’s-eye view showing Capitol with low dome and the built-up northwest section. The White House, Smithsonian Institution, and projected Washington Monument are prominent. Old Tiber Creek can be seen in center, and the future GPO area in lower right is mainly farmland. (Courtesy of Library of Congress) Original GPO building built by Cornelius Wendell in 1856. Became the first Government Printing Office on March 4, 1861. Composition Room.

WENDELL’S PRINTING OFFICE IN 1859.

Power Pressroom. Stiching Room.

Proprietor’s Sanctum. 1881 GPO and Workrooms. GPO Bullock press, 1867, the mechanical marvel of the day.

Congressional Record Composing Room. Electrotype and Stereotype Room.

Main Pressroom. Note overhead shafting which supplied motive power. A twisted belt or machine breakdown would halt all production. Binding Department.

Main Composing, or Document Room.

Fire safety in GPO by means of Indian bows and arrows, 1883. See page 61. GPO building about 1895.

1903 building. Main Proofroom, 1904.

Job Section Proofroom, 1904. Electrotype molding, 1912.

Electrotype finishing, 1912. Bindery, about 1900.

Job pressroom and pressfeeders, 1910. GPO stable and delivery fleet, about 1900.

Electric trucks, 1911. Carpenter Shop staff and product, 1912.

Electrical Shop, 1912. Bindery, 1912.

Hand Section, about 1912. Note Cooper-Hewitt gas lights, and derby wearer on left. Job Section imposing stones, 1914.

Paymaster’s office, 1914, with oldstyle large currency. Patents Linotype operator, 1914

Patents makeup and imposition, 1914. Bowling alleys with Public Printer Carter in right lane, 1922.

Harding Hall, 1922. Documents Division stockroom, 1922.

The old GPO building in 1935, 3 years before it gave way to present main building.

Bronze plaque in main building lobby.

The Government Printing Office in 1961. Battery of Linotype and Intertype machines.

The Proofroom. Dow etching machine–Photoengraving Section.

Electrotype finishing. High-speed Congressional Record web press. Also used for income tax forms and Federal Register.

Stereotyping. Offset Preparation Section.

Offset presses. Sewing machines–Book Edition Section.

Folding machines–Pamphlet Section. Postal card presses.

Sheet-fed cylinders–Main Press Section. Tests and Technical Control Division.

Central refrigeration and air conditioning machinery–Power Section. Finance and Accounts Division.

Electronic Data Processing Section. Documents Division bookstore–the GPO end result.

Documents book storage area. Personnel Division.

Medical Section. Division of Planning Service.

Division of Plant Planning. Purchasing Division.

Printing Procurement Section.

Commercial Planning Section. Harding Hall.

Cafeteria. Paper warehouse opposite GPO.

Freight cars delivering paper to warehouse third floor, which is level with Union Station railroad siding. Breakthrough on New Building During the past 40 years the documents have been printed in such large editions and distributed with such liberal prodigality as to The long years of campaigning for a cheapen them in the estimation of the people at new building came to an end when Con- large. They * * * were broadcast without regard gress, on July 1, appropriated $225,000 * * * to the wishes of the recipients, and as a for the purchase, by condemnation pro- consequence were not only not appreciated, but were regarded with contempt. [There were] ceedings, of land for an extension. instances * * * where retiring members of An appraisal board held hearings and Congress shipped out by the carload the docu- testimony was offered by owners and ments that had accumulated to their credit. tenants who were faced with the prospec- tive loss of their businesses. Mr. Palmer Beginning in 1897, the Superinten- then suggested that “in the interest of dent’s annual report included an item- economy and for the security of property ized statement of each sale, including and human life, the proposed extension many individual sales at 5 or 10 cents of the GPO to be commenced and com- each. Also listed were sales of the Con- pleted at the earliest possible day.’’ gressional Directory at 15 cents.

Documents Division Reorganized 1899 The Document Division of the GPO, begun in 1895, received its first reorgani- zation. Based on its infant experience, the In 1898, Congress had passed a bill for Division was organized into six sections: the construction of a fireproof building Bookkeeping and correspondence, Sales, “at a total cost, including approaches, el- Catalog, Library, Mail, and Stock. evators, lighting and heating apparatus, The Superintendent of Documents not exceeding $2 million.’’ made the first protest against the free In accordance with the provisions of distribution of Government publications. this appropriation, plans and specifica- His successors for many years pressed tions were prepared by the Engineer De- the issue, but no relief was effected until partment of the Army, and approved by Public Printer Palmer. The Chief of En- 1933, when Congress, under the stimulus gineers of the Army was assigned to take of economy, declared that all documents charge of the construction. should be sold. The problem had been re- In preparing the site for the new ex- viewed from time to time, but the 1895 act tension, it was necessary to demolish directed that the Superintendent of Docu- the temporary three-story brick ware- ments “shall have general supervision house fronting on Jackson Alley. Re- of the distribution of all documents.’’ At cords, public documents, and workshops the same time, however, the act granted were transferred to a fireproof annex on authority to departments to continue free H Street, and additional storage space distribution. The Superintendent advo- leased on L Street nearby. cated legislation to centralize distribution During excavation work beginning within his own division. He noted that— about July 10, 1899, Mr. Palmer stated For upwards of 60 years public documents that “conditions have been more favor- have been distributed free to both libraries and able than anticipated in relation to foun- individuals. The distribution * * * has broad- dation work; the soil is better, the amount ened from a few Congressional documents in of water is less, and the weather has been the beginning to include almost everything pub- lished. Bills for the public printing have grown better than there was reason to expect.’’ from about $46,000 in 1833 to nearly $2 million These favorable conditions reduced in 1897 * * *. foundation costs to $100,000, which was 79 below the estimated $150,000. However, Although compiled as a Government the Public Printer added— document, the Papers were copyrighted by Mr. Richardson. After initial distribu- The prices of building materials have risen in tion to Members of Congress, the transfer such an unprecedented and unlooked-for degree that, although a margin of nearly 10 percent was of printing rights to a publisher produced left in the original estimate, * * * it will be neces- a congressional investigation. Testimony sary to increase the limit of cost by another 10 indicated that a contract for “exclusive percent or else abandon some of the most impor- use of the plates for 10 years, with a roy- tant and necessary features of the building. alty of 75 cents per set for all sets sold,’’ had, up to 1900, produced $11,320 for the Miscellaneous Income compiler.

Listed as income this year were the following unrelated items: Sale of five old horses, $175.25; sale of four old wag- 1900 ons, $135.25; proceeds of waste gold leaf, $4,308.81; and six old elevators, $304.50. Forty GPO Years

Pay Increase A new century found the Office a busy and booming printshop. From its In March, Congress added the follow- experimental days in 1861 to the present, ing amendment to an appropriation bill: its expansion had matched the growth of the Nation. Its role in Government was Provided, That * * * the Public Printer may, during fiscal year 1900, in his discretion, pay all secure and the uneasiness of the early printers and bookbinders employed in GPO at years had been dispelled. It had grown the rate of 50 cents per hour for time actually into a “printing city,’’ and the huge new employed, beginning July 1, 1899. building would dwarf the small cluster of tiny workshops known as the GPO. It was estimated that the increase From a product of about $550,000, it would amount to $286,000. The increase now produced almost $5 million of placed the two crafts on the same level as printed products. The Office had ceased the pressmen, who had been awarded 50 to be an experiment and the temporary cents an hour, or $4 a day, in 1895. printing reform movement was on solid ground. Presidential Papers New Library of Congress Unit The Superintendent of Documents reported that the massive job of distrib- The new century witnessed another uting the compilation of the Messages acquisition to the Office printing do- and Papers of the Presidents, 1789–1897, main. On May 8, 1900, the Public Printer by Congressman James D. Richardson, received a letter from Herbert Putnam, had been accomplished. Published in 3 Librarian of Congress. The letter re- editions, aggregating 36,000 sets of 10 quested the establishment in the Library volumes each, the Superintendent stated of a printing and binding branch under that— the control of the Office. The Librarian stated that there were books which could Great credit is due the Post-Office Department be spared only for a short time; certain for the promptness and accuracy with which more than 300,000 volumes * * * have been de- valuable books required full binding and livered, not a single case of loss having been re- could not be removed from the building; ported that could not be traced. and that library binding required special 80 treatment not usually performed in main Rebellion Records Completed GPO. In addition, Mr. Putnam desired the convenience of Library catalog card In 1880, the GPO had begun the mon- printing within his own building. Con- umental task of printing the official story gress authorized the purchase of neces- of the War Between the States. Congress sary materials, and the branch was placed had considered the compilation in 1864, into active operation. and in 1874 provided funds for the work [The primary stated purpose for the entitled War of Rebellion, Compilation of branch was Library binding, and print- Official Records of Union and Confeder- ing was secondary. On May 1, 1960, how- ate Armies. Through the years this work ever, the binding unit was returned to the had progressed, and in 1900 the job was GPO, but a small force was retained for finished. Altogether there were 129 vol- rare book binding and for laminating old umes, an additional index volume, and manuscripts and maps. Printing continued 37 parts of an atlas to supplement the to be performed in the unit.] main body. The series served as source material for many historians of the war period, and represented the greatest sin- Further Pay Increases gle job in Office history. After the grant of 50 cents an hour to printers and binders in 1899, other classes of skilled mechanics petitioned Congress 1901 for a similar rate increase. Effective July 1, 1900, the following crafts received the increase: blacksmiths, carpenters, electri- On December 15, the Washington cians, electrotypers, leather parers, ma- Times, in an article entitled “World’s chinists, plumbers, saw grinders, steam Greatest Printing Office,’’ reported that fitters, and stereotypers. Painters were the new building had required 12,700,000 on a slightly lower level, their pay being pounds of structural steel. It also noted increased from $3.20 per day to $3.50 per that “the huge structure’’ had used be- day. Other pay increases affected female tween 11 and 12 million handmade red operatives, as follows: Directresses, from bricks. Statistically, the steel, converted $2.24 to $2.50 daily; gold workers, num- into rails, would lay a railway track 43 berers, press feeders, and sewers, $1.92 to miles long, the distance from Washing- $2; folders, $1.83 to $2. ton to Baltimore. The same steel could be used to build three gigantic bridges across the Potomac River at Washington, New Powerplant or could be used to construct “74 locomo- tives of the most powerful type.’’ Anticipating increased power demands when the new building was completed, New Stable—and the Public Printer awarded contracts for New Transportation two 800-horsepower, cross-compound, condensing engines, each provided with In 1900 Mr. Palmer had reported that a direct-connected, 600-kilowatt, elec- the stable on leased property on G Street, tric generator. These contained all the between North Capitol and First Streets latest improvements known to electri- East, cost $2,600 a year. With the GPO cal science. Also purchased were four subject to rental termination at the end of 300-horsepower, Scotch-type marine each year, he recommended construction boilers, with economizers and a specially of a fireproof stable to the west of the new constructed steam main. building in course of construction. 81 No action was taken, but in the current prepared * * * and the promptness with which year the Public Printer renewed his rec- those of your subordinates * * * returned proofs, ommendation with an added argument: conditions which have not existed in connection with the printing of the reports in any former To the foregoing reasons for the proposed ac- census. quisition of a site for a stable may be added this one, viz, that in the event that the use of electric Documents Division automobiles should prove more practicable than horses and wagons for transporting the products of the GPO, the supply of the necessary electric The Division continued its rapid currents for charging the automobiles could growth, handling the enormous number be furnished from the power plant of the new of 1,645,000 documents, including de- building. pository library distribution. The task of It seems that the horse-and-buggy age cataloging public documents was being was near its end. done by 11 catalogers. The Superinten- dent noted that this specialized field of cataloging was a most difficult problem. He hoped that “library schools will give 1902 the subject * * * more attention in the fu- ture, as there will always be a demand for The Army officer in charge of the new experts in that branch of the profession.’’ building construction had expressed a hope that the building would be com- Sheepbound Books pleted about September 1902. In a later report, he stated that “the great activity Another change affected the standards prevalent in all of the building trades has of bookbinding. Traditionally, sheepskin made it impossible to get the work done was regarded as the best material for on time.’’ Present prospects indicated covering fine books. Also traditionally, occupancy would be delayed “until the sheepbound books suffered the greatest spring or summer of 1903.’’ deterioration, and the Superintendent stated that “Very few librarians like the Census Printing sheep binding, even if it were equal * * * to cloth, which it is not.’’ The Twelfth Census of 1900 comprised Congress also approved a change to the 10 volumes and was completed this year. “best grade of cloth and for the assign- Congress in 1899 had allowed 2 years not ment of a distinctive color to the publica- only for the great task of enumeration tions of each department.’’ and tabulation but of publication as well. The Director of the Census advised the Bureau of Labor Plant Abolished Public Printer that—

the Twelfth Census has been published more This year the printshop in Labor was speedily after enumeration than any census since abolished, with department work re- that of 1840. The results * * * of that year were turned to GPO. all comprised in a volume of 840 pages; while those of 1900 required more than 10,000 pages, therefore it seems reasonable to say that the pres- Purchases ent census has been issued with greater speed than any other in the history of the Government. No action had been taken to supplant horses and wagons with electric automo- To which the Public Printer replied. biles, but the GPO purchased a Model * * * the speed attained * * * was due in large Rambler bicycle for $30, and repairs to degree to the perfection in which the copy was its fleet of delivery bicycles totaled $87.90. 82 folding division; the fourth floor by the bindery; 1903 the fifth and sixth floors by typographical and proof divisions; and the seventh floor by the di- visions devoted to job work, and electrotype and Mr. Palmer reported that the construc- stereotype foundry. tion of the new extension— The Public Printer further noted is so nearly completed that all portions of it are that— now occupied by operatives, machinery, and ma- terials. Commodious as the new structure is, it is A pneumatic-tube system for the rapid transmis- not large enough to accommodate all of the force sion of copy and proof to the various portions of of employees. the office has been installed, and is in successful operation. * * * It will be an important aid in Therefore three divisions—specifi- the economy of time at all hours of day or night, cations and branch binderies and the but especially in the execution of “rush’’ work, Documents Division—were moved from of which there is abundance during sessions of the Union Building on G Street to the Congress * * *. old GPO building at a rental saving of With descriptions of other modern fea- $17,000. tures, he cited the following convenience: The move of the Division from its 1895 birthplace was a huge operation. The Su- A novel and useful feature * * * is a plant for perintendent reported that— the supply of drinking water, without the ac- companiment of ice, to all the operatives, * * * To plan and execute the removal of nearly 1 mil- supplied from tanks of filtered water in the base- lion books and pamphlets, office furniture, etc., ment, and the temperature of the water reduced without interruption to the current work of the to a palatable degree by passage through an am- office was no light task. The work was accom- monia plant. plished * * *.

Once again the theme of “new build- Stable Moved ing’’ which had dominated Public Print- ers’ annual reports for many years was In 1900 and 1901, the Public Printer sounded again. It now became the new had recommended the erection of a new new building, and was to be reiterated stable to the west of the new building. for over 30 years. Mr. Palmer stated that Congress had taken no action, but the the increase of work was so great that— growth of Washington forced the Of- fice to find a new stable. The stable on it is manifest the inflammable portion of the old G Street East was on the site of a pro- building * * * should be replaced as soon as prac- posed new railway station [Union Sta- ticable by a seven-story fireproof structure to se- cure necessary room for the prompt execution of tion], and with the approval of the Joint requisitions and to protect property and human Committee on Printing, leased quarters life from fire. Until such time as Congress shall were taken on L Street, east of North authorize the proposed additional improvement, Capitol Street. the old building will be occupied by a portion of the working force of the office and for storage purposes. Office “Sick Room’’

To provide the present-day reader with A small room, located on the third a cross-section view of the new building floor of the old building, was set aside as layout, the following description was a “sick room.’’ Its equipment consisted printed in the annual report of 1903: of a cot, a blanket, and a small supply of medicines, all contributed by GPO em- The first floor * * * is occupied by the press and roller divisions; the second floor by a portion ployees. This room was the nucleus of the of the folding division and the supervising and first emergency “hospital’’ in a Govern- clerical force of the office; the third floor by the ment establishment. 83 In 1905 a former GPO employee re- In 1905 the Public Printer disbursed turned to the Office as Medical Director; $183,700 for the Linotypes and $90,152 and in 1907, an emergency room was in- for the Monotypes. stalled, with an additional physician and The introduction of typesetting ma- matron. chines was particularly timely, for Mr. Palmer reported “the number of requi- sitions for work in the GPO * * * was without a parallel in the history of the 1904 office,’’ and printing appropriations were over $7 million, a record high. Arrival of Machine Age New Presses The words “Linotype’’ and “Mono- type’’ finally made their appearance on The new building also required the GPO scene. Although in practical new presses, and the Office purchased operation in the United States since 1886, 34 presses at a cost of over $150,000. the delayed introduction of the Linotype Included were 3 special Potter web into the GPO was the result of several perfecting; one 2-roll rotary Hoe web factors. Perhaps the most important was perfecting, with duplicate set of gear the available supply of machines. News- wheels; 11 No. 3 Miehle; and five 2-roll papers had priority because they had single large cylinder Hoe. Also eight au- financed the machine’s experimental tomatic press feeders for $6,136. Other development. However, various Public divisions likewise were modernized, the Printers may have had reservations as to foundry acquiring five electric furnaces their practicality, for Mr. Palmer in his for $2,574, and the Bindery four Dexter annual report questioned “their economy folders, $11,700. or adaptability.’’ The following appeared in the 1904 annual report:

In June 1904, contracts were made by the 1905 Public Printer with the Mergenthaler Linotype Co. for the purchase of 46 double magazine typesetting machines, at a cost of $3,600 each, Beginning September 6, Public Printer and with the Lanston Monotype Co. for 28 type- Palmer became prominent in the news. setting machines, at a cost of $3,150 each. The Mr. Palmer had served two terms time for the delivery of these machines, in ac- cordance with the provisions of the contracts, totaling over 13 years as the sixth was 3 months, and for their trial by the GPO 60 Public Printer, and his total tenure was days. On the delivery of the Mergenthaler Lino- longer than any of his predecessors. That type machines, 7 of them were installed in the fact, combined with the heavy expendi- Job Division, 35 of them in the Congressional Record Division, and 4 in the branch of this of- tures for new typesetting machines and fice in the Congressional Library building. The resistance by the crafts to those machines purchase of a limited number of these machines in the belief that their jobs would be was made with the view of testing the practica- endangered, caused a bitter controversy. bility of their use in the publication of the widely A special committee was set up to study varying kinds of official documents issued by this office. At the date of publication of this re- the introduction of modern machines port, sufficient time has not elapsed to determine into the Office. On September 9, Presi- the questions of their economy or adaptability. It dent Roosevelt relieved Mr. Palmer. has been the policy of the office in the selection Oscar J. Ricketts, Foreman of Printing, was of operators for both classes of typesetting ma- chines to choose compositors already in service designated as Acting Public Printer. For here, and they have shown thus far commend- the permanent post, several candidates able skill in their work upon the machines. were mentioned, including William S. 84 Rossiter, Chief Clerk of the Census Bu- Printing Delay Investigation reau; H. T. Brian, GPO Chief Clerk; and John S. Leech, Public Printer of the Phil- The 59th Congress had begun business ippines, who became U.S. Public Printer on December 3, 1905, and adjourned on in 1908. However, Charles A. Stillings of June 30, 1906. The last day was charac- Massachusetts was appointed by Presi- terized by the usual last-minute scramble dent Roosevelt on November 28, 1905. of Congress to leave a sweltering Wash- Thus Mr. Stillings began his adminis- ington. Many bills had been passed, and tration on a quiet note. However, begin- President [Theodore] Roosevelt, accom- ning with 1906 until 1908, his term could panied by his Cabinet, traveled to the be regarded as one of the stormiest in Of- Capitol to sign into law engrossed bills as fice history. they were received from the Office. The events of June 30 can best be de- Revision of Printing Laws scribed by the published report in the New York Times of July 1—the day after. Congress recognized the need for new legislation to correct the growing abuses Congress Adjourns; Delay by Printers in the public printing, and set up the The 1st session of the 59th Congress came Printing Investigation Commission. to an end at 10 p.m., hours after it should have ended. * * * The incapacity of the GPO was re- Cost of Public Printing sponsible for keeping both branches in session at least 8 hours beyond the time originally set. * * * Bills passed were not properly enrolled, in ad- In 1905, William S. Rossiter, Chief dition to a $3 million appropriation blunder. Clerk of the Census Bureau and who in 1908 conducted an investigation of It seemed that the GPO had collapsed the GPO, wrote an article on Federal under the weight of congressional work, and State public printing for the Atlan- and the printing on parchment of new tic Monthly. He cited statistics showing bills awaiting Presidential signature was the growth of Federal printing. In 1880, hopelessly muddled. The Times con- printing volume was $2,034,750; 1890, tinued: $4,905,881; 1904, $7,080,906. As Govern- ment increased its services, he noted that The President was obliged to waste the best part of a day sitting around in the Capitol with individual States likewise expanded, for his Cabinet to sign bills. The Senate * * * was New York public printing in the same obliged to sit and swelter throughout the hottest period had increased 349 percent; and afternoon and night of the summer. Massachusetts, 220 percent. But for the States as a whole, average printing ex- During the wait for GPO printing, the penditures had increased 76 percent. Senate raked the Public Printer and the Office with charges of incompetency and the production of poor work for Con- gress. As a result of the charges—and the 1906 delays—the Committee on Printing was ordered to investigate the causes. On August 23, the investigating com- This year began quietly but before it mittee reported its findings, concluding had run its course, both Mr. Stillings and that— the GPO were the objects of a printing nothing had been developed in the course of this investigation and were also projected investigation which would justify a conclusion into the middle of an international con- that the present administration of the GPO is troversy over spelling reform. not distinctly creditable. 85 The Times in an editorial on August 24 step is, no less than in entire ignorance of the stated: very moderate and common-sense views as to the purposes to be achieved, which views are so excellently set forth in the circulars to which I Praise for Public Printer have referred. There is not the slightest inten- tion to do anything revolutionary or initiate any The Senate Committee has acquitted the far-reaching policy. Public Printer in connection with blunders that The purpose simply is for the Government, attended the closing of Congress. He was not instead of lagging behind popular sentiment, slow, but was “positively expeditious’’ in dealing to advance abreast of it and at the same time with the flood of laws. And his admirable work abreast of the views of the ablest and most prac- was performed with a smaller force than dealt tical educators of our time as well as of the most with less work in the preceding Congress. It is profound scholars—men of the stamp of Pro- a pleasing finding * * * [that] the Public Printer fessor Lounsbury and Professor Skeat. will rest undisturbed in possession of the bou- If the slight changes in the spelling of the 300 quet presented to him when everybody was ex- words proposed wholly or partially meet popu- pecting * * * a big stick. lar approval, then the changes will become per- manent without any reference to what public The committee further recommended officials or individual private citizens may feel; the inauguration of a time-record system if they do not ultimately meet with popular ap- proval they will be dropt [new style], and that is which would “preclude much irrespon- all there is about it. sible criticism.’’ It also suggested that the They represent nothing in the world but a four bicycle messengers who carried ma- very slight extension of the unconscious move- terial from the Capitol to the GPO, “the ment which has made agricultural implement makers and farmers write “plow’’ instead of distance being great,’’ should not be di- “plough’’; which has made most Americans verted by deliveries to executive depart- write “honor’’ without the somewhat absurd, ments. superfluous “u’’; and which is even now making people write “program’’ without the “me’’— just as all people who speak English now write Spelling Reform “bat,’’ “set,’’ “dim,’’ “sum,’’ and “fish,’’ instead of the Elizabethan “batte,’’ “sette,’’ “dimme,’’ However, the GPO was not permitted “summe’’ and “fysshe’’; which makes us write to rest, for on August 24 a bomb burst over “public,’’ “almanac,’’ “era,’’ “fantasy,’’ and “wagon,’’ instead of the “publick,’’ “almanack,’’ the Office, with the effects reverberating “aera,’’ “phantasy,’’ and “waggon’’ of our great- throughout the English-speaking world. grandfathers. With urging by the Spelling Reform It is not an attack on the language of Shake- Committee, financed by Andrew Carnegie speare and Milton, because it is in some instances headed by Prof. Brander Matthews and a going back to the forms they used, and in others merely the extension of changes which, composed of noted educators and schol- as regards other words, have taken place since ars, President Roosevelt directed that the their time. Public Printer adopt the committee’s 300 It is not an attempt to do anything far-reach- recommended words based on a simpli- ing or sudden or violent; or indeed anything very great at all. It is merely an attempt to cast fied pattern. His directive follows: what slight weight can properly be cast on the side of the popular forces which are endeavor- My Dear Mr. Stillings: I inclose here- ing to make our spelling a little less foolish and with copies of certain circulars of the Simpli- fantastic. fied Spelling Board, which can be obtained free from the board at No. 1 Madison Avenue, New York City. Please hereafter direct that in Prescribing tho for though, thru for all Government publications of the Executive through, thoro for thorough, etc., and 52 Departments the 300 words enumerated in cir- past participles, such as fixt for fixed, ex- cular shall be spelled as therein set forth. If any- prest for expressed, in addition to many one asks the reason for the action, refer him to other deviations from accepted spelling, Circulars 3, 4, and 6 as issued by the Simplified Spelling Board. the order became a national and interna- Most of the criticism of the proposed step is tional issue. Protagonist and antagonist evidently made in entire ignorance of what the forces formed battlelines, although those 86 opposed far outnumbered the reform adjournment of Congress on June 30, no advocates. Newspapers throughout the congressional reaction was recorded but, country printed newsstories, editorials, the Times noted, if Congress refused— the list of the offending 300 words, and “Letters to the Editor’’ departments were to accept the reform, it was bound to create a lot of confusion and bother in the Printing Office swamped. Day after day, the battle con- to have two systems of spelling in vogue. It will tinued unabated. The New York Times create considerable extra expense, for it will be on August 25 reported: certain to render necessary an extra force of proofreaders. No man can read one style one The President Adopts Simplified Spelling minute and the other style the next. When the bills for this extra work begin to Spelling Reformers Here Rejoice and come in and the Appropriations Committees Expect Cause Will Now Make Rapid begin to examine Mr. Stillings, the fun will Progress begin to be lively. The chairman of the House Committee, scrutinizing every red cent of the President Roosevelt has endorsed the Car- $900 million Congress will have to appropri- negie spelling reform movement. He issued ate, is going to find a most attractive field in the orders to Public Printer Stillings that hereafter doubled bills from the printery. all messages from the White House shall be printed in accordance with recommendations But throughout the United States, of the Spelling Reform Committee. * * * The Great Britain, and Canada the battle President’s official sanction * * * is regarded as the most effective and speediest method of continued. The New York State Com- inaugurating the new system throughout the missioner of Education declared that he country. * * * “didn’t believe in telling people how to spell,’’ and that his department would The Times noted that Mr. Stillings had not follow President Roosevelt. called for— From London came reports that the reform movement was greeted in “any- a meeting of all editors in the departments and those who have to do with the preparation of re- thing but a sympathetic spirit.’’ A paper ports and other documents * * *. [He] expects declared that “the President overrates his * * * to put it up to the makers of copy to have it powers,’’ and “declined to believe that correctly spelled, so that all his printers and proof- scholarly and cultivated Americans will readers will have to do will be to follow copy. There is now no uniformity in orthography sacrifice the history and meaning of the or style of capitalization and punctuation in language by adopting the ‘Carnegie jar- the work of the departments, and Mr. Stillings gon.’’’ hopes to have that matter taken up and settled as In the meantime, the man most con- well as the spelling reform. cerned, the Public Printer with his White House orders, announced, according to The New York World on August the Times, that “he had no doubt that 25 suggested that, under the proposed every department * * * will speedily system, a Thanksgiving proclamation adopt the recommendation * * * [and] would read as follows: appointed a Commission to revise the When nearly three centuries ago, the first set- Manual of Style of the big printery.’’ tlers kam to the kuntry which has bekom this Congress returned to work on Decem- grat republick, tha confronted not only hard- ber 3, and the overwhelming sentiment ship and privashun, but terible risk of their lives. * * * The kustum has bekum nashnul and against spelling reform was made evi- hallowed by immemorial usaj. dent. The issue was finally resolved on De- The reform of 1906 immediately raised cember 13, when the Committee on the question as to whether the order ap- Printing submitted its report, “Standard plied not only to executive documents but of Orthography for Government Publi- also to legislative documents. With the cations.’’ The committee stated that pre- 87 vious literature of Government publica- stricter controls in the buying and receiv- tions reflected the spelling in vogue at the ing of GPO purchases, Mr. Stillings re- time of its printing. It added: ceived authority from Congress to install new cost, audit, and inventory systems. Until Congress shall see fit to order the print- He also, as had preceding Public Print- ing * * * in some form of spelling other than that generally accepted by the people, it would ers, recommended that— * * * be the part of wisdom for the Government in all its branches * * * to adhere to a uniform The old building should be razed to the ground system of spelling, * * * the [system] already and the material sold to the highest bidder; a most generally recognized and accepted by the new building should be erected, thoroughly modern and fireproof * * *. people. * * * it is evident that public sentiment, as reflected in the newspapers, magazines, and Documents Library other publications, has not been favorable to the proposed innovation * * *. It is therefore a con- The Superintendent of Documents re- dition and not a theory with which Congress has to deal. * * * Moreover, Congress has no ported that his 10-year-old Division had assurance, even if it should leave present con- built up a library of historical and present ditions undisturbed, that the next succeeding Government publications totaling 82,449 administration would not revoke the present documents and maps. He stated that— order. * * * The sentiment in Congress is such that * * * this collection, the most complete in the world in the printing done for Congress the standard of U.S. Government publications, has never cost dictionaries will continue to be the accepted the Government one cent; * * * [it is] the most authority. * * * any departure from the recog- useful working tool this Office possesses * * *. nized standards of orthography cannot with safety, satisfaction or economy be taken until He resisted a move in the interest of Congress and the Executive shall agree upon the adoption of other orthographic methods. economy that the collection should be transferred to the Library of Congress.

As the New York Times had prophe- To separate the Office from its reference library sied on August 30, the spelling reform would make the routine accomplishment of its was circumvented by Congress in the routine work as difficult as to steer a ship to port form of a rider to the printing money bill. without a rudder.

No part of the compensation provided by this act shall be paid to the Public Printer unless he shall, in printing documents authorized by law 1907 or ordered by Congress or either branch thereof, conform in the spelling thereof to the rules of orthography recognized and used by accepted dictionaries of the English language. Public Printer Stillings reported on the And on a division there were—142 yeas, and adaptation of new business methods in 25 noes. So the amendment was agreed to. (Con- the GPO and the purchase of machinery gressional Record, Dec. 12, 1906.) and equipment capable of meeting pres- ent and projected needs of Government. Public Printer Surveys Office Considerable progress had been made in the development of new accounting sys- After 1 year in his new post, Mr. Still- tems, which could supply precise infor- ings instituted a reorganization of the of- mation instead of conjectural estimates. ficial force so that competent individuals He also had developed an organizational could supervise the work. concept which divided the GPO into In addition, he was critical of purchas- work groups consisting of grand divi- ing procedures, which in some cases were sions, divisions, sections, and groups, all safeguarded by law but, in other cases, resulting in closer supervision and expe- unsystematic and wasteful. Requesting dition of public printing and binding. 88 A consolidation of all manufactur- public documents to congressional-desig- ing units in the new building left the old nated colleges and libraries. building available for storage, in addition The free distribution of Government to the Machine Shop Division and a por- publications was first authorized by Con- tion of the Supply Division. The Docu- gress in 1813. These documents were sent ments Division was installed in the seven- to State and Territorial legislatures, in- story annex building on H Street. corporated universities and colleges, and The American Printer of April reported historical societies. An allotment of 200 that Mr. Stillings was penalizing Office copies was more than sufficient for the employees for damage to equipment or needs of that early day. spoilage of printing. In 1857, the Secretary of the Interior was charged with “receiving, arranging, Mirrors Abolished safe-keeping, and distribution’’ of public documents “of every nature, already or Mr. Stillings further compounded his hereafter directed by law to be printed troubles by banning mirrors in ladies’ or purchased for the Government.’’ The restrooms in the Office. The American general printing act included public and Printer in June noted Mr. Stillings’ at- tempt to curb the vanity of his female school libraries, but the indiscriminate workers. In an article entitled “Stillings distribution to 615 authorized institu- the Brave,’’ the Printer said: tions with inadequate shelfroom or cleri- cal labor produced an enormous waste of ’Tis given to but few men to receive full ap- printing and paper. The Superintendent preciation of their merit during their own lives. advocated a cut in the congressional quota Most of them must wait for history to lay before posterity the facts of today, ere the world grants and in the number of depositories as the its need of praise in words or monuments. Hence only remedy for the “chronic document it is that Public Printer Stillings need expect indigestion.’’ nothing other than he is getting for his recent or- He urged more selective distribution der whereby mirrors have been subtracted from the entire Government Printing Building. Per- by Congress in the free distribution of chance, in the girls’ main dressing-room of each Government publications. On the one department there may yet remain a single lonely hand, horse or cattle books were sent exception subdued, and a sufferer from glassial to districts in which automobiles and strabismus; but the rank and file of the genus Mirror is vanished and gone, so to speak. And electric cars held sway and where cat- the girls? Yes, they’re mad; and they say “It’s tle were represented only in butcher just too mean for anything’’; and “we didn’t ei- shops and dairies. On the other hand, ther, waste time fussing with our hair and hats!’’ rural districts were flooded with Flags And Stillings, stern and uncompromising to the principle, though genial and smiling to the girls of Maritime Nations or single volumes themselves, goes about his daily duties with the of Messages and Papers of the Presidents, reward of a good conscience and nothing else, instead of books published specially for for his heroic ruling that, perhaps, knocked the their use. mercury-backed bubbles of frizzled vanity into a cocked hat. We say “perhaps’’ for, in the absence In 1907 Congress approved a more sys- of mirrors, one cannot “see’’ if the hat be cocked tematic method of numbering congres- or not. “O wad some power the giftie gi’ us, to sional documents, as compared to the see ourselves’’ in the mirror once more! But no; and there is exceeding sorrow in the GPO for the former crazy-quilt pattern in use. girls—and also for “Stillings the Brave.’’ Census Bureau Printshop Depository Library History Congress authorized the abandonment The Documents Division, by act of of a Census Bureau printshop, and all Congress, was responsible for providing work was transferred to the GPO. 89 1908 position was charged at 50 cents an hour, plus 40 percent for nonproductive labor and miscellaneous charges, for a total The 1908 annual report failed to con- of 70 cents per hour. Through the years vey the great confusion of this printing to 1906, other factors had entered into year. Public Printer Stillings was sus- production costs, and the cost system in pended by President Theodore Roosevelt effect became approximate rather than on February 5. Then followed in suc- precise. cession Henry T. Brian, Acting Public The extraordinary industrial growth Printer until June 9, when John S. Leech of the Nation had created companies of Illinois took over as Public Printer. specializing in the business of system- Leech served until November 30, and atizing plants. Mr. Stillings recognized was replaced by Samuel B. Donnelly of New York on the next day. On December the need of some accounting reform, and 8, 1 week later, Mr. Donnelly submitted requested that Congress provide funds his annual report to Congress. “For the purchase and installation of and instruction in cost, audit, and inventory Investigation of Office systems.’’ He signed agreements with a New York firm known as the Audit Sys- On February 5, President Roosevelt tem. Three separate contracts beginning verbally and by letter had instructed Wil- September 6, 1906, were made. When the liam S. Rossiter to investigate the general contract was canceled by the President on conditions in the GPO. At the same time, February 13, 1908, total costs, including the Washington Evening Star reported supplies and furniture, were $138,110. that “Public Printer Stillings had been suspended by Roosevelt on representa- Comparative Costs tions said to be of a startling nature.’’ The Rossiter report of February 29 The committee noted that a Post Office covered the following subjects: Department fiscal reorganization cost $61,000. The Interior Department had (1) The operations of the Audit System and been systematized for $14,000. From tes- allied companies. timony offered, the committee concluded (2) Financial operations. (3) Method of purchasing supplies. that the GPO, on the basis of other print- (4) Expenditures for travel. ing plants, should have been handled (5) Organization, plant, and volume and cost successfully from $10,000 to $35,000, the of product (purchase of typesetting latter an extreme maximum. machines). (6) Attitude and feeling of employees. (7) Favorable aspects of Mr. Stillings’ adminis- Purchase of Typesetting Machines tration. (8) General aspects of the Federal printing The committee found that composing question. (9) Summary. machinery purchased in the years 1904– 08 amounted to $965,528. It concluded Of chief importance was the study of that “having avoided their installation (1), which concerned fees paid for a new until long after they had become indis- GPO audit system. Following were (5), pensable in every other large office, the (6), and (7). GPO had gone to the other extreme.’’ However, it admitted that there was no New Accounting System question concerning the value of typeset- ting machines, for they were necessary For 30 years the GPO had maintained fixtures in every progressive job office as the same scale of printing charges. Com- well as in newspapers of any consequence. 90 It also noted that 50 duplex Monotype Overall, the committee concluded, Mr. keyboards purchased for $60,000 had ar- Stillings “had not been a good judge of rived, but Office officials seemed reluc- men, but at the same time could not be tant to put them into service, with but 1 accused of any intentional wrongdoing.’’ or 2 machines necessary. The committee also found that the Of- Favorable Aspects of Mr. Stillings fice now had 207 composing machines, and it appeared that insufficient time had The Committee concluded that— “been taken for tests and properly accus- few men were better acquainted than Mr. Still- toming the force to the most efficient use ings with the printing business in its various of this machinery.’’ It also asserted that branches. Having a strong constitution and un- bounded energy, he appeared to have spared nei- “no economy can result unless the prod- ther strength nor time in his devotion to the work uct equals or exceeds the work of three of the office as he saw it. men by hand composition’’; but that He introduced discipline where little had ex- GPO production did not exceed that of isted, and endeavored to weed out incompetent two men. persons and to secure a larger per capita product. He established a hospital * * * and a system of rigid sanitary supervision, both * * * of real and Attitude of Employees lasting benefit.

Mr. Rossiter expressed the view that Successor to Mr. Stillings newspaper statements of employee dis- satisfaction and irritation had been much Immediately after the report was exaggerated. It was generally agreed that submitted to the President, speculation Mr. Stillings found the Office much de- arose as to the selection of a new Public moralized in discipline, organization, Printer. On the basis of his report, Mr. and productive capacity. In his 1906 an- Rossiter was being sponsored by certain nual report, Mr. Stillings had stated that groups, and the Washington Evening Star certain corrective measures were neces- of March 2 noted that “Employees of the sary. The committee agreed that these office are on the tiptoe of expectancy as to efforts to improve conditions necessar- who will succeed Mr. Stillings as Public ily excited opposition in some quarters Printer.’’ The Star on March 17 printed and of course created enemies of all who this headline: “President decides to name were indolent or inefficient. In addition William S. Rossiter.’’ But shortly after, to these elements, there were others who John S. Leech of Illinois was appointed. were inclined to be antagonistic for a va- At the time of his appointment, Mr. riety of reasons. Leech was in Manila serving as the Phil- Questioning of employees disclosed ippine Public Printer. The Washington that too many administrative orders were Post of June 9 reported that— ill-judged, severe, and unnecessary, pro- John S. Leech arrived in Washington from Ma- ducing a climate of insecurity and dissat- nila, by way of San Francisco and Bloomington, isfaction. Further direct questioning of Ill., his parents’ home. * * * section representatives showed that com- Mr. Leech comes “from the trade,’’ to speak positors, proofreaders, pressmen, and in craft vernacular. He comes from a high posi- tion in the Government service to a higher, and Linotype and Monotype operators knew even more active, office in the same service. * * * of no grievances of any kind against Mr. he learned the printing trade on the Blooming- Stillings. However, the bindery charged ton Pantagraph. In 1889 he came to Washington discriminations against their association, as a compositor in the GPO, and later served as proofreader and foreman of the 5th Division. and electrotypers and stereotypers com- Mr. Leech is an honorary member of Colum- plained of too much overtime and certain bia Typographical union * * * and twice has rep- working rules. resented that union in conventions of the ITU. 91 Wage Increase The Post also noticed Mr. Leech’s de- parture: On October 1, Public Printer Leech advanced the wages of 84 Linotype When the retiring Government printer operators and 137 Monotype operators. [Leech] was leaving the office after his last day’s work there, * * * he was met at the door by more Mr. Leech stated that the experimental than a thousand of the employees, both women stage of machine composition had long and men, who tried to show * * * the good feel- since passed, and that operators in the ing that existed in the office toward him. Office had not been receiving compensa- tion comparable to that paid by private concerns in large cities. “Record’s” 35th Anniversary Printers and bookbinders received 50 cents per hour, with from 5 to 10 During the investigation and debate cents added in the case of proofreaders, over a new Printer, however, the Of- makers-up, or other occupation requiring fice continued its printing work for the special skill. departments and Congress, and particu- After 4 months of Leech’s administra- larly the Congressional Record, whose be- tion, the GPO “situation’’ again became ginning on March 5, 1873, had been cre- critical, for on October 31 the Post re- ated by another printing investigation. ported that— On March 4, the Washington Evening Star printed an article entitled “Record’s Public Printer Leech will be relieved of his 35th Anniversary; Congressional Publi- office after election, according to present in- cation Reaches Mature Age; Was Begun tentions, and will be replaced by Samuel B. as Temporary Expedient While Bidders Donnelly. * * * Mr. Leech has gone to his home in Illinois to Fought.’’ remain until after election. The exacting work incident to the preparation of the printing office At the present time 28,000 copies of the Re- for the approaching session of Congress [Decem- cord are printed, and the 3 presses have a com- ber 7] has so broken Mr. Leech’s health that it is bined capacity of 32,000 copies of a 120-page by the orders of his physician that he is to take Record per hour. a rest.

Donnelly Becomes Public Printer 1909 On December 1, the Post stated:

Samuel B. Donnelly, the newly appointed Public Printer, took the oath of office at the * * * During the years 1904–08 the GPO White House yesterday * * *, succeeding John S. had been the Government’s “problem Leech, whose resignation had been accepted by child,’’ and the newspapers of the day the President * * * a precedent was established, had devoted much space to the series of as it is said that never before has a Public Printer investigations and the parade of succes- or similar official been sworn in to his new duties at the executive mansion. sive Public Printers. Under Mr. Don- nelly, however, the equilibrium of the Mr. Donnelly, former president of the Office was restored and for the next International Typographical Union in several years the GPO was to achieve an 1899 and 1900, declared that— uncommon anonymity. According to Mr. Donnelly’s annual reports, the state of the I came to Washington to accept the position public printing seemed to be in better, if as head of the world’s largest printshop under strong protests from the officers and members of not quieter, condition, and the following the New York Building Trades [he bad been a GPO printing years provided little ex- member of its board]. citement. 92 New Cost Ascertainment purchased by GPO, so as to discourage department practice of furnishing paper Work production this year totaled for use in public printing and binding. $6,237,483. Congress for the first time The Office was now producing looseleaf placed the Documents Division on its own binders and binding devices. feet as a Government bureau, and its oper- ating costs of $323,198 were not included in public printing and binding charges. Plan To Reduce Accidents This change caused a 5-percent reduction in bills for Government printing. In 1910, there were 770 industrial ac- cidents in the GPO. The Medical and Branch Offices Acquired Sanitary Officer, appalled by the many industrial accidents in the Office, recom- This year marked the entry of the mended that contracts for the purchases of Treasury, Interior, and Agriculture branch “swiftly moving or power-driven machin- printing offices into the GPO family. ery’’ should include an indemnity bond of, say 5 or 10 percent of total cost of machine for its useful life. A bond provided by the manufacturer would, after an accident, yield funds for the purchase of safety de- 1910 vices and guards to be placed on the ma- chine. Such indemnification would insure to the Government “the saving of large Further new business for the GPO sums of treasure * * * that is and would be was the awarding of a Post Office con- otherwise wasted, so far as prevention and tract for printing postal cards beginning repetition of accidents are concerned.’’ in February. Although the new work It would insure the employee against caused paper and mechanical difficulties, “The receipt of possible injuries to the Office produced 156,834,000 cards in limbs that mere money could not hope October. to offer adequate compensation.’’ And would insure the manufacturer “Relief Motor Age Arrives from mental anguish, responsibility, and worry after an accident.’’ After consulting with other Govern- This humanitarian recommendation ment departments, as well as several was not adopted, but industry recog- commercial firms, all of whom had ad- nized the problem by installing built- opted electric trucks, the Public Printer in safeguards. Workers, through safety recommended the substitution of trucks committees and education in industrial for his present horse-and-wagon delivery good housekeeping practices, were able service. to reduce accident incidence. In 1912, six electric trucks were pur- chased for $17,373. Old traffic equipment was sold, but six horses and two trucks Sunday Eulogy Edition were retained. Congress in 1910 required the print- Paper Control ing of a Congressional Record Sunday eulogy edition, at an extra expenditure of Pointing out departures from printing $7,803.27. By printing this edition in the law, Mr. Donnelly advised departments Monday Record, the volume of Sunday that all paper for public printing must be work was reduced. 93 Documents Recommendations a Government pension for 250 Office employees over 65 years of age. The Superintendent noted the great waste in free distribution of Government publications. As an example, the Patent Office Official Gazette was sent to 3,190 1912 congressional designees. The Printing Investigation Commission sent a circu- Mr. Donnelly reported the following: lar to the Gazette mailing list of 3,190. Increased individual production ef- Of this number 1,543 (less than half) fected a 5-percent reduction in printing requested continued delivery, while 903 charges, saving Congress and the depart- did not want it. In addition, 744 failed to ments about $300,000. reply to repeated inquiries. A new garage was built on a vacant The sale of coupon books for purchas- lot adjoining H Street Annex at a cost of ers of public documents was adopted, $17,870.69. and books of twenty 5-cent coupons were The Public Printer noted that he had no sold for $1. Thus the purchaser was not control over volume of printing and bind- compelled in every instance to either pur- ing. His responsibility consisted solely of chase a money order or to risk enclosing GPO management and to control the cost the amount in cash. This device stimu- of producing work authorized by law, lated sales. but Office work was controlled by Con- gress and heads of executive departments and Government establishments. 1911 Wage Increase

The Public Printer reported as follows: In considering wages, a congressional In recognition of increased Office effi- committee noted that Office employees ciency, he recommended a wage increase enjoyed— for employees. The Joint Committee on Printing ap- numerous advantages over the employees of commercial plants, such as greater permanency proved lighter weight paper for the Con- of employment; a month’s leave on full pay each gressional Record and other Government year; extra pay for night, Sunday and holiday printing, in addition to the elimination work; and shorter hours in many instances. of unnecessarily heavy paper stock items from the Paper Catalog. These efforts to- Printers and bookbinders were in- ward economy met with hearty approval creased from 40 to 50 cents an hour, and of departments. pressmen, from 50 to 55 cents. Three bridges, on the second, third, and fourth floors, were constructed to Superintendent of Documents cross the courtyard of new building. A new money order press was pur- The Superintendent reported that he chased, thus materially reducing printing sold documents only to the public, that costs. he did not give away public documents, but did supply free price lists. Pension Proposed He also requested an advertising ap- propriation—

This year, 9 years before passage of so that thousands of dollars’ worth of books on original Federal Retirement Act of May our shelves, gathering dust and benefiting no 22, 1920, the Public Printer recommended one, would be turned into cash money if the 94 public could be made aware of their existence The Congressional Record of May 6 con- and the modest selling prices. tained 366 pages, the greatest in Office history. Requiring several days of produc- The Check List covering Government tion, it contained voluminous railroad re- publications from 1789 to 1909 was pub- cords read into the Record by Senator La lished and received acclaim from library Follette of Wisconsin. world.

Field Offices Restricted

1913 To prohibit the establishment of ad- ditional branch offices by the GPO, the following provision was included in the On June 26, Cornelius Ford of New act of August 1, 1914: Jersey succeeded Mr. Donnelly as Public Printer. The new Public Printer sub- No money appropriated by any act shall be mitted the following modernization used for maintaining more than one branch of recommendations to Congress: the GPO in any one building occupied by any executive department or departments of the That portion of the Monotype key- Government, nor shall any branch of the GPO board equipment first installed should be be established unless specifically authorized by discarded, as it is now obsolete, and there law. should be installed 50 style “D’’ keyboards, 90-em scale, in place of the 100 Monotype style “C’’ keyboards. Such a change would result in further decreased cost of produc- 1915 tion of Monotype composition. In line with the changes in the Mono- Congress adjourned after a 7-month type equipment, there should also be an session and several years of continuous allowance in the appropriation act for the sessions. The low volume of department changing of the old Linotype machines to work caused the elimination of the night later models, and also a sufficient amount force, forced a reduction of employees allowed for the installing of several of the on the day shift, and necessitated short- latest improved Linotype machines. period furloughs for all employees. Gov- The Joint Committee on Printing re- stricted free distribution of embossed sta- ernment departments responded quickly tionery to Members of Congress. to the President’s appeal to provide work for the Office. The Comptroller General decided that Office employees were entitled to leave of 1914 absence of 30 working days. Offset Section Proposed The highlights were: Mr. Ford replaced 20- to 30-year-old Mr. Ford urged that the GPO be per- presses now obsolete, and installed a new mitted to adopt the new offset printing Congressional Record press and an offset process: press. [This is first appearance of “offset’’ in GPO annual reports.] Notwithstanding that new machinery has A new restroom on fifth floor was es- been purchased during the past year, much yet remains to be done to bring the plant up to the tablished for female employees “suffer- highest point of efficiency. Day-by-day increased ing from industrial fatigue; * * * a very demands are being made upon the Public Printer humane and necessary adjunct to office.’’ in the amount of printing and rapidity of execu- 95 tion. In line with progress and the advancement of new methods in the printing industry, I have 1917 taken up the question of offset printing with the ultimate object of installing this process. Offset Declaration of war on April 6 resulted presses and a suitable photomechanical process in the greatest demand in history on GPO. for the preparation of printing plates (zinc and Preparedness and war activities required aluminum) could probably be installed for about printing and binding far exceeding that $60,000. The installation of this method will, in my judgment, provide for a wider range of work of any previous year, for the war emer- at greater speed and less cost. Between 6,000 and gency demanded urgent and rush de- 8,000 square feet of space would be required for livery of printing orders submitted at a offset presses and photomechanical equipment. moment’s notice. Orders ranged from [In 1926, the GPO formally entered the offset 1,000 to 25 million each, and were executed field.] together with current congressional and departmental work, on a 24-hour basis. In spite of such pressure, the daily 1916 average number of employees increased by only 145. Total operating expense increased 28 percent, because of extra Mr. Ford renewed a recommendation night forces and overtime. for a new offset division estimated to cost $80,000, which would enable production Production Miracles of large quantities of work at greatly re- duced cost. The work force, aided by new work Congress again was asked to consider methods and the recent modernization seriously a new building to replace the program which had retired obsolete condemned old building so that space equipment, was able to meet the un- could be allocated for a new offset press precedented demand for vitally needed section and to relieve overcrowded work- war printing. The policy of replacing rooms. obsolete equipment with modern The Documents Division approached machinery paid handsome dividends $200,000 in document sales, with over 47 during the crisis. New presses installed million documents sold, a 63-percent in- in 1916 accomplished a 30-percent crease over 1915. output increase compared to the old Patent Office printing was suspended presses. Also a factor was the ingenuity again for lack of printing funds. displayed in making combinations of Mr. Ford again petitioned Congress forms and resulting economical runs. for a pay increase for printers and book- In spite of the war climate, Post Of- binders, whose pay was fixed by law. He fice requirements had to be met. Postal stated that fairness and justice to the men cards totaled 1,063,649,044, a 3-percent required an increase from 50 cents to 55 increase over 1916. Under the paper reg- cents per hour. ulations, the Post Office supplied about Mr. Ford renewed request first made 7 million pounds of stock, but the sup- in 1911 for Government pension for Of- ply became exhausted several times, and fice workers ranging in age from 60 to caused a halt in production. 80 years. He suggested that productive Bindery output increased 40 percent capacity of Office could be materially in- over 1916, with an increased work force creased if some means could be found to of 400. To insure delivery, it was nec- encourage retirement, and younger per- essary in many instances to substitute sons employed. [The Federal Retirement cheaper but durable materials, with re- Act was passed in 1920.] sultant savings of about $100,000. 96 Price Line Held After considerable testing, book lin- ing or marble papers were also produced. The scale of prices for public printing This paper was formerly purchased, in and binding held firm, although supplies some cases in foreign countries. Car- and materials advanced in price, in some boned papers, used in manifold books, cases as much as 300 percent. were manufactured in the Office at one- third the outside cost. Paper Supply Type metal, a vital necessity for the typesetting machines, was produced by The Joint Committee on Printing re- the metal room, with a daily output of fused to award paper contracts at prices 8 tons of linotype metal and 3 1/2 tons of larger than in previous years. Paper was monotype metal. By salvaging and re- purchased in the open market at varying melting dead type, the Office was able prices, and through direct personal ap- to reduce its annual purchase of 125,000 peals, Mr. Ford was able to obtain suf- pounds of virgin lead, antimony, and tin. ficient supplies of paper. He noted that paper costs represented 28 1/2 percent of New Legislation total printing charges, whereas in 1916 paper represented but 18 percent. The act of March 3, 1917, abolished a printing branch in the State, War, and Plant Maintenance Navy Building, with work transferred to main GPO. With the Office on a nonstop schedule, The same act transferred jurisdiction including Sundays and holidays, insuf- over contracts and purchases from the ficient time was available for machine Secretary of the Interior to the Public repairs. Considering the large number of Printer when Congress was not in session. productive machines, the force of trained mechanics kept the wheels turning with New Building Needed a minimum amount of lost time. For their fine efforts in maintaining produc- Mr. Ford again advised Congress of tion and to match salaries paid in private imperative need for new building. The business, a slight wage increase was given new building occupied in 1903 had to machinists, electricians, carpenters, been declared inadequate even before and painters. completion, and Public Printers since There were 1,612 industrial accidents had appealed for more working space. during the year, an amount regarded The progressive increase in workload as small because of the increased force was greater than expected, in addition working under high pressure and the to many changes in Office organization. hundreds of machines in constant opera- These unforeseen changes, usually by act tion. of Congress, included:

Office Becomes Own Supplier (a) Transfer to GPO of six large branch print- ing offices from various departments to relieve their space problems. This work was shifted to Difficult supply conditions in the trade GPO without provision for additional space. turned GPO efforts toward self-suffi- (b) Departments had abolished publication ciency. mailing divisions because of similar GPO func- Approximately 30,000 pounds of ink tions. All mailing was now centralized in the GPO, already suffering space shortage. was produced at substantial savings, in (c) A Post Office contract for postal card addition to convenience of manufacture printing required about 4 million cards daily, on the premises. with space necessary for hundreds of rolls of 97 stock and provision for safekeeping cards await- mous quantities of printing and binding ing shipment. A new division was established for immediate use. Warwork naturally separate from rest of Office. (d) Printing of money order forms also re- received priority over routine work. quired establishment of a new division, likewise About 900 more workers were added, creating additional storage problems. and most divisions were on three 8-hour (e) Entrance of GPO into manufacturing ac- shifts. With an unlimited number of or- tivities induced by supply shortages, such as inks, rollers, carbon and lining paper, type metal, all ders on hand, planning procedures were of which required considerable working space. adopted so that a vast quantity of finished work was produced advantageously and Mr. Ford also noted that the Office at a cost less than commercial prices. needed more storage space for supplies, A greater part of the huge workload, room for installation of offset presses and in addition to the customary work for accompanying photomechanical equip- Congress and the various departments, ment, and more room for production was the military printing demand. divisions which needed more equipment, The Army required millions of copies but without room to place it. Therefore of drillbooks, handbooks, regulations, etc., a new building on site of old GPO was clothbound, for immediate delivery. The an “absolute, imperative, and immediate Navy also needed vast quantities of print- necessity.’’ ing and binding, with charges for these two departments totaling over $41/2 million. Pay Increases Suggested War agencies demanded—and re- ceived—75 million thrift cards, 25 mil- Numerous resignations took place this lion questionnaires and blanks, 27 million year, with many requests for transfer to notices of classifications, and numerous other departments offering more attrac- orders ranging from 1 to 5 million each. tive salaries for the same work. Congress Agriculture was furnished many mil- attempted to halt the exodus by prohibit- lions of posters, pamphlets, and circulars ing transfers at a higher rate for 1 year, in food-for-war campaigns, and 18 mil- but Office employees continued to resign lion Farmers’ Bulletins were also printed. and then wait out 1-year prohibition. Mr. The old-line agencies contributed to Ford pleaded that “without the consent the printing pressure. In addition to 350 of Congress, I cannot offer such induce- annual reports with runs ranging from ment [higher wages] to those employees 1,000 to 450,000 copies, the departments whose salaries are regulated by law.’’ also required about 100 dated periodi- He once more requested an increase for cals, including 8 daily, 22 weekly, and 58 printers, pressmen, and bookbinders, and monthly publications, running between recommended that these crafts be paid 60 500 and 200,000 copies. cents an hour. Office Prices Versus Commercial 1918 Mr. Ford noted that printing needs were “increasing by leaps and bounds.’’ He also noted that departments had pur- War activities were responsible for a chased considerable printing from com- printing product of over $12,205,000, far mercial sources, and that charges were in excess of any year in Office history. The higher than the Office scale of prices. immediate preceding years had produced Such charges, he claimed, varied from 2 successive record highs, but the many to 470 percent higher, but approximately new bureaus and expansion of work in 60 percent could have been saved if the established departments demanded enor- work had been performed in this Office. 98 Without making any reflection whatever, it out the Office under strict and ironclad regula- is evident that * * * bureaus of the Government tions, preventing any premature publicity or any have paid excessive prices for printing. * * * all breach of confidence * * *. printing and binding * * * should be handled by the Public Printer, who is in reality the official Printing Prices Reduced printer for the Government and who should be responsible for all of that work. The year presented an interesting Mr. Ford recommended— anomaly of increased costs and wages, accompanied by a 5-percent reduction immediate legislation that will require all print- in charges to departments. Wages were ing and binding orders * * * to be placed direct necessarily increased to retain certain with the Public Printer and to be done in the GPO, with proviso that such work as cannot at classes of labor, but through improved any time be handled in the GPO may be let out supervision and the hearty cooperation of by the Public Printer on contract to commercial employees— printing offices. all of whom realized that their chance of help- ing win the war lay right in this office, the in- New Machinery Funds dividual output was gradually increased until it met and then overcame the larger operating After the purchase excesses of 1904–07, expense * * *. Congress had placed fiscal restraints on the amount of GPO purchases. Fretting Post Office Printing over his inability to meet printing de- mands within fixed money limits, Mr. Although the accent was on warwork, Ford in his annual report stated: the Post Office was also busy. Over 1,151 million postal cards were printed, rep- Experience shows that the output of a new resenting an increase of 88,338,162 over machine generally is from 30 to 50 percent 1917. The successful handling of this greater than that of the old one it replaces, and class of work was emphasized when the initial cost is thus soon made up. The Pub- lic Printer’s expenditure for machinery is fixed the Office, under competitive bidding, at not over $100,000 per year. In ordinary times secured a 4-year contract for printing and with ordinary prices prevailing, this limited postal cards, effective January 1. amount could possibly be gotten along with, but under present conditions of constantly increas- Paper ing prices, together with the urgent need for more machinery in order to produce the larger amount of work demanded from this Office, a Securing an adequate supply of paper $100,000 limit for machinery is altogether in- assumed serious proportions. The Joint sufficient, and is a very serious detriment to the Committee on Printing had made awards service. The Public Printer should be free to purchase the machinery he knows is needed if for about one-half of estimated needs, he can so arrange it out of his total appropria- but later canceled most of the contracts tion, and I recommend that he be authorized to because of increases in cost of produc- expend, if needs of the service so demand, up to tion. By open-market buying, the Public $200,000 for machinery out of the regular appro- Printer procured a large amount of paper priation for printing and binding. stock, but embargoes on railroads and scarcity of fuel at papermills occasioned Secret Work delays in delivery. With the country at war, the Office and Documents Division its war printing presented a sensitive se- curity problem. Mr. Ford reported that— The operations of this Division in- 1 Secret and confidential publications, of which volved the distribution of over 44 /2 mil- there were very many, were handled through- lion publications, the sale of 7,853,886 99 pamphlets and books, the handling of from old plates of the Congressional Globe over 297,000 letters requesting infor- and Congressional Record. The Globe, mation, the compilation of catalogs and predecessor to the Record, dated back to price lists, and the maintenance of 1,150 1833, and these plates had been in the mailing lists with over 1 million names. Globe vault in a building at the rear of Third Street, near C Street NW. The re- End of War claimed metal thus entered the produc- tion stream of the Office, and the vault Signing of the Armistice on Novem- was used for storage of Office records. ber 11 found the Office in full swing on largest output in history. All productive New Building divisions operated on three 8-hour sched- ules. Shortly after, a letup was apparent Public Act 314, approved by Congress because of wholesale cancellation of war on March 1, directed that practically printing. This slowing down was of short all Government printing and binding duration, for work held back by depart- should be done in GPO. As in former ments and printing for postwar recovery years, Mr. Ford reemphasized the need began to pour in. In addition, Congress for a new building. was in session 91/2 months, requiring more than normal quantity of printing. Public Documents

Publications totaling 61 million were distributed, the great bulk representing 1919 free distribution by departments. Mr. Ford was “convinced that the present method of free distribution is conducive This printing year was marked by an of waste in that publications in many extremely heavy personnel turnover of cases go to persons who can put them 5,000 employees because of transfer, res- to no good use.’’ Mailing lists totaled ignations, and death. 1,170, and had over 1 million names. Congress on March 1 approved a bill Typists, catalogers, and indexers contin- which provided funds to the City Post ued in short supply, because low salaries Office for heat, light, and power supplied set by law forced them to accept similar by the GPO plant. Public Printers’ yearly positions elsewhere at better pay; some reminders finally bore fruit, for about positions authorized by law could not be $45,000 would now be paid to the Office. filled; and salaries were entirely too low for eligibles who would not accept the Wage Increase only offer possible under law. Mr. Ford recommended review of un- Congress authorized bonus payment realistic departmental printing orders. of 8.6 cents an hour to workers in lieu of He suggested printing orders should pay increase. Printing charges to depart- cover only official and initial distribu- ments were increased 5 percent because tion, and not anticipated public demand, of the bonus and increased cost of mate- thus permitting the Office to satisfy rials. demand when it developed. He also recommended establishment Reclamation of “Globe’’ Plates in GPO of a centralized bureau of distri- bution and information through which About 440,000 pounds of excellent the public “shall be correctly informed as metal, valued at $45,000, was reclaimed to the activities of the Government.’’ 100 1920 paper. This year over 12 million pounds was baled and shipped, but moneys re- ceived reverted to the Treasury, and the Congress was in session for about 11 costs incurred were included in printing months, with congressional work ex- charges. He regarded this procedure as ceeding the previous year by 57 percent. an unfair burden, for such paper required Public Act 23, approved August 2, pickup and handling by the Office, and 1919, directed an increase to 75 cents an in addition, paper from the departments hour for printers, pressmen, and book- contained— binders. The pay increase, however, did not meet commercial rates, and there was much filth, discarded lunches, old clothing and shoes * * *. This undesirable accumulation has steady attrition in all classes of skilled attracted an army of rats and vermin to the GPO workers who not unnaturally were at- * * *, which is a printing plant and not a junk tracted by higher wages in private plants. yard. This increase, together with mounting costs of paper and materials, required a On April 5, George H. Carter of 10-percent increase in printing charges. Iowa became Public Printer. As clerk to A total of 700 million postal cards was the Joint Committee on Printing for 12 produced. For the first time, stock for years, Mr. Carter was familiar with GPO this work, formerly purchased by the operations, and as a practical printer, was Post Office and furnished to GPO, was versed in the graphic arts. Taking over purchased direct by the Public Printer. from Mr. Ford, Mr. Carter stated that— The paper supply situation became critical when advertisements failed to at- President [Harding] simply but impressively instructed me to operate the “big shop” on a tract bids, but personal pleas to the paper strictly business basis, to stop wastes and extrav- trade by Mr. Ford produced sufficient agances in the public printing and binding as far stock to meet Government needs. All as was within the power of the Public Printer, employees were cautioned to avoid waste, and to place the personnel of the office above all and spoilage allowance was reduced. suspicion as to honesty and integrity. * * * [The Office] is entitled to be treated as a big business proposition, free from all partisan bias and self- Public Documents ish interests.

Mailing lists totaled 1,159, with Economy Keynote 1,066,000 names. The Joint Committee on Printing reduced printing of reports, Mr. Carter immediately instituted documents, and publications to 1,000 numerous economies in printing and copies, thus limiting free distribution binding. He also returned $2,400,000 in by departments and tending to increase unspent printing funds to the Treasury. sales. Over 55 million publications were Assuming office with less than 3 months distributed in 1920. of the fiscal year remaining, he resisted the temptation to “stock up’’ on equip- ment and plant improvements, ignoring 1921 the “precedents of this office * * * in an orgy of purchases * * * with an unex- pended balance.’’ Government Wastepaper Another step toward economy con- cerned the Public Printer’s annual report. Mr. Ford protested to Congress that On June 16, Congress had authorized a the Office, under law, was burdened with reduction in the size of annual reports, the handling of all departmental waste- and Mr. Carter promptly cut his current 101 report to 56 pages, in sharp contrast to the pay records of 4,500 employees, produced 716-page report of 1920. Extensive—and important savings. The Office, in con- expensive—statistical tables were omitted, junction with the Budget Bureau, set up with only 12 pages in 1921 compared to an interdepartmental Permanent Confer- almost 700 in 1920. Removed from public ence on Printing, with the Public Printer gaze forever were lengthy tables listing, as permanent chairman. Approved by by department, every publication printed the President, the conference effected in the GPO; each individual sale by the substantial economies in public printing. Superintendent of Documents; each pur- The GPO supplemented the conference chase of paper, engravings, equipment, by the organization of a Requisitions Re- materials, and supplies; and the earnings view Board, which examined all printing of Office employees, according to hours and binding requisitions for the purpose worked and total wages. of effecting further economies and stand- ardization of similar printing needs of various departments. Savings in Paper

As clerk to the Joint Committee on Postal Guide Printing Printing, which controlled the awards For the first time the GPO printed the of paper contracts, he had acquired ex- Official Postal Guide. This publication had perience in gaging the state of the paper for many years been printed in Albany, market. In his annual report he stated N.Y. On April 21 the Joint Committee on that on January 31, the Joint Committee Printing authorized the Public Printer to had opened bids for the annual supply of undertake the printing of the Guide. On paper. The committee concluded that the May 3 first copy was received, corrections quoted prices were too high and there- were made up to July 1, and on July 9, fore rejected all proposals. Three weeks the Postmaster General received 91,711 later, on February 21, a declining paper copies of the 928-page Guide and 12,000 market had lowered bids by $684,638. copies of a 628-page abridged edition. A 3-month supply was ordered, and by Government printing produced the June 1 prices had declined an additional immediate effect of reducing the former 25 to 50 percent. The wisdom of the com- $1.50 price to $1, and additional monthly mittee in rejecting the early proposals for supplements from 75 cents to 50 cents. the Government had saved $1 million by withholding paper awards. “Record” Issued on Time

New Accounting Division The Joint Committee on Printing had established a midnight deadline for the This year saw the beginning of the U.S. submission of “Extensions of Remarks’’ Bureau of the Budget. To provide the by Members of Congress in the Congres- fullest cooperation to the new Bureau, sional Record. Some Congressmen had the GPO consolidated the accountant’s developed the habit of sending in copy and cost accounting sections into the Di- for such “speeches at all hours of the vision of Accounts, under the direction of morning.’’ Placing the Record on a regu- a Superintendent of Accounts, who also lar schedule, the Public Printer avoided served as budget officer. delays in mail deliveries to distant points. Centralized control over all account- With an inflexible deadline, the night ing activities, which included 65,000 ac- force on a Saturday half workday pro- counts, in addition to an accurate cost duced an entire edition of 32,500 copies system, financial reports, and work and in 4 hours. The force set a new produc- 102 tion mark when the 64-page issue was new printing appropriations available on set, plated, printed, wrapped, and deliv- July 1, the departments flooded the office ered to the Post Office by 7:45 a.m. with copy, stocking up more than double the number of folios on hand at the same Work Expands time in 1920. Because of the vast quantity of copy on hand, the Office made special Congress, in 1919, widened the scope efforts to obtain slug-casting machine op- of public printing performed by the erators. However, strike conditions in the GPO. When it passed an act which re- trade and keen competition for machine quired that— operators handicapped the Office in ob- taining an adequate number of compe- On and after July 1, 1919, all printing, binding, and blank-book work for Congress, the Execu- tent operators. tive Office, the judiciary, and every executive de- partment, independent office, and establishment of the Government, shall be done at the GPO, Retirement Act in Effect except such classes of work as shall be deemed by the Joint Committee on Printing to be urgent On August 20, 1920, the civil service or necessary to have done elsewhere than in the employees’ retirement act became effec- District of Columbia for the exclusive use of any tive. In the first fiscal year of the act’s op- field service outside of said District. eration, 179 employees retired, of whom 123 retired at 65 years, and 56 at 70 years. The effect of the law placed in the Office Of the total 317 employees eligible for all printing formerly financed by funds retirement on August 20, 1920, 164 re- other than regular printing appropria- tions. Known as repay work, it had been ceived 2-year extensions. executed by Government field printing The Public Printer noted that— plants or procured from contract printers The retirement act has not been in operation in various parts of the country. Mr. Carter long enough to fully determine all of its weak recommended legislation which would and strong points, but it is apparent already that confine all individual department print- even the maximum retirement pension of $720 a year, which only 70 out of 179 received, is in ing needs in one specific fund, instead of many cases grossly inadequate compensation for a small printing allocation supplemented employees who have devoted most of their lives by a larger fund diverted from another to faithful service of the Government. lump-sum authorization. Government Bookstore Printing Charges Reduced Local sales of Government publica- Economies achieved in work opera- tions had grown rapidly with the estab- tions and savings in paper purchases pro- lishment of information bureaus and duced substantial reductions in the scale headquarters of various national organi- of charges. Composition costs were re- zations in Washington. Noting the duced 10 cents per 1,000 ems, and postal increased demand for documents, the card costs were lowered by 36 percent, Superintendent of Documents was for a saving to the Post Office of $168,112. directed to set up a retail bookstore on In addition, charges for printing congres- the first floor of the Documents building. sional speeches were cut by 25 percent. Designed for the convenience of the pub- lic who formerly had to ride in a freight Reduced Personnel and More Work elevator to the sixth floor, the bookstore would provide better service and would The Public Printer reported a reduc- be helpful not only to the public but also tion of 510 employees on the rolls. With to Government employees. 103 The Public Printer once more advo- ployees. During Friday lunch periods an cated a policy of selling publications at employee orchestra provided music for cost rather than the prevailing giveaway employees “who go back to their tasks distribution. * * * with a smile and a cheer that are readily reflected in the increased effi Employee Welfare ciency of a happy and contented lot of employees.’’ The first organization Interested in improving working con- granted the use of Harding Hall was ditions from the humanitarian point of GPO Unit No. 1 of the United Veter- view and the resulting increased efficiency ans of American Wars, composed of 500 from a “well-contented and physically employees who had served in the Civil, fit work force,’’ Mr. Carter began an em- Indian, Spanish, and World Wars. ployee welfare program. Employees were Operated by the employee-controlled forced to eat cold lunches on workbenches Cafeteria & Recreation Association or be serviced by peddlers who roamed which had been organized in 1921, the through the building. The largest print- cafeteria opened for regular service on ing office in the world had no place for January 23, 1922. The association was in- recreation or assemblage of employees, corporated in 1951. Also available were for these were the “good old days,’’ not rest and recreation rooms, and its equip- only typical of the GPO but also of other ment included two fine pianos, a $1,600 industrial establishments of the time. concert grand, and four bowling alleys. The first step was the alteration of the There was noted an immediate increase eighth, or attic, floor of the main build- in Office production from “a more com- ing, which served as a playroom for rats petent and contented lot of employees.’’ amid heaps of rubbish. Its 20-year-old The Washington Evening Star made a roof was badly cracked, and heavy rains study of the new facilities and estimated leaked through to the seventh floor con- that GPO employees were saving $200,000 taining a million dollars’ worth of ma- a year in the reduced cost of meals.” The chinery. Public Printer felt that the Star may have Plans were drawn to erect a full floor in overstated the case, “but there is no doubt place of the attic and to provide an ade- that the cafeteria, serving a full-course quate cafeteria, rest and recreation rooms, luncheon for 25 cents, had reduced the a much-needed photoengraving plant, cost of living for [GPO] employees many and metal and storage rooms. The recom- thousands of dollars annually.’’ mendation received the hearty approval of the Joint Committee on Printing. Apprentice School Opens

Because of the shortage of skilled craftsmen and a reduced work force, 1922 Mr. Carter recommended an appren- tice-training program. The Office had abandoned its loose apprentice system in The conversion of the almost useless 1886 after Mr. Benedict had rejected the attic into an eighth floor was completed role of Government in producing skilled when Harding Hall, named in honor workers at Government expense. of the first printer-President, was dedi- In 1895 Congress had authorized the cated on Christmas eve, 1921. Harding employment of 25 apprentices to receive Hall now became the center of Office training in the graphic arts. Twenty- recreational activities. Here Christmas seven years passed, and during that parties were held for children of em- period no Public Printer had taken 104 advantage of the law (see “1895, New Office Workweek Printing Act’’) to provide an adequate reservoir of trained craftsmen to carry on The Office was on a 44-hour, 51/2 -day the work of the Office. workweek. The practice of working 6 Mr. Carter stated that it is “highly es- full days had developed, with the Sat- sential that the GPO resume the work of urday half holiday of 4 hours devoted to training its own workers.’’ He also advo- work at double time. Mr. Carter objected cated the opportunity for war veterans to 52 hours’ pay for 48 hours’ work. to receive vocational training, and noted He therefore suggested a reduction of that the GPO employed 433 war veter- the 30 days’ annual leave to 14 days, plus ans—Civil War, 20; Spanish War, 124; 52 Saturday half holidays, for a total of and World War, 289. 40 days. In addition, he recommended A nationwide civil service examination 14 days’ sick leave, a privilege enjoyed by was taken by 162 apprenticeship candi- Government, but denied to the GPO. dates. Of that number, 118 qualified for appointment, including 20 Office mes- Recognition of Women Employees sengers— who had become inspired by their close associa- Mr. Carter made a gallant gesture to- tion with the work of this office to learn a useful ward the 900 GPO women employees, trade. The school began a work which it is hoped who comprised more than 22 percent of the Government will never discontinue again. the entire force. Stating that little or no recognition had been given to women The first apprentices were appointed workers, he— on July 5, 1922, when the Joint Commit- tee on Printing stated that “it is a good determined that, as far as it lies within my American doctrine to give the American power, women employees should be granted the same opportunity and equal regard for service boy a chance to learn a trade.’’ However, as the men who had heretofore monopolized all indentured apprentices were forbidden to the supervisory and better paid positions * * *. marry during their training period. (See Accordingly, for the first time in [GPO] history, “1923, Apprentice school expanded.’’) several thoroughly competent women workers were advanced * * *. Among those promoted were Josephine Readjustment of Wages Adams, Assistant Superintendent of Docu- ments; Martha Feehan, Assistant Foreman of The Public Printer requested that Day Proofroom, which had nearly 200 employ- Congress take some action toward a uni- ees, mostly men; and Mary T. Spalding, Fore- man of Bindery Machine Sewing Section. Also, form system of adjusting GPO wages. for the first time in the 60 years of Office history, The current wage adjustment procedure a woman was appointed secretary to the Public required some reform so as to meet new Printer in the selection of Mary A. Tate. conditions, for there was constant in- equality between the statutory wages for New Financial Plan printers, pressmen, and bookbinders, and the discretionary wages fixed by the Pub- In 1921 the Public Printer had recom- lic Printer for all other crafts, including mended a “one fund’’ plan for depart- bindery workers. mental printing appropriations. This A bill pending in the Senate provided year he reported with “much gratifica- that wages of all skilled and unskilled tion that Congress * * * adopted substan- workers should be subject to discussion tially all of the recommendations * * * for between the head of an establishment revising and making more businesslike similar to the GPO and a trade represen- [GPO] fiscal affairs * * *.’’ He had rec- tative. The bill failed to pass. ommended that— 105 the antiquated method of handling part of the that is not made by the GPO. All the type, elec- printing appropriations by means of allotments trotypes, stereotypes, type metal, inks, rollers, through this Office be discontinued and -there glue, and paste used in the GPO are manufac- after all printing appropriations be made to the tured in this Office. various departments, with simply a sufficient direct [GPO] appropriation to provide it with a He also anticipated the new photoen- working capital until other funds were available by repays from departmental appropriations * * *. graving section which would produce line-cuts and halftones in 1923. The plan was adopted by Congress ef- He insisted that a GPO papermill fective July 1. The Office received a di- “supplying 135 square miles of paper ev- rect appropriation of $2 million as work- ery year is not a radical innovation or the ing capital for the year, against which it idle dream of a Government-ownership was authorized to charge all printing and enthusiast.’’ binding done for Congress in an amount In 1916, as clerk of the Joint Commit- tee on Printing, he had drafted a bill for not to exceed that sum. At the same time such a purpose. Similar bills had been in- it authorized departments to incorporate troduced in almost every Congress since, all printing items in one appropriation, in but without success. Mr. Carter noted contrast to the former allocation method that the Nation owned vast national for- which was usually supplemented by jug- ests, and that— gling other nonprinting funds. Congress also adopted another recom- Government timber could be cut into Govern- mendation to consolidate Office leave ment pulp wood for the making of Government funds, formerly provided in deficiency pulp, from which, with the aid of Government water power, there could be manufactured Gov- appropriations which supplemented the ernment paper upon which to print Government regular printing appropriation. A fur- publications by a Government plant that has ther fiscal change involved the printing been in operation at Government expense for of congressional speeches. From $75,000 more than 60 years. to $150,000 a year had been turned over to the Treasury as miscellaneous receipts Improved Purchasing Procedures for this printing, but the expense was a dead loss to the GPO, for the production In addition to a Government paper- costs were charged against other Govern- mill, he offered other paper recommen- ment printing. This expense under the dations. He noted that paper needs in law would now be charged against con- the preceding year took 37 cents of every gressional working capital. printing dollar, but the current cost was 27 cents. With the Office using from 40 Control Over Periodicals to 50 million pounds of paper each year, there was also need for centralized pur- On May 11, Congress vested in the chasing, a central warehouse, and better Bureau of the Budget the authority to standardization of specifications. approve the printing of departmental He found that various Government periodicals. agencies, including the GPO, were com- peting with each other, often purchas- ing the same grade of paper from the GPO Pulp and Paper Mill same contractor at various prices. Even the Clerk of the House and Secretary of Mr. Carter reported serious consider- the Senate bought paper for Members ation of the establishment of a GPO paper of Congress. Therefore a central agency mill. He stated that— should be set up to purchase paper on one paper is the only material, aside from cover schedule according to a single standard cloths, entering into the production of a book of specifications, inspected in a uniform 106 manner, and stored in a central ware- the Government and contractors doing business house for issue to the various branches with the GPO. * * * The work of the section bids fair to become one of the outstanding features of Government. He excluded, of course, of the GPO, and the results of its investigations paper for printing U.S. currency. * * * of inestimable value to the printing trade in general. Testing Section Created Fire Menace The Printing Act of 1895 required that the Public Printer— The Public Printer “again most seri- ously invited’’ the attention of Congress shall compare every lot of paper delivered by any contractor with the standard of quality fixed to the inherent fire hazards of the old upon by the Joint Committee on Printing and building. He stated: shall not accept any paper which does not con- form to it in every particular. If a fire once got underway, * * * nothing could stop the flames until they had wiped out, not only the old building but also the new build- Many former Public Printers had com- ing and the Documents Office as well. plained of poor-quality paper, and the act attempted to set up better controls. Origi- He added: nally, paper samples were tested by other Government departments, particularly Government would come to a standstill, and the Bureau of Standards and Department Congress would have nowhere else to go for the of Agriculture. These bureaus were re- timely printing of the Congressional Record and bills, reports, and other papers required in the mote from the Office and were preoccu- course of legislation. pied with their own work, with the result that sometimes “our big presses had to be In summary, he suggested that the held up for hours * * * awaiting reports Government owned the land on which from the outside laboratories.’’ the new building could be erected; that Faced with testing problems of paper the necessary $3,500,000 for the new and other printing materials, Mr. Carter building had been offset by 2 years’ sav- established a Testing Section on April 5, ings of $4,413,962 in unspent appropria- 1922. Organized with six employees and tions returned to the Treasury; and that a yearly outlay of $13,000, the Section there was “yet time to save this great slowly expanded to conduct research and establishment from destruction by fire tests on paper, type metal, printing and which seems inevitable sooner or later.’’ stencil inks, bindery adhesives, detergents, lubricants, textiles, leathers, threads, and “Style Manual” Revision other printing and binding materials. It set an example for commercial industries The Style Manual received a thorough and trade associations, and in later years revision. Approved by the Joint Com- worked in cooperation with these groups. mittee on Printing and the Permanent The Section produced immediate sav- Conference on Printing, the Manual was ings which overcame the total cost of the instrumental in reducing authors’ altera- laboratory by manufacturing a stencil ink tions. for Government use at a cost of 32 cents There had been no revision of the Man- a pound, compared with $1.95 to $3 a ual for 9 years and the style of Govern- pound from commercial sources. ment printing had seriously deteriorated The Public Printer noted that the Sec- through lack of uniformity and disregard tion— of the rules for good printing usage. A had already aided materially in bringing about a Board of Revision [later the Style Board] more cordial feeling and understanding between was designated by the Public Printer to 107 study the best authorities on writing and mitted to copyright and sell them to the printing. Accepted as official style by public at a generous profit. all departments of the Government, the Manual would “insure greater unifor- mity of style and serve as a model for all good writers and good printers’’ (see also 1923 “1933, Revision of Style Manual’’). The fiscal year 1923 proved to be one Documents Expanded of the most important in GPO history. By an aggressive and progressive improve- By act of Congress approved May 27, ment program, the Office inaugurated the Superintendent of Documents was new divisions and procedures designed given authority to print and sell, with- to increase its usefulness to Government out limit, any Government publication. and the printing industry in general. By Thus the Superintendent of Documents establishing the Photoengraving, Test- became the “greatest book salesman in ing, and Planning Divisions; by purchase the United States.’’ of more efficient machinery; by expand- The Superintendent of Documents ing its apprentice training facilities; by noted that the production of Government introducing the first wage collective- publications in the last 13 years was twice bargaining procedure, resulting in the as large as the number issued in the 121 Kiess Act in 1924—these and many other years of Government from 1789 to 1909. measures were aimed toward creating a bigger and better GPO. New Power Source Department Printing Funds On July 1, Congress approved a plan which permitted the Office to receive its Beginning this year, printing appropri- power from an enlarged Capitol Power ations were made direct to departments, Plant. In one step, it avoided replacement as compared to the old system of making of rundown boilers and also eliminated the entire printing appropriation to GPO the burden of supplying free power to and then allotting portions of this fund the Post Office. The practical abandon- to various departments. This radical but ment of the GPO plant produced a daily commonsense plan was proposed by Mr. saving of 1 million gallons of water, pro- Carter and accepted by Congress. The vided much-needed space for storage and GPO, under the new procedure, received carpenter and paint shops, and a decrease working capital against which only con- of employees by 42 men. gressional printing could be charged. All work now performed by the Office, ex- Printing of “U.S. Reports” cept for Congress, was placed on a repay basis and handled in the same manner as By direction of Congress in an act ap- though the Office were a private printer. proved July 1, the Office undertook the The method was more businesslike, more printing and sale of the official Reports satisfactory, and simpler in operation, of the U.S. Supreme Court. Ever since and compelled departments to scrutinize the Supreme Court was established, its more closely their printing expenditures reports had been published by a private and publication orders. company. Although the GPO had been Congress also accepted Mr. Carter’s capable of doing this work for many recommendation that departments be years, the Government had to procure all provided with only one fund for print- reports from the publisher, who was per- ing and binding, contrasted to the former 108 GPO allotment and separate department ing many pages of useless statistics in his appropriation. By so doing, printing ac- own reports. From a cost of $17,404.06 counts were greatly simplified and better for GPO annual reports 1918–20, costs supervision was maintained over expen- for 1921–23 were reduced to $1,155.42. ditures. The Public Printer said: “Known as the largest printing plant in the world, it New Paper Standards

[GPO] shall also be known as the most ef- 1 ficient plant in the world.’’ By adopting a uniform 8- by 10 /2 -inch letterhead, $50,000 a year was saved; also, with approval by the Joint Committee Words of Praise on Printing, millions of envelopes for congressional mail were reduced from 12 Contrary to the general belief that to 4 sizes. commercial printers viewed with alarm the continued growth of the GPO, the United Typothetae of America, com- Postwar Printing posed of the employing printers in the United States and Canada, passed the The return to peacetime by the Army following resolution: and Navy was shown by total defense printing costs of $967,153.42 in 1923, Whereas the Public Printer [George H. 1 compared to the printing bill of $4 /2 Carter] has in so many ways evidenced a sympa- thetic and intelligent understanding of the prob- million in 1918. In contrast, Veterans’ lems confronting a Master Printer; and Bureau printing requirements jumped Whereas through the solution of the problems from 315,000 copies in 1922 to 3,402,000 in the GPO our problems are rendered less dif- in 1923. ficult; and Whereas his program for the selection and de- velopment of apprentices is progressing in such a favorable manner, an excellent example for us Photoengraving Section to follow; and Whereas the GPO is a striking illustration of For the first time, the GPO became self- what can be accomplished with less government sufficient by producing its own engrav- put into business and more business put into ings and illustrations. A modern Photo- government; and Whereas the Public Printer, assisted by his engraving Section was established on staff and associates, has done so much to make the new eighth floor at a cost of $17,000. this convention an enjoyable and memorable one Since the beginning of the GPO in 1861, for all in attendance: Therefore be it all engraving work was produced in pri- Resolved in convention assembled, That the sincere thanks of this convention be, and are vate plants scattered throughout the East hereby, extended to the Public Printer. and Midwest. In 1922, engravings and illustrations purchased from the industry totaled $277,260. Annual Reports Reduced

In 1921 Congress authorized depart- Equipment ments to discontinue or curtail the print- ing of annual reports. The cost of print- The Office continued to grow, ing these reports fell from $360,436 in with printing equipment estimated at 1920 to $207,721 in 1922, for a saving of $3,235,053 at 1923 market prices. In ad- $152,715. Printed copies for this period dition to 167 printing presses ranging fell from 481,700 to 370,904. from 64-page rotaries to small job presses, The Public Printer also conformed to there were 99 slug-casting machines, 100 the annual report economy by eliminat- Monotype keyboards and 126 casters. In 109 the bindery, there were 52 booksewing General Pershing Linotype machines; 35 folding machines; and 2 combined gathering, stitching, and cov- Among the slug-casting machines re- ering machines. ceived was the famous General Pershing Congress approved the Office’s request Linotype. for an increase in new machinery author- In 1918, with the outbreak of World izations from $100,000 to $200,000, but War I, General Pershing set up a print- because of exorbitant prices demanded ing plant in Chaumont, France. A Model for new machinery, less than one-third No. 5 Linotype of American manufac- was expended. ture was found in a small French print- ing office. The machine was inducted into service, although it had to be con- New “Record” Presses verted from a French keyboard to Eng- lish, and its slugs increased from French The outstanding transaction of the height to American height. Placed on a year was the purchase of two 64-page motortruck, as part of a mobile print- web presses for the Congressional Record and similar-size publications. Greatly ing plant, it accompanied the troops needed for a long time, these presses throughout the course of the war, always cost $122,350, with each press capable of close to the battlefront and several times producing 12,000 64-page Records per subjected to heavy shellfire. After the Ar- hour. They supplanted a 64-page press in mistice, it was dismantled and shipped to constant operation for 21 years, and two Camp Humphreys, Va. Later transferred 32-page presses which were 29 and 38 to the GPO, it now set congressional bills years old. The new presses incorporated instead of Pershing’s war orders. Retired pasters and wire stitchers, and could be from active service in 1926, it stands in a operated in 32-page units, and gather place of honor in Harding Hall. in signatures of 8 to 64 pages. A special Record pressroom, close to trimmers and Paper Supply and Standards mailers, was set up on the second floor, with nearby conveyors which required The GPO received 949 carloads of only 5 minutes to reach the post office paper during 1923. With an accurate in- and on to outgoing trains for all mailed ventory system, paper requisitioning was publications. rapid and production speeded. The Per- manent Conference on Printing, working in cooperation with the Public Printer, Surplus War Material endeavored to centralize the purchase of Government paper and also to standard- Through the cooperation of the Joint ize paper specifications, with storage in Committee on Printing, Bureau of the a central warehouse. Paper standardiza- Budget, and other Government agencies, tion had been the rule for 30 years, and the Office was the recipient of war-sur- was based on standards fixed by the Joint plus machinery, equipment, and supplies Committee on Printing. Action on the valued at $263,000. proposal was designed to extend these This gift consisted of eight presses, quality standards to overall Government five slug-casting machines, and nine paper supplies, for the GPO bought 10 trucks, plus great amounts of paper times more paper than all other Govern- stock and about 3 million envelopes, ment agencies combined. with the latter eagerly accepted by the Office efforts to standardize paper re- Superintendent of Documents for mail- ceived warm support from the paper indus- ing publications. try and the United Typothetae of America. 110 Planning Division After initial typesetting indoctrination—

On May 1, a Planning Division was for patriotic motives, the boy’s first copy consists of Washington’s Farewell Address, Jefferson’s created under the general supervision of Eulogy of Washington, Lincoln’s Gettysburg a Production Manager. Combining the and Inaugural Addresses, and the “Star-Span- Estimating and Jacket Writing Section gled Banner.’’ functions, in addition to simplifying sizes of publications and selection of suitable With this introduction to practical grades of paper, the new Division became typesetting, the boys received on-the-job the control center of the Office. training in production divisions. Few craftsmen anywhere could boast of such an all-round and comprehensive edu- Administrative Offices Changed cation in all phases of printing. After 4 years of training, apprentices were pro- For the first time since occupancy of the moted to journeyman status. 1903 building, administrative offices were rearranged in the interest of better and Wage Bill more efficient transaction of public busi- ness. The Deputy Public Printer’s office The Office was in need of additional was moved from the second to the third competent workmen, particularly in the floor. The Chief Clerk was transferred to printing trades. With the present wage space vacated by the Deputy Public Printer, scale fixed by law, it was impossible to and the Public Printer moved into the retain some of the best workers or to at- Chief Clerk’s old quarters. tract other skilled men to fill their places. Higher pay scales elsewhere caused many Apprentice School Expanded resignations, with the additional factor of “outrageously high rentals exacted by the On July 5, 1922, the Apprentice School local real estate combine.’’ had opened its doors. In 1895 there were In 1922, upon recommendation by Mr. only a few hundred journeymen in the Carter, a collective-bargaining wage bill GPO, as compared with the more than was reported favorably by the House 1,500 at the present time. Even under Committee on Printing. No action was union rules the Office was entitled to ap- taken by the House because of the closing proximately 200 apprentices. Mr. Carter rush of business. therefore recommended an increase to The wage bill was reintroduced in 200, which Congress adopted on Febru- 1924, after conferences between the Pub- ary 20, 1923. lic Printer and a scale committee of nine The act also provided for a waiver of members, three each from the printers, the 20-year maximum age limit for ap- pressmen, and bookbinders. The new prentice war veterans. bill incorporated an additional provision On July 11, a second apprentice exami- for the right of employees to select a wage nation was held, with 84 qualifying out committee to act in wage conferences, of 104 candidates. Appointments were with the privilege of appeal by either made to 82 apprentices, with periodic in- party to the Joint Committee on Printing creases until the authorized 200 were in for final decision. training. Referendum votes were held, and all Schoolrooms were set up with neces- crafts, except the printers, agreed. Hear- sary printing equipment. Competent in- ings were held, and the bill was favorably structors were provided, but attendance reported again. (See “1924, Kiess Act at local night schools was compulsory. Passed.’’) 111 New Building Needed tertainment program was termed “An Evening With the Public Printer.’’ A The perennial problem of the need for one-act play entitled “Laying the Case’’ a new building to relieve extreme space was presented by printer-actors, with the shortages and overcrowding was high- cast including one Slip Sheet, a banana lighted in spectacular fashion by two fires merchant, and Type Hi, a royal laundry- in the old building. The fires were be- man. lieved to be of incendiary origin, and the annually expressed fear of fire destroying the old building, with possible destruction of the new building and documents ware- house, came close to reality. Such destruc- 1924 tion would have disrupted many of the essential activities of Government and the After the exciting improvements made timely printing of the Congressional Record in 1923, the GPO proceeded to consoli- and bills, reports, and other legislative pa- date the advantages created by new divi- pers. All necessary printing would have sions. Increased production and reduced been halted until a new plant could be waste were the themes of the year, with erected over the ashes of the old. The Pub- continued efficient service to Govern- lic Printer strongly recommended early ment. and favorable consideration by Congress. Money Order Forms Cafeteria Anniversary More money order forms for the Post On January 23, the new cafeteria was the Office were printed than in any year scene of a banquet celebrating its first an- since the Office began this work 17 years niversary. The Washington Herald noted ago. Totaling 189,692,000 forms, the de- that 1,000 employees attended the banquet mand was regarded as the best and sur- to honor Public Printer Carter, who was est barometer of business conditions and “responsible for establishment of the eating general prosperity in the country. place.’’ Speeches, “musical features,’’ and dancing completed the program. Bonus Bill A job of special urgency and impor- First Annual Outing tance was the printing of over 40 million forms required by the Soldiers’ Adjusted As part of the new policy of better em- Compensation Act (bonus act). Fifty ployee welfare, the Cafeteria and Recre- percent of the huge order was printed, ation Association sponsored the first an- wrapped, and mailed in 10 days, with the nual outing of Office employees on July balance on its way 20 days later. 23 at Chesapeake Beach, Md. Employees were invited to “bring the whole family Congressional Printing and have a good time,’’ which included “bathing, dancing, boating, fishing, and The printing requirements of the Con- crabbing,’’ in addition to prizes for “all gress were heavy. The Congressional Re- kinds of athletic games.’’ cord exceeded all other years with a total of 19,475 pages. Bills totaling 17,547 were Office Becomes a Theater printed during the year, with 1 bill mak- ing a volume of 400 pages. Hearings on On October 24, the GPO served as host the Attorney General and Teapot Dome to the United Typothetae of America matters required 3,418 and 3,579 pages, convention held in Washington. The en- respectively. 112 Blank Paper Kiess Act Passed

By act of June 7, Congress con- On June 7, the Kiess Act became solidated practically all Government law. It authorized the Public Printer to blank-paper business under the su- regulate and fix rates of pay for GPO pervision of the Public Printer. This em-ployees by a wage conference with added 5 million pounds to the 40 mil- each of the trades. The bill was passed lion pounds of paper purchased by the without a dissenting vote and ended the Office, with charges to departments of traditional role of Congress in fixing the over $400,000. pay of printers, pressmen, and book- binders at long and irregular intervals. The committee report stated:

Office Breaks Permit Frauds It does not seem at all feasible for Congress to undertake to establish specific wages for all The Department of Justice and Bureau printers, job compositors, proofreaders, linotype operators, monotype keyboard operators, revis- of Internal Revenue made quick and ers, imposers, makers-up, copy editors, platen profitable use of the new Testing Sec- pressmen, cylinder pressmen, web pressmen, tion. Vast quantities of whisky had been press feeders, bookbinders, rulers, bookbinder illegally withdrawn from bonded ware- machine operators, electrotype finishers, elec- houses by the use of counterfeit with- trotype molders, stereotypers, photoengravers, machinists, knife grinders, saw filers, castermen, drawal permits. Experts agreed that the carpenters, cabinetmakers, electricians, plumb- permits used were counterfeits of the ers, engineers, and numerous other trades re- genuine permits printed by the Office. The quired in the operation and maintenance of the Testing Section provided vital testimony GPO. The wages and compensation for these various groups ought to be determined in the that the counterfeit paper varied from all- same manner as any large industrial concern ne- wood pulp to 95 percent rag content, but gotiates with its employees. GPO paper used for printing contained only 50 percent rag stock. In addition, The legislative landmark in Govern- paper watermarks on the counterfeits ment labor relations follows: were printed in the wrong direction. Convictions were obtained by this evidence. The Public Printer may employ, at such rates of wages and salaries, including compensation for night and overtime work, as he may deem for the interest of the Government and just to the persons employed, except as otherwise provided Labor Supply Problems herein, such journeymen, apprentices, laborers, and other persons as may be necessary for the A 31-percent labor turnover occurred work of the GPO; but he shall not, at any time, in 1924, due chiefly to difficulty of get- employ more persons than the necessities of the ting and retaining printers at rates public work may require or more than two hun- dred apprentices at any one time. The minimum fixed by law. The situation became so pay of all journeymen printers, pressmen, and serious that in September, 20,000 post- bookbinders employed in the GPO shall be at ers were distributed throughout the the rate of 90 cents an hour for the time actually country, and displayed in every first-, employed. Except as hereinbefore provided, the rate of wages, including compensation for night second-, and third-class post office. and overtime work, for more than 10 employees Posters were also mailed to libraries, of the same occupation shall be determined by schools, and labor organizations, in ad- a conference between the Public Printer and a dition to distribution by the Veterans’ committee selected by the trades affected, and the rates and compensation so agreed upon shall Bureau and the Department of Labor. become effective upon approval by the Joint Over 1,000 letters were received, and Committee on Printing; if the Public Printer 148 printers were obtained. and the committee representing any trade fail 113 to agree as to wages, salaries, and compensation, either party is granted the right of appeal to the 1925 Joint Comittee on Printing, and the decision of said committee shall be final; the wages, sala- ries, and compensation determined as provided New Patents Section herein shall not be subject to change oftener than once a year thereafter. Employees and officers of the GPO, unless otherwise herein fixed, shall Printing for the Patent Office was now continue to be paid at the rates of wages, salaries, the biggest single job in the GPO, with and compensation (including night rate) author- 50 to 60 slug-casting machines working ized by law on June 7, 1924; until such time as 8 hours a day throughout the year. To ex- their wages, salaries, and compensation shall be determined as hereinbefore provided. pedite production, a new Patents Section was created on October 1, with 40 slug- Higher wages established under the casting machines, supplemented by the act made it possible to attract and retain Linotype Section, and 4 cylinder presses, all devoted to specialized patent printing, competent workmen, with new scales and within the framework of inflexible comparing favorably with commercial time schedules. rates. In addition to wage rates, the act for the first time authorized time and a Post Office Work half for overtime and a 15-percent bonus for nightwork. A record-high volume of 1,595,376,890 The establishment of wages, as provided postal cards was produced this year. Aver- in the Kiess Act, is limited to rates of pay, age daily card production was 22 million, and is conducted between the Public with a single-day record of 26 million. This Printer and committees of employees was made possible by three new postal-card representing the various crafts. Rates presses, marvels of production and me- agreed upon must be approved by the chanical perfection. Each press produced Joint Committee on Printing before they 6,400 cards a minute, and together over 7 can be made effective and, in case of fail- million for an 8-hour workday. ure of the Office and employees to agree, Money order production also reached the Joint Committee on Printing makes a new high, with 220,500,600 forms. The the final decision. Wages for non-craft enormous volume of Post Office work groups are set by the Public Printer at fig- required the localization of this work on ures derived from wage studies covering one entire floor. industry and Government. Type Production Increase in Printing Charges With the largest battery of typesetting The passage of the Kiess Act increased machines in any printing plant in the wages by $1,150,000 annually and neces- world, the GPO produced 2,128,394,700 sitated a 14-percent increase in printing ems of type which, if stretched out in av- charges for congressional and depart- erage newspaper column width, would mental work, and an estimated additional make a string 210 miles long. This type- 3 percent on July 1, 1924. producing unit consisted of 147 slug-cast- ing machines, 120 Monotype keyboards, Apprentice System Expanded and 126 Monotype casters. It required 275 proofreaders to read Apprentices now receiving printing in- this type production, but if one indi- struction numbered 133. A third entrance vidual were to read Government word examination was held March 26, provid- volume, he would have to outlive Methu- ing an additional eligible list of 168. selah, and even then lose ground to the 114 continuing flood from the vast army of on Printing. Guests of honor were the Government writers. daughter and son of the first Superinten- Another gage of Office capability would dent of Printing, John D. Defrees. be the production of the Holy Bible, in- President Coolidge wrote: cluding the Old and New Testaments, in 1 day. By using all available employees and * * * Starting in a small way in the adminis- 1 tration of President Lincoln, your office has come machines, the required 3 /2 million ems of to be one of the important factors in the quick type could be set in 6 hours, with press- dispatch of Government business. It is said to be work and binding performed in 18 hours. not only one of the largest plants of its kind in the At least 1,000 copies, bound in cloth, could world but also one of the most efficient. Its per- be delivered in 40 hours. sonnel may well be proud to maintain that record. Likewise, the paper used for the Con- Please extend to them my greetings gressional Record in the 1st session of the and best wishes. 69th Congress, cut into a strip of Record- width size, would make a band 37,232 Congressional Printing miles long, or encircle the earth at the Equator and halfway around again. Congress became the largest customer of the GPO, superseding the Post Office. New Division Created The 1st session of the 69th Congress re- quired more printing than any other 1st On December 29, the Buildings Di- session, and exceeded the work produced vision, which was charged with the for many entire Congresses. maintenance and upkeep of buildings, For the first time the Congressional machinery, and equipment, became the Record was published on two new web Construction and Maintenance Division, presses, which, together with the three under a Superintendent. old Record presses, permitted the Office to produce a 256-page Record. In spite of Baseball Anniversary night sessions and an unusual quantity of tabular matter, the Record was delivered This year marked the 50th anniversary on time, except in eight instances. of the National Baseball League. John A. A record-breaking number of 18,885 Heydler, its president, had been a GPO separate bills was introduced in the first compositor from February 15, 1889, to session. The initial printing of bills was June 30, 1893. In addition, he had been only the beginning, for each bill under- a “valued and esteemed member’’ of the went many alterations in the legislative GPO baseball team. process, with changes in committee, on On Mr. Heydler’s visit to the GPO this the floor, and in conference requiring year, he was escorted through the shop many complete reprintings. by Mr. Carter. On April 8, the Office re- In addition to the Record, bills, hear- ceived a gift of six Golden Jubilee base- ings, calendars, etc., the GPO produced balls for the 1925 GPO team. the new Code of Laws of the United States. One volume of 1,718 pages was set, proofread, revised, printed, and 1926 bound in 17 days after order. New Building Authorized On March 4, the Office celebrated its 65th anniversary in Harding Hall. Con- The first break in the critical space gratulatory addresses were delivered problem occurred when Congress author- by members of the Joint Committee ized $1,250,000 for an eight-story build- 115 ing on G Street NW., west of the pres- belatedly assured itself of a steady supply ent main building. The old building on of well-trained craftsmen. North Capitol and H Streets NW., how- ever, remained a fire menace. Sesquicentennial Award

Modernization—and Offset The Office was awarded a Gold Medal of Honor for its printing display at the The Public Printer noted that GPO 1926 Sesquicentennial Exposition in manufacturing equipment could not re- Philadelphia. main static. “Modernization’’ was the constant keyword in 1926, and 20 new Public Printer Travels presses, including 2 large offset presses [GPO’s entrance into offset field], 48 new Mr. Carter visited England, Germany, model slug-casting machines, fifty 90-em Italy, and France to study machinery, scale Monotype keyboards, and numer- paper, leather, ink, type metal, and other ous new machines for the platemak- printing elements used in foreign print- ing and photoengraving sections were ing and binding. Many plants were installed. Monotype casting machines visited, including the sister Government were equipped with electrically heated printing offices of England, France, metal pots, and the conversion from gas Germany, and the Vatican. to electricity removed the unsightly over- head flues. Slug-casting machines were Laborsaving Book equipped with automatic metal feeders. The Bindery received a new case-mak- To expedite typesetting production, ing machine with a capacity of 12,000 cloth- a small book entitled “Syllabication,’’ bound covers daily, compared with 2,500 a guide to proper word division at line covers produced by the old machines. ends, was issued to Office printers. [In Presses received automatic feeders, 1958, General Services Administration with a total 5-year reduction of 45 hand- ordered 100,000 copies for typists in Gov- feeders. In addition, dehumidifiers were ernment. ] installed to improve atmospheric condi- tions and to reduce static problems in paper handling. The metal room acquired a 5-ton pot to 1927 reprocess old type and plates, producing almost 8 million pounds of new metal. After an investigation into District of Columbia government printing because First Apprentices Graduated of poor quality and high cost, the Federal Bureau of Efficiency authorized all Dis- Twenty Office-trained apprentices suc- trict printing to be placed in the GPO. cessfully completed a 4-year training pe- riod, thus achieving journeyman status. Testing Unit Reorganized The first graduating class consisted of 16 printers, 2 electrotypers, 1 stereotyper, and The value of the Testing Division to 1 machinist. After many years of public the Office and the printing trade was printing, the GPO had produced its own recognized by the Public Printer. On journeymen. Somehow the GPO had August 16, the Testing Section was re- overlooked the centuries-old trade custom organized and a Technical Director ap- of indenturing young men as printing ap- pointed, with the new unit designated prentices, but in this manner the Office as the “Division of Tests and Technical 116 Control.’’ Research in printing mate- in whole or in part for any proper purpose, pro- rials and paper investigations were to be vided that the reprint is clearly distinguishable from the official publication and due credit is continued, together with the manufac- given to the Government unit which prepared it. ture and supply of ink, type metal, press rollers, and bindery glue. 1929 1928 Strikes and foundation troubles de- layed the occupancy of new building west Work continued on the new building of main building on G Street. The Public west of the main building and extending Printer suggested timely consideration to Jackson Alley. The building consisted for a new building to replace original of eight stories, a basement, and one-story 1856 building at North Capitol and H garage. According to the Washington Star, Streets NW. Estimated cost, $4 million. GPO floorspace would approximate the Woolworth Building in New York City, Printing Procurement the world’s largest skyscraper. Congress authorized the Office to pur- Saturday Declared Holiday chase printing from outside sources. This The Office worked an 8-hour, 6-day work consisted of tabulating cards which workweek, totaling 48 hours. With 30 the Office could not produce and other days’ annual leave, plus legal holidays, specialty work, including maps. This and Saturday half holidays during sum- authority was later expanded to meet mer, the actual workweek averaged 41 World War II printing demands. hours. By act of Congress, full Saturday Mr. Carter noted that the wartime holidays were granted, reducing the av- printing production record in 1919 had erage workweek to 38.4 hours. been exceeded by the 1929 peacetime printing product. Notwithstanding vast Monotype Leaded Composition production of wartime printing and binding, a much smaller force estab- On August 1, production of machine- lished new records for nearly every class leaded monotype began, avoiding task of of work. hand leading and reducing lead casting. Watermark Adopted Government Publication Rules The Joint Committee on Printing The Superintendent of Documents is- adopted an Office recommendation sued the following rules: for watermarking rag-content paper, Names or advertisements cannot be printed beginning March 1, 1929. A watermark on publications sold by Superintendent of Docu- consisting of a U.S. seal and four open ments. stars indicated 100 percent rag content; Special covers with advertisements cannot be added to Government publications. three stars, 75 percent; two stars, 50 per- Government official seal and imprint cannot cent; one star, 25 percent. be used in commercial reproductions of Govern- ment publications. Congressional Speeches Purchasers adhere to public sales price. Although Government publications are in the public domain and cannot be copyrighted by the The Joint Committee on Printing Government, it is permissible to reproduce them authorized the Office to imprint “Not 117 printed at Government expense’’ on re- Greatest Patent Workload prints of Members’ speeches derived from the Congressional Record. Without notice from the Patent Office, the GPO found itself almost overwhelmed Authors’ Alterations by a flood of patent specifications. Effec- tive June 1, an increase in patent fees in- Corrections made after typesetting cost duced the Nation’s inventors to beat the $215,000, with one congressional publica- fee deadline. Contributing to the rush was tion requiring almost $17,000 in changes, a Patent Office requirement that specifi- more than entire charge for setting the cations should be printed the fourth week original copy. The Permanent Confer- after approval. The giant issue of the June ence on Printing and the Bureau of the 24 Official Gazette contained 3,174 patents, Budget, recognizing this waste, stated: 4 times the normal number. The practice of many authors of making cor- rections after page (and galley) proof has been Blankbooks submitted by the printer has again been brought to the attention of the conference. While inves- The printing acts of 1895 and 1919 re- tigation shows that this evil is being corrected quired that in addition to printing and gradually, there is still room for improvement, and those who submit manuscripts for printing binding, “all blankbook work shall be are again asked to so prepare their copy that ex- done at the GPO.’’ In spite of the law, tensive changes will not be necessary after the departments were procuring blankbooks material has been put in type. from outside sources. Through a study made by the Permanent Conference on Printing, and the reaffirmation of print- ing laws by the Joint Committee on 1930 Printing on February 28, 1929, all blank- book work was restored to GPO. By the New Harding Hall adoption of 19 standard blankbooks in place of 375 varieties formerly used, im- In 1929, the Joint Committee on Print- portant savings were effected. ing had authorized the hall’s enlarge- ment. Low ceilings, center columns, and “Record” Receives New Format small seating capacity had limited its usefulness, and on May 23, 1930, a new The first change inCongressional Record hall seating 1,800 was dedicated. In atten- type dress since the replacement of hand dance were Members of Congress; many composition by typesetting machines in labor and printing industry officials; 1904 was made this year. Herbert Putnam, Librarian of Congress; From the beginning of Record produc- Frederic W. Goudy, famous type designer; tion in 1873, only minor changes had and Maj. Thomas Defrees, son of the 1861 been made in the original format. Ap- GPO Superintendent. proved by the Joint Committee on Print- ing, the new type dress introduced an New Art Service entirely new and more legible typeface, with greater readability and better typo- To design distinctive publications, two graphic appearance. printing designers were added to the staff, thus providing an art service for Tariff Printing departments and enabling the Office to keep pace with progress in the graphic Beginning in late 1929 and extending arts. into early 1930, the new Smoot-Hawley 118 tariff law revision made its impact on the Money for New Equipment Office. Requiring the greatest amount of printing in the history of legislation, On recommendation of the Public the hearings, bills, reports, and other Printer, Congress increased yearly au- documents made “tariff’’ the dominant thorizations for new equipment from note in the GPO. Hearings alone totaled $200,000 to $300,000, thus providing 20,033 type pages, and tariff debates in funds for new and more efficient ma- both Houses filled 2,800 pages of the chines to replace obsolete equipment. Congressional Record. Final proofs of the With additional money for equipment, completed bill, including 1,253 num- the Bindery and Platemaking Division bered Senate amendments, reached the received up-to-date machinery. Fifteen Office at 6:50 p.m., Monday, March 24, high-speed presses were purchased in 1930. Totaling 535 pages, 1,500 copies of addition to 34 Monotype casters and 10 the largest bill printed in any congres- keyboards. sional printshop reached the Capitol at 7:30 a.m. the next day, with the balance Magazine Web Presses Installed of the total 10,742 copies delivered 31/2 hours later. There was also installed in July of But the tariff struggle was not over. this year, the first of four magazine web Copy for comparative tariff tables presses, delivering 64 pages in complete reached the Office the same day [March signatures. [These four presses were all 25]. Tabular composition, the most diffi- installed in a 16-month period—the sec- cult typesetting chore of a printer, requir- ond in September 1931 and the third and ing 111 pages of 20-inch depth struck the fourth in November 1932.] already weary tariff printers. Proofs sent out 2 days later were returned the second Constitution Anniversary night following, with delivery of 1,000 copies made to the Capitol at 8 a.m., the By direction of President Hoover, GPO second day thereafter. employees received a half-day holiday on Friday, September 17, for the observance Superintendent of Documents of the 150th anniversary of the signing of the Constitution. Notwithstanding the general business recession, almost 69 million copies of Saturday Half Holiday Government publications were distri- buted for Congress and the departments. For several years, Government work- In addition, 81/2 million copies were sold ers enjoyed Saturday half holidays dur- in spite of the poor economic climate, ing the 4 summer months, but GPO em- with sales $477,000 greater than in 1929. ployes were not included. On urging by the Public Printer, Congress expanded New Building Occupied the provisions of the act, placing the Of- fice on a 44-hour, 51/2 -day week. On August 20, a modern, eight-story building was turned over to the Public Civil War Veterans Printer. Many divisions, including the apprentice, offset, and photoengraving The Office employed many veterans of sections, happily escaped from cramped the Civil War. The distinction of being the quarters to brand new and spacious last GPO Civil War veteran was awarded workrooms. The extension brought total to Capt. Samuel G. Mawson, who retired floorspace to 954,000 square feet. a few years ago. 119 1931 Printing Industries Conference On March 16 and 17, the GPO was Because of reduced overtime and the host to an international printing confer- hiring of unemployed printing work- ence attended by 374 printing experts and ers, average earnings in the GPO were engineers. Cosponsors were the Print- reduced $116.17 this year. The decrease ing Industries Division of the American was accepted willingly by employees who Society of Mechanical Engineers and were glad to be relieved of longer hours the United Typothetae of America. The and eager to share their jobs with depres- theme was on research in the industry, sion victims. In addition, the employees with all sessions held in the Office. It fur- contributed thousands of dollars to un- ther strengthened the role of the GPO in employment relief funds of trade and the trade, and its cooperative efforts with social groups. scientific and trade groups for improved The Public Printer urged Congress to standards and consideration of problems permit a 40-hour, 5-day week, and the of mutual interest. trade unions thanked him for a 51/2 -day workweek and for campaigning for a “Globe” Finally Dies 5-day week. He also opposed a move to reduce wages, pointing to corresponding The last surviving relic of the printing loss of efficiency and morale in “the most of congressional proceedings by private energetic organization in the Federal ser- contractors passed from the possession vice.’’ In addition, Office employees, dur- of the GPO this year. Known as the ing World War I, had performed long Congressional Globe vault, the two-story and arduous warwork instead of yield- brick structure was located in an alley- ing to the allurement of higher wartime way between Third and Fourth Streets wages elsewhere. NW., close to Pennsylvania Avenue, and near the old Globe building. The Globe, Congressional Printing supplanted by the GPO-printed Con- gressional Record in 1873, was the offi- The largest single Congressional Record cial record of congressional proceedings of 256 pages was printed in 1 night. With since 1853. the Senate adjourning at 3 a.m., March 4, In 1878 Congress had appropriated 6,000 copies were printed and delivered $100,000 for the purchase of the vault, by 8 a.m. A previous Record of 366 pages including 70,000 Globe plates and a in 1914 required several days’ work be- quantity of bound and unbound vol- fore issuance. umes. A new 64-page web press was added Used for the storage of old records to the group of high-speed presses for the and files, the building and its ownership Record. were forgotten until this year, when the District of Columbia government began “Writings of George Washington’’ a $20 million municipal project. Block- ing progress was the old vault, until Work on this 25-volume set progressed. someone broke into the building and George W. Jones of London, famous dean discovered Office records. With owner- of master printers, designer of the Granjon ship established in the Public Printer, type used by the Office for the first time in the latter, with approval of the Joint the Washington series, noted “that such beau- Committee on Printing, transferred tiful work * * * from the GPO will exert a possession without charge to the District big influence on American printing * * *.’’ of Columbia. 120 Thus ended the saga of private Gov- 1932 ernment printing. But the Globe chapter should not be closed without mention- ing some of the historic records un- Dark Days and the Economy Act earthed in the old vault. Original drawings of printing inven- This year of depression and sinking tions up to 1880 were found. They had economic conditions led to the passage of been used in a large atlas entitled The the Economy Act. Placing a ceiling of $10 Growth of Industrial Art, printed by the million on all expenditures for printing GPO in 1888. The Linotype of 1886 was and binding, the following stringent mea- not included, but the atlas compared the sures were necessary beginning July 1: experimental typesetting machines with Allotment of printing funds by the Director the hand composition method. of the Budget were reduced 20 percent. Congressional printing requirements were New Welfare Facilities cut 35 percent, but it became evident that the congressional session would create a deficit. The Green Room, appropriately Without operating funds, the Public Printer threatened to discontinue all congressional named and dedicated on St. Patrick’s printing, including the Record and bills. With a Day by Rev. Francis J. Hurney, began provision of $500,000 additional money, a crisis operation as an employee gameroom and was averted, but with the continued presence of lounge near Harding Hall. Congress, a further deficit was incurred, with almost $200,000 carried over to the already cut following fiscal year. Group Insurance But the heaviest blows fell on GPO Appalling cases of distress had come and other Government personnel. Hard- to the attention of the Public Printer. He won gains in Office working conditions noted that families of deceased employees were swept away during this critical pe- were left without adequate estates for the riod. Beginning July 1, the Economy Act support of dependents. The small return canceled all prior earned leave for the of Federal retirement compensation in balance of the fiscal year. Employees who most cases barely paid for funeral ex- had used leave prior to July 1 may have penses which, by law, had first claim on been possessed of great wisdom or luck, these meager funds. In an effort to meet but others, victims of the calendar, lost this situation, Mr. Carter encouraged the vacations, plus accrued leave. The unfor- formation of a Group Life Insurance As- tunate then began a vigorous but futile sociation. Chartered on May 1, the associ- legislative battle to recoup their losses ation quickly attracted 2,500 employees, in equivalent time or cash. Many recov- with insurance totaling $2 million. [The ery bills were sponsored by sympathetic plan served Office employees until 1954, Congressmen, but none were passed. when the Federal contributory life in- [One half of the lost leave was restored surance law became effective. See “1954, on April 21, 1933, by a decision of the Government Life Insurance.’’] Comptroller General.] With the Office relieved of its obliga- 70th Anniversary tion to pay for annual leave, the Treasury gained $945,413. In addition, during the Ceremonies celebrating the 70th anni- same period, expenditures for wages versary of the Office were held in Hard- and salaries were reduced by $159,082, ing Hall, March 4, with Senator Moses, because employees were forced to take chairman of the Joint Committee on leave without pay, principally on account Printing, presiding. of sickness. 121 Overall, wages and salaries were re- produced these cards at prices substan- duced one-eleventh by shortening the tially lower than commercially made 51/2 -day workweek to 5 days. In this cards. indirect manner the dream of unionists was fulfilled, for the GPO was the first Economies Suggested Government establishment to adopt the 5-day week. This action was endorsed by With the emphasis on economy, the the Chamber of Commerce of the United Public Printer was requested by Con- States, the American Federation of La- gress to suggest remedies and savings bor, and printing trade unions and orga- in Government printing. The following nizations. The American Printer reported were submitted for consideration: that “the large majority of printing exec- utives accept the idea of the 5-day week (1) Unite all printing authorizations for any department in a single item to centralize control and believe that its general adoption by over expenditures. the printing industry is not far off.’’ (2) Prevent unauthorized printing by dupli- cating plants in various Government depart- Offset Printing Increases ments and establishments. (3) Restrict activities of field printing plants. (4) Abolish free distribution of Government The relatively new art of offset print- publications by Members of Congress, with an ing continued to expand. Producing over annual saving of $500,000. 89 million chargeable impressions, the (5) Proposal to extend facilities of Superinten- Offset Section included four presses, a dent of Documents for sale of all Government publications. duplicating machine, and fully equipped (6) Compliance with law requiring estimates platemaking and graining rooms. and reports on printing congressional docu- ments by Printing Committee of each House. Depression Hits Post Office (7) Reduce Congressional Record to “substan- tially a verbatim report of proceedings’’ as pro- vided by law, with a saving of $260,000 annually. The depression also produced a severe (8) Restrict Agriculture Yearbook to 640 pages, drop in Post Office printing. Reflecting saving $100,000. the faltering economy, money orders (9) Discontinue printing eulogies of deceased decreased 26 million, and 119 million Members, saving about $30,000 annually. (10) Better preparation of patent specification fewer postal cards were printed. In sharp copy. contrast, and also a significant economy (11) Eliminate duplication of publications by indicator, was the increase of 8 million overlapping Government agencies. change-of-address cards. The Post Of- fice, hard hit by the Economy Act and The above were designed to reduce poor business, reduced its printing ex- Government printing costs. Some but penditures by over $211 million. not all of the recommendations were in- Another side effect of the trying times corporated into the Economy Act with was the reduction in Treasury income tax sizable savings, but Congress rejected the forms which decreased 11/2 million cop- others, particularly the reduction of the ies to a total of 471/2 million, compared Congressional Record. to over 94 million in 1924. Air Conditioning Arrives Tabulating Cards Industrial air conditioning reached the The Office printed over 262 million GPO, when the Plate Vault Office in the tabulating cards for Government use basement, inaccessible to outside air and in 1932. Equipped with 16 specially de- light, was selected for the initial installa- signed tabulating card presses, the GPO tion. [In 1961 air conditioning is the rule, 122 but in 1932 it was the exception.] The “Printing, the Mother of Progress.’’ In at- change from a hot and dusty atmosphere tendance were 150 teachers and leaders to one of comfort received expressions of in printing education from the United gratitude from the fortunate workers. States and Canada.

New Maintenance Division Old Building Receives Plaque

A manufacturing establishment of the On May 18, a bronze plaque was placed size and scope of the GPO, with build- on the original GPO building on North ings and equipment valued at over $101/2 Capitol and H Streets. In fitting cere- million, required constant maintenance monies, John Clagett Proctor, chairman and attention. Consequently the Main- of a committee authorized by Congress, tenance Division was organized under a presented the plaque to the Public Printer. Mechanical Superintendent. The inscription read:

ORIGINAL Apprentice School Anniversary GOVERNMENT PRINTING OFFICE On July 5, the School completed its Erected 1856 10th year when a gathering of its gradu- By CORNELIUS WENDELL ates and other interested employees as- Purchased by the Government sembled in the Green Room. A resolution 1861 was presented by the Alumni Association ———— to Mr. Carter. In part, it thanked him for JOHN D. DEFREES his “foresight, effort, and sympathetic Appointed First Public Printer understanding’’ in establishing the ap- By President Lincoln prentice system so that “an opportunity March 23, 1861 was afforded American youths to em- ———— bark upon a worthwhile career.’’ Erected by the Permanent Committee In the 10 years there were 488 appoint- on Marking Historic Sites ments in the various branches of the graphic arts trades, with 266 completing the 4-year course. On September 15, 41 additional ap- 1933 prentices achieved journeyman status, but Economy Act provisions froze their pay at the 4th-year apprentice level. The 1933 Economy Act, effective April As of December 1, 139 apprentices 1, removed some of the hurts inflicted by were in training, 61 fewer than the maxi- the 1932 act by restoring annual leave, but mum of 200 authorized by law. Because at a 15-day rate compared to the former of great unemployment in the printing 30 days. In addition, the 15-percent night trades, a moratorium was placed on new differential was reinstated, and overtime apprentice hiring, thus permitting the rates were again revived. Additional re- hiring of more journeymen. ductions in force were necessary, and 138 In appreciation of the work of the Ap- employees within 5 years of retirement prentice School and the interest of Mr. and with 30 years’ service were included, Carter in vocational training, the 11th but were entitled to maximum annuity Annual Conference on Printing Edu- granted under the act. But the promotion cation was held in the Office on June freeze, pay cuts, and reduced printing ap- 27–29. The theme of the conference was propriations continued. 123 Rare Documents Preserved New Building Needed

Numerous rare historic papers and The need for replacing the original documents of the First Congress, includ- GPO building, now an old dilapidated ing Washington’s First Inaugural Ad- storehouse and a fire hazard, became dress in his own handwriting, unearthed urgent. With the approval of the Joint from Senate files, were restored and Committee on Printing, the Public Printer bound by skillful Office bookbinders. offered a proposal to the Special Board on Public Works for the erection of a Recovery Program Aided $4 million fireproof building.

The printing of emergency work for Revision of “Style Manual’’ relief and recovery agencies set up to combat the depression caused a change in A new and thoroughly revised Style the complexion of Office work. Immense Manual was issued on March 1. For the orders for blank forms, circulars, pamph- first time in 46 years of Manual history, lets, etc., replaced the former principal representatives of Government depart- output of bookwork. With the emphasis ments were invited by the Public Printer transferred from typesetting to jobwork, to participate in its preparation and to the pressroom and bindery carried the make a thorough revision based upon burden of production, thereby forcing general principles and modern English cuts in personnel of the Printing Division usage. The text of the new Manual re- for lack of work, but at the same time ceived unanimous approval of both the requiring more employees in the Press- Department Advisory Board, consisting work and Binding Divisions. of well-known Government editors, and Requiring immediate delivery, work the permanent GPO Style Board, whose for the National Recovery Administra- membership consisted of men whose tion, Agricultural Adjustment Admin- duties exposed them to the problems of istration, Public Works Administration, translating copy into type. and many other emergency agencies forced the GPO on a 7-day, 24-hour basis Permanent Conference on Printing to accomplish continuous production. For the final 51/2 months of 1933, over The Permanent Conference on Print- 502 million copies of various kinds of ing, established in 1921 at the suggestion printing matter were produced, but the of the Public Printer and approved by the primary commodity of paper was the Bureau of the Budget, was abolished by most important element. During the Executive order on June 10, 1933. Consist- above period, 772 carloads of paper were ing of 33 department printing representa- delivered, and the splendid coopera- tives, with the Public Printer as permanent tion of paper dealers and manufacturers chairman, the conference held monthly made it possible to meet the tremendous meetings at the GPO. Its primary purpose demands. had been “to investigate and propose uni- Thus the Office played its part in pull- form standards, businesslike methods, ing the Nation from the depths of depres- and proper economies in the public print- sion. The production of NRA codes and ing and binding and the distribution of posters, AAA forms, Civil Works Ad- Government publications.’’ ministration relief checks, and all other Many economies were effected by the printing requirements proved its ability conference, with average annual savings to meet peacetime emergencies without of about $325,000. During its life, impor- any loss of momentum in other work. tant procedures were adopted, including 124 legislation for direct appropriations for plant, and included almost 21 million printing and binding instead of the former copies of NRA codes, 22 million consumers’ allotment plan; letterheads of standard- cards, and a 4-column weekly tabloid news- ized paper stock and size, with restric- paper, the Blue Eagle, of 50,000 copies. tions on the use of embossed stationery; Money orders, considered to be a reli- standardization of 172 printed forms for able criterion of the Nation’s economy, common use by all departments; reduced reached a total of 220 million, and over envelope sizes from a dozen varieties to 4 11/2 billion postal cards were printed, standards; publications from 50-odd sizes both classes of work setting new produc- to 8 standards; and many other procedures tion records. in need of correction. Its recommenda- With the record departmental and tions not only produced immediate sav- emergency printing output of the year, ings but these savings have been extended over 36,000 tons of paper was used. to this anniversary year. Office Aids in Fraud Conviction Document Prices Increased Testimony of the Technical Director Prior to 1932, publications sold by resulted in the conviction of men using the Superintendent of Documents were fraudulent visas. Tests indicated that pa- marked up 10 percent above cost of pro- per used was not of GPO grade or quality, duction. The Economy Act of 1933 in- and type did not match Office typefaces. creased the markup to 50 percent and placed the sale of public documents on a 40-Hour Week more realistic basis. On March 28, Congress authorized the 5-day, 40-hour week for the Office, al- though other departments continued on 1934 a 5 1/2 -day week.

On July 2, Augustus E. Giegengack of American Legion Post Formed New York succeeded George H. Carter as Public Printer. Mr. Carter had served In July 1934, the GPO American Le- 13 years as head of the GPO. gion Post was organized with over 400 members, including a 38-piece band. Record Production Year Charge Reductions All time production records were made this year, with the GPO producing With lower operating costs, the Office reduced printing charges by 10 percent over 1251/2 million copies of publications. In addition to the 1-pound, 302-page on February 1, 1933, and on July 1, 1934, Congressional Record for June 16 which an additional cut of 5 percent was made. required 231/2 tons of paper, congres- sional committees, executive depart- ments, and independent establishments 1935 all demanded printing. In response to the President’s desire to hasten the return of normal economic conditions, With the upward trend in production a vast amount of recovery printing was of 1934 and anticipated increases in 1935, required by 54 emergency activities. A methods new to the GPO but not new to total of 77,000 jobs passed through the commercial establishments were intro- 125 duced to improve Office product and to struction of a new eight-story building reduce costs. Among these were the elimi- to displace the old building. Included nation of brass leads and rules, which was money for a warehouse facing the had been used in the trade for many dec- new building, and designed to receive ades; type measure changeover from the paper shipments from railroad sidings unit to the point system; a new process and to house the postal card and money for making press rollers; and a quicker order sections. Provision was also made drying ink formula. Other much-needed for connecting tunnels to expedite paper equipment, including presses and bind- deliveries from the warehouse to work ery machines, contributed to necessary divisions. modernization. The Economy Act restored 5 percent New Typography Section of the pay cuts authorized in 1933, and a group hospitalization plan and a Fed- Mr. Giegengack appointed a Direc- eral credit union were made available to tor of Typography and reorganized the employees. Layout Section of the Planning Division for modernizing and improving the ty- Government Work Waived pographic appearance of Government publications. This year Congress permitted GPO to waive its control over Government spe- Apprentice School Reopened cialty printing, such as fanfold, snapout, and punched forms, thus permitting With the depression tapering off, the agencies to purchase direct from manu- moratorium on apprentices was lifted with facturers. the reopening of the Apprentice School on October 16. Composed of 96 boys and New Building 4 girls from 28 states, the class resumed the on-the-job training program begun in The continuing need for a new build- 1922. Instead of the former 4-year appren- ing to replace the 1856 building was ticeship term, the new class would now highlighted by an editorial in the Wash- serve 5 years to provide greater experience ington Times of March 6. Entitled “Sup- in each phase of the graphic arts. pose It Collapses,’’ it quoted from a Pub- lic Printer letter to the House:

Every precaution has been taken to the end 1936 that employees be protected and not exposed to unnecessary dangers, but no measure of caution which can be devised would be adequate protec- On March 28, the GPO celebrated its tion against the most serious of all hazards—fire 75th anniversary at the Wardman-Park and probable building collapse. * * * Buildings Hotel. In attendance were over 1,000 and elevators of their condition and type of con- employees and guests. Congratulatory struction could not be used * * * in any other large city in the United States. It is only because messages were received from the White they are located in Washington and federally House and Government officials. owned that they are allowed to remain in service. Warehouse Contract Awarded The perennial plea for a new build- ing was finally answered when the Joint Floor plans for the new warehouse Committee on Printing approved an were approved by the Public Printer, and initial appropriation of $2 million, with the Treasury Department awarded the a total limit of $5,885,000, for the con- contract on October 2, with demolition 126 beginning October 12 and excavation on Beginning of End of Old GPO November 9. The approaching demolition of the New Leave Law original GPO building neared, when 20 million stored copies of publications were Congress on March 14 restored to em- moved to leased quarters at 612 G Street ployees almost all of the leave confiscated NW. by the Economy Act of 1932. By increas- ing leave from 15 to 26 days, the law fell short of the 30 days’ annual leave granted prior to 1932, but at the same time pro- 1938 vided for 15 days’ sick leave, a benefit heretofore denied to the GPO but en- As a result of complaints by many joyed by other departments. departments and agencies over the in- creased cost of Government printing, Efficiency Rating System President Roosevelt in late 1937 initiated an investigation of Office operations and A new work evaluation system pat- cost procedures. terned after Civil Service Commission standards was instituted. Replacing the New Cost-Accounting System old numerical system, the new method developed more reliable information in As a followup to the investigation, the the analysis of employee value, in addi- Public Printer reorganized cost-account- tion to an appeal provision. ing procedures. With the GPO compared with commercial printing plants, it was New Agency Printing advisable to adopt comparable cost- accounting methods used by the industry. The Social Security Board made its Thus each job would stand on its own appearance on the Office printing scene feet, with all administrative, production, with an order for 50 million copies of its maintenance, and service costs, all carry- basic circular. ing cost accounts, reflected in department printing charges. 1937 Threat to Patent Printing An ominous cloud suddenly appeared Post Office work continued to make over the Office this year. Patent Office new records in each successive year, in- printing had been produced by the GPO dicating complete recovery from the de- since 1868. In 1937 the House Appropri- pression. A new high was the production ations Committee instructed the Com- of 282 million money order blanks and missioner of Patents to submit a study almost 21/2 billion postal cards in the sec- on the cost of Patent Office printing. tion set up to handle these items. The Commissioner reported that an of- [This production has been exceeded fer to print his work by offset printing only twice: in fiscal 1951 when the postal methods would yield annual savings of card was increased from 1 to 2 cents and over $100,000. Suddenly the Govern- in 1958 when the rate went to 3 cents. ment and the Office were faced with The 1951 production was 41/2 billion a critical problem, for the production cards; 1958’s fiscal year production was of patent work by reproduction would 31/2 billion.] have been a blow to the proper function- 127 ing of the Patent Office, in addition to legislation was required to permit the vitiating the role of the GPO as a Fed- construction of a Union Station-ware- eral printing office. house bridge over First Street NE., so A change in method would require that freight cars could enter the building legislation, for under the printing laws on the warehouse third-story level. all Government printing had to be pro- duced in the Office, unless the Joint Building Contract Awarded Committee on Printing directed other- wise. The Printing Committee was ad- After more than 20 years of unsuccess- vised to investigate the matter, but the ful efforts by Public Printers to secure Appropriations Committee nevertheless adequate housing for the GPO, Congress recommended a reduction of $100,000 in was finally convinced that the group of the patent printing budget in anticipation 11 ancient buildings dating back to 1856 of the savings expected to result from should give way to a new fireproof build- changes in printing methods. ing. The Public Printer had made up a Beginning on April 30, 1937, efforts to booklet to present the GPO’s case, show- secure Patent Office printing had been ing graphically the condition of the old made by a Washington firm. Initial over- building: warped and checked columns, tures promised savings of $168,000 yearly, leaking walls, overcrowded conditions, but were later revised downward on No- uneven floors and fire hazards. It appar- vember 23, 1937, to $106,500. A further ently won the Congress over. With con- reduction to $94,500 was made when the tracts awarded for the present 8-story promoters began to realize that repro- Building 3, demolition began June 27. duction of the Official Gazette, valued at $12,000, would be difficult and that it would be unprofitable. In testimony be- fore the Joint Committee on Printing, a 1939 company spokesman stated “it would be better to leave the Gazette as it is now, An informal ceremony was held Feb- or as work that should be done by the ruary 21, when Public Printer Giegen- GPO,’’ and therefore relinquished the gack laid the cornerstone of the new Gazette. building. This ceremony marked prog- ress toward the completion of Building New Post Created 3 in 1940. A sealed copper box placed in the cor- On June 1, the office of Administrative nerstone contained a Bible; a flag; photo- Assistant to the Public Printer was estab- graphs of President Roosevelt and Public lished. The new office was given charge Printer Giegengack; annual reports of of the business management of the Of- the Public Printer; Roster of Employees; fice, and the Deputy Public Printer be- Congressional Directory, 76th Congress, came responsible for production. 1st session; Congressional Record, Febru- ary 20, 1939; Official Register; copies of Warehouse Completed all Washington newspapers; and sundry other publications. On February 4, the new warehouse was turned over to the GPO. The 3-story-and- Division of Personnel Created basement building, built of reinforced concrete, was designed to accommodate Pursuant to an Executive order of June 600 carloads, or 25 million pounds, of 24, 1938, the Public Printer established paper at one time. Special congressional the Division of Personnel, effective Feb- 128 ruary 1, 1939. The new Division com- the business forms field, adding one more bined all employee relations. weapon to its printing armament.]

Outside Procurement Permitted Library Unit Moves

The Office permitted various depart- After 39 years in the venerable Library of ments to procure about $2 million of Congress building, the GPO Library unit printing which could not be produced moved into the new Annex building on Feb- economically within the plant. A greater ruary 1. Geared to serve the printing needs part of this amount was for business of the Library of Congress, the GPO branch forms printing. Bids on this type of print- consisted of the Composing and Binding ing which the Office could not handle Sections. Equipment comprised 12 slug- showed great fluctuations, and in many casting machines, in addition to a complete cases appeared to be exorbitant. If the ex- pressroom and bindery. The unit produced pected demand increased and prices were about 38 million library cards and other li- not stabilized within reason, the GPO brary work, and with adequate space the would consider the purchase of necessary Bindery would endeavor to reduce a back- equipment. [In 1948, the Office entered log of 314,000 volumes needing rebinding.

GPO in Peace and War

1940–45 WARTIME PRODUCTION The soldier and sailor may fight a war The so-called “phony’’ war which be- and push the enemy back on all fronts— gan in Europe in 1939 may have lulled by air, by water, by land; the manufac- some nations into believing that “it turer and farmer may produce essential couldn’t happen here.’’ But in the United tools and sustenance; the civilian branch States, defensive measures were already of the Government may maintain con- in being. The military manpower draft trols on theq home front—all highly es- was in operation, and powerful military sential; but without the printer and his and industrial forces were being orga- constant flow of printed technical manu- nized into a readiness posture if the Na- als, orders, regulations, etc., neither the tion were to be involved in war. It was soldier, the sailor, nor the others could also recognized that printing would be carry on in this technical age. vital to a war effort. The wartime record of the produc- The GPO story up to 1940 contained tion divisions was at a rate which even elements of drama, but the story of Gov- the Public Printer believed to be impos- ernment printing during World War II sible. In 1940 the dollar cost of the out- was one of continuing and serious drama, put of the Office was $20,150,203. In the for never in its history had the Office following year it jumped to $26,794,775, been faced with such heavy military and and commercially procured printing civilian printing demands. totaled an additional $1,798,962. Thus 129 the dollar output of the plant increased that with the unprecedented influx of 321/2 percent. Officials felt that this was new personnel, ships could not sail until the ultimate of possible accomplishment. manuals describing their gear and equip- However, production continued to show ment were printed and delivered, plane increases, until, in 1945, the home plant pilots would be grounded without vitally produced $36,035,211—781/2 percent needed printing, and bombs could not be above the 1940 figure. dropped unless certain printed jobs were No one could say specifically, “It was produced to show the bombardier how this improvement or this change in pro- and where. Every gun, every tank, and cedure or this organizational setup that every piece of ordnance equipment re- increased output.’’ It was no one thing quired printing for its manufacture, op- but hundreds of little shortcuts and bits eration, and maintenance. The war could of greater efficiency that made wartime not have been financed without the print- accomplishments possible. ing of savings bond publicity, in addition There were very few administrative to recruiting posters and myriad inspira- or organizational changes made in pro- tional advertising devices designed for duction divisions. Few were necessary or the uplift of those who “had been left possible. The Office was a smoothly run- behind’’ so that the war effort would be ning, efficiently working organization backed by citizen dollars. Every war ac- at the beginning of the war and contin- tivity required printing to keep it going. ued as such. Little could be done to in- With the world situation approaching crease the output of machines except to the critical stage, the GPO once again be- use them for longer hours. There were came a war agency. Vitally needed print- also very definite limitations to human ing required by defensive measures prior endurance. Increased production re- to Pearl Harbor began to flood the Office, sulted very largely from improvements which was placed on a war footing, and in methods and procedures, which con- on December 7, 1941, was on an all-out sisted of streamlining workflow proce- basis. “Couldn’t be done’’ printing was dures, craftsmen’s ingenuity in impro- changed to “it had to be done,’’ and with vising devices to speed production, and a responsibility which couldn’t be side- other timesaving and laborsaving “gim- stepped, “it was done.’’ micks’’—all these contributed to “impos- Progress came in part through trial sible’’ production miracles. All produc- and error. Some of the plans tried proved tion divisions participated in devising ineffectual and had to be abandoned in work simplification methods, some small favor of others which promised to be and apparently unimportant, but impres- more productive. Success in furnishing sive in the aggregate. required printed matter on or near the The following pages cover the im- designated date appeared to be the best portant printing highlights of 1940–45, criterion for evaluating the efficacy of as contrasted to less exciting GPO peace the organization and specially developed printing years. The history of this period is procedures. presented in greater detail, for it is a story of In looking back over the problems in- a GPO geared to intense production. volved, there stands out clearly and with absolute certainty the fact that if this Office Goes to War country were ever again confronted with an emergency as serious as World War II, The importance of printed matter in printing should be considered and classi- the operation of Federal Government fied as a critical and essential service. It was reemphasized during the emergency. should receive high priority ratings and The heads of U.S. fighting forces stated be declared essential in the distribution 130 of manpower, equipment, and materials. were found to be essential ingredients of implements of war, and stockpiles evapo- War Printing Problems rated. Office chemists worked overtime in their laboratories, trying experiment Public printing in wartime, as many after experiment in an effort to develop employees learned in the hectic years substitute materials. from 1940 to 1945, was no easy task. Even As if these difficulties were not enough, in peacetime, problems of management the personnel situation became acute. were never small. In the early stages of the war, the Office However, peacetime problems were interposed no objection to the release of simple compared to the avalanche which employees seeking positions connected struck the GPO. There were times when with the war effort, nor were military it seemed that it could please no one. deferments requested. As a result, Commercial printers, many of whom lost many experienced and highly qualified almost 100 percent of their business when employees were lost and replacements restrictions on manufacturing were im- could not be found. Only after the situation posed immediately after Pearl Harbor, became critical, did the GPO require brought pressure on Congress to limit justification for release, and deferment the Office to production of congressional for a limited number of keyworkers was work and to farm out all departmental requested. and agency printing. Some Government These were only a few of the difficul- departments (notably the rapidly expand- ties that plagued the Office, for every day ing War and Navy Departments and produced new problems. the emergency war agencies) objected For example, paper costs increased from because the Office insisted on producing $6,012,829 to $9,108,646, and production printing in a form consistent with the costs from $14,137,374 to $19,484,991. Per- printing laws and with established prin- sonnel jumped from 6,059 to 7,313. The ciples of economy and efficiency. Some of upswing began almost immediately after these agencies sought permission from the President’s proclamation of a limited the Joint Committee on Printing to ob- state of emergency in September 1939. tain all their work on waiver, without The increase of $81/2 million in print- supervision by the Office. Others found ing and binding in this first emergency deliveries were too slow, quality of work year represented almost 42 percent of the was unacceptable, the printed book or 1939 total. Two factors enabled the Office pamphlet was filled with typographical to cope with this upswing: First, the in- errors, war grades of paper were flimsy, crease in plant capacity; and second, the the finished work was delivered in dam- resort to commercial procurement. aged condition, and so on without end. These complaints were also carried to the Size of Plant Joint Committee on Printing, whose lot during the war was not a happy one. Increased plant capacity resulted from Early in the war, production problems the completion of the new building in began to multiply. Paper manufacture 1940 and new warehouse in 1938. These was placed under rigid War Production two buildings increased the actual floor- Board control. Before the war the GPO space 294,899 square feet, and the effec- stocked 728 different kinds and sizes of tive area much more, because floorload paper; during the war the number fell to capacity in storage areas was substan- 447. Metals needed for type and printing tially greater in the new buildings than plates became scarce, then disappeared in the old ones, for a total floor area of from the market. Bookbinding materials 1,374,281 square feet, or 311/2 acres. 131 Mechanical Equipment It became obvious in the last quarter of 1940 that the GPO would be unable In 1940, mechanical equipment in- to produce in its own plant all the print- cluded 126 slug-casting typesetting ma- ing and binding required for the defense chines, 100 Monotype keyboards, and 130 program. The Public Printer found him- Monotype casting machines. There were self faced by the need of a policy which 202 presses of all types. Heavy machines would affect the Office and the entire in use in the Binding Division totaled printing and publishing industry. Three 245. Most of the machines were standard courses of action were open: commercial equipment, but some had been specially adapted for highly special- 1. To grant waivers on all work beyond the capacity of the plant and allow departments and ized Government jobs. Only a small part agencies to procure printing and binding with- of the equipment was new, but it was in out Office control. good operating condition. 2. To increase plant, equipment, and person- nel sufficiently to produce the maximum print- ing needs of the country at war. Commercial Procurement 3. To utilize commercial facilities then avail- able or capable of being made available for pro- The increased plant capacity was in- ducing surplus work under contracts let by the sufficient to meet in full the sudden GPO. demands. However, 80 percent of the additional orders was absorbed by the The easiest course would have been Office, and the remaining 20 percent was the one followed during World War I— procured on contract from commercial that of permitting the agencies to pro- printers at a cost of $1,798,962. This was cure their own printing. Under this plan the first time in Office history that com- agencies made their own contracts for mercial printers and binders had been printing, with the plant of their choice, made GPO partners. Previous purchases and at a price which they were willing had been limited to specialty forms and to pay. However, this procedure had were small in amount. shown results considerably short of suc- The venture into commercial pro- cess. An investigation of war contracts curement was an emergency measure and procurement methods of Govern- and was one of the factors which later ment agencies, held after World War I, led to the establishment of a clear-cut showed such startling waste of Govern- policy. The enactment of the Selective ment funds that a general strengthening Training and Service Act in September of laws, including the public printing 1940 resulted in the immediate place- law, resulted. ment of large printing orders. By the The commercial industry, panicky end of 1940, the GPO had procured over its temporary loss of business be- for Selective Service alone 144,515,061 cause of conversion of the national econ- pieces of printing, at a cost of $286,164. omy to a war status, was prejudiced to- In May 1941, the Treasury Department ward adoption of the third course—that launched its savings-bond-and-stamp of commercial procurement. The Public program. Representative single orders Printer also favored this plan, but fore- were for 10 million advertising folders, saw a time when he would be forced to 931,000 four-color posters, and 20 mil- compete for commercial facilities with lion stamp albums. Presses could not be the country’s rapidly expanding war tied up for this type of work, for it was plants. He was unwilling to commit imperative that plant capacity be kept himself to this policy until he was given available to produce rush orders which assurance by the industry that it would were daily increasing in number. continue its cooperation during the entire 132 period of the emergency. For the purpose ten able to exert more effective pressure of securing such assurance, leaders of the on members of their organizations than graphic arts industry were called to dis- could the Office in Washington. cuss the three possible courses of action. At this conference, held in the last week Early Difficulties of March 1941, was born the Office policy for procurement of printing from com- During the emergency, orders were mercial sources. placed with approximately 1,900 firms, and inevitably mistakes were made in Printing Industry Drafted placing jobs. The GPO tried to accom- plish too many diverse purposes at the Authority for the purchase of printing same time: To rotate bid opportunities to by the Public Printer was provided by the all applicants, to secure the job at the low- act of February 28, 1929, supplemented est and best bid, and to make the award by rules and regulations issued by the to an advantageously located plant. How- Joint Committee on Printing governing ever, any qualified bidder was permitted the purchase of printing under the pro- the opportunity to quote. All openings visions of this act and the War Powers were advertised in a public reception Acts. The committee’s regulations were room, and a horde of printers’ represen- effective as of July 1, 1942. The decision tatives descended on Washington, culled of the Public Printer to use this author- over the list, selected jobs they wished to ity gave rise to many urgent problems. produce, and asked for and received the The most pressing were organization specifications. This completely destroyed of the printing industry to do the job, the planned order of rotation and geo- and organization and training of a force graphical allocation of jobs. It also pre- within the Office capable of controlling vented a check of the qualifications of the commercial production, including as- bidder. Another disadvantage was that it signment of equipment and scheduling permitted certain qualified firms to over- of operations. load their plants with Government jobs Most printing plants were eager to co- of their own selection so that delinquen- operate, as the war had greatly reduced cies were almost inevitable. A low bid normal printing and they, too, were would turn up from a New York printer, handicapped by a shortage of paper and when the GPO preferred bids from the supplies. Chicago or San Francisco area. The first step in the preparation for The handling of commercial procure- industry’s participation was to secure the ment improved with experience, and acquiescence of men qualified to com- dependable firms were soon identified. mit the entire industry—or a large part Performance records led to some con- of it—to the program. This agreement centration of production in the larger was secured largely through the Public manufacturing and shipping areas of the Printer, who had wide contacts with pub- United States. Transportation became lishers and trade associations. An infor- increasingly difficult, and efforts were made to place printing orders in locations mal advisory committee in some 35 cities requiring minimum use of transporta- throughout the United States was orga- tion facilities. nized. Through them, the GPO was able Contracts were awarded on the basis to maintain close contacts with the trade, of a firm’s business reputation. The to disseminate information, and to ob- vast majority of awards were made in tain favorable action in placing contracts accordance with usual Federal purchasing for difficult jobs. Local leaders were of- procedure, under which bids were invited 133 and a contract let to the lowest qualified the job could not have been done as well bidder. as it was. Later, contracts were negotiated upon the basis of a set price, determined by GPO cost experience with the same or MILITARY RUSH ORDERS equivalent jobs and on prices formerly quoted by widely separated firms seeking One of the most important procure- similar jobs. ment jobs was the buying of War De- partment technical manuals. Schedules Standard-Rate Contracts provided for printing these publica- tions in 21 days and were approved During 1942, there was a gradual in- only after the Public Printer had crease in the amount and variety of print- engaged in lengthy negotiations with ing procured from commercial sources. contractors. The original agreement As the total volume of Government allowed a 10-percent premium payment printing increased, commercial pro- over GPO standard rates, provided curement mounted proportionately and delivery was made as scheduled. The reached its peak in 1944 and 1945, when work was rotated among five contrac- it totaled approximately $50 million an- tors in New York, and the program was nually. By this time, the printing econ- instrumental in securing urgently omy had improved, and fewer printers needed wartime publications on a reg- voluntarily sought GPO work. Specifica- ular schedule. After the war, the pro- tions were sometimes circulated among 8 gram was extended to contractors in or 10 firms and returned with no bid, and several cities, on the basis of standard sometimes jobs were placed too close to rates without premium. requested delivery date. On many occasions, it was necessary A remedy was required, and the Public to reduce the normal 21 days allowed Printer announced a program of so-called for production. U.S. troops crossed the standard-rate contracts, established un- Rhine at Remagen over a bridge which der authority of the Second War Powers was assembled from specifications and Act, permitting negotiation of contracts. instructions printed in a manual pro- Under this arrangement quotations and duced in 10 days. established rates were established for all operations involved in many classes of work. Form-Printing Programs Under the standard-rate procedure, the Office could select any printer who Any large organization—particularly had agreed to the rates by signing the so- a military organization—requires large called contract; the GPO had merely to numbers of forms. It was to fill this need put out the work in rotation. As wages that the Office established two form- rose and costs mounted from year to printing programs: (1) The depot-forms year, rates were adjusted. Standard rates program, for forms ordered through the served as an excellent basis for nego- Adjutant General’s Office central head- tiation of contracts for classes of work quarters; and (2) the decentralized-form which could neither be bid nor placed program, to permit direct ordering of under standard rates and were so used, “limited’’ quantities for stockpile use by providing far greater opportunity to the depots. The Office supplied the con- negotiate rates equitably. Without this tractors and established the rates, and in greater flexibility in placing awards and the months of June–August 1945, more the added benefits of GPO warehouses, than half a billion forms were printed. 134 CIVILIAN AGENCY ORDERS reached such a volume that the work had overflowed the GPO and was being Overnight Offset Program procured commercially under the plan established. On trial, it became clear that Another program of equal importance this plan could operate only through an and volume was the overnight offset organization specially trained for han- program, established to assist war agen- dling contract work. It further appeared cies in the prompt distribution of orders, desirable to assign highly trained and regulations, releases, and similar mate- efficient planners to full-time work on rial. Beginning July 1, 1942, 5 contrac- specific programs. The first such assign- tors, all located in Washington, produced ment was to the defense savings program 7 units of 20,000 impressions daily, 6 days of the Treasury Department. Selective a week. The principal beneficiaries were Service System activities became so large the War Production Board, the Office of and important that they, too, were segre- Price Administration, the Office of De- gated from the normal flow of work. In fense Transportation, and the War Food rapid succession other agencies went into Administration, but it was also used by programs which called for specialized many other agencies. service. The overnight program averaged some Office space was allocated for a group 125,000 impressions daily for a 3-year pe- unofficially designated as the “termite sec- riod, using more than one-half billion tion,’’ because oldtime employees felt that sheets of paper. the commercial procurement program was undermining the Office and eating EXPANSION OF PLANNING away the long-established principle of PROCEDURES producing all Government printing in the Office. This group was first known as the The Planning Division underwent Emergency Work Section, and, after re- more emergency reorganization and ex- organization under a Director, was called pansion than any other unit in the Office, the Emergency Service Section. for the Division received the full impact The highly specialized nature of prob- of the expanded demand for Government lems confronting the Section led it into printing. Office customers were Congress pitfalls which would have been avoided and old-line departments and agencies, under normal conditions. As planners, and it was in this Division that requisitions the duties of these employees consisted for printing and binding were received of writing specifications, suggesting and evaluated. Planners had to make de- provisions in contracts, and carrying on cisions as to which orders were to be ac- necessary liaison with departments and cepted for production in the plant and agencies. The Purchasing Division certi- which were to be procured commercially. fied bids, selected contractors, and made The Office learned by experience, and all awards. It acted only after consulta- it came out of the war with an efficient, tion with the Comptroller to assure that smoothly functioning organization which all Government requirements had been in a single year furnished some $80 million met. The Production Manager deter- worth of printed matter to the Government mined the schedule on preparatory work with minimum delay and at minimum cost. to be performed in the GPO for commer- cially procured jobs, basing his schedule Planning in First 2 Years on availability of men and machines over and above those required to complete By the spring of 1941, requisitions publications already scheduled and in the for mushrooming defense agencies had Office workstream. 135 Departmental prodding and their own Divisions and placed it under a Produc- zeal led planning personnel to continue tion Planning Assistant to the Public operations beyond the planning into Printer. Planning activities were broken the procurement and production stages. down into four classifications, as follows: They encroached on functions of the (1) Planning Service, to handle requisi- Purchasing Division, the Division of Ac- tions, schedules, and department liaison; counts, and the Production Manager. In (2) Plant Planning, for plans, estimates, a desire to secure commercial deliver- and jacket preparation on Office pro- ies as promptly as possible for agencies duction; (3) Commercial Planning, for which were hamstrung until they got all planning operations on commercially their printing, Emergency Service per- procured printing; and (4) Typography sonnel made commitments which other and Design, performing the functions in- divisions felt they were not authorized dicated by its name. to make. They established schedules for delivery to departments and found them- Scheduling Board Created selves dependent on the plant for type composition or plates, on the Purchasing To insure coordination of planning Division for drawing of orders and pro- and production, a Scheduling Board was curement of paper, and on the Accounts also created. The Board consisted of rep- Division for approval of incurred bills. resentatives from each Planning Division Although the Production and Purchas- and from the Production Manager’s of- ing Divisions were performing miracles fice. It considered every requisition about as their part of the procurement proce- which there was any doubt as to the abil- dure, there was not always complete har- ity to perform the work on schedule and mony between them and the Planning determined which jobs should be pro- Division. The Public Printer tried to duced in the plant, which should be pur- work out the problems by transferring a chased commercially, and which should number of technical assistants to the Pur- be returned to the originating agency chasing Division and limiting the func- with a waiver. Action was taken within tions of the Emergency Service Section 48 hours of receipt of the requisition, to department liaison, production plans, with all schedules receiving Office-wide specification writing, and jacket prepara- approval. No production section was per- tion. Writing of contracts, certification mitted to change specifications nor to de- of bids, contacts with contractors, and all viate from the scheduled order of work operations were centered in Purchasing. on the jobs. No planner was permitted The reorganization worked to better to obtain work at the expense of other advantage. It removed objections to the scheduled jobs. Under this plan the per- opportunist procedures of the Emergency centage of accomplished schedules was Service Section, yet it left something to be improved, and a record of performance desired in the way of centralization. was achieved which was a genuine factor The clear definition of duties and re- in winning the war. sponsibilities of the Planning and Pur- chasing Divisions in commercial pro- Commercial Purchases Consultant curement eliminated duplication of effort and the resulting conflicts. Immediately after the decision was made to procure surplus printing com- Production Planning Assistant mercially, a situation arose which seri- ously hampered operations of both Plan- On April 16, 1943, the Public Printer ning and Purchasing Divisions. It seemed removed Planning from the Production that every printinghouse head who had 136 railroad fare came to Washington to try task to ship paper, often by GPO trucks, to get GPO contracts. Officials wasted to contractors. Printing media (patterns, time in conferences with the appellants. shells, tenaplate molds, reproduction Purchasing and Planning personnel tried proofs, etc.). were also furnished. to do their work surrounded by printing Government departments and agen- salesmen, and it was not uncommon to cies found that quick nationwide or even find 25 or 30 in the Purchasing and Plan- worldwide distribution of large orders ning Divisions at one time. rendered shipment from Washington On April 1, 1942, the Public Printer impractical. The Army established pub- appointed a Consultant on Commercial lication depots at locations convenient Purchases, authorized to speak for the to troop concentrations throughout the Public Printer in all matters pertaining United States. The Navy had similar is- to commercial procurement policy. In- suing offices in this country and abroad. stalled in quarters near the front entrance Other departments likewise decentralized. to the Office, he received all callers, an- Commercial procurement practices swered questions, heard complaints, were modified to keep pace with- im and gave advice on GPO procurement, provements instituted by GPO customers. and during the first few months held an With distribution from field stations, it average of 500 interviews monthly. When was patently ridiculous to deliver publica- an official felt that he needed a personal tions to Washington from San Francisco conference with a contractor, the confer- to be reshipped to a War Department ence was held in the office of the Consul- depot at Ogden, Utah. Clearly, deliveries tant. This method afforded each visitor should be made directly to distribution a courteous, sympathetic, and intelligent centers in widely separated parts of the hearing—and an authoritative answer. country, with production in the general It eliminated possible attempts to bring vicinity of the distribution point. pressure against Office executives and as- The war emergency decentralization sured uniform treatment, and it also re- of the Office began July 1, 1942, with the lieved a condition of confusion bordering establishment of a warehouse in Chicago. on chaos. Later, warehouses were opened in New York, San Francisco, Dallas, and Atlanta. Warehouses Established Still later, in 1944, purchasing offices (not warehouses) were established in St. Louis The need for field facilities became and Philadelphia. evident very soon after the Office resort- The first timid venture into commer- ed to commercial procurement. Little dif- cial procurement outside the District ficulty was found in placing contracts for of Columbia area had shown the delay printing, provided paper was furnished. occasioned by advertising for bids and Quotas placed on commercial printers awarding all contracts from the GPO. made it impossible for them to allocate Negotiated and standard-rate contracts from limited stocks sufficient paper to were set up, and warehouse managers print large quantities. In the early months were authorized to purchase printing of the war there were no quotas and the under them or under the bid procedure. GPO had normal inventories of paper. The Office had also learned the difficul- Contracts were placed within a radius of ties of supervision by remote control. It a few hundred miles from Washington, knew the value of a GPO representative because all finished work, regardless of in each area to supervise production and its subsequent distribution, was delivered maintain personal contact with the print- to the requisitioning agency in Washing- ers. Accordingly, the functions of the ton and distributed by it. It was a simple storekeeper, purchasing agent, and tech- 137 nical liaison man were combined in the war industries for essential ingredients. managers of the warehouses, with skilled Cellulose fibers employed in the making technicians appointed to these positions. of pulps essential in paper manufacture At the peak of their operation, the ware- were also used in processing smokeless houses employed some 85 people. powder. Chlorine, used as a bleach, was The statement was made that without requisitioned for war uses, and because the warehouses it would have been im- of the lack of this chemical, printing pa- possible for the GPO to meet wartime per became dull gray and peppered with printing needs. This was true not only specks. Adequate sizing was beyond the because of the huge volume of warehouse reach of papermills, and writing inks business but also because of wartime re- spread and feathered on improperly strictions and shortages. Commercial sized sheets. printers could print only if the GPO fur- Difficulties in procuring sufficient pa- nished paper, and the GPO could furnish per forced the Public Printer in 1943 to paper in the quantities needed only if appoint a printing-paper specialist to es- it could be manufactured in advance of tablish new procedures. These resulted in need and stored where it would be avail- great savings of time and often enabled the able quickly. Office to meet short-delivery schedules. The warehouses were a wartime expe- dient and were liquidated as of Decem- Traffic Section Organized ber 31, 1945. During the 4 war years the GPO be- Paper Specialist Appointed came one of the largest shippers in the country. It consigned to warehouses in The shortage of printing paper was a Chicago, New York, Atlanta, Dallas, and major problem. During the war years, San Francisco an aggregate of 27,000 car- 27,000 carloads, or some 1,350 million loads (1,350 million pounds) of printing pounds of paper of all kinds was used. paper and other supplies. The finished Total Government requirements were 60 product was reshipped to hundreds of percent of mill capacity on some grades destinations in the United States and to and an overall average of some 40 per- Hawaii, Puerto Rico, Alaska, and the cent. Paper was not rationed to the GPO; Canal Zone. Nearly 225,000 bills of it enjoyed no priority and was forced to lading and many thousands of drayage compete with commercial printers and tickets and post office receipts for parcel- other Government departments for the post shipments were required, compared limited supply available. to less than 100 bills of lading in peace- Shipments of woodpulp from Scandi- time. navian countries, principal suppliers of This decentralization forced the GPO this commodity, were cut off in 1939 by into the transportation field. Early in the the outbreak of the European war. As war the Office had assumed responsibility early as July 1941, the Office of Produc- for direct distribution of printed mate- tion Management (later the War Pro- rial to its point of use. After experiencing duction Board) warned of an impending delay in delivery, loss of shipments, and shortage of all types of paper. Newsprint excessive shipping charges, it was appar- supplies were especially hard hit by less- ent that the huge volume of material re- than-normal Canadian production, by quired a qualified transportation special- transportation difficulties, and by severe ist. The Office of Defense Transportation winter weather in the Northern States. detailed a member of its staff as consul- Another contributing factor limiting tant and adviser, who established orderly, paper manufacture was competition of economical, and expeditious transporta- 138 tion procedures. The arrangement was a paper characterized by peculiarities so satisfactory that the employee was which the typical counterfeiter could not transferred to the GPO in July 1944, and detect and would not suspect to exist must on August 1 of that year a Traffic Section be devised. Such paper was perfected was established. and patented by Office chemists, who Through the operation of the Sec- devised built-in safety features which were tion, the Internal Revenue Bureau saved completely hidden and changed from $200,000 in a single year because it fol- time to time to further baffle counter- lowed GPO advice in distributing in- feiters. One of the special papers was so come tax blanks. In that year more than manufactured that on exposure to ultra- 7,000 tons (200 carloads) of paper was re- violet light, a fixed proportion of its fibers quired for the forms. The Traffic Section emitted a yellow fluorescence. worked out a plan which permitted most A statistician estimated that the 73 bil- advantageous and economical distribu- lion stamps printed in a 2-year period tion to 500-odd cities where collectors’ would be enough to spin a 17-inch web offices were located. Estimates of ship- 14 times around the earth. A total of ping costs and time schedules for delivery 20,681,000 pounds of safety paper was by railway freight and by express were manufactured for the ration program. made, and it was found that distribution by freight would be as dependable and Prisoner-of-War Stationery not materially slower than express. It was recommended to the Bureau that freight Office chemists also achieved the be used, and that method has been used perfection of sensitized paper for use in exclusively since. prisoner-of-war stationery. Censorship of such mail had presented an acute problem in World War I. A mes- sage written in lemon juice in the pages of PRODUCTS DEVELOPED a magazine had entered into the widely FOR SPECIAL NEEDS publicized “Black Tom’’ case of that war. Shortly after the outbreak of hostilities Some of the most interesting prob- in 1941, the War Department requested lems presented to the GPO during the the Office to develop a paper which war concerned the development of new would reveal writing in pure water and products—special types of identifiable in all invisible and sympathetic fluids. paper for specific uses, new and better Office research chemists conducted adhesives, new formulas for metal, etc. experiments, and produced an improved In solving these problems, the Division of paper used exclusively for transmission of Tests and Technical Control performed messages by war prisoners and internees, outstanding service. and it became increasingly difficult for an enemy agent to transmit a message by use Ration Paper of water and dry inks.

One of the first problems of the war Soldier-Ballot Paper arose in connection with ration stamp printing. Rationing program planners The enactment of the Soldier Ballot realized that all these stamps in effect Act on April 1, 1944, necessitated the were currency of the realm, and must printing of forms which could be posi- be printed so as to render them difficult tively recognized as genuine. A safety of duplication by counterfeiters. Print- feature was suggested to the Armed ing alone could not accomplish this end; Forces and promptly accepted by them. 139 It involved printing, on both sides of the War Department paper, a continuous, overall design iden- tifiable on every ballot. The ink was in- Printing for the War Department pre- visible under daylight and artificial light, sented the same difficulties as Navy work. but fluoresced brightly when exposed to The volume was prodigious and produc- ultraviolet rays. tion schedules almost impossible. By the end of May 1943, War Department print- MILITARY PRINTING ing alone was 50 percent greater than for the entire Government in peacetime, and Navy Department delivery requests were completely un- realistic. Navy demands presented one of the The GPO was fully aware of the most difficult problems. In March 1942, vital need for printing in the prosecu- the Navy Department stated that pro- tion of the war. But it knew no magic curement of its printing through the Of- formula which would place printed matter fice was so slow and undependable that in War Department warehouses the day the war effort was being impeded. A it was ordered. The Office suggested general waiver was requested permit- other methods, including the anticipation ting them to purchase all printing com- of Department needs, especially on big mercially. The Public Printer forwarded jobs, so the GPO could select printers in the complaint and the request to the Joint advance of orders and arrange for the Committee on Printing for recommen- manufacture and delivery of paper to its dation and decision. The chairman of the proper place. It also requested a more even committee denied the request for the fol- flow of requisitions permitting full utili- lowing reasons: zation of facilities continuously instead of being overloaded one period and under- 1. It would be inconsistent with law. 2. Investigations conducted by the commit- utilized the next. tee indicated that service in general was all that A working basis was finally reached. could be expected and that in many instances it To insure delivery according to schedule, was exceptional. emergency jobs were to be produced in 3. Responsibility for some of the delay was properly that of the requisitioning bureaus in the Office. Standard manuals (largely the Navy Department. reprints) were to be procured commer- 4. Responsibility for some of the delay could cially. Suitable paper was stored in the not be placed on any individual or agency but warehouses. The GPO furnished print- was inherent in the nature of the work. 5. Steps had been taken to eliminate delays ing media (tenaplate molds, shells, and chargeable to the Printing Office. patterns for printing plates, reproduction 6. Government departments and agencies proofs, etc.) direct to participating print- had been allowed to negotiate directly for their ers, and production continued simultane- printing in World War I. A survey conducted in ously all over the country. All followup 1919 showed that this practice had resulted in overcharges ranging from 2 to 471 percent on 95 was the responsibility of the War Depart- percent of the work involved. ment and resulted in marked improve- ment in deliveries. After several conferences, an agree- ment was reached, under which the Navy pledged itself to place its orders early enough to make production physically UNITED NATIONS PRINTING possible and to return proofs promptly. The Office agreed to grant a waiver if Although a history of 100 GPO years there was doubt that it could produce or assumes that all Government print- procure any job in the time allowed. ing was performed within the plant in 140 Washington, except for commercial the jobs were organized in such a way procurement made necessary by World as not to conflict with each other. The War II, the Office found itself removed Charter was scheduled for delivery at far from its home base in 1945. With the final session, whereas the report to both VE-day and VJ-day near at hand, the President was estimated to make 50 nations assembled in San Francisco approximately 150 pages; however, the on April 25, 1945, to form the United finished book contained 372 pages. One Nations. Soon thereafter, the Office was thousand copies of this report were to commissioned by the State Department be delivered from San Francisco, and to obtain the printing for the United the remainder—24,000 copies—from Nations Conference. Washington. Just as the Conference itself was with- The final days of Charter printing out precedent in the diplomatic world, was made extremely difficult by rapid so was the nature of its printing require- changes in plans, departure from the ments unique. No predetermined plan original production schedule, and un- could be worked out to meet the de- foreseen difficulties which developed in mands. handling the English, Spanish, French, Early information indicated that a Russian, and Chinese versions. daily journal would be published. Very The intricacies of international diplo- little other printing was anticipated and macy gave rise to delicate situations in the assignment was turned over to the selection of format, type, and continu- San Francisco Warehouse. Development ity. All these matters had to be resolved of a large-scale printing operation was so that equal prominence and position soon indicated, however, as organization were accorded each translation. The plans progressed. languages themselves presented almost Reinforcements were flown in from insurmountable problems. the GPO in Washington. The overnight All Chinese type had to be set by publication of the Conference journal hand, and few Chinese compositors was a “must’’ job, as was the printing of were available for the job. A contract the tremendous quantities of miscella- for the composition was arranged with a neous forms, passes, tickets, etc., neces- local Chinese newspaper publisher, with sary to meet the requirements of the ple- less than two full workdays available for nary and commission sessions. setting all type and printing of several All the general printing needs of the jobs. Conference demanded delivery sched- After type was set, extensive cor- ules established in terms of hours, not rection had to be made because of text days, for every job was required the day changes. After the type had been set in approved form, a GPO employee made it was ordered. Only through herculean up the type into pages, and the forms fi- efforts were jobs delivered in accordance nally went to press—at 2:30 a.m. on the with tight schedules. day delivery was required. Planning and procurement problems The Russian section caused almost as were further increased when officers of much trouble as the Chinese. Only one the U.S. delegation approached an Of- Russian machine operator could be lo- fice representative requesting assistance cated. As changes came in, the type was in preparing the delegation’s report to set and reset repeatedly. Finally, OK the President. Delivery requirement for press was given—at 4 p.m. on the forced simultaneous production with day before the delivery deadline—and that of the United Nations Charter, but forms were locked and sent to the press- 141 room. At 6:30 p.m. a call was received to Return to Peace hold all forms for further corrections. It was not until 2:30 a.m. of the following Thus concludes the story of GPO in day that printing began. peace and war. The Office filed away Because of the delay in sending Chi- its printing wound stripes and domestic nese and Russian forms to press, it was battle stars, and returned to more normal impossible to make the entire press run peacetime pursuits, producing once again of 1,000 copies of each and allow time for “Infant Care’’ and Farmers’ Bulletins in binding and delivery. Hence, six prelimi- huge quantities, with battle plans and nary copies of each language were struck bombing charts part of the past. off. These were to be used as signature With the sharp curtailment of produc- copies and the run completed later. On tion from a peak of nearly $80 million to examination, it was discovered that a less than $50 million in 1945, an oppor- character had dropped out of the Chinese tunity was provided, for the first time in section. A compositor found the neces- 5 years, to devote time and attention to sary character, inked it, and struck it in necessary changes in methods and proce- by hand in each copy. It can safely be dure. stated that never before had GPO For the future there would be a steady ingenuity been so taxed to produce a job. expansion of Government functions and Government printing requirements. Recognition of Service New “Record’’ Format With the United Nations organized, the European war ending with VE-day, For the second time since 1873, and and the arrival finally of VJ-day, the the first since 1930, the Congressional Office resumed its peacetime activities. Record received a typographical facelift- Later, on June 24, 1947, the Medal for ing in 1941 for the First Session of the Merit Board recognized the outstand- 77th Congress. ing service of the GPO to the Nation by Designed by the Director of Typog- awarding the Certificate of Merit to the raphy and Design, the new format gave Public Printer. the Record an improved appearance, in- The citation in part follows: creased readability, saved space, and its two columns were increased to three. The President of the United States of Estimated annual savings of almost America awards this Certificate of Merit to Augustus Edward Giegengack for outstand- $124,000 were increased in performance ing fidelity and meritorious conduct in aid of to $150,000 because of cost reductions the war effort against the common enemies in every phase of Record production. of the United States and its Allies in World Approved by the Joint Committee on War II. Printing, the new format also produced In accepting the certificate, Mr. savings of 45 percent in reprinting Giegengack said: Members’ speeches. Although this certificate carries my name as the recipient of the award, I feel that I merely hold it in custody for the 7,000 employees of the Eisenhower Welcome GPO, and I am proud to accept it in their behalf. Their efforts made the award possible. It was On June 18, 1945, General Eisenhower they who made up the task force which accom- returned to Washington to address a joint plished the objective. Their share in the honor is greater than mine and my chief satisfaction session of Congress. On that day, GPO today is that I have received this recognition as employees were released from 11 a.m. to their representative. 3 p.m. to participate in the welcome. 142 Postwar Operations

Mr. Giegengack made recommenda- 1946 tions for consolidation and elimination of plants, in addition to operational changes. He further recommended that After many years of strenuous efforts the GPO, Bureau of the Budget, and by the Joint Committee on Printing and Joint Committee on Printing participate the Public Printer to control the pro- in a study leading to the revision and duction and growth of department field codification of the printing laws. printing plants throughout the country, the Bureau of the Budget transferred su- Patent Reprints pervision of a number of general service plants to the GPO. Designed to achieve A new plan was also set up for reprint- economy and timeliness of service, the ing patents. Produced commercially, operation was placed under a new Field a contract printer had accumulated a Service Division, with a Field Service 3-month backlog, with new work in- Manager in charge. creasing daily. With authority vested in the Office, the Field Printing Plants Field Service Division utilized the field plant in Washington to produce reprints Effective July 1, the control of Treasury at about 90 cents per page and with al- printing plants in 15 cities passed to the most immediate delivery. The Patent Of- GPO. The taking over of the Treasury fice reported that for the first time in sev- plants was a very small beginning. In prac- eral years the public could receive copies tically every State could be found depart- of patents without delay. Estimated mental printing and duplicating plants. savings for 9 months totaled more than A 1946 survey disclosed 389 such plants, $100,000. with an equipment investment of over $13 million, operating costs of over $261/2 Supreme Court Printing million, and employing 7,721 persons. Another factor which provided the With the formation of the Union in impetus toward correction of field plant 1789 and the division of the Government printing abuses was a complaint of the into executive, legislative, and judicial Printing Industry of America, Inc., rep- branches, each segment had controlled its resenting over 2,000 employing print- own printing requirements. Beginning ers. In a letter to the Joint Committee on in 1861, the new GPO took over all ex- Printing, concern was expressed over the ecutive and legislative work, in addition use of Government printing equipment to some courtwork, but excluding the in competition with private industry. Congressional Globe. But throughout the In addition, the war had reduced the years, Supreme Court advance opinions supply of printing machinery, and Fed- were handled by private printers. The eral departments with war priority had last of the line was Pearson’s, a Washing- closed out the market. The emergency ton printer who closed shop in 1946. over, these wartime plants were taking The Court presented its printing prob- no steps to declare such equipment sur- lem to the Office, and after several alter- plus, and in some cases were soliciting natives were considered, a well-guarded business from other departments to jus- unit was set up in the Supreme Court tify their continued operation. basement. Late in September 1946, after 143 careful selection of personnel and the in- Government papermill.] The House bill troduction of improved work methods, died, but in 1947 the Joint Committee on the office formally began printing opin- Printing reopened the question of a GPO ions, in addition to preliminary prints papermill. and the U.S. Reports, under rigid Court By direction of the committee, Mr. requirements. The transition from pri- Giegengack wrote to approximately 100 vate to Government printing was suc- paper manufacturers asking for sale pro- cessful, and the Court Reporter thanked posals of their property to the Govern- the Public Printer “for very fine coopera- ment. Of the 30 replies received, only 3 tion.’’ expressed willingness to negotiate; the remainder were not interested. The Pub- lic Printer therefore recommended that 1947 Congress consider long-range measures to provide unfailing sources of paper supplies. [Subsequent easing of the pa- The enormous demand for paper dur- per market and the acquisition of large ing World War II extended into the post- war year of 1947. During the war, the War quantities of war surplus paper stocks ef- Production Board or Civilian Production fectively relaxed the problem.] Administration could, under their war powers, commandeer paper stocks for “Record” Daily Digest the Office. But when these war agencies had served their purposes, the GPO lost The first suggestion from Congress for its procuring arms. Paper inventories quick reference to the daily Record had were at a dangerously low point. The 1st been made in 1927, when a Congressman session of the 80th Congress extended stated: from January 3 to December 19, and at the close of the session there remained Newspapers do not have time to read through but 2 days’ supply of paper. If Congress the entire Record to find what they want; and frequently throw it in the wastebasket; * * * they had continued, costly substitution would say life is too short to go through it to find what have been necessary. they want. With annual requirements of 180 mil- lion pounds of paper, invitations to the This problem was resolved when, pur- paper trade yielded only 51 percent cov- suant to the provisions of Public Law erage. The situation required some posi- 601, 79th Congress, entitled “Legislative tive action so that the Office could carry Reorganization Act of 1946,’’ a Record on its functions. daily digest appeared on March 17, 1947. In 1916 the House Committee on Averaging about seven pages, the digest Printing had reported favorably a bill offered a quick-reference guide to con- authorizing the Public Printer to erect or gressional activities of the day, in addi- purchase a pulp-and-paper mill to pro- tion to committee meeting schedules and vide “necessary paper for Government proposed legislation. printing and binding at all times at a fair price’’ and to protect the Government from suppliers who “refuse to furnish Plastic Printing Plates necessary paper for the operations of the Government, except at exorbitant and At the outbreak of war in 1941, the noncompetitive prices.’’ The bill contem- Government found it necessary to sup- plated use of wood, minerals, and other ply lightweight printing plates to combat materials found on public lands. [In 1922, areas and foreign newspapers. Although Public Printer Carter had also urged a the art was in an experimental stage, 144 the Office began immediate production. Commission made a nationwide news- From 1941 to 1947, 600,000 plates were paper, radio, and circular publicity cam- made in the Platemaking Division, and paign to recruit personnel. developments originating or perfected in the GPO were adopted as standard trade Commercial Division Reduced practice by commercial platemakers. The Commercial Planning Division Apprentice School Reopened which had purchased almost $225 mil- lion worth of printing from U.S. print- Closed during wartime because of mili- ers during the recent war was reduced tary service for young men of apprentice to the level of a section with its procure- age, the Apprentice School reopened in ment functions returned to the Purchas- August. Unlike the first apprentices of the ing Division. The Division, with a peak 1922 class, the new group was limited to employment of 213 workers, was an im- 75 returned employee veterans of World portant procuring arm when vital war War II who had permanent civil service printing was needed. status. On July 1, 1948 the Joint Committee on Printing issued the first of a new se- ries of regulations, entitled Government 1948–1949 Printing and Binding Regulations, which encompassed the most complete, far- reaching changes in the Government’s Augustus E. Giegengack resigned as printing program, particularly with re- Public Printer on March 15, and Deputy gard to field printing, which had taken Public Printer John J. Deviny was ap- place in a quarter century. pointed by President Truman to suc- ceed him. Mr. Giegengack had served 14 years, longer than any predecessor in Code of Federal Regulations Office history. Typesetting began on the 50-volume compilation of Government department Congressional Words of Praise regulations derived from the Federal Reg- Shortly before his resignation, Mr. ister. Estimated to require more than 100 Giegengack appeared before the House million printed pages, publication pro- Appropriations Committee, and submitted ceeded at a rate of two volumes weekly. his fiscal report. After a lengthy hearing, Congressman Norrell remarked: Kiess Act Operation

I want to say that you gentlemen are doing a Beginning this year wage offers under magnificent job over there. I think I voice the the 1924 Kiess Act were being made by sentiment of Congress * * *, but I do not see how you do the tremendous volume of business that the Public Printer on the weighted aver- you handle. age of union pay scales of the 25 largest cities in the United States, as reported by Printer Shortage the Bureau of Labor Statistics of the De- partment of Labor. With the country enjoying postwar On December 18, 1948 a 12-percent prosperity and the printing trade on a pay increase was approved by the Joint full-employment basis, there was a pro- Committee on Printing. Since 1939, the nounced shortage of printers. The prob- Kiess Act procedures had lifted wages of lem was met when the Civil Service Office craft workers by 80.3 percent. 145 Annual Reports Discontinued 1951 For the first time since 1852, when Superintendent of Printing Towers sub- In 1946, the GPO had acquired 15 field mitted to Congress his first annual report plants from the Treasury. At that time the on the state of the public printing, the Public Printer had recommended con- yearly accounting of Office activities was solidation of the plants. Effective this year abandoned. Of necessity, the reports of there were now six field printing plants the war years of 1940–46 had been dis- located in New York, Chicago, Denver, continued, and the 1947 report closed the San Francisco, Seattle, and a Washing- series. The reports had ranged from 716 ton branch known as the GPO Depart- pages in 1920 to 43 pages in 1934. In the mental Service Office. The Washington interest of economy, the annual reports of plant was the largest, consisting of offset the Public Printer and of division heads presses; it had no letterpress equipment. were now typed for public inspection, Furnishing typewriter composition with but the GPO would not typeset its own simulated typefaces, this reproduction reports. work was performed in the branch and main GPO, with a volume of $2 million 1950 annually. Document Steel Shelving The GPO again became a “war’’ agency with the outbreak of hostili- This year saw the removal of old ties in Korea. Commercial procurement wooden boxes from Documents store- was necessary, and the 1943 record of rooms. Serving as documents shelves nearly $38 million was almost matched since the beginning of the GPO in 1861, by the $34 million of 1950. Warehouses these ancient boxes were replaced by steel were again established in New York and shelves at a cost of $200,000. The change Chicago, but were closed in 1953. from flammable boxes to fireproof metal shelves increased storage capacity and re- New Printing Equipment duced fire hazards.

The Public Printer urged Congress Document Sales to increase his present $300,000 author- ization for new machinery to $600,000. The Superintendent of Documents Dollar purchasing power had dropped, reported a record volume of sales and and new equipment was necessary to number of documents distributed. Over cut costs by increased production. In ad- 3 1 /4 million orders were received, with dition, three new Congressional Record sales of 40,360,814 publications yielding presses were expected to cost almost $1 1 $3,809,042. In addition, over 66 /2 million million. With an expected $6 million publications were distributed for the earned surplus to be returned to the departments and Congress. Treasury by the Office, Congress agreed A House Appropriations Commit- to the suggested increase. Designed to tee member noted the steady increase in print the Record, Federal Register, and popularity of Government publications, other publications, a reduction in page and questioned whether more document margins would permit the presses to use sales were— 46-inch paper rolls instead of 48 inches, thus saving about $10,000 to $12,000 an- brought about by the increase of bureaucracy in nually in paper costs. Government * * * or the fact that more people 146 are reading now than in previous years * * * or [if] it is due to pressure groups getting their 1953 members to write in. On February 28, Public Printer Deviny The Superintendent replied: retired and Philip L. Cole became Acting I think that more and more people are read- Public Printer on March 1. ing more and more Government publications On April 28, Raymond Blattenberger * * * (and some of them are tough reading), [it] of Pennsylvania, appointed as Public is a healthy sign. More people are aware of what Printer by President Eisenhower, took the Government is doing; part of it is a public over the direction of the Office. awareness of the great problems facing the Gov- ernment. * * * The best answer is * * * that it is a fine thing New Accounting Procedure for our democracy * * *. Under the new Accounting Procedure Two years later, the Superintendent Act, the GPO adopted a uniform depart- stated: mental business-type budget, financed by a continuing revolving fund of $10 This is at a time [1953] that reading and print- million. In the following year the Pub- ing are supposed to be fading into the lost arts and giving way to radio, television, and movies, lic Printer reported that this new fiscal but in the field of Government publishing, there arrangement had removed the need of is a tremendous growing interest on the part of yearly appearances before the House Ap- the public in the issuances of the Federal Gov- propriations Committee to justify Office ernment. working capital loans which had ranged from $71/2 to $20 million. In addition, he stated that savings in administrative overhead under the new 1952 budget system had produced savings of about $800,000.

Authorized in 1950, three new Record Modernization Program presses were installed this year. After a break-in period, the presses would be On October 5, the Committee on Mod- available for the next session of Congress. ernization of Machinery and Equip- In 1954 the Public Printer reported that ment was established. The Committee the presses had effected a— was directed to replace old or obsolete equipment with modern, more efficient phenomenal reduction in the cost of certain machinery to reduce operating costs; to printing other than the Record, while cutting render more rapid service to customer costs by about $25,000 yearly and assuring its regular issuance in a far more efficient manner. agencies; and to eliminate excessive re- * * * these presses have saved $701,422.71 dur- pairs on inefficient machines which be- ing 23 months of operation against their cost of come outmoded by recent engineering $941,000. improvements. Purchases were approved only when real savings justified the ex- By 1955, savings totaled $1,130,000 penditure. after 34 months of operation. The great- er part of the savings were made in the Fiscal Plan printing of income tax forms and instruc- tions. In addition, Internal Revenue had Effective July 1, Congress established saved about $350,000 annually in distri- a revolving fund for expenses necessary bution costs. for the operation and maintenance of the 147 GPO (except the Office of the Superin- It should be noted that this program tendent of Documents). required almost 3 months continuous un- interrupted production on all three of the Internal Revenue Printing new Record presses, running two shifts a day five days a week. In planning the regular income-tax The printing included 3 package instruction pamphlet for 1952 the Super- products, 5 instruction products, and 1 intendent of Documents suggested the instruction form product. To print this possibility of printing the forms with the tremendous volume of work called for instructions in one self-mailer pamphlet an expenditure of 33,280,277 press im- and switching production to the Record pressions at an average of 17,000 per hour presses. This matter was discussed with over a period of 55 working days from Internal Revenue officials and approval September 14 to November 30. obtained for a test run on the old Record The total was broken down as follows: presses of 3 million copies of several com- binations of forms with the instructions 9,132,600 copies of 32-page packages for trial in the Boston and Indianapolis 38,377,400 copies of 24-page packages areas. 12,233,400 copies of 12-page packages The test product was termed successful 28,300,000 copies of 4-page forms by the Bureau of Internal Revenue and 1,310,000 copies of 8-page instructions 48 million packages for nationwide use 500,000 copies of 24-page instructions were printed in 1953 on the three new 8,500,000 copies of 12-page instructions Record presses, then speedisealed in the 2,713,000 copies of 4-page instructions Bindery, and delivered as self-mailers ready for addressing by the Department. The presses printed the instructions on newsprint, and the forms on writing pa- 1954 per, the forms being spot-pasted to the instructions for easy removal by the tax- payer. The entire product came off the The Public Printer testified before the press complete, freeing many flatbed House Appropriations Committee that presses and folding machines for other the new accounting procedure, realign- work. Forty million 24-page packages ment of work shifts which reduced pre- and 8 million 32-page packages together mium pay for nightwork, and stream- with an additional 7,728,000 copies of 12- lining of work and materials handling page instructions and 132,530,000 four- procedures had produced important page forms were printed on the three economies. new Record web presses. The total savings realized by produc- ing this work in the fiscal year 1953 on New Offset Division the new Record presses is estimated as follows: On March 28, the Public Printer rec- ognized the fast-growing offset process Savings in paper, presswork, and binding charges in GPO...... $275, 000 by establishing the Offset Division under Savings in assembling, stuffing, and a Superintendent of Offset. For the first mailing, including $70,000 savings time in history, offset work had achieved on window envelopes by Internal status and was making deep inroads into Revenue...... 351,000 the traditional letterpress method. By Total savings to Bureau of 1957, the Division’s 10 presses had in- Internal Revenue...... $626,000 creased to 40. 148 Security Measures Revived ity were transferred to the Commission. This action dissolved the association, but Congressional investigations searching enabled members to keep their insurance for subversion in Government caused the so long as they continued premium pay- reinstitution of wartime security regula- ments to the Commission. tions. Although the country was at peace, cold war conditions required the safe- guarding of security work. Employees handling sensitive matter were given full 1955 investigations, special workrooms were set up, and all security matters were Tabulating Card Purchases placed under a full-time security officer. Effective July 1, all Government agen- Purchase Limitation Removed cies were notified by the GPO that they could negotiate contracts for tabulat- Congress removed annual limita- ing cards direct from card manufactur- tion on machinery and equipment pur- ers. Based on a recommendation by the chases. Limited by the Joint Committee Hoover Commission, the new procedure on Printing after the 1904–08 “spending would cut costs, paperwork, and delay. orgy,’’ the removal of fiscal restraints per- mitted the purchase of needed machinery Federal Printing Volume and equipment in the interest of modern- ization and improvement of facilities. In 1955 the Hoover Commission on Organization of the Executive Branch of Safety Record the Government made a survey of Gov- ernment business enterprises. In its study On May 5, the Office received two of Federal printing, it stated that overall honor awards for its low injury rate from Government printing expenditures for the National Safety Council. With an ac- 1954 were estimated at $370 million. The cident frequency rate 59 percent lower GPO spent about $71 million, of which than the commercial trade average and $8 million was for Congress. Of the total, a severity rate 81 percent lower than the $14 million was procured by the Office industry average, the GPO ranked first from commercial sources, and an addi- in U.S. printing safety. tional $30 million was contracted for ex- ecutive agencies. Government Life Insurance The Commission further noted that the total cost of printing for executive depart- On August 29, GPO workers were ments was estimated at $285 million, with covered by the Federal Employees’ about $63 million by the GPO. The bal- Group Life Insurance Act of 1954, which ance was performed by 327 departmental provided Government life insurance at a printing and duplicating plants, of which biweekly rate of 25 cents for each $1,000 196 were operated by the military services. of salary. Employee contributions were Presumably the grand total of the estimate matched by the Office. included the output of every small office In 1956, the employees’ Group Life In- duplicator in the agencies. surance Association, organized on May 1, 1931, entered into a contract with the Paperwork in Government U.S. Civil Service Commission in ac- cordance with section 10 of the 1954 act, The Commission study also reported whereby its assets and insurance liabil- that exclusive of the tons of paper for 149 printing typeset and reproduced matter, addition, automatic elevators throughout the Government also created about 25 the Office were installed for $278,000. billion pieces of paper, all produced by 750,000 employees at an annual cost of New Retirement Plan over $4 billion. Placed end to end, this paperwork would reach to the moon 13 Effective July 1957, employees were times. Federal offices turned out more covered into the new civil service retire- than a billion individual letters each year. ment fund. The 61/2-percent Office con- Rental of tabulating machines cost over tribution amounted to about $2 million $36 million annually, and more than 5 yearly. billion punchcards were used. In 1954, there were more than 24 million cubic Modernization Program feet of Government records, enough to fill 7 Pentagon-sized buildings or space In 1956 the Joint Committee on Print- equal to 36 Empire State Buildings. ing authorized over $2 million for a mod- The Commission did not indicate ernization program. This year the com- the portion of Government paperwork mittee granted an additional $13/4 million which was translated into type by the for new equipment. Included were 17 GPO. typecasting machines for about $270,000; 11 Monotype keyboards and casters, about $115,000; and 11 offset presses, 1956 about $765,000. The total value of all Of- fice plant machinery and equipment was 1 The Modernization Committee rec- approximately $12 /2 million. ommended the purchase of $11/2 million worth of new machinery, which it esti- Personnel Drop mated would produce yearly savings of $537,591, with purchase cost recovered in The Public Printer reported that per- 3 years. Included were 10 new, modern, sonnel in his 4-year tenure had dropped and speedy offset presses to replace 25 old from 7,399 in April 1953 to 6,294 in April letterpresses. 1957, for a net decrease of 1,105.

Rush Work Printing Volume

Premium surcharges for “urgent’’ Congressional printing which in 1867 printing reached an all time high of al- had amounted to 52.3 percent of Office most $21/2 million this year. Publications printing was only 12.6 percent in 1957. requiring special handling were given Congressional printing services for fiscal right-of-way in Office production divi- year 1957 cost $11,863,430—the greatest sions, but the agencies were taxed with amount for any year since the establish- extra charges for those particular jobs ment of the GPO in 1861. Printing from which did not lend themselves to orderly commercial sources, first begun on a production. large scale in fiscal year 1941, amounted to about $251/2 million in 1957, constitut- ing more than 27 percent of all charges. 1957 Paper Supplier

This year a $1,323,000 contract for air In 1924, Congress had centralized conditioning the GPO was awarded. In all Government paper purchases in the 150 GPO, with sales of about $400,000 to 1959 Government departments. This year blank paper totaled almost $71/2 million. Data Processing

The first electronic equipment for 1958 payroll and cost accounting work was installed. Formerly prepared on punch- Space problems again appeared. Yearly card equipment, this work would now be pleas for more space had been made from processed by modern machinery at a sav- 1861 to 1940, but the erection of the main ing of $500 a month. In 1960, a complete building in 1940 indicated a halt in GPO data-processing system was set up, with expansion. But 1956 storage problems and expected annual savings of $60,000. the hauling of paper from leased quarters 15 miles from the Office accented the need Government Paper Specifications for a new building. On July 23, 1956, the Standards Joint Committee on Printing had ordered The Joint Committee on Printing a study of a proposal for a new warehouse compiled and issued standard specifica- to the west of the present main build- tions for all paper for nationwide use and ing. Estimated to cost $5,251,000 and to in its regulations prescribed these stan- produce annual savings of $244,686, the dards as mandatory in the preparation of building was approved by the Joint Com- procurement documents for paper stocks mittee on May 12, 1958. In 1959 the Senate and in specifying paper stocks to be used approved the new warehouse bill, but the in printing, binding, or duplicating. House failed to act. Apprentice Increase Presidential Papers On October 22, 1956, the training of Early this year typesetting began on apprentices was resumed on a full scale, the 1957 compilation of the public mes- with the appointment of 50 men. On May sages and statements of President Eisen- 12, 1958, 75 were added, and this year 81 hower. For the first time since 1899, when additional apprentices were appointed to Richardson’s Compilation of Messages and relieve worker shortage in the industry. Papers of Presidents, 1789–1897, appeared The Public Printer reported that “they in 10 volumes, an official medium of are producing as well as learning.’’ Presidential actions would be published. Authorized by Congress under the Fed- eral Register Act, the National Archives undertook the task of assembling the ex- 1960 pressions and official acts of Presidents. Presidential proclamations, Executive Government Health Insurance orders, and other White House docu- ments were published in the Federal Reg- Beginning July 1, all employees were ister, but Presidents’ utterances were scat- covered into the Federal health insurance tered in newspapers, the Congressional plan. The Public Printer believed that Record, and White House press releases. the Office contribution would approxi- As of 1961, volumes covering 1953–59 mate $330,000. Compared with the some- were completed, but no formal decision what inadequate private plans of former had been reached to close the historical years, GPO workers now received bet- gap between 1897 and 1952. ter protection. As far back as January 5, 151 1889, a small number of employees had 1961 formed the GPO Mutual Relief Associa- tion, whose “objects and purposes * * * Public Printer Blattenberger resigned [were] to provide a fund * * * in the event as of January 31, and Deputy Public of sickness or other disability.’’ Printer Wilson became Acting Public Weekly benefits of $10 were paid, but Printer, but died on March 4. were limited to not more than 6 weeks On March 8, the Joint Committee on yearly. Dues were $1 a month, and pay- Printing designated Felix E. Cristofane, ments were expected to cover all doctor Comptroller, as Acting Public Printer. On bills and medicines, but the bylaws in- March 9, President Kennedy nominated cluded a prohibition of benefits for “sick- the Staff Director of the Joint Committee ness arising from excessive indulgence or on Printing, James L. Harrison of the Dis- indiscretion.’’ trict of Columbia, as Public Printer. He was confirmed by the Senate on March 16 Plant Improvements and took the oath of office on March 17. Within less than 2 months after taking The GPO was now 90 percent air con- over the direction of the GPO, as this his- ditioned. tory goes to press, Public Printer Harrison All elevators had been converted to au- has filled all organizational vacancies in tomatic operation. the Office. He appointed a Deputy Pub- Ten fast-running presses for congres- lic Printer, an Administrative Assistant, sional bills were modernized and over- and a Special Assistant. He combined the hauled to give a 100-percent increase in functions of Planning and Production speed and 10 years additional longevity. under a Planning-Production Manager and broadened the scope and authority of Personnel several officials under the Planning-Pro- duction Manager. He consolidated com- The Public Printer reported 6,289 em- mercial specification writing and print- ployees on the rolls compared to 7,399 in ing procurement under the Director of 1953, his first year of office, a reduction Purchases. A new Comptroller, a Deputy of 1,110. Comptroller, and an Assistant Comptrol- ler were appointed. These promotions Documents Division brought about numerous other elevations along the staff’s lower echelon. He an- The Division reported sales of nounced that these appointments, made $9,075,000. Earnings above expenses from Office personnel, were designed, in permitted a return of $4,400,000 to each case, to provide improved service to the Treasury. Of 130 million publica- the Government. tions handled by Documents, 50 million represented sales and 80 million for 100 GPO Years congressional, depository library, and On March 4, the Office began its cen- departmental distribution. tennial celebration.

152 Chapter IV

THIS IS THE GPO

HIS SUMMARY chapter consists of comparative statistics showing relative growth of Government and the GPO for the past 100 years; the Office orga- Tnizational structure; the difficulty in pinpointing the role of the GPO in the executive, legislative, or independent branches of Government; and statistical data pertaining to GPO plant, equipment, and production.

Heads of Public Printing: 1852–1961

SUPERINTENDENTS OF PUBLIC PRINTING: 1852–61

John T. Towers, September 1, 1852–December 6, 1853. A. G. Seaman, December 7, 1853–December 1857. George W. Bowman, December 1857–May 12, 1859. John Heart, May 13, 1859–March 4, 1861.

GPO SUPERINTENDENTS OF PUBLIC PRINTING

John D. Defrees, March 23, 1861–August 31, 1866. Cornelius Wendell, September 1, 1866–February 28, 1867. John D. Defrees, March 1, 1867–April 14, 1869.

CONGRESSIONAL PRINTER

Almon W. Clapp, April 15, 1869–July 31, 1876.

PUBLIC PRINTERS

Almon W. Clapp, August 1, 1876–May 30, 1877. John D. Defrees, June 1, 1877–April 14, 1882. Sterling P. Rounds, April 15, 1882–September 12, 1886. Thomas Benedict, September 13, 1886–May 6, 1889. Frank W. Palmer, May 7, 1889–May 2, 1894. Thomas Benedict, May 3, 1894–March 30, 1897. Frank W. Palmer, March 31, 1897–September 8, 1905. O. J. Ricketts (Acting), September 9, 1905–November 27, 1905. Charles A. Stillings, November 28, 1905–February 5, 1908. William S. Rossiter (Acting), February 6, 1908–June 7, 1908. Capt. Henry T. Brian (Acting), June 8, 1908. John S. Leech, June 9, 1908–November 30, 1908. Samuel B. Donnelly, December 1, 1908–June 20, 1913. Cornelius Ford, June 20, 1913–April 4, 1921. George H. Carter, April 5, 1921–July 1, 1934. 153 Augustus E. Giegengack, July 2, 1934–March 15, 1948. John J. Deviny (Acting), March 16, 1948–May 5, 1948. John J. Deviny, May 6, 1948–February 28, 1953. Philip L. Cole (Acting), March 1, 1953–April 27, 1953. Raymond Blattenberger, April 28, 1953–January 31, 1961. John M. Wilson (Acting), February 1, 1961–March 4, 1961. Felix E. Cristofane (Acting), March 7, 1961–March 17, 1961. James L. Harrison, March 17, 1961–.

100 Years of Growth of Government and GPO

As the Nation has grown, so has the 48, but it was later found that each com- GPO, and the 100 GPO years parallel a mittee could be segmented into many similar period of national growth. The subcommittees so that today overall com- following comparisons illustrate the ex- mittees total about 250. The standing pansion of the Nation and the necessary committees with their normal functions, increase in GPO services as Government and subcommittees formed to study the became big business. diverse aspects of a complex Government and society, all require printing. Government in 1861 and 1961 Departments The Union on March 4, 1861, consisted of 24 States and the 9 Territories of Ari- In 1861 the Federal Establishment zona, Colorado, Dacotah, Idaho, Mon- consisted of five departments, not includ- tana, Nebraska, New Mexico, Utah, and ing the Attorney-General’s Office (later Washington. Today, the GPO serves the Justice) and the Post-Office which were printing needs of a Government which members of the Government team but not has grown to 50 States, and territories full-fledged departments. (In 1870 Justice and possessions. became a department, and in 1872 the Post In 1610, British America had a popula- Office acquired full status.) Today the tion of 210. By 1800 the population had Federal setup consists of 75 departments risen to 5,308,483, and in 1861 [the begin- and independent agencies, with innumer- ning of the GPO], 32,351,000. As of 1961, able boards, bureaus, offices, divisions, the country had grown to about 183 mil- and international commissions—all with lion. printing needs to be met. Congress In 1800, Washington had 136 Federal employees. In 1861, there were 36,672 The 36th Congress in 1861 was com- in the Federal service, and in 1961 there posed of 48 Senators, 175 Congressmen, were 2,374,208 civilian employees. and 9 Delegates from the Territories. For the armed services, in 1800 there The 87th Congress numbers 100 Sena- were 5,400 in the Navy and 525 in the tors, 437 Congressmen, and a Resident Marine Corps. No information on the Commissioner from Puerto Rico. Army available. By 1860, the military In 1861 a total of 59 standing and joint numbered 27,958, but in 1861 [a war committees conducted the affairs of Con- year] it had risen to 217,112 and in 1865, gress. In 1946, the Legislative Reorgani- to 1,062,848. In 1961, the Armed Forces zation Act reduced the then number of totaled 2,476,435. These personnel also standing, joint, and select committees to create the need for GPO printing. 154 Organizational Structure

The Public Printer is solely responsi- planning, and field service functions. ble for the administration of the Office. The Administrative Assistant assumes However, the Joint Committee on Print- the duties of the Public Printer in the ab- ing, consisting of three Members of the sence of both the Public Printer and the Senate and three Members of the House Deputy Public Printer and is responsible of Representatives, is directed to adopt to the Public Printer for all administra- and employ such measures as in its dis- tive functions of the Office. cretion it deems necessary to remedy any neglect, delay, duplication, or waste in public printing, binding, and distribution Purpose of Government publications. The Joint Committee fixes the standards of paper The Government Printing Office ex- used in public printing and approves con- ecutes orders for printing and binding tracts for such paper and other materials. placed by Congress and the departments, It also passes on wage agreements which independent establishments, and agen- the Public Printer is authorized by the act cies of the Federal Government; fur- of June 7, 1924, to enter into with com- nishes, on order, blank paper, inks, and mittees representing the various trades in similar supplies to all governmental ac- the GPO, and acts generally as the board tivities; distributes Government publica- of directors of the GPO. tions as required by law, and maintains necessary catalogs and a library of these publications; prints, for sale to the public, Management such documents as are not of a confiden- tial nature. Entire management of the Office, in- cluding appointment through civil ser- vice of all personnel (the Public Printer Working Capital is the only exception), is by law vested in the Public Printer, who is required Congress each year appropriates direct to be a practical printer versed in the art to the Public Printer working capital to of bookbinding. He is appointed by the which is charged the cost of printing and President of the United States by and binding for Congress. All other Govern- with the advice and consent of the Sen- ment establishments pay to the Public ate. In directing the various functions Printer, from appropriations under their and activities of the GPO, the Public control, the cost of printing and binding Printer is aided by the Deputy Public which they may order, these payments Printer and an Administrative Assistant. being deposited by the Public Printer in The Deputy Public Printer assumes the the Treasury to the credit of the working duties of the Public Printer in the absence capital and becoming at once subject to of that official and is directly responsible requisition by the Public Printer for au- to the Public Printer for all production, thorized expenditures.

Administration and Planning-Production

Administering the building and plant work divisions under the overall control is an organization of management and of the Public Printer. For efficient man- 155 agement purposes the Office is divided also give physical examinations to deter- into two groups: administration and mine the ability of employees to perform planning-production. their regular duties. The Medical Officer also determines the physical qualifica- ADMINISTRATION tions of all appointees before they are ac- cepted for positions in the Office. The Administrative Assistant is re- The Apprentice School is authorized sponsible to the Public Printer for the by law for the training of young men proper handling of the administrative and women in various branches of the functions of the Office. The divisions printing trades. More than 600 have been under his supervision are: Personnel, Fi- trained since its establishment in 1922. nance and Accounts, Purchasing, Main- On graduation, after serving a 5-year in- tenance, Tests and Technical Control, denture, apprentices become journeymen Disbursing Office, and Public Docu- at their respective trades, and are given ments. permanent employment in the Office The Director of Personnel is respon- without further examination. Appren- sible for the proper handling of the ad- tices are appointed through civil service ministrative functions of the office in the examination. The School is limited to 200 absence of the Administrative Assistant. apprentices at any one time. In addition The Security Officer, charged with re- to technical training as printers, book- sponsibility for procedures to safeguard binders, pressmen, stereotypers, electro- the Office and the printing it produces, typers, photoengravers, or machinists, reports to the Planning-Production Man- the apprentices are required to complete ager. certain related studies deemed essential in their work. Apprentices also aid in Division of Personnel production work. There are presently 197 apprentices in training, of whom 46 The Director of Personnel is respon- were assigned in 1956, 73 in 1958, and 78 sible for the administration of the per- in 1959. sonnel program. Essential functions are recruitment, examining, placement, pro- Division of Finance and Accounts motion, performance evaluation, train- ing, wage and salary administration, All fiscal and legal matters, which organizational surveys, employee devel- include cost estimates; appropriations; opment, employee relations, apprentice payrolls; time, leave, retirement, and training, and the protective, custodial, disability records; legal work; budgets; and medical services. This official repre- computing; cost analysis; billing; gen- sents the Office in its relations with the eral bookkeeping; auditing; ratemaking; Civil Service Commission and the Inter- statistics; files; traffic, etc., are under the agency Advisory Group. He is chairman supervision of the Comptroller in the of the GPO Board of Civil Service Ex- Division of Finance and Accounts. The aminers and a member of the Executive magnitude of the job and the volume of Safety Committee. detail involved may be realized by recall- The Medical Section is maintained un- ing that the Division must compute the der the supervision of the Medical Offi- exact amount of time spent by each of cer for the treatment of employees who the approximately 6,000 employees on may be taken suddenly ill or receive in- the thousands of different jobs in process juries while on duty. It is equipped with throughout the Office, and determine five beds. A Medical Officer and six reg- the cost of each job and the amount to istered nurses carry out these duties, and be collected from the customers—gov- 156 ernmental agencies. The annual and sick and recommendations to the Purchasing leave earned and used by each employee Division for award on various materials must be recorded. Payrolls totaling over used in the Office, as well as the analysis $3 million a month must be prepared and of bids and recommendation of awards audited. This involves the computation for machinery, are functions of the Di- of retirement deductions, overtime, etc. vision. The utilization of equipment is The audit of vouchers covering all pur- carefully studied and, as far as possible, it chases by the Office, which total over $60 is kept in efficient service. million annually, is done in this Division. A study is made of all patents submitted to the Office to determine their usefulness Purchasing Division in printing operations. Patents of value to the GPO have been processed through the This Division has charge of all pur- Department of Justice, and several useful chases and stores, including printing patents have been obtained in this manner. procured from commercial sources; ar- The function of the Maintenance Di- ranges for the sale of wastepaper and old vision includes: operation of powerplant materials; and supervises the telephone and buildings equipment; maintenance exchange. of production machinery and equipment; The Division purchases and stores ap- installation of new machines and equip- proximately 180 million pounds of paper ment; distribution of utilities, including annually and issues from an average in- water, gas, electricity, air, and steam; en- ventory of 31 million pounds. Its procure- gineering, including specification writ- ment of commercial printing approxi- ing and drafting; safety and fire protec- mates $30,000,000 annually and its total tion; construction and repair of furniture yearly purchases are about $55,000,000. and fixtures; improvement in working environment (modernization); dispatch- Office of the Disbursing Officer ing, recording, and filling of all orders for repairs and service. The Disbursing Officer has general supervision over all moneys spent for Division of Tests and Technical payroll purposes, supplies, etc., and all Control moneys received in payment for work performed. Laboratory work is performed in this Division in connection with technical Maintenance Division specifications for paper and other print- ing material, and here also is carried out The Maintenance Division is respon- the testing of all purchased material for sible for the maintenance and repair the purpose of maintaining standards of of all buildings and equipment of the quality. This Division consists of four Government Printing Office, includ- sections—type-metal foundry, ink plant, ing electrical, machine, pipe and sheet roller and adhesives, and laboratories for metal, automobile, carpentry, painting, testing and analyzing paper and all other and box-making. All engineering, draft- printing supplies. ing, and specification writing involving The Metal Section remelts type metal problems pertaining to the development into pigs, restoring any exhausted com- of machinery to improve the quality and ponent in accordance with laboratory production of the work of the Office are chemical tests so that the metal may be performed by the engineering force in used again. The melting room is entirely the Office of the Plant Engineer. The mechanized with specially designed new preparation of drawings, specifications, equipment. 157 The other two production units of money order payable to the Superinten- this Division are the Ink Section and dent of Documents. the Roller and Adhesives Section, which There is a direct appropriation which manufacture certain writing and print- covers the expenses of the office of the ing inks, rollers, and a variety of book- Superintendent of Documents. binding adhesives. The laboratories are completely Cafeteria, Recreation & equipped and devoted exclusively to Welfare Association printing and bookbinding problems and research in the field of the graphic arts. An important activity for the conve- Valuable aid is rendered to other Gov- nience and welfare of the employees is ernment departments and to the print- the Cafeteria, Recreation & Welfare As- ing industry at large through its research sociation. This employee association op- publications and cooperation in solving erates a large cafeteria on the eighth floor problems pertaining to the technique adjacent to a spacious auditorium and of the graphic arts and to materials em- recreation rooms, and also sponsors sev- ployed therein. Laboratory assistance, in- eral athletic clubs and operates the bowl- volving expert knowledge of papers and ing alleys. inks, is also given to other departments in detection of forgeries and is in many ways helpful toward solution of their PLANNING-PRODUCTION varied technical problems. The Deputy Public Printer is in charge Superintendent of Documents of the productive group. He is responsi- ble to the Public Printer for the work of One of the main divisions of the GPO all production divisions, including direct is the Office of the Superintendent of responsibility for the Field Service Divi- Documents, which has charge of the sion. distribution and sale of Government The Planning-Production Manager’s publications. The Documents Division Office, which has immediate supervi- prepares and issues catalogs, indexes, and sion of all printed matter produced, in- price lists of Government publications cludes the following divisions: Planning, originated by the different departments Typography and Design, Composing, and agencies on a wide variety of sub- Platemaking, Letterpress, Offset, and jects. The Monthly Catalog of U.S. Gov- Binding. All offset printing operations ernment Publications lists all publications are under a Superintendent of Offset. issued each month and the prices of those The printing branch of the Library of for sale. Government publications are Congress is also under the direction of sold to the public by the Superintendent the Deputy Public Printer and the Plan- of Documents at the actual cost of paper, ning-Production Manager. presswork, and binding, plus 50 percent, as required by law. He is authorized to Planning allow a discount of 25 percent to book- dealers and to purchasers of 100 or more Division of Plant Planning.—Work is copies on condition that the purchaser planned for the most efficient, effective, adheres to the established sales price and and economical method of production. that no advertisement be overprinted. Cost estimates are furnished the ordering Coupons, good until used, are sold in sets office; specifications are made and sched- of 20 for $1; or remittance for publica- ules prepared for performance of opera- tions ordered may be made by check or tions within the plant. 158 Division of Planning Service.—Receives photoengraving plates required for the requisitions for Government printing various kinds of letterpress printing. and binding procured from or through Letterpress.—Includes the actual pro- the Office, issues waivers on that portion duction of impressions from type and of the work which cannot be procured by plates. Illustrations in colorwork range or produced in the GPO, and prepares from one to four colors. specifications and schedules for work Offset.—Covers the preparation of off- procured. set copy, making of negatives and offset Typography and Design.—This Divi- plates, and offset presswork. sion is responsible for the preparation of Binding.—Binding of all pamphlets, format, design, and artwork in connec- books, and blankwork, and the repairing tion with new publications; determina- and rebinding of old books, documents, tion of acceptable copy for illustrations; and manuscripts. and display reproduction and establish- Production divisions are under the di- ment of standards of quality. rect supervision of the Planning-Produc- tion Manager. Production Field Service Composing.—The setting of type and its arrangement for the printing of all Field Service Division.—Operates matter, including linotype, monotype, plants in New York, Chicago, Denver, hand composition, proofreading, repro Seattle, San Francisco, and Washington, proofs, and lockup, are included under D.C., under direct supervision of the this activity. Deputy Public Printer, to fulfill the re- Platemaking.—Production of stereo- quirements of Government departments type, electrotype, plastic, rubber, and and agencies in those areas.

History of Building Expansion

At the time the 1856 building was south of the H street section, fronting on erected and fitted up as a printing office North Capitol Street. by Cornelius Wendell, its facilities were In 1879 a fireproof building (53 by 87 considered amply sufficient to execute feet), four stories high, with an L-shaped all work required by both Houses of extension (60 by 60 feet), was erected south Congress, and also to perform any work of the western portion of the H Street sec- which might be obtained from private tion. An additional story was placed on sources. Purchased by the Government this building in 1894. by authorization of the 1860 printing act, In 1880–81 a lot on H Street (west of this building became the first GPO. the H Street section) was purchased and By 1865, the plant was swamped with a stable erected, and in 1881 a second fire- Civil War printing, and expansion was proof four-story extension (59 by 94 feet), necessary. After repeated and urgent calls was erected just west of the North Capi- upon Congress for money, a four-story tol Street section. addition (60 by 76 feet) was erected at the In 1885, a brick storehouse (16 feet 10 west end of the structure in 1865; and in inches by 100 feet and three stories high) 1871 another four-story addition, of the was built south of the main building and same general style of construction (about connected with it by a bridge over an al- 93 feet by 61 feet), was built immediately ley. A one-story plumbing and paint shop 159 (16 feet 10 inches by 65 feet 9 inches) was fifth story added to the south wing. also erected on the same lot. Building No. 1 on North Capitol and In 1888–89 an additional story was con- G Streets was completed in 1903, with structed upon the south center fireproof building No. 2 added to the west of No. section, which had been erected in 1881. 1 in 1930. The warehouse and the new In 1896, a new seven-story building main building (No. 3) were completed in was erected to the west of the GPO and a 1938 and 1940, respectively.

Role in Government

Although established by Congress in The enactment of the 1895 printing law 1860, and accordingly a creation of Con- granted broad authority in the Joint Com- gress, many questions have arisen con- mittee on Printing by providing that— cerning the GPO’s true position in rela- The Joint Committee on Printing shall have tion to Government. It is an element of power to adopt such measures as may be deemed necessary to remedy any neglect or delay in the Government and a working member of execution of the public printing. the Federal Establishment. Various acts of Congress, Executive orders, Supreme The GPO was not placed under civil Court decisions, and Attorney General service until June 13, 1895, when Presi- and Comptroller General rulings have dent Cleveland issued an Executive order placed it in service for the executive, legis- blanketing all its employees into the clas- lative, and independent branches. sified service. Serious question was raised In 1875, Chief Justice Waite declared: at that time as to whether the President In short, the GPO superintendent seems to had this authority under the Civil Service have a department of his own, in which he is in a Act of January 16, 1883. sense supreme. Certainly he is not under control In 1898 the Attorney General made of any of the executive departments. Apparently this finding in reference to the civil ser- he is more responsible to Congress than to any vice status of the GPO: other authority. I therefore am of the opinion that the On May 21, 1883, President Arthur is- employees in the office of the Public Printer are sued the following Executive order: not subject to classification and examination under the Civil Service Act; that the GPO is not * * * it is hereby ordered that the several Execu- an executive branch of the Government within tive Departments, the Department of Agricul- the meaning of that term in the Civil Service ture, and the Government Printing Office be Act; and that it is not under the control of, closed on Wednesday, the 30th instant, to enable nor a branch or division or office of any of the the employees to participate in the decoration executive departments, and the provisions of the of the graves of the soldiers who fell during the Civil Service Act cannot lawfully be applied to rebellion. the officers or employees therein.

In 1892, the chairman of the Joint Senator Root, one of the foremost au- Committee on Printing stated: thorities on governmental matters, in dis- cussing printing legislation in the Senate The Printer is the Congressional Printer. True, in 1912, declared: his name has been changed to that of Public Print- er, but nonetheless he has always been considered, The office of the Public Printer is an anomaly is considered today, and I think always will be, as in our system of administration. * * * The GPO the creation of Congress, subject to its immedi- is not in any executive department and has no ate direction, without interference by any of the supervision, and has never had any supervision, executive officers of the Government. except the supervision of Congress. * * * Now, 160 either Congress ought to make its own supervi- Joint Committee exercises, and has always exer- sion adequate, if it is going to perform that duty, cised, in my experience of 20 years, a very close and create for it adequate machinery and fix upon and keen observation over the operation of the somebody the responsibility, or else it ought to put Office. Our purchases of machinery have to be this bureau in an executive department. Which- submitted to that committee. ever Congress chooses to do is all right; but the Mr. Murphy. To what extent, Mr. Carter, office is today a lost child, and has been ever since must you secure the approval of that committee I have known anything about the administration when you go to purchase improved machinery of the Government of the United States. or make contracts for paper, or carry on any other activity for the benefit of your Office? In the same discussion, another Sena- Mr. Carter. All of the annual contracts for paper are awarded by the Joint Committee. All tor remarked: “The President has no of the open-market purchases of paper, even as authority to give orders to the Public little as 10 pounds of any special kind of paper, Printer on any subject,’’ to which Senator must come before the Joint Committee for its ap- Smoot, chairman of the Joint Committee proval. All purchases of machinery and equip- on Printing, replied, “None whatever; ment amounting to over $1,000 must have the approval of the Joint Committee. * * * he is responsible to Congress alone.’’ The Joint Committee also has control over An act of March 3, 1917, made the Joint the publication of the Congressional Record, the Committee on Printing a continuing body Congressional Directory, and many other special and thus took from the Secretary of the publications of Congress. The committee also has the power to remedy Interior the jurisdiction over certain con- any neglect, delay, duplication, or waste in pub- tracts and purchases by the Public Printer lic printing and binding. when Congress was not in session. Further than that, in the case of adjustment In 1928, Public Printer Carter in tes- of wages under the Kiess Act, the negotiations timony before the House Appropriations must be made, in the first instance, by the Public Printer and a committee representing the trade Committee offered what is perhaps the affected, but any new scale cannot go into effect best definition of the GPO: unless it receives the approval of the Joint Com- mittee on Printing. Mr. Murphy. Mr. Carter, for the benefit of So, on the whole, I think the Joint Committee the committee and the record you might state acts efficiently as a board of directors for the GPO at this time how the GPO is governed. We have in carrying out its varied duties under the law. in Congress a Joint Committee on Printing. You might state what they do in the way of supervi- sion of the GPO. In 1932, a Comptroller General’s deci- Mr. Carter. Senator Root once said in a de- sion stated that the GPO was a part of the bate in the Senate that the Printing Office is an legislative branch and therefore was not anomaly in our system of administration, it is subject to legislation applicable only to neither under Congress nor any executive de- partment. The Public Printer is appointed by the executive departments and indepen- the President and confirmed by the Senate, but dent establishments of the Government. other than that the President does not exercise The 1943 act relating to selective ser- any active control of its management. The Joint vice deferment of persons employed by Committee on Printing acts as board of direc- tors for the GPO and to that body the Public the Government contained the following Printer has to look for advice and counsel, and provision: for the approval of many of his purchases, such as paper and machinery. Otherwise, the GPO For the purposes of this section and Execu- is an absolutely independent establishment and tive Order No. 9309, the GPO and the Library of the Public Printer has to assume entire and sole Congress shall each be deemed to be an agency responsibility for its management. However, the in the executive branch of the Government.

161 Conclusion There may have been a too-heavy emphasis in this GPO history on the typeset- ting and press units. Equally important also were the many unsung but quietly efficient sections throughout GPO. The maintenance workers; electrical and machine shop; the delivery section, darting around the city with the early-morning delivery of the Congressional Record; men in the Superintendent of Documents stockrooms filling worldwide orders for Government publications; bindery women; paper- handlers throughout the GPO—all these are the GPO in action and all members of a public service organization. This has been a story of planning specialists, of men skilled in the graphic arts and drawn from every corner of the country. Of men translating copy into ems of hot metal type; of proofreaders searching for the gremlins which creep into a line of type; and the compositors, pressmen, binders, and all others in the assembly line of produc- tion who join in keeping the Nation informed. Printing presses, composing equipment, and bindery machines constitute—appro- priately—a considerable part of this history. However, the truly important fiber which has been woven into the fabric of the GPO’s centennial history is people. Although they are not specifically recorded, there are nameless thousands who, by their dedication and diligence, have been responsible for the GPO’s past achievements and are the promise of future success. The close relationship of the Joint Committee on Printing to the Government Printing Office during this entire century is exemplified by the fact that two of its staff directors, George H. Carter and James L. Harrison, have been appointed as Public Printer. Senator Carl Hayden, to whom this book is most appropriately dedicated, is now serving in his 19th year as chairman of the Committee. During the first nine of those years the Committee staff was headed by Ansel Wold. Mr. Wold’s total service in that position spanned approximately 27 years, longer than any other man. He worked with five chairmen; Senators Hayden, Jenner, Moses, and Fletcher, and Representative J. Walter Lambeth. Following his retirement in 1948, Mr. Wold was succeeded by Paul C. Beach, who, subsequently, was a staff colleague of Public Printer James L. Harrison. Finally, the co-relationship of the GPO-Joint Committee on Printing again was re- newed this year with the advent as staff director of John F. Haley, who was associated with the GPO for a number of years.

162 Index accounting procedures 90, 103, 106, 127, 147 Centinel of Liberty (newspaper) 9 Accounting Division 103 Check List of U.S. Public Documents, Adams presses 42 1789-1909 95 Adams, James 2 Childs, Francis 2, 9 Administrative Assistant to the Public Printer 128 Childs & Swaine 9 administrative offices 111 Cholera 62 Adventures of a Tramp Printer 56 Civil Service 59, 62, 73, 77, 127 Agricultural Adjustment Administration 124 Civil War 36, 41 Agriculture Reports 41, 52, 53 Civil War veterans 121 air conditioning 122, 150, 152 Civil Works Administration 124 Aitken, Robert 3 Clapp, Almon H. 45, 46, 47, 49, 50, 51 Allen, Thomas 17, 20 classified service see Civil Service American Historical Association 8 Claypoole, David C. 2, 4 American Legion post 125 Clemens, Samuel Langhorne (Mark Twain) 19 American Senator (newspaper) 11 Clerk of the House 22 American State Papers 12 Code of Federal Regulations 145 Annals of Congress (newspaper) 8, 11, 12 Cold War 149 annual reports 67, 109 Cole, Philip L. 147 annual reports, GPO 146 Collins, Isaac 2 Anthony Report (1870) 46 Committee on Printing (Congress) (1842) 20 Apollo Press 10 Company F see Interior Department Regiment apprenticeship 66, 67, 74, 104, 111, 114, 116, 123, 145 (Civil War) Armstrong, Gen. Robert 23 composition 56, 57 author’s alterations 77, 118 confidential printing 60 automobiles 93 Congress, first 7, 10 baseball 116 Congressional debates 12, 13 Benedict, Thomas E. 63, 65, 71, 72, 73, 74, 76, 77 Congressional Globe (periodical) 12, 13, 18, 20, 24, 25, bible in one day 115 45, 48, 49, 51, 55, 56, 101, 120 bicycle messengers 51, 82 Congressional Globe stereotype plates 55, 100, 120 bills from type 71 Congressional mandate 103 bindery 42, 50, 54, 58, 60, 67, 96, 110, 116, 132 Congressional Printer (1869 title) 44 Blair & Rives 12, 17, 20, 35, 48 Congressional printing 49, 115, 120 Blair House (Blair Mansion) 17 Congressional proceedings, printing of 48, 49, 50 Blair, Francis P. 12 Congressional Record 13, 49, 50, 52, 57, 60, 92, 93, blank books 25, 31, 118 102, 112, 115, 120, 125, 144 Blattenberger, Raymond 147, 150, 154 Congressional Record Daily Digest 146 Blue Eagle (newspaper) 125 Congressional Record format 118, 142, 144 Board of Revision see Style Board Congressional Record presses 95, 110, 115, 147, 148 Bonus Act 112 Congressional Record Sunday Eulogy edition 93 bookbinders 3, 124 Congressional speeches 117 bookbinding 25, 31, 50, 54, 82 Constitution 4 bookselling 75 Continental Congress 3, 4 bookstore, GPO 103 Continentals 3 bowling alleys 104 contract printing 14, 21, 22, 136 Bowman, Gen. George W. 23, 26, 27, 28 Coolidge, Calvin 116 Bradford, Andrew 2 cornerstone laying, 1939 130 Bradford, William 2, 3 Cosby, William 2 branch offices 64, 70, 93, 95 cost accounting 127 Brian, Henry T. 85, 90 Crandall, Francis A. 74, 75 Buchanan, James x, 27, 30 credit union 126 Budget Bureau, U.S. 102 Cristofane, Felix 152 Buildings Division 115 Crowell, Joseph T. 30 buildings see GPO Buildings crown (colonial) printers 2 Bullock presses 43, 58 Customs, Commissioner of—printing for 44 Bureau of Public Printing (proposed) 25, cylinder presses 42, 58 cafeteria 104, 112 Davis & Force 16 Cafeteria & Recreation Association 104 Davis, Garrett 20 Cafeteria, Recreation, & Welfare Association 158 Davis, James 2 Carpenter, Samuel 3 Davis, William A. 16 Carpenter, Thomas 11 Day, Matthew 1 Carter, George H. 101, 103, 104, 105, 106, 107, 108, Day, Stephen 5 109, 116, 118, 123, 144 Daye, Stephen 1, 2 censorship 2 Declaration of Independence 4 Census Bureau 82, 89 Defrees, John D. 28, 35, 36, 38, 39, 40, 41, 42, 43, 44, Census, 1880 60 51, 52, 54, 55, 56, 59, 125

163 depository libraries 75, 76, 89, 90 GPO Buildings — condition 68, 69, 70, 71, 72, 76, Deputy Public Printer 130, 154, 157, 160, 161 107, 112, 124, 126, 128 designers, printing 118 GPO Buildings — renovation & expansion 42, 47, DeVinne, Theodore L. 51 55, 56, 70, 71, 72, 76, 78, 79, 81, 83, 94, 98, 100, Deviny, John J. 145, 147 104, 107, 112, 115, 116, 118, 119, 121, 123, 114, Dexter folding machines 84 126, 127, 128, 130, 131, 137, 159, 160 Disbursing Officer 157 GPO Buildings – space problems 39, 42, 45, 55, 69, distribution of Government publications 75, 79, 94, 70, 72, 76, 78, 79, 97, 107, 112, 115, 124, 126, 151 101, 158 GPO neighborhood 36, 37, 38, 56 District of Columbia Government printing 116 GPO organization & reorganization 59, 79 Documents Division 75, 79, 83, 89, 99, 100, 101, 146, GPO site 24, 36, 56, 70, 78 152, 158 GPO Style Board see Style Board Donnelly, Samuel B. 90, 92, 93, 94, 95 GPO Style Manual see Style Manual Douglas Hospital 38 Granjon (typeface) 120 distribution of Government publications 108 Grant, Ulysses S. 51 Duane, William (& Son) 10 Great Depression 121, 122, 123, 124 Dunlap, John 2, 3, 4 Greeley, Horace 44 Early, Gen. Jubal A. 41 Green & Russell 2 Economy Act (1933) 121, 122 green room 122 Economy Act (1935) 126 Green, Duff 17, 23 Eisenhower, Dwight D. 142, 147 Green, Jonas 2 electricity 48, 58, 66, 73, 74, 78, 81, 108 Green, Samuel 2 electronic data processing 151 Green, Timothy 2 electrotype see platemaking group insurance 122, 127 elevators 80, 126, 150, 152 H.R. 22 (36/1, 1860) Emergency Work Section 136 halftones 77 employee outing/picnic 112 Hamerer, John Daniel 2 employee welfare 104 Hamilton, Boyd 21 English, James 38 Harding Hall 105, 118 engraving 25, 39, 59, 62 Harding, Warren G, 104 equipment 37, 43, 57, 58, 99, 110, 119, 147, 148 Harper, Fletcher 18 Federal Convention (Constitutional Convention) 8 Harris, William A. 23, 26 Fenno, John 9 Harrison, Benjamin 20 field offices 96 Harrison, James L. 152 field printing plants 103, 143, 146 Harvard College 1 Field Service Division 159 Hayes, Rutherford B. 51 Fillmore, Millard 23 health insurance 151 Finance & Accounts Division 156 Heart, John 23, 26, 28, 29, 30 fire escapes 54 hiring 63 fire safety (GPO Buildings) 54, 60, 107, 112 Hoe presses 58, 84 Force, Peter 16, 17 Holt, John 2 Ford, Cornelius 95, 96, 99, 101 Hoover Commission of Organization of the Ford, Tom Gen. 23, 28 Executive Branch of the Government 149 Ford’s Theatre Fire, 1893 71 Hoover, Herbert 119 form printing 134 horses 55, 80, 81 Foster, John 2 Houston, James A. 13 Fowle, Daniel 2 hundredth anniversary of GPO 152 Franklin, Benjamin 2, 3 Imprimerie National (France) 18 Furber, Thomas 2 indexes 76 furloughs 95 ink 3, 97 furloughs see also layoffs Intelligencer see National Intelligencer Gaine, Hugh 2 Interior Department Regiment (Civil War) 41 Gales & Seaton 11, 12, 16, 17, 20 Interior, Department of 25 Gales, Joseph Jr. 11 Internal Revenue printing 44, 145 Garfield, James A. 56 investigation of GPO (1908) 90 General Pershing linotype 110 investigation of GPO (1938) 127 Georgetown 8 investigations by Congress 17, 18, 51, 52, 68, 69, 85, Gideon, George S. 29 127 Giegengack, Augustus E. 125, 126, 127, 128, 130, Jackson Alley 111 142, 143, 145 Jackson, Andrew 17 Globe, The see Congressional Globe Jefferson, Thomas 3 Goddard, William 2 jeffing 46 Goose Creek 38 Johnson, Andrew 42 Gordon presses 42 Johnston, James 2 government health insurance 151 Joint Committee on Printing 21, 30, 32, 46, 49, 56, Government life insurance 149 68, 94, 97, 105, 143, 150, 151, 155 government publication rules 117 Joint Resolution 25 (36/1, 1860) 30, 31 GPO Buildings — authorization to construct or Jones, George W. 120 expand 42, 55, 79, 115, 118, 119, 126 Journal of Congress (Continental Congress) 3, 4

164 Journal, House 9 offset printing 95, 96, 119, 122, 127, 135, 148, 158, Journal, Senate 9 159 journeymen 2, 5, 18, 23, 27, 66, 111, 113, 116, 123, orchestra, GPO 104 156 outing, annual 112 Judd, John G. 52 Palmer, Frank W. 69, 72, 78, 79, 81, 83, 84 Kallen, Jacob 2 paper 25, 36, 47, 59, 73, 93, 94, 97, 99, 101, 102, 107, Keimer, Samuel 2 109, 110, 114, 132, 139, 140, 144, 151 Kiess Act (1924) 108, 111, 113, 114, 145, 161 paper mill proposed 106, 144 Korean Conflict 146 paper warehouse (building 4) 126, 128 labor & labor relations 4, 39, 46, 66, 71, 81, 91, 95, papermills 3 113 paperwork 149 Labor bureau plant 82 Parker, James 2 Lafayette, Marquis ( French General) 12 Parks, William 2 Lanston Monotype see Monotype Patent Office 44, 53, 96, 114, 118, 122, 127, 143 Larcombe & English 27, 38 patent printing 44, 115, 119, 129, 145 Larcombe, John 38 Paymaster General 45 layoffs 46, 71, 95 Pennsylvania Gazette 3 layout section 126 pensions 94, 96, 103 leave 63, 66, 69, 105, 121, 123, 127 perfecting presses 53, 58, 84 Leech, John S. 85, 90, 92 periodicals 32, 98, 106 letterwriters (reporters) 13 Permanent Conference on Printing 102, 107, 110, Library of Congress 16, 88 118, 124 Library of Congress branch (GPO) 80, 129, 158 Pershing Linotype 110 life insurance 121, 149 Personnel Division 128, 156 Lincoln assassination 41 phat 46 Lincoln-Douglas Debates 26 Philadelphia Gazette (newspaper) 11 Lincoln, Abraham visits GPO 39 Phillips, Eleazar 2 Lincoln, Abraham 35, 40, 41, 42, 44, 53 photoengraving 77, 106, 116, 159 Linotype 64, 65, 71, 84, 91, 95, 110, 121 Photoengraving Division 10, 108, 119 Linotype see also slug-casting machines piece system 19, 46, 51, 60, 68, 74 lithographing 25, 31, 39, 41, 59, 62 Planning Division 108, 111, 135, 145, 158 low bid system 14, 21, 24, 29 plastic printing plates 144, 159 Madisonian (newspaper) 17 plate printing 65, 100 Maintenance Division 115, 123, 157 plate vault 73 Mangum, Mr. (Senator) 20 platemaking 45, 83, 106, 116, 122, 159 Matthews, Brander 86 Platemaking Division 119, 145, 158 Mawson, Capt. Samuel G. 119 pneumatic tube system 50, 83 medical section 83, 156 Polk, James 20 Mergenthaler Linotype see Linotype Post Office 8, 29, 42, 80, 90, 93, 96, 99, 101, 103, 112, Compilations of Messages and Papers of the Presidents 114, 122, 127 1789–1897 80, 89, 151 postal cards 93, 96, 101, 103, 114, 122, 125, 127 Miehle presses 70, 84 Potter presses 84 military printing 98, 129, 134, 139, 140 presidential papers 151 mirrors 89 presses 3, 18, 42, 54, 57, 60, 61, 84, 109, 116, 119, 120, modernization 116, 149, 150, 152 122, 146, 147, 148, 150, 152 Modernization of Machinery & Equipment Printing Act of 1819 15, 22 Committee 147, 150 Printing Act of 1846 20, 21, 22 money orders 94, 98, 112, 114, 122, 125, 127 Printing Act of 1852 22, 23 Monotype 71, 84, 91, 95, 109, 114, 116, 117, 119, 132, Printing Act of 1860 30, 159 150, 159 Printing Act of 1895 67, 74, 79, 105, 118, 160 Moore, William W. 18, 31, 45 printing appropriations 26, 62, 84, 105, 108 morale 90, 120 printing charges (charges to agencies) 93, 97, 98, Napier press 16 103, 114, 125, 127 National Calendar and Annals of the United States printing costs 15, 17, 18, 23, 25, 26, 38, 40, 41, 42, 51, (periodical) 16 85, 94, 122, 127 National Intelligencer (newspaper) 9, 10, 11, 12, 16, printing costs — comparison between old and new 17, 18 systems 40, 41, 42, 44 National Journal (newspaper) 16 printing costs (cost to the Government) 16, 17, 18, national printing office proposed 14, 17, 18, 26 21, 27, 41 National Recovery Administration 124 Printing Industries Conference (1931) 120 Nautical Almanac 43 printing investigation, 1840 (Congressional) 17, 19 Navy Department 8, 45, 98, 109, 131, 137, 140, 154 printing investigation, 1842 (Congressional) 20 neighborhood around GPO see GPO site printing investigation, 1858 (Congressional) 24 newspapers 2, 9, 13, 23, 24, 26 printing investigation, 1860 (Congressional) 23, 26, Nicholson, A.O.P. 23 27, 29 Nicholson, Thomas 2 printing investigation, 1887 (Congressional) 67 Nuthead, William 2 printing investigation, 1870 (Congessional) 46 Official Gazette (Patent Office) 48, 94, 118, 128 printing investigation, 1876 (Congressional) 51 Official Postal Guide 102 printing investigation, 1905 (Congressional) 85

165 printing investigation, 1908 (executive) 90, 92 sick leave 105, 127 printing machinery 37, 42, 57, 58, 95, 99, 109, 119, sick room 83 132, 146, 150 Sights and Secrets of the National Capital 35, 37 printing presses, colonial 3 Silvester (Sylvester), Peter 8 printing rates see printing charges sixty-fifth anniversary of GPO 115 prisoner-of-war stationery 139 slug-casting machines 109, 110, 114, 116, 129, 132 private printing 66 Smith, Samuel H. 9, 10, 11 Proctor, John Clagett 37, 38, 123 Smoot-Hawley tariff act 118 procurement of printing 117, 129, 132, 133, 134, 136, Social Security printing 127 146, 157 soldier ballot paper 139 production 45, 68, 93, 96, 103, 125, 131, 150 space problem see GPO Buildings — condition Production Division 159 Spanish American War 78 proof room 56, 57, 67, 77, 159 specialty printing waiver 126 proof sheets 77 spelling reform 86, 87, 88 Public Documents Library 89 Spooner, Alden 2 Public Printer (title established) 51 Spooner, Judah P. 2 Public Printing, Select Committee on (1840) 17, 24 St. Aloysius Church 38, 56 Public Printing, Select Committee on (1860) 29 stable 36, 37, 69, 81, 83, 159 Public Works Administration 124 Stanton Hospital 38 Public occurrences both foreign and domestick State Department 8, 64, 141 (newspaper) 2 steam power 81, 157 “publick” printers 1, 2, 3, 4, 5 Steedman, General James B. 23, 26 purchasing 88 stereotype see platemaking Purchasing Division 159 Steuart, Andrew 2 Rapine, Conrad, & Co. 10 Stillings, Charles A. 51, 85, 86, 87, 88, 89, 90, 91 ration coupons 139 strike in bindery 39 Reading, Thomas 2 Style Board 107, 124 recovery agencies (1930s) 124 Style Manual 67, 107, 124 Register of Debates in Congress (periodical) 12 Superintendent of Accounts 102 retirement 96, 103, 123, 150 Superintendent of Documents 74, 75, 79, 80, 88, 94, Revere, Paul 3 103, 108, 110, 117, 119, 122, 125, 146, 148, 158 revolving fund 147 Superintendent of Public Printing 22, 24, 26, 27, 28, Richardson, James D. 80, 151 29, 30, 31, 32, 35, 36, 42, 43, 44, 45, 46, 51 Ricketts, Oscar J. 84 Supreme Court 20, 29, 57, 67, 108, 143, 143, 160 Ritchie & Heiss 20, 21 Swaine, John 9 Ritchie, James 21 Swampoodle 36, 56 Ritchie, Thomas 16, 17 syllabication 116 Rittenhouse, William 3 tabulating cards 117, 122, 149 Rives & Bailey 48, 52 tax forms 122, 139, 148 Rives, F. & J. 45 Taylor, Jacob 2 Rives, F. & J. & Bailey 49 Telegraph see United States Telegraph Rives, Franklin 51, 52 telephones 55, 157 Rives, John C. 12, 14, 18, 19, 25, 28 termite section 135 Rogers, Gen. Thomas A. 14 Test and Technical Control Division see Testing role of GPO in Government 103, 128, 160 Section Roosevelt, Franklin D. 127 Testing Section 107, 108, 113, 116, 157 Roosevelt, Theodore 84, 85, 87, 90 Thirteenth Amendment (U.S. Constitution) 41 Rossiter, William S. 85, 90, 91 Thirty Years in Washington 78 Rough and Secret Journals (Continental Congress) 3 Thomson, Charles 3 Rounds, Sterling P. 58, 59, 60, 61, 62, 63 Tiber Creek 37, 38, 56 rush work surcharges 150 Timothy, Lewis 2 safety 67, 72, 93, 149, 157 Titcomb, Benjamin Jr. 2 sale of documents 74, 75, 79, 94, 96, 103, 108, 125, Towers, John T. 23 146, 152 traffic, plant 140 Scheduling Board 136 transportation 55, 81, 133, 138 Seaman, A.G. 23, 24, 26 Treasury Department 8, 9, 15, 42, 45, 62, 93, 121, Seaton, William 11 122, 132, 135 secret work 99 trucks, electric 82, 93 Secretary of the Senate 9, 16, 21, 22, 31, 32, 106 Truman, Harry S. 145 security measures 149 Tucker, Beverly 23 Select Committee on Printing (House) (1858) 24, 29 Twain, Mark see Clemens, Samuel Langhorne Select Committee on Public Printing (House) (1840) type 3, 15, 37, 48, 54, 57, 60, 65, 68, 70, 114, 117, 141, 17 159 Sentinel see Washington Sentinel type measurement 46, 126 Sesquicentennial Exhibition, Philadelphia, 1926 116 type metal 97, 107, 117, 131, 157 seventy-fifth anniversary of GPO 126 type sizes 65 seventieth anniversary of GPO 121 typesetting machines 50, 64, 65, 71, 84, 90, 97, 114, sheepskin binding 82 118, 121, 132 Short, Thomas 2 Typography & Design Division 126, 136, 158, 159

166 Union Building 83 Union, The (newspaper) 13 100 Years (and a little more) unions 23 United Nations 140 Year Page Year Page United States Reports (Supreme Court) 108, 143 United States Reporter (newspaper) 13 1639–1789 1 1908 90 United States Telegraph (newspaper) 12, 17 1789–1861 7 1909 92 United Typothetae of America 109, 110, 112, 120 United Veterans of American Wars 104 1861 35 1910 93 Universal Gazette 10, 11 1862 39 1911 94 veterans 20, 111, 119 1863 39 1912 95 Veterans Bureau 109, 113 1864 40 1913 95 volume of work 68, 80, 103, 125, 131, 133, 150 wages 19, 42, 43, 47, 50, 51, 54, 60, 67, 68, 71, 74, 80, 1865 41 1914 95 81, 92, 94, 95, 96, 98, 101, 105, 112, 113, 114, 120, 1866 42 1915 95 122, 123, 125 1867 44 1916 96 Wait, Thomas B. 2, 3 1868 44 1917 96 War Department 8, 140 War of 1812 11 1869 44 1918 98 War of the Rebellion official records 56, 70, 71, 81 1870 45 1919 100 war surplus material 110, 144 1871 47 1920 101 warehouses 78, 126, 128, 131, 137, 146, 151, 160 1872 47 1921 101 wartime printing 36, 78, 96, 97, 99, 100, 130–142 Washington Advertiser (newspaper) 9 1873 48 1922 104 Washington Book Store 10 1874 48 1923 108 Washington Monument 63 1875 51 1924 112 Washington Repository (newspaper) 10 1876 51 1925 114 Washington Sentinel (newspaper) 23 Washington Union (newspaper) 20, 23, 26, 27 1877 54 1926 115 Washington, D.C. established 7, 8 1878 54 1927 116 Washington’s First Inaugural Address 124 1879 55 1928 117 waste paper 101 1880 55 1929 117 watermark 113, 117 web magazine presses 120 1881 56 1930 118 Wendell & Van Benthuysen 21 1882 58 1931 120 Wendell, Cornelius 21, 23, 24, 26, 27, 28, 30, 36, 43, 1883 59 1932 121 44, 46, 123, 159 1884 61 1933 123 wetting/drying paper 59 Weyman, William 2 1885 62 1934 125 Wilson, Gen. James J. 14 1886 63 1935 125 women workers 19, 58, 67, 73, 89, 95, 105 1887 65 1936 126 workforce 38, 74, 103, 113, 145, 150, 152 1888 68 1937 127 working conditions 46, 55, 68, 104, 121 workrooms 57 1889 69 1938 127 workweek 118, 119, 122, 125 1890 69 1939 128 World War I 98, 99, 100, 110, 117 1891 70 1940–1945 129 World War II 129–140, 144 1892 70 1946 143 Writings of George Washington 120 Zenger, John Peter 2 1893 71 1947 144 1894 71 1948 145 1895 72 1948 145 1896 76 1950 146 1897 78 1951 146 1898 78 1952 147 1899 79 1953 147 1900 80 1954 148 1901 81 1955 149 1902 82 1956 150 1903 83 1957 150 1904 84 1958 151 1905 84 1959 151 1906 85 1960 151 1907 88 1961 152

167 168