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The Gfen Alden Story
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ARCHIVES
HD 9 54^5
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INSTITUTE OF MUNICIPAL GOVERNMENT
WILKES COLLEGE
1958
��^RCHFVES
FOREWORD
5' Bi
Is the coal Industry dead?
the coal business to stay?
Is the Glen Alden Corporation in
Was it the refusal by county officials
to lower assessments on remote coal the sole reason behind the
merger of the Glen Alden Corporation with List
Industries?
These are just some of the difficult questions which may remain unanswered for some time.
Since the original announcement of
the merger, many other developments of major import have occurred.
Some developments are related to coal as a resource and part of the
fuel assets of the nation.
sale of anthracite.
Some are concerned with marketing and
Still other news will affect the tax base in
many communities in Wyoming Valley, and therefore the quality
of the governmental services which these municipalities render'to
its residents and Industry.
This paper was presented on April 22, 1958 at Wilkes College
before tne Luzerne County United Community Development Conference,
a newly created organization in Luzerne County which has as its
general objective the study of municipal problems with a view to. ward community betterment.
ST
The author, Tom Bigler, as Program
Director at Radio Station WILK, has been a keen student of the
problems
of the coal industry. He has aired many of his views on
the "Editor's Page" over the same station.
He is, however, one of
the few commentators who has long maintained- a proper perspective
of the declining anthracite industry by exhorting responsible
leaders to plan for the future of the area both with caution and
vision.
Hugo V. Hailey
Institute of Municipal Government
Wilkes College
45331
�i
THE GLEN ALDEN STORY
Tom Bigler
I
It has been our purpose to look at the Glen Alden story - not so much as
an entity in itself, but as it illustrates the general problem facing the
anthracite industry, and our community.
We all know that the industry is in parlous times. And that in contrast to
the not-so-long ago when it was the base of what essentially was a one-industry
■;
economy in this region, anthracite has been replaced by an industrial complex
employing more people, paying more mnney, accnunting for a greater share nf our
economy.
Still, on the basis of figures released by the Anthracite Institute
several weeks ago, it is obvious that the industry - even now - remains a most
vital factor.
Last year, 1957, a bad year for the industry, found organized and non-uninn
anthracite producers paying out in wages 124-million dollars.
This does not
include salaries or executive pay, nor does it include the share in payrolls
paid to transportation and suppliers and «ther supporting segments ef the
economy.
Some sense of perspective can be gained from the fact that it would
take 55 industries the size of the Wilkes-Barre operation of Eberhard Faber
to equal that 124-millions in payroll poured into our economy by the Anthracite
industry last year,
And those of you who have worked on the problem «f bringing
new industry into this region can best appreciate the task of attempting a
replacement.
This is just one reason why consideration has been asked of just what
sacrifices we might be willing to make to gain such new industries, and whether
we ought to be willing to consider some reasonable effort on behalf of an
industry already here.
Well, Glen Alden's problems, generally speaking, are
the same as those shared by all anthracite producers. The market has gone to
pot. And it has gone to pot partly because we are in a "convenience" era.
�While coal heating manufacturers may have developed automatic equipment com-
parable to that utilizing other fuels, it came too late to stem the shift.
Thia is not to say there is no future for anthracite, for there is.
Appar
ently the future lies in some use other than as a fuel, and we have yet to
stumble on that application.
In the meantime, what has been a kinetic industry,
now has become one of enormous but still untapped potential.
In this interim
period, producers of anthracite as a fuel, are caught in a squeeze.
Nine years
ago, more than 72-thousand people were employed in the anthracite industry in
this region.
Last November, there were only 25-thousand.
Production figures
show a similar decline. Anthracite tonnage last year totalled 23-million tons
compared with more than 28-million tons in 1956; and the all-time high of more
than 100-million tons mined in 1917.
In fact, anthracite production last year
was the lowest since 1878.
Understand, it was apparent in 1950 that the industry was in deep water and
emergency procedures were instututed in an effort to halt the trend.
In January
of 1953, Glen Alden brought in a mining executive who had compiled a brilliant
record with Anaconda Copper, Francis 0. Case, to take the corporate helm.
Within
a year, Mr. Case achieved a 20$ slash in overhead costs by reorganizing the com
pany’s wholesale setup and selling its retail outlets.
Sales policies were
revised drastically. • Research into new uses for coal was begun and a program
to rebuild demand among home owners and operators of commercial buildings got
underway.
By early last year, Mr. Case was able to report a 30$ reduction in
mining costs, in spite of the fact that miners' wages had gone up 33$.
At the same time, Mr. Case steered Glen Alden into reorganization as a
corporation, and in two moves, used its assets to purchase as subsidiaries two
diversified and profitable operations:
Mathes Air Conditioning and Ward-La-France.
As the parent company, Glen Alden could use the profits of these two firms to
cushion its own losses and to provide income for further growth.
year ago at this time, the future looked good.
In truth, a
So good that when the Maremont
�proposal broke to the surface, Mr. Case and a minority of the Board went inte a
successful proxy fight to prevent what was represented as an effort to grab the
Glen Alden assets and leave the Anthracite operations high and dry.
However, by this time Glen Alden had become a recognizable fish in the sea.
While it cast about for suitable industries to nourish it’s corporate interests,
the sleek fat of it's own tax potential made it attractive to other denzins.
Late last Summer, List Industries moved in on the scene.
As you know, List
Industries bid for a block of common stock of Glen Alden Corporation, agreeing
to pay a shade over the current market price for the stock, providing a certain
minimum number of shares materialized.
More than the minimum turned up and the
end found List with 38% of Glen Alden Common, the largest single stock holder
and in effect majority stock owner of Glen Alden.
Now it is List that calls
the tune.
List Industries is a legitimate holding company, it invests for profit, and
it appears that Glen Alden's attraction lay in two nearly irresistable charms;
the two subsidiaries were profit makers, and the anthracite operations held a
tidy tax benefits package estimated to value more than what List paid for the
stock.
List hardly could be expected to have the same proprietory interest in
Anthracite that Glen Alden has and consequently the List management, looking at
their new investment from theix- perspective, must concern themselves with either
how to make the anthracite operation profitable too, or how best to get rid of
it.
The picture for them is not encouraging.
Glen Alden payroll in 1956 - 19g million dollars, about half of what it was in 1950.
Glen Alden payroll last year - 15 million dollars, a drop »f about 23% from 1956.
Glen Alden employees in 1950 - 12 thousand.
Glen Alden employees last November - 34 hundred-80;
as many... and almost half
of these were idle the last quarter of 1957.
Glen Alden production in 1947 - 9 million, 335 thousand tons; in 1957- 3 million,
�453 thousand tons — a two-thirds cut in ten years.
Anthracite sales were off 12% in October; 30% in November.
for November alone amounted to 745 thousand tons.
The shrinkage
Glen Alden, as of December 1st,
had a quarter of a million tons of Anthracite above ground, washed, sized, polished,
sitting in box oars, all dressed up and no place to go.
Then there are production
problems, the solution of which is beyond the industry's ability to cope.
flooding is one.
Glen Alden currently pumps 65 tons of water for every ton of
coal brought to the surface.
alone.
Mine
Glen spends two million dollars a year on pumping
True, the Federal-State Mine Drainage program is underway to correct
this problem, but Glen Alden officials estimate it will be another year before
the program begins to relieve the present costly burden.
It should be noted here that scare stories to the contrary, the Glen Alden
agreed many weeks ago to cooperate with the State and Federal Mine Bureaus in
the pumping problem.
Glen Alden officials agreed to a two-year term, and could
go no further for the simple fact that they do not know what their financial
ability and the market will be two years fr«m now.
Another problem: Anthracite must mechanize if it is to compete with other
fuels, or even if it is to enter such new fields as are now possible.
However,
the design and development of machinery for use in any specialized field is
enormously expensive.
The companies now manufacturing such equipment make it for
those mining operations that are large enough to assure a return on the investment.
For example, the Joy Manufacturing Company has made a fine automatic coal digger
and other mechanized pieces for use in the bituminous industry.
But, understand,
bituminous is a 500-million to 600-million ton a year industry compared with the
25-million ton Anthracite industry.
Glen Alden did make a sizeable investment
in attempting to secure such equipment.
But the amount it could invest was
nowhere near that needed to cover the research and development to adapt a soft
coal digger to a hard coal digger.
Their attempts failed.
Another example of where mechanization is vital is in the pi’eparation »f the
�coal once it has been mined.
sized coal.
Present methods result in a preponderance of large
The industrial market demands fine sizes - Barley, No. 4 and 5.
The
cost of reducing large sizes to the industrial size virtually prices anthracite
out of the field.
Yet, a market for fine sizes of anthracite in scintering is
growing, a similar advances in other metallurgical fields could increase demand.
But, to meet this market, the industry must have the digging and processing
machinery which it is now beyond their capabilities to develope.
Another vexing problem is the growth of non-organized mining operations.
The dog-hole miner, the one-shaft independent, most of them spawned by the
destructive practices instituted by Philadelphia and Reading when they faced the
same problem Glen Alden does now, have tended to take more and more if the
available sales market.
These independents pay little tax on the property they
mine; wages are an unknown since they are not organized by unions; safety prac
tices largely are ignored; royalties are unknown - in short, production runs at
a far lower cost for them, giving them a tremendous advantage in sales.
Their
impact is indicated by the fact that last year, these non-organized independents
accounted for almost one-fifth of the anthracite market.
That could be the margin
of survival for the organized, responsible producers.
So far, these problems are common to all coal producers and become greater
only as the producer is larger.
But Glen Alden's unique and most glaring problem is property - it is coal
poor.
When the Glen Alden holdings were gathered, there was no horizon to the
potentials of the industry.
Glen Alden became and remains one of the largest
if not the largest property estate, and mineral property.
In a time of
collapsing markets, rising operating costs, the tax burden has become, for Glen
Alden, intolerable.
In the past 7 years, the assessment of Glen Alden holdings
were reduced by 25%, but each time the assessed value was reduced, the municipal
millage was increased so that the total tax reduction over those seven years came
to less than 10%. , . and when related to production, the tax per ton actually
�Increased.
Last year, Glen Alden paid approximately 50$ of all local taxes by
all local anthracite producers.
Specifically, on an assessed valuation of 37 million dollars, Glen Alden
paid to the townships, boroughs, cities, school districts and the county,
2 million-400 thousand dollars last year.
The Glen Alden has made a point that on a per ton basis it paid approximately
63i cents per ton compared with the 15'2 cents per ton average paid by the balance
of the industry.
However, it should be noted that there is no comparison in the
holdings of Glen Alden with that of any other company and that the difference in
the per ton tax load is due, largely, to the vast reserves held by Glen Alden.
At any rate, under various pressures which now included a majority stock
group that could and would insist that Glen Alden’s coal operations stand or fall
on their own, the time came to cut bait.
desperate measures.
Glen Alden officials took a number of
Certain operations were curtailed, employees laid off,
salaries and pensions reduced drastically, and a tentative start made to sell off
some of the real estate.
And moved to reduce the assessments and taxes, pushed.
It seems unlikely that Glen Alden officials were rOally surprised by
rejection of their petition to the Luzerne County Board of Assessors.
Yielding
to Glen Alden's petition, a move that simply sought to transfer a problem from
the Corporation to the governments, immediately would have opened the Board to
demands, not only from other coal operators, but from other property owners as
well.
Too, consequences of a decision favorable to Glen Alden would have had
such far-reaching impact in the County that the Board of Assessors would want
far wider support than that inherent in their authority.
Certainly such a
reduction as that asked - 50$ - would hit some of our municipalities very hard,
particularly those communities where lax government had come to depend on Glen
Alden taxes for the bulk of their operations.
However, it is apparent there arc thousands of communities in Pennsylvania
that must subsist on surface property taxes.
And while it is true that the nature
�of our mining operations has boon such that taxable surface development has been
discouraged, it seems foolish to be unwilling to examine the possibilities of
shifting some of the load.
Foolish because regardless of what happens, it is
within the realm of the possible that many may have to do just that.
presents no insuperable obstacle is proven by the Scranton Story.
That it
Along this
same line, much has been made of tho problem that would face Hanover Township
should the reductions be granted.
A point might be made by examination of a
table from the current Wilkes-Barre Publishing Company Almanac.
Hanover Township
is listed as having some 3700 taxable properties, which combined with coal
properties gives the township a total valuation of more than 24 million dollars.
By comparison, Nanticoke city with twice the population and yet only about 100
more taxable properties has a total valuation of about one-third that of Hanover
Township.
Now Hanover Term ship officials claim that any substantial reduction
in Glen Alden taxes would be a disaster of the first magnitude for the Township
government.
Yet, in the past 5 years, Nanticoke has been paying off its bills
and even accumulating a tidy surplus. What seems apparent here is that some
prudent government might go a long way in making an adjustment.
What is needed before the public can consider absorbing Glen Alden's burden
or that of any other anthracite producer, it seems to me, is a specific plan in
which the mutual problems and benefits are distributed, recognized, and accepted
by those who elect our officials, as well as by the officials themselves.
Such
a plan should cover programs for municipal tax adjustments as well as for tho
protection and utilization of properties affected, and should bo tho result of
board-baso public planning.
This last is imperative, of course, regardless of
the future of the anthracite industry.
One of tho possibilities open to Glen Aldon, in view of its particular
problem, is that of placing tho firm's mineral deposits in trusteeship. Wo have
been led to believe that Glen Alden officials take this proposal seriously, that
it was in the process of committing a deed under which the county would receive
�trusteeship under which Glen Aldon in the future would have no more right to the
coal than anyone else, when it was discovered the County Commissioners would not
accept it.
I also have been told for the commissioners that the proposal never
was made formally.
However, I do remember this statement in an exchange with Mr. Case.
Ho
said: "I feel very strongly that the anthracite natural resources will be worth
a tremendous amount to some future generation.
It is a sad commentary on the
present generation to realize that they are not willing to preserve such a
resource." unquote.
Another of the prospects faced by Glen Alden, and which caused greatest
alarm to us is that of leasing its properties to independent operators.
An independent operator, by virtue of his size has no interest in so conducting his operation as to have a sustained producer.
He would bo interested
in gaining the maximum return within the minimum time.
He would have no interest
in what might result to surface properties. And for the result of this method
to usoable surface properties, we have only to look at Schulkill County.
Two recent developments have had a claming effect as far as Glon Alden is
concerned.
One is the assurance of Albert List that such piecemeal disposition
of property is not under consideration now.
The second has been the appointment
of Harry Bradbury and Harold 1,Tickey to top posts in tho coal management segment.
The principle experience of both mon has boon in tho production of anthracite
for marketing; hardly the sort of men one would draft to liquidate a business.
The fact of thoir association with Glen Alden would indicate a determination to
continue as a positive factor in tho anthracite industry.
Of course, this 'does
not necessarily mean that tho same scope or scalo will bo maintained.
Indeed,
evidence points to a considerably tightened operation.
At tho very worst, this again offers tho community time in which to con-
sider moves assisting the industry to adjust to market changes, and to advance
tho public1s stake in its own future.
�For one, wo might investigate the feasibility of accepting some of the
mineral reserves to be held in trust for that future time when development of
new uses and now equipment will open a whole now future for anthracite,
For
another, we might consider a taxing system in which the bulk of tho levies would
be placed on anthracite mined, and token levies on reserves.
Still another
would be a system of public and private financing of a long range research pro
gram under which new mining and processing equipment, and new uses for anthracite
could be explored and developed.
Somewhere between the private and public interests seems to bo the matter
of protecting surface properties.
For example, by giving assessment credit for
coal left in place as support pillars.
And we might explore other incentives
to the industry that would result in protection to surface properties.
On the
public side of the ledger, we might consider planning municipal taxing and
assessment programs in which mineral reserves play only a negligible part.
Another is adoption of greatly toughened standards for surface support and
liability in mining codes; stringent enforcement of comprehensive conservation
practices; refill and reforestation of land despoiled by strip mining methods.
Having had in the past few months, ample time to look at the prospects that
would follow collapse of responsible mining activity, two general avenues seem
open.
To seriously consider what sort of program could be accepted that would
assist the anthracite industry in this adjustment period.
And paramount, to
realize that in the long run, it is the utilization of surface property, careful
conservation and exploitation of our resources, that determines both the poten
tial revenue of our governments, and the economic well-being of our community.
Of course, realization of most of those goals moans that someone will have
to build a fire under our State Senators and Representatives,
For too long a
time the public interest has been ignored while the concerns of the special
interests who manage to make sizeablo compaign contributions huvo boon advanced.
�The past two sessions of the state legislature have soon several measures
introduced that would expand the public protection and interest.
In one case,
the bill cloorod the House, but was watered into inanity in the Senate,
another, it couldn't clear even the House.
In
Many constituents, we suspect, would
be surprised to know what the voting record of their representatives on these
issues is.
In all honesty though, perhaps wo have the cart before the horse; perhaps
it is the public under whom the firo needs to be built. When the public interest
is clearly enough aroused that no amount of campaign contribution can overcome
it, then perhaps we will get the sort of legislation wo need.
At any rate, there would seem to bo large areas here in which a thorough
community or regional planning program could make a vital contribution to our
future.
�AEDENDUM:
The question was asked: yes, but what about specifics, say, readjustment of
the municipal tax structure.
How docs ono go about getting this done?
Frankly,
that is an answer for which I look to this group.
Approaches readily apparent are tho Pennsylvania Econony League and thoir
groat experience in studios of municipal tax structure. Then there is the
Pennsylvania Citizens Association which recently held the first of a two-part
Institute devoted to the problem of governmental structure and how to get it to
operate on your behalf.
In this realm, few organizations have had more success
ful experience than tho League of Women Voters.
It seems to mo that, theory and philosophy to tho contrary, most of our
governmcnt is done by and for minorities; minorities who aro vocal, have a caso,
and the devotion to persevere.
Admittedly, it is a hard road.
Sometimes it appears that tho legislature,
whether it be the community council, the state Assembly, Congress, or the General
Assembly, lags tho public. For example, before the Waster rocoss, most members
of Congress wore champing at tho bit for a tax cut.
Apparently their canvass
of constituents at home revealed that the public desired a slow approach, wanted
a tax cut loft as the last urgent measure.
It is true that our municipal govern-
ment seems less susceptible to public opinion. To some degree this may bo the
fault of an appathotic electorate that time-after-time stay homo in enough
numbers to permit well organized machines to operate without hindrance.
ample of the problem "how" might bo the issue of sewage treatment.
An ex
To a small,
but vocal group of us, this has seemed to be a most obvious and simple need.
Over the past five years, column after column of newspaper space, and broadcast
after broadcast on regional radio and television stations, wore devoted to the
whole range of problems and solutions to this matter,
With the exception of one
i-.tvspspor, all otter tells 6™ full Bupport to creating a public climate in
which the 1BBUOB would te tedorBtocd, ted hopefully, the rospoteibllltios ateeptod.
�But almost without exception, municipal governments remained hostile to
the propositions. Ono
can sympathize with the representatives. Tho matter of
heavy investments and added assessments
arc never "popular". And in spite of
the most earnest approach to public education, there was no public clamor for
such improvements,
This seems to indicate an area worth examination.
public?
How do you get an aroused
It seems that an enlightened and aroused public will bo fundamental to
any valid rehabilitation program our community undertakes.
45331
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HILKES COLLEGE 1 FBRARY
�Wilkes College Library
Wilkes-Sarre, Pa.
�
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The Glen Alden Story, 1958
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1958
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WO
TRAFFIC LECTURES
APQHfVfi S
HE5.T0
WGdZ
INSTITUTE of MUNICIPAL GOVERNMENT
WILKES COLLEGE
1958
LIBRARY
��CHWB
W (o % £
FORE7VARD
No one problem looms larger today in the eyes of our citi
zenry than does the regulation, enforcement and study of traffic. While
the marvels of science with its forecasted flights into space headline the
front pages of our papers and capture the fervor and imagination of young
and old, so too, do the every day reports of traffic tragedies instill in all
of us the immensity of the problem the automobile presents along with
its recognized convenience and position in our nation's economy.
You who are right in the scene in daily contact with directing
and enforcing traffic are more aware than others of the major proportions
the problems of traffic safety have assumed.
Judging entirely by my own personal observations and by the
reports that come in to me at the Wyoming Valley Motor Club, I know that
the police of our communities are doing a magnificent job handling traf
fic that has outstripped the engineering and design of our city streets and
local highways. Certainly, ten or twenty years from now our roadways
will be better designed and constructed to care for this great traffic flow
but, in the meantime, any alleviation of the problem, any decreases in
our spiraling traffic tragedies
directly in your capable hands.
To help you help us, Wilkes College's Institute of Municipal
Government have presented these five lectures on traffic safety and its
attainment. I know you will find these lectures helpful to you in your
daily work and, at the same time, they will impart a full appreciation of
what a vital role you have assumed in your chosen careers.
Personally, one of the basic premises I've operated on all my
life has been the fact that if you have a dollar, and I have a dollar and we
exchange dollars, we still each have a dollar. However, if you have an
idea and I have an idea and we exchange ideas, we both have two ideas.
In the same way, your attendance at this eeries^of lectures
will give you new methods and new ideas of how to help us from becoming
traffic accident statistics. I sincerely believe it will make you even
finer officers than I already know you to be.
ANDREW J. SORDONI
President
Wyoming Valley Motor Club
58786
�DIRECTING TRAFFIC FLOW
Clark E."McClelland
Gentlemen, I do not need to go into a long discussion in the
seriousness of the traffic situation as it exists today-- and as it will in
crease in seriousness.
Forty thousand persons killed on our streets and highways in
one year'. This, plus the number of seriously injured, is almost unbelieveable. This, in a country that is wrought up to its present pitch over the
fact that another country may get to the moon before we do'. We are ready
to spend any amount to accomplish this feat, and justifiably so, in the
world picture. Yet, we cannot assure our citizens that they can drive to •
and from their jobs without exposing themselves to possible fatal accidents
every day. Our streets and highways should be made as safe as outer space'.
To be effective, any program of traffic control and accident
prevention must have EDS added. This additive, nebulous and intangible
as some of the ingredients of modern merchandise, is very real. It can be
seen and felt in every successful traffic program.
For a better view of EDS let us develop the traffic problem in
several of its aspects;
Fundamental approaches to the problem are through the wellknown avenues of education, engineering and enforcement. The degree to
which these fundamentals are effective depends upon the soundness and
logic of the methods used, the ingenuity with which devices are applied,
and the acceptability of procedures to the public.
The objective of traffic engineering is to provide the best func
tional use of existing roadways with a reasonable balance between safety
and movement. Also, to plan routes and functional design for new streets
and highways.
The objective of the traffic safety educator is to bring about
voluntary compliance with regulations applied to the use of streets and
highways through educational and advertising techniques for masses, spe
cific groups and individuals.
The objective of the police is to aid in the function of the streets
and highways by manual assistance at intersections and through parking
control -- and to gain widespread voluntary compliance through enforce
ment of regulations, for safe operation of motor vehicle transportation.
�A fourth element is the courts and prosecutors. Our courts
to a large degree regulate the effectiveness of our enforcement program.
However intelligently and diligently enforcement is applied, a judge or
prosecutor not sincerely interested in the traffic problem nan defeat the
best enforcement effort devised.
None of these areas of control can have a maximum effect
without the aid of the others. All must coordinate their efforts in har
mony toward a common goal. All must be fortified with E.D.S.
First of all, the police should examine the need for traffic offi
cers in the smooth and efficient movement of vehicles and in parking con
trol. Where -- when-- and how much? That should dictate the number of
officers necessary to give adequate assistance to traffic. Nothing brings
public criticism more quickly or more vehemently than inadequate and
inefficient police handling of traffic. Conversely, nothing is appreciated
more, or brings quicker enthusiastic commendation to an officer and his
department than an efficient, well-trained traffic officer of material assi
stance in stimulating a rapid flow of traffic through an intersection.
Ui Io I
T
The same attitude of the public exists as to parking control.
Parking limitations and restrictions are accepted in good grace if en
forced rigidly, impartially and fairly. Better to have no parking restric
tions than to have them without requiring people to obey them. It is ridi
culous to have two -hour limits and let cars park all day; or to have "tow
in" zones and never tow a car in, or to have no parking zones and let cars
occupy them. Lax enforcement destroys the respect for police and under
mines the rest of the traffic program.
No department can be adequately effective without properly
trained men. The greatest economic waste that any city experiences is
hiring inexperienced men, expecting them to learn to be policemen
through contact with other policemen and the public. They may eventual
ly become officers, but only after much inefficiency. Often they end up
with disastrous results, to themselves and to the public. Formal class
room training will not make an officer without experience, but neither will
experience without training produce a top-flight policeman. Because ex
perienced police officers are usually not available for hiring it is neces
sary to train the rookies we hire, if we expect to get the best from them.
Enforcement is at best a deterrent, not a compeller. There
can never be enough enforcement to compel society to obey. In its broad
est concept, enforcement is educational. In only a minority of cases is
it intended as punishment. It is intended to convert the driver to better
driving habits and to furnish an example to others. Enforcement is not
necessarily arresting the driver. It may merely be the presence of an offi-
�cer for psychological effect, an admonition or
written warning.
Accident reports resulting from police accident investigation
could be put to use by many individuals and groups; insurance companies,
attorneys, advertisers and many industries, but these uses are not the
purposes of accident investigation for the law enforcement officer. Even
prosecution resulting from the investigation is of secondary concern. The
principal purpose of investigating accidents is to provide quantities of
valid factual data upon which to base a logical and effective enforcement
program.
That program is one of selective enforcement aimed at cause,
time, place, and group. For the educator such statistics direct his efforts
in the same way in the proper direction. For the engineer such data fur
nish the nucleus for safety engineering on existing roadways. They help
him resist demands for engineering in places it is not needed. Such data
takes the guess work out of planning for all phases of traffic and safety
c ontr ol.
However well-planned an enforcement program may be, it must
be acceptable to a majority of the community. It is wise to remember that
ours is a government of the people --- God forbid ever of the police, by
the police, and for the police. This is not to say that the public will not
accept enforcement of the law; for they will. Yet the degree of acceptance
is based on the reasonableness of the law and the reasonableness of the
police.
Even a well-planned enforcement program, properly advertised
and supported, can fail to obtain widespread voluntary compliance, if en
forcement is seen to be inconsistent. Jncronsistencies can only be avoided
by clearly defined policies of a police administrator. When weaslt our
selves what degree of tolerance should be given in various types of viola
tions, we can summon to mind many degrees of tolerance and support
each with a valid reason. Yet, however valid the reason for tolerance,
the DEGREES of it differ among individuals.
Should a tolerance on speed be one mile over the limit, or five
miles, or ten miles — or should no tolerance be shown? If this decision
is left to the individual officer, a wide variation in enforcement can frus
trate the motorist. When a driver five miles over the speed limit finds his
excess "tolerated" in one section of a city or state, and receives a traffic
summons for the same degree of violation in another section, he feels he
has been : unjustly arrested. He cannot know what is expected of him.
I believe in a realistic freedom, I don't believe in putting up a
sign that says 35 on a four land divided highway and allowing the traffic to
�move 45 miles an hour and turn my back. To me that sign means nothing.
A speed zone must be realistic. Tolerance must be in instruments, not
in lax enforcement.
Most cities have streets poorly arranged for today's heavy
traffic. Many small towns with public squares are traffic monstrosities,
and some large cities have intersections where three or more streets
come together, or where two streets merge instead of bisecting. Such
conditions make it virtually impossible to equalize the flow of traffic with
signal systems. Engineers do an outstanding job with what they have to
work with, hut many situations cannot be solved without costly changes
in both streets and intersections.
The more prevalent these conditions in a city, the greater the
need for police assistance. When police ignore the conditions, a cry from
the public for assistance invariably results. Gratifying, police and engin
eers ingeniously use traffic cones, portable signs and signals and public
address systems on police vehicles to get the best movement on thorough
fares during peak hours.
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Proper manuel control of intersections requires training. Uni
formity of hand signals and clear, understandable signals come through
training and understanding the driver's visual problems. Training affords
an understanding of the need for equalizing the flow from different direc
tions and the coordination of flow between movements. Many of our colleges
and universities are offering such training through extension of services.
Wise police administrators make such courses available to their men.
We cannot emphasize too greatly the importance of close liai
son between the traffic engineer and the police. While the police would not
be expected to contribute too greatly in the matter of technical engineering
know-how, the data that is collected by the police department is the traffic
engineers' most valuable source of information. In turn, the police can,
and should, depend upon the engineer to furnish advice and information to
assist them in the basic functions of accident investigation, directing
traffic and enforcing traffic laws. Such interchange of information can re
sult in a smooth, well-planned program.
While the police, as we stated, cannot offer too much in a techni
cal plane relating to design or installation of facilities, the police should
develop an understanding of such maters and have the opportunity to review
plans before an actual installation is made. The engineer with all his techni
cal qualifications may still overlook some factor having an important
bearing on police work. The police will be required to patrol and enforce
laws, and if the proposed facility will create unusual or difficult problems
for the police it is better to recognize and discuss them before the facility
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�is installed than to wait until the problem becomes acute.
Interdependency of the police and traffic engineer shows up
most conspicuously in the realm of mechanical installations and mainten
ance. Parking meters which are out of order, signs which are down or
not legible, curb markings faded, worn away channel stripes, pose un
necessary burdens on the police. Not only is supervision over such run
down facilities hampered, but the public interprets the limited action of
the police as a general let-down in supervision and enforcement.
Another important police function in a traffic control and traffic
safety program lies in the field of education. In some large cities, depart
ments of Traffic Safety Education have been created in the city government.
In all such cases the police take an important role in safety education in
liaison with such departments. If no such special department exists, the
police should not miss the -cppixrtunity to carry on such a program from
their own department.
For the promotion of educational programs, men should be
carefully selected. Officers who take part in these programs should be
thoroughly acquainted with the traffic problem and the objectives of the en
forcement program. They should possess godd personality; be pleasant,
firm, conduct themselves with dignity, and carry themselves well. They
should be sincerely dedicated to their job. Their sincerity and dedication
should be apparent in their .enthusiasm to put over the program. A good
safety education program not only sells traffic safety but as a by-product
it sells the police'.
Perhaps now is the time to talk about the E.D.S. -- "an essen
tial ingredient of our product." E.D.S. is an old as time. It is elusive as
a rainbow and can come and go as quickly.
Being a law enforcement officer is like teaching, nursing, social
work and several other professions -- a public service. The honest law
enforcement officer has no prospect of appreciable dollar-gain or of fame
and fortune. He has only the satisfaction of rendering of service, that
warming satisfaction of being helpful to someone, the gratification that
comes from a job -well done.
Any program of traffic control becomes effective only through
a personal, enthusiastic for accomplishment, dedicated to an ideal, and
sincere in effort.
However logical the enforcement procedure, however, wellplanned the traffic control program and highly .organized the department,
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��DRUNKEN DRIVERS
Dr. John M. Williams
Before discussing some of the effects of alcohol on the body,
I feel that it is essential to define the condition of alcoholism. Therefore,
I offer you my definition of alcoholism. Alcoholism is a chronic • progres
sive incurable disease which is characterized by an abnormal reaction to
the ingestion of alcohol. The abnormal reaction is usually described as
uncontrollable drinking. With this definition is mind, let us talk about some
of the common effects of alcohol on the human body. In all people who drink
alcohol, the following maybe true, whether alcoholic or not:
In considering the effects of alcohol on the body, it is convenient
to consider its effect upon the various systems of the body.
(1) The effect of alcohol on the gastro-intestinal system:
When Ethyl alcohol is ingested, the first effect of alcohol is on
the mucuous membranes of the oral cavity, stomach, and the intestines. If
alcohol were not absorbed from the digestive tube the local effect of the al
cohol upon the tube would be its only effect, and there would be no problem
of alcoholism. However, about 20% of the alcohol is absorbed directly from
the stomach and the remaining 80% from the first three or four feet from the
intestinal tract. The rapid absorption of alc.ohol from the stomach and the
first few feet of the intestinal accounts for its rapid systemic effects.
Alcohol in a concentration of 7% will stimulate the stomach to
secrete its digestive juices. It is on this basis that a small amount of alco
hol taken with some substance to disguise the taste of the alcohol has a
stimulating effect on the glands of the stomach. On the other hand, concen
trations of 10 or 20% or greater, especially above 20%, there is a tremen
dous inhibition of the secretory action of the stomach. Not only is there in
hibition, but if one ingests distilled liquors of from 40 to 50% without dilution,
they may eventually cause severe inflammation of the mucuous membrane
lining of the stomach and the intestines. Thus acute alcoholic gastritis is a
very common condition which results from the ingestion of large quantities
of highly concentrated alcohol.
(2) The effect of alcohol on the nervous system:
The effect of alcohol on the nervous system is extremely import
ant because so many features of the acutely intoxicated person are a re
sult of the embarassment produced to the nervous system.
Alcohol is a continuously acting depressant of the nervous system.
The brain centers of higher intellectual activity and those concerned with
emotions and personality appear to be depressed with the smallest concen
tration of alcohol. Thus, the initial symptoms are those which result from
the depression of the centers concerned with worry, anxiety; and there
appears a feeling of expansiveness, exhiliration, vivaciousness, loss of in
hibition. As a result, the individual frequently feels lifted up. Hence, al
cohol is often wrongly felt to be a stimulant. Actually, it depresses, and a
�sense of fatigue, worry, and inhibitions are depressed from the field of
consciousness.
As the concentration of the alcohol rises other segments of the
brain are effected. Next, the motor centers of the cerebrum and the cere
bellum which are the parts concerned with the coordinated movements are
depressed with result that all movement becomes progressively incoordin
ated, and reflex movements are significantly slowed. Third, as the con
centration of the alcohol continues to rise in the nervous system, neurologi
cal centers in the mid-brain which control eye movements are effected
which result in the limitation of eye movement and the glazed eye appear
ance. Simultaneously the greater alcoholic concentration has depressed the
forebrain centers to the point of marked interference with coordination of
muscles of articulation, and speech may be markedly incoordinated as well
as irrational and the staggering gait of alcoholism increases until ambula
tion finally becomes impossible and the individual lies down in an alcoholic
stupor.
If a large quantity of alcohol has been consumed immediately
prior to the stage of helplessness, concentrations of alcohol may continue
to rise to the level of 50% to 60% and so depress the respiratory and heart
centers in the hind--brain until their activity stops and death occurs.
(3) The effect of alcohol on the reproductive system:
The fallacies and fables extant regarding the effect of alcohol
upon the reproductive system are legend because of the primary depressant
action of alcohol upon the higher centers concerned with the maintenance
of social inhibitions are lost to some extent even with the ingestion of small
quantities of alcohol. The individual released from inhibitions may, there
fore, indulge in conduct which would never occur without the suppression of
inhibitions by alcohol. This action of alcohol upon the nervous system has
led to the belief that alcohol stimulates sexual desire directly. Such a be
lief is erroneous.
However, in mild intoxication, sexual activity may occur from
loss of inhibition of taboos. As the concentration of the alcohol increases the
ability to perform the sex act sucessfully progressively decreases. The
numerous erroneous opinions that alcohol itself causes blindness, prema
turity, insanity, stillbirth of the fetus are untenable.
Another fallaceous belief widely extant concerns the effect of
alcohol upon children conceived while one or both partners are mildly in
toxicated or alcohol upon the developing embryo and fetus as a result of the
ingestion of alcohol during pregnancy. There is no evidence to indicate that
alcohol acts any different upon the fetus than upon the mother. Alcoholic
mothers usually consume alcohol rather than an adequate diet of nutritious
food, and some of these effects are due to the malnutrition of the fetus.
Also, alcoholic mothers are more prone to infection, more frequently
have veneral disease, suffer from trauma before and during childbirth, and
are more likely to live in unhygienic surroundings.
Likewise, alcoholic parents generally do not provide proper socio
economic environments for their children. It is this combination of all these
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secondary effects of alcohol which accounts for the greater rates of still
births and defective children born to alcoholic parents.
Briefly with reference to the other systems of the body we may
say that alcohol has no significant effect upon the respiratory system until
very high concentrations of alcohol are consumed at which time the respira
tions become very slow and deep and may finally cease.
The effect of alcohol upon the cardio-vascular system, that is
the heart and blood vessels, is not significantly altered either until high
levels of blood alcohol are obtained. Tnen there occurs a progressive
slowing of the heart as the vital centers of the brain are depressed until
finally the heart may stop.
The effect of alcohol upon the excretory system indicates that
alcohol may stimulate kidneys to increase the output of urine, but this
effect is not marked.
The effect of alcohol upon the muscular system indicates that
muscles are not significantly effected until extreme high concentrations of
alcohol exists. The incoordination seen as has been mentioned before is at
tributed to the effect of this drug upon the nervous system.
The effect of alcohol upon the skeletal system is unknown. In
other words the effects that have been described here would be true in all
people who drink. However, the effect of alcoholic beverages on suscepti
ble people may be considered a moot question since it is not understood
as to what makes certain individuals more susceptible to the toxic effects
of alcohol than others. In other words, we are not sure if it is just pure
ly over sensitiveness upon the part of the body of an alcoholic to alcohol
beverage or if there are certain psychological defects in the individual which
renders him more susceptible or perhaps both the purely physical drug and
psychological problems may render the individual more susceptible to al
cohol.
Ideally, an iron clad case of intoxication should provide the
following type of data to the police officers;
(1) Proof of alcohol consumption. (2) Alcohol blood level of 1.15%
or greater at the material time in question. (3) Physical and mental exam
inations by physicians in which all or a combination of signs and symptoms
are present. With exclusion of all pathological conditions which may cause
similar signs and symptoms. Combinations of the following signs and
symptoms are usually found in intoxicated individuals: (1) Either furry
tongue or excessive salivation. (2) Irregular behavior, locquacity, excite
ment, or sullenness or ill temper, lethargy to coma. (3) Suffusion of the
conjunctiva. (4) Pupillary reactions - variable from extreme dilation to con
traction - equal or unequal. (5) Loss or confusion of memory. (6) Hesitancy
and thickness of speech. (7) Tremors or errors in incoordination.
In examining the patient the police officer should realize that
superimposed upon the effect of alcohol there may be shock of trauma and
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�anxiety of the situation which may also have an effect upon the suspect's
behavior and performance. There is considerable variation in the amount
of alcohol required to produce death in both men and animals. In general,
it may be said that when the blood alcohol level exceeds 500 mgm per
100 cc of blood the individual is either unconscious or dead. Errors of
technique and judgment can be made in all these evaluations. There is wide
spread impression in the public mind that a scientific test in infallible. How
ever, it should be realized that every measurement made by man has a
quantum of error in it, and the results may be too high or too low.
How about tests to determine whether a person is drunk? How
scientific are they? About 10 or 12 tests are recognized which would give you
the suggestion that no one alone is too good. Blood level test of 1.15% is felt
to be a blood concentration that makes a person intoxicated. The balloon
test is not meeting with too much favor just now.
In general, I would say the test is not better than the laboratory
that does it. The quantum of error can be very large. Two different people
can get two different results. The decision as to whether a person is intoxi
cated would have to be based on a composite of tests, the blood test is the
most universally accepted.
Now before discussing the type of individual we treat and see in
our clinic I thought it might be of interest to you to consider some of the
public health implications of the problem of alcoholism.
It is not easy to discover the number of cases of any illness
particularly one like alcoholism which is not a disease reportable to Public
Health Authorities, and it is a disease which, unfortunately, is still general
ly considered to be a reflection upon the family and hidden in an effort to
avoid disclosure. Likewise, the boundary line between the state of health
and excessive alcoholic beverage ingestions is frequently quite fuzzy. For
these reasons, it is particularly difficult to establish the incidence of chronic
alcoholism.
In the past century, the consumption of malt beverages and wine
has increased and distilled liquors has decreased. In the United States, it
has been estimated that from a total population of drinking age of 100,000,000
there are 60,000,000 who consume alcohblic beverages, 3,900,000 alco
holics, and 750,000 chronic alcoholics. The rate of alcoholism is 3,952
male alcoholics and l.,24S female alcoholics per 100,000 adult population.
Thus alcoholism is nearly foui- times as men as in women.
With such a large proportion of the population drinking alcoholic
beveragesit is not suprising that large sums of money are spent for these
beverages. Over nine billion dollars annually are spent for alcoholic beverages.
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�Approximately 4,1% of the personal consumption expenditures are spent
for alcohol, only 4.9% for medical care, and 5.3% for recreation. The
direct cost of the alcoholic beverage comprises only a part of the money
spent; for vast sums of money are spent by the alcoholic, his family,
friends, and from the public funds to pay for property damage and injury
and loss of life due to the actions of intoxicated persons.
It has been estimated that Ithese indirect costs contributable to
alcoholism total nearly three quarters of a billion dollars and include over
four million dollars annual loss in wages, one hundred and eight billion
dollars loss in crime and eighty nine million dollars loss from accidents.
These costs do not include those very important tangible losses which
occur from alcoholism such as divorce, unhappy families, and loss of
friendship, untold personal misery and suffering on which no money value
can be placed.
Since the type of persons likely to come under the supervision
of the police officer are most probably chronic alcoholics, at our clinic
at the Philadelphia General Hospital we have divided our chronic alcoholics
into three groups: First groups is the patient who has classical or uncom
plicated alcoholism. Second group is the person whose alcohol picture is
secondary to some underlying psychotic emotional or personality situation.
The Third group is the homeless man and skidrow type of alcoholic.
I
The first group is composed of individuals who have apparently
gone along for many years without any difficulty due to alcohol and either
insiduously or suddenly they exhibit what is often known'as the alcoholic
reaction. These are the people, who as a rule, do well with a great deal
of support from their families, Alcoholics Anonymous, their wives or some
other member of the family, and other patients in order to be sure that the
proper understanding exists. This type of alcoholic is the one we refer to
as the classical alcoholic.
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The second group, or secondary alcoholic, is composed of in
dividuals in whom their alcoholism is complicated by the fact that they are
psychotic, an emotional or personality disturbance that requires psychia
tric care. Here it behooves the general practitioner to see that this patient
is brought to clinical psychiatry. This is not, however, .the end of the
therupeutic regime because these patients exhibit the same compulsive
drinking as primary or classical group. It is obvious that complete absti
nence has to be the rule here as well as with the first group. Psychiatry,
alone, cannot help the alcoholic return to normal drinking because of the
metabolic changes that have taken place even if the emotional, psychotic
disturbance is overcome.
>
When a person is hallucinating, then you are dealing with a
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�chronically sick person. We at Philadelphia General do not use barbituates
but the ameliorating pills. It usually takes two weeks or so to recover from
hallucinations. We don't use morphines but tranquillizers now.
Hypnosis is sometimes used. However, it has not generally been
effective. The experience has been that those who have been alcoholics can't
go back to moderate drinking.
If this type of person is found in a coma-like state, you are ob
liged to take him to a hospital diagnose to determine his condition - to the
emergency section of the hospital and let a doctor decide what is the cause
of the stupor-like condition. It would be dangerous actually to take him to jail.
This may be a case where he may or may not be an alcoholic. If he is an
alcoholic, then take him to the jailhouse after examination.
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The third group of patients are those who are rarely seen by a
general practitioner and is composed primarily of homeless men or the socalled skidrow individual or bottle gangers. Here the problem is primarily
a socio-economic one although it may depend upon primary or secondary
alcoholism as well. Here we have a group of people who for any one of many
reasons (alcoholism, psychic, personality problems, physical disabilities,
severe emotional problems, etc.) have turned their back on what we call
normal society and have chosen to live is a social system in which drinking
is a necessary and integral part. They have a very dependent existance but
no thought of personal appearance, cleanliness or any of the so-called
luxuries of life. They exist at the expense of society and are no way amenable
to any type of treatment without first going through a period of long term
rehabilitatory institutionalization. I feel that this group of people cannot be
treated adequately in the office of the general practitioner.
How about the rumbunctious individual who can't be handled?
Pretty belligerent? Treat him like an incorrigible child if that is what he
is. He may need discipline. Handle him positively. Don't water down the
treatment.
How about the person who is "out for the night? " Approach
him like you would a normal individual. He is not an alcoholic? Most drunken
drivers are not chronic alcoholics.
Most of our alcoholics are passive, depeendent like people who
have to be treated like children. There may be loss of memory preceding
some blackout, but they should be treated like children, and skillfully.
Don't pull out the black jack. You must understand their illness, but don't
water down the treatment.
hi conclusion, let me say that we are ever encouraged by the
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�increased interest of the public at large to this problem and with the con
tinued support of (1) the police force, (2) the judicial system, (3) the medi
cal profession, (4) Alcoholics Anonymous, founded in 1935, (5) families
of alcoholics, that much will be accomplished in the future.
Dr. John M. Williams, M.D., has been
associated with the Philadelphia General Hospi
tal for the past two years.
Dr. Williams received his medical degree
from the Ohio State University in 1950. Prior to
attendance there he was a student a the University
of Southern California.
The doctor has done advanced study at the
Harlem Hospital, New York City; Norwich State
Hospital, Norwich, Conn, and the Child Memorial
Guidance Clinic of Richmond, Virginia prior to
associating himself with the Alcoholism Unit at
the Philadelphia General Hospital.
Doctor Williams is also associated with the
Philadelphia Public Schools and the Pa. State
Tuberculosis Hospital in Phila. In addition, he is
engaged in the private practice of medicine.
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I
�SUSPENSIONS AND REVOCATIONS OF LICENSES
John Simonetta, Esq,
I deem it a pleasure, and I am very happy to have this
opportunity to speak to you this evening on a topic of great concern
to all, i. e,, the problem of highway safety. It is most important that
your enforcement officers be familiar with the procedure used by the
Bureau of Highway Safety in the suspension and revocation of an
operator’s license.
Before starting on my topic, I would like to give a little
background on the prior system used in the suspension of licenses.
Before February of 1956, there was no organized system of suspending
licenses. Any motorist who was arrested and convicted for exceeding
the lawful speed limit received a ninety-day suspension of his license.
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In effect, at that time, was the restricted license for
"employment purposes only". If a person had his license suspended
and knew someone, he could very easily obtain a restricted license.
In addition, the Courts frowned on this arbitrary ninety-day suspen
sion, and as a result, the majority of suspensions, which were
appealed, were reversed by the Courts,
The problem of highway safety is of great concern in
Pennsylvania and throughout the Country. You are all aware of the
thousands of people killed on our highways every year. Accidents do
not just happen; they are caused by the careless and reckless opera
tion of motor vehicles by human beings.
In an effort to make our highways as safe as may be
humanly possible, Governor Leader instructed the Justice Department
to work out a workable system of license suspensions. A new system
was effected in February of 1956. A copy of this new system of
graduated penalties was mailed to every applicant with the 1957
license application. Many telegrams and letters from citizens and
from directors of motor clubs, safety bureaus, and associations
were received in the Governor's office—all stating approval of
Pennsylvania's new system of license suspension penalties.
This system of graduated penalties is aimed at the "repeater"
who is the real problem in enforcing our Motor Vehicle Code. The
restricted license has been abolished. A record is maintained of all
violations, and these will be counted for penalties within a period of
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�three years in accordance with the schedule of graduated penalties.
Warnings and license suspensions, of course, can be in addition to such
fines or other penalties as the law may provide.
Along with its severities toward the h.abitual offender and the
irresponsible driver, this system allows due consideration for the
careful and otherwise law-abiding citizen who may be guilty of unintentional
violations which bring only a "warning" are made part of the driver's
permanent record and will count toward license suspension should
other violations occur.
I
Prior to 1956, the suspension of a license was not being
performed in an equitable manner. In a majority of cases, only
people who were arrested by the Pennsylvania State Police received
a suspension of their license. All magistrates are required, under
Secton 1206 of the Motor Vehicle Code, to make a report of the dis
position of all violations to the Department of Revenue not later than
the tenth day of the following month. A check of our records revealed
that the magistrates were not complying with Section 1206, and as a
result, motorists who were arrested by local police, only paid a fine
and never received a suspension. In order to correct this injustice,
a letter was sent to every magistrate in Pennsylvania, informing them of
their duty to send reports to the Bureau of Highway Safety. Since
these letters were mailed, we have been receiving wonderful co-operation
from most of the magistrates; however, there is still that small min
ority who feel that they are above the law, and do not have to comply.
We have, at the present time, Information Specialists who are covering
talks on highways safety. In addition, they are checking on the mag
istrates who are failing to submit reports.
A motorist's license can be suspended or revoked for any
of the following reasons ;
That such person has committed any violation
of the motor vehicle or tractor laws of this
Commonwealth.
2. That such person has committed a violation of
the Motor Vehicle Code which resulted in a mot
or vehicle accident.
3. Tha,t such person is incompetent to operate a motor
vehicle or tractor, or is afflicted with mental or
physical infirmities or disabilities rendering it
unsafe for such person to operate a motor
1.
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�vehicle or tractor on the highways.
4. Section 614--Mandatory Revocation of Operation
Privileges.
5. Failure to comply with the Pennsylvania Safety
Responsibility Act.
6. Reciprocity with the other States.
After a person is arrested and convicted of a violation of
the Motor Vehicle Code, a certified report of the disposition of the
conviction is submitted! to the Bureau of Highway Safety. Upon receipt
of these certifications, a check is made in our Central Files to
determine whether the violator has a prior record--if he has a record,
this new violation is placedlin his file. If he has no record, a file
is created.
Section 615 of the Motor Vehicle Code gives the Secretary
of Revenue the authority to suspend a license upon sufficient evidence.
However, before this could be done, the person must be advised of his
right to request a Departmental hearing. After the file is reviewed,
the Hearing Division notifies the individual of his violation and advises
him that before any action is taken, he has a right to request a hearing.
If a hearing is requested, the person is notified as to the time and
place of the hearing, and his file is forwarded to the Hearing Lxaminer.
At the present time, we have twenty-five Hearing Examiners located
throughout the State, and the hearings are scheduled in the person's
home county. Departmental hearings are of a quasi-judicial nature and
are held to determine whether or not a person's license should be
suspended. The hearings are recorded, and the record is returned to
the Bureau for a final review. The review is conducted by a Board of
Review, and the decision of the Board is final.
A person's license can also be suspended as a result of
a motor vehicle accident. Section 1214 of the Motor Vehicle Code
imposes as a duty to report certain accidents. This Section is as
follows:
"(a) The operator of any motor vehicle, involved in
an accident resulting in bodily injury or death
to any person or damage to the property of any
person in excess of one hundred dollars (100)
shall, within twenty-four (24) hours, forward
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a report of such accidents to the department, upon
forms furnished by the department. If the operator
is physically incapable, as a result of the accident,
‘it phallibe the duty of any other participant in the
accident, who is not incapacitated as the result of
the accident, to forward such report."
When the accident reports are received, they are carefully reviewed to
determine whether a violation has been committed. If so, the persons ..
are cited to appear for a hearing, and the same procedure is followed
as mentioned for violations .
Whenever we receive evidence that a person is afflicted
with a mental or physical infirmity or disability, his license is
suspended and not restored until sufficient medical proof is sub
mitted, indicating that the person is competent to safely operate a
motor vehicle. The licenses of all people who are admitted to
mental institutions, are taken and sent to the Bureau. In the
majority of cases of suspensions for incompetency, the person
must take a re-examination before his license is restored.
Section 614 of the Motor Vehicle Code, which reads as
follows:
"(a) Upon receiving a certified record, from the clerk
of the court, of proceedings in which a person
pleaded guilty, entered a plea of nolo contendere;
or wasfound'guilty by a judge or jury, of any.
6f thfe crimes enumerated in thia section, the
secretary shall forthwith revoke, for a period
of one (1) year from the date of revocation,
the operating privilege of any such person, and where such
where such person was convicted, or entered a
plea of guilty or nolo contendere, of any one of the
crimes enumerated in clauses (1), (2), (3), and (4)
of this section, such operating privilege shall not
be restored , unless and until the fine and costs,
imposed in such cases, have been fully paid. The
clerk of the courts shall, when such fine and costs ’ .
have been paid in any such case, certify such fact to
the Department of Revenue.
1. Operating a motor vehicle or tractor while under
the influence of intoxicating liquor, or any narcotic
-17-
�or habit forming drug, or permitting any person, who
may be under the influence of intoxicating liquor or
narcotic or habit producing drug, to operate any
motor vehicle or tractor owned by him or in his
custody or control.
2.
Unlawful possession or sale of narcotics.
3. Any crime punishable as a felony under the motor
vehicle or tractor laws of this Commonwealth, or any
felony in the commission of which a motor vehicle or
tractor is used.
4. Conviction of an operator of a motor vehicle or tractor
involved in an accident, resulting in injury or death to
any person or damage to property, upon the charge
of failing to stop and render assistance or disclose his .
identity at the scene of the accident."
makes it mandatory for the Secretary of Revenue to revoke for one
year the operating privileges of the person involved. This is a man
datory provision of the law and there is no discretion vested in the Sec
retary of Revenue to alter or change this penalty.
Section 615-B-C of the Motor Vehicle Code gives the Sec
retary of Revenue authority to suspend a Pennsylvania resident"s
license for a violation committed in another State. Whenever we
receive a certified report of a conviction from a foreign State, and
that violation would call for a suspension if committed in Pennsylvania,
the same procedure is used to suspend the violator's license.
Apcr son's motor vehicle privileges can also be suspended
for failure to comply, with the Pennsylvania Safety Responsibility
Act, This Act is very difficult to administer, simply because it
does not follow the normal concept of fault liability.
Pennsylvania does not have in effect compulsory insurance;
however, if a person is involved in a reportable acciden t and does
not’have liability insurance, he must comply with this Act or suffer
suspension of his operating and/or registration privileges. In adninistering this Act, it is not the function of the Financial Respons
ibility Division to determine who was at fault. If a person does
not have liability insurance, he becomes subject to the Act, whether
or not he is at fault or not. The purpose of this Act is to rid our
highways of irresponsible motorists,
,
-18-
�The evaluation of a case, or setting of the amount of security
called for from each operator and/or owner who has not complied
with the Safety Responsibility Law, is a most important assignment,
and one which must be accomplished with sound judgment after a
thorough review of the case file. The purposes and functions of the
Evaluation Unit are:
1. To make certain all cases are accounted for and that
some disposition is made of each case, i.e,, either
process into a case or close it and mark file "no
action".
2. To review reports of accidents and supplemental data,
and determine the amount of security to be deposited
by the uninsured operator and/or owner.
3. To establish the exact date of suspension.
I
•ooiqisj
In order to determine that no action will be taken, the
evaluator reviews the cases for the following:
1. Insurance verification,
2. Security deposit.
3. Release from liability,
4. Adjudication of non-liability,
5. Evidence that vehicle was legally parked,
6. Evidence of a duly acknowledged written agreement
to pay an agreed amount in installments, and
7. Receipt of any other form of satisfactory evidence as
provided by the Act.
In the process, the validity and sufficiency of documents
are verified by the following procedures:
1. Insurance verification—every Accident Report Form
has attached an SR-21 Form (Insurance Declaration
Stub), which must be answered giving name of insur
ance carrier, etc. These forms are checked for complete
ness and accuracy and sent to the insurance carriers
indicated for verification of coverage. The SR-21
Forms are to be returmed within fifteen days, with
the verification indicated. If the person had no insur
ance, or the insurance policy does not meet the req
uirements of the law, this information should also
be indicated,
2. Where security deposit has been made, the amount
-19-
�is examined to assure that it is the exact amount that
had been evaluated.
Releases from liability are examined to determine that:
1, They are executed in favor of the proper person
persons,
2, They are executed by owner of damaged property
and damaged persons.
An adjudication of non-liability must be in the- form of
an abstract of final judgment from a court of competent jurisdiction,
and it must be determined that time for appeal has expired.
I.
I
Copies of agreements to pay in installments must be in
order and signed by all persons concerned.
I
To determine whether a vehicle is legally parked, an
affidavit is requested from the person in which he must depose
and say that his vehicle was not in motion; the motor was not run
ning, and that he was parked off the highway and at the curb. Mere
ly stopping for a light or at an intersection is not considered leg
ally parked.
Other forms of satisfactory evidence are proof that est
ablishes one or more of the following facts;
1. Property damage did not exceed one hundred
dollars,
2. No injury or damage caused to the person
or property of anyone other than the operator
or owner,
3. To the owner of a motor vehicle, if, at the
time of the accident, the vehicle was being
operated without his permission, express oi
implied, or was parked by a person who had
been operating such motor vehicle without such
permission,
�requirements I just mentioned, the evaluator must evaluate the <case
for an estimated amount of Jsecurity adequate to cover injuries or
property damage incurred.
The evaluator determines the amount of property damage
by considering the mature damage done to parts of the vehicle, the :
year of the vehicle at the time of the accident, and other pertinent
data. In this work, the evaluator mails to the insured or aggrieved
party a Garageman's . stimate Report. They are asked to have a
garage execute the report, giving an estimate on the amount it would
cost to have the vehicle repaired. The evaluator also has car dealer's
handbooks, establishing market values of all types of vehicles, to guide ' '
him in arriving at an evaluation.
iI
In cases of personal injury, Personal Injury Report forms
are mailed to the injured parties . In these reports, it is required that
they give the following information; probable length of period of in
capacity, age dependents,salary, employer and occupation of the injured
party, medical and holpital costs, prospects of permanent, total or
partial disability, and any other factors which would aid in arriving
at an evaluation. These reports must be signed by an authorized
employee of the hospital and the physician who attended the injured
party.
After considering all of the evidence thoroughly, the ev
aluator makes a decision as to the amount of security that the party
will be required to deposit.
After the amount of security is determined, the party is
notified that he had no liability insurance at the time of the accident;,
and it is , therefore, necessary that he deposit the amount of security
stipulated within ten days, or suffer suspension of his motor vehicle .
privileges for failure to comply with the Pennsylvania Safety Res
ponsibility Act.
The suspended person may be reinstated after the expiration
of one year following the date of accident by filing evidence, satis
factory to the Secretary of Revenue, that, during such period, no
action at law for damages arising out of the accident which resulted
in suspension has been instituted. An affidavit of the applicant is
considered prima-facie evidence of that fact.
The same procedure is followed where the party deposited
-21-
�security. After a year from the date of accident, if he submits an
affidavit to the effect that, during such period, no action at law for
damages arising out of the accident has been instituted, his deposit
can be refunded.
If, however, a suit is instituted within the year period, the
suspension cannot be restored or deposit refunded until there is a
final determination of the suit at law.
The other section of the Pennsylvania Safety Responsibility
Act deals with the filing of Proof of Financial Responsibility for the
future. Proof of Financial Responsibility, for the future, is required
of those persons whose licenses have been suspended or revoked
because of conviction or forfeitures of bail for certain offenses under
the Motor Vehicle Code. Similarly, Proof is required of those who
have failed to pay judgment upon causes of action arising out of
ownership, maintenance or use of motor vehicles of a type subject
to registration.
Proof of Financial Responsibility in the amount of $25,000
is most usually filed in the form of liability insurance, which must
be maintained by the violator for at least three (3) years after a
period of suspension or revocation has been served or a judgment has
been satisfied.
As was previously mentioned, the most common form of
filing Proof for the future is in the form of insurance. However,
Proof may be filed in the form of a surety bond, cash, or a real
estate bond. The latter form of filing is rarely used. Ninety-nine
per cent of the Proof is filed by a certificate of insurance, which is
referred to as an SR-22 Form. This is a form filed by the insurance
carriers in behalf of the person required to file Proof.
If the SR-22 Certificate expires and the person has not
renewed his insurance, his license is suspended for failure to
maintain Proof of Financial Responsibility, and is not restored until
we receive a renewal certificate from the insurance carrier.
The SR-22 Certificate, filed by the insurance carriers,
indicates the type of insurance issued to the person. We then must
issue a license in accordance with the type of insurance which the
person received. If the person is insured only to operate "owned
-22-
�vehicles", we then must restrict hia license to operate "only owned
vehicles". If he is insured to only operate "non-owned vehiciaa",
we issue a license restricted to operate "only non-owned vehicles".
The person can, of course, apply for broad coverage and, in this
case, no restriction will be placed on his license.
Proof of Financial Responsibility may be waived after
three (3) years from date that Proof was required if, during that
period, the Department has not received record of a conviction of
any offense of the Motor Vehicle Code.
"■
I
I
I
John J. Simonetta was educated in the _aston
Pennsylvania School System and graduated from
Mount St. lv ary's College in Maryland. Upon
completion of his legal training at Georgetown
University Law School, he practiced law for
three years in IVashington D.C.before both
the courts of the District of Columbia and the
Circuit Court of Appeals. His work with the
Bureau of Highway Safety began in 1955. Prior
to his promotion as Assistant to the Director
of the Bureau of Highway Safety, he was the Chief of
Chief of the Safety Responsibility Division.
�AUTOMOBILE THEFT PREVENTION
Charles S. Black
It is certainly an honor to be invited to appear before
your group, 'v.'ith your indulgence, I would like to explain some
thing about our organization.
The National Automobile Theft Bureau is a wholly owned
organization supported by 350 insurance companies. We were or
ganized in 1917, in New York City by five insurance executives, and to
day we represent 350 insurance companies. The purpose of this or
ganization is to assemble and disseminate information on stolen auto
mobiles and to assist all law enforcement agencies in the examination,
identification, and the return to the proper owner of any vehicles that
had been stolen. The organization is national in scope and the United
States is divided up into five territories. I happen to manage the
territory in the Northeast, or the Eastern Division. We have similar
organizations located in the central part of the United States with
headquarters in Chicago, one on the Pacific Coast with headquarters in
San Francisco, a Texas Division with headquarters in Dallas, and a .
headquarters in Atlanta servicing the Southeast section. All these are
divisions are controlled by committees, the members of which are
elected from the membership. These elections take place each year,
and the controlling committee, or the governing body, serves without
pay. The method of obtaining funds to operate the various divisions
of the National Automobile Theft Bureau is by virtue of an assessment
based on the premium income that the company derives from the par
ticular territory that is serviced by each individual division.
The problem of stolen automobiles, gentlemen, is one
that concerns law enforcement agencies nationwide. In the United
States during the year of 1956 there were 263,720 vehicles reported
stolen. That set a record as far as stolen cars were concerned,
according to the reports published in the Uniform Crimes Report. The
263,720 thefts reported in 1956 were 35,570 over the previous year
for an encrease of 16.1%. The value of automobiles stolen in 1956
represented 54.9% of all the property taken in the United States during
that year by larceny, loss by burglary, robberies and other thefts
during 1956. There were 720 cars stolen every day during the year of
1956. Of these, 93.3% of the vehicles reported stolen were recovered
and this is a great tribute to you gentlemen, This is an excellent recovery percentage, leaving but 6.7% that were not recovered, which
24_.
�amounts to 17,669 cars, for a value of slightly over $15, million.
Let us see what the situation is in Pennsylvania. Accord
ing to the Uniform Crimes Report based on reports received from 216
cities in the state, in 1956 there were 9,260 vehicles stolen compared
with 8,275 for the previous year, an increase of 12% which was slightly
less than the national average. Nationwide, during the first six months
1957, according to the reports of the Uniform Crimes Report, there
was an increase in auto thefts of 7.9%. Over a like period in 1956,
there was a total of 114,827 vehicles reported stolen. Auto thefts are
divided into either three or six different categories. I personally like
to divide them into six categories. The six categories are as follows:
i
I
A. Joy riding
B. Transportation
C. Commission of crimes
D. Trick & Fraud Thefts
;D. Stripping thefts
F. Commercial thefts
I
Let us go back and consider joy riding. I recall about
two years ago when I was in the Washington headquarters of the F. B. I.
talking about automobile thefts and I mentioned the joy rider as a problem
■Well, I thought the building fell in on me. Someone said, "When are
you going to get wise and not use the word joy rider, but just call them auto
thieves?" Joy riding is responsible for over 70% of all the automobiles
that are stolen, so I think the gentleman had something. We know what
the joy rider is -- that is, the young individual who steals somebody's
car due to the apathy of the owner in not protecting his property. He
takes it for a ride, he drives around town to influence his girl friends and. .
he will drive it until he runs out of gas, or he is chased by a law enforce
ment officer, or perhaps wrecks the car as often happens, or causes an
accident injuring somebody, maybe fatally.
In many cases he causes an accident in which the law en
forcement agent is injured. Unfortunately, these perpetrators when
they are apprehended are treated, I believe, entirely too lightly. I don't
believe that the first time someone steps over the line that he should go
to jail. If he did, then possibly we would all be in jail, but I definitely
feel that the joy rider, the young individual who is apprehended for stealing
an automobile, is treated, on the whole,entirely too lightly. Many cases
in our files show where month after month, these individuals will be pick-
J
�The transportation thief is the individual
for a trip home, or to travel from one state to anotherwho uses a car
traveling clear across the country. These cars, for th many times
not damaged. They are usually abandoned, and within a! most part, are
reasonable
the police will pick them up and return them to their resoectiv?
<■>«, time
Unfortunately, some of them find their way to garages where they are ’
stored, often for ^°nths. In the meantime the owner is deprived of the use of
use of his automobile, because many of our member companies are re
to pay a total theft loss by virtue of the fact that the car was left in some
parking facility for months on end.
We call those cars "The Forgotten Cars" because usually
they won't be brought to the attention of the law enforcement agency that
covers the particular area until a sizable bill accrues, and at that time
the garage operator takes into consideration the value of She automobile.
So the transportation thief costs the citezens of the United States a
terrific sum yearly. We are unable to determine just how much .from
our records because many times we do not know whether the theft was
for transportation, or whether it was used for the commission of a crime,
or if it was used for joy riding.
The third class are those that are stolen for the commission
of crimes. I am sure we all agree that practically every crime today has
an automobile involved in it in some manner; either in advance of the
crime or as a method of get-away. Many times, more than one automobile
will be used in that particular type of theft. Especially in bank jobs, you
might have three cars used: one at the scene, one to transfer to a mile
or so away from the scene of the crime, and then possibly a third car
in order for the perpetrators to get out of the territory without the pos
sibility of having a car that could be identified from its particular mark
ers. So that these cars, while they are not outstanding too long, are
The type of theft that we class as trick and fraud thefts
covers a number of different types of thefts, such as the indivi u w
calls around at a used car dealer or a new car dealer.
e. eC°™ , ,h
friendly with the salesman and may spend two or three hours «°xmd th
used car lot or the hew car show-room looking over au °m
couid
suddenly decides to ask the proprietor or• th e’
togdrive it around
try the car out. In many instances he gets i
j
car
the block and neglects to bring it back. Many’times he to*
mto some other jurisdiction and sells it.
can be identified not only at the scene of the sai ,
26
alg0 be
�identified at the place where he obtained thenar " the
iajority of law enforcement officers ;are hesitant Unfortunately,
majority
to make" a
—.—j a theft re
port in a case such as this. The man
car,
he borrowed the car to try it out, and there is usually
a lapse c
days before the police will accept a theft report,
with a minimum down payment, purchases^aXmobH^XiXu’ 2d'
then takes off for some other jurisdiction, only to dispose of the aufol
mobile by virtue of obtaining proof in some state that does not have tte
benefit of a certificate of title. There are a number of those states.
There are about ten in which you can go into the Motor Vehicle Depart
ment and obtain registration just by making application, and affirming
that the facts you state on the application are true.
There are also those fraud cases where individuals will re
gister and title non-existent automobiles. Now in Pennsylvania that
would be hard to understand, but just recently in New York City we had
a case involving a 1956 Cadillac. It was reported to us as having been
stolen in New York City. We checked the police alarm and there was
an open alarm on this automobile. The cjmpany paid a total theft loss
in the'arnjount of $4,200. It wasn't until some 30 days lat:er, when the
car had not been recovered in a specified time, and contacting the factory
to determine the shipping destination of that automobile, that we found
that the factory never made an automobile with a 56-60 model bearing
the nunber that number that we had submitted. We traced back on the own-rsh
ownership, and found that the car had been previously registered as
a 1950 automobile. We traced the registration back to Cnooecticut and .
found that the 1950 automobile was being used byr.a reputable citizen in
Connecticut.
There is a typeeof individual who rents vehicles from auto
rental concerns for a specified time and fails to return the ve
many instances these vehicles are taken to other juris ic ions
they are sold. In this particular type of crime the perpetrator ha
-- 3 is missed*
sufficient opportunity to dispose of a vehicle before same
hesitant to accept as
This theft is another type that police officers are
stolen vehicles and disseminate police alarms.
The fifth eiass of thefts
stolen for the purpole of stripping the s
sist of hub caps, wheel and tires, radios, an
Plete fromt ends, doors, bumpers and other pa
27
gQine instances com, t are disposed of
�to wrecking yards, body shops and garages that a
• ..
wrecked automobiles. Unfortunately, the Darts , P®ciallze in rebuilding
are r*
fied due to the parts not having serial numbers that
nt >7®
8°”
ld Cannot be Anti
numbered
maintained of the numbers. This type of theft is or-if numb
ered no record is
extremely difficult to halt
due to the fact that the parte cannot be identified
as belonging to any particular automobile.
The professional stolen car ring operation is not confined to in
dividuals, but frequently the group is highly organized. Auto larceny by
the commercial thief is a highly profitable business and is not similar to
other types of crime against property, for it is unnecessary for the auto
mobile thief to clear his commodity by the use of a fence, where in other
types of larceny the individual would have to be satisfied with 10 or 15% of
the actual value of the item involved. In handling stolen automobiles the auto
thief has a commodity on which he can collect practically one hundred cents
on a dollar.
The Saturday Evening Post wrote and excellant story, I think it
was the issues of August the 11th and 18th of 1956, in which they wrote about
Bla-Bla, the king of the automobile thieves. Well, unfotunately for Bla-Bla,
he is now boarding with Uncle Sam out in Leavenworth and will be fore se
veral more years.
An automobile thief, who decides to go into business of handling
cars for resale, has to decide one of three things; 1. How is he going to dis
pose of the automobile, 2. What particular system he is going to use, and
3. Where is he going to obtain the stolen automobile. We find that auto thefts
are more prevalent in the cities where you have a large concentration of
population. For instance, New York City with a population of seven and three
Quarter million had approximately 14 thousand automobiles stolen last year.
That means slightly over 1,000 a month. You can take 40 or 50 extra cars
out of there every month without increasing or decreasing the recor s a
whole lot. A good many of the successful auto gangs have operated in e
various boroughs of New York City.
The automobile thief decides first what ^^^p^outh, a
ie going to handle. Is it going to be a Chevro e ,
Lincoln, or what have you. Usually, the
ie
area the type of car , that is popular in that are .
Chevrolets on the road than any other automo i ’
rolets reported stolen. It is a natural ratio,
Chevrolets.
28
-n the particular
course there are more
have more
decides he'll handle
�various color combinations today,^no^ongeVntce^s
automobile thief to repaint an automobile, and re^ly it i^1
and really it is
necessary for him to change the motor and serial number because
very few people ever check their motor or serial number on their
cars. I venture to say that even though the serial number in the
majority of automobiles appear on the left front door post, there are
very few of you gentiemen who have checked your car to see whether
or not the serial number appearing on your registration actually appears
on the automobile. The automobile thieves know that. T'
They know that
the dealers don't check them. So in many cases, they stealL an automobile and sell it as is, without changing the numbers.
Then
Then there is the group that will decide that they will
disguise the automobile by changing the motor pad and restamping
another, they file the motor and serial number off, keeping the car
within the year model according to the numbers.
They will obtain the serial plate from a car that has been
determined a total loss as the result of a collision, fire or flood, and
use this serial plate on an automobile of like description, which has
been reported stolen. In some jurisdictions they change the motor
number of the stolen automobile to agree with the motor number of the
salvage vehicle, from which they had removed the serial plate.
Another system used is the removing of the motor dn its
entirety from the wrecked automobile and substituting it in the (stolen
automobile, and of course substituting the serial plate. This system
is the hardest to detect because no amount of tracing through the Motor
Vehicle recorde or by contacting the factory will disclose any break
in the chain of title, except that it should show that the car at one time
was in the possession of a salvage buyer.
We maintain in our New York Office a complete list of^
the salvages that are disposed of by our
to that,
filed in our records the same as our
salvage by file number,
we maintain a record on the number of pi
investigation
that each salvage buyer acquires. If youis ou
cciild help you
in your particular locality, involving sal g »
particular salout by furnishing you with a large list of salvag
vage buyer may have acquired.
I would like to go into the methods
29
�in cities and towns. If you represent
city, it might be well to establish a pin-point map‘ show^ ' a large
by various
types of pins, the location of thefts and the location of
recoveries,
Other methods of the breaking up of thefts in cities and
towns is to maintain a close liaison with the new car dealers, the“sed
car dealers, garages, service stations, wrecking yards, ba4s specializing m auto financing, and car finance companies. A great many of
the automobile commercial rings dispose of their cars by sales through
used car dealers. By maintaining a close liaison with the used car deal
er, so that he will alert you of strangers offering particularly good buys,
which well might break a ring operation. Who is responsible for the
majority of automobile thefts ? According to the Uniform Crimes Re
port, in 1956 there were 28,035 arrests for stolen automobiles, that
covers larceny and receiving. Of the 28,035 arrests, 18,622 or 66.4%
were under 18 years of age. Further, 22,244 or 79.3%'were.under 21
years of age. Zxactly 24,466 or 87.3% were under 25 years of age, and
that leaves 12.7% of the 28,035 apprehended over 25 years of age.
Juveniles often start car stealing b stealing parts. The
stealing of hub caps has become an epedemic nation-wide. I refer to
the wheel discs rather than the small hub caps. I am happy to report
that the Pennsylvania State Police as of January 7th of this year, start
ed a state-wide campaign in conjunction with retail gasoline service
stations to mark hub caps on automobiles, so that you gentlemen in the
Police Departments who have your Lost Property rooms full of parts
will have another method of identifying hub caps. This hub cap program
started back in 1956 on the Pacific Coast. Pennsylvania, I am happy
to report, is the first State to start on a state-wide basis. All the
other programs have been by a town, city or county basis. In many o
the towns it is handled by the oil industry. In some other towns i is
handled by the new and used car dealers. I favor somewhat t e car
dealer, especially the franchise dealers, because the hub caps. are m
ked at the time of delivery of the car. The proper mar mg s
the vehicle identification number. However, in ennsy va
ar
using the registration number. Since
“°uprobably last
registration plate, the plate number on the
P
as long as the hub caps are of any value.
cars to determine wh
Another method is that of checking r< of us identify autoToo
many
whether or not they have beenand
stolen^
not by the vehicle tdobtit.oat.on nummobiles by the registration, ------30
I
�exception of those cars manufactured by American
or identification number will be found affixed to the left f ’
post. This was one of fh. ground
Motor Vehicle Administrators.
& .
SGrial
"
y
A thorough search should be made of all automobiles for
your own protection. People are so prone to blame the law enforcement
officials for material that they miss from their automobiles. It is well
to record and make a thorough search of all material that may be found
in an automobile.
On apprehension of suspicious cars and interrogation of
the occupants, check the keys. It isn't uncommon for an automobile
thief to have a key in switch, in an off-position and have the motor
running, denoting a jumper on the ignition of the ca r. So, check the
keys and it might be well to check to see if they are original or blank
keys. Check for car accessories. See if the radio, spare tire and
wheel are missing, these items ma y have been sold to obtain money
for the occupants of the automobile.
Check the decals on the car--- I'.maiot referring to "We
visited Yellowstone National Park", I mean those decals that are put
on, as they are in your State, by the mechanical inspection station. A
good many cities have inspection. I recall one, Chicago, has a city in
spection, and you can identify that car by the inspection sticker infor
mation. This is the same as you are able to do in Pennsylvania or New
Jersey. Check the decal on the back, showing where the car was
originally sold. Pay particular attention in road-side interrogation to
the service sticker, which is usually placed on the left front door,
owner will know when he had his car serviced last, and the chances ar
that the thief operating the car will not know where or when t e car
serviced last. Above all, preserve all evidence.
I might add that we put out a Manual for thef
of Automobiles. We are unable to supply each police
if
of this Manual, but if your Police Department doe°
least one.
you drop me a line, I will see that your Department has at
31
58786
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�WILKES COLLEGE LIBRARY
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Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
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Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
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1958-1980
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Traffic Lectures, 1958
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Institute of Municipal Government
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1958
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WILKES COLLEGE LIBRARY
STUDENT 0P1WI0W SURVEY
CONCERNING
CONSOLIDATION
Property Of
Institute of ■
;3 GoUctfe
HUGO V. MAULEY
1950
INSTITUTE OF MUNICIPAL GOVERNMENT
ARCHIVES
TS33Z
L&WGd-Z
WILKES COLLEGE
WILKES-BARRE, PENNSYLVANIA
��STUDENT OPINION SURVEY
CONCERNING
CONSOLIDATION
HUGO V. MAILEY
1959
INSTITUTE OF MUNGIPAL GOVERNMENT
WILKES COLLEGE
WILKES-BARRE, PENNSYLVANIA
�HIVES
PREFACE
J 533.3
L g
What opinions do the students of Wilkes College
3
have concerning the recent campaign of the Commission on
Metropolitan Government to consolidate a number of Wyoming Valley
communities with the City of Wilkes-Barre?
Under the direction
of the Institute of Municipal Government at Wilkes College, a
survey of student opinion concerning the issue was conducted
by the Junior Chamber of Commerce Chapter on the campus.
The survey was made with a number of objectives in mind:
(1) to ascertain student opinion on the issue 5 (2) to break down
the students' opinions into certain attributes or characteristics,
such as sex , class, etc.; (3) to discover whether the students
possessed any knowledge of their municipal governments; (4) to
evaluate certain services provided by municipal governments;
(5) to get a student appraisal of the media of communication;
(6) to see which factors weighed most heavily in their opinions.
The data were collected by an informal survey technique.
The method involved no interviewing,
distributed at an assembly period,
The questionnaires were
The students were asked to
answer the questions and to deposit the questionnaires in de
signated places on the campus.
No attempt was made to secure a
representative cross-section or sample of the student body of
approximately 1,000 students.
The group conducting the survey
hoped that if enough students responded to the questionnaire,
the results might be considered representative of the opinions
that would have been obtained had the whole student population
been interviewed personnally.
Approximately 1,000 questionnaires were handed out to
-1-
5S781
�students.
Almost a third, or 319> were returned.
Of this
number, only 272 were used5 4? were eliminated because their
answers were invalid.
The group conducting the survey felt that
since over a quarter of the student*-body replies were vhiid replies,
a certain amount of reliahce could be placed on the results.
Everyone associated with the survey was well aware of the
errors inherent in a study of this kind.
It should not be
supposed that all those students expressing opinons were equally
informed or that they held their opinions with equal convictions.
It must also be pointed out that caution must be exercised in
putting an unwarranted interpretation on the results.
the results are gratifying.
out to do:
All in all
The group accomplished what it set
to learn how Wilkes students felt about the issue
CONSOLIDATION.
Both the Institute of Municipal Government and the
Wilkes College Division of the Greater Wilkes-Barre Junior Chamber
of Commerce wish to express particular thanks to Mrs. Ruth Roberts,
a member of the English Department at Wilkes College, for reading
the results of the study and making thoughtful suggestions in
the preparation of the study.
Special thanks are due to the
following members of the Wilkes College Division of the Greater
Wilkes-Barre Junior Chamber of Commerce:
Mike Evanko, John Mulhall,
Paul Klein, Bernard Wahalla, Frank Steck, Allyn Jones, Dale Wagner,
and Richard Salus.
Poll Conducted - May 1959
Poll Released - September 1959
-2-
�GENERAL INFORMATION RESULTS
The total number of questionnaires collected was 319> of which
47 were ruled invalid.
Only 272 replies were in the tabulations.
157 For Consolidation
115 Against Consolidation
57-7%
42.3%
Wilkes College Students favored consolidation.
In this respect,
they were not an accurate barometer of opinion, since consolidation
was defeated at the polls.
Against Consolidation Students from
Wilkes-Barre
Students from
outside the City
115
15
98
For Consolidation - 157
Students from
14.8% Wilkes-Barre
57 36.4%
Students from
85.2% outside the City 100 63.6%
As the figures show, more students from the City contributed
to the cause for consolidation than to the cause against it.
Whereas it might be expected that students outside the City might be
preponderantly against consolidation, the survey shows that the
feeling against consolidation was about evenly divided among these
students.
Student opinion was broken down into classes:
sophomore, junior, and senior.
freshman,
All classes indicated a desire for
consolidation.
Class
Freshman
Sophomore
Junior
Senior
For
49
31
49
28
50.5%
67.8%
70.0%
r
51.8%
Against
48
20
21
26
49.5%
32.2%
30.0%
48.2%
The freshman and seniors are about evenly divided on the issue;
whereas junior feeling for consolidation was better than 2 to 1.
The backbone of the student support for consolidation came from
the juniors and sophomores.
If cosmopolitanism is developed on a college campus, the results
-3-
�perhaps belie that fact.
Both the seniors and the freshmen are
about evenly divided on the issue.
It is to be expected that
freshmen still have a gr^at provincial attachment for their small
:•
community.
But the figures would indicate that seniors reveal just
as great an attachment.
The students were also asked to indicate their sex so that it
could be ascertained whether the male or female students favored
consolidation more.
Sex
female
male
Against
For
37
120
68.5$
55.0$
17 31.5$
98 45.0$
Since there are more males than females in the student body 5 it
would be expected that more males would participate in the poll.
The real picture is obtained by reducing the figures to percentages.
The 37 females taking the position for consolidation constituted
68.5$ of their total number5 the 120 males taking the position for
consolidation constituted only 55.0$ of their number.
The con
clusion is that more females were in favor of consolidation than
male students.
The student replies were classified according to their choice of
educational program offered by the College, namely:
education
students, commerce and finance students, natural science students,
and liberal arts students.
Program
For
Commerce and Finance
Education
Natural Science
Liberal Arts
44
64.7$
36 46.7$
35 48.6$
42 67.7$
Against
24 35.3$
31 53.3$
37 51.4/$
20
32.3$
It is evident that the largest contributors to the cause of
■. ■
■
i
consolidation were the liberal arts students and the commerce and
-4-
�finance students.
The greatest number far consolidation were
mathematics majors (18) and business administration majors (22).
The bulk of the opposition against consolidation came from the
secondary education students (25) and biology majors (19).
It
ought to be pointed out that the secondary education students were
about evenly divided with 25 far consolidation and 24 against
consolidation.
The student respondents were also divided according to their
community of residence.
Of the 157 students who favored consolida-
tion, 57 came from the City of Wilkes-Barre, as was to be expected.
The next two largest groups came from Nanticoke (10) and Kingston
(9). The bulk of the opposition among those 115 students who did
not favor consolidation came from Kingston (24), Plymouth (17) 5
and Wilkes-Barre (15).
A complete tabulation was made of this
residential survey data but was not included in the survey
because of space.
-5-
�QUESTION 1.
QUESTIONS
Which of the following structures of municipal
government is used in your community?
Check one. Commission
Mayor-Council
Council-Manager
This question was put in the survey to find out if the students
had any knowledge about the type of local government in their
respective communities.
For
Did know
Did not know
Against
51
56
95
62
Most of the Wilkes-Barre students not in favor
of consolida
tion (14 of 15) thought the City had a Mayor-Council form of
government.
This was also true of the Wilkes-Barre students who
were in favor of consolidation (53 of 57).
The replies indicate
a serious lack of knowledge of their own government, since only
5 of the 72 Wilkes-Barre students recognized that their government
is the Commission form.
Of those 198 students living outside the
City of Wilkes-Barre, a total of 141 or 70$, for and against
consolidation recognized their form of government correctly.
It is interesting to note which of the groups, those for or
those against consolidation, were more familiar with their
respective forms of government.
Against
For
Knew
95 60$
52
40$
Analysis shows that those for consolidation were more familiar
with their forms of government.
A further analysis also reveals
that this majority is built up because 91 students out of 100
�living outside the City, and for consolidation, recognized their
government correctly.
QUESTION 2.
QUESTION:
Do you live in a :
second class township
first class township
borough
third class city
This question was inserted in the poll to ascertain further
student knowledge of his government.
For
Knew
125 79%
(of 157)
Against
93
82%
(of 113)
It would appear from the above figures that the students
•' »
against consolidation were better informed than those foj consolida
tion.
On this question, the Wilkes-Barre Students fared better
than on the previous one.
They knew more accurately that they
lived in a third class city (88%); whereas the students living
outside the City were correct only 3 times out of 4 (76%).
Of the
72 Wilkes-Barre students, 50 of the 57 who were for consolidation
and 14 of the 15 were against consolidation answered correctly.
Of the 198 students living outside the City limits, 73 of the 98
who were for consolidation and 79 of the 100 who were against
consolidation recognized their community classification correctly.
QUESTION 3.
QUESTION:
Do you have any knowledge as to whether the
municipal government of your community is operating
at a deficit:
No
Yes
No Opinion
This question was merely a simple attempt to find out whether
students have any knowledge at all about the financial affairs of
-7-
�their respective community governments.
No attempt was made to
probe further than to ascertain if they knew whether or not their
government operated at a deficit.
Nor was any attempt made to
check the validity of their knowledge.
could conceivable mean even hearsay,
The phrase "any knowledge"
Nevertheless, the results
reveal much about college students.
The group recognized, after the results came in, that the
No Opinion alternative for the respondents to nark should have been
removed and that the students should have been given just two
alternatives—Yes and No.
However, the No Opinion replies were
tabulated.
For Consolidation
Yes
Against Consolidation Yes
41
48
No
No
57
42
No Opinion
No Opinion
37
23
The group felt that the No Opinion checks should really be
tabulated with the No group.
It is perfectly clear from the
figures that most college students, whether for or against consolida
tion, had no knowledge of the financial condition of the municipal
government.
Although there were more Yes replies among the group
against consolidation, the picture is not changed substantially
when the No Opinion votes are combined with the No votes.
Those in the City admit their lack of knowledge as do those
outside the City.
For
Wilkes-Barre
Yes
No
No Opinion
20
19
13
Outside
Against
Wilkes-Barre
Outside
21
38
22
6
6
3
42
36
20
QUESTION 4.
QUESTIONS
Rate the following functions of your municipal
governments police, fire, school system, and
-8-
�recreation. The ratings available to the students
were excellent, above average, average, below
average, and inadequate.
In this question students were asked to rate four services
provided by the governmental authorities in all communities in
Wyoming Valley.
It was hoped that there might be some correlation
between the rating the student ascribed to a service and his
attitude toward consolidation.
It should be remembered that
students are not administrative experts, and, therefore, their
rating may not be founded on any well-grounded basis.
Their rat
ing may be the result of mere exposure to the service and their
attitude toward it.
The students were not asked to indicate any
reason or basis for their opinions, nor were they asked to suggest
changes, if necessary.
For
Excellent
3
Above
average
4
Average
26
Below
average
15
Inadequate 10
Wilkes-Barre Students
Police
Fire
Schools
Against For Against For Against
0
10
0
4
25
2
3
9
20
0
For
1
6
1
4
5
15
25
4
4
13
2
7
3
3
14
21
3
4
Recreation
Against
3
6
o
0
4
4
7
No Wilkes-Barre student against consolidation rated either
City police protection or City recreation excellent or even above
average.
In these two categories of services, the anti-consolida-
tion City students began their rating with average.
Even the
consolidation students from the City skewed their ratings toward
the lower end of the rating scale.
No Wilkes-Barre student who
was for consolidation rated the City fire department as inadequate.
The City students who favored consolidation skewed their rating
at average or better.
-9-
�The above figures also are revealing in other respects.
Wilkes-Barre students, whether for or against consolidation, think
more highly of their fire department than of their school system.
While 46 of the 72 Wilkes-Barre students rated their school system
average or better, 55 of the 72 rated the fire department average
or better.
Only 6 students gave the school system a rating of
excellent$ whereas 10 gave fire protection the equivalent rating.
It is interesting to note that the consolidation proponents made ;a
great deal in their May campaign of the fact that the City school
system is one of six accredited in Wyoming Valley.
It was suggested
that a higher caliber education could be offered to those in the
three townships if consolidation could be attained.
Althogher, 28 City students, bother for and against consolida-
tion, rated recreation as inadequate and 19 students rated police
protection equally low.
It would appear from the student ratings
given the recreation program and police protection that both of
these programs need bolstering.
Students outside Wilkes-Barre
Police
Fire
Schools
Against For• Against For Against
For
Excellent
Above
average
Average
Below
average
Inadequate
Recreation
Against
For
2
7
14
25
6
25
2
7
9
43
21
40
28
41
23
48
23
21
29
7
35
18
14
19
27
16
17
15
13
3
8
21
14
19
4
24
4
27
2
3
Students living outside the City, both for and against consol
idation, rated fire protection and schools higher than police
protection and recreation.
Approximately the same number of students
for (42) and against (48) rate their fire departments above average
or excellent.
More students who were against consolidation (46)
-10-
�rate their school system above average or excellent than those for
consolidation (29).
It is doubtful whether a plea could be made
for consolidation on the basis of better fire protection.
A case
based on a higher caliber of education might stand only an even
chance; whereas the best plea for consolidation could definitely
be made on the basis of better police protection and a better
recreational program.
However, since the
me Wilkes-Barre
tuiiies-narre smuenus,
students
both for and against consolidation, rated both of these service low,
perhaps the figures reveal that students, whether liv.ing in the City
or outside and whether for or against consolidation, are really
pointing out a deficiency in these programs in Wyoming Valley as
a whole.
QUESTION 5.
/'• ■i • ■
QUESTION:
•:'x
. JI
Do you feel that your community has taken adequate
steps toward its future development by a planned
program?
Yes
No
No Opinion
This question was included in the questionnaire to find out
whether the students were at all familiar with any attempts made
in their own communities to plan for the future development of the
community.
,f I
■
>
I
It should be noted that Wilkes-Barre, Nanticoke
and
Pittston have both Planning Commissions and Redevelopment
Authorities to plan and redevelop those communities.
Kingston
and Forty Fort have Zoning Boards, which do not necessarily plan
’ r
for any future development but rather administer zoning ordinances
ordained by the borough councils.
The latter two communities are
not really planning, in the techincal sense, for the future.
1
Again, after the tabulations started, it was apparent that the
■
■-')
No Opinion choice should have been ommitted.
-11-
However, the results
�are revealing even without, the tabulation of the No Opinion replies.
For
Against
WiIke s—Barre
—e Outside Wilkes-Barre Outside
11 of 57
17 of 100 1 of 15
19 of 98
Evidently any work along this line has not been brought to the
Had taken adequate steps
attention of the College students,
This certainly would be true
of those from Wilkes-Barre , Pittston, and Nanticoke. As was the
case with the answers to Question 4, students are aware of
deficiencies in their municipalities.
Question 6.
QUESTION:
If you had a friend who was considering moving to
Wyoming Valley, list three towns in order of
preference that you would recommend to him.
The inclusion of this question was predicated on the promise
that there might exist some lily-white community or communities
which appear to meet all requisites of a desirable town in which
to live and to recommend to someone else.
The student was not asked
to consider any particular factor as a basis for indicating his
preference.
Students both for and against consolidation, living both in
the City and outside it, would recommend Kingston.
Of students
outside the City and against consolidation, 60 of 98 would recommend
Kingston, followed by Forty Fort (ll)and Dallas (10).
Almost all
Wilkes-Barre students against consolidation would also recommend
Kingston. Of the 57 Wilkes-Barre students for consolidation, 25
would also recommend Kingston; 14 would recommend Wilkes-Barre,
followed by Forty Fort and Dallas.
The order was slightly changed
for the consolidation minded students living outside the City.
Kingston (37), Dallas (16), and Forty Fort (13).
-12-
�A bit startling was the fart.
iact that only 14 of 57 Wilkes-Barre
students favoring consolidation would recoanend the City to a
friend; and, also, that 4 of the !00 students living outside the
City favoring consolidation would recomend the City above their
own community or any section other than Wilkes-Barre.
QUESTION 7.
QUESTION:
List in order of preference, three towns in Wyoming
u.
''“a^ y°u consider efficiently managed and
which you consider as furnishing all necessary
services.
As a complement to the preceding question, students were asked
which of the municipalities in the Valley they considered efficient
ly managed.
It again should be remembered that students are not
experts and, therefore, do not possess the expertise to evaluate
professionally.
The cynical attitude of the student body toward local govern
ment was reflected in a very simple figure:
119 of 272 polled
stated that no town in Wyoming Valley is efficiently managed. This
is the opinion of 43.7$ of the students.
Against
For
Wilkes-Barre Outside Wilkes-Barre Outside
26
51
9
33
None efficiently managed
It is surprising that 26 students of 57 living in the City and
for consolidation feel that the City is not efficiently managed.
It is also noteworthy that 84 students who state that no town is
A total of 77
efficiently managed live outside the City environs.
49$ stated that no town is efficiently
out of 157 consolidation or
36$ of 115 anti-consolidation students
managed. A total of of 42 or
of the fact that students
felt the same way. Certainly, in spite
may be for consolidation, they, nev^rthcl
, are more severely
-13-
�ritical than the anti-consolidation
raise the interesting speculation
students.
Perhaps these results
as to whether these students
would remain in the Valley.
among the antl-consolldatlon students, 43 students living
outside the City and 5 Wilkes-Barre students selected Kingston as
the town they thought most efficiently managed.
Kingston was
followed by Forty Fort in the student selections.
It is odd that
whereas in the previous question, 60 students would recommend
Kingston to a friend, only 43 of them consider it efficiently
managed.
Among the proponents for consolidation, Kingston was selected
as the town that they thought was most efficiently managed.
There
were 15 students for consolidation living in Wilkes-Barre and 18
living outside who felt that Kingston was so managed,
Among the
consolidation students from Wilkes-Barre, Wilkes-Barre was the
second selection.
Only 13 of 37 pro-consolidation out-of-city
students who recommended Kingston in the previous question also
stated that Kingston was efficiently managed.
The rest stated
that no town was considered so-managed in spite of the fact that
they would recommend Kingston to a :friend.
Although Kingston was selectedI the most frequently by both
consolidation and anti-consolidation students, it received the
of only 27.9$ of all students polled.
Wilkes-Barre received only
7.3$ of the student vote on the question of efficient management.
QUESTION:
QUESTION 8,
■ » following factors, in the order
Indicate five of the
those which y°u think.industrialists
of preference, as twhen contemplating a move to
consider most important
'aSikS natural resources, good
a new community*
*
-14-
�location, transportation, tax concessions, equitable
tax structures, efficient governmental services,
adequate water supply, ample electric power, skiii-e
labor, available sites, available housing, caliber
of school system, cultural facilities, proximity
of market areas.
The factors were ranked in the ■
following order by all the
students taking part in the poll:
skilled labor
transportation
good location
proximity to markets
available sites
155
153
130
130
110
56.9%
56.2%
47.7%
47.7%
40.4%
The above tabulation was compiled by adding up the number of
times a factor was marked among the first five.
Among the anti-consolidationists living in Wilkes-Barre, the
factors considered most important were transportation, available
sites, skilled labor, and tax concessions, in that order.
It is
surprising that cultural facilities was not once ranked among the
first five factors.
s.
Among the anti-consolidationist students living outside the
City, transportaion was ranked as the most important factor, since
it appeared as one of the first five preferences 67 times out of
98, although it ranked first only five times.
Transportation was
followed in this order by skilled labor, good location, proximity
of markets, and tax concessions.
Cultural facilities and available
housing were not considered important by the students.
The factors
i-i
considered important by the consolidation students
vlhg in Wilkes-Barre were
skilled labor, proximity
snsportation, good location, tax
to markets,
concessions, and available sites,
of market areas received
e(]Uate natural resources and proximity 1
tnDs
■f'l'nc-h-ninnfl votes.
most'h first-place
votes.
, natural resources ranked
Yet adequate
-15-
�in
seventh place m total number
of times that
it inL among the factors.
The students for consolidation
students considered
and living outside the City
ranked the factors in the following
order: skilled labor, good
location, transportation, proximity to markets,
and available sites.
Good location received most first-place votes,
Skilled labor was
tied for second with proximity to markets, Cultural facilities
Electric power and available housing received no
first place votes.
ranked last.
Against
For
Wilkes-Barre Outside Total Wilkes-BarreOutside
Skilled labor
Transportation
Good location
Proximity to
markets
Available sites
Total
8
10
6
58
67
52
66 (2)
77 (1)
58 (3)
34
31
26
..-,55
45
46
89 (1)
76 (3)
72 (4)
6
9
48
39
54 (4)
48 (5)
33
21
43
41
76 (2)
62 (5)
QUESTION 9.
Below are some factors which some people think have
deterred industry from coming to the Valley. Rank
the three factors that you feel have made industry
hesitant about locating here: subsidence or subsub
surface conditions,i, political
political corruption,
corrupt!on decreasing
population, lack of skilled labor supply, labor
difficulties.
The reason for including this question was to find out student
such as industrialists.
opinion concerning their image by outsiders,
although the students may
Again, it must be pointed out that
industrialists may not
consider certain factors as deterents,
QUESTION:
necessarily consider them so.
-16-
�For
Against
Wilkes-Barre Outside Total
Wilkes-B;iarre Outside
46
Subsidence
79
125
10
89
34
pecreasing
population
63
97
15
82
Total
99
40
56
96
6
^skilled labor 28
40
97
46
53
81
4
24
43
47
43
67
9
63
72
difficulties
The above table reveals subsidence ;
and political corruption
are considered by both consolidation and1 anti-consolidation students
aS deterents to attracting industry,
It is noteworthy that both of
these factors were either ignored or played down by the Commission
for Metropolitan Commission.
Whereas the students for consolidation
rated a decreasing population as third, the anti’s rated it last
and placed labor difficulties. in third place.
Among the Wilkes-Barre students against consolidation, political
corruption received 6 first-place votes out of 15 as the factor most
likely to deter industry from coming here,
This factor did not
receive a mark among the first three on any two responses,
Notice
should be taken that among these students a decreasing population
is not considered as a deterring factor.
Among the students against consolidation and living outside
‘he city, checks fop decreasing population ran last.
Subsidence
"as the first choice on 28 of 98 ballots and appeared on 89
replies.
•
oA first place choices and
Political corruption received
a total of 82 marks out of 9®«
Subsidence was ranked first among
the Wilkes-Barre students
decreasing population. This
•ho favored consolidation, followed by
latter factor was only fourth in flrst pl”CM’
-17-
but received the
J
�number xin
second anq
and third
nighest numDer
U Bcuuuu
Subsidence was ranked fir
first
st ln
5 first-piace
choices and also first
total marks among the students ,h„ f
the City,
aV°r
in
consolidation but live
Political corruption ranked second in first-place
outside
cflOices and second in total marks among these same students,
Th® students, both those for consolidation and those against
consolidation, have recognized subsidence as the most pressing
problem.
The issue of political corruption, long a source of
political agitation in Luzerne County, is related to issues raised
in Questions 4, 5, 6, and 7.
There certainly must be some relation
ship between student feelings on political corruption on the one
hand and efficient management of local government on the other,
QUESTION 10.
QUESTION:
Do you feel that enough information has been
disseminated about consolidation as a solution to
the problems of the Valley?
This question and the next three that follow were an attempt
to have students evaluate the effectiveness of the media of
to
communication in presenting the issue of consolidation leading
the voting on Primary Election Day on May 19, 1959.
The overwhelming feeling among
the students was that not
on the issue. This they
enough information had been disseminated
and antis in spite of
said in about equal proportion among the pros
1 in favor of consolidation,
the fact that the students voted 2 to
used in the
what basis was
It: raises an interesting question. as to
consolidation,
f°rmation of their opinions in voting f°r
the lack of information might have
been the
deciding factor in
. arlti students.
v°ting against consolidation by the
-18-
Of course,
�For
24
Yes
No
Against
16%
16
14%
84%
99
86%
There is no need to break down ■the above table
since all classes
•tudents felt overwhelmingly the <same.
of s
QUESTION 11 AND <QUESTION 12
QUESTION:
QUESTION:
How do you feel the meHia
”
have t^d
TV, newspapers)
j
issue?
Fair
Favor consolidation
Against it
hSPiO?nf?nLtiaVhepPr!Sentation Of the issue has
been m good taste, factual, offensive?
These two questions are taken together because the interpreta
tion of the results lends itself to combination.
Questions 11 and 12
combined with question 10 and question 13, do give a composite
student attitude about the media of communication on the issue of
consolidation.
The results are all the more important in view of
the fact that so much money was spent on promoting consolidation
through these media.
Only 1 Wilkes-Barre student of 15 against consolidation express
ed the feeling that the media of communication was fair in its
treatment of the issue, and even this student probably invalidated
his reply by answering on the next question that the presentation
Was offensive.
In most cases where the Wilkes-Barre students felt
communication favored cconsolidation, they also
offensive (8 of 12 responses).
felt that the presentation was
students against consolida4b°bt (7 of 15) jQft of the Wilkes-Barre
information had been
tton expressed the opinion that not en
1Diinated favored
^sseminatcd, and that which had been dlssG1
and that
that the media of
Consolidation and was offensive.
-19-
�A
total of 85 of 98 or 86.7$
and against
■
of?; :stMents
117106
—
h; ——a.
consolidation felt
8? students,
** v-se
Of■ these 85
>— -.X:*—r
,tation was offensive.
tne opinion that not enough informatl,n haj
on
had been dissected favored consolUatlon
tno issue, and that
and ms offensive.
This a6aln is almost
flere against consolidation and who live outside the City.
Among
the anti-consolidationists outside the City, there was only 2 of 98
who felt that enough information was disseminated, that the treat
ment was fair, and that the presentation was factual.
No anti
students combined enough information, fair treatment, and presenta
tion in good taste.
As a matter of
fact, only 3 students of 98
against consolidation and living outside the City felt the
presentation was in good taste, and only 17 of 98 felt the
presentation was actual.
Of the 57 students living in Wilkes-Barre and favoring
consolidation, 37 said the media favored the consolidation movement
and 20 said the treatment was fair.
This latter figure must be taken
v/ith a slight reservation inview of the fact that 6 of the 20 stated
that the presentation was offensive.
Of the 20, only 4 said that
and 10 said it was factual.
''he presentation
Presentation was in good taste,
of the 20 who said the treat°wever, further analysis reveals that 1
10 that not enough informament Was fair, 17 indicated in Question
the 57 Wilkes-Barre students
a had been disseminated. Of hhe 37 °f
- 11 said it was
,h° Said that the media favored consolidation,
18 said it was factual.
fetlsive, 8 said it was in good taste, and 1
-20-
�Wilkes-Barre
Students
r or
Against
Total
28
factual
1
Offensive
29
17
10
In good taste
27
12
1
13
The Wilkes-Barre students > both for and
■ against consolidation,
are almost evenly divided in appraising the ■
presentation between
factual and offensive. Note should be taken that more indicated
that the presentation was offensive than indicated that the
presentation was in good taste,
A full 77$ or 77 of 100 consolidation students living
outside
the City stated that the media of communication favored consolidation.
Of the 23 who did state that it was fair in treating the issue, 14
stated that it was factual and only 7 stated that it was in good
taste.
Of the 23 who said that the treatment was fair, 18 indicated
in Question 10 that not enough information had been disseminated on
the issue.
Of the 77 who stated that the issue was handled fairly,
37 maintained that it was factual, 19 stated that it was offensive,
and 21 held that it was in good taste.
PRESENTATION OF ISSUES—BOTH CONSOLIDATION AND ANTI-CONSOLIDATION
STUDENTS
Wilkes-Barre
Factual
Offensive
lb good taste
r
29
27
13
Total
Outside
59
127
42
30
100
29
Percentage
of all students
21.6$
46.6$
15.4$
: 46.6$ is rather high and
One is first struck by the fact that
that this Is rather a harsh foolins on the part of the students.
part of that total of 127 Is made up of anti-consolidation students
<78).
Even without that 78 Included, the figure remaining (49) Is
surprisingly high since the media of comnunlcatlon as an Industry
-21-
�QUESTION:
Check the media of r- - •
played the
most important part communication
in
» - j which
in Tnfi
towards consolidation?
?^-enc
^gyour opinion
radio, TV, newspapers, and
personal contact.
As was stated in introducing
. xu
ng thp
me previous
three questions, the
inclusion of this question .as to find out ho. the students felt
about the presentation of the Issue of consolidation by the media
of communication.
This particular question was included in order
to find out which particular media was most effective.
The inclusion
of personal contact was an alternative choice was inserted for just
that reason.
Actually, the group constructing the questionnaire
realized that this should have been a separate question; therefore,
the phraseology of the question is dubious.
The group wanted to
limit the number of questions to 20, if at all possible.
Results of Question 13 makes one wonder whether money spent
on the air—radio and TV—was worthwhile. It would appear that
the most important media by
personal contact does still remain
view of the closeness of
which to spread information, although in
its monopolistic position
the vote (94 to 91)> it might have to share
with newspapers.
Wilkes-Barre and Outside
Against
Radio
TV
Newspapers
Personal contact
22
15
36
For
Total
26
19
48
34
55
52
91
94
42
and newspapers is barely
of personal contact
Again the position
from the standpoint of
media are analyzed
maintained when the same
-22-
�indents within and outside the
W, since the vote
is even closer
to
91)•
(92
s
Both For and Against
Wilkes-Barre
Outside
Radio
10
Total
39
tv
12
49
23
Newspapers
22
35
69
Personal contact
28
91
64
92
Of the 57 Wilkes-Barre students for
consolidation, 21 marked
personal contact as the media which
influenced them the most and
34 marked either radio, TV, or newspapers. Only 9 of the 34
indicated in the previous question that the media were offensive
in their presentation, while 9 indicated they were in good taste
and 16 stated that it was factual.
The consolidation students living outside the City felt more
kindly toward the media.
Of the 66 of the 100 consolidation
students living outside the City, 23 stated that in the previous
question the presentation was in good taste and 23 stated that it
was factual.
Only 17 stated that it was offensive.
Of the 15 Wilkes-Barre students against consolidation, 8 of
them marked ratio, TV, or newspapers as influencing them the most,
°hly 2 of the 8 indicated that it was offensive.
There were 53
anti-consolidation students living outside the City who marked one of
the commercial media (radio, TV, newspapers) as influencing their
opinions.
Of this number, 33 indicated that the media Bas offensive,
15 said the presentation was factual, and 5 said It was In seed
taste.
students who said that not
There were many anti-consolidation
, that what had been presented
enough information had been presented
as offensive, but who later
favored consolidation and was described
-23-
I
�Indicated that they were influenced
in their
contact.
thinking by personal
QUESTION 14, QUESTION 15, and
QUESTION:
QUESTION:
QUESTION:
QUESTION 17
a P??son whom
he for consolidation
or.y’• against
?iresPe°t very highly. is
consolidation?
The last time you discussed c
was the general sentiment forconsolidation ini a group,
- consolidation ior
against consolidation?
Do you think your friends
are consolidationists
anti-consolidationists?
These questions were intended to show the
importance of certain
personal relationships in our thinking,
Socioligists claim that we
ordinarily think as a person whom we respect highly thinks. They
also insist that people are likely to join that circle of friends
who think as they do.
Neither of these may be as true on the
college campus as in every day life.
There is the likelihood of
more differences of opinion on the college campus.
College students
may, more often than the general public, disagree with those whom
they respect and with those who make up their circle of friends.
The aim was to find out to what extent on the campus both of these
were true regarding this particular issue of consolidation.
Question 16 was inserted among these three questions, first, to
make the student as unaware as possible of the objective in Questions
i4, 15, and 17; second, as this was a sort of hiding place for the
asking, to ascertain just how
question which very definitely needed
objective the students were trying to
nj_Mnn
students against consolidation
There were 14 of 17 Wilkes-Barre
who was also against it. Of these
or 82.3$ respect highly a porson
„ntl.OI>nsolldatlon group the last
i4,11 found themselves in an
altogether 15 students or 88.2JS
time the issue was discussed;
-24-
�.
that they thought their friends
1.ndicat
were anti-consolidation.
This same sort of relationship
' appears to hold true with the
nSOlidation students living 1
outside the City, except that the
lationship may not be as close. <
Of the 98 anti-consolidation
repUeS inC1Uded’ 73 °r
an ^-consolidation
anLx-^u^uxxucvxuu person.
person.
74.4$ indicate they respect highly
<Of the 73, 67 last discussed the
issue in a group that they considered anti-consolidation.
Altogether
82 or 83.4% indicated that they thought their friends were anti
consolidation.
Generally speaking, the relationship between a student’s
thinking as favoring consolidation and that of a highly respected
person, and a last discussion, or his friends opinions is not so
close as with the anti-consolidation group.
Among the Wilkes-Barre
consolidation students, 47 respected highly a consolidation person.
This is 80.7%.
A total of 37 found themselves in a pro group the
last time the issue was discussed.
Of the 57, 44 or 77.1% feel that
their friends are consolidation minded.
Among the consolidation students living outside the City,
who was in favor of
82 of 100 or 82% respected highly a person
62$ last discussed the issue in a pro group.
consolidation; 62 or
to be for consolidation.
Of the 100, 72 or 72% thought their friends
Total
Against
For
Respect highly
Last time discussed
Friends
216 79.4%
87 75.6%
195 71.6%
96 84.'j^
83.4$
213 78.3%
97
most important factor
129 82.1%
-
99 63.0%
116 73.8%
•"» —
whole, the
Among the students as a
influencing their opinions
. of a highly respected
was the decision
Person, followed by those of
of the last discussion.
A
their friends
Almost 4 out of
-25-
, and then the results
5 students are influenced
�in that way.
The
The consolidation
students indicated they were
influenced mostly by a highly
respected person, whereas the antic onsolidation students felt their circle
of friends had the most
influence.
QUESTION 16.
QUESTION;
<-i J.' £
At the present time, is there
member of your
immediate family active
in the'any
,
- —
consolidation oj Uldl%
o movement for
holding^an office with one of the
municipal goverments included
--- J in the proposed
consolidation?
The inclusion of this question was to discover how objective
the students could be , assuming of course, that if a member of their
families were in any way directly involved in local government or in
the movement for consolidation, their opinions would be colored in
some way.
It has been stated earlier that this question was
included at this point deliberately to hide it among a series of
questions
so that the respondents would not be aware of its
importance.
Only
7 of the total number of 11? students against consolida
tion admitted that a member of the family was involved; only 14 of
157 of the students favoring consolidation stated that some one of
their immediate family was involved.
This means only 6.6$ of the
total respondents could possibly have been influenced by this factor
of family relationship with the movement or with local officials
who presumably are pro, if City officials, and con, if outside
though the assumption were made that the 7 anti
officials. Even
consolidation and the 14 consolidation
consolidation might be for
the overall result would be the samestudents might be against it,
favored consolidation by a revised
hamely, that the Wilkes Students
conceivable that other results
Vote of 143 to 129. Wnwever,
However, it is
-26-
�on various questions and therefon■e
interpretations flowing from
them, where the voting Was close» might be
different.
QUESTION 18.
QUESTION: If you
whichUOfrthe following
£he ProP°se(i consolidation,
important in the ?n™8^aCt°£s do
consider most
industry, better
y°ur decision: new
schools, better
better
eoono,w’ana better
This question was answered only by those who were proponents of
the proposed consolidation and together with Question 20 really was
the method used to determine how the students stood on the issue.
The anti-consolidation students were asked to answer Question 20
rather than Question 18.
Wilkes-Barre
Industry
Governmental services
Schools
Recreation
Prestige
Governmental economy
Police and fire
39
21
25
19
26
20
15
Outside
Total
80
39
44
19
26
27
28
119
60
69
38
52
47
43
75.7$
38.2$
43.8$
24.2$
33.1$
29.9$
27.3$
The most important factor influencing the consolidation students
was the possibility of attracting new industry.
This factor was
selected by almost twice as many students as better schools of which
most college students would be especially conscious. Next in order
services, community prestige, increased
were better governmental
and fire protection, and better
governmental economy, better police
recreational facilities.
foremost factor in helping
Whereas new industry was still the
their minds on consolidation, a note
Wilkes-Barre students make up
i, followed by schools. The
was struck for community prestige
fire protection ran a poor last.
possibility of better police and
-27-
�Note should be taken that there might be
some relationship between
Wilkes-Barre students' rating decrease
ng population second in
importance in Question 9 and voting
community prestige second in
this question. Community prestige rated sixth
i with the outsiders,
There is likewise a consistency in these <
consolidation students
outside the City rating better
governmental services second and
rating political corruption second on Question 9. Although better
schools was a close third among the Wilkes-Barre students, it was
a substantial second among the students living outside of the City,
A cautious word must be spoken about police and fire protection.
This factor ran last among the Wilkes-Barre students favoring
consolidation and fourth among the people outside the City.
police and fire protection were put into one factor.
Both
Whether the
result might have been different had they been separated is matter
for speculation, especially since the students had entirely
different feelings about these two governmental services, as revealed
by the results in Question 4.
The question remains unanswered as to
whether the students ranked this factor so low because they can not
see consolidation improving police coverage or because fire
protection is so good that is impossible of improvement.
QUESTION 19
think consolidation will win anywhere this
Do youLvptrTrdless
of your opinion on the subject^
year, :- gKing!ton, Plains, Wilkes-Barre Township,
Hanover,
Wilkes-Barre City?
to predict the outcome of an
of us at one time have the urge
inserted into the question
happening. This question was
of how they felt about the issue,
see if, regardless
the election vote on the
could predict the outcome of
QUESTION:
All
event or
naire to
students
-28-
�issue as it was placed before the
townships of Plains, Wilkes-Barre
People in the City and the three
’ and Hanover, Students were asked
general ’ bu't they were asked to predict
the separate vote in each of the 4
municipalities. Under the law,
for consolidation to be
ouccessful it had to be voted on favorably
in the City and ©ach of* th© saDATn'bo
•
parate municipalities. Although the
consolldatlonists won over the paople by a tremendous victory, they
not how the vote would go in
were not able to put the vote across
across ;successfully in the townships.
Therefore, the proposed consolidation was lost.
Kingston was
included in the question, but this was a mistake since there was no
vote in Kingston. But it was too late to make the correction, so
students were informed to ignore Kingston.
Predictions
For
Against
Municipality Wilkes-Barre Outside Total Wilkes-Barre Outside Total
r
Hanover
Plains
W-B. Township
W-B. City
wrong
wrong
wrong
right
right
right
wrong
right
right
wrong
wrong
right
right
wrong
wrong
wrong
right
right
wrong
right
right
right
wrong
right
Neither the students for consolidation nor the students against
consolidation could guess 100$ accurately the outcome of the election.
The students against were better predicters than those for in that
they missed only on Wilkes-Barre Township which they thought would
vote pro consolidation, but which did not on election day. In
addition to missing Wilkes-Barre Township, the consolidation also
missed out on Plains which they thought would vote tor consolidation,
but again where it was defeated.
of students from the City were very poor
Both categories
and anti-consolid.ntionists—in that both
guessers—consolidationists
instance out of four. Evidently, they
could guess right in only one
-29-
�are not aware of popular opinion in the
outlying areas.
Students living outside Wilkes-B,
larre, both consolidation and
anti-consolidation—missed Wilkes-Barre
Township. Apparently, not
too many students in the poll had enough of
a feeling of the
opinions of the people in the Township to predict what they would
do on election day.
Only the anti-consolidation students living in Wilkes-Barre
guessed wrong on the City itself.
Most students thought--89 of 115
anti-consolidation and 122 of 157 consolidation-- the City would
.s'
vote favorably on the issue.
That the students both for and against consolidation living
outside the City were better predicters is shown by the facts below:
Wilkes-Barre Students
Municipalities
Outside Students
Total
right
right
wrong
right
right
right
wrong
right
wrong
wrong
wrong
right
Hanover
Plains
W-B. Township
W-B. City
QUESTION 20.
QUESTION;
If you are an opponent of the move for consolidation,
which factors influenced you most: lack of a defined
policy, increased taxes, loss of local identity,
lack uf facts, emotional appeals?
This question was answered only by those opposed to consolida
tion and was the source in determining who the anti-consolidation
students really were.
Wilkes-Barre
rt
Lack of policy
Increased taxes
Loss of identity
Lack of facts
Emotional appeals
8
7
1
6
4
Outside
Total
57
65
36
15
48
21
29
14
42
17
56.5$
31.3$
13.0$
41.7$
18.2$
influenced, the anti-consolidationBy far, the factor that most
on the part of the Commission for
ists was a lack of defined policy
half of these students rated
Metropolitan Government. More thnn
-30-
�that lacwr as we llrst.
Lack of facts, related to a well defined
policy, ranked second. Loss of local identity did not matter much
to the anti-consolidation students, indicating that they are not
as provincial as first thought.
Lack of a well defined policy was the number one factor among
the Wilkes-Barre students against consolidation, followed by
increased taxes. It is difficult to interpret anything from this.
This could mean that these students might be against consolidation
because the City might annex liability communities.
The arrangement
of the factors for the students outside Wilkes-Barre and against
consolidation falls into the same lineup as for the general
group as a whole.
Of the 14 students who marked loss of identity as a factor in
influencing their decision, 6 of them came from Plymouth.
This is
strange in that not a single Kingston or Hanover person is among
the group, and only one from Plains.
Natural Sciences accounts
for 6, all of the 14 are males, and 10 are freshmen.
-31-
�CONCLUSION
The most risky part of the work of those
::
to interpret the results.
who sample opinions is
This
study was not done for any
particular group or organization,
Therefore, the interpretations are
free from bias from that source, Some of the conclusions may be
cause for concern for those who tirelessly worked for or against
consolidation.
Be that as it may, responsibility for the conclusions
must be borne by those making the study.
Wilkes College students favored consolidation by almost 3 to 2
vote, but they could accurately predict its success only 75$.
Students living on the outskirts of the City supported consolidation
as well as the students living in the City.
All classes supported
the consolidation, led by the juniors and sophomores.
Female
c
students were more for consolidation than the male students.
The
liberal arts and commerce and finance students supported it, but
the education and natural science students did not.
An overwhelmingly large number of Wilkes-Barre students do not
know that the City government is the commission form.
Students for
consolidation are better informed about their form of government
than those who opposed consolidation.
An appalling number of
students freely admitted that they had no knowledge as to whether
the municipal government of their community operated at a deficit.
Student regard for fire protection, inside and outside the
City, is high; but not so with police protection, schools, and
recreation.
All students are severely critical of the latter
three municipal services.
Students are unaware of any plans for
future development of their communities, implying either that such
-32-
�do not exist or that they are not informed to them,
This is all the
more serious with Wilkes-Barre, Nanticoke, and Pittston students
i .'J
since plans are in the offering.
"o Jr -
Many
students would recommend Kingston to their friends as a
good town in which to live, although a cynically high number of
students do not consider any Wyoming Valley town efficiently
managed.
Students believe that skilled labor and available
transportation attract industry and that the most serious deterrants
to industry in the Valley are subsidence and political corruption.
Whereas a majority of students voted for consolidation, they
were free in stating that not enough information was given to the
public and that the information disseminated was offensive in
character.
They feel that personal contacts and newspapers are the
l
most important conveyors of information to influence people.
Although secondary media are important in the daily lives of
the students, the people they respect and their circle of friends
still help to formulate their opinions.
In expressing their
preferences for kinds of media, it can be said that the students
prefer to discuss and read, rather than to see or hear.
Attracting industry was the most important factor to those
voting for consolidation, and the lack of a defined policy by the
Commission of Metropolitan Government was the deciding factor for
those voting against consolidation.
-33-
5S7S1.
�■IHHI
10001L0154
MILKES COLLEGE LIBRARY
�WILKES COLLEGE LIBRARY
�
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Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
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Institute of Municipal Government and Institute for Regional Affairs
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1958-1980
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Student Opinion Survey Concerning Consolidation, 1959
Creator
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Institute of Municipal Government
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1959
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Publication
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Wilkes University retains copyright of this publication.
-
https://omeka.wilkes.edu/omeka/files/original/a16bf4347db78c2a7a002d13b1fde79a.pdf
aa4ca405c2be5debea5673fb462330c5
PDF Text
Text
WILKES COLLEGE ARCHIVES
■Eugene Shedden Farley Library
COMPARISON
OF
RURAL AND URBAN SCHOOL DISTRICTS
IN
LUZERNE COUNTY
INSTITUTE OF MUNICIPAL GOVERNMENT
WILKES COLLEGE
WILKES-BARRE, PENNSYLVANIA
��COMPARISON
OF
RURAL AND URBAN SCHOOL DISTRICTS
IN
LUZERNE COUNTY
A. FRANCIS RIOFSKI
I960
INSTITUTE OF MUNICIPAL GOVERNMENT
WILKES COLLEGE
WILKES-BARRE, PENNSYLVANIA
�WILKES
COLLEGE
WILKES-BARRE
PENNSYLVANIA
May 13, I960
Admiral Harold R. Stark
4900 Glenbrook Road, Northwest
Washington 16, District of Columbia
Dear Harold:
At the risk of inundating you with too much reading material,
I am forwarding to you a study made by one of our undergraduates work
ing with Dr. Mailey of our Political Science Department.
The report is published by the Institute of Municipal Govern
ment, which is supported by the College. It is a "Comparison of Rural
and Urban School Districts in Luzerne County."
This is just another of our community services.
Best wishes to you.
Sincerely yours,
President
ESF:mkb
Enc:
�FOREWORD
Educational costs have mounted rapidly since the beginning of the century.
The huge cost of public education should occasion no surprise.
Therefore,
educational expenditures .must be subjected to close scrutiny just as other
municipal services are presently undergoing examination.
The general public
has a right to expect the greatest possible mileage out of the school dollar.
Every
penny lost is a direct loss of educational opportunity for the school child, be he a
rural child or an urban child.
Popular opinion has it that education is a simpler matter in urban than
in rural districts. Virtually every educational survey comments unfavorably
on prevailing standards of rural teaching and considers raising them to the urban
level.
The educational advantages in the city are reputed to be many. Perhaps,
consolidation of neighborhood schools in cities and towns was a factor in the newer
educational developments in cities and towns. Rural school districts were slow in
recognizing this fundamental factor. Now that rural school districts have made
many necessary improvements in school administration, it may be time to re
evaluate standards and compare educational facilities to ascertain whether or
not the weight of educational advantage has not shifted to the rural child.
Hugo V. Mailey, Director
Institute of Municipal Government
Wilkes College
Wilkes-Barre, Pennsylvania
�ACKNOWLEDGEMENTS
I humbly -wish to acknowledge the important parts played by Mr.
Robert Dew, of the Office of the Luzerne County Superintendent of Schools ,
Dr. Hugo V. Mailey, Director of the Institute of Municipal Government at
Wilkes College, and Mr. Alfreds. Groh, Assistant Professor of English at
Wilkes College, in the preparation of this paper.
patience, and wise counsel were indispensable.
Their kind help, gratious
Without their help the
completion of this paper would have proved an almost-insurmountable task;
with their cooperation its preparation became a genuine pleasure.
of them I extend my heartfelt appreciation.
Francis Riofski
To each
�TABLE OF CONTENTS
Page
1.
Purpose
1
2.
Introduction.
1
3.
Criteria
4
4.
Selection of School Districts
10
5.
Pupil-Teacher Ratio
14
6.
Instructional Costs per Pupil
18
7.
Total Current Expenditures per Pupil
22
8.
State Reimbursement to School Districts
24
9.
Conclusions
27
�1. PURPOSE
This study was designed to compare educational expenses and pupil
teacher ratios in school systems of two representative classes of school
districts in Luzerne County: urban and rural.
The purpose in doing so is to
determine whether there is any correlation which would indicate that either the
rural taxpayer or the urban taxpayer is receiving greater educational value from
his tax dollar.
2. INTRODUCTION
Our educational system finds itself in increasingly disheartening financial
straits.
It is caught in a vise between rising costs in all aspects of operation
and demands for improved and expanded services.
The public educational system
thus finds itself in a position where local revenue must be increased, economies
must be practiced, or else the control and finance of education must be given up
to federal or state governmental agencies.
The cost of education has risen tremendously since the turn of the century.
Between 1910 and 1955, public school expenditures for the nation rose from
$426 million to $9.8 billion - a 2,205 percent increase.
Factors accounting for
this increased expenditure include such items as increased enrollments, longer
terms , and improved attendance; great expansion in the scope of the educational
program and accompanying rises in standards; changes in pripes and the value
- 1 -
�of the dollar; and rising living standards, income, and improved economic
status for women.
The critical nature of this problem can perhaps best be
realized from a consideration of percentages: instructional costs alone in
creased 55% in. the period from 1950 - 1955, while capital outlays expenditures
increased 137% in these same five years.
As a result it behooves each educational district to seek some means
to alleviate this situation.
Giving up educational control to the state or to the
federal government does not provide a satisfactory answer.
The money still
must come from the taxpayers , regardless of who is taking it from them.
Besides, the American public has always been vociferous in their demands to
keep the finance and control of education in local hands .
Nonetheless, they are equally vociferous in their protests against proposed
increases in property taxes , through which school districts obtain most of their
revenue.
With the state and federal governments continually exploiting new tax
sources and increasing present ones, the people are pushed to the limit, and
any radical increases in the local taxation are ruled out.
Thus, as their expenses have skyrocketed, the school districts have been
gradually done out of their share of the tax revenues.
In 1922, for example,
total government expenditures accounted for 15% of the national income, while
public school expenditures took 2.5%.
By 1955 total government expenditures
took up more than double that percentage, 31.9%, while the public school share
of the income rose to only 3.2%, not even one-and-a-half times its previous
- 2 -
�percentage.
All indications are that the expenses seem destined to continue in their
upward spiral.
The control and finance of public schools probably will remain
in local hands, so that local revenue sources must continue to bear their share
of these increasing costs. Since any great increase in revenue from local
sources is rather out of the question, it appears that the individual school
districts would do well to take account of their operations and try to find possible
sources for improvement in educational efficiency and means for instituting some
realistic economies. It is in line with this object that this paper has been written.
- 3 -
�3. CRITERIA
Of course there are almost innumerable areas wherein sources of
waste and inefficiency may be sought. A few of the broadest areas would
include general control, personnel expenditures, outlays for materials, plant
costs, transportation expenditures, and capital outlay expenditures .
This paper,
however, will be confined mainly to a consideration of pupil-teacher ratio,
instructional costs per pupil, and total current expenditures per pupil.
Certainly a comparison of figures does not provide anywhere near the
whole story on a subject.
In themselves, such figures have little value save for
pointing out differences in costs among the individual districts under consid-^
eration. Analysis of the quantity and the quality of services rendered by an
educational system is a task best entrusted to authorities with specialized
professional training in such matters.
Thus no attempt is made to dpterminA
or to record differences in either the quantity or the quality of the educational
services rendered by the school districts included in this study.
The first criterion used in this study is the pupil-teacher ratio. .
The pupil-teacher ratio
efficiency in operation.
can be an indication of relative waste or
The number of pupils in a class is the chief determinant
of the per-pupil cost of instruction in the class. Small class size, low pupil
teacher ratio
or small work loads for the teachers in order to attain certain
results do not necessarily mean waste if the objectives are being achieved and
- 4 -
�if equal or better results cannot be obtained by more economical use of
personnel, facilities, and materials .
Research has tended to support the hypothesis that larger classes are
about as effective as smaller ones in mass instruction of textbook content.
has not yet provided the answer for other educational objectives.
It
Consensus
of opinion and average practice would indicate that a class size of twenty-five
to thirty-five is optimum for most educational purposes.
It cannot be said
conclusively with any reasonable certainly that reducing expenditures by increas-
ing class size beyond this upper limit is true economy.
It is equally doubtful,
however, that extremely small class size or small pupil-teacher ratios is
justified educationally.
Similarly unwholesome conditions which cause waste and inefficient use
of personnel are the extremely small units of school government too limited in
facilities and financial ability to afford an adequate educational program.
are many such districts in almost every locality.
There
This number has been reduced
by the reorganization of many of the smaller rural districts into larger, more
efficient union and joint operations.
in the urban areas.
Much, however, still remains to be done
This condition is accounted for not only by originally poor
organization, but also by failure to adjust the staff to decreasing enrollments.
Failure to make the proper adjustments not only means present waste, but future
waste as well through curtailed salary schedules and the consequent deterioration
in the quality of personnel.
The necessary adjustments can be made by the local
- 5 -
�management in the large units , but in small Units adequate adjustments to
decreasing attendance can best be accomplished by district reorganization and
the accompanying financial changes in. the state reimbursements.
The second criterion used is instructional costs per pupil.
In the usual school system, 60% to 70% of the total school budget goes
for instructional items. Since it is the largest single item of school expense,
unquestionably more opportunities for waste exist here than in any other phase
of school work.
Under the instructional items are included expenditures which are closely
related to the main educational function, teaching.
The main items in this
classification are teachers' salaries, expenditures for textbooks and related
instructional supplies, books for the school library, expenditures for tuition
of pupils sent to other school systems, and expenditures for sundry items such
as commencement programs , diplomas, exhibits, and other special exercises.
Expenditures for materials in schools represent a relatively small
percentage of the total outlays as compared with expenditures for personnel.
Personnel policies, expecially policies affecting the employment and the use
of personnel, are the essence of economy in educational expenditures.
Economy in itself is a generally misunderstood concept.
Low initial
expenditure is considered economy by some; others regard low unit costs as
the true sign of economical, management. Parsimony, low initial costs, and
low unit costs certainly are not in themselves conducive to real economy.
- 6-
�Failure to achieve adequate educational services, regardless of how low the
costs are, is failure to achieve economy.
There may be more waste in low
unit costs than in high ones .
True economy in education is the wise or prudent spending of money.
It
means utilizing the most efficient combination of personnel services and material
goods to obtain the optimum results desired.
Low unit costs of themselves do not
assure true economy, but coupled with satisfactory service, they are highly
indicative of educational efficiency.
The third criterion used in this study is the total current expenditure per
pupil.
Total current expenses include almost all expenditures made by the school
district.
The main exceptions are debt service and expenditures of capital outlay
for such purposes as land purchases , grounds
improvements, new buildings and
alterations to old buildings.
The total current expense figure contains six main items:
(1)
(2)
(3)
(4)
(5)
(6)
general control, including secretarial expenses,
treasurer, tax collector, and auditor fees, cost
of legal services , and administrative costs;
instructional expenditures;
expenditures for auxiliary agencies and coordi
nate activities, including transportation of pupils,
social centers, nurse and dental services;
expenses for operation of the school plant;
expenses for maintenance of the school plant; and
fixed charges, such as rent, insurance, taxes on
property, and retirement payments.
A comparison of..total current expense per pupil and the. instructional costs
- 7 -
�per pupil enables one to get an idea of the expenditures involved for non-
instructional items, that is, for expenses not directly related to actual teaching.
A knowledge of this expenditure can often present a crude idea of the services
rendered by a school district over and above actual instruction, but this is not
always an accurate picture.
Expenses of general control, for example, may be
excessively high in a particular district, or cost of transportation for pupils in a
large, sparsely populated district may be considerable, or maintenance of an
outdated school plant may result in much waste - all factors which are not apparent
in such a figure.
Nevertheless a comparison of the total current expenditures per pupil in the
various districts does give one an interesting, and for the most part valid, basis
for an attempt to get a more comprehensive picture of the districts Under
cons ideration.
The financial figures used in this study for the basis of the comparison are
comparable in that they were taken from the standardized, uniform Annual School
Report for each individual district for the current school year ending July of 1959.
Although budgetary forms are not always acceptable as sources of statistics of
this type, in this case they were adjudged to be the most pertinent and indicative
figures available for the purposes of this study.
These reports are prepared in
conjunction with and are subject to the approval of the County Superintendent of
Schools , and they are generally closely adhered to, since state reimbursement
figures are based upon such approved estimates.
- 8 -
The decision to use the
�budgetary figures was made only after careful consultation.-with competent
authorities •
-9 -
�4. SELECTION OF SCHOOL DISTRICTS
In order that the comparison might be placed on a valid basis, some
limitation had to be made as to the size of the districts used. So that this
limitation, might be realistic and justifiable, and not merely arbitrary,
consideration is limited to school districts the size of which place them in two
definite classes : third class , which have a population of more than 5,000 but less
than 30,000 per sons; and fourth class districts, which have a population of less
than 5,000 persons.
These classifications are based upon the last decennial
census, taken in 1950.
Financial figures for school district operations can be highly involved, and
use of them by anyone not specifically trained in their interpretation can lead to
some unintentionally distorted results.
This being the case, it was decided to
limit this paper to a consideration of only those districts administered through
the Office of the Luzerne County Superintendent of Schools. Standardized
financial records are available for such districts.
The limitations thus employed excluded from consideration a number of
school districts that might possess particular interest for some persons.
The
desire for maximum accuracy and objectivity in the analysis, however,
dictated such exclusions.
Thus the Wilkes-Barre City School District, which
is of the second class, was of necessity eliminated.
In addition such
independently administered school districts as those of Kingston Borough,
- 10 -
�Pittston City, and Nanticoke City had to be passed over because they were not
under the administration of the County Superintendent of Schools.
Nevertheless, the limitations thus imposed did serve to restrict the
choice to school districts which can be more realistically compared, since the
remaining districts are all of the third and fourth classes and all have basic
similarities of administration and operation.
This is not to say, however, that
the educational programs of all of them are or are not comparable, for such a
statement is beyond the competence of this paper.
Difficulties were encountered in choosing rural school districts in the
county which have independent facilities for twelve grade levels, which
constitutes a complete educational system. Only two such complete systems
which could be considered rural in nature are to be found in Luzerne County,
these two being the Black Creek Township and the Foster Township districts.
The remaining thirty rural districts in Luzerne County have individual
facilities for only six or eight grade levels.
The other grades in such systems
are sent to other districts with more extensive facilities as tuition pupils, or,
as is more often the case, they are part of joint school boards or union
operations .
The Black Creek Township and the Foster Township districts were both
included in this comparison, since the complete educational system is most
representative of the urban school districts in the county.
- 11 -
Bear Creek Township,
�having facilities for six grade levels within the school district and sending
the other six grade levels to the Wilkes-Barre City system, was included as
being representative of those rural districts dependent upon other districts
to augment their own. facilities .
Twenty-seven of the thirty-two rural school districts administered by
the Luzerne County Superintendent of Schools are part of joint school systems .
Thus the remaining rural districts chosen were joint operations, this form being
overwhelmingly representative of the rural school districts in the county.
The
three joint operations employed in this study are the Central Luzerne County
Joint Schod, the Nescopeck Area Joint School, and the Northwest Area Joint
School.
Such difficulties were not encountered in the choice of the urban school
districts used in this study.
The urban school districts administered by the
Office of the County Superintendent of Schools almost exclusively operate
complete and independent educational systems.
The few isolated exceptions
are the Plains-Laflin Joint Board and the Jenkins Township-Yatesville Joint
School.
The West Hazleton Borough system also operates as part of a joint
system at the secondary level.
Those systems which are included in this
study as being representative of the urban school districts in the county are
Hanover Township, which is the largest system included in this study, Ashley
Borough, Forty Fort Borough, Swoyerville Borough, and Wilkes-Barre Township.
- 12 -
��5« PUPIL-TEACHER ratio
I
Table I presents the ratios of pupils to teachers encountered in each of
the school systems included in this study.
This ratio is an approximate indicator
of the numerical economy with which the teaching personnel of a district is being
A high ratio of pupils to teachers is indicative of economical use of
utilized.
personnel; the higher a district appears on this table, the more efficiently does
it use its personnel. State reimbursements are not based upon the actual.pupil-
teacher ratio existing in a system, rather upon standard teaching units, each
consisting of 35 elementary pupils or 26 secondary pupils.
TABLE I
Pupil-Teacher Ratios for the School Year Ended July 1,. 1959.
Pupil-Teacher Ratio
School System
1.
Nepcopeck Area Joint
31.80
2.
Northwest Joint
25.33
3.
Swoyerville
24.39
4.
Foster Twp.
5.
West Hazleton Joint
6.
Forty Fort
7.
Wyoming
8.
Central Luzerne County. Joint
23.60
23.68
22.47
22.00
- 14 -
21.91
�9.
Wilkes-Barre Twp.
10.
Black Creek Twp.
11.
Hanover Twp.
12.
Ashley-
21.88
21.13
21.10
20.50
A look at Table I will reveal the fact that six of the eight school systems
with the lowest pupil-teacher ratios are urban.
This would seem to indicate that
the rural taxpayers are getting more efficient service from their teaching forces
than are their urban brethren.
With certain qualifications this conclusion appears
warranted. However, the fact must be kept in mind in intrepreting this table that
this study is made on a purely-quantitative basis, and that no account is taken of
qualitative performance.
A study of the table will show that the range encountered in the pupil
teacher ratios among the districts is considerable.
The highest ratio of pupils
to teachers , and thus the most economical, is that of the rural Nescopeck Area
Joint School, which has 31.80 pupils for eyery teacher.
The lowest ratio encount-
tered is that of the urban Ashley Borough School District, which has only 20.50
pupils for every teacher.
The pupil-teacher ratio for the Bear Creek Township School District is
not included in this table because it would not be consistent with the other figures
Presented in this study.
In the other criteria, the instructional costs per pupil
and the total current expenses per pupil, the figure for each is ba
- 15 -
p
�pupils attending the elementary school maintained by the district and upon the
tuition pupils sent to the Coughlin High School of th
e Wilkes-Barre City district.
The only usable pupil-teacher ratio for the Bear Creek District, however, would
be based upon only those pupils of the district attending the district's elementary
facilities.
For this reason Bear Creek Township was eliminated from this table.
This problem was not sufficiently serious in the case of the West Hazleton
School District to force elimination of that system.
This district, being part of
a joint plan with another district not included in this study, likewise shares
facilities in several of the grade levels .as does Bear Creek Township. In this
case, however, the pupils of the West Hazleton School District comprise a
sufficiently large percentage of the enrollment of the joint school to make feasible;
and valid the use of the pupil-teacher ratio for the entire school without distorting
our comparison.
The fact that two of the rural joint operations in this study have the highest
pupil-teacher ratios , coupled with the fact that both these ratios are greater than
twenty-five pupils per teacher, indicates that a large percentage of the rural
taxpayers are making
numerically efficient
use of their teaching forces. The
significance of this efficiency and saving is best
realized by consideration among
the rural school districts in this county is the joint school board.
The advantage
thus accruing to the rural taxpayers is partially offset by the rather low ratios
existing in th. rural Central Lua.r.e County Joint School and in the Blach Cee.it
- 16 -
�Township District.
In spite of this fact
however, the overall picture places the
rural taxpayer in a highly-advantageous light on
the basis of the first criterion,
the pupil-teacher ratio.
- 17 -
�6. INSTRUCTIONAT
COSTS PER PUPIL
In. Table II are presented the instructional
of the school systems included in this study.
costs per pupil for each
This figure shows what is being
spent on each pupil for the primary educational function, instruction.
The districts
at the top, and the cost of instructing a pupil increasing as the list is descended.
TABLE II
Instructional Costs per Pupil
?.. . ’For.School Year Ended July. I„ is>59
Instructional Cost
School System
1.
Northwest Joint
$201.96
2.
Nescopeck Area Joint
$213.20
3.
Black Creek Township
$217.32
4.
West Hazleton Joint
5 .
Central Luzerne County Joint
6.
Swoyerville
7.
Wyoming
8.
Forty Fort
9.
Foster Township
$217.55
$223.08
$ 227.63
$231.00
$235.59
$239.53
$242.99
10.
Wilkes-Barre Twp.
-18 -
�11.
Ashley
12.
Hanover Twp.
13.
Bear Creek Township
$ 260.95
$284.84
$317.59
With respect to the cost of instructing a pnpil, it app„„
rural
taxpayer gets slightly more educational value fro:
'in each tax dollar that he expends
than does the urban taxpayer.
Although the differential in instructional costs
existing between the urban and the rural pupils is not alarmingly great, nevertheless
it is significant and further indicative of the overall picture. Of the five lowest
figures for unit instructional costs encountered in this study, four of these five
represent moneys expended by rural taxpayers.
The figure contained in Table II, the instructional cost per pupil, is a fairly
good indicator of educational value being received by the taxpayers for their
educational tax dollars .
It reveals just how much of their tax money is going toward
the actual instruction of a pupil, apart from costs of building maintenance, tax
collection, and such related expenses. As such it is a relatively pure criterion and
a particularly meaningful one for comparative purposes.
The range encountered in instructional costs
Conalderation of the fact that the highest
is considerable - over $ 115.
“ “* UbIe “
*’ l»we« instructional cost encountered would indicate that certain taxpayers
Meed getting more value from their tax dollars than are othe
- 19 -
�Besides the savings realized by the
rural taxpayer in general, the economies
int board operation show up in this criterion.
Three of the five lowest
instructional expenditures are made by rural joint operations, while the fourth
1 west is that of an urban joint operation, the West Hazleton Borough School
District.
However, it is a fact that the highest educational expenditure encountered
in this study is also made by the rural taxpayer. This highest expenditure is
incurred by the taxpayers of the Bear Creek Township School District.
This
district maintains facilities for six grade levels within the district, the remainrier
of the pupils in the district being sent to the Wilkes-Barre City system as tuition
pupils.
This factor holds the key to the relative monetary disadvantage at which
the taxpayers of this district are placed: the instructional cost for each tuition
pupil is the exceedingly high amount of $556.42. Fortunately, this costly
arrangement is far overbalanced by the joint operations in the rural districts and
by the independent facilities prevalent in the urban districts.
, nor apparently the
Interesting is the
chief, determinant of instructional costs or savings, as the can. may
Hanover Tovmship School District, vthicb ba. the larges, enrollment and di.
largest budget of the district, administered by - County Superintendent of
a. mol costs. On the other extreme,
Schools, also has one of the highest unit mstruc
. rural school “ >dmini.ter.d, ba. i.
the Northwest Joint School, the larges^
- 20 -
�lowest instructional unit cost of the
Thus it appears that
systems encountered in this study,
organizational efficiency is a
producing the instructional economies which
The fact that most of the rural school
prime factor in
are realized by thie rural systems.
districts participate in joint board operations
lends support to the indication that th
e rural taxpayer may indeed get greater
'n.B fractional value from his tax dollar than does the urban taxpayer.
„ 21 -
�7- TQTAL CURRENT
expenditures
PER PTTPTT.
Table III presents the total current expenditures per pupil encountered
in the school systems included in this study. This figure shows the total
operational costs for the current year in terms of what amount is spent upon
each pupil enrolled. The districts are arranged in descending order from lowest
expenditure per pupil to highest. Thus the higher a district appears in the table,
the more economically is it educating its pupils. The average current expenditure
per pupil in Pennsylvania in 1958 was $370.
TABLE III
Total Current Costs per Pupil
For School Year Ending July 1, 1959
Total Current Costs
per pupil
School System
$ 270.04
I
1.
Nescopeck Area Joint
2.
Black Creek Township
3.
Central Luzerne Joint
4.
West Hazleton Joint
5.
Northwest Joint
6.
Swoyerville
$ 331.60
7.
Wyoming
$ 362.68
8.
Forty Fort
$ 29^.12
$ 30&. 65
$ 311.12
$ 316.50
$ 323.70
- 22 -
�12.
Hanover Township
13.
Bear Creek Township
$ 425.37
$ 435.07
A look at Table III will show that, although in some
occupied on the list have changed from those of Table II,
nonetheless remains the same.
instances the positions
the overall picture
With regard to this criterion the conclusion once
again seems warranted, that the rural systems get more value from the money
spent by them.
Once again the rural systems claim the distinction of occupying
both extremes of expense, the highest and the lowest expenditure per pupil. As in
the last criterion, however, the overall financial picture seemingly places the
rural taxpayer in a more advantageous position than that occupied by his urban
counterpart: four of the five systems incurring the lowest expenditures per pupil
are rural.
In addition to the
economies realized by the rural taxpayers, the significance
of organizational efficiency as it affects co
evident in this criterion.
f the five positions representing the lowest
The Joint board operations occupy our o
current costs per pupil.
At ihe bottom of the
nt in this study.
•
of the
arraJ s to supplement a lack
District, the district representative
- tuition pop
& *11 ^strict
manifests the expensiveness
exp ens iv ene s s of depending upon
of facilities.
23 -
�8- STATE bbmbursement to school districts
Table IV presents a list of the Basicc ACCOM
the school system. included In this study. Thl,
“ determining the amount of money with which a school district i. reimbursed
The reimbursement determined by the Basic Account
from state funds .
Reimbursement Fraction is based upon teaching units (35 elementary pupils or
26 secondary pupils), as well as reimbursement for school nurse, driver education,
and tuition pupils .
The higher the Basic Account Reimbursement Fraction, the
greater will be the unit reimbursement received by the school district, and
therefore the greater is the portion of the district’s expenses which will be borne
by the state.
TABLE IV
Basic Account Reimbursement Fractions
For School Year Ended July 1, 1959
b.a.r.f.
School System
0.8874
1.
Black Creek Township
2.
Northwest Joint
3.
Nescopeck Area Joint
4.
Foster Township
5.
West Hazleton Joiat
6.
Wyoming
7.
Swoyerville
0.8797
0.8736
0.8512
0.8081
0.8033
0.7898
- 24 -
�8.
Wilkes ■Barre Twp.
9.
Central Luzerne Joint
0.7533
0.7483
10.
Bear Creek Twp.
11.
Ashley
12.
Forty Fort
13.
Hanover Township
0.6923
0.6889
0.6240
0.546.7
A study of the reimbursement fractions indicates that the rural school
districts in general are reimbursed more highly than are the urban districts.
The
four districts with the highest reimbursement fraction
ns in this study are rural
school districts .
Thus the average rural school district included in this study is
reimbursed by the state for a greater portion of its expenses than is the urban
district.
This criterion is not included as being indicative of the performance of a
particular school district, for indeed it is not. A school district has no, control
over the reimbursement fraction for that district; it is compiled by the S-ate Tax
Fquilization Board on the basis of property evaluation established by the board.
The figure is merely included as an existing factor which further qualified the
Previously listed criteria.
It illustrates the.fact ma
addition to those derived through efficient operation
will accrue to some taxpayers
in this respect will be realized by the
more than to others .
The greatest savings
reimbursement fractions.
rural taxpayers, since the rural districts have L
- 25 -
�The reimbursement fractions are calculated for each individual school
district, and the payment of state appropriations is made to that district, so that
no one fraction is applicable to a joint board operation. Rather, the fractions and
the actual reimbursements are made to the individual school districts participating
in a joint operation.
This study includes joint board operations as a functioning
whole rather than including the individual districts comprising it.
In order to make
such figures adaptable to the purposes of this comparison, the reimbursement
fractions quoted in Table IV for joint board systems have been combined and,
therefore, the figure quoted represents the numerical average of the reimbursement fractions assigned to the individual districts participating in it.
Although
this average figure is not valid for use in computing the actual reimbursement
amounts, it is, nevertheless, sufficiently valid and indicative to provide a useful
and meaningful basis for this comparison.
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�9- CONCLUSIONS
In each of the criteria utilized for analysis, the results of this
indicate that the rural taxpayer in Luzerne
study
County receives more value from
each tax dollar spent on education than does the urban taxpayer
. Not only does the
typical rural school system in this County make numerically more efficient use of
the teaching force by way of higher pupil-teacher ratios , but it is also able to
educate a pupil with the expenditure of less money either for instructional
costs alone or for total current costs of operation. In addition to the realization
of these economies, the rural school district is also reimbursed for a greater
part of its expenses than is the urban school district.
Although the differences existing are not overwhelmingly great nor
absolutely consistent, the overall picture presented by the criteria is nevertheless
highly indicative and definitely in favor of the rural school district.
These factors
combine to place the rural taxpayer in a financially more advantageous position
than his urban brother enjoys.
The rural financial advantage gains added significance from the fact that
an overwhelming majority of the rural school districts are participants in jointly
operated consolidated school systems.
This form of organization is generally
. ,
conceded in professional circles to
.rnnomical from a financial
^dpoint, but also highly efficient from an
The urban school districts have not
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educational point of view.
as yet taken advantage of this mode
�of organization to any significant extent.
They have chosen rather to operate
independently, in spite of the fact that the financial figures encountered in this
study would indicate that this choice is not the best one to make.
Although this study was not competent to analyze these systems on the
basis of quality of education, the wide disparities encountered in the expenditures
necessary for the education of a pupil in the various systems indicates that
competent investigation in this area would be highly desirable. With educational
costs increasing at an alarming rate, while the available sources of revenue
become ever more-limited, such competent investigative study becomes
absolutely imperative if the United States is to provide for its youth the adequate
education which is essential to the welfare of our nation and indeed to our very
existence in a highly competitive world.
This study shows conplusively that exhaustive research is needed in this
area if we are to utilize the available educational resources to best advantage.
The fulfillment of such research, however, remains for hands more competent
than the s e.
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�BIBLIOGRAPHY
1.
Burke, Arvid J. , Financing Public Schools in the United
States, New York, Harper & Brothers, 1957, pp. 3-205.
2.
Hutchins, Clayton D. and Munse, Albert R., Expenditures
for Education at the Mid-century, Washington, United
States Department of Health, Education and Welfare,
126 pages.
3.
Mort, Paul R . and Reusser, Walter C., Public School
Finance, New York, McGraw-Hill Bock Company, Inc.,
1951, pp. 117-343.
4.
Commonwealth of Pennsylvania, Department of Public
Instruction, School Laws of Pennsylvania, Harrisburg,
1957.
5.
Counsel cf State Governments, The Forty-Eight State
School Systems, Chicago, 1949, pp. 4-66, 159-168.
����
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Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
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Institute of Municipal Government and Institute for Regional Affairs
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1958-1980
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Comparison of Rural and Urban School Districts in Luzerne County, 1960
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Institute of Municipal Government
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1960
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PROCEEDINGS
FIRST ANNUAL COMMUNITY
GROWTH CONFERENCE
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PROCEEDINGS
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FIRST ANNUAL COMMUNITY GROWTH CONFERENCE
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SEPTEMBER 27, 1961
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WILKES-BARRE, PENNSYLVANIA
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Institute of Municipal Government
Wilkes College
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Wilkes-Barre, Pennsylvania
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TABLE OF CONTENTS
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F oreword
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Program
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Sponsors and Exhibitors
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Opening Remarks by Alfred Darte
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Welcome Remarks by Frank Slattery
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"How Do You Plan For Community Growth?" by Francis A. Pitkin . . . .
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Introductory Remarks by Andrew Hourigan, Jr
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"Flexible Zoning" by Robert C. Ledermann
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"Financing Needed For Community Growth" by William F. Keesler . . .
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"The Role Of Industry In Community Development" by Max S. Wehrly.
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"The Future" by Dr. Eugene S. Farley
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"Conservation In Urban Renewal Areas" by James T. Leigh
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Roster Of Attendance
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Registered But Not In Attendance
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FIRST ANNUAL COMMUNITY GROWTH CONFERENCE
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SEPTEMBER 27, 1961
PROGRAM
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11:00 a. m.
Registration
Room 50
Parrish Hall, Wilkes College
Chairman: Mrs. Ethel A. Price, Director
Department of Public Safety
City of Wilkes-Barre
12:30 p. m.
Lunch
Parlor E, Hotel Sterling
Chairman: Alfred Darte, Secretary
Board of Assessors, Luzerne County
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Welcoming
Remarks: Frank Slattery, Mayor
City of Wilkes-Barre
Topic:
"How do You Plan for Community Growth? II
Speaker: Francis A. Pitkin, Executive Director
State Planning Board, Harrisburg, Penna.
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2:00-4:00 p. m.
Panel Session
Room 56
Parrish Hall, Wilkes College
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4:30-5:30 p. m.
Cocktail Hour
6:30 p. m.
Dinner
Chairman: Andrew Hourigan, Jr. , President
Greater Wilkes-Barre Chamber of Commerce.
Topic:
"Flexible Zoning"
Speaker: Robert C. Ledermann, Director
Community Facilities and Urban Renewal
National Association of Home Builders
Washington, D. C.
Topic:
"Financing Needed for Community Growth"
Speaker: William F. Keesler, Senior Vice-President
First National Bank of Boston
Boston, Massachusetts
Topic:
"Role of Industry in Community Development"
Speaker: Max S. Wehrly, Executive Director
Urban Land Institute, Washington, D. C.
Parlor E, Hotel Sterling
Chairman: Dr. Eugene S. Farley, President
Wilkes College
Topic:
"Conservation in Urban Renewal"
Speaker: James T. Leigh, Deputy Director
Urban Renewal Administration
Housing and Home Finance Agency
Philadelphia, Pennsylvania
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SPONSORS
American Institute of Architects
Northeast Chapter
Greater Wilkes-Barre Chamber of Commerce
Greater Wilkes-Barre Real Estate Board
Institute of Municipal Government
Luzerne County Board of Assessors
Luzerne County Boroughs Association
Luzerne County Home Builders Association
Wilkes-Barre Clearing House Banks
Wilkes-Barre Planning Commission
Wilkes-Barre Redevelopment Authority
EXHIBITORS
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Hazleton City Planning Commission .
Hazleton City Redevelopment Authority
Luzerne County Planning Commission
Nanticoke Redevelopment Authority
Pittston Redevelopment Authority
Wilkes-Barre Redevelopment Authority
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OPENING REMARKS
Alfred Darte, Secretary
Luzerne County Board of Assessors
The title that has been assigned to our luncheon speaker intrigues
me. It presupposes that we can plan for our growth, and. the only
question that remains is how.
This is a time for deep concern for all of us in Wyoming Valley.
We are concerned about the condition of our economy. There are those
who doubt the continued viability of the anthracite region.
However, to many of us here in attendance, there is an essential
soundness from which rehabilitation can be started and a new life gen
erated. It seems to me that all that we need to do is examine some of
the problems which need intensive investigation and evaluation, and
which require understanding to planning. We shall learn how before
the day is over.
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WELCOME REMARKS
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Frank Slattery
Mayor of Wilkes-Barre
As Mayor of the City of Wilkes-Barre, I extend to you a very
warm and cordial welcome to the City and to the First Annual Community Growth Conference, This Conference is of paramount importance to us.
Today in the United States, only 15% of the people live on the
farm, but,there is still a Secretary of Agriculture. The other 85% live
in cities and towns, and yet there is no Secretary of Urban Affairs.
Rapid growth of this urban population has created demands on
government for more facilities and better services. How local govern
ments can be adapted to meeting these demands is one of the major
problems facing us today. Certainly to redevelop with new ideas is not
easy, but problems can be solved with understanding.
Federal and state money and effort combined with local funds
and energies are necessary to a sound urban redevelopment program.
You may know that the City of Wilkes-Barre has submitted it
self as a guinea pig in a demonstration project now being conducted by
the First National Bank of Boston.
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We are delighted that the co-sponsors of this Confer ence realized
the importance of bringing together many of us to exchange ideas with
the view of improving our whole area.
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HOW DO YOU PLAN FOR COMMUNITY GROWTH
by
Francis A, Pitkin
Executive Director
State Planning Board
Edmund Burke, the great historian and conservative philosopher,
once wrote to a member of the French National Assenibly " You can never
plan the future by the past".
This is only partially true. Certainly, no look ahead for a com
munity can be hedged in by either outmoded ideas or wishful thinking.
The future demands a fresh outlook and unfettered imagination.
All the same, the past shapes the stuff with which you are forced
to work. In planning for the future of Wilkes-Barre, or of Hazleton, or
of Luzerne County, or of the Wyoming Valley, you must start with the
physical and industrial heritage bequeathed to you by the past.
As Robert Futterman, a young and very successful real estate
investor writes in his new book on the future of our cities: "Cities, like
animals and plants, grow in cycles, and no cityfs present situation can
be understood without reference to its past".
We know what the past of this area has been. We know our basic
problems. We are aware that compared with the nation as a whole we
are not receiving our former share of the national prosperity.
There is concern that perhaps the decline we have experienced
is irreparable and that we may as well do nothing rather than spend
millions which are apt to do little good anyway.
Unquestionably those who hold that this pattern of events is fixed
and immutable ---that citizens must inevitably die once their traditional
economic function has been fulfilled -- think of themselves as the great
realists. To the rest of us, who think man has a certain amount of con
trol over his economic destiny, such people are not realists, but ref
ugees from responsibility.
I believe with all my heart that if a city or a community is worth
saving it can be saved. There are some towns, undoubtedly; which would
scarcely justify the effort it would cost to save them, but they are not
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located in this valley. They are not Wilkes-Barre, or Hazleton, or
neighboring Scranton. For these communities possess far more than
the richest anthracite fields on earth. They possess the attractive sur
roundings, the strategic location, the water, and the raw materials
which form the foundation upon which any thriving human settlement
must build.
For this reason, I can not become overly despondent about your
future. To quote Mr. Futterman once more: "Most American cities
have enjoyed and then suffered a dominant industry in the early stages
of their development. To lay out the "grid" of any city, one must know
what that industry was, how long its dominance lasted, and when the
city achieved diversification. . . From a real estate investor's point of
view, the current stage of the cycle is a fundamental consideration.
Many a declining city offers good buys -- if one can be sure, through
a study of history, that business will turn up again. In the declining
state, cities suffer a flight of capital and properties sell cheap. On the
other side of the wave, many an ascending city is a bad place to put
money. "
Our task is to make certain that business does indeed turn up
again.
From many standpoints, besides that of the realestate operator,
the cities of this valley offer a prime opportunity for new investment
and growth, providing you are prepared to recognize the shape of mod
ern America and prepare your selves for the slow, grinding job of meet
ing its requirements. In a phrase: You must plan for the future.
Now, there is nothing very esoteric or mysterious about com
munity planning, despite the jargon with which some of my fellow pro
fessionals have surrounded it. As you doctors, lawyers, and educators
know, one of the unfortunate practices in our society today is the con
coction of professional vocabularies which mean nothing to the man out
side. This may have some advantages, but it has the grave disadvan
tage of breaking down effective communication between segments of the
community who should be talking to one another.
There is no difference between community planning and planning
the program of a company for the next five years, the investment pro
gram of an association for the ns.:: .en, or our personal affairs for the
next fev months.
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Community planning requires only -bat y ou have a point of view
on three basic iosues:
First, know what your present difficulties are.
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Second, know where you want to go.
Third, decide the best way to get there.
The fourth essential is to sell these points of view to the com
munity so that you can find the energy and leadership to achieve the re
sults you are after.
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Admittedly, I have over-simplified. When we try to apply these
three or four steps to anything so complex as a city -- or even worse,
an entire region -- we find each of them frought with a hundred details,
all of them inter-related, all of them calling for mammoth energies.
Just to list them would give us something approaching Dr. Eliot's fa
mous five-foot book shelf.
Your first consideration, however, is to decide how big an area
you are going to include in your efforts. Certainly, the City of WilkesBarre is not, of itself, enough, for what good would it do to rejuvenate
the heart of the city if, in order to get to it, it is necessary to thread
your way through a jumble of narrow streets and decrepit buildings in
outlying boroughs?
But is Greater Wilkes-Barre enough? Your fate is tied closely
to that of Hazleton and other cities in the county. You are, after all,
part of the same labor market area, according to the Federal Govern
ment and you can benefit from Federal assistance programs by acting
as an area as a whole. Does this mean the county is the logical plan
ning unit?
Not necessarily.
You share many problems with neighbors outside the county.
You share an airport with Scranton and there are other problems of ac
cess common to both Lackawanna and Luzerne Counties.
But we can argue that even this is an arbitrary limit, for Lu
zerne County is sustained by resources which reach far from home.
You have a deep stake in the condition of the Susquehanna River as it
flows past your front door, for instance. The recreational facilities in
the Foconos and in the Sullivan highlands offer prime assets to this re
gion. You must have an interest in what is going on further down the
line along the highways which serve you and connect you with other
areas, for highways have meaning as factors in industrial location only
in terms of the points they connect.
But let us take a closer look at some of the factors which go in
to growth in this modern world of ours and see what you can do to plan
for it.
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The basic consideration must be industrial diversification. The
day of the one-industry town is gone. A large community can no longer
afford to hitch its wagon to one star. Technology and the market change,
too fast to permit such reliance. It is a disservice to your people to
subject them to a one-horse economy that will fluctuate violently as
tastes and technology.
But the ability to attract a diversified industry depends upon
many things -- factors outside the fundamental questions of labor mar
ket, tax structures, and financing alternatives. I would say that one of
the key elements is accessibility.
Now it is clearly beyond your capabilities to provide the basic-,
transportation network necessary to keep you strategically placed as a
distribution point for goods and services, but I do not hesitate to say
that the State and Federal Governments are doing very well by you in
planning this one aspect of your future. Few places in the United States
will possess a more advantageous position on the National Interstate:
Highway System than this. You will be athwart one of the main Mid
west-Eastern Seaboard routes. You are smack on the major route now
being developed into Canada. You are well served, via the Turnpike,
by a water outlet in Philadelphia. And you will be plugged into the
diagonal transportation network between New England and the Middle
South via the Anthracite Expressway.
Obviously there will be a great deal of commercial and industrial
development near the interchanges of this network and the job of see
ing that you gain full advantage from them rests upon your shoulders.
Community planning is a local responsibility and so is zoning. You can
not afford to permit these premium interchange locations tobe eaten up
by second-rate development at the expense of prime, high-wage, highrevenue producing industry.
Your responsibilities go beyond this. You want to bring this
new life-blood into downtown, but no one is going to hazard the trip
unless you give him clear, unobstructed, convenient and attractive ac
cess. If you want new business downtown, you will have to look like
the kind of place where good, sound modern business will be proud
to locate. You can not achieve this by forcing every prospective client
to explore a jungle of blight before he finally hits the downtown area.
Unfortunately, however, these outlying areas are the most difficult to rejuvenate. Private money has little or no interest in partici
pating in their renewal simply because the return on investment is too
low. But the job must be done.
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Surprisingly most of this blight is not culm piles. Most of it is
dilapidated dwellings and a garish billboard and commercial jungle
which looks like something out of a second-rate carnival.
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Second in importance only to accessibility is water and all that
it entails. This is the fundamental ingredient for most large industry.
It is a resource which we in Pennsylvania can offer in abundance. It is
one of our greatest advantages. You have, in the Susquehanna River, an
unparalleled opportunity. But it must be harnessed.
It must be harnessed first for flood control, for no new business
is going to risk its investment in an area where it is apt to lose every
thing in a natural catastrophe that might have been prevented.
You are fortunate, for the Army Engineer s and the State Depart
ment of Forests and Waters are working on your flood control up and
down the valley at this moment.
But the river offers wide opportunity and to concentrate upon
control alone would be a mistake. The river offers us water for in
dustry, for recreation, possibly for power, for the conservation of fish
and wildlife. It can be controlled so that the floods of spring are stored
to be used at times of low flow when we need that excess water to work
for us.
Only a unified, comprehensive plan for the entire river can do
the job right and your Congressman, Dan Flood, is fighting for the plan
with the full support of the Army Engineers, the State Planning Board,
and the Department of Forests and Waters.
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But this water must also be clean and keeping it clean is a local
job. If Scranton dumps its wastes in the river, Wilkes-Barre's indus
try will have to clean it up. And the same is true all the way down
river. The bold fact is, ladies and gentlemen, that modern industry
needs clean water and it can not afford to locate where it must pay to
clean up someone else's mess. The wisest step you can take, in the
long run, therefore, is to see that your community meets its respon
sibility on that score, and, frankly, I don't think you have, thus far.
Fundamental to any community growth is its supply of young
talent and skilled labor. You have waiting to be tapped a superb labor
market. In your colleges, you have a sound asset for training young
talent, but the best modern industry demands a cultural atmosphere that
extends beyond this. The community must contain within itself the bp*
portunities for a fuller and richer life.
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�of Community Development is at your disposal. You have at your dis
posal the pioneering urban renewal programs of the State Government.
But still the job is yours and yours alone.
You have made an admirable start on this complicated but allimportant job. You have a County Planning Commission with a com
petent technical staff (and, incidentally, I commend to your attention
their ''General Appearance Report of the Wilkes-Barre/Hazleton Met
ropolitan Area", which is an excellent and a potentially important doc
ument - important if you do something about it). You have City Plannig Commissions in Wilkes-Barre, Hazleton, Nanticoke, and Pittston,
in the Boroughs of Edwardsville, Forty Fort, Freeland, Kingston, Nuan
gola, West Hazleton, and White Haven, and in the townships of Hanover,
Fairview, Foster, Hazle, Jenkins, Kingston, Lake, Rice, Slocum,
Sugar Loaf, Wilkes-Barre, and Wright. This accounts for 23 of the 73
civil subdivisions within the county. Do we assume that the other 50
have no current or forseeable problems? You have redevelopment
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�authorities in Hazleton, Nanticoke, Pittston, and Wilkes-Barre. You,
through the Northeast Pennsylvania Industrial Development Commission,
have taken the initial steps toward participation in the new Federal Area
Redevelopment Program.
But remember, there is no magic in the word "planning".
Nothing happens miraculously merely through the creation of a planning
agency. The people involved must have vision, must have an under
standing of the potentiality of the planning process, must have a willing
ness to study the field and to find out what tools are available to them
and how they have worked in similar circumstances elsewhere. There
must be a willingness to support these activities not only on the part of
elected officials but also by the community as a whole. And this is
your job. No one in Harrisburg or Washington can do it for you.
The raw resources are here for growth. You stand at the end of
an era -- the erawhen you depended upon the market for one commodity
to sustain you. Now you must change your focus, as you have already
done in the field of industrial development, and shift your gaze to a
broader, more diversified view of your role in a growing America.
"There is a new America every morning when we wake up",
Adlai Stevenson once wrote, "It is upon us whether we will it or not.
The new America is the sum of many small changes -- a new subdivi
sion here, a new school there, and new industries where there had been
swamp land -- changes that add up to a broad transformation in our
lives. Our task is to guide these changes, for although change is inev
itable, change for the better is a full time job. "
I can promise you the full time cooperation of your State Gov
ernment in getting the job done.
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INTRODUCTORY REMARKS
Andrew Hourigan, Jr, , President
Greater Wilkes-Barre Chamber of Commerce
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The decline of the basic industry in this area has had a terrific
impact. The Chamber of Commerce has been engaged in efforts to re
place the anthracite economy by a healthy, diversified economy depend
ing on many industries. In our efforts to attract industry, we have found
that factors, far beyond our earlier ideas, entered into the selection of
a satisfactory community for plant location.
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We have discovered that plants are no longer located by intuition
or on the basis of insufficient data, or brochures. Any industry consi
dering new location has a definite plan based on clear-cut, sound busi
ness principles. This has led us, who have been working on inducing
industry to come to Wyoming Valley, to conclude that critical self-eval
uation of our assets and liabilities was essential if this area is to be
given new life.
We have on this panel three nationally known authorities who
have joined us in the Conference and whose remarks should help in
stimulating this group of community leaders in their efforts to create a
more favorable environment for industrial growth and regional pros
perity.
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FLEXIBLE ZONING
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by
Robert C. Ledermann, Director
Community Facilities and Urban Renewal
National Association of Home Builders
I would like to discuss with you briefly today some of the think
ing that is going on, and some of the ideas that are being developed in
the field of residential land use. Ideas and proposals which offer great
potential promise for overcoming some of the problems we are all fa
miliar with in the development of our urban areas, by setting new pat
terns of desirable land use, with the retention of esthetic charm and
provision for amenities, comfort, and privacy. There is prospect also
that these objections can be accomplished with reasonable cost savings,
avoiding the great waste of urban sprawl.
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I don't think it is necessary to go into great detail on the defi
ciencies of our present urban pattern, brought on to some extent by our
traditional concept of zoning and subdivision controls.
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It is widely recognized that present land use controls are often
inadequate in their approach to land use and development. They are in
adequate in the sense that they provide too little flexibility for situations
in which variations from normal procedures are called for, and inade
quate in allowing room for the exercise of imagination.
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Many zoning ordinances trace their roots back to the concept of
land development as it used to be practices on an individual lot by lot
basis. Today, however, most new development is undertaken by sub
dividers, who take a tract of land and develop plans for the entire area,
frequently including provision for other activities, in addition to resi
dential uses. We should think in terms of land and its use as a large
scale matter, and of the relationship of a piece of land to its total surr ounding s.
I should make it clear right here that my words should not be.
taken to mean that home builders are opposed in principle to planning
and zoning. Not at all; it is rather that we so often see these controls
applied with such a heavy-handedness, or lifted from another context
and applied uniformly to another area, making no allowance for local
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variation. We would like these tools to be used constructively, and not
in a negative sense.
I'd like to call your attention, in this regard, to a recent publi
cation put out by the Urban Land Institute, whose Max Wehrly we are
pleased to have with us today. This is Technical Bulletin No. 42 "Den
sity Zoning, " a valuable analysis of basic zoning concepts, with recom
mendations for rethinking our approach to zoning.
We should get away from the imposed uniformity and monotony
of the typical zoning formula. In areas with peculiar terrian problems
such as in Allegheny County, Pa. , and I presume to a lesser extent here
in Luzerne County, it should be possible, for instance, to take advantage
of steep slope sites by allowing houses and other buildings to be sited
so that the maximum usable ground area will be retained. In other
words, uniform set-back requirements should be set aside in favor of
the exercise of initiative so that a more attractive and worthwhile sub
division may be possible.
With very great population growth facing us, especially in the
urban areas, we must find means of accommodating great numbers of
people in ways that will not waste our land.
I said that I didn't intend to dwell on the problems, and now I'd
like to describe some of the thought that is being given to the question
of improving our use of the land.
At NAHB, we have had a special committee studying this situa
tion for the past two and a half years. Initially, the committee asked
itself the question, "Does the present manner of laying out residential
subdivisions necessarily represent the most effective and attractive
means of accommodating residential growth?" The answer was that we
can only find out by looking to see what alternative propositions may be
possible, and what they may offer.
The upshot of this committee's work was the joining together
with a similar committee from the Urban Land Institute, and the joint
undertaking of a study of innovations -- ideas and proposals which have
been advanced, and of actual work which has been accomplished. This
year long, intensive study, carried out with the assistance of a profes
sional land planning firm— Harman, O'Donnell and Henninger of Den
ver, Colorado, -- resulted in the publication of Urban Land Institute's
Technical Bulletin No. 40, "New Approaches to Residential LandDevelopment. "
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Now what is the significance of these ideas to today's problems
here in Luzerne County? In relation to the present day problems of
attracting industry and strengthening the economic health of the area,
bold new ideas on residential planning and development may seem
somewhat remote. Nevertheless, there is an inescapable relationship
between a community's willingness to better itself and be receptive to
progress and more improved development, and the attraction of that
area for industrial and business enterprises.
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A relatively simple device, which yet offers latitude, is that of
average lot size zoning, in lieu of fixed minimum lot sizes. Instead of
a standard minimum requirement of 12, 000 square foot lots, the ordin
ance could provide for an average of 12, 000 square feet, and allowing
some lots to be developed as low as 9, 000 square feet and some within
the same subdivision up to about 15, 000 square feet. In this way variety
and allowance for terrain variation can be introduced.
By way of illustration of some of the current new thinking, I'd
like to refer you to the pamphlet put out by the Santa Clara County,
California, Planning Department entitled "The Common Green," of
which there are some copies here you may take.
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Out of this survey, the most promising proposals are those re
lating to density control zoning, under which the density of a givenarea
is established, rather than fixed specifications for individual lot sizes,
frontage and yard requirements; cluster zoning, in which buildings are
specifically grouped in convenient arrangements, each with private yard
space of its own, but with the excess space grouped into a common us
able open area, rather than made a part of each individual lot; planned
unit developments, in which outright provision is made for a combina
tion of dwellings and use types within an overall tract, on a pre-ar
ranged basis, thus avoiding the homogeneity of a mass of housing types
all of the same character.
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I'd like to urge you, incidentally, to obtain this publication, plus
the one I mentioned earlier, for background in developments in this di
rection.
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I hope to leave these thoughts with you today, not with the expec
tation that tomorrow will bring about radical changes in the way of doing
things, but rather with the idea that you will be familiar with the cur
rent of new ideas which are stirring and which ar e her e and therebreaking through the surface and will increasingly continue to do so in the
future.
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Good planning will incorporate more and more of these ideas,
and to the extent that you consider them in the future development of
this County, there will be that much more progress toward an environ
ment which will be increasingly beneficial to the overall economic pic
ture.
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FINANCING NEEDED for COMMUNITY GROWTH
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by
William F. Keesler
Senior Vice President
The First National Bank of Boston
Financing is the key to all development, whether it be public or
private.
We can plan, we can zone, and we can dream, but we have to be
practical and nothing is accomplished unless it can be financed, and the
users of our end product are satisfied with the results. You cannot
sensibly force growth and have it economically sound.
.
There has been a lot of talk about the housing market; some of
the lack of sales has been blamed on the mortgage market. Mortgage
money has been available at proper rates which have been pretty stable
over an extended period. The trouble is that building costs have gone
up so that the lower bracket mass market cannot afford them.
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The Government's attempt to keep carrying charges (interest
and principal) down has worked in reverse and helped to increase costs.
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Local real estate taxes in many places have kept pace with these
costs also.
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The net result is that we cannot furnish new housing for the lower
income groups without subsidy and interest rates and :the mortgage
market has little to do with it.
Very little is said about labor costs in building, which are up
several hundred percent since the 20's, but it is more popular to com
plain about interest rates.
The production of single family homes has declined because they
have to be priced out of the market.
This means that financing rehabilitation is just as important as
new growth.
The combination of urban renewal condemnation proceedings and
the new FHA Home Improvement loans should be a big help.
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These loans can be employed both in and out of urban renewal
areas, and FNMA presently will issue standby commitments and pur
chase these loans if local capital for the purpose is not made available.
Code enforcement is a must to maintain values in a rehabilita
tion area.
Information and processing centers are needed to coordinate the
work.
We need the demand of users before we can finance,
can very well raise the question -- Which comes first?
So, you
The answer is that plans cannot be expedited in a minute and the
demand and financing have to go along together.
There can be no "Back Door Financing" of real sound growth..
It is too much like cost plus contracts; costs can pyramid. The direct
approach is needed, and appropriation of funds by intelligent investors
for specific purposes, if the economy supports the purpose.
Financing, of course, applies to the financing of your public fa
cilities, such as schools, roads, sewer systems, water, etc. , just as
much as it applies to financing new or improved retail facilities, a new
industrial plant, or housing.
In fact, we are finding more and more today that the financing
of shopping centers and industrial plants often hinges upon adequate
public facilities, soundly financed on a basis which the community and
industry can afford tax-wise.
The basic requirements of either municipal financing or. private;
financing of investment or home properties contain certain common el
ements.
The first of these is probably factual information. The investor
in either case is going to want to know a lot of facts about the.community in order to judge the ability to repay a loan.
user.
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The investor or lender requires the same' information as the
Some of the major industrial climate factors are:
Availability of labor at reasonable cost
Sufficient and convenient transportation
Community interest and cooperation
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Acceptable zoning provisions
Acceptable site
Reasonable real estate prices
Favorable climate (weather, that is)
Good cultural environment
Sound and livable tax structure at both local and state levels
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The value of bricks and mortar depend on such factors.
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Credit confidence comes from knowledge -- of all facts, both
good and bad. That is why, although our work here for the Common
wealth of Pennsylvania and the Federal Government on an Urban Renew
al Demonstration Project is pitched mainly on the fiscal side, we begin
with a review of the existing data and supplement it as deemed needed
with additional facts which will provide what we consider necessary to
give potential investors a true picture of the area.
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There is no set pattern for financing growth. If the elements
that justify it are there, or can be developed, both demands for use and
financing will be found available. Because the types of properties to be
developed arid the users vary widely, both as to their special nature and
credit of the users, all types of financing are required in the early
stages. But the original real estate development decisions are influ
enced substantially by financing ability. It is typical in the business to
have a buyer finance a major portion of the investment by purchase
money mortgage, syndication, second mortgages, front money loans---or a combination of all of them.
After development, many real estate mortgage loans or purchase
lease deals are eventually made with surprisingly little consideration
given to the bricks and mortar involved, and credit of the user is the
major factor.
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The very type of aggressive imagination required by the devel
oper is often not accompanied by his own supply of funds, and the pos
sessor of substantial funds or better than average credit is perhaps in
clined to be too conservative to go into new developments with any high
degree of risk.
The local financial climate and local confidence has a lot to do
with fixing prices and establishing current values.
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On Urban Redevelopment the statement that we hear quite often
that the Government pays two-thirds and the City one-third of the net
cost of urban renewal is true as far as it goes, but it is misleading.
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The funds available for study and planning and the right of con
demnation are tremendous tools, but although Urban Renewal has existed
for over a decade and has included acquisition funds, actual accomplish
ment of new private building in connection with it have appeared to be
rather negligible.
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This is not critical of past or present administration of the pro
gram; actually it is complimentary, as haste does not produce sound
planning. Also, there is a distinct question as to how much Urban Re
newal any given area can afford in a short period, or, unless it is actu
ally accompanied by sound growth and increasing employment, in the
immediate area involved.
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As long as I have already wandered off my subject, I might di
gress just a moment to comment on the demonstration project which we
are pleased to be conducting here for the Commonwealth of Pennsylvania
and the Urban Renewal Authority of the Housing and HomeFinance Agenr
cy. Our demonstration project was intended to determine just what a
bank has to offer in the urban renewal process.
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It seems to us that in the review and analysis, and interpretation
of economic data, fiscal facts, and development possibilities, that the
banks of our country can make an important contribution to the success
of the needed urban renewal program.
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Our experience seems to indicate that , any facts gathered by
hard work in many agencies need coordination and interpretation to be
really meaningful in relation to the fiscal problems of the ar ea involved.
Surely some of the experiences of your banker s in studying the resources
of communities, and of private businesses, and calculating the risks of
courses of action which require financing, can be applied to local ur
ban renewal problems to assist communities and potential developers to
reach sound investment decisions.
In fact, it may be a necessity to have the knowledgeable whole
hearted support of local bankers in addition to that of realtors, busi
nessmen, and public officials to really make urban renewal work. They
can be the catalyst.
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In addition to my remarks on private financing and urban renewal, I must refer to municipal finance since a sound municipal economy
is basic to all financing of community growth.
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For a number of years our bank was interested in a school to
train city manager. This was approached by a case study method. The
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general purpose of these studies was to teach how to determine what any
community has to work with, what it needed, and what it could afford,
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Here in Wilkes-Barre this is basically what we have been at
tempting to do through the studies we have been making.
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This has involved an economics base study and capitol improve
ment study, as well as an understanding of the political structure"
charged with the responsibility of operating the municipal corportation,
and making it possible for private enterprise to operate profitably, as
continued payrolls have to underlie the economy.
From these facts, plus engineering reports on existing facili
ties and replacement requirements, can be developed a workable bond
ing program.
In addition to needs, it is up to the citizens of a community to
decide what kind of a city they want, to live in and what they will pay for.
Growth in itself may offer no particular benefits unless it is balanced
growth and improves the well-being of present citizens.
Here you have been going through a transition period, you have
had a loss of population in the city limits, and many of your citizens
are traveling some distances from home to work which means you have
an active labor pool available, but it does not look to me like a dis
tressed area.
Your Industrial Fund and civic agencies are doing a good con
structive job of attracting new industry; this is being done and should
be done without committing the city credit except for reasonable facil
ities. Logical assistance from State and Federal agencies is a lot dif
ferent than building up fixed charges for the City that will repel devel
opment eventually, because of taxes needed to service the debt, which
in turn lessens flexibility in operating local government.
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Evidence is here that you are making the right approach.
looks like you are over the hump in this transition period.
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I have traveled around and seen problems arise from many
causes. . . . such as the shifting of textile business from New England
and in another area a false foom because of substantial construction
subsequently not supported by industrial employment.
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Industrial Construction has been cff this year due to the reces
sion in new investment in plant and equipment, nearly 15% below the
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1960 peak rate. Many factors indicate that this will turn upward and I
see no reason why with real local cooperation the Wilkes-Barre area is
financed,
and
not in a position to attract the kind of growth that can 1be
—-----------, —
compete satisfactorily with other cities in this effort.
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THE ROLE OF INDUSTRY IN COMMUNITY DEVELOPMENT
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by
Max S. Wehrly, Executive Director
Urban Land Institute
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Industry plays both a direct and an indirect role in the growth
and development of our urban communities. This is not to imply that
industry's direct role in community development is always a voluntary
one. More often than not the reverse may be true. For instance, in
dustry's part in developing the community's economic base---- about
which has been considerable intellectual discussion and disagreement-is a direct role. A failing industry has a direct effect on the community,
but failure is hardly a voluntary act on the part of the industry concerned.
DIRECT ROLE
Industry's Contribution to the Community's Economy: Although
some aspects of the economic base concept have been under attack re
cently, I think all of us would agree that in an industrial economy such
as ours, industrial activities, particularly manufacturing, are prereq
uisites to the economic well-being of most of our urban areas. To test
this premise we need only observe the effects of the removal of a few
key industries from a community. Certainly the Wilkes-Barre area
requires no further testing than that which it has already experienced.
Industry's primary role in community development, then, is the
direct effect it has on the area's economy--the employment it provides,
the wages it pays, the taxes it contributes, the ancillary industries and
services it supports, and the like. The effect an individual industry has
on a particular community depends, of course, on the characteristics of
the industry in question and the degree to which the community is de
pendent upon a single productive activity. Does the industry have good
growth prospects, or is it a declining business? Is the community's
economy diversified, or is it overly dependent on a few industries and
consequently highly sensitive to cyclical fluctuations or operating deci
sions of one or two firms?
These questions are not as easily answered as they might at
first appear. Let me illustrate:
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�A community's economy might be based on. a single industry and
still enjoy a high degree of economic stability if, for instance, that in
dustry were a food precessing plant--say a breakfast cereal producer,
which characteristically is not subject to widely fluctuating demands.
However, should competition and rising labor costs force the industry
to seek lower production costs through increased automotion, this, in
turn, could have depressing repercussions on the local economy.
On the other hand, a community could be dependent on an indus
try which has been producing a product for which there is a declining
market, with the result that the industry and the community are suffer
ing correspondingly. Although the initial results are economically pain
ful this situation could stimulate increased researchand product diver
sification which ultimately might result in future growth and stability
for the industry and community alike.
Consider also the community with a high per capita income and
full employment which acquires an industry which brings in unskilled
workers from the outside and pays them a relatively low wage, well be
low the wage rates prevailing in the community. In this case the result
of acquiring a new industry might be to lower the per capita income of
the community and necessitate increasing community facilities and
services.
Many other hypothetical examples could be given, but these
should suffice to illustrate the pitfalls in attempting to predict an in
dustry's or a community's economic future by applying oft-repeated
generalizations--no matter how widely accepted or abstractly sound
they may seem--to individual situations. The point should be made that
no situation, economic or otherwise, can be viewed as though it were
static or permanent. Only change is constant. Similarly, no trend
should ever be wishfully projected in the direction in which it is cur
rently going.
But, those whose luck has been abominably bad need seek no
consolation in this because change--or at least the change we desire-does not necessarily come automatically, If left to its own devices a
situation may change, but for the.worse. Or, it might get better, but
so slowly and imperceptibly that it provides us little or no comfort. In
short, change may need a catalyst in the form of positive action both on
the part of industry and of the community if the desired results are to
be achieved soon enough to be beneficial to those who initiate them.
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Plant Location and Community: This brings us to the indirect
role industry plays in community development, either consciously or
inadvertently. Industry, through its power to locate, relocate or expand
its facilities in locations of its own choosing is exerting considerable
influence over those communities that are seeking to promote industrial
development in their areas. With industry's increased mobility and lat
itude in site selection over the past decade, its indirect role in re
awakening community interest and action in improving local conditions
promises to loom even greater in the future than it has in the past,
(comment on court cases pending on seniority rights of employees in
relocating employees. Cases involving The Glidden Company, Elm
hurst, N. Y. , & Gemmer Manufacturing Company, Detroit, Michigan. )
A further contribution to this phenomenon is industry's growing
need and preference for highly skilled and professional employees at the
expense of unskilled workers. Thus, those people to whom high stand
ards in community facilities and services and cultural attractions are
most important, are the very ones that modern industry most actively
seeks. To attract this level of employee in selecting a plant site, in
dustry must devote considerable attention to such things as: the number
and quality of the schools and libraries; the caliber of the colleges and
univer sities in the area; the medical facilities andpersonnel; the church
es; the cultural facilities such as art galleries and museums; planning,
zoning and development, and redevelopment policies and programs; the
civic attitude of the citizensand the government; the general appearance
of the community and its downtown areas; the honesty and efficiency of
local governing bodies, and other similar factors which we associate
with community attitudes and what has become to be known as the "busi
ness climate" of the area.
According to recent reports there are today 14, 000 industrial
development organizations in the U. S. and Canada. Most of these groups
are area development organizations, both private and governmentsponsored, that are responsible for holding existing firms and attracting
new industries to their respective communities. The intensive drive
being put on for new industry by thousands of communities is particular
ly interesting when it is realized that in I960 only about 350 branch in
stallations or relocations took place outside the community in which the
industry was already established.
Initially, the efforts of these industrial development groups to
make their areas known to prospective industrialists were largely lim-
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INDIRECT ROLE
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ited to producing promotional brochures extolling the many economic and
social virtues of their communities along with the inevitable "circle" map
designed to prove conclusively that the community in question was pre
cisely in the geographic heart of everything. Sometimes it was neces
sary to draw a 500 or even a 1, 000 mile circle to include all the desired
markets and people. This, of course, poses no problem for the experi
enced draftsman.
More recently, however, growing numbers of communities are
coming to realize that action speaks louder than words--or circles. Fur
ther, they are aware of industry's increasing attention, not only to exist
ing conditions in a community, but also to evolving trends in community
attitude and the business climate. These communities have come toknow
that plant location representatives are not only interested in. the current
tax rate and assessment ratio, but also in the current status of bonded
indebtedness in order to project probable future trends in tax policy.
Likewise, the site seeker is apt to be fully as concerned, if not more so,
with community improvement projects--both under way and in the plan
ning stage--as he is in what is currently wrong with the community.
The community that can show positive action .toward alleviating
local problems and shortcomings, holds a very definite advantage over
the one which is equipped only with a list of its current attributes and a
map with a large bullseye circumscribed around its name.
It has been interesting to observe in some of our Urban Land
Institute studies that communities who previously could not be jarred out
of their complacency or lethargy to undertake civic improvement pro
jects, and upon being tod by industrial representatives serving on .the
ULI Panels of the high degree of importance industry places on such ac
tion, have frequently embarked immediately upon community rehabilita
tion and redevelopment projects that probably would not have gotten off
the ground otherwise. Happily, more often than not, action breeds more
action and once the initial project is undertaken, additional programs
follow. Thus, industry, without even locating a plant, may bring about
community improvements that at best would otherwise have been slow in
coming. This, then, is industry1 s indirect role in community develop
ment.
INDUSTRY-COMMUNITY COOPERATION
Up to now we have considered industry and the community as
though each was a separate entity, sacred unto itself.
Obviously1, this
is not the case. Industry and the community are mutually dependent.
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Industry needs the people, and the facilities and the services of the com
munity; and the community prospers financially from a healthy industry.
A strong business enterprise, can hardly exist without a strong com
munity, and vice versa.
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But before talking about industry-community cooperation, let's
look at what industry is and is not. First, industry, per se, is not ded
icated to the role of savior of foundering municipalities. It is not in
business for the purpose of absorbing increased municipal costs, no
matter how high a purpose this may be. As a rule, industry is not sub
sidized; therefore, it cannot be ordered by any government agency to
operate in a particular community for the purpose of contributing to a
failing tax base.
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On the other hand, neither should the community put itself in the
position of attempting to be the highest bidder for any and all new in
dustries. This form of prostitution can attract some unhealthy and foot
loose bedfellows whose contributions to the community are on the deficit
side of the ledger. If an industry is to be an asset to a community it
must be there for sound artificial inducements that itbecomes possible ?
for an otherwise unprofitable operation to become temporarily compet
itive.
In short, industry-community cooperation does not mean in
dustry should assume the role of the benevolent provider for the com
munity in which it is located; nor does it mean that the community in
its anxiety to attract and hold industry should relieve corporate citizens
of their proper tax obligationsand other financial responsibilities. What
it does mean is that industry and the community must pool their efforts
to create an environment that is conducive to the efficient and harmo
nious operation of both.
Mr. Lemuel R. Boulware, recently retired Vice President of
General Electric, in charge of Relations Services, expressed his com
pany's view of industry-community relations in these terms:
"We look upon planned community relations as a two-way street.
We feel keenly the interdependence of the community and the company.
Each seeks proper opportunities and commensurate rewards.
Each
must give as well as take. Also each must understand and approve the
specific opportunities and rewards being made available to both. If it
is to be a rewarding arrangement for either the 'gives' and 'takes' must
balance fairly for both---- and must be known to do so. "
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Although rather widely accepted, the term "corporate citizen
ship" is only vaguely understood by many who use it. For industry to
accept the position of corporate citizen requires that it understand the
citizen-like obligations it must assume toward all aspects of community
life. For the community to accept industry as a corporate citizen re
quires that the citizenry not only welcome the new 'citizen' by recog
nizing its value, but also that they understand its particular needs for
facilities and services and accept the obligation of making these ser
vices available.
In discussing industry's role as a corporate citizen, Dr. Max
Wolff, a community consultant and associate professor at New York
University, made the following observations:
"Under our form of government the citizen has the right and ob
ligation to participate in the affairs of the community. The corporate
citizen is in the same position. He must analyze his role as a partici
pant; he must carefully avoid to mispractice it in such a way that it be
comes or can become misconstrued as an attempt to take over. Mana
gerial leaders, especially plant manager, must learn, and should be
taught, the art of participation in order to perform this role effectively
from point of view of the community as well as from the point of view
of the industry they represent. "
Basically then, industry's role as a corporate citizen is to par
ticipate and cooperate in the affairs of the community. Actually in
dustry's function in this capacity should not be under estimated since the
corporate citizen possesses a valuable resource. This resource is its
pool of talent in the form of a highly educated and knowledgeable profes
sional and executive staff. Frequently the experience and background of
these employees qualify them ideally for participation in many commu
nity projects. The community's, as well as industry's, gain is in direct
proportion to the contributions these representatives are able to make.
In order that industry's place within the community be better
understood the local citizens must be informed of the assets and liabili
ties connected with industrial development. Industry must be willing to
cooperate on problems arising as a consequence of industrial growth,
such as overcrowding in housing and schools, increased automobile and
truck traffic on local streets, and the like. And of equal importance,
the local people must be made aware of industry's willingness to coop
erate on such matters.
On the other hand, the community must be willing to cooperate
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��THE FUTURE
by
Dr. Eugene S. Farley, President
Wilkes College
Wilkes College is happy to participate in the First Annual Com
munity Growth Conference in Northeastern Pennsylvania. The creation
of this Conference demonstrates the willingness and ability of commu
nity leaders to face up to the problems of our area. Because of their
readiness to face and resolve the problems, I grow ever more confident
of the future in Wyoming Valley.
■
We have made a start in identifying our problems. The .hopes
lessness and inertia of fifteen years ago have evaporated. We have
made significant strides in improving the livability and economic well
being of our region. But we must continue to incubate ideas and sug
gestions if we are to continue the work that has been started.
We hope that, in the days ahead, all who have attended the Con
ference will give thoughtful consideration to the proposals and ideas
that have been discussed at the Conference. By making sound use of
the positive proposals presented to the conferences, we can plan more
effectively for the future of our area.
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��builders have given our cities contemporary structures which are most
appealing. These structures are generally, clean, bereft of unnecessary
clutter, and well adopted to their purposes. There is nothing new in the
statement that architecture is one of the most apparent expression of the
diverse influences we call "culture". "We have no quarrel with contem
porary architecture. But, we also recognize that a city is a collection
of people, and is a reflection of their tastes and needs. There will be
wide devergence,s of tastes among these people, not only at any given time,,
but over time as well. And cities are inhabited by many different groups
of people over many years, each of whom left an imprint -- a distinct
physical imprint. It is well to preserve all of the best and the good which
has been bequeathed to our cities. Aesthetically speaking, earlier con
tributions to the architectural scene of the city are beautiful in their own
right. They further serve to relieve the urban scene from one of its
most serious potential flaws -- monotony. It is a pleasure to get a re
freshing change of perspective from the blending of varied architectur
al forms throughout a city. This applies to all kinds of buildings -- res
idential, commercial, public, industrial. Many of our cities are becom
ing keenly aware of the aesthetic values in their buildings and are going
to great lengths to preserve them.
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Following from the aesthetic, and intimately related to it is the
sense of historical values. The city has been the nodal concentration
and progenitor of culture in every civilization since man has learned to
house himself and his activities apart from those facilities ready-made
by nature. We can foresee no prospect of the city relinquishing its cru
cial role. Just as we trust that those who follow us will be interested in
preserving and using our contributions to the city, likewise we should
endeavor to preserve that which has been provided by our forbears.
There is no city or town, however small, which does not contain some
good structures of significance in its past.
Dealing more specifically now with the Urban Renewal Adminis
tration, how is conservation approached? Fundamentally, any type of
urban renewal project is approached in the same manner. A project area
is delimited with special reference, in our case, to its conservation and
the overall planning is undertaken. Most conservation projects will in
volve some clearance. From the viewpoint of the entire project, then,
the procedures are the same as for a clearance project. The sameserie's
of applications, the same Federal Grant ratios, and so forth. The most
obvious difference is one which we have already noted. For a given pro
ject, where conservation is feasible, costs will be lower for conservation
than for a clearance effort in the same project.
It does take a good bit of information and study to designate a
conservation area which will be amenable to the desired end result. .Some :
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of the questions which must be answered are worth reviewing. The in
itial approach lies within the neighborhood and its component physical
structures. The homes, commercial buildings and whatever is being
conserved must, physically and economically, be, if you will, "con
servable. " Are all those factors which make for a pleasant environ
ment actually or potentially there? Streets, traffic patterns, schools,
churches, shopping, parking, recreation facilities -- all of these must
be provided either through maintaining existing facilities, improving
existing facilities, or providing new ones. Further, it must be feasible
to do so on a better basis than can be done through clearance.
Assuming the potential for a sound neighborhood is there, :the
next question has to do with the attitudes of the residents. Are they in
terested in upgrading their neighborhood -- and keeping it that way? If
they are interested, are they financially able to bear their personal bur
dens in their own rehabilitation responsibilities? Or if th ftp-resent
idents of the area are unable or unwilling to cooperate in the venture, can
the area be conserved and rehabilitated and have sufficient appeal to be
marketed to a new group of residents?
Needless to say, all of the answers require considerable research
and knowledge of the area and of the..city.’ It is my feeling that, in many
respects, the proper planning and executive or a worthwhile conservation
area requires more skill and hard work than the clearance of an area.
In some cases, the temptation might be to throw up our hands and go
ahead with clearance, or abandon the effort altogether. On the other
hand, the greater effort and skill required of conservation will concom
itantly result in a greater reward.
I should now like to mention the assistance available.to communi
ties through the Urban Renewal Administration. In the Housing Act of:
1954, Congress created a program to prevent, as well as to clear,
slums, The President's Advisory Committee on Government Housing
policies and programs had found that the clearance of slum areas and
their rebuilding for better use would not be enough to solve the problem
of blight in our communities.
The Committee recommended a Program that would prevent the
spread of blight into good areas by conserving buildings and neighbor
hoods. This is known today as the Conservation or Rehabilitation phase
of the Urban Renewal Program. It recognizes the need to protectand
upgrade those neighborhoods which are basically sound but just beginning
to show evidences of deterioration. This Program not only recognizes
the necessity for upgrading the structures in a given area, but also the
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concurrent planning to remove the causes of blight and the provision of
needed public improvements in order to insure the long term stability
of the area.
In a conservation project it may be necessary to improve exist
ing or build needed community facilities, or the area may beg for public
improvements to restore itself to its full potential. In recognition of
this, the Housing Administration provides that the costs for theconstruc—
tion or repair of these improvements and facilities are eligible as local
contributions to the net project costs. This means that a locality may
receive credit for these community improvements in a proportion which
is directly related to the degree to which they serve the project area.
Simply, an elementary school, costing one million dollars is erected
which will accommodate two thousand pupils. Five hundred pupils, or
25 percent of the total, will attend this school from the project area..
Therefore, 25 percent of the total cost of the building, or $250, 000 is
credited to the locality to reduce its share of project costs. In order to
encourage this total neighborhood planning, the conservation program
makes eligible for inclusion in project costs the services of professional
and technical consultants to work with your Redevelopment Authority to
identify and isolate the problems and plan accordingly. Consultant ser
vices are also available to project residents to aid them in determining
how best to achieve the improvement of their particular property, ways
and means of financing the costs and finally, in contracting for the work
to be done. It falls to you, then as neighborhood leaders and men and
women in renewal action in those areas whereyou feel it will' succeed.
May we emphasize here again, that conservation is not a sub
stitute treatment for clearance and redevelopment. Neither is it an al
ternative nor an optional treatment. It is a positive action and purpose
ful solution to a well considered problem. And to aid you in this most
important decision of area selection and proposed treatments, we offer
you the services of our field personnel and technical staff. Where con
servation is tentatively being considered we request the participation of
the Federal Housing Administration. Again, the object being to ascer
tain FHA's general attitudes, and views as to the course of action which
will permit them to make their mortgage insurance programs available
in the area.
Apropos of this, the Housing Act of 1961 includes legislation
which adds a new section - 220(h) to the National Housing Act to estab
lish a new home improvement loan program for homesand multi-family
structures in urban renewal areas for improvement costs up to $10, 000
per family unit for a 20 year term at rates not to exceed 6 percent. Al
so, there is a further amendment which provides a new basis for deter-
- 32 -
___
�mining the maximum loan ratio on rehabilitation mortgages. The new
ratio is based on the sum of the estimated cost of repair and the ap
praised value of the property before rehabilitation. In cases involving
refinancing, the mortgage cannot exceed the cost of rehabilitation and the
amount required to refinance existing indebtedness.
This new legislation will prove invaluable not only by bringing
about a total involvement of FHA financing and a fuller relationship with
their personnel, but will act as a stimulant to the building industry to
participate in this expanding rehabilitation business. Much can be done
by this segment of our economy, the builders, in promoting and demon
strating in a way that people most easily understand - the finished pro
duct - the heights our program can achieve.
L
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Here again the 1961 Housing Act makes possible a technique,
previously unheard of, but fashioned to hurdle most of the obstacles which
are inherent in unimaginative minds or less adverturous souls. For pur
poses of demonstration, the Local Public Agency may acquire a certain
number of dwelling units - 5% of the total number in an urban renewal
project to be rehabilitated, they may take their new place in the com
munity by being offered for sale at pre-determined prices or by public
auction to interested buyers.
Baltimore, in its Harlem Park project, is presently using this
demonstration technique to stimulate neighborhood property owners.
They were faced with the problem of first finding an interested rehabilitator; however, by permitting the Local Public Agency to function as
the rehabilitator, the savings in time are both obvious and necessary.
Conservation is complex but it is inevitable. In a recent address
by Robert C. Weaver, the Housing and Home Finance Agency Adminis
trator, he said, and I quote, "The housing resources of our country are far too valuable to
be destroyed if they can be rehabilitated satisfactorily
We hope to be able to rehabilitate a large number of dwellings.
This will enable our cities to blend the old with the new, min
imize the bulldozer approach, and reduce the volume of econ
omical displacement incident to urban renewal. "
This excerpt accurately sums up the benefits to be reapedbyour
Conservation Program. It is a good program with unlimited scope. It
falls to you to shape the program to your particular needs and problems.
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In conclusion, let me say, that we will be most eager tohelpyou
in whatever way we can.
****
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�ROSTER OF ATTENDANCE
Address
Name
L
Position
Kenneth Abell
Candeub, Cabot, 8c Associates
Scranton, Pennsylvania
Consultant
John Agnew
First National Bank
Boston, Massachusetts
Vice-President
R. Otto Amann
Bureau of Community Development
Department of Commerce
Harrisburg, Pennsylvania
Supervisor of
Special Projects
Thomas Arnold
King's College
Wilkes-Barre, Pennsylvania
Instructor
Edward Ball
Wilkes-Barre Planning Commission
Wilkes-Barre, Pennsylvania
Director
Mary'I. Barrett (Miss)
King's College
Wilkes-Barre, Pennsylvania
Librarian
S. J. Bienus
Zoning and Planning Commission
Hanover Township, Pennsylvania
Chairman
George W. Bierly
Wilkes-Barre Center
Penn State University
Wilkes-Barre, Pennsylvania
Director
Andrew S. Bullis
Department of Internal Affairs
Bureau of Municipal Affairs
Harrisburg, Pennsylvania
Director
Kenneth A. Burdon
Northeastern Pennsylvania
National Bank and Trust Company
Wilkes-Barre, Pennsylvania
Vice-President
Robert L. Casper
Lewith & Freeman
Wilkes-Barre, Pennsylvania
Realtor
Leo Chiavacci
Borough of Wyoming
Wyoming, Pennsylvania
Councilman
Carroll D. Colby
Welfare Planning Council
Wilkes-Barre, Pennsylvania
Executive
Director
- 34 -
1
�Raymond Condo
Pennsylvania Economy League, Inc.
Wilkes-Barre, Pennsylvania
Research Associate
Catherine Corgan
Osterhout Free Library
Wilkes-Barre, Pennsylvania
Librarian
Richard Cronin
Chamber of Commerce
Wilkes-Barre, Pennsylvania
Secretary
Claire Hart Cummings (Mrs.)'Hart Real Estate
Wilkes-Barre, Pennsylvania
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Robert H. Cummings
Bell Telephone Company
Community Development
Wilkes-Barre, Pennsylvania
Staff Supervisor
Alfred Darte
Luzerne County Board of Assessors
Wilkes-Barre, Pennsylvania
Chairman
David Davis
Miners National Bank
Wilkes-Barre, Pennsylvania
Vice-President
Thomas H. Day
Hanover National Bank
Wilkes-Barre, Pennsylvania
President
John G. Disque
Percy Brown & Company
Wilkes-Barre, Pennsylvania
Manager
Gene Durkin
Urban Renewal Administration
Wilkes-Barre, Pennsylvania
Board Member
Frank Earnest
Chamber of Commerce
Wilkes-Barre, Pennsylvania
Vice-President
Frederick J. Eck
Northeastern National Bank
Wilkes-Barre, Pennsylvania
Vice-President
Vivian P. Edwards, Jr.
Northeastern National Bank
Scranton, Pennsylvania
Vice-President
Norman G. Everett
Huntington Township,
P enn sylvania
Township Supervisor
Eugene Farley
Wilkes College
Wilkes-Barre, Pennsylvania
President
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Realtor
- 35 -
�James A. Farrell
Urban Redevelopment Authority
Wilkes-Barre, Pennsylvania
Site Manager
John A, Gallagher
City of Wilkes-Barre
Wilkes-Barre, Pennsylvania
Director of Finance
Elliot Gates
Chamber of Commerce
Wilkes-Barre, Pennsylvania
Staff Member
Andrew Garber
Board of Commissioners
Hanover Township, Pennsylvania
Secretary
H. L. Glidden
Forty Fort State Bank
Forty Fort, Pennsylvania
Executive
Vice President
William A. Good
Housing & Redevelopment Division
Department of Commerce
Harrisburg, Pennsylvania
Chief
Vincent Gutendorf
Gutendorf Advertising Agency
Wilkes-Barre, Pennsylvania
Public Relations
Fred Hayes
Urban Renewal Administration
Washington, D. C.
Paul Heitzenrater
Sanitary Water Board
Pennsylvania Department of Health
Wilkes-Barre, Pennsylvania
)
Mrs.. Edward Heiselberg
Edward HJeiselberg
Regional Sanitary
Engineer
Luzerne County Planning Commission Director of Planning
Wilkes-Barre, Pennsylvania
Elizabeth Hessei
Osterhout Free Library
Wilkes-Barre, Pennsylvania
Head Librarian
R. V. Hodgson
Pennsylvania Power &r Light Co.
Wilkes-Barre, Pennsylvania
District Manager
R. L. Hobaugh
Pennsylvania Power & Light Co.
Wilkes-Barre, Pennsylvania
Community Planning
Consultant
Daniel W. Holloway
United Gas Improvement Co.
Kingston, Pennsylvania
Divisional Operation
Manager
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Andrew Hourigan, Jr.
Chamber of Commerce
Wilkes-Barre, Pennsylvania
President
John Innes
Urban Renewal Administration
Chief Economic
Advisor
Milton Jacoby
67 5 Wyoming Avenue
Wyoming, Pennsylvania
Planning Commissioner
William D. Jonathan
Pennsylvania Economy League
Wilkes-Barre, Pennsylvania
Research Associate
Betty Kanarr
41 West Market Street
Wilkes-Barre, Pennsylvania
Realtor
Malcolm E. A. Kaufman
First National Bank of Boston
Boston, Massachusetts
Research Specialist
Howard Kayton
Urban Renewal Administration
Washington, D, C.
William F. Keesler
First National Bank of Boston
Boston, Massachusetts
Senior Vice-President
James Kenny
Amalgamated Food Employees
Union-Local 72
Kingston, Pennsylvania
Sec'y-Treasurer
Frank Koronkiewicz
Nanticoke Planning Commission
Nanticoke, Pennsylvania
Horace E. Kramer
First National Bank
Wilkes-Barre, Pennsylvania
Re d ev el opm ent
Authority
Thomas E. Lehman HI
Investors Diversified Services, Inc.
Wilkes-Barre, Pennsylvania
Director
James T. Leigh
Urban Renewal Administration
Philadelphia, Pennsylvania
Deputy Director
Joseph R. Lesko
Pennsylvania Power &: Light Co.
Wilkes-Barre, Pennsylvania
Community Development
Coordinator
Reuben H. Levy
National Area Redevelopment
Administration
Wilkes-Barre, Pennsylvania
Advisory Committee
- 37
�Louis Lex
Bureau of Community Development
Department of Commerce
Scranton, Pennsylvania
Regional
Representative
Robert C.' Ledermann
National Association of Home
Builders
Washington 6, D. C.
Director
Joseph Lipski
23 Third Street
Wyoming, Pennsylvania
Planning Commission
Michael Lonergan
Walker & Murray Associates
Planning Consultant
E. M. Malloy
Pennsylvania Power & Light
Wilkes-Barre, Pennsylvania
Maxim Maranuk
Luzerne County Home Builders
White Haven, Pennsylvania
Builder
J. Davey Martz
International Ladies' Garment
Workers' Union
Wilkes-Barre, Pennsylvania
District Manager
Curtis Montz (Mrs. )
Junior League of Wilkes-Barre
Kingston, Pennsylvania
President
Herbert J. Morris
First National Bank
Wilkes-Barre, Pennsylvania
Vice-President
B. Hopkins Moses
Wyoming Seminary
Kingston, Pennsylvania
President
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Joseph J. Murtha
Home Builders Association
Pittston, Pennsylvania
Director
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Bala S. Neary
Kingston Corners Building
Kingston, Pennsylvania
Realtor
D. M. Odgen
Bell Telephone Company
Wilkes-Barre, Pennsylvania
District Manager
James E. O'Hara
Redevelopment Authority
Hazleton, Pennsylvania
Member
Vincent T. O'Hara
Chamber of Commerce
Pittston, Pennsylvania
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Henry D. O'Karma
Redevelopment Authority
Wilkes-Barre, Pennsylvania
Executive Director
Peter Paul Olszewski
City Hall
Wilkes-Barre, Pennsylvania
Solicitor
Herman Otto
Community Research Center
Wilkes -College
Wilkes-Barre, Pennsylvania
Executive Director
Oliver Park
First National Bank of Boston
Boston, Massachusetts
Coordinator of
Urban Renewal
Irvin Patterson
Redevelopment Authority
Nanticoke, Pennsylvania
Executive Director
Josephine Pedigo
Osterhout Library
Wilkes-Barre, Pennsylvania
Librarian
Clement Perkins
Planning Commission
Wilkes-Barre, Pennsylvania
Chairman
Mildred Pf riff er (M. D.)
Planning -& Evaluation Division
Department of Health
Harrisburg, Pennsylvania
Director
Francis A. Pitkin
State Planning Board
Harrisburg, Pennsylvania
Executive Director
Ethel A. Price
Public Safety
Wilkes-Barre, Pennsylvania
Director
James E. Price
Property Owners Protective
Association of Luzerne County
Wilkes-Barre, Pennsylvania
Director
Joseph M. Rava
Duryea*.;
Pennsylvania .
Mayor
E. B. Ridall
Huntington,
Pennsylvania
Township Supervisor
A. Francis Riofski
Redevelopment Authority
Wilkes-Barre, Pennsylvania
Research Assistant
Paul Rodda
American Institute of Architects
Wilkes-Barre, Pennsylvania
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Mrs. Paul Rodda
Public Affairs Commission
Junior League of Wilkes-Barre
Wilkes-Barre, Pennsylvania
Chairman.
Daniel Rogers
Bureau of Community Development
Department of Commerce
Harrisburg, Pennsylvania
Director
Max Rosenthal
Luzerne County United Community
Development Conference
Wilkes-Barre, Pennsylvania
President
Ray E. Roushey
Wyoming Valley Boy Scout Council
Kingston, Pennsylvania
Engineer
George L. Ruckno
Forty Fort,
Pennsylvania
Builder
Stanley Rut st ein
International Ladies' Garment
Workers' Union
Wilkes-Barre, Pennsylvania
Staff Member
J. B. Rutkowski
Forty Fort State Bank
Forty Fort, Pennsylvania
President
George Sailus
Susquehanna Savings
Wilkes-Barre, Pennsylvania
Executive
Vice-President
James R. Samuel
Luzerne Electric Division
United Gas Improvement Company
Kingston, Pennsylvania
Sales Manager
Carl J. Schmitt Jr.
Planning Commission
Wilkes-Barre, Pennsylvania
Member
Ralph Schrey
Luzerne County Planning Commission Senior Planner
Wilkes-Barre, Pennsylvania
Louis Shaffer
Bennett Building
Wilkes-Barre, Pennsylvania
Attorney
Joseph Shedlarski
Home Builders Association of
America
Forty Fort, Pennsylvania
Builder
Henry Shipkowski
Redevelopment Authority
Nanticoke, Pennsylvania
Assistant Executive
Director
- 40 -
�John Shoemaker
Planning Commission
Wyoming, Pennsylvania
Member
Wilbur Shorts
Home Builders Association
Luzerne, Pennsylvania
President
Edwin Sites/
Redevelopment Authority
Pittston, Pennsylvania
Executive Director
Frank Slattery
City Hall
Wilkes-Barre, Pennsylvania
Mayor
Mary Slesinski (Mrs.)
Borough Council
Laflin, Pennsylvania
Secretary
Patrick Wall
Urban Redevelopment Authority
Wilkes-Barre, Pennsylvania
Member
Norman Weiss (Mrs.)
League of Women Voters
Wilkes-Barre, Pennsylvania
Member
Major Lee White, Jr.
Pennsylvania Gas & Water Company
Wilkes-Barre, Pennsylvania
Engineer
E. C. Wideman, Jr.
Luzerne County Board of Assessors
Wilkes-Barre, Pennsylvania
Assessor
Wilmer L. Williams
Forty Fort,
Pennsylvania
Builder
Walter C. Wood
City Schools
Wilkes-Barre, Pennsylvania
Superintendent
Andrew Yenchko
Redevelopment Authority
Hazleton, Pennsylvania
Member
Anne G. Young (Mrs.)
J. W. Young, Realtors
Wilkes-Barre, Pennsylvania
Realtor
Robert C. Ziegler
Pennsylvania Economy League
Wilkes-Barre, Pennsylvania
Research Associate
- 41 -
�REGISTERED BUT NOT IN ATTENDANCE
Name
Address
Position
Clifford W. Bigelow
Wyoming Valley Motor Club
Wilkes-Barre, Pennsylvania
Manager
Harry W. Bradbury
Glen Alden Corporation
Ashley, Pennsylvania
Director
H. H. Butler
Commonwealth Telephone Company
Dallas, Pennsylvania
General Manager
Michael Cabot
Candeub, Cabot and Associates
Scranton, Pennsylvania
Planning Consultant
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Brinley Crahall
Borough of Courtdale
Courtdale, Pennsylvania
Councilman
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Gerald S. Fierman
Kingston,
Pennsylvania
Businessman
Gene Golden
Lackawanna County Planning
Commission
Scranton, Pennsylvania
Member
Eugene Goldstein
Planning & Zdhing Commission
Kingston, Pennsylvania
Member
James O. Lacy
Lacy, Atherton & Davis
Wilkes-Barre, Pennsylvania
Architect
F. C. Mueller
Pennsylvania Power & Light Co.
Wilkes-Barre, Pennsylvania
Vice-President
John T. Mulhall
Borough of West Pittston
West Pittston, Pennsylvania
Borough Solicitor
Ashley,
Pennsylvania
State Senator
A. George Payne
Glen Alden Corporation
Wilkes-Barre, Pennsylvania
Vice-President
James J. Ruggere
Shawnee Ready Mix Concrete
Plymouth, Pennsylvania
Businessman
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Martin L. Murray
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Patrick W. Shovlin
United Steelworkers of America
Wilkes-Barre, Pennsylvania
Staff Representative
Aaron Weiss
County Planning Commission
Wilkes-Barre, Pennsylvania
Member
Joseph J. Yeager
Luzerne County Home Builders .
White Haven, Pennsylvania
Businessman
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Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
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Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
Creator
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Institute of Municipal Government and Institute for Regional Affairs
Date
A point or period of time associated with an event in the lifecycle of the resource
1958-1980
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Wilkes University retains copyright of these publications.
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PDF
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Publications
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Dublin Core
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Title
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Proceedings First Annual Community Growth Conference, 1961
Creator
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Institute of Municipal Government
Date
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1961
Format
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PDF
Type
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Publication
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Wilkes University retains copyright of this publication.
-
https://omeka.wilkes.edu/omeka/files/original/a5241895dc0f8433c3207590a5d1903e.pdf
bfcd1e433c3733a2f82126fe3ffff986
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INSTITUTE OF MUNICIPAL GOVERNMENT
Wilkes College
Wilkes-Barre, Pennsylvania
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�TABLE OF CONTENTS
/<£ -2
INTRODUCTION
Libraries
1
II.
Minimum Local Requirements - Local Libraries
2
in.
Establishment of Local Libraries •
4
IV.
Financial Resources for Local Libraries •
6
1.
2.
3.
a.
b.
14
VI.
Appraisal for Edwardsville.
16
Independent Library . . ,
Contract Library Service.
16
24
Osterhout Library
Hoyt Library . . .
24
29
A.
B.
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3.
a
1.
9
13
Administration of Libraries
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Basic Aid . . . .
Equalization Aid
V.
1.
2.
a C-.
6
7
9
private gifts
local governmental bodies
state government
vn.
Joint Operation
34
Recommendations
36
Summary of Expenditures and Income
37
Appendix A
39
Appendix B
40
Appendix C
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Appendix D
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59780
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INTRODUCTION
This survey wasbegun at the request of the Borough of Edwards-
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ville and the School District for the express purpose of obtaining inform-
8
ation relating to the establishment of a community library in Edwards-
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ville.
The request resulted from the availability of a sizeable building,
the former Peoples' National Bank, for utilization as a public library.
Of paramount importance was the cost to the community, hence several
alternatives were explored in providing library service to the people
of Edwardsville. The first would make the library an independent com -
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munity organization; the second would provide for affiliation with the
established Osterhout Library or Hoyt Library; and the third would es-
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tablish a joint library with Kingston.
The Institute sincerely appreciated the
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cooperation of Mr.
Alphonse Hojzempa, Supervising Principal of Edwardsville School Dis-
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trict; Mrs. Cecilia Walker,, librarian at Hoyt Library in Kingston; and
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Miss Elizabeth Hesser, librarian at Osterhout Library in Wilkes-Barre.
A special word of appreciation must be given to Mr. Joseph H.
Myers, Advisory Services Supervisor of the Pennsylvania State Library,
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and Mr. Andrew D, .Armitage, Library Development Assistant,
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both
of whom read the draft and made constructive comments on the study.
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Hugo (y.. Mailey, Director
Institute of Municipal Government
Wilkes College
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LIBRARIES
The importance of a local library cannot be overestimated.
Its
vast resources of knowledge for students, businessmen, retired folk,
and intellectually curious citizens can contribute immeasurable to the
5
growth of the community.
No community is complete without one.
To
deny a library to citizens, especially young citizens, is to limit the op-
13
portunities of the citizen and the community in the years ahead.
11
The Commonwealth of Pennsylvania has begun an intensive effort
to improve state, county, and local libraries.
For example, the State
Library is now in the process of increasing the number of volumes in
3
its collection, expanding the interlibrary loan services to local areas,
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and coordinating an extension program with regional libraries through-
out the state.
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Now that the state has taken the initiative to develop the
libraries of Pennsylvania, the local communities must cooperate in this
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venture and exert a positive effort.
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As an intermediate stepbetween State and local libraries, region-
al library centers will be developed to coordinate state library facilities
withlocal library demands. These district centers will be respositories
for many books not available at the local level. They will also promote
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and coordinate all library service in their particular area. Their value
as resourceand reference centersis inestimable. They are a most es
sential link in library administration from the State to local government.
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MINIMUM FOR LOCAL LIBRARIES
Each small library should have at least 6, 000 volumes of currently useful materials in the collection.
Reference resources of the
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local library should include at least the 20 titles on the "List of Mini-
16
mum Reference Sources for Small Pennsylvania Libraries." The additions to the collection in a small library should be at a rate of 500
volumes per year and, where possible, at the rate of one-tenth volume
per capita annually.
Reference materials should be available whenever the library is
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open, by a library assistant with in-service training,
Additional and
inter-library loan service should be available from the district library
center.
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Staffing the local library should be on the basis of one full time
person for every 3, 500 persons served, and no local library should be
open less than 20 hours per week including evening hours.
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The library
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should be administered by a trained, preferably salaried, staff.
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Wardsville,
with a population of 5,700,
Ed-
should have two librarians,
the accepted standard being one librarian per 3, 500.
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The Pennsylvania State Survey estimates that the very smallest
library needs a budget of at least $4,000 yearly for a community of
2,500 people or less, in which 1/2 mill times market value plus the
maximum state aid (both basic and equalization) would total $4, 000 or
less.
Such an amount would not be applicable to a borough as large as
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Edwardsville.
If a community does not have the financial resources
to provide this sum, the money that is available should be used to contract with the district library for bookmobile service. At a cost of $15
per service hour, a small community could contract for bi-weekly visits
That many of the local libraries in
of one hour each for $400 a year.
Luzerne County are deficient can easily be observed by examining Appendix A.
However, included as Appendix B is a yearly estimate of library
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expenses for a 30 hour work week.
nity of 5, 000 inhabitants.
This budget would cover a commu-
The total annual budget amounts to $11,540,
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but this figure can be lowered by reducing salary, maintenance, and
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travel expenses.
Librarian and book expenses should not be decreased
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unless absolutely necessary, especially while building the collection.
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A budget in this amount would cost $1. 99 per capita for the residents
of Edwardsville Borough.
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III.
ESTABLISHMENT OF A LOCAL LIBRARY
There is one limitation in the Library Code on the establishment
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of a public library.
This restriction is that no library is to be con-
structed where a free library already exists.
This restriction was de
signed to prevent the weakening of existing libraries by using public funds
to establish competing libraries in the same locality. Since no other free
library privately controlled exists in Edwardsville, this prohibition will
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have no effect.
There have been three methods by which a local library may be
established in Pennsylvania:
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First, municipal authorities (county, city, borough, township)
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are authorized to establish libraries and to support them by tax and for
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appropriation.
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This can be accomplished by the simple expedient of
enacting an ordinance.
Second, libraries can also be established by a referendum. The
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referendum may be proposed by the governmental body, or if 3% of the
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voters petition for a referendum it must be held.
The authorizing of
action by local officials either by ordinance or referendum with a pro-
;c
vision requiring action on the part of the electorate seems a sound base
for initiating a library.
Third, a Board in a school district could formerly have estab
lished and maintained a library (23P. S. 2301).
This section is now
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repealed and school districts are defined as municipalities.
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Such a
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in Luzerne County, 6 do receive funds from school districts and7 receive
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funds from local government.
Prior to the enactment of the Library Code, school districts could
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contribute up to 1 mill on the assessed valuation of property (23 P. S.
2305 and 2307 of the Pennsylvania School Code), and the local govern-
mental council could contribute under P. L. 1143 of 1917 up to 2 mills
of the assessed valuation of taxable property.
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Under the new Library Code, a municipality can make appropri-
ations to a library from either current revenue or out of monies raised
by the levy of special taxes, specifically for a public library, whether
the library has been established by deed, gift, or any other provision.
The appropriations for maintenance shall not annually • exceed a sum
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equivalent to 3 mills on the dollar on all taxable property of the munici-
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pality.
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Therefore, Section 401 of the Library Code specifically repeals
both the sections of the Public School Code which authorizes the 1 mill
tax levy and P. L. 1143 of 1917 which authorizes boroughs to levy the
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2 mill tax.
If the county levies a special tax for the support of a public library,
an additional tax is not to be levied upon those residents of a municipality
which already appropriates funds or levies a tax for the support of a
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library within the municipality.
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supercede the county tax.
In that case, the municipal tax would
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While all income from the special 3 mill levy must be used for
the support and maintenance of the local library, this limit is not intended
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to preclude other appropriations for library purposes which the munici-
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pality or school district may desire to make.
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The municipality's officers may submit to the voters at any general or municipal election the question of establishing or maintaining a
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library and must submit such question, if petitioned for by three percent
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of the number voting at the last preceding generator municipal election.
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At such election, the question of establishing an annual tax not to exceed
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three mills on the dollar on all taxable property shall be submitted.
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The rate of tax so voted shall be an annual tax rate until another
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vote is taken to change the rate.
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For example, if the voters of a bor-
ough approved a two mill tax levy for library support, the council could
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subsequently levy an additional mill without submitting the question to
and getting the approval of the voters.
Third, state aid is available to local libraries through Act 188 of
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the 1961 Legislature, otherwise known as the Library Code.
The pur-
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pose of the State aid is to raise the level of library service in Penn-
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sylvania.
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The two types of state financial assistance are: (A) Basic
Aid and (B) State Equalization Aid.
(A) BASIC AID.
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To be eligible for state aid, local libraries
must meet two requirements:
They must submit plans for the use of
state funds and make a specified financial effort.
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It is important to understand that the state grant is not a free
gift.
Local communities are expected to assume the major responsi-
bility for financing their own local libraries, and;the state money is
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merely in the nature of an incentive for the improvement of local libraries.
Therefore, in order to be eligible for the state grant, minimum financial
effort of expenditures mu st be incurred by the local library. This amount
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is below the minimum level recognized as adequate to carry on an ef-
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ficient local library program, and far short of the national standard.
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is merely intended as a beginning.
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It is estimated that the average community library will receive
initially in State Aid approximately 25% of its expenditures.
This per-
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centage will slowly decrease through the years to perhaps 10% since local
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library expenditures must be increased under the Library Code while the
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State subsidy remains almost constant.
The plans are subject to approval by the State Librarian on the
basis of regulations promulgated by the Advisory Council on Library Dev-
elopment.
Libraries will have five years to achieve the standards, with
extensions granted if necessary.
The technical effort requirements are: an initial qualifying local
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financial effort for libraries; mandated schedule of increased local sup-
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port for 5 or 10 years; a desired standard of library expenditures; maxi
mum state aid for achieving the standards or goal, and a reduced amount
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for failing, and no state subsidy if a minimum effort is not met.
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The basis for determining the financial effort is the library ex-
penditures from locally raised funds.
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The locality must made a mini-
mum financial effort to support library service in order to qualify for
state aid.
If this amount equals or exceeds the equivalent of either $1
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per capita in the library's service area or 25£ per $1,000 of property
a
market value, whichever is less, the state aid will be 25£ (maximum)
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for each person living in the area served but may be less, subject to
specific appropriations.
As a matter of record, a 7 l/2£ standard is presently used for
fiscal year 1962-63 by the State in making appropriations since the
State Library budget was limited in the first year of operation.
In succeeding years local library support must be increased ac
cording to a rigid mandated schedule if the local library is to continue
to qualify for maximum state aid:
1st
2nd
3rd
4th
5 th
succeeding
succeeding
succeeding
succeeding
succeeding
year .- 20%
year - 40%
year - 60%
year - 80%
year-100%
By the end of the sixth year, and thereafter, local library support must amount to either $2 per capita or 50£ per $1, 000 of market
value, whichever is less, which is double the original minimum.
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State
Aid may not exceed a maximum of 25 £ per capita.
Financial effort is measured by the total annual expenditure of
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the local library, no matter the source of the income. All cash receipts
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of a local library, whether derived from a local library tax or appro-
priation from Municipal Authorities, which are expended for annual pub-
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lie library operating costs are allowable as local financial effort.
The following points must be borne in mind:
(a) Tax funds from the local taxing authorities are included. That
proportion of county library appropriation which derives from county funds
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shall be includedbiit exclude that proportion deriving from State funds.
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(b) All gifts of money and the monetary value of gifts of books,
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supplies, or other operating materials if these were specifically pur-
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chased for the library.
(c) The value of voluntary labor contributed to the library will
not be allowable as part of the local financial effort.
(d) Any income which derives from endowments or investments
except that income invested to increase the endowment or investment.
(e) Income from rental of meeting rooms or facilities may also
be counted as part of the financial effort.
Rental fees for books may
count only if the library makes available to its patrons an equivalent or
larger quantity of free materials of a parallel nature.
(f) Annual non-resident fees from
non-tax payers may be
counted as part of the financial effort.
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(g) Library expenditures for rent paid to a landlord, where the
building is owned by one of the members of the board of directors as a
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private individual, but not where the rent is paid to the Library1 s board
of directors as a corporate body.
(h) Free utilities,
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supplies, and/or janitorial services from
either municipal or any other source may be counted if the service can
be converted to a monetary value.
(i) The amount of capital expenditures included within the local
financial effort may not exceed 10% of the library's total of the library's
total operating expenditures.
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Such expenditures include construction,
equipment, furnishings, mortgage payments, and reconstruction costs.
(j) Funds expended for repayment of cashloans made to the lo-
cal library in anticipation of income may not be included as part of the
local financial effort.
Failure to achieve the required local effort
results in a reduced state payment. If the failure is below the minimum
financial effort of $1 per capita or 25£ per $1, 000 market value, then
state aid is eliminated entirely.
(B) EQUALIZATION AID.
communities,
the Library Code also provides for equalization aid
extra state money for libraries with low property values in relation to
their population service areas.
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To further help less financially able
As many as half of the 400 public
libraries in the State might be eligible for this kind of assistance.
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Where a library qualifies for state aid with a financial effort
of less than $1.25 per capita residing in the service area, additional
state aid shall be given such library.
This amount shall be the dif-
ference between $1. 25 and the per capita value of 1/2 mill times market value of taxable property.
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V.
ADMINISTRATION OF LIBRARIES
The officers of a local library established after June,
1961,
under the provision of the Library Code shall be exclusively adminis-
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more than 7 members appointed by the municipal officials, who shall
also fill any vacancies which may occur. Where the municipality maintains or aids in the maintenance of a local library established by deed,
gift. ora testamentary provision, it shall be sufficient if the municipal
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tered by a Board of Library Directors composed of not less than 5 nor
officers appoint the majority of the members of the Board of Library
Directors. However, if the local public library has been created under
Section 401-406 of the Library Code, (appropriation of the 3 mill library
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tax levy), then the municipal officers shall appoint the complete Board
of Library Directors.
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The first directors shall be appointed so that one-third are ap-
pointed for one year, one-third for two years, and one-third for three
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years.
All appointments to expired terms shall be for threeyears, and
all members shall serve until their successors have been appointed.
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No member of the board shall receive any salary for his services.
The board of library directors shall organize upon appointment
and elect a president, secretary, and treasurer from its membership
and such other officers and agents as the board may deem necessary.
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The treasurer shall give bond to the municipality with satisfactory
surety in such amount as the board may determine.
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It will be the duty of the Board of Directors of the library to
make a report, annually, to municipal officers (council and school dis-
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trict); and the expenditures of the treasurer shall be audited as are
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other municipal expenditures.
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State Library.
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A copy of such report shall go to the
The Board of Directors shall make such reasonable rules and
regulations as are necessary for the library.
The Board shall accept
property, donations, or gifts by deed or bequest.
It may purchase,
lease, or rent land or buildings to use for a local library, andmake.
such alterations as may be necessary. A municipality may by resolution
or ordinance purchase or appropriate private property for library use.
If 5% of the voters petition the municipal authorities to submit the ques
tion of executing a bonded indebtedness for purchasing grounds and/or
erecting buildings for library purposes, the officers must submit the
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question to the voters.
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Libraries shall be exempt from all county, borough, school and
poor taxes (including head taxes) even if some part of the building yields
rentals, providing that the receipts are used for library purposes.
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APPRAISAL FOR EDWARDSVILLE
The general citizenry, municipal officers, and the school board
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directors in Edwardsville can consider several possibilities in providing
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general public library service. In any of the alternatives, such factors
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as local financial effort, state aid and equalization aid, and costs of
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establishment and operation must be weighted objectively.
The three
alternate methods providing such a service are:
(1) To operate an independent Edwardsville library with its own
Board of Library Directors, located either in the former
bank building or in one of the vacant stores on Main Street;
(2)
Borough appointed Board of Library Directors contracting
for library service;
(3) To operate on a joint basis with a contractual arrangement
for library service with either Hoyt or Osterhout Library.
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INDEPENDENT LIBRARY
The important factors to be considered in the establishment of
a local, independent library are: (1) local financial effort; (2) library
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site; and (3) state assistance.
FINANICAL EFFORT. In the following table, an estimate is presented of
the local financial effort required to qualify for state aid which must be
made by the citizenry of Edwardsville.
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1962- 1963
5, 711
A.
Population
B.
Market Value of Taxable Property
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C.
First. Year Initial Financial Effort
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$10,964,700. 00
$2,742. 17
1/4 mill
or
$5,711. 00
$1 per capita
Annual Increases in Financial Effort over Five Year Period
$2,742.17
3, 290.60
3, 839. 04
4, 387.47
4, 935. 91
5,482.35
1 st year
1st succeeding year
2nd succeeding year
3rd succeeding year
4th succeeding year
5th succeeding year
E.
Financial Effort
1/2 mill
$ 5,482.35
or
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$11,422.00
$2 per capita
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LIBRARY SITE.
The State Library Report states that a local library
should be available to all residents within 15 or 20 minutes by driving
or by public transportation.
The two possibilities for the location of
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anindependent public library in Edwardsville are a vacatedbank building
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at Main and Hillside Streets, the main intersection in Edwardsville,
and possibly a vacant store along Main Street in the vicinity of the for-
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mer bank building.
a.
Utilization of Bank Building
The former bank building has been made available for occupancy
due to the fact that the quarters of the Peoples' National Bank of Ed
wardsville have been moved to the Narrows Shopping Center on Wyoming
Avenue in Edwardsville.
The approximate purchase price of the for-
mer bank building is upwards of $25, 000.
A number of internal renovations will be necessary to convert
it into an operational library.
The stone building was constructed in
1907 and measures 90' x 30'.
It is complete with air conditioning and
a coal-fired hot water system. It is estimated that the building has been
heated for approximately $480 per year.
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regarding the cost of utilities in the past. There is ample storage space
and shelf space in the basement.
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No estimate has been made
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of the vacated bank building.
removed.
Marble shelving and counters must be
Sufficient overhead lighting must be installed since the two
ceiling chandeliers will not be adequate for reading purposes.
arrangement of shelving.
For lower heating costs, the 22 foot ceiling
should be lowered by installing a falss ceiling, and a sprinkler system
should be added for maximum safety.
would run more than $375.
Adequate shelving along the wall
The complete cost of these renovations is
likely to mean an expenditure of over $2, 000.
This does not include
other furniture such as tables, chairs, card catalogue cases, lending
desk,
work desks,
book trucks,
magazine racks,
dictionary stand,
atlas cases, etc.
Presented below is an estimated annual expenditure of an independent Edwardsville library based on the utilization of the former
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get of $4, 000 and one of $11,340.
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ITEMS OF
EXPENDITURES
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Renovations
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Several
radiators on the West Wall need to be relocated to provide for a better
Peoples' National Bank Building.
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The bulk of the renovations will be required on the first floor
Shown is a minimum operating bud1 st YEAR
$4, 000 Budget
(Plan IA)
$11,340 Budget
(Plan IB)
$2,000
$2,000
Debt Service
2, 500
2, 500
Operational
4, 000
11,340
$8,500
$15,840
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It should be noted that the renovation expense is only a first year
expense and will not appear in budgets of the succeeding years. It should
be borne in mind also that state aid will continue only if local financial
effort increases by the formula discussed earlier, which in essence is
a compelling factor to increase subsequent library budgets. Therefore,
while it might be possible to establish a library on a $4, 000 operational
budget, this amount must be increased in order to receive state aid.
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An independent library serving 5,711 people should aim at a
minimum book collection of 15, 000 volumes and a staff of 2 people, each
working 20 or 30 hours weekly, assisted for a few hours weekly by stu-
dent assistants.
This would require about 3, 000 square feet of space.
b.
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Utilization of Vacant Store
The second possibility is the use of a vacant store in the general
area of the vacated bank building.
It is estimated that a vacant store
along Main Street in Edwardsville will rent for $40 to $75 a month
depending upon the size and the location of the building.
Minor renova
tions and shelving, lighting, and other miscellaneous expenditures would
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probably run the initial outlay to over $1, 000.
The cost of rental of a
store front will be substantially lower than the costs of debt service
retirement because of the purchase of a vacant store. A minimum operating budget of $4, 000 and one of $11, 340 are used.
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1st YEAR
ITEMS OF
EXPENDITURE
$4,000 Budget
(Plan HA)
$11, 340 Budget
(Plan IIB)
Renovations
$1,000
$ 1,000
Annual Rent
900
900
Operational
4, 000
11, 340
$5,900
$13, 240
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STATE ASSISTANCE.
The Governor's Budget for the 1962-63 fiscal
year does not contain the maximum rate of State Assistance provided by
the Code, at the rate of 25£ per capita. Because this was only thebegin
ning year of State Library Assistance, an estimated $475, 275 was pro
vided for all local libraries in the state, for an average payment of only
7 l/2£ per capita.
Basic Aid
a.
In the table which follows, Basic Aid is presented to give some
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indication of State Library Funds which will be available to Edwardsville
as a potential source of revenue:
BASIC AID
Population
5, 711
25 £ per capita
$1,427.72
(library code)
7 l/2£ per capita
$
(1962-1963)
b.
428.33
Equalization Aid
The equalization aid will be paid if the equivalent of 1/2 mill
amounted to less than $1. 25 per capita.
In this case, the State would
make up the difference so that presumably all areas in the State would
have a minimum basic expenditure of $1. 25 per capita.
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In the table which follows, Equalization Aid which might be avail able to Edwardsville is presented:
EQUALIZATION AID
$5,482. 35
1/2 mill x market value
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5,711
Population
Min. Local Effort after
5 yrs. (per capita)
$
. 96
2
State Equalization - $1. 25
per capita
$
1. 25
2
Equalization Rate
$
. 29
Equalization Aid
$1,656.19
2
2
The potential state assistance available to Edwardsville from the
two sources of state funds is set forth in the table below.
The current
rate of 7 l/2£ per capita is used for the Basic aid.
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TOTAL STATE ASSISTANCE
1962-1963
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Basic Aid
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Equalization Aid
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$
TOTAL
428.33
428.33
1, 770.41
1, 656.19
$2, 198.74
$2, 084.52
The Basic aid could go to 25£ per person within a year or two, in
which case the total state assistance in the fiscal year 1963-64 would be-
come $3, 083. 94.
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$
�SUMMARY-INDEPENDENT LIBRARY
It seems clear that the operation of an independent Edwardsville
Library operated by a community Board of Library Directors, whether
in the former bank building or in a vacant store along Main Street, would
be a rather expensive facility for the Edwardsville taxpayer.
The following presentation is a summary of estimated expendi
tures, total state assistance, together with the amount that must be lo
cally contributed under the various plans should Edwardsville consider
an independent library.
Plan LA
Estimated
$8,500.00
Expenditure
Total State
2,084,52
Assistance
Local
$6,415.48
Contribution
Plan IIB
Plan IB
Plan HA
$15,840.00
$5,900.00
$13, 240. 00
2,084.52
2,084,52
2,084.52
$13,755.48
$3, 815.48
$11,155.48
Since the minimum financial effort that Edwardsville must raise
in order to secure State Assistance is $2,742.17, and since the local
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contribution that must be raised to operate an independent Library under
any of the four plans previously discussed is above the minimum finan
cial effort of $2,742. 17, it is quite apparent that the Edwardsville tax-
payer will have to contribute more than the minimum financial effort
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under all four plans.
It should be restated that only plans IB and HB will really pro
vide adequate library service for the Edwardsville public.
In order to
raise the needed revenue to operate, an independent Public Library in
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Edwardsville under these two plans, at least $2 per capita, or a one mill
tax rate on the market value of taxable property will be necessary.
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�2.
CONTRACT SERVICE
.Library Service can be provided for the Edwardsville citizenry
by the established Board of Library Directors contracting for library
service with either the Osterhout Library of Wilkes-Barre or the Hoyt
While there are a number of alternatives of pro-
Library of Kingston.
viding service through the Osterhout Library on a contractual basis,
there is only one alternative of providing library service through the
Hoyt Library.
The same three factors considered in :the.'establishment ;
of a local, independent library will have to be considered in contracting
for library service.
There factors again are: (1) Local financial ef-
fort; (2) Library site; (3) State assistance.
A.
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FINANCIAL EFFORT.
OSTERHOUT LIBRARY
If Edwardsville desires to provide library ser-
vice from local funds only, without accepting any state funds, the re
quirement of local financial effort does not apply.
If Edwardsville is
desirous of seeking state funds, a local financial effort will have to be
made. Presuming Edwardsville considers seeking State Aid,
■
the first
year's financial effort would be the lower figure mentioned earlier, or.
$2,742. 17, and the financial effort at the end of five years would be
the lower figure, also mentioned earlier, or $5, 482. 35.
LIBRARY SITE.
Four possible plans can be considered by Edwardsville
if the Board of Directors of a proposed Edwardsville Public Library
contracts with the Osterhout Library; utilization of the former.
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bank
�building, utilization of a vacant store, utilization of Osterhout facilities
in Wilkes-Barre, and utilization of Osterhoutfacilities in Wilkes-Barre
combined with one afternoon a week service in Edwardsville.
a.
Utilization of Former Bank Building
If the Board of Directors of the contemplated Edwardsville Pub
lic Library contracts with the Osterhout Library to create a branch Li
brary in the former bank building, the conversion and renovation costs
to the building will run about the same amount (or $2, 000) as if anindependent community librarywere established. And if theBoard ofDirec-
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tors purchases the former bank building, the debt service charges will
remain the same as mentioned earlier (or approximately $2, 500).
Representatives of theOsterhout Library have estimated that the
annual operating expenditures for an Osterhout Library Branch in Ed-
wardsville would run about $6, 500.
(See Appendix C)
The estimated first year expenditures of an OsterhoutBranch in
Edwardsville in the former bank building are presented below:
Plan III A
$ 2,000
Renovations
Debt Service
2, 500
Library Contract
6, 500
TOTAL
$11,000
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�b.
Utilization of a Vacant Store
If a vacant store along Main Street is used as an Osterhout Li
brary Branch in Edwardsville,
it is estimated that the expenditure
would be only slightly less than if the former bank building were used.
The estimated first year expenditures of an Osterhout Branch
in Edwardsville in a vacant store front are presented below:
Plan TUB
Renovations
$1,000
Annual Rent
900
Library Contract
6, 500
TOTAL $8,400
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c.
Utilization of Osterhout Facilities in Wilkes-Barre
If the proposed library service for Edwardsville were to be pro
vided by Osterhout, with the residents of Edwardsville going to the main
Osterhout Library in Wilkes-Barre, the cost of rental and maintenance
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of a library site would be completely eliminated.
The only cost for li
brary service would then involve the library contract.
An approximate estimate of this contract, based on 75f per capita,
would be $4, 283. 25.
The estimated first year expenditures of utilization of Osterhout
services at the main library in Wilkes-Barre are presented below:
Plan in C
Library Contract
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$4, 283. 25
��Directors for Edwardsville, whether Edwardsville established its own
Independent Library or contracts with the Osterhout Library in WilkesBarre.
Based on the 1962-1963 State Library Budget, Edwardsville could
receive $428. 33 in Basic Aid.
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Since Edwardsville expenditures after 5
years would amount to less than $1. 25 per capita, Edwardsville would be
entitled to Equalization Aid. As mentioned in a previous section, this aid
!!
would amount to $1, 656. 19.
]l
The total State Assistance for library service in Edwardsville
would therefore amount to $2, 084. 52, based on the 1962 tax equalization
tables.
SUMMARY - OSTERHOUT LIBRARY
Presented below is a summary of the four possible plans if the
Edwardsville Board of Library Directors should desire to contract with
!
the Osterhout Library. The summary is the presentation of the estimated
expenditures, total state assistance, and the amount that must be locally
contributed by the Edwardsville taxpayers.
Plan III A
Plan III B
Plan III C
Plan III D
Est. Expenditures
Total State Aid
$11,000.00
2,084.52
$8,400. 00
2, 084. 52
$4, 283. 25
2,084,52
$4,408.25
2,084.52
Local Contribution
$ 8,915.48
$6,315.48
$2,198.73
$2, 323.73
It should be remembered that the minimum financial effort that
Edwardsville must raise in order to seek State Assistance is $2,742. 17.
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�The local contribution that must be raised under plan IIIA and IILB is
above the minimum financial effort; therefore, the Edwardsville taxpayer will have to contribute more than the minimum financial effort.
However, the amount that must be contributed locally under plans HIC
and IXID is less than the minimum financial effort which must be raised
in Edwardsville.
If the Edwardsville Library Board seeks and receives
State Aid, it will be required to expend the full amount of state aid and
the local funds.
While contracting for library services with the Osterhout under
plan HIC may have merit because of reasonably low expenditures, the
main Osterhout Library on South Franklin Street in Wilkes-Barre is too
far away from Edwardsville to provide adequate and convenient service.
B.
HOYT LIBRARY
Library service might also be provided for Edwardsville on a
contractual basis with the Hoyt Library in Kingston, which is within 25
minutes walking distance of every Edwardsville resident.
The same
factors of (1) Financial effort; (2) Library site; and (3) State assistance
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are considered in the section that follows.
FINANCIAL EFFORT.
The previous sections under Independent Library
and under Contract Library Service with Osterhout dealing with financial
effort would apply if Edwardsville decides to contract with Hoyt Library
for library service.
The first year's minimum financial effort is
$2,742. 17, increased at the end of five years to $5,482. 35.
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�LIBRARY SITE. Since the representatives of the Hoyt Library expres sed
no interest in establishing a separate library branch of the Hoyt Library
in the former National Bank Building or in any vacant store on Main
Street in Edwardsville, primarily because of the immense financial expense involved, only 2 alternative plans are considered. Therefore, the
public of Edwardsville could use; (a) the complete Hoyt facilities in
Kingston; or (b) Hoyt facilities combined with one day library service
in Edwardsville.
Both of these arrangements would completely elim-
inate the purchase or annual full-time rental and maintenance of a li-
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brary center building in Edwardsville.
Hoyt Facilities in Kingston
According to the representative of the Hoyt Library, library
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service could be provided to the Edwardsville public on a contractual
!
basis for the beginning year cost of $2, 800.
This amount is set forth
below as a separate plan.
Plan IVA
Library Contract
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b.
$2,800.00
Hoyt Facilities and Local Service
The optional possibility in contracting with the Hoyt Library of
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Kingston would be for the Edwardsville residents to use the complete
facilities of the Hoyt Library in Kingston as stated above.
Additional
library service to those Edwardsville people unable to reach the Hoyt
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�Library would be provided one day a week by a staff member of the Hoyt
in a vacant store.
This limited service beginning with one afternoon a
week would be increased with each increase in local financial effort and
renewals of contract. Such a limited service could probably be provided
for less than $125 a year.
This is set forth below as a modification of
the previous plan:
Plan IV B
Library Contract
Rent
125
TOTAL
STATE ASSISTANCE.
$2,800
$2, 925
The two forms of state assistance--Basic Aid
and Equalization Aid--have been discussed under a previous section.
The same two forms of assistance areavailable to a contemplated Board
of Library Directors for Edwardsville, if Edwardsville contracts with
the Hoyt in Kingston.
Based on the 1962-1963 State Library Budget, Edwardsville could
receive $428. 33 in Basic Aid. Since the Edwardsville library expendi
ture after 5 years would amount to less than $1. 25 per capita, Edwards
ville would be entitled to Equalization Aid. As mentioned in a previous
section, this aid would amount to $1, 656. 19.
The total State assistance for library service in Edwardsville
would therefore amount to $2, 084. 52.
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ESTIMATE OF ACTUAL COST.
L
A clear picture of the estimated ex-
penditure, total State assistance, and the local contribution by Edwards
ville taxpayers will indicate that these two alternate plans are the least
expensive for Edwardsville.
Plan IVA
Plan IVB
Estimated Expenditures
$2,800.00
$2,925.00
2,084,52
2,084.52
State Assistance
$
Local Contribution
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715.48
$
840.48
To determine what it will actually cost Edwardsville, it will be
necessary to review the Hoyt Library requirements for State Assistance,
assuming that the Hoyt Library applies for state assistance. If the Hoyt
Library continues to service only the Kingston citizens, it will not have
to increase its expenditures to remain permanently eligible for State
Assistance. But if it adds Edwardsville to its service area, it becomes
obligated to increase its expenditure of local money, until it equals or
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exceeds a total of 1/2 mill for the total population of both boroughs.
This amount will be $34, 373. 90, divided into $5,482. 35 for Edwardsville (1/2 mill) and $28,891.55 for Kingston (1/2 mill).
This would
mean that over a five year period the total expenditures would have to
increase $4, 825. 00, with a minimum rate of $965. 00 annually.
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The increase for the larger Kingston-Edwardsville service area
must be spread over a five year period as prescribed by the Library
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Code.
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It was suggested by the representative of the Extension Division
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of the State Library that during the first year for which the Hoyt Li
brary sought aid on behalf of Edwardsville, the Hoyt Library might be
willing to accept a payment of $601. 26.
In addition, the Hoyt Library
would receive State Assistance of $2, 084. 52. The schedule of increases
for Edwardsville are presented in the table below:
Edwardsville
Local
Contribution
$
1 st year
2nd year
3rd year
4th year
5th year
6th year
601.26
1,452. 00
2,302.00
3,152.00
4,002.00
4, 852.00
.
State
As sistance
T otal
$2,084.52
2,084.52
2,084.52
2,084.52
2,084.52
2,084.52
$2,685.78
3, 536. 52
4, 386. 52
5, 236. 52
6, 086. 52
6, 936. 52
This schedule of increases would mean that the library service
for Edwardsville would not cost the 1/2 mill multiplied by market value
until the third year.
In the sixth year, the final amount of $4, 852. 00
would be approximately $630 less than the 1/2 mill requirement of
$5,482.45.
It is the general optimistic opinion that by the sixth year.
the State assistance for Edwardsville would be approximately $3, 000
yearly.
The sum of $4, 852. 00 in local money combined with the State
assistance of $2, 084. 52 would compensate the Hoyt Library for an
amount of $6, 936. 52. If the State assistance increases to approximately
$3, 000 annually, the Hoyt Library can then expect approximately$7, 80.0
for Edwardsville in combined local money and State assistance.
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SUMMARY - HOYT LIBRARY
It is apparent that the local contribution under Plans IVA and
0.
IVB is less than the minimum financial effort that the Edwardsville local
library will be required to expend to receive state assistance.
III
such local contribution is less than the minimum financial effort, the full
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When
amount of state assistance and local funds must be expended.
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If it is to
be an expenditure of approximately $7, 800 for Edwardsville in combining
local money and state assistance, best results for library service can
be achieved by contracting for use of the Hoyt Library facilities.
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Unless the branch service under Plan IVB is to give service at
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least 20 hours weekly, afternoons and evening, it will be an inadequate
investment and questionable economics in that it may tie up several thousand currently useful books for only several hours a week.
The same
books might receive fuller circulation by Edwardsville people if they used
the Hoyt facilities in Kingston.
3.
JOINT OPERATION
More and more municipalities are turning increasingly to inter-
jurisdiction agreements to solve problems they cannot cope with alone.
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Such cooperation is often less expensive and more efficient. At the same
time municipalities are finding that they need not give up their political
independence or community identity.
As was mentioned earlier, it is possible for two municipalities
to unite in establishing and maintaining a free public library and under
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joint action.
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Edwardsville and Kingston could enter into a joint agree
ment for the operation of a single library.
Since the Hoyt Library in Kingston is a well established library
which has been in operation since 1928, receiving funds from both the
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Kingston Borough Council and the Kingston School District, it is not likely
that the Board of Directors of the Hoyt Library would consider the
creation of a joint board.
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Ordinarily the creation of a joint board com-
posed of members from two or more communities is more practical if
none of the participating communities has library facilities.
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Then the
participating communities will be making an equal contribution toward
the establishment of such a joint board.
Any form of joint action in this
instance would be construed by Kingston citizens as diminishing indepen-
dence in the operation of their own library.
Therefore, no exploration
was even made of the possibility of this type of joint action in providing
for library facilities for the citizenry of Edwardsville.
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�VII.
RECOMMENDATIONS
Since Edwardsville presently offers no public library facilities, the
municipal authorities should make provision for such a service to
the people of Edwardsville.
Such a library service can be authorized by either the school board,
borough council, or both jointly by the appointment of a board of
library directors.
To be adequately financed, the library service should be financed
under the provisions of the Library Code, which permits up to a
special 3-mill levy on taxable property and provides for state finan
cial assistance.
Of the three alternative plans of providing library service for EdWardsville - Independent, affiliation with an established library,
and joint library service - the second, or affiliation, is the more
feasible plan.
The affiliation with the Hoyt Library in Kingston under Plan IVA is
the least expensive and the most convenient for the Edwardsville
public, in that it makes accessible a large, well-equipped book and
magazine collection as well as an experienced staff.
The use of the former bank building in Edwardsville,
either as a
library site for an independent agency or as a branch of the Hoyt
and Osterhout Libraries, would not be practical or economical over
the years.
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�EXPENDITURES AND INCOME
SUMMARY OF
Plan HI A
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ITEMS OF
EXPENDITURES
(Plan LA)
$4000 Budget
(Plan IB)
$11,340 Budget
(Plan IIA)
$4000 Budget
(Plan BB)
$11,340 Budget
Renovations
$2, 000. 00
$2, 000. 00
$1, 000. 00
$1, 000. 00
Debt Service
2, 500. 00
2, 500. 00
Operational
4, 000. 00
11, 340. 00
4, 000. 00
1-1, 340. 00
900. 00
900. 00
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Rent
$2, 000. 00
$8, 500. 00
$15, 840. 00
$5, 900. 00
Revenue- Total
State Aid
$2, 084. 52
$2,084.52
$2, 084. 52
Local
Contribution
6,4 15.48
13,755.48
3, 815. 48
Minimum Local
Effort
$2,742.17
$2, 742. 17
$2,742.17
Plan IV B
Plan IV A
$1, 000. 00
$
900. 00
$
125. 00
125. 00
6, 500, 00
6, 500. 00
$4, 283. 25
$4, 283. 25
$2, 800. 00
$ 2, 800. 00
$11, 000. 00
8,400. 00
$4, 283. 25
$4,408.25
$2, 800. 00
$ 2, 925.00
$2, 084. 52
$2, 084. 52
$2, 084. 52
$2, 084. 52
$2, 084. 52
$2, 084. 52
8,915.48
6, 315.48
2,198.73
2, 323.73
715.48
840. 48
$2, 742. 17
$2, 742. 17
$2, 742. 17
$2,742.17
$2,742. 17
$2,742. 17
$13, 240. 00
$2. 084. 52
11, 155. 48
$2,742. 17
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Plan ID D
Plan HIC
2, 500. 00
Contract
TOTAL
Plan HI B
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APPENDIX A
ANNUAL BUDGETS FOR LUZERNE COUNTY LIBRARIES
1961
(1)
(2)
(3)
(4)
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Popu
lation
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Total
Expend.
Per Cap. .
Expend.
Total
Income
(6)
(5)
School
District
Share
(7)
Total
Tax
Funds
Local
Gov't
Share
Library
Bk. Mountain
Hoyt
Mill
$ 14, 834
$ .74
$ 20,992
$ 1,300
$ - 0
19,906
$ 1, 300
Includes Dallas B. , Dallas T. , Kingston T. , Franklin T. , Lake T. , Lehman T. , Jackson.T. , Ross T.
20,261
29, 553
1.46
29,515
3, 500
37,868
21,750
.57
20,649
- 0 Includes Nanticoke, Hanover T. , Newport T. , Nuangola B. , Hunlock T.
23, 000
- 0 -
26, 500
0
NO REPORT
Pittston
12,407
Plymouth
10,401
1, 920
. 18
2, 623
West Pittston
6, 998
2, 517
. 36
3, 048
Wyoming
7, 293
500
0
1,200
1,700
500
500
NO REPORT
Hazleton
32,239
32,788
1. 02
31,751
28,150
1,750
29,900
Wilkes Barre
63, 551
136,919
2. 15
132,839
20,413
10,000
30,413
�APPENDIX B
Estimate of Library Budget for Community of 5, 000 based on a 30 hour week.
Librarian
.........................
Pension provision at 6% of salary. . .
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Clerical Assistant (1/2 time) .
1, 200
500 volumes purchased, plus
10 periodicals . . . .
1, 600
Encyclopedias and reference books
250
Binding
250
Quarters
Maintenance
(at $250 per month) .
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3, 000
Supplies
600
Travel
100
Insurance
100
TOTAL
SOURCE:
Library Service in Pennsylvania
Volume II - Supplement
Pennsylvania Library Association
Adjustment for 30-hour week
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$ 4,000
240
$11, 340
($1. 99 per capita)
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APPENDIX C
OSTERHOUT LIBRARY BRANCH IN EDWARDSVILLE
Estimated Expenditures
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Librarian, wages and benefits
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$3,375
Assistants
646
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Janitorial (2 hrs daily)
590
Utilities
219
Library Supplies
(books, binding, etc. )
1, 420
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Miscellaneous
(furniture, insurance)
250
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TOTAL
$6,500
B
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APPENDIX D
MINIMUM REFERENCE SOURCES FOR SMALL
PENNSYLVANIA LIBRARIES
STATE LIBRARY
Department of Public Instruction
Commonwealth of Pennsylvania
1.
Juvenile Encyclopedias
a. Britannica Junior, Latest edition
b. Compton's Pictured Encyclopedias. Latest edition
c. World Book. Field Enterprises. Latest edition
2.
Adult Encyclopedias
a. Americana. Latest edition
b. Colliers Encyclopedia. 1961
Encyclopedia Britannica. Latest edition
3.
Statesman's Yearbook.
4.
Statistical Abstract of the U. S.
Supt. of Documents
5.
Almanacs
McGraw-Hill (paper)
a. Information Please. Latest edition.
b. World Almanac. Latest edition. N. Y. World Telegram (paper)
Bulletin Almanac. Latest edition. Phila. Evening Bulletin (paper)
Recommended for libraries in the Phila. Area for its
coverage of local information, -will not take the place of
either a or b
6.
U. S. Postal Guide
Directory of Post Offices.
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Latest edition.
St. Martin's
Latest edition.
Su.pt. of Documents.
Robert's Rules of Order.
Latest edition.
Scott Forsman
1956
2nd ed. Wilson,
1948
7.
Robert, Henry.
8.
Douglas, G. W. American Book of Days.
9.
Etiquette Books
a. Post, Emily. Etiquette. 10th edition. Funk, I960
b. Vanderbilt, Amy. Complete Book of Etiquette. Rev. edition
Doubleday, 1958.
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10.
Unabridged English Dictionaries
a. Funk and Wagnails. New Standard Dictionary of the English
Language. Funk 1952
b. Webster's new 20th Century Dictionary 2nd edition, World 1958
3rd edition, Merriam 1961
11.
Roget's International Thesaurus.
12.
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Standard Handbooks for Secretaries
a. Hutchinson, L, D. Standard Handbook for Secretaries
7th edition McGraw-Hill, 1956
b. Taintor, Sarah. Secretary's Handbook
8th edition MacMillan, 1958
13.
Benet, William.
14.
Books of Quotation
a. Bartlett, John. Familiar Quotations
13th edition rev. Little, 1955
b. Stevenson, B. E. Home Book of Quotations,
Modern. 9th edition Dodd, 1959
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edition Crowell, 1959
Reader's Encyclopedia
Crowell, 1955
Classical and
15.
World Atlas
c. S.
s. Ambassador World Atlas 2nd edition 1961
a. Hammond. C.
b. Goode, John P. Goode's World Atlas Rand McNalley I960
16.
Who's Who in America.
17.
One Volume Encyclopedias
a. Columbia Encyclopedia. Latest ed. Columbia University Press
b. Lincoln Library of Essential Information. 2 Vol. Frontier Press, 1959
18.
Scientific References
a. Van Nostrands Scientific Encyclopedia 3rd ed. Van Nostrand, 1958
b. The Book of Popular Science. 10 vol. Grolier I960
The Harper Encyclopedia of Science. 4 vols Harper 1962
d. McGraw-Hill Encyclopedia of Science and Technology. 14 vols.
McGraw-Hill, I960
19.
Pennsylvania, Guide to the Keystone State.
20.
Booklist and Subscription Books Bulletin.
21.
Children's Catalog and supplements. ' 10th. , 1961 Wilson
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Rev.
Latest edition.
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Marquis
Oxford, 1940
A. L. A.
Annually
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22.
Standard Catalog for Public Libraries and supplements 4th ed. Wilson, 1958
23.
Fiction Catalog and Supplements.
24.
Pennsylvania Industrial Directory. Supplements
Free to Pennsylvania Libraries
Write to: Bureau of Statistics
Department of Internal Affairs
Harrisburg, Pennsylvania
25.
Pennsylvania Manual.
F ree.
7th ed.
I960 Wilson
Pennsylvania Property and Supplies.
Latest edition.
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59780
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Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
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Institute of Municipal Government and Institute for Regional Affairs
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1958-1980
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Library Service for Edwardsville, 1962
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Institute of Municipal Government
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1962
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CIVIL SERVICE
RULES AND REGULATIONS
FOR THE
BOROUGH OF KINGSTON
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CIVIL SERVICE
RULES AND REGULATIONS
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PENNSYLVANIA
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Institute of Municipal Government
Wilkes College
Wilkes-Barre, Pennsylvania
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ARTICLE I.
DEFINITION OF TERMS
Section 101.
Definitions. Unless otherwise expressly stated,
the following words and phrases, wherever used in these rules and
regulations, shall be construed to have the meaning indicated herein:
T
Certification - The submission to the appointing authority of
names taken from the eligible list.
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Chairman - The Chairman of the-Police and Fire Civil Service
Commission of the' Borough of Kingston, Pennsylvania.
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Commission - The Police and Fire Civil Service Commission of
the Borough of Kingston, Pennsylvania.
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Council - The Council of the Borough of Kingston, Pennsylvania
which is the appointing authority.
Eligible - A person whose name is recorded on a current eligible
list or furlough list.
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Eligible List - The lists of names of persons whopassed any ex
amination for a particular position in the Police or Fire
Departments.
Furlough List - The list of persons who were laid off from posi
tions in the Police or Fire Department because of a re
ductionin the number of officers in the Police Department
or Fire Department.
Probationer - An officer in the Police or Fire Department who
has beenappointed from any eligible list, but who has not
yet completed his work test period.
Reduction in Rank - A change to a different position or rank
which results in a decrease in salary; provided, however,
that a decrease in salary without a change to a different
position or rank shall not constitute a reduction in rank.
Removal - The permanent separation of a police officer or fire
man from the Police or Fire Department.
Suspension - The temporary separation of a member of the Police
or Fire Department from his position.
Secretary - The Secretary of the Police and Fire Civil Service
Commission of the Borough of Kingston, Pennsylvania.
Borough Secretary - The Secretary of the Borough of Kingston,
Pennsylvania.
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article
n. THE COMMISSION
201.
Officers.
The Police and Fire Civil Service Commission
of the Borough of Kingston, Pennsylvania, on the first Monday of each
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even numbered year, shall elect one of its members as the Chairman,
one Vice Chairman, and one as Secretary.
If the first Monday is a le-
gal holiday, the meeting shall be held within twenty-four (24) hours
following Council organization.
202.
The Chairman, or in his absence,
Duties of Chairman.
the Vice Chairman, shall preside at all meetings and hearings of the
Commission, decide all points of order or procedure and perform any
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duties required by law or these rules.
In the absence of a member,
temporary assignments shallbe made by the Commission member pre
siding.
203.
Duties of Secretary.
The Secretary shall carry onatthe
direction of the Commission all official correspondence of the Com
mission, send out all notices required by law and .these rules of pro-
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cedure, keep a record of each examination or other official action of
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the Commission, and perform all other duties required by law, by these
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rules and by the Commission.
204.
Meetings.
Except for the biennial organization meeting,
all meetings shall be held either at the call of the Chairman, or at the
call of two members of the Commission.
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At least twenty-four (24)
hours written notice of each meeting shall be given each member. The
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�Commission shall have the discretion to determine whether meetings
shall be open to the public except that no rule or regulation of the Com
mission shall beadopted at other than a public meeting, and except when
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otherwise provided for in these rules.
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205.
Quorum.
A quorum shall consist of two members, and
all actions of the Commission shall have the concurrence of at least two
members.
206.
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Order of Business.
The order of business of all meetings
of the Commission shall be as follows:
(a) Roll Call
(b) Approval of minutes of previous meeting
(c) Communications and Reports
207. Minutes. The Secretary shall keep minutes of the Com
mission's proceedings showing the vote of each member upon question,
or, if absent or failing to vote, indicating such fact.
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��stitute mechanical experience.
Each applicant shall be medically fit
for the performance of the duties of a police officer, of good moral
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character, and licensed to operate a motor vehicle in the Commonwealth
of Pennsylvania.
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In the case of a foreign-born applicant, evidence sat
isfactory to the Commission shall be produced showing the person to be
a naturalized citizen.
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305.
General Qualifications - Applications for Patrolman II,
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Sergeant, and Chief.
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each applicant for a position in the Police or Fire Department, all ap-
In addition to meeting the qualifications fixed for
plicants for the position of Patrolman II, Sergeant, Chief of Police, and
Fire Chief shall:
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(a) Have been continuously employed in the police or fire ser
vice for at least:
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(1) Patrolman II
(2) Sergeant
(3) Chief of Police
(4) Fire Chief
2 years (Police Department)
5 years (Police Department)
7 years (Police Department)
7 years (Active member of
volunteer fire company either
as paid employee or volunteer)
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(b) Have satisfactorily completed an in-service training pro
gram for police or fire officers or have graduated from a rec
ognized police or fire academy or school, and trained at first
opportunity at Borough expense and
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(c) Have demonstrated an ability to carry out orders from superiors, and
(d) Demonstrate a working knowledge of police or fire science
and administration, and
(e) Demonstrate an ability to deliver and supervise the work of
subordinates, and
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(f) Have received at least a grade cf 11 satisfactory" on his latest
service rating; provided that an evaluation of the experience,
training, general background, and such other records of per
formance of the applicant, at the discretion of the Commission,
may be substituted for the service rating.
306.
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Investigations of Applicants.
An investigation of the char -
acter and reputation of the applicant may be made by the Commission
and may include credit reports and reports of investigations from recognized agencies.
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307.
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Filing Applications.
Applications for any position in the
Police or Fire Department may be received at any time, during nor-
mal business hours, in the. office cf the Borough Secretary, and by such
□
other offices and officers as the Commission may designate.
The re-
ceipt of such applications shall be subject to the following conditions:
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(a) No application received after 12:00 noon on day that is four
teen (14) calendar days prior to the date fixed for the written
examination shall be considered for such examination unless
otherwise provided in the notice and
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(b) An application shall become void one (1) year after the date
upon which it was received.
308.
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Recording Applications.
The office of the Secretary of the
Borough shall review each application, upon receipt, for the purpose of
determining that such application contains no minor errors or omissions.
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Any application containing minor errors or omissions shall be returned
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to the applicant for correction. The Secretary of the Borough
shall
date, number, and record, in the order of receipt, all applications free
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of minor errors or omission. An application, once recorded, shall bea
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��ARTICLE IV. ANNOUNCEMENT OF EXAMINATIONS
401.
Public Notice.
Public notice of the time and place of every
examination, together with the informationas to the position to be filled,
shall be given by publication in the official newspaper of the Borough.
The public notice shall be published at least three (3) weeks prior to an
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examination and a copy of the notice shall be posted on the bulletin board
in the Borough Municipal Building.
Additional public notice by publica-
tion, posting, or otherwise may be given at any time at the discretion of
the Commission.
402.
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Notice of Examination. In addition to the public notice, the
Secretary shall give written notice to each qualified applicant as follows:
(a) By mailing or otherwise delivering to each applicant qualified
for a medical examination, a notice which shall include the name
of the medical examiner, and the date, time, place and duration
of the examination.
(b) By mailing or otherwise delivering to each applicant notice
which shall include the date, time, place and duration of the writ
ten and oral examinations.
Every notice shall be mailed or otherwise delivered at least three (3)
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days prior to the date fixed for examination.
Only applicants receiving
notices, to report for any examination shall be permitted to participate
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in such examination, and each applicant shall present his notice to the
examiner before he shall be examined.
Failure to report for any ex-
amination in accordance with the instructions contained in the written
notice shall disqualify the applicant, except that in the case of medical
examination, the applicant, with the prior approval of the medical ex-
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aminer designated in the notice, may fix another date and time for such
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�examination; provided however, that any such date or time shall be with
in the period fixed for medical examination in Section 403 of these rules.
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403.
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Scheduling Medical Examinations. No medical examination
shall be scheduled less than twelve (12) days, nor more than twenty-eight
(28) days from the date fixed in the public notice for a written examina-
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tion.
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HEIGHT
5' 8"
140
145
150
155
160
165
170
175
180
185
5' 9"
5' 10“
5' 11"
6’
6' 1"
61 2"
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MINIMUM
WEIGHT
6' 3"
6' 4"
6' 5"
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
BLOOD PRESSURE:
PULSE PRESSURE:
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503.
MAXIMUM
WEIGHT
180
185
190
195
205
210
220
225
230
235
lbs.
lbs.
lbs.
lbs..
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
CHEST MEASUREMENTS
EXPANDED
MINIMUM MOBILITY
37
38
38
39
40
41
42
43
44
44
1/2 in.
in.
1/2 in.
1/2 in.
1/2 in.
in.
in.
in.
1/2 in.
1/2 in.
2
2
2
3
3
3
3
3
3
3
1/2 in.
1/2 in.
1/2 in.
in.
in.
in.
in.
1/2 in.
1/2 in.
1/2 in.
Systolic maximum 135; Diastolic 90;
15 to 50
Report of Medical Examiner.
The Commission shall fur-
nish each medical examiner with forms upon which the medical exam-
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iner shall state the bodily and mental condition of each
applicant. The .
statement of each examination shall be submitted to the Commission
within five (5) days after the date of examination.
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504.
Rejection of Medically Unfit Applicants.
If the medical
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examiner shall deem any applicant medically unfit for performance of
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the duties of a police or fire officer because of any bodily or mental de
fect, whether or not the defect shall be specifically stated as a cause for
rejection in the statement of medical requirements, such applicant shall
be rejected and a brief statement of the reasons for rejection shall be
entered in the report of his medical examination. Insofar as practicable,
however, the medical examiner shall determine the medical fitness of
an applicant by adhering to the statement of medical requirements.
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505.
Re-examination of Medical Fitness.
Each applicant eli
gible for certification to the Council for appointment to any position in
the Police or Fire Department shall be instructed by the Secretary, be-
fore being certified, to inform the Commission of any illness or injuries
requiring the attendance of a physician or requiring hospitalization, and
of any surgical operations that shall have occurred after the original
medical examination.
If, in the judgment of the Commission, there
shall have been any change in the medical fitness of any applicant,
whether or not such change shall have been reported by the applicant,
the Commission may require the applicant to submit a further medical
examination before his name shall be certified for appointment.
Any
such further medical examination shall be performed at the expense of
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the Borough by a regularly appointed medical examiner.
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�ARTICLE VI.
601.
WRITTEN AND ORAL EXAMINATIONS
Examinations for Patrolmen and Firemen.
(a) The examination for the position of Patrolman and Fireman
shall consist of the following two parts:
(1) A written examination which shall include a general police
or fire aptitude test, an intelligence test, per sonality profile,
and such other written tests as the Commission may, from
time to time designate, and
(2) An oral examination
(b) Each part of the written examination and the oral examination
shall degraded on the scale of one hundred (100) per cent and shall
be weighted as follows:
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(1) For the written portions of the examination, total of sev
enty (70) points, (aptitude 50, mental maturity 10, and per
sonality 10), and
(2) For the oral examination, a total of thirty (30) points. The
sum of the weighted score shall not exceed one hundred (100)
per cent.
602.
Examinations for Patrolman II, Sergeant, Captain, and Chief.
(a) The examination for the position of Patrolman II, Sergeant,
Captain, Chief of Police and Fire Chief shall consist of three parts,
namely:
(1) A written examination which shall include a test of police
or fire knowledge and performance, an intelligence test, and
such other written tests as the Commission may, from time
to time, designate, and
(2) An oral examination, and
(3) An evaluation of the service ratings or performance re
cords of the applicant.
(b) The examination shall be graded on a scale of one hundred
(100) per cent and shall be weighted as follows:
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(1) For the written portions of the examination, a total of
seventy (70) points, and
(2) For the oral examination, a total of twenty (20) points,
and,
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(3) For the evaluation of the service ratings or performance
records of the applicant, a total of ten (10) points.
The weight assigned to the test of police or fire knowledge and perform-
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ance in the written portion of the examination shall be greater in an ex-
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amination for Captain than in an examination for Sergeant, and greatest
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in an examination for Chief of Police or Fire Chief.
In every case, how-
ever, the total weight assigned to the written examination shall be a total
of seventy (70) points.
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603.
Passing Grades.
The minimum passing grade for an ex-
amination for the position of Patrolman or Fireman shall be a score of
seventy (70) per cent on every portion of the examination.
The minimum
passing grade for an examination for the position of Patrolman II, Sergeant,
Captain, Chief of Police or Fire Chief shall be a score of seventy-five (75)
per cent, and each applicant for any such position shall score at least sev-
enty (70) per cent on each part of the examination. Every applicant for the
position of Patrolman or Fireman who receives a score of at least seventy
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(70) per cent, and who is entitled by law to additional credit for service in
the Armed Forces of the United States shall have his score adjusted ac
cordingly.
Applicants claiming veterans' preference shall submit satis-
factory proof of service and honorable discharge whenever the Commission
shall so demand.
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604.
Notice of Applicant's Grade.
When the grading of each ex-
amination is completed, the Secretary shall give each applicant written
notice of his grade.
605.
Ineligibility for Future Examinations for Six Months.
applicant fails to
If an
obtain a passing grade in any examination, he shall not
be eligible for a subsequent examination for any position in- the Police ' or
Fire Department of the Borough for a period of six months.
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606.
Administering Examinations.
The Commission may desig-
nate the Institute of Municipal Government of Wilkes College,
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Civil Service Commission of the Commonwealth of Pennsylvania, any other
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the State
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recognized examining agency, or any qualified person to act as examiner
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for the written examinations.
The Commission shall reserve the right to
accept or reject, in whole or in part, the recommendations of the regular-
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ly appointed examining agency. The oral examination and the evaluation of
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the service or performance record of any applicant shall be the responsi
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bility of the Commission; provided, however, that the Commission may
designate, from time to time, such persons qualified to evaluate perform-
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ance or service records, as are considered necessary to assist in such
examinations and evaluations.
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prepare a statement of instructions and rules for the conduct of written
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examination in accordance with the instructions of the Commission, and be
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responsible for enforcing the rules of conduct for written examinations.
607.
Conduct of Written Examinations.
The Commission shall
examinations. The regularly appointed examiner shall carry on each such
608.
Penalty for Improper Conduct. Should any applicant be found
guilty of any act tending to defeat the proper conduct or the result of any
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examination, his name shall be removed from any eligible list resulting
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from the examination and the applicant shall not be permitted to make any
future application for any position in the Police or Fire Department.
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ARTICLE VII.
701.
ELIGIBLE LISTS
Preparation of Eligible List.
As soon as possible, after
the completion of each examination, the Secretary shall prepare an eli-
gible list upon which shall appear the name of each applicant who received a passing grade in the examination.
The names on the eligible
list shall be arranged, from the highest to the lowest, in the order of
the final weighted score received by each such applicant.
The eligible
list shall be filed in the office of the Borough Secretary, and a copy
posted on the bulletin board in the Borough Municipal Building.
702.
Breaking Tie. Scores.
When two (2) or more qualifying
applicants shall receive the same final weighted score, the order in
which the names of such persons shall appear on the eligible list shall
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be determined by their scores on the part of the examination assigned
the greatest weight.
In the event that two ,’.Z) or more qualifying ap-
plicantsalso receive identical scores on the part of the examination as-
signed the greatest weight, the order of listing shall be determined by
the order in which the applications were numbered for recording purposes.
703.
Life of Eligible Lists.
In no case shall any eligible list
remain in effect for a period of more than one (1) year from the date of
its preparation.
Date of preparation refers here to the actual com
pilation of the list which is to take place no more than 60 days after the
receipt of the request from council calling for the establishement of
same.
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704.
Furlough Lists. Whenever the Council causes a reduction
in the numbers of police officer s or firemen, the Commission shall pre
pare and maintain a list of the names of all such furloughed officers,
together with the position held by each such officer at the time of fur
lough.
The names cn the furlough list shall be arranged, from the
greatest to the least, in the order of the length of service of each fur-
loughed officer in the Police or Fire Department of the Borough.
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�ARTICLE Vm.
801.
CERTIFICATION AND APPOINTMENTS
Filling Vacancies.
When a vacancy is to be filled in the
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Police or Fire Department, the Council shall submit a written request to
the Commission for certification of eligibles. In making the request, the
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Council shall state the title of the position to be filled and the compensa
tion to be paid.
802.
Furlough List to Fill Appointments.
Upon receipt of a re-
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quest from the Council, the Commission shall first certify the names of
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those eligibles who were furloughed because of a reduction in force.
In
filling a vacancy from the furlough list, the Commission shall certify the
top name only.
If more than one (1) vacancy is to be filled, the Com
mission shall certify from the top of the list that number of names equal
to the number of vacancies to be filled.
803.
Certification From Eligible Lists. If no furlough list exists
or if the total number of vacancies cannot be filled from the available
names on the furlough lists, the Commission shallcertify names from the
eligible lists.
The Council shall notify the Commission of any vacancy
which is to be filled and shall request the certification of a list of eligi
bles.
The Commission shall certify for each existing vacancy from the
eligible list the names of three (3) persons thereon, or a lesser number
where three (3) are not available, who have received the highest average.
804.
Removal of Names From Furlough and Eligible Lists.
In
addition to the other reasons stated as grounds for removal in these rules,
�the name of any person appearing on a furlough list or an eligible list
shall be removed by the Commission if such person:
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(a) Is appointed to a position in the Police or Fire Department of
the Borough, or
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(b) Declines an appointment to a permanent position in the Police
or Fire Department of the Borough, or
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(c) Fails to make written reply to the Commission within seven
(7) calendar days from the date of mailing of a notice of certifi
cation, or
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(d) Indicates availability for appointment and is appointed to fill
a vacancy but fails to report for duty at the time prescribed by
the Council, unless, in the opinion of the Council, such person
can show good and sufficient reasons for failing to report.
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The name of any person on any eligible list also shall be removed by the
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Commission if he is three (3) times certified for consideration for ap-
pointment and is not appointed.
Nothing in this section, however, shall
be construed as authorizing the removal of the name of any person or any
furlough list or eligible list who refuses or accepts a position of a lower
rank than for which he has qualified.
805.
Appointment Procedures. Whenever the name of any person
is certified to the Council from either the furlough list or the eligible list,
the person shall be immediately notified of his certification by either cer-
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tified or registered mail. The notice shall include the title of the position
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and the compensation to be paid, and shall also state that the person cer-
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tified make a written reply within seven (7) days from the date of mailing
such notice.
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�806.
Probationary Period.
All original appointments to any
position in the Police or Fire Department of the Borough shall be for a
probationary period of six (6) months. The Chief of Police or Fire Chief
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shall investigate the adjustment, performance, and general acceptability
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of each probationer under his supervision to determine whether such
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probationer is fully qualified for permanent appointment.
The Chief of
Police or Fire Chief shall make a report on the performance and con
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duct of each probationer at the end of the second month of the probation
ary period, at the end of the fourth month of the probationary period, and
finally not less than ten (10) calendar days nor more than fifteen (15)
calendar days beforethe next regular meeting of the Council immediate
ly preceding the end of the probationary period. Each final probationary
report shall include the recommendation of the Chief of Police or Fire
Chief either to retain or to reject the probationer.
be submitted in writing to the' Council.
Each report shall
Within five (5) calendar days
after the regular meeting of the Council immediately preceding the end
of the probationary period, the Council shall notify the Commission,
in writing, of its decision to retain or reject the probationer.
The
Commissioner,
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in turn,
shall notify the probationer
of . the
cision of the Council on or before the date of the close of his probation-
ary period.
In the event that the person named to the position of Chief
of Police or Fire Chief, is a probationary appointment, the Burgess or
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�Council shall designate one (1) person to evaluate the performance and
conduct of the Chief in the same manner, and subject to the same pro
cedures, as that established for all other persons in the Police or Fire
Department of the Borough.
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ARTICLE IX.
901.
SUSPENSIONS, REMOVALS AND REDUCTIONS IN RANK
Procedure.
Whenever any police, officer or fireman
in
the Borough is suspended, removed, or reduced in rank, the specific
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charges warranting each such action shall be stated in writing by the
appointing authority.
The charges shall be stated clearly and in suf
ficient detail to enable the person accused to understand the charges
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made against him and to answer to them.
As soon as practicable, the
statement of charges shall be filed in duplicate with the Commission,
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and within five (5) calendar days of such filing, the original copy of the
statement of charges shall be delivered to the person accused either by
personal service cr by certified or registered mail.
902.
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Demand for Hearing.
Any police officer or fireman sus-
pended, removed or reduced in rank may file with the Commission a
■
written demand for a hearing.
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Such written demand and any statement
of written answers to the charges made against the personaccused shall
be filed no later than seven (7) calendar days from the date upon which
...
the statement of charges were personally served or mailed. Within the
U
period fixed by the law, the Commis sion shall grant a hearing to any per
[
son accused who complies with the provisions of this section. Each such
I
hearing shall be open to the public unless the person accused, when
making his written demand for a hearing, requests that such hearing be
closed.
Il
903.
Notice of Hearing.
Notice of the date, time and place for
each hearing shall be given in the following manner:
.
.
.
(a) By either personal service or by certified or registered mail
to each person making charges and to the person accused, and
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(b) By mailing a notice to all other parties who have stated an
interest in the hearing; provided, however, that any failure to
give the notice required by this subsection shall not invalidate
any action taken by the Commission.
904.
Oaths.
All testimony shall be taken under oath. The Chair-
man, or in his absence the Vice Chairman, shall administer all oaths.
1
905.
S
Subpoenas.
The Chairman,
or in his absence the Vice
Chairman, may compel the attendance of witnesses and the production of
records and papers pertaining to any hearing.
However, upon the writ-
ten request of the person accused or of any person making charges, the
Chairman, or in his absence the Vice Chairman, shall order the attend-
J
ance of any witness or the production of any pertinent document; pro-
I
vided that such written request is filed with the Secretary within five (5)
p
b
calendar days from the date appearing on the notice of the hearing.
906.
Hearing Procedure.
Each hearing shall be conducted in the
following manner:
ri
(a) The Chairman shall state the general purpose of the hearing,
and
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(b) The Secretary, upon direction of the Chairman, shall read the
charges against the person accused together with the record of
action taken against such officer, and next
(c) The Secretary shall read any written reply of the person ac
cused, and next
(d) The Chairman shall afford each person making charges, or
his counsel, an opportunity to make any further statement in sup
port of the charges and to produce any witness, and next
u
(e) The Chairman shall afford the person accused, or his coun
sel, an opportunity to question or cross examine any person mak-
- 24 -
�ing charges, and to question or cross examine any witness produced by such person, and next
(f) The Chairman shall afford each person making chargesan op
portunity to examine the person accused, and next
(g) The Chairman shall permit each person making charges, or
his counsel, to make a summation, and next
(h) The Chairman shall afford the person accused, or his coun<
sei, an opportunity to produce any witness and to sum up> the
defense.
The Commission,
at any time during the course of the hearing, may
question or cross-examine any person making charges, the person ac-
cased, and any witness.
907.
Decision of the Commission.
Within fifteen (15) calendar
days after the hearing, the Commission shall issue its decision in the
form of a written order approved by at leasttwo (2) members of the Commission.
The written order shall include all findings of fact.
If, during
the public hearing, opposing facts are presented, the Commission shall
include in its written order its decision as to the correct facts.
The
findings and decision of the Commission shall be certified to any person
making charges, to the accused officer, and to the Council.
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�ARTICLE X
1001.
Inspection, in General. Except as otherwise provided in this
Article, all of the records of the Commission shall be open to the public
and available for inspection during normal business hours.
A member of
the Commission, or any person who may, from time to time, be designated by the Commission, shall be present at all times during any inspec
tion of any record of the Commission.
1002.
Character and Reputation Reports.
All reports of investi-
gations and inquiries into the character and reputation of applicants shall
be kept in the strictest confidence, and shall not be open to inspection.
1003.
Inspection of Examination Materials.
All examination ma-
terial shall be confidential and shall not be open to general public in
spection.
Any examined applicant may inspect his examination papers,
provided that:
(a) He makes a written request to the Commission within seven
(7) calendar days from the date of mailing of the written notice of
his grade, and
(b) He receives the written consent of the Commission to inspect
his examination papers, and
(c) He makes his inspection within five (5) calendar days from the
date of the mailing of the consent of the Commission.
The Commission shall not consent to the request of any examined ap
plicant to inspect any written examination paper which may be used in any
subsequent written examination that may be scheduled within ninety (90)
calendar days following the date of receipt of the written request.
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If the
�Commission consents to an inspection of any of the written examination
papers by any examined applicant, it shall state in its letter of consent
the specific examination papers that may be inspected.
Before any mem-
ber of the Commission, or any person designated by the Commission, permits any inspection of examination papers, he shall require the examined
applicant to produce the letter indicating the consent of the Commission
and he shall limit the inspection by the examined applicant to only those
examination papers indicated on the letter of consent.
No examined ap
plicant shall be permitted to inspect any examination papers other than his
own, nor shall he be permitted to make any written notes while he is in
specting any examination paper.
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�ARTICLE XI.
1101.
AMENDMENTS
Amendments.
The Commission, with the approval of the
Council, may, from time to time, amend any part of these rules and reg
ulations.
The foregoing rules and regulations, which are in accordance
with the powers granted by the Civil Service Sections of "The Borough
Code," Secs. 1165-1190, enacted by the General Assembly of the Com
monwealth of Pennsylvania and in accordance with the authority granted
by the Council of the Borough of Kingston,
Pennsylvania,
are hereby
adopted by the Civil Service Commission of the Borough of Kingston,
Pennsylvania on
March 30
, 1962
Charles J. Kistler M, D,
Chairman
(Signed)
William A, Roberts
Vice Chairman
(Signed)
R. J, Kopicki
Secretary
(Signed)
Approved by the Council of the Borough
of Kingston, Pennsylvania, on May 24
1962
•
____ Frank O'CnrinplI. .Tr.
President of the Council
ATTEST:
Willis J. Pettebone
Borough Secretary
58785
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Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
Creator
An entity primarily responsible for making the resource
Institute of Municipal Government and Institute for Regional Affairs
Date
A point or period of time associated with an event in the lifecycle of the resource
1958-1980
Rights
Information about rights held in and over the resource
Wilkes University retains copyright of these publications.
Format
The file format, physical medium, or dimensions of the resource
PDF
Type
The nature or genre of the resource
Publications
Text
A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text.
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Civil Service: Rules and Regulations for the Borough of Kingston, 1962
Creator
An entity primarily responsible for making the resource
Institute of Municipal Government
Date
A point or period of time associated with an event in the lifecycle of the resource
1962
Format
The file format, physical medium, or dimensions of the resource
PDF
Type
The nature or genre of the resource
Publication
Rights
Information about rights held in and over the resource
Wilkes University retains copyright of this publication.
-
https://omeka.wilkes.edu/omeka/files/original/3dbf9a407339bdbf533e3ed752a194ac.pdf
2fc9a163fbb105404d16abbc81c6454c
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�FOREWORD
Most people want to improve themselves. With good leadership
and a practical program, the average responsible citizen will work en
ergetically for a better community. A time-tested program shows that
intelligent use must be made of the answers to four questions: What do
we want? What do we have? What do we need in order to get what we
want? How do we get what we need?
Experience shows that communities with the greatest degree of
self-reliance do mostwith the facts on the four questions above because
they are best informed and stimulated.
A community must be realistic about the expenditure of its time,
energy, and money. Forethought and sound planning will lower the cost
of community growth.
It was the opinion of all those who attended the COMMUNITY
GROWTH CONFERENCE last year, that the exchange of ideas relating
to the pressing problems of our area constantly brings to life problems
which cause concern among responsible community leaders. The Second
Annual- COMMUNITY GROWTH CONFERENCE again brought together
civic-minded people who looked realistically at our area. One of the
themes that keeps recurring through many discussions is that commu
nity growth is a partnership between the government send the individual.
The sponsors of the Second Annual COMMUNITY GROWTH CON
FERENCE want to take this opportunity to extend a sincere word of
thanks to the Pennsylvania Power and Light Company, whose financial
assistance not only made the conference a community success but also
contributed measurably to the planning and arrangements.
$
Hugo V.’ Mjailey, Director
Institute of Municipal Government
Wilkes College
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TABLE OF CONTENTS
F oreword.
ii
Program.
iv
Sponsor s
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Opening Remarks by Dr. Eugene S. Farley.
1
Welcome Remarks by Frank Slattery.
2
"What Are The Keys to Community Growth?" by Emmet M. Molloy.
3
Introductory Remarks by Mrs. Claire Hart Cummings.
10
"What Local Government Can Do To Promote Community Growth:
Municipal Services" by David Walker..............................................................
11
"What Local Government Can Do To Promote Community Growth:
Educational Services" by Dr. George Young...............................................
16
Introductory Remarks by Wilbur Shorts.
22
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"What the Individual Can Do To Promote Community Growth: Community
Attitude and Appearance" by David Bogdanoff
. 23
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"What the Individual Can Do To Promote Community Growth: Citizen
Action" by Edwin H. Folk..............................................................................................
29
Introductory Remarks by Andrew A. Hourigan, Jr
34
"Community Growth: A Partnership" by John P. Robins
35
Roster of Attendance
Registered But Not In Attendance
iii
�SECOND ANNUAL COMMUNITY GROWTH CONFERENCE
if.
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SEPTEMBER 26, 1962
PROGRAM
IiC
Chairman:
12:00 noon
Luncheon
Crystal Ballroom
Chairman: j_Dr. Eugene S. Farley, President
Wilkes College
Frank Slattery, Mayor
{fecome:
City of Wilkes-Barre
"What Are the Keys to Community Growth?"
Topic:
Emmet M. Molloy
Speaker:
Manager, Area Development
Pennsylvania Power & Light Company
First Session
2:00 p. m.
Stark Hall, Wilkes College
Chairman:
Topic:
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Speakers:
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Second Session
3:30 p. m.
Stark Hall, Wilkes College
Chairman:
Topic:
Speakers:
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Mrs. Ethel A. Price, Director
Department of Streets
City of Wilkes-Barre
11:30 a. m.
Registration
Mezzanine, Hotel Sterling
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5:30 p. m.
Cocktails
Dinner
6:30 p. m.
Wilkes College Commons
Thomas Garrity, President
Greater Wilkes-Barre Real Estate Board
"What Local Government Can Do to
Promote Community Growth"
Municipal Services:
David Walker, President
Walker & Murray Associates, Inc.
Educational Services:
Dr. George Young, President
Surface Process Research and Develop
ment Corporation
Wilbur Shorts, President
Home Builders Association of N. E.
Pennsylvania
"What the Individual Can Do to Promote
Community Growth"
Community Attitude and Appearance:
David Bogdanoff, President
Jefferson Valley Corporation
Citizen Action:
Edwin H. Folk, Executive Director
Citizen's Council on City Planning, Phila.
Parlor C, Hotel Sterling
Chairman:
Topic:
Speaker:
iv
Andrew A. Hourigan, Jr. , President
Greater Wilkes-Barre Chamber of Commerce
"Community Growth: A Partnership"
John P. Robins, Executive Vice-President
Old Philadelphia Development Corp.
��■
��ID
WHAT ARE THE KEYS TO COMMUNITY GROWTH
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by
Emmet M. Molloy
Manager, Area Development
Pennsylvania Power & Light Company
Through this Second Annual Community Growth Conference, you
again have an opportunity to look realistically at your area and also to
look objectively at your past efforts and future plans. By initiating and
sponsoring this Conference, the Institute of Municipal Government of
'W'ilkes College has done your area a great service. It deserves, and I'm
sure will receive, your continued support.
Mr. Webster defines a conference as "a formal consultation or
discussion; interchange of views; also, a meeting therefore." I'd like to
take this a step farther. A Community Growth Conference is a gathering
of important people - capable, dedicated, and sincere individuals who,
through formal discussion and interchange of views, decide that some
thing can and SHALL be done! This is your purpose; this is why you are
here.
"What Are The Keys to Community Growth?" Simply stated in
two broad categories, they are: (1) Community Planning, and (2) Indus
trial Development. Before we discuss these keys, however, we must
discuss another key - one from which the others are, in part, molded.
This is the Master Key to any community's growth - a well-informed
active citizenry.
There is nothing particularly new in this idea of an "informed"
community. But how many of us actually take the gospel of community
growth to the people.
How many of us have spoken for example to an
anti-zoning committee or a "Let1 s-Preserve-Our-Wooded-Area-AndLet-Industry-Build-On-The-Other-Side-Of-Town" group?
Mostly, we talk to ourselves. To groups who ALREADY believe
in our Testament of Planned Community Growth; too often we use con
ferences and speaking engagements as "a place where we talk about do
ing something instead of doing it. “ But not until we inform, educate, en
lighten, if you will, the people - the individuals of a community - will
we acquire the Master Key. And without this Key, none of the other keys
will work effectively. Only the Master Key has the notches to turn the
tumblers of public ^interest, _dcsire, _enthusiasm, and action! You'll note
the first letter of interest, desire, enthusiasm, action spells IDEA. .. .
certainly a key factor in community growth.
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Before we go any farther, I think it would be well if we examine,
briefly, this phrase "community planning.11 Whatis community planning?
Many definitions have been advanced, but the variety is largely due to a
choice of words rather than to a disagreement on the heart of the matter.
Fr
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Basically, community planning is a process of thinking ahead
which takes into consideration all aspects of community life. The pur
pose of the planning process is to prepare for future growth and develop
ment. It's the process of planning which provides communities with a
means to correct the errors of the past, to prevent current errors, and
to hold future misjudgment to a minimum. The planning process pro
vides for coordinatedand guided growth of the physical, social, cultural,
and economic segments of a community or area. Through this process,
you also provide for the economic and social activities of your commu
nity to be arranged in a compatible land pattern.
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Planning coordinates the various self-interests in the community,
creating a unified effort rather than have opposing forces competing for
people's time and money.
The unprecedented shifts of population which have taken place
within most of the communities of our area during the last ten to fifteen
years have served to emphasize the urgent need for intelligent and in
spired planning of our urban communities.
Unplanned development and growth have not always resulted in
the most appropriate land use and frequently have not provided the best
or most desirable environment in which to live and work. The average
citizens, however, are seldom aware that anything is wrong with the
growth and development of their community. They frequently feel that
traffic does jam up too often. ... or that some of the older and more di
lapidated areas should be eliminated or rejuvenated. ... or that more
automobile parking is absolutely necessary. ... or that a new industry
might be desirable! But generally, they are not likely to have any great
awareness of the degree to which poor physical planning or failure to
plan may have affected their time, economic success, or personal con
venience and living enjoyment. It is most essential that such awareness
be established as quickly and as completely as possible. It is only then
that we can expect anything to be done about planning for orderly com
munity growth and economic development.
It is significant also to note that the impact of community and in
dustrial development is not limited to corporate boundaries. The in
creased number of cars and trucks, and the new express highways have
made distances between communities shorter and shorter. The people
of one community work in the industries and shop in the stores of other
communities and vice versa. Communities are notisolated entities, and
physical planning needs not only to be considered on the basis of
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the boundaries of a community, city, or town, but also on an area or re
gional basis.
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Community Planning encompasses such items as improved roads
and streets, more classrooms and teachers, larger police and fire de
partments, adequate water, sewerage, recreation, shopping, and trans
portation facilities as well as availabe industrial sites. An industry
considering your community as a plant location possibility will certainly
take a long lookin each of these categories. And your community should
"be prepared." That is exactly where community planning comes in.
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All of us like to boast of the fact that we live in a clean, attrac
tive community. The same is true of industry. Industry desires at
tractive surroundings, not only for its physical plant but also for its em
ployees. Therefore, industry places great stress on the physical appear
ance of a community.
It wants to know the status of a community's
residential sections - are homes neat, trim and clean - do they show
pride of ownership? What is the condition ofe the community's streets
and are they kept clean? Is the central city shopping center attractive,
modern and well-lighted? Is the community free of extensive slum
areas ?
No matter howattractive the individual site may be or how induc
ing the terms, the community of which it is a part will tip the scales for
or against its selection. Industry is looking for a community whose ap
pearance is conducive to clean, healthy, wholesome living and working
conditions.
Community betterment and development are not only vital factors
in attracting industry but they also contribute to a community's growth
and prosperity in other important aspects as well. They help to attract
new and retain present residents by offering them comfortable living
conditions such as clean, attractive squares and parks, well-lighted
streets, health, sanitation, and recreation facilities, all of which con
tribute to a high standard of living.
They provide jobs for young people
and thus give them good reason for wanting to stay and invest their youth
and energy in their hometown. They foster community pride which often
sparks citizens to assume greater civic responsibility.
Consequently, it is quite obvious that the community which is go
ing to succeed is the one which is going to do a good job of improving its
general appearance and providing the best possible social, cultural, and
civic environment.
The sqqqnd' key is very, muqh like the first. Industrial develop
ment is, in fact, a Siamese twin to community planning. They are joined
by nature and are difficult, if not impossible, to separate. A prime func-
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tion of community planning is to prepare for industrial development and
any industrial development committee MUST consider prior community
planning.
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Industrial development is not an easy task. In many instances
attempts have met with considerable success. In others, plans have re
mained unexecuted for lack of cooperation between the various commit
tees and communities whose joint actions would have been required to
make such plans effective. In other instances, good faith and a desire
to cooperate have been defeated by such obstacles as failure to use available resources.
Thus, we know that industrial development success cannot be
easily accomplished. However, the advantages to be gained appear to be
well worth your sincerest efforts. We know this.
The results of a study made by the Economic Research Depart
ment of the U. S. Chamber of Commerce point out what 100 new factory
workers mean to an area, namely,
” 74
296
112
51
107
$590, 000
4
$360, 000
$270, 000
more
more
more
more
more
more
more
more
more
workers required in other businesses
people
households
school children
passenger cars registered
personal income per year
retail establishments
retail sales per year
bank deposits "
A very large part of the industrial payroll, perhaps 90 per cent or more,
passes through the commercial mechanism of the community. Only a
minor fraction of this direct $590, 000 payroll may leave town through
mail order purchases or be spent on trips, etc.
1
Not only the factory workers but also the local merchants, pro
fessional men and others who eventually get their share of the original
payroll spend most of it locally for labor, services, and supplies. Per
haps 60 per cent of the original $590, 000 payroll turns over a second
time locally, 40 per cent a third time, and so on in diminishing percent
ages on successive turnovers.
Thus we can see that a plant employing 100 men generates a local
gross business of nearly one million dollars annually!
- 6 1
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To achieve maximum results in industrial development requires
detailed long-range planning, imaginative and aggressive promotion, and
the ever present, endless, and devoted hard work of many citizens.
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Fundamentally, three kinds of action are needed to increase in
dustrial payrolls. One is to aid your community's existing industries.
You can do this by providing room for expansion, extending the same
feeling of friendship that you would toward interested "outside" com
panies and working with existing industries in helping them to expand
their markets.
11
The other two involve the action needed to induce "outside" indus
tries to locate in your community. You cando this by providing informa
tion about your community's industrial advantages to firms, and taking
steps to remedy conditions that make your community less desirable as
a manufacturing location.
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Now, it's quite difficult, if not impossible, to sell your commu
nity to prospective industries unless you are aware of what you have to
sell. Therefore, the first requisite for launching an industrial develop
ment campaign is to prepare a careful evaluation of your community. . . .
to take an inventory of your community's assets and liabilities.
The specific factors to be considered in a community survey vary
somewhat from community to community, of course, but in general you
will need to know the answers to questions companies consider in choos
ing manufacturing locations. You should knowhow your community rates
with respect to markets that are accessible. ... transportation facilities
. . . . fuel, power and water. . . . political climate, including taxes. . . . fi
nancial resources. . . . sites and buildings available
materials.. . .
waste disposal. . . . special resources such as training and research fa
cilities and intangible factors, including civic, social, and cultural ad
vantages.
Any "community inventory" should include a local labor survey.
While industry is interested in knowing such things as markets, trans
portation, etc. , they are equally interested in the people of your commu
nity. The general attitude of the local citizenry and public . officials
toward new industries, the available labor supply, and the labor "cl-imate" all have a decided effect on the selection or non-selection of
a community.
What industry wants most is to be wanted. It wants to be wanted,
not just by the mayor and city council, the Chamber of Commerce, or
some other small group of people - but by the entire community. Here I
cannot stress too heavily the importance of a well-informed, enlightened
citizenry. Local indifference and hostility can exact a heavy penalty be-
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cause industry seeks and has the right to expect the most favorable oper
ating conditions possible. The damage that can be done during chance
meetings of a prospecting industry's representative and local citizens who
"run down" or decry their community is enormous. WELL-INFORMED
CITIZENS ARE COMMUNITY BOOSTERS!
n
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So the industrial development key to community growth, as with
the community planning key, is dependent on the Master Key. It is vital
that all the citizens of a community participate in the development and ad
ministration of programs for industrial development. This takes a con
tinuing, day-to-day leadership - your leadership!
■n
Let's take a look backward. It wasn't too many years ago that
many people believed that the Wilkes-Barre area was all but buried.
Fortunately there were many of you who knew better. . . . and did some
thing about it.
I
Much has been accomplished in the Wilkes-Barre area in the way
of community growth and development. The results of an active leader
ship and a concerned public are here for all to seel
The many accomplishments made, and great forward strides taken
by the Wilkes-Barre area bear witness to an area thatis indeed alive. . ..
both physically and mentally.
Since 1955 there have been five highly successful industrial
development fund campaigns with almost four million dollars raised
($3,922,07 6). The campaign of last year exceeded its one and a half
million goal by over $200, 000 ($202,076). This is indeed an enviable
record.
1
From 1955 through July of this year, 42 new industries located
here and six expansions were reported. These 48 industries have created
job opportunities for 7, 679 peopleand best estimates indicate these people
are earning or will earn about $27, 900, 000 annually.
The Wilkes-Barre area erected the first industrial buildings in the
East on a speculative basis.
1
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The Wilkes-Barre area established the first and largest commu
nity-owned industrial park in Central Eastern Pennsylvania. Now widely
known as Crestwood Industrial Park, it has served as a model for many
other industrial parks.
The Wilkes-Barre area early recognized the need for training lo
cal people in the various technical fields and prepared the first program
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�of its kind in Central Eastern Pennsylvania. This program was put into
effective use through the splendid cooperation of Wilkes College.
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The Wilkes-Barre area has been the site of another noteworthy
project - the highly respected and most successful Labor-ManagementCitizens Committee. This was another first in Central Eastern Pennsyl
vania. Because of its truly remarkable record, other communities here
and throughout the country are adopting the Wilkes-Barre program almost
identically.
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Yes, the Wilkes-Barre area has a truly enviable record. It is
a dynamic area! It is like a child whose growth stopped Lbrie'f|ywhile
his body adjusted itself and since has matured and grown still taller.
You know all these fine accomplishments. But who else does? So
once again we return to the Master Key.... to our well-informed, active
citizenry.
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You should be encouraged aboutrecent past activities. You should
be encouraged to speak before as many groups as possible. You should
make every effort to inform and enlighten the indifferent and the hostile.
You should then, in turn, encourage them to also talk up the many assets
of the Wilkes-Barre area. You should encourage talks to people outside
the area - your progress here has been too good and too outstanding to
allow the knowledge of it to remain here within your own minds.
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Communities, being human institutions, always respond: tocforedfuj.,
enterprising, imaginative, and intelligent leadership. Mediocre leader
ship, on:the other hand, will attract only the careless, the unanimated,
and the indifferent.
With able leadership at the helm, community potentialities can be
visualized and projects guided so that advancements on a civic scale will
be more satisfactory than if adjustments are allowed to follow their natural
course. When a community uses its progressive leadership as a spring
board to stimulate interest, action, and teamwork among its citizens, the
whole town becomes alive. When you inform and utilize your elected offi
cials, businessmen, union leaders, professional people, and workers, who
all have a vital stake in your community's growth and improvement, then
your community vibrates with enthusiasm.
Your Master Key is working.
You will open the doors to even
greater economic development and community growth.
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WHAT LOCAL GOVERNMENT CAN DO TO PROMOTE
COMMUNITY GROWTH: MUNICIPAL SERVICES
by
David Walker, President
Walker & Murray Associates, Inc.
The topic assigned is rather an interesting one, and may be re
stated as follows: "What Local Government Can Do to Stimulate Growth
in This Period of Great Growth. " One of the things that government
must do is to understand its own problems. This is not always as easy
as it might sound. Understanding the problems of local government to
day is no longer restricted to police activity, removing garbage, paving
streets, and providing other certain features of government that have
been old shop for a long, long time.
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Local government, along with state and federal government, faces
many, many different opportunities and challenges than it did just a few
years ago. In fact, local government has moved into a position where
it must make its contribution to the sum total of American growth in
such a way that it has to undergird the growth of the state and the nation.
I am convinced that unless there is a strong local government there can
be no really strong state or federal government because it is essential
that the good come up; it cannot be successfully superimposed.
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Good government at the local level is often the subject of mis
understanding. You might appreciate how this misunderstanding can
happen. One such happened on the fifth hole of my own country club.
A foursome came up to the fifth tee, where there was a gentleman hit
ting a ballabout nine feet in front of the markers. In the foursome was
a member of the club's golf committee. He went up to this gentleman
and said, "Now look, this is a gentleman's club. You must be a new
member, we don't know you too well. These markers are here for a
specific purpose. The rule is crystal clear, you hit either at or behind
the markers. If you hit in front of them you are cheating only yourself.
It is like cheating in solitaire." He continued to lecture this fellow, and
whenhe ran down, ::the gentleman said, "I have three things to say to you:
First, it is none of your business where I hit a golf ball; secondly, I
don't like you; and third, this is my second shot. "
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Well, local government today is having its second shot at an un
derstanding of what you do to promote golf: they have to be a little ahead of the markers. If they aren't, they will suffer from the competi
tion of the towns which are a little bit ahead. It would be presumptuous
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�on my part to stand here and talk to you about efficient police work, or
how you go about doing a really good job of collecting trash and garbage,
or how you set up your own codes and administer them, because there
are people in this room who, I am certain, have a great deal more tech
nical knowledge of how these things are accomplished than I ever will
have. But I do think that I can talk to you about what I think is essential
for growth--a characteristic which, if local government does not have
it, it must acquire. This is the moral and political courage to face the
opportunities and the challenges of today.
Let us look at our local political subdivisions. In your own mind
you can recall certain sections of your own town which desperately
need understanding, sympathy, and attention. Regardless of how wealthy
a political subdivision may be, thirty-five years of two major wars and
a major depression have polluted these towns, cities, and boroughs to
show the effect of the absence of private capital investment. In this
great section of the country, there is also the problem of a dying or at
least a sick industry. This has, therefore, compounded the problems
and unlatched the challenges of local government.
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Atmosphere is probably one of the most important and essential
characteristics in a government that is desirous of a growth program.
This type of atmosphere creates faith and demonstrates a willingness
of the people to assign objectives when acting as public officials. If you
do a good job, the results will be well worth the effort. I hesitate to
say this, but one of the essentials of good local government desiring
growth is an attitude and an atmosphere on the part of those holding of
fice that the next generation is indeed more important than the next election. If this is true, then you must outline a program of objectives.
One of the objectives must be the rebuilding of the physical plan
of the political subdivision to the point where it will produce the kind of
tax portfolio that will permit the local governing body to operate on a
sound economic base. In many cases it is not only a refurbishing of the
existing physical values, but also the restoration of those values which
by obsolescence have been slowly becoming a liability on the tax port
folio rather than an asset. This means having the moral and political
courage, for example, to embrace a comparatively new program such
as urban renewal or redevelopment.
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I am not going to talk to you about the details of that program.
However, in capsule form, urban renewal is nothing more than a law
that was created in the interest of the elimination of slum and blight.
It is to provide land to be offered to private enterprise on a competitive
basis with the land outside the land-locked physical boundaries of a po
litical subdivision--a city, town, or borough. Yet this is only one-half
of urban renewal. The other half is the most important part and the
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partin which we have not made the progress we must make. It is a ve
hicle for carrying forward the rehabilitation of existing values, thus
bringing about a new mortality for the homes, commercial, and indus
trial units that already exist within the physical and political boundaries
of towns. While this program is just about a decade old, we have not
yet found any adequate answers to the problem of rehabilitation. We
have had a great deal of conversation but very little performance. This
is because we have not yet convinced local government and private fi
nancing groups that it is a worth-while endeavor. Not only for the good
that it develops, but also it is a worth-while endeavor within the frame
work of the private enterprise profit system. There is no doubt in my
mind that this will come about. It may take us a little longer because
we still do what we do by trial and error. We have no magic wand of a
totalitarian decision and ultimatum.
The next thing that local government must do if it wants to grow
is to recognize its great responsibility to be active in the field of sewer
and water. It is best to begin evaluating not only for this decade but
also for the next.
They must know where and how they will acquire
these very essential public facilities. As I go up and down Pennsylva
nia, in county after county the one thing that strikes me as requiring
immediate attention is this problem of good water, clean streams, and
sewage disposal. As our population grows the problems grow. Even
thoughthis may not require an immediate decision in the council cham
bers, nonetheless local officials have this constant problem before them
if the city or town they represent is to grow.
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I think the next thing that local government must do if it is to grow
is to recognize that we must weld a greater partnership at every echelon
between the public and the government. We can no longer assume that
behind a bureaucratic desk at the local, state, or federal level is an an
swer to all of the problems. Unfortunately, the people behind these
desks simply do not have the ability or the understanding necessary to
advance the kind of daring, bold planning required for the cities, the
towns, the boroughs, and the states to grow. Only by a combination of
the private citizen and the public official can you get the kind of a team
that is able and willing to face the kind of a game that has to be played
in this field of growth. We know our population is growing, but we don't
know exactly where. The record today shows cities are losing popula
tion and suburbia is gaining it in great numbers. But I would suggest
an examination of the word suburbia. Itmeans anarea which surrounds
an urban core. An urban core is an important practice in mental ex
amination. If the urban core (the little town, the little city, the big
town, the big city, the borough, whatever it is that serves as a core),
is permitted to remain cancerous and sicken, there is a very good
chance that the child suburbia may well prove to be a delinquent. It is
incumbent on the local officials that the core remain healthy, and that
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they present to succeeding generations the same kind of opportunities
that we want to believe can be found in our core political subdivisions.
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I think that local government, if it is interested in growth, must
be interested in a greater participation in all of the programs which are
being devised almost daily for accepting the challenges of today. These
programs do not come about by reason of governmental desires to con
trolpeople. They come about rather because there has been a constantly
growing recognition of the need. Urban renewal, area redevelopment
plans, or the rest of these things have not come about by a magic wand,
nor did they come about yesterday. They came about because there was
a growing recognition that these problems existed, and that someone had
to find some method of alleviating if not eliminating the adverse impact
that these problems had over the life of the community.
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Participating in these programsis essential if for no other reason
than a practice, a practice in the way of life that this country needs.
Local government should never be afraid to participate in these pro
grams. We should recognize that when we wanted to make this country
a great maritime power, we welded a partnership of government and
private enterprise. We did the same when we wanted to push our com
munications system westward. We did the same when we wanted to es
tablish our passenger service when we wanted to travel back and forth.
We did the same when we wanted to become a great power in aviation.
Thus, the forming and welding of a partnership of government and pri
vate enterprise is nothing new in this country nor something that should
startle anyone. It should be accepted on the basis of the objectives that
must be met.
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One of the objectives that must be met is an understanding of
where we are in the world today. As Secretary of Labor and Industries
and as National Commissioner for Urban Renewal, I enjoyed two very
wonderful experiences. One was having the delegations from the free
and undecided peoples of the world to my office and desk; the other was
a reaction of how truly great this country is, where its basic strength
is, and where it will remain. These delegations that came from the
free peoples of the world were naturally interested in our material aid.
This was inevitable because they were the have-nots of the world, but
they were just as interested in the kind of thing that made this country
great--the spiritual kind of thing, the idea that made this country great.
And when you get around in this country, and see, particularly this
industrial miracle which is Pennsylvania, you begin to realize that what
makes it great are people in local political subdivisions, people in towns
and cities and boroughs and farms and what have you, in other words —
people. Local government must have a crystal clear understanding that
the greatest asset of government at any level is the people within that
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political subdivision. Included is a combination of their ability, and
their determination to get ahead with the problem at hand.
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Local government today is one of the great undergirding factors
that keeps this nation strong. That we will grow or prosper will not
depend on what is superimposed either at Washington or Harrisburg.
Our progress willultimatelybe assessedby what emanates from WilkesBarre, Scranton, Hazleton, or you name the city. Never has there been
a successful superimposing of other ideas of faith or confidence. This
faith and confidence must come from within, and it will come from with
in when local government and local citizens have a real understanding
of the challenge.
The challenge that we face today in a world market of ideas is a
real one, and only our collected ability and determination will meet
that challenge and prove that our way of life is the way of life that people
should want and will seek.
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WHAT LOCAL GOVERNMENT CAN DO TO PROMOTE
COMMUNITY GROWTH: EDUCATIONAL SERVICES
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Dr. George Young, President
Surface Process Research and Development Corporation
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In this part of the first session, I would like to briefly explore
with you one aspect of the responsibility of our local government and
its citizens to foster and develop those educational services that can
create an effective climate for community growth. When Hugo Mailey
invited me to discuss this topic, I spent some time in assessing the role
that our local schools and colleges were currently playing in the com
munity. While many problems do indeed exist--these for the most part
are well recognized--and, at least in part, aggressive attempts are be
ing made for their solution.
Rather than enumerate present educa
tional requirements--an area that should be familiar in detail to most
of you---- 1 wouldlike to discuss certain requirements of the near future
as they may be dictated by changes occurring in our national purpose
and in our national economy. These changes---- either directly or in
directly---- will eventually reflect on your responsibilities as commu
nity leaders. Since our company is playing a direct role in a part of
this change as a technical advisory group to one of the service organi
zations, I have a special interest in the topic as it applies to our area.
Certainly, we are not strangers to change nor to adapting to it.
Indeed, our country has been a leading force in promoting advancement
and progress.
Yet, in this decade we find ourselves in a position of
vicissitude that is unique. Since the mid 1950's we have been caught,
up in a series of events involving a rapidly accelerating race for tech
nological superiority. The winning of this race has become a primary
objective of our national government and of our major industries. These
facts are evidentto all. However, what is perhaps not fully appreciated
by many local officials and community leaders is the implications in
volved. The rate at which technical progress is being forced upon us
by both government and industry---- of necessity if we are to remain ahead in the race for technological superiority---- and the unprecedented
magnitude of the expenditures involved are presenting new challenges
to local governments to keep their communities participating in a fair
share of the growth of the national economy.
Currently, the federal government is spending vast amounts of
money in an effortto accelerate our space program. Even larger sums
are being ear-marked for highly complex projects designed to bolster
our national defense. Space exploration and military programs, al-
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ready ranked as major industries of the country, hold every promise to
grow considerably larger. Private business, prompted in part by the
government, also is finding itself in a similar competition. New in
dustries of a highly technical nature are being created to meet govern
ment demands and to capitalize on the progress made in the government
programs.
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Here we may inquire, what does this change in national purpose
imply for the majority of communities, like Wilkes-Barre, that are not
now engaged in space research or major military programs? What we
observe occurring in Massachusetts, Texas, and California today is the
precursor to a vast increase in technological growth to be experienced,
by this country---- a change that will occur throughout the country as
government programs expand and as industry seeks greater technologi
cal sophistication. Those communities that can attract forward-looking
industries and provide an integrated approach to technical progress will
enjoy affluence. Those communities that cannot meet this challenge may
well have to contend with a second-class economy.
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In brief---- either we will attract those industries and activities
that play some role---- direct or indirect----- in this effort to achieve
technological superiority or we will not receive our full share of the
national economic pie.
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The order of magnitude of expenditures for technological pro
gress and the rate at which it is being achieved and integrated into our
industrial potential are beginning to have a profound influence on our
economy. For example, this year nearly one billion dollars in govern
ment funds for space and military programs will be poured into the in
dustries and universities of the Boston area. Houston, Texas will ex
pand rapidly with the establishing of a new manned space craft center.
Many California communities will continue to grow and to enjoy an ex
panding economy as over a quarter of the government funds for space
and military programs are awarded to technical firms and universities
of that state. Indeed, such governmental and industrial programs de
signed to achieve technological superiority for the United States are al
ready producing major population shifts and pronounced changes in the
requirements for employment in those communities in which they are
centered.
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Now, how do we compare as a state and as a community with the
national average in this effort? In the last fiscal year this state re
ceived 3. 6% of all military procurement contracts and something less
than this ofthe total research and development effort---- some700 million
dollars in all. According to the population distribution we should have
received almost double this amount---- approximately 1. 4 billion dollars.
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This should be a warning that Pennsylvania--particularly Northeastern
Pennsylvania---- is deficient in some very basic areas. Wilkes-Barre,
based on its population, should have received---- either directly or in
directly---- some 11 million dollars in government funds for space or
military procurement and research---- if we were participating equally
in the national effort for technical progress.
This is nota suggestionthatthere should or will be an equal dis
tribution of government funds to all areas
however, we seem to be far
enough from the national average to have cause for concern---- concern
because business activity and growth appear to be paralleling the dis
tribution of these federal funds---- both being greatest in those forward
edge communities where money, brains, and skilled manpower are lo
cated. We are concerned not so much with the number of industries we
are attracting, but the type.
Now let us turn our attentionto the role educational facilities can
play in furnishing two of these three elements---- brains and skilled man
power---- judged necessary to meet the challenge of this age.
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First, consider our local colleges. We are going to require a
considerable amount of help from our colleges---- and they from us----in the future. If we are to succeed in effective community growth, they
must furnish much of our basis of technical strength and certain of those
elements of leadership that will be necessary. One critical need that
can be served by our colleges is that of establishing areas of technical
specialty and of encouraging research and development activity. As an
example of what research and development potential can mean to a com
munity, the following are excerpts from the New York Times concerning promotional advertisements for the Pittsburgh and Boston areas.
"Electrifying Change in Boston---- a report on research
and development". "The economic vitality of Greater
Boston is due to many factors, not the least of which
is its pre-eminence as a center for research and de
velopment".
"Research and development facilities and a strategic
location lead to expansion by Westinghouse".
"They
(Westinghouse) are located in the heart of a group of
prominent colleges and universities---- ideal climate
for research and development".
On a somewhat smaller scale, this community must furnish a similar
climate. We should enable Mr. Malloyto employ similar copy for PP&L
ads about our area. It is certainly a tribute to the astuteness of the ad-
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ministration of Wilkes College that such a need has been recognized and
thatthe new Wilkes College Research Center will be under construction
this fall. The need cannot be overemphasized for this facility in pro
moting the interests both of Wilkes College and of our community.
Another area---- perhaps an obvious one----- in which we will re
quire help from our colleges is in providing a local source of the scien
tists, the engineers, and the business personnel our community willrequire. I believe it will be essential that an expanded graduate program
in the sciences and possibly a complete four-year engineering curriculum
be offered---- when feasible for our colleges to do so-----if we are to ob
tain needed technical per sonnel to attract aggressive new industries and
to encourage the growth of our present industrial complex.
Now the crux of our topic---- How can local government encouragethe establishment of these educational endeavors necessary to com
munity growth? Faced withmany other problems, suchas meeting their
share of the anticipated increase in college enrollment, the require
ments of providing leadership in research and development activities
and of increasing their facilities for technical education will place an
added burden on the already heavy financial load carried by our col
leges. In promoting educational programs that will directly benefit the
community as a whole, local college officials should be able to call for
---- and expect to get----- community financial support. One possible ap
proach that has been extremely effective in other cities---- and might
well be effective in our case---- is the establishment of an industrial
college fund raising committee to seek financial support for certain col
lege programs from local industry. If such a committee were judged
desirable for our community, local government could be a major factor
in assuring---- through direct influence, both personal and political----the support and prestige and thus the effectiveness of this group.
Effective research and development potential and aggressive
programs in science and engineering as might be established by our lo
cal colleges could contribute greatly to an ideal climate for community
growth. However, many other elements are also needed.
Quoting again from the newspaper clipping pertaining to the
Boston area---- after referring to the hundreds of scientific and engi
neeringfirms---- "andlittle wonder, when one considers thatthe Greater
Boston area has more than 32, 000 scientists and engineers whose ef
forts are reinforced by some 363,000 skilled technicians. " How many
really skilled technicians does the Wilkes-Barre area train each year?
This then is another type of educational facility which we might
consider---- our technical high school and our associate degree programs.
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�The level of competence required of a modern skilled technician ex
tends beyond that offered in our present technical high school training.
Yet, there would appear to be certain advantages to having such train
ing a part of that program. Several approaches are possible in attempt
ing to provide education and specialized training for an elite group of
highly skilled technicians.
One might propose the integration of the
roles of both the present technical high school and the associate degree
program of the local Penn. State Center into a single six-year course.
This approach would appear to offer the most effective use of the com
bined facilities and would give a unity of direction to the task of educat
ing and training skilled technicians. Another approach might involve
extending the present technical high school training through a combina
tion of higher level courses and of an industrial cooperative program
similar to the kind which has worked so successfully at the: college level
in engineering---- a cooperative program involves spending part of the
academic year working in selected industrial groups in the specific area
of specialized training. Such a program---- which might be a five-year
course---- if effectively supported by industry, could provide for students
both high level training and incentive to master more advanced courses.
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Whatever approach to this problem of providing skilled techni
cians is suggested by the Superintendent of Schools, it probably will'be
necessary that the level of training be considerably above what is pres
ently being offered and in a larger number of technical areas. Again,
how can local government help? In this case, much more direct action
is possible. Complete non-partisan support of the Superintendent of
Schools in endeavors that are commonly agreed to benefit the commu
nity and securing financial support for bold experiments in education
at the state as well as the local level are obvious measures. Again, a
better acquaintance betweenlocal government and local industries could
be important---- if an industrial cooperative program were established----in securing industrial cooperation.
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I have discussed only the two of our several educational facili
ties that should be most directly involved in a community effort to share
in the technical and economic growth of the nation. Needless to say the
other facilities---- high schools, adult education, and retraining pro
grams---- will have to keep pace.
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In summary---- these are the major points I would like to emphasize:
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Certain rather basic changes are occurring in our economy
as a result of the national effort to remain ahead in the race
for technological superiority.
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��INTRODUCTORY REMARKS
Second Session
Wilbur Shorts, President
Home Builders Association of Northeastern Pennsylvania
Thus far this afternoon, we have approached this major problem
of Community Growth from a broad base, and then we looked at two
specific phases of the over-all problem.
But quite often, we hear
people say, "They ought to do something." However, if one presses
the issue and asks for a definition of the word "they" the answers are
usually very vague. And about ninety-nine times out of one hundred,
the person who made the statement never includes himself in the "they."
This condition points out one of the purposes of this Community
Growth Conference. Not only are we interested in what official and
semi-official agencies can do about it, but we should also be concerned
with what we as individuals can do about it.
As Home Builders, my organization has long been concerned with
community appearance in a specific way--the types of homes that we
build. Therefore, our next two panelists should provide some helpful
hints as to what we, as individuals, can do in the area of Community
Growth--both from the viewpoint of attitude and how to take action.
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�WHAT THE INDIVIDUAL CAN DO TO PROMOTE COMMUNITY
GROWTH: COMMUNITY ATTITUDE AND APPEARANCE
by
David Bogdanoff, President
Jefferson Valley Corporation
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It is very easyfor me to getup and make a speech in Westchester
County asa builder because atthe snap of a finger I can getup and make
a rip-snorting speech about the lack of social orientation in our planning
program, in our zoning, and in our restrictive regulations. These are
producing a band of isolation around New York City which is preventing
the middle-income growing population, elderly people, and young family
formations, from finding necessary home sites or homes in the suburb
an areas.
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Our communities have all reached this point in this suburban ring
around New York City, which by the way has undergone a tremendous
growth impact over the last decade. Our communities are looking for
this well-defined type of polite industry and office researchlaboratories
such as IBM, Union Carbide. The bidding gets a little tighter, a little
less obvious perhaps when you get below the level of Union Carbide.
But they are very interested in taking the tax assessables without tak
ing the housing problem of the people who will work in these industrial
establishments. They want to avoid the problem of school taxes and
the problem of congested areas. They want to avoid the entire problem
of community growth in terms of a growing community encompassing
the entire zoning pattern, encompassing the entire broad spectrum of
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In the New York City area we have the reverse of your problem.
At least, temporarily, we have the reverse of your problem. In the
New York City metropolitan region, we have a population of 16 million
with an anticipated growth of an additional 6 million by 1985. This
growth ata time when we know that the major cities in their process of
renewal must lose a half-million people from their impacted congested
areas. We know that this growth is going on, and when we meet at com
munity growth conferences, such as this, the interesting part of the
discussion, on the part of most of the agencies other than the builder
such as myself, is, "How can this growth be prevented?", "How can
this growth be diverted to us in terms of tax assessables?" We want
the polite industries which our planning commissioner, Cy Shulman,
hasdefinedas "those whose buildings are all underground, whose people
come into the buildings by tunnel, and whose products are used right
within the building so that they need no trans-shipment. "
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�the population that makes up an American city. So it's easy for me to
have won the reputation in Westchester County of being an interesting,
perhaps insane, type of maverick who is willing to walk into a commu
nity or to workin a community with the hope of developing a more com
prehensive approach, suggesting a more intelligent long-range approach,
or jokingly teasing the supervisor of an adjoining community as to his
exclusiveness.
Buthere in Wilkes-Barre your problem is the problem of a com
munity that wants to grow.
Your problem is a community which is
heroically, or has already heroically, adjusted to the dying out and the
moving out of your one major industry--the coal industry, and your de
termination to overcome this situation and to redevelop your industry
and in the process to redevelop the community.
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So, I am placed in the embarrassing position, although a very
happy one, of not being able to fight you--I have to work with you. I
have to prove that, having fought in my community for what you people
are doing, perhaps I know a little bit about the business of how it might
be done. I think you had better be the proof of that after I get through.
Suffice it to say that driving through the area seeing this determination
and listening to the previous speakers has been an extremely exciting
experience up to the moment.
I wouldliketo gointo one aspect of community growth which, per
haps, has not been touched on by the other speakers.
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The subject matter that I would like to touch on is, "What kind of
a community do you want to have grow?" You see, you have a commu
nity. Wilkes-Barre is a community, I imagine today of some 60 thou
sand people.
Interestingly enough, our Jefferson Valley Project, in which we
are working a seven-hundred acre area, was a cooperative approach to
planning a forty-two-hundred acre area. We felt that the ultimate de
velopment of this forty-two-hundred acres would be the development of
a rather comprehensive community in a strategic location of West
chester County. We financed through the town the planning study for
the eventual development not only of our own seven-hundred acre area,
but of the overall community. This was a community which was 20%
developed at the time that we got into it, and we achieved the coopera
tion of the town of Yorktown in developing this planning study. It was
20% developed. Wilkes-Barre, which is just slightly larger than our
forty-two-hundred acres, is 80% developed. In our 20% situation we
have to do new construction for the other 80%. In Wilkes-Barre, to a
great extent, you have to renew a great part of the 80% which came be
fore you.
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It is about the reverse of the coin. We're assuming the growth
which is coming in. You people are preparing for the future growth and
also in the process are trying to redo your community in such a fashion
as to provide more amenities, more aesthetics, generally better living
for the community at large and a more attractive community for indus
try to come into.
The question then is: What type of a community? What approach
to this community can we develop which gives us any guarantees that
after we go through a renewal effort we have not produced an alternate
drabness which may already exist? What guarantees have we that our
new subdivisions will not produce what many of our subdivisions in the
metropolitan region have produced--a virtual desecration of the land
that was there before the subdivisions came in, sea on sea of multi
colored roofs, practically no open space, practically no recreational
areas in lands which were virgin lands not more than 10 or 15 years
ago?
I think an examination of the kind of community the people in
Wilkes-Barre and the environs of Wilkes-Barre want to have is a pre
requisite to the planning and to the ultimate execution and development
or redevelopment of the area. I do notintend to develop any philosophic
approach as to what constitutes an ideal community. Nor shall I attempt
to define an ideal community. Perhaps we have come to this point in
our experience as a nation and in our condition as people where the ap
proach to anything that we want to do is an approach which rejects
poverty, drabness, and mediocrity as a condition to our existence.
Where poverty, drabness, and mediocrity do exist: (1) a new social
spirit has to be developed which denies it, which takes steps to change
it, which makes plans to renew an area which engenders this kind of
depressed spirit; and (2) the plans that are engendered for the recon
struction, renewal, or new development are plans where the amenities
of living and where the designing criteria are in the direction of build
ing a community which makes us proud as well as comfortable. This
is no difficult taskalthough it might sound like the most high-sounding,
silly idealism.
In our little community in Jefferson Valley we are building the
least expensive homes in the metropolitan area. These homes range in
price from about $18,000 to $21,000, which strangely enough for the
metropolitan area is the cheapest in terms of single family housing that
is available, unless you go down to Idlewild airport.
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Nevertheless, the community that we developed there was able to
win the national subdivision awardfor I960 as the best subdivision in the
country. The interesting corollary is that we most probably did our
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work more cheaply than any other subdivision that I know. We ap
proached the land with a respect for the land. We approached the home
that was going to be placed on the land with a feeling that a home should
belong to the land and should fit into it. We also felt that we shouldn't
slice off the mountain to put a flat piece of house on it, we shouldn't
build up a mountain in order to get a high view, but we should roll with
the punches and design with what God gave us and see how it turned out
in the end. In this particular case, it turned out rather well.
This type of approach in Wilkes-Barre is the most natural thing
in the world. The one thing that you have least of, in the undeveloped
areas, is flat land. In these rolling contours this type of approach is
the easiestwayto develop good subdivisions andto develop communities
that people will be proud of. In order to approach either subdivision
planning or renewal, one thing is of the utmost importance: the realiza
tion that the old laissez-faire philosophy of our country no longer exists
in the construction industry nor should it be allowed to exist in the con
struction industry.
In a discussion with Wilbur Shorts justbefore lunch, he told me of
the amount of work the members of the local home builders group are
doing with the various planning agencies. This is a very good move.
It is indicative of the fact that we as builders realize that we are exist
ing and working within a competitive framework.
Butin any industry, and especially in the building industry, if you
allowit to operate under its own standards and withonlyits own controls,
the tendency under strong competition is that every one reduces down
to the lowest denominator. Everyone is forced by competition to the
operating standards and techniques of the most marginal and the poorest
of buildings. The net result of this condition is there must be zoning,
planning, and building codes. The communities must assume leader ship
in planning ahead of the growth program so that newly developed neigh
borhoods are protected in their creation as well as in the future. Also,
the aesthetic pattern created is something known in advance.
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Therefore, the interaction between the builders and the planners
on the question of setting up zoning standards and zoning regulations
and planning commissions in this area is most important in protecting
the nature of the communities that will develop. But there is a second
factor that I would like to dwell on, and that is the question of the City
of Wilkes-Barre itself.
Obviously there are not likely to be any subdivisions or any exten
sive amount of single-family building because of the lack of land. In
the City of Wilkes-Barre there is a wonderful opportunity for a renewal
and a redevelopment which does not exist in very many places.
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: Firstly, the people are not under the pressure of a terrific hous
ing shortage which exists in so many other areas that are impacted
either by new industries coming in or by general growth problems de
veloping all around them. You are not forced to operate in a situation
where it is practically impossible to relocate one family while you tear
down buildings and make room for a renewal program. You can work
more calmly, and you can work more leisurely.
Secondly, you have a much broader area in which to operate be
cause there is a spread in many different sections of the community of
the residue of old periods of housing that goes back into the nineteenth
century. You have a broader program of work and a broader approach
to community renewal than exists in most communities.
There has been a tendency in many of the renewal programs in
our area to accept the economics of the program as the major factor,
or to forget what the community is going to look like after the old one
has been torn down and the new one erected. This could become one of
the greatest crimes of history.
The renewal program so ably described by Mr. Walker gives us
an opportunity which we may have only once in a lifetime. In the re
development of some of the depressed areas, the end result produces a
new spirit of vitality through its architecture, through its social orien
tation, and through the attitude of the people who are going to live there
or work there. This new spirit of vitality is a combination of planning
consultant, architect, builder, and community leader, and it breathes
new life into the community.
This spirit of vitality is not a drab low income housing project,
or a drab middle-income housing project, or a drab F. H. A. project,
or a new factory. It is possible for this community because of the num
ber of tools available in federal housing, and in grants of one sort or
another. It is possible for this community to come out with an end re
sult that would produce a vital Wilkes-Barre. I am sure this is the in
tent and desire of this assemblage.
But this means that you must
approach renewal with that spirit, you must get your architects working
with it, and you must go down to some of the agencies already mentioned.
We had the pleasant experience in New York recently of telling the gen
tleman in the agencythat if we have to produce bad architecture because
he wanted a $27. 00 rental and would not accept a $27. 50 rental, then
either the regulations would have to be rewritten or he would have to
find another developer. We were extremely happy to find that the regu
lations were rewritten. To be accused of bad architecture in a govern
mental agency is almost as bad as being a personal friend of Billy Sol
Estes.
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�Let me conclude with this statement. This group, obviously,
represents the higher echelon of the spirit of Wilkes-Barre. If the
feeling that has been expressed in this Community Growth Conference
is indicative, and there exists the possibility of this spirit filtering
down to the people, then tremendous things can be done. They cannot
be done unless this spirit filters down to the people. Accomplishments
cannot be made unless they become something that the people demand.
The statement made concerning the rejection of poverty, medioc
rity, and drabness is something that the entire community has to feel.
When they feel it, a dynamic political leadership is created, and with
dynamic political leadership the results in renewal programs, in com
munity growth programs, and in generally achieving the ends that people
have been searching for are usually tremendous.
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�WHAT THE INDIVIDUAL CAN DO TO PROMOTE
COMMUNITY GROWTH: CITIZEN ACTION
by
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Edwin H. Folk, Executive Director
Citizen's Council on City Planning, Philadelphia
The topic of this session is what the individual can do to promote
community growth from the aspect of citizen action. Frankly, the indi
vidualcan do very little to promote if he remains an individual, strikes
out on his own path, avoids contact with others, avoids organization,
and avoids getting into situations where he may have to sacrifice some
of his own individuality for a better organized approach to the problems
of community growth. For example, there was a supreme court deci
sion in New Jersey not too many years ago in which a township zoning
ordinance was thrown out because it had established a rather large mi
nimum lot size for lots in new developments. In fact, the minimum lot
size was larger than the largest lots than in the township.
The court
simply could not understand why the residents of this township felt
themselves so inadequate that they had to have only better people there
in the future. There is a lesson in that.
Although I have been executive director of the Citizens' Council
on City Planning in Philadelphia for only six months, the organization
is known nationally as one of the truly responsible and effective citizen
organizations for urban planning in the country.
I cannot take credit
for this, it belongs to my predecessor Aaron Levine, whom many of
you may have heard before.
It would be possible to discuss the or
ganization at great length.
It represents the work that has been done
over the past 20 years by some of the outstanding citizens of Philadel
phia (and some of the not so outstanding citizens) who have devoted
time and effort to promoting a better under standing of community planning--what it is about, how it is done, and the necessity for rapping
the knuckles of those planners who sometimes get out of line.
There are some lessons in the Philadelphia experience that are
worthwhile noting and I would like to mention just a few of them to you.
First of all, when the Citizens' C ouncil on City Planning in Philadelphia
was organized in 1943, Philadelphia was perhaps the least respected
major city in the United States. I had just come from Youngstown, Ohio,
where the vaudeville actors used to announce that the first prize would
be a week's vacation in Youngstown, and the second prize would be two
weeks' vacation in Philadelphia.
These gags would not mean much in
Philadelphia any more, because people are demanding of their govern
ment a better level of service, they are demanding of themselves a
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�higher level of performance, and they are demanding of their planners
answers to their problems instead of panaceas--beautiful pictures and
the like.
In 1943 a group of young lawyers organized a small group whose
sole purpose at the time was to get a planning commission organized
and to see that the planning commission was adequately staffed and had
an adequate budget. This was not an easy job. These men, who were
probably called young radicals or something of the sort, faced a very
difficult situation--government in Philadelphia was at an all time low
ebb. The city was disorganized, public services were at an extremely
low level.
While industry had not yet moved out, it could hardly wait
until the war was over and materials were released so that it could move
to the suburb or the south or anywhere but Philadelphia.
This group
found that it had remarkable success in getting established as an ade
quate planning commission in about six months.
It also had what was
considered at the time a substantial budget.
Having accomplished their immediate goal, the fir st reaction was:
Now that that job is finished, let's do something else and not worry about planning. Some of the more intelligent members felt that if a citi
zen organization is to be effective, and if planning itself is to be effec
tive, citizens cannot simply set up a planning agency and then ignore it.
The planning agency, particularly in the 40's (even today if we scratch
very deeply), was considered just a little bit foreign to our traditional
concept of government. Here are specialists who are telling us what is
wrong with us, who are giving us guidance on what we should do, or who
are pushing us around. Although it receives much lip service, we still
do not like the term planning when we are given the pinch.
This group decided to organize a program of trying to continually
explain to the public what planning is about; trying to carry through to
community organizations the work that the planners were doing; and
explaining the work in order to make planning a real and vital issue in
local communities.
Basically, the approach was to take to city hall
community groups which had planning problems, and to take to the com
munity groups the city officials who were doing the planning.
In 1952, approximately nine years after the city planning agency
came into being, there was a great change in the government of Phila
delphia.
A group of young and rather vigorous men came into office
with ideas of how government should be operated, and how planning
should be done.
These people brought in to the city a top flight group
of city officials who were recruited from wailing cities across the coun
try that had lost their traffic engineers, water department heads, and
the like to Philadelphia.
In addition, the new home rule charter was
adopted. Thus, in 1952, Philadelphia government was brought into the
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�twentieth century for the first time.
The planning effort was taken out
of the purely physical, beautiful and picturesque civic center design
school of planning and placed into active planning.
One of the major accomplishments in the 1952 charter amendment
was the establishment of our capital program and our capital budget.
Today we have a very highly developed system of capital budgeting for
a six-year period which tries to guarantee: that the government re
sources are used properly; that we get the improvements we need when
we need them; that the extra luxuries are brought along in reasonable
time and are provided only when they appear to be essential.
One of the key factors in the effectiveness of the city planning
operation and of the capital program has been an effective continuing
review of the capital program itself.
Each year the Citizens' Council
holds a series of 40 to 100 luncheon meetings during the summer months
at which we review every project that is proposed for construction in
the city of Philadelphia for the coming six years.
This normally re
quires that the citizen members work extremely hard going out to the
community to find out what these projects are and what effects they will
have on the city.
In pulling together the eventual report they become,
as the mayor of Philadelphia says, the city council's secret weapon or
number one weapon to use against the planners.
We start out promoting planning
Here we have gone full circle,
and we end up criticizing planning,
This is another aspect of citizen
organization. Although you begin by promoting planning, if you are not
careful, the planning operations may grow further and further away
from the real problems.
As a result citizen organizations become
critics, promoters, and educators in the field of planning.
The expe
rience in Philadelphia is one that may or may not be generally appli
cable throughout the country.
All cities do not have a citizens' council on city plannihg, since
not every city needs one.
Every city does need an organization made
up of individuals, of community organizations, neighborhood associa
tions, garden clubs, civic leagues, the business community, and in
dustrialists. This organization is to promote an understanding of plan
ning, to criticize plans that are made, and to point the way to the plans
that are needed in the community. Specifically, there are a few things
that could be done by an individual who is interested in theproblemof
community growth, community development, and community planning
and who feels that citizen organization is an answer to this problem.
There are a few things that our organization has learnedthat I
would like to pass on to you. First of all, it is absolutely essential that
people who become involved in a citizen's organization learn aboutthe
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real problems of the city.
A typical citizen's organization is usually
started to oppose something or when something is going wrong.
How
many citizen organizations do you know that have been started to fight a
shopping center in a residential district or to oppose the development of
a new subdivision of so-called substandard homes or a garden apartment
. project? This is normally the way citizen organizations get started and
this is normally the reason that they do not get very far. It is very
difficult to keep up steam against something. Sooner or later the deci
sion is made on a basic issue that has brought the group together. The
organization then disintegrates unless it can get into the real problems
of the community and start learning about them. It is not an easy opera
tion, since it is not easy to learn what is going on in the community.
The one place not to go to find out what is going on in the commu
nity is the city planning office.
Planners are concerned today with
problems of the city as they see them rather than as they really are.
To learn about city problems, go to the planning director's office and
talk to him awhile and also talk to the planning commission. However,
concentrate more on the operating department heads of government
You may discover rather frightening things at this level: which sewers
flood when the rain is one-half inch, one inch, or two inches; how many
streets are unpaved in the poorer areas of town; and where police serv
ices are not provided after certain hours of the day because it is too
dangerous for the police to go in.
Then go to the politicians. There has been a tendency to overlook
the role of the politician right down to the precinct leader, and the ward
leader, overlooking the knowledge they have of the localized community
problems. We tend to forget that the politician cannot live very long on
theory. He has to do something that not many of us would like to do very
often, and that is have our selves voted on every four years or every two
years, depending upon the election period, Think about that for a while.
Would you every two years want to have your name put up for approval
or disapproval? It is a tough proposition and as a result these people
know a lot about their community. They may not have a broad view, but
they do have a depth view of specific immediate problems.
After you have consulted with the city officials and the politicians,
go to organized community groups and to the neighborhoods.
Find out
what they feel their problems are. Talk to people.
You will probably
finda much higher degree of sophistication and knowledge of real prob
lems in your community than we professionals have a tendency to be
lieve the public has.
lems,
large.
After you have devoted all the time you can to studying the prob
organize.
Organize yourself into a civic group, be it small or
Discuss your problems with others. You will soon find that you
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are not alone in this--there are many of these organizations.
Every
where you turn there are groups thinking and studying problems.
The
danger in this is that there are many groups that are discussing prob
If you find a feeling in your community
lems without studying them.
that problems must be solved and that your approach is not being used
by the government and planners, organize a citizen's committee for
planning and development. As you do this, be sure it is not all people
There is a great temptation to set up a group in which
like yourself.
everyone agrees with everyone else, There is nothing more futile than
this kind of group.
The strength of the Citizen's Council on Planning in Philadelphia
lies in a group cross-section of our community.
We are dominated by
no single group. We have achieved a balance of industry representation,
a surprising group of professionals who are interested, including plan
ners in and out of government, community workers, social worker s, and
just plain interested citizens.
When the group is assempled, try to get adequate technical staf
fing. This costs money. Where are you going to get the money that you
need to carry out this program without selling out your soul to those
who give the money? This is not an easy job, but a formula can be
found.
A typical approach used in most cities in the early days is to try
to get money from Red Feather agencies, United Fund, or groups of that
type. Quite often they show an interest in this kind of activity.
But in
the city I just left, Youngstown, Ohio, we were able to raise a fund of a
quarter of a million dollars for such an organization in the period of two
months without any solicitation. We wondered what would have happened
if we had asked people for money.
They are on a second drive now to
see what will happen.
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Finally, when you are organized, set your goals. Know what you
want to do, demand the highest level of performance from yourself.
Sound programs of community development do not filter down to the citi
zens. They start at the citizen level and work their tortuous way up to
the government officials who are often slow to react to community lea
ders and who have too often refused to react to the problems that con
front them day by day.
Unless individual citizens in a community are
informed, alert, agressive, and willing to work, programs developed
at the top are going to look great only on paper.
As such, they will
provide an excellent record and the historians of the future on the fu
tile efforts that many of our cities made to save themselves in this won
derful decade of the 60's.
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INTRODUCTORY REMARKS
Dinner Session
Andrew A. Hourigan, Jr., President
Greater Wilkes-Barre Chamber of Commerce
Once again, the Chamber of Commerce is more than happy to
Not only to act as
participate in the Community Growth Conference.
sponsor s, but also to have a large representation of our membership
participate. Since the Fir st Annual Community Growth Conference, the
Chamber has continued, with renewed vigor, to seek a healthy, diver
sified economy.
Most everyone is familiar with the term Community Growth.
Today we have identified and discussed a few of the many aspects of
the problems involved.
The topic of the speaker this evening pro
vides a springboard for summarizing many of the ideas discussed today,
since emphasis must be placed upon teamwork.
Our speaker is eminently qualified to discuss this approach. He
has spent quite a few years in the field of urbanrenewal and redevelop
ment. He has been able to observe community growth from the point of
view of a representative of citizens' organizations, and from the local,
regional, and state governmental levels. His observations are bound to
be worth noting, since they stem from a wide area of experience.
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COMMUNITY GROWTH: A PARTNERSHIP
by
John P. Robins, Executive Vice-President
Old Philadelphia Development Corporation
One of the things that strikes anyone looking at the world round
about is the rapidity of change in our times. We see great cities in ef
fect change their face before our very eyes.
Areas which were fami
liar are suddenly razed and rebuilt. Great industries, which were once
a reliance economically of millions of people, suddenly become sub
sidiary reliances and are even sometimes pulled right out from under
us. We see a shifting in the economy, a shifting in the areas of growth
within our state, within our nation and it happens with amazing rapidity.
Another thing, we see these amazing technological changes which come
one upon the other.
It took generations to get us from the steam en
gine to the piston engine.
Now, in a few short years, we leaped from
the rocket to outer space in what seems like yesterday.
We find, then, that one of our great problems is our organiza
tional ability, our sociological ability, and our psychological ability
to adjust has to be speeded up to accommodate these changes.
Obvi
ously, we sometimes have the changes upon us before we have either
foreseen them or before we really understand their effects. Therefore,
there is a greater need for speed, a greater need for comprehension, a
greater need for technical skills, and a greater willingness to do new
things, to try new things, to take many calculated risks that perhaps we
would have been unwilling to accept more than a few years ago.
We also see in the world about us phenomena new in our time of
increasing urbanization. Of course, you have a great urban community,
yet you are sometimes unaware of it.
Certainly the census figures
don’t quite illustrate it. Actually, Lackawanna County, Luzerne County,
Schuylkill County, and Northumberland County form very much of a
metropolitan urban center although it is fractionated in many, many
municipalities.
That is true in the Philadelphia and the Pittsburgh
areas as well. The core city tends either to be stable in population or
lose population while the growth spreads in a great concentric ring
around it. Philadelphia for instance has only two million people now in
its core city and more people than that in the eight counties which com
prise its metropolitan region. And this phenomenon of urbanism is not
one that is restricted to the United States.
In fact, we are probably
more able to cope with the change than many other nations across the
world.
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The countryside in so many places is being virtually depopulated
and the drift of the unemployed, the unemployable, and the marginally
employed to great city centers is one of the dangers and difficult phe
nomena of our times. I grew up thinking that Mexico City, the capital
of the repulic of Mexico, was a city like Pittsburgh of about six or
seven-hundred thousand people.
A look at the present figures indi
cates six million, with one-eighth of the population of that entire nation
now concentrated in the one city of Mexico and in the federal district
which surrounds it.
In Calcutta, India, another phenomenon among
cities, the people come in from the countryside to the point where half
a million people actually have no homes and live in the streets home
less.
But in that tropical climate they are somehow able to endure-they don't live, they endure.
And you find this in Rio de Janeiro, you
find it in the cities of even more developed countries like Canada where
the growth is in Montreal and Toronto, the metropolitan centers, while
the rest of the country largely remains only stable, if that.
So we have a phenomenon that is international and therefore ap
plies to all human kind. And the question is: what can people do about
it? What can you do to anticipate change, what can you do to work
against the future, what can you do to try to meet the challenges of
this very complicated society which often seems to be slipping out of
human control?
The evidence is that people can do a great many things, in fact
the evidence right here in Wyoming Valley tends to prove that, A hundred years ago an observer who came to this valley would have said
that it lived on coal, on anthracite coal.
The only reason that it had
become developed and thickly populated with a million people was be
cause of this great storage of energy that took place so many millions
of years ago and was suddenly a profitable item for human use. If this
energy had not been stored under these folds of hills, then perhaps this
would have been a region of limited population, of small country towns,
of marginal hill farming, of timber something like our Poconos, or
something like the country in Sullivan Country to the west of you which
was never really thickly populated. But because of this great resource,
an urban civilization grew up around it.
Thenover a period of time this great resource slips out and what
happens? A hundred years ago what would have happened probably is
that the valley and the area, having been, deprived of its economic base,
would have simply over a span of time largely disappeared as a center
of population. Under this stern economic compulsion of unemployment,
the lack of funds, the lack of resources, out-migration would have
And you can
seemed to be the thing, and it would have slipped back,
The famous Virginia City, Nevada,
see it in western mining camps,
or in the Sierras in California, which were places in the gold rush
where ten-thousand people lived, are now shacks, ghost-towns, nothing
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left.
And that could have happened here.
However, today we now have a highly organized society which re
fuses to let such things happen again in our times.
And by the energy
of the people here, by the investment which was made here by them,
by the accumulated resources that were husbanded over the years, by
the diversification that took place, by the vast amount of state and
federal funds, drawn from the whole fabric of our society, that comes
in various forms such as public works, public employment, unemploy
ment compensation, soldiers' dependency benefits, and public assis
tant grants, a whole stratum is put under the economy which prevents
total collapse or prevents the classical kind of change. Instead it gives
And that is
you breathing time, it gives you living time to rebuild.
what you have done, and done most successfully under very great dif
ficulties.
The point would be, however, that this is a continuing problem
and while the problem in this area has been an older one, it is not a
problem, unfortunately, in any way unique nor will it be unique in the
future.
Cities like Pittsburgh, for instance, or Detroit had been the
symbols for heavy industry which have almost been the monuments of
our society--wealth, strength, and vigor.
Today they are faced with
an analogous problem. Steel, automobiles, and the other things which
we make and could make in great volume no longer require the labor
force that they once did. Consequently, even the Pittsburgh district or
the great city of Detroit is faced with an economic change that it will
have to come to grips with.
We have seen these shifts in our own time, and they are veryreal.
What can you do about the thing? One, you can try to anticipate. That
doesn't often happen. Being human beings, we are only concerned with
what happens next week, what happens next month, and perhaps what
happens next year.
People in public office and people in private busi
ness like to make the best of what they have rather than foresee the
worst.
The result is a tendency to some drift and some acceptance.
"We'll meet that issue when we come to it. " And so you can't com
petently predict that people will always anticipate their troubles. Nor
mally we wait till the troubles are at least largely upon us before we
are compelled into action.
But we have found that there are very good bases for action. By
bringing together the full strength of local government, state govern
ment, federal government, private enterprise, and people who feel and
believe and understand what is almost a mystic of working these things
together, then you can overcome these changes just as rapidly as they
come upon you.
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The whole history of evolution has been simply this--in the long
history of the world many, many species have arisen,, accommodated to
an environment, and when the environment changed, that species be
came extinct. That is why we have no more dinosaurs, that is why we
have no more mammoths, that is why we have no more flying reptiles
and many other things that once inhabited the earth. Conditions changed
and they could not change.
Today the fundamental law is that this is a period of great change.
When the times change, we must learn how to change with them and
change very rapidly. Now we do that in two ways. One is by knowing
that we can change our environment. In other words by realizing what
more advances are to come and what can be done with them, then by
setting about in common energy and common alliance to do something
with them.
I can give you a recent example.
For many, many years, the
Delaware River to your east has been divided by the states of New
Jersey, New York, Pennsylvania, and Delaware.
There was no co
ordination in its development.
Many people realized that much more
water would have to be husbanded although we were husbanding water..
The watershed should be improved and made clean by stopping pol
Also, we had great recreational resources that we weren't
lution,
using, and we had great industrial potential in this raw material--this
We had floods in the spring and hurricanes in the fall which
water,
caused loss of life and millions of dollar s in property damage. And yet,
by our weaknesses in our governmental and social fabric; by disputes
between Philadelphia and New York State; by disputes in the Pennsylvania
and New Jersey legislatures; and by disputes between the people who
thought that the federal government ought to be kept out and the people
who thought it ought to come in, nothing really was accomplished and
the drift that had occurred over generations continued.
Finally, we learned something.
We learned that it was possible
to bring the four states of this valley into a common agreement and we
learned that the states should not regard the federal government as an
enemy or as an opponent.
We learned that the federal government
should not regard the states as inefficient, incapable, or unconcerned
with the public interest.
As a result, in an amazingly short time (due
to very good leadership in the four governors' offices, in the Secretary
of the Interior's office and in Congressman Walter, Senator Clark, and
Senator Scott) we were able to get a compact through which binds us
all together for the next hundred years.
Then, by almost automatic
renewal, we will perpetually develop this resource and make it a great
asset to the areas which it is by nature created to serve.
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Incidentally, we are about to do this very same thing in WilkesBarre.
Mayor Slattery has been very active in this and so has Con
gressman Dan Flood.
We are about to attempt the very same thing on
the Susquehanna.
The Susquehanna is the largest undeveloped great
river valley water resource in the eastern United States.
And if you
take a map of Pennsylvania, and superimpose on that map the areas of
chronic unemployment, the areas of least economic development, the
areas with the most economic problems, it almost follows the Susque
hanna Valley north of Harrisburg with the exception of a small area
Now we are
around Pittsburgh, the Johnstown-Uniontown district,
about to put together the same kind of an interstate federal compact with
Its purpose will be the developsome variations in detail and form.
ment of this river valley, the purification of the water, the utilization
for flood protection, and development of the recreation potential, just
as we did in the Delaware.
Next month, the representatives of Penn
sylvania, New York, and Maryland will be meeting to take the first
real steps toward actually writing a compact agreement between the
states and the federal government.
If we have the same under standing, the same knowledge, the same
willingness to understand other peoples' needs and points of view, I see
no reason why that compact can't just whip through the legislatures and
whip through the Congress. It can be an established entity serving the
peoples of this valley again for human perpetuity.
And that can come
about if you people, and people like you throughout this valley, under
stand it and support it and make your thoughts known.
In the Susquehanna Valley we have a somewhat different situation
It is a very interesting one from
than we had in the Delaware Valley.
a technical point of view--the Susquehanna is an undeveloped river.
The Delaware is perhaps an overdeveloped river in the sense that the
population of its valley is the most dense in the United States. It serves
New York City for water supply--one third of its water supply comes
from the Delaware.
It serves Philadelphia and some twenty-two mil
lion people depend on that relatively small river with its basin of twelve
thousand square miles for the most essential element for existence
next to the air we breathe. In the Susquehanna we have a great surplus
of water.
We also have a great surplus of opportunity.
By under
standing it, by planning for it, and by developing it we can create a
new potential, a new inducement for growth within this valley and all
the tributaries of the river.
This would mean a great deal to Penn
sylvania because 80% of that river valley lies within our boundaries.
This is just an example.
Great progress has been made in Pittsburgh by bringing the eco
nomic forces and the political forces of that city together.
The very
face, the whole appearance of the city, the growth of the city has been
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manifestly up-lifted and the end is not yet in sight.
If you would like
to come down to Philadelphia one of these days, I would like to show
you what the old Philadelphia Development Corporation is doing to make
a new Philadelphia. However, we are trying to husband the old. Phila
delphia is a unique city in the United States in that much of our colonial
life has been preserved there in memento.
We have buildings which
are real treasures today since they are two-hundred to three-hundred
years old.
We are trying to preserve them, giving to them a flavor
and from them getting a flavor and an interest which will be of concern
to all America.
But in the meantime, we are trying to remake the whole of center
city Philadelphia on a basis where we all understand whatwe are trying
to do. It is clearly outlined by the planning commissioner, it is known
by the city council, the citizens of the city know it, the business in
terests of the city know it, and the potential investor knows it.
We
are taking the area of center city Philadelphia, William Penn's old
town, from the Delaware Valley to the Schuylkill River and from South
Street to Spring Garden Street, which is thirty blocks east-west and
about a mile north-south.
This will be through a combination of city
funds, state funds, federal funds, funds derived from revenue bond
issues (those things that pay themselves out, such as parking facilities
and transportation facilities), and private investment. It is beyond any
question that we will have a billion six-hundred million dollars of in
vestment in center city Philadelphia in the next ten years. It is sched
uled, it is happening, and it is visible before you.
These things could end in panaceas. I wouldn't wantyou to believe
for a minute that the human condition is such that we will ever solve all
of our problems. Everytime we do something, we find another problem
that is there to solve from it. Pittsburgh, with its dramatic gold trim
angle, with its new development in its old district, with its famous arena
with the open roof, with the great growth of the University of Pittsburgh,
with the committed resources of so many great corporations that are
there, it still has before it the serious problem that it is enlarged and
has a shrinking of its economic base and of its employment base.
Philadelphia, with all the growth both in the city and in the suburbs,
has before it the problem of bringing into the full stream of the city's
life a population which is newly arrived largely from the south, which
is newly organized, which is not well educated, which does not have the
same skills per capita or per ratio as the population as a whole.
We
have to bring these people up with us to make a city, and this is per
haps the greatest urban problem.
So, you always have problems. If Wyoming Valley tomorrow had
full employment, if everybody here had a good job and good wages (as
we all want everybody to have), and if investment was coming and you
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�were booming, you would find then that you had the problems of growth
just as California does.
In other words, Governor Brown is going to
have a hard time in the next four years dealing with growth problems.
We have a problem in Pennsylvania of dealing with the problems of ad
justments to change and so do they.
So the human condition is such
that perfection and utopia are not to be found upon this earth.
But the
drive towards perfection and utopia we can find within ourselves as we
work to solve these complex, fascinating, and perfectly soluable pro
blems that are before us.
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Address
Position
Airey, Marion (Miss)
King's College
Wilkes-Barre, Pa.
Amann, Otto R.
Bureau of Community Development
Department of Commerce
Harrisburg, Pa.
Supervisor of
Special Projects
Arnold, Thomas
King's College
Wilkes-Barre, Pa.
Instructor
Ayers, Rev. Jule
First Presbyterian Church
Wilkes-Barre, Pa.
Clergyman
Ball, Edward
Wilkes-Barre Planning
Commission
Wilkes-Barre, Pa.
Director
Baltimore, David M.
W B R E - T V
Wilkes-Barre, Pa.
Vice President
Balz, Joseph
King's College
Wilkes-Barre, Pa.
Instructor
Barr, Edward P.
Chamber of Commerce
Shamokin, Pa,
Secretary
Barrett, Mary (Miss)
King's College
Wilkes-Barre, Pa.
Librarian
Bell, Mrs. George T.
League of Women Voters
Wilkes-Barre, Pa.
Bellano, William
Glen Alden Corporation
Ashley, Pa.
President
Bierly, George W.
Wilkes-Barre Center
Penn State University
Director
Bogdanoff, David
Jefferson Valley Corporation
Briarcliff Manor, N. Y.
Bogdanoff, Muriel
Jefferson Valley Corporation
Briarcliff Manor, N. Y.
�Bohinski, Al
Luzerne County Planning Commission
Wilkes-Barre, Pa.
Boyd, William W.
Security Mutual Life Insurance
Company of New York
Vestal, New York
Brockman, Stanley J.
Junior Chamber of Commerce
Wilkes-Barre, Pa.
Brotter, Marvin
Bellante & Clauss, Inc.
Scranton, Pa.
Burdon, Kenneth A.
Northeastern Pennsylvania
National Bank & Trust Co.
Wilkes-Barre, Pa.
Calinski, Peter
Bureau of Employment Security
Nanticoke, Pa.
Carmon, Raymond R.
Pennsylvania Economy League,
Incorporated
Wilkes-Barre, Pa.
Casper, Robert L.
Lewith & Freeman
Wilkes-Barre, Pa.
Comerford, Michael B.
Pennsylvania Department
of Commerce
Scranton, Pa.
Conners, W. J.
Bell Telephone Co.
53 Public Square
Wilkes-Barre, Pa.
Conyngham, John N.
Eastern Pennsylvania
Supply Company
Wilkes-Barre, Pa.
Corcoran, Richard P.
Bureau of Employment Security
Wilkes-Barre, Pa.
Corgan, Catherine
Osterhout Library
Wilkes-Barre, Pa.
Costello, Angelo (Mrs.)
League of Women Voters
66 Chestnut Street
Swoyerville, Pa.
Vice-President
Realtor
Librarian
�Cronin, Richard J.
Greater Wilkes-Barre
Chamber of Commerce
Wilkes-Barre, Pa.
Secretary
Csala, Gottfried P.
Northeast ChapterAmerican Institute of
Architects
54 Public Square
Wilkes-Barre, Pa.
President
Csala, Gottfried P. (Mrs. )
League of Women Voters
356 South River Street
Wilkes-Barre, Pa.
President
Cummings, Claire Hart
Greater Wilkes-Barre
Real Estate Board
Wilkes-Barre, Pa.
Secretary
Cummings, Robert H.
Bell Telephone Co.
210 Pine Street
Harrisburg, Pa.
Staff
Supervisor
Day, Asa L. Jr.
Scranton Chamber
of Commerce
Scranton, Pa.
Vice-President
Decesario, Angelo
King's College
Wilkes-Barre, Pa.
Dempsey, Jack
Wyoming, Pa.
Mayor
Demshock, M.
Hazle Township
Supervisor
Dietterick, Gordon S. (Mrs. )
Luzerne County Federation
of Women's Clubs
Kingston, Pa.
Diffendafer, John A. (Mrs.)
Dallas Junior Women's Club
R. D. #4
Dallas, Pa.
Dreier, Anthon B.
Redevelopment Authority---Nanticoke
37 North Market Street
Nanticoke, Pa.
Earley, C.A.
Pennsylvania Power and Light
Company
15 Water Street
Pittston, Pa.
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Eck, Frederick J.
Northeastern Penn. National
Bank &: Trust Co.
67-69 Public Square
Wilkes-Barre, Pa.
Vice- President
Edwards, Vivian P. Jr.
Northeastern Pennsylvania
National Bank & Trust Co.
Scranton, Pa.
Vice-President
Farley, Eugene S.
Wilkes College
Wilkes-Barre, Pa.
President
Gawat, Louis
Nanticoke Area Joint
School District
Tilsbury Terrace
West Nanticoke, Pa.
Gilbert, Walter J.
Pennsylvania Department
of Health
71 North Franklin Street
Wilkces-Barre, Pa.
Good, William
Bureau of Community
Development
Department of Commerce
Harrisburg, Pa.
Goodman, Mary T. (Mrs. )
League of Women Voters
R.D. #1 Plymouth, Pa.
Gothier, Robert U.
Scranton Redevelopment
Authority
202 Mears Building
Scranton, Pa.
Harter, George W.
Northeastern Pennsylvania
R. A. D. Agent
Penn State University
Courthouse
Tunkhannock, Pa.
Haydock, Nick
Pennsylvania State
Employment Service
13 East South Street
Wilkes-Barre, Pa.
Supervising
Sanitarian
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Luzerne County Planning
Commission
Franklin Federal Building
44 West Market Street
Wilkes-Barre, Pa.
Heiselberg, Edward (Mrs. )
League of Women Voters
70 Summit Road
Mountain Top, Pa.
Henry, William A.
Bureau of Employment Security
13 East South Street
Wilkes-Barre, Pa.
Hesser, Elizabeth
Osterhcut Library
Wilkes-Barre, Pa.
Hiscox, Harvey
Miner's National Bank
38 Maffet Street
Wilkes-Barre, Pa.
Hodgson, Ray
Pennsylvania Power & Light
Company
Wilkes-Barre, Pa.
District
Manager
Hourigan, Andrew Jr.
Chamber of Commerce
Wilkes-Barre, Pa.
President
Ireland, Bill
Luzerne County Planning
Commis sion
44 West Market Street
Wilkes-Barre, Pa.
Jenkins, Stanley G.
Bell Telephone Co.
53 Public Square
Wilkes-Barre, Pa.
Jones, Loren E. (Mrs.)
Woman's Club
103 Luzerne Avenue
West Pittston, Pa.
Justin, John
I. L. G. W. U.
6 South Washington Street
Wilkes-Barre, Pa.
Kahn, Lawrence
I. L. G. W. U.
6 South Washington Street
Wilkes-Barre, Pa.
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Director of
Planning
Heiselberg, Edward
Head Librarian
President
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Kanarr, Betty
61 West South Street
Wilkes-Barre, Pa.
Realtor
Kazmerski, Sylvester
Scranton Chamber of Commerce
Chamber of Commerce Building
Scranton, Pa.
Secretary
Kluck, C. R.
Pennsylvania Department
of Health
383 Wyoming Avenue
Kingston Pa.
Kramer, Horace E. (Mrs. )
League of Women Voters
YWCA
Wilkes-Barre, Pa.
Krauss, George M. (Mrs. )
Wilkes-Barre YWCA
40 W. Northampton Street
Wilkes-Barre, Pa.
Kresge, Martha Patras (Mrs. )
League of Women Voters
91 Tripp Street
Forty-Fort, Pa.
Krimmel, W. H.
Dallas Township
Laux, Robert W.
Robert W. Laux Agency
Realtor s -Insurance
First National Bank Building
Wilkes-Barre, Pa.
Lechman, Thomas E. , III
Luzerne County Redevelopment
Authority
560 Miners Bank Building
Wilkes-Barre, Pa.
Chairman
Lex, Louis, Jr.
Pennsylvania Department
of Commerce
Harrisburg, Pa.
Regional
Representative
Line, Marie C.
League of Women Voters
Wilkes-Barre, Pa.
Loughlin, John (Mrs. )
Committee on Education
Plymouth Civic Club
Center Avenue
Plymouth, Pa.
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Chairman
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Kubinski, William R.
Redevelopment Authority of
the City of Nanticoke
37 Market Street
Nanticoke, Pa.
Meixell, Carrie (Mrs.)
Deague of Women Voters
137 Carey Avenue
Wilkes-Barre, Pa_
Meunch, Mary (Mrs.)
Tom Hart Real Estate
Re: Claire Hart Cummings
Wilkes-Barre, Pa.
Milton, Harry
I. D. G. W. U.
6 South Washington Street
Wilkes-Barre, Pa.
Montz, Curtis (Mrs. )
Junior Deague of Wilkes-Barre
58 East Vaughn Street
Kingston, Pa.
Nash, H. D.
Penn. Power & Kight Company
600 Darch Street
Scranton, Pa.
Niehoff, Walter H.
Penn. Economy Deague Inc.
706 First National Bank
Wilkes-Barre, Pa.
Morris, DavidS. (Mrs.)
Plymouth Women's Civic Club
Plymouth, Pa.
Nesbitt, Abram (Mrs.)
Nesbitt Hospital
Dallas, Pa.
O'Hara, James E.
Redevelopment Authority
Hazleton , Pa.
O'Hara, Vincent T.
Chamber of Commerce
Pittston, Pa.
O'Karma, Henry
Redevelopment Authority
Wilkes-Barre, Pa.
Executive Director
Olszewski, Peter Paul
Redevelopment Authority
Wilkes-Barre, Pa.
Solicitor
President
President
Member
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Otto, Herman L.
Community Research Center
Wilkes-Barre, Pa.
Director
Park Oliver
First National Bank of Boston
Boston, Mass.
Coordinator of
Urban Renewal
Paterson, Sally (Mrs.)
Tom Hart Real Estate
Re: Claire Hart Cummings
Wilkes-Barre, Pa.
Patterson, Irvin C.
Redevelopment Authority
Nanticoke, Pa.
Executive Director
Pediggo, Josephine
Osterhout Library
Wilkes-Barre, Pa.
Librarian
Peters, Fred J.
Bureau of Employment Security
49 South Main Street
Pittston, Pa.
Manager
Pfeiffer, Mildred (M.D. )
Planning and Evaluation Division
Department of Health
Harrisburg, Pa.
Director
Reynolds, Joseph III
Glen Alden Corporation
Ashley, Pa.
Attorney
Riso, Adrian
W B R E - TV
62 South Franklin Street
Wilkes-Barre, Pa.
Program Director
Robins, John P.
Old Philadelphia Development
Corporation
Philadelphia, Pa.
Executive
Vice-President
Roche, Rev. Frank CSC
King's College
Wilkes-Barre, Pa.
Instructor
Rodda, Paul M.
Society of Architects
11 West Market Street
Wilkes-Barre, Pa.
Rhodda, Paul M. (Mrs.)
Junior League of Wilkes-Barre
Dallas, Pennsylvania
Public Affairs
Chairman
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Roth, Dick
Luzerne County Planning Commission
Franklin Federal Building
Wilkes-Barre, Pa.
Roushey, Ray E.
Roushey, Smith & Miller
Engineers and Architects
Engineer
Savage, William
Glen Alden Corporation
Ashley, Pa.
Real Estate
Agent
Schmitt, Carl J. Jr.
Planning Commission
Wilkes-Barre, Pa.
Member
Schrey, Ralph
Luzerne County Planning
Corqmission
Wilkes-Barre, Pa.
Senior Planner
Shaffer, Louis
Bennett Building
Wilkes-Barre, Pa.
Attorney
Shapel, Col. Louis
Glen Alden Corporation
Ashley, Pa.
Vice-President
Shedlarski, Joseph G.
Shedlarski-Son Builders
Forty Fort, Pa.
Builder
Shoemaker, John
Planning C ommis s ion
Wyoming, Pa.
Member
Shorts, Wilbur L.
Home Builders Association
Luzerne, Pa.
President
Sieskb, Joseph P.
Chamber of Commerce
Nanticoke, Pa.
Sites, Edwin A.
Redevelopment Authority
Pittston, Pa.
Smith, Leroy A.
Housing and Home Finance
Agency
Urban Renewal Administration
Solfanelli, Guy A.
Bureau of Employment Security
13 East South Street
Wilkes-Barre, Pa.
Executive Director
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Sunder, M.
Hazle Township
Vacante, Frank
King's College
Wilkes-Barre, Pa.
Walker, David M.
Walker & Murray Associates, Inc.
Chamber of Commerce Building
Philadelphia, Pa.
Watte, Norman W.
Human Relations Commission
Fidelity Bank Building
Chester, Pa.
Weller, Lester W.
City Hall
Shamokin
Westgate, Paul
Redevelopment Authority
Wilkes-Barre, Pa.
Wicks, Edward B. (Mrs.)
Luzerne County Federation of
Women's Clubs
West Pittston, Pa.
Wisnewski, Frad(Mrs.)
93 Maltby Avenue
Swoyerville, Pa.
Wood, Walter C.
City Schools
Wilkes-Barre, Pa.
Superintendent
Young, George (Dr.)
Surface Process Research and
Development Corporation
Dallas, Pa.
President
Ziegler, Robert C.
Pennsylvania Economy League
Wilkes-Barre, Pa.
Research
Associate
Supervisor
Mayor
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Van Keuren, Charles Jr.
Pennsylvania Power & Light
Company
Hazleton, Pa.
Williamson, J. R.
Carbon County Planning Board
Weatherly, Pa.
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REGISTERED BUT NOT IN ATTENDANCE
Name
Address
Position
Bigler, Tom
W N E P - TV
Scranton, Pa.
Blier, Bernard
Northeast Pennsylvania Industrial
Development Commission
Scranton, Pa.
Executive
Director
Boltz, Edward J. Jr.
Miners National Bank
Wilkes-Barre, Pa.
Vice-President
Brominski, Bernard C.
Luzerne County Court of
Commop Pleas
Swoyerville, Pa.
Judge
Darte, Alfred
Wilkes-Barre, Pa.
County Assessor
Golden, Gene E.
Lackawanna County Planning
Commission
Scranton, Pa.
Member
Jacoby, Milton
67 5 Wyoming Avenue
Wyoming, Pa.
Planning
Commissioner
Lip ski, Joseph
23 Third Street
Wyoming, Pa.
Planning
Commission
Meixell, William (Mrs.)
League of Women Voters
Wilkes-Barre, Pa.
Payne, Marion
Wilkes-Barre, Pa.
Price, Ethel A.
Wilkes-Barre, Pa.
City Commissioner
Ruckno, George L.
Home Builders of
Luzerne County
Forty Fort, Pa.
Builder'
Slattery, Frank
Wilkes-Barre, Pa.
Mayor
Sordoni, A. J. Jr.
Sordoni Enterprises
Forty Fort, Pa.
62580
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Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
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Institute of Municipal Government and Institute for Regional Affairs
Date
A point or period of time associated with an event in the lifecycle of the resource
1958-1980
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Wilkes University retains copyright of these publications.
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PDF
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Publications
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Proceedings Second Annual Community Growth Conference, 1962
Creator
An entity primarily responsible for making the resource
Institute of Municipal Government
Date
A point or period of time associated with an event in the lifecycle of the resource
1962
Format
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PDF
Type
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Publication
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Information about rights held in and over the resource
Wilkes University retains copyright of this publication.
-
https://omeka.wilkes.edu/omeka/files/original/3598dd8ff2802917a6b88a48e710be9f.pdf
799ded5a317d70339cdf6b10f443effd
PDF Text
Text
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CIVIL SERVICE
RULES AND REGULATIONS
FOR
FORTY FORT,
PENNSYLVANIA
1963
Institute of Municipal Government
Wilkes College
Wilkes-Barre, Pennsylvania
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Secretary - The Secretary of the Police and Fire Civil Service
Commission of the Borough of Forty Fort, Pennsylvania.
Borough Secretary - The Secretary of the Borough of Forty Fort,
Pennsylvania.
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ARTICLE II.
201.
THE COMMISSION
Officers.
The Police and Fire Civil Service Commission
of the Borough of Forty Fort, Pennsylvania, on the first Monday of each
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even numbered year, shall elect one of its members as the Chairman,
one Vice Chairman, and one as Secretary. (If the first Monday is a le-
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gal holiday, the meeting shall be held the first day following. )
202.
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Dutie s of Chairman.
The Chairman, or in his absence,
the Vice Chairman, shall preside at all meetings and hearings of the
Commission, decide all points of order or procedure and perform any
duties required by law or these rules.
In the absence of a member,
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temporary assignments shall be made by the Commission member pre
siding.
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203.
Duties of Secretary.
The Secretary shall carry on at the
direction of the Commission all official correspondence of the Commission, send out all notices required by law and these rules of procedure,
keep a record of each examination or other official action of the Com
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mission, and perform all other duties required by law, by these rules
and by the Commission.
204.
Meetings.
Except for the biennial organization meeting,
all meetings shall be held either at the call of the Chairman, or at the
call of two members of the Commission.
At least seventy-two (72)
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hours written notice of each meeting shall be given each member.
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Commission shall have the discretion to determine whether meetings
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The
�shall be open to the public except that no rule or
regulation of the Com-
passion shall be adopted at other than a public meeting, and except when
otherwise provided for in these rules.
205.
Quorum.
A quorum shall consist of two members, and all
actions of the Commission shall have the concurrence of at least two
members.
206.
Order of Business.
The order of business of all meetings
of the Commission shall be as follows:
(a) Roll Call
(b) Approval of minutes of previous meeting
(c) Communications and Reports
207.
Minute s.
The Secretary shall keep minutes of the Com-
mission's proceedings showing the vote of each member upon question,
, indicating such 'fact.
or, if absent or failing to vote
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ARTICLE III.
301.
APPLICATIONS
Applications Form.
No person shall be admitted to an
examination for a position in the Police or Fire Department of the Bor-
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ough of Forty Fort, Pennsylvania, until after he shall have filed, on the
official form prescribed by the Civil Service Commission, a sworn ap-
plication giving such information as the Commission may require. The
official application form and all potation, references, and statements
appearing in it are incorporated by reference into these rules and reg-
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ulations and shall be as much a part of these rules as if they were fully
described herein.
302.
Availability. Application forms shall be available to all
interested persons in the office of the Borough Secretary, and from the
Secretary of the Civil Service Commission.
303.
Age Qualifications.
At the time of application, no appli-
cant for any position in the Police or Fire Department shall be less
than twenty-one (21) years of age, and no applicant for the position of
patrolman or fire truck driver shall be more than forty (40) years of
age.
Each applicant shall present satisfactory evidence of his date of
birth.
304.
General Qualifications-All Applicants. Each applicant for
any position in the Police or Fire Department shall be a male, a citizen
of the United States, and shall have graduated from an accredited high
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school or have an equivalent education, such as a General Education and
Development equivalent or an accredited correspondence sbhool. Each
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applicant shall be medically fit for the performance of the duties of a
police officer or fire truck driver, of good moral character, and li
censed to operate a motor vehicle in the Commonwealth of Pennsylvania.
In the case of a foreign born applicant, evidence satisfactory to the
Commission shall be produced showing the person to be a naturalized
citizen.
305. General Qualifications-Applications for Patrolman and Chief.
In addition to meeting the qualifications fixed for each applicant for a
position in the Police or Fire Department, all applicants for the posi-
tion of Chief of Police shall:
(a) Have been continuously employed in the police service for
at least 5 years.
(b) Have satisfactorily completed an in-service training pro
gram for police officers or have graduated from a recognized
police academy or school, and trained at first opportunity at
Borough expense and
(c) Have demonstrated an ability to carry out orders from su
periors, and
(d) Demonstrate a working knowledge of police science and ad
ministration, and
(e) Demonstrate an ability to deliver and supervise the work of
subordinates, and
(f) Have received at least agrade of "satisfactory" onhis latest
service rating; provided that an evaluation of the experience,
training, general background, and such other records of perfor
mance of the applicant, at the discretion of the Commission,
may be substituted for the service rating.
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���instructions contained in the written notice shall disqualify the applicant,
except that in the case of medical examination, the applicant, with the
prior approval of the medical examiner designated in the notice, may
fix another date and time for such examination period; provided, how
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ever, that any such date or time shall be within the period fixed for
medical examination in Section 403 of these rules.
403.
Scheduling Medical Examinations.
No medical examina-
tions shall be scheduled less than twelve (12) days, nor mor e than twenty one days from the date fixed in the public notice for a written examination.
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�ARTICLE y. MEDICAL EXAMINATION
501.
Appointment of Medical Examiners.
The Commission
shall, from time to time, appoint one or more medical examiners to
make all medical examinations required by these rules.
502.
Medical Requirements.
Every applicant for appointment
to any position in the Police or Fire Department shall submit, at his
expense, to a medical examination and shall meet the minimum medical
requirements established by the Commission before he shall be permit
ted to take any written or oral examination. A statement of the medical
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requirements established by the Commission shallappear in the official
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application form and a copy of such statement of medical requirements
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shall be filed in the office of each medical examiner.
Every applicant for the position of patrolman or fire apparatus
operator shall demonstrate his ability to pass thefollowing physical re-
quirements:
(a) He shall show no physical conditions orrmedical history which
in the opinion of the physician should be cause for rejection.
(b) He shall demonstrate at least 20/20 corrected vision in each
eye.
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(c) His height,
weight, blood pressure, and chest expansion
shall fall within the following general limits:
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�HEIGHT
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5'
5’
5'
5'
5'
6'
6'
6'
6'
6'
6'
MINIMUM MAXIMUM
WEIGHT
WEIGHT
7"
8"
9"
10"
11"
135
140
145
150
155
160
165
170
175
180
185
1"
2"
3"
4"
5"
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
175
180
185
190
195
205
210
220
225
230
235
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lb s.
lbs.
lbs.
lbs.
lbs.
CHEST MEASUREMENTS
EXPANDED MINIMUM MOBILITY
37
37- 1/2
38
38- 1/2
39- 1/2
40- 1/2
41
42
43
44-1/2
44-1/2
in.
in.
in.
in.
in.
in.
in.
in.
in.
in.
in.
2-1/2
2-1/2
2-1/2
2- 1/2
3
3
3
3
3- 1/2
3-1/2
3-1/2
in.
in.
in.
in.
in.
in.
in.
in.
in.
in.
in.
Blood Pressure: Systolic Maximum 135; Diastolic 90
Pulse Pressure: 15 to 50
Normal Serology
Normal Urinalysis
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Subsections (b) and (c) above shall be used as general guides for the
medical examiner.
503.
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Report of Medical Examiner.
The Commission shall fur-
nish medical examiner with forms upon which the medical examiner
shall state the bodily and mental condition of each applicant. The state
ment of each examination shall be submitted directly to the Commission
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within five (5) days after the date of examination. It is the responsibility
of the applicant to return the results of the physical examination to the
Secretary of the Commission.
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504.
Rejection of Medically Unfit Applicants.
If the medical
examiner shall deem any applicant medically unfit for performance of
the duties of a police or fire officer because of anybodily or mental de-
feet,
whether: or not the defect shall be specifically statedas cause for
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�rejection in the statement of medical requirements, such applicant shall
be rejected and a brief statement of the reasons for rejection shall be
enteredinthe report of his medical examination. Insofar as practicable,
however, the medical examiner shall determine the medical fitness of
an applicant by adhering to the statement of medical requirement.
505.
Re - examination of Medical Fitness.
Each applicant eli-
gible for certification to the Council for appointment to any position in
the Police or Fire Department shall be instructed by the Secretary of
the Commission, before being certified, to inform the Commission of
any illness or injuries requiring the attendance of a physician or requiring hospitalization and of any surgical operations that shall have
occurred after the original medical examination. If, in the judgment of
the Commission, there shall havebeen any change inthe medical fitness
of any applicant, whether or not such change shall have, been reported
by the applicant, the Commission may require the applicant to submit a
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further medical examination before his name shall be certified for ap
pointment.
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�ARTICLE VI.
601.
WRITTEN AND ORAL EXAMINATIONS
Examinations for Patrolman and Fire Apparatus Operator.
(a) The examination for the position of Patrolman and Fire Ap
paratus Operator shall consist of the following two parts:
(1) A written examination which shall include a general po
lice or fire aptitude test, an intelligence test, personality
prpfile, and such other, written tests as the Commission may,
from time to time, designate, and
(2) An oral examination.
(b) Each part of the written examination and the oral examina
tion shall be graded on the scale of one hundred (100) per cent
and shall be weighted as follows:
(1) For the written portions of the examination, a total of
seventy (70) points, (aptitude 50, mental maturity 10, and
personality 10), and
(2) For the oral examination a total of thirty (30) points.
The sum of the weighted scores shall not exceed one hundred
(100) per cent.
602.
Examinations for Police Chief.
(a) The examination for the position of Chief of Police shall con
sist of three parts, namely:
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(1) A written examination which : shall'.inclucle a: test of .po
lice knowledge and performance, an intelligence test, and
such other written tests as the Commission may, from time
to time designate, and
(2) An oral examination, and
(3) An evaluation of the service ratings or performance rec
ords of the applicant.
(b) The examination shall be graded on a scale of one hundred
(100) per cent and shall be weighted as follows:
(1) For the written portions of the examination, a total of
fifty (50) points, and
(2) For the oral examination, a total of twenty(20)poirits, and
(3) For the evaluation of the service ratings or performance
records of the applicant, a total of thirty (30) points.
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603.
Passing Grades.
The minimum passing grade for an ex
amination for the position of Patrolman or Fire Apparatus Operator
shall be a score of seventy (70) per cent on every portion of the exam
ination.
The minimum passing gradefor an examination for the position
of Chief of Police shall be a score of seventy-five (75) per cent, and
each applicant for such position shall score at least seventy (70) per
cent on each part of the examination.
Every applicant for the position
of Patrolman or Fire Apparatus Operator who receives a score of at
least seventy (70) per cent, and who is entitled by law to additional
credit for service in the Armed Forces of the United States (5 points for
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service and an additional 5 points if disabled) shall have his score ad
justed accordingly. Applicants claiming veterans' preference shall sub
mit satisfactory proof of service and honorable discharge whenever the
Commission shall so demand.
604.
Notice of Applicant's Grades.
When the grading of each
examination is completed, the Secretary shall give each applicant 'writ
ten notice of his grade.
605.
Ineligibility for Future Examinations for Six Months.
If
an applicant fails to obtain a passing grade in any examination, he shall
not be eligiblefor a subsequent examination for any position inthePolice
or Fire Department of the Borough for a period of six months.
606.
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Administering Examinations.
The Commission may de-
signate the Institute of Municipal Government of Wilkes College,
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the
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State Civil Service Commission of the Commonwealth of Pennsylvania,
any other recognised examining agency, or any qualified person to act
as examiner for the written examinations.
The Commission shall re-
serve the right to accept or reject, in whole or in part, the recommen
dations of fee regularly appointed examining agency.
The oral exam-
(nation and the evaluation of the service or performance record of any
applicant shall bo the responsibility of the Commission; provided, how*
ever, feat fee Commioaion may designate, fromtinie to time, such per-
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oono qualified to evaluate performance or service records, as are con-
oidorod nocoooary to aoalot in such examinations and evaluations.
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prepare a otatoment of instructions and rules for the conduct of written
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and bo reoponoible for enforcing the rules of conduct for written exam-
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(nations.
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607. Conduct of Written Examinations.
QZgjralnationo.
Tho regularly appointed examiner shall carry on each
aueh cszasataattoa. in accordance with the instructions of the commission,
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The Commission shall
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�ARTICLE VII.
701.
ELIGIBLE LISTS
Preparation of
Eligible List.
the completion of each examination,
As soon as possible, after
the Secretary shall prepare an el-
igible list upon which shall appear the name of each applicant who
ceived a passing grade in the examination.
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The names on the eligible
list shall be arranged, from the highest to the lowest,
in the order of
the final weighted score received by each such applicant. . The eligible
list shall be filed in the office of the Borough Secretary, and a copy post
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ed on the bulletin board in the Borough Municipal Building.
702.
Life of Eligible Lists.
In no case shall any eligible list
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remain in effect for a period of more than one (1) year from the date of
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its preparation.
Date of preparation refers here to the actual compi-
�ARTICLE VII.
801.
CERTIFICATION AND APPOINTMENTS
Filling Vacancies. When a vacancy istobe filled in the Po-
lice or Fire Department, the Council shall submit a written request to
the Commission for certification of eligibles.
In making the request,
the Council shall state the title of the position to be filled and the compensation to be paid.
802.
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Furlough List to Fill Appointments.
Upon receipt of a re-
quest from the Council, the Commission shall first certify the names of
those eligibles who were furloughed because of a reduction in force. In
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filling a vacancy from the furlough list, the Commission shall certify
the top name only. If more than one(l) vacancy is to be filled, the Com-
mission shall certify from the top of the list that number of names equal
to the number of vacancies to be filled.
803.
Removal of Names From Furlough and Eligible Lists/ In
addition to the other reasons stated as grounds for removal in these
rules,
the name of any person appearing on a furlough list or an eligi-
ble list shall be removed by the commission if such person:
(a) 'Is appointed to a position in the Police or Fire Department
of the Borough, or
(b)
Declines an appointment to a permanent position in the Po
lice or Fire Department of the Borough, or
(c) Fails to make written reply to the Commission within sev
en (7) calendar days from the date of 'mailing of a notice of
certification, or
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�(d) Indicates availability for appointment and is appointed to fill
a vacancy but fails to report for duty at the time prescribed
by the Council, unless, in the opinion of the Council, such
person can show good and sufficient reasons for failing to
report.
Nothing in this section, however, shall be construed as authorizing the
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removal of the name of any person on any furlough list or eligible list
who refuses or accepts a position of a lower rank than that for which he
has qualified.
804.
Appointment Procedures. Whenever the name of any per-
son is certified to the Council from either the furlough list or the eli-
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gible list, the person shall be immediately notified of his certification
by either certified or registered mail.
The notice shall include the ti-
tie of the position and the compensation to be paid, and shall also state
that the per son certified make a written reply within seven (7) days from
the date of mailing such notice.
805.
Probationary Period. All original appointments to any po-
sition in the Police or Fire Department of the Borough shall be for a
probationary period of one year. The Council shall notify the Commission, in writing, of its decision to retain or reject the probationer.
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�ARTICLE IX. SUSPENSIONS, REMOVALS AND REDUCTIONS IN RANK
901.
Procedure.
Whenever any police officer in the Borough is
suspended, removed, or reduced in rank, the specific charges war
ranting each such action shall be stated in writing by the appointing au-
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thority.
The charges shall be stated clearly and in sufficient detail to
enable the person accused to understand the charges made against him
and to answer to them. As scon as practicable, the statement of charges shall be filed in duplicate with the Commission, and within five (5)
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calendar days of such filing, the original copy of the statement of charg
es shall be delivered to the person accused either by personal service
or by certified or registered mail.
902.
Demand for Hearing.
Any police officer suspended, re
moved or reduced in rank may file with the Commission a written de-
mand for a hearing.
Such written demand and any statement of written
answers to the charges made against the person accused shall be filed
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no later than ten (10) calendar days from the date upon which the state-
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ment of charges were personally served or mailed.
fixed by the law, the Commission shall grant a hearing to any person
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hearing shall be open to the public unless the person accused, when
Within the period
accused who complies with the provision of this section.
Each such
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making his written demand for a hearing, requests that such hearing
be closed.
903.
Notice of Hearing.
Notice of the date, time and place for
each hearing shall be given in the following manner:
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(a) By either per sonal service or by certified or registered
mail to each person making charges and to the person
accused, and
(b) By mailing a notice to all other parties who have stated
an interest in the hearing; provided, however, that any
failure to give the notice required by this subsection
shall not invalidate any action taken by the Commission.
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904.
Chairman
Oaths.
All testimony shall be taken under oath.
The
or in his absence the Vice Chairman, shall administer the
oaths.
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Subpoenas..
The Chairman, cr in his absence the Vice
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the Chairman, or in his absence the Vice Chairman, shall order the at-
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tendance of any witness or the production of any pertinent document;
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Chairman, may compel the attendance cf witnesses and the production
of records and papers pertaining to any hearing.
However, upon the
written request of the person accused or of any person making charges,
provided that such written request is filed with the Secretary within
five (5) calendar days from the date appearing on the notice of the hearing.
906.
Hearing Procedure.
Each hearing shall be conducted in
the following manner:
(a) The Chairman shall state the general purpose of the
hearing, and
<b> The Secretary, upon direction of the Chairman, shall
read the written charges against the person accused
together with the record of action taken against such
officer, and next
(c) The Secretary shall read any written reply of the person
accused, and next
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(d) The Chairman shall afford e.achperson making charges,
or his counsel, an opportunity to make any further state
ment in support of the charges and to produce any wit
ness, and next
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(e)
The Chairman shall afford the person accused, or his
counsel, an opportunity to question or cross examine,
any person making charges, and to question or cross
examine any witness produced by such person, and next
(f)
The Chairman shall affcrd each person making charges,
or his counsel, an opportunity to examine the person
accused, and next
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(g) The Chairman shall permit each person making charges,
or his counsel, to make a summation, and next
(h) The Chairman shall afford the person accused, or his
counsel, an opportunity to produce any witness and to
sum up the defense.
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Counsel for the Commission shall be provided by the
Borough Council
The Commission,
at any time during the course of the hearing,
question er cross examine any person making charges,
may
the person ac-
cused, and.any witness.
907.
Decision cf the Commission.
days after the hearing,
Within thirty (30) calendar
the Commission shall issue its decision in the
form of a written order approved by at least two (2) members of the
Commission.
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The written order shall include all finding of fact.
during the public hearing,
If,
opposing facts are presented, the Commis
sion shall include in its written order its decision as to the correct
facts.
The findings and decision of the Commission shall be certified
to any person making charges, to the accused officer, and to the Council.
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��calendar days following the date of receipt of the written request. If the
Commission consents to an inspection of any of the written examination
papers by any examined applicant, it shall state in its letter of consent
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the specific examination papers that may be inspected.
Before any
member of the Commission, or any person designated by the Commis-
sion,
permits any inspection of examination papers,
he shall require
the examined applicant to produce the letter indicating the consent of
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the Commission and he shall limit the inspection by the examined ap-
plicant to only those examination papers indicated on the letter of consent.
No examined applicant shall be permitted to inspect any exam-
ination papers other than his own,
nor shall he be permitted to make
any written notes while he is inspecting any examination paper.
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�ARTICLE XI.
1101.
AMENDMENTS
Amendments. The Commission, with the approval of the
Council, may, from time to time, amend any part of these rules and
regulations. The Commission shall be notified in writing of all amend
ments pertaining to all rules and regulations made by Council.
The
foregoing rules and regulations, which are in accordance with the pow-
ers granted by the Civil Service Sections of "The Borough Code," Secs.
1165-90, enacted by the General Assembly of the Commonwealth of
Pennsylvania and in accordance with the authority granted by the Coun
cil of the Borough of Forty Fort, Pennsylvania, are hereby adopted
by the Civil Service Commission of the Borough of Forty -Fort,
Penn
sylvania on February 4, 1963.
George Taylor, Sr, (signed)
Chairman
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(signed)
Hugh B. Hughes
Secretary
(signed)
Approved by the Council of the Borough
of Forty Fort, Pennsylvania on May 9, 1963.
Robert L, Taylor
President of the Council
ATTEST:
Walter Rickertt
Borough Secretary
ft
Robert V. Peters
Vice Chairman
62579
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Dublin Core
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Title
A name given to the resource
Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
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Institute of Municipal Government and Institute for Regional Affairs
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1958-1980
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Title
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Civil Service: Rules and Regulations for the Borough of Forty Fort, 1962
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Institute of Municipal Government
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1963
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PDF
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Publication
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Wilkes University retains copyright of this publication.
-
https://omeka.wilkes.edu/omeka/files/original/438ebc91ef1085b43d7c94077da222fb.pdf
ccb3b86715e1209d8510cb990988d924
PDF Text
Text
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CIVIL SERVICE
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LUZERNE, PENNSYLVANIA
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CIVIL SERVICE
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RULES AND REGULATIONS
FOR
LUZERNE, PENNSYLVANIA
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- s. FARLEY LIBRARY
VII KES UNIVERSITY
'VI! KFS-BARRE, PA
1963
Institute of Municipal Government
Wilkes College
Wilkes-Barre, Pennsylvania
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archives
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ARTICLE I.
DEFINITION OF TERMS
Section 101. Definitions. Unless otherwise expressly stated, the
following words and phrases, wherever used in these rules and regula
tions, shall be construed to have the meaning indicated herein:
Certification - The submission to the appointed authority of names
taken from the eligible list.
The Chairman of the Police Service Commission of
Chairman
the Borough of Luzerne, Pennsylvania.
The Police Civil Service Commission of the Bor
Commission
ough of Luzerne, Pennsylvania.
Council - The Council of the Borough of Luzerne, Pennsylvania
which is the appointing authority.
Eligible - A person whose name is recorded on a current eligible list or furlough list.
Eligible List - The lists of names of persons who passed any ex
amination for a particular position in the Police Department.
Furlough List - The list of persons who were laid off from posi
tions in the Police Department because of a reduction in the
number of officers in the Police Department.
Probationer - An officer in the Police Department who has been
appointed from any eligible list, but who has not yet com
pleted his work test period.
Reduction in Rank - A change to a different position or rank which
results in a decrease in salary; provided, however, that a de
crease in salary without a change in a different position or
rank shall not constitute a reduction in rank.
Removal - The permanent separation of a police officer from the
Police Department.
Suspension - The temporary separation of a member of the Police
Department from his position.
Secretary - The Secretary of the Police Civil Service Commission
of the Borough of Luzerne, Pennsylvania.
Borough Secretary - The Secretary of the Borough of Luzerne,
Pennsylvania.
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�ARTICLE II.
THE COMMISSION
201. Officers.. The Police Civil Service Commission of the
Borough of Luzerne, Pennsylvania, on the first Monday of each even
numbered year,
shall elect one of its members as the Chairman, one
Vice Chairman, and one as a Secretary.
(If the first Monday is a legal
holiday, the meeting shall be held the first day following. )
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202.
Duties of Chairman. The Chairman, or in his absence, the
Vice Chairman,
shall preside at all meetings and hearings of the Com
mission, decide all points of order or procedure and perform any duties
required by law or these rules. In the absence of a member, temporary
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assignments shall be made by the Commission member presiding.
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203.
Duties of Secretary.
The Secretary shall carry on at the
direction of the Commission all official correspondence of the Com-
mission, send out all notices required by law and these rules of proce
dure, keep a record of each examination or other official action of the
Commission, and perform all other duties required by law, by these
rules and by the Commission.
204.
Meetings. Except for the biennial organization meeting,
all meetings shall be held either at the call of the Chairman, or at the
call of two members of the Commission.
At least seventy-two (72)
hours written notice of each meeting shall be given each member.
The
Commission shall have the discretion to determine whether meetings
shall be open to the public except that no rule or regulation of the Com-
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mission shall be adopted at other than a public meeting, and except
when otherwise provided for in these rules.
205.
A quorum shall consist of two members, and all
actions of the Commission shall have the concurrence of at least two
members.
206.
Order of Business.
The order of business of all meetings
of the Commission shall be as follows:
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(a) Roll Call
(b) Approval of minutes of previous meeting
(c) Communications and Reports
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Quorum.
207.
Minutes. The Secretary shall keep minutes of the Commis
sion's proceedings showing the vote of each member upon question, or,
if absent or failing to vote, indicating such fact.
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ARTICLE III.
301.
APPLICATIONS
No person shall be admitted to an ex-
Application Form.
amination for a position in the Police Department of the Borough of
Luzerne, Pennsylvania until after he shall have filed,
on the official
form prescribed by the Civil Service Commission, a sworn application
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giving such information as the Commission may require.
302. Availability. Application forms shall be available to all in
terested persons in the office of the Borough Secretary.
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303.
Age Qualifications.
At the time of application, no appli
cant for any position in the Police Department shall be less than twenty-
one (21) years of age, and no applicant for the position of patrolman
shall be more than thirty-five (35) years of age.
Each applicant shall
present satisfactory evidence of his date of birth.
304.
General Qualifications
All Applicants.
Each applicant
for any position in the Police Department shall be a male, a citizen of
the United States, and shall have completed at least the tenth grade of an
accredited high school or have an equivalent education.
Each applicant
shall be medically fit for the performance of the duties of a police
officer, of good moral character, and licensed to operate a motor vehicle
in the Commonwealth of Pennsylvania. In the case of a foreign-born
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applicant,
evidence satisfactory to the Commission shall be produced
showing the person to be a naturalized citizen.
305.
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General Qualifications - Applications for Chief.
In addition to meeting the qualifications fixed for each applicant for a
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�position in the Police Department,
all applicants for the position of
Chief of Police shall:
(a) Have been continuously employed in the police service
for at least 5 years, and
(b) .Have satisfactorily completed an in-service training pro
gram for police officers or have graduated from a recog
nized police academy or school, and trained at first
opportunity at Borough expense, and
(c) Have demonstrated an ability to carry out orders from
superiors, and
(d) Demonstrate a working knowledge of police science and
administration, and
(e) Demonstrate an ability to deliver and supervise the work
of subordinates.
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306.
Investigation of Applicants. An investigation of the charac
ter and reputation of the applicant may be made by the Commission and
may include credit reports and reports of investigations from recognized
agencies.
307.
Filing Applications.
Applications for any position in the
Police Department may be received at any time, during normal business
hours, in the office of the Borough Secretary.
The receipt of such appli-
cations shall be subject to the following conditions:
(a) No application received after 12:00 noon on a day that is
fourteen (14) calendar days prior to the date fixed for the
written examination shall be considered for such ex
amination unless otherwise provided in the notice and
(b) An application shall become void one (1) year after the
date upon which it was received.
(c) A filing fee of $10. 00 shall be posted by the applicant.
This fee is to cover costs of administering the written
examination.
308.
Recording Applications.
The office of the Secretary shall
record each application and shall date, number, and record in the order
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of presentation all applications. An application, once reported, shall be
a public record and shall not be returned to the applicant.
309.
Disqualification of Applicant.
The Commission shall not
examine any applicant who lacks any of the prescribed qualifications unless, in the judgment of the Commission, it can be reasonably presumed
that the applicant shall have acquired the necessary qualifications prior
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to the date of a possible certification from the list of eligibles produced
as a result of the examination.
310.
Penalty for False Statement.
applicant in the official application shall contain no falsification, omission
or concealment of material fact. Should investigation disclose any willful
mis-statement, falsification or concealment with respect to an application:
(a) The application shall be invalid and the applicant shall
be disqualified from examination, or
(b) If the applicant shall have been examined, the name of
such applicant shall be removed from the eligible list,
or
(c) If the applicant shall have been appointed, such willful
mis-statement, falsification or concealment shall con
stitute grounds for dismissal from the Police Depart
ment.
No person who shall make willful false application shall be permitted to
make any future application for any position in the Police Department of
the Borough.
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The Statements made by the
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ARTICLE IV.
401.
ANNOUNCEMENT OF EXAMINATIONS
Public Notice.
Public notice of the time and place of every
examination, together with the information as to the position to be filled,
shall be given by publication in a newspaper of general circulation in the
Borough.
The public notice shall be published at least three (3) weeks
prior to an examination and a copy of the notice shall be posted on the
bulletin board in the Borough Building. Additional public notice by publication, posting, or otherwise may be given at any time at the discretion
of the Commission.
402.
Notice of Examination.
In addition of the public notice, the
Secretary shall give written notice to each qualified applicant as follows:
(a) By mailing or otherwise delivering to each applicant
qualified for a medical examination, a notice which shall
include the name of the medical examiner, and the date,
time, place and duration of the examination.
(b) By mailing or otherwise delivering to each applicant
notice which shall include the date, time, place, and
duration of the written and oral examinations.
Every notice shall be mailed by certified mail at least five (5) days prior
to the date fixed for examination.
Only applicants receiving notices to
report for any examination shall be permitted to participate in such ex
amination, and each applicant shall present his notice to the examiner
before he shall be examined.
Failure to report for any examination in
accordance with the instructions contained in the written notice shall dis
qualify the applicant, except that in the case of medical examination, the
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applicant, with the prior approval of the medical examiner designated in
the notice, may fix another date and time for such examination; provided,
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�however, that any such date or time shall be within the period fixed for
medical examination in Section 403 of these rules.
403.
Scheduling .Medical Examinations.
No medical examination
shall be scheduled less than twelve (12) days, nor more than twenty-one
days from the date fixed in the public notice for a written examination.
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ARTICLE V.
MEDICAL EXAMINATION
Appointment of Medical Examiners.
501.
time to time,
The Commission from
shall appoint a medical examiner to make all medical ex-
aminations required by these rules.
502.
Medical Requirements. Every applicant for appointment to
any position in the Police Department shall submit, at his own expense,
to a medical examination and shall meet the minimum medical require
ments established by the Commission before he shall be permitted to
take any written or oral examination.
A statement of the medical re
quirements established by the Commission shall appear in the official
application form and a copy of such statement of medical requirements
shall be filed in the office of each medical examiner.
Every applicant for the position of patrolman shall demonstrate
his ability to pass the following physical requirements:
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(a) He shall show no physical conditions or medical history
which in the opinion of the physician should be cause for
rejection.
(b) He shall demonstrate at least 20/40 uncorrected vision
in each eye.
(c) His height, weight, blood pressure, and chest expansion
shall fall within the following limits:
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HEIGHT
MINIMUM
WEIGHT
MAXIMUM
WEIGHT
CHEST MEASUREMENTS / .
EXPANDED MINIMUM MOBILITY
5'
5’
5’
5'
6'
6'
6'
6'
6'
6'
140 lbs.
.145 lbs.
150 lbs.
155 lbs.
160 lbs.
.165 lbs.
170 lbs.
175 lbs.
180 lbs.
185 lbs.
180 lbs.
185 lbs.
190 lbs.
195 lbs.
205 lbs.
210 lbs.
220 lbs.
225 lbs.
230 lbs.
235 lbs.
37- 1/2 in.
38
in.
38- 1/2 in.
39- 1/2 in.
40- 1/2 in.
in.
41
42
in.
in.
43
44-1/2 in.
44-1/2 in.
8"
9"
10"
11"
1"
2"
3"
4"
5"
2-1/2 in.
2-1/2 in.
2-1/2 in.
in.
3
in.
3
3
in.
3
in.
3-l/2in.
3-1/2 in.
3-l/2in.
BLOOD PRESSURE: Systolic Maximum 135; Diastolic 90;
Pulse Pressure: 15 to 50
Variations from the above physical schedules may be permitted
at the discretion of the Civil Service Commission based on the physical
examination of the applicant.
503. Report of Medical Examiner. The Commission shall furnish
medical examiner with forms upon which the medical examiner shall state
the bodily and mental condition of each applicant.
The statement of each
examination shall be submitted to the Commission within five (5) days
after the date of examination.
It is the responsibility of the applicant to
return the report of physical examination to the Secretary of Commission.
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504.
Rejection of Medically Unfit Applicants.
If the medical ex
aminer shall deem any applicant medically unfit for performance of the
duties of a police officer because of any bodily or mental defect, whether
or not the defect shall be specifically stated as cause for rejection in the
statement of medical requirements,
such applicant shall be rejected and
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�a brief statement of the reasons for rejection shall be entered in the report of his medical examination.
505. Re-examination of Medical Fitness. Each applicant eligible
for certification to the Council for appointment to any position in the
Police Department shallbe instructedby the Secretary of the Commission
before being certified, to inform the Commission of any illness or in
juries requiring the attendance of a physician or requiring hospitalization, and of any surgical operations that shall have occurred after the
original medical examination.
If, in the judgment of the Commission,
there shall have been any change in the medical fitness of any applicant,
whether or not such change shall have been reported by the applicant, the
Commission may require the applicant to submit further medical exam
ination before his name shall be certified for appointment.
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ARTICLE VI.
601.
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WRITTEN AND ORAL EXAMINATIONS
Examinations for Patrolman
(a) The examination for the position of Patrolman shall
consist of the following two parts:
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(1) A written examination which shall include a general
police test, an intelligence test, personality profile,
and such other written tests as the Commission may,
from time to time designate, and
(2) An oral examination.
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(b) Each part of the written examination and the oral ex
amination shall be graded on the scale of one hundred (100)
per cent and shall be weighted as follows:
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(1) For the written portions of the examination, a
total of eighty (80) points, (aptitude 60, mental matu
rity 10, and personality 10), and
(2) For the oral examination a total of twenty (20)
points. The sum of the weighted scores shall not ex
ceed one hundred (100) per cent.
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(c) Each applicant shall pay the fee for the examination.
602.
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Examinations for Police Chief
(a) The examination for the position of Chief of Police
shall consist of three parts, namely:
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(1) A written examination which shall include a test of
police knowledge and performance, and intelligence
test, and such other written tests as the Commission
may, from time to time, designate, and
(2) An oral examination, and
(3) An evaluation of the performance record of the
applicant by the mayor.
(b) The examination shall be graded on a scale of one hun
dred (100) per cent and shall be weighted as follows:
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(1) For the written portions of the examination, a
total of sixty (60) points, and
(2) For the oral examination, a total of twenty (20)
points, and
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(3) For the evaluation of the performance record of
the applicant a total of twenty (20) points.
603.
Passing Grades.
The minimum passing grade for an ex
amination for the position of patrolman shall be a score of seventy (70)
per cent on every portion of the examination.
The minimum passing
grade for an examination for the position of Chief of Police shall be a
score of seventy-five (75) per cent, and each applicant for ; any such
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position shall : score at least seventy (70) per cent of each part of the .
examination.
Every applicant for the position of patrolman who re
ceives a score of at least seventy (70) per cent, and who is entitled by
law to additional credit for service in the Armed Forces of the United
States shall have his score adjusted accordingly.
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Applicants claiming
veterans' preference shall submit satisfactory proof of service and
honorable discharge whenever the Commission shall so demand.
604.
Notice of Applicant's Grade.
examination is completed,
When the grading of each
the Secretary shall give each applicant
written notice of his grade.
605.
Ineligibility for Future Examinations for Six Months.
If an applicant fails to obtain a passing grade in any examination, he
shall not be eligible for a subsequent examination for any position in
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the Police Department of the Borough for a period of six months.
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606.
Administering Examinations. The Commission may desig-
nate the Institute of Municipal Government of Wilkes College, the State
Civil Service Commission of the Commonwealth of Pennsylvania, or any
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other recognized examining agency, to act as examiner for the written
examinations.
The Commission shall reserve the right to accept or re
ject, in whole or in part, the recommendations of the regularly appointed
examining agency.
The oral examination and the evaluation of the ser-
vice or performance record of any applicant shall be the responsibility
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of the Commission.
607,
Conduct of Written Examinations.
The Commission shall
prepare a statement of instructions and rules for the conduct of written
examinations.
The regularly appointed examiner shall carry on each
such examination in accordance with the instructions of the Commission,
and be responsible for enforcing the rules of conduct for written exami
nations.
608.
Penalty for Improper Conduct. Should any applicant be found
guilty of any act tending to defeat the proper conduct or the result of any
examination, his name shall be removed from any eligible list resulting
from the examination and the applicant shall not be permitted to make
any future application for any position in the Police Department.
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ARTICLE VIL
701.
ELIGIBLE LISTS
Preparation of Eligible List.
As soon as possible, after
the completion of each examination, the Secretary of the Commission
shall prepare an eligible list upon which shall appear the name of each
applicant who received a passing grade in the examination.
The names
on the eligible list shall be arranged, from the highest to the lowest, in
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the order of the final weighted score received by each such applicant.
The eligible list shallbe filed in the office of the Borough Secretary, and
a copy posted on the bulletin board in the Borough Municipal Building.
702.
Breaking Tie Scores.
When two (2) or more qualifying ap-
plicants shall receive the same final weighted score, the order in which
the names of such persons shall appear on the eligible list shall be de
termined by their scores on the part of the examination assigned the
greatest weight.
In the event that two (2) or more qualifying appli-
cants also receive identical scores on the part of the examination tassigned the greatest weight, the order of listing shall be determined by
the order in which the applications were numbered for recording pur-
poses.
703.
Life of Eligible Lists
In no case shall any eligible list
remain in effect for a period of more than two (2) years from the date
of its preparation.
Date of preparation refers here to the actual com-
pilation of the list which is to take place no more than ninety (90) days
after the receipt of the request from council calling for the establish
ment of same.
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704.
Furlough Lists.
Whenever the Council causes a reduc
tion in the number of police officers, the Commission shall prepare and
maintain a list of the names of all such furloughed officers, together
with the position held by each such officer at the time of furlough.
The
names on the furlough list shall be arranged, from the greatest to the
least, in the order of the length of service of each furloughed officer in
the Police Department of the Borough.
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ARTICLE VIII.
801.
CERTIFICATION AND APPOINTMENTS
Filling Vacancies.
When a vacancy is to be filled in the
Police Department, the Council shall submit a written request to the
Commission for certification of eligibles.
In making the request, the
Council shall state the title of the position to be filled and the compen
sation to be paid.
802.
Furlough List to Fill Appointments.
Upon receipt of a re-
quest from the Council, the Commission shall first certify the names of
those eligibles who were furloughed because of a reduction in force.
In
filling a vacancy from the furlough list, the Commission shall certify
the top name name only. If more than one (1) vacancy is to be filled, the
Commission shall certify from the top of the list that number of names
equal to the number of vacancies to be filled.
803.
Certification from Eligible Lists.
If no furlough list ex- .
ists or if the total number of vacancies cannot be filled from the available names on the furlough list, the Commission shall certify names
from the eligible list. The number of available eligibles certified from
the eligible list shall exceed by two (2) the number of vacancies to be
filled from such eligible list.
If there are less than three (3) available
eligibles on the eligible list, the Council may select from such lesser
number of available eligibles, or may request the Commission to hold
another examination.
804.
Removal of Names from Furlough and Eligible Lists.
In
addition to the other reasons stated as grounds for the removal in these
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�rules, the name of any person appearing on a furlough list or an eligible
list shall be removed by the Commission if such person:
(a) Is appointed to a position in :the Police Department of
the Borough, or
(b) Declines an appointment to a permanent position in the
Police Department of the Borough, or
(c) Fails to make written reply to the Commission within
seven (7) calendar days from the date of mailing of a notice
of certification, or
(d) Indicates availability for appointment and is appointed
to fill a vacancy but fails to report for duty at the time prescribedby the Council, unless, in the opinion of the Council,
such person can show good and sufficient reasons for fail
ing to report.
805.
Appointment Procedures. Whenever the name of any per-
son is certified to the Council from either the furlough list or the eli
gible list, the person shall be immediately notified of his certification
by either certified or registered mail.
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The notice shall include the
title of the positionand the compensation tobe paid, and shall also state
the person certified to make a written reply within seven (7) days from
the date of mailing such notice.
806.
Probationary Period.
All original appointments to any
position in the Police Department of the Borough shall be for a proba-
tionary period of six months.
The Chief of Police shall make a report
on the performance and conduct of each probationer at the end of the
sixth month of the probationary period. Final probationary report shall
include the recommendation of the Chief of Police either to retain or to
reject the probationer.
Council.
Report shall be submitted in writing to the
Within five calendar days after the regular meeting of the
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�Council immediately preceding the end of the probationary period, the
Council shall notify the Commission, in writing, of its decision to retain or reject the probationer.
The Commission, in turn, shall notify
the probationer of the decision of the Council on or before the date of
the close of the probationary period.
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�ARTICLE IX.
901.
SUSPENSIONS, REMOVALS, AND REDUCTIONS IN RANK
Procedure.
Whenever any police officer in the Borough is
suspended, removed, or reduced in rank, the specific charges warrant
ing each such action shall be stated in writing by the appointing authority.
The charges shall be stated clearly and in sufficient detail to enable the
person accused to under stand the charges made against him and to answer
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them.
As soon as practicable, the statement of charges shall be filed in
duplicate with the Commission, and within five (5) calendar days of such
filing, the original copy of the statement of charges shall be delivered to
the person accused either by personal service or by certified or regis-
tered mail.
902.
Demand for Hearing.
Any police officer suspended, re
moved or reduced in rank mayfile with the Commissiona written demand
fer a hearing. Such written demand andany statement of written answers
to the charges made against the person accused shall be filed no later
than seven (7) days from the date upon which the statement of charges
made were personally served or mailed.
law,
the Commission shall grant a hearing to any person accused who
complies with the provision of this section.
Each such hearing shall be
open to the public unless the person accused, when making his written
demand for a hearing, requests that such hearing be closed.
903.
Notice of Hearing.
Notice of the date, time and place for
each hearing shall be given in the following manner:
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Within the period fixed by the
�(a) By either personal service or by certified or regis
tered mail to each person making charges and to the per
son accused, and
(b) By mailing a notice to all other parties who have stated
an interest in the hearing; provided, however, that any
failure to give the notice required by this subsection shall
not invalidate any action taken by the Commission.
904.
Oaths.
All testimony shall be taken under oath.
The
Chairman, or in his absence the Vice Chairman, shall administer the
oaths.
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905.
Subpoenas.
The Chairman,
Chairman, may compel the attendance
of witnesses and the production
of records and papers pertaining to any hearing.
However, upon the
written request of the person accused or of any person making charges,
the Chairman or in his absence the Vice Chairman, shall order the at-
tendance of any witness or the production of any pertinent document;
provided that such written request is filed with the Secretary within
calendar days from the date appearing on the notice of the
five (5)
hearing.
906.
Hearing Procedure.
Each hearing shall be conducted , in
the following manner:
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(a): The Chairman shall state the general purpose of the
hearing, and
(b) The Secretary, upon direction of the Chairman shall
read the written charges against the person accused to
gether with the record of action taken against such offi
cer, and next
(c) The Secretary shall read any written reply of the per
son accused, and next
(d) The Chairman shall afford each per son making charges,
or his counsel, an opportunity to make any further state-
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or in his absence the Vice
�ment in support of the charges and to produce any witness,
and next
(e) The Chairman shall afford the person accused, or his
counsel, an opportunity to question or cross examine any
person making charges, and to question or cross examine
any witness produced by such person, and next
(f) The Chairman shall afford each per son making charges
an opportunity to examine the person accused, and next
(g) The Chairman shall permit each person making
charges, or his counsel, to make a summation, and next
(h) The Chairman shall afford the person accused, or his
counsel, an opportunity to produce any witness and to sum
up the defense.
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The Commission, at any time during the course of the hearing,
may question or cross examine any person making charges, the person
accused, and any witness.
907.
Decision of the Commission.
Within thirty (30) calendar
days after the hearing, the Commission shall issue its decision in the
form of a written order approved by at least two (2) members of the
Commis sion.
The findings and decision of the Commission shall be
certified to any person making charges, to the accused officer, and to
the Council.
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Right of Appeal.
The person suspended, removed, or re-
duced in rank shall have immediate right of appeal to the Court of Com-
mon Pleas of Luzerne County in the manner provided by law.
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�ARTICLE X.
1001.
INSPECTION OF RECORDS
Inspection in General. Except as otherwise provided in
this Article, all of the records of the Commission shall be open to the
public and available for inspection during normal business hours.
A
member of the Commission or any person who may, from time to time,
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be designated by the Commission, shall be present at all times during
any inspection of any record of the Commission.
1002.
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Character
and Reputation Reports.
All reports of in-
vestigations and inquiries into the character and reputation of appli-
cants shall be kept in the strictest confidence, and shall not be open to
inspection.
1003.
Inspection of Examination Materials.
All examination
materials shall be confidential and shall not be open to general public
inspection.
Any examined applicant may inspect his examination pa
pers, provided that:
(a.) He" makes a written request to the Commission within
seven (7) calendar days from the date of mailing of the
written notice of his grade, and
(b) He receives the written consent of the Commission to
inspect his examination papers, and
(c) He makes his inspection within five (5) calendar days
from the date of the mailing of the consent of the Commis
sion.
Before any member of the Commission or any person desig
nated by the Commission,
papers, he shall
permits any inspection of examination
equire the examined applicant to produce the letter
indicating the consent of the Commission and he shall limit the inspec-
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�tion by the examined applicant to only those examination papers indica-
ted on the letter of consent.
No examined applicant shall be permitted
to inspect any examination papers other than his own, nor shall he be
permitted to make any written notes while he is inspecting any examina
tion paper.
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�ARTICLE XI.
1101.
AMENDMENTS
Amendments.
The Commission, with the approval of the
Council, may, from time to time, amend any part of these rules and
regulations.
The foregoing rules and regulations, which are in accord-
ance with the powers granted by the Civil Service Sections in "The
Borough Code, " Secs. 1165-90, enactedby the General Assembly of the
Commonwealth of Pennsylvania and in accordance with the authority
granted by the Council of the Borough of Luzerne, Pennsylvania, are
hereby adopted by the Civil Service Commission of the Borough of
Luzerne, Pennsylvania on December 11, 1962.
Arthur Craze
Chairman
(signed)
John Connolly, Jr.
Vice Chairman
(signed)
Peter J. Bendick
Secretary
(signed)
Approved by the Council of the Borough of
Luzerne, Pennsylvania on January 2, 1963.
Nevin L. Gorki______
President of the Council
ATTEST:
William Pacalavich
Borough Secretary
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Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
Creator
An entity primarily responsible for making the resource
Institute of Municipal Government and Institute for Regional Affairs
Date
A point or period of time associated with an event in the lifecycle of the resource
1958-1980
Rights
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Wilkes University retains copyright of these publications.
Format
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PDF
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Publications
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Dublin Core
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Title
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Civil Service: Rules and Regulations for the Borough of Luzerne, 1963
Creator
An entity primarily responsible for making the resource
Institute of Municipal Government
Date
A point or period of time associated with an event in the lifecycle of the resource
1963
Format
The file format, physical medium, or dimensions of the resource
PDF
Type
The nature or genre of the resource
Publication
Rights
Information about rights held in and over the resource
Wilkes University retains copyright of this publication.
-
https://omeka.wilkes.edu/omeka/files/original/76839978d5ba46486853b031dbb19c92.pdf
5210c87ee1f1585f3262b920874719b4
PDF Text
Text
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PROCEEDINGS
THIRD ANNUAL COMMUNITY
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GROWTH CONFERENCE
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WOES COLLEGE
WOLL.ES-BAIRIRE, PMSYLVAM
��PROCEEDINGS
THIRD ANNUAL COMMUNITY GROWTH CONFERENCE
SEPTEMBER 25, 1?63
WILKES-BARRE, PENNSYLVANIA
Institute of Municipal Government
Wilkes College
Wilkes-Barre, Pennsylvania
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FOREWORD
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A major problem facing many communities in the United States
today is rapid and, to a large extent, uncontrolled growth. Although
recognized as a major problem, it does not necessarily apply to all
sections of the United States, specifically to Northeastern Pennsylvania.
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The theme of the THIRD ANNUAL COMMUNITY GROWTH CON
FERENCE was the need to rehabilitate the older community. The core
city which is usually the older community faces specific problems in
trying to meet competition from outlying areas. It is necessary for the
older community to try to discover solutions to the more practical prob
lems of the area.
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The first step to the solution of the problems is to isolate and
identify the problems. It is the opinion of the participants in the first
two Community Growth Conferences that the Conferences themselves
contributed much to identifying problems. A number of these problems
were discussed at the THIRD ANNUAL COMMUNITY GROWTH CON
FERENCE by representatives of areas that have faced problems similar
to ours. These comments should be helpful in the solution of these
problems.
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The sponsors of the THIRD ANNUAL COMMUNITY GROWTH
CONFERENCE would like to extend sincere thanks to the First National
Bank, the Hanover National Bank, and the Miners National Bank, all of
Wilkes-Barre, without whose financial assistance the Conference would
not have been possible. Because of the attitude, enthusiasm and interest
displayed, this Conference will be but the third of many.
Hugo V. Mailey, Director
Institute of Municipal Government
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TABLE OF CONTENTS
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F or eward
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Program
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Sponsors
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Introductory Remarks by Thomas H. Kiley
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Welcome Remarks by Frank Slattery,
2
"The Need to Rehabilitate the Older Community.
3
Introductory Remarks by Wilbur Shorts
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Survival of the Central Business District by Paul F. Miller
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Introductory Remarks by John P. Sammon.
17
Land Values As Affected by Urban Renewal by Martin. L. Steiger
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Introductory Remarks by Mrs. Edward B. Wicks.,
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Measurement of Community Renewal Needs by Erastus Corning III
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Introductory Remarks by Hussell E. Gardner
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Private Enterprise: A Partner in Rehabilitation by Fred Forman
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Roster of Attendance
Registered But Not In Attendance
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THIRD ANNUAL COMMUNITY GROWTH CONFERENCE
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SEPTEMBER 25, 1963
PROGRAM
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11:30 a. m.
Registration
Mezzanine, Hotel Sterling
Chairman:
Mrs. Ethel A. Price, Director
Department of Streets
City of Wilkes-Barre
12:00 noon
Luncheon
Crystal Ballroom
Chairman:
Thomas H. Kiley, President, Greater
Wilkes-Barre Chamber of Commerce
Frank Slattery, Mayor, City of Wilkes-Barre
The Need to Rehabilitate the Older Community
William Rafsky, Executive Vice President
Old Philadelphia Development Corporation
Welcome:
Topic:
Speaker:
2:00 p. m.
Panel Session
Chairman:
Topic:
Speaker:
Chairman: Robert Harvey, Vice President, Greater
Wilkes-Barre Real Estate Board
Topic:
Effect of Urban Renewal on Land Values
Speaker:
Martin L. Steiger, CAE
Philadelphia Board of Revision of Taxes
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Chairman:
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Topin:
Speaker:
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Mrs. Edward B. Wicks, President
Luzerne County Federation of Women's Clubs
Measurement of Community Renewal Needs
Erastus Corning III, Assistant Manager
Urban Renewal Department
First National Bank of Boston
5: 30 p. m.
Cocktails
Parlor C, Hotel Sterling
6: 30 p. m.
Dinner
Chairman:
Topic:
Speaker:
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Wilbur Shorts-, President, N. E. Pennsylvania
Homebuilders Association
Survival of the Central Business District
Paul F. Miller, Development Coordinator
City of Lancaster
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Russell E. Gardner, Vice President
Committee of 100, Inc.
Private Enterprise: A Partner in Rehabilitation
Fred Forman, Treasurer
Midtown Holding Corps. , Rochester, N. Y.
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SPONSORS
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American Institute of Architects - Northeast Chapter
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Board of School Directors - Luzerne County
Community Research Center
Greater Wilkes-Barre Chamber of Commerce
Greater Wilkes-Barre Junior Chamber of Commerce
Greater Wilkes-Barre Real Estate Board
Home Builders Association of Northeastern Pennsylvania
Institute of Municipal Government
League of Women Vbters
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Luzerne County Boroughs Association
Luzerne County Federation of Women's Clubs
Luzerne County Planning Commission
Luzerne County School Board
Pennsylvania Economy League - Central Division
Pennsylvania School^Directors Association
Susquehanna River Basin Association
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West Side Regional Planning Commission
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Wilkes-Barre Planning Commission
WilkeS-Barre Redevelopment Authority
Wilkes- Barre Wyoming Valley Merchants Association
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��WELCOME REMARKS
by
Frank Slattery
Mayor of the City of Wilkes-Barre
Ladies and Gentlemen: A mayor quickly learns that it takes all
kinds of things to make up a city -- a physical city. But most of all, it
takes all kinds of people. As the mayor of this city, you will believe me
when I say that we have all kinds of people in Wilkes-Barre. Fortun
ately, we have many dedicated people -- those who want to see the City
grow and flourish; not only financially or economically, but also cul
turally. Based on the theory that man cannot live by bread alone, there
are many things which have to be done to make this theory valid. There
fore, it is a genuine pleasure for me as mayor to welcome you, who re
present those that are dedicated -- both from this
area and other
areas of the State --to the Conference and to the city and to Wilkes
College.
What you represent is a wonderful thing. The City of WilkesBarre is proud to welcome you here -- to welcome you warmly and
sincerely. I know that the speakers and representatives will make this
Conference an outstanding success.
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THE NEED TO REHABILITATE THE OLDER COMMUNITY
by
William L. Rafsky, Executive Vice President
Old Philadelphia Development Corporation
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The older communities in our nation have only two choices: ei
ther they must revitalize and rehabilitate themselves physically, or they
must die.
It is no longer possible to stand still because the forces of
obsolescence and deterioration will erode the foundations of our com
munities and will bring about an eventual demise.
There is no inher
ent guarantee that a city is assured of maintaining its vitality.
Even
cities which are blessed naturally, such as seaports or those with re
sources such as coal, have found these advantages insufficient to pro
tect themselves against deterioration. Changing technology and chang
ing fashions bring about changes in our economic and social lives which
require adjustment.
A city, therefore, must continue to have a meaningful purpose.
It must perform some function, and most important, it must be able to
meet the needs of its population. In this regard, civilization would in
dicate that urbanism has built-in attractions and tends to be an accepted
way of life.
Both ancient and modern civilizations reveal extensive popula
tion movements from rural and agricultural areas to the city.
The
question, however, is to what cities do people go? Why, for example,
do Southern Italians by-pass Naples to go to Rome? Why did the move
ment beginning with the mid-19th century to the American West result
in a concentration of population in some cities while others declined?
To answer these questions requires, in my judgment, the need to iden
tify the role of a city.
The community must then be organized to ful
fill this purpose, to develop the underlying ideas, and in this way to
enhance the city. One of the most effective tools which has been devel
oped in this country to achieve this goal is urban renewal. In this con
text, urban renewal is not merely redevelopment and slum clearances
but represents total community mobilization.
Involved is the achieve
ment of the desirable place to live, full opportunity to work, and at
tractive facilities for leisure time.
American cities do not have a choice to start as completely new
cities. We cannot do what Brazil is attempting in building a new capitol
in the hinterlands --Brazilia, or what Pakistan is attempting, to add a
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new community--Islamabad--to an existing city. The challenge to Am
erican cities is that they must rehabilitate.
In the rehabilitation ap
proach, every possible emphasis should be given to save whatever is
useful and to restore and remodel so that they fit in with new develop
ments of a sound economic basis. This standard, however, should not
result in any fear to tear down structures when necessary. We must
recognize that there is need to have new development at all times to
keep growing.
In fact, we have found in Philadelphia that the new sets
off the old even better.
Obviously, such new construction should be in
line with the overall objective.
The community's program, to be successful, must be all en
compassing and a balanced one.
All aspects of urban economics and
living must be taken into account and programs developed in all of these
areas. In considering a program for the community's economic better
ment, the leaders should begin by identifying what strengths exist and
what is the potential to develop.
For example, one community might
concentrate on industry, others on developing trade and tourism, others
on raw materials.
In Philadelphia, we have recognized the need for industrial .de-_
velopment because of the employment opportunities presented and becarree of the availability of skilled labor.
Our programs including in
dustrial development and redevelopment have ^resulted ' in de'tthxg up
industrial parks that can compete with the best in the nearby suburbs.
Government powers are used to improve land so that we have the suf
ficient acreage usually available and in unbuilt suburban land areas,
but not in the city itself.
The Philadelphia program also provides key financing help.
This fiscal assistance is in the form of low interest loans sponsored by
a non-profit corporation which is exempt from the Federal income tax.
This financial aid as well as other parts of the industrial program re
cognize that we can still use many of the older manufacturing plants
such as loft buildings.
They are made available to firms just getting
started and others which require a very low rent. By improving loading
and off-street parking facilities as well as clearing up the mixed zoning
in the area, such loft buildings become attractive for industrial use.
-Another major concern in economic development is retail shop
ping.
In Philadelphia, we are working with center city merchants to
make their shopping streets more attractive, and in one case, IMarket
Street East, to develop a unique shopping center which can more than
hold its own against suburban competition.
At the same time, we re
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cognize that neighborhood shopping areas have to be improved in order
to hold people within the city. In addition in Philadelphia, the impor
tance of the downtown area not only for the city but for the entire ec
onomic strength of the region is reflected in our program. Redevelop
ment is providing opportunities for new office buildings, wholesale cen
ters, and cultural activities. These are being supported by improved
transportation and off-street parking.
Finally from the economic aspect, programs are being devel
oped to expand our port, airport, and Convention Hall, in order to at
tract more business to Philadelphia.
The city's residential improvement program is the one which
had the earliest start and as a result, much progress has been made.
Through slum clearance, a number of cancers have been wiped out, and
new housing ranging from public housing for low income families to
high-rise apartments have been provided.
Even more significant, however, is the newer program to main
tain existing neighborhoods which are essentially sound but which are
beginning to show the early signs of blight. By encouraging property
owners to repair their buildings and by government providing improved
facilities, old neighborhoods are being revitalized.
In Philadelphia, we also recognize the need to preserve our his
torical heritage. The programs initiated not too long ago have already
produced results in restoring historical buildings particularly in the
area around Independence Hall, the famous "Society Hill. "
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As part of the balanced program in Philadelphia, urban renewal
aid has been made available to key institutions such as universities,
hospitals and museums.
This facet of the program recognizes that
without institutions which provide the .flavor and the excitement of urban
renewal, that a community is not fully exploiting its potential.
Three major universities in our city all agreed to drop plans for
suburban campuses and to remain within the heart of the city on a pledge
by City Government that land areas would be made available.
Shortly, the redevelopment agency will undertake the development
of a cultural c&nter adjacent to the famous Academy of Music.
Government, of cours-e, has a more direct role to play in. the re
building and rehabilitation of the community. Not only are playgrounds,,
schools, libraries, and health centers essential for modern-day living-,
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butthey also encourage people who live nearby to maintain and improve
their properties. In Philadelphia, these programs are carried .out
through a very carefully planned financial program well within the debt
limit.
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Because transportation is necessary to tie together the various
developmentsand to encourage movement and communication within the
city, a good deal of the program effort in Philadelphia has been in this
field. Philadelphia has pioneered in providing subsidies for mass tran
sportation so that ridership on commuter lines has greatly increased.
In addition by use of city government borrowing power, both subways
and railroads have obtained new equipment which also increased riding.
Now in co-operation with the other counties in Southeast Pennsylvania,
the mass transportation system will be unified and expanded through a
regional authority.
Highways, however, cannot be neglected.
Philadelphia has
pushed ahead in developing a highway network and with off-street park
ing in strategic locations.
No program of this magnitude can’be carried out withoutproblems and difficulties. Inherent in our governmental structure is that
its jurisdiction is confined to official boundaries 'while living, working
and transportation operate in a larger region. The competition for in
dustry, the multiplicity of governmental units all tend to retard the pro
gram and make it less effective. Some progress, however, is being
made in the Philadelphia metropolitan region through a Regional Con
ference of Elected Officials.
A community rebuilding program inevitably causes displacement
and hardship. It is impossible to satisfy everyone. The greatest dif
ficulty, however, has been encountered in relocating large families and
small businesses. New government aids particularly in the latter cate
gory, are necessary to alleviate serious hardship.
For the community rehabilitation operation to be a success, it
is necessary to have a combination of government leadership, citizen
support, private investment in government'■sponsored activities, anda sound planning concept. With this type of organization, the com
munity will find that the rebuilding not only stops the decline but pays
off in many ways.
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In Philadelphia, for every dollar of government funds an aver
age of better than five dollars of private capital has flowed into the pro-
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gram. After eight years of active operation, we are able to say that no
tax increase is necessary to continue and enlarge government services.
The greatest contribution, however, is in improved conditions for Our
citizens and the providers of greater opportunities for work .and play.
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INTRODUCTORY REMARKS
Q
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Wilbur Shorts
President, Northeastern Pennsylvania
Homebuilders Association
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It is a very real pleasure for me as President of the Northeastern
Pennsylvania Home Builders Association to present the next panelist
whose topic is, "The Survival of the Central Business District."
In the rehabilitation of an older community, particular attention
must be paid to the core area, the central business district. There is
no more important field in the whole subject of land economics than
the central city.
The out-migration of shops and businesses into shopping centers
attests to the well known fact that the central business district has not
successfully coped with its problems. The central business district
has either ignored the new role it must play in the city of the future, or,
if it has understood this new role, it has been negligent in responding.
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It gives me a great deal of pleasure to introduce Mr. Paul F.
Miller who will speak on, "The Survival of the Central Business Dis
trict. "
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SURVIVAL OF THE CENTRAL BUSINESS DISTRICT
by
Paul F. Miller
Development Coordinator
City of Lancaster
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Since the end of World War II, the American landscape has
undergone many changes. These changes have been the subject of books,
movies, magazine articles, and speeches by so-called experts. The
continuing growth in population, coupled with increased incomes and
changing technologies, have combined to exert new pressures on urban
growth. To the extent that changes have occurred, the new suburbs
portray best what we apparently want, need, and can afford. The old
city core, on thfe other h^nd, portrays what we were. Obviously, the
downtown suffers by comparison with suburbia in terms of what we want.
Empty stores, crowded streets, lack of parking space, old buildings, unattractive residential, warehouse and industrial zones around
the downtown all dissuade us from using downtown the way we would like
it to be used.
The title of this talk, "Survival of the Central Business District, "
clearly indicates that we commonly believe that changes in recent years
have hurt the downtown and that the downtown must react to current
changes if it is to survive. It is probably a very fair statement that,
unless the downtown offers us the thljmgs we want within our changing
society, then the downtown will not survive. Certainly the downtown
has remained static and does not reflect our collective desires to the
same extent as the shopping center does.
Remembering, therefore, that the downtown cannot survive in
the static, stagnant sense, our concern should be with the type of change
that should occur within the Central Business District that will allow
the Central Business District to survive as the economic and social
nucleus of its tributary region.
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Although all literate Americans are continually reminded of the
changes wrought by the invention and common use of the automobile,
we probably do not fathom the extent to which the automobile has changed
our existence in so many different ways. Within the last one-half cen
tury, man has moved from the pedestrian scale to the automotive scale;
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and this change in scale parallels, in terms of cumulative impact, the
relative decline of the downtown.
As an illustration of the different scales, appreciate the extreme
differences between the pedestrian architecture of the Victorian Age
with the automotive scale architecture of today. The Victorian Era was
the era when man walked to work, to church, to shop, to visit, and,
hence things were compact and architecture was oriented to the scrutiny
of a man walking two to three miles an hour past any given structure.
In the pedestrian scale of things, then, one could appreciate the fine
detail on stone and wood and glass and brick on the fronts of buildings.
At a pace of three miles per hour, one had the opportunity to appreciate
such detail.
On the automotive scale, however, the uncluttered, contem
porary look reflects the view point of an auto-borne society traveling
at 35 miles per hour and up.
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Visualize, quickly, the contrast in shape, size and detail of
the typical downtown blockwith the shopping center. The shopping center
being, thus far, a much less permanent institution than the downtown,
reflects our more recent tastes and desires; but a shopping center,
too, has changed.
Shopping centers have been around long enough to permit some
comparison and contrast between the earlier editions and the most
recent centers. Even to the untrained eye, it is evident that most early
shopping centers were often crude in planning, style, and material.
These earlier shopping centers catered too much to the single factor of
convenience and not enough to the comfort and wants of the shopper.
The newer form of shopping center (such as Cherry Hill) moves beyond
the satisfaction of convenience of access, and excites the participation
of the customer. The air-conditioned mall, with its many attractions,
a more pleasing appearance, and other elements combine to result in a
second-generation shopping center which appears to have blended the
best of the pedestrian and the automotive scales.
The more recently built shopping center, then, exemplifies a
beneficial blend of the convenience of the automotive scale and the int
erest of the pedestrian scale. The new shopping center is a more com
plex thing in which the shopper is confronted by stores and activities
much more varied than those of earlier shopping centers. The theatre,
birds, flora, kiosks and exhibits have been added in the shopping center
not only to attract the customer but also to hold himand to make his stay
in the’shopping center an impressionable experience, one that he will
want to repeat. This is just the kind of commercial environment that
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the shopper should experience in the Central Business District. The
convenience of access and the year-around, air-conditionedmall have,
given the second generation of shopping centers a competitive edge over
the downtown commercial complex.
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The proliferation, of shopping centers tends to weaken any indi
vidually established center. The great majority of shopping centers,
therefore, do not have the atmosphere of permanency that is true of the
downtown. Further, the proliferation of shopping enters in the sub
urban areas of maximum growth, where zoning and thoroughfare planning
are often at a minimum, also results in congestion during peak hours.
This congestion appears to be getting worse and defeats the very sig
nificant matter of convenience, upon which the shopping center, to a
large extent, is based. For those areas of uncontrolled growth, then,
convenience of access becomes more a matter of distance than a matter
of an easy driving experience.
Many downtown promotion campaigns have featured"permanency"
of the downtown in an attempt to maintain or recapture the loyalty of
shoppers. The "100% Corners" within the downtown can shift over the
period of decades, from one block to another, but the downtown will
stay the downtown over a period of centuries. It is very important,
therefore, that the potential shopper be reminded of the uniqueness and
reliability of the downtown as a shopping and cultural complex.
We should note here that the shopping center is,not a total enemy
of the downtown, not are we implying that there is a life-and-death
struggle between the shopping center, on the one hand, and the Central
Business District on the other. What concerns us is that the downtown
maintain adequate vitality to keep its role as the socio-economic focus
of the regional matrix. It is apparent that the shopping center, situated
as it is on the growing fringe of urban areas, will continue to increase
its relative share of an urban area's total retail spending. However,
despite the relative decline in the retail potential of the downtown, it,
nonetheless, should be vital enough to experience continued, absolute
increase in sales so that individual businesses and, hence, the total
retail complex, maintain an aggressive position and higher physical
standards. In those communities where the Central Business District
is not experiencing, in general, an annual increase in absolute sales
(discounting inflation), the evidences of declinebecome apparent--build
ings are not physically maintained, vacancies occur, non-retail estab
lishments rent stores once occupied by retail firms, business collect.-ively lacks the aggressiveness to develop adequate off-street parking,
declining tax assessments--these all' are part of the story of decline
occasioned by the Central Business District's retail degeneration.
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Communities across the country have planned for downtown re
generation that have varied in magnitude, nature and implementation.
Some communities are of the opinion that the provision of an express
way to the downtown is the most significant benefit that the downtown
can receive, whereas others seem to think that the provision of offstreet parking is the single, most important approach.
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What is important is that the total problem of thedowntown be
appreciated before a campaign of downtown regeneration begins. The
problems of physical and economic obsolescence that so apparently
plague the Central Business District have also wrought their toll upon
the balance of the community. Older residential, commercial and in
dustrial areas surrounding the Central Business District, too, have
been scarred by the change from the pedestrian to the automotive scale.
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The shopping center is both the bane and hope of the downtown.
Suburbanization of population since World War II has occasioned the
growth of shopping centers within convenient access of the sprawling
suburbias across the country. The shopping center, therefore, is a
very logical development and one which will stay, and one which will
change. The shopping center siphons off spending from the total append
ing pool of the region1 s population and, hence, cuts into the sales poten
tial of the downtown. However, to the extent that the older, obsolete
downtown can borrow from the more successful attributes of the newer
shopping centers, that is the ext ent to which the downtown can reflect
our population's wants and desires, and can look forward to a revitali
zation.
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What is important to understand, then, is that the downtown
suffers from the blight that too often surrounds it. To the person
traveling downtown, the "grey" neighborhood surrounding the downtown
becomes an obstacle to overcome; and, hence, these "grey" neighbor
hoods detract from the desirability of living, working, or passing time
in the downtown.
The entire community, then, is the problem, not just the downtown. Planning for the downtown's revitalization, can, perhaps, occur
in isolation, but such revitalization can only occur best and permanently
if downtown revitalization is the result of the community's revitalization.
Comprehensive planning is the broad program we first must establish}
and this program must reflect what we are and what we want to be.
New neighborhoods must be created around the downtown through
renewal's two aspects of clearance and rehabilitation. Downtown Wash
ington, D. C. , is benefiting from the gigantic redevelopment project,
known as the "Southwest Project," in which thousands of new apart-
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�ment units are being built in the former slum shadow of the Capitol.
The rehabilitation, primarily through private initiative, of the Capitol:
Hill, Foggy Bottom, and Georgetown neighborhoods also serves to en
velop the commercial downtown of Washington in a gradually improving
series of neighborhoods strengthens the commercial potential for art,
theatre, restaurants and other similar activities in the downtown. The
atmosphere in these developing neighborhoods also serves to create
an environment of desirability that will, hopefully, permeate the com
mercial downtown as well.
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Here I would like to add a comment to those who are particularly
interested in the re-establishment of good residential neighborhoods
near the downtown. In Lancaster, as in many other cities, there are
many buildings of historical and/or architectural significance within
ready proximity of the commercial core. Without recourse to some
thing as dramatic as urban renewal, a program can be devised to in
terest people in buying up and improving interesting residential prop
erties which exhibit some unique character. Walking tours, newspaper
articles, radio and television shows, and urban renewal can all be used
to encourage the up-lifting of older, downtown residential neighborhoods
through historic restoration. The Lancaster Redevelopment Authority
engaged the services of Mr. Charles Peterson, F. A. I. A. , of Phila
delphia, to survey the architectural and historical significance of build
ings in three renewal projects. If we are successful in Lancaster in
preservingthpse structures of significance, we will also have stabilized
residential areas which, in turn, willhelp enhance the long-range health
and vitality of the downtown.
Althoughthe original thrust of urban renewal was in the direction
of residential redevelopment, an increasing emphasis is being placed
upon the use of urban renewal as the vehicle to effect the more dramatic
approach to the Central Business District's revitalization. This re
minds us of the dilemma faced by the downtown. On the one hand, the
basic and necessary approach of comprehensive planning is long-range
in most of its aspects and provides no quick adjustment to immediate
or even short-range problems.
The problems of obsolescence and the competition provided by
enveloping shopping centers have accumulated in maty communities to
such an extent that the downtown is becoming too weak to effect a re
surgence on a significant scale. Major downtown Urban Renewal pro
jects, then, although applicable in all communities, nontheless, are
a tool most appropriate in those communities where no time can be
wasted.
Marketability of land is the problem in those cities that have
"weak" downtowns. Will the proper developer actually be found, and
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will this developer be able to successfully develop new retail space,
the office building, the motel, and the new department store? This
question of marketability perhaps is more serious in smaller cities,
especially in the retail sector where the number and type of major retail
facilities are so much more restricted than in the larger cities. A very
surprising thing is that so many downtowns have had renewal projects in
the real estate market has been good and the project has been carried out
inmany cases, with a good measure of success. The real estate aspect
of downtown renaissance must be given priority so that the business firm
contemplating urban renewal land will be able to visualize financial gain
equal to or surpassing any alternative opportunity insuburbia.
Although downtown renewal is often used as a "crash" program,
every attempt must be made to relate the planning and renewal program
in a continuing way and in such a way that planning is clearly the mother
of renewal, and not vice versa. In Lancaster our downtown planning
program has clearly preceeded renewal action. The model and report
on the "Downtown 1980 Study" were well publicized and, as a result,
specific projects were generated.
Where the model showed a large parking structure, there is one
today. Our city’s largest department store, Watt & Shand, joined forces
with the Redevelopment Authority and as a result of this non-federal
renewal project, a 700-car garage was built as well as first floor com
mercial space. Although this parking structure has been opened for a
very short time, its success is insured and.retail stores within a twoblock radius report that sales are consistently up and that some cus
tomers havebeen seen for the first time in five or six years. A further
measurement of the impact of this parking facility is to be had through
the park and shop validation system. Here is a clear-cut example of
comprehensive planning giving birth to a specific project which from
every indication will have a substantial impact upon the continued via
bility of downtown Lancaster.
The "Downtown 1980" plan also suggested urban renewal in the
second block of North Queen Street. Most interesting is the way that
urban renewal has come about in this specific part of Lancaster's central
business district. A group of businessmen founded the Central Lancaster
Development Corporation which paid for design and market studies for
that part of the downtown suggested by the "Downtown 1980" plan for
renewal.
The Central Lancaster Development Corporation worked
closely with the City Planning Commissionand the Redevelopment Auth
ority with the result that the North Queen Street Redevelopment Project
has been certified, preliminary planning approval has been given, and
a Final Urban Renewal Plan is in preparation.
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The Central Lancaster Development Corporation is a prime ex
ample of the type of cooperation that can exist between government and
private enterprise in this serious and continuing business of downtown
resurgence. Both government and business stand to lose much if the
central business district declines, and it is obviously appropriate that
a partnership should occur in this situation. This business-government
cooperation has occurred in many cities, such as Pittsburgh, Philadel
phia, and several others.
It is evident, then, from the experience of Lancaster in the last
few years, that comprehensive planning can effectively spawn major
downtown projects through both private and public initiative. Urban
Renewal, as one of the major ways to implement plans, permits massive
economic response to the challenge of shopping center competition.
The shopping center has been especially successful in competing with
the downtown because it represents the collective action of many ten
ants within a unified parking and architectural scheme. An individual
store in the downtown can modernize and expand and help strengthen the
downtown; the urban renewal project, however, provides the downtown
with the same unified approach of many tenants that one finds in the sub
urban shopping centers.
Further, urban renewal in the central business district presents
an opportunity to provide those people-oriented activities and things
that are part of the pedestrial scale. The best examples of these peopleoriented things are found in the air-conditioned mall environs of Mid
town Plaza in Rochester, Northway Mall in Pittsburgh and Cherry Hill,
east of Camden.
By rebuilding into the downtown those features that delight and
attract us, we will enhance the ability of the central business district
to attract a fair share of the regional retail dollar. The customer and
businessman both have the alternative of doing business in suburbia or
in the central business district. A massive effort must be launched
and maintained to continually improve the downtown as the better alt
ernative for shopping, recreation, investing, working and living.
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In this presentation, we have repeated the theme that the prob
lem of the central business district results from changes affecting our
habits and wants within the framework of the metropolitan community.
The central business district must adjust physically to new habits and
to new competition. This physical readjustment must accommodate
both the convenience of access demanded by the automotive scale and
the interest and intimacy of the pedestrian scale.
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The survival of the central business district is a matter that
demands continuing care and not just intermittent interest. As part «f
our continuing care for the health and wealth of the central business dis
trict, we must recognize that our attention should be directed to the
proper planning of the entire metropolitan area. Suburbia, too, has its
problems and these problems are becoming more and more apparent as
earlier suburban buildings experience physical and economic obsol
escence.
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We face, then, a total program which demands newer forms of
metropolitan-governmental cooperation from which, in turn, we will
have an environment which will best enable us to maintain the vigor and
delightfulness of the new central businessAdistrict.
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�INTRODUCTORY REMARKS
by
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John P. Sammon
Wilkes-Barre Real Estate Board
Continuing the theme of the Conference, there are a number of
questions that arise from the point of view of my organization, the
Greater Wilkes-Barre Real Estate Board. In appraisals we are con
cerned with the effects of urban renewal both in the renewal area and
the surrounding areas. Another question that presents itself is, "Does
urban renewal pay for itself in terms of land value?"
Our next speaker has been in an excellent position to critically
examine these questions since the City of Philadelphia has had a num
ber of major urban renewal projects. I am sure that he can inform us
as to the effects of urban renewal on the City's tax structure.
Ladies and Gentlemen, may I present to you Mr. Martin L.
Steiger of the Philadelphia Board of Revision of Taxes who will discuss
the topic, "Land Values as Affected by Urban Renewal. "
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�LAND VALUES AS AFFECTED BY URBAN RENEWAL
by
Martin L. Steiger, C. A. E.
Supervising Assessor
City of Philadelphia
If I may, I would like to make several observations before pro
ceeding with the topic assigned to me.
It is my assumption that I have been asked to address this group
this afternoon so that a tax assessor's approach to the problems created
by urban renewal might be presented inan effort to explore the question
as fully as possible,,
Some of you may ask "What does an assessor know about such
he apply that knowledge?" As to the
intricate problems and how can
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first part of the question, a. properly trained and qualified assessor
should be well informed particularly since his job requires that he be
in daily contact with various real estate developments in his particular
locality.
Concerning his application of knowledge he possesses, it
should be born in mind that, although trained in the modern techniques
of real estate appraisal, his objective differs from that of the usual real
estate appraiser. A tax assessor is engaged in mass appraisals in
tended to result finally in an equal distribution of the tax burden in his
community. The average appraiser, on the other hand, is ordinarily
concerned with an individual parcel of real estate, the appraisal of which
is often influenced by the purpose for which it was made, whether it be
for estate taxes, insurance, condemnation, investment, etc.
Although their approaches to value may be similar, their results
will frequently differ. The purpose of an appraisal can very well have
an effect on the result in addition to which, factors that affect values
may or may not be given the same consideration by appraisers and as
sessors.
Nevertheless, my discussion of the effect of urban renewal upon
land valuations will reflect my thinking which has been influenced con
siderably by exposure to the changing city from whence I come.
Land owners and prospective purchasers of land in urban areas
have become more and more concerned with the future of our cities.
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Except in locations where blight has already set in and city plan
ning has not as yet caught up with it or funds for redevelopment are
committed to other projects, several significant types of land develop
ment exist as important factors in the future progress of the older
American cities.
One which has been and will continue as animportant considera
tion, so long as suitable land areas are available, is the continued de
velopment of remaining vacant land zoned basically for residential use.
The population explosion and the flight to the suburbs have been offset
partially by the erection of attractive new homes in pleasant surround
ings located in outlying areas within city limits. It must be admitted
that the certainty of continuing city services, fairly steady tax rates,
existing and modern school systems, good public transportation, and
forward looking government planning will all play an important part in
braking the onward rush to the suburbs.
These comments quite naturally tie in with a second type of land
development. This is the vast program of redevelopment and renewal
that has taken hold so vitally in many of our cities today. Rot and
decay, so evident in the older sections of the American city, has crea
ted a fight for existence. Unless this cancer can be removed to permit
the healthy tissue of redevelopment to take its place, the cause can "be
a hopeless one.
What does all of this mean to the taxpayer and property owner
generally? All of us must be prepared to pay the piper for the multi
million dollar projects already completed, under way, and proposed.
In order to silence critics of so vast a program, these takings and con
demnations have been justified as being necessary for the public wel
fare. To encourage private enterprise many sales have been consum
mated by the taking authorities to private investors. These resales
have disclosed sales prices frequently below the cost involved in pub
lic expenditures. Therefore, one would be justified in assuming that
such sales do not represent market value but a form of governmental
subsidy to private enterprise for participating in these tremendous pro
grams. These sales should be carefully analyzed by assessors and
appraisers alike.
As a native of Philadelphia, I can illustrate more clearly by re
lating some of the experiences we have had in our city. Every time an
other area is publicly designated as a redevelopment area, a movement
out of the neighborhood commences, followed by the inevitable wave of
vandalism. This situation is such a difficult one that it threatens to be
come an ever-increasing problem to our public safety departments.
Property values in areas immediately adjacent to these projects have
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decreased during the transitional period because infestation of slum
areas beyond their perimeters has spread evenbefore old buildings can
be demolished. Even years after completion some of the damage to
surrounding neighborhoods has not as yet been overcome. There are
certain redevelopment areas where this problem has been partially
solved by the taking only of scattered properties within the designated
areas and replacing them with modern housing, creating open space
such as parks and recreational regions, and frequently setting aside
land for commercial, industrial, and institutional organizations already
located there. In the homes that are not taken, the owners are per
mitted to remain, providing approved rehabilitation plans are agreed to
and subsequently carried out.
Two of our outstanding government-sponsored projects are the
Society Hill Development and the large section of southwest Philadelphia,
known as Eastwick.
The Society Hill project, located east and south of Independence
Hall, is withina mile of center city. The Commonwealth of Pennsylvania
and the Federal Government both cooperated to acquire land between the
Benjamin Franklin Bridge to the north and the Delaware River, east of
Independence Hall, where the Independence Mall is now in the final stage
of completion.
One of the trouble spots encountered here was the old DockStreet
wholesale produce market, where the bulk of the city's supply of fresh
food was handled. To acquire this area, it was necessary to assemble
other land near the southern extremity of the city, where city dumps
were filled in to provide a site for the relocation of the produce market.
This has become one of the most modern food distribution centers in
the country.
In keeping with the historical significance of this original old
city, dating back long before the Revolution, residences in the area per
mitted to remain under this program are required to undergo restora
tion to their original form, only as to their exteriors. Where owners
did not consent, they were threatened with the loss of their properties
by condemnation.
New colonial type and contemporary homes have
been erected or rebuilt and others to be completed shortly are selling
from $25,000 to in excess of $50, 000 each. A multiple-story apartment
house on Washington Square is now ready for occupancy and several
more have been started. All new construction has been in the hands of
private developers.
The other development, known as Eastwick, for which land was
taken by the Redevelopment Authority, comprises over 2500 acres of
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land on which may sub-standard homes had been located. Most of the
area was vacant ground, frequently inaccessible and unavailable for use
because most of it was below sea level, in an area adjacent to our Muni
cipal Airport. Several years ago the U. S. Department of Engineers
conducted a dredging operation of our rivers, from which silt was re
moved and transported by lengthy pipelines to this area, thereby raising
the level to a point where utilization in this new program became possi
ble. This project required 11 million cubic yards of fill.
All of this land has been turned over to a group of private building
firms which are in the process of creating an entire community con
sisting of 10, 000 new homes, shopping centers and schools, in addition
to making provision for future industrial expansion. Its estimated popu
lation will be 60, 000 persons. The target date for completion was 10
years.
The most dramatic of all of our renewal programs, however,
has been the now-famous Penn Center development, which was made
possible by demolition of the old "Chinese Wall," a name long agogiven
to the viaduct that carried the Penna. R. R. tracks into the old Broad
Street Station, formerly located in the heart of the city. It is an ex
cellent example of privately controlled and financed urban renewal.
The railroad has maintained control and has refused to sell or lease
land thus made available, unless the proposed improvements would con
form with its own development plan, approved, of course, by the local
authorities.
Except for a change in a portion of the original plan when the
city decided to acquire one segment for City Hall Square beautification
purposes, most everything has proceeded according to that plan. Since
1951, when the land was cleared, there have been erected 3 office build
ings with two more now under construction, a combined modern garage
building and underground bus terminal, the Sheraton Hotel, and two
high-rise apartment houses.
Those of you who have been to Phila
delphia lately may have had the opportunity to see the underground
improvements which have become one of our center city attractions.
On the lower level, which is the extension of the concourse leading to
the Penna. R. R. Suburban Station Building, beautiful shops of all kinds
have been opened, affording the opportunity to shoppers to stroll about
protected from weather and traffic, in very attractive surroundings.
It is anticipated that as a result of the renewal and development
programs referred to in this discussion, the City of Philadelphia will
not increase its realty tax rate for some years to come. The city fathers
feel confident, at least for the moment, that enough additional tax rev
enue will result to more than offset the added cost of local government
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to be expected in the immediate future. Not very many cities have had
the advantage of the fortunate set of circumstances that have come our
way, but it is proof positive that our big cities will be around for some
time to come.
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INTRODUCTORY REMARKS
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Mrs. Edward B. Wicks
President, Luzerne County Federation
of Women's Clubs
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In an older community it is not too difficult to say that com
munity renewal is necessary. However, it is sometimes difficult to
determine the priorities that should be assigned in either renewing or
rehabilitating any particular section. It is a vexing problem and one
that may often provide a great deal of controversy among varying seg
ments of the community.
Even among the business, political, and civic leadership the
amount or extent of renewal may not be readily agreed upon.
Planners and others have devoted quite a bit of time in recent
years developing a set of criteria. Recently, the City of Wilkes-Barre
was designated as a demonstration project to determine methods that
may be employed by a community in evaluating its urban renewal needs.
The First National Bank of Boston undertook this study and our next
speaker was an integral part of this study.
Therefore, it is a pleasure to present Mr. Erastus Corning III
who will discuss a phase of this study entitled, "Measurement of Com
munity Renewal Needs. "
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MEASUREMENT OF COMMUNITY RENEWAL NEEDS
by
Erastus Corning III.
Assistant Manager
Urban Renewal Department
First National Bank of Boston
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Few people today doubt that urban blight is a serious problem
which besets most of our nation's communities, and few people are
unaware of the massive local, state, and federal program of urban re
newal which for nearly fifteen years has been attacking the housing and
environmental deficiencies which have encouraged many of our neigh
borhoods to remain blighted or to become more blighted. Many cities
have consistently been in the headlines because of the good or badqualities of their particular urban renewal programs, and the average citizen
or public official is aware of this; he is, however, all too often lacking
in an understanding of the relationship which exists between existing
blight, plans and programs to remove blight, and the finished product
of redeveloped land or rehabilitated buildings.
While nearly anyone can have a vague or specific feeling that
blight exists in a given community, it is not always so easy to answer
the questions of what theblight should be replaced with, how this should
be done, and where to start. The latter question, where to start, can
be so imposing as to discourage those who might otherwise support
active participation in community development activities.
How is it
possible to measure the need for renewal in a community with many
blighted areas, and how is it possible to determine in a reasonable
manner which blighted areas need remedial treatment the most? One
way which The First National Bank of Boston has found useful in its
studies of municipal financial structure and in the preparation of fiscal
programs is a modified version of the cost-benefit analysis called the
land use revenue and expenditure (LURE) study.
The LURE study is a method of comparing different parts of a
city with each other in order to determine their inter-relationships in
terms of municipal revenues and expenditures. These inter-relationships are expressed as dollars of municipal expenditures and munici
pal revenue attributable to particular areas of a city. Totals of ex
penditure and revenue are usually developed for the latest fiscal year
of the city for which complete financial data are readily available.
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The first step in the study is to divide the city into land use
sections which are simply small areas, normally of less than neighbor
hood size, which are used for generally the same purpose throughout.
This purpose can be residential, commercial, industrial, or the land
may be vacant. Areas used for the same general purpose, such as resi
dential, will be further differentiated from adjacent, sections where the
use is the same but where the type or quality of that use is different.
Thus, a single family residential area, a two-family residential area
in good condition, and a two-family residential area in run-down con
dition, would comprise three distinct land use sections, even though
the general use is the same. An older city with five to ten square miles
of land might be expected to have between forty and eighty of these land
use sections, with the exact number depending on the historical growth
patterns of the community.
When the sections have been outlined, their areas in acres can
be determined, and the actual task of computing revenues and expendi
tures can begin. Where a particular municipal expenditure can be pin
pointed in a given land use section, such as the location where fires
have taken place, where arrests were made, or where major street
construction took place, it is a simple matter to assign the cost to that
section. Where other municipal costs are not so obviously attributable
to one section rather than another, it is necessary to distribute the cost
among the different sections using a proportional method which allots
a certain amount of the cost to a section depending on a variable, such
as the total population in the section, the total assessed valuation, or
some other factor. The same procedure is followed in determining the
amount of municipal revenue which came from an individual section.
Where an item of revenue can be exactly located, for instance, the
amount of real estate tax collected from a section, this is done; where
this is impractical, a logical proportional method is used to achieve a
reasonable approximation of the total revenue accruing from each of the
sections.
In this manner, the computation of the total municipal expendi
ture and total municipal revenue over a year is determined on a section
by section basis throughout the entire city. When the totals are arrived
at, they are divided by the number of acres of taxable land in the sec
tion, in order that the figures used for comparison will be in terms of
dollars of revenue or expenditure per net acre. When this is done, the
smaller of revenue or expenditure per net acre may be subtracted from
the larger, to find out if the section is deficit (expenditure exceeds rev
enue) or surplus (revenue exceeds expenditure). At this point, the sec
tions may be ranked from most deficit per net acre to most surplus per
net acre. This information can be portrayed most effectively on a map
with different shades of red and blackused to denote varying degrees of
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�the deficit or surplus condition.
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The information assembled and processed in the course of the
LURE study is now in usable form, and may be integrated with the neigh
borhood analysis portion of the city's planning efforts. This permits
environmental features to be considered in conjunction with the economic
or fiscal criteria used in the LURE study, and makes it less likely that
decisions will be based on too narrow an approach. If the dollars and
cents facts have been prepared and presented in a logical form, it will
be possible, through further analysis, to determine what section char
acteristics appear to bethe likely causes of the deficit or surplus con
dition. For instance, one section may have a disproportionate amount
of police arrests or fires, and the course to preventive measures may
be fairly clear. Another section may be simply under-assessed and not
paying its fair share of municipal revenue, and some sections may at
the time of the study have large numbers of school children among their
residents, and this .may cause the section to appear deficit. This latter
caseindicates the importance of a thorough searchto uncover the under
lying cause of the deficit or surplus condition, because being deficit in
itself doesnot meananything "bad" abouta section, anymore than being
surplus is necessarily "good" in more than an economic sense. The
reasons and causes for the condition, rather than the condition alone,
are what will reveal the good or bad qualities.
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The LURE study serves several useful purposes. One of the
most important of these is that it gathers together in an understandable
form a measure in dollars and cents of the cost to the city represented
by blighted areas. In some cities, the most heavily blighted land use
sections may have municipal expenditures per net acre of as much as
$5,000 to $10,000 greater than the municipal revenue per net acre. The
most heavily deficit sections are clearly those which will merit a closer
examination and extensive field study to determine if the situation is
such that remedial action will be necessary or if the deficit condition is
brought about by factors which in themselves are not undesirable. If
the situation is found to be undesirable, examination of the facts assem
bled in the course of the LURE study may indicate the most appropriate
method for correcting deficiencies. Improved police protection, more
active fire prevention programs, or urban renewal are examples of the
types of remedial action which the LURE study may suggest as worth
while. The specific nature and character of blighted areas is high
lighted by this kind of analysis, and this in turn can be a valuable guide
to the corrective activities which should be considered.
A second major purpose of the LURE study is to rank different
areas of the city in a priority rating schedule which will show which
areas, for a given set of criteria, are "worse" than others and by how
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�much. This indicates which areas need the closest kind of further study
and appraisal, which areas are sound and likely to remain so, which
areas are sound but need strengthening action to keep them that way,
and which areas need little more than continued enforcement of existing
ordinances to maintain their present value to the community. While
this priority rating is not the entire answer to the question of where to
begin, it is a start in the right direction in that it tells what areas are
a burden to the city, as well as just how much of a burden they are.
These, then, are the areas which will get further attention from the
planners, city officials, and others who have an interest in the com
munity's future. In this way, the LURE study can be thought of as a
hand which points the way to the answer without telling exactly what that
answer will be.
The third major use for the findings of the LURE study is to be
found in the manner in which the results of the study are assembled and
presented. The deficit-surplus map and the narrative description of
land use sections falling in particular neighborhoods can serve as vital
tools in the communication by city planners to public officials and to
private citizens of what the condition of the city is today, and what will
be necessary if it is to reach some desired goal tomorrow. In a graphic
manner the strengths and weaknesses of a community can be portrayed
by this study; these strengths and weaknesses can be described in terms,
dollars and cents, which are understandable to all. This kind of com
munication is all-important if plans are to be met with public approval’
and if they are to be understood, accepted, and supported by the city's
official bodies.
Three main uses emerge from the LURE study, which is a com
parative analysis of the interaction of land use and municipal revenue
and expenditure. These uses are as a tool to measure and describe
the cost of blight, as a tool to establish priorities and methods of treating
blight, and as a public relations tool that can help to communicate what
the planner is thinking to the public and to public officials. Intelligently
used, the LURE study can be a useful aid to those who are planning the
city's future and who must make valid decisions about different sections
of the city.
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��PRIVATE ENTERPRISE: A PARTNER IN REHABILITATION
by
Fred Forman
Treasurer, Midtown Holding Corporations
Rochester, New York
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Ladies and gentlemen, a few years ago Midtown Plaza was dev
eloped in Rochester, New York. It is both a real estate development
and a shopping center. And Midtown is more. It is a symbol of faith
in the future of downtown. It is an example to all of the country's cities
suffering deteriorating downtowns. But first and last it is a dream come
true. Bigger than life, heady with praise, Midtown Plaza is the boast
of every one of the 1, 300, 000 residents of the nine-county Rochester,
New York, trading area. And this city of quiet civic pride is a shouting
town today.
Midtown was born in the imaginations of the officers of two of
Rochester's leading downtown stores, McCurdy & Co., and the B.
Forman Company. Gilbert J. C. McCurdy, his brother, Gordon W.
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to put Midtown on paper. In his plan he included a 2000-car garage, but
put it underground on three sub-levels, leaving the acreage above ground
for the Plaza.
Proceeding with Midtown meant taking a great risk: construction
costs would be great and the whole project would be contingent on the
City's willingness to allocate funds for street modifications and the
building of the municipal Midtown underground garage. We could not
be assured that the City Council would go along with the Midtown plan.
Compounding the risk was the fact that the land to be acquired
for Midtown was in 17 separately-owned parcels. We hadn't the right
to buy and condemn the property as the municipality could, so it was
necessary to buy the property in secret and avoid a skyrocketing of
prices. Many times the project bogged down in legalities and many
times the great gamble seemed a losing proposition.
We kept our faith in Midtown and in ourselves, and worked hard
to realize our dream. We dismissed our idea with the Mayor, City
Manager, and Chairman of the Planning Board so we could see whether
it would fit in the plans the City had for the future.
It was necessary for us to invest our own money in this project
because our stores could not wait for the City, State, and Uncle Sam to
build for us. As an example of the slow process of obtaining state or
federal funds, I have here a photostat of a newspaper article which
appeared in the TIMES UNION of August 8, 1951. The headlines read,
"Report Outlines Plans to Develop Front Street. " Front Street was an
area slated for rehabilitation. Just yesterday Mayor Gillet announced
that he thinks the Federal Government is finally contributing its share
of $7 million for the Front Street area, which had been promised for 15
years. We couldn't wait that long to build up Rochester's downtown
shopping area.
Since it was obvious that great sums of money were needed for
the whole project, a plan was arranged with the City which is beneficial
for all concerned. The contract we finally settled upon called for the
City to build over our plaza's 2000-car garage and to close Courtland
Street. The City received an easement to our land in exchange for the
rights to it. Our seven acres of land were turned over to the City for
$1. 00 per year for 100 years.
The City built the garage for approximately $8 million. It didn't
cost much more (about $60 more per car) than the garages the City had
built above ground. Eventhough the dynamiting and digging were expen
sive, the City saved money since it did not have to purchase and condemn
the land.
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Midtown Plaza, "The Nation's Showplace," is the largest down
town business and shopping complex under one roof inAmerica. Anchor
ing the south portion is the 18-story Midtown Tower with its 13 . floors
of business offices and the 4-story hotel and Top of the Plaza Restaur
ant above. Rising 251 feet above the ground, it is Rochester's highest
building and first skyscraper in 30 years. More than 1 million feet of
retail space is accessible from the Plaza Mall.
Most of the 40 new shops and services on the Mall and Terrace
levels are open for business and the remainder are f&st abuilding. The
McCurdy and Forman stores are integrated with the Plaza Malland Ter
race. The new Rochester Telephone building is accessible from the
Plaza.
Midtown Tower provides 18, 500 square feet of working space
on each floor, with a total of about 260, 000 square feet. The Tower
contains 1120 specially-designed windows, three feet wide and six and
one-half feet high, a unique size which emphasizes the verticality of the
building and dramatizes its height. Six automatic elevators serve the
office and restaurant areas of the Tower. A seventh serves the hotel
exclusively. The first-floor lobby of the Tower building opens into the
Midtown Plaza Mall, which is approximately 300 feet long and 115 feet
wide, with an "IS" section 100 feet long and 80 feet wide.
The Mall, 60 feet high and supported by 18 columns, ties to
gether the McCurdy and Forman stores, the Tower, and 220,000 square
feet of new shops and services on the Mall and Terrace. In addition to
the stores opening into it, the one-acre Mall features a unique Sidewalk
Cafe which seats 130 persons. Planters of tropical foliage, and 40 other
movable planters heighten the Mall scene.
A "floating" cantilevered staircase at the northeast end of the
Mall rises above a unique reflecting pool lined with imported Italian blue
glass mosaic tile. Underwater lights impart an amber hue to the pool's
fountains.
The dominating element of the Mall is the 28-foot high "Clock
of the Nations," designed and built exclusively for this huge "village
square. " Cylinders of the clock open on the hour and half-hour to reveal
animated scenes of 12 nations. Marionettes in native dress dance to the
music of the lands depicted.
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All of Midtown is air conditioned and heated. The single airconditioning system, serving the Tower, Plaza, Mall, the Forman store,
and the new telephone building, is located on the third floor of the Tower
building. It is one of the largest steam absorption systems in the world,
with a rating of 2100 tons of cooling capactiy.
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�Under the Midtown complex is the metered 2000-car municipal
garage. It is ventilated throughout, with a change of air every two min
utes. Closed circuit television and elaborate electrical equipment in
sure safety, a smooth flow of traffic, and orderly parking.
When Midtown opened in April of 1962 the second largest bank
in Rochester, the Security Trust Company, announced that it would
build a new main office in back of Midtown Plaza. The land was pur
chased for $1,600,000. The 14-story building will open next spring.
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About two months later the Union Trust Company bought the
entire block on which they are situated, and are now in the process of
building a 16-story motel. Across the street from Midtown a 240-room
hotel, assessed at $2, 200, 000, will accommodate 160 cars in its base
ment garage.
In the past few weeks Zerox purchased some of the land in order
to build their executive headquarters, which will be called Zerox Square.
From their plans, which I have seen, it looks as though the building
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means to the City and County taxpayers. As an announced $15 million
project, it is expected to add roughly $8 million to the assessment rolls
based on the City's equalization rate of 55%. Since the combined City
and County rates are approximately $40 per thousand, this means new
taxes for the City, County, and School of about $320, 000 per year.
We think that Rochester will have, since the opening of Midtown,
about $18 million, not in new taxable assessments, but in actual dollars.
The new movement is to town.
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The City found that when it built the garages for our competi
tors, hundreds of thousands of dollars from the tax rolls were lost when
the buildings were demolished. When the land was condemned, the City
lost several hundreds of thousands of dollarsmoreintheassessed valua
tion of the land. In the case of Midtown, the City added our land, still
on the books, plus over $25 million in new taxable assessed valuation
from the property which we contracted to build above the land.
We have had opposition, disappointments, hurdles, and many
problems. As I've said, it has not been easy. One letter to the editor
of our local paper is illustrative of this fact. The letter was written by
the head of a prominent company. He wrote, "If I am right regarding
the impossibility of private investors profitably building, is the City
justified in going ahead with their part in this project with our money?
I feel that the City's investment of public money for this underground
garage would not economically be justified."
We read a lot about urban redevelopment and are absolutely
convinced that it is a great thing. But it can never work unless private
capital starts it. We feel that our project has been the salvation of
downtown Rochester.
This has come only from competition. It has made the people
who before this year were going out to the suburbs, come back down
town again. This does not mean that the suburbs are going to die--far
from it; there is still plenty of business for them. But we think that it
means that when people want to buy something of high quality, they will
come downtown to shop.
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��Costello, Mrs. Angelo
Home Builders Auxiliary
66 Chestnut Street
Swpyerville, Pennsylvania
President
Crosby, J. Muir
Northeastern Pennsylvania
National Bank &c Trust Co.
67-69 Public Square
Wilkes-Barre, Pennsylvania
Vice President
Csala, Gottfried P,
Eyerman - Csala & Associates
54 Public Square
Wilkes-Barre, Pennsylvania
Architect
Cummings, Robert
Bell Telephone Company
53 Public Square
Wilkes-Barre, Pennsylvania
Staff
Supervisor
Davenport, James
Chamber of Commerce
92 South Franklin Street
Wilkes-Barre, Pennsylvania
Secretary
Eck, Frederick J.
Northeastern Pennsylvania
National Bank &c Trust Co.
67-69 Public Square
Wilkes-Barre, Pennsylvania
Vice President
Edwards, J. C.
Bell Telephone Company
53 Public Square
Wilkes-Barre, Pennsylvania
Earnest, Frank
Chamber of Commerce
92 South Franklin Street
Wilkes-Barre, Pennsylvania
Vice President
Farrell, James A.
Urban Redevelopment Authority
First National Bank
Wilkes-Barre, Pennsylvania
Site Manager
Ford, Elizabeth T.
Redevelopment Authority
First National-Bank Building
Wilkes-Barre, Pennsylvania
Administrative
Assistant
�Vice
President
Gardner, Russell E.
Committee of 100, Inc.
92 South Franklin Street
Wilkes-Barre, Pennsylvania
Gerdes, Merl
Bell Telephone Company
53 Public Square
Wilkes-Barre, Pennsylvania
Gilbert, Walter J.
Luzerne County Health Center
71 North Franklin Street
Wilkes-Barre, Pennsylvania
Supervising
Sanitariah.
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Goldstein, Eugene
Planning & Zoning Commission
Kingston, Pennsylvania
Member
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Good, William
Housing and Redevelopment Division
Pennsylvania Dept, of Commerce
Harrisburg, Pennsylvania
Chief
Gra savage, William
Redevelopment Authority
First National Bank Building
Wilkes-Barre, Pennsylvania
Staff
Member
Gregory,, Mrs. Herbert P.
Woman's Club of West Pittston
302 York Avenue
West Pittston, Pennsylvania
Chairman of
Public Affairs
Harter, George W.
Rural Area Development
Pennsylvania State University
Courthouse
Tunkhannock, Pennsylvania
Agent
Haydock, N. J.
Penna. State Employment Service
32 East Union Street
Wilkes-Barre, Pennsylvania
Director
Heiselberg, Edward
Luzerne County Planning Commission
Franklin Federal Building
44 West Market Street
Wilkes-Barre, Pennsylvania
Director
Heiselberg, Mrs. Edward
League of Women Voters
70 Summit Road
Mountaintop, Pennsylvania
Member
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Heitzenrater, Paul R.
Sanitary Water Bdard
Pennsylvania Department of Health
Kingston, Pennsylvania
Regional
Sanitary
Engineer
Hopkins, Robert M.
Advanced Planning Bureau
Pennsylvania Dept, of Highways
Harrisburg, Pennsylvania
Planner
Humphrey, Donald
Real Estate Board
203 Delaware Avenue
Pittston, Pennsylvania
Member
Isenberg, Mrs. Ruth
League of Women Voters
Bennett Building
Wilkes-Barre, Pennsylvania
Member
Kacian, Stanley M.
Wilkes-Barre Merchants Assoc.
Northeastern Nat'l Bank Building
Wilkes-Barre, Pennsylvania
President
Kaufman, Pearl
Lewith & Freeman
16 East Market Street
Wilkes-Barre, Pennsylvania
Realtor
Kazmerski, Cy
Redevelopment Authority
P P & L Building
Scranton, Pennsylvania
Executive
Director
Kiley, Thomas H.
Chamber of Commerce
92 South Franklin Street
Wilkes-Barre, Pennsylvania
President
Kramer, Horace E.
Redevelopment Authority
First National Bank
Wilkes-Barre, Pennsylvania
Chairman
Krammes, Therold
Pennsylvania Department of Health
Lacy, James
Lacy, Atherton & Davis
Hotel Sterling
Wilkes-Barre, Pennsylvania
Architect
Lashford, Edgar
Chamber of Commerce
92 South Franklin Street
Wilkes-Barre, Pennsylvania
Industrial
Secretary
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�Levy, Reuben H.
Wyoming Valley Sanitary Authority
Miners National Bank Building
Wilkes-Barre, Pennsylvania
Chairman
Lex, Louis, Jr.
Bureau of Community Development
Pennsylvania Dept, of Commerce
Towne House
Harrisburg, Pennsylvania
Regional
Representative
Livingstone, George M.
Pennsylvania Dept, of Health
Regional Office
383 Wyoming Avenue
Kingston, Pennsylvania
Regional
Sanitarian
Mailey, Hugo V.
Institute of Municipal Government
Wilkes College
Wilkes-Barre, Pennsylvania
Director
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McCartney, Mrs. Agnes T. Carbon County Planning Commission
Court House
Jim Thorpe, Pennsylvania
McGraw, John
Redevelopment Authority
First National Bank
Wilkes-Barre, Pennsylvania
Staff; Member
McNeilty, James W.
Redevelopment Authority
P P & L Building
Scranton, Pennsylvania
Member
Miner, Charles H. , Jr.
1400 Miners National Bank Bldg.
Wilkes-Barre, Pennsylvania
Attorney
Moyle, Harry
Miners National Bank
Wilkes-Barre, Pennsylvania
Assistant
Cashier
Nesbitt, Mrs. Abram
League of Women Voters
Bennett Building
Wilkes •■Barre, Pennsylvania
Member
Ogden, David
Bell Telephone Company
53 Public Square
Wilkes-Barre, Pennsylvania
District
Manager
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O'Hara, James E.
Redevelopment Authority
322 Northeastern Pennsylvania
National Bank Building
Hazleton, Pennsylvania
Executive
Director
O'Karma, Henry
Redevelopment Authority
First National Bank
Wilkes-Barre, Pennsylvania
Executive
Olshefski, Peter Paul
Redevelopment Authority
First National Bank
Wilkes-Barre, Pennsylvania
Solicitor
Otto, Herman L.
Community Research Center
Wilkes College
Wilkes-Barre, Pennsylvania
Executive
Director
Perkins, Clement
Planning Commission
City Hall
Wilkes-Barre, Pennsylvania
Chairman
Pfeiffer, Mildred (M. D. )
Planning and Evaluation Division
Pennsylvania Department of Health
Harrisburg, Pennsylvania
Director
Powell, Harry D.
Community Development
Pennsylvania Power & Light Co.
600 Larch Street
Scranton, Pennsylvania
Co-ordinator
Pugh, James
Wilkes-Barre Publishing Company
15 North Main Street
Wilkes-Barre, Pennsylvania
Rafsky, William
Old Philadelphia Development Corp.
211 South Broad Street
Philadelphia 7, Pennsylvania
Executive
Director
Riofski, A* ■ Francis
Redevelopment Authority
First National Bank
Wilkes-Barre, Pennsylvania
Research
Assistant
Roth, Dick
Luzerne County Planning Commission
Franklin Federal Building
Wilkes-Barre, Pennsylvania
Senior
Planner
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Rothstein, Alvin S.
Tom Hart Real Estate
25 West Market Street
Wilkes-Barre, Pennsylvania
Realtor
Roushey, RayE.
Pennsylvania Society of Professional
Engineers, Luzerne County Chapter
189 Market Street
Wilkes-Barre, Pennsylvania
F ounder
and
Past President
Rudolph, Mrs. Richard H.
Junior League of Wilkes-Barre, Inc,
499 Rutter Avenue
Kingston, Pennsylvania
Member
Sammon, John P.
Wilkes-Barre Real Estate Board
314 Lindon Street
West Pittston, Pennsylvania1
Member
Savadge, William
Glen Alden Corporation
101 Main Street
Ashley, Pennsylvania
Real Estate
Agent
Schrey, Ralph
Luzerne County Planning Commission
Franklin Federal Building
Wilkes-Barre, Pennsylvania
Senior
Planner
Shaffer, Louis
Chamber of Commerce
92 South Franklin Street
Wilkes-Barre, Pennsylvania
Shapiro, Charles
Merchants Association
24 South Main Street
Wilkes-Barre, Pennsylvania
Sharpe, Kathleen
Carbon County Planning Commission
Courthouse
Jim Thorpe, Pennsylvania
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Shedlarski, Joseph G.
67 Durkee Street
Forty Fort, Pennsylvania
Building
Contractor
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Shedlarski, Joseph, Jr.
67 Durkeet Street
Forty Fort, Pennsylvania
Building
Contractor
Shorts, Wilbur L.
Northeastern Pennsylvania Home
Builders Association
682 Bennett Street
Luzerne, Pennsylvania
President
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Shust, John
Mayfield, Pennsylvania
Sites, Edwin
Redevelopment Authority
Pittston, Pennsylvania
Executive ;
Director
Slattery, Frank
City Hall
Wilkes-Barre, Pennsylvania
Mayor
Steiger, Martin L.
Philadelphia Board of Revision
of Assessments and Taxes
302 Commercial Trust Bldg
16 South Broad Street
Philadelphia 2, Pennsylvania
Supervision
Assessor
Swartwood, J. E.
Sordoni Construction Company
45 Owen Street
Forty Fort, Pennsylvania
Tito, Thomas A.
WAZL
Hazleton, Pennsylvania
Tuhy, Philip R.
Institute of Municipal Government
Wilkes College
Wilkes-Barre, Pennsylvania
Research
Associate
Ustynoski, James J.
Glen Alden Corporation
101 South Main Street
A shl ey, P enn sylvania
Real Estate Agent
Van Keuren, Charles W., Jr.
Pennsylvania Power & Light
Company
Cedar and Buttonwood Streets
Hazleton, Pennsylvania
Wall, Patrick (M. D. )
Redevelopment Authority
First National Bank
Wilkes-Barre, Pennsylvania
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Weiss, Aaron
46 East Dorrance Street
Kingston, Pennsylvania
Trustee
Wilkes College
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Wicks, Mrs. Edward B.
Luzerne County Federation
of Women's Clubs
14 Philadelphia Avenue
West Pittston, Pennsylvania
President
Wideman, Edward C. ,Jr.
E. C. Wideman & Sons
31 West Market Street
Wilkes-Barre, Pennsylvania
Realtor
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Williams, Rufus
Redevelopment AuthorityFirst National Bank
Wilkes-Barre, Pennsylvania
Wodaski, Edward
490 Horton Street
Wilkes-Barre, Pennsylvania
Wood, Walter
City Schools
Wilkes-Barre, Pennsylvania
Superintendent
Yenchko, Andrew
Redevelopment Authority
426 West 13th Street
Hazleton, Pennsylvania
Member
Yenchko, Joseph
Chamber of Commerce
426 West 13th Street
Hazleton, Pennsylvania
Member
Member
�REGISTERED BUT NOT IN ATTENDANCE
Axford, Herbert
Pennsylvania Department of Commerce
Darte, Alfred
Luzerne County Board for
Assessment & Revision of Taxes
54 Public Square
Wilkes-Barre, Pennsylvania
Chairman
Ireland, William
Luzerne County Planning
Commission
Franklin Federal Building
Wilkes "Barre, Pennsylvania
Senior Planner
Goodman, Mrs. Mary T.
Larksville Property Owners
Association
R. D. #1
Plymouth, Pennsylvania
Member
Leib, Matthew L.
12 East Broad Street
Hazleton, Pennsylvania
Morris, Mrs. David S.
Plymouth Women's Civic Club
29 Willow Street
Plymouth, Pennsylvania
President
Mulhall, John T.
1020 Susquehanna Avenue
West Pittston, Pennsylvania
Solicitor
Temple, Guy
Rural Areas Development
Pennsylvania State University
Courthouse
Tunkhannock, Pennsylvania
Agent
Welsh, R. J.
Times Herald
Norristown, Pennsylvania
Editor
634’75
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Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
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Institute of Municipal Government and Institute for Regional Affairs
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1958-1980
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Proceedings Third Annual Community Growth Conference, 1963
Creator
An entity primarily responsible for making the resource
Institute of Municipal Government
Date
A point or period of time associated with an event in the lifecycle of the resource
1963
Format
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PDF
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Publication
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https://omeka.wilkes.edu/omeka/files/original/dde836d47d718971f681eb584c7f1759.pdf
2d6a0abf5eab8e9289aa2ac5b8cfdb38
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Text
ARCHIVES
u/l <123.5
V/515
Wilkes College
Wilkes-Barre, Pennsylvania
<
J
�FOREWORD
Early in 1962, a question arose over the actual preparedness of
industries in Wyoming Valley in case of an attack against the United
States.
The Public Services Committee of the Greater Wilkes-Barre
Chamber of Commerce created a Civil Defense Sub-Committee to study
civil defense preparations by industries and by political subdivisions.
I
As a result, a questionnaire was proposed to sample the preparations
of the industries and the political subdivisions. The results of the sur-
vey are presented as two different studies - one for industry, and ithe
second for political subdivisions.
The chief purpose of this study was to determine the capabilities
‘A
of local industry to cope with a major disaster in this nuclear age.
A
attempt was made in any way to measure the efficiency of existing plans
or preparations.
No'
It is hoped that collection and compilation of the data
obtained will provide an inventory for review and appraisal of the whole
program of industrial disaster preparedness in Luzerne County.
The Institute of Municipal Government is indebted to all those
local industries whose response made this survey possible. In addition,
the Institute wishes to acknowledge the able assistance of Mr. Nicholas
j
H. Souchik, Administrator of the Luzerne County Civil Defense Council,
and the members of the Civil Defense Sub-Committee of the Public Ser
vices Committee.
Hugo V. Mailey, Director
Institute of Municipal Government
�4RCH|V£S
Ms X
|
INTRODUCTION
The Office of Civil and Defense Mobilization (now the Office of
Emergency Planning) recently published a pamphlet entitled "10 Steps
To Industrial Survival. " The Industrial Disaster Preparedness Survey,
a questionnaire sent to 100 major industries in Luzerne County,
based upon the pamphlet.
■
I
is
This report demonstrates how industries of
Wyoming Valley and vicinity meet the recommended OCDM standards
regarding their capabilities to cope with a major disaster.
Of the original 100 industries contacted, only 39 industries res
ponded. Several of these respondents did not complete the questionnaire
but repliedhy castigating CD (Civil Defense)an general and fallout shel
ters in particular. The low percentage of respondents may perhaps in-1
dicate a lack of interest or an apathy toward CD by the great majority of
industries in this area.
This attitude is regretable, since industry
would play a vital role in the event of a nuclear attack.
The following review of the questionnaire shows even more
strongly this lack of serious interest.
i -
62759
��material.
Such material is invaluable as a help in the saving of time
and work.
The plant program must be tied in with the local CD organ-
ization so that its plans will be coordinated with the community-wide
plan.
#7
"Has liasonbeen established with
the local CD organization?"
Yes - 9; No - 26
In many ways the emergency procedures within an industrial
plant are as comprehensive as the civil defense tests for an entire
community. In fact, the plant emergency plans should be linked dir ectly
to the community operational plan. In every national "Operation Alert"
many companies and plants have conducted full-scale exercises with
Such exercises not only
neighboring plants and with local government.
test the plant civil defense plan, but result in greater teamwork and co
operation in the entire community.
#36;: "Does the plant participate in local
exercises, tests, and drills ?"
Yes - 10; No - 26
It is quite evident that more than two-thirds of the respondents
in this survey have not placed the disaster or CD leadership in one person, nor have they established effective liason with the local CD officials and the local government organization.
This is unfortunate since
the Plant CD Coordinator is to the industrial plaht what' the CD Director
is to the community.
He is responsible for planning, organizing, and
�#6:
"Has an employment-management
plant defense advisory committee
been appointed?"
Yes - 7; No - 29
#38:
"Have the Plant CD Coordinator and
the Advisory Committee mflerribers
made full use of the assi stance and
guidanc e and industry def ens e avail
able through the local CD office?"
����#30:
"Has a member of the plant disas
ter group been appointed to assume
overall evacuation responsibilities ?"
Yes - 7; No - 28; "For Fire Only" - 1
Seven plants, therefore, have a written disaster plan, and seven
have appointed a member of the plant disaster group to assume overall
responsibilities.
Four plants answered both questions in the affirmah
tive; three others had a written disaster plan, but no one in charge of
evacuation; three others had a person in charge of evacuation but no
written plan. The remaining 26 answered both questions in the negative.
��Business organizations, unless prepared in advance, may be
without competent managing peraonnel in a great many of their opera
tingfields in disaster situations as a result of a nuclear attack. For. each
key position within the plant or organization, replacements should be de
signated in order of succession. Such planning is vital to the very exis
tence of the company or plant for re-establishment and continuance of
production after an enemy attack.
#33:
"Has a management personnel suc
cession list been developed?”
Yes - 10; No - 26
The majority of respondents answered this question in STEP 4
in;the negative. With so little advanced planning in replacement of per
sonnel, the majority of industries will take longer to resume normal
operations.
In critical times of disaster, weeks and months are too
long to wait for the restoration of the management sector of an economy.
STEP 5
PROTECT VITAL RECORDS AND DOCUMENTS
The remaining steps refer not to human lives, but to the survi-
val of the physical plant itself. Unless thorough proper protective mea-
��repairs.
Once formulated, the plan must not remain static, but must
constantly be revised to meet the changing needs.
#34:
"Has a damage assessment ^system
been, established?"
Yes - 4; No - 32
From the above response, the great majority of plants wilhnot
be able to assess their damage, much less repair or restore anything.
Ina natural disaster, emergency repair crews areusually available from
many outside areas.
In the event of an attack, however, outside assis
tance may not be available.
Therefore each plant must have its own
emergency repair crews.
STEP 7
PROVIDE PLANT SECURITY AGAINST
SABOTAGE AND ESPIONAGE
Although counteraction of espionage is primarily the responsi
bility of the Federal Government, industrial management is responsible
for protection of employees, plants, and processes from sabotage and
espionage.
Industrial sabotage is the most effective method that can be used:
to undermine a national defense emergency effort.
Espionage may be
rendered ineffective or made more difficult only by the application of
good protective measures.
A cost-conscious management may make
cuts in areas where it does not clearly understand the purpose or need
for the expenditure for security.
- 12 -
�Does the plant h;tave a physical
curity plan?"
Yes - 12; No - 24
One third of the respondees do have some type of security plan.
It should be noted that many of the industries surveyed do not work with
material or information vital to the security and defense of the country.
It was not the purpose of this survey to appraise the security plans of
management.
STEP 8
ESTABLISH INDUSTRIAL MUTUAL-AID ASSOCIATIONS
FOR CIVIL DEFENSE
The Office of Civil and Defense Mobilization regards the emergency operation plan of an industrial mutual-aid association as part of
the total emergency operation plan of local government.
An industrial
mutual-aid association for civil defense is an organizztion of industry
officials representing facilities in a particular area.
They are united
by voluntary agreement in order to assist each other with facilities,
equipment, and manpower as needed in time of disaster.
Every mem
ber plant of a mutual-aid organization should have a sound in-plant emergency procedure based on practical relations with private and public
protection agencies.
#22:
"Does the plant have mutual-aid com
pacts for survival actions with neigh
borhood plants?"
Yes - 11; No - 23
�The response to this question, although 2 to 1 in the negative, is
encouraging, indicating a move in the right direction.
The mutual-aid
organization, however, must be tried and tested with drillsand dry runs
to prove effective chiring emergencies.
STEP 9 (DECONCENTRATE CRITICAL PRODUCTION) and STEP
10 (DISPERSE NEW INDUSTRIAL PLANTS) were not covered by the
questionnaire.
■
- 14 -
�SUMMARY
Because of world tensions,
our vulnerability to attack, and the
great destructiveness of modern weapons, Armed Forces alone cannot
guarantee survival in case of
war.
The country must be capable of cu-
shioning the effects of an attack, and absorbing losses and dislocations.
Should normal efforts fail to preserve peace, recovery of the United
States following a nuclear attack could depend in large measure on how
thoroughly American industry has prepared to survive and to resume
production.
Organization for self-help, evacuation readiness, shelter pre
paredness, management succession, and emergency repair all present
a rather grim picture when related to industrial disaster preparedness
in Luzerne County.
Questions in these areas were answered heavily
in the negative showing little interest in CD on the part of local industry.
The responses to the questions on protection of vital records,
plant security, and mutual-aid compacts were generally encouraging,
although far from being satisfactory.
The only conclusion to be tnade iron, this survey ha. been emphasized throughout this report;
The great majority of industries in
Luzerne County are not prepared for disaster
siastic about becoming prepared.
and do not seem too enthii-
The low percentage of respondents
of those who did respond make this conclu—
and the negative answers
sion all too obvious.
- 15 -
�APPENDIX
a
In connection with the questionnaire, the respondents offered
conflicting reactions to civil defense.
Two typical viewpoints are ex-
pressed below:
1.
"The Board of Directors has adopted resolur
tions for continuity of management and resolutions
for designating alternate headquarters. These re
solutions are filed with the Federal Reserve Bank
of Philadelphia and New York areas.
A survey, made at out Main Office and branch
offices by representatives of the Civil Defense Or
ganization, revealed that the basements of buildings
with the exception of two, will provide adequate shel
ters for our employees.
We have instituted a program of photographing our records which have been classified accor
ding to their importance.
Our program is in its early stages and will be de
veloped in the very near future following recom
mendations of the Federal Reserve Bank, Ameri
can Bankers Association, Pennsylvania Bankers
Association and the Civil Defense Organization."
2.
"The reason for my failure to answer was sim
ply a tremendous feeling of rejection about the whole
questionnaire^ However,’ since you have made a
point of writing me the second time, you will note
that I have checked off "no" on every item and my
reason for this is that(if we ever
ever get
g involved in an
all-out shooting war Udiere nuclear weapons would
be used, I feel that all the: effort and time that we
would spendpreparing ourselves
- 5 would
would be
be a complete
waste and as a management orientated executive, I
do not like waste in any shape or form.
you can appreciate this.
- 16 -
I am sure
�I would like to spend all kinds of effort and
time on any program that could be devised to make
our world and our valley a place where questionnaires
of this kind would not be necessary. It seems to me
that if the same effort that has been expended on pre
paring this questionnaire would have been directed
in other channels, i. e. ; a disarmament plan, a cul
tural exchange plan,, a way of- selling more goods to
all nations, etc. , we would reap a much more favor
able harvest."
62?$9
- 17 -
�Mill
1000151370
hilkes college library
4
1
r
UA928.5
W5lf
62759
' "^CHIVES
�WILS GOLILEGE LIBRARY
i
ii
I
j
�
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
Description
An account of the resource
Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
Creator
An entity primarily responsible for making the resource
Institute of Municipal Government and Institute for Regional Affairs
Date
A point or period of time associated with an event in the lifecycle of the resource
1958-1980
Rights
Information about rights held in and over the resource
Wilkes University retains copyright of these publications.
Format
The file format, physical medium, or dimensions of the resource
PDF
Type
The nature or genre of the resource
Publications
Text
A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text.
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Industrial Disaster Preparedness Survey, 1963
Creator
An entity primarily responsible for making the resource
Institute of Municipal Government
Date
A point or period of time associated with an event in the lifecycle of the resource
1963
Format
The file format, physical medium, or dimensions of the resource
PDF
Type
The nature or genre of the resource
Publication
Rights
Information about rights held in and over the resource
Wilkes University retains copyright of this publication.
-
https://omeka.wilkes.edu/omeka/files/original/b6eaf8d891f1737bb028c0930ed50a23.pdf
bd9dce2233baa879f628d67773222fc0
PDF Text
Text
�FOREWORD
Early in 1962, a question arose over the actual preparedness of
bothlocal political subdivisions and industries in Luzerne County in case
of an attack against the United States.
The Public Services Committee
of the Greater Wilkes-Barre Chamber of Commerce created a Civil De
fense Sub-Committee to study Civil Defense preparations by industries
and political subdivisions.
As a result, a questionnaire was proposed
to sample the preparations of the industries and the political subdivi
sions. The results of the survey are presented as two different studies
one for industry, and the second for political subdivisions.
The chief purpose of this study was to determine the capabilities
of local government in the Luzerne County area to cope with a major
disaster in this nuclear age.
eS'
No attempt was made in any way to mea-
sure the efficiency of existing plans or preparations.
It is hoped that
collection and compilation of the data obtained will provide an inven
tory for review and appraisal of the whole program of local civil defense
I
preparedness in Luzerne County.
The Institute of Municipal Government is indebted to all thoselocal political subdivisions whose response made this survey possible. In
addition, the Institute wishes to acknowledge the able assistance of
Mr. Nicholas H. Souchik, Administrator of the Luzerne County Civil
Defense Council, and the members of the Civil Defense Sub-Committee
of the Public Services Committee.
Hugo V. Mailey, Director
Institute of Municipal Government
�CHIVE S
vJ o~ L(o
TABLE OF CONTENTS
I.
Introduction.
1
II.
Organization and Administration
4
IB.
Personnel and Equipment.
14
IV.
Exp enditur e s
22
V.
Summary.
30
July 1963
Institute of Municipal Government
Wilkes College
Wilkes-Barre, Pennsylvania
62581
________
�I.
INTRODUCTION
The primary objective of Civil Defense in the United States is the
survival of the nation and its people in the event of a nuclear attack.
The goals of Civil Defense are two-fold: (1) education of the public and
(2) preparation for an emergency or natural disaster.
The details of a Civil Defense Program may change with the mo
difications in the kinds of weapons that might be launched against the
United States, but the essential elements and goals of the program re-
main the same.
Basically they consist of a warning system to alert
the civilian population to an imminent attack; a system of shelters equip
ped and provisioned to furnish protection against those effects of an at
tack for which protection is feasible; and a system to provide training
and equipment so that the survivors can monitor the effects of the attack
and carry out the tasks of decontamination, fire-fighting, rescue, and
reconstruction necessary1 to restore a functioning society.
Civil Defense is a function of government*
The Federal Civil
Defense Act places the responsibility for CD jointly on the Federal Gov
ernment and the States.
The nation is divided into large areas :com-
prising several states apiece, which, in turn are subdivided into in
dividual states.
states are further reduced into regions, regions into
counties, and the counties into sectors composed of cities, townships,
and boroughs. Thus, there is a lengthy chain of command, but a clear-
ly defined one.
1
�Pennsylvania has created a State Council of Civil Defense to de
velop a comprehensive plan and program for the civil defense of the
Commonwealth and to provide for the protection of life and property un
der both attack and natural disaster conditions.
Luzerne County Civil
Defense is concerned with anarea of 892 square miles and a total popu
lation of approximately 350, 000 people.
The Susquehanna River divides the County and Wyoming Valley
in half.
The greatest part of the County population is centered in the
Valley, with, however, a few municipalities in the mountain areas, no
tably Hazleton, a city of about 32, 000 in the mountains to the south of
Wilkes-Barr e.
A major concern of Civil Defense in the County is the
evacuation of the core city, Wilkes-Barre, with a population of 63, 551.
Central City, Wilkes-Barre - covering an area from South Street to
North Street and Pennsylvania Avenue to River Street - is a very congested area.
If a nuclear attack occurs during normal working hours
in the Central City area, evacuation difficulties would be compounded,,
for there is an average of 76,092 daytime occupants compared to only
3, 690 night-time residents.
A tremendous amount of planning will be
required to take care of the public in a.daytime situation, and a great
deal of coordination for a night-time emergency.
Another matter of
concern to Luzerne County Civil Defense is the fact that many people
from the New York and Philadelphia metropolitan areas would be evac
uating toward this area and local Civil Defense would' have to.take care
of them.
- 2 -
�1
In 1962, a questionnaire devised by the members of the CD Sub
committee of the Public Services Committee of the Greater WilkesBarre Chamber of Commerce and Mr, Nicholas H.. Souchik,. Luzerne:
County CD Administrator, was sent to the mayor or commissioners of
73 political subdivisions in Luzerne County. Only 27 ( about 37%) of the
subdivisions contacted responded to the questionnaire, entitled "Local
Political Subdivision Disaster Preparedness Survey." The larger muni
cipalities were among those which returned the questionnaire so that
about 200, 000 or 60% of the County population is included in this report.
While the percentage of responses to the governmental survey is almost
equal to that of the industrial preparedness survey ( about 37% to 39%
respectively), there is still no accurate information on CD from 46 municipalities with a total population of 141,293.
As with the industrial preparedness survey,’, if is regrettable that
local officials have taken so little interest in CD activities.
The questionnaire was constructed to sample three main areas
in Civil Defense through a series of 29 questions.
Those areas sam
pled were organization and administration, personnel and equipment,
and expenditures.
- 3 -
�ORGANIZATION AND ADMINISTRATION
II.
Civil Defense Director. All local Civil Defense organization and
administration revolve around the office of the Civil Defense Director.
The Civil Defense Director is a public servant.
The Luzerne County
Civil Defense Director has been appointed by the Governor on the re
commendation of the County Commissioners.
Local CD Directors are
appointed by the Governor upon the recommendation of the executive of
ficer or governing bodies of cities, boroughs, towns, and townships.
Q:
"Has your Civil Defense Director re
ceived his appointment from the Gov
ernor of Pennsylvania?"
Yes - 26; No - 1 ( Hollenback Twp. )
Of the 27 political subdivisions responding, all the local CD Di
rectors, with the exception of Hollenback Township which had a tempor
aryacting director at the time of the survey, received their appointment
from the Governor of the Commonwealth.
Staff Personnel.
The local CD Director is responsible not only
for organization, operation, and administration of his unit, but is re-
quired to have an Operational Plan designating the objectives of his organization.
He must appoint a staff of specialists for all emergency
services,..whose duties will be to assist him in training, planning, and
operations for tests and emergencies. The question below seeks to de-
termine if the local CD Director has a complete staff within the most
important areas of Civil Defense.
- 4 -
�Q:
Does your local Civil
tor have a complete
the following:"
a. ) Communications
b. ) Control Center
Personnel
c. ) Engineering
d. ) Evacuation
e. ) Fire
f. ) Mass Care
11
Defense Direc
staff, including
g. )
h. )
i. )
j. )
k. )
l. )
m. )
Medical
Police
Public Relations
Radiological
Rescue
Survival
Transportation
STAFF ASSISTANTS
YES
14
14
10
8
21
14
14
25
7
13
16
7
18
Communications
Control Center Personnel
Engineering
Evacuation
Fire
Mass Care
Medical
Police
Public Relations
Radiological
Rescue
Survival
Transportation
NO
13
13
17
19
6
13
12
2
19
14
11
20
9
As is evident from the table above, manylocal CD Directorshave
staffing in fire and police activities.
There is an indication of lack of
staffing for such activities as Evacuation, Survival, and Public Rela
tions.
Two (Freeland and Laurel Run) listed no one as staff personnel
for the CD Director.
Only three municipalities (Avoca, Dallas, and
Nanticoke) indicated by their replies that staffing in all phases of CD is
provided for the CD Director.
- 5 -
�The next question sought to de-
Contact With Local Agencies.
termine if regular contact had been established by the local CD Direc
tor with other community agencies since such coordination is essen
tial to an emergency plan.
Q:
"Has regular contact been established
by the local Civil Defense Director
with local industry, local schools,
sector civil defense directors, and
County Civil Defense?"
The responses were as follows:
CONTACT WITH OTHER AGENCIES
NO
21
11
11
6
YES
6
16
16
21
Local Industries
Local Schools
Sector CD Directors
County Civil Defense
From the above table, it appears that very few local Civil De
fense Directors maintain any contact with local industries, which would
undoubtedly fill avital role inany disaster. Approximately one-third of
the responding political subdivisions answered this question in the af
firmative.
Sixteen of the political subdivisions claimed cooperation with the
local schools and Sector Civil Defense Directors.
Of the sixteen, the
majority were the more populous municipalities such as Wilkes-Barre,
Hazleton, Nanticoke, Kingston, and Plains Township.
Cooperation with the Luzerne County Civil Defense Control Cen- ■
ter presents a rather dark picture.
Even though more than two-thirds
- 6 -
�of the responding political subdivisions were in contact with County Ci-
vil Defense, the forty-six unanswered questionnaires must be taken in
to account.
When the six negative responses are combined with the
forty-six municipalities failing to respond to the questionnaire, a total
of fifty-two local political subdivisions are not in contact with County
Civil Defense, an important link in CD organization throughout the Uni
ted States.
The Local Governing Body and Civil Defense.
Civil Defense is
an organization of volunteers solely for the purpose of training, educa-
tion, and preparation in the event of a disaster or national emergency.
It is generally agreed that all aspects of Civil Defense should be non
partisan, adhering to the theory that those organizations free from poli
tics are more effective.
Q:
"Are members of your political sub
division governing body and employ
ees, members of Civil Defense?"
Yes - 13; No - 14
The responses indicate that about half of the twenty-seven muni
cipalities have a CD organization which is interlaced with the govern-
ing political body; Wilkes-Barre, Kingston, and Plymouth indicated no
interlocking membership, whereas Hazleton, Nanticoke, and Plains
Township replied that their public officials are part of the CD organization.
One advantage of such a relationship is that the governing body
can be informed on CD activities by its own members.
- 7 -
On the other
�hand, it does place the CD organization in the political arena.
Often,
however, the local governing body has found it difficult to find volun
teer CD Directors or personnel.
Continuity of Government and Preservation of Records.
In ac
cordance with Civil Defense Directives and the Luzerne County Survival Plan, all local political subdivisions are required to pass the fol
lowing:
A resolution on a relocation site for their local govern
ment in the event an evacuation is ordered or the pre
sent area destroyed;
A resolution on succession in their local government in
the event the members of government are not available
or lost in the attack;
A resolution on the preservation of essential records in
event of an attack.
These resolutions should be passed by city, borough, and town
ship governing bodies. It is the responsibility of every local CD Direc
tor to advise and follow through to make sure his political subdivision's
governing body pass the aboVe resolutions.
The next question seeks to determine if resolutions have been
passed by the local governing body concerning these vital areas.
Q:
"Has a resolution been passed by the
governing body on continuity of gov
ernment, succession, and preserva
tion of vital records?"
- 8 -
�pending upon the circumstances involved.
It must also be comprehen-
sive enough to cover people1 living under widely different conditions.
I
I
i
It is of vital importance that local political subdivision emer-
gency and CD plans be put in writing, if the plan is to serve as a guide
i
to action.
The plan should contain a description of warning and emer-
- 9 -
�gency communication procedures, shelter locations, evacuation routes,
emergency equipment, and similar information.
Such a plan, to be pre
pared by the local CD Director, must include plans of operation, pro
gram and objectives of the local CD organization.
As of July 1, 1962,
both of the Federal Assistance Programs were made contingent on such
a plan.
Q:
"Does your local Civil Defense unit
have written emergency plans?"
Yes - 5; No - 22
Obviously the 22 political subdivisions answering in the negative
risk denial of participation in either of the federal assistanceprograms
in the future unless a written plan is promulgated.
Moreover, the lack
of a written emergency plan does indicate a lack of concern for peoples'
welfare in case of disaster.
Survival in the case of enemy attack is highly dependent upon the
organization of trained personnel.
The basic organization in any CD
operational plan is the survival unit.
The survival unit is one of the es
sential elements of our emergency plan.
According to the Luzerne
County Survival Plan, each local political subdivision should be divided
into units of 100 to 500 residents, trained in the various aspects of
first-aid and rescue work, with a definite geographical boundary and
with clearly defined areas.
10 -
��counted m the "Yes" column.
Undoubtedly, many difficulties will be
encountered in putting a community's Civil Defense Plan into test ac-
tion, but the important thing is to discover these difficulties before a
real emergency, and appropriately revise and improve the local emer
gency plan and operation.
A test under genuine emergency conditions
could be too costly.
EDUCATION AND INFORMATION
The public relations program of a Civil Defense organization is
a most important factor in the survival of the local organization.
The
first step is to acquaint the local citizens with the CD organization, the
local Control Center, and the local survival plans.
Q:
"Are regular meetings held by the lo
cal Civil Defense units?"
Yes - 13; No - 3; "No Response" - 1
Q:
"Are Civil Defense meetings publi
cized and open to the public?"
Yes - 12; No - 13; "Sometimes"
"No Response" - 1
1
Regular meetings are held by only thirteen CD organizations,
while thirteen others do not hold regular meetings.
division did not respond.
One political sub
Only twelve of the thirteen municipal organi
zations who do hold regular meetings open them to the public.
��/
PERSONNEL AND EQUIPMENT
Trained personnel is a major requirement of any CD organization
and the key to successful operation and execution of emergency plans.
No organization can operate efficiently with untrained personnel.
Con
trary topopular belief, exceptionally large organizations are not neces
sary, but a hard core of well-trained personnel must be readily available in time of disaster or national emergency.
The question below deals with the number of personnel trained
in the various phases of Civil Defense within each political subdivision:
"How many Civil Defense Personnel
have been trained in the following?::"
a.
b.
c.
d.
)
)
)
)
Communications
Fire
First Aid
Mass Care
Police
f.)
g- )
h..)
Radiological
Monitoring
Rescue
Control Center
Personnel
The table on the following page contains information of CD per
sonnel arranged by political subdivisions.
- 14 -
��The total number of trained Civil Defense personnel listed by 22
of 27 reporting political subdivisions was 3, 568.
Five political subdi-
sions (Dallas, Freeland, Laurel Run, Nanticoke, and Nuangola) did not
answer the question.
The total number of trained personnel arranged
according to function appears as follows:
First Aid
Police
Fire
Radiological
Rescue
Mass Care
Control Center
C ommunications
1, 096
730
521
349
247
237
206
182
Hazleton lists the largest number of trained personnel (1,534),
with Wilkes-Barre a distant second (434). However, the totals may ap
pear to be deceiving as in the case of First Aid. For example, Wilkes-
Barre and Hazleton account for 215 of the 349 Radiological personnel
and Hazleton alone accounts for 132 of the 186 Control Center personnel.
Seven political subdivisions (Ashley, Duryea, Hazleton, Kings
ton Township, Plains Township, Sugar Notch, and Wilkes-Barre) lis
ted trained personnel in all eight areas. Training for civil defense personnel for the remaining fifteen municipalities was spread out over
many phases of civil defense. A large number of the smaller communi
ties indicated either no personnel or only Fire and Police Departments.
Although training in First Aid ranks highest (1, 096), fire and police are
the most frequently listed.
Wilkes-Barre does not list any fire or mass
-16
�care personnel, nor lias it included its entire police force.
If police
and fire were included, the nurriber of trained CD personnel in WilkesBarre would nearly equal that of Hazleton.
Training in first aid, police, fire, emergency health rcare, mass
care, and home protection measures is provided without charge to the
political subdivisions by Luzerne County instructors.
While it may be
difficult to measure the adequacy of trained CD personnel in Luzerne
County municipalities, it is apparent that local governments in this area
have a paucity of trained people with the possible exception of first aid,
police, and fire.
- 17 -
�EQUIPMENT
Equipment which functions properly is the backbone of any Civil
Defense organization, for without it a local CD unit is virtually helpless
in this age of modern weapons and technology.
Warning System
Perhaps the first and most important governmental function in
any CD or emergency plan is to alert the civilian population so that the
necessary survival steps can be taken.
Some type of effective warning
system must be constructed which is both operational and reliable.
Therearetwo types of warning devices presently in operation in Luzerne
County.
The first, a bell and light system, operates from the County
CD Control Center to various political subdivisions which have a bell and
light system.
The second device is the appropriate signal, whistle, or
siren to notify the general public.
Q:
"Does your political subdivision have:
a. ) a bell and light system?
Yes - 8; No - 19
b. ) Sirens for warning?"
Yes - 20; No - 7
Wilkes-Barre,
Hazleton,
Nanticoke,
Plymouth,
Plains, and
Warrior Run answered both parts of the question in the affirmative,
while Dennison, Fairmount, Hunlock, Hazle Township, and Laurel Run
responded to both parts in the negative.
- 18 -
���to clear up the inconsistency, it was discovered that some municipalities
utilize the municipal building, the police station, or the fire station as
the control centers, even though they are not specifically designated as
control centers.
The results of the table above indicate that it will be difficult for
many of the Control Centers to maintain lines of communicationbecause
of the lack of equipment.
A large number of Control Centers will lack
power and supplies in case of an emergency.
I
- 21 -
�IV.
EXPENDITURES
Act #6 of the 1951 Session of the Pennsylvania General Assembly
provides local political subdivisions with the power to raise and spend
money for Civil Defense.
In addition, the Federal Government did set
up a system of Matching Fund or Surplus Property Programs by which
the individual political subdivisions could participate, provided certain
requirements are fullfilled. For the fiscal year 1963, the Federal Gov
ernment curtailed all Matching Fund Programs with the exception of
shelter supplies, warning devices, and radiation instruments.
Q:
11 What amount was budgeted for Ci
vil Defense in 1962; '61, '60, and
'59?"
The amount budgeted for Civil Defense by political subdivisions
for selected years is found in the table on the following page.
- 22 -
�AMOUNT BUDGETED FOR CIVIL DEFENSE
(Last Four Years)
Subdivision
1962
AshleyAvoca
Conyngham
ii
Donations"
Dallas
Dennison
250
Dupont
400
Duryea
Fairmount
Freeland
1500
Hazleton
Hazle Twp,
96
Hollenback
50
Hughestown
Hunlock
Huntington
150
Jackson
500
Kingston Boro
500
Kingston Twp.
Laurel Run
1000
Nanticoke
Nuangola
500
Plains
Plymouth
Sugar Notch
Warrior Run
6500
Wilkes-Barre
1300
Wright
TOTALS
$12,746
1961
1960
100
500
400
500
3524
500
1900
1750
6224
1500
1500
1500
6000
96
50
:96
96
384
100
500
500
150
500
500
300
100
1000
500
300
2800
500
500
200
1700
3500
3200
8, 946
10,570
- 23 -
TOTALS
650
1650
500
900
13,200
1300
4, 996
$37,258
�The total amounts budgeted for
Civil Defense over the last four
years by all Luzerne County municipalities
reporting in this survey are
as follows:
1962
1961
I960
1959
- $12,746
8, 946
- 10, 570
4,996
Totale $37, 258
This adds up to a total of $37,258 expended by Luzerne County
municipalities over the four-year period or an average of $.13 per ca-
Appropriating the largest amount budgeted by
pita during the period.
any reporting subdivision over the four-year period was Wilkes-Barre
City ($13,200),
1959.
even though this City listed no amount budgeted for
Duryea ($6,224) and Hazleton ($6,000) follow, with the remain-
ing municipalities listing considerably lower amounts.
Twelve of the
twenty-seven reporting municipalities listed no money budgeted during
the four-year period.
Dallas was unique in listing only "donations"
to finance CD activities.
Budgets of remaining fourteen 'political di
visions ranged from $100 (Dennison and Hughestown) to $2,800 (Nanti
coke).
In 1962,
Wilkes-Barre budgeted the largest amount ($6, 500)
for Civil Defense among the reporting
municipalities.
Fifteen politi-
all for CD in 1962, although Dallas
cal subdivisions budgeted no funds at
of the remaining twelve political subdid accept "donations."' Budgets
to $1, 500 (Hazleton) for 1962.
. $50 (Hughestown)
divisions ranged from
- 24 -
��Of the twelve reporting subdivisions which budgeted for Civil
Defense in 1961, only four (Dennison,
Hollenback,
Huntington, and
Jackson) listed no purchases or expenditures during this year.
These
four originally budgeted $1, 196 for Civil Defense purposes, but spent
no money for Civil Defense.
The remaining eight .subdivisions spent
$6,461. 11 of $7,750 budgeted to them or approximately 85% of the
amount budgeted.
The following table lists only those twelve political subdivisions
which budgeted money for Civil. Defense in 1961 indicating the amount
spent and/or items.pur chased.
ACTUAL CIVIL DEFENSE EXPENDITURES
1961
Amount
Subdivision
Dennison
Dupont
Duryea
$
None .
140. 00.
1,272,35
Hazleton
980.6&
Hollenback
Hughestown
Hunting ton
Jackson
Kingston Twp.
Nanticoke
None .
50. 00.
None .
None .
274. 60
143.48
Plains Twp.
Wilkes-Barre
TOTAL
100.00
3, 500. 00
$6,461. 11
- 26 -
Purchase
None
Police Badges
Radio System for
Auxiliary Police
Rescue Truck Equip
ment, Office Supplies
None
Police Equipment
None
None
Gonset radio and maps
Electric services,
trucking, postage,
printing, batteries for
alarm system
. Police Insurance
Sirens and Auxiliary
Police Equipment
�/
\
While a variety of purchases was made for Civil Defense, the
largest sum was spent for police equipment.
The support of the local governing body to the CD Director is a
very necessary item of Civil Defense.
Funds must be allocated for the;
at all in a proper manner.
Q:
"Is your Civil Defense Director al
lowed expenses for office supplies,
travel, etc. ?"
Yes - 4; No - 23
It is evident that it is not the policy of most municipalities to
permit such expenditures for the CD Director.
The four political sub
divisions responding in the affirmative were Hazleton,
Kingston, and Nanticoke.
Hollenback,
Amounts were not requested in the question-
naire.
As stated previously, both Matching Funds and Surplus Proper-
ty were important benefits in Civil Defense for the local political subdivisions.
Equipment purchased under the Matching Fund Program is
jointly owned by Local, State,
and Federal Governments, and is period-
ically subject to inspections to determine its operative and training value.
Q:
"What equipment has been purchased
under the Matching Fund Program
since 1955?"
. .
euuip"xent purchased by the fifThe following table is a list Ot
I
teen political subdivisions since I
�1
\
MATCHING FUND EQUIPMENT PURCHASED SINCE 1955
Subdivision
Equipment Purchased
Ashley-----Avoca-------Conyngham
Dallas-------Dupont-----Duryea ------
Equipment for auxiliary police, fire truck
Siren
Fire Engine
Pumper - Fire Department
Alarm System
Two-way radio communications system, auxi
liary Police equipment
Rescue Truck
Radio
Helmets, raincoats, flashlights, badges
Siren, cots, first aid, two-way radios, masks
3 gonset radios, 2 warning sirens
Siren signal system, two-way radio, recurring
charges on radio, crash truck, pumps
Police uniforms, badges, raincoats, boots
■ 300 feet of fire hose
■ 3 sirens, auxiliary police equipment
Hazleton----------------Hollenback------------Huntington------------Jackson ----------------Kingston Township
Nanticoke---------------
Plains-----------Warrior Run Wilkes-Barre
Fifteen of the twenty-seven reporting political subdivisions pur -
chased emergency equipment under this program.
ment varied:
The type of equip-
four communities purchased fire equipment; five pur-
chased police ei
Q:
"What equipment has been purchased
throughthe Surplus Property Program
since 1955?"
The following table lists
the purchases by political subdivisions
under the program:
- 28 -
�SURPLUS PROPERTY EQUIPMENT PURCHASED SINCE 1955
Subdivision
Equipment Pur chased
DupontDuryea-
2 typewriters, radio receiving set
Auxiliary police equipment, two-way radio
maintenance
Blanket material, ropes, other material (sic) ,
Socks, wire, rope
Fire ’ extinguisher, lights, cots, boots,
stove, other material
Emergency lighting plant
-Auxiliary police equipment
First aid equipment, hospital beds, stretchers,
wearing apparel, helmets, canvas other equip
ment
Hazleton---Hughestown
Hunlock------
Jackson-------Plymouth-----Warrior Run
Only eight municipalities purchased emergency equipment under
this plan as compared to 15 under the Matching Fund Program. Five of
the eight also bought equipment under the Matching Fund Program,
whereas the remaining three (Hughestown, Hunlock and Plymouth) did
not.
Once again, the equipment purchased varied, ranging from wear-
ing apparel, blankets, and ropes, to an emergency lighting plant.
A total of eighteen of the reporting political subdivisions (2/3
of the respondents) purchased equipment through one of the two pro
grams.
of both programs were Dupont, DurThe five that made use
yea, Hazleton, Jackson,
and Warrior Run.
- 29 -
�SUMMARY
Consideration of the facts surrounding the problems of plan
ning for a major disaster must be based on the concept of survival -
survival in the face of a devastating thermonuclear attack upon the
United States.
An erroneous impressionis that Civil Defense is an organization
which is established separate from the local government, and that such
an organization would confront an emergency only with an army of vol-
unteers.
Nothing could be further from the truth. Civil Defense as de-
fined by Federal Law, consists of ". . . all those activities and measures
designed or undertaken to minimize the effects upon the civilian popu
lation caused or which would be caused by an attack upon the United
States. . . " All activities, therefore, which tend to minimize the ef
fects upon the civilian population, caused or which would be caused by
an attack upon the United States, are Civil Defense activities.
This survey sampling three vital areas of Civil Defense among
the 7 3 local political subdivisions in Luzerne County reveals deficiencies in activities that are the responsibility of local government.
While
have staffing in fire andpolice activities
many of the local CD Directors
as evacuation, survival, and public relations.
local agencies, especially local
Cooperation with other
contact with the Luzerne County Civil
Defense Control Center, is almost non-existent.
This is evidenced by
�the fact that 52 of 7 3 local political subdivisions in the County are notin
contact with County Civil Defense.
The County unit is an extremely-im
portant link in CD organization throughout the United States.
Trained personnel is a major requirement of any Civil Defense
organization.
Although 3, 568 trained personnel were listed for all po
litical subdivisions responding, a large number of the smaller commu-
nities indicated either no trained personnel or listed only Police and Fire
Departments.
Wilkes-Barre, a city of 63,551 people, listed no mass
care personnel. It is apparent that local government in Luzerne County
has a paucity of trained personnel, except in such phases of Civil De
fense as First Aid, Police, and Fire.
Although most of the responding municipalities have a warning
1
system many of the local officials of these municipalities expressed a
feeling of inadequacy about their own system.
Twelve of twenty-seven
local political subdivisions have established some type of controLcen-
ter for disaster operations, and yet only three were considered ade
quately protected from fallout.
Moreover, many lack essential emer-
gency equipment to operate efficiently.
A review of expenditures by all reporting municipalities for 1961
Civil Defense activities reveals that of the amount originally budgeted,
only about 72% was
for the purchase
actually expended.
Expenditures have gone largely
of Civil Defense equipment through either the Federal
Surplus Property or the Federal Matching Fund Programs. While a va-
riety of purchases were made, the majority of purchases were for police and fire equipment.
�10001553^
WILKES COLLEGE LIBRARY
Civil Defense is concerned with the responsibility and adequate
planning on the part of each level of government, of each industrial
plant, and of every citizen to be able to deal with emergencies as they
arise.
Indications are that some problem areas of Civil Defense may
have changed since this survey was undertaken, according to official's
of the County Civil Defense organization.
However, there is need for
review and improvement of the Civil Defense Program among the local
political subdivisions within the County if the municipalities are to pro
tect the populace within their borders.
V
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62581
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�
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Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
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Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
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Institute of Municipal Government and Institute for Regional Affairs
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1958-1980
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Local Political Subdivision Disaster Preparedness Survey, 1963
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Institute of Municipal Government
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1963
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PDF
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Publication
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-
https://omeka.wilkes.edu/omeka/files/original/ea992853dab06975b0cf4b7b3bb6f9f2.pdf
3eab7f58b6a876a7b7e47e4fa532db19
PDF Text
Text
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MERGER STUDY
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KINGSTON AND PRINGLE
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WILKES COLLEGE
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MERGER STUDY
OF
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KINGSTON AND PRINGLE
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BOROUGHS
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1963
INSTITUTE OF MUNICIPAL GOVERNMENT
Wilkes College
Wilkes-Barre, Pennsylvania
�ARCHIV6S
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TABLE OF CONTENTS
1
8.
INTRODUCTION
a
I.
Historical Background
II.
General Government,
11
ni.
Police Protection.
20
IV.
Fire Protection.
29
V.
Street Department
41
VI.
Health and Sanitation
54
VII.
Recreation.
64
VIII.
Planning
71
!a
IX.
Miscellaneous Expenditures
80
I
X.
Revenue Structure and Indebtedness
82
XI.
Schools
94
XII.
Summary.
122
Appendix A.
133
Appendix B
134
Appendix C
135
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62613
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INTRODUCTION
1
Following public discussion regarding possible merger of Pringle
and Kingston, both Borough Councils requested the Institute of Munici-
pal Government of Wilkes College to undertake a study of the basic cost
2
factors involved in the merger of the two boroughs.
This study is limited to a review of the existing structure of
i
1
government in each borough, and the services currently rendered by
a'
! &
£
each borough to its citizens.
It is followed by an estimate of the prob
able services, costs, and potential revenue involved should the two
r-'
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boroughs merge.
No attempt is made in this study to measure the ad-
ministrative efficiency of the services now provided in the twoboroughs.
The basic material presented herein was gathered from official
reports and per sonal interviews with responsible borough officials whose
word has been accepted as reliable.
Certain assumptionshave been made from the material and data.
Li E
These were made by the Institute of Municipal Government and are be
lieved to be reasonable. Therefore, conclusions based upon the factual
I
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I
information developed are those of the Institute.
The study has deliberately skirted the political considerations
which oftentimes weigh heavily in the potential merger of municipal
units of government.
D
i
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I
I
It is the firm belief that the study does provide sufficient and
comprehensive basic information for the use of the responsible citizen
J
in considering the matter of potential merger of Kingston and Pringle
I
without any political involvement.
P
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1e
£
■
I
1
Acknowledgements are made to Mr. Willis Pettebone, Secretary
of the;Kingston Borough Council; Mr. Martin Galletti, Secretary of the
Pringle Borough Council; Mr. Robert S. Dew, Assistant Superintendent
of the Luzerne County Schools; Mr. J. Stuart Weiss, Secretary of the
Kingston School Board; Mr. Edward Heiselberg, Director of Planning,
Luzerne County Planning Commission, all of whom assisted materially
J
in this pioneer effort in Wyoming Valley to appraise the potential of
0
merger.
LLI a
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. I
Hugo V. Mailey, Director
Institute of Municipal Government
Wilkes College
3
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CHAPTER I
HISTORICAL BACKGROUND
I
1
King ston
I
About 1770,
Kingston and Pringle,
along with several other
present day boroughs, formed a tract of land on the right bank of the
Susquehanna River known as "Forty Township. "
Historically, this
name was derived from the forty original settlers from Connecticut who
8
established a settlement in Wyoming Valley.
This informal de signa-
tion was later superceded officially by naming the tract Kingston Town
0
ship.
Jn 1830, a movement arose among the people living in the vicinity
of what is now Kingston Corners to have this area incorporated as a
J I
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!!
borough.
The proposal, however, was defeated because of opposition
from the rest of the township. As the population increased with the in-
flux of more settlers, the movement to incorporate this area as a bor-
?!
ough gained new impetus.
2
El
’ is
IS
This time the movement was successful,
and, with a population of 598,
Kingston was incorporated by court de
cree on November 23, 1857.
Since its incorporation, Kingston has annexed the former bor-
ough of Dorranceton through a popular referendum held on July 19,
�I
f
I
1921.
A later attempt to annex Kingston to Wilkes-Barre failed at an
election on November 2, 1926.
Pringle
The history of Pringle follows much the same path as that of
Kingston.
In February, 1837, Thomas Pringle, an early settler from
New York State, purchased a large farm located partly in the present
borough of Pringle and partly in the present borough of Kingston.
The
J
bulk of the farm was centered around what is now Pringle Street.
With the passage of time, a small settlement developed around
Pringle's farm and came to be known as "Pringle Hill. "
Til
J
development also took place adjacent to "Pringle Hill" and
A similar
became
known as "Cooper Hill. "
In March, 1906, Pringle Township was created by court decree
J
in a final division of Kingston Township.
In 1912, a petition was pre
sented to the Court by the inhabitants of "Pringle Hill" and "Cooper
■
Hill, "requesting incorporation as a single borough. As a result, a new
borough was created by court decree on January 17, 1914.
The new
borough was named Pringle in honor of Thomas Pringle upon whose farm
c
the village of "Pringle Hill" developed.
2.
AREA AND LOCATION
jj
Kingston and Pringle are adjacent boroughs in the northeastern
u
- 2 -
�ttempt to annex Kingston to Wilkes-Barre failed at an
mber 2, 1926.
>ry of Pringle follows much the same path as that of
bruary, 1837, Thomas Pringle, an early settler from
purchased a large farm located partly in the present
;le and partly in the present borough of Kingston.
The
was centered around what is now Pringle Street.
passage of time, a small settlement developed around
and came to be known as "Pringle Hill. "
o took place adjacent to "Pringle Hill" and
A similar
became
in
:r Hill. "
, 1906, Pringle Township was created by court decree
on of Kingston Township.
In 1912, a petition was pre-
□urt by the inhabitants of "Pringle Hill" and "Cooper
; incorporation as a single borough. As a result, a new
eated by court decree on January 17, 1914.
The new
led Pringle in honor of Thomas Pringle upon whose farm
'ringle Hill" developed.
2.
AREA AND LOCATION
and Pringle are adjacent boroughs in the northeastern
- 2 -
�ft
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portion of Luzerne County, located in the center of Wyoming Valley,
Both boroughs are part of a tract of land extending from the northwest
bank of the Susquehanna River to the foot of the surrounding mountains!
I
If
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8
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a
Kingston includes an area of about 2.2 square miles, whereas
Pringle comprises an area of approximately . 5 of a square mile. There
la no natural physical separation existing between the two boroughs.
Pringle is bordered by Courtdale Borough to the north, Luzerne
Borough on the east, and Edwardsville and Larksville Boroughs to the
gSlngston is' bounded by Wilkes-Barre City to the south,. Luzerne
Forty Fort Boroughs to tha oast, and Edwardsville Borough to the
According to the I960 census, Kingston, the larger of the two,
bad a population of 20,261 inhabitants, with Pringle at 1,418.
3. TRAFFIGARTERIES
Throe U, S, routes passthrough Kingston* and twoU. S, routes
0.
B
gnoo through Pringle. U. S. route 11 enters'Kingston from the south-
west, and follows Wyoming Avenue to Forty Fort Borough line, continu
ing in a northeasterly direction.
Routes 309 and 118 enter the borough from the southeast, fol-
8
0
E
L'
lowing Pierce Street to Wyoming Avenue. They continue along Wyoming
Avenue to Union* Street, where they, turn in a northerly direction leav
ing the borough at the Erie-Lackawanna railroad crossing. As routes
- 3 -
�309 and 118 leaveKingston Borough along Union Street, continuing to the
northwest, the combined routes are on the boundary between Pringle and
Presented below is the population trend for Luzerne Count'
Kingston,
Luzerne Boroughs.
The State Highway Department has had under consideration a
1940
Cross-Valley Link from the Dallas road (U. S. routes 309 and 118) to
the major expressways on the east side of Wyoming Valley.
Several
441,518
20,679
2, 000
Lua. Co.
Kingston
Pringle
%
%
Change
Change
I960
392,241
21,096
1,727’
-11.2
2.0
-15. 8
-11. 5
- 4.0
-17. 9
I960
345,972
20,261
1,418
noted from the data above that the population of Luze
roads have been suggested to alleviate the congestion from the Dallas
It is
road.
One route which has been proposed for the Link would begin just
north of the junction of U. S. 309 and 118 with the Erie-Lackawanna
County has constantly decreased from 1940 to I960.
11.2% from
crease amounted to
The per cent
1940 to 1950 and 11. 5% from 19?
Railroad at Kingston then follow a southeasterly direction in the area
I960.
of Vaughn and Lathrop Streets, thence through the rather thinly urban-
ized northeastern section of Kingston Borough across the River.
Kingston1 s population trend did not follow that of Luzerne C<
ed in 1950 over 1940 by 2% and the deci
Anin that the population increas
other proposal would have the Link start just west of the Erie-Lacka-
wanna Railroad, proceeding in a southerly direction paralleling the
.ounted to only 835 or 4%.
between 1950 and I960 ami
Pringle's population trend declined more than the Cow
of 15.8% between 194
railroad past the Narrows Shopping Center, then easterly just south of
Pringle experienced
the Gateway Shopping Center and over the proposed new bridge across
i960 and a
the River.
a population decrease
17. 9% decrease between
Whereas the population
4.
POPULATION CHARACTERISTICS
1950 and i960.
in the t
decrease for Kingston
418 or ab<
year period between 1940 and I960 has been only
1940 and
682 persons, or approximately 1/3 of its 194
Pringle has lost
Knowledge of population characteristics is basic to understanding the needs of the people and the services which local governments
must offer.
lation.
The greater Wilhes
-Barre
with a density of 1,091 f°r
area contains
i960.
King ston
- 5 - 4 -
about 150 squa:
has an area of a
�and 118 leave Kingston Borough along Union Street, continuing to the
hwest, the combined routes are on the boundary between Pringle and
Presented below is the population trend for Luzerne County,
Kingston, and Pringle from 1940 through I960.
srne Boroughs.
The State Highway Department has had under consideration a
1940
s-Valley Link from the Dallas road (U. S. routes 309 and 118) to
najor expressways on the east side of Wyoming Valley.
Several
s have been suggested to alleviate the congestion from the Dallas
Lua. Co.
Kingston
Pringle
sad at Kingston then follow
a southeasterly direction in the area
ighn and Lathrop Streets, thence through the
rather thinly urban-
lortheastern section of Kingston Borough across the River.
proposal would have the Link
-11. 2
2. 0
-15. 8
1950
Change
I960
392,241
21,096
1,727
-11. 5
-4.0
-17. 9
345,972
20,261
1,418
It is noted from the data above that the population of Luzerne
One route which has been proposed for the Link would begin just
of the junction of U. S. 309 and 118 with the Erie-Lackawanna
441,518
20,679
2, 000
%
%
Change
County has constantly decreased from 1940 to I960.
The per cent de-
1950 and 11. 5% from 1950 to
crease amounted to 11.2% from 1940 to
I960.
Kingston1 s population trend did not follow that of Luzerne County
An-
start just west of the Erie-Lacka-
Railroad, proceeding in a
southerly direction paralleling the
td past the Narrows Shopping Center, then easterly just south of
eway Shopping Center and over the proposed new
bridge across
in that the population
increased in 1950 over 1940 by 2% and the decrease
835 or 4%.
between 1950 and I960 amounted to only
than the County's.
Pringle’s population trend declined more
of 15.8% between 1940 and
Pringle experienced a population decrease
1950 and a 17. 9% decrease between 1950 and I960.
er.
4.
POPULATION CHARACTERISTICS
Knowledge of population characteristics is basic to understand
needs of the people and the
services which local
governments
er.
decrease for Kingston in the twenty Whereas the population
I960 has been only 418 or about 2%,
year period between 1940 and
of its 1940 popuia1
Pringle has lost 682 persons, or a;
lation.
Wilkes-Barre area contains about 150 square miles
The greater
for I960.
Kingston has an
an area
area of about 2.2
with a density of 1, 091
- 4 -
- 5 -
�I
5
s
square miles with a density of 9,209.5 persons per square mile. PrinI
gle with approximately 5/10 of a square mile in area has a density of
I
population of 2,664.1 persons per square mile.
This population densi-
ty and the extent of open land indicates relatively greater development
I
possibilities in Pringle than in Kingston, other factors being equal.
The age and sex distribution of the population of the two bor
1
oughs, presented below, is significant in the estimation of future mu[
£
r
nicipal service requirements.
■
PRINGLE
KINGSTON
r
Age Group
Under 5 years
I
8
i!
II r
Male
%
Female Total
%
Male Female Total
728
712
1,440
7. 1%
68
59
127
8.9%
5-14 years
1,520
1, 518
3, 038
15. 0%
130
159
289
20. 4%
15-24 years
873
1, 108
1, 981
9. 8%
96
115
211
15.0%
25-34 years
824
1, 000
1,824
9. 0%
79
79
158
11. 1%
35-44 years
1, 124
1,409
2, 533
12. 5%
94
125
219
15.4%
45-54 years
1, 628
1, 865
3,493
17. 2%
113
97
210
14. 8%
55-64 years
1, 508
1, 824
3, 332
16.4%
55
45
100
7. 1%
65 - and over
1, 080
1, 540
2, 630
13. 0%
50
54
104
7. 3%
TOTALS:
9, 285
11,576
20, 261
100. 0%
685
733
1,418
100.0%
SOURCE:
U. S. CENSUS - I960
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The table above indicates that Kingston's population is grouped
more heavily in the 35 to 64 age group.
Kingston population is over 35 years of age as of the I960 census.
- 6 ■
_____________________________________
Approximately 60% of the
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About 15% of the population is in the age group 5 to 14 - elementary and
i a
density of 9,209-5 persons per square mile. Prin-
n
junior high-school age.
nately 5/10 of a square mile in area has a density of
I
>4. 1 persons per square mile. This population densi-
By comparison less than 45% of the Pringle population was over
35 years of age at the time the I960 census was taken; the percentage
p<
of open land indicates relatively greater development
in the age group 5 to 14 years inj about 1/5 of the total population of
ringle than in Kingston, other factors being equal.
0
nd sex distribution of the population of the two bor-
Pringle. While Pringle may be as old a community as Kingston, never-
theless the population data seem to indicate that there is
n
below, is significant in the estimation of future mu-
younger element in Pringle than in Kingston.
n
squirements.
%
F emale T otal
712
1, 518
7. 1%
1,440
15. 0%
3, 038
%
Male Female Total
68
130
59
159
127
8. 9%
289
20. 4%
1, 108
1, 981
9. 8%
96
115
211
15. 0%
1, 000
1, 824
9. 0%
79
79
158
11. 1%
riv
0
s
■!
1,409
2, 533
12. 5%
94
125
219
15. 4%
1, 865
3,493
17. 2%
113
97
210
14. 8%
1,824
3, 332
16.4%
55
45
100
7. 1%
1, 540
2, 630
13. 0%
50
54
104
7. 3%
11,576
20,261
100.0%
685
733
1,418
100.0%
study.
5.
i
Q
POPULATION AND HOUSING
It is necessary to break down the population and dwelling units
in both Kingston and Pringle in order to more clearly understand municipal needs and services.
i
C
The information on population and housing by wards in both bor-
oughs is presented in the table bn the following page:
iL
n
ii
3
9
1:
1ENSUS - I960
above indicates that Kingston's population is grouped
:he 35 to 64 age group.
3
Approximately 60% of the
- 7 on is over 35 years of age as of the I960 census.
- 6 -
This information is sig-
nificant in considering school needs and school problems in any merger
i
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r
V
PRINGLE
KINGSTON
a .larger
I-
�h n
1 a density of 9,209.5 persons per square mile. Prin
Population and Housing
nately 5/10 of a square mile in area has a density c
i4.1 persons per square mile. This population densi
of open land indicates relatively greater developmei
ringle than in Kingston, other factors being equal.
nd sex distribution of the population of the two bor
Kingston
Ward
Ward
Ward
Ward
Ward
Ward
Ward
I960 Population
1
2
3
4
5
6
7
below, is significant in the estimation of future mu
squirements.
Le
I960 Housing
2, 400
1,.723
2, 251
2, 299
3, ; 925
3, 448
4, 215
781
572
678
776
1,285
1, 168
1,420
2 0,261
6, 680
1, 418
416
2 1, 679
7, 096
:y in
p r.s.
35
Pringle
:b >
PRINGLE
KINGSTON
%
Female Total
Male Female Total
Ward (1 and 2)
Grand Total
SOURCE:
U. S. Census Report - I960
712
1,440
7. 1%
68
59
127
1, 518
3, 038
15. O7o
130
159
289
The above table reveals that the wards in Kingston vary in popu-
1, 108
1,981
9.8%
96
115
211
lation. It is likewise apparent that the total population of Pringle is less
1, 000
1, 824
9. 0%
79
79
158
than any of the 7 wards of Kingston
1, 409
2, 533
12. 5%
94
125
219
1, 865
3,493
17. 2%
113
97
210
1, 824
3, 332
16. 4%
55
45
100
kt rs
6.
LABOR AND INDUSTRY
Kingston Borough includes a balance of residential,
commere> :o
cial, and manufacturing activity.
1, 540
2, 630
13. 0%
50
54
104
11,576
20,261
100.0%
685
733
1,418
The manufacturing base of the borough is comprised primarily
of apparel, food, tobacco, textile, wood products, aircraft parts, and
3ENSUS - I960
At present there are no mining operations
other miscellaneous items.
above indicates that Kingston's population is group
:he 35 to 64 age group.
Approximately 60% of t
carried on in Kingston Borough.
At the close of 1962,
a .d
a ,d
the largest employer in the Borough was
on is over 35 years of age as of the I960 censt
- 6 -
- 8 -
I
�•j
the General Cigar Company, Inc.,which employs over 900 people when
Population and Housing
I960 Population
working at full capacity. This firm employs a high percentage of female
I960 Housing
workers.
2, 400
1„723
2, 251
2, 299
3,925
3, 448
4, 215
781
572
678
776
1,285
1, 168
1,420
J
2 0, 261
6, 680
■
Kingston has recently zoned a large area for heavy industry in
the Kingston Industrial Park, with ready access to two railroad . spur.s.
I
I
According to the 1961 Industrial Census of Pennsylvania,
pared by the Pennsylvania Department of Internal Affairs, there are 35
'I
1, 418
416
I
2 1, 679
ital
7, 096
i
Census Report - I960
i
etable reveals that the wards in Kingston vary in popu-
wise apparent that the total population of Pringle is less
2
i j
wards of Kingston
£
6.
LABOR AND INDUSTRY
Borough includes a balance of residential,
n'
ifacturing base of the borough is comprised primarily
manufacturing firms in Kingston employing 3, 600 people.
NUMBER OF EMPLOYEES
NUMBER OF EMPLOYERS
0-25
26-50
51-100
101-200
201-300
301-400
401-500
,.501-1, 000
11
5
1
5
5
2
4
2
3, 600 employees
35 employers
Of the total 3, 600 employees,
commer-
cturing activity.
pre-
there were 1, 993 male workers
and 1, 607 female workers.
n
There are no manufacturing industries in Pringle, according to
0'
the 1961 Industrial Census of Pennsylvania.
, tobacco, textile, wood products, aircraft parts, and
7.
KINGSTON-PRINGLE MERGER
At present there are no mining operations
cus items.
3
igston Borough.
:>se of 1962,
3
the largest employer in the Borough was
Considering the historical background, area, and location, .and
general population characteristics, the two boroughs of Kingston and
L
-9-
- 8 -
J
J
�I
Pringle would appear to be a unified community.
3
There appears to be
.5
no underlying economic or social factor that might tend to continue a
CHAPTER II
GENERAL GOVERNMENT
division should the two towns merge.
As a matter of fact, historically
speaking, both communities were really part of a larger tract called
Kingstown Township, and merger would merely serve to reunite what
.1
.1
councilmen.
That this should be done is quite apparent from the data
on population by wards.
The corporate powers of Kingston and Pringle Boroughs are
iS
was once a single township. A Kingston-Pringle merger would present
Kingston with a timely opportunity to reappraise its system of electing
I
J
$
vested in an elected Council, a Mayor, and other elected or appointed
officers.
The Council is the hub around which all borough activities
revolve.
It passes ordinances, levies taxes, appropriates money and
is responsible for all administration except police, which is therespon-
' I
If it is not accomplished, it will serve only to
sibility of the Mayor.
perpetuate the unrepresentativeness which has developed as a result of
1.
the increase and shift in population in Kingston over a number of dec
J
3
ades.
TOTAL EXPENDITURES
General government expenditures for both communities for
selected years are found in the following table.
General Government Expenditures
'j
•I
Y ear
1961
I960
1959
1958
1957
1956
1955
Kingston
$58,937.13
60, 432. 48
44, 163. 70
43, 421. 17
39,694.37
37, 924.85
30,658.20
Pringle
$2, 946. 98
3, 346. 61
2, 565.81
2, 342.62
4,468.00
2,525.00
2, 797. 00
General government expenditures for Kingston Borough have
been increasing at a fairly steady rate.
-10-
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These expenditures in Pringle
�I
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have been a little more erratic.
Unusual fluctuations in expenditures
Kingston
such as Pringle in 1957 and Kingston in I960 are largely due to pur-
The mayor, elected by popular vote for a four-year term, is the
chases of minor equipment or unusual legal and engineering fees incurred during that year.
c
chief executive officer of the borough.
According to the Code, the
For example, in 1957 Pringle purchased a
salary of the Mayor may be fixed up to $3,000 in boroughs having 20, 000
new stoker and made extensive repairs to the borough buildings at a
cost of $1, 000.
. •> I !
1
or more inhabitants.
The salary of the Mayor is $2, 400 per year.
Kingston is divided into seven wards. One councilman is elected
As seen from the table, the cost of general government in Kingfrom each ward. Each councilman receives an annual salary of $1, 200,
ston has increased approximately 92% from 19o5 to 1961, whereas it
at the rate of $100 per month.
’ I
This is the maximum amount allowed
actually decreased about 5% for Pringle from 1955 to 1961.
under the Code for boroughs of 10, 000 or more inhabitants.
2.
expenditure for councilmen's salaries for 1961 was $8, 300 instead of
GENERAL GOVERNMENT EXPENDITURES FOR 1961
$8, 400 due to a one-month council vacancy caused by death.
The items and their amounts, listed below, were extracted from
I
the 1961 Kingston Borough Financial Report and the 1961 Pringle Bor-
From time to time, additional clerical helper a part-time stenographer is employed.
ough Auditor's Report for 1961.
ITEMS
KINGSTON
PRINGLE
Mayor
Councilmen
Secretary
Treasurer
Auditors
Clerks
Solicitor
Other Legal Expenses
Engineering Services
Office Materials &: Supplies
Salaries, Wages - Janitor - Boro.Bldg.
Materials and Supplies - Boro.Bldg.
Repairs - Boro. Bldg.
Telephone
Rent of Offices or Buildings
Tax Collection
$ 2, 400.00
8, 300.00
4, 800. 00
300.00
782. 50
1,212.50
3, 590. 91
220.69
229.00
1, 953. 59
3,401.20
290.49
67 9. 87
878.22
3, 300. 00
5,956.14
20,642.02
$58,937.13
$
Miscellaneous
TOTAL
The total
Other than the elected officials, Kingston employs a full -time
300.00
300.00
269. 63
240.00
This amounted to $1, 212. 50.
Borough Secretary to perform many of the routine administrative duties
:l
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equired in daily borough business.
His tasks include: keeping finan
cial records, making payrolls, handling complaints from citizens, and
300.00
200.00
15. 00
77. 39
preparing an agenda for the Council meetings.
The Borough Secretary
received a salary of $4, 800 in 1961.
1
20. 83
38. 50
The Treasurer performs the usual functions and receives a set
salary of $300 per year.
Kingston utilizes the services of elected auditors who earned
456.22
729. 41
$2, 946. 98
$782.50 in 1961.
- 13 -
- 12 ■
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rental of a portion of the Chapin Lumber Company Warehouse for the
Normally, the Solicitor is on a retainer of $2, 434 per year.
storage of public works equipment.
The Borough Solicitor received a total of $3, 590. 01 for legal services
rendered to the Borough in 1961, his regular retainer plus additional
£
The cost of tax collection of $5, 956. 14 includes not only the tax
collector's commission, but also supplies and the premium on his bond.
compensation for extra work.
The tax collector's commission was $4,951.64; premium on his bond
Engineering services are provided by a Borough Engineer who
was $699. 12; and other expenses amounted to $305. 38.
is compensated for his work on a fee basis or at a rate of $5 per hour.
Janitorial services for the present Borough offices located on
8
lector's commission is 1% during discount period, and 3% thereafter.
the second floor of the Hoyt Library building are performed by a full-
Insurance and premiums paid on officials' bonds are included
under the item of miscellaneous of $20, 642. 02.
time janitor, responsible only for the offices occupied by the Borough
officials.
sub-items included under miscellaneous are:
His earnings for 1961 were $3,401.20.
Office Materials and Supplies, which includes expenditures such
as advertising, printing, and postage, amounted to $1,953. 59.
The item
of $290. 49 is solely for supplies for the offices and building.
During the past year,
expenditures of $679.87 were incurred
The tax col-
Among some of the
utilities--$2, 149. 44;
social security--$5, 820. 20; workmen's compensation and casualty in-
]
il
surance--$10, 303. 10;
general
insurance
coverage--$1,701.77; and
capital outlay of $293. 51.
Pringle
for repairs for the Borough Building.
Utilities are notincluded under
Pringle Borough is divided into two wards and three voting dis-
this item, but are listed under Miscellaneous.
Telephone expenses for Kingston include all telephones used for
general government and administrative purposes,
except the police.
I
1
tricts.
Seven councilmen are elected from the Borough at large and
serve without compensation.
The Mayor receives a salary of $25 per month or $300 per year.
The item of $878. 22 also includes all official Kingston Borough calls
The Borough Secretary receives an annual salary of $300 and
made by councilmen on their home phones.
performs the usual secretarial functions.
The expense of $3, 300 for 1961 involves the payment of rent to
The Borough Solicitor is on a retainer of $300 per year with the
the fire companies for the housing of fire equipment and vehicles and
Borough paying for all legal notices and advertisements.
- 14 'll!
ft'
- 15 -
Other legal
�i
i
is
expenses amounted to $200 for 1961.
mally for receiving fire alarm calls, police calls, and other emergency
calls.
The Treasurer is compensated by Council on a commission basis
16
which amounted to $269. 63 for 1961.
The cost of tax collection of $456.22 includes commissions, premiums on the tax collector's bond, and $50. 00 for supplies.
Three elected auditors earned a total of $240 for 1961.
His com-
mission was set at 5% for 1961 on a duplicate of $8, 556. 42.
Pringle has no full-time employees engaged in any administra
Pringle expended substantially lower.sums for insurance in the
tive activities, nor does it engage any additional clerical assistance.
amount of $301. 33.
J
Office materials for 1961 amounted to only $77. 39.
Insurance payments have been listed under mis
cellaneous, divided in the following manner;
$212.93 for workmen's
compensation, $48. 30 for casualty insurance, $30 for the Treasurer's
The Pringle Borough Building contains the Council meeting room,
bond, and $10 for the Solicitor's bond.
Mayor's office, and Police Station.
A custodian living on the second
KINGSTON - PRINGLE MERGER
floor of the Borough Building receives free rent, heat, and electricity
for janitorial services performed in the building.
The Borough pays
for all janitorial supplies. The custodian is also on hand to receive any
telephone messages and relay them to the proper officials.
Also, the
custodian sounds the fire alarm should a Borough fire be reported by
telephone.
The basement garage houses the Pringle ambulance.
The combined expenses for building repairs and supplies for
1961 amounted to only $59. 33.
3
It is obviously difficult to estimate whether or not any savings
a
will accrue in the general operation of borough government after mer-
3
1
I
Kingston has undertaken the construction of a new $80, 000 bor-
ough building intended to house the police station, street department
floor of the Hoyt Library building.
In the event that merger is con-
II
sumated, the citizenry of both Kingston and Pringle will have a single
No telephone expense is listed for Pringle because the Borough
■n
maintains the police phone at the home of the Chief of Police, and there-
■11
fore this item is found under another section of this study. A free tele
n
phone is provided in the Borough Building for emergency use, nor-
cipality with a small one.
office, and other general government offices now located on the second
Utilities for the Borough Building are
included under miscellaneous --an amount of $416. 60.
ger in view of the fact that the proposed merger involves a large muni-
borough building with a number of municipal offices for their convenience.
li
The present Pringle public will have ready access to full-time
borough personnel prepared to serve them, instead of the part-time
I
services which they now receive.
- 16 - 17 -
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i
be that the merged boroughs may elect seven ccuncilmen at large so
The general government expenditures of Pringle of $2, 946. 98
can be eliminated by merger.
that the $8, 400 figure remains after merger.
A single treasurer, one secretary, a
make Pringle a part of the 1st Ward, so that the present number of
single solicitor, and one set of auditors will be required in the merged
borough.
A single mayor will
constituted.
officers.
Another alternative is to
councilmen remains at seven, with the total figure of $8, 400 set aside
eplace the two for the boroughs as now
I
for councils' salaries following the merger.
No additional expenditures will be required for the above
■,8
Moreover, the present expenses for Pringle legal work and
In considering the net effect of merger, the amount of additional
engineering services can be absorbed into the present Kingston budget.
expenses and/or savings may not necessarily offset each other since
A summary of the total amount of borough taxes collected in the
the Pringle insurance program has undoubtedly been limited in scope.
two communities and the tax collection costs as a percent of total col-
With the exception of workmen's compensation for volunteer firemen,
the Pringle insurance expenditure could be eliminated.
lection for 1961 is presented below:
Total Borough
Taxes Collected *
Kingston
Pringle
$388,966.95
7, 822. 87
Total Collection
Cost to Borough
$5, 826. 83
456. 22
I
i
Collection Cost
as Percent of
Total Collection
8
1. 5%
5. 8%
* Includes taxes for prior years
T
The costs of tax collection for 1961 represented 1.5% of the total
J
J
1
borough taxes collected for Kingston, and 5.8% for Pringle. Presuming
that Kingston's tax collection commission policy is continued, a possi-
On the pre
sumption that the Pioneer Fire Company in Pringle will continue in ser-
vice, workmen's compensation payments should not exceed $225.00.
Because Pringle does not carry any public liability insurance, this in-
surance expenditure is likely to increase to approximately $1,400. 00.
Premiums for the tax collector's bond may increase by about $2.0. 00.
Other insurance coverage, such as the truck insurance and officials'
bonds, can be discontinued.
The Kingston general government expenditures after merger
ble savings of approximately $330 might conceivably be realized in tax
should include the following additional expenditures and amounts: $125
collection costs if the two boroughs merged. Savings on tax collector's
for public liability, $225 for workmen's compensation, $25 for supplies,
supplies and office expense will be negligible.
and $25 for an increase in tax collector's bond.
The item of expense of the salaries of the councilmanic body is
The present general governmental expenditures for Kingston
one that would not increase as a result of merger. One possibility may
•I
- 18 -
{III
and Pringle,
Kingston
15
I.
$58,937.13
and for Kingston after merger,
are presented below:
Pringle
Kingston after Merger
$2,94b.98
$59, 337. 00
19 -
�CHAPTER III
In an overall consideration of borough spending, police protec-
POLICE PROTECTION
tion in 1961 represented approximately 7% of the total general fund expenditures in Pringle, whereas 16. 5% of the total borough expenditures
The police force of every borough is charged with avast number
in Kingston were for police protection.
of functions.
Its chief task, of course, is to enforce the laws and the
The following table represents a summary of the above informa
ordinances of the State of Pennsylvania and the borough, and in general
tion on a per capita basis.
to preserve the peace.
1.
TOTAL EXPENDITURES
Police expenditures for the two boroughs for the six-year period
from 1955 to 1961 are presented below:
Kingston
1961
I960
1959
1958
1957
1956
1955
$83,706.
81, 519.
80, 503.
76, 460.
74, 501.
66, 058.
66, 276.
20,261
1,418
Kingston
Pringle
Pringle
74
00
00
00
00
00
00
Percentage
of Total Gen.
Fund Expend.
$83,706.74
636. 97
16. 5%
7. 0%
Cost
Per
Capita
.
$4.13
.45
* This does not include capital outlay costs.
Police Protection Expenditures
Years
Population
Total Police
Protection
Expenditures*
Reduced to a per capita basis, police protection expenditures
$636.97
630.87
423. 00
513.00
362.83
444.00
580. 00
in 1961 were $4. 13 for Kingston and $.45 for Pringle.
So that there
may be no misunderstanding with such comparative data, it must em
phatically be stated that police protection in Pringle is only a parttime service which would naturally result in.-a lower per capita cost.
Police protection expenditures over the six-year period from
2.
POLICE PROTECTION EXPENDITURES FOR 1961
KINGSTON AND PRINGLE
1955 to 1961 have shown a fairly steady increase from year to year for
Kingston.
In this period the expenditures for Kingston have increased
approximately 26. 3%,
or $17,430.74.
During the same period,
ex
penditures for police protection in Pringle increased 9. 8%, or $56.97,
although a year to year comparison would shew fluctuations.
- 20 -
The following expenditure figures were taken from the 1961
Kingston Financial Report and the 1961 Pringle Borough Auditors' Report.
�i
i
ITEM
Chief
Assistant Chief
Patrolmen
Special Police
Supplies
Uniforms
Veh. Maintenance and
Repairs
Gas and Oil
Traffic Signal System
Radio Call System
Telephone
Other
Kingston
Pringle
$ 4, 809. 32
$360.00
180.00
61, 162.77
9, 780. 00
280. 48
45. 31
I
I
1
3
8
6
18
r
1
Chief
Desk Officers
Patrol Officers
Traffic and Beat Officers
TOTAL
8. 00
(r
The Police Department work schedule consists of a 48-hcurweek
with the patrolmen working six consecutive days with two days off.
1, 362. 96
1, 724. 26
3, 330. 70
200.48
667. 66
333.80
$83,706. 74
I
Prior to March, 1962, the police worked seven days with the eighth day
off, except for every sixth week when the officer had both Saturday and
88. 97
Sunday off. Approximately 760 man hours per week are logged in police
$636.97
protection, divided into 704 man hours for beat and motor patrol, and
The expenditures for police protection for both boroughs do not
56 man hours for supervision and administration.
lend themselves to easy comparison, for the $83,706.74 represents
money expended for a full-time police department, whereas the $636. 97
expended by Pringle Borough in 1961 was for a part-time police personnel operating without Borough equipment.
In 1961, the Police Chief received $4, 809. 32 The total police
1
11
salaries paid to patrolmen amounted to $61, 162. 77.
A new pay schedule based on longevity movements for the Police
Department was adopted for the last half of 1961. The schedule, a part
of the newly adopted structure, classification, and pay plan follows:
Kingston
Kingston Borough maintains a fulle-time police force with a chief
and 17 officers.
II
Police Salary Schedule
(As of July, 1962)
At present there are no part-time police officers as-
signed; however, an auxiliary police detail of 26 men is available in
times of emergency. These men are trained in police work and are only
called to duty by direct action of the mayor.
13
The present breakdown of the Police Department is as follows:
Chief
9 Patrolmen
5 Patrolmen
1 Patrolman
1 Patrolman
1 Patrolman
18
@
@
@
@
@
Kingston
$ 5, 000. 00
36, 000. 00
19, 500. 00
3, 800. 00
3,700. 00
3, 400. 00
$4, 000
$3, 900
$3, 800
$3,700
$3, 400
Total:
$71,400.00
Expenditures for supplies and uniforms for 1961 amounted to
- 23 -
- 22 -
I
�1 L
J
a
I
5
$280. 48 and $45. 31 respectively.
primarily for synchronization of the traffic signals.
I
I
The Kingston Police Department provides a desk officer 24 hours
The vehicular equipment of the Kingston Police Department cona day.
The Police Department employs an RCA 3-way FM Radio Call
sists of two motor patrol cars and one police motorcycle with a side-
car.
I
A patrol car is usually retained for a period of two years.
The
5 u
System between Police Headquarters and the patrol vehicles.
The total
radio equipment is valued at approximately $1,500. It is also important
CT
patrol cars are purchased on an alternate basis with one new car being
to note that the Fire Chief's sedan is also equipped with a two-way radio
purchased every year.
0
The vehicular equipment for the Kingston Police Department is
listed below:
Police Department Vehicular Equipment
Original
Value
Insurance
Value
New or Purchase
Used
Date
Item_________
1961 Chevrolet
Police Sedan
$3, 137. 00
$3,130.00
New
8/61
I960 Ford Police
Cruiser Sedan "J"
$2, 600. 00
$2, 000. 00
New
6/60
1957 Harley-Davidson
Police Motorcycle
with sidecar
$1,627.00
$
TOTAL (3)
$7,364.00
$5,930.00
800. 00
New
i
i!
i
□ I
tuned to the police frequency.
the maintenance and repair of the radio call system, which is approxi-
mately ten years old.
A police telephone equipped with a red light is located on Kingston Corners. Several burglar alarms, including the Kingston National
Bank, are connected directly to Police Headquarters to provide more
adequate protection.
I
I
2/57
In 1961 a total of $200. 48 was spent in
Policemen are also paid for work performed in a private capacity
such as special traffic patrol in shopping areas.
For this service, the
private party requesting the additional police service compensates the
a
The total amount spent on gas and oil was $1,724.26 and the
a
amount on vehicle repairs was $1, 362. 96, for a total of $3, 087. 22 for
the operation of the three police vehicles.
individual patrolmen at a rate of $1. 50 per hour for a minimum of four
hours.
This money is not paid to the individual patrolmen but to the
Department to be apportioned through the payroll.
tional pay for police work amounted to $9,780.
The daily average patrol
mileage is 221. 6 miles between the two motor patrol vehicles.
In 1961 this addi-
Also included in this
amount was compensation for emergency police called out on extra duty.
II
A traffic signal system helps to expedite the flow of traffic
Pringle Borough does not own any police vehicles.
through the Borough. Last year the expenditures amounted to $3,339 00
- 25 -
- 24 -
i!
Members of
�t
a
to
the police department use their own vehicles for police business, and
•' a
are not reimbursed for mileage or expenses.
J DJ
CAPITAL EXPENDITURES FOR POLICE DEPARTMENTS
3.
breakdown of offenses by FBI classifications is made by the Pringle
. a
5.
io
motor equipment and $1, 302 for traffic signals.
Pringle had no capital expenditures for the police department.
POLICE ACTIVITY
If
111
Kingston
The Kingston Police Department maintains a detailed reporting
system patterned after the Uniform Crime Reports advocated by the
i
11
The Department investigated over
II
con1, 500 incidents and complaints, with the great majority of offenses
I
sisting of traffic accidents and violations of traffic ordinances and the
I
Federal Bureau of Investigation.
No
police.
The capital expenditures for Kingston for 1961 were: $1, 536 for
4.
majority of these were traffic violations and disorderly conduct.
Pennsylvania Motor Vehicle Code.
POLICE STATIONS AND-DETENTION FACILITIES
The Kingston Borough Police Station and the Chief's office are
located on the second floor of the Independent Engine Company fire house.
The detention facilities consist of five cells and a general detention
area located in the basement of the building.
Although a portion of the Pringle Borough Building has been set
aside for police department use, the majority of the work is performed
from the Chief's home. The Pringle Police Department maintains a twocell lock-up in the Borough Building.
6.
KINGSTON-PRINGLE MERGER
Should the two borough police forces be combined as a result of
merger, it would be reasonable to believe that the complete Pringle
expenditure of $636. 97 could be eliminated.
Pringle
On the basis of the available data concerning the number of ar-
According to the 1961 report of the Police Chief of Pringle Borrests and complaints, the police function of Pringle could be absorbed
ough, a total of 368 calls was answered by the Borough police.
These
by the presently constituted and manned police department of Kingston.
calls consisted of requests for assistance, emergencies, and disturb-
For the present expenditure for part time police protection, better proances.
It should be noted that the Pringle Police Chief is presently a
Deputy Sheriff for Luzerne County and performs additional police work
in that capacity.
A total of 73 arrests was recorded for 1961..
The
I
tection on a full time basis could be provided by the Kingston depart
ment.
- 27 - 26 -
�1
1
a
a
6
CHAPTER IV
a
FIRE PROTECTION
a
Calculated at the present cost of patrolling Kingston streets of
Fire protection is one of the few municipal services still per
$81. 21 per mile, merger of Kingstonand Pringlewould meanan expend
iture of about $200 for the more densely populated Pringle streets.
formed on a volunteer basis in the United States. In the Commonwealth
It
is not contemplated that other items under police protection will be af-
3
of Pennsylvania as a whole, there are only about six boroughs with paid
ac
full-time fire departments, while there are over 1, 900 active volunteer
fected in any substantial way.
In 1962, the Kingston Borough Council assumed the entire cost
an
0
i
In view of the fact that Pringle school children do not
cross any heavily traveled streets, merger should entail no additional
1.
I
year period from 1955 to 1961 are presented in the following table:
Fire Protection Expenditures
Merger of Kingston and Pringle will effectuate a net savings of
I
$436 and at the same time provide the Pringle residents with full time
police protection.
The present police protection expenditures for Kingston and
Pringle, and for Kingston after merger are presented below:
Pringle
$83,706. 74
$636.97
TOTAL EXPENDITURES
Fire protection expenditures for both communities over a six-
a.
expense for school crossing guards.
Kingston
Both Kingston and Pringle have volunteer fire depart-:
ments.
of compensating the school crossing guards, amounting to approximately
$11,000 a year.
fire companies.
Y ear
Kingston
Pringle
1961
1960
1959
1958
1957
1956
1955
$67, 430.47
63,722. 00
60,194.00
56, 972. 00
48,683.00
45,587.00
47, 587.00
$1, 193. 31
1,466. 00
602.00
331.00
281. 00
219.00
1,218.00
Kingston after Merger
During the six-year period from 1955 to 1961, Kingston fire
$83, 906. 74
protection expenditures have shown an increase of 41.6%, increasing
at an average rate of 5 1/2 % each year.
1
Pringle fire protection expenditures during the same period
evidenced irregular fluctuations.
Expenditures were under $1, 000 for
four of the years--1956 through 1959.
*
-29- 28 -
�(■
2.
FIRE PROTECTION EXPENDITURES FOR 1961
The following table represents a summary of fire protection ex-
The following expenditures were extracted from the 1961 King-
penditures for 1961 for the two boroughs.
ston Financial Report and the Pringle Borough Auditors' Report of 1961.
fl
Total Current
Operating Cost - 1961
Fire Protection Expenditures - 1961
Salaries and Wages
Materials and Supplies
Vehicular Maintenance and Repairs
Gas and Oil
Fire Alarm Systems
Fire Hose and Couplings
Minor Equipment
Other Maintenance and Repairs
Contribution to Volunteer Companies
Hydrant Rental and Supplies
Other Expenses
Maintenance of Fire Stations
TOTAL
$50, 950. 76
312,24
1,444. 94
526. 99
742. 87
125.11
589. 61
1. 13
8,205.11
3,312.53
19. 18
1, 200. 00
$67,430. 47
3
Pringle
Kingston
$
Kingston
Pringle
Average Cost
Cost Per
Per Alarm
Capita Answered -1961
$67,430,47
1, 193. 31
$3. 32
. 84
$322.63
238.66
Cost as % of
Total Gen. Fund
Expenditures
14. 7%
9. 2%
L
The difference in per capita costs stems from the fact thatPrin-
6. 00
17. 07
0
577. 60
gle's fire protection is 100% volunteer, whereas Kingston has a volunteer
system with paid drivers.
3.
232.64
360. 00
Kingston
: i
$1,193.31
PERSONNEL - SALARIES AND WAGES
Kingston Borough fire companies maintain 12 paid drivers and
3
3 paid chiefs. The total salaries and wages paid to fire department pers onnel in 1961 amounted to $50, 950, 7 6.
This total also included pay
ments to volunteer members while engaged in fighting a fire.
Fire protection expenditures in 1961 were $67,430.47 for Kingston and $1,193. 31 for Pringle, a total of $68,623. 78 for both boroughs.
In 1961 the Fire Chief received a salary of $4,742. This amount
Under Kingston's fire protection expenditures, the item listed
was divided evenly between the Fire Department expenditures and the
as contribution to volunteer companies for $8,205. 11 consists entirely
expenditures for Building Regulation since the Fire Chief had acted as
of state money received as a grant from the State Foreign Fire Insurance
Building. Inspector.
Fund. Pringle lists the State grant from Foreign Fire Insurance as con-
the Fire Department expenditures since building inspection has been
tributions to the volunteer fire fighting unit.
The figure for Pringle,
In 1962 the salary of the Fire Chief was paid from
assumed by the Health and Sanitation Department.
He now has the full
responsibility of supervising all volunteers and paid drivers.
however, consists of $132. 64 of State money and a yearly donation of
The two Assistant Chief s each received a salary of $468 in 1961,
$100 for the total of $232. 64.
-30-
I
1
- 31 -
�La
These men are not under civil service, and are
Pringle Borough has one volunteer fire company, the Pioneer.
selected, in fact, by the engine companies, and are subject to approval
The company is manned entirely by volunteers, with the Borough only
or a total of $936.
8
by the Council.
The volunteers are supervised by a Chief who is elected by the mem-
The paid fire truck drivers are under the civil service rules and
regulations of Kingston Borough.
bers.
They are on duty at all times to take
The Pioneer Fire Company consists of 78 active volunteer mem-
The paid
drivers operate on a 42-hour workweek with six days of duty and the
1
bers who pay $3 dues annually.
Other sources of income for fire com-
pany expenditures include carnivals and social affairs and soliciting of
following two days off.
Borough residents for contributions.
The volunteer fire fighting units--Independent and Columbian-have a force of 12 paid fire truck drivers.
The Independent Company
The drivers receive $320 per month or $3, 840 annually.
I
4.
:I
has 8 assigned to it and the Columbian has 4 paid drivers.
The
Volunteer,.firnmenane paid.$l. 50 per.hour ^anly when.actually engaged
To be eligible for pay, volunteer firemen must be
EQUIPMENT
Kingston
The Kingston Fire Department equipment is owned by the Bor-
total salaries for the 12 paid drivers for 1961 amounted to $46, 080.
in fighting a fire.
Neither the Chief nor the volunteers receive any compensation
from the Borough for their work.
equipment to the scene when an alarm is turned in. The volunteers proceed to the scene directly and meet the equipment there.
contributing toward accident and health insurance for the volunteers.
ough.
The equipment consists of:
No. 1 Engine Company (Independent)
1 750-gal. pumper
1
65-ft. aeriel
ladder truck
No. 2 Engine Company (Columbian)
1
put on duty by either the Fire Chiefs or the paid drivers. Each company
has an active list of 30 paid volunteers.
750-gal. pumper
Because there are several high buildings in the commercial dis-
Pringle
trict surrounding the Independent Engine Company, the 65-foot aerial
Because the Pringle Fire Department is 100% volunteer, the 1961
ladder truck is housed there.
expenditures of $1,193.31 include only 5 items.
Generally, Borough
The original value and the insurance value of the fire depart
Council expenditures have been for hose and minor equipment.
- 32.--
ment vehicular equipment are listed on the following page.
_ 33 _
�r
Date
Purchased
Original
Value
Insurance
Value
New or
Used
1943 Mack Pumper Fire
Truck (750-gal. )
$ 8,201.00
$ 5,_500. 00
New
6/43
1938 Mack Pumper Fire
Truck (750-gal.)
7,837.00
4, 500. 00
New
12/38
1949 American LaFrance
Aerial Ladder Truck
(65-foot)
The equipment consists of:
I
$
28, 700. 00
18,000.00
New
9/49
1961 Ford Sedan
(Fire Chief)
2, 571. 00
2, 570. 00
New
8/61
TOTAL (4)
$47,309. 00
$30, 570. 00
Expenditures for vehicle manintenance and repairs, and gas and
Original
Value
1935 Ford Pumper Fire
Truck (500-gal.)
were the following capital outlay expenditures in 1961 which are not
listed in the itemized list under fire protection:
TOTAL
Date
New or
Used Purchased
New
None
1935
Only liability insurance
is carried by the company.
Maintenance, repair, and gas and oil amounted to $23. 07, part
i
of which was for a community ambulance.
Pringle Borough had no capital outlay expenditures for fire pro
I
I
tection in 1961.
5.
FIRE ALARM SYSTEMS
Both Kingston and Pringle employ the Gamewell Fire Alarm
Capital Outlay Costs - 1961
Motor Equipment
Other Major Equipment
$1, 996. 96
The fire truck has no insurable value.
oil for all fire department vehicles amounted to $1, 971. 93.
In addition to ordinary expenditures for fire protection there
Insurance
Value
Kingston
$1, 661.00
2, 284. 88
$3,945.88
System in reporting fires.
The Independent Engine Company in Kingston answers four
alarms in Edwardsville Borough under an agreement between the two
communities.
This agreement was brought about because of the posi-
Pringle
The Pioneer Fire Company owns all the fire-fighting equipment.
tion of the railroad,
since a long freight train could isolate part of
Edwardsville from its fire company. The same is true of part of King-
The company pays for all equipment repairs, supplies, and material.
The Botbugh merely furnishes the company with insurance coverage on
the equipment and pays for the gas and oil.
ston.
Expenditures for maintenance and repair of the Kingston Fire
Alarm System for 1961 amounted to $742. 87.
tures were listed for Pringle in 1961.
-34-
«35- ..
No fire system expendi-
�6.
FIRE HOSE AND HYDRANTS
At present, the police department is located on the second
panies.
floor of the Independent Engine Company.
The amount of fire hose presently maintained by Kingston is:
150 feet of 3-inch hose
6, 400 feet of 2 1/2-inch hose
2, 600 feet of 1 1/2-inch hose
be relocated
of the new municipal building, the police department will
in it.
The Columbian Engine Company leases its second floor to a
Masonic lodge. Maintenance expenditures amounted to $1, 200 for 1961.
Expenditures for fire hose and couplings for Kingston in 1961
amounted to $125. 11.
However, upon completion
In Pringle all expenditures incurred in maintaining the fire station are paid by the Volunteer Company out of its funds since the fire
Pringle maintains:
company owns the fire house.
1, 500 feet of 2 1/2-inch hose
1, 000 feet of 1 I/2-inch hose.
8.
WEST SIDE MUTUAL FIRE ASSISTANCE
In 1961, Pringle Borough spent a total of $577. 60 for new hose
The Columbian Engine Company is the headquarters and base
and couplings.
As established by the standards of the National Board of Fire
Underwriters, both boroughs maintain two sets of hose--one set on the
equipment, and the other set at the fire station.
The sets are inter
station of a seven-municipality fire communications network for mutual
assistance in fire fighting.
Both Kingston and Pringle are members of
this communications network.
changed after a fire, or after periodic tests.
9.
AMBULANCE SERVICE
There are 162 fire hydrants in Kingston, and 16 in Pringle. Both
Both Kingston and Pringle have community ambulances which
communities pay the same rental rate of $20 per year for each hydrant.
Hydrant rental and supplies for Kingston in 1961 amounted to $3,312.53.
The sum of $360 for hydrant rental and water supply in Pringle was paid
have been purchased through contributions of private citizens. In Kingston, a 1957 Cadillac ambulance is housed at the Columbian Engine
House.
from the light and water fund.
a 1947
The Pringle Borough Ambulance Association maintains
MAINTENANCE OF FIRE STATIONS
Rent is paid to the Kingston fire companies for housing the equipment since both fire stations are presently ownedby the individual
com-
Ford ambulance which is housed in the Borough Building basement gar
age.
-37-
.36-
�k'
10.
KINGSTON - PRINGLE MERGER
Formulas have been established by the National Board of Fire
Underwriters for determining the number of pumper, hose, and ladder
companies, and the types of equipment required for adequate fire pro
tection for municipalities. Standards, generally considered to be maxi
mum standards and met by few communities, are based on the total
population, the number, type, and distribution of buildings.
i
i'
I
bl
1
population of over 20,000, for an average of 10, 000 people per fire
company.
Merger will reduce this population average to about 7,000
per fire company.
Moreover , the proximity of the Pioneer Fire Company of Prin-
gle to the proposed extension of the Kingston Industrial Park affords
increased fire protection for this whole section.
Direct r esponsibility and unity of command in fire protection in
the me:rged borough will replace the agreement for mutual fire pro-
The formula for cities under 50, 000 is as follows:
.85+0. 12 (P)
The formula results for the two communities individually is
4.30 pumpers compared to 3.45 pumpers for the two communities com-
6
I1
tection between the two boroughs.
According to the standards for hose set by the Fire Under-
writers, each company should have 2 sets of 1, 000 feet of 2 1/2-inch
hose--one set on the fire vehicles and one on the racks. Since the King-
bined.
Therefore, the merged borough would require 3 pumpers to
ston fire companies have 2, 400 feet of 2 1/2-inch hose in excess of the
meet the formula requirement--an obvious inherent operating economy
minimum, and since Pringle has 500 feet less than the desired minimum,
resulting from merger.
I
One ladder company is required in municipalities with five or
more buildings which are at least three stories or higher.
the combined departments, if merged, have 1,900 feet in excess.
In
view of this excess, no expenditure need be incurred for the purchase
Since there
are in Kingston well over 25 such buildings, the ladder company now in
I
of hose.
The problem of low water pressure in Pringle is presently under
Kingston should be retained.
study by the Pennsylvania Gas and Water Company, and until such a
As a result of merger, Pringle residents will be given
more
adequate protection by fire companies with paid drivers.
Merger will
study is completed no determination can be made as to the proper number of fire hydrants in Pringle or Kingston.
also offer the Kingston residents the services of a fire company now
Paid fire truck drivers must be employed in order to place the
serving only 1,418 people.
The two Kingston fire companies serve a
-39- 38;- _
�f I
CHAPTER V
Pioneer Fire Company on an identical operational level with the two
Kingston companies at the salary schedule below, adopted in the summer
of 1962.
STREET DEPARTMENT
Many times public opinion measures the success or failure of
local government in terms of the condition of a community1 s streets and
$3, 400
$3, 500
$3, 650
$3, 750
$3, 863
to
at
at
at
at
start
the end
the end
the end
the end
of
of
of
of
the cost to maintain them.
6 months
the second year
the third year
the fourth year
The physical condition of streets serves as
effective advertising for good or bad.
Streets in disrepair bring costly
wear and damage to vehicles.
In view of an expenditure of approximately $15, 000 annually for
wages for paid fire truck drivers, the Kingston Borough Council should
not embark on this phase of the fire protection program in any haste
and without the exploration of possible economies in other phases of
fire protection.
The responsibility for the upkeep of State highway routes between
curb lines rests with the Pennsylvania State Highway Department, al-
though the curbs are the responsibility of the borough.
The two bor
oughs have a total of approximately 5. 2 miles of State highway.
Of the
total street mileage of 42.75 miles, the two boroughs are responsible
The amount of $1, 193. 31 now listed under fire protection in the
Pringle budget can be completely eliminated.
for the care and maintenance of 37. 55 miles of borough streets.
The only items which
should be incurred by Kingston after merger are the salary for the
assistant fire chief and the fire hydrant rentals. Expenditures for such
items as vehicle maintenance and repair, gas and oil, contributions to
1.
The total street and highway expenditures, which include the
State Highway Aid Fund, for the six-year period from 1955 to 1961 are
presented below:
volunteer companies, materials and supplies, and maintenance of the
fire station can be easily absorbed into the Kingston budget.
The net
Street and Highway Expenditures
Year
Kingston
Pringle
1961
I960
1959
1958
1957
1956
1955
$106,166
159,402
109, 681
107, 687
122,809
104, 235
87,252
$ 6, 784
10,598
16,402
6, 354
17,624
5, 259
5, 473
savings for the merged borough should therefore be about $365.
The present expense for fire protectionfor Kingston and Pringle,
and for Kingston after merger are presented below:
Kingston
Pringle
$67, 430.47
$1,193. 31
-40-
Kingston after merger
$68, 258.47
TOTAL EXPENDITURES
Source: Bureau of Municipal Affairs (Pennsylvania Local Gov
ernment Statistics)
-41 -
�I
i
During the period from 1955 to 1961, Street and Highway ex
Pringle
penditures have fluctuated from year: to year due mainly to the vari-
The Pringle Borough Street Department is responsible for the
ance in the number of projects started or completed.
upkeep of 4. 4 miles of Borough streets of which approximately 82% are
Street and Highway expenditures over the years have been the
!
largest single item of expenditures for Pringle Borough and the second
I
largest for Kingston, representing 16% of the total general fund expend
paved with macadam or oil and chips, 8% are unimproved dirt roads,
6% are brick,
and 4% are cobblestone construction. About 30% of the-
borough streets (1, 3 miles) have sidewalks, while only 24% have curbs.
itures for Kingston and 40% for Pringle in 1961.
West Union Street, or United States Route 309* represents ap-2.
TOTAL STREET MILEAGE
proximately 0. 2 miles of state highway in the Borough.
One side of
The total street mileage in Kingston and Pringle is listed below:
Union Street, however, is located in Pringle Borough while the other
Kingston
Pringle
side is in Luzerne Borough.
Total Miles of Borough Streets
Total Miles of State Highway
33. 15
5. 00
38. 15
4. 4
0. 2
4. 6
Due to increased traffic over Grove Street between Edwardsville
Borough and Luzerne Borough, there has been a desire expressed by
Kingston
local residents to have the State assume responsibility over this thorThe Kingston Street Department is normally employed in the
oughfare. Should the State decide to take over Grove Street, this would
maintenance and repair of the 33.15 miles of borough streets. It is sig
add approximately 0.9 miles of state highway to Pringle Borough, Bring-
nificant to note that all of the streets in Kingston Borough are paved and
ing the total to 1. 1 miles, reducing the borough responsibility to 3.5
approximately 65% of the streets have curbs, gutters, and sidewalks.
The sidewalks vary from 5 to 6 feet, and a standard 6-inch curb is used.
J
miles.
3. COMPARISON OF PER CAPITA COST
In addition to the borough streets,
there are over 5 miles of
The following table represents a brief summary of street and
State highway running through the Borough. The principal streets mainhighway expenditures for both boroughs in 1961:
tained by the State are Wyoming Avenue, Market Street, Pierce Street,
Union Street, Bennett Street, Northampton Street, and a portion of Rut
ter Avenue.
-43-42-
I
�No. of Borough
Street Miles
Kingston
Pringle
33.15
4. 40
1961
Total General
Fund Expenditures
$71, 073. 75
3,575.97
Based on a jper capita cost,
Average
Cost per
Sq. mile
1961
% total Gen.
Cost
Fund ExPer
Capita penditures
$2,144.00
1,541.94
$3.50
2.52
15. 5%
39. 8
street and highway expenditures
from the General Fund were $3. 50 for Kingston and $2. 52 for Pringle
i
King it on
The Street Department works under the supervision of the BorS
. |
oughEngineer, who is responsible for seeing that roads, street sewers,
u
drains, and dikes in the borough are properly surveyed and located,
D
in 1961.
planning all new work or alterations, and submitting reports to Council.
The Kingston Borough Engineer is compensated for his work on
a fee basis. In addition, the Borough employs a full-time assistant en
In 1961, the approximate cost per street mile was $2, 144.00
gineer to handle matters of an administrative nature in the Borough
for Kingston and $1, 541. 94 for Pringle.
Engineering Department.
Not included in the total street and highway expenditures for
Engineering services expenditures in 1961
amounted to $229, discussed in an earlier section on General Govern
Kingston in 1961 was a capital outlay of $15, 560. 40 for the purchase of
ment.
new equipment.
The Street and Sewer Commissioner received $4,800 in 1961.
4.
TOTAL EXPENDITURES FOR 1961
The Street Department employs a work force of 13 to 14 full-time men
The following expenditures were extracted from the 1961Kings-
in addition to the Street Commissioner or Superintendent of Streets.
ton Borough Financial Report and the Pringle Borough Auditor's Report
: i
I
for 1961:
Street and Highway Expenditures - 1961
$ 4,800.00
57, 401. 64
242. 14
4,776. 61
2, 143. 08
1,234.63
Pringle
per hour.
$
The total wages paid to the Street Department personnel in
1961 amounted to $57, 401, 64.
477.00
1,069. 50
214. 78
102.85
166.33
1,132.00
17. 53
131.98
264.00
A total of $4, 776, 61 was spent in the maintenance and repair of
I
the operating equipment of theStreet Department in 1961. Expenditures
for gas and oil were $2, 143. 08; for other maintenance expenses,
I'
475. 65
$71, 073. 75
In 1961 all Street Department personnel, excluding the Superintendent, were paid on an hourly basis ranging between $1.40 to $1. 50
Kingston
Salary of Superintendent or Engineer
Work Foreman
Wages (Street Labor)
Materials and Supplies
Maintenance of Equipment and Repairs
Gas and Oil
Contract Fees
Purchase of Tools and Minor Equipment
Rentals
Snow Removal
Other Operations and Maintenance
Additional part-time labor has been hired dependent upon the workload.
-45-
$3, 575. 97
1
i
�><
Pringle
$475. 65; and for tools and other equipment, $1, 234. 63.
Pringle Borough Street Department is under the jurisdiction of
All public works equipment is presently housed in a portion of
a council member who serves as Street Commissioner without compen-
the Chapin Lumber Company warehouse, which is leased to theBorough.
sation.
The rent, listed under General Government Expenditures, amounts to
$270 per month, or $3,240 per year.
This is based on the rental of
9, 000 square feet of space at the rate of approximately three cents a
to five persons, including a work foreman, who are employed for peri
J
ods ranging from one day to several weeks.
The Street Department personnel normally confine their work
square foot per month.
to streets, curbs, and stormdrains with the exception of providing gar-
The equipment used by the Street Department is listed with its
bage collection throughout the Borough once a week.
original and insurable value:
All Street Department employees, including the work foreman,
Kingston Street Department
Vehicular Equipment
1961 International Dump Truck
1958 Ford Dump Truck
-" JO
111
New or
Date
Used Purchased
Original
Value
Insurance
Value
$4,491.00
$4,480. 00
New
8/61
3, 094. 00
2„ 000. 00
New
5/58
1955 International Pickup Truck
1, 404. 00
900.00
New
8/55
1953 Ford 1 1/2 Ton Truck
3, 411. 00
400.00
New
6/53
1952 Ford 1 1/2 Ton Truck
3, 341. 00
400. 00
1948 Chevrolet Pickup Truck
1, 294.00
200.00
1937 Dodge Paint Truck
1, 066. 00
200.00
1961 Elgin Street Sweeper
12, 500. 00
12,500.00
New
8/61
1948 Elgin Street Sweeper
9,405. 00
2,000.00
New
1948
3, Oil. 00
1,500.00
$43,017. 00
$24,580.00
Worthington Compressor
TOTAL (10)
The number of Street Department personnel varies from three
are paid $.75 per hour. The total wages paid to Street Department per-
sonnel was distributed between the General Fund and the Highway Aid
1
Fund, $1, 069.50 from the General Fund and $668. 25 from the State
Highway Aid Fund, for a total of $1, 7 37. 75.
JT1
I
The work foreman is responsible for the supervision of the
■
street workers and reports directly to the Street Commissioner.
work foreman received $942 in wages in 1961, $477 from the General
Used
10/49
Fund and $465 from the Highway Fund.
Expenditures for materials and supplies was $790. 10 in 1961.
A total of $102. 85 was spent in 1961 for the maintenance and repair of
the Borough truck.
Gas and oil expenditures in 1961 amounted to
$166. 33.
-47-
-46-
The
�1
11
i
ity rates established under the rules of the Pennsylvania Public Utility
Contracting fees consist of payment for work performed by private contractors in construction, repaving,
or resurfacing Borough
Commission. The cost includes the cost of the fixture, the installation,
1
and the maintenance of the lights.
streets. In 1961, a total of $2, 610 was spent in Pringle for contracting
Street Lighting expenditures for the two boroughs from 1955 to
I
fees.
1961 are shown below:
Should additional public works equipment be needed, the Borough
j
Council makes provision for the short-term rental of equipment and
1
operator from private construction contractors or the Luzerne County
Road and Bridge Department.
Street Lighting
The total expenditures for rentals in
Pringle amounted to $153.98 for 1961.
This amount included $119. 98
paid to the Luzerne County Treasurer for county road equipment and
0
■
$34. 00 for other rentals.
This truck is used
for all public works activities within the Borough.
It has no insurable
value.
5.
Kingston
1961
I960
1959
1958
1957
1956
1955
$25,207.56
24,971.36
24, 248. 78
23, 479. 30
21,455. 93
23, 309. 43
23, 136. 01
III
expenditures for 1961.
Street Lighting
Current Cost
of Street Lighting
1961
[H
Included in the powers of a borough is that of providing street
lights and making regulations for their protection.
Luzerne Electric
Division of the United Gas Improvement Company, which furnishes e-
lectric power to both residential and commercial customers, provides
street lighting and maintains the lamps for the boroughs.
The charges for Street Lighting are in accordance with the util-
--48-
$1, 022. 90
1, 782. 09
1, 121.64
2, 694. 68*
4, 300. 00 *:
2, 836. 00*
: 3, 885. 00*
The following table presents a brief summary of street lighting
1
STREET LIGHTING
Pringle
* Amount includes payment on unpaid bill from previous years.
Pringle Borough owns and maintains one single piece of equipment, a used 1946 Chevrolet 1/2-ton dump truck.
Year
Kingston
Pringle
$25,207.56
1, 022. 90
Average
Cost per
Street Mile
$660. 74
232.47
Cost
per
Capita
$1. 24
. 72
Total .
Np.. of
Lamps
553
25
Average
Cost per
Lamp
$45.58
40. 91
Both Boroughs use a special fund for street lighting expenditures.
Kingston street lighting is paid from a special light fund exclusively
for street lighting on the basis of a special one mill tax levy.
A special
�6
2
KINGSTON-PRINGLE
fund has been established for Pringle to cover all electric and water
Kingston has embarked on a street improvement program of
expenses on the basis of a five mill levy.
permanent repaving and resurfacing a number of well-travelled Borough
The following table indicates the present number of street lights
i
by lamp size for both Boroughs:
1
Number of Lights by Lamp Size
streets on an annual schedule.
As of the end of 1962,
completed at a cost of $37, 229. 55.
9 streets were
This program can be expected to
continue after merger to include the 4. 4 miles of Pringle streets, but
Lamps
Kingston
Pringle
only after the construction of sewers and the paving, grading, and cur-
I, 000 Lumen Incandescent
ir
4,000
"
. tr
6, 000
it
II, 250
"
TOTAL
74
270 1/2*
153 1/2**
56
553
2
23 1/2*
bing of existing streets is completed.
With a large portion of Pringle Borough on the side of a hill, the
111
25
rapid run-off of rain water will pose surface drainage problems.
Rain
*The Borough pays for 1/2 lamp cost for a street light on a Borough
boundary.
water is normally channelled along both sides of the streets in open cob
**Fourteen (14) of these lights are classified as half-night.
blestone ditches, eventually flowing into Toby Creek.
' <T?
6.
-
STREET -CLEANING
0
Street cleaning is conducted in Kingston on a regular weekly
schedule with the operation of two street sweeping machines.
The two
neering study, it is impossible to estimate the costs of the extensive
improvements that will be required.
!
i
fit, the Borough can assume part of the cost and assess the balance
!l(
against the owners of the abutting properties, using one of three pro-
cleaned more frequently due to the larger volume of traffic and accumu-
cedures.
u
The Pringle street budget of $6, 784. 00 canbe completely elimi-
Street Cleaning in Pringle is sporadic, depending upon the need
nated.
or condition of the streets.
No definite schedule is followed; the street
Since only about one-quarter of the Pringle streets are curbed,
the cost of cleaning of Pringle streets can very easily be absorbed in
crew is occasionally dispatched to problem areas.
the Kingston budget.
n
“50“
If the Kingston Council feels that
the improvements will be partly of general and partly of specific bene-
main business thoroughfares, Wyoming Avenue and Market Street, are
lation of debris.
Without an engi-
0
J
(Ill
ill1
0
r51»
�i
i
Based on efficient utilization of the personnel in the Kingston
8
The special electric and water fund levied by Pringle will be
Street Department and the mileage which must be properly maintained,
eliminated as a result of merger, and the street lighting expenditure of
the merger of Kingston and Pringle would not necessitate any new per-
$1, 022. 00 transferred to the special one mill levy for street lighting le-
sonnel.
The present Kingston work force of 13 full-time employees,
excluding supervisory members, is more than adequate to maintain a
total of 37. 55 miles for the combined boroughs,
since it represents an
average of only 2. 9 miles per employee.
i
I
I
Kingston equipment inventory should not be affected by merger.
Efficient use of present Kingston equipment, a regular replacement
program, and proper equipment: maintenance should preclude any addi-
tional expenditures for equipment or maintenance with the addition of
It is not likely that the $790.10 for materials and supplies ex-.
pended by Pringle couldbe eliminated, and probably increased to main-
il!
1!
However, a full-time street department uti-
lizing modern equiprrient should be able to get a better return on those
tax dollars.
The present street department expenditures for the.two Boroughs,
and the estimated expenditures for Kingston after merger are presented
The proper maintenance of streets is a requisite to the growth
As a result; of the merger, the Pringle residents
can look forward to a street program that no small community can af
ford because of the limited finances.
sis of the 1961 lighting system would total $26, 228. 46.
tain the streets properly.
4. 4 miles to Kingston street mileage.
of undeveloped land.
vied by Kingston. The street lighting cost for both Boroughs on the bs-
iT
below as a guide.
0
If
$110,154,. 13 includes the present Pringle amount for materials and supplies and the State Highway Aid..
The construction and reconstruc-
Kingston
tion of present Pringle streets is an investment that will repay Kingston
in new developments and eventually new tax revenue.
The estimated Kingston amount after merger of
Total
General Fund
State Aid
For the imme
$106,166. 00
71, Q73.75
35,082.25
Pringle
$6, 784. 00
3, 575.97
3, 208. 03
diate present there will be available $6,784. 00 for the Kingston Street
Department, which will provide a better service for both Pringle and
Kingston residents.
=53-.
-52-
'I
Kingston
after Merger
$110,154.13
71, 863. 85
38,290.28
�8
J
J
CHAPTER VI
because the health function was voluntarily surrendered to the State De-
HEALTH AND SANITATION
partment of Health in 1959, and expenditures for garbage collection and
The administration of health laws, ordinances, and regulations
in Pennsylvania boroughs may be accomplished by one of four methods
f
of administration: a health officer responsible to the borough council;
a borough board of health; the county health department; or the State
s
A borough may voluntarily surrender the ad-
1
ministration of the health functions to the State Department of Health.
n
Department of Health.
There are no expenditures shown for Pringle in I960 or 1961
fr
disposal are included in the Street Department expenditures.
2.
The expenditures for the present 5-member Board of Health in
Kingston for 1961 were:
Salaries and Wages
Materials and Supplies
The State then assumes all expenses of health administration in the
borough.
BOARD OF HEALTH
Total
However, the sanitation function remains the responsibility
$3, 680. 99
299,59
$3, 980. 58
The 5 members - consisting of 2 physicians, a dentist, a phar-
■
of the borough.
macist, and a plumbing contractor - receive no compensation for their
1.
TOTAL EXPENDITURES
services.
The total health and sanitation expenditures for Kingston and
The Board of Health reported 522 cases of communicable
diseases in the Borough in 1961.
There were 68 inspections made by
■
Pringle over a six-year period between 1955 and 1961 are listed below:
Health and Sanitation Expenditures
Year
1961
i960
1959
1958
1957
1956
1955
Kingston
$62,083
63, 167
62, 337
53, 795
47, 589
46, 559
46,617
■ 0
shops, and restaurants.
Pringle
nel.
In 1961 the expenditures in the above table represented approxi-
mately 14% of all borough expenditures.
-54-
Plumbing per-
In 1962, plumbing and building inspection functions were as-
I
n in
signed to one officer, receiving a salary of $4, 200, who also served as
the full-time secretary to the Board of Health.
The part-time health
officer, also responsible to the Board of Health, received a salary of
Much of this increase is due largely to
the purchase of additional equipment and the hiring of additional person-
coffee
mits issued in 1961 totaled 166.
Health and Sanitation expenditures for Kingston have increased
over 33% from 1955 to 1961.
cafes,
A total of 23 milk dispenser licenses and 228
children's health certificates were issued during 1961.
$—85
265
278
265
250
the Health Officer in 1961, 64 of which were of bars,
nf
$1, 700 per year.
-55-
�1
L
L
3.
disposal of garbage and refuse are maintained solely for the 6, 680
L
GARBAGE AND REFUSE COLLECTION AND DISPOSAL
Three methods are used by municipalities for the collection of
dwelling units in the Boroughs.
L
refuse and garbage: private collector dealing directly with the house
The following equipment is assigned to the garbage collecting and
disposal operation indicating its original and insurable value:
holder but regulated by the Council, private collector under contract to
Garbage Collection and Disposal Vehicular Equipment
Council, and collection by municipal employees. Kingston employs the
;113
Kingston
1961 Brockway Garbage Truck
Garbage and refuse collection and disposal costs increased from
HI
$19,387 in 1955 to $27, 468 in 1961 in Kingston,
for an increase of
$8, 081.
I960 Caterpillar Traxcavator
w/bucket - Model 955
1959 Chevrolet 2 1/2 Ton
Dump Truck
In 1961 Kingston spenta total of $27,468 on refuse collection
and disposal.
The total wages paid to personnel involved in garbage
collection and disposal amounted to $24, 532. 69 in 1961.
iture does not include capital outlay of $12, 200 for
Total (3)
This expend-
I
J
the purchase of a
new closed garbage truck for the collection of refuse.
The whole operation of the Kingston
on by a crew of 10 men.
is presently carried
New or
Used
$12,200.00
$12,200.00
New
8/61
20, 395.00
15,000.00
New
10/60
4,100.00
3,000.00
New
4/59
$36,695.00
$30,200.00
In the past, Kingston Borough utilized both an open dump in EdWardsville and the Wilkes-Barre incinerator for the disposal of its gar-
bage and other refuse.
Because of the unsanitary condition of the open
dump and the prohibitive cost of using the incinerator in Wilkes-Barre
Sanitation Department, in
volving both the collection and disposal of refuse,
Date
Purchased
Insurance
Value
Original
Value
third method.
($20, 000 annually), Kingston adopted the landfill method in 1953.
j
There are 3 men assigned to the closed gar-
A 12 acre tract was purchased in the eastern portion of theBor-
bage truck, 4 men on an open truck, and 3
men at the disposal site -
ough in the 5th ward on Church Street.
one of whom operates the equipment at the disposal site.
a cost of
bulldozer with a bucket front for compacting the refuse at
The annual salary of the equipment operator
is $4,000.
at the disposal site
The remaining 9 employees receive $3, 682
per year.
Garbage and refuse collection is provided by the borough
weekly basis, operating Monday through Saturday. No
bage is collected or permitted at the disposal site.
_-56-
on a
I
1
commercial gar-
The collection and
The site was equipped with a
$11, 000. An average of 5 loads of refuse is trucked to the site daily by
the two borough collection trucks.
It is estimated that the area will
serve as a refuse disposal site for at least 2 years.
Pringle
HI . ....
Expenditures for Pringle for garbage collectionand disposal are
-57-
�Li
included in the Street Department expenditures and not under Health or
Sanitation.
L
Therefore, it is not possible to accurately assess costs to
garbage and refuse collection.
i
Only an estimate can be made using
0
wages of the Street Department employees as a basis of computations.
t
Using such a basis, the annual expenditure for garbage and refuse col-
lection in Pringle was about $400 in 1961.
$26,189.81
123.33
2, 108. 72
1, 535.78
671. 13
6. 00
$30,634.77
Total
The $26, 189. 81 paid in salaries and wages in 1961 included both
In Pringle, garbage collection and disposal are provided on a
weekly basis by members of the Street Department.
Salaries and Wages
Materials and Supplies
Maintenance of Plant
Equipment
Electric Power
Other
I
I
All garbage and
refuse are trucked to a private dump in Forty-Fort Borough where the
the regular crew of 8 men who maintain the sewerage system and also
the extra personnel employed on a part-time basis.
The following equipment is assigned to the Sewer Department:
Sewer Department Vehicular Equipment
rate for disposal is $1. 50 per load.
Private collectors operate in both. Boroughs to collect ashes^.
Equipment
Original
'Value
Insurance
Value
New or
Used
1958 Flexible Sewer Cleaning
Equipment
$1,750.00
$1,200.00
New
5/58
1958 Flexible Sewer Cleaning
Equipment
1,750. 00
1,200.00
New
5/58
1958 Flexible Sewer Cleaning
Equipment
4, 586. 00
3,600.00
New
12/58
1955 Dodge Power Wagon
2,800,00
1,500.00
New
10/55
$10,886.00
$7,500.00
Date
Purchased
They are paid by the householder, the cost dependent upon the number
and size of the containers.
4.
SANITARY SEWERAGE SYSTEM
In Kingston, the maintenance of the sanitary and storm sewers
I
are handled by a Sewer Department, which maintains approximately 38
■I
miles of sanitary sewers and 21 miles of storm drains. Dwelling units
Total (4)
or business establishments are connected to one of these receiving con-
Several streets in Pringle are sewered, including Grove Ave-
1J
duits for sewage disposal.
The cost of maintaining the Kingston sewerage system increased
nue, Herbane and Broad Streets, and may even be connected to the
n
from$23, 552 in 1955 to $30, 635 in 1961, for about a 20% increase over
Kingston sanitary sewer system. Official records do not indicate if the
this period.
Pringle residents or Pringle Borough Council have ever paid Kingston
0
The following table shows sanitary sewer expenditures for Kings-
in 1961:
for the service.
-58-
-59-
�5.
SEWAGE DISPOSAL
The sewage which is carried through the sewerage system in
I
ough, and in this capacity Kingston received a total of $5, 440. 47 for
1961 from the Federal Government for the joint project.
Kingston is conveyed to outfalls along the Susquehanna River and dumped
A total of $21, 132. 38 was spent on flood control during 1961.
into the River.
The Sanitary Water Board has exerted considerable
Two men are regularly employed for the maintenance and operation of
pressure over the last 20 years on many Wyoming Valley communities,
the flood control project and are salaried at $153. 44 semi-monthly or
including Kingston, to abate the pollution. In 1950, the Kingston Coun$3, 682 per year.
cil did engage a sanitary engineer to study the feasibility of a sewage
disposal plant for Kingston and Edwardsville.
D
The following equipment is assigned for use by flood control
After preliminary dis-
personnel:
cussions with several West Side communities, plans for a sewage disFlood Control Vehicular Equipment
I
posal plant were dropped.
In 1962, the feasibility of a joint project for 14 communities a-
I
Original
Value
Insurance
Value
$3,000.00
$2,250.00
New
4/59
3, 192. 00
2,200.00
New
7/56
$6, 192. 00
$4, 250. 00
New or
Date
Used Purchased
long both the East Side and West Side was again reviewed by many com1959 Willys Pickup Truck
munity representatives.
In the latter part of 1962, Kingston became a
participating member of the Wyoming Valley Sanitary Authority, crea-
ted by 14 municipalities for the purpose of treating domestic sewage,
industrial wastes, and mine acid water. On the basis of one represent-
ative per 15, 000 population or fraction thereof, Kingston is represented
by 2 members appointed by the Council under the provisions of the Mu
nicipal Authorities Act.
6.
i
I
I
I
3
1956 International Tractor
and Mower
Although the impounding basin on Toby Creek is in Pringle, there
are no expenditures for flood control in Pringle, nor is the Borough re
sponsible for any flood control project.
7.
KINGSTON-PRINGLE MERGER
FLOOD CONTROL
It is not expected that the expenditures for such activities as
Construction of the flood control system in Kingston, initiated
in 1937, was finally completed in 1950.
sewage disposal and flood control will be affected by merger.
Operation and maintenance of
theFlood Control System are carried on jointly with Edwardsville Bor-
IJ
While the merger of Kingston and Pringle will result in more
inspections to be made, and more licenses, certificates, and permits
-60-
0
-61;-..
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ii
to be issued, the additional activity caused by 1, 418 people would ne-
cessitate only a negligible expense to the Board of Health.
L
I
The merger ofKingstonand Pringlewill mean that the 7 workers
5
on the refuse trucks will have 418 additional dwelling units to collect
5
8
from, making a total of 7, 098 in the collection system, for a 6% increase in collection.
A review of collection routes should be under-
taken with a view to economy.
It may be possible to absorb the addi
tional households under the present staffing.
No additional equipment
should be required to collect the garbage and refuse from Pringle res-
idents.
The landfill site is already adequately manned with personnel
s
proximately $400 for garbage collection can be utilized more effectively
by Kingston, representing a saving to the merged boroughs.
The present expenditures for health and sanitation for Kingston
and Pringle, and for Kingston after merger are presented below:
Kingston
Pringle
$62,083.00
$62,083.00
i
I
to handle the additional refuse from the Pringle residents.
It is difficult to estimate what additional expense will be incurred
regarding the Pringle sewerage system.
I
An accurate engineering sur-
vey is necessary to determine the extent and the condition of the Prin
gle sewerage system. The Kingston Council must give serious thought to
the discontinuance of the use of septic tanks in Pringle if it is desirous
of avoiding health problems in the future.
The addition of 1,418 people to the Kingston sewer collection
system will increase the number of sewer renters to the Wyoming Val-
ley Sanitary Authority, thereby helping to reduce theper.household cost
for all renters, including Kingstonians.
Merger will offer the Pringle
residents a complete health service and a sanitation service on a full
time basis.
The expenditure by the Pringle Street Department of ap-
.. -62,-r
Kingston after merger
-63' ••
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Li
s
Unusual fluctuations in expenditures, such as in 1951, are due largely to
the purchase of new or additional recreational equipment, or for repairs.
J
CHAPTER VII
2.
RECREATION
KINGSTON RECREATION EXPENDITURES FOR 1961
The recreation facilities of Kingston consist of playgrounds,
While both Boroughs maintain a recreational program, the ad-
ministration and financing differ considerably in the two Boroughs.
In
1961, recreational activities came under the jurisdiction of the Borough
Council in Kingston, whereas the same activities were conducted by a
TOTAL EXPENDITURES
Recreation expenditures for both communities for selected year s
are listed in the following table:
Recreation Expenditures
Year
Kingston
1961
I960
1959
1958
1957
1956
1955
$8, 990. 48
8, 102. 00
9, 386.00
7, 660. 00
6, 700. 00
5, 747. 00
473.00
B
1“
Pringle
There are no recreation expenditures for Pringle since the Bor-
Kingston has a total of 13.6 acres of
recreational areas of which 4 acres are school playground and playing
fields.
There is no community swimming pool, although an organiza-
tion has initiated plans for the construction of one for 1963.
i
community organization on a volunteer basis in Pringle.
1.
playing fields, and wading pools.
I
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I
I
I
The following table represents recreational expenditures for
Kingston for 1961:
$7, 467.21
820.34
538.18
164.75
Salaries and Wages
Materials and Supplies
Repairs to Property
Equipment
$8,990.48
Total
The expenditure of $7,467.21 for salaries and wages includes
not only compensation of $5,350.00 for the director and instructors,
but also $2, 117. 21 for personnel to ready the playgrounds for the sum-
mer season.
The salary schedule for the playground staff of the Kingston Rec-
I
reational Program is as follows:
ough Council does not sponsor a recreation program.
Recreation expenditures for Kingston have increased at a steady
rate since the expansion of the Borough recreational program in 1956
..-65-.
-64-
■
�There are no charges for any of the Kingston recreational fa$
1 Recreation Director @ $450
14 Instructors @ $350
450. 00
4, 900- 00
alities, nor are donations solicited to finance public recreational ac-
$ 5, 350. 00
Total
tivitie s.
The Kingston Borough Recreation Program was administered by
Pringle
a part time Recreation Director employed by the Borough Council for
Pringle Borough Council does not sponsor any recreational pro-,
eight weeks during the summer months from June 15 tp August 30.
3
The
gram, nor does it allocate funds for any recreational activity.
recreation director is paid a salary of $450 and the playground instruc-
The Pringle Civic Club, a private organization of about 50 Prin
ters are paid $350 each for the 8-week period.
gle citizens, has constructed a wading pool and playground with volunteer
Repair and maintenance of playgrounds and equipment have been
labor on the Pringle School District property adjacent to the borough
provided by employees of the Street Department.
Records are main-
building on Evans Street.
The land is leased by the School District to
tained on the man hours required for such work, and the costs were
the Civic Club for $1. 00 per year.
The playground and a soft ball field
$211.21 in 1961.
cover approximately 0. 4 acres of land.
The Borough maintains and operates seven playgrounds, one in
All expenses incurred in operating the playground and other re
each ward, equipped with swings, slides, teeter-totters, and other playcreational ectivities, including the water supply for the pools, are borne
ground equipment.
Three of the seven playgrounds are equipped with
by the Club and are paid for out of the Club's treasury.
wading pools.
Expenditures,
Each playground is staffed with two qualified instruc-
amounting to approximately $300 per year, include only supplies and
tors to insure a well-rounded program for the children.
other incidentals, for all maintenance is provided by the membership
The names and locations of the playgrounds, with a notation on
on a volunteer basis.
the wading pool, are listed below:
1st Ward---- Pringle Street Playground (Pringle St. and Korn St. )
* 2nd Ward---- R. Levy Playground (Schuyler Avenue)
* 3rd Ward---- Stegmaier Playground (Wyoming Ave. and Price St. )
4th Ward
Scanlon Field (Wyoming Ave. and Bennett St. )
5th Ward
Tioga Playground (Tioga Ave. and Dorrance St. )
* 6th Ward---- L. S. Reese Playground (Bowman Ave. and Dean Court)
7th Ward---- Third Avenue Playground (Third Avenue Elementary
School)
*The three playgrounds preceded by an asterisk have wading pools.
66-
All equipment is the property of the Club.
The playground staff consists of club members who volunteer
their services to watch the children during the hours when the play
ground is open.
•••
�L
The recreational program in Pringle now supported on a volunteer basis
The Pringle Civic Club finances the recreational program through
membership dues of $1. 00 per year.
In addition, families whose chil-
dren use the playground facilities and pool are expected to donate $1. 00
per season.
should be made a part of the joint Council-School District recreational
3
3.
KINGSTON- PRINGLE
In the Fall of 1962, the Kingston School Board and the Kingston
Council created a 5-member Recreation Board for the Borough with
the thought of continuing the recreation program on a joint basis in
order to take advantage of the reimbursement from the Department of
Public Instruction of the Commonwealth.
to commence in the summer of 1963.
The joint program is expected
Had the joint arrangement ex-
u
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ii
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I
isted in 1961, the Kingston Borough Council would have assumed just
the cost of equipment, supplies, and repairs of $3, 640. 48.
Kingston has followed the policy in the past of locating the play-
grounds by wards,
I
I
regardless of the size or population of the wards.
Whether such a policy has worked to the best interests of the children
Oftentimes, playgrounds must be located
wherever land is available, which seems to have been the case at times
■j u
in Kingston.
dm
The Pringle playground should be continued after merger
in order to accomodate the children in the vicinity of the playground.
-68-
The maintenance expenditure will at least approximate the $300
presently spent by the volunteer organization, and may even be higher
if Pringle playground is to be placed on a comparable level with other
playgrounds.
In view of the fact that Kingston follows a no-charge policy in
defraying recreational program expenses, public solicitation is likely
to be discontinued.
The merger would afford the children of Pringle the services of
a well-trainedcorps of instructors, capable of providing the instruction
and leadership in a recreational program.
A volunteer organization
would be replaced by full-time trained workers, so essential to a suc-
cessfully diversified recreational program.
The most significant advantage for the Kingston citizenry re-
I
of the Borough is debatable.
This would mean the addition of 2 recreational instructors,
supervised by the Borough recreation director.
The Club solicits donations in the Borough on a house-
to-house canvass and sponsors raffles during the year.
program.
h
suiting from merger is that it provides the open land so vital in any
recreational program.
Suitable open spaces of sufficient size have al-
most disappeared in Kingston.
elimination of one playground.
The new Borough Building will mean the
Many of the older schools in Kingston
have very small yards; and yet, under ideal conditions the neighbor
hood playground is the school yard.
-69..
�An inventory of public recreation in Kingston shows 13. 6 acres
CHAPTER VHI
of both school playgrounds and playfields, and other recreation lands
PLANNING
as against a standard as set by the National Recreation Association of
122.4 acres. Kingston residents do make use of Kirby Park, contiguous
to the Borough, consisting of 120 acres.
Most of the Kingston deficien
cy is in neighborhood parks and playfields which require about 2 acres
and about 15 acres respectively.
The most recent aspect of planning is its emphasis on the future
and the intelligent guidance of community growth.
correct many of the mistakes of the past, it can prevent their recur-
rence.
The 1961 expenditures for recreation for the two Boroughs are
presented in the table below, along with the estimated Kingston recre-
The absence of regulatory controls such as zoning and subdi-
vision ordinances has brought about land use problems in many communities.
ation expense after merger, assuming a joint Borough-School District
program:
Kingston
$8, 990. 48
Though it cannot
1.
BACKGROUND
Kingston
Pringle
$300. 00
(volunteer)
Kingston has had a zoning ordinance in effect since 1929.
Kingston After Merger
$3, 940. 48 - Borough
Council
A
Planning and Zoning Commission of 5 members and a Zoning Board of
Adjustment of 3 members have attempted to direct the development
of the Borough.
Presently, the Kingston Zoning Ordinance provides for the following classifications of land uses: General residence, first residence,
heavy industry, light industry, and commercial.
A plumbing code was
adopted in 1924, five years prior to the enactment of the Zoning Ordi
nance.
Pringle
Development is uncontrolled since Pringle does not have a zon
ing ordinance regulating land use, or building codes regulating
-70-
con -
�st-ruction or alterations.
The table following illustrates the landuses in both Kingston and
Pringle in terms of areas and percentage of total area.
Land Use Inventory
Pringle
Kingston
Acres
% of Total
Area
% of Total
Area
15
58
62
44
19.27%
15. 99
2. 96
0. 15
7. 53%
0. 51
0. 17%
28. 35
25.73
2. 62
1. 89%
1.72
0. 17
7. 63
2. 62%
0. 88
6. 75
. 30
2. 32
PUBLIC AND PUBLIC
UTILITIES USES
175.41
11.70%
5. 18
1.78%
INSTITUTIONAL USES
47. 02
3. 13%
21. 72
7. 45%
OTHER USES
259. 20
17.29%
40. 33
13. 80%
VACANT LAND
259.53
17.30%
150.35
51. 61%
14. 76
0. 98%
4. 19
1. 44%
1,499. 80
100. 00%
291. 34
100.00%
RESIDENTIAL (Total)
Single Family
Two Family
More than Two Family
531.61
382.14
116.14
248. 15
35. 44%
25. 48
7. 74
2. 22
COMMERCIAL
112.82
INDUSTRIAL (Total)
Light Industry
Heavy Industry
Culm Banks, Stripping holes
MIXED USES
TOTAL AREA (Acres)
TOTAL AREA (Sq. Miles)
2. 34
Source: Luzerne County Planning Commission
■
Acres
56.
46.
8.
0.
0. 45
�I
and to the flood control levee is presently used by the Borough for a
and Hudson Railroad tracks adjacent to Kirby Park.
6
The remaining land use in Kingston is light industry, approxi-
The commercial district is
located primarily in strips along both sides of Market Street, along the
E
Delaware and Hudson Railroad tracks in the 5th and 7th Wards, along
Streets eastward to approximately Gibson Avenue is zoned light industry.
road freight yards.
h
Pringle
t,
I
Pringle, in contrast to Kingston, has several large tracts of
land which are undeveloped,
vacant,
and useable for development.
Valley View Acres runs along Elizabeth Street, which is an extension of Kemp Street.
This plot, originally part of the old Pringle
Coal Company, consists of 9.75 acres and presently contains several
Pringle is about 0. 45 square miles of which approximately 48%
homes.
il
Crestview Heights, referred to as the Songallia Plot and also
uses of which 75% are single family homes.
3.
Pringle
t
Eley Street, and in the area surrounding the Erie-Lackawanna Rail
is developed. About half of the developed area is occupied by residential
The strip along Rutter Avenue has been
zoned commercial, and the area from the corner of Rutter and Lathrop
G
mating 1.72% of the total Borough area.
sanitary land-fill operation.
il
VACANT LAND
SI
originally part of the Pringle Coal Company land, is a development of
about 17.8 acres and runs parallel with Valley View Acres, with Cooper
Street separating the two developments.
No homes have as yet been
Kingston
constructed on this useable land.
Relatively little undeveloped land is available in Kingston.
The
The third plot is located north of Evans Street reaching over to
largest undeveloped tract lies along the dike in the 5th Ward along
the back property lines of properties on Elizabeth Street, extending to
Church Street, Rutter Avenue, Lathrop Street, and extends eastward to
North Street in Courtdale, and over to Courtright Street. There is conthe dike along the Susquehanna River. It was originally zoned industrial,
siderable rock structure in this 33. 1 acre plot.
but (the westerly side) has been rezoned residential.
A portion of this land
A portion of 36
just south of North to Courtdale Borough is leased by the owner,
acres was so zoned to make it possible for a private developer to conthe Glen Alden Corporation.
There is no development on this land as
struct a housing development for high middle income owners.
The easterly portion of the tract, extending along Church Street
-74-
| I
)
yet, although the fire station, borough building, recreation area, and an
-75-
�0
unused school building are located at the south end of the plot on Evans
Street.
The fourth plot is located south of Evans Street, bordering on
the plot mentioned above, and extending along Grove Street from King-
ston. This 9. 2 acre plot lies adjacent to land recently purchased by the
Committee of 100 of the Greater Wilkes-Barre Chamber of Commerce
for industrial development,
Street in Kingston.
located along the
£
C
The sixth and last area which is undeveloped in Pringle lies in
[
a narrow corridor between Courtdale and Edwardsville, and extends
t
I
westward to Larksville.
and except for the North Street entrance is almost completely maccessible.
Ii
4.
FUTURE POPULATION AND ECONOMY
It is difficult to estimate the future population of any single com-
south side of Division
It was with the thought of extending the industrial
This section of Pringle consists of 20 acres
munity.
developed all of its available land space,
If a community has
area that'this 9 acre plot was purchased by the Industrial Fund from
that community's population is not likely to increase to any great extent.
Glen Alden Corporation.
Conversions into more families per structure or redevelopment can
The fifth plot is located on the westerly side of Division Street,
which is the boundary between Kingston and Pringle. The Kingston side
change this somewhat.
Conversely, it a community has available land
space, opportunity for population growth does exist.
of Division Street has developed into an industrial site with a warehouse,
It does not appear from the population estimates made by the
Directly across
Luzerne County Planning Commission that there is likely to be any tre-
cigar factory, furniture factory, and similar uses.
from the Kingston Industrial Park in Pringle is a 12. 6 acre plot, which
mendous population growth on the West Side.
abuts the Toby Creek Impounding Basin constructed by the Common-
Kingston and Pringle as of other communities.
This area runs from the Lehigh Valley Rail
Population Projection
1950 to 1980
wealth of Pennsylvania.
road north to Grove Street and west of the Impounding Basin. The State
has under construction an enlargement of the Basin inorder to alleviate
a flood problem in the area. The location of the basin and its expansion
confine development to that land along Division Street extending to Grove
Street in Pringle.
While there is a large bank of culm and other mine
wastes in this section of land, several homes are already located on it.
-76-
Kingston
Pringle
This will be as true of
1950
I960
1970
1980
21,096
1,727
20,261
1,418
21,800
1, 375
22,900
1,450
Source: Luzerne County Planning Commission
�5.
mission as its consultant in planning future growth.
POTENTIALS OF LAND USE
Over 400 acres of land are vacant or undeveloped in both Kings
ton and Pringle.
Although much of this land is scattered and already
Each borough is
required to pay pro rata its share of the cost of projects over a three-
year period.
Kingston's share of the 9 borough project is $10, 000, of
divided into small lots, approximately 260 acres in Kingston and 150
which $7,500 is a grant by the Federal Government., leaving a total of
acres in Pringle may be available for possible development.
$2, 500 to be paid by Kingston.
It appears that there is a potential of a tract of 36 acres inKingston (which does not include scattered vacant land) and 7 3. 5 acres in
total cost of $1, 000, leaving $750 as a grant from the Federal Government.
8.
Pringle for development of all needed uses within the next 10 years.
In Kingston, the undeveloped area is already zoned and committed.
In
Pringle, from 10 acres to 55 acres might be classified residential and
Pringle will be required to pay $250 of
KINGSTON - PRINGLE MERGER
The tools of planning mentioned previously can be used by both
Such action
Kingston and Pringle acting independently of each other.
from 9 to 54 acres could be set aside as industrial (light or heavy),
would lack the coordination so necessary on the West Side if future
depending on the objectives of those who do the planning for the two bor
growth is to be meaningful.
oughs .
plan cooperatively through the newly created West Side Planning Com6.
TOOLS FOR DEVELOPMENT
Already the area in Pringle along Division Street has been dotted
with homes in spite of the fact that the Kingston Industrial Park is immediately across the street.
This is the kind of mixing of uses that
eventually becomes undesirable to all users. A land use plan combined
with a sound zoning ordinance and adequate subdivision regulations would
prohibit such mingling of future land uses.
7.
However, the two Boroughs are going to
WEST SIDE REGIONAL PLANNING
mission.
Where two or more communities plan as a single entity, their
mutual problems lend themselves to easier solutions.
If merger is
effectuated, these solutions are more easily accomplished.
Merger of Kingston and Pringle into one governmental unit would
result in the payment of Pringle's share of the West Side Planning pro
ject, a sum ($250. 00) which Pringle has already been assessed.
The
combined unit would pay the same amounts that each Borough now pays
In 1961 both Kingston and Pringle joined seven other West Side
communities to form the West Side Regional Commission. The Boroughs
have entered into a contract with the Luzerne County Planning Com-
-78-
individually.
�L
CHAPTER IX
MISCELLANEOUS EXPENDITURES
The expenditures
discussed in this chapter consist chiefly of
insurance premiums and contributions made by the two borough councils.
Smaller communities such as Pringle expend substantially lower sums'
for both of these types of expenditures.
1.
Miscellaneous Expenditures - 1961
Kingston
Police Pension Fund
Military and Civic Contributions
Hoyt Library
Pringle
$9,009.65
1,100.00
22,999.92
$33,109.57
The $1, 100 amount expended by Kingston in 1961 were grants made
by the Council to the West Side Veterans Association, Wyoming Valley
G
D
D
8
8
2.
KINGSTON-PRINGLE MERGER
Merger of the two Boroughs would not affect any change on.
I
itures as contributions to the police pension fund, . to military and civic
<1
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1
1
Merger will not affect Kingston expend-
organizations, and to the Hoyt Library, will remain the same.
The importance of public libraries in any general scheme of education must not be overlooked.
The Hoyt Library will provide the a-
dults of Pringle with a ready means of keeping abreast of the times,
and also enable the children to supplement the information gained from
the regular courses of study.
The money already expended by the Pringle officials for such as
there is no expenditure to the police pension, whereas Kingston Council1 s
ll
contribution to the police pension fund was $9, 009. 65 in 1961.
<1
Kingston Borough is unique in that it is one of seven municipal!-
insurance can be more effectively used when commingled with substan-
tially larger sums expended by a larger community like Kingston.
The present expenditures for Kingston and Pringle and for Kingston after merger are presented below:
ties in Luzerne County which supports a library service for its residents.
1928, was a gift from the
operated on a budget of $29, 586 in 1961.
the miscellaneous expenditures.
Because Pringle does notmaintain a full time police department,
established on January 1,
ough Council is the primary source of income for the Library, which
1
Nurses Association, and the Christmas Light Fund.
The Hoyt Library,
is used as a library. An annual appropriation of $23, 000 from the Bor-
I
Kingston
Pringle
$33,109. 57
$33,109.57
Hoyt Estate and remains the property of Kingston Borough so long as it
iM
IG
-80-
Kingston after Merger
-81-
�CHAPTER X
REVENUE STRUCTURE AND INDEBTEDNESS
Kingston and Pringle have identical taxing powers.
Under the
Borough Code, boroughs are permitted to levy taxes on real estate and
occupations, and taxes under Act 481 of 1947.
1.
REAL ESTATE TAX
The real estate tax is the principal source of revenue for both
communities.
The tax levy is made against assessed valuations of real
estate set by the County Board of Assessors. These valuations are also
used as a basis for County and School District taxes.
The amount of revenue a borough derives from the real estate
tax is largely dependent upon three main factors: the total assessed
valuation of all taxable real estate in the borough, the tax rate or millage levied, and the percentage of the tax levied that is collected.
A variation of 7. 3% is observed between the percentage ratios
on assessed value to market value of the two boroughs for 1961. The
average percentage ratio for boroughs in Luzerne County for 1961 was
30. 0%; and for all municipalities it was 34. 7%.
The following table presents a comparison of assessment ratios
and values over a six-year period from 1955 to 1961.
-82-
�3.
TAX RATE
changes.
The tax rate is fixed by borough ordinance at the time the borBoth Kingston and Pringle are included among the 46 of Luzerne
County's 73 municipalities which have taxable coal assessment valua-
tions.
In recent years, these valuations have been reduced considera
li
fj
ough budget is adopted by Council.
The total millage rate for borough
purposes applied to both real estate and occupational valuations for the
last seven years is as follows:
bly and to some extent have reduced the total real estate valuations in
Tax Rates
both communities. The total certified assessed coal valuations for both
1955
1956
1957
1958
1959
I960
1961
17.7
21
18
21
18
21
18
21
19
21
20
21
20
21
Kingston and Pringle were set at $518, 937 and $7, 100 respectively for
1961.
In 1955 these valuations were $766, 813 for Kingston and$22,91 3
Kingston
Pringle
From 1955 to 1961 the tax millage for borough purposes in Pringle.
for Pringle.
2.
has consistently been at 21 mills. In I960 and 1961 there was only a one
OCCUPATION TAX
mill difference between the two borough tax rates.
Boroughs have the power to tax occupations under the Borough
The 1961 total tax rate for both boroughs is composed of the folCode which states that all persons, professions, offices, and real pro
owing specific levies:
perty made taxable for County purposes may also
at the discretion of
General Borough
Purposes (Mills)
the Borough Council, be made taxable for borough purposes.
The number of taxables, taxable valuation, and the amount of
occupational taxes levied in 1961 for the two boroughs are shown on the
following table.
18 1/4
16
1
5
Debt
Total
3/4
20
21
Grouped under the special revenue fund for Pringle are street
lighting and water expenditures, whereas the tax levy of one mill for
Occupational Taxation - 1961
Number of
Taxables
Kingston
Pringle
Kingston
Pringle
Special Revenue
Funds
11,013
710
the Kingston special revenue fund is for the street lighting.
Taxable
Valuation
Occupational
Taxes Levied
$876,705
50,310
$17, 534. 10
1,056.51
4.
TAX COLLECTION
The following table indicates the amount of revenue collected for
both boroughs from 1957 to 1961:
-84- .
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Real Estate Taxes Collected
(1957 - 1961)
Y ear
Kingston
Pringle
1961
I960
1959
1958
1957
$356, 232
384, 297
348,480
358,998
351,918
$6,529
6, 878
7, 577
5,751
7, 971
Commonwealth of-Pennsylvania
Department of Internal Affairs
Local Government Financial Statistics 1957 - 1961
The average annual amount cf revenue produced by the real es-
tate tax over the five-year period from 1957 to 1961 was $359,985 for
Kingston and $6, 941 for Pringle. The amount collected in 1961 in King-
ston was next to the lowest over the last five years.
This 'is likewise
true in Pringle.
The collection trend in occupational taxation for both boroughs
over a five-year period from 1957 to 1961 is indicated in the table below.
L
Li
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n
I)
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f
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I
Occupational Taxes-Collected
1957 - 1961
Y ear
Kingston
Pringle
1961
I960
1959
1958
1957
$14,520
15,470
12,911
13,452
13, 716
1$
777
1,055
1,284
1,886
1„ 205
Commonwealth of Pennsylvania
Department of Internal Affairs
Local Government Financial Statistics 1957 - 1961
,86-r
I
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1
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> I
g
,a
I
The average annual occupational tax collected in Kingston amounted to $13, 688 over the five-year period.
During the same span,
occupational tax collections in Pringle averaged $1,210 per year.
The following table shows the success of the tax collection systern in both boroughs.
The percentage of tax collections is presented
in the column on the far right.
Ratio of Tax Collection - 1961
Real Estate
No. of Taxables
Kingston
Pringle
5, 083
404
Occupational
No. of Taxables
Kingston
Pringle
11,013
710
Real Estate
Tax Levied
Real Estate*
Tax Collected
$402,119.73
7,499.91
$356,232.00
6,529.00
Occupational
Tax Levied
Occupational
Tax 'Collected
$17,534. 10
1, 056. 51
$14, 519. 93
776. 65
%
Collected
88. 5
87. 1
%
Collected
84. 2
73. 3
* Does not include taxes collected for previous years.
Borough Tax Collectors’ Reports
The data above indicate that both communities are similarly
successful in collecting the real estate taxes levied: 88. 5% for Kingston
and 87. 1% for Pringle.
Kingston is more successful in collecting the
occupational tax: 84. 2% to 73. 3%; and, yet improvement in collecting
this tax is obviously indicated in both communities.
3
-87 -.
�Tax collection is divided into four types of payments: those paid
All of the revenue sources listed above are self-explanatory ex
on a discount basis during a specified period; those paid on face value;
cept grants and gifts. This source is in the form of State aid, exclusive
those classified as penalty payments; and those paid for prior years.
There is a strong indication from a tax collection analysis that a large
majority of the taxpayers in both boroughs take advantage of the dis-
count period.
5.
OTHER REVENUE SOURCES
Various other revenue sources with the total amount of receipts
Li
Li
B
B
I
of the liquid fuels money, and including mostly money paid to the mu-
nicipalities for firemen's relief associations from the foreign fireinsurance tax.
6.
INDEBTEDNESS
An important factor to be considered in the merger of two boroughs such as Kingston and Pringle is the amount of indebtedness of
for 1961 are listed below:
each of the merging municipalities.
Article II, Section 220, of the
Other Revenue Sources - 1961
Pennsylvania Borough Code (1957) states with respect to merging bor-
Source
Licenses and Permits
Fines and Forfeits
Grants and Gifts
Departmental Earnings
Liquid Fuels Tax
TOTAL
Pringle
Kingston
$27,403.25
5, 649. 00
8,205.11
1? 835.00
30, 035. 59
$73. 127. 95
$
120.00
372.00
1,162.64
2, 710. 35
$4, 364. 99
Licenses and permits and liquid fuels money from the Common-
wealth of Pennsylvania are equally substantial sources of revenue for
Kingston, whereas only the latter is a substantial source for Pringle.
Included among the licenses and permits are: pave cut permit, sewer
permit, poolroom permit, building permit, plumbers' license,.,and
restaurant inspection fee.
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1
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1
I
1
I
I
0
H
oughs,". . .all rights of creditors and liens shall be preserved, and all
debits, liabilities, and duties, of either of such boroughs, shall attach
to such new borough and be enforced against it." The Code states in
effect that the new borough is responsible for all the indebtedness in
curred by the merging boroughs.
Kingston
Indebtedness incurred during 1961 by Kingston consisted of a
General Improvement councilmanic bond issue for $225, 000 and a tem
porary loan of $230, 000. Bythe end of 1961, Kingston had paid $200, 000
on the temporary loan leaving a net debt of $30, 000 remaining.
The
Borough Council decided to retire this debt in 5 years at the rate of
$6, 000 per year.
-89-
�0
The general improvement bond issue will extend over aten-year
period with the bonds fully paid off in 1971.
Payments on the bond is-
A 3/4 (.75) mill tax levy for debt purposes and a sinking fund
I
have been set up to pay off the principal and interest of the bond issue.
[I
The total net debt at the end of 1961 was $212, 830. 23 and con-
I
I
i
sisted of the following:
Temporary Loan
Bonded Indebtedness
$ 30, 000. 00
225,000,00
Total
Sinking Fund Balance
$255,000.00
-12,169.77
Total Net Debt
$212,830.23
if
Pringle
During 1961 Pringle Borough madea final payment of $1, 000 on
a temporary loan of $2,000 incurred in I960. This released the Borough
from any debts incurred through loans.
Pringle has no outstanding
bonded indebtedness.
Listed under unpaidbills for Pringle Borough in 1961 is $8, 805. 27
iT
due the Pennsylvania Gas and Water Company for fire hydrant rentals
and water supply over a number of years.
When this is reduced to a
in 1961, although this has been changed for 1963.
1
I
I
1
I
1
!l
I
rely on the Luzerne County assessment program. At present, there is
- .. ■ 1.
a 7. 3% difference inassessment ratios between the two boroughs. How-'•
ever, the Pringle real estate tax rate was one mill higher in 1961 than
the Kingston real estate tax rate.
Using a $10, 000 home, the tax thereon in the two Boroughs is
computed below:
Kingston: $10, 000 x 34. 8
$3, 480
X
20
$69. 60
Pringle: $10, 000 x 27. 5
$2,750
x
21
$57.75
Considering avariation in assessment ratiosand a difference in
tax rates, the above data indicate that there is a difference in real es-
tate taxes of $11. 85 on a $10, 000 home in the two communities.
Assuming the 1961 conditions following merger, the Kingston
20 mill levy would be applied to the Pringle assessed valuation of
$387,128.
J
The net effect of this would be a slight decrease of real es-
tate tax levied in Pringle from $7,499. 69 to $7, 142. 56. Using the 1961
Kingston tax collection record, a revenue of $6, 285 would have been
expected.
per capita basis, it is $6. 20.
-90-
Both communities
Value x Assessment Ratio = Assessed Value x Tax Rate - Tax
No unpaid bills were listed for Kingston in 1961.
The per capita debt for Kingston in 1961 was $10. 50.
KINGSTON-PRINGLE MERGER
Both Boroughs relied on the real estate and occupational taxes
sue will amount to $25, 000 per year, payable on the first day of No-
vember.
7.
B
An improvement of Pringle's occupational tax collection to
-91-
�Kingston's level could add an additional $110 to Pringle's potential rev-
enue.
It is difficult to estimate the additional amount of revenue to be
expected from licenses and permits,
although the most productive
are likely to be pave cut permitsand building permits which should pro-
duce at least $1, 000 annually at the present level of development in
Pringle.
taken in Pringle, after the completion of the necessary engineering sur-
veys, a complete financial review and analysis will have to be made.
: Because of theirfecent^chainge' in .the Kiingstdn; rate and assum
ing the 1961 tax base, and applying the 1963 tax structure, the net ef-
feet on the revenue produced by the merged unit can be estimated.
Based upon an assessed valuation of $20,463, 114 and a tax col-
While the unpaid bill of $8, 805. 27 appears substantial in the
Pringle financial picture, <since it is only . 4 of a mill in the Kingston
lection record of 88. 5 per cent, the 19 mill levy would produceapproxi-
mately $344, 087 in real estate tax revenue.
Based upon the present
budget, it can easily be absorbed in the Kingston budget over a3-year
11,723 occupation taxables, a $5.00 per capita levy, with the Kingston
and possibly 2-year period.
collection rate of 84. 2 per cent, would produce approximately $49, 354.
The 1961 revenue sources for Kingston and Pringle, and for
Kingston-after merger are estimated below:
Kingston
Real Estate Taxes
Occupational Taxes
Other Revenue
$356,232.
14,520.
73, 128.
$443, 880.
Pringle
$6, 529.
779.
4, 365.
$11,671.
On the basis of available data for porperty transfers in Kingston and
Pringle, the 1/2 of one per cent deed transfer tax could be expected to
Kingston after Merger
$362,517.
15,407.
78, 493.
$456,417.
produce approximately $7, 000 for the year.
The total tax revenue would have amounted to $400, 441 assum-
ing the previously mentioned conditions.
Since the non-tax revenue
has been estimated to be $78, 493 after merger, the total anticipated
The tax structures of Kingston for 1963 will consist of the 'fbl-
revenue would have amounted to $471,934 for Kingston after merger.
lowing levies::
19 mill real estate tax rate
$5 per capita tax (Act 481)
1/2% deed transfer tax (Act 481)
The levies proposed for 1963 were enacted with a two-fold ob
jective:
reduce the tax load on Borough real estate, and to produce
additional revenue at the same time^ if capital improvements areunder-
-92-
-93-
�CHAPTER XL
SCHOOLS
People are as: vitally; interested in guaranteeing to everyone the
opportunity to secure an adequate position for his life work as they are
III
with academic, commercial, and vocational curricula available in the
secondary school.
Some students from bordering municipalities attend
the Kingston school on a tuition basis.
Pringle
The Pringle School District is headed by a board of five direc-
in providing vital municipal services.
Some of the commonly accepted criteria that should be considered
in the potential merger of school districts are: teachers' salaries, co
tors elected at large, having overlapping terms of six years.
Due ;to
financial difficulties,, the Pringle School District was recently declared
academic training, and supplemental services.
"Distressed School District" and a Board of Control of three members
in Pennsylvania, a board of education responsible for providing
was appointed by the Court of Common Pleas of Luzerne County to man-
curricular activities,
educational services is entirely independent of the municipal authorities.
It fixes its own tax rate, within the provisions of the qchaol code, and
spends money as it sees fit.
The tax collector, elected by the people,
collects the school tax together with the borough, county and institution
district taxes.
But in so doing, he acts as an agent of the board of ed-
age the district in conjunction with the local school board.
Pringle School District is a fourth class district administered
through the Luzerne County Superintendent of Schools for the Pennsyl-
vania Department of Public Instruction.
The school program consists solely of one elementary school
with grades 1-8.
ucation.
1.
ORGANIZATION
The secondary pupils are sent, on a tuition basis, to
the neighboring school districts because of decreased enrollments and
rising costs. These pupils attend Larksville, Kingston,.,Luzerne,..Wilkes
Kingston
The Kingston School District is managed by an unsalaried board
of seven directors elected by popular vote for overlapping terms of six
Barre, and the Wyoming Valley Technical Institute.
2.
TOTAL EXPENDITURES
Total school expenditures for the Kingston and Pringle School
years.
Kingston School District operates as an independent third class
Districts over a seven year period are presented below:
district under the jurisdiction of the Pennsylvania Department of Public
Instruction.
The school program is organized on the K-6/7-12 plan,
-94-
-95-
�General Control expenditures include school board administra-
School District Expenditures
School Year
Kingston
1960-61
1959-60
1958-59
1957-58
1956-57
1955-56
1954-55
$1,560,959
1, 395,809
1, 201, 742
1, 215, 090
1, 409, 262
1, 101, 602
1, 160, 196
Kingston's expenditure has shown
Pringle
$56,734
59,528
57, 014
64, 032
72, 517
44, 625
64, 008
an increase of over four hundred thou
sand dollars from 1954 to 1960-61.
No steady increase is observable
SCHOOL EXPENDITURES FOR 1960-61
The table below gives a breakdown of the expenditures for King
General Control
Instructional Expenses
Aux. Agencies and
Coord. Activities
School Plant Operation
School Plant Maintenance
Fixed Charges
Debt Service
Capital Outlay
Other
TOTAL
$
2. 6% as against 4. 4%.
Instructional expense, the largest item in both budgets, includes
teachers' salaries, library, textbooks, teaching supplies, and in-service
training expenses.
Whereas it is 60% of Kingston's total expenditures,
This instructional cost also included payments made by Pringle
to Kingston and other school districts for tuition.
Public Instruction to include attendant services, health services, and
Pringle
pupil transportation.
41,775.59
942,451.88
$ 2, 506.00
44, 526. 42'
33,951.68
138, 761. 16
21, 163. 52
85,775.55
157, 236. 25
135, 190. 02
4, 654. 06
888.50
4, 890. 63
1, 397.57
2, 371.33
153.76
$1,560,959.71
portion of its budget for General Control than the Pringle School District,
grouped under the new budget forms of the Pennsylvania Department of
School Expenditures 1960-61
Kingston
Kingston School District expends a much greater
etc.
Auxiliary Agencies and Coordinating Activities have been re
ston and Pringle School Districts for 1960-61.
Item
tax collector,
it is over three-quarters of the Pringle budget,, or 78%.
from, the Pringle expenditures from 1955 to 1961.
3.
tion, legal services, auditing, secretary's office supplies, treasurer,
Whereas Pringle provides some of the services
on a rather limited basis, such as part-time nursing service for $360 a
year, the Kingston School District expends a substantial amount.
School Plant Operation includes salaries of custodians, janitor
supplies, fuel and utilities. Whereas this item of $4, 890. 63 (8%) is the
second largest item in the Pringle School District Budget, the $1 38,,761 ..16
$56, 734.22
Note: Percentag_.
■ge -ratios used
in the
discussion of the breakdowi
------- /n of ex
penditures are based on ratios of
total expenditures, and
not operating
expenditures.
(8%) is the third largest item in the Kingston budget.
School Plant Maintenance includes head janitor, equipment re -
placement,
repairs, painting and other such maintenance activities.
-97-
-96-
�D
These amounted to about 13% of all expenditures for Kingston and only
i
2% for Pringle.
Fixed Charges include teachers' retirement, workmen's .com
il
Sources of Revenue -- 1960-61
pensation, F. I. C. A. , and insurance. These are state-mandated charges
for both school districts.
% of
Total
)
Kingston budgeted $157,236. 25 for Debt Service in 1960-61 while
Pringle budgeted only $153.76 on her debt.
At the end of the 1960-61
outstanding;
Kingston,
school year,
Pringle had
$323,782.81.
Whereas the debt for Pringle is to a large extent tuition
$42, 081. 70
and
Pringle
Kingston
Amount
Revenue - Local Sources
Real Estate Taxes
Per Capita
(School Code)
Per Capita (Act 481)
Miscellaneous
$749,240.11
TOTAL
$923,713. 13
40. 8%
2. 6
3. 8
3. 2
47,135.41
69,661.41
57,676.29
50. 4%
Amount
$14,762.47
2, 343.28
1, 874.61
1, 523. 25
$20,513.61
% of
Total
25. 0%
4. 0
3. 2
2. 6
34. 8%
owed to neighboring districts for secondary school students, the ^Kingston
-debt is for school improvements and renovations.
The Capital Outlay expenditure in a school budget includes such
items as the purchase of buildings, building sites, and new equipment
(as distinguished from the replacement of old equipment which falls un-
Revenue - State Sources
Reimbursable Teaching
$452,651. 31
Units
Reimbursable Tuition
261.99
Units
85,987.77
Other State Aid
$538, 901. 07
TOTAL
29. 4%
$370,881.91
20. 1%
Balance from
Previous Year
904.07
0. 1%
$ 2,403. 80
4. 1%
GRAND TOTAL
$1,834,400.27
100.0%
$58,969.42
100. 0%
$20,333.00
12, 447. 92
3, 271. 09
$36,052.01
61. 1%
der School Plant Maintenance). Pringle has no Capital Outlay. Kingston
expended $135, 190. 02 in 1960-61 largely for renovations.
4.
REVENUE FOR 1960-61
The table on the following page represents the amount and source
Other Sources
of revenue for both Kingston and Pringle School Districts for 1960-61.
The total Pringle School District revenue of $58, 969.42 amounts
to slightly better than 3% of the total Kingston revenue of $1,834,400.27.
o percentages
x
Note: In computing
above,, all income
___ _ used. Ordinarily,
"Other Sources" ( one
has been
(---time payment for insurance) and balances from previous years would not be used.
The real estate tax levy represents 40.8% of the Kingston School
District income, while real estate taxation in Pringle supplies one-fourth
of the total school district income.
-99=
-98-
�Both tax rate and
revenue which a
assessments bear directly on the amount of
The Kingston School District real estate levy has consistently
community can provide to support its educational sys-
increased from 1955 to 1961.
The Pringle levy has remained exactly
tem.
the same.
The dollar amount of market value of
real property in Kingston
Because the Pringle 45 mill school tax was insufficient in
1962 to meet current expenses and adequately provide for debt service,
is
tremendously high when
compared with that of Pringle. At first
glance, this would
merely appear to be the typical large-small community difference.
the millage for school purposes was increased from 45 mills to 75 mills.
Kingston School District levied a realty transfer tax under Act
But this wide disparity becomes
quite glaring when
481, beginning with the 1959-60 school year budget, which continues in
put on either a population or
pupil basis.
effect.
The table below shows
market value of property on a per pupil
Of the total of $56, 505. 62 in combined state and local revenue,
basis and a- per capita basis:
Kingston
Pringle
only 36. 2% was raised locally in Pringle in 1961.
I960
Population
Market
Value
M. V.
Capita
20,261
1, 418
$57, 783, 000
1, 300, 800
$2, 851
917
No. of
Pupils
3, 375
184
District raised 63. 1% or $923, 713. 13 of the combined state-local re
M. V. /
Pupil
venue of $1,462,614.20.
$17, 120
7, 069
Local tax rates should not be the only, means to measure willing-
The table below shows a
breakdown of local revenue
source s
from 1955 to 1961 for both
Kingston School District and the
Pringle
School District:
KINGSTON
ness to provide needed school revenue. The amount of taxable property
and the ratio at which this property is taxed also help to determine that;
willingness.
R. E.
levy
(mills)
45
45
45
45
45
45
45
tax
(Act 679)
$5. 00
5. 00
5. 00
5. 00
5. 00
5. 00
5. 00
The assessment ratios for Kingston and Pringle are 34. 8
and 27. 5 respectively. The effective tax rate, therefore, becomes 12.4
PRINGLE
R. E.
Year
levy
tax
tax
Ending (mills)
(Act 679)
(Act 481)
1961
40
$5. 00
$5. 00
I960
40
5. 00
5. 00
1959
35
5. 00
1958
34
5. 00
1957
34
5. 00
1956
34
5. 00
1955
32
5. 00
(R. E. = Real Estate.
- Per Capita)
I
tax
(Act 481)
~$4. 00
4. 00
4. 00
4. 00
4. 00
4. 00
4. 00
for Pringle and 14. 0 for Kingston.
Since the reimbursement fraction for a school district is com
!
piled by the Department of Public Instruction on the basis of property
evaluation, the school district has no control over the amount of reim-
J
bursement.
The higher the fraction, the greater will be the unit reim
bursement received by the school district, and, therefore, the greater
J
1
is the portion of the district's expense which will be borne by the State.
-100-
I
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The Kingston School
-101-
�1
State payments to the Kingston and Pringle School Districts for
5.
1960-61 were based on the following fractions and quotients:
INDEBTEDNESS
At the end of the 1960-61 school year, the indebtedness of the
Kingston
Pringle
Basic
ASRF
Subsidiary
ARF
Capital
ARQ
0. 6498
0.8533
0.6359
0.8475
0.5873
0.8271
Kingston School District consisted of the following:
(1) of the $350, 000
non-electoral improvement bond issue of 1957 there remained a bal-
The formulas above account for Kingston School District's re
ance of $245,000; (2) of the I960 improvement and fire hazard loan
there remained the total of $55,782. 24 outstanding.
ceiving from the State in 1960-61 a sum of $452, 651. 31 and Pringle
Thus, at the end of the 1960-61 school year, the total indebtedSchool District's receiving $20, 333.00.
ness of the Kingston School District amounted to $300, 782. 24.
Both school districts receive reimbursable tuition payments for
In this same period, the indebtedness of the Pringle School Dis-
sending their students out to other school districts.
Pringle received
trict amounted to $42,081.70.
This was not bonded indebtedness or a
$12,447.92 in 1960-61 for sending its students to the neighboring school
loan, but was caused by an operating deficit built up over a period of
districts, whereas Kingston received only $261.99.
years.
Reimbursements are also made to school districts for vocational education, driver education, school nurse, health services, travel.
In order to eliminate this operating deficit, the Board of Con
trol appointed by the Department of Public Instruction increased the
millage levied from 45 to 75 mills.
vocational extension classes, handicapped children, homebound children,
migratory children, and testing.
Kingston does avail itself of many of
these payments amounting to $85, 981.77 or about 12% of the total State
aid, whereas Pringle School District receives $3, 271. 09 or about 8% of
the total State aid..
Kingston does provide more of the above services
than does Pringle.
Other
1960-61
SCHOOL PLANT AND FACILITIES
A summary of all school buildings, types of construction, pupil
capacity, and number of rooms in the two school districts is presented
in the table on the following page.
Kingston
At the present time, Kingston School District operates thirteen
sources of revenue for the Kingston School District in
amounted to $370,881.91,
6.
the largest single item being in
surance for fire damages to the high school auditorium and from
tem
school plants, nine elementary, one junior-senior high school, and three
schools rented to the Wyoming Valley Technical Institute.
schools occupy an area of approximately 9. 3 acres in the Borough.
porary loans.
-102-
t
The thirteen
-103-
�Schools in Kingston and Pringle
1960 - 1961
Use
The average age of all school plants is 43 years.
elementary schools are over 60 years at the present time. The junior"
Age
Prig, - Add.
Type
Construction
Pupil
Capacity
Kingston
Church
Maple
Rutter
Third
Chester
Main
Schuyler
Loveland
Pringle
High
Dorrance
Auto
Dorrance
Penn
Rooms
B-C-D
E
E
E
E
E
E
E
E
E
J-S
Wyo
Wyo
Wyo
60
60
60
7
.35
52
41
45
37
33
B/WI 1
"
1
B/MW2
B/M 3
B/M 3
B/WI 2
tt
2
II
1
B/M 3
B/M 3
-5-
11
72
51
S
S
S
S
S
S
S
S
S
S
230
230
400
230
500
400
500
300
230
1, 170
7- 1-1
7- 1-1
10- 2-1
7- 3-1
15- 1-1
12- 1-2
15- 2-1
9- 1-1
7- 2-1
39-17-3
E
21
W
senior high school building is slightly over 30 years old and is fire re
sistant.
Due to increased enrollment on the elementary level, primarily
within the area of the 7th Ward, a new school, the Third Avenue Ele
mentary, was constructed nineyears ago to meet the increased demands.
Also, improvements were made to the Rutter Avenue Elementary School
with the addition of more rooms.
All Kingston school buildings used by public school children are
M/M 3 S
B/WI 2 O
B/WI 2 O
1- 0-0
3- 3-0
2- 4-0
Pringle
Pringle
Three of the
of brick construction with either masonry or wood interior.
All of the
schools have been rated suitable for 20 or more years use.
Only three
Kingston schools have been rated combustible.
1
S
200
6- 0-1
Two of the three schools (Dorrance Auto, Dorrance, and Penn)
rented to the Wyoming Valley Technical Institute have been considered
W -- Wood Frame
B/M -- Brick on Masonry
B/WI -- Brick/Wood Interior
M/M -- Masonry on Masonry
1 -- Combustible
2 -- Semi-fire resistant
3 -- Fire resistant
E — Elementary
J-S -- Junior-Senior
Wyo -- Wyoming Valley Technical
Institute
S -- Satisfactory and suitable
for 20 or more years
O -- Obsolete; should be
abandoned for school
purposes
obsolete for normal school use.
Total pupil capacity for Kingston in 1960-61 was 4, 190 in a
B -- Regular classroom
C -- Special purpose rooms
D -- Auditorium, gym, or
multi-purpose room
Source: Luzerne County Planning Commission School Report
potential of 138 classrooms for an average of slightly better than a 30
pupil per room capacity.
The breakdown of the above total is 3, 020
elementary school pupil capacity and 1, 170 high school pupil capacity.
Pringle
At present, the elementary school on Evans Street is the only
school plant operated by the district.
This plant occupies an area of
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�I
approximately 0. 5 acres.
The building, over 21 years old, is a com-
bustible wood frame structure with six regular classrooms and one
and 8 as secondary pupils, and sent them out as tuition students to neigh -
multi-purpose room.
boring districts.
The plant is considered to be satisfactory and
usuable for 20 or more years.
pils were classified as elementary pupils.
In 1960-61, the structure had a pupil capacity of 200 pupils for
During the 1960-61 school year, there were 2,278 elementary
students and 1,097 secondary students fora total enrollment of 3, 375
an average of slightly better than 33 pupils per room.
7.
Beginning in 1957, the Pringle 7th and 8th grade pu-
students in the Kingston Schools.
PUPIL ENROLLMENT
The student enrollment taken at the end of the school year in
June, for both school districts from 1955 to 1961, is presented in the
During the 1960-61 school year 175
were employed on the professional staff, including a superintendent,
supervisors, principals, and teachers.
In that school year, there were 184 pupils enrolled with the
following table:
.KINGSTON
Pringle School District.
PRINGLE
School Year
Elem.
Second.
Total
Elem.
1960-61
1959-60
1958-59
1957-58
1956-57
1955-56
1954-55
2, 278
2, 296
2, 281
2, 215
2, 226
2, 176
2, 181
1, 097
1, 054
993
994
1, 018
1, 057
1, 065
3, 375
3, 350
3, 274
3, 209
3, 244
3, 233
3, 246
115
128
125
118
106
114
109
Second.
Total
69
67
75
64
105
107
105
184
195
200
182
211
221
214
It is apparent from the previous table that there has been
sharp increase or decrease in pupil enrollment in either Kingston
Of this total, 115 pupils were enrolled in the
elementary school and 69 pupils were sent out on a tuition basis to the
neighboring schools, as follows:
Larksville - 37; Kingston - 21; Lu
zerne - 7; and Wyoming Valley Technical Institute - 1.
The instr uc-
tional staff consists of four members, one of whom is a teaching prin-
cipal. Each member of the Pringle faculty teaches two grades, with the
principal instructing the 7th and 8th grades.
On the basis of the above data for 1960-61, the pupil-teacher
ratio is 1 to 19. 2 in Kingston and 1 to 28. 7 in Pringle.
Pringle School Districts from 1955 to 1961.
Pupil enrollment in King8.
ROOM CAPACITY AND PUPIL ENROLLMENT
ston has increased by 129 pupils, 91 of whom were elementary school
When pupil enrollment in the two school districts is considered
students. Pringle on the other hand shows a decrease of 30 pupils from
in relation to room capacity in Kingston and Pringle, neither school
1955 to 1961, the largest decrease being in secondary pupil enrollment.
district would appear to be overcrowded.
Up to 1957, the Pringle School District classified students in grades
-106-
-107-
�PRINGLE
KINGSTON
Elem.
Second.
Room capacity
3, 020
1, 170
4, 190
200
200
Pupil enrollment
2, 278
1, 097
3, 375
115
115
. Total
Second.
Elem.
Total
er ship, but also an opportunity for the students to display their art oh
jects.
The Pringle art program is a limited classroom program.
AUDITORIUM.
Available in every Kingston elementary building is a
room that can be used as an auditorium normally providing the neces-
The table indicates that the secondary school plant in Kingsto
is nearer capacity than the elementary school buildings.
sary safety features and auxiliary space.
The auditorium in the King-
It should also
ston high school, one of the newest in the area, is available on a fee
be noted that while there appears to be ample room capacity in King-
basis for community use.
The Pringle school building does have an
ston in the elementary schools, this is not to say that there may not
auditorium that was utilized in prior years as a high school gymnasium.
necessarily be overcrowding in a particular elementary school in the
BUSINESS EDUCATION.
Borough, such as compelled the construction of the Third Avenue Ele-
A program for business education offered on
the high school level is provided by the Kingston school district for
mentary School.
training in the business field, and also for students who wish to acquire
While Kingston has a 30 pupil per room capacity, the present
skills in specific business areas. Commercial skills such as typewritaverage is slightly better than 23 pupils per room.
Pringle has a 33
pupil per room capacity, and presently averages 20 pupils per room.
9.
ACADEMIC PROGRAM AND CO-CURRICULAR ACTIVITIES
cluded in the business education curriculum.
The Pringle school sys-
tern does not furnish a high school academic program.
To evaluate the advantages of school systems, academic pro
grams and facilities available to the students must be compared.
ing, bookkeeping, stenography or shorthand, and office machine's are in--
The
CAFETERIA.
The high school in Kingston provides meals for the stu-
dents at a nominal cost.
Pringle elementary school students return
Kingston school district is one of the few accredited school systems in
home for their noonday meal.
Luzerne County while the Pringle systemis not accredited. In the areas
GUIDANCE.
discussed below, the Kingston school district consistently offers a wide
guidance and individual testing, working with the students.
instructional and co-curricular service while Pringle does not.
readily accessible to the students.
ART.
this service.
The Kingston school district emphasizes the role of art in its
A guidance staff is available in Kingston to provide case
The Pringle school does not furnish
elementary and secondary grades providing not only supervisory lead-
-108-
The staff is
-109-
�HEALTH SERVICE. The health service program of the Kingston school
brary facilities, supported by both the Council and School Board. Prindistrict includes daily health inspections required on the part of the
gle library material is limited to small classroom supplies and books.
teacher in addition to the annual medical and dental examinations.
In
MUSIC. A comprehensive program in elementary and secondary music
a_ddition, a full time nursing staff is available for first aid in isolating
Fi
including both choral and instrumental music under professional super
those students who are ill or in need of rest. A properly equipped nurs
vision is provided for the Kingsto:m children.
es' room is furnished the staff.
The Pringle service is limited to first
The Pringle music pro
gram is limited to classroom work and conducted solely by the class-
aid care and a part time nurse for 18 days a year.
room teacher.
HOME ECONOMICS.
A specific program is provided for the study of
child development, home furnishings, family relations, meal prepara-
tion, and home management for the high school students in Kingston.
Since the Pringle school system only provides an elementary education,
this activity is not part of the educational program.
INDUSTRIAL ARTS,
In Kingston,
and may continue in the 11th arid
12th grades at the Wyomirig Valley Technical Institute.
PHYSICAL EDUCATION. A physical education program for all elemen-
tary and secondary students under a competent staff is a regular part
of the Kingston program.
Indoor and outdoor sports are conducted on
an intra-mural and inter-scholastic basis.
The Pringle program is
limited in staff and supervision.
the student may prepare for an in
dustrial background in the 8th grade,
1
The Pringle
SCIENCE.
In both the fields of biology and general science, laborato-
ries are provided by Kingston for the study of the sciences.
in these laboratories are the normal safety features necessary for the
tuition students: are limited to the high school part of the program.
proper study of the sciences.
KINDERGARTEN.
basis in the elementary grades in Pringle.
A child's first exposure to the education process is
Included
Science is taught on a limited textbook.
very important to the development of the child. A kindergarten program
TEACHERS' LOUNGE.
is presented in the seven elementary schools in Kingston.
ston buildings as a restroom between classes and as a study room to
There is no
A teachers' lounge is available in all the King-
kindergarten in the Pringle school building.
prepare for succeeding classes.
LIBRARY.
for its four teachers.
The Kingston High School, well equipped with currently use-
ful materials, maintains a close working relationship with the individual
classroom teachers.
The Kingston students may also use the Hoyt Li-
-110-
Pringle provides no similar facility
�10,
KINGSTON - PRINGLE MERGER
formula:
Pennsylvania, when two communities merge, the separate
133
Units
school systems become one unit automatically because of the action.
X
$500
X
. 6517
SARF
$43,338
A Joint Board of Education would be created for the operation of
The councilmanic action would proceed under the provisions of the Borthe Kingston-Pringle Joint School District. In the case of a school join-
ough Code, and the school merger would proceed under the provisions
ture entered into by the Kingston and Pringle School Districts, the sepof the School Code.
ar ate School Boards of the two districts remain in existence.
There are three possibilities which might be considered by the
Borough Councils and the School Boards of the two communities.
has its merits,
Each
The third possible course of action would also delay the merging
of the two communities until after a union school district has been cre-
and considering them in their proper time sequence
ated from the separate Kingston and Pringle School Districts.. The rea-
could mean the maximum benefits to the citizens of Kingston and Pringle.
The first possible course of action would involve merely merging
the two communities, requiring no separate action by the School Boards.
After the merger of the two communities is consumated, the Kingston
School Board, faced with problems arising from the merger, would han-
son again is to permit the Kingston School District to avail itself of the
reimbursement provided by the Commonwealth for entering into a union
or merged district. A supplementary reimbursement at the rate of $800
per teaching unit for approximately 133 teaching units could mean about
$69, 340, using the following formula:
die them as ordinary municipal growing pains stemming from an in-
133
Units
creased population of 1,418.
The second possible course of action would be to delay the merg
ing of the two communities until after the School Boards of the two communities have had an opportunity to enter into a jointure provided for in
the School Code.
This would allow the Kingston School Board
X
$800
X
. 6517
SARF
$69, 340
In the case of a union district, a single school board for both
Kingston and Pringle will be elected on an at-large basis in the two
communities.
Either of the two schedules below could be followed in order to
to benefit
five the citizens of Kingston and Pringle every advantage for added
from the jointure reimbursement under the School Code.
A supplemenState revenue:
tary reimbursement at the rate of $500 per teaching unit for
approxi-
mately 133 teaching units could mean about $43, 338, using the following
-112-
(1) Formation of a school jointure, followed
by formation of a union district, followed
by merger of the two communities.
�(2) Formation of a union district, followed by
merger of the two communities.
in 1960-61, and the precise salary for which the Kingston School Board
Therefore, the Councils and the School Boards of the two com
will have to provide will depend on when the jointure or merger is con-
Tuition payments made by the Pringle School .District to the
munities should consult each other and arrive ata mutually acceptable
sumated.
progress schedule in order to protect against any loss of available State
Kingston School District will be eliminated since all secondary school
reimbursement monies.
pupils in Pringle will attend the Kingston school.
The school district after the merger of the two communities
would remain an independent third class school district with an unsala-
dents on the present level, an increase of at least $2. 57 per pupil can
be expected, in addition to the present level of Pringle spending of
ned board of seven directors elected at large.
In reviewing the potentials of merger, the possible elimination
of certain Pringle expenditures must be considered.
$888.50.
Whether or not school plant operation and maintenance costs
If the two school
districts enter into a jointure, the Pringle School Board would continue
in operation and the present expenditures may very well continue
possibly be higher.
If Kingston were to extend its auxiliary services to Pringle stu-
would remain the same or increase would depend on policy decisions of
the Kingston School Board.
Retention of the Pringle elementary school
building for the first year or two may be dictated by citizen attitude, and
A substantial part of the Pringle general control
expenditure would be eliminated in the case of a union district, with the
detailed study of the reassignment of pupils. However, continued use
of the Pringle building will be affected by the policy of the Kingston
exception of Tax Collector’s commission.
School Board. If discontinued, over $6,200 in savings would be realized.
The two largest items in the Pringle instructional expenditure
Presuming the abolishment of the Pringle elementary school
for 1960-61 were teachers' salaries and tuition payments.
salaries were $21, 100 of the total expenditure.
teachers,
Teachers'
Three of the PringL
including the teaching principal, have reached their
mandated maximums.
state -
Moreover, the teaching principal and one of the
teachers are within several years of retirement, so that in a few
years
they can be replaced by aprofessional employee at the minimum
The fourth member of the Pringle teaching staff
salary.
buildings after merger, the children in Pringle might attend the Pringle
Street School in Kingston, where the pupil capacity is 230 pupils. When
the present Kingston enrollment or 142 is combined with the Pringle pu-
pil load of 90 elementary pupils, the building is slightly over the pupil
capacity.
The 7th and 8th grade students presently in Pringle would
attend the junior-senior high school in Kingston.
was at the $4,100 level
-115-
-114-
�If the Pringle Street School were utilized, every Pringle student
would be within 20 to 25 minute s
walking distance of the school building,
normally not considered
an unreasonable walking distance.
Transpor-
assumed by the Kingston School
by the time of merger and must be
Board.
A factor which may dictate the closing of the school
building in
Pringle by the Kingston School
not of such proportion that
it cannot be absorbed in the Kingston budget.
tation reimbursement by the State is
not likely in view of the fact that
the walking distance is within :the 1
1/2 mile proviso of the School Code.
The amount remaining, however, is
One item of expense
not discussed previously is related to the
joint Council-School Board recreation program
stages.
which is in the formative
The School Board will assume the financial responsibility for
Board or by the Kings ton-Pringle Joint
amounted to $5, 350.
instruction- and supervision, which in prior years
Board may be the reimbursement offered by the State
for the closing of
the Pringle playground,
If the Recreation Board adds 2 instructors for
unnecessary schools.
it will mean an increase
It is not likely that such items
as retirement and social security
as part of the fixed charges in the Pringle School Budget can be elimi
nated or even decreased if .the Pringle
into the Kingston School system.
employees are.to be assimilated
The items mentioned will be lower
only after retirement of some of the Pringle professional employees.
The Pringle School Budget only shows $157. 76 appropriated for
debt service in spite of the fact that $42, 081.70
was outstanding.
Pringle School Board, in conjunction with the
The
Board of Control, has al-
ready taken steps to retire the debt by an increase in the
tax rate from
of $700 to $6,050, all or part of which may be
reimbursable by the Department of Public Instruction.
Applying the 40 mill real estate
in 1961 to the assessed valuation in Pringle,
the 45 mill Pringle levy.
the same amount
Kingston can expect to receive approximately
in the Pringle budget from the Act 679 and the Act 481 taxes.
In calculating the
reimbur sement, it should be noted that at pre-
resident elementary units do include grades 1 through
Instruction has agreed to assist in reducing the debt by making annual
8 (including the 7th and 8th grades).
may be retired by the time
merger is consumated, and while some of
the Pringle school debt is owed to Kingston for tuition of Pringle secon
dary students, nevertheless some portion of it
may still be outstanding
-116-
The
total expected from both taxes should be about $4, 200.
sent, the Pringle
as much as 50% of the total amount
the revenue produced
only about $1, 900 less than
would have been approximately $12, 850, or
45 mills to 75 mills. At the same time, the State
Department of Public
contributions toward that end. While
school tax rate used by Kingston
After merger, the resident:units,
1 through 6 (grades 7 and 8
attached to Kingston, will include grades
are included in the secondary units).
Using the pupil enrollment data
and market value for 1960-61 for
-117-
�the combined districts, the revised fractions and/or quotients for 1960-
the only way to provide
time ago. It became quite obvious that this was
61 would have been as presented in the following table, along with the
the children with a high quality education.
fractions and/or quotients for the separate school districts for the same
small school is a denial of the privilege
Today, an education in a
year:
BASRF
Basic Acc't Standard
Reimbursement
Fraction
SARF
.Subsidiary Acc't
"Reimbursement
Fraction
of an acceptable education.
CARQ
Capital Acc't
Reimbursement
Fraction
School districts with a low school popula-
state
tionmay even spend a
funds are considered.
'n
1960-61
The amount spent is not defensible, and, with a
acalimited staff of 4 or 5 members such as in the Pringle system, the
Merged School
District
. 6654
. 6517
. 6053
Kingston
. 6443
.. 6302
. 5809
Pringle
. 8612
. 8556
demic or vocational programs as well as co-curricular activities canthat the educational program is not
not be provide]!. So it is conclusive
acceptable at whatever the cost. The money should be spent where more
. 8364
Because of the tremendous difference in size between the two
will be served by a better educational system.
: i
school districts, merger of the two will result in the fractions and/or
Most people will admit that the teacher is the most important
factor in providing an educational opportunity for children.
quotient for the merged school district approaching the present Kingston
But some-
times there are not enough chhl dr en to demand a teacher for each grade.
fraction and/or quotient rather than that of Pringle.
If the 115 Pringle elementary students in 1960-61
the 2, 278 of Kingston,
were added to
the combined total would become 2, 393, still
some 600 below pupil capacity. If the 48 Pringle
secondary pupils were
added to the Kingston 1,097 total, the combined total
would be 1,166
secondary pupils, below the Kingston available pupil capacity,
the Pringle students can be accommodated in the Kingston school
Since
..new
construction of school facilities is not necessary.
The Pringle School District already sends its high school students
to other school districts since the high school
-118-
b
I
was discontinued some
This is the case with Pringle since each teacher instructs two grades.
If such a school becomes part of a unified district, special teachers
could be provided to enrich the educational program for the children.
I
I
I
I
Only in this way can a community realize the value of a worthy teacher
in an educational organization.
Since the Pringle school system is now reduced to a single build-
ing and that to the elementary level, it is obvious that the academic program and facilities are inadequate to meet the modern needs of the world
today. The Pringle program is inadequate in all areas of academic endeavor and co-curricular activities in spite of the herculean perform-119-
�Both Kingston and Pringle have been included in Administrative
ance of its limited professional staff.
One of the criticisms of taxpayers today is "taxation without
Unit E, which embraces the boroughs of Courtdale, Edwardsville, Forty
representation. " It is precisely this fact that currently exists when the
Fort, Kingston, Larksville, Luzerne, Plymouth, Pringle, and Swoyers-
Pringle School Board makes tuitioi>n payments to other districts. Merger
ville.
According to the estimates of the Luzerne County Planning Com-
can remove this objection.
While it may appear that all the advantages of merger lie on the
side of Pringle, it cannot be denied that the Kingston School District
will receive both local revenue and state assistance if merger of the
school districts can be attained.
1, 000 pupils for the entire range
from kindergarten to 12th grade, as
suminguse of only those structures suited for at least 20 years service.
By 1970, surplus czpacity will be 2, 300 pupils and by 1980 over 2,400.
The supplementary reimbursements
for jointure and union district are upwards of $43, 000 and $69, 000, re-
spectively.
capacity for more than
mission, the West Side currently has a surplus
The additional Pringle students in Kingston will increase
It is with the idea of utilizing all suitable, available classroom space
that the West Side Administrative Unit "E" has been recommended.
While the creation of Administrative Unit E is not part of this
the reimbursable teaching units which should provide at least the present
Pringle $32, 780 in that this amount is calculated on a
merger,study, it has been lightly mentioned because if it is effectuated
penalty factor for
reimbursable tuition units. Only a larger school district such
as King-
ston can make the most effective use
in the near future, the whole West Side can expect broad changes in the
tax structure affecting schools in both Kingston and Pringle.
ie
of high quality so necessary in this area today.
According to the Governor's Committee
on Education, the old
pattern of small districts must be replaced by much larger school dis
tricts if Pennsylvania schools are to meet the challenges
of the future.
To this end, the School District Reorganization Act was enacted by the
legislature in 1961.
In conformity with the provisions
of the Act, the
Luzerne County Board of School Directors in cooperation with the Lu
zerne County Superintendent of Schools Office
into seven administrative units.
-120-
divided Luzerne County
-121-
�CHAPTER XII
these unit costs can be reduced.
One single unit of government for Kingston and Pringle would be
SUMMARY
able to finance many of the Pringle capital expansion programs, espe-
The object of this survey is to provide information on which merger can be evaluated.
Ordinarily, in any study of this kind the empha-
cially those of a continuing nature, on a pay-as-you-go basis , and thus
J
avoid costly interest payments attached to capital expansion through
sis would be on savings that would result from
a merger of two com-
munities of similar size.
bond issues.
Savings may not necessarily accrue in the
broad diversified financial base has a greater amount of finaricial flexi-
general operation of borough government after merger if the proposed
bility than does the smaller unit of government.
T
merger involves a large municipality with a small one.
While it is possible that a single local government for Kingston
and Pringle could affect certain economics, the more significant fact is
that a single unit of government would result in
more service per tax
Generally speaking, a larger unit of government with a
BACKGROUND
■
Considering the historical background, area, and location, and
general population characteristics, the two Boroughs of Kingston and
Pringle would appear to be a unified community.
dollar.
The benefits to be derived from comprehensive planning
are
obvious.
Without a governmental wall to impede and deter a wider ap-
proachto governmental problems, solutions can be arrived at in a much
There appears to be
no underlying economic or social factor that might tend to continue a
division should the two towns merge.
Historically speaking, both com-
munities were really part of larger tract called Kingston Township, and.
merger would merely serve to reunite what was once a single township.
more expedient and economic manner.
Most governmental services have a certain number of fixed costs
GENERAL GOVERNMENT
As the size of an area increases or the number of
people served in
creases, the fixed cost per work unit generally decreases.
Therefore,
Since Kingston has undertakenthe construction of a new $80, 000
Borough building which will house the police station, the street depart
the larger community is in a better position to furnish
many services
ment 'office, and other general government offices, the citizenry of
at lower unit costs than are the smaller towns.
both Kingston and Pringle will have a single; building for their conve-
In many instances, by
combining the small and the larger towns and enlarging the service area,
nience.
The Pringle public will have the services of full time Borough
-123-
-122-
�personnel prepared to serve them, instead of the part-time employees
The police protection expenditures of Kingston and Pringle com-
which now comprise the Borough workers.
Merger would result in a single mayor, treasurer, secretary,
tax collector, solicitor, and one set of elected auditors.
If economy is
bined of $84, 343. 71 would be reduced to $83, 906. 74.
FIRE PROTECTION
the sole consideration after merger, and it should be, a 7-man council
can be retained to act as the legislative body for the merged Boroughs..
Small communities like Pringle cannot afford an adequate insurance program against all types of risks.
Merger will afford the tax
Fire protection in both municipalities is provided by volunteer
fire companies with only Kingston employing paid fire truck drivers'!
under a civil service system.
Merger will give the Pringle residents
fire protection by fire companies with paid drivers on a round the clock
payers and property owners the kind of protection consistent with mo-
basis. The proximity of the Pioneer Fire Company to the proposed ex
dern day practices and standards.
tension of the Kingston Industrial Park will help to ease the zresponsi-
The general government expenditures of Kingston and Pringle
bility of protection on the Kingston Fire companies.
The -agreement
combined of $58,581. 11 would be replaced with an estimated expendi-
for mutual fire protection between the companies of the two Boroughs
ture of $59, 137. 00.
will be supplanted by the unity of command located in the Kingston Fire
Chief.
POLICE PROTECTION
No additional expenditure should be incurred for hose or fire
The police function in Pringle could be absorbed by the presently
constituted and manned police department of Kingston.
For the present
expenditure for part time police protection, better protection on a full
time basis could be provided at a reasonable cost.
The money now ex-
pended by Pringle could therefore be more efficiently utilized by Kings-
ton Borough Government.
equipment as a result of merger. The Kingston Borough Council should
explore all areas of economy and savings before placing the Pioneer
Fire Company on an identical operational level with paid fire truck
drivers.
The fire protection expenditures of Kingston and Pringle combined of $68, 623. 78 would be decreased to $68, 258. 47.
-124-
-125-
k
�STREET DEPARTMENT
The present street department expenditure of $106, 166. 00 for
Based on efficient utilization of the personnel in
the Kingston
the two Boroughs combined is estimated at $110, 154. 13 after merger.
Street Department and the mileage which must be maintained, the mer-
HEALTH AND SANITATION
ger of Kingston and Pringle would not necessitate any new personnel.
In -spite of the additional paper work and inspections relating to
Nor should the present Kingston equipment inventory be affected by
the activities of the Board of Health, merger will result in negligible
merger.
expenses.
While merger will result in a 6% increase in garbage and
As a result of merger, the Pringle residents can look forward
rubbish collection, the present Kingston work force and equipment
to a street=program that no small community can afford because of the
should suffice.
limited finances.
The construction and/or reconstruction of Pringle
If merger is effectuated, the Kingston Borough Council should
streets is an investment that will repay Kingston in new developments
give serious thought to the elimination of the use of septic tanks in
and eventually new tax revenue.
Pringle if it is desirous of avoiding any health problems in the future.
For the present, a full time Kingston Street Department utiliz-
ing modern equipment should be able to get a fair return for the present
An immediate engineering survey must be undertaken to ascertain the
1
condition of the Pringle sewerage system before any long range plans
Pringle expenditures on streets.
can be made for the whole Pringle area.
The special electric and water fund levy now used by Pringle
Pringle residents can expect to benefit from the Kingston health
would be replaced by the Kingston special one mill levy for street light -
and sanitation services -which are now either inadequately furnished or
ing.
not furnished at all.
The prospect of constructing a sewerage system..
Without an engineering study, it would be hopelessly impossible
in Pringle connected to a Kingston system will enhance property values.
to estimate the costs of extensive street imporvements that may be
It is because of just such a service to property leading to new residen-
needed to upgrade the streets to the Kingston level.
tialand industrial development that should cause the Kingston Council to
Ljl
look into the future with some assurance of added revenue.
-127-126
�I
The present health and sanitation expenditures of both Pringle
and Kingston combined amounting to $62, 083. 00 will remain at the same
the accessibility of the Kingston sewerage system, but also because the
amount.
Kingston government has the potential capacity to assure developers of
providing the necessary service to property, for that growth in the
RECREATION
i
Pringle areas.
The Kingston School Board and the Kingston Council created a
Kingston would have to assume the $250 obligation that the Bor-
5-member Recreation Board to take full advantage of State funds rn?
jointly providing a full program of recreation.
ough of Pringle has incurred with the Luzerne County Planning ComThe recreational pro
gram in Pringle, supported on a volunteer basis, can be incorporated
mission.
it
into the joint Kingston Council-School District program.
MISGELLANEOUS EXPENDITURES
The Pringle volunteer organization now sponsoring the recrea
Merger of the two Boroughs would not effect any new changeon
tion activities will be replaced after merger by a full time, well trained
the miscellaneous expenditures for the police pension fund, contributions
group of instructors, capable of offering instruction :=and leadership.
to civic organizations, and the Hoyt Library.
The most significant advantage for the Kingston citizenry resulting from
The importance of public libraries in progressive communities
merger is that it provides the open land so vital in any good recreation
intent on providing the best in education facilities for both children and
program.
Pringle people and property will also provide a share in the
tax base to carry on a well rounded recreation program.
P
adults cannot be overemphasized.
n
old, will be quite fortunate in being able to utilize the facilities of an
The Pringle residents, young and
enlarged and expanded Hoyt Library.
The present Kingston recreation expenditures of $8, 990. 48 will
While Pringle expends no funds
for library service, its people will assist in supporting the Library
decrease to $3,940.48.
with tax funds after merger.
PLANNING
The Kingston miscellaneous expenditure of $33, 109. 57 will reMerger of Pringle and Kingston would make for the continued
planning for new development already initiatedby Kingston with the adop
tion of the early zoning ordinance. Merger would greatly accelerate the
development of the undeveloped sections of Pringle
-128-
main the same.
ftdJ. I
j
not only because of.
-129-
�1
I
revenue
Assuming the 1961 tax structures of the two Boroughs, Kingston
could have expected a slight decrease in revenue from real estate taxes
because of the lower millage in Kingston, After improvement of Pringle's
occupational tax collection, Kingston's level could increase slightly this
1
Formation of a union district, followed by merger of the two
c ommuniti e s.
2.
The councils and the school boards of the two communities should
confer and arrive at a mutually acceptable progress schedule in order
to protect against any loss of State reimbursement monies.
The school district, as a result of the merger of the two com-
source of revenue. On the basis of information concerning other sources
of revenues such as licenses and permits, merger should provide at
munities, would remain an independent third class school district with
a board of seven directors elected at large.
least $1, 000 at the present level of development in Pringle.
It appears that no new construction would be necessary to ac-
The expected revenue for Kingston under the 1961 tax structure
commodate the Pringle students in the Kingston schools, even after the
would have been $456,417. after merger.
elimination of the Pringle school building.
Pringle has an unpaid bill of $8,^805. 27, amounting to . 4 of a
mill. Kingston shoiild be able to absorb this amount over several years.
If the two communities are merged, certain duplicated expenditureswillbe eliminated, such as general control expenses, plant opera-
Kingston has a bonded indebtedness of $212, 830. 23.
tion, etc.
Combined, the two communities had an indebtedness. amounting
It is assumed that provision will be made for the present
Pringle teaching staff. The Pringle operating deficit accumulated in the
to $221,635. 50 at the end of 1961.
past may substantially be reduced or completely eliminated prior to
merger.
SCHOOLS
If merger of the two communities is feasible, either of two: schev
dules could be followed in order to give the citizens of Kingston and
Pringle every advantage for added State revenue:
1.
Formation of a school jointure, followed by formation of
union district, followed by merger of the two communities.
After merger the tax revenue for the ’Kingston School District
will be increased by substantially the same amount as presently in the
Pringle budget.
Supplemental reimbursements will be forthcoming for
merged districts.
An adequate educational program in
-131-130-
all areas of academic en-
�I
1
J
1
deavor andco-curricular
appendix a
activities will be available to the Pringle stu-
dents only after merger. Since the Pringle School District is not making
FINANCIAL ANALYSIS
the moat effective use of state and local money, it is completely illogical to tetain the present systems.
BOROUGH GOVERNMENT
BEFORE AND AFTER MERGER
The valid startirig .point toward h
Estimated
Expenditures
full realization of the right of educational opportunity for children is
1961 Expenditures
merger with the Kingat:on School District.
Operating
General Government
Police Protection
Fire Protection
Street Department
Health and Sanitation
Recreation
Miscellaneous
Pringle
Kingston
$ 58,937.13
83, 706. 74
67, 430. 47
106, 166. 00
62, 083. 00
8, 990. 48
33,109.57
$420, 423. 39
$ 2, 643. 98
636. 97
1, 193. 31
6, 784. 54
$ 11, 258. 80
Real Estate Tax
Occupational Taxes
Other Revenue Sources
Kingston
Pringle
$356,232
14,520
73, 128
$443,880
$ 6,529
779
4, 365
$11,671
Indebtedness
Kingston
Bonds
Unpaid Bills
..-132.-
$212, 830.23
$212,830.23
- 133 -
$ 59, 137.00
83, 906. 74
68,258.47
110,154.13
62, 083. 00
3, 940. 48
33,109.57
$426,589.39
Estimated
Revenue
1961 Revenue
Source
Kingston after
Merger
Kingston after
■ Merger
$362,517
15,407
77,493
$456,417
Pringle
Kingston after
Merger
$8,805.27
$8,805.27
$212,830.23
8, 805.27
$221,635.50
�I
APPENDIX B
PROCEDURE FOR MERGER
The procedure for the merger of Kingston and Pringle is outlined
in the Borough Code, Sections 215-222:
1. The Councils of Kingston and Pringle may of their
own initiative enter into a joint agreement for the merg
er of the Boroughs, setting forth their boundaries,
their wards, and anyfinancial adjustment that needs to
be made.
2. If each Council is requested in writing by at least 10
per cent of the voters of each Borough, the Councils
must endeavor to enter into such an agreement.
3. If the Councils are unable to enter into such an
agreement within 60 days after each Council has been
petitioned to enter an agreement, at least 10 per cent
of the votes of each Borough may petition the Court of
Quarter Sessions, which may draw up the agreement.
4. After the merger agreement is drawn by either the
Councils or the Court of Quarter Sessions the question
of merger is placed on the ballot for the voters.
5. If a majority of the voters are in favor of merger in
each Borough, the Boroughs are merged as set forth in
the agreement.
- 134 -
�/
APPENDIX C
ADVANTAGES
PRINGLE
1.
Increased governmental services
2.
Elimination of inadequate services
3.
Benefits of full-time personnel
4.
Greater financial flexibility
5.
Greater educational opportunities
6.
Long range economies
I
I
■
KINGSTON
I
I
1.
Wider tax base
2.
Additional fire protection
3.
Available land for residential and industrial
development
4.
Long range comprehensive planning
5.
Additional State money
6.
More effective use of tax money
-135 -
�100011.0153
MILKES COLLEGE LIBRARY
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Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
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Merger Study at Kingston and Pringle Boroughs, 1963
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Institute of Municipal Government
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1963
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Text
SURVEY
OF
INFLUENCES
ON
WOMEN'S VOTING BEHAVIOR
Archives
\O2
1963
INSTITUTE OF MUNICIPAL GOVERNMENT
?
Wilkes College
Wilkes-Barre, Pennsylvania
�SURVEY
OF
INFLUENCES
ON
WOMEN'S VOTING BEHAVIOR
1963
IMP
INSTITUTE OF MUNICIPAL GOVERNMENT
Wilkes College
Wilkes-Barre, Pennsylvania
�ARCHIVES
T k 155 <?
vj
(,
INTRODUCTION
Did women elect Eisenhower and Kennedy?
can be found on both sides of the question.
Political pundits
Whatever the answer, the
r
women's vote is held a vital and decisive factor in elections in the United
States.
It was repeatedly stated during the Presidential campaign of
I960 that John F. Kennedy drew large crowds.
These crowds had a
special quality. Women of all ages seemed to predominate them.
Per
haps the size of the crowds might be ascribed to the Kennedy personal-
ity and an indefinable quality that especially made women want to see
him and show friendliness toward him.
Were these women in every
economic and social strata of American life?
Many observations were
made on the types of women who appeared in these crowds during the
political campaign of I960.
This survey was undertaken not as an attempt to discover how
women voted in the I960 election. It was merely an attempt to discover
some of the influences on their voting behavior in the I960 Presidential
campaign.
It should be remembered that the assessment of the media
A
of communications, speeches of candidates, and the personal traits of
$
candidates as they appear Co the voter is actually subjective with the
voter.
Hence, the study of the two groups of women voters in this sur-
vey has its limitations in appraising those factors.
A group of two hundred married women were selected for this
�survey, one hundred of whom were union members' wives (UMW) and
one hundred of whom were businessmen's wives (BMW). The names of
the respondents were obtained from a list of union members of a labor
organization and from a list of members of a women's organization, both
organizations with offices in Wilkes-Barre,
The subjects interviewed
covered a geographical area extending from Forty-Fort Borough on the
north to Newport Township on the south, a distance along the axis of the
Valley approximately 15 miles, including about a dozen municipalities.
For obvious reasons,
identified.
neither of these organizations can be publicly
No attempt was made to exclude or include any particular
person on either list. The only determination made at the time the name
was selected or at the time of the interview related to whether the person was married. The names of single and widowed members from the
list of the women's organization were withdrawn, and in similar fashion,
the same people were excluded from the labor organization's list.
Whilethe subjects for the interview were chosenat random from
the two lists, caution must be exercised in considering either of these
groups as representative of union members' wives or businessmen's
wives.
Responses of those interviewed were identified only according
to the two categories stated.
The interviewers were four upperclassmen in an advanced poli
tics class at Wilkes College. Two students interviewed the union mem'b
bers' wives, and two students interviewed businessmen's wives.
The
interviewing was done during the month of November immediately fol- 2 -
�lowing the I960 election.
The five questions were read to the women,
and each in turn was asked to choose an answer from a limited list of
responses.
The results have been tabulated by questions.
A further break
down of the responses in relation to the other questions in the survey
was also made but only for purposes of class discussion.
This latter
tabulation is not presented in the survey in order to keep the writing
to a reasonable length.
However, some comments on the breakdown
of responses in relation to other questions are made where they appear
to be significant in understanding the political attitudes of women.
results were evaluated in percentages.
All
Unfortunately, while these do
describe relative differences, they do not tell us whether those dif-
ferences are significant.
For certain questions, a lower percentage
might be more significant than a higher percentage for other questions.
Viewed in the light of a small-scale analysis of voting patterns,
certain limited conclusions can be drawn from the data.
A study such
as this cannot measure any subtle or veiled factors that underlie political behavior.
Hugo V. Mailey, Director
Institute of Municipal Government
- 3 -
�QUESTION 1
Question 1:
"What do you think does the best job of educating
the public about Presidential candidates?"
The respondents were given a choice of seven factors in soliciting their
answers
to the above
question--newspapers,
churches,
schools, political clubs, radio, TV, and the candidates themselves.
Some of the respondents stated that they thought other factors did the
best job of educating the public.
These are marked with an asterisk.
The reader is reminded that the question did not ask what factors af
fected the respondent, but father which factors the respondent thought
affected others of the public.
RESPONSES TO THE FIRST QUESTION
Factor
U. M. W.
B. M. W.
Total
Newspapers
17. 0%
46. 0%
31. 5%
Churches
3. 0%
1. 5%
3. 0%
1. 5%
Schools
Political Clubs
Radio
T. V.
55. 0%
30. 0%
42. 5%
Candidates Themselves
22. 0%
19. 0%
20. 5%
*A11
1. 0%
0. 5%
^Magazines
1. 0%
0. 5%
*Party workers__________ . . . .
*Not included in survey form
1. 0%
0. 5%
- 4 -
�The three factors which received the most emphasis among the
200 women were TV, newspapers, and the candidates themselves, in
that order.
Apparently, the women thought both media of communica-
tions played a significant role in educating the public about the candi
dates in view of the fact that almost 75% ranked these two factors first
and second.
Since these are the major media of communications, this
is not an unexpected result.
TV and newspapers as factors might be
even more significant if the candidates themselves were not seen in
person, but appeared to the voters only through TV, newspaper pictures,
or news comments.
Judging from the responses to this question, it would appear that
UMW emphasized seeing, whereas BMW signified reading.
Caution
should be exercisedin concluding that UMW prefer to see whereas BMW
prefer to read in view of the phraseology of the question. Moreover, it
is only a speculative conclusion that the BMW were not influenced
strongly by the TV debates in the I960 campaign. This conclusion could
be reached only if there is a significant difference in the educational
level between the two groups, which was not contemplated in the survey.
Among the UMW, the largest number (55. 0%) said that TV did the best
job of educating the public about candidates, followed by the candidates
themselves (22. 0%), and newspapers (17%). The wives of the businessmen, on the other hand, changed this order: newspapers ranked first
(46. 0%), TV ranked second (30. 0%),
third (19. 0%).
- 5 -
and the candidates themselves
�In breaking down this composite and considering the inter-rela
tion of the responses to this question with those of the other questions,
many interesting correlations were observed.
A majority of all three
groups of BMW {those emphasizing newspapers, TV, and the candidates
themselves as the educating force) claimed to have made up their minds
politically and tended toward political independence and little influence
from their husbands.
Whereas the BMW who stated that the newspapers did the best
job of educating the public on the Presidential candidates showed no
marked choice as between faith and hope in their candidates’ political
speeches, those BMW -who stated that the candidates themselves did the
best job inclined toward faith, and the group that preferred TV were in
clined to have complete faith.
Perhaps, further analysis might reveal
an educational and intellectual difference between the BMW preferring
newspapers on the one hand and the BMW preferring TV and the candi
dates themselves on the other hand.
All three BMW groups expressed a preference for ability ever
experience and sincerity.
The respondents were offered no criterion
for judging any of the qualities.
It is significant, too, that none cf the
BMW who felt that newspapers were the important educating factor
chose personality as the most important personal attribute in a candi-
date, which might suggest that candidates project their personality vi
sually rather than through the impersonal media of print.
6 -
�A substantial number of UMW, no matter which educating factor
they chose, felt that no outside influence interfered with them in making
up their minds politically.
The wives who thought that newspapers did
the best job of educating the public were slightly more intense toward
this political independence.
The UMW who stated that the political candidates did the best job
of educating the public had stronger faith in their candidates' speeches
than those who preferred TV or newspapers.
One possible interpreta
tion from this correlation could be that these UMW had already made a
decision regarding their presidential choice.
Or, this could mean that
such impersonal educating factor s as TV and newspapers are not as con-
duciveto building faith in candidates as the very candidates themselves.
Both the group of UMW who believed that the candidates did the
best job of educating the public and the group which preferred TV as the
significant educating factor agreed that sincerity was the most important
quality in a candidate. Surprisingly enough, among those UMW who pre
ferred newspapers, experience was the quality emphasized rather than
sincerity.
- 7 -
�QUESTION 2
Question 2:
"Who helps you mostin making up your mindpolitically?"
In the same manner as the first question, five factors or re
sponses were offered to the women to choose from.
These five factors
were: father, mother, husband, friends, and others.
Two additional
factors, "independent decisions" and "can't answer," were not included
in the survey form but were offered as responses by a substantial number of women.
In quite a number of instances, the interviewer was
skepticalabout the "independence" as deduced from the tone of theinter-
view.
Nevertheless, the interviewer recorded the answers as the res-
pondent s gave them.
RESPONSES TO THE SECOND QUESTION
U. M. W.
B. M. W.
Total
Husband
18. 0%
23. 0%
20. 5%
Friends
1. 0%
2. 0%
1. 5%
Others
2. 0%
15. 0%
8. 5%
79. 0%
59. 0%
69. 0%
1. 0%
. 5%
Factor
Father
Mother
^Independent
Decisions
*Can't Answer
* Not Included in Survey Form
- 8 -
�Although the form provided no opportunity for the women to indi
cate that no one assisted them in making up their minds, a large majority (69. 0%) insisted that they made their own decisions. If assistance
was sought, most women fromboth groups stated that it came from their
husbands (20. 5%).
Both the UMW and the BMW placed independent de
cision first and husbands second.
In this, there was agreement, al-
though the political independence was more pronounced among the UMW
than among the BMW (79. 0% to 59. 0%).
Both the BMW who made up their own minds politically and those
who admitted that their husbands helped them to make up their minds
agreed that newspapers did the best job of educating the public.
The
greatest difference between the two groups of BMW--those who expressed political independence and those who relied on their husbands--
related to the amount of faith the women placed in their candidates'
speeches. The politically independent BMW expressed about equal faith
and hope in the candidates' speeches, whereas the BMW who relied on
their husbands had more hope than faith.
While both the politically in-
dependent and those who sought their husbands' advice among the BMW
group felt that ability was the most important quality in the candidate,
the more pronounced feeling for ability was found among those who
leaned on their husbands on political matter^.
A near majority of the UMW who claimed to have made up their
own minds politically stated that TV did the best job of educating the
public and a lesser number said that the candidates themselves were
- 9 -
�responsible.
Newspapers were placed last by this group.
group of UMW--those who listened to their husbands
The second
ranked the edu
cating factors as follows: Newspapers, radio, candidates.
An even half of the UMW who consulted their husbands on poli-
tical matters had complete faith in their candidates' speeches.
Both
the politically independent UMW and those who wefre advised by their
husbands felt that sincerity was the most important personal quality to
look for in a candidate; and, in descending order, these same women
selected experience, ability, personality, anil fairness.
- 10 -
�QUESTION 3
Question 3: "Did you have faith in your candidates' political
speeches ^V
In giving the women a choice of four responses on this question,
the objective was to ascertain the degree of faith that the women had in
the speeches of their political candidates.
RESPONSES TO THE THIRD QUESTION
Response
U. M. W.
B. M. W.
Total
�(34. 0%), as had complete faith in.the speeches of the candidates (36.0%).
On the other responses there was relative agreement between the groups.
Among the UMW, an equal division was found between thosehaving some
faith and those having more hope than faith (20.0%). There was a larger
percentage of UMW than BMW who had no faith at all in the speeches of
the candidates (12. 0% to 5. 0%).
The largest group among the BMW were those who did have faith
in the political speeches of their candidates, although only slightly more
than those who had "more hope than faith."
Basically, these women
showed little difference in their choice between newspapers and TV, as
to which medium did the best job of educating the public.
A majority
of these women said that no one helped them to make up their minds
politically and that ability was the most important quality in a candi
date.
Both the BMW group which had more hope than faith and the
group that had only some faith in their candidates’ political speeches
claimed that the newspapers did the best job of educating the public
about the Presidential candidates, that they made up their own minds on
political matters, and thatability was the most important per sonal quality in a candidate.
Those BMW who had more hope than faith leaned
slightly more on their husbands and were more emphatic in selecting
ability in the political candidate.
A majority of the UMW in the first three groups on a preceding
table (who had some degree of faith) thought that TV did the best job of
own minds.
- 12 -
Only the UMW
�who had some faith in the political speeches of their candidates selected
per sonality as the important quality, whereasthe others chose sincerity.
It could be that those UMW who had only "some faith" were relatively
uninfluenced by facts and ability.
About the only new aspect that emerges from the breakdown of
this question was the fact that some in the UMW group who had complete
faith in their candidates' speeches felt that the churches played some
part in educating the public.
This question was not pursued further to
associate the respondent with church membership.
- 13 -
�QUESTION 4
Question 4: "What personal qualities did you look for in a can
didate?"
The aim of the fourth question was to determine, if at all possi
ble, the personal quality used by the women in selecting apolitical can
didate.
The women were offered a choice of six personal qualities by
which they could judge the potential of a political candidate.
The six
personal qualities were experience, ability, sincerity, personality, fair
ness, and maturity. Two additional possibilities offered by a few women
are marked by an asterisk in the table which follows.
RESPONSES TO'THE FOURTH QUESTION
Personal Quality
U. M. W.
B. M. W.
Experience
23. 0%
16. 0%
Ability
16. 0%
60. 0%
38. 0%
Sincerity
38. 0%
14. 0%
26. 0%
Personality
11. 0%
Total
19. 5%
5. 5%
Fairness
9. 0%
1. 0%
5. 0%
Maturity
2. 0%
6. 0%
4. 0%
2. 0%
1. 0%
1. 0%
1. 0%
integrity
1. 0%
*A11
The composite total showed that no one personal quality is the
single criterion uised by the 200 women in selecting a candidate for the
Presidency.
on ability (38. 0%)
The women placed the most emphasis
followed by sincerity
(26. 0%) and experience (19. 5%).
Substantially
fewer women showed a preference for personality, fairness, maturity.
and integrity.
- 14 -
�A comparison of the two groups shows a considerable divergence
of opinion concerning the qualities desirable in a Presidential candi
date.
Of the three most-favored qualities, the BMW showed an over
whelming preference for ability (60. 0%), with almost equal
numbers,
but far less, choosing experience (16.0%) and sincerity (14.0%).
The
UMW, on the other hand, placed least emphasis on ability (16. 0%) and
most on sincerity (38.0%) among the three qualities most selected, Not
one of the 100 respondents in the BMW group selected personality,
whereas this quality ranked with ability in the UMW group.
It is note
worthy that some of the qualities listed as choices lend themselves to
visualization (personality) while others do not (experience).
No matter what quality the BMW preferred in the candidate--
ability, experience, or sincerity--they all agreed that the newspapers
did the best job of educating the public. The most politically independent
of the BMW were those who ranked sincerity first.
A sizeable number
among those BMW who preferred ability admitted to influence by their
husbands.
All the BMW groups, no matter the personal quality which
they preferred, had some degree of faith in their candidates’ speeches,
although the BMW group which ranks sincerity first revealed quite a
number with "more hope than faith. "
An interesting’paradox on this question involves the same group
of BMW who are most influenced by the ability of their candidate and
yet have more hope than faith in those same candidates,
who conducted this survey wondered how they voted.
- 15 -
The students
�The UMW who said that they looked for sincerity as the most
important quality agreed with the other groups which chose experience
and ability that TV did the best job.
A very large majority of all three
groups of UMW--sincerity, experience, and ability--insisted that they
made up their own minds politically.
The UMW groups preferring ex-
perience and sincerity had complete faith in their candidates’ speeches.
While a majority of the UMW who felt that ability was the important per sonal quality had complete faith in their candidates' speeches, about a
third of them had only some faith.
Those of the UMW who said that personality was the most im
portant quality did present one difference. Not one of the women of this
group selected newspapers as the best medium for educating the public.
The main bulk of opinion was evenly split between TV and the candidates
themselves.
- 16 -
�QUESTION 5
Question 5: "Did you vote in the I960 election?
From the 200 women interviewed, the bollowing statistics based
on the responses were compiled:
RESPONSES TO THE FIFTH QUESTION
Response
U. M. W.
B. M. W.
Yes
90. 0%
97. 0%
93. 5%
No
10. 0%
3. 0%
6. 5%
Total
With respect tovoting in the I960 Presidential election, both the
composite total and the breakdown of each group show that the voting
participation of both groups was not similar to the voting participation
of the nation as a whole, since 93.5% of the women interviewed claimed
to have voted, whereas the national average was about 64%
However,
the high voting participation by both theUMW and the BMW is supported,
in part, by the Luzerne County voting participation.
Of the total of
197,407 who were registered to vote in the I960 election in Luzerne
County, 173,709, or almost 88% did cast a ballot.
While there was a 7.0% difference in the voting participation
between the BMW and the UMW, the voting participation of both groups
is exceedingly high.
Strong political implications can be deduced if the
voting participation of both groups
of women is as high as indicated in
this survey.
- 17 -
�SUMMARY
In a survey of two hundred women, one hundred of whom were
BMW, a number of findings can be made
ior in the I960 Presidential election.
remembered about this survey.
concerning their voting behav-
However, several points must be
There was no attempt to go into depth
on any of the questions. As a matter of fact, a great many of the women
interviewed expressed surprise that so simple a survey could actually
prove anything.
Indicative of this lack of detail was the failure of the survey to
go into any depth concerning at least the second question. It is doubtful
whether so many women actually did make up their own minds politi-
cally.
This doubt was very aptly borne out by the woman who claimed
to have made up her own mind and then turned to her husband to inquire
whether he had had faith in "their" political candidate.
The inherent
shallowness of the survey left to provision for a case such as this and
should be remembered when the results of this survey are read.
With regard to the factor that did the best job of educating the
public about the Presidential candidates, it would appear that UMW feel
that the public prefers to see whereas BMW feel that the public would
rather read to obtain their knowledge of their candidates.
be inferred from the above
It should not
that the respondents themselves chose to
read or chose to see.
On the question oi how political decisions were arrived at, there
was substantial agreement between
the two groups
in that the vast maj-
reached independent political decision.
ority claimed that they
groups, husbands ran a very
weak second.
- 18 -
In both
�Responses showed that a
majority of the women polled did have
faith, complete or qualified, in the candidates’ speeches, with a greater
number having unqualified faith.
Businessmen's wives had less com
plete faith than union-members' wives.
No one personal quality is the criterion used in selecting a can
didate.
A comparison of the two groups shows a considerable diver
gence of opinion concerning the qualities desirable in. a Presidential
candidate.
Of the three most favored qualities, businessmen’s wives
showed an overwhelming preference for ability and no preference at all
for personality, whereas union-members' wives placed no decided em-
phasis on any particular quality, although sincerity was selected by most
women.
From the extremely high numbers of women who claimed to have
voted in the last election, it can be seen that the sample of women sel-
ected for this survey was not truly representative of the population on a
nation-wide basis.
And yet, these women might have been representa-
tive of Luzerne County voters who showed remarkable Jiigh voting par
ticipation.
The comparative percentages for all questions suggest that most
of the women treated these questions independently and did not recognize
inherent inconsistencies or
to a voting decision.
contradictions in their responses relevant
For example: If you think your candidate has the
ability, but you mistrust his sincerity, then wha
The students concluded that attempts to ascertain th. determin
ant of the responses as to personal qualities lead to no conclusive evi-
- 19 ~
I
�dence, indicating that this may be an area of subjective judgment, the
person deriving from his preferred medium that conclusion which he
wants to derive.
This is supported by the fact, for example, that of
those who chose sincerity, the UMW judged their candidates mostly on
the basis of what they saw on TV, whereas the BMW who favored TV
for the most part were impressed by the candidates' ability.
Thus,
from watching the same medium, the two groups derived highly diver
gent impressions.
It is difficult from the above results to make any positive state
ments on the feelings and attitudes of the women toward the American
political process.
Some students got the feeling that one reason for
less than half of the total women queried having faith in the political
speeches of their candidates was because they were withholding their
judgments until some later date after election.
If the reader does read
skepticism into the data, then it does appear that the BMW group is
perhaps more skeptical of political speeches than the UMW group.
In
view of the fact that more than a fourth of the women polled stressed
hope rather than faith in the political speeches of their candidates could
support that these women are not quite convinced about their own candidates during a campaign.
Candidates and party leaders might find some of the data useful
in waging political campaigns.
In examining the answers of the UMW
who claimed to have made up their own minds politically, almost a maj
ority stated that
TV did thebest job of educating the public, and a lesser
- 20 -
63-180
�number said'fhat th6 candidates themselves were responsible. . News
papers were placed last by this group, thus completely reversing the
selections of the BMW.
The UMW who expressed independence were
more trustful in their candidates1 political speeches.
This difference
in choice of media is an interesting area for further investigation by
party managers.
Accepting the survey results at face value, reservations im
plicit, the question that persistently nagged the students was whether
they could draw the inference that women are exerting an independent
influence on politics and whether they should be reckoned as a political
force of their own.
- 21 -
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Series VI of the Hugo Mailey papers: The Institute of Municipal Government and Institute for Regional Affairs publications, 1958-1980
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Series VI: The Institute of Municipal Government and the Institute for Regional Affairs publications, 1958-1980, is arranged chronologically by publication date and contains annual reports, surveys, conference meetings, proceedings, inventories, and statistics on Wyoming Valley municipalities, institutions, and companies such as the Wyoming Valley Sanitary Authority and the Copley-Whitehall Sewer Company.
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Institute of Municipal Government and Institute for Regional Affairs
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1958-1980
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Survey of Influences on Women's Voting Behavior, 1963
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Institute of Municipal Government
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1963
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