onarici •
Noxsoa
BOSTON
i PUBLIC
■■!
Public Document
No. 49
FIFTH AJSnSlUAL REPORT
I
I
Police Commissioner
CITY OF BOSTON.
I
n
Yeak ending Xov. 30, 1910.
if
J-1
BOSTON:
WEIGHT & POTTEB PRINTING CO., STATE PRINTEBS,
18 Post Oiticb Square.
1911.
t»
■i -4
I
'^^>k'\'\VrA > Ol-A^l ^//Mv;s Vi^'=\-vW^
\ \ APFBOVED BT
Thb State Boabo or Pdbucatiok.
• • *• *
CONTENTS.
Repobt:— '"■
Police work as to crime, ......... 5
Nooresident offenders, ......... 6
Street traffic rules, .......... 7
Police work on jury lists, ......... 7
Automobile laws, .......... 8
Private use of public streets, ........ 9
Juvenile offenders, .......... 11
Department expenses, ......... 12
Offences against chastity and morality, ...... 14
Houses of ill fame, .......... 15
Inmates and patrons, ......... 17
Night walkers, ........... 19
The law and the police, ......... 20
The business of vice modernized, ....... 22
Public and police, .......... 24
Arrests for drunkenness in Boston, ....... 25
One day of heavy arrests, ... . ... . .26
Arrests for dnmkenness in fifty-one years, ...... 31
Nonresidents arrested for drunkenness, ...... 34
Effect of "Policies" on arrests for drunkenness, ..... 35
Punishment and probation, ........ 36
Law and policy in the use of special policemen, ..... 39
Financial relations of the city of Boston and the police department, . 59
Law the only true basis of police action, ...... 67
Thb Depabtiient: —
The police force, . . . . . . ' . . .70
Signal service, ........... 70
lE^ployees of the department, ........ 70
Recapitulation, . . . . . . . . . .70
Distribution and changes, ......... 71
Police officers injured while on duty. ....... 71
Work of the department, ......... 71
Arrests, ........... 71
Drunkenness, .......... 73
Bureau of criminal investigation, ....... 74
Miscellaneous business, ........ 75
Lost, abandoned and stolen property, ...... 76
Speeial events, ........... 77
Inspector of claims, .......... 77
Officers detailed to assist medical examiners, ..... 78
House of detention, .......... 79
Police signal service, .......... 79
Signal boxes, .......... 79
Miscellaneous work, ......... 79
Harbor service, . . . . . . . . .80
Horses, ............ 81
4 CONTENTS.
rAGB
Vehicle service, .......... 81
Automobiles 81
Ambulances, .......... 82
Public carriages, .84
Wagon licenses, .......... 84
Listing male residents of Boston, etc., ....... 85
Women voters verified, ........ 85
Listing expenses, . . . . . .85
Number of policemen employed in listing, ..... 86
Special police, ........... 86
Railroad police, .......... 86
Miscellaneous licenses, ......... 86
Musicians' licenses, . . . . . . . . . .87
Itinerant, ........... 87
Collective -87
Public lodging bouses, ......... 88
I Carrying dangerous weapons, ........ 89
I Small loan licenses. .......... 90
: ' Pensions and benefits, ......... 90
; Financial, ........... 90
Distribution of police force, ........ 92
List of officers who died during the year, ...... 94
List of officers retired during the year, ...... 95
List of officers who were promoted during the year, .... 96
Number of men in active service, ....... 97
Officers discharged and resigned during the year, ..... 98
Absent from duty by reason of sickness during the year, . . .99
Complaints against officers during the year, ...... 100
Number and distribution of horses, ....... 102
Arrests by divisions during the year, ....... 103
Arrests and offences for year, ........ 104
Age and sex of persons arrested, ........ 119
Comparative statement of crime as to population, .... 120
Licenses of all classes issued, ........ 121
Dog licenses issued, .......... 122
Wagon Ucenses issued, ......... 122
Financial statement. .......... 123
Payments on account of signal service, ...... 124
Accidents, ........... 125
Male residents listed by wards and precincts, ..... 127
Male residents, supplementary list, ....... 128
Women voters listed, ......... 129
®l)c (Eommontoealtl) of illassachusetts.
REPORT.
Headquabters or the Poucb Depabtxent,
OmcE or THE Pouce CosraisaioNEB, 29 Peiibebton Square,
BonoN, Dec. 30. 1910.
To His Excellency Eben S. Drjiper, Governor.
Your Excellency: — As Police Commissioner for the city
of Boston I have the honor to present, in compliance with the
provisions of chapter 291 of the Acts of 1906, a report of the
work of the police department for the year ended Nov. 30, 1910.
Police Work as to Chime.
The magnitude of the work of the department in matters
not criminal will appear in later pages. On the criminal side
the total number of arrests in 1910 was 71,207, as against
71,512 in 1909, 68,146 in 1908 and 57,078 in 1907. The eight
general divisions under which offences are classed show the
following numbers for the four years: —
Omnca.
Arresto
in 1907.
Armta
in 1908.
Arrests
in 1909.
Armt«
in 1910.
Offences against the person,
Offences against property with violence.
Offences against property without vio-
lence.
Malicious offences against property,
Forgery and offences against the cur-
rency.
Offences against the license laws,
Offences against chastity, morality, etc.,
Offences not classed in the foregoing, in-
cluding drunkenness.
2,979
535
3,055
165
50
302
828
49,164
3,591
692
4,048
185
76
828
1,141
57,585
3,156
525
3,783
176
71
769
1,409
61,623
3,326
479
3,584
137
69
532
1,308
61,766
Totals, .....
57,078
68,146 71,512
71,201
6
POLICE COMMISSIONER.
[Jan.
A summary of fines and imprisonments is shown as fol-
lows: —
UOT.
uti.
1909.
uu.
Persons fined, . . . 11,832
Total amount of fines, . . |S110.129
Persons sentenced to imprison- 6,891
ment.
Total years of imprisonment, . 2,S07
15,735
$159,982
8,883
17,407
$161,399
9,478
3,904 4,130
14,949
§138,140
9,533
3.841
The reduction in the ntmvber of persons fined and in the
aggregate of the fines, as compared with 1908 and 1909, indi-
cates a decrease in minor offences. A like inference may be
drawn as to the more serious crimes from the fact that, although
the persons sentenced to imprisonment in 1910 numbered 55
more than in 1909, the aggr^ate of their sentences fell from
4,130 to 3341, a reduction of 289 years. That this condition
did not extend to the small number of crimes which are the
gravest <rf all b shown by an increase in the number of persons
sentenced to State Prison from 102 in 1909 to 140 in 1910.
XONHESIDEXT OFFENDERS.
The proportion of nonresident offenders among the persons
arrested continues to increase. When the first police commis-
sion was established, in 1878, the percentage was 19.90; in
1909 it was 39.08 and in 1910 it was 39.65. The statbtics for
the past ten years, coreiing arrests for all causes, are as fol-
lows: —
YUL
Total Arrests.
Nooresideots.
Perce&ticeci
NonreadotL
1901,
1902,
1903,
1904,
1905,
1906,
1907,
1908,
1909,
1910.
34,500
34,732
43,033
50,265
48,358
49,906
57,078
68,146
71,512
71,201
10,551
10,631
14,644
18,030
17,167
18,001
20,982
26,113
27,953
28,233
30.58
30.61
29.38
35.86
35.50
36.06
36.77
38.32
39.08
39.65
1911.]
PUBLIC DOCUIMENT — No. 49.
In the single matter of arrests for drunkenness the percent-
age of nonresidents arrested has increased steadily in ten years
from 29.90 per cent, in 1901 to 47.86 per cent, in 1910. Almost
two-fifths of all the persons arrested in 1910 by the Boston
police, and almost half of those arrested for drunkenness, were
nonresidents.
Street Traffic Rules.
The street traffic rules, established two years ago by the
street commissioners imder the authority of chapter 447, Acts
of 1908, are now in smooth and successful operation.
In the first three months of their enforcement, in 1909, 500
prosecutions a month were needed in order that drivers of
vehicles might be con\'inced that it was absolutely necessary
that they should learn and obey the rules. In the next three
months the prosecutions dropped to 300 a month, and the total
for the ten months to Nov. 30, 1909, was 2,724. The total for
the twelve months ended Nov. 30, 1910, was 1,025; and as
drivers continue to learn and obey, that number will doubtless
be further reduced.
Police Work ok Jury Lists.
For the third year the police department, imder the pro-
visions of chapter 348, Acts of 1907, has assisted the Election
Commissioners in ascertaining the qualifications of persons pro-
posed for jury service. The police findings in these three years
may be summarized as follows: —
IMS.
1M9.
i$it.
Total*.
Dead or could not be found in Boston, .
780
808
1,055
2,643
Physically incapacitated.
492
223
332
1,047
Convicted of crime, ....
156
58
183
397
Unfit for various reasons,
119
266
707
1,092
Apparently fit,
6,352
6,870
7,565
20,787
Total of names submitted to police,
7,899
8,225
9,842
25,966
\:\
8 POLICE COMMISSIONER. [Jan.
The police department is not expected and does not under-
take to guarantee the fitness of men upon whom it reports. It
simply obtains the best information that it can as to their
moral, mental and phj'sical qualifications, and furnishes it to
the Election Commissioners. The court records are searched,
as they always have been, by agents of the election board, and
when the present sj-stem was established, three years ago, it
was agreed by the Board and the Police Commissioner that
the police should not attempt to duplicate that work- The
police came, additionally, upon 397 men whose conviction of
crime had not been otherwise discovered.
\Mth a superior criminal court and eight municipal courts in
constant operation in Boston, and with the changes in name,
readence and occupation on the part of many men who have
been convicted in the course of years, here or elsewhere, it
would be absurd to suppose that any possible search of records
could disclose the experiences in court of the great numbers
of men who are annually required for jury service.
Automobile Laws.
The automobile prosecutions in 1910 numbered 2,334, as
against 2,196 in 1909. The fines imposed by the lower courts
amounted to S23,332, as against $21,609 in 1909. These figures
include prosecutions in parks as well as in streets, for \'iola-
tions of the State law or the park rules, but they do not include
prosecutions of drivers of automobiles for violations of the
street traflSc regulations.
The first record of an automobile prosecution by the Boston
police was made only nine years ago, when the single offence
of the year 1901 was the driving of a motor car in a public
park without a permit- In 1902 there were 33 prosecutions;
in 1903, 67; in 1904, 179; in 1905, 102; in 1906, 308; in 1907,
961; in 1908, 1,865; in 1909, 2,196; in 1910, 2,334.
Accidents to persons, due to the operation of automobiles,
are first recorded in the department reports in 1900. Begin-
ning at that year their nuirber to the present time b shown
in the following table: —
1911.]
1900,
1901,
1902,
1903,
1904.
1905,
1906,
1907,
1908,
1909,
1910,
PUBLIC DOCUIVIENT — No. 49.
Year.
KUled.
2
1
2
1
7
6
9
13
InjuTd.
19
8
17
24
55
78
110
105
127
251
280
Of the 13 persons killed in 1910, 6 were riding in automobiles
and 7 were struck by automobiles. Of the 280 persons injured
in 1910, 32 were riding in automobiles and 24S were struck by
automobiles.
Private Use of Pubuc Streets.
Chapter 584, Acts of 1907, "An Act relative to the use of
public streets in the city of Boston for the storage and sale
of merchandise," has been for three years in successful oj>era-
tion. The puipose of its passage was to regulate the use of
public streets for private business in the interest erf the whole
public. Such use had previously been contrary to law, and
had been greatly abused by individuals. Under the new sys-
tem it is lawful as far as permitted, and each individual holds
a license which describes precisely the space which he is allowed
to occupy. PajTnent for licenses was only an incident of the
new system, but, as a matter of fact, the fees in three years,
ranging from So to §100 for each license, have brought to the
city of Boston a revenue of about $83,000.
As the licenses are issued by the street commissioners, the
M
10 POLICE C0M:MISSI0NER. [Jan.
Police Commissioner approving, and the fees are collected by
them, the police department receives no credit therefor in
the city's books. But as a matter of fact this revenue, which
is the result of legislation recommended, framed and in a large
measure carried out by the police department, has been sev-
eral thousand dollars 4n excess of the amount of the salaries
of the Police Commissioner, the secretary and the whole staff
of clerks employed by the department during the three years
in which the act has been in effect. It is fair to assume, more-
over, that the successful and profitable operation of the act
encouraged the subsequent legislation concerning street pri\'i-
leges of other kinds, from the licensing of which the city expects
to derive a very large revenue.
The situation before regulation was applied is described in
the following passage from my first annual report, in Decem-
ber, 1906: —
The police are embarrassed in their efforts to secure a just and law-
ful regulation of the use of the streets and sidewalks for the use of
private business. A canvass made in September showed that 338
permits issued by the superintendent of streets were in effect. Of
these, 285 were for the use of parts of sidewalks in front of premises
rented by the persons holding the permits, and 53 were for stands
occupied by persons ha%ing no permanent places of business. The
Police Commissioner can find no law which justifies the use of any
part of a public street for the purchase or the sale of merchandise.
The exercise by the citj' of Boston of the authority to issue such per-
mits could be derived only from an act of the Legislature. The sj's-
tem has grown up through fifty years, and is confused, at least in the
popular mind, by the existence of what are known as the market
limits. To break it up would be to cripple a brge, complicated and
legitimate business, which is carried on mainly to the satisfaction of
the public. And yet it seems to be necessary that such small parts
of^the sj-stem as may tend to obstruction or to injustice to persons
renting ^neighboring premises should be discovered and eliminated;
the part remaining should then be placed under the sanction of the
law. jThe police would thus be saved the embarrassment, which has
often arisen, of acting upon complaint against the dealer without a
permit, brought by a neighboring dealer holding a permit which the
police have a strong reason to believe is without legal validitj'. I
respectfully recommend a thorough investigation of the subject, in
order that the authority to give these street pri\'ileges may be estab-
lished, and that thereafter persons assuming such pri\-ileges without
right in law may be checked and punished.
1911.] PUBLIC DOCUMENT — No. 49. 11
This recommendation went to a committee of the Legisla-
tm-e which was so burdened with other business that it could
not give the time needed for an investigation of this new and
novel subject. Persons using the streets unlawfully could not
; be made to believe, on the other hand, that the matter was of
interest to them. It was only by repeated announcements by
the Police Commissioner, that unless an act legalizing the
I practice were passed he would consider it his duty to prosecute
i; all persons who unlawfully occupied the streets, that the slight-
est interest could be aroused. Even then it was only by draw-
ing personally an act which was new in itself, novel in prin-
ciple and elaborate in detail that he succeeded in placing the
matter fairly before the committee late in April, 1907. No
report was made until June, and it was not until June 28, the
last day on which any acts were approved by the Governor,
;^ that the bill became a law.
; To put the act into effect was even more diflScult, but after
I nearly two years of explanations and remonstrances, with a
;; few prosecutions, it was so satisfactorily accomplished that I
can recall no complaint received in the past twelve months.
t It is a popular mistake that the operation of the law affects
^ only the market district; on the contrary, it extends to all
[• parts of the city, and of more than 1,200 licenses issued an-
nually, probably two-thirds are remote from that center.
j It is proper to say, further, that the act placed in the hands
of the Police Commissioner the control of hawkers and pedlers
; in so far as the times and places for carrj'ing on their trade
r were concerned; and one of many results has been to keep
them out of the business paits of the city in the business hours.
I have gone into this matter in some detail because it shows
the difficulty of restoring to the public its rights in the streets
! which private persons desire to monopolize; and the possibil-
.. ity of such restoration with benefit to the order of the city
and even to its pecuniary profit.
Jm'EMLE Offenders.
The laws pro%-iding for special treatment of juvenile offend-
ers, passed in 1906, took effect on the first day of September
in that year. The four annual reports of the Police Commis-
12 POLICE COMMISSIONER. [Jan.
sioner made since that date have given full details of the opera-
tion of those laws in so far as the information possessed by the
department would permit. They are now omitted because
they vary but slightly from jear to year.
The subject of juvenile lawlessness is of the greatest impor-
tance, and the police will continue to do such part of the work
for its suppression as the laws shall assign to them from time
to time.
DEP.A^RTilENT EXPEXSES.
In another part of this report will be found, in the usual
form, a statement of the receipts and expenditures of the depart-
ment for the police year ended Nov. 30, 1910. The special
exhibit which follows was prepared from the reports of the
city auditor in order that it might cover the city's fiscal year,
which ends January 31 annually, and that advantage might
be taken of the more detailed separation of accounts made by
the auditor.
About 8-5 per cent, of all expenditures by the police depart-
ment is for pay of members of the sworn police force and of
persons retired therefrom on pension, both classes being sub-
ject, as to numbers and rates of pajTnent, to authorities inde-
pendent of the Police Commissioner.
The expenditures of the police department for general pur-
poses, including the pay of all persons not members of the
sworn police force, represent about 15 per cent, of the total.
Such expenditures have been reduced rather than increased
in the past four years, and I expect that a like condition will
continue in the ne.xt fiscal year.
These statements are based on a careful analysis which I
have made of the expenses of the police department as shown
in the reports of the city auditor for the fiscal years 1905-06,
1907-08, 190S-09 and 1909-10. The fiscal year 1906-07 is
omitted because of the fact that in June, 190G, the single Police
Commissioner succeeded the Board of Police, and the Licens-
ing Board was established, the effect of which was so to di\ade
expenses and change details of bookkeeping that for purposes
of comparison that year is not available.
Putting aside payments on account of pensions and on account
I
1911.] PUBLIC DOCUMENT — No. 49. 13
of salaries of the sworn police force, the analysis shows that the
expenditures charged to the police department for all other
purposes were as follows: —
Fiscal year 1905-06, §319,653
Fiscal year 1907-08 292,341
Fiscal year 1908-09, 276,221
Fiscal year 1909-10, 286,833
These figures show a reduction in miscellaneous expenses
charged to the police department as between the years 1905-06
and 1909-10 of $32,820.
The collections by the police department on account of the ^
licenses which it continues to issue, the amount of which col-
lections depends to some extent on police \-igilance, were
§46,742 in 1905-06 and §51,339.25 in 1909-10, a gain of
$4,597.25.
It is proper to state, on the other side, that when the Licens-
ing Board was established in 1906 it relieved the police depart-
ment of certain expenses for clerks, rent, printing, etc. All
e-xpenditiu-es of the Licensing Board in the fiscal year 1909-10,
exclusive of the salaries of the members and the secretary,
amounted to $21,411. It may therefore be said that the sav-
ing in the general expenses of the police department as between {
1905-06 and 1909-10 was sufficient to balance the running j
expenses of the Licensing Board, to meet the added miscel- i
laneous costs of an enlarged police force and the general in- i
crease in the price of labor and supplies, and to show a balance *
above all of $11,409. f
The act unged,
-
2
3
Pending,
-
2
-
Totals
249 1
1
375
366
!
20 POLICE C0M:MISSI0NER. [Jan.
The great proportion of night walkers placed on probation
gives particular interest to the results of such action. In no
spirit of critic'ism, and without haN-ing gone below the surface
of the matter, it is worth while to note results in 68 cases in
which night walkers prosecuted by the police in one particular
division were placed on probation within the year. Of the
6S, 1 was sent to a State asylum for the insane; 9 are in private
reformatory' institutions in accordance ^\nth the terms of their
probation; 5 were surrendered by the probation officers and
sentenced; 2.3 defaulted, that is to say, broke the conditions
of their probation and presumably disappeared; 16 were dis-
missed because of satisfactory conduct during the term of
their probation, which is usually six months; and 14 cases are
pending.
Women and girls arrested in the streets for immoral con-
,1 duct, but not properly to be classed as common night walkers,
numbered 58, and their cases were disposed of as follows: —
Delivered to parents, 22
Delivered to State Board of Charities, 7
Delivered to private institutions, 1
Discharged at station house, 6
Placed on probation, 9
State Farm, 4
Woman's Prison at Sherborn, 1
Lancaster School, 3
House of Correction sLx months, 1
House of Correction four months, 2
House of Correction three months, 1
House of Correction two months, 1
Total, 58
The Law axd the Pouce.
An attempt to close a house of prostitution by means of an
injunction against the owner of the real estate was described
in last year's report. The procedure is based on Revised Laws,
chapter 101, section 8, but has long been known to the police,
through actual experiment, as of no value for such a purpose.
At the request, however, of an officer of a private organiza-
tion, and as a further test of the law, the poUce department
1911.] PUBLIC DOCTOIENT — No, 49. 21
aided in securing an injunction against the owner of the house.
No court contest was made by the respondent and the injunc-
tion became operative Sept. 14, 1909.
The theorj- of the law and the beHef of interested though
inexperienced jjersons is that, with an injunction against the
fiulher use of the house for purposes of prostitution, the owner
of the real estate would be in contempt of court, and subject
to imprbomnent if the house were again so used. But in
line with previous experiences the title of the real estate was
almost immediately transferred to another person, and as
against the new owner the injunction had no force.
Meanwhile, the police had continued to watch the house ^
and to search it with warrants, woman number 1, who was in ,--^'^
charge of the premises when the injunction was sought, though ;
not the owner of the real estate, having turned the manage-
ment over to woman number 2. When the last annual report
of the police department was closed, Nov. 30, 1909, the house
was apparently occupied by permanent male lodgers.
But woman number 2 gradually took up the old practices, '
and in consequence of evidence secured by the police in Febru- ■
ary, 1910, a warrant for her arrest was applied for. It was \
refused by the court on the ground that it appeared that she |
had given up business at that place. What she had really \
done was to transfer the management to woman number 3, j
which is the plan usually followed in such cases. |
The police were compelled to begin their work over again ]
with woman number 3, and it was not until November, 1910,
that they secured evidence enough to take her to court. She
was arrested, and after her case had been continued she pleaded
guilty, paid a fine of $50 and turned the house over to woman 4.
Dec. 3, 1910, the police had suflScient evidence to ask for
a warrant for woman number 4, which was granted, but she
kept out of the way, woman number 5 taking her place, and
was not arrested until December 28, when the case in court
was continued to Jan. 6, 1911. \
The record of this particular house in the past two years t
illustrates many aspects of the contest which the police are }
carrying on against the business of vice; but especially and j
most discouraging of all, I venture to say, is that attitude of
22 POLICE COMMISSIONER. [Jan.
the courts which makes it easy for keepers of houses of ill
fame to avoid con\'iction, and when convicted after all, to
escape, in many cases, with petty fines.
\Mien court results are considered it is hardly an exaggera-
tion to say that in cases such as the following the police are
wasting their time and the laws are brought into contempt.
A woman controls a house of eight suites. She lives in one of
them, rents such of the others as she chooses, and two have
been used for years for immoral purposes. They are barri-
caded like old-fashioned gambling houses, and when the f>oIice
appear and are seen through a peephole, they are unable, as
a rule, to gain entrance in time to secure incriminating evi-
dence. From Dec. 1, 1907, to INIarch 3, 1908, seven different
women were the ostensible keepers of the place. On the latter
date the seventh woman was convicted of keeping a house of
ill fame, and the penalty was a fine of SoO. Under these con-
ditions a policeman in uniform was stationed in front of the
house from Aug. 16, 1908, to Oct. 16, 1909. The business
apparently was too profitable to be given up readily, but it
was damaged to such an extent that on the latter date the
apartments were vacated. In a few months, however, busi-
ness was resumed. From .■\pril 10 to Nov. 20, 1910, the place
was searched twenty-one times by the police, and the only
success, if a fine of S50 imposed by the court can be called a
success, was the connction of the woman who was the osten-
sible keeper in August, 1910. It is practically useless to attempt
to collect evidence when the results are such as these. On this
point I may appropriately repeat what I said in my annual
report two years ago: —
It is hard to believe that the Commonwealth should condone such
an offence as this for any sum of money paid, and especially for a pit-
tance that can be charged to the profit and loss account without en»-
barrassmcnt to the business or interruption of its successful progress.
The Business of Vice ^Iodernized.
In previous reports I have spoken of the gradual disajv
pearance of the old-fashioned houses of ill fame, — single
houses with resident inmates. The movement has continued
through the past year, and among those which gave up busi-
1911.] PUBLIC DOCmiENT — No. 49. 23
ness it is worth while to mention three houses standing to-
gether in a short street between Bowdoin Square and the State
House, which had been carried on for a generation. The char-
acter of their "trade" may be judged from the fact that when
the furniture of one of them was sent to an auction room it
was estimated to have cost SI 8,000. Police pressure accounts
in a large measure for these surrenders, but the most important
instrumentality in the change which for good or for evil has
taken place in the business of vice is the telephone, with the
modern sj-stem of operation which throws its use open not
only to subscribers but to the whole public. The "telephone
house," as it has come to be known, and in most cases it is
but an apartment, is practically an exchange, in which the
tenant, without keeping women in the place, fills orders, so
to speak; and even when the police become suspicious and
arrive with a liquor search warrant, which is their only legal
and practicable means of securing entrance, they usually find
nothing incriminating on the premises. A person carrying on
the business in this way receives messages by telephone from
men, and has at her call numbers of women and girls who use
the telephone at stated times to learn whether or not they are
wanted.
The telephone is essential, also, in a large number of cases
in which women live alone, or usually two together, in the small
flats which have become so numerous. By its use men can
arrange with the women and the women can communicate one
with another from house to house. In one police division
which contains no known houses of ill fame, in the sense in
which the term has heretofore been used, 17 places were searched
in 1910, 15 of which were flats of this character. In all the
17 places e\ndence of violation of the laws was obtained, result-
ing in the arrest of 2 persons for illegal sales of liquor and of
35 persons for adultery or fornication. But not in a single case
was the evidence sufficient to establish a charge of keeping
a house of ill fame.
Lodging houses in great numbers, where "no questions are
asked," and men and women may come and go at pleasure,
pro\nded they make no disturbance, are practically beyond the
reach of the police except in cases in which criminal practices
24 POLICE COABIISSIONER. [Jan.
are carried on to such an extent that it is possible, through an
unexpected search, to secure evidence of a character and quan-
tity' to convince a court that the house is a place "resorted to
for prostitution." In one place 6 persons were arrested for for-
nication and conxncted. On the strength of that exidence the
proprietor was arrested on a charge of keeping a house of ill
fame, but was discharged by the court. In another case 26
persons were arrested for fornication and convicted, and the
two proprietors were fined, respectively, S.50 and SIOO. Again,
with 10 arrests and convictions for fornication, the keeper of
the house was fined S75; and in still another, with 8 arrests
and convictions for fornication, the keeper was placed on pro-
bation. Similar instances, though less marked, have been
numerous.
I am aware that some hotels of the lower class are large
contributors to the convenience of mercenary \-ice. In a few
cases in which the police were able to show that women were
allowed to loiter on the premises for immoral purposes, and
afterwards committed criminal acts, the managers of hotels of
this kind have been convicted of keeping places resorted to for
prostitution, and their business has been destroyed. Even the
most carefully conducted hotels cannot question their guests
and determine their legal relations to one another; but there
are hotels of another kind, whose managers are careless, indiffer-
ent or actually aware that their rooms are used for immoral pur-
poses, and are ready to profit by such use. To this latter class
the police will continue to give particular attention.
Public and Police.
The police department regards the business of vice as a
social tragedy which has gone on from the beginning and pre-
sumably will continue to go on to the end; but police action
against it is confined, of necessity, to the attempted enforce-
ment of the laws. The police have no other mission or authority,
and their efforts to reduce the profits of the business, to secure
the adequate punishment of those who engage in it, and thus
to check its growth, have met with practically no helpful or
appreciative response from any direction. If a future Police
Commissioner were intending to pursue the same course with
1911.] PUBLIC DOCU^IEXT — No. 49. 25
respect to the business of vice that has been followed for four
years, I should advise him that he might expect loyal support
from the police wlien once he had con\-inced them that he was
in earnest; little encouragement from courts; bitter hostility
from persons whose profits were curtailed; indifference from
the public; and from a few enthusiasts in the cause of social
purity, whose admirable purposes are not sustained by straight
and intelligent thinking, he would be sure to receive some
measure of abusive criticism. I should advise him that unless
he held his oath of office in high regard, and cared for no reward
other than the consciousness that he had done his dutj-^ faith-
fully and with some benefit to the community, it would be
better for him personally that he should follow the easy road
of indifference, which is always chosen by those who are offi-
cially blind.
Arrests for Druxkex.vess in Boston.
The subject of the increase in arrests for drunkenness in
Boston has been discussed a good deal in the last year or two.
After careful study of the matter I feci sure that whatever else
the figures of such arrests may show they furnish no conclu-
sive evidence in any year or series of years to prove that drunk-
enness among the people of Boston is increasing. The prob-
lem is too complex to be solved by means so simple. Without
anticipating the full statements which appear later in this
report, I may properly emphasize at once a point which is
vital in the consideration of the whole subject. The arrests
per 1,000 of population in 1910 were 71. IS, as against 33.33
per 1,000 in 1902. Hence, drjnkenness in Boston might be
regarded as having more than doubled in eight years, which
is an absurd assumption. On the other hand, the arrests in
Boston in 1S92 were 71.S7 per 1,000, as against 33.33 in 1902.
Hence, drunkenness by this proc-ess of reasoning must have
decreased more than half in the ten years from 1S92 to 1902,
an assumption equally absurd. .Again, the rate per 1,000
increased from 33.33 in 1902 to 47.69 in 1903 and 56.89 in
1904, but no one could imagine that those increases in arrests
represented corresponding changes in one or two years in the
drinking habits of the people.
26
POLICE com:missioxer.
[Jan.
It is necessary to take into consideration the changes in
the course of years in the laws relating to the punishment
and probation of drunken persons, and to the sale of liquor;
the vast increase in the number of persons living in adjacent
no-license cities and towns who make Boston their drinking
place; the "policies" which from time to time, through city
authorities, courts and commissioners, have directed or influ-
enced the police in taking drunken persons into custody; and
the reasonable insistence on the part of the sober and orderly
people who are in the vast majority, — an insistence which
in the last few years has been especially emphatic, — that
drunken men shall not be allowed to make life dangerous and
uncomfortable in the streets and other public places, and in
the trains and cars which all must use.
OxE Dat of HEA^•Y Arrests.
As an introduction to the study of this subject an analysis
of one day's arrests, probably the heaviest for the year, may
first be presented. The daily police reports received Sunday,
March 27, 1910, showed that in the twenty-four hours of the
police day ended at S o'clock that morning there had been 327
arrests for drunkenness. Saturday arrests are always more
numerous than those of any other day, and this particular
Saturday was the eve of the festival of Easter. In order that
a thorough analysis of the arrests for drunkenness on one such
day might be made, special reports were called for from all
police divisions on the ^londay following, and the results are
given herewith.
^^'hole number of persons arrested for drunkenness in Bos-
ton in the twenty-four hours ended at S A.ii. Sunday, March
27, 1910: men, 310; women, 17; total, 327.
Men,
Women.
Touh.
Residents of Boston, .
143
13
156
Xot residents of Boston,
167
4
171
Married,
92
9
101
Unmarried, ....
21S
S
226
1
1911.
PUBLIC DOCOIEXT — Xo. 49.
27
The ages were as follows: —
Under 21,
21 to 25,
26 to 30,
31 to 35,
36 to 40,
41 to 45,
46 to 50,
6
40
43
57
59,
44
40
51 to 55, .
56 to 60, .
61 to 65, .
66 to 70, .
Total,
17
5
10
i
7
•i
4
?
X
327
The following were the times at which arrests were made: —
8 A.M. to 12 M.,
12 M. to 5 P.M.,
5 P.M. to 6 P.M.,
6 P.M. to 7 P.M.,
7 P.M. to 8 P.M.,
8 P.M. to 9 P.M.,
9 P.M. to 10 P.M.,
10 p.m. to 11 P.M.,
11 P.M. to 12 midnight.
Midnight to 1 a.m.,
1 A.M. to S A.M., .
Total,
23
48
17
15
24
28
32
33
54
32
21
327
The birthplaces of the persons arrested were as follows: —
United States
•
168
Poland, .
4
Ireland, .
. ■
85
Finland, .
3
Canada and
British Prov-
Germany,
3
inces, .
• • •
31
Norway, .
2
England, .
.
9
Russia,
2
Sweden, .
■ • >
8
France,
1
Scotland, .
•
7
■
Italy, .
.
4
Total,
. 327
The 171 persons who were not residents of Boston were
registered as follows: —
'I
il
Outside Massachusetts,
19
LjTin,
. 10
No home,
13
Everett, .
8
Foreign seamen.
10
Quincy, .
. 8
Cambridge,
17
Brockton,
6
Chelsea, .
10
Newton, .
5
2S
POLICE COMNIISSIOXER.
[Jan.
Somenille,
5
Waltham, ... 2
yialdcD, .
3
Watertown, ... 2
Mcdford, .
3
Andover, .\rlington, Brook-
Revere,
3
line, Concord, Duxburi-,
Woburn, .
3
Fan River, Hopedalc,
Abinglon,
2
Ijttleton, Manchester,
Braintrec,
2
ilarblehead, Milton, Xa-
Canton, .
2
tick, Needham, New Bed-
EJcdham, .
2
ford, Randolph, Rock-
Hyde Park,
2
land, Saugus, Southbor-
Lawrence,
2
ou^, Stoneham, Swamp-
LoireU, .
2
scott, Walpole, Wey-
ilelrose, .
2
mouth, 1 each, . 22
Salem,
2
SLaron,
2
Total, . . .171
WaktSeld,
2
The following statement shows the number of residents of
each of the se\'eral sections of the city arrested throughout
the citj', whether in their home police division or elsewhere: —
-irraarS in
Arre^el in
Totil r.cs:-
H<irj-
Otbff
dcnls
Po:v.jlat:oc
D.Ttfjar*
DJTiSOCS.
An-cst«L
Qiarlestown,
16
4
20
i 41,444
East Boston,
.?
6
11
.58,488
North End, ....
8
1
9
33,575
West End, ....
5
5
10
46,458
Court ."kiuare Drvbion, .
—
-
-
.3,717
LsGrange Street Division,
o
3
S
1 17,295
.ScKithEnd, . . . .
1-3
10
23
1 .59,161
Roxbur*', ....
23
11
34
i 142,260
.Sooth Boston,
13
5
IS
j 72,768
Dorchester, ....
6
6
12
' 96,829
West Roxbury,
-
3
3
1 45,637
Brixton,
1
4
o
26.588
Back Bay, . . . .
1
2
3
26,365
Totals, ....
95
60
156
I 670,585
The figures of population are those of the United States
Census of May 1, 1910. They are given by sections of the
city rather than by police divisions, in order that they may be
the better understood. In some cases, as, for instance, "Xorth
1911.]
PUBLIC DOCUMENT — No. 49.
29
End," "West End," etc., where there are no established boun-
daries, the figures represent the populations of the local police
di\'isions. In other cases, as in South Boston and Roxbury,
the figures represent the aggregate populations, respectively,
of divisions 6 and 12 and dixisions 9 and 10.
It may be stated, further, that the poUce listing showed
that on April 1, 1910, there were in Boston 204,500 male resi-
dents twenty years of age or more.
The arrests of residents and nonresidents of Boston, by
police divisions, were as follows: —
Residcnta
of
IJc»ton.
Noi>-
residcutiol
Bostoa.
ToUU.
Population.
Di\Tsion 1 North End,
19
63
82
33,575
Di\-ision 2 Court Square, .
9
9
18
3,717
Di\-ision 3 West End,
6
22
28
46,458
Di\Tsion 4 LaGrange Street,
14
28
42
17,295
Di\Tsion 5 South End,
20
7
27
59,161
Di\-ision 6 South Boston, .
14
7
21
33,285
Division 7 East Boston,
5
2
7
58,488
Di\-ision 8 harbor police, .
-
-
-
-
Division 9 Dudley Street, .
19
-
19
70,961
Division 10 Roxbury Crossing,
12
2
14
71,299
Di\-ision 11 Dorchester,
8
1
9
96,829
Di\-ision 12 South Boston, .
2
1
3
39,483
Division 13 West Ro.tbury, .
2
4
6
45,637
Di\-ision 14 Brighton, . . .
1
4
5
26,588
Di\Ts:oa 15 Charlestown, .
21
20
41
41,444
Di\-ision 16 Back Bay,
4
1
5
26,365
Totals, ....
156
171
327
670,585
I
30 POLICE COMMISSIOXER. [Jan.
The 327 cases were disposed of as follows: —
Released when sober by probation officers, without going to couit, 169
In court, not punished: —
Placed on file, 33
Placed on probation, 19
Released, 5
Defaulted, 3
— 60
In court, punished: —
Fined S5, 37
Fined SS, 1
Fined SIO, 1
Jail fourteen days, 1
House of Correction ten days, 5
House of Correction fourteen days, 5
House of Correction one month 18
House of Correction two months, 4
House of Correction tliree months, 7
Sent to State Farm, 17
Sent to Deer Island hospital, 1
Sent to Prison at Sherborn, 1
— 98
Total 327
The following features of this one day's record, which in
almost all respects, except the number of arrests, b tj-pical
of the whole year, desene particular notice: —
1. The nonresidents were 52.29 per cent., a proportion in
excess of the normal, for the nonresidents arrested for drunk-
enness in the entire year were 47.86 per cent, of the whole
number. An interesting detail is the fact that of 110 persons
arrested in the North and West Ends only 25 were residents
of any part of Boston.
2. The women arrested numbered but 17 in a total of 327.
Only 2 were under thirty years of age, one being twenty-two,
the other twenty-seven; and of those remaining, 8 were be-
tween thirty and forty, 3 between fort}' and fifty, 2 between
fifty and si.xty, 1 was sixty and 1 was sixty-five. SLx of the
women were arrested in one di\'ision in a tenement-house
carouse, 2 being taken at midnight Saturday and 4 at 3 o'clock
Sunday morning. That these G were old offenders was shown
1911.] PUBLIC DOCUMENT — x\o. 49. 31
by the fact that they ranged from thirty-five to skty-five
years of age, and that all were sent away, 3 to the State Farm i
and 3 to the House of Correction. Four of the 17 were non-
residents. It is a remarkable circumstance that nine of the I
fifteen land di\-isions contributed not one woman resident to
the number arrested. Xo woman, for instance, was arrested -
who lived at the North End, the West End or South Boston; i
and I mention those sections in particular because together they \
have a population of more than 150,000 persons, the great
majority of whom are poor or in moderate circumstances.
3. Again, taking the same three sections which furnished
no women residents to the list, the returns show among the -
arrests in all parts of the city only 9 men who lived at the
North End, 10 at the West End and IS at South Boston.
4. A subject for further study by sociologists is found in
the fact that although but 6 of the 310 men arrested were •'
under twentj--one years of age, only 92 were married, as against
218 unmarried. Unmarried men of mature age form the great
majoritj' of the offenders.
5. Of the 327 persons arrested, 169 were released by the
probation oflScers without even going to court and 60 others
passed through the courts unpunished; that is to say, 229 of
the 327 arrested were simply cared for, and, except for con-
finement until they were sober, suffered no damage in person '
or property. Of the 9S who were punished by the courts, not
one of whom e\ndently from his record was deemed worthy of
probation, 39 escaped with fines. |
Arrests for Drunkenness in Fiftt-oxe Years. j
The material for the table which follows has been gathered j
with much diflSculty from the reports of the Chief of Police j
up to 1S7S, of the Police Commissioners appointed by the \
mayor of Boston from 1S78 to ISSo, of the Board of Police ■ ]
appointed by the Governor from ISSo to 1906, and of the Police -i
Commissioner appointed by the Governor from 1906 to 1910. |
It will be of ser\-ice not orJy to the police department but to ■
all officials and private citizens who may be interested in the jj
subject. It was compiled for no other purpose. •■{
Prior to 1SS6 the reports contain no separate figures for |
i
32
POLICE CO^DIISSIOXER.
[Jan.
men and women, and prior to 1SS7 there is no separation of
residents and nonresidents.
The reports of the Chief of Police are for calendar years;
of the early Police Commissioners, for twelve months ending
April .30, annually; and of the Board of Police and the present
commissioner, for twelve months ending November 30, an-
nually. Figures for the year 1SS.5 cannot be given, except
those of population, because the Board of Police took control
July 23 of that year and though it reported for the period
from that date to Xovembcr 30, no report can be found for
the time from May 1 to July 23. Even if it had been made
the total of the two reports would cover only seven months.
The figures of population at the beginning and in the middle
of each decade are those of the United States and the State
censuses, respectively; all others are estimates based thereon.
The following is the table of arrests since 1S60: —
YtiE.
i
Males. FemalM. Totals.
1
1
.Arrest* per
1.000 of Fop-
uhtion.
1S60,
-
13,157
-
177,840
73.98
1S61,
-
-
17,324
-
180,000
96.24
1S62,
-
-
14,904
-
183,000
81.44
1S6.3,
-
-
17,924
-
186,000
96.36
1S&4,
-
-
14,380
-
189,000
76.08
1865,
-
-
13,835
-
192,318
72.19
1S66,
-
-
15,542
-
197,000
78. 89
1S67,
-
-
13,800
-
200,000
69.00
ISGS,
-
18,475
230,000
80.33
1SG9,
_ 1 _
i
19,446
235,000
82.74
1870,
-
18,678 1
1
250,526
74.68
1871,
-
-
18,089 - 1 260,000
69.57
1872,
-
-
16,612 - ' 270,000
61.53
1911.
PUBLIC DOCU^IENT — No. 49.
33
Veir.
Malo.
1
Females.
Totala.
Non-
reBdenU.
PopoIatioD.
ArrefUper
1.000 (rfl-op-
uUtion.
1S73,
1
-
16,810
- 280,000
j
60.04
1S74,
i _
1
-
18,090
- i 330,000
54.82
1S75,
?
-
16,645
-
341,919
48.68
1S76,
-
15,067
346,000
43.55
1877,
1
-
14,373
-
350,000
41.07
1S7S,
i
-
13,976
-
354,000
39.48
1879,
i
-
14,267
-
358,000
.39.85
ISSO,
-
17,329
-
362,839
47.76
ISSl,
i _
!
-
19,360
-
367,000
52.75
1SS2,
-
18,466
-
372,000
49.64
1SS3,
-
-
18,629
-
377,000
49.41
1SS4,
-
-
16,784
-
384,000
43.70
1885,
-
-
-
-
390,393
-
1886,
13,304
2,875
16,179
-
402,000
40.24
1887,
16,081
3,060
19,141
7,809
414,000
46.23
18SS,
19,399
3,645
23,044
9,621
426,000
54.09
1889,
21,580
3,411
24,991
9,808
438,000
57.06
1S90,
20,492
3,478
23,970
8,964
448,447
53.45
1891,
23,727
3,669
27,396
10,941
458,000
59.80
1S92,
29,933
3,705
33,638
13,779
468,000
71.87
1893,
27,661
3,153
30,814
13,728
478,000
64.48
1894,
22,075
2,988
25,063
11,157
488,000
51.36
1895,
23,354
2,831
26,185
11,595
496,920
52.69
1896,
28,125
3,075
31,200
14,356
510,000
61.17
1897,
26,591
3,052
29,643
13,413
523,000
56.68
1898,
23,273
2,884
26,157
11,615
536,000
48.80
34
POLICE co:ndiissioxer.
[Jan.
YuR.
Males.
Ftmalea.
Totals.
resid^n. P'^'-'i--
Arresla per
l.OC*0r,f Pop.
1S09,
2L053
2 822
23,875
9,815
549,000
43.49
1900,
16,159
2,442
18,601
7,155
560,892
33.16
ICtOI,
16,916
2,572
19,488
7,631
568,000
34.31
1002,
16,666
2,501
19,167
7,543
575,000
33.33
1003,
24,543
3,214
27,757
11,806
582,000
47.69
1004,
29,SSS
3,623
33,511
14,533
589,000
56.89
ioa5,
2S,734
3,564
32,298
13,a37
595,380
54.24
1006,
29,340
3,490
32,830
14,635
610,000
53.82
1007,
33,600
3,789
37,389
17,061
625,000
59.82
lOOS,
38,442
4,026
42,468
20,270
640,000
66.36
1009,
41,003
4,318
45,321
21,585
655,000
69.19
1910,
43,489
4,243
47,732
22,846
670,585
71.18
XONRESIDEXTS ARRESTED FOR DrUXKEN"N*ESS.
In the foregoing table that part which gives the number of
arrests per 1,000 of population should be considered in its
relation to nonresidents arrested for drunkenness. Xo city
in the United States approaches Boston in the relative size of
the population outside its official limits but practically part
of it in business and social affairs. The official population is
670,000, but in those parts which make up what has come to
be known as the "real Boston" there is an equal number of
persons who cannot be counted in a computation of the num-
ber of arrests per 1,000. They live, moreover, in cities and
towns which are practically all and always without liquor
licenses, and for such of those persons as wish to drink liquor
Boston is the common resort.
The following tabic, which has appeared in several recent
annual reports, as showing the proportion of nonresidents
arrested for drunkenness in the preceding ten years, is here
reproduced: —
1911.
PUBLIC DOCIBIEXT — No. 49.
35
Year.
Totil Arresia for
Dnuikenness.
Percectace of Non-
residcDls.
1901,
1902,
1903,
1904,
1905,
1906,
1907,
1908,
1909,
1910.
19,4SS
19,167
27,757
33,511
32,298
32,380
37,389
42,468
45,321
47,732
29.90
39.35
42.53
43.36
43.14
44.57
45.63
47.73
47.62
47.86
Effect of "Policies" ox Arrests for Druxkenness.
Since 1906 the police department has been free, for the first
time practically since 1S60, from such relations to liquor laws,
actual or proposed, or to the granting of licenses to sell liquor,
as might influence the police consciously or unconsciously to
increase or to reduce the number of arrests for drunkenness.
In the years immediately preceding 1906 such considerations
were less potent, even though licenses were still granted by the
boards of police, because the system of liquor laws and the
rules regulating the granting of licenses had become well estab-
lished. But from 1S60 to 1S75 the contest between prohibi-
tion, which was then the law, and license, which many sought
to substitute, was sharp and continuous; and both sides watched
the figures of arrests for drunkenness. Then, in 1875, came
what might be called the open license laws, under which licenses
were granted to all suitable persons and places, without regard
to number. Some years afterwards the law limiting the num-
ber of licenses by population took effect, accompanied and
followed by radical increases in the schedule of fees charged.
Through all the intervening years proposals for new legisla-
tion have been numerous, and annually the citizens have voted
36 POLICE COMMISSIONER. [Jan.
upon the question whether or not licenses should be granted.
All disputants were inclined to point to the number of arrests
for drunkenness whenever the record seemed to help their
cause.
In the early part of the period which the table covers manifH
ulation of arrests for drunkenness was bold and even lawless.
In 1S64 the city authorities instructefl the police that all per-
sons arrested for drunkenness but not put into court, several
thousands annually, were to be entered as "lodgers." Thb
continued until 1S70, when it was or<lcred that such persons
should be entered as "disorderly." The new rule was fol-
lowed until the Board of Police Commissioners, in 1S79, put
an end to it, with the following comment: —
The onlj' object could be to cover up the number of arrests for
dmiikcnncss, as the police had no more authoritj' in law for discharg-
ing, on their own responsibility, a person arrested for being disorderly
than they had for discharging a person arrested for intoxication. On
the 21st of November last an order was issued instructing officers to
enter on the records, in all cases, the actual cause of arrest.
It is fortunate that through the years in which thb deceit
was practiced the police, on their own account, followed the
custom of marking on the books a "d" against the name of
every person actually arrested for drunkenness, but put down
officially as a "lodger" or as "disorderly." It is this which
makes it possible to give in the table a correct statement of
arrests for drunkenness in those years.
PCXISHSIENT AND PrOBATIOV.
For many years before 1SS2 the usual punishment for a
first offence of drunkenness was a fine of S5 and costs, amount-
ing to about S7.50. In 1SS2 the fine was reduced to SI and
costs; and later, through the establishment of the probation
system, the fine for a first offence, unless attended by disorder
or other misconduct, practically disappeared.
There is a general lack of information on the part of the
public as to the lenient and yet legal course of treatment
received in Boston by persons arrested for drunkenness who
are not known to be old offenders. A certain custom of the
1911.] PUBLIC DCXrU^IENT — Xo. 49. 37
police of a western city has caused the public exploitation of
what is called the "sunrise court;" and many good citizens
have suggested that the "court" be established in Boston.
I The "sunrise court" consists simply in this, that early in the
' morning the officer in charge of a police station in that city
examines the men who have been arrested for drunkenness,
and, according to his judgment or inclination, discharges such
of them as he chooses, the advantage to them being that they
are not compelled to appear in court and will be in time to
go about any work which they have.
This method may be an advance over those previously fol-
lowed in that dty, but it is a crude and unlawful form of a
system established by law and carried on by lawful processes
in Boston for nearly twenty years. Xo policeman has a right
under our laws to discharge a man who has been arrested for
a specific offence. Those taken into custody merely as sus-
picious persons may be set at liberty, but for the protection
of the citizen himself it b required that if arrested he shall be
arraigned in court. The man arrested for into.xicatioa may
escape arraignment, but through a system that is strongly
safeguarded. Here is the method of operation, under specific
provisions of law, of the Boston "sunrise court: " —
At 4 or 5 o'clock in the morning the officer in charge of a
station has brought before him ail men under arrest for drunk- 5
enness who have become sober enough to meet the require- 4
ments of the law. He tells them that each has a right to make
and sign a statement, giving his true name and address, the
number of persons dependent upon him and his place of em-
ployment, declaring that he has not been arrested for drunken-
ness within the twelve months next preceding, and asking that
he may be released on what is commonly called probation.
This printed form is not a police document; it is prepared by
the municipal court, and the police assist the man in filling
it properly.
From the five divisions in the city proper, in which most of
the arrests are made, the men are taken to the city prison
with their statements. Probation officers are in immediate
attendance there, as at all the station houses which send prison-
ers to other courts. The probation officers are not policemen,
t
38 POLICE CO^nilSSIONER. [Jan. ■}
\
but officers appointed by the courts and responsible to them.
Probation work is their sole occupation, and with long experi-
ence not only with the general subject but in multitudes of
cases of particular individuals, and with complete records to
aid them, they pass upon the applications for release. Tliose
who are deeme<l worthy are set at liberty immediately and
early enough to go about their business, and even among the
others many are afterwards placed on probation by the courts. \
A person who is refused probation by the officer first and by -J
the court afterwards may safely be regarded as undeserving. i
This information will explain the meaning of some of the J
entries as to disposition of cases under the preceding account =•
of one day's arrests for drunkenness in Boston. .\s already l
pointed out, the arrests of that day were unusual in number [
and to some extent in matters of detail. But if the cases of f
the 47,732 persons arrested for drunkenness in 1910 had been ^
disposed of in like manner, the record would have been as ;
follows : — '
Released when sober by probation officers without going to ^
court, 24,668
Placed on probation bj- court, 2,778
Cases filed by court, 4^16
Discharged by court, 730
Defaulted when on bail, 439
Fined, 5,6S9
House of Correction, ten days to three months, .... .5,6S9
State Farm, 2,4S2
Jail fourteen daj-s, 147
Prison at Sherborn, 147
Total arrests, 47,732
Released without going to court, 24,668
To be disposed of bj' court, 23,064
Released by court without penalty, 8,763
Punished by fine or imprisonment, 14,301
Probation work is carried on by 3 men and 3 women in the
superior court and by 16 men and 5 women in the lower courts.
The statistics for that work in the police year are not available.
1911.] PUBLIC DOCOIEXT — No. 49. 39
but on the assumption that they are in proportion to those
of the preceding probation year, it ^^ll be found that many
more than twenty thousand persoas arrested in Boston for
drunkenness in 1910 were released lawfully when sober by
court officers, but without going to court; that thousands of
others, though appearing in court, suffered no punishment,
and that those punished were a small minority.
The fact is that the police are in a large measure the care-
takers of great numbers of men who voluntarily become intoxi-
cated; that their arrest saves them in many cases from injury,
death or robbery ; that when they need a doctor or a hospital
they receive the benefits of either or of both without cost;
and that while awaiting action upon their cases they are even
fed at the expense of the citj'.
Considering all the conditions which I have described it is
not strange that arrests for drunkenness should increase rela-
tively as well as actually. Neither the police department nor
the indi\idual policeman desires that such arrests shall be
made except as a performance of duty towards the intoxicated
persons and the sober public. As the police have received no
specific instructions on the subject, and as arrests are to police-
men a source of danger, trouble and often loss of time in court
which should be their own, and are profitable to them neither
in money nor in their department records, it is safe to say that
whether the arrests be 40,000 or S0,000 in a year they will
have been made from proper motives and for the general welfare.
Law and Policy in the L'se of Specul Policesien.
A discussion arose in the course of the year concerning the
appointment of certain men as special police oflficers for regular
police duty on the Common and in Blackstone and Franklin
squares, which are practically one open space at the South
End. I am informed that the project had its origin in a request
made to his honor the mayor for a special policeman in the
squares named because of the presence of a children's play-
ground; and that the plan was extended to include the Com-
mon. As the discussion involved the mayor, the Civil Ser-
vice Commission and the Police Commissioner, and as it
developed many questions affecting the law, public policy.
1
(
'•
1 »
' 1
•1
40 POLICE COMMISSIONER. [Jan.
police organization and the relations of the police department
to the city, I consider it advisable to make the communica-
tions which passed a matter of permanent record.
The first notice of what was proposed to be done appeared
in a newspaper article July 10, and was to the effect that the
mayor intended to "clean up" the Common and other public ,
parks and playgrounds, and for that purpose would apply to |
the Civil Service Commission for the right to appoint special }
policemen. The newspapers of July 12 confirmed the authen- v
ticity of this announcement by reporting a conference held
on the 11th, in which the Civil Service Commission was rep- i
resented as having consented to such appointments as an e.vperi- ,|
ment for a period of ten days. Up to this time no complaint ^
as to conditions on the Common had been received by the .;
Police Commissioner for months, and no request or sugges- »
tion on the subject had ever come from the mayor, .\fter the J
newspaper publications complaints from three citizens, dated,
respectively, July 11, 1.3 and 21, and addressed to the mayor,
were forwarded by him. It is fair to assume that they were
the first which he had received.
Following the published announcements of the action of the
Civil Service Commission I was invited to call at its office,
and was there informed that it had reason to believe that the
manner in which the mayor proposed to appoint special police-
men was illegal, that its legality was under investigation and
that a formal report thereon would be made. As a matter |
of fact, the commission aftenvards sent a letter to the mayor, j
a copy of which it sent also to the Police Commissioner, in
which it stated that candidates for such places must be taken
from the ci\'il senice lists, and that after they had been cer-
tified their appointment could be made only by the proper
police authority, that is to say, in Boston, the Police Com-
missioner.
July 16 the first communication on the subject from the
city authorities reached me, in the form of applications, dated
July 15, for the appointment of four men as special policemen
for duty on the Common and Public Garden and in Franklin
and lilackstone scjuares. The "City Record" of the same date
had already announced, among the department changes in the
week ended July 14, the appointment of the same persons as
]
1911.1 PUBLIC DOCUMENT — Xo. 49. 41
I
"emergency men for special police duty on Boston Common
and Public Garden for a period of ten days at S2.50 per day."
The pay of a man appointed to the regular police force from
the top of the civil service list, after competitive mental and
physical examinations, is S2 a day for the first year, S2.25 for
the second, and, unless he is sooner promoted to be a patrol-
man, Ji2..50 for the third. This fact may properly be mentioned,
though it does not affect the principle on which I subsequently
acted ; and it may be added that not one of the four applicants
met the police requirements of age, height and weight.
After full consideration I addressed to his honor the mayor
the following letter: —
July 20, 1910.
Hon. John F. Fitzgerald, Mayor.
Dear Sir: — I have received from the superintendent of public
grounds applications, bearing your signature in approval, for the ap-
pointment of three persons as special police officers on Boston Com-
mon and the Public Garden, and of one person as a special police
officer in Blackstone and Franklin squares.
Chapter 2S2, section I, Acts of 1898, pro\"ides that the Police Com-
missioner "may upon the written application of any officer or board
in charge of a department of the city of Boston, approved by the
mayor of said city, appoint special police officers for such department."
These four applications would be granted as a matter of course but
for the fact that I have learned through newspaper publications, made
apparently with your authority, and also by direct communication
from the Ci\'il Service Commission, that j'ou intend that these men,
and possibly others, shall be employed Acclusively in the j>erformance
of regular police duty in public places. Such ser\ice by them would
be so peculiar an experiment, and would raise so many questions of
law, of ci\"il service regulation and of public policy, that I feel under %
obligation to communicate further with you.
Under the provisions of the section just quoted there are now li-
censed as special police officers 138 persons, as follows: —
School janitors, with authority in and about the premises of the school-
houses to which they are assigned respectively, . .84
Drawtcndcrs and assistant drawtendcrs, with similar authority at their
respective places of emploj-ment, ...... 45
At the House of Correction, Deer Lsland, ..... 4
In other departments, ......... 5
These 138 men arc all regular employees of the city, and are fully
occupied with the duties of the positions to which they were appointed
on certification by the Civil Service Commission. Police authority
42 POLICE commissioner; [Jan.
has been given to them as appropriate to their occupations, to be ex-
ereL-=od only at their places of rc-gular employment and mainly for the
protection of citj' property in their care.
On the other hand, the applications which I Iiavc now to consider
involve the proposition that men not now employed by the city shall
be taken into its .service as policemen exclusively; that they shall be
paid such wages as the city authorities may determine; that thej' shall
be seat into pubhc aud much-frcfiuented places witii the authority of
police officers but with oaly a special policoman's badge to prove it, —
without examination as to their moral, mental or phj'.sical qualifica-
tion?, without previous police experience and without knowledge of
the laws which restrirt a policeman in his action quite as much as
they confer upon him the powei to act.
This would be the beginning of an untested, unorganized, unin-
stnicicd, undisciplined police force, controlled as to appointment, wages
and conditions of duty by the city authorities as established from tirac
to time, and limited as to number only by the desire of such authorities
and the acquiescence of the Police Commissioner for the time being.
Boston is too large a city anrl its police problems arc too difficult to
pcncit of the cmplojTDftnt of special policemen of a type that in towns
and small cities is useful, perhaps, for holiday and Saturday night ser-
^^ce. It is well known in this department that a special policeman,
when off his own premkes, is likely to create rather than to prevent
disorder. Even trained and experienced members of the police force
doing dutj- in plain clothes arc accustomed to patrol in couples, be-
cause of the increased danger of resistance and tumult in the event <rf
an arrest.
The Boston police are assigned to all parts of the city in accordance
with the judgment awi experience of the heads of the department.
The department can no more satisfy the demands of particular persons
in each section than the mayor and the city council can appropriate
money for local imprwemcnts under similar demands, amounting in
the aggregate to a dozen times the city's ability to provide. Hundreds
of policemen, if the ci;y could afford to pay them, might be employed
to greater public advaiita^e elsewhere than on the Common, the Public
Garden and the squares mentioned; they are needed far more in Dor-
chester, West Roxburr and Brighton, where single routes often cover
miles of streets, and in the great centres of business and of population,
which offer endless opportunities for increased police service.
Reports of violations of law more serious than mere misdemeanors
are seldom received by the police as affecting the Common or other
public grounds. The complaints which liave reached you, two of
which have been fonvaided to mo, are of a kind with which my four
years of service as Police CommLssioncr have made mc familiar. They
come in the main from pt-r-ons who cannot understand that the Com-
mon, fbr instance, is essentially a public place; that it is open at all
1911.] PUBLIC DOCUMENT — No. 49. 43
times to all kinds of men, women and children; that a policeman has
no right to exclude any person who wishes to go upon it, and no right
to arrest or otherwise interfere with any person unless he has com-
mitted a specific violation of law, of which the policeman has evidence.
It is not a violation of law to be dirty or rude or \Tilgar, to "loaf" on
benches or in the paths, to be noisy up to a certain point, to be under
the influence of liquor short of into-vication, to be "offensive" or "dis-
gusting " in appearance, as the complainants usually aver.
The vast majority of the people who go upon the Common are
orderh' and respectable, and are little troubled by those who are of a
different tj-pe. Immoral men and women are to be found there as in
all similar jilaccs; but a respectable woman or girl who keeps to the
hghted and frequented paths may cross the Common with as little
danger of unpleasant experiences as in any public thoroughfare at a
I corresponding hour. Should she go into secluded places, wliich even
a prudent man would avoid, she takes a needless risk. As for the rest,
it is largelj' a matter of walking on the grass, dropping paper or other
rubbish, plaj-ing ball where ball playing is not allowed, and similar
minor misdemeanors common to undisciplined crowds, in which juve-
niles below the age for prosecution are a large and troublesome element.
As the newspapers have discussed this matter extensively on infor-
mation purporting to have been received from your office, I shall take
the liberty of furnishing to them copies of this letter.
Respectfully, Stephen O'Meara,
Police Commissioner.
The reply of his honor the maj'or was as follows: —
JuLT 20. 1910.
Stephen 0'Me.\ra, Esq., Police Commissioner.
De.\r Sir: — I beg to aclaiowledge the receipt of your communica-
tion of the 20th inst.
As a result of an agitation started by residents of streets in the
\-icinity of Franklin Square, and of complaints received in regard to
conditions on the Common, I directed the superintendent of public
grounds to apply for permission to appoint four special police officers
to do police duty, and to as.sign three of them to the Common and
Public Garden and one to Franklin Square.
You decline to confirm these appointments on the ground, first,
that the appointment of sp)ecial police officers to do regular police
duty would constitute a dangerous precedent; that^ it would be, in
your own words, "the beginning of an untested, unorganized, unin-
structed, undisciplined police force, controlled as to appointment,
wages and conditions of duty by the city authorities as established
from time to time, and limited as to number only by the desire of
such authorities and the acquiscence of the Police Commissioner for
i
44 POLICE COMMISSIONER. (Jan. j
the time being;" aiul secoiully, that, if appointed, these officers might
be more proi)erIy assigned to other sccJioos of the city, where coiuU-
tions arc admitted l)y you to be even wonH? than those descril>ed on
the Common and in Franklin Scjuare.
Permit me to assure you that it is not at all my intention to in-
augurate a separate police force in the city of Boston. If no other
reason existed the finances of the city would deter me from such a
course. Moreover, the confirmatorj' power, which is lodged with the
Police Commissioner, seems to me to afiord a sufficient guarantee
against the likelihootl of any excessive increase in the present force.
The facts as reported to me are that at no time of the day arc there
more than two police officers on the Common, and for certain periods
there is onlj' one; neither of the officers is a bicj'cle patrolman. The
superintendent of iniblic grounds assures me that he has repeatedly
tried, without avail, to secure, through the captains of the police sta-
tions whose authority extends in and alxiul ihe cunnnon, a sufficient
force of officers to properly police the territory-. The Common con-
tains forty-eight acres and Ls of a peculiar character, being situated in
the midst of a large population, with subway entrances and exits
attracting great crowds, and with two conreniencc stations which are
magnets for persons of an undesirable character; irresponsible idlers
are accustomed to sleep on the grass and benches both day and night,
and the basement of the bandstand has been more than once broken
into and ased as a lodging place by tnunpts; the trees and hillocks
afford hiding places where. mUdemeanors may be committed, with
facilities for escape. There Is certai.nly here the opportunity for de-
grading si)ectacles if not positive crimes, and I have received abundant
e\ndence that good citizeas find it to their advantage to avoid this
district after dark. Xo less grave accusations have been made against
some of the habitues of Franklin Sfjuare, and, if the reports of the
complainants are not exaggerated, a thorou<^ cleansing of this district
is urgently called for in the interest of public morality.
It was the very fact that the Common is for the most part an open
and exposed area, and that any misdeeds committed thereon are j)C-
culiarly public, that seemed to me to make a particular scandal of its
degraded condition and to justify me in asking for extra officers to
cope with the emergency. I see no reason to suppose that discreet
men, vested with proper authority, and approved by the Ci\"il Service
Commission, the superintendent of public grounds and yourself, could
not exercise a salutorj' influence, and, even without making nomerous
arrests, correct many of the evils which now e.xist. The mere approach
of an officer will disperse disorderly groups, and his presence on the
scene acts as a preventive to obnoxious conduct.
I recognize fully that as Police Commiginner you must assume the
responsibility for the appointment of these special officers, but I trust
that mere loyalty to your own department and an excessive regard for
1911.] PUBLIC DOCUMENT — Xo. 49. 45
the technicalities of tlic ca.<e will not override your seiisc of the larger
interests which are involved. It seems to me j'our duty either to
ratify these appointments or to meet the situation by increasing the
number of officers on the Common and Franklin Square, so that both
these parks may become safe and agreeable places of public resort,
instead of enjoying the unpleasant notoriety which is now attached to
them. In any event, it seems to me the duty of Iwth of us to endeavor
to diminish these evils rather tlian attempt to argue them out of ex-
istence.
Yours respectfully, .John F. Fitzger-^ld,
Mayor.
The subject of the discussion haWng resulted in some unusual
demonstrations of excitement among persons who never before
had thought of it, I made public, July 2.5, through the news-
papers, the following matter in the form of memoranda: —
1. If I had written my name in approval on three applications for
the appointment of men to act as police officers under the control of
the mayor, there would have been no public agitation concerning the
Conraion.
2. But I had reason to believe, because of information given to me
voluntarily by the Civil Service Commission, that the appointments
would be illegal, and I was sure that it would be contrary to public
policy to send untested and untrained ci\-ilians to the Common for
police duty. Therefore, without either appro\ing or rejecting, I wrote
fully to the mayor, and his answer did not remove the objections
which I had stated. The applications remain in my possession with-
out having been acted upon.
3. I was fully aware that the eas>- way would have been to become
officially responsible for those irresijonsible men and for others whose
names were sure to follow. I knew that my action might be seized
Ufwn as the ba.sis of just such an agitation as did actually arise; and
that a generous and sensitive public, unacquainted with the laws which
restrict police action and the demands from all parts of the city for
police service, might be deceived as to conditions on the Common,
and as to the utility of a.ssigning additional men to duty there at the
expense of other places. I knew also that the source of the movement
was such as to make it probable that an attempt would be made, as it
has been made, to turn my action to political account. Nevertheless
I did what seemed to me to be my plain duty.
4. Since writing my letter to the mayor I have written, until now,
nothing on this subject. Informally and at their request I explained at
length the law and the police situation to the evening newspaper re-
porters at police headquarters. They took no notes and each wrote
46 POLICE C0.AOIISSI0XER. [Jan. •!
hastilr and from recollection a sununarj' of what I was supposed to j
have said. All were honest except oae, a stranger previously to head- I
quarteri. The report made by him was garbled to ser\-e the policy
which his paper had already adopted. It was niade highly sensational,
however, and a large part of the public has since had spread before it,
not alone in that paper but in others which copied from it, statements
in quotation marks, purporting to be mine, which I never uttered, —
sratcments expressing ideas which I never held and ascribing to me
action wliich I never took.
5. For months I had received no complaints, oral or written, as to
conditions on the Common. Xoae liad come to me through the
mayor's office, before the receipt of the applications for police appoint-
ments. C'xcf'pting two letters which were written to him after the news-
paper? had announced his plan of special police. These were for-
warded to me in accordance with the routine of his office, and pre-
sumaKy were all that up to that time he had received. Reports as fo
conditions and policing on the Cooamon, the Public Garden and the
immediate \'icinity were called for by me from the commanders of the
three police divisions concerned, and I have them in WTiting.
6. I have not directed that mon? policemen shall or shall not be
assigned to the Common. It is my duty to divide the number of
patrolmen allowed to the departmeai by the mayor, whose authority
under the law is final as Jo that point, among the sixteen police di-
vision?, in accordance with my jodsment and the recommendations
of ihe superintendent and the 'livKion commanders. Every di\Tsion
commander would be glad to have more men, and probably every
patrolman on the Common or elsewhere believes honestly that more
men o-j<rht to be placed in his particular locality. The apportionment
amoriz the di\'isions cannot be made on the basis of special appeals,
which come from all purts of the 40 square miles of territorj' and the
.520 miles of streets for which the <lepartment is required to care. The
commanding officer of Division 4, which includes the Common, has
been familiar with it for a geaeration, as patrolman, captain and
dejKity superintendent. lie has al^vays been free, as all other division
commaaders are, and he is still free-, to assign his men to the parts of
the division in which he believes they arc most needed for the pro-
tcctioa of persons and property. Whenever he is of the opinion that
ii Ls wirie to take men from the hotel and theater section, or the rail-
road .section, or the populous and rather turbulent section in the near
.South End, in order fo increase the patrol on the Common, he has a
perfect right so to do. But no more men can be assigned to his diN-ision
without injustice to other sections of the city, and he will not be in-
structed to make assignments of his men contrary to his own judgment.
This b not an expedient for present purposes; it is the established pro-
cedure of the department, laid down specifically in the rules.
7. The Common and the Public Garden, the latter in Di%'ision 16,
1911.] PUBLIC DOCUMENT — No. 49. 47
are dindcd into four routes, which require 12 patrolmen for the three
tours of duty in each twenty-four hours. In addition, 2 sergeants
\'isit the routes on each tour, inspectors from headquarters are often
there and 2 patrolmen in plain clothes patrol the Common at intervals.
From 6 p.m. to 1 a.m. another patrolman is on permanent post at the
corner of Tremont and Boj-lston streets; and during the greater part
of the same period 2 patrolmen, one in uniform and one in plain clothes,
are stationed on the Tremont side of the Common for the regulation
of automobiles. The parts of Tremont, Boylston, Arlington and -^
Beacon streets surrounding the Common and the Public Garden are j',
on twelve day and night p)olice routes; and, in addition, there are in '{]
streets bounding the Conunon and Public Garden 8 crossing police- ;
men who are at their posts from 8 a.m. to 6 p.m. Independent of all (
irregular visits of policemen and of all policemen in the surrounding
streets the number of men required for the regular routes on the Com-
mon and the Public Garden, is five times greater than the size of the ;
territory would justify, if that were the only consideration, and of !;
course it is not. It would require a force of more than 5,000 men to • i
police the whole city as well, and the number of patrohnen actually
present for duty in each twentj--four hours will hardly average 1,150.
8. Such is the police arrangement for the enforcement of the laws;
but neither that nor any other arrangement can eliminate conduct,
however offensive, which is not in violation of law. The steady pur-
pose of this department is that policemen, above all persons, shall
rcsfKct the law; and if the time ever comes when, by order or encour-
agement from their superiors, or in response to special agitation, the
police assume authority which the law does not give to them, and thus
themselves become law breakers, the people of Boston will be the
sufferers. Boston newspapers as well as those in New York are con-
stantly praising Maj-or Gaj-nor of that city for his attempts to bring
its police back to the solid basis of the law; and yet some of the same
Boston newspapers, and doubtless manj' citizens, criticize at tliis time
the Police Commissioner of Boston as narrow and technical because
he has insisted steadily, and still i.isists, that the police for whom he is
responsible shall follow the law at all times, not their own impulses.
The presence of a {wlieeman has a moral influence over offensive per-
sons who arc not actual law breakers, but the specific duty of a police-
man is to protect life and property and to prevent and detect crime.
9. The arrests on the Common since April of this year, not counting
those made in the adjoining streets, have numbered 133, of which 124
were for drunkenness and the remainder for other minor offences.
In addition, five young girls were taken up and delivered to their
parents. The di\"ision commander reports further as to the Common:
"During the past two years I do not recall, nor can I find any officer
here who remembers, recei\-ing a complaint of crime of a serious
nature."
! 4S POLICE CO-MMISSIONER. [Jan.
10. The memoranda which I am making are incomplete, because
• I do not wL<h to repeat any part of my onginal letter to the mayor; I
j neither can I undertake to dispel all the false impressions which have i
! been created. The police department will continue to do the best •
i that it can for all citizens and sections, but it will not knowingly sac- f
rificc the rights of one for the sake of another, no matter what the f
political, social or sensational pressure which it may be compelled to >
withstand.
The ne.\t letter to his honor the mayor, resulting from the
c-au.-;e mentioned in the first paragraph, was as follows: —
JCLY 26. 1910.
Hon. JoHX F. FiTZGER.\LD, Mayor.
i Dehb Sir: — I received this n.oming by telephone, through your
1 secretary- and mine, a request that I confer with you at a time and
] place to be agreed upon. I need not say that our relations of per-
sonal courtesy and my regard for the dignity of your office are such
' that even though uninformed as to the subject of any conference
I which you might wish to hold I should attend without question and
1 at your convenience.
i I learn the purpose of the conference, however, from an official an-
I nouncement made in your behalf and printed in the morning papers.
The statement represents that you do '"not feel that there is any need
I of further controversy upon this subject, or that the notoriety given
I to the evil conditions on the Common is doing Boston an\- good."
I may be pardoned for saying that I regard my part of what has
\iccn made public in tliis relation as merely a performance of official
duty; and that the notoriety which has been brought upon the citj'
! is due to nothing which was either initiated or exploited by me.
' The statement made in your bclialf informs me further that vou
"will offer to make a special appropriation providing for as many
police officers as are needed for the proper protection of citizens upon
! the Common."
I I should be glad to accept any addition to the police force which
}'ou might authorize, for under section 13, chapter 291, .\cts of 1906
it is not a matter of appropriation but of af^roval by the maj-or, as
the following passage shows: —
Exct-pt as authorize*! by the mayor of said dty said commissioner shall
not appoint any greater number of patrolmen than the present board of
police of the .said city is now authorized to appoint.
I had .supposed from your letter of July 20, 1910, that the condition
of the finances of the city would not permit of an increased expenditure
for the police, but if your present view be different I shall \x glad to
1911.] PUBLIC DOCUMENT — No. 49. 49
lay before you the need of increased police protection in Dorchester,
which, in police divLsion 11, alone has a population of more than
100,000, with about 90 patrolmen for day and night duty; in West
lloxbury, covering one-third of the whole territory of the city, with
about GO patrolmen; in the adjoining part of Roxbury, with a numer-
ous population and many scmipublic institutions of great value and
importance; in Ea.st Boston, South Boston and Charlestown, which
are not only populous but include vast railroad, commercial and steam-
ship properties. I mention these sections in particular because I hear
constantly from their citizens and citizens' associations of the well-
founded need of more policemen. I have not mentioned certain parts
of the city proper which must be provided with police in the public
interest even though the inhabitants do not call for them. Neither
have I laid stress upon the many congested crossings now unprotected
which should have policemen not only for the comfort but for the
actual safety of the people; nor upon the needs of that part of the
city in which, especially at this time of the year, there are hundreds of
closed hou.'ses representing many millions of dollars in themselves and
in their contents, which are absolutely unguarded except bj' the police.
I beg to suggest that the proposed conference be deferred for such
short time as shall allow of a proper presentation by me and by the
citizens themselves of the needs of the different sections. Should it
then appear that other parts of the city maj' well wait, and that addi-
tional police for the Common is the paramount need, I shall be glad to
acquiesce.
Allow me to assure you that if, notwithstanding my suggestion, you
desire to see me without delay, I shall be at your ser\nce at any time
or place of which you shall give me reasonable notice.
Respectfully, Stephen 0'Me.\r.\,
Police Commissioner for the City of Boston.
On the receipt of a message by telephone on the same day
I met his honor at his office, and the result of the interview-
will be shown in a letter printed hereafter, under date of August
3. But in the meantime I received from the Civil Service
Commission the following letter and enclosure: —
Office of Civil Service Commission,
July 29. 1910.
Mr. Stephen' O'Meaiu, Police Commissions.
My De.*r Sir: — As stated to you in a conference held last week,
his honor the mayor of Boston, on July 11, 1910, requested authority
to appoint persons to do police duty in the public grounds of Boston.
The conimiHsion, pending further consideration of the law, granted
him, so far as it had any power to do so, authority to make emer-
gency appointments for ten days.
I'
50 rOLICE C0M:\IISSI0XER. [Jan.
Ii has tonday sent to him a letter upon the subject, a copy of which
I tike pleasure in enclosing for 3'our information.
Yea will notice that this commission expressly disclaims any desire
«r authority to pass upon the question which ha.s arisen between j-ou
KT^- the mayor as to the necessity or desirability of appointments; and
thU comrmssion has expressly disclaimed any power to confer authority
apoa any one to act as a police officer.
I have the honor to remain,
Yours verj' truly, Ca.\BLES Waurex,
Chairman.
[EXCLOSCRE.J
Office or Civn. Service Commiss'ox.
July 29, 1910.
HOQ. JOHX F. FITZGER.MJ), MoyoT.
DE.tR .^ib: — .\t a conference with you on Jolj* 11, 1910, upK>n your
siixeinent that there was urgent need for the appointment of piersons
lo do police duty on the public grounds of the city of Boston, this
fjOBiinissian granted you authority (so far as it had power to do so)
lo make ten-day emergency appointments under the Civil Service
Ki&s, pending consideration bj- the commissioa of the law affecting
lie ease.
Ursder Ci\"il Ser\-ice Rule 7, class 17, "watchmen, gatemen and
piartls in the public parks, . . . and all other persons doing {X)lice
■fay in the parks, public grounds, . . . and in all other public insti-
"sratxis, places and departments," are classified.
tTodtT CiitI Service Rule 7, class 14, "The regular and reserve police
iwccs ia .he city of Boston" are cl.issified.
It thiH appc.irs that ail persons doing pwlice duty, whether as reg-
ilar or special police, so constituted in accordance with the laws of
lie Commonwealth, or whether doing police diity in any other form
■siitn such duty is not purely incidental, are subject to the Ci\'il Ser-
Ti» La^ and Rules, and, therefore, can only be appointed in accord-
1Z/C& with .^=uch law and rules after requisition and certification from
lie d'l^Ae Usts of persons who have been competitively tested for
eaep&teticy, and who possess requisite qualiScations as to age, height,
■siEKfit, residence, etc., or after requisition and certification bj' the
dceamtftion in such other manner as the rules proAnde.
Accordingly, if you still dasire to make appointments of persons as
watchman or guards, or to do police dutj- in the public grounds of
Boston, a requisition should now be made by you, or by the head of
lie proper department in the city of Boston. Upon receipt of such
RqaEitHO the commission wiil certify from the eligible lists the proj)er
mmber "A name?, in accordance with the Civil Service Law and Rules;
aad from such names the appointing official may make as many ap-
p«(nUneDts as he, in his judgment, may deem necessarj'.
1911.] PUBLIC DOCUMENT — No. 49. 51
In making this decision upon j'our request of July 11, the Civil
Sen-ice Commission has considered only the law of the case and the
manner in which persons required for the duties desired shall be ap-
pointed in accordance with the law. It has not considered in any way
the question of the necessity of such appointments, and it expressly
disclaims any intention of passing judgment upon that question.
Moreover, in certifying names of persons eligible to perform police
duty, the Civil Service Commission expressly disclaims any assertion
of jwwer to confer authority upon any one to act as a police oflScer.
Its duty is to certifj' to heads of departments the names of persons
whose competency has been tested under Ci\Tl Ser\-ice Law, and who
are eligible for appointment by the proper officials. The powers which
such ehgibles will possess after appointment, and the manner in which
such powers are vested, are matters over which the Civil Ser%uce Com-
mission has no jurisrliction.
Very respectfully yours, Ch.vrles W.^rren,
ChaiTinan.
The letter written to his honor the mayor in consequence
of what had passed at the conference July 26 was as follows: —
Aco. 3, 1910.
Hon. JoHX F. FiTZGER.\LD, Mayor.
Dear Sir: — Because of a conversation held with your honor July
26 1 directed the commanding officers of the fifteen land divisions of
the police department to report to me, after careful consideration, the
number of additional patrolmen needed in their respective divisions.
They were informed that the inquiry had reference to a possible in-
crease in tiie number of patrolmen to be allowed to this department by
the mayor of Boston, under the authority vested in him by section 13,
chapter 291, Acts of 1906. Their reports in writing are now in my
hands, and I am forwarding herewith a summary which I have made.
It is for your honor to say whether or not the city of Boston can
afford to pay for these additional policemen or for any of them. Should
you authorize an increase it can be neither prevented nor limited by
anj- other authority. Not even the city council can interv'ene. No
question of a vote for an appropriation of money is involved, for under
the statute the expenses of the department are paid by the city on the
requisition of the Police Commissioner. But, on the other hand, the
city is protected by the provision that the mayor alone has the power
to authorize an increase in the number of patrolmen ; and without the
assent of the mayor the Police Commissioner can neither increase nor
diminish the salaries of members of the force.
I have been aware of the police needs hereinafter described, for they
have been pressed constantly upon me by citizens and associations,
but I have been aware, also, that the financial ability of the city wa-s
.-■_' I'OI.K K <()MM1SSI().\F.I;. .1:,::.
liiijiii-il. ai\'l \\v.\i in ;;11 iliji.ittiiicuts uf iis .~e!'vio'' tiic <iuc-.-iio:i v.:,- :;<.•
wiiut iiiiiilit Hi Ik; .-pint I'U" ii'iw iiiucli thu city could atTonl ■■• -;•■■::!.
I'l.r tii;ii rr;i-MU I iviii;'.i:i(-j -il':it until :i rccc::* .-uece.-iio:i ■ :' : •-
isiLi'li' it i]cci'>.-:i!y tl'.at I --iioii'l .-]K';ii<. In tluit .-■iecc'.->'io:"i I v.\;- ;ir.-i
c;i!!i-'l iipiiii lo ;i]'i;ioini fur -rvicc on the (.'onuiion. as .~]i.--eial ci'v jk.-
lic- :iir!!. tmtrainoil civilian- \vi,()-c a])p()intnirnl \v..>;iM liuv- ;••■:; l.o'ii
iii'-'ial anil unwi-c. and I I'f'l-'-d. Xcxt canic a.u al;'-r;:ati\'-' ■!■ :;;a;: 1
tiia; adviitional fcgular ijoliccnicn >lionld lie ::--:.:nid '■> ti..:" ]^:i':-,
and 1 a!i-\vci(d that tlu- commander of tiic division had a r'y/: ', .-o if)
a--i'jn tln-in if in hi.- jnd<_nn'-nt tiicv were- Ic.-- i.-cd^-d in ot!;'t par:- f'f
':..- di\i-ion: imt iliat no utlr-r divi.-i(<n could I"' -;rippi.-d for ";.'• j.'ir-
•.i',-'-. An off.i- of an incr<:i-r of five i-c'riilar ]> 'lii-cinen. on '•.-,:, .ii:ir,!i
•• ■:' i!ii-y lie <v][X to the f'o!!i:no:i. I n-fil>cd. 'K-cau-r- in'-n caT.;io" I'-?
:■■• i\cd into the di-paMliK!.; :rioi-tj;a'^ed to a particular u-'-. a:;-! 1k-
ea ;-.'. if tin- force wrre to !•'• iiicrersed. tiiere \va- far !norc n'-'.-l of tl:e
:.; .'. ,;.'-"i\ i.\ .nai;'. otncr p.;rT-- Oi 'Ik (i. v. v. .ia:i'T;2'''i i«j ^Ji•,'.. ;*.•.;-'?
::>-d- I pre.-int Thciu h'.rc'.vith in the form of the fol!ov.-i:!ir .-urjiman^
■ .f t!ir ri'iiiiM.-; (jf lifiee:i 'livi-ion CMininander-. ;.!1 of!ieer,-r of <:.--'-ai ex-
p. ::'-iice and nf eoinpleii.- k.'io'.vl.dirf of their :>-p'-c:ive divi-jr.;;-: —
1. To k"cp exi-tiirs rouTv.- filled, except for oriiinary ah-f-r.cf-.-; o:i
ac'-r,.int of .-ickn(-.-< or I'or fither Ia\vful rea.-on^. v.ouM refj'.jirc 1"; pa-
tr''!r.j' -1 in ailditioii to ']>•■ jire-c-nt force.
J. 'I'll keep exi-tinir ro\;:e. filled at all tit:.''-, making iiood .-uch
ah-'-r. fc-. would r;-riuire l-''^ patrolmen in adii:ion to th":' prf.=<-i;i
I' ''<'<'.
'■',. New route.- which ouL-ijt to he e.-ta!i!i.-hed in ordtr to 'iivide cx-
i-'in'.: route- iiou' tuo Ioul'. "r lKcau<e of incre:-(-! need of jirov-ction
for per.-nn- and pro]ii-i'iy :,:..! the cnffi'T-enient of the laws. v.'.-^Id r--
fx::i vi .-iiidiiional p.atroln.e!. if the route.< were to Ke .-ubir-ct to ordi-
tiar.v ali-ence-. or '.'!) a.diiiti'i:..-.! tiatiohm n if the route- were •<•> :>e k(-pt
iille 1 at all tiine.^.
1. .v. \v jio-t- at >treet c.''.--in'_'< wnuld refptin.- '.I additional ji.'iTol-
ni' ;: if they were to he >ti''JecT Ki or(!inar.\' ah.-enee^. or 11 addiiirinal
paMolnien if they were to I.'- kejit filled at all tin:e-.
The tot.il ninnher of additional iiatrolmen required to keep ".lie old
alid the new ;oute- and po-t- filled at all tilt;'- :- -o larfre tltal it l-
!!eec--:iiy to ili-:ni-- fiom further con-ideratio.u ihe Ik'JK' of -'-curir.:
-o mai;y. I turn, t hi-rel'or-'-, to the niimlx-r of additional men :jt-'-<i(-d
v.vhout attenijititm tf) .-ujiply the al-.-ences froiti day to day ea;i--(-'I hy
-i'-kiie-s, attendance ;it cf.urt. deaths in famihe-. vacations a:.'d the
ot.e rhiy oCf iti fifier^n me.de mandatory liy chaptrr r,Vi. Acts <•: lfi07.
■.\!.i'!i v.;i-: :iee'ijii',l 1 ly 'he '-Itv in your fornier adinitii-t.'-atior:. Vtscs-
ti'/U- in the <lep:;r;na-nt ap- n.ade |o extend at:nua!l.v ovt a r>'-r;0'! of
:i>:::ly -ix months in ordi-r 'ijal the i.umlicr of a'l-enti'-- a" a- y one
ti!:.e may l.e ;i- -Uiall as pO--ilile.
laL'im; the >malli-r nu:: '•> r-. wiiich <!o not ine'ude ti." :...\:.z of
1911.
PUBLIC DOCUMEXT — So. 49.
53
places of tcmporarj' absentees, the division commanders rejwrt that
additional men are needed as follows: —
To fill existing routes, 26
To establish new routes, ........ 8-4
To place men at iinguanlcd crossings where they are much needed, . 9
Total, 119
The financial a.spect of the proposed increase needs to be explained.
The pay of a man appointed to the police force is $2 a daj' for the
first year, S2.25 for the second year, and, unless sooner promoted to
be a regular patrolman it is not until his third year that he reaches
S2,50, which, according to the "City Record," was the rate at which
the proposed special policemen were to begin their service.
When new men arc needed for the force they are certified by the
Ci\nl .Ser\ice Commis.sion from the top of a long list of men who have
passed severe physical and mental examinations. The names of the
men certified are posted in all police stations for about ten days, in
order that anj-thing known against any of them by the police may be
reported. They are then summoned for personal inspection at head-
quarters and those selected are sworn in. For about two weeks they
are drilled and instructed in the daj-iime, and in the first half of the
night they patrol routes in company with experienced officers, who
continue the instruction. It will be seen that even the tested men
sent down by the Ci^nl Service Commission are not permitted to do
police work until after the lapse of about a month.
These facts are given because they bear directly on the question of
cost. If 15 men were appointed each month, beginning September 1,
at S2 a day, the incrca-sed expense to the end of the present fiscal year .
would be as follows : —
September, 1.5 men, .30 days,
October, 30 men, 31 d.aj-s,
November, 45 men, .'JO days,
December, 60 men, 31 days,
Januarj', 75 men, 31 days.
$900
1,860
2,700
3,720
4,650
Total S13,830
For the next fiscal j'car estimates would be made based upon the
existing strength of the force and any further additions which your
honor might authorize.
Here followed in full detail a statement of the particular
senices for which additional men were needed in the several
dixTsions; and the letter closed as follows: —
54 POLICE COMMISSIONER. [Jan.
I expect to submit to your honor in a few days certain recommenda-
tions within the power of the mayor and the city council to carrj' out,
which, if acted upon favorably by them, will a.«ist greatly in the con-
trol of the Common and other public grounds in so far as the police
department is concerned.
I am,
Re.<--pectfiilly yours, Stephen 0'Mear.\,
Police Commissioner of the Ciiij of Boston.
The rccommcndatioas promised were contained in the fol-
lowing letter:' —
AcG. 5, 1010.
Hon. John- F. Fitzgeu-vld, Mayor.
Dear .Sir: — In the public interest I beg to call to your attention
the following facts and conditions: —
The city paries are under the control of three commissioners, &p-
pointcd by the mayor. The Common, the Public Garden and the
other public grounds and sriuares are under the control of a superin-
tendent of public grounds, also appointed by the mayor.
Tho city parks on the one hand and the Common and other public
grounds on the other hand are open at all times to all persons, and
because the public grounds are nearer to the centers of population
they are used much more freely in proportion to their size.
.\s parks and grounds are alike owned and managed by the city,
and are used by the same persons for the same purposes, the rules
which govern them ought to be substantially the same, with a leaning,
in case of variance, to greater strictness in the more frequented places.
The exact reverse Is the case. The parks have rules designed for
the safety and comfort of the people and the preservation of property,
which represent the watchful experience of twenty-five years. The
Common and other public grounds have onlj- sections 66, 67 and 68,
chapter 47 of the ordinances, which overlook altogether many of the
most objectionable incidents of life in such places.
Here are certain illastrations: —
In the city parks it Is an offence punishable by fine to stand or lie
on a seat; on the Common it is not.
In the parks it is an offence to sleep on a seat or elsewhere; on
the Common it is not an offence to sleep on a seat or to sleep in any
other place except in so far as the sleeper might trespass on the grass.
In the parks it is an offence to drink intoxicating liquors; on the
Common it is not.
In the parks it Is an offence to be "under the influence" of intoxi-
cating liquor; en the Common it is only the general law as to actual
dnmkenness, applicable to all places, which is in effect.
In the parks it is an offence to "utter abusive or indecent language;"
1911.] PUBLIC DOCU^IENT — Xo. 49. 55
on the Common the language must be addressed to another person,
and must be "obscene or profane," in order to come under section 50,
chapter 47 of the ordinances, which applies to all public places. There
is a large opportunity for nastiness between profane or obscene lan-
guage addressed to another person and indecent language merely
uttered.
In the parks it is an offence to "annoy another;" the Common has
onlj- tlie general laws of assault, the use of profane or indecent language,
etc. Tliis distinction is more important than it may seem to be. A
man, for instance, might accost a woman in language that was neither
profane nor obscene, or might follow her from place to place without
speaking, and according to the laws applicable to the Common he
could not be punished unless his acts amounted to that vague offence
known as "disorderly conduct." Such actions in the parks would
be a breach of the rule which forbids him to "annoy another," and
would be legally punishable. Moreover, a policeman in uniform or
in plain clothes might well secure through his own observation evi-
dence of annoyance sufficient to con\-ict without the appearance of
the woman, as complainant or witness in court or elsewhere. On the
other hand, when the offence is the use of obscene language, as on
the Common, no prosecution is possible unless the policeman has
actually heard the language, which practically would never hapjsen,
or, the offender haA-ing been caught, the woman is willing to appear
against him and in open court repeat the vcrj' words which she accuses
him of having addressed to her.
The absurdity of the present situation becomes clear when it may
be truthfully said that a man at the easterly end of Commonwealth
Avenue, which is a part of the city parks, might be prosecuted for a
dozen different violations of wholesome rules, and yet by simply
crossing Arlington Street might commit in the Public Garden exactly
the same offences without a possibilitj' of legal punishment.
I beg to recommend that in the resfK?cts mentioned and in all others
which may be found desirable the ordinance governing the conduct
of persons on the common and other public grounds shall be so amended
as to confonn to the park rules. If the rules were those of a body
independent of the city I should hesitate to point to them as models
to be imitated, but as they have been established by a city commis-
sion for use in city parks there can be no offence.
I beg to call your attention further to the Lafayette Mall of the
Common. It b the westerly sidewalk of Trcmont Street, between
Park and Boylston streets; many subway exits and entrances open
upon it; and immense numbers of persons pass over it wholly or in
part without desire to linger. There are no scats on the mall and the jl
persons who idle upon it, especially near the Park and Boylston Street it
ends, are often an obstruction or worse; but unless they commit a
specific offence against the law their right to be in that place as a part j;
56 POLICE COMMISSIOXER. [Jan.
of the Common cannot be disputed. I recommend that the ordinance ij"
relative to obstructing sidewalks or loitering upon them, with an amend- i
ment which I shall presently explain, be so extended as to include the |l
Lafayette Mall. 'j
The ordinance in question is section 34 of chapter 47, and in so far ('
as it applies to the present ca.se it provides that: — ^'
\\
Xo person shall, in a street, wilfully, maliciously and wantonly obstruct .■•'
the free passage of foot travelers, nor shall any person in a street ... h''
wilfully, maliciously and wantonly saunter and loiter for more than five f:
minutes after being directed by a police officer to move on.
The words "wantonly" and "maliciously" were inserted in both
clauses of this ordinance in the year 1903, the amendments becoming
effective without the approval of Mayor Collins. The change prac-
tically put an end to prosecutions for such offences, for proof sufficient
for a court that the obstruction or the loitering was wanton and mali-
cious can rarely be produced. I believe that in the interest of the whole
city the ordinance should be restored to its original form, and so re-
stored it would be of great public service in the Lafayette Mall as well
as elsewhere. ' |
I ask attention also to the provision contained in section 66, chapter E
47 of the ordinances, that — 4
i
Xo person shall walk, stand or lie on the grass of anj- of the public grounds,
except in accordance with a permit from the maj-or.
I?
In consequence of customs wliich have long existed, it is impo.ssiblc j;
for the police either to enforce or not to enforce this ordinance without l\
arousing public criticism. Their strict duty would be to enforce it, ''
but on holidays, on the occasion of band concerts and numerous public
celebrations, and on warm summer nights the city practically invites
thousands of persons to go upon the grass. The police ought not to
be expected to discriminate on their own responsibility between times jt
and persons. It seems to me that cither the ordinance should be :i
amended to conform to the popular practice, or the practice ought to ij
be made to conform to the ordinance. I feel sure that if the city author- ■;
ities apply themselves to the question they will find a rea.=cnable
solution.
The police enforce the park rules in the parks not only by their \
presence but by means of hundreds of prosecutions yearly. They il
cannot enforce those rules on the Common and other public grounds j
for the simple reason that in tho.se places the rules do not exist. It is ;
not surpricing that the public, which knows and values the park rules !
and is not aware that they are without effect on the Common and i
other public grounds, should sometimes express indignation because of |
1
1911.] PUBLIC DOCmiENT — No. 49. 57
the supposed neglect of the police in the latter places. The police do
their duty if they have behind them laws or ordinances without which,
in any specific instance, the authority of a policeman is no greater than
that of any other citizen.
I am.
Respectfully yours, Stephen O'Meara,
Police Commissioner Jor the City of Boston.
The final letter in the series was as follows: —
Aug. S, 1910.
Stephex 0'Me.\ra, Esq., Police Commissioner.
Dear Sir: — I beg to acknowledge receipt of j-our letters, dated
August 3 and 5 resf>ec lively, containing a statement of the increase
required in the number of police officers of this city as estimated by
your captains of di\nsion, and an outline of proposed changes in the
ordinances and in the rules and regulations governing the public
grounds, which, in j-our opinion, will tend to relieve the unfortunate
conditions existing on the Common. These letters present two phases
of the same subject which, in the interest of clearness, it seems better
to keep distinct.
Your communication of August 5, analj'zing the distinctions which
now exist between the rules governing parks and those governing public
grounds, contains an implied recognition of the evih to which your
attention has been repeatedly called, not only in my letters addressed
to j'ou upon the subject, but in articles published in the press. It is
the first admission by you, though not a direct one, of facts now gen-
erally understood, and in that respect it marks a forward step in this
discussion. As such I have transmitted it to the city council, which
must take action if the ordinances are to be amended.
Some of your recommendations, if vigorouslj' applied by an adequate
detail of officers, seem io me to promise substantial improvement, and
you are to be congratulated upon the thought and care which you have
ob%iously expended upon this aspect of the question. I am still, how-
ever, of the opinion that 2 officers cannot, under any set of rules and
regulations, properly control the disorderly elements on so central a
park as Boston Common. The argument in j-our letter that the more
frequented parks require more stringent rather than less stringent
rules involves the parallel conclusion that they require at the same
time a larger detail of police. ' :-"'^
My only object in calling attention to these conditions has been to
protect the public. WTiether this is accomplished by the proper en-
forcement of existing laws or by the passage of more stringent ordi-
nances and park regulations is a matter of indilTerence to me. The
agitation will have ser\ed its purpose if respectable people ha%-ing busi-
5S POLICE COMMISSIONER. [Jan.
ncss on the Commoa, or even a mere desire to \nsit this famoas spot,
can do so in the future without being subjected to insult and homili-
ation.
-Vs to the proposed increase in the number of patrolmen, it is not
clear whether you aetually recommend this addition to your force,
though I assume that if I were to accept my share of the responability
your approval wouW not be lacking. With this ambiguity in your
letter I did not feel Bke presenting so important a question to the city
council on the eve d the declaration of the tax rate. Now that the
tax rate has been <k«Lired it becomes of course impossible to increase
the appropriation of yoor department, unless this should be dace by
a loan order or by a transfer from the reser\-e fund, both of which
would be contrary to all precedent and clearly improper. The city
cannot borrow money to pay current expenses, nor can the resert'e
fund be used to creaJe a large permanent increase in the appropriation ■
of any department. j
If the estimates of yoor di\"ision commanders are to be accepted, the i
amount of this increise may be readily calculated. You state that if j
15 officers were added each month to the end of the present fiscal year, |
making 7.5 in aU, the increased expense would be 813,8-30; but as all '
of these new officas would undoubtedly be retained as permanent (
members of the force, and the logic of your position would require that ;
the 44 remaining oSeers, ceccssarj- to complete the estimated total of 1
119, should be subeeqoently employed, the ultimate annual cost to I
the city of all these patrolmen, at their maximum salary of 81,200 per |
year, would be 8142,.*00. It is fair to inquire whether the city should }
undertake to augnaemt its present police force at so heavy an expense
until every measure for the development of efficiency with the present
numbers has been eoiansted. ,
I regret to observe that in the report submitted to you bj' the cap- i;
tain of Station 4 do mention is made of the Common. I trust that I
this docs not indicate that he b satisfied with the deplorable coodition f.
there, but shall look forward to co-operation on his part in our efforts
to rid this territory of the undesirable elements which seem to hare
made it their daytsnic resort and midnight camping ground.
Respectfully, Jonx F. FitzgeraU),
ilsyoT.
It 13 proper to a»ld that with this letter the agitation, which
in proportion to its origin was the most extraordinarj- that I
have ever known in Boston, came to an end.
The method of policing the Common and other public grounds
has not been chamied in plan or in the number of policemen
assigned to the doty.
In the period of more than four months which has since
[•
1911.] PUBLIC DOCUMENT — No. 49. 59
elapsed, no complaint as to conditions in those places has j
been received by the Police Commissioner from any source, 1
and neither complaint nor comment has appeared in any news- '-,
paper that I have seen. The people in this community who
were stirred to excitement ha\e turned to other affairs, but - *
throughout the country a vague remembrance of the discredit ;
that was brought upon the city of Boston doubtless continues ;
to exist. •!
No additional patrolmen have been allowed to the police \
department, and the city council has taken no action on the
Police Commissioner's recommendation that the rules of the ,
city parks be extended to the city's public grounds.
A single question of great importance, which was an out-
growth of the discussion, is explained in the matter which fol- ',
lows. i
FiX.VNCLVL ReLVTIONS OF THK CrXT OF BoSTON AND THE ';
POUCE DEP.VBTirENT.
In consequence of public statements pre\-iously made I :"
addressed the following letter to his honor the mayor: — ;
Nor. 28. 1910. ;
Hon. JoHX F. FiTZGER.^U), Mayor.
Dear Sib: — The daily newspapers of August 5, 1910, quoted your
honor as having said that the corporation counsel had informed you
orally that under chapter 4S6, Acts of 1909, the "charter act," so called,
the method by which means for the pa3Tnent of the expenses of the ^
police department were to be pro\ided by the city of Boston had been ;
changed, and that you exi)ected from him a written confirmation of |
his opinion. For twenty-fire years, as you are aware, the statutes ?
have provided that the money needed for the police department shall be j
secured through requisition by the board or the commissioner charged ■
with its control. But the opinion of the corporation counsel was said '
to have been to the effect that the charter act had so changed the re- j
lations of the pwlice department to the city as to limit the Police Com- -5
missioner to those appropriations which the mayor and the city council 1
should see fit to make, and to subject the commissioner to penalties \
of fine and imprisonment if the exj»enditurcs authorized by him ex- ;|
ceeded the siuns appropriated. ,«
As the police appropriation for the fiscal year 1910-11 was much 3
smaller than the sum for which requisition was made, it now becomes j
clear that a deficiency will arise; and thus the question becomes of • J
immediate importance. As a plain business precaution, therefore, I i
60 POLICE COMMISSIOXER. [Jan.
feci obliged to inquire of j'our honor whether or not the corporation
counsel has given orallT such an opinion as that attributed to him,
and if so whether or not he has since submitted a \mtten statement
on the subject, a copy of which may be furnished to me.
Respectful!}-, Stephen 0'Mear.\,
Police Commissioner for the City of Boston.
In response to this letter the following reply with enclosure
was received: —
Xov. 29, 1910.
Stephen 0'Meah.\, Esq., Police Commissioner.
Deau Sir: — Your letter of Xovember 28, referring to an opinion
of the corporation courisd and a letter confirming the same, is hereby
acknowledged. I htg to enclose i. copy of a letter from Mr. Babson,
under date of Augu-ft 4, -K-hieh is undoubtedly the document which
you have in mind. Wh3e Mr. Babson is abundantly able to make
clear his o^ti meanLiji, I may add that a reason for not providing for
additional patrolmfrti hy iLc exercise of the power of transfer from the
reser\-e fund is that the additions would probably be permanent, and
would entail a coniinuing expenditure extending over a series of years.
The power of tran.-3'er is e-videnfly an emergency one, since it is given
to two executive officers and not surrounded with the checks and safe-
guards attached to th» piower of ordinary appropriation.
Since the additional appointments which were under discussion at
the time that Mr. Babeorj's opinion was rendered have not been made,
it is fair to assume thiat tlic deficit which you anticipate is for ordinary
expenditures. Under these circumstances I am quite ready to au-
thorize the city auditor to make a proper transfer from the reser\-e
fund to your department. Will you kindly g?ve me your estimate of
the amount which yoa expect you \vill need?
Youis verj' truly, John F. Fitzger.\U),
Mayor.
[Encloscre.]
Law DEPAnTiiEXT, Boston, .-Vug. 4, 1910.
Hon. John' F. Fitzgee.ud, Mayor.
Dear Sir: — In PoUce Commissioner O'Meara's letter occurs the
sentence "Should you ainhorize an increase in the police force it can
be neither preventc<J rior limited by any other authority."
This statement, altiiouzh correct, is practically incorrect. By stat-
ute the city of Boston is to pay the expenses of the police department,
including the salaries of tLc police. .\s money for this purpose cannot
be raised by loan, the expenses of the police department must be paid
by annual appropriations out of the tax le\'>'. In accordance with the
law the Police Commisioaer, on Jan. S, 1910, sent to Mr. Hibbard, the
then mayor, a statement of his estimates of the total amount required
1911.] PUBLIC DOCUMENT — No. 49. 61
for the police department for the fiscal j-ear, the estimate being S2,219,-
202.51, and on the same date, in compliance with section 8 of chapter
291 of the Acts of the 3'ear 1903, made a requisition on the city council
for said sum of 52,219,202.51 to par the expenses of the police depart-
ment for the coming year. I am i:;formed that Mr. O'Meara appeared
before the committee of the city council and stated in substance that
this estimate and requisition were based on what would be required if
the maximum number of policemfia were employed during the whole
year; that as a matter of fact there were always vacancies from deaths,
resignations, etc., and that at least 5 of the policemen were paid for
by the board of health, so that the wbole amount would not be required,
and with his apparent approval and acquiescence the appropriation
for the police department for the fiscal year was fked at 82,145,000.
No mention was made at the time rten the Police Commissioner made
his requisition in accordance with the statute of any contemplated in-
crease in the force.
Unless an additional appropriation is made by the city council for
the {X)lice department the appointment of any considerable number of
policemen would cause a deficiency in the police appropriation, so that
practically action by the city coondl in making a sufficient appropria-
tion is as necessary for the appointment of additional police as is the
concurrent action of the Police Commissioner and your honor in au-
thorizing an increase in the force.
The amendments to the city charter proN-ide a penalty of imprison-
ment for not more than one year or a fine of not more than 81,000,
or both, for any official who expends intentionally in any fiscal year
any sum in e.\cess of the appropriations duly made in accordance with
law.
The appropriations for the year have been made, the city council
has adjourned, the tax rate has been fixed in accordance with the ap>-
propriations, and it is now too late to make an appropriation for the
poUce department sufficient to cover the additional expense involved
in the cmplojonent of additional police. It would seem as though the
Police Commissioner had intentionaDy delayed making this suggestion
for an increase until the present time, when practically it is too late to
pro\-ide for the paj-ment of thee officers. If this proposed increase in
the number of officers had not be«i an afterthought, resulting from
the correspondence with j-our honor, the Police Commissioner would,
in accordance with the statute, have sent in his requisition for the in-
creased appropriation to the dty council long before this time.
Yours respectfully, Thomas M. Babsox,
Corporation Counsel.
The corporation counsel was misinformed as to the statement
made to the committee of the dty council by the commissioner.
He stated that if half the proposed reduction in the depart-
i
62 POLICE CO-ABIISSIOXER. [Jan.
ment estimates were made the appropriation would be a safe
one; but the whole proposed reduction was made.
The corporation ctjimsel could not have been aware that
the tax rate, supposed to have been fixed at the time of his
writing, August 4, was not legally and finally declared until
Axigust S. Neither coald he have foreseen that four days
after the date of his letter appropriations of $50,000 for the
City Hospital and $100,000 for a new ferry boat would have
been made.
The corporation ctjunsel, moreover, went far outside the
limits of a legal opinion addresser] officially to his superior
when he wrote this sentence: "It would seem as though the
Police Commissioner had intentionally delayed making this
suggestion for an increase until the present time, when prac-
tically it is too late to p^o^^de for the pajTnent of these officers."
He could not have understood that the situation had been
createtl by persons other than the c-ommissioner, or that the
suggestion for an increase had been made in response to an
in\ntation from the mayor given but eight days before.
The following letters were sent to his honor the mayor and
tlie .\ttorney-Genera]: —
Dec. 2. 1910.
Hon. JoH.v F. FiTZGEOALD, Mayor.
Dear Sir: — I beg to acknowledge receipt of }-our letter of Novem-
ber 29 vsith copy of a cooununicatioa uader date of Aug. 4, 1910,
signed bj' the corporation counsel. \
VXTien a closer estimate of the probable deficit for the fiscal year can j
be made I will furnish it lo you; but for your present information, as \
affecting the general financial arrangements of the city, I may saj- that '|
it will probably not cMccd S7,000. '•
I feel compelled to say that neither in your letter of November 29 |
nor in that of the corporation counsel do I find a definite answer to |
the question which was raised in the reputed newspaper inter\-iews to
which I alluded in my letter of November 2S, and is again suggested
in the communication of the corporation counsel. Deficits, tax le%T€S,
and appropriations as discussed by him an? of particular interest from
year to year; but it is a matter of \ital acd continuing importance to
determine whether or not the "charter act" changed the financial re-
lations of the city of Bostcm and the police department from the status
established and maintained by all prc\'ious statutes on the subject for
twenty-five years.
1911.] PUBLIC DOCmiENT — No. 49. . 63
As a means of assisting in the determination of that question I re-
quest that your honor will obtain from the corporation counsel an
opinion, of which I shall be glad to have a copj-, on the following
points: — '■ »
1. Is the Police Commissioner for the citj' of Boston empowered by
law to make requisition upon the city of Boston for all expenses for
the maintenance of buildings, the pay of the police, clerks, stenog-
raphers and other cmploj-ees, and all incidental e.vpenses incurred in
the performance of the duties of said commissioner, or in the adminis-
tration of said police, without regard to the amount of money pre\-i-
ously appropriated by the citj' council?
2. Is the Police Commissioner an "official of said city" within the
meaning of section 16 of chapter 4S6 of the Acta of the j-ear 1909?
3. Must the requisitions of the Police Commissioner for the mainte-
nance of the police department be made annually upon estimates of
the probable cost of the department; or may they be made by him
from time to time to meet expenses incurred; estimates submitted by
him prior to the begiiming of each fiscal year being regarded as reason-
able notice to the city and not as any limitation upon his right of requi-
sition?
Respectfully, Stephen 0''Mear.\,
Police Commissioner for the City of Boston.
Dec. 2, 1910.
Hon. D.\XA ^L\LO^•E, Attorney-General.
Sin: — The authorities of the city of Boston having so expressed
themselves as to rai.se a doubt concerning the relations at present ex-
isting between the city and the Police Commissioner in the matter of
expenditures for the maintenance of the police department, I respect-
fully request from you an opinion thereon. Such relations were un-
disputed for many years, but it is now suggested, if not j-et actually
asserted, by the city authorities that chapter 4S6, Acts of 1909, took
from the Police Commissioner rights heretofore exercised by him
which past Lcgi.'^latures have regarded as vital to the independent ex-
istence of the police department. The doubts which have been raised
arc expressed in the following questions, and as the estimates for the
next fiscal year are now required, it is of vital importance that I should
be authoritatively advised: —
Here followed in identical form the three questions included
in the letter to his honor the mayor, with the signature of the
commissioner.
December 9 I received the following reply from the Attor-
ney-General: —
I
64 POLICE CO^DIISSIOXER. [Jan.
Thz CoieVOXTTXALTB OF JIassachcsetts.
Department of the Attornet-Gexeral,
Bosio.v. Dec S, I'JlO.
Mr. .Stephen" 0'Meab.v, Police Commissioner.
De.\k Sir: — You prerent certain questions for my consideration in
rdation to the effect of St. 1909, c. 4S6, establishing a charter for the
crry of Boston, upon several statutes under which you act, and par-
tifularly in relation to j'our right to make requisition upon the citj' of
B-vston for the expenses of your department.
The board of jwlice for the city of Boston was first established by
St. I&S5, c. 3'23, which pro\ided in section 4 that "the said city of
Eceton shall pro\"ide all such suitable accommodations for the police
of said city as said board shall require, and all buildings and property
uaed by said police shaU be under the control of said board. .\11 ex-
I>a5=e for the maintenance of buildings, the pay of the police and all
incidental exp)enscs incurred in the administration of the said police
sbafl be paid by the said city of Boston up>on the requisition of said i,
board." Section 5 pro\Tded that, — jj-
(!'
Said board of police shall not appoint any larger number of patrolmen
ttin the present police commissioners of .said city are now authorized to
appoint, except as authorized by said city, nor shall the pay of the police
be increased or diminished except by the concurrent action of said city
aod said board of police.
Said section 4 was re-enacted in St. 1906, c. 291, an act providing
for the appointment of a Licensing Board and a Police Commissioner
of the city of Boston, in the last paragraph of section 8, which is as
fo3ow3: —
,\n expenses for the maintenance of buildings, the pay of the police,
c'lfAs, stenographers and other employees, and all incidental expenses
inrmred in the performance of the duties of said commissioner or in the
adc:iinistration of said police, shall be paid by the city of Boston upon the
requisition of said police commissioner.
Your own quarters and salary are provided for in the first paragraph
of section S, " the expense of which shall be paid by the city of Boston."
It H clear, therefore, that, at least until the enactment of St. 1909,
c. 456, you were authorized to make requisition upon the city of Boston
for an expenses legally incurred by you in connection with the conduct
of your department.
Your specific questions, which are hereinafter quoted, request my
opcnion upon the question whether or not St. 1909, c. 4S6, works any
cbar.ge in •his respect.
1, Is the Police Commissioner for the city of Boston empowered bj' law
to tcake requisition upon the city of Boston for all e.-qx'nses for the main-
1911.] PUBLIC DOCUMENT — No. 49. 65
tenancc of buildings, the pay of the police, clerks, stenographers and other
employees, and all incidental expenses incurred in the performance of the
duties of said commissioner, or in the administration of said police, T\-ith-
out regard to the amount of money previously appropriated by the city
council?
The Police Commissioner of the citj' of Boston is an oflScer appointed
directly by the Governor, and while the city of Boston is responsible
for the expenses of his department and for his salai-y, he is a State
officer, and is not in any way subject to the authority of the city of
Boston. If the Police Commissioner were limited to the amount ap-
propriated by the city of Boston he would be subject to and not inde-
pendent of the authority of that citj' with respect to the management
of his department. I am, therefore, of the opinion that the commis-
sioner may make requisition upon the city of Boston for all the gen-
eral expenses of his department, notwithstanding that there may be
no specific appropriation from which they may be paid. See Batch-
elder r. Salem, 4 Cu-sh. 599; City of Charlestown r. Gardner, 9S Mass.
5S7, where, at page 5S9, the court said: —
The power ^ven to the school committee to contract with teachers
necessarily implies and includes the power to determine their salaries.
And in so doing they are not restricted to the amount appropriated for
the purpose by the city council. The price to be paid is as much a part
of the contract as the individual who is to teach or the school which is to
be taught. The selection of a teacher depends verj* much upon the amount
of compensation which can be offered to him. If the city council could
establish the salary, it could thereby greatly narrow the range of choice,
or even indirectly prevent the possibility of obtaining any suitable in-
structors.
2. Is the Police Commissioner an "official of said city" within the
meaning of section 16 of chapter 486 of the Acts of the year 1909?
Section 16, to which j'ou refer, is as follows: —
No official of said city, except in case of e.vtreme emergency invoUnng
the health or safety of the people or their property, shall expend inten-
tionally in any fiscal year any sum in excess of the appropriations duly
made in accordance with law, nor involve the city in any contract for the
future payment of money in excess of such appropriation, except as pro-
vided in section six of this act. .\ny official who shall folate the pro-
visions of this section shall be punished by imprisonment for not more
than one year, or by a fine of not more than one thousand dollars, or both.
In ray opinion the Police Commissioner is not an official of the city
of Boston, within the meaning of that section.
3. Must the requisitions of the Police Commissioner for the main-
tenance of the police department be made annually upon estimates of
^' /' 66 POLICE COiDIISSIOXER. [Jan.
the probable cost of the dcpartmenl, wr may they be made by him from •
time to time to meet the expenses me.'ozmd; estimates submitted by him •
prior to the beginning of each fiscsJ year being regarded as reasonable '
notice to the city and not as anv Eis£tt£tSon upon his right of rcqaisition? ■
i
There seems to be no statutory smborrty requiiing the commis- }
sioner to make estimates of the piK>&cJ>le cost of his department, and
it is doubtful if he can be legally iwrjobwl to do so; nevertheless, the
city of Boston is entitled, in fairDcss, lo a statement from him as to
the probable expenses of his departmttBi, iii order to pro\'ide the ncces-
sarj' appropriation and to estaHJilii Jhe ra.te of taxation, but such
estimates are to be regarded as a '^reasoiiable notice to the city" I
rather than as a limitation upwn las right to make requL^tion for
furtlier sums should the proper adoDiEiitraLion of his department or
any unforeseen but necessarj- exptodhares require further funds.
Vcr\- trd!T Toars, Daxa ^Lvlont,
Atlomcy-Gencral. ' .
December 2S I received fro-n Kis honor the mayor a copy
of the -opinion of the coqx)rati.-jtn counsel, as follows: —
L»-»- I>zp.um«EXT, Dec. 2S. 1910.
Hon. JoHX F. Fitzgerald, Mayor.
Dear Sir: — My opinion has beem requested by your honor and the
Police Commissioner on the foUoitia^ qoestions: —
1. Is the Police Commissioner for dLe eity of Boston empo-nrcred by
law to make requisition upon the Gty (A Eosloa for aJl expenses for the
maintenance of buildings, the pay tA slse p»>Cce, dcrts, stenographers
and other emploj-ees, and all incideatia! expenses inccrred in the perform-
ance of the duties of said commisa«aw, vr ia the administration of said
police without regard to the amouiil tA Eiooey previocsJy appropriated
by the city council?
In my opinion be \~. The only IBisitatkin upon his authority to
make such requisition is that he shall ucA appoint any greater nimiber
i of patrolmen or increa.se their pay ezeepl with the concurrent action
i of the mayor and Police CommisaMjer.
2. Is the Police Commissioner an "offidal of the city" within the mean-
ing of section IG of chapter 456 of ibe Aets of the year 1909?
The Police Commis.sioaer is not aos ■^ official of the dty"' in the ordi-
narj- signification of the words. TTL* «wrt, ho-arever, might consider,
as far as the expenditure of money aijipnipriated ms concerned, that
while he was expending it he was sraeai an o>£cial, but considering the
act creatmg the office, the only pan tA iecttoQ 16 which could possibly
1911.] PUBLIC DOCUMENT — No. 49. 67
apply to him would be as to his deliberately making a contract for the
future pajTnent of money in excess of the appropriations made upon
his requisition. Even this is somewhat doubtful.
3. Must the requisition of the Police Cormnissioner for the maintenance
of the police department be made annually upon estimates of the probable
cost of the department, or may they be made by him from time to time
to meet expenses incurred; estimates submitted by him prior to the be-
ginning of each fiscal year being regarded as reasonable notice to the city
and not as any Umitation upon his right of requisition?
In my opinion the requisitions of the Police Commissioner for the
maintenance of the police department may be made by him from time
to time to meet expenses to be incurred. In other words, if the ques-
tion was amended so that the words "to be" shotild be inserted be-
tween "expenses" and "incurred" mj- answer to this question would
be in favor of the power of the Police Commissioner.
I do not think that, except in exceptional instances, the Police Com-
missioner should incur the expenses first and make the requisition
afterwards. I think he should make the requisition and then incur
the ex-penses. The expenses so inctirred the city would have to pay
under the statute.
^^^len I use the word "requisition" in my answers to the first and
third questions I mean the requisition of the Police Commissioner to
the city government which usually accompanies the estimate. I do
not mean the request to the city auditor to draw a draft on the city
treasurj' for the paj-ment of bills approved by the Police Commissioner
and to be paid out of the police appropriation.
Yours respectfully, Thomas M. Babson",
Corporation Counsel.
It thus appears from the concurring opinions of the Attor-
ney-General and the corporation counsel that the fears of the
latter, as expressed August 1 in his letter to his honor the
mayor and by his honor made public, are unfounded; and
that the financial relations of the city and the police depart-
ment continue as established long ago by the Legislature,
notwithstanding the passage of the "charter act."
Law the Only True Basis of Police Action.
Within the year I had occasion to make to the public the
following statement: —
The steady purpose of this department is that policemen, above
all persons, shall respect the law; and if the time ever comes when, by
6S POLICE COiDIISSIOXER. [Jan.
order or encouragement from their s-jperiors or in response to special
agitation, the police assume authority -which the law does not give to
them, and thus themselves become law breakers, the people of Boston
vrill be the sufferers. Boston newsjwpers, as well as those of New
York, are constantly praising Mayor Gaxiior of that city for his at-
tempts to bring its police back to the solid basis of law; and j-et some
of the same Boston newspajjers, and doubtless many citizens, criticize
at this time the Police Commissioner of Boston as narrow and tech-
nical because he has insisted steadily a.id still insists that the police
for whom he is responsible sliall follow the law at aU times, not their
own impulses.
I regard the strict observance of the laws as tlie most impor-
tant lesson to be impressed upon the polic-e of any city. Their
authority is no more than that of a private citizen except in
so far as such authority is conferred upon them specifically
by the laws. Therefore, to the police in their official acts the
laws should stand as paramount to all other powers or influ-
ences. The temptation to break the laws or to go outside of
them for the sake of securing what may appear at the time to
be an advantage to the community" should always be resisted.
If the people of Boston were as well educated on this point as
are their police, the police would have fewer calls to "clean out"
this or to "suppress" that when neither can lawfully be done.
Xo man without police experience can know the frequency
with which citizens demand of polic-emen action which the
laws do not permit them to take. The spirit of "lynch law"
seems to be in all classes of citizens, and to manifest itself in
indi\'iduals whenever their own profits or comforts are jeop- ■
artlized.
Obetlience to law, with the iLse of none but lawful methwLs, !
is the rule of action in the Boston police department; but 5
some of the large cities of the L'nitcl States have not yet !
leamerl that rule. A magazine article lately published describes j
with praise the lawless practices, for ostensibly useful purposes, • |
of the police of a western city, conc-eming which it exclaims: — I
At no stage a legal proceeding; it was police work, through and ]
through. If you look long and hard er.ough at this subject the con- }
tradiction between legal and police mt-thods becomes sublime! I
!
1
1911.1 PUBLIC DOCmiENT — No. 49. 69
Respectfully submitted,
STEPHEN O'MEARA,
Police Commissioner for the City of Boston.
It is natural that a writer wn'th such a notion of police duty,
in a countrj' supposed to be governed by law, should describe ,;^-
as "archaic" the Boston belief that the police should never I
themselves become law breakers, even to gain advantage over -^
a criminal. Part of the "sublime contradiction" between legal |
and police methods in the city which had won the magazine
writer's admiration was the police "permission" to saloon keep-
ers to do business on Sunday contrary to law, if they would
use only their side doors; and to keepers of disorderly houses
to carry on their operations in localities indicated by the police. ;
In another western city the situation was such that the maga-
zine writer commended the police authorities for wiping out )
the "State-made blue laws," and allowing all saloons and thea- j I
ters to be open on Sunday; with, of course, the customary
free areas for disorderly houses.
The time will come when the people of such cities, weary of
the x-iolence and corruption which surely accompany police
lawlessness, will try to struggle back to the solid basis of law
which is the rule of the Boston police.
POLICE COMMISSIOXER.
[Jan.
THE DEPARTMENT.
The police department is at present constituted as follows: —
Police Commissioner. Secretarj-. 2
The Police Force.
Superintendent,
Deputy superintendents,
Chief inspector,
Captains,
Inspectors,
Insjjector of carriages (lieu
tenant).
1
3
1
23
30
Deutenants,
Sergeants,
Patrolmen,
Reser\-e men,
Total,
38
86
1.183
110
1,476
Director,
Assistant director.
Foreman,
Signalmen,
ilechanics,
Signal Serricc.
Linemen,
Driver, .
Total,
20
Clerks, . . . .
Stenographers,
Messengers,
Matrons of house of deten-
tion, . . . .
Matrons of station houses.
Firemen on police steamers,
Van drivers.
Foreman of stable, .
Employees of the Department.
13
Hostlers,
3 Assistant steward of city
3 prison.
Janitors,
5 Janitresses. . . _ .
7 ■ Telephone operators,
2 I Total,
13
1
16
12
3
87
Recapiiulation.
Police Commissioner and secretarj',
Police force, . . . . .
Signal service, . . . . .
Employees, . . . . .
Grand total.
2
1,476
20
87
1,585
1911.]
PUBLIC DOCUMENT — No. 49.
71
Distribution' .\xd Changes.
The distribution of the force is shown by Table I. During
the year 91 patrolmen were promoted from the reserve men,
1 patrolman was reappointed and 84; reserve men were
appointed; G patrolmen and 1 reserve man discharged; 6
patrolmen and 3 reserve men resigned; 1 captain, 1 inspector
and 17 patrolmen retired on pension; 1 captain, 2 sergeants
and 10 patrolmen died. (See Tables III., IV., V., VI.)
Police Officers injured while ox Duty.
The following statement shows the number of police officers
injured while on duty during the past year, the number of
duties lost by them on account thereof and the causes of the
injuries : —
Ho* IsjrnEO.
In arresting prisoners, .
In pursuing criminals, .
By stopping runaways, .
By cars and other vehicles at crossings,
Various other causes, .
Totals, . . .
Number of
Men injured.
24
12
3
6
39
84
Number of
Duties lost.
292
590
56
42
1,216
2,196
. I
Work of the Dep.vrtment.
Arrests.
The total number of persons arrested, counting each arrest
as that of a separate person, was 71,201, against 71,512 the
preceding year, being a decrease of 311. The percentage of
increase and decrease was as follows: —
Per Cent.
Offences against the person, Increase, 5.38
Offences against property, committed with violence, Decrease, 8.76
Offences against property, committed without vio-
lence, Decrease, 5.26
Decrease, 22.15
Decrease, 2.81
Decrease, 30.81
Decrease, 7.16
Increase, .23
Malicious offences against property,
Forgery and offences against the currency.
Offences against the license laws,
Offences against chastity, morality, etc..
Offences not included in the foregoing, .
POLICE CO:\i:\IISSIONER.
[Jan.
There were 'tjDOl persons arrested on warrants and 5S,461
•vrithout warrants; 6,779 persons were summoned by the court;
6S,79S persons urere held for trial and 2,403 were released from
custody. The nuraber of males arrested was 64,503 ; of females,
6,69S; of foreigners. 32,050, or approximately 45.85 per cent.;
of minors, 7,Gj3. Of the total number arrested, 28,2.33, or
39.G5 per cent., were nonresidents. (See Tables X., XI.)
The nativity of the prisoners was as follows: —
United States,
3S,o51
Wales, .
25
British Pro\-iiices, .
5,023
East Indies,
7
Ireland,
14,617
West Indies,
82
England,
1,759
Turkey,
90
France,
123
South Americr
.,
14
Germany,
4SS
Switzerland,
25
Italy, .
2,504
Belgium,
69
Russia, .
2,672
Armenia,
10
China, .
403
Africa, .
S
Greece, .
277
Hungar}-,
15
Sweden,
1,13S
Asia,
3
Scotland,
960
Arabia, .
1
Spain, .
42
Mexico,
8
Norway,
39S
Japan, .
11
Poland,
4S9
SjTia, .
102
Australia,
28
Roumania,
1
Austria,
ISO
Iceland,
2
Portugal,
115
Bavaria,
2
Finland,
249
India, .
3
Denmark,
S4
Holland,
23
Total,
. 71,201
The number of arrests for the year is 71,201, being a decrease
of 311 from last year, and 7,033 more than the average for
the past five years. There were 47,732 persons arrested for
drunkenness, being 2,411 more than last year, and 6,.5S4 more
than the average for the past five years. Of the arrests for
drunkenness this year, there was an increase of 6.06 per cent,
in males and a decrease of 1.73 per cent, in females from last
year. (See Tabks XI., XIII.)
Of the total number of arrests for the year (71,201), 576
were for violations of the city ordinances; that is to say, 1
arrest in 123 wai, for such ofl'ence, or .80 per cent.
Fifty-five and twenty onc-hundredths per cent, of the per-
1911.] PUBLIC DOCUMENT — No. 49. • 73
sons taken into custody were between the ages of .twenty and
forty. (See Table XII.)
The number of persons puni.shed by fines was 14,949, and
the fines amounted to $138,140.61. (See Table XIII.)
One hundred and forty persons were committed to the State
Prison, 6,417 to the House of Correction, 12.5 to the Women's
Prison, 211 to the Reformatory Prison and 2,640 to other
institutions. The total years of imprisonment were 3,841 -j 2 ;
the total number days' attendance in court by oflScers was
44,922; and the witness fees earned by them amounted to
§11,927.60.
The value of property taken from prisoners and lodgers was
8115,136.06.
Seventy-^ight witnesses were detained at station houses;
17 were accommodated with lodgings, — a decrease of IS from
last year. There was a decrease of 4.93 per cent, from last
year in the number of insane persons taken in charge, an in-
crease of about 4.73 per cent, in the number of sick and injured
persons assisted, and an increase of about 2.&4 per cent, in
the number of lost children cared for.
The average amount of property reported stolen in the city
for the five years from 1906 to 1910, inclusive, was $152,654.20;
in 1910 it was $176,519.27, or $23,864.93 more than the aver-
age. The amount of property stolen in and out of the city,
which was recovered by the Boston police, was $354,466.73,
as against $242,549.84 last year, or $111,916.89 more.
The average amount of fines imposed by courts for the five
years from 1906 to 1910, inclusive, was $133,959.79; in 1910
it was $138,140.61, or $4,180.82 more than the average.
The average number of days' attendance in court was
41,845; in 1910 it was 44,922, or 3,077 more than the average.
The average amount of witness fees earned was $12,129.42;
in 1910 it was $11,927.60, or $201.82 less than the average.
(See Table XIII.)
Drunkenness.
In arrests for drunkenness, the average number per day was
130. There were 2,411 more persons arrested than in 1909, —
an increase of 5.31 per cent.; 47.86 per cent, of the arrested
persons were nonresidents and 49.88 per cent, were of foreign
birth. (See' Table XI.)
74 • POLICE COMMISSIONER. [Jan.
Bureau of Criminal Inrestigation.
The "Rogues' Gallery" now contains 34,313 photographs,
21, A" of which are photographs with Bertillon nK^asurements,
a system used by this department during the pait ten years.
In accordance with the Revised Laws, chapter 225, sections
IS and 21, we are allowed photographs with Bertillon measure-
ments taken of convicts in the State Prison and Reformatory,
a number of which have already been added to our Bertillon
cabinets. This, together with the adoption of th? system by
this department in 1S9S, is and will continue to be of great
assistance in the identification of criminals. .\ large number
of important identifications hive thus been made during the
year for this and other police departments, tLrough which
the sentences in many instances have been materially increased.
The records of 1,0S2 criminals have been added to the records
kept in this Bureau, which now contains a total of 33,478.
The number of cases reported at this office which have been
investigated during the year is 11,044. There are 21^512 cases
recordefJ on the assignment books kept for this purpose, and
reports made on these cases are filed away for future reference.
Letters and telegrams to the number of about 2,79.5 yearly
are now filed with the numbered reports to which they refer,
so that all the papers pertaining to a case can be found in the
same envelope, thus simplifying matters when information is
desired on any case. The system of indexing adopted by this
Bureau for the use of the department now contains a list of
records, histories, photographs, dates of arrests, etc, of about
125,000 persons. There are also " histories and press dippings,"
now numbering 6,220, by this Bureau, in envelope form, for
police reference.
The finger-print system of identification, which uttls adopted
in June, 1906, has progressed in a satisfactorj- manner, and
with its development it is expected that the identification of
criminals will be facilitated. It has become ver\' useful in
tracing criminals and furnishing corroborating e\'idence in many
instanc-es.
The statistics of the work of this branch of the ser^-ice are
included in the statement of the general work of the depart-
1911.]
PUBLIC DOCUMEXT — No. 49.
75
ment; but, as the duties are of a special character, the follow-
ing statement will be of interest: —
Number of persons arrested, principally for felonies, . . 913
Fugitives from justice from other States, arrested and delivered
to officers from those States, ....... 38
Number of cases investigated, 11,044
Number of e.vtra duties performed, 1,256
Number of cases of homicide and supposed homicide investi-
gated and e\'idence prepared for trial in court, ... 80
Number of cases of abortion and supposed abortion investi-
gated and evidence prepared for court, 5
Number of days sf)ent in court by officers 3,314
Amount of stolen property recovered, .... $238,473.75
Number of j-ears' imprisonment imposed bj- court, 570 years, 1 month
Number of photographs added to " Rogues' Gallery," . . 1,681
Miscellaneous Business.
IMT-M.
Abandoned children cared for,
Accidents reported.
Buildings found open and made secure.
Cases investigated.
Dangerous buildings reported.
Dangerous chimnej's reported.
Dead bodies cared for.
Defective bridges reported, .
Defective cesspools reported.
Defective coal holes.
Defective drains and vaults reported.
Defective fire alarms and clocks reported.
Defective gas pipes reported.
Defective hydrants reported,
Defective lamps reported,
33
2,579
2,559
24,397
29
41
279
5
133
9
3
9
40
87
8,928
UO(-M.
8
2,978
3,420
25,656
11
6
343
7
199
1
3
8
79
104
13,247
UC9-10.
15
3,187
2,707
27,964
23
3
368
3
152
5
9
4
62
139
36,502
POLICE COMMISSIOXER.
[Jan.
Miscellaneous Biisincss — Concluded.
ISOT-M.
UO»-M.
ISOS-IO.
Defective fences, ....
31
10
16
Defective sewers reported, .
2S
103
S4
Defective streets and sidewalks reported,
S,726
9,669
9,04S
Defective trees,
14
16
59
Defective water gates,
3
20
S
Defective water meters,
-
3
11
Defective water pipes reported,
2.50
177
203
Defective wires and poles reported.
7
30
79
Disturbances suppressed,
650
1,253
767
Extra duties performed,
34,206
31,874
33,997
Fire alarms given, ....
2,236
1,962
2,045
Fires extinguished, ....
700
735
S65
Insane persons taken in charge.
419
3.S5
366
Intoxicated persons assisted.
-
-
29
Lost children restored.
1,637
2.189
2,247
Missing persons reported.
267
305
346
Missing persons found.
155
140
178
Persons rescued from drowning, .
2S
61
33
Sick and injured persons assisted, .
4,234
4,397
4,605
Stray teams reported and put up,
131
132
181
Water running to waste reported, .
322
377
345
Witnesse.'! detained, ....
60
.57
78
Lost, Abandoned and Stolen Property.
On Dec. 1, 1909, there were 726 articles of lost, abandoned
or stolen property in the custody of the property clerk; 50S
were received during the year, 359 were sold, for which S-52S.37
^1
1911.]
PraLIC DOCmiEXT — No. 49.
77
was received and paid over to the city collector, and 55 de-
livered to owners, finders or administrators, 2 to the Chief of
the District Police, leaving SIS on hand. .
Special Eaents.
The folloH-ing is a list of special events transpiring during
the year, and gives the number of police detailed for duty at
each : —
1910.
Jan. 9
Jan. 11
Jan. 22
Feb.
Feb. S.
Mar. 1
Mar. 17
April 9,
April 19,
May 11
May 27
May 30,
May 30,
June 1
June 6
June 16,
June 17,
June 27,
July 4,
July 4,
July 4,
Aug. 9,
Aug. 10,
Sept.
Oct. 9,
Oct. 12,
Oct. 21
Nov. 8,
Nov. 12,
Nov. 16,
Nov. 19,
Police ball, 90
City election, bulletin boards, 285
Unveiling of memorial to Bishop Phillips Brooks, . 72
Inaugural of mayor and city council, Faneuil Hall, . 57
Firemen's ball 51
Funeral of Lieutenant-Colonel Talbot, .... 159
Evacuation Day, 320
Cross-countr}- run, Cathedral Y. M. C. A., ... 85
Marathon race, 441
Parade of Fusilier Veteran Association, . . . 120
Parade of school regiment 508
Work horse parade, 87
Har\-ard-ComeU boat race, 110
Bamum & Bailey circus parade, 100
Ancient and Honorable parade, 235
The "night before" in Charlestown, .... 221
.\nniversary battle Bunker Hill, 587
Forepaugh & Sells circus parade, 85
Safe and Sane Fourth of July parade 811
Bulletin boards, Jeffries and Johnson fight, . . . 164
Firewoits, Charles River Basin, 398
Albany Street fire, general alarm, 345
Catholic Total Abstinence parade, 288
Labor Day parade, 886
Visit of Cardinal Vanutelli, 140
Columbus Day Celebration, 1,114
Visit of Colonel Roosevelt, 136
State election, bulletin boards, 350
Han-ard-Darfmouth, foot-ball game, .... 102
Harx-ard-CarUsle, foot-ball game, 79
Sjjecial detail at Di\Tsion 4, foot-ball night, . . . 342
Inspector of Cluiis.
The officer detailed to assist the committee on claims
and law department in investigating claims against the city
for alleged damage of various kinds reports that he investi-
78
POLICE com:missioner.
[Jan.
gated 534 cases, 11 of which were on account of damage
done by dogs.
Other Services performed.
Number of cases investigated, 5-^4
Number of witnesses examined, 3,755
Number of notices served, 1,251
Number of pictures taken, 148
Number of permissions granted, 2,676
Number of days in court, 52
Number of days at the committee on claims, .... 30
Officers det.\iled to .v.ssist ^Iedical Ex.\-min"ers.
The officers detailed from the Bureau of Criminal Investi-
gation to assist the medical exj.miners of Suffolk County report
having investigated So3 deaths, &i55 of which were males and
218 females, and attended 2.59 inquests, as follows: —
Causei
of Death in
Cases Investigated.
Abortion, .... 6
Manslaughter, .
28
Accidents,
111
Murders, .
11
Alcoholism,
7
Natural causes,
294
.\5ph\-xiation (gas),
14
Poi-son,
18
Automobile,
14
Railroads,
55
Bums,
43
Railway (street).
41
Concealed birth.
1
Stillborn, .
12
Drowning,
58
Strangulation, .
1
Electricity,
5
Suffocation,
1
Elevators,
21
Suicides, .
73
E-xplosion,
3
Teams,
25
Exhaustion,
3
Fire engine.
2
Total,
S53
Homicides,
6
Causes of Death vchere Inquests icere held.
Abortion, .... 3
FalUng iron,
1
Asphj-xiation (gas),
3
Falling tree.
1
Accidents,
4
Falls,
53
Automobile,
17
Plre engine.
2
Bums,
5
Homicides,
6
Drowning,
3
Manslaughter, .
1
Elevators,
17
Railroads (steam).
31
Electricity,
4
Railway (street).
41
Explosion,
3
Teams, .
22
Falling burlap.
3
Suicides, .
4
Falling lumber,
10
Falling stone.
5
Total,
259
ii
1911.] PUBLIC DOCUMENT — No. 49. 79
House of Detention'.
The house of detention for women is located in the court
hoa-^, Somerset Street. All the women arrested in the city
profjer are taken to the house of detention in vans pro\-ided
for the purpose. They are then held in charge of the matron
until the next session of the court before which they are to
appear. If sentenced to imprisonment, they are returned to
the house of detention, and from there conveyed to the jail
or ia'^titution to which they have been sentenced.
During the year there were o,.374 women committed, viz.: —
For drunkcnncRS, 3,(kl
For larceny, 395
For night walking 330
For fornication, 1°'
For in-sanity ^
For being idle and disorderly, 38
For assault and battcrj-, 38
For aduherj-, 23
For violation of the liquor law 13
For keeping a house of ill fame, 23
For witnesses, '
For county jail 961
For municipal court, 116
For various other offences, 192
Total 5,374
Police Signal Service.
Signal Boxes.
The total nimiber of boxes now in use is 462. Of these,
274 are connected with the underground sjstem and ISS with
the overhead.
Miscellaneous Work.
During the year the employees of this ser\'ice responded to
1,079 trouble calls; inspected 462 signal boxes, 15 signal desks
and 921 batteries; repaired 105 box movements, 5 registers,
24 polar box bells, 36 locks, 10 plungers, 14 time stamps, 6
gongs, 2 stable motors, 3 stable registers, 3 \ibrator bells,
S transmitters, 2 pole changers and 31 relays, besides repairing
all bell and electric light work at headquarters and the various
stations. There have been made 1 bell, IS line blocks, 10
so
POLICE com:missioxer.
[Jan.
plungers, 16 complete box fittings, and a large amount of
small work that cannot be classified.
The underground work done during the year consisted of
laying about 22,510 feet of 7 conductor cable on Divisions 11
and 12 and placing 5 underground post boxes on Division
11, and 1 on Division 12.
There are in use in the signal service 27 horses, 19 patrol
wagons and 1.3 pungs.
During the year the wagons made 42,663 nms, covering
an aggregate distance of 36,832 miles. There were 46,226
prisoners conveyed to the station houses; 916 runs were made
to take injured and insane persons to station houses, the hos-
pitals or their homes; and 532 runs were made to take lost
children to station houses. There were 678 runs to fires and
44 runs for liquor seizmes. During the year there were 462
signal boxes in use, arranged on 60 circuits; 52.5,887 telephone
messages and 3,305,980 "on-duty" calls were sent over the
lines.
The following list comprises the property in the signal serv-
ice at the present time: —
13 signal desks.
60 circuits.
462 street signal boxes.
14 stable call hoards.
57 test boxes.
921 cells of battcrj-.
432,772 feet underground cable.
334,950 feet overhead cable.
40,13S feet of duct.
45 manholes.
1 buggj-.
1 line wagon.
1 express wagon.
1 mugwump wagon.
1 traverse pung.
2 small sleighs.
1 caravan.
H.\RBOR Service.
The special duties performed by the police of Di\nsion S,
comprising the harbor and the islands therein, were as follows: —
Value of property recovered, consisting of boats, rigging, float-
stages, etc., 812,066.26
Number of vessels from foreign ports boarded.
Number of vessels ordered from the channel to proper anchorage.
Number of vessels removed from channel by police steamers.
Number of cases of assistance rendered, ....
Number of cases of assistance rendered to wharfingers.
Number of permits granted vessels in the stream to discharge
their cargoes,
737
1,516
28
98
5
2S
1
1911.] PUBLIC DOCOIEXT — No. 49. 81
Number of obstructions removed from chamiel, .... 25
Number of alarms of fire on the water front attended, . . 123
Number of fires extinguished without alarm, .... 3
Number of boats challenged, 1,958
Sick and injured persons assisted, 9
Cases investigated, 1,172
Dead bodies recovered, 43
Rescued from drowning, 11
Number of vessels ordered to put up anchor lights, ... 16 j
Number of vessels assigned to anchorage, 1,427 !
i
The total number of vessek that arrived in this port during i
the year was 10,9S2. Of this number, 9,431 came from domestic :
ports, S14 from ports in the Britbh Provinces and 737 from i
foreign ports. Of the latter, 6S4 were steamers, 6 ships, 25 ?
barks and 22 schooners. \
The police boat "Ferret" was in commission from June 17
to October 7 in Dorchester Bay. She covered a distance of
4,000 miles; made 5 arrests for larceny and 2 for drunkenness;
recovered property valued at §2,200; rescued 30 persons from
disabled boats; made secure 16 yachts that had broken away
from their moorings; quelled S disturbances; investigated 18
cases and notified 15 owners of power boats to have mufflers
attached to their exhausts.
Horses.
On the 1st of December, 1909, there were 86 horses in the
service. During the year 1 was sold, 4 purchased, 7 shot on
account of being disabled, 1 given to Red Acre Farm and 1
died. At the present time there are SO in the service, as shown
by Tabic IX.
Vehicle Service.
Aulomobiles.
There are 7 automobiles in the service at 'the present time;
2 for general use attached to headquarters; 2 for the Back
Bay and Fenways, attached to Division 16; 1 in the Dorches-
ter District, attached to Di\-ision 11; 1 in the West Ro.xbury
District, attached to Divbion 13, and 1 in the Brighton Dis-
trict, attached to Divbion 14.
The following return shows the extent and natiu-e of the
service performed by the automobiles during the year: —
S2
POLICE COMMISSIONER.
[Jan.
1
Milaru.
Anou.
Fire p Lost
35.
36,
3S, .
40.
6774, .
265
290
305
279
166
9,275
10,150
16,775
18,135
6,640
4S0
205
44
38
223
3
5
2S
31
19
450
400
90
50
45
2
7
3
5
2
2
11
1
Total, .
1,305
60,975 990
86 j 1,035
17
16
Cott of running Automobiles.
Pay of officers S4,290 30
Repairs, 1,568 81
Tires, 1,248 92
Gasoline 621 75
Oil, 65 89
Rent of garage, 1,054 51
License fees, 20 00
Total, SS,870 18
Ambulances.
The department b now equipped with 10 ambulances,
located in the following police divisions: 1, 4, 6, 7, 10, 11,
13, 14, 15 and 16.
During the year the ambulances responded to calls to con-
vey sick or injured persons to the following places: —
City Hospital 887
City Hospital (Relief Station, Haj-market Square), . . . 747
City Hospital (Relief Station, East Boston), .... 241
Calls where services were not required, 197
Massachusetts General Hospital, 145
Home, 93
Morgue, 19
Grace Hospital, 11
Carney Hospital, 11
Police station houses, 11
From fires, 10
Lj-ing-in Hospital, 7
Faulkner Hospital, 6
Homceopathic Hospital, 4
.\ustin Farm, 1
Boston State Hospital, 1
1
1911.
PUBLIC DOCUTMENT — Xo. 49.
83
Massachusetts Eye and Ear Infirmarj-,
Soldiers' Home,
St. Elizabeth Hospital,
Temporary Hospital, Copley Square,
Washingtonian Home,
Total,
2,396
List of Vehicles used by
fhe Department.
Divisions.
1
£
<
J
1
J 1
i I .
s
■
>
s
s
3
s
■<
J
J
.a
3
e2
Headquarters,
-
i -
1
1
2
-
1
-
1
1
2
Division 1,
!
-
-
li -
1
-
3
Di\nsion 2,
-
1 ~
-
_
-
1
Division 3,
-
-
-
-
2
Division 4,
_
-
-
1
-
-
2
Division 5,
-
-
-
-
-
2
Division 6,
-
-
-
1
-
-
3
Division 7,
-
-
-
1
-
-
3
Division 8,
-
-
-
-
-
-
-
-
Division 9,
-
-
-
-
-
-
2
Division 10,
-
-
-
1
-
-
3
Division 11,
-
1
-
1
1
1
6
Division 12,
-
-
-
-
-
-
2
Division 13,
1
1
-
1
2
1
8
Division 14,
-
1
-
1
1
1
6
Division 15,
-
-
-
1
_
-
3
Division 16,
-
2
-
-
-
1
-
4
Joy Street stable, .
^ i
5
-
1
4
2
3
4
23
Totab, .
•
•
19 : el 7 13
. 1 !
4
11 j 8
7
75
:
- :,
84 POLICE COMMISSIONER. [Jan.
Public Carrlvges.
During the year there were 1,714 carriage licenses granted,
being a decrease of 71 as comparer] with last year; 317 motor
carriages were licensed, being an increase of 50 as comparefl
with last year.
There has been a decrease of 117 in the number of horse-
drawn licensed carriages during the \ear.
There was 1 carriage rejected on first inspection, but the
defects being slight and having been remedied, it was subse-
quently reinspected and passed.
There were 122 articles, consisting of umbrellas, coats, etc.,
left in carriages during the year, which were turned over to
the inspector; 20 of these were restored to the owners, and
the balance placed in the keeping of the lost property bureau.
The following is a detailed statement concerning licenses
for public carriages and for drivers of hacks and cabs: —
Number of applications for carriage licenses received, . . 1,714
Number of carriages licensed, 1,714
Number of licenses transferred S2
Number of licenses cancelled or revoked, 78
Number of carriages insi)ectcd, 1,714
Number of carriages rejected, 1 ^
Number of carriages reinspected and passed, .... 1
Applications for drivers' licenses reported upon, .... 1,367
Number of complaints against drivers investigated, ... SI • •
Number of warrants obtained, 13 |
Number of daj-s si>ent in court, 8 •]
Articles left in carriages reported by citizens, .... 18 <\
.Articles found in carriages, reported by drivers, .... 122 H
Drivers' applications for licenses rejected, 3 jl
W.\GOX LiCEXSES. :|
Licenses are granted to persons or corporations to set up 'l
and use trucks, wagons or other vehicles to convey merchan- ij
disc from place to place within the city for hire. ' '%
During the year 5,498 applications for such licenses were t
received, 5,4SS of which were granted and 10 rejected. J
Of the licenses granted, 33 were subsequently cancelled for
nonpajTnent of the license fee, 2-5 for other causes and 49
transferred to new locations. (See Tables XIV., X^^.)
1
I
1911.]
PUBLIC DOCU-MEXT — Xo. 49.
So
LisTiXG ^I.\LE Residents of Bostox, etc.
Vtii.
May
CanvasB.
i^upplexneota]
Applications.
Refused
Certificates.
Granted
Certificates.
Total .Men
listed.
1903, . . .
181,045
3,412
53
3,359
184,404
1904, . ...
193,195
1,335
55
1,280
194,475
1903, .
194,547
705
8
697
195,244
1906, . . .
195,446
775
24
751
196,197
1907, . . .
195,900
782
28
754
196,654
190S, . . .
201,255
1,302
57
1,245
202,500
1909, . . .
201,391
S04
29
775
202,166
1910,'. . .
203,603
897
47
850
204,453
I Changed to April I.
JVome?i Voters rerified.
1903,
1904,
1905,
1906,
1907,
1908,
1909,
1910,
14,611
15,633
14,591
13,427
12,822
11,915
11,048
10,486
(See Tables XX., XXI., XXII.)
Listing Expenses.
The expenses of listing residents, not including the semces
rendered by the members of the police force, were as follows: —
Printing 814,444 84
Clerical scmcc, 7,199 68
Cards 1^229 83
Interpreters, 928 01
Stationen-, 351 36
Filing cases, 149 00
Total, 824,302 J2
S6 POLICE CO>D[ISSIOXER. [Jan.
Xumber of Policemen employed in Listing.
April 1, 1,119
April 2, 1,0S7
April 4 695
April 5, 295
Special Police.
Special police officers are appointed to serve without pay
from the city, on the vrritten application of any officer or board
in charge of a department of the city of Boston, or on the
application of any responsible corporation or person, such cor-
poration or person to be liable for the official misconduct of
the person appointed.
During the year ending Xov. 30, 1910, there were 6.55 special
police officers appointed, 2 applications for appointment were
refused for cause, and 1 appointment was revoked for cause.
.\ppointment5 were made on applications received as fol-
lows: —
From United States Army officers, 2
From State departments, 13
From citj' departments, 144
From railroad corporations, 133
From other corporations or associations, 138
From theaters and other places of amusement, .... 140
From private institutions, 57
From churches, 8
Total, 655
R.ULRO.\D Police.
There were 115 persons appointed railroad policemen dur-
ing the year, S of whom were employees of the New York,
New Haven & Hartford Railroad, 101 of the Boston & Maine
Railroad and 6 of the Boston, Revere Beach & Lynn Railroad.
MiscELL-^'Eocs Licenses.
The total number of licenses issued of all kinds was 25,.333;
transferred, 1S6; cancelled and revoked, 2,S62. The officers
1911.)
PUBLIC DOCU.MENT — No. 49.
87
investigated 255 complaints arising under these licenses. The
fees c-ollected and f>aid into the city treasury amounted to
$oO;JS4. (See Table XIV.)
ilcsiCLvxs' Licenses.
Itinerant.
During the year there were 212 applications for itinerant
masic-ians' licenses rec-eived, 1S4 of which were granted, 21
rejected and 7 are pending; 1 was subsequently cancelled on
account of the nonpajTnent of the lic-cnse fee, leaving the num-
ber in force November 30 last 1S3.
The officer detailed for this special sennce reports that dur-
ing the year he e.^tamined 126 instnunents, as follows: —
IxsTBmcfra.
laftzvA.
Pased.
CondemBed.
Street organs,
64
61
3
Hand organs,
IS
17
1
Molia«,
15
15
-
Harps,
13
13
-
Flutes,
6
6
-
Accordion?,
4
4
-
Guitars, .
3
3
-
Bagpipes, .
1
1
-
Banjos,
1
1
-
Ocarina, .
1
1
-
Totals,
126
122
4
Collectire.
Collective musidans' licenses are granted to bands of per-
sons over fifteen years of age to play on musical instruments
in company with designated processions, at stated times and
places.
ss
POLICE CO-MMISSIOXER.
[Jan.
The following shows the number of applications made for
these licenses during the last five years and the action taken
thereon : —
Yt\n.
JIfipUcationA.
Gnnted
lo7
156
154
152
172
172
17S
176
226
222
Rejected.
1906 {
1907 i
190S, I
1909, }
1910,
PcBuc LoDGixG Houses.
Even- building in the city of Boston not licensed as an inn,
in which 10 or more persons are lodged for twenty-five cents
or less each per night, is a public lodging house, under chapter
242 of the Acts of 1904; and the Police Commissioner is author-
ized to grant licenses to such lodging houses after the inspector
of buildings has certified that the building is provided with
proper exits and appliances for gi^^ng alarm to the inmates
in case of fire, and the board of health has certified that the
sanitary condition is satisfactory-. Under this law 23 appli-
cations for licenses were received, 19 of them granted and 4
rejected. Of the number granted, 1 was cancelled and another
bsued in its stead. One was revoked for cause but was restored.
The following shows the location of the lodging houses and
the number of persons lodged in each during the year: —
LociTios.
Number lodged.
69 and 71 Beach Street,
19 Causeway Street, .
164 Commercial Street,
194 Commercial Street,
26,300
S,945
21,734
37,524
1911.]
PUBLIC DOCUMENT — Xo. 49.
SO
Location.
Xumber lodged.
2.34 Commercial Street,
2-38-246 Commercial Street,*
14,505
2S,926
17 Da\-i3 Street, 36,625
42 Eastern .\ venue,' • 9,982
39 Edinborough Street i 18,250
120 Eliot Street • 48,066
37 Green Street, 36,500
187 Hanover Street, j .>3,597
67 Pleasant Street I 19,178
886 Washington Street '. 78,093
1025 Washington Street ! 32,954
1051 Washington Street ; .38,112
1093 Washmgton Street, I 25,258
1202 Washington Street, ' .30,209
Totals .564,758
' 242-3-16 Commercial Street. Ixrurd to April 30. 1»10.
- Licensed to .\pril 30; 1910.
C.\RRYIXG D.WGEROCS We.\PON"S.
Under the act of 1906, which authorized the Police Com-
missioner, in common with certain other ofScials, to grant
licenses for the carrying of loaded pistols or revolvers on the
person, the following action has been taken by him: —
Year,
.^plintjons.
OraQled.
Befuscd.
1907, .
190S, .
1909, .
1910, .
681
1,020
871
931
625
882
soo
829
56
138
71
102
90 POLICE COMMISSIONER. [Jan.
These lic-enses are granted in large measure to express and :
bank messengers, watchmen, special polic-emen and others |
whose oct-upations and characters establish a prima facie case }
in their favor. j
S^r.\LL LoAX Licenses. '
During the year there were 2.5 applications rec-eive<l for /
securefl small loan licenses; 2.3 were grantetl and 2 disapproverl.
There were 5.3 applications received for unsecured small loan
liceases; 49 were granted and 4 disapproved.
Pensions .vnd Benefits.
Dec. 1, 1909, there were 2L3 pensioners on the roll. During |
the year 22 died, viz., 1 deputy superintendent, 1 captain, 2
inspectors, 2 lieutenants and 16 patrolmen, and 20 were added,
viz., 1 captain, 1 inspector, 17 patrolmen and the widow of
Sergeant .Schiehuber, leaving 211 on the mil at date, inc^uding
the widows of 12 and the mother of 1 policeman, who died
of injuries received in the service.
The paj-ments on account of pensions during the past year
amounted to .S131,515, and it is estimated that $131,798.75
mil be required for pensions in 1911. This does not include
pensions for 1 chief inspector, 1 captain, 1 inspector and 5
patrolmen, all of whom are sbrty-five or over, and are entitled
to be pensioned on account of age and term of ser\nce.
The invested fund of the police charitable fund on the thir-
tieth day of November last amounted to S207,.5o0. There are
66 beneficiaries at the present time, and there has been paid
to them the sum of $7,432 during the past year.
The invested fund of the Police Relief Association on the
thirtieth day of November was $128,449^22.
j
FlX.VXCI.\L.
A requisition was made on the city council for the sum of
S2,219,202..51 to meet the running expenses of the department,
including the pensioned police officers, house of detention, sta-
tion hou^e matrons, Ibting persons twenty years of age or
more, and police signal ser\nce for the financial year.
The total e.xpenditures for police purposes during the past
year, including the pensions, house of detention, station house
1911.] PraLIC DOCmiEXT — Xo. 49. 91
matrons and listing persons twenty years of age or more, but
exclusive of the maintenance of the police signal service, were
S2,ftSS,S27.9.5.
The total revenue paid into the city treasurv- from fees for
licenses over which the police have supervision, and for the
sale of unclaimed and condemned property, etc., was §51,444.64.
(See Table XR'.)
The cost of maintaining the police signal service during the
year was .S62,993.3S. (See Table XMII.)
92
POLICE COMMISSIONER.
[Jan.
o
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cT
o
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1911.1
PUBLIC DOCmiEXT — No. 49.
93
»(5t- — — — Or?»^ — M-^MCC^^M
1
.cii'i<<< le^iii — 1 1
OO
1 i_ — «c=»r»— •— rai t 1 1
1
ii.iiiiiiii-^-^^ii
t
1 — I 1 1 1 1 t 1 1 1 1 1 -« 1 1
s
1 1 t » 1 C« 1 - ( 1
00
I — ( » 1 t • t 1 1 1 e-i — — 1 1
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CI
I — 1 1 1 1 1 1 1 I 1 1 1 — 1 1
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t — 1 t 1 1 1 1 1 1 1 1 — 1 1 1
1
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re
t — 1 1 1 1 1 1 1 1 1 t 1 — 1 1
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I 1 1 1 1 1 ■ ( 1 1 1 1 e-i 1 1 1
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i
tiilliiillii-i^eo
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j ' ' i '^ '
i . 'a .'.'.'.'.'.'.'.'. 'A '.
^ 1 -1 •= -
~ „- £ * <* E
c « i t » ri S
i i|l|ll! tl ill II
. 1
c
1
94
POLICE CO^DIISSIONER.
[Jan.
o
5
<
e: :S
I s
5
13 2 2.5 c— S'^ J h s
I
O'
oocsoccoooo
■^ . ■'^ i>'.>
! SS
M C^l r-. C^ — I ^ C-1
J: I
•-H^^rCwOccC"!""'
o
O N o ? ?; u -r
« >%b— C H-i JS ^
- X
C3
c S g =:5:h 2-r
>
iiSi-="
O
'C^^.'XO
e s c a
ej eJ ej =3
s s.
1911.]
PUBLIC DOCUMENT — Xo. 49.
95
Table III.
IJM of Officcm retired during Uie Year, giring Age at the Time of Retire-
ment and the S umber uj Yean' Service of Each.
X.nr.
Cause of
RetircXDelit.
\t<: at Time
ol Ktriremeut.
Yon
of Service.
Bates, Edward M.,
Age, . .
60 years,
30 years.
Brown, William E., .
Age,
64 }-ears,
32 years.
Coburn, David, ....
Age, . .
65 j-ears.
36 years.
Corbctt, Patrick,
Age, . .
63 years,
30 years.
niinhar, (■larcnce M..
Incapacitated,
51 years,
22 years.
Gillette, Charles W., . . .
Age, . .
61 years.
35 years.
Hildrcth, Alfred H
Incapacitated,
45 years,
21 years.
Houghton, Daniel F.,
Age,
60 years,
30 j-ears.
Innis, William H.,
Age, . .
60 years,
32 years.
Keane, Timothy F
Incapacitated,
51 years,
26 years.
Lewis, George E., ...
Age,
61 years.
32 years.
Mahoney, Edward H.,
Age, . .
60 years.
27 years.
Morse, Robert A. F., .
Incapacitated,
51 years,
22 years.
Nannery, James,
Age,
65 years.
31 jears.
Xickerson, .\rthur W.,
Incapacitated,
40 years.
15 jears.
Olds, Edward R., ...
Incapacitated,
47 years.
22 years.
Robinson, George M.,
Age, . .
60 years,
36 years.
Swan, Clarence \.,
Age, . .
65 years.
33 years.
Trask, Frederick G
Incapacitated,
1
4.3 years,
20 years.
96
POLICE COM:\nSSIOXER.
[Jan.
Table IV.
Li-fi of Officers uho icere promoted above the Rank of Patrolma.i during
the Year ending Nov. 30, 1010.
D»Tr.
March 3, 1910
June 25, 1910
March 3, 1910
March 3, 1910
April 7, 1910
March 3; 1910
April 7, 1910
April 7, 1910
July 7, 1910
Xov. 17, 1910
Kame aad Rank.
Lieut. John E. Driscoli to the rank of captain.
Sergt. Gilbert H. Angell to the rank of inspector.
Sergt. Francis J. Hird to the rank of lieutenant.
Sergt. Michael H. Crowley to the rank of lieutenant.
Sergt. Thomas Keane to the rank of lieutenant.
Patrolman Amasa E. Augusta to the rank of sergeant.
Patrolman John E. Hughes to the rank of sergeant.
Patrolman Perley C. ICneeland to the rank of ser-
geant.
Patrolman Thomas F. Gleavey to the rank of ser-
geant.
Patrolman John C. McDonald to the rank of ser-
geant.
^1
1911.]
PUBLIC DOCUMENT — Xo. 49.
97
Table \'.
Xxonber of Men in Each Rank in Active Service ai the End of the Present
Year who icere appointed on the Force in the Year stated.
DiTE APPorerxB.
1 _i
1
fl
II
i i
i '
5
c
1
2
•
£
I
1
>
s
e2
ISGS. . . . -
_
1
_
1
1
1
1
1S69. .
—
""
-
1
1 -
-.
—
1
_
1
ISTO, .
. -
—
-
-
-
-
1
! 2
-
3
1S71, .
-
-
-
-
-
1
-
—
—
1
1S72, .
' -
-
-
1
_
-
-
-
-
1
1S73, .
\
1
1 -
1 2
-
-
1
3
-
7
1874 .
1 -
1
1 _
1
-
1
_
_
_
3
lS7o, .
-
1 -
_
-
1
_
8
_
9
IS76, .
1 1
-
1 _
j
-
-
-
-
-
—
1
1S77, .
1
-
1
—
_
2
_
4
1S7S. .
!
-
-
4
1
3
1
6
_
15
1S79, .
j -
-
-
1
1
1
3
8
_
14
ISSO, .
i -
-
-
-
-
1
1
S
_
10
ISSl, .
i -
-
2
1
2
3
19
_
27
1SS2. .
1 _
I
—
-
4
2
6
1
12
_
25
1SS3, .
-
-
1
1
3
3
7
■_
15
1SS4, .
-
-
-
1
-
1
1
16
—
19
ISSo, .
-
-
-
1
1
1
3
13
_
19
1SS6, .
-
-
-
1
1
1
3
8
_
14
1SS7, .
-
-
-
-
4
1
1
14
_
20
ISSS, .
-
-
-
-
1
6
1
40
_
48
1SS9, .
-
-
-
-
2
2
3
17
_
24
1S90, .
-
-
-
-
2
2
6
19
_
29
1891. .
-
-
-
2
-
1
2
16
_
21
1892, .
-
-
-
-
1
-
3
17
_
21
1893, .
-
-
-
-
3
2
13
61
__
79
1894, .
-
-
-
-
-
—
10
21
_
31
1S95, .
-
-
-
1
4
3
15
111
^
134
1896, .
-
-
-
-
1
2
31
_
34
1897. .
-
-
-
-
1
-
_
17
_
18
1S98, .
-
-
-
-
_
_
_
31
_
31
1900, .
-
-
-
-
2
-
4
91
_
97
1901, .
-
-
-
-
_
-1
1
53
«
54
1902, . .
-
-
-
—
_
- j
1
9
_
10
1903, .
-
-
-
-
_
~ 1
2
88
__
90
1904, . .
-
-
-
-
—
I
1
80
_
81
1905. . .
-
-
-
-
_
i
j
_
37
_
37
1906, .
-
-
-
-
_
1
1
35
_
35
1907, . .
-1
-
-
-
—
1 1
_ 1
108
_
108
1908, . .
- i
-
-
-
-
-
-
143
_
143
1909, .
-
-
-
-
-
-
-
31
57
88
1910, .
—
"■
—
—
—
-
—
1
53
54
Totals,
1 i
1
M
1
23
30
39 1
1
S6
I
1,183
110 1,476
9S
POLICE COM.MISSIOXER.
[Jan.
a -3
% -5
1
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Table K.
Xiimber and Distribution of Hortes used in the Departmerit.
Divisions.
Vu.
P»xnJ.
Riding.
.\inbu-
laDCe.
Omric^.
ToUU.
Headquarters, .
-
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-
2
2
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-
2
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1
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Diviiion 2, . . .
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-
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2
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3
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1
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1
2
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1
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1
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Di\Tsion 9, . . .
_
2
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2
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2
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1
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2
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3
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-
1
2
1
1
5
Division 15,
-
2
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14
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15
Signal sen-ice, repair de-
partment, 40 Joy Street.
House of detention, .
3
2
2
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1
:
3
9
2
Prison van,
4
_
_
_
-
4
Totals, . . .
9
27
30
6
8
SO
1911.]
PUBLIC DOCUMENT — No. 49.
103
Table X.
Number of Arrests by Police Division* during the Year ending Nov. 30,
1910.
DiVUION*.
Mmk*. Foniks.
Headquarters,
Di\Tsion 1,
Di\'ision 2,
Di\"ision 3,
Di^^sion 4,
Di\Tsion 5,
Di\Tsion 6,
Di\'ision 7,
Di\Tsion 8,
Division 9,
Dhnsion 10,
Division 11,
Di\'ision 12,
Division 13,
Di\Tsion 14,
Dixnsion 15,
Division 16,
Totals,
796
13,4M
4,034
6,499
6,959
6,392
4,381
2,261
33
2,4&4
3,367
2,136
1,051
1,658
1,046
5,675
2,267
267
938
211
1,067
1,038
1,078
359
189
309
463
77
79
99
39
370
115
64,503 i 6,698
Totab.
1,063
14,402
4,245
7,566
7,997
7,470
4,740
2,450
33
2,793
3,830
2,213
1,130
1,757
1,085
6,045
2,382
71,201
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122
POLICE CO^DIISSIOXER.
[Jan.
Table XV.
Sumher of Dog Licenses issved during the Year ending Nov. SO, 1910.
DmsioNS. 1 Mala.
1
Fonalo.
Swed.
Brecdere.
ToUfc.
1.
96
31
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2
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6
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272
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11
4
372
4,
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46
2
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176
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2
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6,
338
102
4
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675
103
4
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9.
854
163
40
3
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10,
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149
19
1
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11,
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107
4
2,409
12,
625
131
28
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13,
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198
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39
1
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126
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16,
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153
32
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To(
als,
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1,982
396
20
11,362
Table XVI.
Toto/ Sumher of Wagon Licenses issued in the City by Police Dirisicns.
Dh-ision 1, . . . 1,154
Di^-ision 10, . . .122
Division 2,
1,878
Di^ision 11,
9S
Division 3,
216
Di\ision 12,
100
Di\-ision 4,
572
Di\-ision 13,
5S
Di\-ision 5,
410
Di\-i£ion 14,
56
Di\-i5ion 6,
287
Di\Tsioa 15,
169
Di\ision 7,
132
Di\ision 16,
»4
Di\-ision 8,
Division 9,
145
Total, . . 5,488
1911.1 PUBLIC DOCUMENT — No. 49. 123
Table XVII.
Financial Staiemenl for the Year ending Not. SO, 1910.
Expenditures.
Pay of police and employees, $1,782,251 53
Pensions, 131,515 00
Fuel and light 18,271 84
Water and ice, 301 61
Furniture and bedding, 3,737 20
Printing and stationery, 14,617 72
Care and cleaning station houses and city prison, . . 7,219 35
Repairs to station houses and city prison, . . . 15,659 49
Repairs and supplies for police steamers, .... 11,268 54
Rent and care of telephones and lines, .... 5,734 91
Purchase of horses and vehicles 2,395 08
Care and keeping horses, harnesses and vehicles, . . 18,109 81
Carting prisoners to and from stations and city prison, 1,140 50
Feeding prisoners 3,060 98
Medical attendance on prisoners, 7,419 04
Transportation, 1,988 29
Pursuit of criminab, 2,748 22
Cloth for uniforms and uniform helmets, .... 16,893 90
Badges, buttons, clubs, belts, insignia, etc., . . . 2,910 51
Traveling expenses and food for police, .... 158 65
Rent of buildings, 6,999 60
Total, $2,054,401 77
Expenses of lifting, $24,302 72
Expenses of house of detention and station house matrons, 10,123 46
Expenses of signal service (see Table XVIII), . . . 62,993 38
Total, $2,151,821 33
Receipts.
For all licenses issued by the Police Commissioner, . $21,129 00
For sale of unclaimed and condemned prop)erty, itinerant
musicians' badges, junk collectors' badges, carriage
maps, etc., 1,160 64
For dog licenses (credited to school department), . . 29,155 00
Total, $51,444 64
For uniform cloth, etc., 17,659 66
Total, $69,104 30
124 rOLICE C0>OIISSI0NER. [Jan.
Table XMII.
Payments on Account of the Signal Seirice during the Year ending Xor.
30, 1910.
Labor, $28,067 67
Hay, grain, shoeing, etc., 7,261 20
Rent and care of buildings, 5,012 30
Purchase of horses, harnesses and vehicles, . . . 1,302 00
Stable supplies and furniture, 36 50
Repairs on buildings, 2,397 21
Repairing wagons, harnesses, etc., 1,526 27
Fuel, gas and water, 1,180 51
Miscellaneous, car fares, etc., 113 69
Signaling apparatus, repairs and supplies therefor, . 6,057 89
Underground wires, . . : 9,960 S2
Printing, stationery, etc., 77 29
Total 862,993 38
1911.1
PUBLIC DOCUMENT — No. 49.
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129
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INDEX
i
I
'i.
I
I
I
INDEX.
A.
PACE
Accidcnta 75, 125, 126
persons killed or injured in streets, parks and squares . 125, 120
number of, reported ........ 75
Ambulance service ......... 82
Arrests 25-39, 71, 75, lO.S, 104-118
age and sex of ......... 119
coraparatire statement of ...... . 120
for offenses against chastity, morality, etc. .... 109, 1 10
for drunkenness 25-39,73,113
foreigners 72. 104-118
insane persons 73,76,104-118
minors ........... 72
nativity of ......... . 72
nonresidents 72, 104-118
number of, by divisions . . . . ' . . . 103
number of, punished by fine ....... 73
summoned by court . . • . . . . .72, 104-118
total number of ........ . 71
violation of city ordinances ....... 72,112
on warrants 72, 104-1 18
without warranta 72,104-118
Auctioneers ........... 121
AutomobOes 8, 81, 125, 126
accidents due to ........ . 9
laws ........... 9
police 81,82
public ........... 84
prosecutions .......... 8
B.
Benefits and pensions ......... 90
Bcrtillon s}-5tem .......... 74
Bridges, defective ......... 75
Buildings ........... 75
dangerous, reported ........ 75
found open and made secure ....... 75
Bureau of Criminal Investigation ....... 74
c.
Carriages, public .......... 84 121
articles left in ......._ _ g4
automobile ••-...... 84
number licensed ••....... 84 121
\
134 INDEX.
FACE
Cases investigated ........ To, 78. 81 '■
Ceafpools. defective, reported ....... 75 f
Children ........... 11. 75 ,-
abandoned, cared for ........ 75 •
lost restored .......... 76 '
juvenile offenders ......... H
Chimneys, dangerous, reported ....... 75
City ordinances, arrest* for violation of ...... 72,112 _
Claims, inspector of ........ . 77
Coal holes, defective ......... 75
Collective musicians ......... 87, 121 •
Commitments .......... 73, 79
Complainta 87, 100 '
against police officers ........ 100, 101 i
against miscellaneous licenses ....... 87, 121
Courts 7.3, 120
fines imposed by ........ . 73
number of days' attendance at, by officers . . 73, 75, 78
number of persons summoned by ..... . 72
Criminal Investigation, Bureau of . . .... 74
arrests .......... 75
finger-print system ........ 74
photographs .......... 74
records ........... 74
rogijes' eallery ......... 74
Criminal woik 5, 120
comparative statement of ...... . 120
D.
Dangerous weapons ......... 89
Dead bodies, cared for ......... 73
Dead bodies, recovered ......... 75, 81
Deaths 78
by accident, suicide, etc. ....... 78
of police officers ......... 70 .1
Department, police ......... 71 !
Department expenses ......... 12 |
Detectives, private 121 I
Distribution of force ......... 71, 92 j
Disturbances suppressed .... .... 76, 81
Dogs 78, 121, 122 i
amount received for licenses for ...... 121,123 ;
damage done by ........ . 78
number licensed 121, 122, 123
Drains and vaults, defective reported ...... 75 Ij
Drivers, hack or cab ... ...... 84, 121
Drowning, persons rescued from ....... 76, 81
Drunkenness 25, 39, 73, 79, 81 '
arrests for, per day ........ 73 ,
increase in number of arrests for ...... 73 }
nonresidents :?rrcstcd for ....... 34,73 J
total number of arrests for ....... 72,113 J
INDEX. 135
E.
PAOB
Employees of the Department ....... 70
Events, special .......... 77
Expenditures 90,123,124 |
Extra datics performed by ofiBcers . ■ 75, 76 '
F.
Fences, defective, reported ........ 76
Financial ........*•• 90
department expenses ........ 13
expenditure .......... 90, 123
house of detention ......... 90, 123
pensions .......... 90, 123
gignftl ser\'ice ......... 91, 123
receipts 91,121,123
miscellaneous license fees ...... 91, 121, 123
Fines 73, 120
average amount of ........ 73
amount of ......... 73
number punished by ........ 73
Finger-print system ......... 74
Fire alarms ........... 75, 81
defective, reported ......... 75
number given ......... 76
number on water front attended . . . . . . 81
Fires 76,81
extinguished 76, 81
on water front extinguished without alarm .... 81
Foreigners, number arrested . . . ' . . . . 72, 104-118
Fugitives from justice ......... 75
Gaming, illegal 113, 114
Gas pipes, defective, reported ....... 75
H.
Hack or cab drivers ......... 84,121
Hackney carriages ......... 84, 121
Hand carts ........... 121
Harbor service, special duties performed ...... 80
"Ferret" in commission ........ 81
Horses 81, 102
bought, sold, etc. ......... 81
distribution of ........ . 102
number in service ... ..... 81, 102
House of detention ......... 79
Houses of ill-fame, etc. ......... 15-25
Hydrants, defective, reported ....... 75
136
INDEX.
I.
PACE
Impiiioaracnt. number of yoara of . . . . . . "5, 120
Income 91.121,123
laqursta held .......... '8
Ins&oe persons taken in charge ....... '3, *6
Inspector of claims ......... "
rases investigated ......... «7
Intoxicated persons assisted ........ "6
Itiaeraut musicians ......... 87, 121
J.
Junk collectors .......... 121
Junk shop keepers ......... 121
Jury work by police "
Juvenile offenders ......... 11
L.
Lamps, defective, reported
I.aw and the police
Law and rx'I'c>- in use of special policemen
Licenses, miscellaneous
Listin; male residents
certificates refused
expenses of
number of male residents listed
supplementary list of male residents
iromen voters vei ified
number of policemen employed in
Loans, small
I>od^ens at station bouses
Lodging hou-«es, public .
applications for licenses
authority to license
location of
number of persons lodged in
Lost, abandoned and stolen property
M
Medical examiners' assistants
isquests attended .
causes of death
ca^cs on which inquests were held
Minors, nuDil>er arrested
^fisc«ilaneouB business .
Miscellaneous licenses
complaints investigated .
number issued
number transferred
Dumber cancelled and revoked
amount of fees collected for
Missing pcriwins ....
numljer refM^rted
numlx-r found
S5
4b
20
-•»
86.
121
127,
12S
S3
So.
123
85.
127
85.
128
85.
129
86
90,
121
73
SS
S3
SS
8S
,89
8£
,S9
76,
131
78
78
78
78
104-118
75
."6
S6.
121
87,
121
SC,
121
86.
121
i!6.
121
87,
121
76
76
76
INDEX. 137
PAOB
Musicians, itinerant ......... 87, 121
applications for Ucenses ........ 87
instruments examined ........ 87
instruments condemned ........ 87
instruments passed ........ 87
Klusicians, coUectire ......... S7, 121
Xatirity of persona arrested ........ 72
Nonresidents, number arrested 34.72.104-118
o.
Offences, tables of . . . 104-118
against the person ........ 71. 104, 105
against property, with violence ..... 71, 105, 106
against property, without violence ...... 71, 106
against property , malicious ....... 71, 107
comparative statement of ...... . 120
forgery and against currency . . . . . .71, 107
against license laws ........ 71, 108
against chastity, morality, etc. .... 14.71,109,110
juvenile .......... 11
miscellaneous ........ 71. 111-117
recapitulation ......... 118
P.
Parks, public 125, 120
accidents reported in ....... . 125. 126
Pawnbrokers .......... 121
Pensions and benefits ......... 90
estimates for pensions ........ 90
number of persons on rolls ....... 00
payments on account of ....... . 90
Police 86
railroad .......... 86
special ........... M
Police charitable fund, number of beneficiaries .... 90
Police department ......... 70
how constituted ......... 70
distribution of ........ . 7i, 92
officers appointed ......... 71
date api>ointed ........ 97
complaints against ........ 100, 101
died 71.94
discharged ......... 98
injured .......... 71
promoted 71, 96
resigned 71. 98
retired 71,95
absent sick ......... 99 ii !
arrests by ........ . 71
detailed, special ei'ents .... 77 ■/?
13S INDEX. •!
■1
4'
rAcK i
Police depaztmeat, wurk of ....... . 71 •
horses in me in ........ . SI, 102
vehicles in u»e in. ........ i3 ^
Police Relief .Association. inv«»<«l fowl 'A .... . 'M
Police signal sen-ice 70,79,91,93.123,134 '|
cost of maintenance ....... 91,123.124 1
payments .......... 124
signal boxes .......... 79
mifcellaneoos work ........ 79
property o( ......... . 60 j
Private u^e of public streets ........
Pri\-ate deteirtives 121
Property 73.76,121.123 '
lost, abandoned and stolen ...... 75. 76, 121
recovezvd 73, 75, 80, 120
sale of condemned 91,121,123
stolen in city 73, 120
taken frwn prisoners and Ifxiif-n ...... 73
Public carriai^es .......... M
Public lod«ia«-bousc8 .... ..... 88, 121 ;j
Railroad police ,.,,...... 86
Receipts 91, 123
Registxatioo (sec Listing) ........ 8.5
Rogues' faOery .......... 74, 75
s.
Second-hand artielcs ......... 121
Scwera, defective, rcijorted ,,,..... 76
.Sick and injored pcruoas assistitd ...... 73, 76, 81
Sickne^. absence on account <of ...... . 99
Signal servioe. pc4ice 70,79,91.93,123.124
SmaU loan licenses 90, 121
Special events ..,.....-. 77 :
Special pfiitx .......... 86 j
Station inasa .......... 72 i
lodeers at ......... • 73 <■.
witnreasea detained at ....... - 73
Stolen property, value of ...... . 73, 75, 120
Street raiiwaya, conductors airl tfi/Aiinafra licensed .... 121
Streets 76,125.12*
accidenif reported in . ...... 125, 126
defective, repmited ........ 76
private ose of ......... 9
(1
M
T.
Teams ...,,...-.. '6
stray, pat np ......... 76
Trees, defective .......... 76 *
INDEX. 139
V.
PAOC
Vehicles 81-83
ambulances .......... 82
automobiles .......... 81
in use in police department ....... 83
public carriages ......... 84
wagons 84, 121, 122
Vessels 80 J
)
w. j
Wagons 84, 121, 122 j
number licensed by divisiona ....... 122 ^
total number licensed 84, 121, 122
Water pipes, defective, reported 76
Water running to waste reported ....... 76
Weapons, dangerous ......... 89
Wires and poles, defective, reported ...... 76 j
Witnesses 73,76,78
number of daj-s' attendance at court by officers as . . .73, 120 1
fees earned by officers as ....... 73, 120 t,
number of, detained at station houses ..... 73, 76 .j
Women committed to House of Detention ..... 79 ;
Women voters verified ......... 85, 129
I
■i
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BOSTON PUBLIC UBRABY
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3 gSoesiS 944 6
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