1866-7.] 
CITY DOCUMENT. 
[No. 4. 
REPORT 
UPON THE REMOVAL OF 
SWILL AND HOUSE OFFAL, 
AND OTHER SUBJECTS. 
PRESENTED TO THE BOARD OF HEALTH, JUNE 25th, 1866. BY THE 
SUPERINTENDENT OF HEALTH. 
PROVIDENCE: 
PROVIDENCE PRESS COMPANY, PRINTERS TO THE CITY. 
1 8 6 6. 1866-7]. 
CITY DOCUMENT. 
[No. 4. 
II EP OR T 
UPON THE REMOVAL OF 
SWILL AND HORSE OFFAL, 
AND OTHER SUBJECTS. 
PRESENTED TO THE BOARD OF HEALTH, JUNE 25th, 1866, BY THE 
SUPERINTENDENT OF HEALTH. 
PROVIDENCE: 
PROVIDENCE PRESS COMPANY, PRINTERS TO THE CITY. 
1 8 6 6. REPORT. 
Office of the Superintendent of Health, 1 
Providence, June 25, 1866. ij 
To the Honorable the Board of Aldermen: 
There are several subjects to which I wish to call your atten- 
tion at this time. 
SWILL AND HOUSE OFFAL. 
Owin'*to the unusual interest that has been awakened among 
the people, in relation to the removal of filth and nuisances from 
the city, the complaints that swill is not removed have largely 
increased. The subject is more perplexing, and is surrounded 
with more difficulties than the people generally suppose. Pre- 
vious to the establishment of the office of Superintendent of 
Health, it was the custom of the Board of Aidermen to contract 
with one person to remove the swill and house offal from the 
city, and the expense to the city was from -$800 to $1600 
annually. 
The arrangement gave general dissatisfaction, and the com- 
plaints were numerous and constant. When the subject was 
placed under my charge, I thought to remedy the trouble by 
dividing the city into smaller districts, and making contracts with 
persons who would give more personal attention to it. I was 
able to find persons who were willing to make contracts to 4 
SWILL AND HOUSE OTFAL. 
remove the swill without pay, thus saving from $800 to $1600 
annually, to the city. This plan has been continued to the 
present time, except that, in some years, we have been obliged 
to pay a small sum, not exceeding fifty dollars for each ward, to 
the contractors. At present, nothing is paid, the swill itself 
being considered a sufficient remuneration. 
So far as efficiency in the removal of the swill is concerned, it 
is found that it makes no difference whether the contractors are 
paid or not. There are no more complaints now than formerly, 
and in the larger portion of the city the swill is removed as 
thoroughly as it ever has been at any previous period. But the 
whole system of contracting with private persons to remove the 
swill is a failure, and I have so reported to your Board at different 
times. 
The following extracts from a report to the Board of Aider- 
men, made August 15, 1857, will show some of the difficulties 
with which the subject is surrounded, and every word of it is 
literally true at the present time: 
" It is becoming evident that this plan will not meet the wants 
of the public convenience, nor of the public health. Though 
the work is done, the present year, quite as faithfully, if not more 
so, than ever before, the complaints are numerous*from all 
parties, and the system seems to give satisfaction neither to the 
public nor to the swill contractors. 
" The swill contractors cornplain that a host of persons, living 
just beyond the city limits, keep swine, and come into the citv 
and steal and beg a considerable portion of the swill, thus ren- 
dering it impossible for the contractors to obtain swill enough to 
pay for the expense of running their carts. They also complain 
that some persons put oyster shells, bottles of medicine, and 
numerous other articles into the swill. 
" The complaints from the people are of every description, 
and of the most opposite character. The most numerous com- 
plaints are, that the swill is not removed, though it is frequently 
found that the persons making these complaints have previously 
given their swill to unlicensed persons, and refused it to the swill 
contractors. SWILL AND HOUSE OFFAL. 
5 
" A large number of persons have presented earnest petitions 
to the Board of Health, complaining that unlicensed swill 
gatherers come into their yards, without permission, and steal 
the swill. They complain that these persons pour the swill 
on the ground and take such portions as they choose-thus 
creating a most offensive nuisance. They complain that these 
persons steal clothes and other articles within their reach. They 
complain that, frequently, these swill thieves are in league with 
the servants, and that, while taking the swill, they are assisted 
to take quantities of valuable food, groceries and other articles. 
These citizens, therefore, earnestly request that these unlicensed 
swill gatherers may be prosecuted, and that they may be pro- 
tected in giving their swill to the regular swill contractors. 
" Another class of citizens complains because the unlicensed 
swill gatherers are prosecuted, and because they are deprived of 
the privilege of giving their swill to such persons as they choose. 
"Another serious trouble in relation to the swill and offal is, 
that a large portion of our citizens do not realize the importance 
of having it removed, and will sooner throw it into the yard or 
into the street than take the trouble to save it for the'swill 
gatherer. Thus we find, that there is trouble in the enforcement 
of the present laws, and trouble in their non-enforcement; and 
the consequence of all the trouble is the worst fact of all, namely, 
that a large portion of the swill and house offal is not removed 
from the city, but is left to decompose and excite disease among 
the people. In some conditions of the atmosphere, particularly 
when there is excessive heat and moisture, and when there is 
any epidemic influence prevailing, the impure air arising from 
these collections of swill and house offal, is a most injurious 
nuisance and a prolific source of diseases. The danger is still 
greater when, as is frequently the case, the swill and offal are 
deposited in cellars, or are thrown into privy vaults. 
REMEDIES FOR THE SWILL NUISANCE. 
" The remedies for the evils resulting from the present system 
for the removal of swill and house offal, remain to be considered. 
The present system, if it could be relied upon to accomplish the G 
SWILL AND HOUSE OFFAL. 
object, is the most economical. But it does not accomplish the 
object. The swill is not removed, and after a trial of many 
years, the system must be pronounced a failure. 
" I am satisfied that the swill and house offal, in this city, will 
never be effectually removed, so long as those who remove it 
are dependent, to any extent, for their remuneration, upon the 
quantity and value of the swill they can collect. There is no 
doubt that if the swill contractors could have all the swill and 
house offal in the city, and could receive it in good condition, it 
would be worth the expense of the collection and removal. But 
under the present laws and habits of the community, this can 
never be insured to them. They can obtain only a portion of 
the swill, and much of that in a worthless condition. The 
quantity obtained, by daily visits to a large portion of the houses 
in the city, is so small that it will not pay for the trouble of 
collecting, though, if suffered to remain, this small quantity may 
become a very great nuisance." 
Such were the views I presented to your Board in 1857, in 
relation to the swill nuisance, and the experience of nine years 
since'that time, with the complaints which are daily brought to 
my notice, fully confirm their correctness. 
The remedies which I proposed at that time were as follows ; 
and with some slight modifications, I can propose nothing better 
at this time: 
" 1. Define the meaning of the words ' swill,' and 'house 
offal.' 
" 2. Require all the swill and house offal, from every house, 
to be removed out of the city, daily, during the months of June, 
July, August and September; tri-weekly during the months of 
April, May and October; and seini-weekly during the months 
of November, December, January, February and March. 
" 3. Require every house-keeper to place the swill and house 
offal in a suitable vessel, and in a convenient place for removal. 
"4. Authorize the employment, by the city, under' the con- 
trol of the Board of Health, of a sufficient number of horses, 
water-tight covered carts, and drivers, to remove all the swill 
and house offal; the carts to be plainly marked ' city swill 7 
I 
SWILL AND HOUSE OFFAL. 
cartsto give notice of their approach by horns or bells ; and 
the drivers to be under obligation to visit every house in their 
district and faithfully to remove the swill. 
" 5. Authorize the sale of the swill and house offal, by the 
city, to be delivered on scows or at some convenient depot; the 
same to be removed, daily, to a sufficient distance beyond the 
city limits. 
" 6. Authorize the granting of licenses to other persons to 
remove the swill and house offal from those houses, the occupants 
of which shall make a request to that effect, in writing, and 
provided persons so licensed shall give bonds to remove the swill 
as frequently as the city carts ; to remove it for one year, at 
least; and to remove it at least one mile beyond the city limits ; 
and provided they shall engage not to keep any swine within 
that distance of the city ; and provided they shall remove the 
swill in water-tight covered carts, the carts to be marked ' pri- 
vate swill carts,' with the owner's name, in plain letters. 
" 7. Strictly forbid any person from removing swill, without 
a license, or in any manner, excepting in water-tight covered 
carts; and particularly forbid the collection of swill by women 
and children. 
"Such are a few of the provisions of an ordinance which, it 
seems to me, would be effectual to accomplish the removal of 
the swill and house offal from the city, and to avoid the diffi- 
culties which exist under the present regulations. 
"An ordinance, somewhat similar to the above, has been in 
force in the city of Baltimore for three or four years, and that 
city has enjoyed some remarkable exemptions from epidemics, 
which seem to show that its sanitary regulations are worthy of 
imitation. In Baltimore, the ' city garbage carts ' visit ' every 
street, lane and alley, not less than three times a week, on alter- 
nate days, from the first day of November until the first day of 
May; and daily, (Sundays excepted,) from the first day of May 
until the first day of November, for the removal of offal and 
coal ashes from the dwellings and other places, within the 
several districts of the city.' 
Whether the garbage is all removed in Baltimore, under this 
arrangement, I know not; but we may be certain that no more 8 
SWILL AND HOUSE OFFAL. 
is removed than ought to be. During the year 1854, in that 
city, 38,420 loads of garbage, including coal ashes, were removed 
by the city carts. The average weight per load was 2030 
pounds ; the average quantity to each house in the city was 2263 
pounds; and the average cost was 44 cents per load, or 2.3 cents 
per 100 pounds. In 1856, in the same city, 52,476 loads were 
removed, at an expense of 43.7 cents per load. The population 
of Baltimore is about four times that of Providence. With 
regard to the system in operation in Baltimore, the ieports of 
the Board of Health of that city say: 
So far as relates to the cleaning of streets and the removal 
of garbage, we have been peculiarly fortunate in securing a 
system which time and experience has demonstrated to be ample 
in its comprehension, and eminently useful in its results. The 
present system has proved abundantly sufficient for all street 
sanitary purposes.' " 
This plan would undoubtedly be effectual, and my opinion 
now is what it was nine years since, that no other plan will give 
satisfaction, and accomplish the object desired, namely, the 
removal of all the swill and offal from the city. 
But this plan involves considerable expense, and requires 
time to put it in operation. I would again recommend the 
subject to your consideration, and would suggest that a commit- 
tee be appointed to examine it, and report such action as may 
be deemed advisable in the future. 
For the exigencies of the present moment we must depend 
upon our present system, with such improvements as we may be 
able to obtain. In connection with the Chief of Police, I have 
already taken measures to secure a more effectual compliance 
with the arrangements and regulations now existing, and think 
it will be secured. 
The present contractors have engaged to do the work faith- 
fully, and in accordance with the stringent rules adopted by your 
Board, November 2, 1857.* If their agreement is not fulfilled, 
we have the power to annul the contracts and give them to other 
persons. Their contracts will expire December 31, 1866. 
*See page 13. SLAUGHTER HOUSE. 
9 
As I have already said, I think the present excitement upon 
the subject, among the people, arises more from increased interest 
in the removal of filth than from any unusual neglect on the part 
of the swill contractors. 
A few persons, and with good reasons, make bitter complaints 
that their swill is not removed, and the number of complaints is 
much greater than it should be; but it should be remembered 
that the persons who do not make any complaint, and are sup- 
posed to be satisfied, can be counted by hundreds to one of those 
who have cause for complaint. 
The greater portion of the complaints come from two wards 
of the city and from part of another ward, and there is good 
reason for them ; but in the rest of the city there is very little 
complaint. 
No one can appreciate the importance of having the swill 
removed promptly from the city more than I do, and whatever 
can be done to accomplish this object, by law or otherwise, will 
most certainly be done. 
SLAUGHTER HOUSE. 
We have but one slaughter house within the limits of the 
city. That is almost surrounded with dwelling houses, and is a 
most serious, dangerous and offensive nuisance to a large num- 
ber' of people. It is not necessary to describe the causes which 
render slaughter houses at all times, and under all circum- 
stances, nuisances in the compact portions of any city. It is 
sufficient to say that such locations for slaughter houses are 
universally condemned, and the authorities of all our cities are 
taking measures to remove them. 
From two examinations that I have made of the slaughter 
house in this city, it is my opinion that, owing to local circum- 
stances and the want of an abundance of water, it is not kept 
in as good order as slaughter houses in some other cities. At 
any rate, when I have seen it, it has been very offensive to the 
sight and to the senses. I consider it a serious nuisance, dan- 
gerous to health, and a great and constant annoyance to the 
neighborhood. 
2 10 
SWEEPING THE STREETS. 
I would recommend that the subject be referred to the City 
Solicitor, with instructions to commence immediately such legal 
measures as may be necessary to remove the nuisance from the 
city, in the speediest manner possible. 
THE STREETS. 
Under the effects of the hot sun of the last few days, the 
paved streets in the central portions of the city are fast becoming 
as offensive and dangerous to health as they were last summer. 
Every one knows that in streets which are used so much, large 
quantities of horse manure and other filth must accumulate 
every day, and common sense shows that the moistening of this 
filth daily, by street watering, in hot weather, must promote 
rapid decomposition and the production of volumes of impure 
air which is dangerous to health. 
If not watered, the filth would soon become perfectly dessi- 
cated, and though the dust might be a great annoyance, it would 
be far less injurious to health than the impure air which arises 
from its decomposition. 
It has become evident that the streets will not be thoroughly 
swept by private enterprise, and in my opinion, a proper regard 
for the public health demands that your Board should either 
forbid entirely the watering of the streets, or else provide that 
the principal streets should be thoroughly swept, every day, at 
the expense of the city. 
SANITARY PRECAUTIONS. 
The increase of cases of cholera in New York, and some 
slight indications of choleraic influence in this and other cities, 
call upon us to be sure that every needed precaution is made to 
meet the disease. 
If we should have a case of cholera, I should consider it 
necessary to take active and prompt measures to cleanse and 
disinfect the house and premises where it was found. An 
increase of cases would require additional measures for cleansing 
and additional expense for disinfectants. If the indications of MEDICINES FOR THE POOR. 
11 
sickness should increase, I should consider it the duty of the 
city to use disinfectants for some few of the street sewers, at 
the openings of which, though very offensive, I am sorry to say 
no traps have been provided, though I have often called atten- 
tion to the danger, and though the traps have twice been or- 
dered to be constructed by formal vote of your Board, and of 
the City Council. 
To be provided for exigencies which may occur, I would ask 
that I may be authorized to take such measures as may be neces- 
sary for cleansing houses, purchasing disinfectants, &c., at the 
expense of the city. So far as possible, everything will be done 
at the expense of the owners or occupants of estates; but cases 
may probably occur when no delay can be had, and the most 
immediate action will be necessary. I suppose this may be done 
under the regular appropriation for the Health Department. 
MEDICINES FOR THE POOR. 
In cases of cholera, or of the preliminary diarrhoea which 
usually precedes cholera, it is of the Utmost importance that 
medical attendance and medicine should be obtained immedi- 
ately. In fact, the only hope of relief depends upon immediate 
action. 
Many of the class of persons which is likely to suffer most 
from the cholera, are unable to obtain the proper medicines, or 
may. on account of the expense, be inclined to delay obtaining 
them. Besides this, there is not sufficient provision in this city 
for obtaining medicines promptly at any hour of the night. 
Provision should be made so that any person can obtain medi- 
cine promptly at any hour, and if they are unable to pay for it, 
they should be able to get it on recommendation of any physi- 
cian. 
It is probable that very few persons would avail themselves 
of this mode of obtaining the medicine, and that the expense of 
making such provision would be Very small. 
I would recommend that a committee be appointed to ascer- 
tain what provision can be made for having one or two apothe- 
cary's shops on each side of the river kept open at all hours, and 12 
SANITARY PRECAUTIONS. 
for furnishing medicine to the poor gratis. Perhaps some 
arrangement can he made for this object with the Providence 
Dispensary. 
OTHER PREPARATIONS. 
Some months since I recommended that application be made 
to the Secretary of War for permission to use, if necessary, the 
barracks on the Cove lands. I understand that nothing has 
been done, and that the buildings are to be sold, at auction, on 
Thursday next. 
The exigency may occur when it would be of very great 
importance to use some of those buildings for hospital purposes, 
or for the temporary accommodation of families which it may 
be necessary to remove from infected localities. 
The buildings cannot be sold for more than their value as old 
lumber, and I would suggest that a committee be authorized to 
examine them, and if they thought proper, to purchase some of 
them for the city. 
I do not make these recommendations because there is any- 
thing unusual or alarming in the present indications in relation 
to the cholera. The city generally continues remarkably healthy 
for the season, and so far as I can judge, the prospects do not 
indicate the probability of any severe epidemic. 
But it is wise to be prepared for any exigency; for when 
such exigency does occur it is then too late to make the neces- 
sary preparations for it. 
Respectfully, 
EDWIN M. SNOW, M. D., 
Superintendent of Health. SWILL AND HOUSE OFFAL. 
13 
SWILL AND HOUSE OFFAL. 
In Board of Aidermen, November 2, 1857, the following 
rules and regulations in relation to the removal of swill and 
house offal were adopted, and are still in force : 
First. All swill and house offal shall be removed from each 
house in the city every day during the months of June, July, 
August, September and October, three times each week during 
the months of April and May, and twice each week during the 
months of November, December, January, February and March. 
Second. All swill and house offal shall be collected and re- 
moved from the city in water-tight covered carts or wagons, 
drawn by one or more horses, and no cart or wagon shall be 
used for collecting or removing swill and house offal until the 
same shall have been examined and approved by the City Mar- 
shal. Every cart or wagon used for collecting and removing 
swill and house offal shall be plainly marked " Swill Cart," and 
with the name of the owner and and such other marks as shall 
be required by the Superintendent of Health. 
Third. All swill and house offal collected by the city shall 
be removed at least half a mile beyond the limits of the city, 
and no license shall be granted to any person to collect swill and 
house offal in the city, unless he shall give sufficient bonds that 
he will not keep any swine within half a mile of the city limits. 
Fourth. The covers of all carts or wagons used for collecting 
swill and house offal in the city, shall be kept tightly closed 
while thev are being driven through the streets. 
Fifth. No license shall be granted to any person to collect 
and remove swill and house offal, unless such person shall give 
good and sufficient bonds to remove said swill and house offal 
strictly in accordance with the above rules and regulations.