Annual report of the Governor of the Panama Canal for the fiscal year ended ..

UNIVERSITY

OF

FLORIDA

... . . .. y.. � * * * *,*

i_ i_ lllll i i~ i_ �

ANNUAL

REPORT

OF THE

GOVERNOR

P

AN AMA

OF

CANAL

FOR THE

FISCAL

ENDED

YEAR

JUNE 30

9

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THE

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a. S

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38- *

P -v'

TABLE

OF

CONTENTS.

Kr
**:
gX^,

eqlfrt of the Governor of The Panama Canal- ----------------
Construction ----------1 -- -------------------------- - - - - - - - - - - - ---

Division of terminal construction
Dry docks_ _---- ___--__---__
Entrance basin --------�___
Cofferdam - -- --.. - .-

Entrance Pier No. 9-----
Balboa coaling plant-- -
Unloader wharf, Dock No. 7.
Reloader wharf, Dock No. 6-
Coal-handling plant----
Repair wharves and commerce:
Reinforced concrete pontoons.

Cristobal coaling plant.
East breakwater-----
Building division .......
Operation and maintenance_.
Electrical division ........
Municipal engineering division-
Meteorology and hydrography-
Surveys ._..-.-------.

- - - -

al pier

~- --- '------------------C---I-----------------------------------------------------------

-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------- - - - -

Office engineer- - - --.----
Office of the marine superintendent-------------------------
Dredging division_---------------------------------------
Slides-- -- _-_ ---...
Mechanical division------ - ------------- --------
Supply department - - - - --_
Quarters ..........---------------------- -----------
Corrals - - - - - - - - -- - - - - - - - -
Material and supplies_-
Scrap ..---.---- -------- - - -
Fuel-oil plants and storage
Gasolineli-ne...------------------ - - - - -- - ---
Subsistence__ .. - - - - -----------------------------------------------------------

* r _fl.. - - - -. _._ .- -1. .- -_ 2

Page.
1
1

. . . . -y- -- - -- --_ ". _

Report of the Governor of The Panama Cana
Executive department-Continued.
Police and fire division ---------
Division of schools--- ....-------
Bureau of clubs and playgrounds-- -
The courts -----------------------
Relations with Panama ------

l---Continued,

------l--~-a--- -

- - -- --------- ---------i ---. -- - --T

--_ ..
-- - - -

-A-

Law ---- - ---------------------------- - - - - - ------- ---- ---- --I
Health Department ------------------- ------ ------------------
Division of hospitals .-- - -
Colon hospital -------------------------

Panama ------ -- --- ---------------------------------
Colon _ ..---------------------------------------------------------- ---
SSanitation.. - --------------------- --- ---------------------------------------------- -

Washington office ....-------------- -- - -- - ----------------------- ---------- -
Fortifications ---...... --- - -- ---------- ---- ------------------

Pagt
54

5(5

5T
582
60

62
62
62
63
64

APPENDIX A.

Report of the engineer of maintenance --- - --..------ ----
Organization a-a- -----------------------------------
Lock operation and maintenance -------------
Water storage and consumption in Gatun Lake-------
Arrow signals ----- -------------------------------------- --

Auxiliary culvert valves_ -----
Back fill and gra4ing------
Bronze bolts -------------- - -
Bulkheads, center wall-------
Cable crossover tunnel and pumps_--
Caissons, spillway ---------
Caisson, lock floating -. - ----.--
Chain fender machines....----------
Chain fender test -------

Preparatory

-- - -- -- -.--. - -
-- �--- - a a a a -------------- ---

-- r - -- - - - - a-- --- ---- - --------------- -

--------------- -----------
----------- -------------a-
--------------------------------
---------------------------------------------------
I---------------------a---

----- ---------------------------- - - --- -- -

work on machines.

Protection of bow of ships--
Data obtained ---------------
Test with steamship Allianca-
Locomotives test-------------
Steamship Cristobal test----
Damage to chain and hawse pip
Theory of operation ----

Explanation of
Care of valves.

a... .. .. .. .. .. -- .. - --- - ----------- --
------- ----------------
... a------------------------------------ . -- - a----- - -
----------------- -------- ----

------ ----*---.---- ------------- --------
e - aa---- - - -- ---- a
---.- -- ----------

different results obtained-

- - - ---- - ------MN- --------- - ------

TABLE

OF CONTENTS.

-1" .*, : * ' *

C�

}

TABLE

OF CONTENTS.

Report of the engineer of maintenance--Continued.
Lock operation and maintenance--Continued.

Page

ckag es - ... - ---- -
Electrolysis and corrosion
Lock gates _..--.--
Cylindrical valves ---
Rising-stem valves__

------- - -- ------ --------- -------- ---- --_- -3_ __ a_

.I-------------------------------- --- - - - - - - - - -

Side seals of valves--

Top-gate seal--- ----------- ---- ---- -----
Piers and side sealsa--a aaaaaaaaa
Roller tra ins . .- - -- -- -- - . ... . . - - - - 4 - - -- - - -

C o n clu sio n s ---...........................................................................................................
Miter forcing machines.. ........... .......-
Painting -- ---a .-------.. --.. .....-..-- - ..-.-..-.-._..-.-.-.-._.-.......

Regulating valves-
Repair pits___ -. -
Repair shops --.--

-a--"-lL"1-"-C-
-''-�~~~ ~ ~ ~ a - *---I------I+-~-- --

Snubbing buttons -.--.------.-- -- --------. -_
Spare arts-------- --
Spillway caissons s
Spillway, Miraflores
Turnouts
Telephones_ ---....----------------------- -------_
To ing locomotives
Transformer rooms- -_-----------_---
Whistles .--- ..-
nGatun Locks e k
Locka ge operation---------------------- - -. -----------------

Operating machinery..
Emergency damsa
Miscellaneous work-
Special
Pacific locks ....

-a
a- a
.a a
-- - - - -
-a

Operation__-_ ______
Water ---_-------_---_---__-_------ -
Traffic -me- a - a a-- -�-
Ma intenance............

Emergency dams
Miter gates
Transformer roow

Control
Chain
Mess h
Electrical divis

houses -

n s-------------------------

fenders
al ls a-- -- --------------_-_----- -_ __-- -
ion_-_-_----___-

___________________ _____

TABLE

OF CONTENTS.

Report of the engineer of maintenance-Continued.
Electrical division--Continued.

Page.

Operation of telephone and telegraph system ..... .__--
Operation of railway signal system and accegsories- -_,,_
Northern and southern districts, operation and maintenance work
Armature winding and electrical repair shop--------------.-
General electrical construction work,.. .... __----
Power plants, substations, and transmission lines
Underground conduit lines and underground and overhead
distribution lines--_ -- ..-. _ -.--. . --.- - - - -- - - --- -. --
Street lighting .-- ------ -- -- -- .- - ------- -.---. - --
Motorizing Mount Hope Dry Dock pumps.------
Grader barges for dredging division------------
Berm cranes - --...---.--.--- - -- ------ - - - - -- -.-.--
Shopyard lighting system_ -- - -. - - - - ---- --- --, --- --
Balboa Dry Dock pumping and air-compressor plant
New piers -..... --- -- -------------- -.. . -----
Installation of electric meters- .. ------------ .- ---
Electrical installation work in buildings-----......---- - -

Miscellaneous- --------
Municipal division__ --------------
Southern district--- --
Army work - -- -- - - - ---
Corozal district, Army work--
Balboa district, Army work --.-.
Health department work.....

Marine division work......

Mechanical division
Miscellaneous- --
Straight municipal
Maintenance work_
Panama Citv constr

- -p---- -- - -- a- - - - - - - - - -
-j --. ju-uu ju^ ^if---- - --- - -- -I - - - a
~- - -- C~- lr-C~----------------- -
--- - a- n

l-- --r-r----- ---- - - -
~CI~- ~C----------I-
I m ..

mm~-N

- ---~----rr

and terminal construction work ----....
construction ork-------------------
construction wor --------- ----

auction and maintenance work_

Northern district --- ----
Army work-----------------

Termil
Supply
Panan
Miscel
Report
Operation
Mount

aal

construction

work ---.- ---- --

- a

r department work__
la Railroad work ---- -.------------
laneous _ _ _ _ _-- ----- --- --- ...
t of water-collection office, Colon--
of waiter-purification plants ----
Hope purification plant ------

Aeration

---I--- --

-f--- -- - - "-- -- - I- -- *- -- -* -*
- - - - -----.iBki^W iA h~^4ir- Mth �iM*M-*lHh4lll:~i*IW-4H -I~f

--- --1---- ----

Alum ........---------------- ------ . -- - --

basin --- ---------------

117
118
119
119
119
120
120
120

C(,M - 1 5 Lh :k r L. E' J 1'V u W

TABLE

OF CONTENTS.

Report of the engineer of maintenance-Continued.
Municipal division-Continued.
Operation of water-purification plants-Continued.

Page.

Agua Clara purification plant
Mixing chamber---
Sedimentation basin---
Rapid sand filters
Clear-witer basin.-
Chemical treatment---
Bacteriological data.--.-
Physical and chemical dat

OP 8 tP R .iv at
SUP 1. un dene
MiraHores uriHeaticul ant

JA.T* U MLtiJ 1t.1 IA LV. LL'JAJ

Aeration basin-.----
Sedimentation basins-
Rapid sand filters---
Clear-water basin.-
Sterilization chamber-
Bacteriological data--
Physical and chemical
Operative data-
Superintendence- -- -
Reservoirs---- -----
Plankton studies------

--- w ffw*IP f i ^tf m 4M- ^m-Wi ii- -M - - - - - - - - - - -HH N Mh4HMrMf tttf ttttf IW*i||:*f1MU 4H

- ----- - ---- - -- ---- - a
- - - - - - - - - -
----------------
- - -----------

i, a- - --

- ---- - - ----
- - - -
- - - - - - - -- -
- - - - - - - ---

1- - ---- -� -� -- -1 1-Ir-~

- - --CII--CI -I-- ~---�I
- - ------ --- -Il--C--

---- _- - - a ---, - -- - - - - -

I---l~l-�r-r-- -------
I-I------r- C-- - ----------------

----------------------------------------------------------------------------------------------------------------------

Tables accompanying physiologist's report, list
Section of meteorology and hydrography_-

of_----

M eteo rology ------ - - -------

Precipitation - ---------------------------------------
Temperature- -------------------------------- - - -
SWindr - ------------------- -------
Atmospheric pressure ----------------------
Relative humidity--------------------------

Evaporation-- --_�� - - _�____ ^ _ � � _- --

Sea temperature - ---- ---------------

Tables accompanying meteriological section, list of_-- -
HIydrographyti--------------- -------- -- ----

Currents in lower approach to Miraflores Locks-- -
Miscellaneous- - ---------------------

-- -II

VIII

TABLE

OF CONTENTS.

Report of the engineer of maintenance-Continued.

Section of surveys-Continued.

Fuel-oil storage - ----- -- ------ -.-

Joint Land

Commission-------

Supply department past
General surveys------
Miscellaneous .------
Section of office engineer_

res. .... . . . .
_E _-^LJ J.- *llh--- *-a M|^---- ^ --- .^-- ^ K

Page

S
----------- - ---
- - ---- -- - -

APPENDIX B.

Report of the marine superintendent-

Organization

Tables--
Summary of traffic through The Panama Canal since its opening

to commercial

tr affic .---------------

Number of vessels of various nationalities passing through The

Panama Canal ---------- - - ------ - - - - - - - - -

Distribution

year

of traffic through

Panama

Canal

1916 ---------------------------------

Atlantic
Pacific

to

to Pacific- -- - - - -------------- -

to Atlantic ---------

Measurement of vessels

and application of tolls

in the fiscal
---- - - ---- - --
---- -- - - - ---

- -- -------- --
-- - -

Steamboat-inspection service ---.-----

APPENDIX

Report of the engineer of terminal construction_

Organization ---

office engineering.-

Coaling plants, dry dock,
Coaling plants--

Dock

No. 1

and floating cranes_---

223

Entrance Pier No. 9-
Radio stations----

- ----- -- -- -- -- - -
------- - - - - - ---- -- - --

Floating cranes- - - - - - -- --

Balbon

wharves

pier_--- --

Construction work, field engineering and inspection --------
Pacific terminals----- ----------------------------
General......-------------------------------------
Dry Dock No. 1 -_.-- --------------------------------------

Entrance
Entrance

basin___

Pier

No. 9_

r*~ -�

Design and

""lp$""" "FI"F:Ei"B"""";

:*: !M

TABLE

OF CONTENTS.

Report of the engineer of terminal construct
Construction work, field engineering and
Pacific terminals-Continued.
Tables-
General summary of work_-
Excavation - - - - - -- - -
F ill . . . . . . . . . . . . . . . . . . . . . ..-------- --

on-Continued.
inspection-Continued.

Concrete placed
Reinforcing steel placed --------��--.--- - ...
Fixed steel placed--
Structural steel__---------
Misellaneous---------------------------
Piles driven_ - - - - -
Ca is son operations - - , - - -
Steam shovel excavation-
Summary of Sosa Hill operations
Atlantic terminals. - -- -- ----------------------------------------
Cristobal coaling plant ----- -_------
Tables-
Rein forcing iron_----
Piles driven_ .. ..........--
B ack fill - - - - - - - ---- -- - - - - - - - - - -

Progress of cylinders---- - -
Excavation....__. ....._. . ._-_--.
Summary of erection of wharf decking steel-
Tracks-------------� _�-�----
Fixed iron_
Concrete..------------
1E a s t b r e a k ~x- a t e r - _ - - - -------------------------------_ _ _- - ----- --------------- ---------------------
East brea kwater- .... _ ..-- - ----- -
Tables-
Trestle reconstruction- --
Trestle construction-------------
Dry fill in place-plowed off Lidgerwood cars.
Placing concrete blocks
Hydraulic filling -- --_-
Concrete-block production
Manufacture of concrete blocks at Gamboa__.
Tables-
Walker and Torbert contract-rate of manuf
concrete blocks and total to date- --
Rate of shipment -
Pier No. 7 and other work- - ----

Page.
242
242
244
246
248
2570
252
253
254
255
258
258
259
259

262

------------W

I________

acture

OF CONTENTS.

Report of the resident engineer, building division--Continued.
Building operations_ --.- - -- - ---- -- --- ---
Buildings authorized and constructed -------------
Canal and Panama Railroad buildings __- ----- --
Army buildings- -- - ---.-.-- . --- -- - - - --- -- - ---- --------
General building operations-- ..-..-.------------------ --
Comparative costs.....-.----------------------------

New Ancon HospitaL - --- ---
Group 4, section A ....
Colon Hospital -. . -- -- ----
Pacific terminal building
Bachelor quarters___-----
New An con Hospital -
Dispensary and admitting office- -.---
Laboratory building -- - -- ----
Ward group No. 5----------------

PagE,
281
281
282
283
284
286

- - - - - - - -------------------------------- - -
S- - --------------------------------------------------------
S- - ---------------------------------
- - - ---------------------------------------------------------------------
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------- - - - -
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------

-------------------------------------------------------------------------------
--------------------------------------------------------------------------------------------

Force-... ----..--

APPENDIX E.

Report of the resident engineer, dredging division-----------
Division organization --- - -- - - - - - - ---- ----------------
------Dredging - -- ------- - --------- --- ------ --.-------- -------------------- m.----- . - _
Tables-
Output of all dredges, with total and unit costs--- ----
All yardage actually handled, with total and units costs..

Yardage
Yardage
Locks
Yardage
Yardage
Number

removed, i
removed, f
to GamboE
removed,
remaining
of days d

first dis
irts dis
t Dike
second
to be r
redges

trict,
trict

Pedro Miguel Locks to sea_-
(Gaillard Cut), Pedro Miguel

district-- -.----
emoved from the canal prism --.-

were retired

repairs

newals -
Subaqueous rock excavation . ---------- - -------_
First district, Gamboa Dike to Panama Bay---------

Rock removed by dr
Second district
Dredging operations---
First district------
Yardage excavated
Lake and Gaillard
Distribution of matei
Dumps -
Second district

edges_ - ---

--- - -- - _ w _ _ - - *-- - - - I - - - --- - -- -k w-

from Pacific entrance, Mirafl
CutL --- - -- -____- - - ----
rial removed from Gaillard Cut

--ores
lores
-- - --
-- -----M-

--------------------------------- - - - - - - --.............. ^ _ ..... .. ^ . ^__.^ . ^_ ^^_ ...-...^ _.^^ ^^- .UU iU a-*--*iu- IIJ..J............
- - - - - - - - - - - --************** *************** *********- '^ *'^r-- rT^ ^^r -- - - - - - - -- - - - - - ---- -v^^*r*W� ff^TW^~p ^^^p^ ^^ |||^MIF-?

TABLE

" ;!"

OF COENENTS.

Report of the resident engineer, dredging division--Continued.
Water hyacinths -- -------- - - - - - - ---------------------------------------- -------
Surveys-1 .- -. - - -I - --a- - ---- -- - -- -.-- - - - ---- ------ --------
Office-----------------------------------------------------------
Tables-
Dry excavation-Panama Canal and auxiliaries
Dredge excavation-Panama Canal and auxiliaries -- -----

Page.
306
307
307

308
309

APPENDIX F.

Report of the superintendent,
Organization ------------.
Ge neral
Dry docks and shops-.
Miscellaneous --------
Tables accompanying repo

mechanical

rt, list

division

of- --_�-

APPENDIX G.

Report of the chief quartermaster,
Organization

supply

department

Personnel

Labor -.--------
Quarters ----
Zone sanitation --
Corrals ----------
Material and supp
Operation of store

-- --------------------------------------------------------------------------------------------------------------------------- ----
~~~-- ----------------------------------------------------------a

lies.
,s-

Scrap ....--------------
Sales --------- - -- --------
Fuel-oil plants and storage-
Gasoline storage
Subsistence rt---g---l
Mount Hope printing plantL

Operations of the
Tables-
Force actually,
Force report!
High and low
Occupants of
Applications

commissary

branch

y at work on June 21, 1916-.-------- ---
s by months, including contractors' force ...
r force records by fiscal years-
Panama Canal and Panama Railroad quarters___
for married quarters on file June 30, 1916..---

Animals in corrals
Value of material

I June 30, 1916- --- ---- ---
received during fiscal year on requisitions__-

TABLE

TABLE

OF CONTENTS.

Report of the chief quartermaster, supply division-Continued.
Tables-Continued.
Fuel-oil storage facilities on the tank farms of Th
Canal o.i - by - ---- --.
Fuel oil handled by The Panama Canal_

Panama

- _ a C? -_ -_ -_ -

Page.

856

APPENDIX H.

Report of the Auditor------ -- - ----�-------

Organization ---
Paynsaster --
ColleAtor-1 -othe
Accounting to the
Claims for refund

---------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------- - -
----- - ----------------------------------------------------------------------------------------------------------------------- - - -

Treasury
of tolls.-

Clainis for damages to vessels
Examination of pay rolls .
Canal appropriations----
Exchange of property with I
Construction of canal. ----
Manufacturing plants----
Operation and maintenance
Overhead expenses.
Canal Zone accounts-
Clubhouse accounts ---
Claims for injuries and death
Coupon books
Inspection of accounts .

Bonds
Time

of employees
inspection

S

for collections -. - -. . --- --

s passing through the locks-------

Panama Railroad -.-.........

-- - - --

S----

-- - - - - -
--- - --- ---

--- - - - - - - - -
-- - - --- - - --- -
-- - - - ----- - - -
-- - - - - - - . - -------------------------------------------------------------------

Storehouse

accounts.

Commissary- ----------------___-------__
Panama Railroadn r.--t l---- - ---- -- _- --
Tables accompanying report, list of ........_. ..

APPENDIX I.

Report of the executive secretary
Orga nization - --------
Executive office --� �
Bureau of clubs and playgroun
Division of civil affairs_.
Shipping commissioner__
Customs- .-----.------ -.

Licenses and taxes-

n

ds_--- - _._........
------------------------------+------- - im- - - - --� --* ^^- ^^4^^- *AIH MP 4W ^^^I^H ^HW4l||| u^i~i IIHH- IM fWll^ UN
--- - - --Wr V- 1 hf - - pmHffVm Wr ^R:--- *m-^^ :M:i^~ ^-K4H- tPf t--'^*^u i^;--1* W :-- --W*kh--i~^ ji^ �B tHf

* f l I nn l rflflflfl#U Ao<

!M'

N-

AC^M

TABLE

OF CONTENTS.

XIII

Report of the executive secretary-Continued.
Executive office-Continued.
The courts -------------..-- ---.- .-------- - - - ----__-_____
Special attorney and district attorney -- --..-----.-----
Relations with Panama .-- - ------ -- ---..
Legislation ----- - --.- - --. --------- --------.-- - --- --------- - ---- - - ,- --- ---- _---
Tables-
Vessels entered and cleared and seamen shipped and discharged
at Balboa and Cristobal .----.-----------�__ __-___
Number of estates received and settled and amount of funds han-
dled--------------------------------------------- --
Number of estates of deceased and insane employees, by nation-
alities, settled by administrator of estates- ----_-_ -

Page.
490
491
491
493

494

4094

495

-

-

Number of free entry requests on freight shipments approved, to-
gether with commodities imported
Postal service-

Number
ernme
Number
tered
Letters
Number
chang
Number
railwm
Amount

of mail parcels on which duty has been paid(
snt of Panama, and amount of duty, by offices
of insured and C. O. D. parcel-post parcels an
articles delivered, by offices
and parcels registered, by offices ----_-
and destination of dispatches of mail by
e office at Cristobal

of pouches, sacks,

I

to Gov-

d regis-

the

and registered sacks handled

y-mail messengers'^--- ---- -
of money orders, by offices, payable to the remitter

and drawn on the issuing office remaining unpaid
30, 1916-- -
Deposit money-order and postal-savings transactions_
Business of Canal Zone postal system-------
Postal receipts and expenses
Total cash transactions of Canal Zone postal system
Free entry requests on freight shipments
Police and prisons-
Police force as of June 30, 1916
Distribution of police force by stations and substation
Strength of police force by months__
Changes in police personnel
Fines imposed on police officers for violations of poli0
and regulations- - - ----- ---

3n June

n

ce rules

Number of arrests, by fiscal years, made in
organization__-_______
Number of arrests, by months, during fiscal

Canal Zone since

year.__

OF CONTENTS.

Report of the executive secretary-Continued.
Tables-Continued.
Police and prisons--Continued.
Value of labor performed by Zone prisoners confined in the
common jail. . _-- -,-.-..a....a............ -_ .., ___
Animals impounded and fees collected.. _-_-..._.. _.
Convicts discharged from penitentiary during fiscal year.,.
Crimes committed by convicts confined in penitentiary_____
Nationality of convicts confined in penitentiary . ...____
Convicts received at penitentiary during fiscal year ... -
Sentences of convicts confined in penitentiary on June 30,
1916 ..... __ ___ ..... .... .... ....
Convicts and Zone prisoners deported during fiscal year... _
Cost of subsisting, guarding, and clothing convicts confined
in the penitentiary.--___________-....- -. .-a...._-....
Value of the labor performed by convicts employed on public
improvements and value of labor of convicts assigned to
inside labor at the penitentiary
Deaths, by months, investigated by coroner during fiscal
year . .. . -. . . -- _ .. _-
Causes of deaths investigated by coroner .......
Nationality of persons whose deaths were investigated by
coroner .-. ___-_ __
Fire section-
Fire personnel - - - . _ -._._ _______ _ __
Distribution of fire personnel, by stations..........
Enlistments and separations, fire force, during fiscal year___

Statement of damage
Property involved in
By whom fires were
Classification of fires
Classification of fires
Classification of cause
Manner in which fires
Distribution of alarr
Statement of fires am
Distribution of fire
Inspection of fire hos
Volunteer companies.
Volunteer companies-

resulting from fire during fiscal year__
fires during fiscal year---__ __-_
extinguished -.-... ... .. ..-..... �

according to ownership of property
by buildings -,_ ---__ .__..______
ses of fires ,- -__ -.. ___._ -__
were extinguishedL...------- _
as by towns -,_________ --.. - _--

d losses of property..-........ _
quipment..... ....- .- - --
e and extinguishers, etc., by months-_.

-summary of drills and passes issuedL

Canal Zone census-summary of house-to-house canvass taken
between June 1 and 10, 1916--...._..............-_ .._.. ___
Schools-
A .. t , S I V*-k* - . - -..

TABLE

Page.

TABLE

OF CONTENTS.

Report of the executive secretary-Continued.
Tables--Continued.
Schools---Continued.
Report of annual physical examine
children during October, 1915.
Money received during year on ac
etc., and tuition, and turned in
lector .-----------------------
Supervisory visits by superintende
Epitome of more important school
June 30, 1913, to 1916, inclusive.

Page.

nation of white grade-school

count of sale of text-books,
to the Panama Canal col-

nt, by months --.-__._--_
statistics for years ended
- - - - -- ------------------------

APPENDIX J.

Report of the district attorney -.. --------- -
Cri in, al prosecutions_-- - _-------------- ------ -------- --------------
Summary of criminal prosecutions for the fiscal years 1915 and 1916_

APPENDIX K.

Report of the special attorney --.-.-.-- -- --
Statement of Panama Railroad leases and licenses

1916 .....-..-----.---
Panama Railroad cases settled during fiscal year __r..
Cristobal division, district court of the Canal Zone_
Balboa division, district court of the Canal Zone--
Panama Railroad cases pending at close of fiscal year
Cristobal division, district court of the Canal Zone_
Balboa division, district court of the Canal Zone--

in effect July 1,

------------------------------------------------------- -
----------------------------------

APPENDIX L.

lReport of the chief health officer ....
General remarks-_---.....................

Vital statistics - - -
Employees. __--------------__ ----- _-___ _ __-_ __
Effects of season_ ......___--�.--_.-_-�-.--
Effects of race ........
DeportatRio ns -
Canal Zone_-_-_------------ -- ------------------ -
Panamal City- -- ----- ------ ------------- -- - -- ----------- - - ---

I l A iv i i of h sp:tals -- - - ------------------------------------------------------------------------------
Aivision of hospitals. .................................
Ancon H-jospitalt___ --_-____-__-_-____

Patients- ........
Permanent buildings

TABLE

OF CONTENTS.

Report of the chief health officer--Continued.
Vital statistics-Continued.
Division of hospitals-Continued.
Santo Tomas Hospital . --.
District dispensaries ----.---
Medical storehouse .--- ----.

Sanitation -..
Canal Zone
Panama -
Diseases
General

-----------------------
- --------- - --- - - a- a

------ - ------------------ ------------------ --------
-___--- ---------------------- ------------------- -------------a--
- ~-----------~- -------- - - - - - - - - - ---- - -------------------------

sanitation

-- - - - - - --- -- - - - - - - - -- - - - - - - - -
-~~~ - - - -------------------- -- - --- ---

Mosquito work --- - --- -------------
Rat destruction --------------
Fly prevention -------
Stables - ----- --- - -- ------ ------------ --------.
Building inspection, construction, and repair.
Sidewalks - - ------- - --- - .. -

Food

-------------
-----------------------------' ------

---------------------------
-- --- - -

inspection

Street cleaning and sprinkling.
Garbage collection and disposal
Colon -----------------
General sanitation -----.----
Mosquito, rat, and fly work_-
Food inspection --------
School inspection a---.--
Street cleaning -------------
Garbage removal- .-..----
Build*ings -a----------- ---
Notifiable diseases--
General - - ---------------- --------- - -----
Quarantine division -...--.----.
Tables accompanying report, list of .

S---- - - ---C--- - - --- --- - - - - -

----,,,,* --------
- a - a - a--r------------r--------------------- - - -
- ---------------------------- ---C--------------------------- -
- I -- - ----- -------------- -C------------------------
-a------------------------------------------------- - a -f*^W tem ^^ *--�'M-Wf' 111111^^Bf 411HR^^* ^^ ^^^ Ulll 1^^

-�-~-----C--- ------- - ---- - -* -- - -
-~-7-------- a -------------

---I-- I---I--------- - - - - l--
S- - - r - - ---- a a - - ---- a -------

-- -- --f - -------- ------^-- - -
- -- ---- ---- ---- --- --

Page.
548
549
549
549

551
551
552
552
553
553
553
553

554
554
554

555
555
555
556

557
557

557

APPENDIX M.

Report of general purchasing officer and chief of the

Washington office_.

APPENDIX N.

Preliminary report of the committee of the National Academy of Sciences

upon the possibility of controlling the landslides
Panama Canal ------------ -------------------........... --
In~trodluction .........................------

The three great sli es.. ........ ...............
Dominant importance of the three great slides

adjacent to The

-I---- -------- --
af--L-:-- ak a a a - a a a--
:-- : ---:-: ----- -

587
587

s

p

I * _ ~_ ^1 I _ _1 1 * ~

TABLES

OF CONTENTS.

XVII

Preliminary report of committee of National Academy, etc.-Cont'd.
IRemiedial measures -. ..---.------------------.- -------__--_
Control of the water . -. . . .. .^.....-_
Relief of pressure , -. .------------------ -------..--.--- ..
Studies for the future-- ------------- -..... .-....
Detection of movements of earth or rock ..............._
Core borings - - - - .---.. . ...------------ - --.-------..---.... ... ..----
Underground water and related data-__--- __
Mechanical testing of the rocks--.------
EIarthquake studies/7 -- - - -� - _ __

General

Page.

conclusions.--

APPENDIX

Report of the geologist_ -_ _�-�_ -..._--_
Introduction -
Return to the Canal Zone in December, 1915
Through the mails many slide cures were recommended__
Experiments to determine the water content of the sliding formation
and the possibility of draining it
Results of the experiments

Minor remedies -_ --- --- ,
Future of the slides ---- ------
Table--Yardage of excavation in slides of

Gaillard

Cut

APPENDIX

Tables showing
Department
Supply depa
Health depa
Executive d
Washington

increases in salaries and personnel
of operation and maintenance
irtment -
Lrtment
department
office -. - - -- ------------------.----------------- --- --- -- -------- -------------

APPENDIX

Acts of Congress affecting The Panama Canal and
relating to the Canal Zone, index ----- ....-

Executive

orders

APPENDIX R.

Charts (in portfolio) showing organization of The Panama Canal and the
Panama Railroad Co., July 1, 1916, index - - - - - - - - ---
nrnno/c\ -4 0- ra

a
igh

LIST

OF

ILLUSTRATION

APPENDIX

[Report of engineer of maintenance.]

Plate.

1. Miraflores Locks.
2. Miraflores Locks.
3. Miraflores Locks.
4. Miraflores Locks.
5. Miraflores Locks.
6. Miraflores Locks.
7. Miraflores Locks.
8. Miraflores Locks.

Lower butt strap gate,

No. 119.

Blistering of paint and rust spots on gate No. 119.

Cleaning gates Nos.

114 and 115.

Gate No. 116.
Marine growth on gate No. 119.
Top seal casting upper rising stem valve.
Upper rising stem gate valve.

Rising

stemn

valve,

removable

strip.

Gatun Locks.

One and one-half inch steel nuts from cylindrical valve.

10. Electrplytic action on impeller and lower casing head of one of the twenty-

inch floating caisson

pumps.

Electrolytic action on impeller and lower casing head of one of the twenty-

inch floating

caisson

pumps.

12. Finished asphalt street.
13. Roadbed as prepared before applying asphalt.
14. Shaping of roadbed before final rolling for asphalt covering.

15. Roadbed before squeegee coat

:s applied.

in portfolio.

62. Monthly

comparisons

between

rainfall

Gatun

Lake

level

, lockages,

useful

and wasted water.

63. Comparison between the total available water and

that actually

used

each

month.
64. Comparison between commercial and noncommercial vessels and lockages.
65. Comparison between gold and silver force, Division of Locks.

66. Chain fender tests
67. Chain fender tests

(Drawing 5023-9).
(Drawing 5023-10).

68. Transmission

system.

Load

curves

for period

June

, 28. 29,

and 30, 1916.

machinery-steel

Following plates, 62 to

LIST

OF ILLUSTRATIONS.

Plate.

74. Miraflores Locks.

Current velocity-direction data, along lower guide wall,

west side.

75. Chagres River drainage basin.

Alhajuela average monthly discharges.

76. Gatun Lake

watershed.

Total

yield for

Gatun

Lake,

year

1915,

season 1916.

. Gatun Lake and Chagres

River

hydrographs.

Typical

freshets,

November

15-17,

1915.

78. Gatun Lake water supply

Operating uses, year

1915 and dry season 1916.

79. Chagres

River

drainage

basin.

Alhajuela

discharge

mass

curves.

Gatun Lake watershed.

Yields, storage, and losses mass curves.

Year 1915

and dry

season

1916.

81. Chagres

River

drainage

basin.

Curves

of discharge

duration.

Fourteen-

year period 1902-1915,
82. Gatun Lake watershed.

inclusive.
Total yield massed, maximum, average, and mini-

mum years,

period 1911-191

inclusive.

APPENDIX

['Report of engineer of terminal construction.]

Plate.

16. Gamboa concrete block manufacturing plant.

Looking north, showing 40-ton

crane

handling

blocks,

the large

hook

same.

General

view

storage pile and trestle with tracks supporting mixing plant.

Gamboa

concrete

block

manufacturing

plant.

Looking

engine used for moving the plant and supplying steam

south,

to its units

showing

the elevation of cement from the car to the operating platform.

18. East breakwater, Limon Bay.

Plowing 25-ton concrete blocks from cars to

form

breakwater.

March 13,

1916.

19. Pier

No. 7.
1915.

Rear view

concrete-mixing plant for caissons.

September

Cristobal

coaling station.

Looking southwest

on unloader wharf,

showing

collier

Ulysses

at wharf for tests.

February

1916.

21. Cristobal coaling station.

Lookin

south from end wharf viaduct.

Collier

Ulysses

at dock.

February

1916.

22. East breakwater.
23. Balboa terminals.
24. Pacific terminals.

Atlantic terminals.

Coaling plant from the harbor
General view of Dry Dock No.

machine shops and entrance basin.

July

* (copy of drawing).
1 from Sosa Hill, showing

1916.

25. Pacific terminals.
26. Balboa terminals.
27. Balboa terminals.
28. Pacific terminals.

Coalin

g plant and entrance basin to dry dock.

Coaling station from Sosa Hil

Interior of Pier No. 18.

Pier

No. 18,

April

April

1916.

20, 1916.

Pacific terminal office building and portion

of inner harbor.

29. Balboa

terminals.

Protection

dike

for Dry

Dock No.

after

blast.

Low

j

LIST

OF ILLUSTRATIONS.

Plate.

Balboa

terminals.

Dock

before

flo, od ing.

Looking

ea st.

April

1916.

35. Pacific

Zone.

terminals.
June 27,

dredge

Corocza

entern

(lock

, Balboa,

Canal

1916.

Following plates, 83 to 93,

in portfolio.

83. Pacific terminals.

Dock No. 1.

Assembly

details

of cast-iron

blocks.

84. Pacific

terminals.

Dock

No. 1.

General

nayout

details

of bilge

block slides,

wall bracket, and nosing.

85. Pacific terminals.
86. Pacific terminals.

Dock No. 1.
Dock No. J

Details of blocking

General

ayout

system.

details

of block-

ing system.

Pacific

terminals.

Dock

No. 1.

Snubbing

post

bollards

for dry

dock

entrance pier.

Pier
Pier

General plan, elevations

No. 7.

sections.

Concrete mixing plant for cylinders.

Cristobal

terminal

piers.

General

plan.

91. Concrete block plant.
92. Concrete block plant.
foot concrete blocks.

Walker and Torbert contract.
Walker and Torbert contract.

General

plan.

Wooden forms

for 7-

93. Concrete block

plant.

Walker and

Torbert contract.

Tackle

for handling

25-ton

concrete blocks.

APPENDIX D.

[Report of resident engineer, building division.]

36. Balboa

Heights, from Ancon

Hill.

. Balboa and

the Pacific terminals.

38. New dry dock,

Balboa.

Air compressor and

pump building.

39. Fort Grant.

Coast Artillery post.

40. Pacific terminal building, Balboa,

Canal

Zone.

New steam laundry, Ancon,

Canal Zone.

42. New

concrete quarters for bachelors,

Ancon

Canal Zone.

43. Balboa Prado from

Sos'a

Hill.

APPENDIX E.

[Report of resident engineer,

dredging division.]

44. Ga

illard

Looking south

from

west

bank.

Dredges

widening

channel

tn NW) fofo

Tnhlr

14 1Q01

XXII

LIST

OF ILLTUSTBATIONS.

Plate.

48. Gaillard Cut,

Cluebra.

Looking

south from west bank.

Channel completely

blocked 1
material.

slides

from

November

east and

west

banks.

Dredges

excavating slide

1915.

49. Gaillard

Cut.

Looking

north

from

Gold

Hill,

showing

feet wide.

July

1916.

50. Gaillard

Cut.

Culebra

slide

of September

18-19.

Looking

north

from

Contractors

Hill.

French

dredge

No. 5 and

Marmot

making

opening

(first)

cut through slide.

September 21, 1915.

Gaillard

Cut.

Looking north

from

Contractors

Hill,

showing progress

widening channel through the Culebra slides.

52. Gaillard Cut.

Culebra slide,

west.

Dredges removing the slide from canal

prism.

Looking

south from Culebra.

August

1915.

53. Gaillard Cut.

Looking north from west bank.

July

14, 1916.

54. Gaillard

Cut,

Culebra.

Looking

north

from

Contractors

Hill.

Dredges

removing slide material

from canal prism

channel practically

closed

meeting
Gaillard (
tractors

of slides from the banks.

Slides

Hill,

showing

in west

dredges

October 21, 1915.

banks.

widening

Looking

channel

from

north- from

300 to

Con-

500 feet

3,000 yard barge being loaded from suction dredge.

July 3,

1916.

56. Gaillard Cut,

Culebra.

Looking north from Contractors Hill, showing bar-

rier across canal formed by slides from east and west banks.

November

18, 1915.

Gaillard

Cut,

Culebra.

North

side of

slide

barrier

across canal,

showing

15-yard dipper at work.

November

16, 1915.

South shore of Limon

Bay.

Looking west from

canal

, showing dikes

groins.

June,

1916.

Following plates, 94 to 97

Topography of east and west Culebra and Cucaracha slides.

December

1915.

95. Topography of east and west Culebra and Cucaracha slides.
96. Topography of east and west Culebra and Cucaracha slides.

July

1915.

June 15, 1916.

Scour survey

of south shore of Limon Bay,

showing bank erosion,

1905 to

July,

1916, and effect of rock dikes and wooden groins.

APPENDIX

[Report of executive secretary.]

58-A.
58-B.

Canal Zone grammnuar

school field and athletic

meet, Balboa.

Canal Zone grammar school field and athletic meet, Balboa.

May 27, 1916.
May 27, 1916.

APPENDIX

[Report of chief health officer.]

in portfolio.

LIST

OF ILLUSTRATIONS.

XXIII

Plate.

Electrical

division.

Division of municipal

engineering.

Marine division.

Division

of terminal

construction.

Building division.
Dredging division.

Mechanical

Supply

108. Accountin

division.

apartment.
g department.

Executive department.
Health department.
Washington office.
Fortifications.

Panama Railroad

#

-

**'*

. -

*

�

:<

w

ANNUAL

REPORT

OF THE
GOVERNOR
OF

THE

PANAMA

CANAL.

THE PANAMA

CANAL,

OFFICE OF THE GOVERNOR,
Balboa Heights, Canal Zone, September 11, 1916.
SIR: I have the honor to submit the annual report covering the

construction, operation,

maintenance, sanitation, and protection of

The Panama Canal for the fiscal year ended June 30, 1916.
CONSTRUCTION.

The department of operation and maintenance,

under which all

construction work was done, continued in charge of the Governor,

who was assisted in

the administration of the department by the

engineer of maintenance, Lieut. Col. Chester Harding, United States

Army,

and

by the

marine

superintendent,

Capt.

Hugh

Rodman,

United States Navy, until October 1, 1915,

when he was succeeded

by Commander H. I. Cone, United States Navy.

m"* * * 1 � 1 1

1 * Wi

hae principal construction work carriea on during tme year was
done in connection with the terminals, and the erection of buildings for

various

purposes; the electrical, municipal, and

dredging

divisions

did a large amount of construction in connection with both the ter-
minals and the new buildings.
DIVISION OF TERMINAL CONSTRUCTION.
The division of terminal construction, under Rear Admiral H. H.

Rousseau,

United States Navy,

was charged

with

the design

and

construction of dry docks, shops, coal and fuel oil plants, floating
1� I 1 -1 * - - . , a ** ** .7 *. A� -1

THE PANAMA CANAL,

Dry docks.-The construction of the dry docks was undertaken,
with the authority of Congress, when it became apparent that, because
of the lower unit costs secured during the construction of the canal
than were used in the preparation of the estimates, there would be

sufficient money for the purpose.

Following the views advanced by

the Navy Department, two dry docks were contemplated, located on
the Pacific side-Dry Dock No. 1 was designed and built of sufficient
size to admit any vessel that can use the locks (the dimensions are
given in detail in the annual report for 1915)--and Dry Dock No. 2,

350 feet long and 59 feet wide, for smaller craft.

As the construc-

tion was authorized in view of the possible savings, when it became
evident that both dry docks could not be built and the canal com-
pleted construction on No. 2 was stopped, but it was left in such

shape

that it can

readily

completed

at any time should it be

deemed necessary.
Early in the fiscal year the excavation and cleaning of the rock in

preparing foundations for Dry Dock No. 1 were completed.

Most of

the mass concrete had been placed by the end of the last fiscal year;

that remaining to

be done was at the entrance on either side, the

pump well, and the opening in the wall which was left to accommo-

date the mixing plant.

The reinforced concrete still to be placed

was

for the

several machine

rooms,

copings,

drains, gutters,

numerous small lots around the metal parts and the

The permanent mixing plant used in

coping lever.

the construction of the dry

dock remained in service until the latter part of August, 1915, when
it was removed and the mixers mounted on cars fitted with towers

and chutes for delivering the concrete into forms.

The trestle lead-

ing into the dry dock was dismantled in December, 1915.

The floor

was finished in January, 1916, with the exception of the traverse slots

for the keel and bilge blocks,

which were subsequently cut in the

concrete.
and 17,757

There were placed 12,897

cubic yards of mass concrete

cubic yards of reinforced concrete, in which 1,043,366

pounds of reinforcing steel and 1,122,236 pounds of fixed steel were

embedded.

The average cost of the mass concrete was $5.5882 per

cubic yard and of the reinforced concrete $7.7338 per cubic yard.
The low cost compared with concrete placed in the locks is due to the
use of sand and gravel secured from the Chagres River, not accessible

REPORT OF THE GOVERNOR.

The miter gates to the dry dock are of the same design as those

used in the locks

and the

various members and plating were fur-

nished

by the same contractors,

McClintic-Marshall

Construc-

tion Co.

The erection and riveting were done by hired labor.

The

south leaf was erected, riveted, and placed on its pintle by Novem-

ber 27

, 1915, and the north leaf by December 14, 1915.

The cost of

erecting the gate leaves, exclusive of the greenheart, was $98.9205 per

ton.

The miter posts and the quoin posts are of greenheart timber

obtained from British Guiana.

The gates will finally receive a coat

of bitumastic solution and one of enamel.
The machinery for the pumping plant for unwatering the dock was

furnished by

Henry

. Worthington under contract.

It was com-

pleted by the close of the fiscal year and tested out subsequent thereto;
the results were very satisfactory as its efficiency was in excess of

that specified by the contract.

The cost, including the bonus earned

for increased efficiency

amounted

to $151,476.

The

flooding and

sluicing valves are complete, and the dry dock is in condition for use.

Entrance

basin.-No

excavation

was

necessary

entrance

basin during the year, except some hand work in connection

with

placing a concrete apron in front of the entrance of Dry Dock No. 1,
and leveling the bottom of this basin so that it would all be below

elevation minus 45.
at a cost of $1.3009.

The amount excavated was 1,300 cubic yards,
All tracks and other material were removed

prior to April 1.
Cofferdam.-The cofferdam, which kept out the water from the area
occupied by the dry dock, unloader wharf, entrance pier, and basin,

during construction, was drilled for blasting during February

and April.

, March,

Sufficient drilling was done by April 1 to permit an open-

ing to be blasted through the cofferdam approximately 180 feet wide.

In blasting, care was exercised so as to protect

from injury.

the completed work

No dredges were available until toward the close of the

fiscal year, wheh an opening was made sufficiently large for the dock-

ing of the Corozal, one of the units of the dredging fleet,
1916.

on June 27

Entrance Pier

9.-The gravity wall,

which

was designed

form the south wall of proposed Dry Dock No. 2,

fiscal year.

was completed last

Of the linOrth authorized themr vet, remnined th hean.-

THE PANAMA CANAL.

Balboa coaling plant.-This plant, a description of which is given
in previous reports, occupies an area of 9.4 acres, of which 350 by 300
feet is constructed for the subaqueous storage of coal, with a bottom
elevation of 18 feet below mean sea level; the balance of the inclosed
space has an elevation of 10 feet above mean sea level, and is available

for leasing to private interests.

The work performed during the year

on the coaling plant consisted of a continuation of the construction of

the coal

pockets

and

wharves,

and

erection of

coal-handling

machinery under contract.

The Panama Railroad tracks were removed

from the site of the east coal pocket, the excavation in the pocket com-

pleted, the floor leveled and riprap retaining walls built in.

There

were excavated 1,760 cubic yards of rock, at $0.3936 per cubic yard,
and 1,636 cubic yards of concrete laid, at a cost of $10.1749 per cubic

yard.
were

Prior to flooding the subaqueous storage pocket, cross-sections

taken from

which

the capacity of the pocket could later be

computed.
Unloader wharf, Dock

7.-At the close of the previous fiscal

year,

the unloader wharf was completed up

to the point where it

intersects the cofferdam, or about four-fifths of its length.

The wharf

is constructed on piers resting on solid rock with decking of steel
incased in concrete. To carry the wharf construction through the

cofferdam

without admitting water, interlocking sheet steel piling

was driven and the area occupied by each pier thereby inclosed. To
get the piers to proper grade, it was necessary in some cases to resort
to caissons. All foundations were completed in March and the floor
system in April. There were placed during the year 4,835 cubic yards
of mass and 2,483 cubic yards of reinforced concrete, at a cost of
$5.2984 and $8.3116 per cubic yard, respectively.

Reloader wharf, Dock

No. 6.-At the close of the last fiscal year

most of the cylindrical piers were finished; those remaining were near

junction

of the unloader and reloader wharves, and the 8-foot

diameter

piers

under

wharf

bunker.

Two

difficulties

were

encountered

working

8-foot

cylinders:

When

reached stiff clay the frictional resistance became so great as to pre-

vent further driving of

the shell,

and

at about 50 feet

below

ground level the pressure on the shell was great enough in several

cases

crush

the caisson.

To overcome

c ifi ul tri es

a short

;i"B;;

I,

REPORT OF THE GOVERNOR.

of the dock this anchorage is a continuous concrete wall 6 feet wide

by 9 feet high, supported on two rows of wood piling.

To minimize

the thrust still further, the back fill is sloped 1i feet horizontally to
1 foot vertically from a line 25 feet back of the wharf, the slope being

riprapped down to low water.

There were driven during the year

1,693 linear feet of 6-foot and 184 linear feet of 8-foot caissons and

61 linear feet of 4-foot caissons.

Concrete filler in the substructure

consists of 6,182 cubic yards, and in the superstructure of 4,757 cubic
yards, all of which was reinforced, and was placed at an average cost
per cubic yard of $7.4154 and $9.1686, respectively.
Coalwhandling plant.-The unloader towers, as a part of the coal-

handling plant, were completed in their essential parts.

The reloader

towers, and the conveyor system, were completed but the machinery

was not all installed.

The rehandling plant consists of

berm

cranes used for laying concrete during the construction of the Pacific

locks.

They have been reerected and are ready for operation.

Repair wharves and commercial pier.-The two remaining caissons

of Dock No. 13, quay walls C-D-E,
poured early in the year. Later an

were finished and the floor slab
extension was authorized neces-

sitting the placing of 21 more 6-foot caissons, and also caisson sup-
ports for the crane tracks from the dry dock to Dock No. 13, requiring

seven 6-foot and five 4-foot caissons.
finished by the end of December, 1915
delayed the completion of the wharf.

All of these foundations were
. Delay in receipt of steel has
The average cost of excavation

in caissons was $2.6519 per cubic yard, and the average cost of con-
crete filler, including reinforcement, was $6.1334 per cubic yard.

Fill was placed behind Dock No. 14,

quay wall E-F, consisting of

Sosa Hill rock plowed off Lidgerwood cars from a track near its rear

face.

The anchorages were all put in place, the ground leveled

piping installed, and the permanent tracks brought to their final level.
Pier No. 18 is for commercial use; it is the first of a series shown

on Plate No. 93, accompanying the annual report for

1915

for the

development of Balboa Harbor, should additional facilities be required

on the Pacific side.

The back fill in the central portion, between the

inner rows of cylinders, resting on the soft underlying mud

slight spread at different points along the pier.

caused a

This was overcome

by taking out the ton of tfhe fill an nlno aCin n two additional 2-inch

IL"
4 . . ' ' T .

THE

PANAMA

CAaI

cubic

yard.

The

roof

similar

that

placed

on the

shops'

buildings.

Sliding doors furnished

J. Edward

Ogden

complete the inclosure of the pier.

dredging,

The cost of the pier, exclusive of

was $1,028,399.34.

Reinforced concrete pontoons.-It was decided to construct the four

reinforced

concrete

pontoons

or barges

used

as small-boat

landings in slips Nos. 17

and 19, Balboa, on the floor of the dry dock,

this being the most convenient location for the purpose.

The dimen-

sions of the

pontoons are

120 feet 6 inches long by 28 feet 2 inches

wide

by 7

feet 10 inches deep, and

they were designed to float with

a 3-foot freeboard.

The entire bottom, sides, interior bulkheads, and

frames up to a height of 6 feet,

or 2 feet from

the top,

were cast in

one continuous
cost $44,111.76.
proofed by the

pour.

The

pontoons complete,

with all accessories,

After the forms were stripped the sides were water-
" Sylvester process."

Cristobal coaling plant.-The Cristobal coaling plant is constructed

at the north end of

the island formed by the French Canal and The

Panama Canal as now constructed.

It occupies an area of 19 acres.

Of this an area 307 feet by 500 feet is for the subaqueous storage of

coal, the

bottom of

this

area

being at 28 feet

below mean sea level.

The

rest

area

had

been filled in

2 feet above mean sea level with material

and leveled

excavated

)ff at elevation
by the dredges

along

sides

wharves

constructed

as part of

the coaling

station.

This area is provided

for leasing to private coal dealers, as

policy adopted does not contemplate the United

States creating

a monopoly

on coal

vessels

utilizing

canal--merely

as a

regulator of prices.

The

wharves

on three sides

area

reserved for subaqueous

storage are constructed

by 6-foot diameter steel

cylinders driven

hard rock, excavated and filled with concrete reinforced with vertical

steel rails.

The caissons for the end wharf were completed in Decem-

ber,

1915,

thereby finishing

the substructure.

Much

difficulty was

experienced with two of the caissons under the wharf bunker,
collapsed in August, due to heavy pressure on the north side.

which
After

unsuccessful
their places,

attempts

had

been

made

drive

8-foot

cylinders

the design was changed by substituting 6-foot cylinders

driven one on each side of the two 8-foot cylinders, and connecting

REPORT OF THE GOVERNOR.

station.

A system of floating fenders was installed to breast vessels

about 5 feet away from the concrete docks.
along each side of the plant across the end

An oil pipe was laid

wharf

and across the

French Canal connecting with the oil supply at Mount Hope.

This

oil line was provided with suitable outlets, so that fuel oil can be sup-

plied to vessels lying alongside.
supplying water to vessels. For 1
tie encasement of floor girders ]

Similar arrangements were made for
the reinforced concrete floor slab and
17,211 cubic yards of concrete were

laid, at a cost of $4.6351 per cubic yard.
During the year the dredging division completed the excavation to

minus 41,

entrance

a slip 250 feet wide along the

unloader wharf,

basin and berthing space along the wharf,

mately 80 per

cent

the slip 300

feet

wide

along

and approxi-
the reloader

wharf.

Under the wharves coral rock and sand were pumped so as

to form a retaining wall between the cylinders to

2 feet above mean

sea level, to afford a

protection

tlhe coal in subaqueous storage

against wave action.
The plant to operate in connection with this coaling station con-
sists of four unloading towers, two stocking and reclaiming bridges,
steel viaduct and reloader towers, together with a conveyor system

for the wharf bunker.

The coal-handling machinery and accessories

are being supplied under contracts with Augustus Smith and the Hunt
Construction Co., the latter company furnishing the unloading towers.
Arrangements were made looking to the completion of the unloading
towers ready for operation by September 1, 1915, and the desirability
of using -these for handling coal to ships before the rest of the plant
was completed resulted in a modification of the contract providing
for the addition of two loading-out chutes to each unloader tower, at

an aggregate cost of $5,140.

The expectation as to the completion

of the unloading part of the plant was not realized

completed until February, 1916.
were commenced February 28, 191(

for it was not

The tests of the unloader towers
i. Owing to the fact that a num-

ber of adjustments and modifications were considered necessary to
correct defects and deficiencies in order to secure compliance with the

specifications, the towers were not accepted
accepted by The Panama Canal. The bala
tically completed but not accented.

, nor have they yet been
nce of the plant is prac-

THE

PANAMA

CANAL.

which

will assist in

breaking up

waves.

outer

end is

bent

back, forming an ell 235 feet long.
The rock used in its construction was taken from Sosa Hill, on the
Pacific side, from which was also procured such armor rock as could

economically

quarried

rest of

armor

being supplied

concrete

rock,

blocks manufactured especially for the purpose.

dumped from either side of

a double

trestle

left a

The core
depression

between the two mounds thus formed which was filled by coral rotk

and

sand,

placed

a suction

dredge

operating

vicinity

Coco Solo.

Prior to

the beginning of the year the trestle used in constructing

breakwater

had

been

washed

away,

as noted

previous

annual report,
was continued
was recovered

by two northers, and the salvaging of trestle material

until

and

October

used again.

1915.
Work

A large amount of material
on the new trestle was corn-

pleted

on October 7

. A single track trestle, 444 feet long, was

built

for the ell

, and 1,644 linear feet of double track were driven, equal to

a total

of 1,866 linear feet of

double-track trestle

which

101,530

linear feet of piling were used.

Quarry

trestle

possible,
503,659
$0.5803

62,389
water.

operations

warranted,

and

quarry was

cubic

cubic

yards

cubic
yards

securing

were

begun

in order to

operated

as soon
procure
on two

as the

as much

levels.

rock were excavated,

yard

, of

which

359.472

condition

armor rock as

During the

year

an average cost of

cubic

armor rock were shipped

this

rock

7.433

cubic

yards

yards

core

the east

were

and

break-

removed

stripping.
The amount of wet fill handled by the dredging division and placed

body

breakwater

aggregated

326,213

cubic

yards,

which 155,036 cubic yards were placed during the year.

134,502 cubic yards were pumped along the
the shore to give it lateral stiffness. As it w

the base of the breakwater sufficiently broad by

the trestle

In addition,

trestle connecting with
ras not possible to make

dumping rock from

, when the core-rock fill was completed the toe of the slope

on the harbor side was extended by dumping hard dredged material

from scows and

by pumping

coral rock and sand from a

borrow pit

near the shore at Coco Solo.

The scow material was obtained from

1 _ _~ _ I _ _1 L _ _

REPORT OF THE GOVERNOR.

nation of the relative costs led to the conclusion that it would be

cheaper to substitute for this rock concrete blocks.

A contract was

entered into for the manufacture of 10,000 of such blocks, measuring
7 feet on the side, containing 12.3 cubic yards, and weighing about

50,000 pounds, at a cost of $0.385 per cubic yard.

Under this con-

tract there were delivered and placed in the east breakwater 6,182
blocks, and 590 blocks were used in repairing the west breakwater,

which was damaged by the norther during the previous year.

The

material used was

run-of-bank Chagres gravel,

with cement in the

proportion of about 6 to 1.

to 4} to

This mixture was subsequently changed

Progress under the contract for blocks was not satis-

factory, and in order to

increase the supply of blocks over those

secured under contract the manufacture of blocks by hired labor was
undertaken at Coco Solo and at the coaling station by the terminal

division.

The blocks manufactured at the coaling station for the

breakwater were 5 feet 3 inches on the cube, containing 5.3 cubic

yards.

The mixture was run-of-bank gravel and

cement,

4� to

Those manufactured at Coco Solo measured 6 feet 3 inches on the

side, containing 9 cubic yards each of the same mixture.
number of blocks manufactured at Coco Solo was 3,644,

The total
at a cost of

$3.6810 per cubic yard, and at the coaling station 4,121, at a cost of
$3.9934 per cubic yard.
The terminal division had supervision over the construction of Pier

No. 7 for the Panama Railroad Company.

tion of the shed,

The dock, with the excep-

was practically complete at the close of the year;

total

amount

expended

was

$1,366,815.02; there

remains,

complete the pier for operation,

the erection of the shed,

which is

now in progress.
For further details concerning the work of terminal construction
attention is invited to Appendix C.

BUILDING DIVISION.

The building division continued in charge of Mr. George M.

Wells,

resident engineer, and was subdivided for administrative purposes

into five districts, as outlined in the previous annual report,

until

September 1, when, due to the advanced stage of the work, the Fort
A/�, ,v,,,, " j^-k f f^ * *4*j J f--^ � j ^ ^ �- ^I-^1 - ^ L, ^-1 .___ _| -f -. L 1-- L1 ,4h^. i 1�- &-&* " A ^I- --�r^Ev^

THE

PANAMA

CANAL.

the annual report for

fully

justified

1915,

change

was continued, and the results obtained

from

previous

method

swinging

different gangs from building to building.

With a foreman in charge

of each building, responsibility is fixed and a healthy rivalry created
with resulting economy of construction.
In 1908, after the building division as it then existed was disbanded,
a number of the foremen remained on the Isthmus and were without

work.

They were

willing

furnish

labor

and

erect

buildings

contract, and it was found that frame buildings could be constructed

more cheaply by this method than by hired labor.

As the building

program for the year was

a large one,

with

additional

work

same

character

estimated

current

year,

was

decided

ascertain

whether the contract method would be the cheaper under

conditions existing at present.

Consequently, contracts were let for

construction

four

4-family

frame

houses

and

two

4-family

concrete houses.

These were located on

the same types erected

the same streets as houses

canal forces, and

the conditions were

identical.

The results show a material saving in both types of con-

struction by doing the work by the hired-labor method.

Subsequent

to the completion of the contracts all buildings were constructed by

hired labor exclusively

while the costs, if

anything, have

been still

further reduced.
The first concrete buildings erected were of hollow concrete blocks,

investigation showing this method

be cheaper than hollow tiles,

and it was beli
this climate.

ieved

that solid concrete walls would be too damp for

Plaster and stucco made the concrete block construc-

tion more expensive than poured reinforced concrete.

Walls of con-

create

, by

proper

treatment,

can

made

waterproof;

reinforced

concrete is

more substantial and resistant

earthquakes;

and

concrete block

construction has been displaced by poured reinforced

concrete

main

walls and

floors,

with

blocks

for partition

walls

only.

To avoid the expense of white plaster,

the interior of all con-

create buildings are now finished in cement, the surface being treated
mechanically and painted in suitable colors.

The

manufacture

December,

1915,

hollow

which

concrete

time

blocks

plant

was

was

continued

closed

down.

until
The

a

1 , - * J I - . I - K 1 �* . .*I

-: *I *t * -�

1

_ _ - - � - - - _ _ - - _

REPORT

OF THE

GOVERNOR.

permanent character, intended to remain for the full life of the frame,

12 to

15 years at least, corrugated iron is

not so satisfactory in that

deteriorates

rapidly,

is a source

expense

upkeep,

and

unsightly.

vanous

After

kinds

careful
roofing

consideration

material it

was

and

experimentation

decided

adopt

with
Sred

asphalt shingle as

the most satisfactory for our purpose,

first cost,

maintenance, and durability being considered.

beginning of

the fiscal

year 60

buildings

various

kinds

were

under

construction.

During

year

these

were

completed

and 68 additional buildings were commenced for the canal and

Panama Railroad.

For the Army 43 buildings were under construc-

tion July

menced

1915.

during

These

year

were
under

completed

and

additional

more

were com-

appropriation

that

became available.
Of the Panama Canal buildings the hospital groups were the largest.

The hospital buildings, at the beginning of the operating period,

in such

condition

that some

were

deemed

unsafe for further

were
occu-

pancy, and

all were in a dilapidated

condition,

the greater number

at Ancon and those at Colon having been taken over from the French,

and therefore in use for a number of years.

Estimates were prepared

and submitted

to Congress for rebuilding

the entire

plant

within

period of five years,

and

the first appropriation

was made available

for beginning the work at Ancon and for the construction of

a hos-

pital at Colon.

The money for the Ancon

unit was applied

two

ward

buildings,

feet

feet,

accommodating 29

patient

each ward,

with porches entirely surrounding them.

A service see-

tion, 32 feet by 92 feet,

toilet
rooms

accommodations,
on each floor..

connects
a dining

these
room,

two

the exterior

ward groups,

nurses

and

rooms,

providing

and

interior walls

special
of less

than 6

inches were made of

reinforced concrete, and

the others were

built up of cement blocks with a hard smooth cement-plaster finish.

The floor slabs were constructed

of reinforced

concrete and most of

the rooms

were provided

with red

or white

floors.

interior walls and ceilings were treated with enamel washable paint,

which giv
building.

a pleasing

effect

interior

and

makes

a sanitary

The roof of yellow pine, covered with red vitreous tile,

and

S1 . .*. . 1 .. . *. jI 1 � 1 * "3 . � I4

?s

THE

PANAMA

CANAL.

which

divides

group

into four distinct units with

intercommu-

nicating passageways. In the central unit are located the operating
suite and administrative offices. It is 45 feet wide by 53 feet 6 inche

long,

with

an extension in front

24 feet

by 20 'feet 4

inches,

which

forms a covered entrance way and makes provision for an operating

room

on the second floor with exposure on

three sides.

The ward

buildings,

approximately

40 feet

120 feet,

on either side of

central unit, are divided into various wards and provide rooms with

a total capacity of 50 patients.

The general-service building, 41 feet

by 83 feet, comprising the kitchen, dining rooms, and helpers'

quar-

ters,

also

a central location

directly in

the rear of the adminis-

tration unit.

All exterior porch and intermediate walls 6 inches and

over were constructed of reinforced concrete and interior walls hav-

a thickness

less

than

6 inches

cement

block

covered

with

smooth hard

cement

finish.

The

roof

is similar in

construction

the Ancon building.

The cost of the hospital was $172,169.70.

A new building, covering an area of 147 feet 8 inches by 42 feet 8

inches,
ity to

was constructed

the piers and

during the year at Balboa, in close proxim-

docks of the Pacific terminal

terminal building at a cost of $70,594.76.
of the receiving and forwarding agent of

of the canal as a

It is for the general offices
the Panama Railroad, the

captain

port,

and

pilots'

dormitories.

is three stories

height,

'the

first

being utilized

Panama

Railroad,

the third

by the captain

port,

while

the second story is

divided into

offices,

which are rented individually or en suite as offices for various

steamship companies using the canal.

A new

ice plant

was

constructed for the

Panama Railroad

com-

missary

at Balboa and a new laundry

at Ancon.

Both are of rein-

forced concrete and cost $130,683.79 and $73,000, respectively.

Extensive

repairs

were

made

Ancon

Administration

Building.

The

porches

were

badly

eaten

and

rotted,

as were

the floor and

other parts of the building.

It is now in good

condi-

tion, reinforced concrete being used wherever practicable.

ovation cost $27,960.85.

The ren-

It is utilized in part by the District Court

the Canal Zone

and

offices for the court officials,

by the special

attorney,

and

rooms

not

needed

canal

present

a . - - 1 a . - *

REPORT OF THE GOVERNOR.

quarters were determined by a board of

officers consisting of Col.

William F
ton, Maj.
program t

Blauvelt, Lieut. Col. Charles F

William E.

asB

Cole,

in accordance

and Capt.

with

Mason, Maj

Wood.

the estimates

T. Clay-

The building

submitted

basis for the appropriation.

In addition to completing all those esti-

mated, from the same appropriation quarters were provided for the
Commanding General and his staff and such other buildings as were
authorized by the Secretary of War.
For further details concerning the operations of the building divi-
sion, together with costs of various buildings, attention is invited to
Appendix D.
OPERATION AND MAINTENANCE.

The engineer of maintenance, Lieut.

Col. Chester Harding, United

States Army, was in charge of the maintenance and operation of the
locks and had supervision over the electrical and municipal divisions,
meteorology and hydrography, general surveys, and the office engi-

neer.

On November 1, 1915, the fortification construction work was

transferred to the engineer of maintenance, and on June 1, 1916, the
work remaining uncompleted under the terminal construction divi-
sion was transferred to his charge.

'When the change in organization provided

by the Panama Canal

act was under consideration, I made the recommendation, under date
of November 14, 1913, that the engineer of maintenance succeed to
the vacancy in the office of Governor of The Panama Canal, thereby
assuring a succession which would result in a stable organization. I

recommended the assignment of Lieut.

Col. Harding for duty with

the canal as engineer of maintenance with this idea in view.

With

the main work completed and the reorganization effected, I requested
relief from office effective November 1, and as this was authorized, I
requested the assignment of Lieut. Col. Jay J. Morrow, United States

Army, for duty with the canal,

with

the prospect of his becoming

engineer of maintenance should the plan originally proposed be car-

ried out.

He was assigned to duty as assistant to the engineer of

maintenance on August 19, 1915.

I submitted my resignation effec-

tive November

1, and when enroute

to the canal

to wind up my

affairs I learned of the conditions that had been produced by reason

THE

PANAMA

CANAL.

At the

and

time the looks were watered

put

first-class

condition.

The

the gates had
interiors of tl

been painted

gates

were

coated with bitumastic enamel under a five-year guarantee, and the
exteriors covered with various kinds of submarine paints.

When

floating

caisson

arrived

December,

1914

was in-

stalled at the lower east lock at Miraflores and the chamber pumped

, permitting an examination of the gates,

valves, and fixed irons.

At that time they were found to be in good condition, although there

was

some

rusting

plates

and

rivets.

January,

1915,

west chamber at

Miraflores

was pumped

out after

being submerged

about
from

15 months.

experience

The paint on

gained

from

the gates was

various

paints

blistering badly,

applied

other

and
lock

gates it was decided that something must be adopted that would give

better protection

used.

Difficulty

than anything in
had been experiP

the paint line that had

3nced

with.

paints

applied

been
i the

spillway gates at Gatun

and because of the condition of the interior

of the gates on which bitumastic enamel had been used it was decided
to test out the use of this material on one of the spillway gates. It

appeared
teed the

to give adequate protection

effectiveness

of his

material

and as the contractor guaran-

five

years

a contract

was

entered into for coating all of the lock gates with bitumastic enamel.

The gates at Gatun

were coated and

the woik finished.

Due to the

condition of the pumps in the caisson, the impeller blades of cast iron

being

entirely

eaten

away

work

on the

Pacific

side

was

corn-

pleted.
Observations

during

past

year

disclosed

that

corrosive

action on the cylindrical valves has been severe.
west flight of Gatun Locks was drained, and all
drical valves were examined. Marked corrosion

In July, 1915, the
the accessible cylin-
was taking place on

certain

parts

valves

, although

entire

valve

was made of

cast

iron

design.
segment

or steel, no
n the lower

nuts

disappeared

were

bronze

level

corroded

parts

being

adopted

an average

min

It was also found

some
that 1

cent of

cases

fully

half

original
the seal

nut

had

bolts holding the stops in

place

were in such

condition

that

they

had

be replaced in every

valve in the lower level.

All valves were put in good condition and

1 1

n- * 1

1 I

* i -

aL L - :. f - . L - n rJ N Un t: a auh n a a . t.. % a* n j. j W h nf*w wt a n "mn V

* * 1

* .

I

REPORT

valves at Gatun and th
been violently attacked.
comes in contact with 1

valve is

being rapidly

OF THE

GOVERNOR.

upper and lower valves

Miraflores have

The bottom seal casting of the valve which

babbitt

eaten away.

metal seal

on the

A number of

bottom
valves

Pacific locks were in such condition

that

bottom seal had

machined off to make the valve tight.

In order to protect the valve

from any further electrolytic action

between

cast-steel seal and

lower

babbitt

metal

seal,

babbitt

metal

was

removed

and

replaced with a seal of greenheart lumber.

Some of the bronze side

seals

and

springs

were

found

broken

both

Miraflores

and

Gatun.

Otherwise the seals were in good condition and required only

a small amount of

draw filing to make

the contact surfaces perfect.

The top gate valve seal is of cast steel and is held in place by bronze

bolts.

In practically every instance the corrosion has been excessive

around

the heads of

bronze

bolts,

cutting

away

metal

and

in some cases allowing the bolts to loosen and fall out.

Several cast-

mgs

had

replaced.

The

worst

case

corrosion

seal

occurred

on the upper valves at Miraflores.

At Gatun

practically

all valves were installed

with fixed side seal

castings,

which all gave evidence

considerable corrosion,

sufficient to cause any leaks.

At Miraflores removable side seal strips

were

machinery

steel,

and

in every

case

corrosion

had

reached

such a point that all side seals had to be replaced.

Inasmuch as the

corrosion had apparently been aided by the proximity of the bronze

side seals

which

bear upon

them,

was

decided

replace all ma-

chinery steel with lignum-vitte wood

in this way tending to place an

insulating

substance

in contact

with

bronze.

porous

con-

create around the fixed irons was removed and replaced with cement,
and wherever babbitt metal had been used to fill the recessed holes for

bolt heads at the Pacific locks

the metal was removed and replaced

with cement.

both

Atlantic and

Pacific

locks

considerable

corrosion

roller trains has occurred

the rollers of which are made of tool steel.

the Atlantic

were

missing.

locks a number

were

replaced,

rollers,
and the

bolts,
heads

and

filler

castings

bolts

were

riveted over to prevent further losses.

Similar conditions were found

of +.ta Paa innirci on A n1 cl +^ r nk a 1 r4 l I 4-n

,Y . 4- � 4-

4%^ -,1f I i ^n

y-fnr

THE

PANAMA

CANAL.

more

complete

protective

measures

were

taken,

as follows

bronze side seals were lined up and strips of zinc bolted to the valve
each side of the seals at the bottom of the valve; (2) where necessary,

bottom

valve seal was machined

off to give solid metal contact

with
out

bottom seal

and replaced

all removable side seal

with lignum-vit e

wood strips.

strips were taken
Where removable

strips were not installed

wooden side seals;

the fixed irons were milled down to take the

all babbitt metal used in the assembly of the

valve for imbedding and protecting boltheads from corrosion and for

calking

purposes

was

removed

and

replaced

with

cement;

babbitt metal used in the bottom seal was removed and replaced with

greenheart lumber

bitumastic

enamel.

all steel

This

left

I work
only t

valve was coated

bronze

side

seals

with

exposed;

(7) all fixed irons were coated with bitumastic enamel
nel-iron supports for the rollers were coated with bitu

; (8) the chan-
rmastic enamel

and arrangements made to lubricate the roller trains and tracks with

crude oil

during operation and while

valves are submerged;

all submerged portions of the valve stems were coated with bitumastio

enamel

(10)

all bronze bolts are being replaced with steel as fast as

breakage occurs.
On October 1'

1915

counterweight

spillway

gate

No. 13

at Gatun gave way and dropped into its pit,

demolishing all weights.

This machine had

been

operated for several

days,

and

was not

being operated at the time of the accident.
found that all four manganese bronze coun

On investigation it was
Iterweight bolts had given

way
.

Each

spillway

counterweight

consists

cast-iron

blocks

weighing 750 pounds each, resting on a cast-iron base plate and sup-

ported
steel y

45,701
each

0C

by four
broke at
pounds,

lj-inch manganese

top.

and,

bolt supports

The

assuming

11,425

total

that

pounds,

bronze
weight

load is

or a stress

bolts running into

a cast

counterweight

equally
>f 4,750

distributed,
pounds per

square inch of metal.
cal division for test,

Sections of the bolts were sent to the mechani-

.

which gave an ultimate tensile strength of 61,400

pound
bolts

and

tested.

63,900 pounds per square inch, respectively, for the two

This

would

indicate

a factor

safety

about

All guard-valve counterweight bolts were examined and instructions

* � l 1 P " " t 1 1 Pl

- . .

*

REPORT

OF THE

GOVERNOR.

out appreciably stopping its headway broke the chain.

the machine had been

The fact that

blocked made it impossible for the fender to

operate,

but

, nevertheless,

the apparent ease with

which

vessel

went through the chain called attention to the desirability of a work-
ing test to determine the effectiveness of the fenders, and a committee
was appointed to make a series of experiments upon one of the chain-

fender

machines

Gatun.

Considerable data

were

obtained,

and

the results of the tests indicated

that the chain-fender machines will

operate satisfactorily when

properly adjusted,

and

that

no difficulty

would be encountered in stopping any vessel approaching the locks

at a speed under two miles per hour.

Some minor modifications were

made in the apparatus.
Owing to the fact that the slides in Gaillard Cut interfered with the

operation of the canal between September 18, 1915, and April 15,

1916

the number of lockages made during the year does not compare favor-

ably with

those of

previous

year

The

number

lockages

Gatun was 2,254

, of which 1,779 were commercial

lockages for

1,980

vessels

at Pedro Miguel 2,317 lockages, of which 1,825 were commer-

cial lockages for 1,925 vessels

at Miraflore

2,277 lockages,

of which

1,842 were

commercial lockages

1.926

vessels.

The

number

commercial vessels exceeds the

number

commercial lockages,

due

to the fact that whenever possible tandem lockages

were made, i. e.,

two

vessels were locked

through

the same

time.

The

difference

between

commercial

lockages

and

lockages

is accounted

the fact that there is no record given of the number of

canal barge

tugs,

launched

etc.

which

were

locked

through from

time

time.

ELECTRICAL DIVISION.

This division continued in charge of Capt.

William H.

Rose

United

States Army

The duties of the division comprised the operation of

all steam and hydroelectric power plant

the Balboa air compressor;

the electrical

transmission

and

distribution systems,

and house

and

street lighting systems;

the telephone, telegraph, and automatic rail-

way signal system of the Panama Railroad

the design and construe-

tion of all extensions and additions to such systems

and

the instal-

lation,

operation,

maintenance,

-f -u - a - I .

and repair of electrical apparatus of

___1 _ _

"111

THE

PANAMA

CANAL.

increasing th
cable feeders

capacity of

oil switches

the station

by about 40

per cent.

New

, and other auxiliaries for taking care of this

increased

output have also

been

ordered,

as well as

two new

4,000

k.v.a.

44,000 volt transformers for the Gatun substation.

Attention

was

called last

year

necessity for arranging for

increased power, and the appropriations for the coming year provide

for an

extension

the hydroelectric station

by the construction

another

building

same size

as the

present

one,

the addition

three

new penstocks and

been found

station from
feeder cables

advisable

2,300

between

one new
change

6,600 volts

4,500

k.w. generator unit.

voltage

to reduce

the hydroelectric station

generating

the number and cost of

and

the Gatun sub-

station.
The average production cost of current of the hydroelectric station

during the fiscal year was $0.0006

per k.w

hour, including all opera-

tion, maintenance, repair, and division overhead charges,

but not in-

eluding depreciation.

Including

a charge

3 per cent

the. cap-

ital cost of the entire power system for depreciation, the cost of gen-
erating power at the hydroelectric station was $0.0027 per k.w. hour;

as distributed from substations, including all

charges,

the cost of the

current for power purposes

was

$0.00773

k.w

hour.

The cost

for lighting service, including the maintenance of house lighting sys-

teams and lamp

renewals

was $0.0145

k.w.

hour.

The

cast-iron

liner

plates

and

floor

plates

installed

on the

baffle

piers of

the Gatun spillway were in such condition as

to necessitate

replacement.

The

concrete

behind

iron

liner plates

was

badly

rotted away and while thoroughly repaired

the action since has been

such

necessitate

another

overhauling

during

next

dry

season.

On June

1916

, 1,878

telephones

were in service.

During the

last six months of the year there was an average of 15,165 telephone
calls per day.
A large amount of construction was done by this division on under-

ground

lines,

conduit

lines

and

as well as in street and

underground

and

overhead

yard lighting systems.

distribution
Motor-driven

pumps

were installed at Mount Hope Dry Dock.

Two hydroelectric

-1 J? 2_. i - A1 I --

-- .-

-__ 1_ T _1: .. . _.... yei _-1 ... .

REPORT OF THE GOVERNOR.

MUNICIPAL ENGINEERING DIVISION.
The organization of the municipal engineering division remained

unchanged and continued in charge of Mr. D.

Wright, as municipal

engineer.

The municipal division has charge of all water-supply

sys-

teams on the Canal Zone, including the operation of the water-purifi-
cation plants.

The water supply for the Isthmus,

with the exception of that for

the three military posts on the west side of the canal, is furnished by

three systems.

The water for points north of Gatun,

with the ex-

ception of Toro Point, is furnished by the Mount Hope plant,

which

includes the pumping station and the water-purification plant located

at Mount Hope.

The water is taken from the Brazos Brook Reser-

voir, supplemented by water obtained from Gatun Lake, at elevation

plus 75, through a 20-inch pipe laid in a tunnel 6 feet by 6 feet.

The

average amount of water handled at this station during the year was
131,232,000 gallons per month.
The water for Gatun and 'Gatun Locks is furnished by the plant
located at Agua Clara, and is obtained from the Agua Clara Reser-

voir, purified in

the filtration

plant located near the reservoir and

forced by pumps at this station through the distribution system, sup-

plying Gatun and the locks, and
reservoir located 14 miles east of G

also to a 300,000-gallon concrete
ratun, which acts as a surge tank.

The average amount of water handled at this station during the year
was 22,580,000 gallons per month.
The water for Paraiso and all points south, including Panama City,

is furnished

by the

Miraflores

plant,

which includes

pumping

station at Gamboa, Miraflores, and Balboa, and the purification plant
at Miraflores, together with the distribution systems and reservoirs.

The water is obtained from

the Chagres River at Gamboa, and is

pumped from there to Miraflores, from which point, after purification,
it is supplied to all points south of Paraiso and east of the canal.
The total quantity of water handled by this system during the year
amounted to an average of 248,963,000 gallons per month.

The municipal division also

has charge of the

water-supply

sys-

teams for the troops on the west side of the canal, the water at these
points being obtained from the Rio Grande and Comacho Reservoirs,

THE

PANAMA

CANAL.

A large amount of ro
the year, particularly in

lad-construction

work was carried

on during

the Southern District in and around Balboa

and

Ancon.

The

extension

Balboa

townsite

improvements

was commenced in March

, and was in progress during the rest of the

year.
streets

This
and

consists

the installation

Balboa lying between
of new quarters to be

necessary

grading,

of water and sewer lines in

the existing town and Ancon Hill,
built during the current year. A]

construction

that part of
to take care
11 of the road

construction

was of Telford base with concrete asphalt surface.

Several important items of

construction

work were

performed

the municipal division for other divisions of The Panama Canal,

Panama Railroad

and

the Army

and a part of the work was still in

progress a
water and

close

year.

sewer systems, roads and

The

principal items consisted

pavements for the Army posts

Fort

Amador and Fort Randolph

and the

construction

pave-

ments and grading around

the Balboa shops and

terminals.

connection

with

water-supply

systems

Zone,

Mr.

George C.

Bunker is employed as physiologist, in charge of the purifi-

cation
Notes

plants and

on the

results

work
of his

the laboratories connected

investigations

tropical

therewith.

waters

during

the past
forth in

year,

publication.

carried

report,
They

and
will

on by

are
be 1

him

and

such

Found

under

interest

accompanymg

direction,

were set

warrant

their

report

municipal engineer, in Appendix A.

METEOROLOGY

AND HYDROGRAPHY.

This division continued in charge of Mr. F

Willson, chief hydrog-

rapher.

The

1915, from

tide

the old

gauge a
location

Balboa

was

moved

on 'September

under the Panama Railroad steel pier to

new

concrete

weather

of Mexico,

received
interests.
weather

dock

conditions

and

and

No.

Arrangements

prevailing

South Atlantic

distributed

conditions

request of
prevailing

were

over the Caribbean

Ocean

port

each

captains

Argentine

over

the

Canal

day
and

made

Sea,

other

Government

Zone

whereby
the Gulf

m. are

shipping
he daily

a. m. are

cabled

Buenos Aires.

- a - * -" - .. .. a - A

REPORT OF THE GOVERNOR.

The average temperature for the year
on the Pacific coast, and approximately

the normal on the Atlantic.

1915 was near the normal
1 degree Fahrenheit above

At Balboa Heights the maximum tem-

perature was 93� F., on April 11, and the minimum, on January 31,

690 F.

At Colon the maximum was, on September 27

o F., and

the minimum on February 10, 72� F.
The wind movement over the Canal Zone for the year

1915 was

slightly over the average. Northerly winds prevailed.
No fogs were observed during the year 1915 at the Atlantic coast,
but a total of three fogs was observed at the Balboa Heights station

near the Pacific coast.

Numerous fogs were observed at the interior

stations

where

fog records

kept,

and

practically

observed

lifted or were dissipated by 8.30 a. m.
Fifty-nine seismic tremors were recorded at the Balboa Heights

seismological station during the fiscal year.

Six of these disturbances

were of sufficient intensity to throw the pens from the instruments,
and quite a number were strong enough to be generally felt in the

Canal Zone.

Most of the tremors were of comparatively local ori-

gin, less than 600 miles distant.

There was an apparent revival of

activity in the Los Santos Province that reached the maxima during
the latter part of November, 1915, and during the first part of Feb-

ruary,

1916.

After this

time

the scene of

activity shifted

northwest, culminating in

tremors of

April 26, during

one of

which considerable damage was done to the wharf and merchandise

stocks of the United Fruit Co. at Bocas del Toro.

The intensities of

the various shocks varied from I to V on the Rossi-Forel scale of I to X.

The yield

of the Gatun Lake

watershed

during

the dry season

months of 1916, January to April, inclusive, was normal, or an actual
yield of 2,200 second-feet against an estimated yield of 2,160 second-

feet.

It was necessary to waste during January over 2,000,000,000

cubic feet of water, but during February, March, and April the inflow

was exceeded

by water usage for municipal purposes and

evapora-

tion.

From January 1 to May 1 the lake was lowered 0.42 of a foot,

representing a loss of 1.95 billion cubic feet of storage.

The 2,000,

000,000 cubic feet of water which were spilled after all the regular

demands for water Ld been met would have bee]
S 1 A .5 . - - - - - . w -

n sufficient to pro-
S - '..T

THE

PANAMA

CANAL.

way, or a sufficient quantity of water to make 1,773 through lockages

each month.

Based on 30-day operation

this would

mean 59 look-

age
In

S

day

over

this connection

and
it

above

nay

the average

be stated

that

traffic

past

year.

lockages
vessel le

which

!aves

lower chamber,

can

upper

and

Vici

made ii
flight i
e versa,

hour

Gatun

3 is
just

both chambers

that one

enters

being used.

SURVEYS.

The

surveys

were

handled

parties

under

direction

of Mr.

Malsbury,

assistant engineer.

The monumenting of

boundary

lines

between

the Canal Zone

and

the cities of Panama

and

Colon,

in accordance

with

treaty

proclamation of February

1915

was finished.

A regulation con-

create monument was set on the Corundu River near bridge No.

65 of

the old Panama Railroad;

the stone

bridge on

the Corozal road and

concrete

bridge

on the

Tumba-Muerta

trail

were

stenciled;

brass plug was set in

the concrete curb at the

junction of the Corral

and

Tivoli roads

, and an iron spike

was driven in

Tivoli road at an angle point on the boundary line.
tions at Colon 16 monuments were set on line, an(

the center of the
For the delimita-

several brass plug

reference points were set on

the offset line in Folks River.

An iron

was set

in concrete

Old

Point

Folks

River.

Brass

bolts

were set in the sea walls at both ends of the line.

of Colon Harbor was staked

across

The azimuth line
the Cristobal fire

station
The

All regular concrete monuments were properly stenciled.

100-foot contour survey was finished,

uments set.

Monuments set on

with a total of 843 mon-

the 5-mile line were numbered con-

sistently with

etc.

This

The

division

monuments

regular
made

on this

5-mile line t
a number of

line

, usmg

ype of monument

surveys

throughout

! fractions 1/2,
was also used.

year,

addition

to other miscellaneous work.

OFFICE ENGINEER.

The office continued in

charge of Mr.

Embree as office engi-

never.

who has

charge

drafting

forces

ocks

.- A �* r * *. v --- - - - - -- .-- -

operation

and

maximum number of

assuming

as another

.*

REPORT OF THE GOVERNOR.

together with the supervision of the port captains, the board of local
inspectors, the pilots, the operation of lights and beacons, and the
inspection and admeasuring of vessels.

As already noted, Capt.

Hugh Rodman,

United States Navy,

was

detached and succeeded by Commander

Cone,

United States

Navy, on October 1, 1915.
After trial it was decided

for the best interest of the canal as well

as for shipping using it, to have pilots detailed as lock pilots, and two
were accordingly sent to each set of locks, acting under the direction
of the lock superintendents.
Slides in Gaillard Cut interrupted traffic from August 7 to August

10, 1915,

from September 4 to September 9, 1915, and from Septem-

ber 18, 1915, to April 15, 1916.

Punta Mala lighthouse

was erected and put into commission on

July

1915.

Bona Island lighthouse

was placed in

commission

August 2, 1915; on November 25, 1915, it was struck by lightning,

but was relighted the following day.

The lighthouse on Taboguilla

Island was placed in commission August 10, 1915.

proved satisfactory and economical.

All three lights

Some slight changes were made

in aids to navigation and in the characteristics of lights, as experi-
ence and local conditions seemed to dictate, in order to facilitate the
transit of shipping, both by day and night.

A new signal station

was erected at Sosa Hill.

It commands a

splendid view of Balboa Harbor and enables the captain of the port
to communicate with ships much more expeditiously than was possi-
ble before.

The mooring stations at

Gamboa

and

Empire

were

maintained

throughout the year.

The former is permanent; its mooring buoys

were renewed and heavier moorings laid.

It was found desirable to

establish

another

temporary

mooring

station

near

Paraiso.

This

will probably be maintained until the channel through the slides is
in such shape that vessels can safely transit it without delay.
During the part of the fiscal year that the canal was open to traffic

a total of 411 vessels passed from the Atlantic to the Pacific,

as conm-

pared with 530 for the previous fiscal year, and 376 passed from the
Pacific to the Atlantic, as compared with 558 during the previous
'r l 0 lb +1 � .eIl . 4 . . 1 Sn I jl 1 1

THE

PANAMA

CANAL.

the canal

amounted

3.140.046

tons,

as compared

with

4,969,792

for the fiscal year 1915.

The total cargo tonnage passing through the

canal

in the

coastwise

trade

was

444,388

tons

fiscal

year,

as compared with 951,044 tons for the previous fiscal year.

While it is

be remembered

that the canal was closed for seven

months
ference

fiscal

in the

year,

coastwise

this

traffic.

alone

does

account

for the

dif-

The lines which formerly used

canal in the coastwise trade took advantage of the scarcity of bottoms

and

chartered

their

steamers

enormous

rates,

which

was

more

profitable than continuing in the coastwise trade.

The

board

admeasurers

conducted

operations

in the

same

manner

as in

previous

fiscal

year.

The

requirement

that

United States net registered tonnage be considered in the assessment

tolls

added

numerous

greatly

changes

and

the work

interpretations

board,
placed

especially

upon

because
United

States

rules

United

measurement

States

Department

Commissioner

Commerce.

The

Navigation
application

of the United States rules for measurement has resulted in exempting

practically

sheltered

spaces

and

deck loads

vessels

transiting

the canal,

which, in turn, has resulted in discrimination against most

United S bates vessels utilizing the waterway,

due

the fact

that almost

of the

United States vessels are so constructed

that

they
other

unable

hand

take

United

advantage

States

rules

shelter-deck space.

provide

exemption

certain cabin space above the upper deck that is not a deck attached

hull

against

which

foreign

would,

vessels

in most

and

cases,

favor

result
United

in discrimination

States

passenger

steamers

national register

vessel

were recognized as a

factor in the levying of tolls.

time goes on

and

traffic increases,

with a resulting increase in

number

and

classes

vessels

using the canal,

the necessity

adopting some one rule

and

experience has shown

levying the

beyond

toll,

a doubt

s becomes more evident,
that the fairest rules for

determining the

tonnage

a vessel on a

just basis are the Panama

Canal rules of measurement; in short,

ship.

on the earning capacity of the

It is again recommended that legislation be secured authoriz-

_

REPORT OF THE GOVERNOR.

has been made to have the offices of the captains of the port centers
of information on all matters relating to shipping.
For further particulars attention is invited to Appendix B.
DREDGING DIVISION.

The dredging division continued in charge of Mr.
resident engineer, assisted by Mr. James Macfarlane,

of dredging.

W. G. Comber,
superintendent

The division is divided into two districts, the first em-

bracing all dredging operations in

the Pacific entrance, Miraflores

Lake, and Gaillard Cut; the second district, all dredging operations
in the Atlantic entrance and Gatun Lake to Gamboa Bridge.
As stated in the annual report for 1915, all dredging done in any
part of the canal necessary to complete the channel to its full width
and depth was charged against construction funds, and all dredging
done in portions of the canal where the full width and depth had
been secured at the time the canal was opened to the use of com-
merce became a proper charge against and was paid for from main-

tenance funds.

Consequently, part of the dredging operations con-

stituted construction work and
The dredging equipment in

was

paid for from such funds.

use during the year consisted of

sea-

going suction dredge Oulebra; pipe-line dredges Nos. 8, 8, 88, 84 85,
and 86; the 15-yard dipper dredges Gamboa and Paraiso; the 5-yard
dipper dredges Cardenas, to September 30, 1915, Chlagres, to October

31, 1915, and Mindi, to

November 3, 1915; seagoing ladder dredge

Corozal and the French ladder dredges Nos. 1

and

5 and

Marnmot;

the Gopher was in service until August 15, 1915; drill barge

the

rock

breaker

Vulcan;

and

15-yard

dipper

Teredo
dredge

Cascades.

This dredge is an improved model of the dredges Gamboa

and Paraiso, certain changes in design having been suggested by the

officials of the dredging division

to overcome some of the defects

that had developed in the other two dredges of this type, which had
been in operation for some time before the Cascadas was ordered.
To assist in washing down slides and to arrange drainage through

them

two

hydraulic

graders

were

buil t,

both of which

went into

commission in December, 1915.

Nine additional dump scows were added

the equipment em-

THE

PANAMA

CANAL

of 80.2734 per cubic yard; Cucaracha slide, 264,850 cbic yards, at a
(~~~~~~~~~~~~~~~~~ , -_- - ^^ 1 i JKi ^ B11T

cost

yards
slide;

$0.3470

excavated

cubic

since

Pacific

making

dredging

entrance,

between

a total

division

begat

Miraflores

4,616,37
i work

Locks

ubio

on this

and

deep

water at

8.964

cubic

yards of

earth and 39,160

cubio yards of

rock

a cost per cubiO yard of

$2.26,

the high

cost

being due to

drilling and blasting rock areas to be removed later, the latter being

broken up by the rock breaker

Vulcan and by the drill barge; and in

the Atlantic entrance 20,746 cubic yards of earth

at a cost of $0.1323

per cubic yard.
The spoil from Gaillard

Cut was disposed of

on the dumps located

in Gatun Lake from mile 30 to San Pablo

, mile 24; in the Rio Grande

Valley south

east

bank

Cudaracha

canal

Miraflores
between

Lake;

Cucaracha

Paraiso

slide

, and

and

along

Paraiso,

There
Rio C

were

Grande

dumped in

Gatun

Valley 966,149

Lake

cubic

11,126,625

yards

cubic yards,

in Miraflores

Lake

and in
72,214

cubic yards

in swamps around Paraiso 501,615 cubic yards; and in

canal

The

material

between

Cucaracha

dumped in

and

Paraiso

canal was from

1,116,461

cubio

ladder and

yards.
dipper

dredges
fAg~yp

was

working

blocked,

and

on the south

has

been

side of

practically

Culebra slide

rehandled

while

and

from the prism.
A large part of the work done by the dredging division

signed
cubic

by the
yards,

slides,

and

a cost

there was

$0.2820

removed

cubic

a total of

yard

the canal
removed

was occa-
12,695,059
the total

amount removed 10,872,509 cubic yards were rock and

1,822,550 cubic yards,

the balance,

was earth.

Surveys of the canal in the vicinity of the active slides were made

daily; the channel
shipping.

was dragged and marked

prior to

passage of

The

period

over

animated

existed

spirit

was

obtaining
he subject

period of my
the dredging

any

in the

organization

much

connection

force

prior period.

during

commendation,

with

canal

seems

The

dredges

construction

but

work,

surpass

were

looking

the spirit

that

operated

back
that

which
hours

every

day,

including

Sunday

and

holidays,

a period

four

/jj j

yard,

REPORT OF THE GOVEBNOtR.

cubic yards of No. 1 gravel, and 50,852 cubic yards of No.
All gravel was delivered to the Gamboa handling plant.

2 gravel.
Sand was

passed through a three-eighths-inch screen, No. 1 gravel through a
2-inch screen, and No. 2 gravel through a 2-inch screen.
The old slide at Buena Vista showed signs of new life in December,

1915, and on January

1, 1916, a crack had developed, starting at

station 1559 and running over the top of a small hill 300 feet west

of the prism line at station

station 1567.

1563 and

joining the canal again at

The material was stiff clay and soft rock.

On Jan-

uary 3,

1916,

the hydraulic grader began operations, starting at a

point about 50 feet back of the crack and cutting a uniform slope
from the point of beginning to the base of the slide at the water's

edge.

This

method stopped

the movement and

material has

remained quiescent during the rest of the year.
The three rock dikes built on the south shore of Limon Bay in

1915, 600,

1,100, and 1,600 feet west of the canal prism,

to stop

the erosion of the beach at this point, have proved entirely success-

This beach receded between 1905-1911

feet annually.

525 feet, or about

July, 1911, to June, 1912, the beach receded 75 feet;

1912-13,

feet;

1913-14,

feet;

1914-15,

feet;

1915-16,

since the dikes were completed,

there has been no change.

Only

a few thousand yards of silt were deposited in the canal opposite

this point during the year,
the hundreds of thousands.

where in past years the silting ran into

There

will

found

accompanying

detailed

report

dredging

division

* removed from
auxiliary work
mencement of

statement

the canal prism

accomplished

the canal

showing
by the

by these

construction

the ar
dredges,

appliances

nount

material

together with all

since

by the Americans in

conm-
1904.

with a total cost per yard of $0.2667; also a statement of the work

done by steam shovels during the same

period

, together with

cost.
For further particulars of the operations of the dredging division
attention is invited to Appendix E.

SLIDES.

THE PANAMA CANAL.

theories that have

been advanced

and

the remedies

that have

been suggested.
For some unaccountable reason there seems to be a general belief

that the entire length of the Cut is affected.

A report emanating

recently from English sources states that the bottom of the canal
through this section is found to be a bog, which is being constantly
pushed up, and through which the dredges have difficulty in main-

training a channel; further,

that it is acknowledged on the part of

those in charge that the canal is a failure, and that American engi-
neers are seeking information in England relative to the Nicaragua

route.

Such reports are false, and there is no foundation for them;

yet they seem to have gained credence probably because a pending

treaty

between

United

States

and

Nicaragua

contemplates

securing from the latter all rights for building a canal on its territory.

Nicaragua route

was at one

time

the one most generally

favored by the United States, investigations by commissions, boards,
and commercial bodies, covering a series of years, have been made

of the route, and

data of all kinds collected; consequently every-

thing that is known about that route can be found at home,

out the necessity of seeking information in England.

with-

It makes a

good news item,

however; makes converts

belief that

entire 8.75 miles of the Cut is unstable, liable to collapse or upheaval,
completely closing the canal for all time, is useful in assisting ship-
ping companies to take advantage of present conditions to charter
ships at excessive rates instead of complying with their obligations,
and permits an increase in insurance rates.
Gaillard Cut extends from Pedro Miguel to Gamboa, a distance of

8.75 miles.

The canal prism through this section averages 300 feet

bottom width, and has a de
ing channel was excavated

Spth of 45 feet.

through rock, all

Every foot of the exist-

of which,

though of

various kinds and densities, had to be drilled and blasted in order

to remove it.

of the material,
encountered in

It is possible that the water may have softened some

yet it is known

the excavation

by contact with water.
been stable with the e

that

were

the softer varieties of rock

protected from

The bog theory is a myth.

xeeptions of the portions in

disintegration
The Cut has
the vicinity of

REPORT OF THE GOVERNOR.

breaks

resulting

from

deformation

crushing

underlying

strata' which, under changed conditions, could not bear the weight
of the superimposed mass, and caused a vertical settlement or drop

overlying

material,

which

subsequently

moved

into

prism.

Final rest will be secured when all the material that is in

motion has been removed.

As is shown

by experience with smaller

breaks that have occurred from the same cause,

when the

end

reached the final surface will be concave, or bowl shaped.

When water was turned into

the Cut on October

1913,

channel was completed to full width and depth except at Cucaracha,
where the steam shovels were making but little headway against
the slide; three benches which had been left (one at La Pita Point,
one on the east side near Empire, and one on the west side oppo-

site Cucaracha)

the inclines, one at either end of the Cut;

remains of two small slides,

one on

and the

the east side, of the "break"

variety, and the other on the west side, a typical slide of clay which
occurred prior to the removal of the steam shovels, both of which,

between Empire and Culebra,

were cleaned up by the dredges and

have remained quiescent since.
Cucaracha slide is on the east side of the canal south of Gold Hill.

It began to

give

trouble as early as 1884, during the operations of

the French Canal Co.

, but all the indications pointed

to a surface

movement only.

The French built an elaborate system of drainage

to overcome the difficulty, and,
excavation was suspended, fourth<
ity resulted in renewed activity

while successful so long

as work of

er deepening of the Cut in the vicin-

, with complete destruction

of the

drainage system;

remaining part

this system

was carried

away by the slide in 1907.

The slide gave trouble in 1906,

when

excavation proceeded through this section.

The difficulties increased

as the depth increased and in the autumn of 1907 became most for-

midable.

From this time until 1910 the difficulties became less, and

it was believed that they had been overcome and that the clay re-

mining would be supported by

a rock dike which was uncovered

and which apparently possessed ample strength to retain

above and back of it.

the mass

On January 20, 1913, the rock dike broke at

or below the bottom level

the canal and

completely filled

THE

PANAMA CANAL,

cut, as well as the cost, is conclusive that this method was the most
efficient and economical way of handling the material.

In July

cargoes

1914
the

troubles in Mexico interfered with

Tehauntepec

route,

and

shipping

the handling of

interests

were

clamoring for relief.

The dredges had secured a channel through the

slide
the
the

and

canal
traffic.

Panama Railroad

between
While

terminal

full

depti

operated

ports,
i and

but

a line of barges through

these

could

width had not

not

handle

been secured

through the slide,

pwg,

the channel was sufficient for the passage of ship-

and consequently the canal was opened to commerce in August,

1914.

Several

movements

have

occurred

since

Cucaracha

but

they

were

August,
from th

handled

1916,

easily
when

and

not delay

a movement occur

northeast corner

slide

commerce u
ed, bringing

area,

until

last of

down material

and moved huge

rock

boulders across the center line of

the channel, so constricting it as

to force a suspension

navigation

on August 30,

est mass of rock occupied a length of 65 feet.

1916.

The larg-

The bowlers required

drilling and blasting operations in

feet deep

time

and

in a flintlike
drills before

substance

they

could

order to remove them.

were

drilled

broken

great

Holes 20

expense

sufficiently for the

dredges

handle,

and

closure

canal lasted

eight days,

although two small ships were passed

through in the interval.

Gold

sediment;
deposits

Hill is of basalt,

ary

deposits

thrown

that

already

in a molten state

existed

on either side of the stem, giving to

and

poured

through
d over

the vertical section the

general shape of

stem,
under,

a mushroom.

being left unsupported

and

The

portions projecting beyond

broke when

the rock thus detached

the material moved from

came down

with

the rest of

material at Cucaracha.

This same

action

occurred

on the opposite

side

Gold

Hill

within

a few

months

after the

east Culebra slide

became active.

slide

developed

during

excavation

in 1906

north

Gold

Hill on

the east side of the Cut.

movement which flattens the slop4

This was a typical slide, a surface
e. and slides of this character had

occurred in

this locality during the French occupancy.

The French

1

REPORT OF THE GOVERN T OR.

panied by an upward movement of a portion of the bottom of the

excavated area a little distance from

the foot of the slope.

This

was followed later by a settlement of the mass between the crack

and the Cut,

which ultimately slid into the prism.

affected but a few hundred feet,

but as the depth

The first break
of excavation

increased

breaks

became

quantities of material involved;

more extensive

then

they

oc

both in length
:curred on both

and
the

east and west banks,

the upward movement along the bottom

the excavation

continuing until

area affected

extended for a

length of 2,000 feet north of Gold Hill.

The borings of record failed

to disclose any weak underlying strata.
The cause undoubtedly was the unequal distribution of the pres-

sure exerted by the adjacent banks.

Such being the case, it fol-

lowed that if the height of these banks were reduced the movement
would be lessened, and if reduced sufficiently would cease entirely.

Subsequent events proved this to be correct.

The banks were light-

ened by taking material from the top, and there resulted final slopes
through this portion of the Cut of 1 on 1� to 1 on 6i for the east side

and from 1 on 2.46 to

1 on 4.35 for the west side;

the slopes con-

sisted

a series of steps.

The

entirely, as already noted, and

upheaving of

bottom

the canal prism was carried

ceased
to full

depth and width throughout the entire 2,000 feet.
Toward the close of the dry season, in April,

1913, a crack ap-

peared on the east side opposite Culebra, about 1,300 feet from the

prism, in an old French dump.

It was parallel to

the canal, did

not join the banks, there was no breaking up of the banks between
it and the Cut, nor any subsidence-in short, there were none of the

indications that accompanied

previous

breaks.

The geologist

lived that it was due to the deformation of the underlying strata
and advocated lightening the banks by sluicing and steam shovels,

which was done.

While this work was in progress the crack gradu-

ally closed, and though the surface between the crack and the Cut
was in places noticeably below the level of the surface to the east
of the crack, the closure was construed to mean that a condition of

equilibrium had been reached.

The canal through this section was

completed,

the water was

turned in,

and no

further

trouble

was

. a . .. S .1 .

THE PANAMA CANAL.

similar slide occurred

water.

on the west side after the prism filled with

In both instances the movements were typical of the ordinary

slides-an adjustment of the slopes.

The material was easily han-

died by the dredges and the channel freed of all obstructions before

the canal was opened to navigation.

October 14, 1914, when,

This condition continued until

without any warning, a section of the east

bank north

Gold

Hill settled

vertically

20 feet.

This section

measured 2,000 feet along the prism face, and extended back about
1,000 feet from the axis of the canal, generally along an irregular
curved line, but did not extend back to include the crack that had

developed in 1913.

The top of the bank was from 300 to 350 feet

above sea

level.

After

settlement

upper

surface

portion that broke away remained practically parallel to its original
position, and the existing benches of the upper part of the slide had
not changed their relative positions, though they were badly broken
up, but the lower strata were squeezed out across the canal, reducing

the depth

of water from 45 feet to 9 inches at one point within an

hour's

time.

Subsequently the broken mass moved into the Cut,

was the case with other breaks.

Navigation was suspended for a

week, but after this and until August, 1915, the dredges were able for
the most part to keep up with the material as it came down, and
would have been able to maintain such condition had not a movement

occurred on

the west bank, necessitating work on this side to

detriment of the east side.
A crack was found on the slope of Zion Hill in June, 1914, higher

up than the crack already mentioned,

but observations made upon

it showed

no movement,

and

the solidity

was

never

doubted. Subsequent to the break on the east
general breaking up of the west bank followed.

side, a gradual but
The crack on the

slope increased in size and new ones developed farther up the hill,
until finally one extended to elevation 480 above sea level, the limit
of the present break. The movement into the Cut from the west
bank occurred early in August, 1915, when a section of Zion Hill
broke away and settled down. The edge of the break on this side is
also a curve.
The movements from the two sides were toward the central portion

*ss' .EE

REPORT OF THIE GOVERNOR.

gradually settle down vertically,

with very little lateral movement,

pushing out the material along the prism face.
When the break occurred on the east side it was realized that it
would extend eventually back to the limiting cracks, and that all the
material lying above some surface, concave in shape, unless removed,

would eventually enter the prism.

It was impossible to handle any

of it by hydraulics away from the Cut, and the only other method

would
ground

steam

and

shovels.

would necessitate

These

could

only

the establishment

operate

on firm

dumps.

The

number of shovels that could be worked would be limited, and con-

siderable excavation would be required before

could be attacked.

the sliding material

The dredges were capable of and were removing

over 1,000,000 cubic yards per month without any of the. difficulties
attending steam-shovel operations, and what could be accomplished
by the latter would be relatively so small and the cost so high that
the idea of introducing steam shovels was abandoned and the decision
reached that the material must be removed from the canal side by the
dredges.

From experience with

other breaks

it was known that the move-

ment

would

continuous.

settlement

occurs,

which

material is pushed into the prism; the movement is at first heavy and

rapid, gradually diminishes, and finally ceases.

This condition of rest

is disturbed either by the rains or by the operations of the dredges

cutting into the banks.

As all the material

liable to move must be

taken

by the

dredges from the Cut, there would come a time

when the machines would be idle,
additional material for them to ha

waiting for a movement to give
ndle. The judicious application

of hydraulicking

bank would

avoid

such

a condition,

conse-

quently pumps for sluicing operations were installed on two barges.
These have been used for cutting and maintaining surface drainage

and for washing down material to the dredges,

when the conditions

warranted it.
The finished section from Gold Hill north left an enormous mass of
hard rock on the east side and at the northwest corner of Gold Hill.
When the break occurred in 1914 this mass of rock was moved slowly

into

prism,

but finally

came

rest and seemed

hold the

Sa : a . _- - -

THE

PANAMA

CANAL.

Cucaracha, and the direction of the movement was due, no doubt, to

the retaining effect of "Gibraltar,

though

this took up slow move-

ments at times when the heavier masses back of it were disturbed by

subsequent settlements.

width

prism

through

the slide

section

remained

fixed for the project-300 feet bottom width-every movement that
occurred on either the east or west bank would contract the channel,

and

should

a movement

occur

in both

banks

same

time

would probably result in closing.the canal to navigation.

sity

of restoring the channel

maintenance of navigation

tion

width

sufficient

The ne

permit the passage of ships and

were

take

main
care

considerations.

material

An a

fces-
the
ddi-

pushed

subsequent
training a ch
material haC

movements,

lannel,

was

thereby 3
considered

been removed.

This

ncreasmg
advisable

the c
until

Chances

t

a modification

main-

he
of

loosened
the pro-

jected width,

which was increased to 500 feet,

100 feet on either side

of the original prism lines.

The

conditions

canal

closed

as they

existed

then-in

navigation indefinitely

November,
There was

1915-found

across it

isthmus 250 feet long in the direction of the axis of the canal, the top

which

was

about

feet

above

water;

dredging

operations

were

confined to the north of this isthmus, working toward the south,

with arrangements made for washing down the material in case it was

advisable

accelerate

motion

any part

the sliding area,

and with the project modified so as to give a completed width north
of Gold Hill of 500 feet.

In October,
ra member

1915

the President nof the

National

Academy

United States was advised

Sciences-which

was

organized by an act of Congress to give expert advice to the President
and Congress on scientific matters-who stated that one of its mem-
bers had made an extensive study of earth slides in tropical countries,

and was convinced

that there were relatively simple ways by which

they

could

be stopped,

and

suggested

that

a committee

mmmg

engineers and geologists of the academy be appointed to consider his

propositions.

consequence

this

President

United

States

requested

that

a committee

appointed

National

-- - - K-

**i

REPORT

OF THE

GOVERNOR.

but

that

the report. of the committee would

be able

restore con-

fidence in
knew that

project,

especially

the methods adopted

as those connected

would

overcome

with

work

the difficulties for

good and all, given the time and money, and that the waterway would

be all that had been

expected.

Probably

greatest

mjury

done

canal

was

through

Prof.

Benjamin Le Roy

Miller, Ph. D.,

who occupies the chair of geology

at Lehigh

University

On returning to New

York from

Costa Rica

he stayed here a couple of

days awaiting a steamer.

He was given

every facility to examine the slides at Culebra,

which

were

then

their worst,

and he

is reported

have said

for publication

on his

arrival in the United States that he had made a

"thorough examina-

tion

slides,"

and

conditions

found were

as follows-the

statement appearing in quotation marks in

the press item:

At the Culebra Cut

* * cracks have formed over

1,300 feet back from the

canal, and all of the ground intervening is moving toward the Cut.

There is no doubt

that much rock, now apparently stable, also will move, as its support is withdrawn by
the removal of loose earth and rock. Before the canal can be said to be completed
and permanently opened to traffic, the amount of material that must be taken out
will not fall far short of the amount already taken from the Culebra Cut.
Transportation companies planning to use the canal should realize that they must

not expect uninterrupted service for several years.

may be opened,

During the dry season the canal

but it is certain to be closed during the rainy season when the earth

is soaked with water and its movement toward the canal facilitated.
In view of the extent of the material that has now started toward the Cut, it seems

that steam shovels should again be employed.

of Zion Hill must be removed

Practically all of Gold Hill and much

and to wait until the earth breaks loose and enters the

Cut where the dredges can attack it seems unwise, and unquestionably longer delays

the completion of the project.

If dredges alone are employed, as at present, the canal

may be kept clear during the months when rainfall is lightened,
to come the rainy season is almost certain to cause such slides i
for weeks or even months.

The "thorough examination"

but for many years
s to close the canal

occupied fully three or four hours of

his time.

The position

that he occupied in

one of

the leading uni-

versities of the United States gave credence to his statements,

which

were copied broadcast, and commented upon editorially to the detri-

meant of the canal.

His dire predictions were naturally unsettling to

shipping

interests,

which

were

guided

them

some

extent

. -. - d-I -m

THE PANAMA CANAL.

that time they expected that their final report would be completed

in April, but up to date it has not been received.

report will be found in Appendix N.

The preliminary

It will be noted that the state-

ment made by Prof. Miller, that practically all Gold Hill and much of
Zion Hill must be removed, is not concurred in; and in this connection
it should be remembered that a committee of this character expresses
its opinions guardedly, for whatever happens they must be found on

the right side.

They advocated, as a matter of scientific interest,

the making of an accurate triangulation of the hills in question-

Gold,

Contractors,

Culebra,

and Zion-which has been

done.

checks made at frequent intervals the slightest movement on

Part of any of the four hills would be disclosed at once.

No movement

of any kind has taken place.
The committee expressed the belief that every available and prac-
ticable device for controlling the water, both on the surface and under-
ground should be employed, and to this end advocated covering the

slopes with vegetation

cracks

to prevent surface wash, closing peripheral

, draining undisturbed and threatened areas, and draining by

tunnels.
For several years the expedient of covering the slopes with vegeta-
tion has been carried on, starting under the direction of Dr. Pittier,

of the Smithsonian Institution.

Where the surface of the ground is

in mo ion, as in the case of active slides, the roots are disturbed, and

the steady growth of vegetation is impracticable.

Trees and vege-

station of all kinds growing on the surface of the ground which broke

in October,

1914,

were carried

down

slide

and

exercised no

deterring effect whatsoever.

On sliding ground there is not sufficient

time to plant anything and no good would be accomplished.

Where

the banks consist of the red clay of the country, it is only after con-
siderable difficulty that grass of any kind can be grown on them.
Vegetation stops erosion; on this account the work was undertaken
and is being carried on.
When peripheral cracks occur in rock with sufficient earth covering
they may be effectually closed by the use of a hydraulic grader, as
was done in an incipient slide on the west bank of the canal near

Las Cascadas.

The sluicing down of the earth into a uniform slope

rHF lMKK
*IE::E

REPORT OF THE GOVERNOR.

to close them permanently without expense that is disproportionate
to the results obtained.
In compliance with the expressed wishes of the committee while
on the Isthmus, subsurface tile drains have been installed within an

area on Culebra Hill as an experiment.

Also, as suggested by the

committee, the fault fissure under the hard Obispo tuff on the north
side of Contractors Hill has been sealed and a concrete-lined drain

constructed, draining the surface water into the canal,

with a view

to the protection of the Cucaracha rock beds adjacent to this portion
of Contractors Hill.

It is admitted

that if

water could

be entirely

excluded

earth movements would cease

, but unfortunately this is impossible.

With the heavy tropical downpours the best that can be done is by

drainage, to carry away what falls as rapidly

as possible,

but ground

water can not be eliminated.

So far as concerns ground water, the

construction of the canal has created entirely new conditions.

old tributaries of the Chagres River and

The

those of the Rio Grande,

which formerly were natural drains, are now well above the water
surface of the canal, and the canal has become the drainage channel

for the country for miles on either side.

Even assuming that were it

possible to devise a system for getting rid of ground water, it must still

exist below the surface of the water in the canal itself.

The slides

in question affect the banks for a considerable distance down, prob-
ably below the bottom of the canal, and if ground water be primarily
the cause, then it can not be removed from the strata at which the
trouble starts.

Surface drainage

excavation.

was

maintained

throughout

period

The aj acent country on either side of the canal

dry
was

drained

through the east and

west diversions,

which continued

as drains, discharging their accumulated waters into the Chagres.

In relieving the pressure, force pumps on barges have enabled

washing down of part of the material,

as already

explained.

the
The

hydraulic grader which was constructed in July

commission in August, 1914,

, 1914, and put in

was built especially for opening chan-

nels to expedite surface drainage at various points along the line of
the canal, and to maintain them, and this work has been carried on,

THE

PANAMA

CANAL.

Drainage

by tunnels has

been

considered in connection

with data

obtained since

committee's

report

was

written,

as the result of

experiments suggested

by the chairman

committee,

Van 4

Hise

, through

whom

services

Prof.

Warren J

Mead,

University of
Mr. Donald F

Wisconsin,

were

secured,

and

who

was

assisted

MacDonald in making tests of the rock formation in

which the east and west Culebra and Cucaracha slides have occurred.

I have
hereto

received

appended,

from

Mr.

marked

MacDonald

"Appendix O,

, the geologist,

a brief

report,

which states the result of

the experiments, as follows:

Twenty-one average

samples of the

Cucaracha or sliding formation

were

taken

from below the water level of the canal.

These samples, completely saturated,

con-

trained 12.20 per cent of water by weight, or 27.8 per cent by volume.

The 16 average

samples taken from well above the level of ground water, where the rocks were much

jointed and fractured and, therefore, perfectly drained,

water by weight.

contained 10.60 per cent of

As shown above, 12.2 per cent of water by weight fills all of the pore

spaces of the rock; therefore, 10.6 per cent by weight fills only 87 per cent of them,
leaving 13 per cent of the total pore space as having been emptied by drainage and by

drying.
rock.

Now, 13 per cent of 27.8 per cent is 3.6 per cent of the total volume of the
This shows that natural drainage of the most perfect kind would not remove

more than 13 per cent of the water by weight, equivalent to 3.6 per cent of the volume

of the rock.

However, most of the samples from the drained rock were taken very

close to the surface, so that very likely they lost some of their water through drying
out by the heat of the sun, for the dry season was more than a month old at the time
they were collected.
These facts show that while the sliding rocks have a high percentage of pore space,

the pores are mostly of capillary

and are filled with water which obeys the laws of

capillarity and

which can not,

therefore,

be drained off.

These experiments defi-

nitely established that all cures by drainage which had
the canal authorities were absolutely futile, and the m

been offered to and urged on
Loney which might have been

wasted in worthless tunnels,

wells, and acres of asphalt covering,

was saved for the

only remedy that could bring permanent cure under the circumstances-dredging.

Before

considering

the suggestions

that

have

been made

for con-

trolling or preventing the slides other than those already mentioned,

it may

this

well

direction

to state

what

prior

was attempted

occurrence

by the
slides

canal forces in

which

now

active.

During the excavation

the Cut 22 slides and

breaks of

various

extent occurred.

The steps taken to protect exposed slope

by vege-

^ii:i

:

REPORT

OF THE

GOVERNOR,.

It was thought that in case of clay slides heavy riprap dumped on
the surface would find its way through the loosened material to firm

ground and check the movement,

less as the piling.

but this method was found as use-

Most of the riprap rock was taken out at the foot

the slope as the excavation

concreting

face

proceeded
prism to

Experiments

prevent

were

made

disintegrating

effect of the air on some of the softer rocks; this was done by use of a

cement

gun,

by plastering

reinforced concrete

rail.
nant

anchored

surface

with

the side of

cement

prism

mortar

with

None of these methods was satisfactory or durable.

of the French drains

, which proved inadequate,

and

pieces of
The rem-

were dug out at

the bottom of the prism.

The conclusion was reached

that the only

cure was the removal of all loosened material as it came into the Cut,

and in case of breaks to

relieve the weight,

where possible,

from

upper parts of the banks by steam shovels or sluicing operations.

considering

any

method

stopping

slides

some

concep-

tion must

had

enormous amount of

material involved,

well as

method

in which it

acts.

The

banks

present

giving

trouble are from 300 feet to approximately 550 feet above sea level,

and extend back 1,300 to

1,800 feet from the faces of the prism, and

from

these

broken for
As already

farthest
a depth

explained,

points to
extending

water surface

least

the movement is

entire

bottom

mass

canal.

by fits and starts, sudden at

first

and

gradually

subsiding,

with renewed

activity

after

a period

quiescence.

For instance,

in August,

1916

a general

movement

occurred at the east Culebra slide and consisted of a settlement from
20 to 25 feet vertically down at the rear portion of the area affected,

some

1,300 feet from

prism,

by which a

mass of

material from

lower part

was

projected

into

Cut

beyond

center

line

reducing

depth

water

along

this

line

an average

5 feet.

Because of the width of the new channel

, as well as the depth, navi-

gation
mous

was not interrupted,

amount of

material

but some

that

must

idea may

held

had

back

any

the enor-
artificial

construction

or device

similar

those

which

have

been

proposed,

and

impossibility

their construction must

recognized.

Suggestions

most

frequently

made

have

been

along

line

�_

* r

THE

and

PANAMA

cANAL.

tying the piles ta anchors driven in

done, nor would it secure the result ant i
this scheme.

the firm ground can n bhe
cipated by the' ropoce-s of

The

construction of retaining walls would require

the excavation

material

material

secure

foundations,

in motion,

when

necessitating
need for th4

remnval of

retaining wall

would no

longer exist.

There is no form of

construction that could

be designed
excavation

that would hold

foundations

back the superimposed mass-while the

was

inm progress.

The

construction

of inverts to hold down the bottom of the prism is impracticable and
impossible.

Wire

netting

rolled

over

bank

and

held

place

stakes

would not prevent the movement,

but would seriously interfere with

the -dredges

in removing

material

littered

with

sections

wire
slide.

mesh,

which

would

Consolidating

break
mass

loose

with

injecting

every

grout

movement

would

also

impossible; the

pipes could not

be driven

' the earth and rock, as it now comes into tl

to firm ground below and
he Cut, can be much more

easily

handled

than

would

the case

were

this

material solidified

by cement.
It was suggested that the slopes and the surface of the ground adja-

cent

which

would

Cut

covered

exclude

water

with
from

asphalt,

tar,

ground.

or some

This

preparation

was

also

pro-

posed by a member of the committee from the National Academy of

Sciences.

That

committee did

not include it among its recom-

mendations seems conclusive that in its opinion it was not practicable,
and no further comment seems necessary.

A number of

difficulties,

theories have

among them

that

been
there

advanced

as to

the cause of the

exists a huge reservoir of water

within

the earth and the pressure therefrom produces the slides.

this

be so

pressure

being sufficient

break the ground

would

release the water and allow its escape.

All the water that is drained

from the slide areas is accounted for by the rainfall and by the escape

any

ground

water

that

movement

might

liberate,

and

theory is

untenable.

The mutual attraction

of the large masses on

either side of the Cut is assigned as the cause for bringing down the

I

I _ _

REPORT OF THE GOVERNOR.

eruptive material, sometimes for a long distance, to the place of the

least resistance."

Coming from

a man

with such large

practical

experience, it undoubtedly carried conviction to the minds of many

who read it.

Since Senator Kearns's

examination was more thorough

than that made by Prof. Benjamin Le Roy Miller, Ph. D., it is com-
forting to note from his judgment also that Gold and Contractors
Hills are not likely to fall into the Cut.
Senator Kearns is in error when he states, " Since it (the canal) was
first opened to navigation on August 14, 1914, it has been closed and
out of commission virtually two-thirds of the time." The canal was
opened to traffic August 15, 1914, and up to June 18, the date of the
article, the canal was closed 232 days out of 656 days, or approx-
imately one-third of the time, instead of two-thirds, as stated.
Another error is that there was an upheaval in the bottom of the

Cut at some other point than the Culebra section.

At no portion of

the canal has there been any upheaving except in the 2,000 feet north

of Gold Hill.

This upward movement first occurred when the excava-

tion had reached elevation 175 feet above sea level, or 135 feet above

the finished bottom of the canal.

The upheaval, as the result of the

present slides, reached an elevation of 65 feet above the water surface,

or 110 feet above the bottom of the canal.

In no case was there a

movement at the bottom that was not preceded by a movement in

the adjacent bank.

The movement in the bottom ceased entirely in

1913, when the side slopes were made sufficiently flat to reduce the
pressure exerted by them to less than that required to accomplish

this upward movement.
again subsequent to the

The

upheaving

break in

October,

bottom

1914,

when

occurred

huge

masses of the banks crowded toward the axis of the canal and dis-
turbed the condition of pressure that existed prior to the occurrence

of the slides.

Part of the shoaling in the canal is undoubtedly due

to the resistance to the motion of the mass at some part of the bottom,
which throws part of the slide itself upward with the effect shown.

According to Senator Kearns's

theory, gases forming somewhere in

the interior of the earth in escaping carry with them eruptive material
to the place of least resistance, or in this instance through the bottom

of the canal.

The breaks,

which produced fissures several hundred

THE

PANAMA

CANAL.

the banks we are able to reach bottom grade and keep it.

Under the

circumstances,

those

on the

work still

adhere

their

LbeliefB

that

subterranean gases have nothing whatever to do with the movements
that have occurred.

The

and

methods

maintain it,

proposed for securing

adopted in

October,

a channel

1915,

through

were

laid

the slides
before the

committee of the National Academy of Sciences, including the sluicing

operations proposed on

the west side,

which modified the plan in any waz
by a number of people seeking to

but no suggestions were made
The various propositions made

help us in our troubles were care-

fully considered, as were also the theories advanced setting forth the

probable
posing, f

causes.

or suitable

There

were

monetary

a number

of letters,

consideration,

to cure

writers

the slides

pro-
but

these were filed.

None of the suggestions or theories tended in any

way to change the plans adopted.
The dredges did their work so well that a channel was cut through

the Isthmus connecting the

two

banks

of sufficient size

to pass the

small ships still

tied up and awaiting transit.

April 15,

1916

sufficiently stable channel had

been secured

to warrant opening the

canal
date.

navigation,

and

transit

shipping

continued

Except at "Gibraltar" the waterway is 500 feet wide with 40-

foot depth

over the greater part,

this depending on

the movements

that occur in the banks.

So far as the Culebra slides are concerned,

worst

is over;

intervals

between

movements

becoming

greater and
"Gibraltar,

the quantities of

material less;

the only danger being at

" but it is hoped that the excavation continued along the

lines

contemplated

adopted pri
of shipping.

sm line

will

enable

widening

without interfering in

this

section

any way with

transit

The reopening of the canal was at the beginning of the

rainy season, and thus far the rainfall has been above the normal.

The recent movement at Cucaracha was, as usual,

coming as it did from the high ground in

slide area.

the unexpected,

the northeast corner of the

The difficulty attending this was not a question of amount

of material, for the dredges could cope easily with the movement on

this score

the hard flinty rock was difficult to break up,

and caused

irritating and aggravating delays.

REPORT OF THE GOVERNOR.

shops; the Cristobal roundhouse, and car shop; and the car inspec-
tion forces at Balboa and Mount Hope.
The amount of work on the dredging equipment and vessels using
the canal was sufficient to permit organizing the forces at Paraiso

and the dry-dock shops at Cristobal on a marine basis.

work at Balboa increased materially.

The marine

It was anticipated that the

Paraiso shops would not be operated during the past fiscal year, but
due to the slides in Gaillard Cut it developed that these shops per-
formed more work than at any time since their establishment.
At the end of the year the capstans and the traveling crane for
Dry Dock No. 1 had not been delivered, and the official test of the

dock pumps had not

been

begun.

It was

possible,

however,

June 28, to dock the seagoing ladder dredge Corozal and to remove
the water from the dock with the main pumps.
Delay in the completion of building No. 29 for covering the air-
compressor plant and dock pumps prevented starting the new electric-
driven air-compressor plant until April and kept the old Balboa plant

in service under

electrical

division.

Three

electrically driven

air-compressor units were purchased for installation in building No.
29, but in view of the delay in their installation and the bad condition
of the air compressors at Cristobal dry-dock shops, it seemed desirable

to divert one of them to Cristobal.

As purchased, there were two

units of 2,500 feet capacity and one of 5,000 feet capacity.

the former was installed at Cristobal.

One of

It is now found that the three

machines intended for use at Balboa will probably be insufficient to
supply all demands, and it is intended to add another 5,000-foot unit,
thus making the total capacity 12,500 cubic feet per minute instead
of 10,000 cubic feet, as originally designed.
Provision for car-shop work at Balboa proved inadequate during
the rush of railroad transportation incident to the closing of the canal
in September, 1915, necessitating the opening of the old car shops at

Cristobal for work on box cars and Roger ballast cars.

These shops

were closed on July 29, 1916, and the work transferred back to Balboa,

where conditions had improved so as to
there.

permit its being handled

The purchase of

new

tools

and

increase

amount of

THE PANAMA CANAL.

proved inadequate to supply compressed air, and one of the Babcock
& Wilcox boilers formerly in use at the Gold Hill sluicing plant was
erected and connected to a 2,500-foot air compressor from the old
Empire air-compressor plant; the pumps for water service under the
municipal engineering division were supplied with steam from the
same boiler, thus permitting one force to handle both the air conm-

pressor and the pumps.
At the dry-dock shops, Cristobal,

very little work incident to im-

provement of the plant was done, with the exception of installing the
new electric-driven air-compressor and electric motors for operating
the dry-dock pumps.
All heavy repairs to locomotives were made at the Balboa shops
and covered general overhauling of 14 engines, besides those being
repaired and packed for shipment to the Alaskan Engineering Corn-

mission; 4 were completed for the latter purpose, and

under repairs with the expectation

4 are now

that they will be shipped so as

to arrive in Alaska before the close of the season for navigation.

Extensive

repairs

were

made

launch Birdena,

De Lesseps, launch No. 26, and the tugs Reliance and Bolivar.
The floating cranes Ajax and Hercules were transferred from the
mechanical division to the dredging division in October, 1915.

The

fuel-oil

pumping plants

were

operated

by the

mechanical

division until September 1, 1915,

supply department.

when they were turned over to the

Two additional 55,000-barrel fuel-oil tanks were

purchased and at the close of the fiscal year one at Balboa was ready

for service

while the foundations had been prepared for the one at

Mount Hope and the work of its erection had begun.

Two 5,000-

barrel gasoline tanks-one at Balboa and one at Mount Hope-were

erected and connected.

A 500-barrel tank was also erected at Balboa

with connection to a standpipe for filling tank cars on the tracks of
the Panama Electric Co. for transporting fuel oil to their plant in
Panama.
The necessity for using air drills on the banks abreast the slides
required considerable compressed air immediately adjacent to the
work. This was obtained by installing two 2,500-foot air compressors,

from the old

Emnire

air-comoressor ulant.

on board the seagoing

REPORT OF THE GOVERNOR.

the Panama Railroad, 5 for the Army,

8 for the Navy,

4 for indi-

viduals and

companies,

for the east

breakwater,

and 2 for the

Panaman Government.

Work

done

individuals

and

companies

included

extensive

repairs to the boilers of the steamships

Whitgift and St. Louis, to the

rudder of the Curacc and to the stern of the Elm Branch.

Three

manufacturing orders of considerable magnitude were accomplished

for the Ferrocarril de Arica a La Paz,

consisting of six

cast-steel

frames for geared mountain

climbing

locomotives,

3,000 semisteel

rail chairs, and 16 steel gears for use on locomotives.

For further details

, and a statement of the amount of work done

during the year by the

various shops, attention is invited

Ap-

pendix F.
SUPPLY DEPARTMENT.

The supply department has charge of the storage and distribution
of materials and supplies for use of The Panama Canal and its em-
ployees; for other departments of the United States on the Isthmus

and their employees;

for vessels of the United States, and for other

vessels when
and messes;

desired

them.

operates

commissaries,

hotels,

has charge of the maintenance of buildings and

assignment of

quarters and

care of

grounds.

It recruits and

dis-

tributes unskilled labor and is in charge of all animal transportation.

The department continued in

charge of Maj

Grove, United

States Army.
The labor force remained practically intact during the greater part
of the year, because of the terminal construction and the dredging in

Gaillard Cut.

In May, due to the near completion of the dry dock and

coaling stations, the force was reduced

the force report showing a

total of 23,462 employed on June 30, 1916, as compared with 26,897

employed on June 30, 1915, or a net reduction of 3,435.
surplus of labor throughout the year in all grades. TI

There was a
ie repatriation

of those for whom it was impossible to find work was continued, and
1,661 took advantage of it, at a cost to the canal of $33,919.65. No
contract laborers were recruited.
Quarters.-The village of Corozal was abandoned effective Decem-
1 -" -�l-i i, i I -� * 11 � 1 1 ,1

THE PANAMA CANAL.

Additional quarters were completed and occupied as follows:

Fifteen 4-family, seven 2-family,

2-family, ten 4-family

twelve 1-family, all frame; two

concrete; one special bachelor apartment,

concrete; one special bachelor apartment, frame.
Corrals.-There was no decrease in the demand for wagon trans-

portation, all animals being worked to their full capacity.

Due to

improved road conditions, particularly on the Pacific terminal, motor
trucks were substituted for animal-drawn wagons, both for delivery

service and trucking.

amounted

Animals dying or destroyed during the year

: animals

surveyed

and

sold,

and

animals

corrals at the close of the fiscal year totaled 519-horses 118, mules
390, and ponies 11.
Material and supplies.-A total of 1,776 requisitions were prepared
and forwarded to the general purchasing officer, as compared with

1,428 during the previous year.

The total value of material received

was $9,945,390.32, as compared with $8,018,418.03 for the previous
year, the increase being largely due to the increased prices of mate-
rial. The local purchases amounted to $1,569,812.15, as compared
with $1,360,469.71 for the previous fiscal year.
There was a general increase in the price of many of the staple
articles of material, especially iron and steel; the average price of

steel and iron on hand June 30, 1915, was
pared with $2.17 per cwt. on June 30, 1916.

$1.63 per cwt., as com-

All storehouse operations were placed under the supervision of a
general storekeeper, comprising the storehouses at Balboa, Paraiso,
the obsolete stores at Mount Hope and at the dry dock, Cristobal.
On June 30, 1916, the value of material in stock was $4,198,392.34,
as against $2,925,332.91 on June 30, 1915, not including the stock

obsolete

and

retired

material

and

equipment

on hand

Mount Hope store.

The increase in the value of the stock material

was due, in large measure, to an increase in the purchase price of a

large number of items.
567,024 barrels.

The consumption

cement amounted

Scrap.-The policy of concentrating at the obsolete storehouse at
Mount Hope all surplus, obsolete, and scrap material and equipment

was continued.

The sales of this material continued to be made,

REPORT OF THE GOVERNOR.

rail to the David Kaufman & Sons Co., Elizabethport, N. J., for

$48,280.

Under a later circular,

13,310 net

tons of miscellaneous

scrap

were sold

Federal Iron

Steel

for $78,333.98,

890 net tons of miscellaneous scrap to the David Kaufman & Sons
Co. for $4,147.20; and 810 net tons to N. Samuels & Sons Co., of

New

York, for $3,936.50.

All of the material sold

under the first

circular was paid for in full by the purchasers,

it remains on the Isthmus.

but a large part of

About 890 tons of material under the

second circular has been paid for, but not removed from the Isthmus.
The contractors are paying storage on all the material sold but not
yet removed.
Material to the value of $220,116.40 was sold from the storehouses

to the

United States Army organization stationed on the Isthmus.

The principal items consisted of forage, lumber,

and general hardware.

building material,

There was an increase in value of supplies

sold to steamships in transit through the canal and those touching

at the two

terminals.

The value of supplies sold was $70,918.22,

representing miscellaneous ship supplies for 860 steamers.

Surplus

and

obsolete

material

with

appraised

valuation

$222,735.24

was

forwarded

United

States

for sale.

Local

credit and cash sales of obsolete material and equipment amounted
to $205,473.94, and obsolete material to the value of $292,994.89 was
issued and transferred from the obsolete store to divisions of the canal.
There was on hand on June 30, 1916, surplus and obsolete material
with an appraised value of $665,396.40.
Fuel-oil plants and storage.-The supply department took over the
construction of the Balboa and Mount Hope fuel-oil plants on Sep-

member 1, 1915.

The Panama Canal received during the year 676,497

barrels, of which 579,389 were stored in its tanks at Balboa and the

balance,
517,191

97,108

barrels

Mount

Hope.

barrels were drawn from Balboa and

the amount stored,
108,746 from Mount

Hope for use by The Panama Canal.

To outside parties 48,427 bar-

rels were sold from Balboa, and

12,093

barrels from Mount Hope.

Oil handled for individuals and companies through the oil pumping

plants aggregated 893,165 barrels,

and the total amount of fuel oil

handled through the Balboa and Mount Hope oil plants was 2.256.119

THE PANAMA CANAL.

the tank above the surface of the gasoline.

Mount

Hope,

with a capacity

of 200,000

Storage tank No. 27 at

gallons,

was

completed

December 15, 1915.

Up to the end of the year it had not been con-

sidered necessary to order a supply of gasoline for the Atlantic side.
The total amount sold to outside parties was 199,280 gallons, and
used by The Panama Canal 362,371 gallons.
Subsistence.-The supply department continued the operation of
the Washington, Tivoli, and Aspinwall Hotels, also the line restaurants

and

laborers'

messes.

The

Hotel

Washington

owned

Panama Railroad Company and the remainder by The Panama Canal.
The revenues of the Tivoli and Washington showed an increase over
the previous year of $33,310.26.
The Tivoli Hotel showed a net profit of $24,929.85, compared with

a loss of $1,974.16 for last year.

Had a charge been made for build-

ing repairs a net profit of $17,007.51 would have been shown.

some of this increase may be due to the tourist traffic,

While

the larger part

is due to the interest of American business men in Panama and South
America. It is believed that this element of the business will increase
and that there will be a demand on the hotel facilities in the future

accommodations

representatives

American

business

enterprises.
The existing structure (frame) is badly ant-eaten and rotted, so
that extensive repairs will have to be made or a new building con-
structed, and I am including in the estimates for the next fiscal year
the sum necessary for building a new structure of reinforced concrete.
The experiment with the Hotel Aspinwall at Taboga was continued,
but employees availed themselves of the opportunity so little that
on July 1, 1916, the hotel was closed, the loss amounting to $4,554.09.
The hotel at Corozal was closed when the village was vacated and
turned over to the Army.

The net revenue for the year from restaurants

and messes was

$661,017.90, while the total cost of operations was $648,565.39, result-

ing in a profit of $12,452.51.

Had the charges for building repairs,

fuel,

light,

etc.,

been made

there would have

been a net loss of

$3,727.68.

No charge for equipment has been made, but is absorbed

T atin + li- nman -r Q M n .; c3

REPORT OF THE GOVERNOR.

ceding year.

To the equipment were added five Chandler & Price

platen presses with motors for operating,
items, at a total cost of $1,960.30. The v

and various other small
ralue of the equipment on

hand is $37,897.57.
The commissaries of the Panama Railroad were operated by the

supply department.

On account of the high cost of beef purchased

in the

United

States

purchase of local

cattle was continued,

ranges provided for fattening, and an abattoir constructed.

During

the year the abattoir was enlarged and a fattening house constructed,

which is being operated in connection with it.

A total of 7,762 cattle

were killed and 3,843,377

pounds of

dressed beef

turned

value of which amounted to $446,682.69.
For further details attention is invited to Appendix G.

ACCOUNTING DEPARTMENT.

out,

The organization

department

was unchanged

during the

year.

Mr. H. A. A. Smith, as auditor, continued at the head of the

department, and immediately in charge of the division of auditing

and accounting, Mr. John H. McLean, as paymaster, and Mr.

Clear, as collector.

T. L.

The office of the department in the Washington

office was under Judge B.

F. Harrah, as assistant auditor,

Virgil C. Miller, as disbursing clerk.
The paymaster disbursed $26,933,528.35,

was

made on

account o:
pay-rolls,

Panama

Railroad

mainly on account of

of which
Company

coupon

with Mr.

$8,694,110.12
. Collections

books and meal

tickets, amounted to $2,709,743.60.

Of this amount $2,556,093.08

were disbursed directly

by the paymaster, and

balance

trans-

ferred to the collector'
Washington, D. C., es

account.

The Commercial National Bank of

tablished a branch on the Isthmus,

which was

made a Government depository as well as a fiscal agent.

Collections

made

and

repaid

appropriations

amounted

$7,220,622.65.

The sum of $2,756,764.83 was collected and deposited

as miscellaneous receipts.

Under the provisions of section 3 of the

sundry civil act of March 3, 1915, the Comptroller of the Treasury

detailed

employees,

one

from

office

auditor,

War

Department. and the other from the office of the Comntroller of the

THE PANAMA CANAL.

made July 1, 1916.

Of this amount $19,224,873.30 were for fortifi-

cations; $1,000,000 to cover the four annual payments of $250,000
each to the Republic of Panama, and $6,000 for the expense of pre-

senting the steam launch Louise to the French Government.

In ad-

edition, $7,050,000 were appropriated for operation and maintenance,
sanitation, and civil government for the fiscal year 1917, and $6,440,-
000 for the fiscal year 1916, while $4,289,159 were charged against the
operation and maintenance of the canal for the year ending June 30,

1915.

Of the stock of material and supplies on hand $2,225,000 will

be used and charged against the operation and maintenance of the

canal.

Three million

four

hundred

thousand

dollars were

appro-

priated for colliers, $800,000 for Dock No. 6, Cristobal, and $600,000 for
new boilers in the steamships Ancon and Cristobal, which, deducted
from the total sum appropriated, leaves $370,950,116.72, or a balance

of $4,250,783

available for appropriation within the limit of cost

of the canal and the authorized bond issue.

Up to June 30,

1916,

the miscellaneous receipts covered into the

Treasury, exclusive of tolls and Canal Zone revenues, amounted to
$6,832,144.14, so that the cost of the canal to date, so far as con-

struction is concerned, amounts to $364,117,972.58.

account of receipts from future sales of

This takes no

construction material and

equipment, payments to be made by the Republic of Panama for the
sums expended on account of waterworks, sewers, and pavements in

the terminal cities, and

the equipment transferred

to the Alaskan

Engineering Commission and the State Department. The estimated
value of the items so transferred aggregated $7,155,978.80. In addi-
tion to the construction of the canal, covered by the estimates on
which the bond issue was authorized, a dry dock, two coaling stations,

terminal piers, and wharves have been built,

as well as a new hospital

at Colon and new building for the Ancon Hospital, none of which was
contemplated. Furthermore, injury claims amounting to more than
$1,000,000 were paid, and not provided for in the estimates of 1908.
Under the agreement with the Republic of Panama, which requires
the reimbursement to the United States for expenditures for water-
works, sewers, and pavements in the terminal cities, the expenditures

to June 30. 1916. totaled $3.853.576.15.

The United States has been

REPORT OF THE GOVERNOR.

terminal $1,551,747.62 were expended for the Cristobal coaling plant

and $42,771.88 for the fuel-oil plant.

At the Pacific terminal $3,062,

379.61 were expended for the dry dock and $953,332.82 for dredging

the inner harbor; for the coaling station

$920,226.68; Balboa shops,

$232,418.97;

fuel-oil

plant,

$58,068.42;

permanent

townsites,

$278,011.34, and for permanent buildings, $1,019,089.82; at Mount

Hope for sanitary fill

$22,089.62, and for the construction of roads,

not including townsites, $76,877.03.

For maintenance and

operation $6,999,750.15 were expended,

against

$4,123,128.09

last

year.

The

main

item

expense

was

$3,513,350.06 for dredging 12,430,209 cubic yards of material due to

the slides,

while

during

previous

$1,633,030.06 for the removal of
from the same causes.

year

there

were

4,710,566 cubic yards of

expended
material

The tolls collected amounted to $2,399,830.42,

383.69 last year.

as against'$4,343,-

Accompanying the detailed report of the auditor

is a statement showing the tolls collected from

each ship and

amounts that would have been collected under the Panama Canal

rules.

The business operations show a profit of $11,898.44,

as against

the loss of $56,400.78 last year.
Under claims for injuries and deaths, 2,349 accidental injuries and
39 accidental deaths of Panama Canal employees occurred in connec-

tion with their work.

Of the injuries reported, claims in 741

cases

were approved and 35 disapproved.
proved and 6 were disapproved, w.

Fourteen death claims were ap-
hile 19 cases were pending at the

end

of the

year.

On account of injuries

to employees

,341.85

were allowed, and on account of deaths $33,321.07

To employees

of the Panama Railroad

$9,056.66

were allowed

for injuries,

and

$3,330.24

were

allowed

on account of

deaths.

The

total

amount

paid by The Panama Canal as compensation on account of injuries
and deaths of employees since August 1, 1908, the effective date of
the act of May 30, 1908, was $1,338,653.69.
Coupon books to the value of $3,250,132.50 were issued during the

year to employees on

pay-roll

deduction.

Commissary

and hotel

coupon books to the value of $1,615,903.80 were sold for cash.

Meal

tickets to the value of $126,397.87 were issued to silver employees.

3?

THE PANAMA CANAL.

EXECUTIVE DEPARTMENT.

The department embraces the various civil functions pertaining to

the government of
special attorney an

the Canal Zone,

the courts,

the district attorney, and

the offices of

the Canal Record.

It is in charge of Mr. C. A. McIlvaine, executive secretary, acting under
the Governor. The organization of the executive department and of
the executive office was continued along the lines set forth in the an-
nual report for 1915.

DIVISION OF CIVIL AFFAIRS.

The work of the customs, posts, local licensing, administration of
estates of deceased employees, shipping commissioner, and publica-
tion of the weekly bulletin, the Canal Record, was carried on by this
division.

Shipping

commissioner.-The

shipping

commissioner

exercised

practically the same powers as are exercised by American consuls in
foreign ports. As this power was questioned Congress was requested
to enact legislation making it definite, and provision was made in the

act approved August 21, 1916, accomplishing the purpose.

same

connection,

diplomatic

and

consular

appropriation

In the
)n act,

which became a law on July 1

included The Panama Canal Zone in

the countries to which relief and protection of American seamen would
be extended.
Customs.-On September 15 the Government of Panama was noti-
fied that the existing Chinese exclusion laws would not be held to
apply to Chinese crews of vessels. Customs officers were directed to
continue checking the Chinese crews, but to make no further effort to
prevent them from coming ashore in the Canal Zone.
The act of August 21, 1916, confers upon the President authority
to make rules and regulations touching the right of persons to enter
the Canal Zone, and besides other things, to require a ship bringing
an undesirable to the Canal Zone to return him to the place of origin.
During the year 395 prohibited aliens arrived at Balboa and 158 at
Cristobal, in transit to the Republic of Panama and other countries.
Bv authority of the Panaman officials 343 were allowed to disembark,

REPORT OF THE GOVERNOR.

fine of $5,000
exceeding two

and
yearn

a minimum fine of $50

3,

and imprisonment not

or both such fine and imprisonment.

There

were 38 arrests of persons and

vessels on

this charge,

of whom

were acquitted. In the majority of cases found guilty the minimum
fine only was assessed. The largest fine assessed any individual was

$100 and the heaviest fine against a ship was $190.

It is difficult to

cope with the problem when such penalties are inflicted.
The total number of vessels entered at the canal ports was 2,130,

and the total number of vessels cleared was 2,123.

There were

2,631

seamen shipped on American vessels and 2,475 seamen discharged.
Licenses and taxes.-Licenses and permits were issued to the number

2,569,

of which

1,078

were

for motor vehicles.

Motor-vehicle

license fees in the Canal Zone have been considered excessive, and
by the act of August 21, 1916, the President is given power, among
other things, to make rules for regulating licenses and taxing the use
or operation of all self-propelled vehicles using public highways in

the Canal Zone.

Under this law the license fees may be reduced.

Postal service.-Postal receipts for 1916 were $1,060.90 more than

previous

year; the

expenses

were

$9,739.19

less.

The

deficit

was $44,527.14, as compared with $55,327.23 in 1915.

In connec-

tion with this deficit it must be remembered that the postal service
is still burdened with a subsidy to the Panaman Government equiva-
lent to 40 per cent of its total stamp sales, amounting to $27,207.86

1916,

and

that

the service has not

been

allowed

credit in

accounts for interest earned by money-order and postal-savings funds

deposited in banks, amounting in 1916 to about $39,000.

This latter

handicap, however, is removed by the act of August 21, 1916.
Deposit money orders issued had a total value of $1,101,190 and
payments of deposit money orders during the same period aggregated
$1,103,340, leaving a balance on deposit, June 30, 1916, of $350,650.
These deposit money orders form the postal savings system on the

Canal Zone and draw no interest.

Under the act of August 21, 1916,

however, interest will be allowed at the rate of

2 per cent.

Mail addressed to ships transiting the canal is sent to the office of
the captain of the port at which the ship is due to arrive first, and is
delivered to the ship by the boarding officer of the tomn serviicn,

54 THE PANAMA CANAL.

In June, 1915, the limit of weight of mail matter of the third and
fourth classes was raised from 11 to 20 pounds, to conform with the
parcel post weights in effect in the United States.
Canal Record.-The Canal Record is devoted to the publication of

shipping news, statistics of traffic,
ments, notices, and circulars. T

Executive orders, official adver tise-
he cost of publication was reduced

from $13,585.15 in 1915 to $10,806.28

in 1916.

Collections on

count of subscriptions and the sale of extra copies and bound volumes
amounted to $561.50.

POLICE ANDD

FIRE DIVISION.

Contrary to expectation, police work did not diminish during the

year 1916 and the appropriations were therefore inadequate.

Changes

were made

which resulted in

the discharge of 23 second-class,

colored,

policemen,

and

the reduction in

pay

42 first-class,

American, policemen, and 13 second-class.

For military reasons the

force of policemen on the locks was increased by 41 first-class officers
on April 20, and these men were recruited from the military force

on the Isthmus.

A patrol launch was operated at the Pacific entrance

of the canal to prevent smuggling and irregular trading, one at the

entrance of Gaillard Cut

, at Gamboa, and one at Gatun, making the

regular inspection
the Canal Zone.

trips and assisting in

the work of

depopulating

Continuous guard duty was performed by police-

men

Pedro

Miguel

and

Miraflores

Locks, and three plain-

clothes officers were stationed at Gatun Locks, which were guarded
by the military forces.
During the year 4,480 persons were arrested, of whom 274 were

females.

Of the 4,167 tried, 3,389 were convicted, 767 were discharged

and 11 were awaiting trial at the close of the year.

Of the remaining

313 arrested and held in custody, 4 were sent to the asylum for the

insane,

quarantine

64 were turned over to the military authorities,

authorities,

extradited, 8 forfeited

43 to the

27 to the Panaman Government, 3 were
their bail by failure to appear for trial, 97

were deported, and

66 were returned

to merchant vessels.

There

were 5 homicides committed.

One offender, a woman, was acquitted,

1 ixrna aonfatn,,rl +r 1 Irar a nt r m nrin.l ;n +thna rnnf.jtanfth*xr 1 f.tn 9l

REPORT OF THE GOVERNOR.

tion of a new road roughly paralleling the canal on the east side, an
extension of the highway from Panama to Gamboa, and 5X miles

were completed.
at $10,256.60, at

labor

performed

The

labor performed

the rate of

inside

10 cents p

prison,

on road
er hour,

other

work was

and

than

valued

the value of
maintenance,

amounted to $148.10.

The cost of subsisting and guarding the con-

victs amounted to $18,525.32,. of which $4,935.21 were expended for
subsistence for convicts, $1,356.32 for subsistence of guards, $7,173.32

for salaries of officers and guards of the penitentiary

and $5,061.03

for salaries of officers and guards on road work.
The fire force remained the same as at the close of the last fiscal

The only important fire occurring in the Canal Zone was on

the S. S. Antonio Lopez at Cristobal,
a loss of $20,000.

DIVISION

which was extinguished after

OF SCHOOLS.

Schools for white children were conducted at Empire,

for the first

grades; Paraiso,

first

three

grades; Pedro

Miguel,

first

seven

grades; Colon Beach, first four grades; Cristobal, eight grades and
two years in high school; Ancon and Gatun, eight grades; Balboa,

eight grades and four years in high school.

Children living in villages

where the schools did not offer the work for which they were fitted
were furnished transportation to the nearest school furnishing proper

facilities.

The school at Corozal was closed November 19, 1915, and

the children of officers and enlisted men of the Army quartered there
were furnished transportation to attend school at Balboa.
Physical examinations of pupils in the grade schools were made

in October.

Physical training was continued under the direction of

the physical directors of the various clubhouses.
A four-year commercial course was added to the high-school work

at the beginning of the school year, and 45 pupils were enrolled.

subjects

taught

are

bookkeeping,

business

law,

commercial

The
geog-

raphy, commercial history, spelling, writing, commercial correspond-

ence,

business

arithmetic,

typewriting,

and

Gregg

system

shorthand.

A two-months'

vacation course of woodwork and shop

drawing at the Balboa workshop was offered to boys who would be
in the seventh and i rhth war d nf th a hrih roh nnl nA t ftlp nnn;n a

year.

t

THE PANAMA CANAL.

noons of each week at the Balboa high school, and their progress was
more satisfactory than heretofore.

The schools for white children had an

enrollment of 1,366.

Alien

employees of the canal and the Panama Railroad residing outside
the Canal Zone had, prior to this school year, been allowed tuition

to the schools free of charge.

This privilege was withdrawn at the

beginning of the year, and consequently four rooms in the Cristobal
school for colored children and the entire Ancon school were closed

and the force of teachers reduced by seven.

The eight grades were

taught at La Boca and Paraiso, and the first six at Empire, Gatun,

and

Cristobal.

The

number

children

enrolled

colored

schools was 783.

Sixteen

buildings

were

used for school

purposes,

for white

children and 5 for colored children.

At Cristobal, on account of the

noise caused by the construction of a new building, it was necessary
to abandon the schoolhouse occupied by white children and to move

the white school

building occupied

by the colored school.

The colored school was removed to the Lodge Hall.

Sites

concrete

buildings

for white schools

were selected at

Balboa, Ancon, Pedro

Miguel,

Gatun,

and

Colon

Beach.

Money

was appropriated for expenditure during the current year for this
purpose, and it is expected that the new buildings will be ready for
occupancy by the time the schools open in October, 1917.

BUREAU

OF CLUBS AND

PLAYGROUNDS.

Clubs and playgrounds were conducted, as in previous years,

under

the supervision

of secretaries furnished

by the international com-

mittee of the

Young Men

Christian Association.

Clubhouses for

gold

employees were operated

at Cristobal,

Gatun, Pedro

Miguel,

Corozal, Ancon, and Balboa and for silver employees at Gatun and

La Boca.

The clubhouse at Ancon,

composed

of the old district

quartermaster's office and an extensive addition,

was erected at a

cost of $21,863, derived from clubhouse funds collected since 1907,

and was opened on April 8.

The clubhouse at Corozal was closed

Novemb
Paraiso

er

and

was

taken

over

by the Army

authorities.

the Lodge Hall was used one evening a week for moving'

REPORT

ing on June 30, 1916.

OF THE

GOVERNOR.

Of the cases decided 91 were civil

57

,284 probate,

and

criminal.

There

were

sessions

court.

There

were

581 marriage licenses issued by the clerk of the court, and 136 deeds

recorded.

The sum of $4,761.80 was collected in fines, costs,

and fees.

the magistrate's

court for the

Balboa subdivision

4 cases were

pending

beginning

and 2.136 cases were settled

,I t;e year
, leaving 1(

, 2,233

cases

were

docketed

cases pending at the close

of the year.

Of the cases docketed, 96 were civil and

2.137

criminal.

criminal

cases

, 50

were

dismissed,

were

committed to

the district court

and

there were

1.606 convictions and

acquit-

tals.

Collections on account of fines and fees amounted to $5,995.50.

In the magistrate'

court for the Cristobal subdivision 5 cases were

pending at the
during the year

beginning
of which

fiscal

year

, 2,403

were

125 were civil and 2.278 criminal

docketed

, leaving

cases

pending

close

year.

The

criminal

cases

resulted in

cases

were

1,659 convictions,
committed to th<

410

acquittals,

district

court.

60 dismissals, and

total

$6,053.53

was collected in fines and fees.

The district attorney, in his annual report,

Appendix J, again corn-

ments

on the

results

jury

trial

and

recommends,

as heretofore,

that jury trial
as follows:

be confined

capital cases only

statement

The results of jury trials continue to be unsatisfactory, particularly with reference

to white American defendants.

Since the Executive order of July 4, 1913, authoriz-

ing jury trials in all felony cases, no white American has been found guilty when

tried by a jury.

This failure to convict is not due to lack of evidence or conflict of

evidence.

The evidence in many of the

cases

has been convincing, but the jurors

are unwilling to convict and do not seem inclined to accept any responsibility for
the enforcement of the laws of the Canal Zone.
I renew the several recommendations heretofore made that the Executive order
be so amended as to permit jury trials only in capital cases.

RELATIONS

WITH

PANAMA.

Negotiations

correspondence

or personal

conferences

between

executive
Republic

secretary

and

Panama

secretary

included,

among

f foreign
others, t

relations

following

subjects in addition to routine matters:

The exemption of

contract laborers of The Pan am a Canal and

iJAnl -j

bt THE PANAMA CANAL.

intoxicating liquors to the San Blas Indians; free railroad transporta-

tion for

Panaman Government officials and employees; regulation

of traffic over the Gatun Lake; payment of duty to the Republic
of Panama on sales of supplies to vessels which pass through the canal
and which do not belong to the United States; opium traffic in the

Canal Zone and

the cities of Panama and

Colon; demolition, for

sanitary reasons, of stables located in

unimproved sections of the

city of Panama; matter of imposing a penalty for wireless installations
in Panama; objection to the establishment of saloons in Colon near

the boundary
employees free

line; importation
of customs duty

of playing cards and

overcrowded

condition

tobacco for

of Santo

Tomas Hospital and the urgent necessity for providing additional
accommodations for the sick; taking over by the United States of
a certain tract of land in the vicinity of the mouth of the Chagres
River; location of the statue of Christopher Columbus at the Atlantic

entrance of the canal; reduction of

the stock of Panaman pesos in

circulation by 1,000,000 for the benefit of the Panaman Government,

The

Panama

Canal,

and

business

interests

generally;

proposed

common incinerator for disposing of garbage from Balboa, Ancon,
and the City of Panama; supervision of the Panama elections; pro-
hibition of gambling in the cities of Panama and Colon; and the de-
portation of undesirable Americans.
Attention is called again to the necessity of an agreement between
the two Governments of the United States and Panama for modifying

Taft

agreement,

which

is, in

many respects,

disadvantageous

both Governments, and should

be substituted by an agreement

made in accordance with our present mutual needs and with our rights
under the treaty.
For further particulars attention is invited to Appendix I.
LAW.
During the year Judge Frank Feuille continued as special attorney,
for the purpose of codifying the laws of the Canal Zone and defending
the interests of the United States before the Joint Land Commission
in the acquisition of lands under private ownership, which are being
taken over in accordance with the Executive order of December 5,

Iml'

Tjnle , ,-^ 4 aA nt ^v A tint' 4^ *n1 n. dlirrrrnnn n an A i -ba 't

Cjrn ro ivy fii i ^11

REPORT OF THE GOVERNOR.

rating to quarantine; and

the laws relating to taxation.

Most of

these subjects were incorporated in a bill presented to Congress by

the Hon.

C. Adamson, chairman

the House Committee on

Interstate and

Foreign Commerce,

which

committee

jurisdic-

tion of canal matters.
During the last fiscal year the land office settled by private agree-

Sent and paid 586 claims, aggregating the sum of $335,740.50.

This

amount includes the large claim of Cov. Reuben S. Arcia, of Colon,
for his Rio Indio and Mindi lands and improvements thereon, for

the sum of $95,000.

The total number of claims settled and paid

by the land office since the work of clearing the Canal Zone was cornm-

menced

on January

1913,

was

4,182,

aggregating

sum

$851,566.64, exclusive of any award made by the Joint Land Commis-

sion.

A total of 5,244 claims, aggregating a sum of $1,100,469.94, has

been settled and

paid through the law department since August

1908, when that department was authorized
handle such matters.

by Executive order to

The Joint Land Commission appointed under Articles

VI and XV

of the Panama Canal treaty made 18 awards during the year.

These

awards involved 27 claims, some of the claimants having more than

one claim

before

the Commission.

The

awards aggregate

sum of $10,675.

The Commission dismissed 854 claims because pay-

ment had been made by the land office, and 16 were dismissed on

account of insufficiency of the evidence.

One claim was dismissed

request of

claimant's

counsel

because

property is

located within the Canal Zone, and one was dismissed for want of

jurisdiction.

The total number of dismissals by the Commission was

872.

The Commission

disagreed

cases,

6 of which

cer-

tificates of

disagreement covering 9 docket numbers were perfected

and submitted to the umpire during the fiscal year.
It is of interest to note that the work done by the Commission

during the
$45,524.38,

expenses

period

covered

by this

of which $44,664.65

this

sum

does

special

report

cost

United

were for salaries and

include

attorney's

office.

proportionate

The

number

States

$859.73

share

cases

pending on June 30, 1916, was 1,020, and the claims filed for these

aggregated $12,308,834.15.

Five of the awards made

by the Corn-

#60

THE PANAMA CANAL

On June 30, 1916, there were 32 licenses in effect, which were issued
by the land agent for The Panama Canal within the Canal Zone.
These licenses included lots occupied by various oil companies for oil-

tank sites, church

lots, and

one

license

2 acres of ground at

Porto

Bello.

The

total rental

collected

on licenses

was $10,918.

This is a considerable increase over the previous year, because of the

fact that since January

1916, all rentals from the Mount Hope

tank farm

were

collected

The

Panama

Canal

instead

Panama Railroad Company.
For further particulars attention is invited to Appendix K.
HEALTH DEPARTMENT.
The health department is charged with the care of the sick and in-
jured of the Canal Zone, the prevention of disease in the Canal Zone
and the cities of Panama and Colon, street cleaning and garbage
removal in the latter cities, and all matters relating to quarantine.
The department was in charge of Lieut. Col. Charles F. Mason, United

States Army

until June 7

, 1916,

when he was relieved at his own

request on account of ill health from long service in the Tropics.

was succeeded by Lieut. Col. D. C. Howard,

United States Army,

Who was assigned to duty as chief health officer on June 22, 1916.

No cases of yellow fever, smallpox

Isthmus during the year.

or plague originated on the

Four cases of yellow fever were received

at Balboa quarantine, all from Buenaventura,
ondary cases developed.

Colombia.

No sec-

The

health

employees continued good.

The

total admission

rate to hospitals and quarters was 301.09, compared with 337.21 for

1915.

Rates are based on the annual rate per 1,000 employees.

The

total admission rate to hospitals only for the year was 164.78, com-
pared with 204.18 for 1915; and for disease alone, 125.88 as compared

with 156.81 for

1915.

The total death rate for

1916 was 6.65, as

compared with 5.78 for 1915, and the death rate from disease 4.98
as against 3.61 for 1915. Conditions with regard to malaria are im-
proving steadily each year. The total admission rate for malaria to
hospitals and quarters was 34, as compared with 66.60 for 1915, a

reduction of 48 per cent from

the rate of the previous year.

The

- - - a* a .

r

REPORT OF T ri GOVERNOR.

DIVISION OF HOSPITALS.

The average number of patients constantly present in Ancon Hos-

pital was- 748 as compared

with

previous

year.

The

average number of employees constantly sick in hospital was 267 as
compared with 331 for the previous year.

Wards 3 and 4 were vacated in August,

1915, demolished, and the

first ulit of the permanent hospital erected on their site was com-

pleted and turned over for occupancy in June.

The building con-

training

out-patient

clinic,

X-ray

apparatus

and

library

vacated and turned over to the building division in August,

for use as a local field office.

was
1915,

Wards 1 and 2 were vacated in June,

1916, demolished, and on their site construction was begun on the

second

unit

permanent

hospital.

Wards

and

were

vacated in June, 1916, demolished, and construction started on the

new Board of Health Laboratory.

The permanent concrete crema-

tory building was completed, cremating apparatus set up, and opera-

tions resumed in January,

1916.

Two

permanent

buildings

were

added to the hospital farm at Corozal; one a modern, concrete, fly-

proof compost pit containing four compartments,

carpenter shop.

and

the other a

A steam plant consisting of boiler, pipe line,

and

sterilizer was constructed to provide for the proper sterilization of all
milk containers, as well as the disinfection of beds and bedding.
There were 253 patients in the asylum on July 1, 1915; 146 males

and 107 females.

At the close of the fiscal year the number of pa-

tients remaining was 291, of whom 173 were males.
The farm was reorganized and the position of assistant farm man-

eager created.

At the close of the year there were 9 white and 44 black

cripples assigned to the farm.
Considerable trouble was experienced with the milk from the dairy
early in January, and a thorough investigation and examination of the
probable causes were made by Physiologist G. C. Bunker, as the result
of which improvements were introduced and more care given to the
milk, with satisfactory results.
Golon Hospital.---A new hospital and dispensary building was com-

pleted and turned over for occupancy on May 16, 1916.

Work is in

progress toward

the construction

L-

a reinforced

concrete garage.

4i3~~ rir " a

THE PANAMA

CANAL.

PANAMA.

The rapid growth of the city eastward toward the Sabanas, away
from the Canal Zone, has necessitated extending anti-mosquito work

that

direction,

including

construction

and

maintenance

extensive additions to the ditching.

Up to the present time the cost

of this work has been borne by the Government of Panama and the
Panama Land & Development Co. *
The Panama Railroad Company completed its public stables on B
Street, which were constructed so as to limit fly breeding and rat in-

festation.

This is

one

most important sanitary

accomplish-

ments during the year,

number

dirty

and made possible the elimination of a large

ill-kept stables in

most congested

portions of

the city.
An average of 5,000 loads of garbage of all kinds was collected per

month,

approximating

9,000 cubic

yards, including

house garbage,

rubbish, refuse,

public

dump

and stable
r disposal.

manure,

The

all of

erection

which

was hauled

a modem incinerating

plant for the destruction of garbage and refuse is an urgent necessity.

Another

necessity is

manure with

a view to

installation

making it

a compost

available for fertilizer

or treating
and at the

same time obviating the possibility of fly breeding.
COLON.

There has
measures.

been

a great improvement resulting from

anti-matarial

The total number of cases reported for the last six months

of the present fiscal year was 52, as compared with 99 for the last six

months <
through
nillo Isla

preceding

fiscal

year.

the complete elimination

nd

The

anopheles

reduction

was

secured

breeding on Manza-

, in Colon and Cristobal proper, by a combination of ditch-

and

filling

certain

areas

previously

characterized

by persistent

breeding,

as well as by increasing the number of weekly inspections of

each area, and oiling when necessary.

SANITATION.

The work of tnis division continued along the usual lines, covering

.a -. i-: . -nh 1 --n t 1

<- - ,, 1

21 nn*-� atv nn n

fIn annn+1 nfl

m fI J I ** C I It .I .. tWtfl * SI****IUBtt * I ~ L� I t I I. *r. U j Ijl U*I fl * a -I * I I.II

1

REPORT OF THE GOVERNOR.

The increased number of ships at the terminal ports increases the
opportunities for contamination of the Canal Zone by plague-infected

rats.

Men are employed to kill rats by all means possible, especially
- J L

along the water fronts.
i The number of sanitary districts remained the same as last year

until

Corozal

was

turned

over

military

forces,

when

inspection and upkeep of one-third of the district was assumed by
the troops, and the remaining two-thirds added to Ancon, the inspec-
tor for which was allowed an assistant.
For further particulars, attention is invited to Appendix L.

WASHINGTON OFFICE.
The scope of the work handled by the Washington office was aoout

the same as reported for the previous year.

It continued in charge

of Maj.

. C. Boggs, United States Army,

as general purchasing offi-

cer and chief of the

Washington office of The Panama Canal until

March 10, 1916, when he was succeeded by Maj.
States Army.

Earl I. Brown, United

The recruiting of skilled mechanics in the United States was more

difficult,

especially

during the

latter part of

year,

due

activities at shipyards and other manufacturing establishments and

the rising scale of wages paid at such plants.

fact

that

about

cent

those

This is evidenced by

tendered

employment

failed to accept.

During the year 1,176 persons within the United

States were tendered employment for duty on the Isthmus in grades

above that of

laborer;

persons accepted and were appointed,

covering 73 different positions.

The

total value of

orders

placed

by the

Washington

office

was

$8,495,099.59, as compared with

the grand
principal

total
items

of purchases since

equipment

,307,689.34 in 1914-1

1904

purchased

$11 8,159 ,23
ilbO, loy,--o0.

during

bringing
15. The

year

were

1 refrigerating plant, $47,850; 1 engine lathe, $36,960; sectional steel

doors and accessories for piers Nos. 7 and 18, $121,837.80

keel blocks

and bilge blocks for Dry Dock No. 1 at Balboa, $50,390.70; 4 wooden

dump scows, $120,000;

2 steel dump scows, $160,000;

2 oil

storage

tanks, $25,200; one 50-ton locomotive crane for Dry Dock No. 1 at
- i i- . .t. . -- --I /. .f E . . * j 9- . __ _ _ .- - -

64 THE PANAMA CANAL.
FORTIFICATIONS.
Work was continued during the year on the gun and mortar bat-
teries, on the range-finding and fire-control systems, on the mount-
ing of ordnance, on the installation of searchlights, on maintenance
of all completed work, and of clearings and trails connected with the
fortifications.
The work was in charge of Lieut. Creswell Garlington, United States

Army, until November

, 1915,

when the fortification division was

abolished and

added as a section

the work

of the engineer of

maintenance under Lieut.
neer of maintenance, with

Col. Jay J. Morrow, assistant to the engi-
I Lieut. Garlington as assistant engineer.

During the fiscal year a part of the work of maintenance of clear-

ings and trails was transferred to the Commanding General,

States troops, Panama Canal Zone,

United

and at the close of the fiscal year

all fortification work was transferred

to Maj

Clarence O. Sherrill,

Corps of Engineers, Canal Zone district engineer officer, reporting to
the Chief of Engineers, United States Army.
The following appendices are inclosed herewith:
Increase in salaries and personnel, submitted in compliance with
the act of Congress approved March 3, 1915, Appendix P.
Laws recently enacted affecting the canal, and Executive orders
issued during the year, Appendix Q.
Chart showing the organization effective July 1, 1916, Appendix R.
Respectfully submitted.

GEo.

GOETHALS,

Governor, The Panama Canal.

Hon. NEWTON

Secretary oj

D. BAKER,
f War, Washington, D. C.

APPENDIX A.
REPORT OF THE ENGINEER OF MAINTENANCE.

OFFICE OF THE
Balboa
Srm: I have the honor to s
done under the jurisdiction of t
June 30, 1916:

THE PANAMA CANAL,
ENGINEER OF MAINTENANCE,
Heights, Canal Zone, July 31, 1916.
Submit the following report of work
his office during the fiscal year ending

ORGANIZATION.

The duties of the engineer of maintenance remained as outlined in
the last annual report, except that on November 1, 1915, the fortifica-
tion construction work was transferred to the jurisdiction of the
engineer of maintenance, and on June 1, 1916, the work remaining
uncompleted under the terminal construction division was transferred
to his charge.
The undersigned has been assisted in these duties since August 19,
1915, by Lieut. Col. Jay J. Morrow, Corps of Engineers, United States
Army, who was on that date appointed assistant to the engineer of
maintenance, and who for a period of about five months has had full
charge of the work during the absence of the undersigned on leave
and when the undersigned was Acting Governor during your absence
from the Isthmus.
The various divisions have been in charge of the following men:
Electrical division.-Capt. William H. Rose, United States Army,
electrical engineer, and Mr. Hartley Rowe, electrical superintendent.
Fortification division.-Lieut. Creswell Garlington, United States
Army, assistant engineer.
Locks division.-The Atlantic locks have continued under the
direct charge of Capt. T. H. Dillon, United States Army, as superin-
tendent, with Capt. Earl J. Atkisson, United States Army, as assistant
superintendent. The Pacific locks were under the charge of Mr.
F. C. Clark until March 2, 1916, upon which date he resigned, and
Mr. R. H. Whitehead was appointed superintendent, effective the
same date. Mr. W. R. Holloway was appointed assistant superin-

THE

PANAMA.

CANAL.

Municipal division.-Mr. D. E. Wright, municipal engineer.
Section of meteorology and hydrography.--Mr. F. . Willson, chief
hydrographer.
Section of office engineer.-Mr. C. J. Embree, office engineer.
Section of surveys.-Mr. 0. E. Malsbury, assistant engineer.

LOCK

OPERATION

AND

MAINTENANCE.

WATER

STORAGE

AND

CONSUMPTION

IN GATUN

LAKE.

There are se

Several plates accompanying this report

which are in-

tended to give a graphical illustration of certain items of interest in the
operation and maintenance of the locks and canal.
Referring to plate No. 62, the upper diagram gives the number of
inches of rainfall for each month throughout the year, the figures
given being the record for Gatun Lake area and not for the whole
Isthmus. The next diagram gives the average Gatun Lake level,
while the third shows the number of lockages (commercial and non-
commercial) which were made during each month of the year. The
next diagram indicates the number of million cubic feet of water
added to and taken from storage. That is, whenever Gatun Lake
level is raised, the storage capacity is increased and the amount of
water so accumulated is indicated by the areas above the neutral axis,
while water drawn from storage is shown by the areas below the line.
The lower diagram on this plate illustrates the quantity of water
available throughout the year and the relative amounts actually used.
The following table gives the average quantity of water available and
a statement of how it was used:

Average
Average
Average
Average
Average
Average
Average
Average
Average

monthly
monthly
monthly
monthly
monthly
monthly
monthly
monthly
monthly

loss by evaporate
loss by wastage
loss by leakage,
loss by transfer
loss by leakage,
amount used for
amount used for
amount used for

tion, Gatun Lakem...... .
over Gatun spillway.
Gatun spillway.......
to Miraflores Lake.....
Gatun and Pedro Migu
r pumping..............
r ockages.......... ..
r hydroelectric station..

amount added to storage. ..............

Million cubic
feet of water.
............... 1, 926. 61

el Locks

- ft -* f * p< �.

S- --. * - * - * 2,
* . :a :* *i e ir:r* a a a - a n a" 2

150.00

Total average net yield per month .-........... .

18,130.46

It is interesting to note that an average of 7.21 million cubic feet
of water has been used for each through lockage from ocean to ocean.
The above figures show that an average of 12,787.47 million cubic
feet of water was wasted over Gatun spillway, or sufficient water to
make 1,773 through lockages each month. Based on 30-day opera-

REPORT

OF ENGINEER

OF MAINTENANCE.

since the canal channel is at elei
would necessitate keeping the la
water in storage has een taken
all times above that elevation.
water used equals 5,127.93 mill
storage equals 28,050 million c
equals 12,787.47 million cubic ft
able amount for each month of

includes leakage
Plate No. 64
The number of
of noncommercial

been made

launches, etc.,
The number of
lockages, owing
are made, e. g.,
Plate No. 65

throughout the
The canal wa
15, 1916.
Unusual deta
dams are referr(

ratio
ke l
ast
The
Lion
ubic
et p
the

n plus 40 feet, a
wel above plus 8(
;he amount which
summation of th
cubic feet per m
feet per month
er month-gives

year

The

'-U

area

40-foot channel
), therefore the
I is available at
e three areas-
onth; water in
; water wasted
the total avail-
" Water used"

e, lockages, hydroelectric, pumping, and evaporation
illustrates the number of lockages made each month
noncommercial lockages coincides with the number
ial vessels, the reason for this being that no effort hai
keep a record of the number of canal barges, tugs
which have been locked through from time to time
commercial vessels exceeds the number of commercial
to the fact that whenever possible " tandem lockages'
two vessels locked through at the same time.
illustrates the force employed by the locks division
year.

iS (

ils
ed

closed

traffic from September

in the operation or maintenance of
to in the following paragraphs.

1915,

the locks

.

.3
r

1

April

s and

ARROW"

SIGNALS.

Last year reference was made to the fact that 15-foot arrow signals
had been mounted near the end of each approach wall, with the idea
of using them for signaling to pilots. The signals were equipped with
Stamps and are visible both night and day. This year local manual
operation of the signals has been abandoned and motor drives have
been installed, which are controlled by switches mounted on the con-
trol boards. The remote control of the arrow signals was completed
as follows:
Pacific locks, July, 1915.
Atlantic locks, August, 1915.

AUXILIARY

CULVERT

VALVES.

In November, 1915, it was necessary to
culvert valve at Miraflores Locks (cast wall
the bonnet of the old valve cracked. The
signed and tested for extra heavy service.
ann or wfl inezzt linA nvn raln-a 'R_-? .�+ Porl rnt

install a new auxiliary
) owing to the fact that
new valve has been de-
A better compression
WanimiAl n Rhi�� 1�11.;

*

THE. PANAMA CANAL.

BRONZE BOLTS.

On October 10, 1915, the engineer at Gatun hydroelectric station
advised that the counterweight of spillway gate No. 13 had given
way and had dropped into its pit, demolishing all weights. This
machine had not been operated for several days and was not being
operated at the time of the accident. Upon investigation it was
found that all four manganese bronze counterweight bolts had given
way just under the head.
Each spillway counterweight consists of 56 cast-iron blocks weighing
750 pounds each, resting on a cast-iron base plate and supported by
four 1 -inch manganese bronze bolts running into a cast steel yoke
at the top. The total weight of the counterweight is 45,700 pounds,
and assuming that the load is equally distributed, each bolt supports
11,425 pounds, or a stress of 4,750 pounds per square inch of metal.
Sections of the bolts were sent to the mechanical division for test,
and gave an ultimate tensile strength of 61,400 pounds, and 63,900
pounds per square inch, respectively, for the two bolts tested. This
would indicate a factor of safety of about 13.
Immediate instructions were issued to the lock superintendents

requesting them to
to replace all bronz
On October 21,
counterweight of gi
counterweight into
at the time of the
Upon examination
of the nuts on the bh

the fir
appeal
angles
about
1 inch
the twi
The

r
Ti

pound
each 1

examine the guard
e with steel if any
1915, the naval
lard valve No. 226
its well. The guar
break and had n<
two fractures wern

olt, and the (

st break. The fi
'ance, with what
to the length of
one-third fibrous
long showing on
o formations.
total dead weigh
s, which under
eg of the U bolt

mersed).
load (24,'
13,900 p<
between
square in
Under
advised 1

A
600
oun
the
ch,
dat

assuming th

racture j
appeared
the bol

otherr at
ust abc
d to b
t. The

valve counterweight bolts and
defective ones were found.
,ronze U-bolt supporting the
at Gatun failed, dropping the
I valve was not being operated
t been closed for some time.
found, one at the top of one
the shoulder of the U opposite
)ve the nut was crystalline in
e a fibrous formation at right
fracture at the shoulder was

s and two-thirds crystalline, a vertical crack
one side of the bolt marked the plane between

it of the guard valve counterweight is 28,580
normal conditions would make the load on
.12,300 pounds (with the counterweight im-
.e worst condition, that of throwing the entire

pounds) on one leg
ds per square inch.
two legs, the stress
or an indicated facto
;e of December 29. 19"

that an examination of

of the U bolt, the stress would be
If the load were equally divided
would be about 6,950 pounds per
r of safety of nearly 9.
15, the Pacific locks superintendent
Miraflores spillway counterweight

I

REPORT OF ENGINEER OF MAINTENANCE.

BULKHEADS,

CENTER

WALL.

At Gatim the middle level, west bulkhead was not removed, but
the other five bulkheads were taken out and coated with enamel at
the time the gates were protected. At the Miraflores Locks the bulk-
heads on the east side of the center wall were removed and coated
with enamel, the work at the Atlantic and Pacific locks being com-
pleted on the following dates:
Miraflores, center culvert, east lower level, June 15, 1916.
Miraflores, center culvert, east upper level, chamber side, March
14, 1916.
Miraflores, center culvert, east upper level, culvert side, March 24,
1916.
Gatun, center culvert, east and west bulkheads, July 15, 1915,
and October 15, 1915.

CABLE CROSSOVER TUNNEL AND PUMPS.

The last two cable crossover sump pumps at lower Miraflores were
installed during August, 1915, making the final dates of completion
of the installations as follows:

Place.

Gatun................. . ... ...................................... ..... .......
Pedro M iguel ..................................................................
Miraflores ......................................................................

Number
of pumps.

Date.

May 9,1915
Apr. 10, 1915
Aug. 26, 1915

The installation of these pumps has kept the tunnels comparatively
dry, all linings having been cleaned and oiled during the year.

CAISSONS, SPILLWAY.

The spillway caisson for (
water in September, 1915.
Miraflores spillway caisson
in the water when the west
the next fiscal year.

3atun

was

painted

and

placed in

has been enameled and will be placed
chamber at Miraflores is flooded during

CAISSON, LOCK FLOATING.

The floating caiss
1914, and was prac
1 . 1 1l.. Trnnr wrhir

on was received upon the
tically out of service, exe
,h A aitn arrn n yamorfn on 1- r

Isthmus on October 29,
cept for tests, until July
a "rn aar irn rnnvr if- tn th A

THE

PANAMA

CANAL.

of the cast iron impellers of the machines had been eaten away through
electrolitic or corrosive action, practically putting the pumps out of
commission so far as effective work was concerned. Additional
impellers have been ordered, and as soon as received the caisson will
be entirely overhauled and put in first-class condition. (See Plates

Nos.

10 and 11.)

cHAIN

FENDER

MACHINES.

On September 4, 1915, the S. S. Lux Blanca approached the lower
end of Miraflores Locks while the chain fender was up and the sema-
phore in the danger position. The vessel struck the fender and
without appreciably stopping its headway broke the chain and went
through into the lock chamber. The fact that the machine had been
blocked made it impossible for the fender to operate, but nevertheless

apparent

called
the ef

ease

attention
fectiveness

with
the
the

which

desirability

fenders.

vessel

went

a working

and a committee

through

test
was

the chain
determine

appointed to

make a series of tests upon one of the chain fender machines at Gatun.
The report of the committee is quoted as follows:

CHAIN

FENDER TEST.

In accordance with your instructions of October 21, 1915, a board composed of
ain T. H. Dillon (Chairman), Captain E. J. Atkisson, Mr. F. C. Clark, Mr. . H.
head, and Mr. C. J. Embree, arranged to make tests of chain fender machines

under service conditions.

at Gatun Locks with the S. S
November 5th and with the S.
follows:

These tests were carried out on chain fenders Nos, 810-811

Alliance on

October 26th,

with six locomotives on

Cristobal on November 16, 1915.

Report of tests

PREPARATORY WORK ON MACHINES.

Ros

valves, auxiliary

valves

needle valves were

examined,

chain

cleaned of grease so the hawse pipe friction would correspond to previous tests. Tanks
were washed out and machines were placed in what was considered a normal condition

of maintenance.

The proper instruments were installed to secure data desired.

the first test (S. S. Allianca) the valves were set to open at 360 lbs. at 12 notches opening
of needle valves.

PROTECTION

OF BOW

OF SHIPS.

3. A rope mat 25 feet long and 2 feet in diameter was woven through and around the
chain and a rope mat 2 feet thick hung over stem of the ship. A timber fender was used
on the first run with the S. S. Allianca in' addition to the rope mat, but was removed
on later runs as serving no useful purpose. Rope fenders were hung from lock walls
and men stood-by to drop fenders between ship and walls if necessary. No damage
to ships occurred as result of test. There was no appreciable tendency of ship to sheer
off on striking chain. Six locomotives were attached to ships to assist them m getting
up speed and for braking if necessary. No braking was done by locomotives except
on one test where valves were blocked open intentionally to determine pressure due
to friction of water in pipes with open valves.

1.
Capt
Whit

was

REPORT

OF ENGINEER

OF MAINTENANCE.

i. Simultaneous time interval signals were installed for second and third tests.
j. Travel time diagrams were taken for movements of one Ross valve on
Cristobal test.
5. Similar runs were made differing by only one variable so that the effect of change
inm this variable could be determined; for example, changing between runs only the
number of valves in operation, or speed of ship, etc.

TEST WITH

S. ,8.

ALLIANCE.

Twelve runs were made with the S.

S. Alliance (total displacement, 4,221 tons)

at speeds varying from 1.23 miles per hour to 3.38 miles per hour. The distances
traveled after striking chain varied from 14.5 feet to 52 feet. The setting of auxiliary
valve was changed from 360 Ibs. to 250 lbs. for the 8th run, also various openings of the
needle valve from 6 to 15 notches.
7. The result of these tests was satisfactory as showing a sufficient strength of chain
and the opening of the Ross valves under pressure. They were unsatisfactory in that
the Ross valves did not always function properly in maintaining a uniform resistance
pressure. Except on the 5th and 8th runs, the valves either remained open or closed
only after an interval of time during which interval the valves offered no appreciable
resistance to outflow of water and paying out of chain. The only resistance of any
moment tending to stop the ship with one or more valves fully open is the weight of
the cylinders and friction of moving parts. Consequently, except on the 5th and 8th
runs, the distances traveled by the Allianca after striking the chain exceeded the
theoretical although the ship was stopped before it would have reached the gates.
Had the ship been of greater displacement under same conditions of valve operation
the resistance above mentioned would not in every case have prevented traveling the
distance between chain and gates.
8. After Allianca tests were completed the machines and valves were thoroughly
overhauled and placed in perfect operating condition.

LOCOMOTIVE TEST.

9. After overhauling the valves 6 locomotives (3 on each wall) were used to draw
out the chain in much the same manner as would a ship, their cables being fastened
to the center of the chain. The operation of the valves was more satisfactory than
was the case in Allianca test, but there was still considerable fluctuation as evidenced
by the pressure curve. This fluctuation was decreased by the use of springs installed
to increase tendency of valves to close and maintain a more nearly constant pressure.
It was to be expected also that the strain exerted by the locomotive would not be so
nearly constant as that exerted by a ship.

S. S. "CRISTOBAL"

TEST.

10. Everything was again placed in perfect operating condition for the test with the
Cristobal (displacement 18,000 tons) and record indicator was placed on one Ross valve.
Ten trial runs were made, all except two being at approximately two miles speed.
The first run was made at 1.64 and the eighth at 2.45 miles per hour, the latter speed
being the maximum that could be obtained in distance available. The operation of
the valves in every way was satisfactory and the distance travelled after striking,
corresponded closely with the theoretical. With auxiliary valves set at 360 lbs. and
the needle valves at 12 notches and at 2.45 miles per hour speed the maximum pres-
sure developed in the cylinders was approximately 550 lbs. per sq. in., the Ross valves
opened and floated at approximately .7 inch rise and ship was stopped in 57.5 ft.
which is almost exactly with the theoretical.

THE

PANAMA

CANAL.

THEORY

OF OPERATION.

13. The proper functioning of the chain fender machines when chain is struck by
a ship depends upon the successful. operation of two resistance valves which may be
connected in parallel at each chain fender machine. At practically all chains includ-
ing the chain under test these valves are of the Ross type the theory of which is as
follows;
14. The water pressure in the main or upper chain fender cylinder caused by ship
striking the chain is transmitted thru small pipes to an auxiliary valve of safety,
spring, diaphragm type which opens at a certain pressure for which it may be set and
permits water to flow from head of cylinder to the chamber in bottom of Ross valve.
Connected to this same chamber in bottom of Ross valve is a small needle valve which
permits the escape of a certain portion of water coming through the auxiliary valve
depending on opening of the needle valve. The working part of the Ross valve
consists of a movable stem having two pistons. The openings and parts are arranged
to form a balanced system except for pressures from chain fender cylinder acting on
top of 2" stem tending to close the Ross valve and the pressure transmitted through
the auxiliary valve acting on bottom 6" piston tending to open the Ross valve.
15. When chain is struck the action of check valves closes the system and the
pressure increases until auxiliary valve opens. This transmits the pressure to bottom
of 6/ piston of Ross valve, thus overcoming the effect of corresponding pressure on the
top of 2" stem and causes stem to rise and opens the valve. The stem of the valve con-
tinues to rise and increases the opening until pressure in chain fender cylinder drops
sufficiently to permit closing of the auxiliary valve whereupon the now unbalanced
pressure acting on top of the 2" stem causes Ross valve to close, the water in bottom
chamber escaping through the needle valve, which is set at small opening to permit a
cushioning effect in the seating of the valve. This opening and closing of the Ross
valve continues until a balance in pressure between the 2" and 6" pistons is obtained.
This balance is struck when the pressure required on the 6" piston in order to hold the
valve is the same as that required for discharging thru the needle valve the quantity of
water entering through the auxiliary valve. Theoretically this should cause a fairly
uniform resistance pressure slightly in excess of setting of the auxiliary valve.
16. The functioning of the Ross valves and the resistance to paying out of the chain
are thus seen to depend upon the differential action of the auxiliary valve and the
needle valve and the potential unbalanced pressure on top of the 2" stem which tends
to close the valve. Increasing the setting of the auxiliary valve increases the pres-

sure required to open the Eoss valve. Increasing the opening of the needle valve de-
creases speed of opening and increases speed of closing of Ross valve, causing higher
pressures. Decreasing opening of needle valve increases speed of opening of Rom
valve and decreases speed of closing, causing lower pressures.
17. The pressure curves show that the initial pressures run considerably higher than
the setting of the auxiliary valves. These high pressures cause wider opening of
Ross valves than that which is merely sufficient to cause the desired resistance. The
excess opening causes a rapid drop in cylinder pressure after reaching a maximum.
The drop in pressure is further accelerated because the stem of Ross valve continues to
rise and increases the opening until the cylinder pressure falls to point about equal to
setting of the auxiliary valve. In other words, the valve is opemng while pressure is
rising, reaching a maximum and dropping to a point equal to setting of auxiliary

valve.
18. The force tending to close the Loss valve is the cylinder pressure which sets on
the top of the 2" stem. It is fully effective only when this pressure is less than setting
of auxiliary valves, or when auxiliary valves are closed. The closing effort is greatest
at instant of closing of the auxiliary valves, and rapidly decreases as the cylinder
pressure decreases.

,78*-

REPORT

OF ENGINEER

OF MAINTENANCE.

as it was desired to make same under normal condition of maintenance.

The valves

were merely taken apart and examined and tanks were washed out to prevent possi-
bility of silt interfering with operations of the auxiliary valves. No attempt was
made to have valves close of their weight after being operated by hand as no necessity
j . - - - > * - - " - - *

for this was foreseen.

After the Allianc tests were completed the Boss valves were

thoroughly overhauled, a new leather placed in one valve and the other leathers soft-
ened up. One valve stem which was sufficiently bent to cause valve to operate with
difficulty when moved by hand was straightened in the lathe. Glands were loosened
upso that valves closed by their own weight.

22. It is understood that the itoss valves are designed to reduce high pressure to
lower pressure in same pipe system. In such a system there is always some pressure
on the exit side, and consequently no opportunity for the pressure on the entrance
side to drop to a point below which the unbalanced closing pressure could not over-
come some considerable friction. On the chain fender machines, however, there is no
appreciable resistance to flow beyond the valves as piping is short to air. A sluggish
valve might work satisfactorily in a reducing system, but might fail under a chain
fender test. Test No. 12, run with Allianca with Ross valve blocked open, indicates
no appreciable pressure in cylinders. With open valves, therefore, or at slow speeds
with partly open valves, the closing pressure is either not sufficient or drops too
quickly, and their own weight is the only force tending to close the valves. With
conditions as in chain fender machines, therefore, the adjustments of Ross valves

and accessories must be carefully made and maintained

. It is noted also that the

sag of the chain was considerably greater in the Allianca test than in the Cristobal
test, being 8 to 9 and 3 feet, respectively. Increase in sag serves to increase initial
speed of cylinder travel, causing higher pressures and wider opening of Ross valves.
High initial pressures offer more opportunity for failure of valves to close.
23. The result of the complete overhauling and installation of springs to assist

closing of the valves was evident in the locomotive test, and to a smaller degree in

the Cistobal test. The effect of the springs is neglible in opening. On the Cristobal
test everything was operating so smoothly that minor changes such as variation in
setting of auxiliary valves, needle valves, springs, use of one or both valves on each
machine, change of speed, etc., while making appreciable difference, were not suf-

ficient of themselves to cause valves to fail.

CARE OF VALVES.

24. Based upon result of these tests and also upon the fact that if any one of the four
valves at each chain fender fails all would fail, the Board recommends the following,
covering care and maintenance of the valves:
1. Valves should be thoroughly overhauled every 6 months, leathers soft-
ened up or new leathers placed and friction of moving parts eliminated so that
valves close by their own weight.
2. One valve at each machine should be set with auxiliary valve to open at
300 Ibs. and 6 to 12 notches (one to two complete turns) opening needle valve.
The second valve at each machine should be set with auxiliary valve to open
at 400 lbs. and needle valve set at 6 to 12 notches (one to two complete turns).
Both valves should be connected in service and ready for emergency operations.
3. Install spiral springs on valve stems below valve to assist valve in closing.
Strength of springs should be such that they will be only under slight compres-
sion when valves are fully closed and 100 lbs. compression when Ross valves
are open one inch.
4. Reduce settings and operate valves with operating pumps, then reset as
prescribed in paragraph No. 2 above, every three months.
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74 THE PANAMA CANAL.

over all regulating and needle valves to prevent unauthorized persons
gaining access to or tampering with the adjustment of the mechan-
isms. Arrangements were also made to put ventholes in the top of
all water tanks of chain fender machines in order to allow the escape
of air at the time the machines operate. Ratchet-driven pawls have
been installed on the lower chains at Miraflores, so that either the
high or low tide chain can be easily thrown in. See Plates Nos.
66 and 67
CONDUCTOR SLOTS.
All conductor slots and rails have been overhauled, cleaned, and
painted, putting both the towing and return tracks in condition for
operation.
DECK LIGHTS.

Arrangements were made to replace. practically all deck lights at
the Pacific and Atlantic locks. It has Leen found that it is a very
difficult matter to prevent the deck lights chipping and breaking out
of the concrete as a result of being heated excessively by the sunlight
and then suddenly quenched by tropical showers. The most effective
means of preventing the breaking of the deck lights has been to
paint the circumference of the light with a plastic compound, which
allows for the expansion of the glass after being embedded in the
concrete.
EMERGENCY DAMS.
As a part of the operating work at each of the locks two drill
operations of the emergency dams are made each month, the usual
crew being nine men. In order to accustom the men to operating
under any condition, at least one of these operations is made at night
under artificial light.
If the dams had to be operated in an emergency, the noise of the
passing water would make it impossible to give verbal directions;
therefore, all operations are carried out in silence, arrow signals being
installed near the gates on each girder so that the silver operators
can signal when the hooks are clear or in place on the gates. Ad-
ditional lighting has been installed and an indicator has been placed
on the gate machines for aligning the clutches so that the machines
can be changed from one gate to the gate next without resetting.
All clutch operating solenoids on the girder hoist machines have been
removed during the year and will be operated by hand in the future.
The Atlantic locks have installed lamps in each girder, gate, and
wedge motor in order to keen the insulation dry and ready for service.

	Front Cover
	Title Page
	Table of Contents
	List of Illustrations
	Report of the Governor of the Panama...
	Appendix A: Report of the engineer...
	Appendix B: Report of the marine...
	Appendix C: Report of the engineer...
	Appendix D: Report of the resident...
	Appendix E: Report of the resident...
	Appendix F: Report of the superintendent,...
	Appendix G: Report of the chief...
	Appendix H: Report of the...
	Appendix I: Report of the executive...
	Appendix J: Report of the district...
	Appendix K: Report of the special...
	Appendix L: Report of the chief...
	Appendix M: Report of the general...
	Appendix N: Preliminary report...
	Appendix O: Report of the...
	Appendix P: Tables
	Appendix Q: Acts of Congress affecting...
	Appendix R: Charts showing organization...
	Back Matter
	Back Cover

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