The full text on this page is automatically extracted from the file linked above and may contain errors and inconsistencies.
62D CONGRESS
)
(*
SENATE
{ DOCUMENT
( No. 1118
MESSAGE
OF THE PRESIDENT OF THE
UNITED STATES
SUBMITTING
FOR THE CONSIDERATION
OF THE CONGRESS
A BUDGET
WITH SUPPORTING MEMORANDA
AND REPORTS
FEBRUARY 26, 1913.—Read, referred to the Committee on Appropriations,
and ordered to be printed with accompanying papers
WASHINGTON
1913
OUTLINE OF CONTENTS.
Page.
MESSAGE OF THE PRESIDENT .............................................................................................................
5
THE BUDGET.
Summaries of data showing financial condition and operating results..............
Summaries of estimates.....................................................................................
Summary of proposed changes in law................................................................
45
5&
115
APPENDIXES.
1. Schedules supporting budget statements, submitted with the budget by
reason of there being no supporting data in departmental reports............
2. Memorandum on the need for the organization of a Bureau of Central Ad
ministrative Control...................................................................................
3. Reports containing recommendations of oiRcers of the several departments
for changes in law affecting the organization, work, personnel, and busi
ness methods of the Government, prepared in response to special inquiry
of the President........................................................................................
4. Summary of constructive recommendations contained in the annual reports
of the executive departments and other establishments, not included in
Appendix 3 ...............................................................................................
5. List of positions to which appointments are made by the President with the
advice and consent of the Senate..............................................................
3
123
187
207
337
391
MESSAGE.
Under the Constitution, the power to control the purse is given to
the Congress. But the same paragraph which makes it the duty o f
the Congress to determine what expenditures shall be authorized
also requires of the administration the submission of " a regular
statement and account of the receipts and expenditures"—i. e., an
account o f stewardship. The Constitution also prescribes that the
President shall " from time to time give to the Congress informa
tion of the state of the Union and recommend to their consideration
such measures as he shall judge necessary and expedient." Pursuant
to these constitutional requirements I am submitting for your con
sideration a concise statement o f 6nancial conditions and results as
an account o f stewardship as well as certain proposals with estimates
of revenues and expenditures in the form o f a budget.
THE BUDGET AS A MEANS FOR LOCATING RESPONSIBILITY.
The fact that ours is the only great Nation whose Government is
doing business without a budget has not been a dominant reason for
departure from 123 years o f precedent. Such procedure is based on
common experience and common sense. It is supported by the best
judgment and experience that has obtained in the management o f
corporate bodies, both public and private. While oiRcers of private
corporations are not ordinarily limited by law in such manner as to
make it necessary for them to act under formal appropriations, it
is the ordinary method o f transacting business to have the president
o f a corporation lay before its board at its annual meeting a report
which is also made available to all persons who may be interested;
it is common experience for the president, as the responsible head
o f the executive branch, to set forth what has been done during the
past year and what it is proposed that the corporation shall do dur
ing the next year; it is common experience for the president as the
head of the administration to accompany his proposals with esti
mates; it is common experience for the president as the head of the
executive branch to submit with such estimates recommendations as
to how proposed expenditures shall be financed.
5
6
MESSAGE OF T ^ E PRESIDENT
In a Government such as ours, in which the legislative branch is
made up o f some 500 members, it is not to be assumed that each mem
ber or any committee of such a body is familiar with the many
details which go to make up the public business. The increasing
need for an Executive account of stewardship is apparent. The
President is the constitutional head o f an organization that is con
tinental in the scope of its operations. Executive ofBcers under him
for whom he is responsible must manage and direct the details o f
hundreds o f essentially different businesses that are highly complex
and technical in their requirements. These oiRcers must be held
accountable for eiRciency as managers; they must be held accountable
for economy in the expenditure o f public funds; they must be made
to feel responsible for the fidelity o f employees who are charged
with money transactions aggregating more than $5,000,000,000 each
year, or $16,000,000 each business day, of which vast amount nearly
$2,000,000,000 are in the nature o f receipts and disbursements for
current expenditures of the Government, while about $3,000,000,000
are in the nature o f trust receipts and disbursements, including cur
rency trusts, Indian trusts, and other sacred obligations of the Gov
ernment that have been undertaken by the Government for the wel
fare o f those who have been designated as legal beneficiaries.
The recommendation of such measures as may be thought to be
necessary and expedient and requests for support, in the form of
estimates o f future expenditures^ should be premised on a knowledge
of service needs. The needs of the service can only be known to those
who are in charge of administrative detail. Representation of what
has been done as well as what should be undertaken in the future
must come from those who are acquainted with technical require
ments. A sense of proportion, however, can come only from those who
must assume responsibility for the administration as a whole. In
the discharge of his duties the President has submitted annual reviews
o f the conditions affecting the national welfare and also many special
recommendations for legislation; but the Chief Executive has never
undertaken to lay before the Congress the facts necessary to the
determination of questions of policy pertaining to that phase of pub
lic business which is his special responsibility, namely, the carrying
on of the work of the Government during the succeeding year.
ADVANTAGES TO CONGRESS OF A BUDGET.
The advantage to the Congress of having placed before it a definite
statement and proposal, one which is submitted by the responsi
ble head of the administration, must also be apparent. Such a
statement will greatly facilitate the adoption of a procedure whereby
the deliberating branch of the Government may determine the gross
amount to be appropriated in advance of decision as to what amount
SUBMITTING A BUDGET FOB CONSIDERATION OF CONGRESS.
7
shall be allowed for each detail of the Government's business, rather
than leave the relations of income and outgo to be computed after
action has been taken on the many matters which are brought before
the Congress for determination.
*
THE NEED FOR KNOWLEDGE OF DETAIL AS WELL AS FOR PERSPECTIVE.
Size and complexity of the problem make it necessary for otRcers
to have the advantage of seeing the business of the Government in
perspective. But judgment with respect to the requirements of
particular services requires that exact information be made available
for the consideration of detail. This budget is submitted therefore
not only as an instrument through which a perspective may be
gained, but as an index through which Members of Congress and
the public may obtain ready reference to supporting reports and
detailed records o f account.
The need for such an index through which exact information may
be obtained as a basis for judgment about problems of public business
is evident to one familiar with the governmental problems.
The highly complex and technical character of questions that must
be decided by executive heads of departments is suggested by the com
plexity of departmental organization. In the Department of the Navy,
for example, there* exist at present 34 navy yards and stations, 81
naval coaling plants, 43 naval wireless stations, 12 naval magazines,
14 purchasing, pay, and disbursing ofRces, 9 inspection districts, 16
hydrographic oiRces, 20 hospitals, 20 dispensaries, 14 naval schools,
8 schools for the Marine Corps, 7 naval medical schools, 4 naval
training stations, 18 target ranges (naval), 1 target range and per
manent camp of instruction for the Marine Corps, 3 medical supply
depots, 18 recruiting stations, 48 marine posts and stations, and a
Naval Militia, besides the Fleet which is the actual Rghting machine
of this branch o f the military establishment. More concretely, the
administrative requirements may be shown by reference to a single
station such as the proving grounds at Indianhead. Here, under
the jurisdiction of the senior assistant, are a police force, ofRce build
ings and grounds, living quarters, a water-supply system, boats and
wharves, a railroad, a power plant, a carpenter shop, an electrical
shop, a tin shop, a repair and pipe-6tting shop, and a storehouse ;
and under the jurisdiction of an oiRcer known as the powder expert
is a chemical laboratory, a sulphuric-acid factory, ether factory,
dry house, boiling tubs, dehydrating house, an intensifier house, a
solvent recovery house, a rewording house, a nitric-acid factory, a
poaching and pulping house, a mixing house, a press house, a blend
ing and packing house, a powder factory and magazines, a signal
house, a rocket house, and a storehouse. These may be taken as
MESSAGE OF TH E PRESIDENT
8
illustrative of the character of administrative attention required in
directing and controlling the activities o f one o f the many institutiona] subdivisions of one department of the Government.
THE LACK OF ACCURATE AND PROMPT INFORMATION.
Noth withstanding the breadth and scope of the many sided busi
ness which is transacted by the Government, legislative and execu
tive ofBcers have been required to make decisions without having be
fore them the essential facts. Inadequate organization is provided
for the assembling and classifying of information needed by the
Executive as a means of making available to Congress and the country
a carefully prepared statement about what has been done and what
are the Government's future needs. Lack of adequate information
about what the administration is doing has led Congress to make
over 100 special investigations of the executive branch, within
as many years, besides the inquiries that have been conducted by
its standing committees. Like dif&culty has been experienced by
the Chief Executive. His effort to obtain information as a basis
for Executive action and for concrete recommendation has not infre
quently resulted in failure. Illustration of the difficulties experi
enced both by the Congress and the President is found in the fact
that it was necessary to institute a special inquiry.for the purpose of
obtaining each of the several classes of data submitted with this
budget. The disadvantages under which officers labor when forced
to rely on special investigation for information that should be regu
larly produced and made available is shown by the fact that instead
of having the information at hand at or near the close of the fiscal
year, the President and his Cabinet were required to wait months
before, even in crude and uncertain form, the ordinary business
statements such as a balance sheet, an operation account, and a sur
plus account for the Government could be produced and summaries
o f revenues and expenditures could be made which would serve as a
guide to future financial policy.
GOVERNMENT WITHOUT A PLAN OR PROGRAM.
Not only have we been without adequate information but, as a
result of this and other causes, the Government, with its multiplied
activities and with expenditures that within the last 123 years have
mounted up from less than three millions to more than one thousand
million dollars each year, may be said to be without a plan or
program.
Although we are annually spending $400,000,000 for military pur
poses, including pensions, we have never had a comprehensive
or consistent military policy. Nor have we as a Nation had any
plan for developing the many services which have been created to
provide for the economic and social welfare. Bureau after bureau,
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
9
service after service, has been organized, but neither the executive
branch nor the Congress has been consciously working to a consistent,
well-defined purpose.
Not only have we not had a definite program for determining each
year what welfare work should be undertaken, or what should be the
next step in promoting or conserving economic and social interests,
but there has been the same lack of program in regard to our national
finances and proposed expenditures.
A DEFICIT TO BE FACED.
In December last a condition arose which made it my duty under
the statute of March 4, 1909, to submit to Congress definite recom
mendations either for decreasing the estimates for appropriations or
for increasing the revenue. The Secretary o f the Treasury in his
annual report, which was submitted concurrently with the Book o f
Estimates, said:
The estimates of appropriations for ordinary purposes for 1914 are $22,556,023.03 in excess of the estimated revenues. The estimated expenditures for the
Panama Canal are $30,174,432.11; and if these expenditures should be paid
from the general fund instead of from sales of bonds, the total estimates of
appropriations for 1914 are $52,730,455.14 in excess of the estimated receipts.
Anticipating that such a situation might follow the legislation o f
last session calling for largely increased expenditures without pro
viding for a corresponding increase in revenue, and at the same time
seeking, so far as practicable, to develop methods of accounting and
reporting adequate to inform the Congress and the Executive, and
to enable them to plan intelligently for the future, on July 10 last I
issued a request to the head o f each o f the departments and other
Government establishments to depute some ofHcer whose duty it
would be to see that the estimates and summaries of estimates for
the Rscal year ending June 30, 1914, were prepared in accordance
with the recommendations contained in my message to Congress on
June 27 last; that is to say, the head of each department and each
independent establishment was directed, in addition to those estimates
which are included in the Book of Estimates for appropriations as
now required by statute and as sent to Congress, also to make
return to the ofRce of the Chief Executive of estimates of the actual
expenditures for the same fiscal year, whether derived from old ap
propriations, proposed appropriations, or deficiency appropriations.
THE BUDGET SUBMITTED.
My instruction, therefore, to the Secretary o f the Treasury was—
to print and send without delay to Congress the forms of estimates required by
it of ofHcers; also to have sent to me the information asked for * * *. This
10
MESSAGE OF THE PRESIDENT
will be made the basis for review, revision, and summary statement in the
form of a budget with supporting documents which may be sent to Congress
by special message as the proposal of the administration.
Conformably to this request the financial statements and the analy
ses and summaries of revenues and expenditures were prepared
which are attached. The lateness of their submission to me has made
it impossible to get them before you at the beginning of the present
session, but their signiBcance is so great that I am now submitting
them for your information.
OUTLINE OF THE BUDGET SUBMITTED.
The budget, which is transmitted herewith, carries the following
summaries:
1. Summaries submitted as a basis for considering the present
and also the prospective fiscal condition:
A#, i . Comparative current balance sheet,
showing the fiscal condition of the Government as of June
30,1911, and June 30,1912.
^ 0. %. Fund statement, showing the con
dition o f the general fund and of other funds and appro
priations as of June 30, 1912.
TV#.
Comparative account o f operations,
showing the revenues and expenditures of the Government
for the fiscal years 1911 and 1912, and the estimated reve
nues and expenditures for 1913 and 1914, with the resulting
annual surplus or deficit.
Treasury surplus account, showing
the cumulated deficits as of June 30,1911, and June 30, 1912,
and the estimated deRcits June 30, 1913, and June 30, 1914.
2. Summaries submitted as a basis for considering revenues and
expenditures in relation to questions of Government policy:
a. Summaries of revenues:
TV#. J. Comparative statement of
revenues for the fiscal years 1910, 1911, and 1912,
classified by sources and statutory authorities, with
the estimates of the Secretary of the Treasury for
1913 and 1914.
TVo. 6*. Comparative statement of.
revenues for the fiscal years 1911 and 1912, classified
by organization units.
b. General summaries o f expenditures:
7V#. 7. Comparative summary of
estimated and actual expenditures of Government
funds, classified by organization units.
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
11
Summaries submitted as a basis for considering revenues and
expenditures, etc.— Continued.
b. General summaries of expenditures—Continued.
TV#. & Comparative summary of es
timated and actual expenditures of Government
funds, classified by functions or classes of work.
P. Comparative summary of es
timated and actual expenditures of Government
funds, classified by character of expenditures, i. e.,
to show current expenses and fixed charges as distin
guished from capital outlays and debt payments.
7V#. iO. Comparative summary of es
timated and actual expenditures of Government
funds, classified by acts of appropriation.
TV#. 77. Comparative summary of es
timated and actual expenditures of trust and private
funds, classified by organization units and acts of
appropriation.
c. Analyses of expenditures to show relations between organi
zation units, functions, character of expenditures, and
acts of appropriation:
TV#. 7%7. Comparative analysis of es
timated and actual expenditures of Government
funds for each organization unit, classified by acts of
appropriation.
TV#, 7^. Comparative analysis of es
timated and actual expenditures of Government
funds for each organization unit, classiHed by func
tions.
TV#. 7^. Comparative analysis of es
timated and actual expenditures of Government
funds for each organization unit, classified by char
acter of expenditure.
TV#. 7J. Comparative analysis of es
timated and actual expenditures of Government
funds for each function, classified by organization
units.
d. Analyses o f expenditures to show objects:
A"#. 76?. Summary of results of gov
ernmental contracting and purchasing relations.
A summary of proposed changes of law—setting forth what
legislation it is thought should be enacted in order to enable
the administration to transact public business with greater
economy and efficiency.
12
MESSAGE OF THE PRESIDENT
THE PROBLEM OF FINANCING GOVERNMENT NEEDS,
Any business forecast must proceed from a statement of present
condition. The purpose of the first four of these summaries is not
only to bring before the Congress information, but also to show the
result of estimated revenues and expenditures, if authorized.
THE CONDITION OF THE TREASURY JUNE 3 0 , 1912 (STATEMENT NO. l ) .
More concretely, the purpose of the first budget statement is to show
the condition of the Treasury as of the beginning of the current fiscal
period, and also to give information with respect to the amount o f
the cash in the Treasury which is available for general governmental
purposes. The Treasury is both the agent o f the Government for
providing money with which to meet its obligations and the guardian
o f very large trust funds upon which our currency system rests,
as well as the depository for other cash that can not be utilized in
meeting ordinary obligations. The balance of cash in the Treasury
and subtreasuries as of June 30 last was $1,872,964,358.26. O f this
amount $1,674,535,369 was held in trust for the protection of currency
obligations, leaving a balance of $198,428,989.26 cash for other pur
poses. To this amount is to be added $65,486,517.33, representing
balances in banks, subject to draft of the Treasurer and other fis
cal ofBcers, and cash in transit, making a cash total, other than for
trust funds to secure currency obligations, of $263,915,506.59. As
against this, however, it is necessary to reserve $96,763,027.60, repre
senting disbursing officers' balances, the national banks' 5 per cent
fund, etc. This leaves a cash balance of $167,152,478.99 available for
current operations. In addition to the reserves above described
there are outstanding current liabilities reported amounting to
$21,,431,236.56. As against these liabilities, however, disbursing ofRcers were carrying balances amounting to $60,461,012.48, leaving a
net cash balance available for general-fund purposes of $206,182,254.91.
if sinking-fund obligations are entirely ignored.
I f the provisions o f law with respect to providing a fund for the
purpose of sinking the national debt were deemed binding, then a re
adjustment o f the Treasury statement of available cash balances would
be necessary. Taking into consideration the fact that during the
period from 1870 to 1890 bonds were retired from surplus revenues
far in excess o f sinking-fund requirements, and during the period?
from 1890 to date payment of the bonded debt has been halted from
considerations o f public policy—the issues being used as security
for bank-note circulation—I am recommending that the sinkingfund law be amended, as hereinafter stated.
The sinking-fund act should either be repealed or be superseded
by a law whose provisions are clear and possible of enforcement.
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
13
The sinking fund was established by the act of February 25, 1862;
amended by the act of July 14, 1870; and later carried into the
Revised Statutes as sections 3688, 3C89, 3694, 3695, 3696, and 3697.
Prior to the Civil War period our Government had not provided
for a methodical accumulation of a fund to be applied to the redemp
tion of the public debt. No attempt was made to apportion equitably
over a term of years the repayment of money borrowed to meet
extraordinary demands.
The first act designed to create a sinking fund was passed during
the Civil War as a means of buttressing the public credit. It re
quired the payment of customs duties in gold or in demand notes
made by law receivable for public dues, and provided that so much
thereof as was necessary should be applied to the payment of the
interest on the public debt, and that in each fiscal year a fund should
be set apart for the purchase or payment of 1 per cent o f the entire
debt. The residue of customs receipts was to be paid into the
Treasury.
When the law was passed the Government was a borrower and the
public debt was rapidly increasing. Secretary Chase reported that
he was unable to create a sinking fund. In March, 1864, a con
siderable amount of gold had accumulated in the Treasury. Gold
was then selling in New York around 160. Congress sought to deal
with the situation by passing a joint resolution authorizing the Secre
tary o f the Treasury to sell any gold not necessary for the payment
o f interest on the public debt. Subsequently it was held that this
resolution was inconsistent with the law of 1862, which required that
in addition to the payment o f the interest a sum equal to 1 per cent
of the total debt should annually be set apart for debt reduction.
Secretary McCulloch reported to the Congress in 1867 that no
special fund had ever been actually set apart in pursuance o f the
act. Continuously since then the law has been consciously and openly
evaded. The fund has had a legal existence, but the legal require
ments have merely been shown on the books. Notwithstanding this,
the public debt has been reduced with amazing rapidity, for from
time to time the annual surpluses have been applied to this purpose,
and we have retired bonds since 1862 considerably in excess of the
requirements of the law. On February 1, 1911, Secretary MacVeagh
reported that we had paid off bonded debt amounting to $280,000,000
more than the calculated requirements of the sinking fund. But a
part of this was accomplished through refunding operations. Be
cause of the lax enforcement of the law and contradictory and con
fusing interpretations which have been placed upon it and because
its provisions could not be enforced except in periods of surplus
revenue it was proposed by Secretary MacVeagh to permit the use
o f surplus moneys for the redemption of the public debt.
14
MESSAGE OF THE PRESIDENT
A true sinking fund postulates an excess of revenue over current
expenses. It is the simple truth that such excess of revenue over
expenditure is the only real fund by which the public debt may be
sunk. The object of a sinking fund is to reduce and gradually to dis
charge debt. In times of actual loss in current fiscal operations any
scheme to reduce the aggregate liabilities is illusory and fictitious.
It is because o f this that when war is declared in which the British
Government is involved one of the first steps taken by that Govern
ment is to suspend the sinking fund. One expert has said that the
extinction o f a small amount of debt with one hand while creating
a large amount with the other is not ^practical; in fact, it is wasteful
and a sham.
While we have kept the faith with our creditors and discharged
our obligations promptly, our methods have been haphazard and our
sinking fund act has become a dead letter. It should be revised at a
time like this, when the state of our finances is normal, and revised
on a basis that will compel the respect of administrative officers. I
shall take this matter up again in considering the method of meeting
the deficit.
THE CONDITION OF THE GENERAL FUND (STATEMENT NO. 2 ) .
The purpose o f the second budget statement is to show the condi
tion of funds and appropriations as of June 80, 1912. Carrying into
the general-fund account the cash deficiency which would result from
including the sinking-fund requirement in the statement as a reserve,
as shown by budget statement just described, and setting up as a
resource the net amount that has been advanced on account of the
Panama Canal ($137,897,497.28), taking into account also the balance
of appropriations which had not been expended and under which
vouchers may be drawn for payment by the Treasury ($257,828,802.45), the condition of the general fund as of June 30 last is shown;
that is, before the appropriations of the current fiscal year became op
erative the general fund was in the condition of having been over
appropriated to the extent of $722,586,550.26. Leaving out of consid
eration entirely the sinking-fund requirements, however—in other
words, ignoring altogether the appropriations which have been made
by Congress for sinking-fund purposes—the statement would show
an excess of general-fund resources over general-fund appropria
tions outstanding amounting to $86,751,449.74. But even this balance
is to be accepted with a very serious qualification, for the statement
further shows that in addition to the appropriations that had al
ready been authorized, and which, therefore, would operate as
charges against the general fund, there were other authorizations
to undertake work, for which necessary appropriations had not been
provided, amounting to $256,547,150.45. In other words, from the
reports, incomplete as they are, which have been made by departments,
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
15
it appears that uncompleted work has been authorized in excess
o f $718,000,000, for which only about 60 per cent of the neces
sary amount had been appropriated. As against these authoriza
tions contracts had actually been entered into, the amount of which
could not be ascertained within the time available for the preparation
of this statement. Assuming the correctness of the Rgures given—
and they are taken upon report, without verification, as the best in
formation which could be obtained within the time available and
without taking into consideration the appropriations for this year,
it appears that Congress had prior to the beginning of the current
fiscal year already mortgaged the future o f the general fund to the
extent of $169,795,700.71 over and above all sinking-fund require
ments.
THE RELATION
BETWEEN
REVENUES AND
EXPENDITURES
(STATEMENT
NO. 3 ) .
The most notable fact about Government revenues and expendi
tures o f the past is that we have had very little accurate information
about them. What have been called " revenues " were receipts, and
in this class have been commingled amounts realized from sales,
trust funds, and refunds. What have been called "expenditures"
have been either advances from the Treasury to disbursing ofBcers,
or disbursements, and in them not only have trust payments been
commingled with those in liquidation of ordinary governmental lia
bilities, but no effort has been made to distinguish current expenses
from capital outlays. What is quite as serious, from the viewpoint of
both of the purposes served by these data—in the making of future
plans and for guidance in administration—is that there is no present
means for knowing whether all the revenues and expenditures have
been included in the totals given, due to the fact that there are no
true revenue or expense accounts kept and that certain appropria
tions are reimbursable from revenues. When seeking to obtain in
formation from appropriation accounts many of the reimbursable
items have been lost sight of, expenditures being shown as net. The
amount o f receipts reimbursable to appropriations, as reported for
the last fiscal year by departments in answer to special requests for
this information, is in excess of $32,000,000. The unsatisfactory
character of the information which has been made available in the
past is also shown by the difference in the prospective Treasury con
dition as deduced on the one hand from totals shown by the Treasury
statement for the year 1913 and the congressional Book of Esti
mates for 1914 and, on the other, as deduced from the total estimated
expenditures for the years 1913 and 1914 that hafe been sent by the
executive departments and establishments by my order to the Execu
tive OfHce for use in the preparation of this budget. The esti
16
MESSAGE OF TH E PRESIDENT
mated and actual revenues and expenditures for the four years, as
shown by the statements which are transmitted herewith, by totals,
are as follows:
Revenues
Estimated and actual expenditures of Gov
ernment funds (other than debt redemp
tions and sinking-fund requirements).. . . . .
Excess of expenditures........................................
1914
1913
1912
$970,471,000
$950,395,480
$916,540,895
$915,983,134
1,049,355,577
1,006,414,753
912,432,365
888,702,956
4,108,530
27,280,178
33,189,104
459,280
18,102,170
78,884,577
1911
56,019,273
Principal of public debt:
Receipts from the sale of bonds—
Panama Canal loan...............................
National bank note fund—excess of re-
5,255,715
Total proceeds of bond sales and excess
of^national bank note receipts over
3 3 .6 4 3 .3 8 4
2 3 .3 6 7 . M S
National bank note fund—excess of re8,449,346
120,616
246,496
Sinking-fund requirements in excess of
60,685,000
60,650,000
60,050,433
59,929,038
60,085,000
60,650,000
68,620,395
60,175,534
60,685,000
60,6%),090
34,972,011
36,817,649
4,223,403
1,569,090
Total public debt redemptions and reExcess of public debt redemptions and reNet expenditures of trust and private
7,571,463 )
5,882,614
t
The foregoing indicates a deficiency for the year 1914 of more than
$83,000,000 (ordinary $78,884,577 and trust $4,228,403) besides sink
ing-fund requirements, or $143,000,000 if the sinking-fund require
ments be included. This statement also indicates a deficiency for the
year 1913 amounting to $57,000,000 (ordinary $56,019,273 and trust
$1,569,090), a total deficiency for the two years of $140,000,000, ignor
ing sinking-fund requirements.
This $140,000,000 would be reduced by issuing bonds to meet the
probable expenditures for the Panama Canal, amounting to $85,000,000, to a deficiency for the two years of $55,000,000.
As has already been said, the Secretary of the Treasury in his an
nual report submitted to Congress in December last, estimated a reve
nue deficiency of $22,000,000 for the fiscal year 1914. This was on the
following most favorable assumptions, namely, that ignoring the
sinking fund, expenditures would exactly equal the amount shown in
the Book of Estimates, and that bonds would be issued for the full
amount of the Panama Canal expenditures during the next fiscal
year. The Secretary of the Treasury, on the same assumptions,
estimated a deficiency for the current year (1913) amounting to
$1,800,000, except that he included Panama Canal expenditures as a
charge against the general fund. Altogether, therefore, for the cur
rent and ensuing fiscal years he estimates a deficiency of $23,800,000,
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
17
or in case all Panama expenditures are charged against the general
fund the amount o f the estimated deficiency for the two years would
be $53,800,000.
In making the foregoing estimates, however, the Secretary o f the
Treasury did not take into account a prospective excess of pension
requirements under the new law over appropriations for 1913
amounting to $20,000,000, for $15,000,000 of which a deficiency esti
mate has already been submitted, to meet the demands on the
Treasury for claims examined, without taking into consideration the
accruals on claims which will not have been examined before July 1,
1913; nor did he take into account a probable deficiency in the pen
sion estimate for the fiscal year 1914 of not less than $10,000,000;
furthermore, in his estimated deficiency for 1914, no account was
taken of the emergency and regular deficiency bills that are custom
arily introduced, estimates for which for 1913 have already reached
$3,300,000 (exclusive of the pension deficiency above referred to)
and which for 1912 amounted to $9,700,000. Subsequent to the
making o f the estimate by the Secretary of the Treasury there have
also been filed supplementary estimates for appropriations which
amount to $6,600,000, chiefly to cover additional public buildings
and other local works, requested for the most part by committees of
Congress. Assuming that there will be increased demands for cash
corresponding to these estimates, the prospective deficiency would be
increased $39,900,000. As the estimate submitted by the Secretary
of the Treasury and that prepared from the data sent to the Execu
tive OfRce for the budget are on an entirely different basis, they are
stated below in such manner that they may be compared.
Fs%tm%%e% decreases m c%s&, o%
from J%%e 30,
%o
ojf report of ?%e /Secret r%/ o /
Tr6%SMr%/,
TMM&wgr aMowcmces /o r (%e/?c%enc%es
s%pp%eme%%a% es%tm%%es.
Amounts.
Cumulated
totals.
Excess of revenues over expenditures for fiscal year 1913, exclusive of
$40,200,000
Excess of expenditures over revenues for fiscal year 1914, after deducting
22,000,000
Surplus as per Secretary's estimates in case canal bonds are issued for both
i $18,200,000
Estimated requirements for Panama Canal:
For 1913..................................................................................................................
For 1914.............................................................................................. ^ ................
42.000.000
30.000.000
23.800.000
53.800.000
Estimated deficiencies and supplementary estimates not included in Book
of Estimates:
20,000,000
10,000,000
3.300.000
6.600.000
For pensions_1914
Total not included in Book of Estimates
39,900,000
i Surplus.
H. Doc. 1435, 62 -3— —2
21,700 000
93,700,000
MESSAGE OF THE PRESIDENT
18
%o
%ecre%se# ^
30,
o^ &%s%s o / re p o /^ ^o
Prestdewf, /ro w Jtme
%??OM?%%ces /o r (%e^cte^cie^
estimate#.
Amounts.
Excess of expenditures over revenues exclusive of Panama Canal payments:
For fiscal year 1913........................................................................................................
For fiscal year 1914........................................................................................................
Estimated requirements for Panama Canal:
For fiscal year 1913........................................................................................................
Cumulated
totals.
$2,000,000
53,000,000
$55,000,000
55.000.000
30.000.000
110,000,000
140,000,000
Estimated deficiencies not included in reports to President:
20,000,000
10,000,000
Total not included in estimates!
30,000.000
84,100,000
170,000,000
^ Under the instructions both deficiencies and supplementary estimates would have been
included in the reports subm itted; in case of the pension deficiencies, however, it is
known that these were not.
The estimated expenditures for 1914, as shown above, are some
$81,000,000 in excess of the amount of the estimates submitted to
Congress in the Book o f Estimates for the same year. This difference is accounted for very largely by the fact that the estimates sub
mitted to Congress were for appropriations, whereas the estimates
which were submitted for the purpose o f this discussion were for
expenditures, without taking into consideration whether chargeable
against new or old appropriations. In these were included over
$22,000,000 of estimated expenditures in excess of estimates for appro
priation, without taking into consideration $7,000,000 to be accounted
for by the fact that in the Book o f Estimates the item for the Recla
mation Service was shown as $7,000,000, whereas the ofBcers in charge
o f this work estimate the expenditures at more than $14,000,000.
This service is financed entirely out of revenue appropriations; the
difference in estimated expenditures would make a net difference in
the demands on the Treasury only to the extent that it was not cov
ered by reclamation revenues and repayments. These and other
elements of difference, which are more fully explained in schedule 5,
supporting budget statements, account for the large discrepancy
between the deficiency as shown by the statement on page 16 and as
estimated by the Secretary of the Treasury.
The difference between the estimates of expenditures reported to
the President for 1913 and the estimates shown in the report of the
Secretary o f the Treasury for that year is about $55,000,000. This
discrepancy is partly accounted for by a difference in expenditures
for the Panama Canal, amounting to $13,000,000; the other elements
o f difference were not disclosed by the analyses which were made, as
the basis for the Secretary's estimate is not stated in his report.
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
T H E C U M U L A T E D D EF IC IT
19
(S T A T E M E N T N O . 4 ) .
The purpose of statement No. 4 is to show the manner in which
expenditures corresponding to the estimates would affect the Treas
ury surplus in case there were no change in revenue laws. This
statement shows that in case Congress grants the full amount of
appropriations requested in the Book of Estimates, without a change
in revenue laws, and, further, if the drafts against past appropria
tions are as estimated, the result will be. ignoring sinking-fund
requirements as well as deficiencies, that an accumulated Treasury
surplus of $206,182,254.91, as of the end of the fiscal year, June 30,
1912, will have been reduced by the end of the coming fiscal year
(June 30, 1914) to $67,303,263.4?. This will be an inadequate bal
ance of general-fund cash, for the reason that the customary working
balance which is carried by disbursing ofHcers, plus the needed work
ing balance in the Treasury proper, is largely in excess of this
amount. I f the estimated pension deficiencies of $30,000,000, which
were not included in the statement, be subtracted, even though all
canal expenditures for 1914 be against borrowings and all sinkingfund requirements be ignored, advances of the usual amounts carried
by disbursing ofHcers would leave not a penny in the Treasury avail
able for the meeting of current governmental demands.
T H E R ESULT OF G R A N T IN G APPR O PR IATIO N S REQUESTED W IT H O U T IN C R E A S
IN G R EV E N U E S.
From all these data it is apparent that the estimates submitted by
departments and establishments on the one hand and the probable
revenues on the other should receive serious consideration; that as
ofEcers o f the Government we should not go ahead blindly, passing
and signing one appropriation bill after another without knowing
where the money is coming from or how the obligations of the Gov
ernment are to be met. Such a condition as this obtained in 1893, when
a newly elected President found it necessary to go into a very un
favorable money market and borrow over $260,000,000 in order to
meet the Treasury needs of the Government and protect the currency
obligations, with the result that his whole administration was handi
capped, and the credit system of the country was seriously impaired.
ESTIMATES OF REVENUES AND EXPENDITURES.
A second set of summaries has been prepared for the purpose of
considering questions of future policy. This is made up of analyses
of estimated and actual revenues and expenditures.
20
MESSAGE OF THE PRESIDENT
E ST IM A T E D A N D A C T U A L R E V E N U E S (S T A T E M E N T S N O S . 5 A N D 6 ) \
In order that a basis may be laid for determining where adjust
ments may be made to obtain the revenue needed, as well as for
considering the result on the finances of the Government o f making
any proposed change in revenue law, each class of receipts has been
separately shown, with a reference to the law which governs its
accrual. There has also been prepared a summary of revenues by
departments or establishments to enable ofRcers to compare revenues
and expenditures in any project which should be regarded as selfsupporting.
E S T IM A T E D A N D
A C T U A L E X P E N D IT U R E S .
The summaries presented herewith cover the estimates submitted
by departments. This has been thought desirable because under the
act of March 9, 1909, it is my duty to submit recommendations with
respect to the departmental estimates transmitted by the Secretary
o f the Treasury, rather than to present estimates such as would have
been submitted to Congress if there had been opportunity for Execu
tive review. As shown by the list of budget statements (pp. 10 and
11), the estimates have been summarized in such manner as to show
expenditures in four different relations, namely: (%) The cost and
estimated cost o f the business done by each organization unit (state
ment No. 7) ; (&) the cost and estimated cost of each general class of
work performed (statement No. 8) ; (<?) the cost and estimated cost
o f each class of expenditures, such as operating expenses, fixed
charges, capital outlays, etc. (statement No. 9) ; (^) the cost and
estimated cost classified by acts o f appropriation in which authoriza
tions to spend customarily appear (statement No. 10). Statements
11 to 15 show the same facts arranged in such manner as to reflect
results in still other relations bearing on questions of policy:
Such inaccuracies as may obtain in the summaries are due to the
fact that this is the first time that a systematic statement pertaining
to the business of the Government has been attempted; that it is the
first time that a statement has been prepared and submitted in the
form of a budget; that since its figures have been prepared as a result
o f a special investigation, rather than from direct accounting results,
there has been no means of veriRcation. I f every other reason were
wanting, the present lack of facilities for obtaining information
pertaining to subjects that are essential to any intelligent considera
tion of the business of the Government, and for knowing that the
mformation when obtained is accurate would be sufficient to make
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
21
an annual budget desirable. Had accounts been kept in a form that
would permit their use in the preparation o f a budget, complete and
accurate information would have been available for administrative
and executive consideration some months before Congress assembled.
Instead, I have been put to the necessity of going out with a dragnet
for the essential facts, and then of being required to wait until after
January 1 before all of the subjects concerning which data were
asked could be reported on—in the end also being required to accept
statements sent in without proof and knowing that, in some instances
at least, they were incomplete. I do not wish to be understood as
criticizing or intending to criticize the heads of departments in whose
transactions and in whose books of accounts the material to be used
in such a budget must be found. The truth is that they have all.
been laboring as much as possible, during the last four years, to im
prove the method of keeping and stating their several department
accounts; but the confusion and unbusinesslike condition that have
prevented a thorough reform and simplifying of our financial and
operating statements have been the result of a century of neglect.
A N A L Y S IS OF IN C R EASES A N D
DECREASES B Y
DEPARTMENTS
(S T A T E M E N T
NO. 7 ) .
In most summary form the analysis of the data reported by organi
zation units through which expenditures are made is as follow s:
Estimated expenditures for—
Actual expenditures for—
Branches of the Government.
1914
The Congress..........................................................
The President (including Executive boards
and commissions)..............................................
The judiciary.........................................................
Executive departments (other than sinkingfund estimates and appropriations and
debt payments).................................................
Other establishments...........................................
Districts and Territories......................... ...........
Totai (excluding sinking-fund require
ments and debt payments)..................
Less amounts payable from revenues of the
District of Columbia.........................................
Total payable from Federal revenues,
except sinking-fund requirements
and debt payments................................
Sinking-fund requirements and debt payTotai payable from Federal revenues...
1913
1912
1911
$9,967,463
$10,496,325
$10,695,468
$11,063,54?
449,040
5,408,101
296,057
5,234,004
621,484
5,119,918
457,803
4,979,750
994,090,557
33,899,702
6,124,509
927,479,221
58,277,125
5,134,223
852,667,884
37,933,030
5,814,309
831,140,986
36,092,385
5,385,48$
1,049,939,372
1,006,916,955
912,852,093
889,119,900
583,795
502,202
419,728
417,004
1,049,355,577
1,006,414,753
912,432,365
888,702,956
60,685,000
60,650,000
120,616
246,49$
1,110,040,577
1,067,064,753
912,552,981
888,949.453
22
MESSAGE OF THE PRESIDENT
DECREASES BY CONGRESS.
In the figures representing appropriations for 1913 and estimates
for 1914 for the Congress it will be noted that them is a decrease
indicated. This, however, is to be accepted with qualifications, for
the reason that not all of the customary items are shown in the esti
mates for 1914 and no deficiencies are included for either year.
Moreover, it is to be noted that for the year 1914 no estimate has
been made for outlays for buildings and grounds. The appropria
tion for the Superintendent of Capitol Building and Grounds was
$951,757 for 1913, whereas only $178,900 are estimated for 1914.
ESTIMATES AND EXPENDITURES IMMEDIATELY UNDER THE PRESIDENT.
In the Executive OfRce proper practically no differences appear.
The differences in total expenditures directly under the President
during the years 1911 and 1912 and in the totals of estimated expend
itures for 1918 and 1914 are due to the amounts expended, appropri
ated, or estimated for the Tariff Board and the Commission on Econ
omy and EfRciency.
INCREASES FOR THE COURTS.
The increase in the cost of the judiciary is almost entirely to be
found in the circuit courts of appeals and the district and Territorial
courts. For these there has been a gradually increasing cost cor
responding to an increasing business.
INCREASES FOR DEPARTMENTS AND INDEPENDENT ESTABLISHMENTS.
With respect to executive departments, the totals for each of the
four years reported, exclusive of sinking-fund requirements and debt
payments, are as follows:
MM
1913
MM
1911
Executive departments.......................................
$994,090,557
$927,479,221
$852,667,884
$831,140,986
State.................................................................
Treasury..........................................................
W ar.................................. ............................
Justice..............................................................
Post OfRce...................... ...............................
4,653,373
75,621,558
199.195.018
5,768,098
284.141.018
152,626,008
230,216,066
24,706,013
17,163,405
4,559,768
84,132,144
189,465,658
5,141,764
271,608,550
126,836,305
204,528,564
25,422,263
15,784,205
4,258,409
78,771,378
155,132,062
5,120,349
250,154,310
134,299,251
189,887,027
19,669,339
15,375,759
4,478,977
75,789,906
153,973,875
4,947,705
240,208,411
118,987,722
193,075,238
18,793,633
20,885,519
InteXor.............................................................
Agriculture......................................................
Commerce and Labor..................................
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
23
From these figures it will be seen that theTe is a net increase of
only $21,000,000 between 1911 and 1912, and this is very largely
accounted for by an increase of $10,000,000 in the cost of the postal
service, which is reimbursable, and increases in the Navy. Leaving
out o f consideration the sinking fund, the estimated net increase for
1918 over 1912 amounts to $75,000,000, more than $67,000,000 o f
which is accounted for by increases for the War Department
(chiefly rivers and harbors), for postal service, and for pensions. As
between the estimated expenditures for 1913 and for 1914 there is a
net increase of $66,000,000. This, however, is $30,000,000 more than
the increase indicated by the estimates submitted to Congress for
appropriation in the Book o f Estimates, although requests for appro
priations amounting to more than $24,000,000 have subsequently been
sent in as supplementary and to cover deficiencies. The increases in
estimates for expenditures for 1914 are accounted for by still further
increases for rivers and harbors, in the War Department, and for the
Post OfRce and increases for the Navy and for pensions. Leaving
out of consideration the sinking fund as between 1912 and 1914, the
difference of $142,000,000, exclusive of sinking fund, is accounted
for as follows: War, $44,000,000, largely for river, harbor, and
other improvements; Navy, $18,000,000; Post OfRce (reimbursable),
$34,000,000; pensions, $32,000,000; all others (net), $14,000,000.
In the independent establishments the decrease in cost for 1914 is
largely explained by the decreasing needs for the completion of the
Panama Canal.
A N A L Y S IS TO S H O W COST OF E A C H CLASS OF W O R K
(S T A T E M E N T N O . 8 ) .
The same estimates and expenditures have been analyzed and sum
marized in such manner as to show the cost to the Government
of each class of work which is now being done, as well as the estimated
cost of work projected for the next fiscal year. From this it will be
noted that the estimated cost of functions which are general in
character (such as legislation, executive direction and control, adjudi
cation, administration o f the national finances, etc.) for the next fiscal
year is $166,000,000, whereas the estimated direct cost of service to
the public is $936,000,000. * It also shows that the estimated cost for
the next year of military services is $452,000,000 as against a total of
$484,000,000, the estimated cost of all civil services. Again, the total
cost of civil service is divided so as to show the amount spent for
the promotion of friendly relations and the protection of American
interests abroad ($4,300,000 a year) and the amount spent for the
promotion of welfare within the United States ($479,600,000). This
24
MESSAGE OF THE PRESIDENT
latter amount is further subdivided to show the cost of protection to
economic interests ($445,000,000) and the cost of the promotion
of individual welfare ($34,600*000). A still further analysis is made
to show the welfare interests which are served. The $445,000,000
estimated for 1914 expenditures for the promotion of economic wel
fare, together with the amount estimated for the current year and the
actual expenditures of the last two completed Sscal years, is accounted
for as follows:
Promotion of agriculture, forestry, fisheries, and
the care and utilization of the public domain.
Promotion of trading, manufacturing, and min
ing ............................................................................
Providing facilities for transportation.................
Postal and other communication service (reim
bursable)................................................................
General:
Regulation of commerce and banking..........
Providing a medium of exchange..................
Meteorological research and weather fore
casting..............................................................
Granting patents and copyrights (reim
bursable) ..........................................................
Collection of data pertaining to population
and other general statistical information..
Fixing standards of measurement.................
T otal...............................................................
1914
1913
1912
$37,372,040
$37,391,089
$29,736,440
$27,892,521
930,439
116,844,538
549,962
134,564,906
433,070
82,517,834
404,888
77,347,590
276,983,944
265,001,879
244,460,742
234,185,955
3,023,658
4,584,554
3,043,089
5,168,325
2,677,452
5,188,261
2,465,128
4,998,012
1911
1,712,490
1,666,680
1,618,098
1,515,005
2,242,691
2,070,609
2,159,126
2,083,668
765,060
612,395
1,069,310
473,849
1,990,398
573,692
7,544,949
342,062
445,071,809
450,999,698
371,355,113
358,779,778
The $84,000,000 estimated 1914 expenditures for the promotion
and conservation of individual welfare, together with the estimated
cost for the current fiscal year and the actual cost for the last two
completed Sscal years, is subdivided to show:
1914
Promotion of the special interests of the laboring
classes......................................................................
Promotion of public health, education, and rec
reation:
Promotion and protection of public health..
Promotion of public education and recre
ation and of art and pure science.................
Care and education of dependent, defective,
and delinquent............................................. .
Care and education of the Indians and other
wards of the Nation......................................
Total.................................................................
1913
$4,372,805
$4,134,880
7,817,343
5,736,545
2,622,487
1912
1911
$3,529,157
$3,626,378
6,572,860
6,347,603
5,989,477
4,844,242
4,346,185
4,262,921
1,826,064
2,734,197
1,867,090
14,018,907
11,121,186
11,339,716
11,865,353
34,568,087
28,499,232
28,296,858
27,611,219
.
#
It is thought that such analyses will be of great value in consid
ering questions o f policy bearing on the future work program of the
Government.
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
25
ANALYSIS TO SHOW CHARACTER OF EXPENDITURES (STATEMENT NO. 9 ) .
Analyzing the estimates and expenditures in such manner as to
show the amount of the estimated and actual current expenses, as
distinguished from capital outlays and debt payments, the totals for
the four years are as follow s:
Current expenses and fixed charges (except
principal of debt)...............................................
1914
1913
1912
1911
$821,131,982
$779,892,645
$742,293,621
$738,419,108
Overhead and operating expenses.............
Upkeep of property......................................
Fixed charges, except principal of debt
(including interest, court awards, pen
sions, subsidies, contributions, indem
nities, etc.)...................................................
565,798,628
22,764,889
545,343,691
23,463,755
520,454,692
22,013,896
513,410,284
22,751,305
232,568,465
211,085,199
199,825,033
202,257,519
Acquisition of property.......................................
190,196,406
199,585,976
153,189,441
134,280,159
38,610,984
27,438,334
17,369,031
16,420,693
1,049,939,372
1,006,916,955
912,852,093
889,119,960
583,795
502,202
419,728
417,004
Total expenditures other than princi
pal of debt................................................ 1,049,355,577
Payment of debt...................................................
60,685,000
1,006,414,753
60,650,000
912,432,365
120,616
888,702,956
246,496
1,067,064,753
912,552,981
888,949,452
Unclassified........................................................
Total current expenses, fixed charges, ex
penditures for property and undistributed
expenditures.......................................................
Deduct amounts chargeable to revenues of
the District of Columbia..................................
Total.............................................................
1,110,040,577
Considering first the total for overhead cost and operation, it will
be seen that this represents only about one-half the total for the
Government. Including upkeep, the current expenses for the last
completed year, 1912, reached $542,468,588 out of a total of $912,552,981. To give perspective to the problem o f financing the next
fiscal year the estimated expenditures may be grouped as follows:
Current expenses and fixed charges other than sinking fund_____ $821, 000,000
Acquisition of property_______________________________________________
190,000,000
Unclassified expenditures (most of which are known to be expendi
tures for property)_________________________________________________
38, 000,000
Payment of principal on the public debt____________________________
60, 000,000
Subdividing the current expenses and fixed charges, as distin
guished from acquisition o f property, the estimated amount o f over
head and operating expenses is $566,000,000, of upkeep costs
$23,000,000, and of fixed charges $232,000,000.
SIGNIFICANCE OF ANALYSIS IN DETERMINING FINANCIAL POLICY.
The special signiHcance of this analysis is to be found in its use as
a guide to the determination of financial policy.
In my opinion current expenses and fixed charges, including sinking-fund requirements, should be financed entirely out of revenues;
26
MESSAGE OF THE PRESIDENT
that is, in planning to meet the Treasury needs of the Government
it would be a mistake to provide the means for carrying on the cur
rent business and for liquidating the debt by incurring additional
indebtedness. By this standard the least amount of revenue which
would be required for the next fiscal year (assuming that the esti
mates sent in are approved by the Congress and incorporated in
appropriations) would be $881,000,000. This conclusion is based on
the assumption that all estimates for " acquisition of property " and
all " unclassified " estimates would be initially financed by the Gov
ernment out of borrowings, i. e., that all of these estimated ex
penditures are properly classified as capital outlays. It is to be
observed, however, that in the estimated appropriations and expend
itures for acquisitions of property during the four years reported
all replacements of obsolete or condemned equipment or other prop
erty are included; these should be charged against current revenues.
The estimates sent to me as for capital outlays with corresponding
expenditures for preceding years, are as follows:
Character of expenditure.
Estimates
for 1914.
Total expenditures for acquisition of property... $190,196,406
Expenditi[ires for—
Appropria
tions for
1913.
1912
1911
$134,280,15
$199,585,976
$153,189,441
Land......................................................................
Buildings..............................................................
Other improvements to land and waterways.
Equipment...........................................................
Stores (increases)................................................
Work in progress (increases or decreases)___
Unclassified capital outlays..............................
2,531,825
20,958,273
74,974,140
73,542,150
7,268,549
115,522
10,805,947
6,596,696
20,896,897
108,486,547
51,343,856
6,675,373
1202,721
5,789,328
4,223,338
15,947,814
72,339,558
54,607,061
4,886,730
11,072,858
2,257,798
2,849,445
14,990,947
69,708,285
40,939,301
5,405,233
11,126,358
1,513,306
Unclassified expenditures.........................................
38,610,984
27,438,334
17,369,031
16,420,693
i Decreases of stores; deduction from total expenditures.
In order to determine what amount of these expenditures may
properly be financed from the proceeds of bond issues and what
amount would be considered as expenses to be financed out of
revenues, it is necessary to clearly distinguish those expenditures
which are for the acquisition of additional properties and those which
are for replacement of old. From the present state of the records and
reports these data are not available. With respect to the $73,500,000
estimated for equipment, however, this may be said: That a greater
portion of the estimate is for battleships, ordnance, etc. It is doubt
ful if the amount asked for is more than is needed to cover the wear
and tear and the depreciation due to obsolescence of equipment
already owned by the Government. Assuming that all of the
$98,400,000 for land, buildings, and other improvements on land,
and the $10,800,000 " unclassified capital outlays," as well as the
$38,600,000 of other " unclassified expenditures " are for new prop
erties, the conclusion that these are additions or betterments should
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
27
not be accepted without qualification for the reason that no provision
is made for estimating structural depreciation. In fact, there is not
at present any means for knowing what amount of property the
Government owns against which depreciation must be estimated.
From the inadequate data at hand it appears that the Government
has acquired buildings and other improvements on land during
the last 50 years the cost of which is considerably in excess of
$1,500,000,000. I f it be assumed that the average life of such struc
tures is 50 years, then not less than $80,000,000 should be included
in current expenses for depreciation due to obsolescence. This would
leave about $115,000,000 of the expenditures for the acquisition of
property to be capitalized.
T H E EXCESS OF E ST IM A T E D C U R R E N T E X P E N SE S A N D F IX E D CH ARGES OVER
E ST IM A T E D R EVEN U ES FOR 1 9 1 4 .
From the foregoing it would appear that the amount of the
revenues required to meet current expenses and fixed charges (in
cluding current upkeep of property and depreciation from obsoles
cence) is approximately $995,000,000.
The amount which the Secretary of the Treasury estimates will
accrue in revenues during the next fiscal year is $970,000,000
(excluding refunds of revenues and trust-fund receipts), leaving
a revenue deficiency of $25,000,000. From any angle o f approach,
therefore, either the estimates for appropriations must be cut down or
provision must be made for increasing the revenue.
RECOMMENDATIONS
FOR
THE REDUCTION
EXPENSES.
OF
CURRENT
In submitting recommendations under the requirements of the act
o f March 4, 1909, it seems evident that the overhead and operating
expenses and capital outlays should be clearly distinguished from
expenditures in the nature of fixed charges and debt payments. The
amount o f expenditures for these latter purposes is not to any con
siderable extent affected by economy or efficiency of administration,
but is the result of established policy expressed in terms of law. With
respect to capital outlays the Congress determines whether buildings
shall be constructed or rented, whether improvements shall be author
ized. With respect to fixed charges the President has no control
except through approval or disapproval of bills of Congress sub
mitted for his signature. The executive branch can have little re
sponsibility for nearly one-third of the total estimated expenditures.
I f the executive branch is not handicapped by legislation that
robs the service of the benefits of the proper exercise of adminis
trative discretion, the economy and efficiency with which the many
services of the Government are operated are primarily the responsi
28
MESSAGE OF THE PRESIDENT
bility o f this branch. It is with respect to this portion o f Govern
ment expenditures— the estimates for which amount to about $566,000.000 for the year 1914— that the following recommendations are
made. In submitting recommendations, however, I am suggesting
such reductions only as it is thought may result from beneficial
changes in policy.
RECOMMENDATIONS WITH RESPECT TO APPROPRIATIONS FOR PERSONAL
SERVICES.
With respect to the cost of personal service the estimates may be
divided into two classes, namely, (1) those for the payment of the
salaries of persons appointed by the President, with the advice and
consent o f the Senate, and (2) those for the payment of salaries to
all other employees of the Government. The reductions which, in
my opinion, may be made in these estimates without injury to the
service are:
Reductions in estimates for salaries of local officers appointed by
the President, with the advice and consent of the Senate________ $4, 500,000
Reductions in estimates for all other salaries____________________ 2,000,000
REDUCTIONS BY ELIMINATION OF SINECURES.
With respect to the first class I have already submitted recommen
dations to Congress in several messages transmitting reports in
which it is estimated that the direct salary cost of the Government
may be reduced not less than $4,500,000 a year—this to be done by
placing a large proportion of presidential appointments in the clas
sified service. The salaries of postmasters of the first and second
classes amount to over $6,000,000, while the salaries of assistant post
masters of the same classes amount to $2,820,000. I f the position of
postmaster were placed in the classiBed service, and these officers were
given salaries equal to 20 per cent more than the salaries now given
to assistant postmasters, the latter positions being no longer required,
there would be a saving of $4,512,000. Besides this direct reduction
that might be immediately made in the estimates, there would also be
very large indirect reductions of cost that might be availed of in
future estimates—reductions that can not be realized so long as ap
pointments are on a partisan basis. These unnecessary indirect costs
are due to the fact that a considerable part of the services outside of
Washington can not be properly brought within the discipline of ad
ministrative officers. So long as high salaried local ofEcers owe their
appointments to local influence it may be assumed that their tenures
will be fairly secure, regardless o f their efficiency. This is discourag
ing to those in equally responsible positions who are rendering eSicient service, but who, by reason of the nonpartisan character o f the
appointment, receive not more than half the amount o f salary; it
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
29
tends to destroy the esprit de corps, especially with subordinates; it
carries with it expenditures that in many instances are unwisely
made. Altogether, in the opinion o f those who are best acquainted
with the service, the indirect saving to the Government amounts to
more than the direct saving indicated. A list o f presidential ap
pointments, requested from departments, is attached (Appendix 5).
RED U CTIO N S B Y R E C L A SSIF IC A TIO N OF C IV IL SERVICE.
With respect to the other employees in the service, their salaries
are either what are known as " statutory " (that is, specified in the
acts of appropriations) or "nonstatutory " (the designation given to
salaries paid out of lump-sum appropriations). With respect to
these my recommendation is that the tota] appropriations for sal
aries be established at an amount sufficient to cover the pay roll
requirements of the present fiscal year, but that authority be given to
make a complete executive reclassification of civil-service employees,
to become effective by Executive order. Such a provision would re
duce the estimates for current expenses not less than $2,000,000, and,
in my opinion, would result beneficially to employees as well as to
the Government. In other words, I am of the opinion that an annual
salary roll o f $2,000,000 less than the estimates for salaries for the
year 1914, if properly distributed, would adequately provide for the
personnel necessary to do the Government's present work. At
present each statutory salary is fixed by Congress; this means that it
is fixed by one or another of nine committees of Congress. Each
nonstatutory salary is fixed by one or another of the nine heads of
departments. The result is not only great confusion in service des
ignations and service classification, but also great disparity in sal
aries for doing similar work. Furthermore, the fate of each indi
vidual employee in the matter of promotions, etc., so far depends on
action that can not, under present conditions, be premised on merit
or adjustment of compensation to work, that one of the serious em
barrassments to the service is a constant request for transfers.
This embarrassment Congress has sought to overcome through
laws, the practical operation of which is to make details and transfers
difHcuit; and committees on appropriations have usually looked with
suspicion upon all requests for salary increases. Under the laws
governing transfers, entry into the civil service in certain depart
ments amounts to a three years' enlistment with very little hope
for promotion. The obstructions to details of employees hamper the
work of certain divisions and add unnecessarily to the cost of others.
The impossibility of giving fair consideration to the question is
shown by the fact that each year hundreds of increases are proposed
in estimates to Congress, whose committees are supposed to pass on
30
MESSAGE OF THE PRESIDENT
their merits. One committee may pursue a fairly liberal policy, and
another may pursue a policy of restriction; but each must act with
very little knowledge o f their problem. One person whose position
is proposed for increase may have a strong or influential advocate be
fore a committee, while another, equally competent, may not. The
whole subject o f salaries is chaotic.
In the present situation many men at the bottom are receiving
larger salaries than would be obtained for similar work in outside
employment, whereas men in higher positions carrying great re
sponsibility and the success of whose performance depends on train
ing and long experience, are inadequately paid. The Government
suffers from both conditions. From the viewpoint of the rank and
file, there is little hope of reward for merit. Instead of establish
ing a well-considered classification of positions and salary grades
which will admit of promotions and increased compensation with
added experience and ability to render valuable service, instead of
holding out to the employee a career, a premium is placed on getting
into the service, after which little inducement is offered to effort.
There is little incentive to increasing efficiency, because as a rule
initial salaries are placed too high and terminal salaries too low.
The operation of such a salary scheme is to encourage application for
appointment from persons who have already assumed large social
or other responsibilities, and who are out of employment; at the
same time by providing low terminal salaries the service is to this
extent made unattractive to those who have spent years in prepara
tion or who after long experience have become expert in the handling
of the many technical problems involved in the economical and
efficient transaction of public business.
The foundation for a reclassification of salaries has already been
laid. An analysis o f the service designations and salary grades has
been made for the entire service. This is now being summarized in
such manner that if the subject is pursued with vigor a reclassifica
tion may be completed within the next few months. In my opinion,
such a reclassification would enable the Government to pay higher
salaries to those from whom experience, training, and initiative are
required, and make the saving o f $2,000,000 as' already stated. It
would hold out to the whole service a hope for better things instead
of leaving each individual in it the victim of chance.
RED U CTIO N S T H A T
W O U L D F O LL O W
M A K IN G
C E R T A IN
SERVICES
R E IM B U R SA B L E .
In my opinion a considerable reduction in expenditures may be
made without injury to the service by making certain expenditures
reimbursable. Generally speaking, the reason for making Govern
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
31
ment expenditures reimbursable is either (1) that the benefits of
the service inure mainly to those who use it rather than to the
general public, and that therefore the entire cost should be paid by
the users, or (2) that the service provided by the Government may
better serve its purpose if the person for whose beneHt it is performed
pays at least a part of the cost incurred. Among the most obvious
items o f expenditure which should be placed on a reimbursable basis
are those for certain publications of the Government that are dis
tributed to the public.
E L IM IN A T IO N OF W A S T E I N
D IST R IB U T IO N OF PU B L IC D O C U M E N T S .
The estimates for appropriations for the next fiscal year for print
ing and binding at the Government Printing OfRce amount to nearly
$6,000,000, besides the printing and binding that is done elsewhere.
O f this amount a considerable part is for publications that are dis
tributed to the public. As at present distributed it is known that a
relatively small part of such publications gets into hands of persons
who are really interested in them, and such persons could well afford
to pay cost price for them. The other documents are sent simply as a
reminder that there is some one in Washington who has the recip
ients' names on the list. The adoption of such a principle as is rec
ommended would, in my opinion, change the entire character of the
publication activities of the Government. At the present time many
valuable documents of the Government are not obtainable at any
price, since the issue is exhausted very shortly after publication. The
practice is that such a number of documents is printed as is necessary
to supply the public libraries and furnish the copies which, under the
law, go to Members of Congress. Unless provision is made for distri
bution to the public anyone interested in a particular publication may
be fortunate to receive the one or more copies that may be allowed the
Representative of the congressional district in which he lives. Fur
ther than this he must depend largely upon exchange of courtesies be
tween Representatives. Even those editions that are for public distri
bution, being given away, are soon exhausted. In order to make a sup
ply available to persons who may not have the facilities for obtaining
a desired volume or volumes at the time of the issue it is necessary to
have a publication authorization that will place a stock in the hands
of the superintendent of documents for sale. With respect to cer
tain publications this principle of sale has already been adopted. It
is urged that it be made general in its operation, thereby enabling
Congress to reduce the estimate for printing and binding by the
amount which it is thought will be realized from the copies distrib
uted to the public.
32
MESSAGE OF THE PRESIDENT
R E IM B U R S E M E N T FOR POSTAGE.
A further reduction in expenses may be made by applying the
same principle to postage. That is, a part of the cost of distributing
documents is the expense o f handling them in the post oHice. In pre
paring the catalogue lists of publications to be paid for it is recom
mended that the cost o f postage be included in the price to the public.
This would be represented by special stamps issued by the Post CMRce
Department to the departments and establishments through which
the distribution would be made.
M IN T S A N D A S S A Y O FFICES.
The estimated cost of maintaining the independent assay oHices
carried in the estimates for the legislative, executive, and judicial bill
is $305,740. This is not the whole cost, as it does not include such
as is carried in estimates for public buildings. The Secretary of
the Treasury has recommended their discontinuance. By such action
it is thought that the saving would be at least as much as the amount
shown above. In this relation I wish to raise the question for the
consideration of Congress as to whether it would not still further
add to the economy with which the public business may be done,
^nd at the same time increase efficiency, if the five Government mints
located at Carson, Denver, New Orleans, Philadelphia, and San
Francisco were consolidated. The cost of plant is very large. The
added cost due to scattered work is also an element to be considered.
The estimates for operating the mints amount to more than $915,000.
Besides this, there are large items of cost contained in the estimates
for public buildings. It is thought that, aside from the saving of
$305,740 which might be effected by closing the detached assay oiRces
as has been recommended, there could also be realized a saving in
overhead and other costs of not less than $100,000 a year by the con
solidation of the mints at some point of manufacture where the equip
ment is large and transportation facilities are good. The buildings in
the cities where the mints were closed could be utilized for other
governmental purposes, or sold.
R ED U CTIONS
OF
E X P E N D IT U R E S
ECONOM Y
PROPOSED
AND
BY
THE
C O M M IS S IO N
ON
E F F IC IE N C Y .
To the present time 24 reports of the Commission on Economy and
EHiciency have been sent to Congress by me, most of which contain
constructive recommendations. It is thought that if these recom
mendations were acted upon afHrmatively, a saving amounting to
several million dollars might be effected without impairing the
efficiency of the several services which have been made the subject
SUBMITTING A BUDGET FOR CONSIDERATION OF CONGRESS.
33
o f inquiry. As these reports are specific, and a number o f them
have been under consideration by committees in Congress, it does
not seem necessary to do more than to refer to them at this time.
RECOMMENDATIONS IN RELATION TO ESTIMATED FIXED
CHARGES.
As has been said, fixed charges are the result o f legislation over
which the executive branch can not exercise control and with respect
to which it has no responsibility. To this general statement, one ex
ception is to be taken, viz, the administration o f the public debt.
Not only is the executive branch made responsible for the manage
ment o f the sinking fund, but upon it has also been placed responsi
bility for borrowing to meet the needs of the Treasury.
SINKING-FUND REQUIREMENTS.
The amount o f sinking-fund requirements depends on three factors,
namely, (1) the amount o f the debt to be sunk, (2) the time during
which the obligations are to be permitted to run, and (3) the con
ditions attached to the investment of fund cumulations.
As bearing on the amount o f the national debt to be sunk, I am of
the opinion that the policy o f the Federal Government should be to
remain as nearly debt free as good financing and the equitable
distribution of capital outlays over a series of years will warrant. Our
governmental establishment is made up of three kinds of public corpo
rations—municipal, State, and national. Any program for the pro
tection and promotion of the welfare of the country must include them
pll. The burden of taxes laid by them all falls upon, and must be sup
ported by, private business or by the private resources of the people.
The debt burden of all must be considered as an encumbrance on our
national wealth. Considering the fact that many municipalities and
States have already reached the constitutional limit of indebtedness;
considering that the total bonded debt of New York City alone exceeds
the bonded debt o f the National Government, and that the total mu
nicipal indebtedness is many times greater; considering that the Con
stitution places the burden o^ national defense on the National Gov
ernment, it would seem to be j^he part of wisdom for the Federal Gov
ernment to keep as nearly dejbt free as is practicable. Not only does
reason suggest that this is one of the most effective precautions that
can be taken to fortify the Nation, but history supports this conclu
sion. Both in our conflict with Great Britain and in the Civil War,
the fact that the Federal Government was practically debt free at
the time that resort was had to arms must be assigned an important
place in considering the factors which made for success.
H . Doc. 1435, 62 -3 -------3
34
MESSAGE OF TH E PRESIDENT
THE CIVIL WAR DEBT STILL UNPAID.
Notwithstanding the fact that the Civil War was begun practi
cally debt free, the Government was forced to the last extreme to
obtain funds with which to carry on the conflict.
A t the end of the war the meeting of this debt was one of our most
serious problems. That we have gone along for over half a century
since the Civil War, carrying the large part of this war debt, when
during the latter part of this period the revenues of the Government
far exceeded expenditures, has been due largely to the fact that our
public debt has been a part of an admittedly vicious system of bank
ing and currency. As a matter of public policy, definite provisions
should be made for retiring this several-times-refunded balance of
more than a thousand million dollars, and in such manner as to do
no injustice to those who have purchased the bonds as collateral for
bank-note issues.
And in making provisions for this refunding, the first obligations
to be retired are the demand notes that were issued during the war
and given currency through being made legal tender. Every ob
jection to the retirement of the greenback that in the past has ob
tained is now without force. These outstanding obligations of the
Government (the legal-tender notes) are a constant menace to both
Government and private credit— a menace which has operated ad
versely to the successful financing of Treasury deficits in periods
of business depression by draining the Treasury of its gold— one
which would be found even more serious in case the Nation should
need again to fall back on its credit as a matter of military necessity.
A t the present time the total bonded debt outstanding is approxi
mately $964,000,000. To this should be added $346,000,000, the
amount of the demand Treasury notes. This makes a total indebt
edness to be sunk of $1,310,000,000. Taking into the sinking fund
the $150,000,000 gold reserve against greenbacks outstanding, and
the $137,000,000 advanced from the general fund for the building of
the Panama Canal, gold certificates could be issued in place of green
backs to the extent of $287,000,000. It would be necessary to issue
only $59,000,000 more bonds to retire the balance of the outstanding
Treasury notes, leaving an interest-bearing debt of the Government
amounting to $1,160,000,000 of all maturities, against which sinking
fund requirements would be calculated. Assuming that it is deter
mined to retire the present debt in 20 years after July 1, 1914, and
further that authority is given to invest the sinking fund cumula
tions in new issues of Government bonds for future capital outlays
which will bear an average rate of 3 per cent, it would require
about $45,000^000 to be set aside each year to retire the old debt, or
about $15,000,000 less than the present legal requirement. This
SUBMITTING A BUDGET FOB CONSIDERATION OF CONGRESS.
35
sum for sinking-fund requirements would have to be increased to
make provision o f each new bond issue as fast as necessary.
PR E SE N T S I N K I N G -F U N D RESOURCES.
A t the present time the only sinking-fund resource is a claim on
the general fund amounting to $809,000,000. This is now become &
mere bookkeeping entry without real obligation or meaning. I recom
mend that the present law be amended so as to adapt the annuat
charge against the revenues to the actual requirements and that the
book balance be canceled. To provide gold with which to retire the
greenbacks, I recommend that authority be given to transfer the
$150,000,000 general-fund gold reserve to the sinking fund as well as
the $137,000,000 advanced for the Isthmian Canal from the general
fund, the latter amount to be obtained by issue of 20-year bonds of
the National Government.
CR EATIO N OF A S I N K I N G -F U N D C O M M IS S IO N .
And to insure the independence of the administration of the sinking-fund law in the future it is also recommended that the chairman
of the Finance Committee of the Senate, the chairman of the Ways
and Means Committee of the House of Representatives, the Attorney
General, and the Secretary of the Treasury be made ex-oiRcio a sink
ing-fund commission, and that the comptroller shall be required each
year to audit and state the sinking-fund account to the President and
the Congress.
C O N D IT IO N S TO BE A T T A C H E D TO N E W ISS U E S.
In the making of future issues of national bonds I assume the
adoption of a new banking and currency system, which will retire the
2 per cent United States bonds now used to secure circulation under a
plan which places the price of the bonds on a false basis by making
these alone authorized securities for the issuing o f bank notes. While
this provision has enabled the United States Government to Roat
most of its securities on a low interest charge it has so Commingled
problems of national currency and private debt with questions of
public debt as to hamper the Government in its dealings by placing
a barrier of investment interest in the way of every effort to retire
outstanding obligations. The proposal would give 20 years, if need
be, within which to adjust bond issues to an investment basis.
C O N D IT IO N S TO BE A T T A C H E D TO T H E S I N K I N G F U N D .
To the end that the sinking fund may be used to advantage prior to
the time when the present outstanding indebtedness may mature or
may be redeemed, it is recommended that, in so far as cash may
36
MESSAGE OF TH E PRESIDENT
accumulate in the fund in excess o f the demands for meeting current
maturities, this cash be made available for the purchase of subsequent
bond issues authorized for public improvements or other purposes,
and that the sinking-fund commissioners be authorized, with proper
restrictions, to sell such purchases at any time that money may be
desired to carry out the purposes of the fund.
SUMMARY OF RECOMMENDATIONS FOR REDUCTIONS IN ESTIMATES FOR
EXPENSES AND FIXED CHARGES.
From the foregoing it is evident that the estimates for expenses
an€ fixed charges may be reduced $25,000,000 without injury to the
service. In fact the results, in my opinion, would be beneficial, pro
vided changes in law also be made as indicated. This could be ac
complished by a reduction o f not less than $10,000,000 in estimates for
overhead and operating expenses and by a reduction of $15,000,000 by
changing the sinking-fund law so that it would release the present
eumulated reserve and provide only for an amount adequate for the
retirement of the present national debt within 20 years from July
1 next and for the retirement o f future bonded debt within 20 years
from the date o f issue. This would reduce the total of estimated
expenditures which should be*met by revenue from $995,000,000
to approximately $970,000,000 for the fiscal year 1914, as against
which there is an estimated revenue of $970,000,000 (exclusive of
trust funds, refunds, etc.).
CONSTRUCTIVE
RECOMMENDATIONS PERTAINING
IMPROVEMENTS.
TO
PUBLIC
Not only should every public improvement bear a definite relation
to a plan or program which has reference to the needs o f the Nation
but provision should be made for completing the improvement at
such time as it will be most useful or serviceable in the carrying out
o f such a plan. In my opinion it is desirable that the Government at
Washington should be housed in public buildings which should be
built in such manner as to conform to a general plan of public build
ings for the Government within the city. In order to carry out such
a program it might be good business judgment to provide for spend
ing fifteen or twenty million dollars within the next two years. As
a matter o f fact it would be advantageous for the Government to
invest nearly $100,000,000, if need be, to save the rent which it
is at present paying within the District of Columbia. By first de
veloping a plan and then working to it, whatever part might be
approved might be financed through loans which would enable the
Government to apportion the investment burden over a period of,
say, 20 years. Such a method o f financing, applied to all its perma
SUBMITTING A BUDGET FOB CONSIDERATION OF CONGRESS.
37
nent improvements, would enable the Government to make contracts
on the most favorable basis, to avail itself of having its buildings
provided at an early date, and at the same time to proportion the
burden on revenue equitably over a period of years, through annual
appropriations to the sinking fund.
Applying the same theory to internal improvements: A definite
plan might be adopted for damming the streams which periodically
flood the Ohio and Mississippi River Valleys, thereby enabling the
Government to operate these dams for the retention o f water at times
of Rood, and during other periods to operate them for the pro
duction of power or other industrial or commercial uses. Such a
plan, however, would require a large initial outlay, which should be
apportioned over a period of years.
Briefly stated, my suggestion is that the Government first plan for
its land purchases, buildings, and public works, then borrow money
to acquire and to construct them, proportioning the cost over a period
o f 20 years and making the bonds issued to meet the cost payable out
of an adequate sinking fund.
Following these suggestions, I not only question the desirability of
continuing to appropriate for new projects without a deSnite plan
and before definite provision is made for financing them either by in
creased revenues or bond issues, but assert, further, that without a plan
there is necessarily a large element of waste. For example, it would
seem to be wasteful use of public money to appropriate for the loca
tion o f military posts and buildings at various local points and for
the building of barracks and quarters, whether for the Army, Navy,
or Marine Corps, until a definite military program has been settled
upon which will determine the question as to whether or not it is
desirable as a matter of military expediency to maintain several
hundred posts, scattered over the length and breadth of the country,
for the quartering of troops, or to have quarters located at such
points as to provide more adequately for the element of maneuver
and military instruction which is the primary purpose o f maintain
ing an army in time of peace. As has been said, in the past military
posts and establishments have been located largely as a result o f local
pressure rather than from a consideration of military need. Many
of the requests for appropriations above listed are based on this
theory. Within the list are not only to be found the appropriations
for military improvements, but also those civil in character, such as
public buildings, improvements to rivers and harbors, etc., all of
which should be subject to the same scrutiny before new projects are
financed.
38
MESSAGE OF TH E PRESIDENT
RECOMMENDATIONS FOR CHANGE IN POLICY PERTAINING TO
APPROPRIATIONS.
The analyses which have been made suggest quite a different han
dling o f the subject o f authorizations and appropriations than has
obtained in the past. Considering this from the viewpoint of the
needs o f the service, it is suggested that appropriations should be
4)f the following general classes:
1.
2.
8.
4.
Appropriations
Appropriations
Appropriations
Appropriations
CHARACTER
OF
to cover overhead and operating cost.
for upkeep of property.
for 6xed charges, including sinking fund.
for permanent improvements.
APPR O PR IATIO N S
TO
COVER
OVERHEAD
AND
O P E R A T IN G
COSTS.
W ith respect to the form o f appropriations for current expenses,
I am o f the opinion that a sharp line should be drawn between
appropriations for overhead and expenses o f operation and those for
other current purposes. Appropriations authorizing expenditures
for overhead expenses and operation should be annual, biennial, tri
ennial, quadrennial, or quinquennial, as by the terms and conditions
may be best adapted to the management o f the public business to
greatest advantage. These are subjects concerning which questions
o f policy must be currently determined. On the other hand, I am
of the opinion that provision for repairs, replacements, and depre
ciation, interest on the public debt, pensions, subsidies, grants, judg
ments, awards, indemnities, and sinking-fund requirements should
not be left to current or annual determination. With respect to
these expenditures every question o f policy should be decided at the
time the law is passed authorizing them. Appropriations for such
purposes, in my opinion, should not be taken up by an appropriation
committee, except to ascertain what amount will be required under a
funding measure that would be passed by the Congress as a part of
the original authority. Under such a law the amount required
should be a matter for administrative or judicial determination.
U P K E E P SH O U L D BE F IN A N C E D T H R O U G H A R E P L A C E M E N T F U N D CREATED
B Y P E R M A N E N T A P P R O P R IA T IO N .
When buildings are constructed it should be assumed that they are
to be kept in repair—unless they are of a temporary character, in
which case the construction should be treated as a current expense,
and the cost o f such construction should be amortized completely
over the period of each building's use. To the end that a definite
basis may be established for determining what appropriations are
needed for upkeep o f property, I recommend the appointment of an
SUBMITTING. A BUDGET FOB CONSIDERATION OF CONGRESS.
39
appraisement board in each department to determine what is the pres
ent investment or net cost to the Government of properties against
which a maintenance reserve should operate. Such board or commis
sion, under central direction and control, should be instructed also to
prepare as a basis for future appropriations actuarial tables on all
buildings and other improvements to land which are subsequently ac
quired. In other words, when new battleships are authorized, definite
provision should be made for upkeep; when buildings and other im
provements on land are authorized, a calculation should be made
with respect to the maintenance requirements, and the amount so
determined should be authorized as a permanent appropriation.
With respect to industrial property—that is, property which is
currently used for purposes o f manufacture or other production—
estimates for maintenance, including depreciation, should also be
made. These estimates, however, should not be made as a basis for
appropriation, but for the purpose o f establishing a reserve for up
keep, including depreciation, which may be ratably charged to the
operations or work on which equipment or industrial property is
used, thereby making unnecessary any appropriation for this pur
pose other than as included in appropriations to cover the cost of
work. Having established a replacement fund, the annual estimated
requirements for each department should be met by permanent ap
propriations, and from this fund allotments should be made to pro
vide for the repairs and replacements needed. By requiring an ac
curate account to be kept of actual repairs and replacements, by
classes o f property, the actuarial estimates may be corrected from
time to time as experience would indicate.
P E N S IO N S SH O U L D BE M E T B Y P E R M A N E N T A N N U A L A P PR O PR IAT IO N S.
Fixed charges are on quite a different basis. There is no greater
reason for current acts of appropriation to cover pension rolls than
there is for an annual appropriation to cover interest on the public
debt. A present situation fairly illustrates what may regularly hap
pen when the amounts required to make payment on pension claims
authorized are included in an annual appropriation bill. The appro
priation for the current year is not less than $20,000,000 short of what
it should be to meet pension claims. The result is that in the esti
mates for pensions for the next year a request is made for an appro
priation to be made immediately available, but in case this is done
the same situation must be faced the year following. It is probable
that the appropriation already made, together with the pension items
in the Book o f Estimates, will not cover claims filed before June 30,
1914, by $30,000,000. In my opinion, what should be done is to care
fully compute the demands which will probably be made under a
40
MESSAGE OF TH E PRESIDENT
pension law before it is passed— a precaution that has heretofore never
been taken. After such an estimate has been prepared, then estimates
would be made annually on the basis of experience for the consid
eration of Congress in providing revenues to meet Treasury demands^
but the pension law should carry with it a permanent appropriation.
J U D G M E N T S A N D A W A R D S S H O U L D BE F IN A N C E D B Y P E R M A N E N T L A W .
The same may be said of indemnities and court awards. When a
judgment or award has been made it should be considered as an ap
propriation payable out of funds in the Treasury, unless the award
should be so large in amount as to threaten the credit o f the Gov
ernment, in which case the Secretary of the Treasury should be
permitted to withhold payment until provision could be made by
borrowing or through ihcreasing revenues for meeting the demand.
Instead of this the present practice is to permit the courts to make
awards for payments of claims and then to require the payment to
await the slow process of a special appropriation. This is not only
unjust, but it leads to a kind of tra&cking which should not be
encouraged. The only reason for requiring judgment creditors to wait
for further congressional action would be in case payment of a large
judgment would embarrass the Treasury or was in excess of an esti
mated annual requirement, when authority should be given to the
Executive to defer payment till adequate revenues had been provided
or bonds were issued for the purpose.
T H E P R E SE N T L IS T OF P E R M A N E N T APPR O PR IATIO N S SH O U L D BE R EVISED ,
As has been said, after a law has been passed providing for the bor
rowing of money on public credit, thereby authorizing the payment
o f interest, or for the payment of pensions, subsidies, indemnities, or
the setting aside o f revenues for the payment o f the principal of the
public debt, there is no further question of policy for Congress to
consider until it may be found desirable to repeal the law or to deny
the obligation. In general, this policy has already been followed.The list o f permanent appropriations is a long one. For the current
year the estimate reaches nearly $134,000,000. In the list of perma
nent appropriations for 1913 are included such items as $3,000,000
for meat inspection; $1,700,000 for the operation and care of canals
and other works of navigation; $125,000 for the removal of obstruc
tions in the Mississippi, Illinois, and other rivers; $100,000 for the
maintenance o f channels, South Pass, Mississippi; $5,500,000 for the
collection o f customs. These are not proper subjects for permanent
appropriations, whereas the expenditures o f the character indicated
above should, in my opinion, be thus provided for.
SUBMITTING A BUDGET FOB CONSIDERATION OF CONGRESS.
C U R R E N T APPR O PR IATIO N S FOR A
LONGER PERIOD T H A N
ONE
41
YEAR.
Both the expenses of current administration and operation and the
acquisition o f property for the continuing use of the Government
should, in my opinion, be subjects for current consideration of ques
tions o f policy. To this end the administration should be held re
sponsible for preparing and submitting each year carefully pre
pared estimates o f needs, together with such collateral data as may
be needed to consider what amount should be appropriated and what
conditions should be attached. This does not mean that appropria
tions for overhead expenses and operation may not be for a longer
period than one year. In many instances, appropriations made to
cover a period o f years would result in largely increasing the economy
and efEciency with which the service may be performed. It was,
doubtless, with this end in view that the meat-inspection service was
placed upon a basis of permanent appropriations. In my opinion this
service should have been placed on a three-year or five-year appropria
tion basis until the service had become established and its current
needs had been determined. There are many services the current ex
penses of which can, with advantage, be financed on a two, three, or five
year basis. This would be of especial value in cases where a definite
plan or policy is to be followed or worked to— as a military program
or a plan for the development of public roads—in which the Govern
ment is to cooperate with States and other local bodies. For consti
tutional reasons, military appropriations can not be for a longer
period than two years, but there is no such inhibition against funding
the needs o f civil service.
APPR O PR IATIO N S FOR P E R M A N E N T IM P R O V E M E N T S .
With respect to the acquisition of permanent property, I would
recommend, as a matter of financial policy, that no appropriation be
made except pursuant to a plan which shall first have been approved
by Congress in a bill separate and apart from the act making the
appropriation. The formulation o f a definite plan for improvements
would enable committees of Congress, or, for that matter, Congress in
committee as a whole, to consider what the Government shall under
take to do for a period of years before the requests for appropriations
are taken up. This would be the alternative to the present method
of having a large number o f questions o f organic law and many ques
tions of authorization to incur liabilities—which at the present time
run some $300,000,000 ahead of appropriations—settled in a com
mittee on appropriations and brought in as riders on the appropri
ation bills at the end of sessions, when no one has time or opportunity
to consider, even in general, what the thousands o f items in appropri
42
MESSAGE OF TH E PRESIDENT
ation acts contain. After the question had been settled as to what
work would be undertaken during a definite period, the appropri
ation bill authorizing it, in my opinion, should indicate what part or
what project or improvement would be financed out of bond issues
and what part would be financed out o f the general fund. In so far
as projects are to be financed out o f the general fund, there should
be a limitation placed on the appropriation so made, to the effect that
no contract shall be let by the administrative ofRcer under whose
jurisdiction the improvement is to be made unless the estimated rev
enues o f the year, together with the surplus and the general fund,
after providing for legal reserves and estimated current expenses and
fixed charges, as determined by the Secretary of the Treasury, are
adequate to meet the obligations to be incurred under such contract.
This would admit of administrative curtailment o f contracts against
revenues automatically in case, from loss of expected revenues, the
general-fund cash surplus of the Treasury should disappear.
CHANGES IN ORGANIZATION NEEDED TO PREPARE AND
CONSIDER A BUDGET.
The Government is not only in the position o f having gone along
for a century without a budget, but, what is at this time even more
to the point, it has not the organic means either for preparing or for
considering one. In the executive branch there is no established
agency which may be utilized for assembling the data required
for the preparation of budget summaries. The law governing
estimates requires that they be prepared and submitted by various
heads o f departments and independent establishments without execu
tive review or revision; this makes it impossible to submit a budget
unless the President does it on his own initiative. In Congress nine
standing committees are charged with formulating bills for appro
priation; a tenth committee is charged with formulating plans for
raising revenue; still other committees, with an entirely different
membership, are organized for reviewing the Government expendi
tures. There is little provision made for giving coincidence o f time
to their action or for correlating the results o f their work, and in
many instances what is attempted to be done through appropriation
bills prepared by one committee is undone through the appropriation
bills prepared by another.
R E C O M M E N D A T IO N FOR A B U R E A U OF C E N T R A L A D M IN IS T R A T IV E CO N TR O L.
First in the list of proposed changes in law setting forth what
legislation should be enacted in order to enable the administration
to transact the public business with greater economy and efficiency
SUBMITTING A BUDGET FOB CONSIDERATION OF CONGRESS.
43
is a recommendation for the establishment of a Bureau of Central
Administrative Control, with a comptroller at the head who would be
responsible to the President and to Congress. Concretely the pro
posal is to consolidate the six auditors' ofRces as well as the office
o f the Comptroller of the Treasury and the other central accounting
ofBces o f the Government in one executive bureau, and thereby, with
out increasing cost, to provide for a central accounting, auditing, and
reporting organization which would include among its activities the
preparation o f a budget supported by a book of estimates and a
consolidated financial report for the Government. This agency
would also serve in the capacity of an independent agency for the
preparation o f special reports when requested either by the Con
gress or by the President.
T H E NEED FOR A BUDGET C O M M IT T E E .
While it is with much hesitation that I suggest any change in
committee organization in Congress, it seems to me to be highly
desirable to have some provision, such as has been frequently sug
gested by Members on the floor, whereby a budget committee may
be established as a final clearing house through which all the recom
mendations of the committees having to do with revenues and
expenditures shall pass before they take the form, of a definite bill.
The special reason which I have for urging such a cofnmittee is that
at present the administration is seriously handicapped by not being
able to take up proposals or constructive measures affecting any^
particular department with any one body or committee which will
undertake to consider them in all their aspects. For example, the
War Department finds it necessary to deal with committees and
subcommittees which have charge of the legislative, executive, and
judicial bill, the sundry civil bill, the Army bill, the fortifications
bill, the Military Academy bill, the river and harbor bill, besides
committees in which various special bills and resolutions and the
various recurrent appropriations may originate. The Interior De
partment finds it necessary to deal with committees which have in
charge the legislative, executive, and judicial bill, the sundry civil
bill, the Indian bill, and the pension bill. The Navy Department
Ends it necessary to carry its estimates before two different standing
committees to be considered in three different bills. Neither do
ofHcers o f the administration find it possible to get the whole o f a
particular subject before any one committee. The subject of trans
portation and communication (other than postal service) must be
considered by the Appropriations Committee, Agricultural Com
mittee, Committee on Foreign Affairs, Committee on Military Affairs,
Committee on Naval Affairs, Rivers and Harbors Committee, and
44
MESSAGE OF TH E PRESIDENT.
the Committee on Post CMRces and Post Roads. Estimates for
public health must go before three different committees, etc. For
these reasons I am recommending not only that the administration
be provided with adequate means for obtaining the information
necessary to the executive direction and control of public business and
the formulation and submission of a budget, but that Congress also
make some organic provision whereby the administrative and legis
lative branch may coordinate their efforts in the development of the
future activities of the Government as well as for the determination
of the expenditures needed for the current transaction of its business.
W M . H . TAFT.
THE WHITE HOUSE,
%%?,
SUMMARIES OF DATA SHOWING FINANCIAL
CONDITIONS AND OPERATING RESULTS.
45
Summaries Showing Financial Conditions and Operating Results.
Page.
General note.......................................................................................................
Budget statement No. 1. Comparative current balance sheet—Showing the
Rscal condition of the Government as of June 30,1911, and June 30,1912....
Budget statement No. 2. Fund statement—Showing the condition of the gen
eral fund and of other funds and appropriations as of June 30,1912...............
Budget statement No. 3. Comparative account of operations—Showing the
revenues and expenditures of the Government for 1911 and 1912, and the esti
mated revenues and expenditures for 1913 and 1914, with the resulting annual
surplus Mr deficit................................ .............................................................
Budget statement No. 4. Treasury surplus account—Showing the cumulated
deficits as of June 30,1911, and June 30,1912, and the estimated deficits June
30,1913, and June 30,1914........... .............................................................. ..
46
47
48
50
52
56
GENERAL NOTE.
The only safe guide to judgment in making future plans is complete and accurate
knowledge of present and past conditions and results. In order to obtain knowledge
of present and past conditions consideration must be given to two classes of data,
namely, (1) those which relate to what the Government owns and what the Govern
ment owes, and (2) those which relate to the legally established funds, including the
authorizations that have been given to of&cers to incur liabilities and to spend. For
knowledge of past and present results consideration must be given to the character
and cost of each result, as well as to the net effect of income and outgo on financial
or business condition. To make these several classes of information available in such
form that the significance of past experience may be quickly grasped and understood,
it is thought that statements should be prepared in the form of (1) a balance sheet, (2) a
fund statement, (3) an operation account, and (4) a surplus account. It was found to
be impossible to prepare a complete balance sheet within the time available, i. e.,
complete information as to what the Government owns and what the Government
owes was not of record. Even the statement prepared, which is limited to current as
sets, liabilities, and reserves, is defective in many particulars, as will be seen from
the footnotes attached.
47
B U D G E T S T A T E M E N T N O . 1. * * *
Comparative c%rre%%&a^a?T,C6
tAe^caZ co^cK^o^ o/
00
2&?jf, a7M?
(Mo /
TREASURY CASH AND RESERVES.
Cash.
As of June 30,
1911.
As of June 3
1912.
Increase.
Decrease.
Total c u r r e n c y
trust funds.........
Disbursing oRicers' bal
ances 2............................
Post Office Department
account 2................... ...
National bank 5 per
cent fund 2 .....................
Other deposit and re
demption accounts2...
Sinking-fund
require
ments *...........................
Total.
As of June 30,
1912.
$150,000,000.00
$150,000,000.00
Increase.
Decrease.
994,870,669.00 1,040,057,369.00 $45,186,700.00
481,549,000.00 18,050,000.00
463,499,000.00
3,246,000.00
$317,000.00
2,929,000.00
1,461,615,669.00 1,524,535,369.00
62,919,700.00
68,508,358.84
61,874,219.07
1,872,123.97
1,810,447.44
61,676.53
24,681,961.39
24,349,434.05
332,527.34
), 634,139.77
7,370,637.52
8,728,927.04
1,358,289.52
749,297,164.04
809,338,000.00
60,040,835.96
2,463,345,914.76 2,580,636,396.60 117,290,481.84
TO CONGRESS.
DEPARTMENTAL CASH, RESERVES, AND LIABILITIES.
Fiscal officers' balances &.
Less outstanding checks
of fiscal officers" ...........
Net cash to credit of fiscal
officers........... .................
Cash in the hands of fiscal
officers ?..........................
Net cash to credit and in
the hands of fiscal oSi. cers...................................
Total.
$68,508,358.84
4,549,185.99
83,959,172.85
$6,634,139.77
$61,874,219.07
8,107,235.23 **$3,558,049.24
53,766,983.84
6,694,028.64
10,192,189.01
6,694,028.64
63,959,172.85
60,461,012.48
3,498,160.37
3,959,172.85
60,461,012.48
3,498,160.37
Reserves against fiscal
officers' cash s...............
Liabilities: *
Vouchers and payrolls
Unclaimed salaries
and wages payabe M.
Accrued salaries and
wages payable ^
Public invoices and
other accounts........
Bills of exchange M..
Excess of departmental
cash over reserves and
liabilities.......................
Total.
FOB 1914 SUBMITTED
Gold reserve 2 ...................
Currency trust funds:
Gold certificates 2. . .
Silver certificates 2...
Treasury notes of
1890 2.......................
As of June 30,
1911.
BUDGET
In Treasury and subtreas $1,791,151,760.26 $1,872,964,358.26 $81,812,598.00
uries.2
In depositories to credit
of—
2,269,793.75
39,038,059.26
36,768,265.51
The Treasurer 2..........
Mints and assa y
172,101.12
16,636.10
155,465.<
ofRces2......................
$630,511.67
L92
14,470,733.!
13,840,222.25
Disbursing officers 2..
,842,546,224. 71 1,926,014,740.89
Total cash................
Less outstanding war
*261,647.15
8,971,103.
8,709,456.84
rants and checks 2..
.,833,575,120.
,917,305,284.05
Net cash.......................
21,145,591.54
495,035.41
20,650,556.
Cash in transit 2.................
Net cash in Treas
ury, subtreasuries,
depositories, and
1,854,225,676.85 1,938,450,875.59
in transit.................
Excess of Treasury re
642,185,521.01 33,065,283.10
609,120,237.91
serves over cash s...........
2,463,345,914.76 2,580,636,396.60 117,290,481.84
Total.........................
Reserves against cash.i
$517,394.
$1,616,199.58
$2,133,594.27
218,835.02
241,432.60
7,922,420.77
7,849,844.62
7,984,926.54
11.206,365.07
46,216,790.94
39,029,775.92
7,187,015.02
63,959,172.85
60,461,012.48
3,498,160.37
22,597.58
$72,576.15
3,221,438.53
CASH SUM MARY.
Excess of Treasury re
serves over cash............
$46,216,790.94
562,903,446.97
$39,029,775.92
$7,187,015.02
603,155,745.09 $40,252,298.12
609,120,237.91
642,185,521.01
33,065,283.10
$609,120,237.91
609,120,237.91
$642,185,521.01 $33,065,283.10
642,185,521.01
33,065,283.10
AND OPERATING
RESULTS,
CONDITIONS
i Reserves against cash are intended to consist of all amounts which operate as deductions from the total cash in the Treasury, subtreasuries, depositories, and in transit, in order
to arrive at the net Treasury balance of cash available for the payment of liabilities incurred by the several departments, bureaus, and offices.
^ These figures are derived from the annual reports of the Treasurer.
s The excess of Treasury reserves over cash results from including the sinking-fund requirements as a reserve. If this item were omitted an available balance would be arrived at that
would agree with the annual reports of the Treasurer. The excess of Treasury reserves over casn is carried down to the cash summary.
* The amount of the sinking fund as presented was derived from the annual report of the Secretary of the Treasury, p. 105, which shows the sinking-fund account for the fiscal
year 1912. This account has been constructed in accordance with the law (R. S., p. 725, sec. 3689; acts of Apr. 17, 1876, vol. 19. p. 33, sec. 2; Mar. 14, 1900, vol. 31, p. 48, sec. 11, R. S.,
p. 724, sec. 3688). As shown by Table E of the Secretary's report, p. 105, the amount of the public debt outstanding on the basis of which the sinking fund is set up is $1,120,824,709.69.
The balance of the sinking-fund requirements at the close of business June 30, as shown by Table E, is $809,338,000. As figured by the Department of the Treasury the sinking-fund
requirements were therefore at the close of June 30,1912, $311,486,709.69 less than the outstanding debt against which the fund is set up. Of the $1,120,000,000 (on the basis of
which the Secretary of the Treasury sets up the sinking fund), $961,000,000 consists of outstanding bonds which are due as follows: $118,000,000, 1925: $63,000,000, 1918: $646,000,000,
1930; $54,000,000, 1916; $30,000,000, 1918; $50,000,000, 1961.
s These are the amounts of disbursing officers' balances as shown by the annual reports of the Treasurer. They are brought down from the credit side of the Rrst part of the
comparative balance sheet as amounts available to pay obligations incurred by departments, bureaus, and offices.
s These amounts were derived from special reports received from departments, bureaus, and offices; they are inaccurate. (See supporting schedule, Appendix 1.)
? The amount of cash in the hands of fiscal officers was arrived at from special reports from the several departments, bureaus, and offices. This amount is inaccurate, since
there are many balances which were not reported. It was impossible in the time available to ascertain what these amounts were and in some cases the commission was informed
that there were no records from which the amounts could be readily obtained. The organization units from which no reports of cash in the hands of disbursing officers were obtained
were as follows: Senate, House of Representatives, Government Printing Office, Executive Office, Department of State, Department of Justice, Civil Service Commission, Inter
state Commerce Commission. The balance as of June 30,1911, was not obtained.
s The amount of reserves against fiscal officers' cash is intended to include all amounts which are not available for the payment of current liabilities; that is, all amounts held
by fiscal officers which must be applied to a specific purpose. These reserves include the amounts of collections reimbursable to appropriations, collections returnable to the
Treasury, and deposits by private persons were not available and therefore are not shown in the statement.
a The amounts of liabilities were derived from special reports obtained from the several departments, bureaus, and offices, but are very incomplete and inaccurate, as explained
by the notes in schedule 1, Appendix 1. The Departments *f State and Justice did not report, stating that the information is not available and can not be estimated. There
were also many bureaus and omces that did not report. With the exception of the Government Printing Office., the National Botanic Garden, the Commission on Economy and
Efficiency, the Department of Commerce and Labor, the Civil Service Commission, and the Interstate Commerce Commission, every unit of the service that did report qualified the
figures submitted by stating to what extent they were incomplete or estimated.
The liability on account of outstanding bills of exchange is not presented, owing to the fact that, except for the Navy Department, the amount is not available.
The general cash deficit is the amount by which legal reserves and liabilities exceed the cash in the Treasury, in depositories, and in the hands of fiscal officers. The amount
presented, however, is less than the correct amount, owing to the fact that the reserves against the disbursing officers' cash and the current liabilities are understated. This balance
is carried forward to budget statement No. 2.
* The decrease in outstanding warrants and checks of the Treasurer and Assistant Treasurers; deducted from total decreases in arriving at net increase in Treasury assets.
** This figure represents the increase in outstanding checks of fiscal officers. In arriving at the net increase of general current assets it is deducted from the total increases.
*** A capital account could not be prepared for the reason that there is not a complete record of property owned by the Government and such data as is available is scattered
through the offices in the several departments and establishments.
FINANCIAL
H. Doc. 1435,62-3
Excess of departmental
cash over reserves and
liabilities.........................
General cash deficit n___
to
B U D G E T S T A T E M E N T N O . 2.
FiMM?
coyMFi%io^o/ ^Ae
prm%iOM,s ad o/
o/ o^gr
appro-
<?0, Jf9.?j%.
Fund resources:
Net cash available for general-fund purposes............... $206,182,254.91
Less amount due from the general fund to the sinking
fund.................................................................................... 809,338,000.00
General cash deficit after providing all legal reserves
and liabilities (brought forward from budget statem e n tN o .l)i............... .................................................................................. $603,155,745.09
Amount due to the general fund from bond funds
(Panama Canal)2 ......................................................................................... 137,897,497.28
Excess of general cash deficit, above, over
general-fund resources.................................................................................................... $465,258,247.81
General-fund appropriations and authorizations: ^
Unexpended balance of appropriations (see Appendix
1, schedule No. 2)—
Biennial, 1912-13 ........................................................
5,082,733.48
Triennial,1911-1913 .....................................................
761,199.49
Continuous.............................. 1.................................... 163,552,539.14
Revenue.........................................................................
18,337,963.36
IndeRnite.......................................................................
312,389.70
Determinate..................................................................
3,897,809.61
Unclassified*.................................................................
2,597,909.72
Total unexpended balances of appropriations.......................... .
Unliquidated encumbrances of appropriations no
longer available for further encumbrance, but not
yet lapsed to the surplus fund s..................................................................
Deduct: Currentliabilitiesc...........................................................................
194,542,544.50
33,042,500.70
227,585,045.20
21,431,236.56
Total general-fund appropriations and author
izations?............................................................................................................................
General-fund deficits........................................................................................................
Trust-fund appropriations (see Appendix 1, schedule No. 2)".....................................................
Postal-fund resources and encumbrances:
Resources—
Post OfRce Department account (brought forward
from budget statement No. l)i*...........................
1,810,447.44
Funds in the hands of fiscal officers of the postal
4,710,802.49
service".............................................. ......................
-----------------------6,521,249.93
EncumbmncesM............................................ ..................................................
8,433,141.32
206,153,808.64
671,412,056.45
49,262,602.42
Excess of encumbrances over resources (to be met
fromthe general fund)M..................................................................................................
1,911,891.39
Excess of appropriations, reserves, and current lia
bilities over resources^............................................................ ........... ...................................
Excess of authorizations over appropriations i*......................................................................
722,586,550.26
256,547,150.45
Total excess of authorizations, appropriations,
reserves, and liabilities over resources ^ ....................................................................
979,133,700.71
Bowd/MMds.
Amount due from bond funds to general fund (Panama Canal) M.............................................
50
137,897,497.28
FINANCIAL CONDITIONS AND OPERATING RESULTS.
51
NOTES T O B U D G E T S T A T E M E N T N O . 2 .
1 The general cash deficit represents the net amount of cash available for general-fund purposes, less the
amount which the general fund owes to the sinking fund, due to the fact mat revenues appropriated for
sinking fund were used for general-fund purposes, as shown in budget statement No. 1. As set forth in
note (8) relating to budget statement No. 1, this balance is inaccurate, being less than the correct figure,
owing to the fact that certain reserves and liabilities have not been deducted. A further inaccuracy exists
in budget statement No. 2, owing to the fact that the basis upon which the general cash deficit is arrived
at is not consistent with that upon which encumbrances are liquidated. There is no consistent or uniform
basis of liquidation of encumbrances and the setting up of liabilities; that is, in some departments, bureaus,
and offices encumbrances are liquidated on the basis of vouchers paid, and in others on me basis oi vouchers
approved for payment. Liabilities are in some cases set up on the basis of vouchers approved and in
others on the Dasis of accepted deliveries or services. Unless encumbrances are liquidated pn the same
basis as that on which liabilities are set up, the general cash deficit when set off against the unexpended
balances of the appropriations will result in a general-fund surplus or a general-fund deficit that is inac
curate. It is therefore necessary to make an adjustment, which is explained in note (6),
2 The amount due to the general fund from bond funds was supplied by the Division of Bookkeeping
and Warrants. This is over $12,000,000 in excess of the amount shown by the reports of the Isthmian
Canal Commission.
3 The general-fund appropriations and authorizations, as presented, are intended to include the unex
pended balances of all general-fund appropriations and authorizations and special funds that are still
available for expenditure. The figures shown were derived from special reports and recapitulations
obtained from the several departments, bureaus, and offices. They are incomplete and inaccurate, owing
to the fact that some of the bureaus and offices did not report, and also that some of the reports* received
are known to be incorrect; but in the time available it was not possible to ascertain the reasons for the errors
and to make the necessary corrections. The figures presented include only those unexpended balances
which are still available for the incurring of expenditures^ so that in the case of current appropriations no
balances are included of appropriations for fiscal years prior to 1913.
i This amount represents unexpended balances of appropriations which were reported without the class
to which they belong being indicated.
s This figure represents the amount of unliquidated encumbrances of appropriations no longer available
for expenditure, and therefore not included pi the unexpended balances immediately above, but the bal
ances of which have not yet lapsed to surplus, so that the unliquidated encumbrances are still to be
met from fund resources available. This figure was derived from special reports submitted to the com
mission by the several departments, bureaus, and offices. It is inaccurate and incomplete for the same
reasons that the unexpended balances of appropriations as presented are inaccurate and incomplete; that
is, it does not include all the unliquidated encumbrances of this class, owing to the fact that reports in
some cases are lacking, and also it is known that some of the reports made are incorrect.
e This figure is the total amount of current liabilities as shown in budget statement No. 1. Since encum
brances as reported include current liabilities (which have been deducted in arriving at the general cash
deficit) it is necessary to deduct them from the total amount of encumbrances in order to arrive at the
general-fund deficit.
? This amount is intended to represent the total general-fund appropriations and authorizations that are
still available for expenditure and to be met with fund resources. It does not include the postal service,
the District of Columbia, or trust-fund authorizations and appropriations, which, with the exception of the
District of Columbia, are shown separately below.
s This figure is intended to represent the excess of general-fund appropriations and authorizations, over
fund resources, exclusive of postal service, District of Columbia, trust-fund, and bond-fund appropriations
and authorizations. It is inaccurate, owing to the fact that the fund resources are overstated (certain cash
reserves and current liabilities not having been deducted) and that the amounts of authorizations and
appropriations are understated (certain organization units not having reported and the reports that have
been made being incomplete).
^ This figure represents the total unexpended balance of trust-fund appropriations and authorizations as
reported by departments, bureaus, and offices. It is inaccurate, owing to the fact that certain organization
units did not report and some of the reports that were received are incomplete.
This amount is derived from the annual report of the Treasurer; it is brought forward from budget
statement No. 1.
ii This amount was arrived at by deducting the balance of the Post Office Department account, as shown
by the annual report of the Treasurer, from the amount of cash available to meet vouchers when approved,
as shown by special report from the Post Office Department.
12 This amount is derived from the special report of the Post Office Department.
13 This figure is intended to represent the fund deficiency—that is, the amount by which the appropria
tions, reserves, and current liabilities exceed the resources. It is inaccurate, owing to the fact that the fund
resources are overstated and the general-fund appropriations and authorizations are understated, that the
trust-fund appropriations and authorizations are understated, and that the legal requirements of the
sinking fund are greater than the actual requirements.
n This figure was arrived at by compiling the amounts of authorizations in excess of appropriations as
reported by departments, bureaus, and offices.
is This amount represents the excess of total authorizations, appropriations, reserves, and liabilities over
resources in so far as the amounts are known to the commission through special or annual reports. It is
inaccurate, owing to the fact that the figures from which it is arrived at are incomplete, with a few excep
tions. These exceptions are the cash in the Treasury, subtreasuries, and in depositories, and the reserves
against Treasury cash.
is This is the amount due to the general fund; it is shown as a general-fund resource. See note 2.
B U D & E T S T A T B M B N T N O , 8 .^
Cb7npara^w account of op^ra^on^-^Aotcina ^ y6wnt^ and gppgnd&MTgs of ^ (?ovgm7nfnf /w 19ii and
^pcnd^iMf^ybr ^91^ and i9J4,
^ rds^Ziiny anntta%
or dg^cif.
and %7% ^tMna^d ?wenw$ and
1914
1913
1912
Revenues:
Customs (see budget statement No. 5)..................................................................................................................
Internal (see budget statement No. 5 )..................................................................................................................
Public lands (see budget statement No. 5)...........................................................................................................
Postal (see budget statement No. 5)......................................................................................................................
Miscellaneous (see budget statement No. 5).........................................................................................................
$325,000,000.00
328.000.000.00
5,250,000.00
282.000.000.00
40,883,000.00
$328,000,000.00
326.000.000.00
5,250,000.00
260.938.000.00
40,883,000.00
$311,321,672.22
321,612,199.66
5,392,796.75
246,744,015.88
42,072,487.80
$314,497,071.24
322,529,200.79
5,731,636.88
237,879,823.60
46,660,228.59
Total revenues (exclusive of trust funds) *................................................................................................
Deduct refunds 3..............................................................................................................................................
981,133,000.00
10,662,000.00
961,071,000.00
10,675,519.88
927,143,172.31
10,602,277.34
927,297,961.10
11,314,826.91
Net revenues (exclusive of trust funds)......................................................................................................................
970,471,000.00
950,395,480.12
916,540,894.97
915,983,134.19
821,131,982.23
779,892,644.74
742,293,621.38
738,419,107.80
443,382.50
401,921.77
367,705.78
378,281.52
Current expenses and Axed charges (exclusive of public debt and the District of Columbia)...................
820,688,599.73
779,490,722.97
741,925,915.60
738,040,826.28
Excess of general revenues over current expenses and fixed charges (exclusive of public debt) 6 ...................
149,782,400.27
170,904,757.15
174,614,979.37
177,942,307.91
Acquisition of property (see budget statement No. 9): ? ..........................................................................................
Deduct: Expenditures by executive departments, payable from revenues of the District of Columbia s.
190,196,405.75
140,412.50
199,585,975.79
100,280.13
153,189,441.22
52,022.34
134,280,158.71
38,722.31
Acquisition of property exclusive of the District of Columbia.........................................................................
190,055,993.25
199,485,695.66
153,137,418.88
134,241,436,40
1*40,273,592.98
10 28,580,938.51
21,477,560.49
43,700,871.51
Deduct: Unclassified expenditures (see budget statement No. 9) H......................................................... ..............
38,610,984.29
27,438,334.41
17,369,030.91
16,420,693.41
Excess of general revenues over total expenditures (exclusive of public debt and trust funds) M....................
13 78,884,577.27
13 56,019,272.92
4,108,529.58
27,280,178.10
1911
OTHER EXPENDITURES.
TO CONGRESS.
Excess of general revenues over current expenses, Axed charges, and capital outlays as reported (exclusive
of public debt) *................................................................................................................................................................
FOR 1914 SUBMITTED
CAPITAL OUTLAYS.
BUDGET
OPERATION ACCOUNT.
Expenditures (see budget statement No. 9):
Current expenses and fixed charges (except public debt) *..............................................................................
Deduct: Current expenses incurred by executive departments payable from revenue of the District of
Columbia &................................................................................................................................................................
M)
CONDITIONS AND OPERATING
RESULTS.
FINANCIAL
' Statement No. 3 is intended to set forth comparatively Government revenues and expenditures as well as transactions in public debt and public trusts for the fiscal years 1911,
1912, and estimates for 1913 and 1914. The revenues as shown are derived from the "combined statement" based on covering warrants prepared by the Division of Bookkeeping
and Warrants of the Treasury Department, and the expenditures are derived from the special reports of the departments, bureaus, and offices. It is the purpose of this statement not
only to show in most summary analysis the classification of revenues and expenditures, but also to show four significant balances as follows: (1) A balance which represents the
current operating surplus for the year; that is, the amount by which the revenues (exclusive of receipts on account of public debt, trust, and private funds) exceed the total amount
of current expenses and fixed charges (exclusive of payments on public debt and trust funds); (2) a balance which represents the amount by which the current operating surplus
exceeds the amount of capital outlays; (3) a balance which represents the general surplus for the year; that is, the amount by which the total revenues exceed the total general
Government expenditures; and (4) a balance which represents the surplus for the year; that is, the amount by which total revenues and receipts from all sources exceed the total
expenditures for all purposes. For the years 1911 and 1912 there is a surplus until the sinking fund requirements are taken into account. In the estimates for 1913 and 1914 a
deficiency occurs after taking into consideration acquisition of property and before including sinking-fund requirements.
z These figures represent the total revenues as shown by the "Combined Statements of Receipts and Disbursements, Balances, etc., of the United States," and by the estimates
of the Secretary of the Treasury, exclusive of receipts on account of the trust funds and other private funds. Receipts on account of trust funds and other private funds are shown
below as a deduction from trust-fund expenditures.
3 These figures represent the total amounts of refunds of revenues as reported in expenditure statements submitted by the several departments, bureaus, and ofEces. Refunds
of revenues should be treated in the accounts as a deduction from gross revenues collected rather than as an expenditure; they are therefore deducted from the aggregate of revenues
as shown in this statement.
*
These figures are derived from the special reports submitted by the departments, bureaus, and ofEces; they are exclusive of the public debt, trust funds, and one-half of the
expenditures of the District of Columbia; they are inaccurate, as explained in the footnotes of budget statement No. 9.
&These figures are derived from the special reports of expenditures received from the several departments, bureaus, and ofEces. If accurately stated they represent the amounts
of expenditures incurred by executive departments payable out of revenues of the District of Columbia; they are deducted from the total current expenses in order to arrive at the
amount of current expenses exclusive of public debt, trust funds, and the District of Columbia.
s These figures are intended to represent the current operating surplus for the year or the amount by which the general revenues exceed the current General Government
expenses and axed charges (exclusive of public debt).
? These figures are derived from the special reports submitted by the departments, bureaus, and ofEces; they are exclusive of the expenditures on account of the trust funds
and the direct expenditures on account of the District of Columbia.
s These figures are derived from the special reports of expenditures received from the departments, bureaus, and ofEces; they represent the amounts of expenditures by execu
tive departments for the acquisition of property payable from revenues of the District of Columbia; they are deducted from the total amount of expenditures for the acquisition
of property in order to arrive at the amounts expended exclusive of trust funds and the District of Columbia.
s This excess of general revenues over current expenses, fixed charges, and capital outlays is subject to an adjustment, owing to the fact that certain expenditures were reported
by the departments, bureaus, and oRices without designation in accordance with the classification requested. In order to arrive at the correct excess these unclassified expenditures
must be deducted.
Excess of total expenditures (exclusive of unclassified) over general revenues (exclusive of public debt and trust funds).
H These figures were derived from the special reports of departments, bureaus, and offices; they represent amounts which were reported without designation in accordance
with the classification requested.
M These figures represent the current General Government surplus for the year—that is, the excess of general revenues over current expenses, fixed charges, and capital outlays,
exclusive of public debt and trust funds.
& Excess of total expenditures over general revenues (exclusive of public debt and trust funds).
Ci
Co
BUDGET STATEMENT NO. 3—Continued.
o/ ope7*a^o7^—^Aotpwty ^
gTpgT^i^rgsybr
CTMf ezpeTMKtnrgs o/ ^
a^d iPi^, to^A ^ regt^imy aytTntaZ
Oi
^or
or
1914
a^c?
—Continued.
1913
^
1912
1911
BUDGET
TRANSACTIONS RELATING TO PUBLIC DEBT AND TRUSTS.
Principal of public debt:
Receipts from the sale of bonds—
$18,102,170.04
33,648,384.15
23,357,885.04
60,175,534.19
5,255,715.00
Total proceeds of bond sales and excess of national-bank notes—receipts over redemptions...........
$60,650,000.00
8,449,346.50
60,171,049.36
Total public debt redemptions and requirements......................................................................................
60,685,000.00
60,650,000.00
68,620,395.86
60,175,534.19
Excess of public debt redemptions and requirements over receipts.................................................................
60,685,000.00
60,650,000.00
34,972,011.71
36,817,649.15
Excess of total expenditures (exclusive of trust funds) over general revenues and borrowings *.......................
139,569,577.27
116,669,272.92
30,863,482.13
9,537,471.05
Trust-fund and other private fund expenditures*........................................................................................................
Add: Expenditures by executive departments payable from revenues of the District of Columbia*............
14,506,608.80
583,795.00
11,933,888.60
502,201.90
18,531,043.76
419,728.12
17,419,847.82
417,003.83
Total trust funds and other private-fund expenditures".......... ...............................................................
Deduct receipts on account of trust funds (see budget statement No. 5)?..............................................................
15,090,403.80
10,867,000.00
12,436,090.50
10,867,000.00
18,950,771.88
11,379,308.94
17,836,851.65
11,954,237.49
Excess of trust-fund expenditures over trust-fund receipts*......................................................... ...........................
4,223,403.80
1,569,090.50
7,571,462.94
5,882,614.16
Excess of expenditures over revenues (see budget statement No. 4)s.....................................................................
143,792,981.07
118,238,363.42
38,434,945.07
15,420,085.21
82,707,981.07
5$,954,859.11
22,405,920.82
45,422,045.27
TO CONGRESS.
$60,685,000.00
National bank-note fund—excess of redemptions over receipts i........................................................................
FOR 1914 SUBMITTED
$33,189,104.15
459,280.00
CONDITIONS AND OPERATING
RESULTS,
FINANCIAL
1 These figures are derived from the annual reports of the Secretary of the Treasury.
2 These figures, for 1911 and 1912, are derived from the annual reports of the Secretary of the Treasury, and, for 1913 and 1914, from the Book of Estimates.
3 These figures represent the general deficit for the year—that is, the excess of the total expenditures over the total revenues, exclusive of trust funds.
* These figures were derived from the special reports received from the departments, bureaus, and offices.
5
These figures were derived from the special reports received from the departments, bureaus, and offices; they are the aggregates of the deductions made from current expenses
and acquisition of property, shown above.
^ These figures represent the total amounts expended on account of trust funds, and other private funds as reported by the departments, bureaus, and ofHces; they include
one-half of the District of Columbia expenditures.
? These figures were derived from the "Combined Statement of Receipts and Disbursements, Balances, etc., of the United States." Those shown for 1913 and 1914 are esti
mated, the estimate being arrived at by dividing the estimate of the Secretary of the Treasury for "Miscellaneous receipts" on the basis of the proportion of trust-fund receipts to
the total miscellaneous receipts in 1912.
s These figures represent the extent to which trust-fund obligations are to be met with general-fund revenues.
9 These figures represent the deficit for the year or the excess of all expenditures as reported by the departments, bureaus, and offices over all revenues and receipts as shown
by the "Combined Statement of Receipts and Disbursements, Balances, etc., of the United States," in the case of 1911 and 1912; in the case of 1913 and 1914 the figures represent
the results obtained by using the amounts of revenues as estimated by the Secretary of the Treasury and the amounts of expenditures as estimated by the depart ents, bureaus,
and ofRces.
Oi
Cn
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
56
BUDGET
S T A T E M E N T N O . 4 .i
Treasury s%rp%Ms accot t ^—
o/ * Jim e ^ 0,
,%?,
Jt^T^
Jime <?(?,
1911.
Deceit, July 1,1910 ^........................................................................................................................... $547,483,361.76
Net revenues for fiscal year 1910-11 *...................................................................$915,983,134.19
Expenditures:
Current expenses and Axed charges *.............................. $738,040,826.28
Acquisition of property *.................................................... 134,241,436.40
Principal of public debt—excess of redemptions and re
quirements over receipts *..................................... .........
36,8*17,649.15
UnclassiRed *.........................................................................
16,420,693.41
Net trust-fund and other private-fund expenditures *.
5,882,614.16
------------------------ 931,403,219.40
Excess of expenditures over revenues *..........................................................................
15,420,085.21
Deficit, June 30,1911 (see budget statement No. 1) $....................................................................
562,903,446.97
1912.
Net revenues for fiscal year 1911-12 s.................................................................... 916,540,894.97
Expenditures:
Current expenses and Axed charges *.............................. 741,925,915.60
Acquisition of property *.......................................... ......... 153,137,418.88
Principal of public debt—excess of redemptions and
requirements over receipts * ...........................................
34,972,011.71
Unclassified <.........................................................................
17,369,030.91
Net trust-fund and other private-fund expenditures *..
7,571,462.94
------------------------ 954,975,840.04
Excess of expenditures over revenues *..........................................................................
38,434,945.07
Deficit, June 30,1912 (see budget statement No. 1 )',...................................................................
601,338,392.04
i Budget statement No. 4 is intended to set forth a comparative surplus account for the fiscal years 1911,
1912,1913, and 1914. The figures shown under the years 1911 and 1912 represent actual transactions as
far as known through annual and special reports. The figures for 1913 and 1914 represent the results of
estimates of transactions as shown by annual and special reports.
a This figure is arrived at by deducting the excess of expenditures over revenues of the fiscal year 1911
from the general-fund deficit at the close of business June 30,1911, as shown by budget statement No. 1.
a These figures are derived from budget statement No. 3. They are based on the "Combined Statement
of Receipts and Disbursements, Balances, etc., of the United States," prepared by the Division of Book
keeping and Warrants of the Treasury Department, and are net of the amounts of refunds as shown by
special reports received from the departments, bureaus, and offices.
* These figures are derived from budget statement No. 3; with the exception of the public debt they are
based on special reports received from departments, bureaus, and ofBces. The public-debt figures are
derived from the annual reports of the Secretary of the Treasury.
^ This figure is derived from budget statement No. 1. The general-fund surplus or deficit arrived at
in this statement should agree with the general-fund surplus or deficit arrived at in the current balance
sheet (budget statement No. 1). Owing to the fact that revenues and expenditures, and assets and lia
bilities are not set up on a consistent basis the surplus figures arrived at in the balance sheet and in the
surplus account do not agree and can not be reconciled.
6 This figure is $1,817,353.05 less than the general-fund deficit as of the close of business June 30,1912, as
shown in budget statement No. 1. This difference results from an accumulation of errors and omissions
in reporting assets, liabilities, and expenditures, but is not to be considered the measure of the inaccuracy
of the figures on which it is based since it is arrived at by a comparison of two balances^one of which includes
an element that is lacking in the other—namely, the cash in the hands of fiscal onicers. This cash bal
ance is included in the deficit of June 30,1912, as shown by budget statement No. 1, while the deficit
of June 30,1911, does not include a similar balance. The general cash deficit as of June 30,1911, is the start
ing point of the calculations that result in the general-fund deficit as shown in budget statement No. 4,
which is compared with the general cash deficit as of June 30,1912 in budget statement No. 1 in order to
arrive at the difference of $1,817,353.05 referred to above. In order to arrive at the difference that would
more nearly represent the extent of the inaccuracy of the figures presented $6,694,028.64 (the amount of
cash in the hands of disbursing oRicers at the close of business June 30,1912, as shown by budget statement
FINANCIAL CONDITIONS AND OPERATING RESULTS.
57
1913 (estimated).
$950,395,480.12
Net revenues for fiscal year 1912-13 ?.
Expenditures:
Current expenses and fixed charges *.............................. $779,490,722.97
Acquisition of property *................................................... 199,485,695.66
60,650,000.00
Principal of public debt—sinking-fund requirements
Unclassified *........................................................................
27,438,334.41
1,569,090.50
Net trust-fund and other private-fund expenditures *..
1,068,633.843.54
$118,238,363.42
Excess of expenditures over revenues 4
Deficit, June 30,1913 s...............................................
719,576,755.46
1914 (estimated).
Net revenues for fiscal year 1913-14 ?.
Expenditures:
Current expenses ana Axed charges *..............................
Acquisition of property *...................................................
Principal of public debt—sinking-fund requirements i.
Unclassified *........................................................................
Net trust-fund and other private-fund expenditures 4..
Excess of expenditures over revenues 4
Deficit, June 30,1914 a...............................................
970,471,000.00
820,688,599.73
190,055,993.25
60,685,000.00
38,610,984.29
4,223,403.80
-1,114,263,981.07
143,792,981.07
863,369,736.53
No. 1) should be added to $1,817,353.05, making $8,511,381.69. If accounts were kept that were complete
and accurate and reports of assets and liabilities, revenues and expenditures were accurately prepared
from such accounts, the surplus arrived at in the balance sheet and that arrived at in the surplus account
should agree, but under the present methods of accounting in the Government service it & impossible
to arrive at surplus figures in a balance sheet and in a surplus account that will agree or that can be recon
ciled. This is due to the following reasons:
1. Revenues are taken up by executive departments on one basis and by the Treasury Depart
ment on another.
2. Expenditures are incorrectly and incompletely reported by executive departments and there
is no consistent basis or theory upon which expenditures are recorded; that is, they are accounted
for by the Treasury Department on the basis of advances to disbursing officers and bv depart
ments on the basis of actual cash disbursements, of audited disbursements, of liabilities incurred,
or of encumbrances set up, as the case may be. Furthermore, expenditures are not recorded by
the Treasury Department and by executive departments in accordance with a standard classifi
cation. For example, in many instances expenditures on account of trust and private funds are
shown by the Division of Bookkeeping and Warrants as a portion of the total expenditures of the
department under whose authority such expenditures were made, while the departments in some
cases entirely omit such expenditures.
*
3. Accounts setting forth current assets are not kept by each department as a whole except in a
few cases, so that it is impossible, except by obtaining reports from the Reid, to ascertain the total
amount of current assets.
4. Accounts of current liabilities are with few exceptions not kept at all, and in the cases in which
they are kept they are generally incomplete. It is therefore impossible to ascertain the total amount
of outstanding current liabilities.
Under such conditions as these when there is no consistent basis of accounting and a most uncertain rela
tionship between revenues and expenditures, assets and liabilities, it is impossible to prepare a statement
for the Government as a whole, or even for a department as a whole, that presents complete and accurate
information.
It may be said that one of the tests of an effective and accurate system of accounting is the preparation
of statements of condition and of operation that are consistent and. in agreement. The fact that budget
statement No. 4, which represents a comparative surplus account as far as the facts couldbe ascertained^
disagrees with budget statement No. 1, which represents the condition of the current assets and liabilities
to the extent of $8,511,381.69, should be sufficient proof of the inaccuracy and incompleteness of the account
ing records throughout the Government service.
i These figures are based on the estimates of the Secretary of the Treasury.
s These figures represent, respectively, estimated deficits as of the close of business June 30,1913, and
June 30, 1914. A comparison of the four deficits presented, namely, as of the close of business June 30,
1911,1912,1913, and 1914, will show a steady increase, the deRcit of 1914 being approximately $300,000,000
in excess of the deficit at the close of business June 30, 1911. It is known that the figures representing the
deficit of June 30, 1911, are incorrect and incomplete, and therefore the figure can not be relied on; but,
basing conclusions on such information as is available, it appears that if the estimates for 1913 and 1914 are
made with any degree of accuracy, and expenditures are made substantially in accordance with thes&
estimates, the Government is running into debt to the extent of over $40,000,000 a year and failing to
provide for present debt (as required by law) to the extent of $60,000,000 a year.
SUMMARIES OF ESTIMATES.
59
Summaries of Estimates.
General note.......................................................................................................
Budget statement No. 5. Comparative statement of revenues for the fiscal
years 1910, 1911, and 1912, classified by sources and statutory authorities,
with the estimates of the Secretary of the Treasury for 1913 and 1 9 1 4......
Budget statement No. 6. Comparative statement of revenues for the fiscal
years 1911 and 1912, classified by organization units............ ......... .............
Budget statement No. 7. Comparative summary of estimated and actual
expenditures of Government funds, classified by organization units.__ . . . . .
Budget statement No. 8. Comparative summary of estimated and actual
expenditures of Government funds, classified by functions..... .............. .
Budget statement No. 9. Summary of estimated and actual expenditures of
Government funds, by character of expenditures.................................. . .......
Budget statement No. 10. Comparative summary of estimated and actual
expenditures of Government funds, classified by acts of appropriation.. . . .
Budget statement No. 11. Summary of estimated and actual expenditures
of trust and private funds, classified by organization units and by acts of
appropriation.................................... ............................................................ .
Budget statement No. 12. Comparative analysis of estimated and actual
expenditures of Government funds for each organization unit, classified by
acts of appropriation..................................... .......................... .......................
Budget statement No. 13. Comparative analysis of estimated and actual
expenditures of Government funds for each organization unit, classified by
functions................. ................................................ .......................... ..........
Budget statement No. 14. Comparative analysis of estimated and actual
expenditures of Government funds for each organization unit, classified by
character of expenditure....................... ......... ......................................... .
Budget statement No. 15. Comparative analysis of estimated and actual
expenditures of Government funds for each function, classified by organi
zation units......................................................................................... ............
Budget statement No. 16. Summary of results of governmental contracting
and purchasing relations.................................................................................
60
61
62
74
75
77
81
83
84
85
91
96
107
113
GENERAL NOTE.
The summaries of estimates which follow would serve as a cross index to the data
of revenues and expenditures if the details were set forth in the Book of Estimates
and financial reports in such manner as to support these summaries. On the revenue
side the purpose has been to provide, in summary form, an index to revenues, classified
according to the legal authorities under which revenues are raised, in order that
ofRcers may consider what will be the result of any change in law. A second analysis
has been prepared by organization units in order that ofRcers may have an index to
the relation of the revenues to the expenditures of such services as are assumed to be
on a self-supporting basis.
As many summaries of expenditures have been made as there are questions of gen
eral policy to be answered. Assuming that the Book of Estimates and the depart
mental reports are prepared in such form as to support the summaries of estimates,
and that the departmental reports in this form were produced from the accounts, any
Member of Congress or other person would be able to see in perspective through the
summaries any subject in which he might be interested; he would be able to obtain
any further information desired, and in any detail, by turning to the supporting docu
ments, to which referencelwould be made. Under present circumstances this can
not be done.
It was contemplated that reports showing in detail the current assets and liabilities#
thegactual and estimated receipts and expeditures, the condition of the funds, the
appropriations needed, etc., would be prepared and submitted as an appendix which
would serve as a guide for the future. The information needed for these reports, how
ever, did not come to the Executive OfRce until it was too late to put it in form for
the printer. It may be submitted later as a basis for constructive recommendations.
As a means for showing results of expenditure in terms of what the Government has
bought and how much it has paid for things purchased, effort was made to obtain a
classification of expenditures by objects. While a considerable portion of the data
needed was obtained, the reports were so incomplete that a summary statement could
not be prepared. A classification of this kind which was prepared from estimates
for the fiscal year 1912 is, therefore, included as statement No. 16. Its purpose is to
show the general character of the purchasing and contracting problem, rather than to
lay the foundation for judgment or for concrete inquiry into the transactions of the
current or last fiscal year. If, however, the summary had been prepared from sim
ilar departmental statements, contained in a consolidated financial report for the Gov
ernment, and this consolidated report had been supported by departmental expendi
ture reports, the summary could be used as an index through which Members of Con
gress or executive ofRcers could go into every purchasing relation and determine what
things have been bought, what prices have been paid, and whether things purchased
were adapted to the uses for which they had been requisitioned. The importance
of such a summary and index may be understood when it is known that there have
been over 100 special investigations by Congress in which the subject of immediate
interest has been contracts and purchases; furthermore, there are standing committees
on expenditures whose duty it is to inquire into questions of economy of purchase.
61
B U D G ET S T A T E M EN T NO. 5.
Comparative g&%enM7t% o/regim esybr
^sca^ years 2<M0, ^9^2, a?^
, c&zgst/M &y so^rc^s and s^a^^ory at^Aor^ies, t^itA ^
o/*^ Trea^izry/or
o / ^Ae Secretary
and 29i^.
03
bO
CUSTOMS.
References to statutes.
Estimated for
1914.
Estimated for
Estimated for
1913, Secretary's 1913, Secretary's
report, Decem report, Decem
ber, 1912.
ber, 1911.
$328,000,000
1911
1910
$12,239,742
11.156.221
$12,563,788
12,669,182
$11,072,239
12,467,509
17.346.221
3,042,834
50,951,199
18,869,321
2,959,669
52,809,371
22,333,344
3,184,697
53,105,357
25,571,508
26,159,615
24,124,239
34,146,071
28,744,295
25,160,516
17,409,815
17,298,858
18,113,512
11,085,150
49,062,348
12,325,584
47,053,000
13,619,191
49,735,027
27,072,116
13,695,239
4,886,671
26,931,900
28,982,553
16,053,261
5,645,302
27,448,145
41,904,850
17,023,622
5,285,103
29,133,887
309,581,944
326,263,093
$149,933,654.53
$148,587,728.31
$141,990,229.46
70,590,151.60
67,005,950.56
58,118;457.03
$300,000,000
INTERNAL REVENUE.
Distilled spirits.
Tobacco.
Sec. 3309, R. S., as amended by
act of Mar. 1,1879,20 Stat., 327.
Act of Aug. 28,1894,28 Stat., 563.
Act of May 28,1880,21 Stat., 145.
Act of June 7,1906,34 Stat., 215.
Act of Feb. 15,1909,35 Stat., 594.
Sec. 3371. R. S., as amended by
act of Mar. 1,1879,20 Stat., 327.
Act of Apr. 12,1902,32 Stat., 96.
Act of Aug. 5, 1909,36 Stat., 84.
TO CONGRESS.
$325,000,000
Total (see budget statement No. 3)
1912
FOR 1914 SUBMITTED
Schedule A. Chemicals, oils, and paints. 36 Stats., 11.
Schedule B. Earths, earthenware, and ....... do...........
glassware.
.do.
Schedule C. Metals, and manufactures of
.do.
Schedule D. Wood, and manufactures of
.do.
Schedule E. Sugar, molasses, and man
ufactures of.
.do.
Schedule F. Tobacco, and manufac
tures of.
.do.
Schedule G. Agricultural products and
provisions.
.do.
Schedule H. Spirits, wines, and other
beverages.
.do.
Schedule I. Cotton manufactures...........
.do.
Schedule J. Flax, hemp, and jute, and
manufactures of.
.do.
Schedule K. Wool, and manufactures of.
.do.
Schedule L. Silks and silk goods.............
.do.
Schedule M. Pulp, papers, and books...
.do.
Schedule N. Sundnes................................
Actual revenue realized during—
BUDGET
Sources of revenue.
Fermented liquors......... .
Excise tax on corporations
Special taxes.........................
Oleomargarine........................
Playing cards.........................
Process or renovated butter.
Adulterated butter...............
Mixed flour.............................
Total (see budget statement No. 3)
$328,000,000.00
$326,000,000.00
$315,000,000.00
59,485,116.83
20,959,783.74
7,560,681.64
633,435.89
571,158.75
689,856.42
616,233.60
117,544.50
9,051.60
2,986.25
581,640.78
99,685.01
23,049.10
2,477.14
565,524.34
119,213.06
15,660.70
2,807.30
330.31
856,407.83
597,416.58
2,341.58
434,705.95
11,464.18
28,315.30
174.85
12,667.27
^321,615,894.69 ^ 322,525,299.73
OF ESTIMATES,
Banks, bankers, etc.................................
Collections not otherwise provided for *
63,216,851.24
33,511,525.00
8,299,501.96
SUMMARIES
Filled cheese...........................
Penalties..................................
108,633.39
583,259.81
152,741.20
Act of Apr. 12,1902,32 Stat., 96.
Act of Aug. 5,1909,36 Stat., 112.
Sec. 3244 R. S., as amended by
act of Mar. 1,1879,20 Stat., 327,
as amended by act of June 13,
1898, 30 Stat., 467.
Act of June 13,1898,30 Stat., 467,
as amended by act of Apr. 12,
1902, 32 Stat., 96.
Act of Aug. 2,1886,24 Stat., 212.
Act of May 9, 1902, 32 Stat., 193.
Act of Aug. 28,1894,28 Stat., 562.
Act of May 9,1902,32 Stat., 96...
Act of May 9, 1902, 32 Stat., 96...
Act of June 13,1898,30 Stat., 467,
as amended by act of Apr. 12,
1902, 32 Stat., 96.
Act of June 6,1896,29 Stat., 253..
Act of Aug. 2,1886,24 Stat., 212.
Act of Mar. 1,1879, 20 Stat., 327.
Act of June 13,1898,30 Stat., 467.
Act of May 9,1902,32 Stat., 193.
Act of June 7,1906,34 Stat., 215.
Act of Aug. 28,1894,28 Stat., 509.
Sec. 3408 R. S .................................
Secs. 3187,3192,3450, 3454,3460
R. S.
Act approved May 27, 1908, 35
Stat.,325.
Sec. 3240, as amended by act of
June 21,1906,34 Stat., 387.
Sec. 13, R. S.
Sec. 3208, as amended by sec. 3,
act of Mar. 1,1879,20 Stat., 327.
*
These figures were supplied by the Bureau of Foreign and Domestic Commerce, Department of Commerce and Labor; it will be noted that they differ in considerable
amount from budget statement No. 3, which presents figures derived from the annual reports of the Secretary of the Treasury, based on covering warrants.
2
Further analysis showing the sources of internal-revenue receipts under the head of "Collections not otherwise provided for," was not possible, as the records do not show
amounts collected under each statute; but the principal sources were as follows:
1. Seizure and distraint sales.
2. Proceeds of sale of old material.
3. Fees from certification of names of special taxpayers.
4. Collections made under repealed laws, as "Legacies and distributive shares of personal property," etc.
5. Sales of real estate.
s These figures are derived from the annual reports of the Commissioner of Internal Revenue, which are based on reports of collectors and agree with Table M of the annual reports
of the Secretary of the Treasury. It will be noted that these figures agree approximately with those presented in budget statement No. 3, which are in accordance with those of
the Division of Bookkeeping and Warrants, and therefore are based on covering warrants.
<
3>
CO
B U D G E T S T A T E M E N T g l^ O .
Co7H,pafa%MM
q/*r6V6^6^^or ^
6
ygarg
5—Continued.
.?9^?, cZcM^^d?
o/ ^
Trgasw/ybr
a^d s%a%n,%or?/ a^^Aori^,
o/ ^
—Continued.
PUBLIC LANDS.
References to statutes.
Estimated for
1914.
Estimated for
Estimated for
1913, Secretary's 1913, Secretary's
report, Decem report, Decem
ber,1912.
b er,1911.
$2,791,897,14
$3,033,080.83
$2,973,524.94
659,172.77
634,673.18
600,538.39
436.186.04
476,745.07
561,871.16
259.538.05
430,767.58
280,596.52
384,024.90
295,239.47
772,325.41
831,911.68
827,402.60
1,047,333.20
82,518.00
$5,250,000.00
$5,250,000.00
$5,000,000.00
4,787.87
3,629.16
19,611.78
35,166.57
2,985.05
26,500.67
14,243.68
44,313.58
33,354.92
5,437,502.07
5,783,693.39
6,342,744.75
TO CONGRESS.
MM
SUBMITTED
Total (see budget statement No. 3)*
MU
1914
Secs. 2289 to 2317, R . S., in
clusive, as amended by act of
Mar. 4, 1904, 33 Stat., 59.
Actof Fob. 19,1909,35 Stat., 639.
Act of May 3, 1891,26 Stat. 1095.
Sec. 2455, JR. S., as amended by
act of June 27, 1906, 34 Stat.,
517.
Sales of timber and stone lands............... Act of Mar. 3,1891,26 Stat., 1095.
Act of June 3,1878,20 Stat., 89.
Sales of mineral lands................................ Secs. 2318 to 2346, R . S., inclusive
Sales of coal lands....................................... Secs. 2347 to 2351, R . S., inclusive
Act of June 6,1900,31 Stat., 658.
Sales of desert lands................................... Act of Mar. 3, 1877, 19 Stat., 377,
as amended by act of Mar. 3,
1891, 26 Stat., 1095.
Sales of lots, Hot Springs Reservation .. Act of M*r 3,1877,19 Stat., 377
Act of June 30,1906,34 Stat., 724.
See .also act of Mar. 3, 1891,
26 Stat., 842.
Sales of abandoned military reservations
Sales subject to preemption entry...........
Excess payments on homestead and
other entries.
MM
FOR
Homestead entry.........................................
Actual revenue realized during—
BUDGET
Sources of revenue.
POSTAL.
H. Doc. 143b, 6!
Postage.
4,645,664.
33,122.
55,201.
71,709.
4,843,364.
478,314.
$260,938,000.00
$260,938,463.00
4,406,843.
32,854.
67,542.
95,726.
4,792,453.
479,813.
$215,025,943.39
4,139,375.56
30,785.56
62,419.14
80,012.97
4,046,932.55
743,188.45
237,879,823.60
224,128,657.62
$116,454.
$108,923.25
$103,882.40
1,700,876.
1,634,342.30
1,629,573.24
533,535.52
M ISCELLANEOUS.
Sec. 4958, R. S., as amended by
act of Mar. 4, 1909, 35 Stat.,
1085.
Sec. 12, act of Mar. 1, 1855, 10
Consular fees..
Stat., 623, 624.
Sec. 16, act of Aug. 18, 1856, 11
Stat., 57.
Sec. 1745, R. S.
Chinese indemnity...................................... Act of Feb. 27,1896, 29 Stat.,32,
protocol of Sept. 7, 1901.
Reimbursement from deposits of na :Act of June 20,1874,18 Stat., 124.
Act of Mar. 3,1875, IS Star., 399.
tional banks.
Profits on coinage of subsidiary silver... Sec. 3552, R. S...........................
Sec. 3526, R. S.
Act of July 22,1876,19 Stat., 215.
Copyright fees.
105,081.
533.473.49
443,380.
434,445.85
396,390.40
4,418,192.
1,921,300.24
2,392,557.74
i These figures were taken from the annual reports of the Commissioner of the General Land Office. An analysis of receipts from public lands in this form is not available in
the books of the Treasury Department. It will be noted that these figures agree approximately with those presented in budget statement No. 3, which were derived from the annual
reports of the Secretary of the Treasury and are based on covering warrants.
ESTIMATES.
246,744,015.
OF
Total (see budget statement No. 3 ) ............................................................ $282,000,000.00
8,004,589.67
SUMMARIES
Box rents .................................................
Receipts from unclaimed dead letters.
Fines and penalties.................................
Miscellaneous............................................
Money-order business.............................
Invalid money orders.............................
$236,616,638.56
Secs. 398, 3872, 3878, 3897, 3900,
3903,3904,3905,3907,3908,3912,
3913,3915,3916,3918,3919,3927,
3935,3937,4015,4049,4051, R. 8.
Acts of June 23,1874,1 Supp., 45;
July 12,1876,1 Supp., 110; Mar.
3,1879,20 S., 355; June 11,1880,
1 Supp., 296; June 9,1884,23 S.,
40; Mar. 3,1885,23 S., 385; Aug.
4, 1886, 1 Supp., 511; July 24,
1888, 25 S., 347; Mar. 2,1899, 2
Supp., 965; Mar. 3,1903,32 S.,
1176; Apr. 28, 1904, 33 S., 440;
June 26, 1906, 34 S., 476; May
12, 1910, 36 S., 366.
Secs. 3901, 4049, 4051, 4052, R. S ..
Secs. 4049, 4050, R. S ....................
Secs. 4049, 4050, 4059, R. S...........
Secs. 4049, 4050, R. S ....................
Secs. 4049, 4050, R. S ....................
Act of Jan. 27,1894, 28 S., 32.......
03
on
7
3
O
BH D C H T S T A T E M E N T y o . ^ -C o n tin u e d .
Cbwp(xra^t^ s%a%6HM%%o / y b r
^./5sca%
^9^0,
a??J
o / ^ Trgo^Mn/ybr
&y
a7M? aM^Aor i ^g,
^ 6^^7na^ o / ^ ^cr^^ary
MISCELLANEOUS— co n tin u ed .
Circulation of national banks...................
Sales of ordnance material (war)...........
Unexpended receipts of United States
telegraph lines.
Soldiers' Home permanent fund............
Pay of the Army, deposit fund................
Panama Canal..............................................
1912
1911
1910
S3C. 3528, R S...............................
Sec. 3552, R. S.
Act of Apr. 24,190", 34 Stat., 132.
Sec. 6214, R. S., as amended by
sec. 1 of act of Mar. 3, 1883, 22
St?t.,488.
Act of Mar. 14,1900,31 Stat., 45.
Act of Mav 30,1908,35 Stat., 552
Act of Feb. 13,1911,36 Stat., 901
Act of Mar. 4,1907,34 Stat., 1315.
Act ot Feb. 13,1911,36 Stat., 901
$2,476,561.82
$3,246,384.63
$!,650,000.00
3,637,008.78
3,503,502.48
3,333,011.03
40,675.01
245,412.69
42,619.61
346,880.43
117,353.52
344,200.97
234,084.84
23,591.30
Sec. 3077, R . S., act of Mar. 4,1907,
34 Stat., 1315.
Collections covered in under the
provisions of sec. 3617, R. S.
Act of June 11,1878,20 Stat., 102108.
Act of Feb. 25,1885,23 Stat., 316,
317.
Act of Aug. 7, 1894,28 Stat., 247.
Act of June 11,1896,29 Stat., 411.
Act of Mar. 3,1901,31 Stat., 1251.
Act of Apr. 27,1904, 33 Stat., 368.
Act of May 26,1908, 35 Stat., 306.
Act of Mar. 3, 1875,18 Stat., 388
Act of Mar. 3, 1883, 22 Stat., 616
1,069,376.58
3,148,557.82
307,395.31
204,342.59
207,883.62
' 123,941.38
8,483,690.71
7,626,006.77
7,409,693.33
135,384.39
184,113.58
111,078.00
190,037.26
113,811.24
194,179.78
446,597.88
627,212.88
811,162.50
1,869,401.54
1,251,610.00
2,070,841.53
819,845.79
1,859,888.94
3 2,529,496.61
Sec. 4818, R . S ............................ .
Sec. 4819 R . S., as amended by
acts of June 12,1906, 34 Stat.,
242, and May 11,1908, 35 Stat.,
110.
Act of Mar. 3,1883, 22 Stat., 565.
Act of June 12,1906,34 Stat., 246
TO CONGRESS.
District of Columbia...................................
Actual revenue realized during—
SUBMITTED
Rent of public buildings and grounds..
Estimated for
Estimated for
1913, Secretary's 1913, Secretary's
report, Decem report, Decem
ber, 1912.
ber, 1911.
1914
Interest on public deposits.......................
Services of United States customs oiBcers.
Night services of United States customs
ofBcers.
Customs Hues, penalties, and forfeitures.
Estimated for
1914.
FOB
Profits on minor coinace............................
References to statutes.
BUDGET
Sources of revenue.
Irrigation—Flathead Indians.
Surveying
Indians.
and
allotting—Flathead
Irrigation—Uintah and White River
Indians*
Act of May 29,1908,35 Stat., 455,
456.
Act of June 25,1910,39 Stat., 862.
Act of Apr. 23,1904,33 Stat., 305
Act of Mar. 3,1905,33 Stat., 1080,
A c t ^ ^ p r . ^ lc S ,^ S t a t ., 305
Act of Mar. 3,1905,33 Stat., 1080,
and amendatory acts.
Act of May 27,1902,32 Stat., 263,
800,959.43
89,347.89
899,699.73
70,488.27
689,953.24
164,671.05
208,569.31
457,003.92
439,168.60
636,419.00
148,922.20
2,076,399.85
140,379.00
1,976,064.21
141,917.00
2,019,541.28
1,214,922.07
161,070.71
71,606.98
1,477,401.27
220,393.98
110,175.68
2,049,642.19
262,696.60
121,674.64
3,079,440.57
3,083,421.90
1,324,213.10
89,039.00
1,771,144.93
139,550.59
2,196,036.63
567,921.13
127,428.07
175,057.85
321,886.28
Act of Mar. X, 1905,33 Stat., 1069)
107&
Include aM departments
105,789.71
Exclusive of Saie3 bf ptdperty*
139,015.66
ESTIMATES,
Surveying and allotting for Chippewas
in Minnesota.
Act of May 29,1908,35 Stat., 455,
456.
Act of June 25,1910,36 Stat., 862.
Act of Jan. 14,1889,25 Stat., 645
Act of June 27, 1902, 32 Stat.,
1,012,755.28
OF
Relief and civilization of Chippewas in
Minnesota.
Act of May 29,1908,35 Stat., 455,
456.
Act of June 25,1910,36 Stat., 862.
Act of Jan. 14,1889,25 Stat., 645
Act of June 27, 1902, 32 Stat.,
405,144.04
SUMMARIES
Sec. 4808, R. S
Sec. 4809, R. S.
Act. of Mar. 2,1799,1 Stat., 729.
Act of Feb. 26,1811,2 Stat., 650.
Act of June 7,1900,31 Stat., 697.
Act. of Mar. 3,1909,35 Stat., 756.
15 Comp. Dec., 550.
Sales of ordnance material (N avy).......... Act of Mar. 3,1875,18 Stat., 388
Navy fines and forfeitures......................... Act of Mar. 3,1909,35 Stat., 756
15 Comp. Dec., 550.
Pay of the Navy, deposit fund................. Act of Feb. 9,1889,25 Stat., 657
16 Comp. Dec., 566, 811.
Pay of the Marine Corps, deposit fund.. Act of June 29,1906,34 Stat., 579
Fees on letters patent...... ......................... Sec. 4934, R. S., as amended by
act of June 25,1910,36 Stat., 843.
Sec. 4935, R. S.
Act of May 27,1908,35 Stat., 343.
Registers and receivers' fees. . . . . . . . . . . . Sec. 2241, R. S
Depredations on public lands.................. Act of Apr. 30,1878,20 Stat., 46
Deposits for surveying public lands. —
Act (S T 1& 8, 1894,28 Stat., 423.
Indian moneys—proceeds of labor........... Act of Mar. 3,1883,22 Stat., 590
Act of Mar. 2,1888,24 Stat., 463.
Advance interest to Chippewas in Min- Act of Jan. 14,1889,25 Stat., 645
Act of June 27, 1902, 32 Stat.,
sota.
Naval hospital fund.
B U D G E T S T A T E M E N T N O . 5—Continued,
Comparative #%%%?%%% q/* revenues^or ^ ^ s c a J g/ears 1910,
/
and
cJa^^ed
and ^tatt^tory ai^Aori%ieg, toitA tAe egtimate^ o / tAe Secretary
q / tAe Treasury ./or
and ^9^4-
00
MISCELLANEOUS— c o n t i n u e d .
Act of Feb. 20,1895,28 Stat., 678.
Act of Mar. 2,1895,28 Stat., 894Act of July 1,1898, 30 Stat.., 593.
Act of May 27,1902,32 Stat., 263.
Act of July 1, 1902,32 Stat., 655.
Act of Feb.,7,1903,32 Stat,, 803.
Act of Feb. 20,1904,33 Stat. 50.
Act of Apr. 23,1904,33 Stat., 258.
Act of Apr. 27,1904,33 Stat., 323
and 361.
Act of Apr. 21,1904,33 Stat., 224.
Act of Feb. 8,1905,33 Stat., 707.
Act of Mar. 3,1905,33 Stat.. 1016-
1022.
Act of Mar. 19,1906,34 Stat., 78.
Act of Mar. 20,1906,34 Stat., 80.
Act of Apr. 21,1906,34 Stat., 125.
Estimated for
Estimated for
1913, Secretary's 1913, Secretary's
report, Decem report, Decem
ber, 1912.
ber, 1911.
Actual revenue realized during1912
$2,794,607.26
1911
$3,955,458.77
1910
$2,860,198.74
TO CONGRESS.
Act of Sept. 27,1830,7 Stat., 333.
Act of Feb. 21,1863,12 Stat., 659,
660.
Act of Mar. 3,1863,12 Stat., 819.
Act of July 15,1870,16 Stat., 362.
Act of June 23,1874,18 Stat., 283.
Act of May 28,1880,21 Stat., 143.
Act of June 15,1880,21 Stat., 201.
Act of July 3,1882,22 Stat., 149.
Act of Mar, 3,1885,23 Stat., 343.
Act of Sept. 1,1888,25 Stat., 455.
Act of Mar. 2, 1889, 25 Stat., 872
and 1015.
Act of Sept. 30,1890,26 Stat., 552.
Act of Oct. 1,1890,26 Stat., 659.
Act of June 17,1892,27 Stat., 52.
Act of July 1,1892,27 Stat., 63,64.
Act of Mar. 3,1893, 27 Stat., 633,
Estimated for
1914.
FOB 1914 SUBMITTED
Proceeds of sales of Indian lands.
References to statutes.
BUDGET
Sources of revenue.
SUMMARIES
Act of June 5,1906,34 Stat., 21h.
Act of June 21,1906,34 Stat., 335.
Act of June 21,1906,34 Stat., 362.
Act of Juns 21,1906,34 Stat., 377.
Act of June 21,1906,34 Stat., 382.
Act of June 28,1906,34 Stat., 544.
Act of June 28,1906.34 Stat., 550.
Act of Mar. 1,1907,34 Stat., 1032.
Act of Mar. 1,1907,34 Stat., 1039.
Act of Mar. 2,1907,34 Stat., 1231.
Act of Mar. 4,1907,34 Stat., 1412.
Act of Mar. 27, 1908,35 Stat., 49.
Act of Mar. 28,1908,35 Stat., 51.
Act of Apr. 30,1908, 35 Stat., 77.
78.
Act of May 29,1908,35 Stat., 447.
Act of May 29,1908,35 Stat., 458.
Act of May 29,1908,35 Stat., 460.
Act of May 30,1908,35 Stat., 559-
Act of June 17,1910,36 Stat., 533.
Act of Mar. 28,1908,35 Stat., 51..
Act of Mar. 3,1911,36 Stat., 1076,
1077.
470,156.53
386,292.24
ESTIMATES,
Proceeds of sales of! umber—Menominee
Reservation.
OF
Act of Feb. 18,1909,35 Stat., 636.
Act of Mar. 3,1909.35 Stat., 752.
Act of Jan.31,1910,36 Stat., 190.
Act of Feb. 17,1910,36 Stat,, 196.
Act of May 27, 1910,36 Stat,, 440443.
Act of May 30,1910,36 Stat., 448451.
Act of June 1,1910,36 Stat., 455-
<35
B tH B a B T S T A T E M E N T ^ N O . g—Continued.
Compara^ve
/? r ^ y e a r s ^a?0, ^9^^, aTMf
, e&MM/M 5y sources
o/*^ ^as^ry/or ^97^
^
^P^4.
g
%&?
MISCELLANEOUS— con tinu ed.
MM
MU
1910
Secs. 2654, 4185, 4186,4193, R. S.,
as amended by act of June 19,
1886, sec. 1, 24 Stat., 79.
Sec. 4194, R. S.
Sec. 4195, R. S.
Sec. 4381, R . S., as amended by
act of June 19,1886, sec. 1, 24
Stat., 79.
Sec. 4382, R . S., as amended by
act of June 19, 1886, sec. 1, 24
Stat., 79, and act of Mar. 3,
1897, sec. 9, 29 Stat., 689.
Sec. 4458. R . S., as amended by
act of June 26, 1884, sec. 28, 23
Stat., 59; act of June 19, 1886,
sec. 1, 24 Stat., 79; and act of
Mar. 1 7 ,19P6, 34 Stat., 69.
Sec. 4573, R. S.
Sec. 4588, R. S.
Sec. 4612, R. S., as amended by
act of June 19, 1886, sec. 1, 24
Stat.,79.
Act of Mar. 3, 1883, 22 Stat., 566.
*147,784.82
$138,071.74
$134,852.83
Act o ^ p ? 2 ^ 1 9 1 0 * *36 Stat ,326!
Act of Feb. 20,1907,34 Stat., 898,
as amended by act of Mar. 26,
1910,36 Stat., 263.
Act of June 29,1906.34 Stat., 600.
Sec. 995, R . S. (It is questioned
whether this section refers to
"Fees and costs.")
Sec. 3617, R . S.
2 Comp. Dec., 418.
15 Opm. A . Q., 386,
385,862.28
3,322,213.00
403,946.94
3,655,524.00
4^165,*530.* 43
244,442.25
122,119 57
288,034.00
125,804 68
181,529.65
123,538 83
153,375.00
TO CONGRESS.
Actual revenue realized during—
SUBMITTED
Naturalization fees.. .
Judicial fees and costs
Estimated for
Estimated for
1913, Secretary': 1913, Secretary's
report, Decem report, Decem
b er,1911.
ber,1912.
1914
Tax on sealskins........
Sales of sealskins........
Head tax......................
Estimated for
1914.
FOB
Navigation fees.
References to statutes.
BUDGET
Sources of revenue.
Judicial emolument fees
1,044,422.88
527,053.54
452,900.34
101,437.94
102,855.63
2,231.92
225,639.43
2,158,344.99
2,782,028.47
175,490.59
2,018,830.67
1,978,802.73
260,040.26
2,093,005.85
1,664,619.31
3,200,733.22
3,985,847.93
1,724,596.99
100,358.05
$51,750,000.00
$51,750,000.00
10,867,000.00
10,867,000.00
Total miscellaneous receipts ex
clusive of trust funds (see
budget statement No. 3).
40,883,000.00
40,883,000.00
i Includes trust funds.
$47,000,000.00
^47,000,000.00
53,451,796.74
58,614,466.08
11,379,308.94
11,954,237.49
42,072,487.80
46,660,228.59
45,538,953.05
145,538,953.05
OF ESTIMATES,
Total miscellaneous receipts as
per Treasury statement.
Deduct receipts on account of trust
funds (see consolidated financial re
port of the Secretary of the Treasury—
exhibit 1, schedule 14).
142,155.39
108,297.21
SUMMARIES
Sec. 844, R. S .................................
Act of Mar. 3,1883,22 Stat., 603.
Act of May 28,1896,29 Stat., 140.
Act of Mar. 15,1898,30 Stat., 277.
Judicial fines, penalties,and forfeitures.. Sec. 3617,R .S ...............................
15 Comp. Dec., 181.
Sec. 995, R. S .................................
Unclaimed money in registry courts —
Sec. 996, R. S.
Act of Feb. 19,1897,29 Stat., 578.
Act of Mar. 3,1911,36 Stat., 1083.
Alaska fund.................................................. Act of Jan. 27,1905,33 Stat., 616..
Forest reserve fund..................................... Act of Mar. 4,1907,34 Stat., 1270..
Proceeds of sales of Government prop Sec. 3618,R .S ...............................
erty.
Revenues not otherwise accounted for.. The various and varied amounts
received under this caption
are covered in under the pro
visions of sec. 3617, R. S., ex
cept as may be otherwise pro
vided for in any particular act
of law.
Covered in under the provisions
Forfeitures by contractors
of sec. 3617, R. S., except as
may be provided for in any
particular act of law.
-3
B U D G E T S T A T E M E N T N O . 5—Continued.
Compara&we
o
/
y
b
r
^ 6 ^sca^ year^ ^9^(9, i 9 .?.?, and
bO
cJa^^t/^d &y soMrces an d ^^a^^ory a t ^ ^ o r t ^ ,
o/*^ Tr^a^t^ry/or
and .?9J?4.
%Ae 6^ ^ t?n a ^ o / ^ 6 ^cr^^ary
PUBLIC D EB T.
References to statutes.
1912
1911
$33,189,104.15
$18,102,170.04
20,078,365.00
40,232,555.00
$31,674,292.50
58,334,725.04
31,674,292.50
1910
459,280.00
53,726,749.15
SUBMITTED
TO CONGRESS.
Actual revenue realized during—
1914
Total public-debt receipts..............
Estimated for
Estimated for
1913, Secretary's 1913, Secretary's
report, Decem report, Decem
ber, 1912.
ber, 1911.
FOB
Proceeds of sales of Panama Canal bonds Act of June 28,1902,32 Stat., 484
Act of Dec. 21,1905, 34 Stat., 5.
Act of Aug. 5,1909,36 Stat., 117.
Act of Mar. 2,1911,36 Stat^ 1613.
(See budget statement No. 3).
Lawful money deposited to retire na- Act of July 14,1870, 26 Stat., 289.
tional-bank notes.
Proceeds of sales of postal savings bonds. Act of June 25,1910,36 Stat., 817
(See budget statement No. 3).
Estimated for
* 1914.
BUDGET
Sources of revenue.
RECAPITULATION.
Estimated for
1914.
Estimated for
Estimated for
1913, Secretary's 1913, Secretary's
report, Decem report, Decem
ber, 1912 .
ber, 1911.
Actual revenue realized during—
1912
1911
1910
$328,000,000.00
326.000.000.00
5,250,000.00
260.938.000.00
51,750,000.00
$300,000,000.00
315,000,000.00
5,000,000.00
260,938,463.00
47,000,000.00
$304,597,035.00
321,615,894.69
5,437,502.07
246,744,015.88
53,451,796.74
53,726,749.15
$309,581,944.00
322,525,299.73
5,783,693.39
237,879,823.60
58,614,466.08
58,334,725.04
$326,263,093.00
289,957,220.16
6,342,744.75
224,128,657.62
45,538,953.05
31,674,292.50
992,000,000.00
.971,938,000.00
927,938,463.00
985,572,993.53
992,719,951.84
923,904,961.08
6,724,637.22
4,915,127.24
7,420,352.03
ReconcHement with Treasury Combined Statement.
Customs—excess of receipts based on warrants over receipts re
ported by Bureau of Foreign and Domestic Commerce................
Internal—excess of receipts based on warrants over receipts shown
3,901.06
13,052.74
992,297,630.75
997,638,980.14
931,338,365.85
3,695.03
44,705.32
23,700.71
52,056.51
48,400.35
52,056.51
23,700.71
992,249,230.40
997,586,923.63
931,314,665.14
ESTIMATES,
Deduct—
Internal—excess of receipts based on reports of the Commissioner
Public lands—excess of receipts Abased on reports of the Commis
sioner of the General Land Office over receipts based on warrants
OF
PubMc lands—excess of receipts based on warrants over receipts
based on report of the Commissioner of the General Land OfRce
SUMMARIES
Customs
$325,000,000.00
Internal......................................................................................................................... 328.000.000.00
5,250,000.00
Postal............................................................................................................................
282.000.000.00
51,750,000.00
Public debt.................................................................................................................
a?
B U D O E T S T A T E M E N T NO. 6. *
Comparative sta%ewM7t% o /
/o r
jMca% ygarg
^9^^, c%agM/M &y o r y a m -
za^o?i,
Organization units.
Legislative-miscellaneous............................................
Executive—miscellaneous..............................................
State Department—miscellaneous..................................
Treasury Department:
Customs (see budget statement No. 3)............................
Internal (see budget statement No. 3)............................
Miscellaneous..........................................................
Independent bureaus and offices—miscellaneous.............
District of Columbia—miscellaneous...............................
United States receipts from District of Columbia sources.
War Department—miscellaneous...................................
Panama Canal—miscellaneous................. .....................
Navy Department—miscellaneous.................................
Interior Department:
Public lands (see budget statement No. 3)....................
Miscellaneous.........................................................
Department of Agriculture—miscellaneous.....................
Department of Commerce and Labor—miscellaneous......
Department of Justice—miscellaneous............................
Receipts not classified by departments—miscellaneous...
Total.
Add: Difference arising in adjustment of moneys, not cov
ered by warrants in the fiscal year of deposit, in Treas
urer's cash, a net increase of.....................................................
1914
1913
1912
$388,645.07
1911
1,834,324,74
$326,349.53
143.50
^ 2,199,542.61
311,321, 672.22
321,612, 199.66
12,992,
.15
4, 713.00
7,774, 381.09
160, 777.06
1,506, 010.10
2,982, 823.92
1,928, 685.05
314,497,071.24
322,529,200.79
14,181,955.62
3,276.85
7,060,080.10
53,519.00
823,225.10
1,757,284.44
2,417,822.69
5,392, 796.75
4,543, 991.39
2,196, 747.27
4,259, 596.68
1,616, 974.25
6,951.54
5,731,636.88
9,756,948.96
2.055.658.83
4,710,257.87
1.149.152.83
5,178.10
680,523,358.94
689,258,304.94
2 124,202.51
159,832.56
680,399,156.43
689,418,137.50
246,744,015.88
237,879,823.60
Total revenues (see budget statement No. 3).
927,143,172.31
927,297,961.10
Receipts on account of trust funds:
State Department............................................... ...
District of Columbia............... ..............................
War Department......................................................
Navy Department............................................ . . .
Interior Department................................................
1,149,880.22
709,309.62
2,315,999.42
605,926.12
6,598,193.56
319,254.23
,533,926.67
2,698,054.41
579,547.60
7,791,454.58
11,379,308.94
11,954,237.49
32.358.366.00
830,738.15
17.641.634.00
460,536.04
20.078.365.00
459,280.00
40.232.555.00
Total ordinary revenues..
Post Office Department (see budget statement No. 3, also
budget statement No. 5)...........................................................
Total receipts on account of trust funds (see budget
statement No. 3)..............................................................
Public-debt receipts:
Principal of bonds for Panama Canal.............................
Premium on sale of bonds.....................................................
Lawful money deposited to retire national-bank notes
(act of July 14,1890)...........................................................
Postal savings bonds..............................................................
Total public-debt receipts.........
53,726,749.15
58,334,725.04
Total receipts from all sources.
992,249,230.40
997,586,923.63
* The purpose of budget statement No. 6 is to set forth a comparative statement of revenues for the fiscal
years 1911 and 1912, classified by organization units. It was at first intended to extend this comparison to
the years 1913 and 1914, but it was later discovered that estimates in detail by organization units had not
been made and were not available. The figures are in agreement with the "Combined Statement of ReiBeipts and Disbursements, Balances, etc., of the United States/' prepared by the Division of Bookkeeping
and Warrants of the Treasury Department, and in order to conform to the best form of presentation should
also agree with budget statement No. 5. which sets forth the revenues by classes. In the case of customs,
internal, and public-land revenues, budget statements Nos. 5 and 6 do not agree, owing to the fact that in
order to obtain the classification shown in budget statement No. 5, it was necessary to accept theligures
shown by the annual reports of the Commissioner of Internal Revenue, the Commissioner of the General
Land Office, and figures submitted by the Bureau of Foreign and Domestic Commerce, which, the com
mission was informed, are based on actual collections, and therefore disagree with the figures of the Division
of Bookkeeping and Varrants, which are based on covering warrants. The general arrangement and
order of items in budget statement No. 6 is in accordance with the "Combined Statement of Receipts and
Disbursements, Balances, etc., of the United States," with the exception that receipts on account of trust
funds are shown in a separate group instead of under the departments to which they relate.
* Deduction.
74
B U D G E T S T A T E M E N T jN O . 7.
Comparative gttmman/ o / estimated an d actt^aJ e^penditttre^ o / (government /^ n d s c^a^t^ed
oryanifatton 2/n t ^ .
[in the following statement the subtotals precede the items that make them up. For further analyses of the following figures see budget statements 12,13, and 14, and
appendix 1, schedule 6. For reconciliation of etimated expenditures with the Book of Estimates see appendix 1, schedule 5.]
Estimated expenditures for-
Actual expenditures for—
Units of organization.
1914
$10,496,324.77
$10,695,467.64
1,769,716.50
4,895,420.25
1,912,773.72
178.900.00
78,450.00
,815,346.
716,979.
,863,570.
951,757.
78,450.
1,777,868.
4,746,361.
2,511,329.
520,528.
77,256.
251.424.00
849.885.00
30,893.75
238,364.
3,600.
795,863.
32,393.
449.040.00
199,040.00
296,056.66
200,056.66
*250J000.00
85,000.00
5,408,101.00
217.200.00
70.990.00
54.500.00
96.860.00
4,694,611.00
273.940.00
1,054,775,557.02
4,653,372.61
136,306,557.92
199,195,018.28
5,768,097.84
11,000.00
5,234,003.89
224.700.00
71.030.00
45,888.89
93.480.00
4,574,465.00
224.440.00
88,129,221.05
4,559,767.85
144,782,143.83
189,465,657.75
5,141,763.87
$11,063,546.46
1,855,047.93
4,927,493.10
2,223,410.27
861,975.09
83,682.46
237,201.75
223,978.56
797,891.
27,029.
858,066.42
29,892.63
621,484.47
457,803.21
194,137.31
280,128.92
124,390.07
17,459.67
194,762.30
202,706.78
46,742.76
1,116.28
5,368.50
12,475.09
5,119,918.33
202,908.64
67,336.70
62.373.98
92.430.98
4,459,632.12
235,235.91
4,979,750.13
852,788,500.34
4,258,409.41
78,891,994.47
155,132,061.86
5,120,348.98
179,632.82
73,462.68
35,804.18
87,651.23
4,292,253.74
310,945.48
831,387,482.49
4,478,977.28
76,036,402.11
153,973,874.53
4,947,704.92
1 With the exception of a small part cf the appropriation for 1913 that was not allotted, the estimates and expenditures of the Government Printing OfRce have been charged .0
the several branches of the Government service for which the work was done, Or for which it is estimated that work will be done under actua lor proposed allotments
2 An appropriation of $100,000 was granted for 1913, but no estimate of expenditures was submitted.
ESTIMATES,
Supreme Court..............................................................................................................................................
Court of Customs Appeals..........................................................................................................................
Commerce Court.................................................................... ......................................................................
Court of Claims.............................................................................................................................................
Circuit courts of appeals, circuit, district, and Territorial courts.....................................................
District of Columbia courts (including amounts payable from District of Columbia revenues).
Executive departments...................................................................................................................................
State.
Treasury........................................................................................... ........................
War (including amounts payable from District of Columbia revenues)___
Justice (including amounts payable from District of Columbia revenues).
$9,967,463.22
1911
OF
The President (including Executive boards and commissions).............................................................................
The Executive OfRce........................................................ ........................................................................................
The Tariff Board.........................................................................................................................................................
Commission on Economy and Efficiency..............................................................................................................
Commission to Investigate Cost pf Transporting and Handling Second-Class Mail...................................
Commission to Investigate Questions Pertaining to Issuance of Stocks and Bonds by Railroad Cor
porations.......................................................................................................................................................... ......
Commission on Industrial Relations 2 ...................................................................................................................
The judiciary.......................................................................................................................................................
1912
SUMMARIES
The Congress......................................................................................................
Senate, including Vice President..........................................................
House of Representatives........................................................................
Joint committees and commissions and joint legislative expenses.
Office of Superintendent of Capitol Building and Grounds^.........
Capitol police..............................................................................................
Government Printing Office:
Superintendent of Documents........................................................
Printing Office proper i ....................................................................
Library of Congress..................................................................................
National Botanic Garden........................................................................
1913
-3
01
B U D G E T S T A T B M B N T N O . 7 —Continued.
Cowpara%M^ jMWWccry q/*
o^c?
q/
6y oryam za^to^
Estimated expenditures for—
Actual Expenditures
Units of organization.
MM
$271,608,550.26
126,836,305.40
204,528,564.07
25,4^2,263.27
15,784,204.75
$250,154,310.29
134,299,250.79
-189,887,027.16
19,669,338.89
15,375,758.49
$240,208,410.80
118,987,722.49
193,075,238.30
18,793,633.10
20,885,518.96
33,899,702.23
440.075.00
1,790,000.00
988,895.12
30,174,432.11
8,800.00
10,000.00
162.500.00
58,277,125.02
37,933,029.71
36,092,385.35
360.015.00
1,840,813.68
758,595.12
54,771,719.36
5,000.00
10,000.00
175.320.00
25.000.00
24,642.85
46,019.01
250,000.00
10.000.00
352,277.46
1,578,508.90
862,703.25
34,912,034.43
6,788.63
809.64
166,994.42
328,439.86
1,395,401.92
1,031,123.62
33,100,941.79
9,555.09
6,018.03
212,005.04
25,357.15
27,555.83
8,900.00
5,134,223.55
5,814,309.05
5,385,488.63
5,076,073.55
5,764,659.05
10,000.00
11,000.00
14.150.00
14.500.00
912,972,709.54
419,728.12
5,301,843.86
10,067.59
9,815.15
12,500.00
51,262.03
889,366,456.27
417,003.83
888,949,452.44
International irrigation Congress
NewMexicos
Alaska^......................... ............................ ............................................................................ . ....................................
Hawaiis............................................................. ........................................................., ...............................................
Total......................................................................................................................................................................
Deduct amounts payable from the revenues of the District of Columbia...............................................................
TotalpayablefromFederal revenues
6,124,508.80
6,092,758.80
17.250.00
14.500.00
1,110,624,372.27
583,795.00
1,110,040,577.27
14,150.00
44,000.00
1,067,566,954.94
502,201.90
1,067,064,753.04
912,552,981.42
1 The figures given for the Interior Department include several million dollars of expenditures and estimated expenditures for the Reclamation Service out of reimbursements
to the reclamation fund that the Treasury takes no account of and that hence do not appear in the revenue statements, which are derived from Treasury sources. Of these expend
itures about one-half million dollars represents work done for the Indian Service, the cost of which is also reported by that service. The figures also include amounts administered
by the governor of the Territory of Alaska under the nominal supervision of the Secretary of the Interior, and the estimates and expenditures of several semi-independent institu
tions. They do not include the estimates and expenditures for the improvement, maintenance, and operation of the legislative buildings and grounds.
2 These figures include only that part of the estimates and expenditures of the District of Columbia government which is payable from Federal revenues. The remainder has
been included in the statement of expenditures of trust and private funds. (Budget statement No. 11.)
^ The amounts given for Arizona,'New Mexico, and Hawaii do not include estimates and expenditures for salaries of judges, attorneys, marshals, etc., which have been charged
FRASER
to the Department of Justice.
Digitized for
TO CONGRESS.
$284,141,018.00
152,626,008.53
230,216,066.50
24,706,012.72
17,163,404.62
300,000.00
25,000.00
Districts and Territories......................................................................................................................................................
District of Columbia (excluding amounts payable from the revenues of the District of Columbia) 2.........
MU
FOR 1914 SUBMITTED
Commerce and Labor............................................................................................................ .....................................
Other Government establishments.......................................................................................................................... .......
Civil Service Connnission
Interstate Commerce Commission........................................................... ................................................................
Smithsonian Institution (including amounts payable from the revenues of the District of Columbia)...
MM
BUDGET
Executive departments—Continued.
Post Office.......................................................................................................................................................................
1913
B U D G E T S T A T E M E N T N O . 8.
sm%%a7i/ o /
a c ^ a ^ ezp 67K ^w es q /'G o i; 6r^ m 6?T,^/^TKis
5y /M%ci^o%3.
[For further analysis of the following figures see budget statement 15. The subtotals in the following statement precede the items that make them up. In order to facilitate the
reading of the statement, the items composing the grand total have been indicated by boldface type; the items composing the boldface subtotals have been indicated by
italic type; the items composing the italic subtotals have been indicated by ordinary roman type preceded by a blank line, as also have subtotals making up other roman
subtotals. The items composing the roman subtotals of the lowest grade are in roman type not preceded by a blank line. All subtotals are indicated by an underscore. The
relations between the several items are also shown by the indention of the entries in the stub of the table, coordinate items being indented the same distance from the margin.]
Estimated expenditures for—
Actual expenditures f o r -
Functions.
1914
$172,591,145.01
1912
$106, 684,401.75
1911
$103,501,026.36
Legislation i......................................................................................
3, 66Q, 365. 47
3,475,351.20
9,396,946.73
9,296,343.04
Executive direction and control and other general business.
151,696,633.91
158,591,306.44
91,917,054.13
88,996,541.95
General governmental business activities...............................
Acquisition, maintenance, and operation of lands, buildings, etc., for ofHce and other pur, poses (including rents) s .......................................................................................................................
Contracting for, purchasing, manufacturing, and inspecting supplies and equipment for
general Government purposes 6...........................................................................................................
Conduct of general reference library for the Government..................................................................
Distribution of Government documents...............................................................................................
Preparation of maps, personnel lists, etc., for Government use ?.....................................................
Election of President and Vice President.............................................................................................
Legal advice and representation, detection of crimes and offenses, and collection of evidence (by
the Department of Justice) s........................................................................................................................
2,836,125.00
2,627,218.41
2,665,983.66
2,706,218.65
20,813,891.40
19,160,288.79
18,376,556.28
18,773,200.55
124,187,727.51
133,217,346.66
67,304,731.11
64,203,929.51
101,490,273.34
101,481,885.88
40,984,982.79
39,815,874.08
21,265,902.38
30,422,242.13
25,060,085.26
23,161,558.64
553,527.45
593,300.34
251,424.00
33,300.00
479,786.60
556,268.05
238,364.00
23.300.00
15.500.00
427,439.84
547,514.60
237,201.75
47,506.87
405,869.66
562.510.35
223,978.56
34,138.22
3,858,890.00
3,586,952.58
3,569,783.08
3,313,193.24
Adjudication 9.....................
5,741,313.33
5,523,987.37
5,370,400.89
5,208,141.37
II. Public-service functions.
936,547,649.41
887,805,527.98
798,891,685.46
778,841,273.73
Military services i"..............
452,566,064.62
404,098,387.77
395,297,299.92
388,244,868.85
102,556,164.95
146,615,091.43
203,394,808.24
99,744,056.84
121,035,508.73
183,318,822.20
94,742,590.14
128,998,264.55
171,556,445.23
98,565,388.40
113, 773,072.40
175,906,408.05
National defense by land..............................................
National defense by sea H............................................
Expenditures on account of past military services *
See notes on next page.
OF ESTIMATES.
Departmental administration and other general business 3..
SUMMARIES
$166,098,312.71
I. General functions.
1913
FOB
1914
SUBMITTED
TO CONGRESS,
BUDGET
i
As no estimates of expenditures were received from the legislative branch the figures here given for 19 i3 and 1914 are the appropriations and the estimates for appropriations
—3
presented in the ofScial Book of Estimates. Theya re short of the probable requirements bccause of the practice of prc viding for a considerable part o the expenses of the Cong! e^s
OC
by deficiency appropriations, and also because no estimates are made for a number of items of cost.
^ Includes expenditures for the Executive Office proper and the Civil Service Commission, and for general auditing, accounting, and reporting.
s Includes all the general administrative expenses of the departments at Washington that are not directly assignable to particular functions. Also includes considerable
sums from the Departments of War, Navv, and Post Office which might have been assigned wholly or almost wholly to the functions "National defense" and "Postal service."
The figures for the Navy Department include only the cost of general administrate and bureau administration in Washington, but those for the Post Office Department include
the cost of the inspection service outside of Washington, while those for the War Department comprise al^ the costs of The Adjutant General's, Inspector General's Judge Advocate
General's, and Quartermaster General's departments, in Washington and in the held, and the cost of Army division headquarters so far as ascertainable. From the information
reported it was impossible to obtain the cost of administration by the central offices of the War Department in Washington.
^ The differences between the expenditures for 1911 and 1912 and the estimated expenditures for 1913 and 1914 are due mainly to the fact that estimates and appropria
tions have been regularly made for the sinking fund but the amount appropriated has not been set aside by the Treasury.
&The lands, buildings, and other properties within this group include the office buildings in Washington, and, outside of Washington, the post offices, customhouses, intemalrevenue offices, courthouses, and other Federal buildings under tne supervision of the Treasury Department.
s Includes only such costs of purchasing, manufacturing, and inspecting supplies and equipment as are not allocable to other activities, as, for example, the cost of operating the
General Supply Committee, the cost of testing Government coal (Bureau of Mines), and of testing Government supplies (Bureau of Standards and Bureau of Chemistry).
? Includes only the preparation and distribution of maps of States and of the United States for general Government use and the preparation and distribution of the official personnel
register.
s Includes the cost of all the work of the Department of Justice except the maintenance and operation of Federal prisons and penitentiaries and the support of prisoners in other
institutions, which are assigned to the function "Care and education of the delinquent," and the salaries of legal advisers attached to other departments, which are charged to
" Departmental administration and other general business."
^ Includes, in addition to the cost of the Federal, Territorial, and District of Columbia courts, the expenses incurred by the Department of Commerce and Labor in connection
with the adjudication of naturalization cases and the adjudication of claims for compensation under the workmen's compensation act.
Does not include the interest of the public debt, a large part of which was incurred for military purposes. As noted above (note 3) something over nine millions of the estimated
cost of the military service in 1914 and slightly less in the other years has been included under the heading "Departmental administration and other general business."
Includes the cost of the Soldiers' Home in Philadelphia, which should have been charged to "Expenditures on account of past military services," but could not be separated
from the costs of yards and stations. The amounts given are also about $2,000,0(X) short of the total cost of naval defense, the remainder having been charged to "Departmental
administration and other general business."
is Comprises the cost of pensions and retirement salaries, of old soldiers' homes, and of care for dead soldiers and sailors, including the raising of the battleship Maine. Does
not include the cost of the Sailors' Home, as explained under note 11.
BU D G ET
S T A T E M E N T N O . 8—Continued.
Estimated expenditures for-
Actual expenditures for—
Functions.
1914
II. Public-service functions—Continued.
Civil services................................................
1913
1912
# 3 9 0 ,5 % ,
# 4 3 3 ,7 0 7 J 4 0 .f i
Promotion of friendly relations with foreign nations and promotion and protection of American
interests abroad*...........................................................................................................................................
1911
404.3 3
4,205,408.59
386,390,996.29
445,071,809.42
450,999,698.29
371,355,113.07
358,779,777.€
37,372,039.63
37,391,089.46
29,736,440.42
27,892,520.86
930, 438.60
116,844, 538.02
276,983, 944.16
549, 961.74
134,564, 906.12
265,001, 878.78
433, 069.83
82,517, 834.25
244,460, 741.56
404. 887.55
77,347, 590.21
234,185, 955.46
3,023, 658.53
4,584, 554.59
1,712, 490.00
2,242, 690.89
765, 060.00
612, 395.00
3,043, 088.64
5,168, 325.22
1, 666, 680.00
2,070, 609.03
1,069, 310.00
473, 849.30
2,677, 452.05
5,188, 260.49
1,618, 097.94
2,159, 126.49
1,990, 398.39
573, 691.65
2,465, 128.21
4,998, 011.63
1,515, 004.48
2,083, 667. 79
7,544, 949.08
342, 062.39
34,568,087.17
28,499,231.92
28,296,857.66
27,611,218.63
4,372,805.23
4,134,880.25
3,529,156.90
3,626,378.01
7,817, 342.48
5,736, 545.21
2,622, 486.84
14,018, 907.41
6,572, 859.43
4,844, 241.79
1,826, 064.16
11,121, 186.29
6,347, 602.59
4,346, 185.52
2,734, 196.92
11,339, 715.73
5,989, 476.75
4,262, 921.26
1,867, 089.92
11,865, 352,69
7,978,410.15
7,170,281.95
7,396,622.33
7,024,156.18
Total................................................................................... .....................................
Deduct amounts chargeable to the revenues of the District of Columbia.
1,110,624,372.27
583,795.00
1,067,566,954.94
502,201.90
912,972,709.54
419,728.12
889,366,456.27
. 417,003.83
Total payable from Federal revenues...............................................................
1,110,040,577.27
1,067,064,753.04
912,552,981.42
888,949,452.44
Promotion of economic interests.
Promotion of agriculture, forestry, and fisheries, and care and utilization of the public
domain.s
Promotion of trading, manufacturing, and mining s ................................................................ .
Providing facilities for transportation *.........................................................................................
Postal and other communication service s ....................................................................................
General:
Regulation of commerce and banking 6 ..................................................................................
Providing a medium of exchange ? .........................................................................................
Meteorological research and weather forecasting" ................................................................
Granting patents and copyrights.............................................................................................
Collection of data pertaining to population and other general statistical information 9 ..
Fixing standards of measurement i"........................................................................................
Promotion of individual welfare.
Promotion of the interests of the laboring classes **..................................................
Promotion of public health, education, and recreation:
Promotion and protection of the public health M...............................................
Promotion of public education and recreation and of art and pure science i
Care and education of the defective, dependent, and delinquent **...............
Care and education of the Indians and other wards of the Nation M.............
III. Local government is.
See notes on next page.
ESTIMATES.
3,942, 414.81
399,651, 970.73
OF
4,208, 210.00
479,498, 930.21
SUMMARIES
4,341,688.20
479,639,896.59
Promotion of the general welfare within the United States..
FOB
1914
SUBMITTED
TO CONGRESS.
BUDGET
1 Indudes, in addition to the cost of the Department of State proper (except the general administrative cost and several iniscellaneous iteins), the cost of various international
60
commissions and enterprises devoted to promoting arbitration, settling international controversies, and encouraging cordial relations between nations; as, for example, the Pan
<0
American Union.
2 Includes, in addition to the cost of the work directly assignable to the promotion of agriculture and fisheries, the cost of reclaiming arid lands by the construction of irrigation
works, the cost of the public-land and forest services, of geodetic, topographic, and geological surveys, and of the study of water resources of the United States. The figures for the
cost of irrigation works include considerable expenditures and estimated expenditures out of repayments to the reclamation fund that the Treasury reports take no account of and
that hence do not appear in the revenue statements, which are derived from Treasury sources. Of these expenditures and estimates about one-half million dollars represents the cost
of work done for the Indian service, which is also reported by that service.
3 Includes commercial information service, study of methods of treating ores, and various minor items.
*
Includes the building of the Panama Canal, the improvement of rivers and harbors, the operation of canals and other works of navigation, the building of roads, and the Light
house, Life-Saving, and Revenue-Cutter Services.
&Includes the mail service, money-order service, and postal-savings service, and the improvement, operation, and maintenance of the Washington-Alaska telegraph and cable
system. The totals are from six to seven million dollars short of the direct cost of the activities specified, the balance having been entered under the heading "Departmental
administration and other general business."
'Includes the cost of the work of the Interstate Commerce Commission, Bureau of Corporations, Steamboat-Inspection Service, Bureau of Navigation, and the office of the
Comptroller of the Currency.
? Includes the cost of coining metallic money and of printing paper currency and the cost of the other services in the Department of the Treasury devoted to the issue, redemp
tion, and protection of the currency.
a Includes, in addition to the cost of the Weather Service proper, the cost of compiling the data required for predicting Hoods.
9 Includes the entire cost of the Census Bureau, except items which, from the data received, could be directly allocated to specific subjects, such as health and agriculture.
Includes the total cost of the Bureau of Standards, less the estimated cost of testing and inspecting Government supplies and equipment in that bureau.
11 Includes the cost of the work of the Bureau of Labor, the Children's Bureau, and the Bureau of Immigration and Naturalization.
12 Includes the cost of controlling contagious diseases (Public Health Service), the cost of controlling the food supply (Department of Agriculture), and the cost of medical care
for merchant seamen (Public Health Service) and for negroes in the District of Columbia (Freedman's Hospital, Department of the Interior).
13 Includes the cost of promoting public education by the dissemination of information relating thereto and by contributions to colleges for agriculture and mechanic arts,
and also the cost of public parks, monuments, museum, art gallery, zoological park, etc.
i* Includes the cost of caring for Federal prisoners and convicts (in Federal and other institutions); the cost of institutions in the District of Columbia devoted to educating the
deaf, caring for insane soldiers, sailors, marines, and other persons for whom the Federal Government is responsible; a contribution to the printing house for the blinds and money
spent for the relief of sufferers from Hood, storm, earthquake, etc.
15 Includes, in addition to Federal appropriations for the support and education of the Indians and Eskimos, the interest on Indian trust funds paid to the Indians or
expended for their benefit.
ic Includes the cost of work done for districts and Territories by the Federal departments and by local authorities under the supervision of Federal departments and also
contributions to States, districts, and Territories for general Government purposes and for specific purposes such as education and roads.
B U D G E T S T A T E M E N T N O . 9.
q/
q/ 6 r O w r M 7 n e % % c A a r a c ^ r
H. Doc. 1435, 62-3
[For a similar analysis of the expenditures of each department and other establishment see budget statement 14.
that make them up.]
q/
In the fcllcTKirg slatd rtrt the subtotals precede the items
Estimated expenditures for—
Actual expenditures for—
Character of expenditure.
1914
1913
1912
1911
$779,892,644.74
$742,293,621.38
$738,419,107.80
Overhead and operating expenses.........................................................................................................................
565,798,62^.25
545,343,690.94
520,454,691.73
513,410,283.93
Upkeep of property i.................................................................................................................................................
22,764,889.48
23,463,754.77
22,013,896.49
22,751,304.64
Fixed charges (except principal of debt).............................................................................................................
232,568,464.50.
211,085,199.03
199,825,033.16
202,257,519.23
Interest on debt and other obligations 2........................................................................................................
Court and treaty awards 3...................................................................................................................
24,849,263.12
40,491.48
195,152,431.10
12,426,278.80
100, 000.00
24,784,962.12
86,414.06
174,584,086.75
11,565,093.55
64,642.55
24,098,972.02
8,125.23
162,744,443.52
12,919,330.64
54,161.75
22,703,730.01
436,506.93
166,745,868.41
12,339,448.74
31,965.14
.....................
190,196,405.75
199,585,975.79
153,189,441.22
134,280,158.71
6,596,695.70
20,896,896.85
108,486,546.80
51,343,855.83
6,675,373.36
4,223,338.02
15,947,014.06
72,339,557.51
54,607,061.17
4,886,730.48
2,849,445.28
14,990,946.73
69,708,285.46
40,939,300.87
5,405,233.11
Ac
°'
Land
^
2,531,825.00
E ^ p ^ n t ^ " '^ ^ ^ ^
U ^ ^ M
^
^ waterways ° ..............................................................................................
p ^ p e ^ o ^ ^ Crease) 9.......................... ; ................................................................................
20,958,272.61
74,974,139.91
73,542,149.55
7,268,549.44
115,522.47
10,805,946.77
5,789,328.25
2,257,798.44
1,513,305.73
Unclassified expenditures H............................................................................................................................................
38,610; 984.29
27,438,334.41
17,369,030.91
16,420,693.41
Total current expenses, fixed charges, expenditures for property, and unclassified expenditures.........
Less amount payable from revenues of the District of Columbia..................................................................
1,049,939,372.27
583,795.00
1,006,916,954.94
502,201.90
912,852,093.51
419,728.12
889,119,959.92
417,003.83
Total payable from Federal revenues, except for principal of debt............................................................
Principal of debt ^ ............................................................................................................................................................
1,049,355,577.27
60,685,000.00
1,006,414,753.04
60,650,000.00
912,432,365.39
120,616.03
888,702,956.09
246,496.35
Total payable from Federal revenues...............................................................................................................
1,110,040,577.27
1,067,064,753.04
912,552,981.42
888,949,452.44
i Includes repairs, replacements, and, in a few instances, depreciation.
^ The increase in interest is due largely to the Panama bond issue. The item also includes interest on trust funds.
OF ESTIMATES,
$821,131,982.23
SUMMARIES
Current expenses and fixed charges (except principal of debt)............................................................. ...............
00
FOB
1914
SUBMITTED
TO CONGRESS.
00
BUDGET
' The amounts shown do not represent the totals of awards, as accurate information is not available. It has been the practice to require judgment creditors to wait till Congress
appropriates before claims can be paid.
bO
* The amount shown for pensions for 1913 is probably $20,000,000 less than will be the actual pension requirements under the new law, only the amount actually appropriated
being here shown. It is also probable that the estimates for 1914 are $10,000,000 tinder the requirements.
* Includes grants to States, Territories, and districts for experiment stations, other educational purposes, and roads, and for general Government purposes; mail subsidies; per
capita payments of cash to Indians, etc.
s Includes the Panama Canal, river and harbor improvements, reclamation works, fortifications, etc. The figures for reclamation works include several million dollars of expen
ditures and estimated expenditures out of repayments to the reclamation fund that the Treasury reports take no account of and that hence do not appear in the revenue state
ments, which are derived from Treasury sources. Of these expenditures and estimates approximately one-half million dollars represents work done for the Indian service, the cost
of which is also reported by that service.
? Includes vessels of war, ordnance, and other military equipment, machinery for construction and manufacture, and ofRce equipment.
s Largely increases in military stores.
s Only the War Department showed a work in progress account to reconcile the amounts charged against work and the cost of the product turned out.
While there is reason for not segregating the estimates in many instances, there is no reason for unclassified items in the expenditures except that the facts are not shown in
the accounts.
" The large sums shown as unclassified suggest the difficulties experienced in getting together any classified statement of expenditures for the Government as a whole. It is
known that a large part of these amounts would go to the general class "acquisition of properties," but even an estimated distribution could not be obtained within the time
available.
^ An appropriation is made for the sinking fund, but the Secretary of the Treasury has neither set aside the amount appropriated nor paid the debts of the Government except
they matured; therefore the difference between 1914 and 1913 as compared with 1912 and 1911.
* Decreases in work in progress—deductions from total expenditures.
B U D < 3E T S T A T E M E N T N O . 10.
Comparative sw iw tan / o /
ac^aZ %cpe7M?%Mres o /
c^a3$^M
actd o/ appropriation.
[For a similar analysis of the expenditures of each department and other establishment see budget state
ment 12.]
Estimated expenditures for—
Actual expenditures
Title or character of appropriation act.
1914
Current appropriations:
Legislative, executive, and judicial.. $36,289,615.50
Sundry civil........................................... 119,668,577.65
19M
1913
1912
$34,013,512.02
141,531,373.09
$33,739,252.38
115,900,886.24
$40,050,531.6*
110,.694,343.3*
14,318^339.3*
Agricultural...........................................
Diplomatic and consular.....................
18,287,230.00
16,651,496.00
3,840,312.07
15,575,958.75
4,072,752.61
3,621,892.47
3„670,3a6.n*
Army............................... ..
...............
96,497,987.08
95,446,508.74
92,372,182.33
Fortifications.........................................
6,945,086.80
7,063,315.99
6,104,357.96
95,523,8X1.4*
6,275,K!MT
Military Academy.................................
1,666,735.69
1,276,239.71
1,343,686.76
1,.446,053-3*
Naval.......................................................
151,463,758.53
125,761,471.11
133,274,172.71
118,035,8*6.53
Indian.....................................................
11,303,316.53
8,698,988.86
8,730,930.84
9,328^,4M.*5
Pension.................................................... 185,220,000.00
165,146,145.84
153,633,738.02
Rivers and harbors...............................
69,678,054.73
62,160,512.23
32,787,880.88
158,002,738.3*
29,365,5m. 73
Post Office (from General Treasury).
155,000.00
1,970,651.26
Post Office (from postal revenues)... 281,641,508.00
District of Columbia............................
6,624,668.80
Deficiency i ............................................
277,137.10
268,294,249.00
5,551,915.55
277,199.60
248,018,075.85
95,335-1*
238,201,98?.**
5,817,116.35
5,572,859.t&
1,704,893.9*
1,843,866.79
1,478,115.01
Miscellaneous......... ............................
Unclassified 2 .........................................
313,398.27
2,420,423.00
1,627,521.34
2,300,116.23
4,423.00
4,423.86
Recurrent appropriations: 3
Definite........................................ ........
Indefinite 4 ............. ..............................
11,916,182.72
3,174,449.75
85,801,695.12
19,301,292.96
3,569,703.52
85,681,695.12
15,595,247.59
2,840,778.87
25,285,191.38
23,755,466.4*
17,206,794.39
18,131,760.74
14,271,505.46
12,901,(05-9*
Total.................................................... 1,110,624,372.27 1,067,566,954.94
Deduct amounts payable from revenues
of the District of Columbia.....................
583,795.00
502,201.90
912,972,709.54
889,366,436.gr
419,728.12
417,988.33
912,552,981.42
888,949*453.4*
Determinates.........................................
Revenue 6................................................
I,934,M7.SF
3,334.63
15,832,756.8?
2,751,379.4*
Total payable from Federal reve
nues .................................................. 1,110,040,577.27 1,067,064,753.04
i Includes only a portion of the deficiency appropriations, the larger part being included in the Rgpne &
for the acts that contain the original items.
* Army, fortifications, and sundry civil acts (not separable from information furnished).
* Appropriations that are recurrently available or automatically repeated without further enactment
until a Axed date or until the laws creating them are repealed.
* Appropriations of such amounts as the administrative ofHcers may And necessary to aeeompHsh thy
purpose stated in the law.
* Appropriations of such amounts as may be necessary to meet Axed obligations of the- Government,,
such as principal and interest of debt.
* Appropriations of the amounts of specified revenues or other collections (mostly known as speciat
funds). In this item are included several million dollars of expenditures and estimated expenditures cat
of repayments to the reclamation fund that the Treasury reports take no account of and that conseqnanthr
do not appear in the revenue statements, which are derived from Treasury sources. Of these expendi
tures and estimates about one-half million dollars represents work done by the Reclamation Service twr
the Indian Bureau, the cost of which is also reported by that bureau.
83
B U D G E T S T A T E M E N T N O . 11.*
OO
/Sum m ary o /e s tim a te ? a?td actt^aZ ^arpendit^res o/* tr%st and p r ^ a t 6 c ^ a s s ^ e d &y orya??^ation
an d &y acts o / ap p rop riation.
[In the following statement the subtotals precede the items that make them up.]
Estimated expenditures for—
Actual expenditures for—
1914
1913
1912
1911
$792,380.39
$100, 000.00
$262,154.98
509,380.00
517,395.05
509,135.21
445,783.62
269,380.00
240,000.00
266,994.05
250,401.00
' 255,300.44
253,834.77
252,497.47
193,286.15
1.300.000.00
1.300.000.00
1,848,012.94
2,396,403.37
Legislative, executive, and judicial bill (reimbursable from private sources)............... ......................................
Permanent indefinite appropriation (reimbursable from private sources).............................................................
Department of War—trust fund...............................................................................................................................................
1914
$100, 000.00
Department of the Treasury....................................................................................................................................................
FOR
Department of State—trust fund.............................................................................................................................................
BUDGET
Organization units and acts of appropriation.
SUBMITTED
Department
Navy......................................................................................................................
2,470,355.59
2,099,879.71
1.250.000.00 of the1.400.000.00
1 , 200, 000.00
200, 000.00
1 , 200, 000.00
262,316.67
330,151.89
2,208,038.92
1,769,727.82
Department
Interior.................................................................................................................
4,114,932.65
5,706,752.72
4,355,000.00 of the2,785,000.00
Permanent indefinite appropriation (reimbursable from private sources).............................................................
Trust funds............................................................................................................ ...............................................................
35.000.00
4,320,000.00
35.000.00
2,750,000.00
10. 000.00
6,982,228.80
6,122,068.80
19,000.00
5,022,326.75
55,531.80
66,372.97
5,472,315.33
Total....................................................................................................................................................................................
Add expenditures by executive departments chargeable against revenues of the District of Columbia................
40,000.00
144.960.00
675.200.00
14,506,608.80
583.795.00
35,000.00
134.235.00
555.400.00
11,933,888.60
502,201.90
97,274.06
219,624.96
1,009,433.83
667,213.78
568,421.56
18,531,043.76
419,728.12
699,463.28
648,624.60
523,731.36
17,419,847.82
417,003.83
Total, including all amounts chargeable to revenues of the District of Columbia.............................................
15,090,403.80
12,436,090.50
18,950,771.88
17,836,851.65
Department of Agriculture—special fund (contributions from private sources toward work done by the Govern
ment) ..............................................................................................................................................................
Sundry civil bill.................................................................................................................................................
District of Columbia bill....................................................................................................................................................
Deficiency bill......................................................................................................................................................................
65,854.38
5,640,898.34
9,239.99
4,105,692.66
10. 000.00
4,451.71
5,821,493.55
8,100,656.49
5,225.49
7,194,766.71
39,681.29
5,160,411.31
95,187.98
27,666.89
i This statement shows only such trust-fund estimates ard expenditures as were reported to the President or included in the Book of Estimates. Some of the estimated
expenditures are manifestly less than the probable requirements. Many other trust-fund expenditures were not reported.
*
CONGRESS,
District of Columbia (amounts chargeable to revenues of the District of Columbia only)...........................................
50,000.00
TO
Special fund (reimbursable from private sources)........................................................................................................
Trust funds................................. J.......................................................................................................... : .........................
B U D G E T S T A T E M E N T N O . 12.
Co7npara%MJ6 (ma^ysts q
/
a
c
^
a
^
6%pe%(%^%r6s q
/
*
y
b
r
gacA orpamza^oii,
5y ac^.s o/*ap p roprm ^on .
[The subtotals in the following statement
Estimated expenditures forOrganization unit and title or character of appropriation act.
1912
1914
The Congress.
Legislative, executive, and judicial..
Sundry civil.........................................
Deficiency.............................................
Miscellaneous.......................................
Joint committees and commissions and joint legislative expenses.
Legislative, executive, and judicial..
Sundry civil.........................................
Post Office............................................
Rivers and harbors.............................
Deficiency.............................................
Miscellaneous.......................................
Indefinite............... ..............................
Office of Superintendent of Capitol Building and Grounds.
Legislative, executive, and judicial..
Sundry civil.........................................
Deficiency.................................... ........
Capitol police.
Legislative, executive, and judicial.
Deficiency............................ .
$10,695,467. 64
$11,063,546.46
1,769,716.50
1,815,346.50
1,777,868.78
1,855,047.93
1,769,716.50
1,743,276.50
14.500.00
47.570.00
909,514.22
1,650,871.87
*868*354.56
173,720.46
30,455.60
4,895,420.25
4,716,979.70
4,746,361.39
4,927,493.10
4,895,420.25
4,591,410.25
125,569.45
4,452,341.83
272,644.89
21,374.67
4,696,362.77
189,319.79
41,810.54
1,912,773.72
1,863,570.00
2,511,329.66
2,223,410.27
2,600.00
1,910,173.72
1,600.00
1,765,500.00
75,000.00
4,000.00
1,600.00
2,446,391.41
18,078.62
2,046,458.45
17,470.00
4,264.65
11,971.34
47,102.26
73,670.83
10,221.03
74,981.34
178,900.00
951,757.00
520,528.17
861,975.09
115,700.00
63,200.00
115.700.00
818.557.00
17.500.00
113,844.92
368,695.75
37,987.50
189,340.65
498,614.19
174,020.25
78,450.00
78.450.00
77,256.98
83,682.46
78,450.00
78,450.00
77,256.98
77,257.46
6,425.00
10,000.00
ESTIMATES.
Legislative, executive, and judicial..
Deficiency.............................................
Miscellaneous........................................
$10,496,324.77
OF
House of Representatives.
$9,967,463.22
SUMMARIES
The Senate.
1911
OO
BVBSBW
H ATSM BM T
M O . iH -C oatinM d .
ac^Mci!
^acA
% 3&
Estimated Expenditures for—
Acttial expenditures for-*
Organization unit ahd title of character of ap&Mpriatidii act4
1914
1913
1912
1911
$251,424.00
Government Printing OiRoe (Printing Office proper-unallotted appropriations)
$237,201.75
$223,978.56
3,600.00
FOB
Sundry c M
$238,364.00
1.500.00
2.100.00
T^fiumtiv*
849,885.00
^nd
797,891.15
858,066.42
593,863.82
202,000.00
600,162.84
197,728.31
656,161.41
201,905.01
30,893.75Botanic Garden
32,393.75
National
Legislative executive andudicial
The President
Legislative executive and judicial
Sundry civil...................................................... .....................................................................................................
29,892.63
6,000.00
20,029.76
7,000.00
22,892.63
7,000.00
449,040.00
296,056.66
621,484.47
457,803.21
199,040.00
200,056.66
194,137.31
194,762.30
171,040.00
28,000.00
172,056.66
28,000.00
166,228.89
27,908.42
166,945.47
27,816.83
11,000.00
280,128.92
202,706.78
250,000.00
85,000.00
124,390.07
46,742.76
250,000.00
75.000.00
10.000.00
124,390.07
46,742.76
The Tariff Board—Sundry civil............. ....................................................................... ... ......................................
Sundry civil............................................................................................................................................................
Miscellaneous................................................................................................ ...................................................... .
Commission to Investigate Cost of Second-Class Mail— Post OiRce.................................................................
The judiciary
United States Surem e Court
17,459.67
1,116.28
5,368.50
12,475.09
5,408,101.00
5,234,003.89
5,119,918.33
4,979,750.13
217,200.00
224,700.00
202,908.64
179,632.82
TO CONGBESS.
The Executive O&ce
27,029.76
22,893.75
9,500.00
24,893.75
SUBMITTED
647,885.00
202,000.00
795,863.82
1914
Library of Congress
BUDGET
The Congress— Continued.
Legislative, executive, and judicial.
Sundry civil . .......................................
Recurrent definite................................
153,500.00
56.200.00
7,500.00
163,500.00
63.700.00
7,500.00
137,909.73
57,498.91
7,500.00
119,081.10
53,051.72
7,500.00
36,804.18
62,373.98
71.030.00
67,336.70
73,462.68
Legislative, executive, and judicial.
Sundry civil........................................
69.490.00
1,500.00
69.530.00
1,500.00
66,305.32
1.031.38
72,384.26
1,078.42
Court of Claims...........................................
96.860.00
93.480.00
92,430.98
87,651.23
71,860.00
25,000.00
67.880.00
25.600.00
67,433.00
24,997.98
66,619.95
21,031.28
4,694,611.00
4,574,465.00
4,459,632.12
4,292,253.74
941.200.00
3,585,411.00
168,000.00
941.200.00
3,463,375.00
169.890.00
941,768.04
3,357,869.64
159,994.44
936,977.17
3,205,219.62
150,056.95
273.940.00
224.440.00
235,235.91
310,945:48
82,010.00
87,400.00
104,530.00
77,910.00
46/500.00
100,030.00
77,910.00
48,985.18
107,633.09
707.64
76.560.00
46,672.12
95,409.36
92.304.00
1,054,775,557.02
988,129,221.05
852,788,500.34
831,387,482.49
4,559,767.85
4,258,409.41
4,478,977.28
366,819.95
115,412.60
3,621,892.47
17,033.65
355,180.00
179,504.36
3,840,312.07
34,771.42
10,000.00
135,000.00 ..........132^770.88*
5,000.00
4,479.86
368,160.32
104,271.70
3,670,906.19
201,788.03
4,900.00
123,189.75
5,761.29
Legislative, executive, and judicial.
Sundry civil...........................................
Circuit courts of appeals, circuit, district, and Territorial courts.
Legislative, executive, and judicial..
Sundry civil.........................................
Indefinite..............................................
District of Columbia courts..
Legislative, executive, and judicial..
Sundiy civil..........................................
District of Columbia............................
DeRciency.............................................
Executive departments............. .........................................................................................
Department of State and various international commissions and undertakings..
Legislative^ executive, and judicial.......................................................................
Sundry civil................................................................................................................
Diplomatic and consular..........................................................................................
DeRciency....................................................................................................................
Miscellaneous..............................................................................................................
Revenue.......................................................................................................................
IndeRnite................................... .................................................................................
Department of the Treasury.
Legislative, executive, and judicial.
Sundry civil.........................................
DeRciency............................................
Recurrent deRnite...............................
Revenue..................................................
IndeRnite..............................................
Determinate.........................................
Miscellaneous.......................................
4,653,372.61
355,620.00
85,000.00
4,072,752.61
135,000.00
5,000.00
136,306,557.92
144,782,143.83
78,891,994.47
76,036,402.11
10,985,532.00
41,398,888.82
2,137.10
10,000.00
325,000.00
40,000.00
83,545,000.00
10,517,886.55
43,997,775.22
1,089,732.06
5,510,000.00
200,000.00
40,000.00
83,425,000.00
1,750.00
10,485,963.34
39,657,823.40
65,673.65
5,520,759.35
373,589.68
48,986.76
22,736,916.51
2,281.78
10,619,700.39
37,769,955.62
8,307.29
5,539,933.46
201,745.49
43,756.68
21,557,830.47
295,172.71
ESTIMATES,
45,888.89
70.990.00
OF
54.500.00
SUMMARIES
United States Commerce Court—Legislative, executive, and judicial.
Court of Customs Appeals................. ............................................................
00
-3
oo
B U D G E T S T A T E M E N T N O . 12—Continued.
Cowtpam^e <ma&/sts q/
ac^a^ ea%Mi%Kf'M7'es o/
^or eacA orgram^a^o?^
OO
cZass^gd &y ac^ o/ appropria^o^.
Estimated expenditures for—
Actual expenditures for—
Organization unit and title or character of appropriation act.
MM
1913
1912
1911
Department of W ar.
Legislative, executive, and judicial..
Sundrv c iv il.....................................
Post Office (from postal revenues). . .
Post OfRce (from General Treasury).
Revenue.................................................
Department of the Navy.
Legislative, executive, and judicial..
Sundry civil............................................
Naval........................................................
Revenue............... ..................................
2,046, 902.62
9,244, 811.59
92,372, 182.33
6,104, 357.96
1,343, 686.76
32.787, 880.88
211 , 209.02
1,661, 775.29
22 416.03
4,428, 802.67
2,345, 078.32
747, 855.79
1,810, 678.74
4 423.86
2.030, 679.20
8,531, 139.54
95,523, 881.40
6,275, 890.17
1,446, 058.44
29,365, 512.73
181, 668.50
515, 275.68
131, 201.57
4,419, 158.02
2,232, 714.25
657, 832.91
2,659, 527.50
334.62
5,768,097.84
5,141,763.87
5,120,348.98
4,947,704.92
573.830.00
5,083,117.84
101.750.00
9,400.00
572,805.57
4,466,808.30
92,250.00
9,400.00
500.00
557.355.18
4,444,821.26
116.887.18
785.36
500.00
521, 049.18
238, 050.27
153, 204.03
284,141,018.00
271,608,550.26
250,154,310.29
240,208, 410.80
2,014.510.00
325.000.00
281,641,508.00
155.000.00
5,000.00
1,624,650.00
290,000.00
268,294,249.00
1,395,651.26
4,000.00
1,586,578.49
286,335.07
248,018,075.85
259,739.93
3,580.95
1,606, 804.89
301, 599.62
238,201, 987.68
94, 608.81
3, 409.80
152,626,008.53
126,836,305.40
134,299,250.79
118,987,722.49
951,250.00
161,000.00
151,463,758.53
50,000.00
879,834.29
145,000.00
125,761,471.11
50,000.00
815,981.90
133,688.76
133,274,172.71
75,407.42
789, 778.07
140, 584.58
118,035, 840.53
21, 519.31
,
35, 401.44
TO CONGRESS.
Post Office Department-
4.296.600.00
2,661,149.75
500,000.00
1,507,344.39
2.420.423.00
2,056,790.74
9,148,541.66
95.446,508.74
7,063,315.99
1,276,239.71
62,156.512.23
358,093.80
1,234,615.94
233,504.31
4.314,836.00
3,154,736.02
500,.000.00
2,517,539.61
4,423.00
SUBMITTED
Legislative, executive, and judicial.
Sundry civil..........................................
District of Columbia...........................
Miscellaneous.......................................
Deficiency.............................................
$189,465,657.75
2,018,998.00
10,673,010.57
96,497,987.08
6,945,086.80
1,666,735.69
69,678.054.73
325,630.00
3.998.27
1914
Department of Justice..
$155,132,061.8
$153,973,874.53
$199,195,018.28
FOB
Legislative, executive, and judicial..
Sundry civil..........................................
Army.
Fortifications.............................................................................................................................
Military Academy....................................................................................................................
Rivers and harbors...................................................................................................................
District of Columbia................................................................................................................
Miscellaneous..........................................................................................................................
Deficiency................................... ................................................................. ...........................
Recurrent definite....................................................................................................................
Indefinite..................................... ..............................................................................................
Determinate..............................................................................................................................
Revenue......... ...........................................................................................................................
Army, fortifications, and sundry civil (not separable from information furnished).
BUDGET
Executive departments—Continued.
204, 528, 564.07
189, 887, 027.16
193, 075, 238.30
5,843,735.00
8,968,464.97
11,303,316.53
185,220,000.00
5,013,855.00
6,746,029.40
8,698,988.86
165,146,145.84
93,056.65
2.500.000.00
1.700.000.00
300,300.00
14,380,250.00
2.500.000.00
1.700.000.00
200,077.50
14,428,410.82
2,000.00
4,943,208.01
6,417,729.70
8,730,930.84
153,633,738.02
32,622.65
259,671.62
2,500,000.00
1,743,723.96
235,137.23
11,390,265.13
4,927,722.53
6,300,764.17
9.328.474.45
158,002,708.18
151,427.66
999,917.99
2,250,000.00
1,483,107.94
248,108.93
9.383.006.45
24,706,012.72
25,422,263.27
19,669,338.89
18,793,633.10
18,287,230.00
512,500.00
15.575,958.75
469,981.91
14,218,339.70
450,512.11
5,102,082.72
804,200.00
16,651,496.00
475.000.00
500.000.00
30,000.00
6,968,956.96
796,810.31
3,138,185.57
485,212.66
3,616,164.09
508,617.20
Department of Commerce and Labor...
17,163,404.62
15,784,204.75
15,375,758.49
20,885,518.96
Legislative, executive, and judicial.
Sundry civil.........................................
Deficiency.............................................
Miscellaneous.......................................
3,881,050.00
13,007,354.62
275,000.00
3,763,865.00
11,873,666.10
144.031.10
2,642.55
4,712,633.23
10,512,583.97
150,541.29
9,826,992.61
10,855,195.99
203,330.36
33,899,702.23
58,277,125.02
37,933,029.71
36,092,385.35
440,075.00
360,015.00
352,277.46
328,439.86
392,575.00
47,500.00
320, 015.00
40, 000.00
312,485.73
39,791.73
290,298.83
38,141.03
Interstate Commerce Commission—Sundry civil..
1,790,000.00
1,840, 813.68
1,578,508.90
1,395,401.92
Smithsonian Institution.............................................
988,895.12
758, 595.12
862,703.25
1,031,123.62
932.200.00
701, 900.00
806,008.13
*56^695^2
.....56j 695*12
.....56^695^12
821,860.01
152,568.49
56,695.12
54,771, 719.36
34,912,034.43
33,100,941.79
6,788.63
9,555.09
Agricultural............
Sundry civil............
Post OfHce..............
Miscellaneous..........
Recurrent definite.
Revenue...................
Other Government establishments.
Civil Service Commission.
Legislative, executive, and judicial.
Sundry civil.........................................
Sundry civil.
Deficiency.. .
Determinate.
Isthmian Canal Commission—Sundry civil............................... ...................................................................
0,174,432.11
Commission of Fine Arts—Sundry civil........................................................................................................
8,800.00
Board of Arbitration on Interstate Commerce Controversies—Sundry civil.........................................
10,000.00
Superintendent, State, War, and Navy Department Building—Legislative, executive, and judicial.
162.500.00
300,000.00
Lincoln Memorial Commission—Miscellaneous........................................................................................
5, 000.00
10 , 000.00
809.64
6,018.03
175, 320.00
166,994.42
212,005.04
24, 642.85
25,357.15
OF ESTIMATES.
230, 216, 066.50
Legislative, executive, and judicial.
Sundry civil..........................................
Indian....................................................
Pension..................................................
Deficiency.............................................
Special....................................................
Recurrent definite...............................
Determinate.........................................
Indefinite...............................................
Revenue................................................
Department of Agriculture.
SUMMARIES
Department of the Interior..
00
to
B U D G E T S T A T E M E N T N O . 12—Continued.
a%aZysts o / ^ a c ^ a Z
o
/
y
b
r
eacA or^an^a^o??
cJa^s^d 5y a<%s o / approprM^(m.
Estimated expenditures for—
Actual expenditures for—
Organization unit and title or character of appropriation act.
1913
1912
1911
$25,000.00
$46,019.01
$27,555.83
$8,900.00
Other Government establishments—Continued.
Grant Memorial Commission—Sundry civil.......................................................................................................
Alnsm mUlrntMl r i n T n ^ i ^ ^ -M h ^ M a ^ lS
FOR
250,000.00
25.000.00
&tslRl3tS A "d Tatritorias
5,134,223.55
5,814,309.05
5,385,488.63
6,092,758.80
5,076,073.55
5,764,659.05
5,301,843.86
6,092,758.80
19,000.00
5,001,541.75
55,531.80
66,372.97
5,381,387.06
Arizona-Legislative executive and judicial
10,000.00
10,067.59
New Mexico
11,000.00
9,815.15
11,000.00
9,800.00
15.15
Le ' lative executive and udiciai
Alaska—Legislative, executive, and judicial.........................................................................................................
Le ' lative executive and udiciai
Grand total
Less amounts expended by executive departments but payable from the revenues of the District of Columbia.
,
17.250.00
14,150.00
14.150.00
12,500.00
14.500.00
44,000.00
14.500.00
51,262.03
14,500.00
44,000.00
14,500.00
39,634.90
3,000.00
8,627.13
1,110,624,372.27
583,795.00
1,067,566,954.94
502,201.90
912,972,709.54
419,728.12
889,366,456.27
417,003.83
1,110,040,577.27
1,067,064,753.04
912,552,981.42
888,949,452.44
TO CONGRESS.
316,899.02
39,681.29
5,142,577.18
91,918.50
27,666.89
[District of Columbia
SUBMITTED
District of Columbia (amounts payable from Federal revenues only)............................................................
6,124,508.80
1914
10.000.00
International Irrigation Congress-Sundry civil
BUDGET
1914
B U D G E T S T A T E M E N T N O . 13.
Co7M,pam%M)6 %%a%2/sts o /
anJ a c ^ a ^ %cpe%d%Mr6s o/*
/o r eacA
[For a functional grouping of these items see budget statement 15; for a further analysis see append ix 1, schedule 6.
that make them up.]
In the following statement the subtotals precede the items
Estimated expenditures for—
Actual expenditures for—
Organization units and functions.
1914
The Congress..........................................................................................................................................................................
1913
1912
1911
$11,063,546.46
1,801,346.50
14,000.00
4,716,979.70
1,863,570.00
1,777,868.78
1,855,047.93
4.895.420.25
1,912,773.72
4.746,361.39
2,511,329.66
4,927,493.10
2,223,410.27
178.900.00
78,450.00
951.757.00
78,450.00
520,528.17
77,256.98
861,975.09
83,682.46
251.424.00
238.364.00
237,201. 75
223,978.56
1,769,716.50
House of Representatives—Legislation...................... ............................................................................................
Joint committees and commissions and joint legislative expenses—Legislation.............................................
Of&ceof Si^ermtendent of Capitol Building ana Grounds—Acquisition, maintenance, and operation of
Capitol police—Legislation (policing of legislative buildings and grounds)....................................................
Government Printing Office:
Superintendent of documents—Distribution of public documents...........................................................
Printing Office proper—Contracting for, purchasing, manufacturing, and inspecting supplies, etc.,
849,885.00
Acquisition, maintenance, and operation of lands and buildings for office and other purposes.........
Granting * * * copyrights...........................................................................................................................
National Botanic Garden—Promotion of public education and recreation....................................................
113.885.00
593,300.34
142,699.66
30,893.75
102,867.97
556,268.05
136,727.80
32,393.75
858,066.42
116,981.79
547,514.60
133,394.76
27,029.76
165,455.25
562,510.35
130,100.82
29,892.63
The President..........................................................................................................„............................................................
449.040.00
296,056.66
621,484.47
457,803.21
The Executive Office—General executive direction and control.......................................................................
The Tariff Board—Legislation (investigations relative to tariff rates).............................................................
Commission on Economy and Efficiency—General executive direction and control (investigation of
methods of transacting public business).....................................................................................................
Second-Class Mail Commission— Postal and other communication service (investigation of postal rates).
Railroad Securities Commission— Regulation of interstate commerce (investigations relative to issu
ance of stocks and bonds by railroad corporations)..........................................................................................
199,040.00
200,056.66
11,000.00
194,137.31
280,128.92
194,762.30
202,706.78
250,000.00
85,000.00
124,390.07
17,459.67
46,742.76
1,116.28
5,368.50
12,475.09
The judiciary.........................................................................................................................................................................
5,408,101.00
5,234,003.89
5,119,918.33
4,979,750.13
United States Supreme Court—Adjudication.......................................................................................................
Court of Customs Appeals—Adjudication (determination of controversies arising under customs laws)..
217,200.00
70,990.00
224,700.00
71,030.00
202,908.64
67,336.70
179,632.82
73,462.68
i With the exception of the small amount that was not allotted in 1913, the cost of operating the Governmmt Printing OfRce. has been charged to the branches of the Government service for whose account the work was done, or it is estimated will be done, under actual or proposed allotments.
ESTIMATES,
J^ilor&ry of Con^ross
3,600.00
797,891.15795,863.82
OF
$10,695,467.64
SUMMARIES
$10,496,324.77
$9,967,463.22
The Senate:
(Q
t—i
B U D G E T S T A T E M E N T N O . 13—Continued.
Com para^ve a%a&/SM o /
a^^ ac^aj
o/
CD
bo
ybr eacA o r y a ^ ^ a ^ ^
5^ yU ?^ c ^ o ^ .
Estimated expenditures for—
Actual expenditures for-
Organization units and functions.
1911
United States Commerce Court—Adjudication (determination of controversies arising under rulings of
Interstate Commerce Commission)...................................................^..................................................................
Court of Claims—Adjudication (determination of claims against the Government).....................................
Circuit courts of appeals and circuit, district, and Territorial courts—Adjudication (determination of
controversies arising under United States laws except in the District of Columbia)..............................
District of Columbia courts—Adjudication (determination of controversies arising in the District of
Columbia)....................................................................................................................................................... ..........
4,694, 611.00
4,574,465.00
4,459,632.12
4,292, 253.74
273, 940.00
224,440.00
235,235.91
Department of State (and various international commissions and enterprises).
310, 945.48
4,653, 372.61
4,559,767.85
4,258,409.41
4,478, 977.28
Legislation (compilation of laws).....................................................................................................................
Departmental administration and other general business...........................................................................
Election of President and Vice President (certification of presidential electors)..................................
Promotion of friendly relations with foreign nations and protection of American interests abroad.
Regulation of commerce (transportation and communication)................................................................
Granting patents and copyrights.....................................................................................................................
Fixing standards of measurement....................................................................................................................
Promotion of agriculture * * * .................................................................................................................
Promotion of trading * * * ....... ............................................................................................. ...............
Providing facilities for transportation.............. ............................................................................................
Promotion of interests of laboring classes......................................................................................................
Care and education of the * * * delinquent..........................................................................................
Promotion of public education and recreation and of art and pure science...........................................
Promotion and protection of the public health............................................................................................
4, 005.00
267, 822.00
4,001.00
263,620.86
4, 002.50
263, 230.32
4,331, 098.20
7, 000.00
4, 005.00
257, 282.00
1, 500.00
4,195, 810.00
15, 900.00
3,920,466.32
4,151.821.19
895.00
400.00
500.00
725.00
125.00
895.00
400.00
500.00
725.00
125.00
2,895.00
6,408.53
4,326.45
694.11
113.36
623.52
Department of the Treasury.
Executive direction and control (general accounting and auditing)........................ .......................................
Departmental administration and other general business..................................................................................
Administration of the national finances..................................................................................................................
Acquisition, maintenance, and operation of lands and buildings for office purposes (Federal buildings
outside of Washington)............................................................................................................................................
Acquisition, maintenance, and operation of lands and buildings for office purposes (Treasury Depart
ment building)..........................................................................................................................................................
Contracting for, purchasing, manufacturing, and inspecting supplies for general Government use
(providing checks, drafts, etc.)..............................................................................................................................
Contracting for, purchasing, manufacturing, and inspecting supplies for general Government use
(contracting for equipment and supplies— General Supply Committee)...................... .............................
956.00
846.41
9^956.00
42! 669.85
53,050.58
131.85
895.00
688.28
224.51
692.68
100.00
905.70
210.52
074.73
136,306,557.92
144,782, 143.83
78,891,994.47
76,036,402.11
1,947, 010.00
277, 730.00
101,490, 273.34
1,982, 146.75
333, 384.50
101,481, 885.88
1,995,178.82
266,296.36
40,984,982.79
2,129, 307.07
592, 451.60
39,815, 874.08
000.00
2 000.00
2,211.68
22,863,892.91
20,528, 056.64
356, 207.00
266, 264.28
269,557.70
263, 766.99
181, 116.17
140, 425.%
138,120.78
132, 782.17
35, 470.00
10 , 520.00
10,452.85
952.02
18,789, 630.82
27,771,
CONGRESS.
$35, 804.18
87, 651.23
TO
$62,373.98
92,430.98
SUBMITTED
$45,888.89
93,480.00
1914
$54, 500.00
96, 860.00
The judiciary—Continued.
FOR
1913
BUDGET
1912
1914
Re guIati onof ***banki ng...............................................................................
Providingamedium of exchange..................................................................................................
Providing facilities for transportation (coast patrol and marine rescue work)............. ......
Care and education of the dependent and defective (blind, and sufferers from volcano).
Promotion and protection of the public health.........................................................................
Department of War.
1 7 9 ,0 8 0 .0 0
5 ,1 6 8 ,3 2 5 .2 2
5 ,1 3 8 ,8 5 6 .3 0
4 0 ,0 0 0 .0 0
2 ,2 6 9 ,4 2 6 .7 3
1 7 5 ,8 9 5 .#
5 ,1 8 8 ,2 6 0 .4 9
4 ,8 7 0 ,9 7 6 .1 0
1 0 ,0 0 0 .0 0
2 ,1 1 8 ,3 8 0 .3 6
1 8 1 ,3 4 9 .8 2
4 ,9 9 8 ,0 1 1 .6 3
5 ,3 0 8 ,4 7 7 .7 8
1 0 ,0 0 0 .0 0
2 ,0 6 7 ,3 7 2 .3 1
1 9 9 ,1 9 5 ,0 1 8 .2 8
1 8 9 ,4 6 5 ,6 5 7 .7 5
1 5 5 ,1 3 2 ,0 6 1 .8 6
1 53 .9 7 3 ,8 7 4 .5 3
9 ,2 1 1 ,4 7 6 .2 7
8 ,1 5 1 ,9 3 4 .2 5
8 ,4 8 1 ,8 8 9 .1 8
6 ,9 6 6 .6 6
8 ,4 7 7 ,0 7 2 .1 9
4 7 8 ,4 9 3 .5 6
1 0 2 ,5 5 6 ,1 6 4 .9 5
1 2 ,4 4 1 ,2 2 8 .1 9
3 7 1 ,3 3 4 .4 3
9 9 ,7 4 4 ,0 5 6 .8 4
1 2 ,6 7 1 ,2 8 1 .0 6
3 4 0 ,2 3 7 .6 9
9 4 ,7 4 2 ,5 9 0 .1 4
1 3 ,0 2 4 ,5 5 3 .5 3
6 ,2 4 8 .4 9
3 2 5 ,2 8 8 .2 7
9 8 ,5 6 5 ,3 8 8 .4 0
1 2 ,9 7 9 ,5 4 6 .1 2
3 8 ,1 8 8 .4 0
6 6 ,7 3 4 ,0 9 9 .0 1
3 6 0 ,2 6 4 .5 2
5 96 ,0 5 9 .3 7
3 2 ,1 6 2 ,3 7 4 .4 6
3 8 6 .5 0 6 .4 3
4 9 7 ,7 0 0 .3 9
406 .34
5 3 4 ,4 3 6 .8 7
i
Department of Justice.
8 3 6 ,6 2 8 .2 7
5 ,7 6 8 ,0 9 7 .8 4
5 ,1 4 1 ,7 6 3 .8 7
Departmental administration and other general business.................................................................................
Departmental administration and other general business (for other departments)..................................... .
5 ,1 2 0 ,3 4 8 .9 8
4 ,9 4 7 ,7 0 4 .9 2
2 3 3 ,6 4 0 .0 0
7 8 .4 2 0 .0 0
2 3 9 ,1 8 3 .2 9
7 7 .7 2 0 .0 0
2 1 5 ,5 0 1 .8 2
77,859. 77
21 8 ,8 6 8 .9 3
7 3 ,4 6 1 .1 5
4 0 .6 2 0 .0 0
4 0 ,2 3 7 .6 3
3 5 ,1 2 0 .0 0
3 ,8 5 8 ,8 9 0 .0 0
1 ,5 5 6 ,5 2 7 .8 4
3 ,5 8 6 ,9 5 2 .5 8
1 ,1 9 7 ,2 8 8 .0 0
3 ,5 6 9 ,7 8 3 .0 8
1 ,2 1 6 ,9 6 6 .6 8
3 ,3 1 3 ,1 9 3 .2 4
1 ,3 0 7 ,0 6 1 .6 0
i
2 84 ,1 4 1 ,0 1 8 .0 0
2 7 1 ,6 0 8 ,5 5 0 .2 6 !
2 50 ,1 5 4 ,3 1 0 .2 9
2 4 0 ,2 0 8 ,4 1 0 .8 0
Departmental administration and other general business................................................................................... !
Acquisition, maintenance,, and operation of lands, buildings, etc., for general Government purposes... }
Providing facilities for transportation (mail subsidies)...................... ............................................................... !
P o s t a l * * * s e r v i c e .............................................................................................................................................. j
7 ,0 1 7 ,7 7 9 .7 0
2 4 0 ,7 6 8 .0 0
2 6 0 ,0 0 0 .0 0
2 7 6 ,6 2 2 ,4 7 0 .3 0
6 ,5 0 0 ,4 1 8 .0 0 !
2 0 6 ,5 1 8 .0 0 !
2 6 0 ,0 0 0 .0 0
2 6 4 ,6 4 1 ,6 1 4 .2 6
5 ,7 2 5 ,8 7 5 .1 8
2 0 2 ,2 8 1 .2 4
2 4 2 ,3 9 4 .9 6
2 4 3 ,9 8 3 ,7 5 8 .9 1
6 ,0 1 0 ,0 9 6 .3 8
2 14 ,06 9.2 1
1 8 5 ,9 1 2 .4 6
2 3 3 ,7 9 8 ,3 3 2 .7 5
1 52 ,6 2 6 ,0 0 8 .5 3
1 2 6 ,8 3 6 ,3 0 5 .4 0
1 3 4 ,2 9 9 ,2 5 0 .7 9
1 18 ,9 8 7 ,7 2 2 .4 9
2 ,3 0 6 ,0 6 1 .1 0
1 4 6 ,6 1 5 ,0 9 1 .4 3
3 ,0 0 4 ,8 5 6 .0 0
9 0 .0 0 0 .0 0
1 0 .0 0 0 .0 0 1
2 ,2 6 8 ,6 4 0 .4 2
1 2 1 ,0 3 5 ,5 0 8 .7 3
3 ,4 3 2 ,1 5 6 .2 5
9 0 .0 0 0 .0 0
1 0 .0 0 0 .0 0
2 ,0 9 1 ,0 2 9 .9 4
1 28 ,9 9 8 ,2 6 4 .5 5
3 ,0 9 1 ,5 8 3 .0 7
8 8 ,0 0 6 .7 8
3 0 ,3 6 6 .4 5
1 ,9 5 2 ,7 3 0 .4 5
1 1 3 ,7 7 3 ,0 7 2 .4 0
3 ,0 8 8 ,4 0 4 .2 9
9 3 ,8 3 7 .1 6
7 9 ,6 7 8 .1 9
Department of the N avy.........................................................................
Departmental administration and other general business........
National defense by sea....................................................*..............
Expenditures on account of past military services....................
Promotion of * * * fisheries (operation of vessels)............
Providing facilities for transportation (Lighthouse Service) 2.
!
ESTIMATES,
4 0 .6 2 0 .0 0
Legaf ad *ice and repre* en tat* " 1 " "the *C " *e "anient* *d*te - t * *f" " ** " ** 1" ^ - - - - - -of evidence............. ................................................. ..................................................................................................
Care and education of the * * * delinquent........ .......................................................................................... ;
OF
7 1 7 ,8 8 4 .2 8
3 6 ,0 2 5 ,9 0 3 .3 1
4 5 9 ,5 2 2 .9 8
4 0 1 ,9 9 3 .6 7
9 9 0 .0 9 6 .4 8
6 5 9 ,0 2 6 .3 9
7 2 ,8 7 8 ,0 4 7 .7 3
3 6 1 ,4 7 3 .8 6
5 5 0 ,2 4 9 .4 4
SUMMARIES
General executive direction and control (investigation of administration of Reclamation Service).........
Departmental administration and other general business ...............................................................................
Acquisition, maintenance, and operation of lands and buildings for office and other purposes (public
buildings and grounds at Washington)................................................................................................................
National defense by land.............................................................................................................................................
Expenditures on account of past military services...............................................................................................
Promotion of friendly relations with foreign nations * * * (relief of famine in China)........................
Providing facilities for transportation (improvement of rivers and harbors, operation and care of
canals, survey of the Lakes, etc.)......................................... ................................................................................
Postal and other communication service (Washington-Alaska cable and telegraph system)....................
Promotion of public education and recreation (parks, monuments, etc.).......................................................
Care of * * * dependent (sufferers from Rood, storm, and earthquake)..................................................
Aid in local government (District of Columbia, Alaska, and insular possessions).........................................
1 7 3 ,5 8 0 .0 0
4 ,5 8 4 ,5 5 4 .5 9
5 .3 9 0 .7 2 0 .0 0
1 0 ,0 0 0 .0 0
3 .0 6 5 .2 6 6 .0 0
i Entire reported cost of the office of the Secretary, General Staff, and Adjutant General's, Judge Advocate General's, Inspector General's, and Quarterhiaster General's
Departments in and out of Washington, as well as a part of the administrative costs at military headquarters.
3 Does not include pay of supervisor of New York Harbor nor of oihcers detailed for work on the Panama Canal (something over $10,000 a year in all).
(O
OO
<D
B U D G E T S T A T E M E N T N O . 1 3 —Continued.
Comparative analysis o/* estimated a?M? actt^at ezpe7M%tMres o / Government
/o r eac& organisation t^nit, ctassi^ed &y /imctio7M.
Estimated expenditures for—
Actual expenditures for-
Organization units and functions.
1914
1913
1912
1911
155,440,308.63
2,025,731.73
15,910,304.50
97,222.12
375.736.04
2,899,645.55
11,339,715.73
366, 833.81
174, 704.06
144, 042.89
22 , 423.00
159,838, 457.64
1,941, 435.12
14,367, 051.58
100, 431.16
371, 319.57
2,578, 839.01
11,865, 352.69
345,017.07
387,719.82
440,910.71
598,035.85
92, 000.00
64, 840.00
586, 776.16
92,900.00
61,147.24
516,510.24
104,700.00
53,895.64
547,716.28
Department of Agriculture................. ..............................................................................................................................
24,706,012.72
25,422,263.27
19,669,338.89
18,793,633.10
Departmental administration and other general business.................................................................................
Acquisition, maintenance, and operation of lands and buildings for ofBce purposes (department build
ings)........................................................
Inspecting and testing supplies for general Government use (ofBce supplies, etc.).....................................
Regulation of commerce (enforcement of 28-hour law for prevention of cruelty to animals).....................
Meteorological research and weather forecasting (including flood prediction)..............................................
Promotion of agriculture and forestry and care and utilization of the public domain................................
Promotion of trading, etc. (investigating foreign requirements regarding American food products)____
Providing facilities for transportation (good roads).............................................................................................
Promotion and protection of the public health * * * etc. (meat inspection, enforcement of pure
food law, etc.)..................................................................... ..................................................................................
Aid in local government (contributions to States for roads and schools).......................................................
754.145.00
762,905.00
714.106.18
653,794.77
219.509.00
50,250.52
3,588.53
1,712,490.00
16,229,381.08
4,838.52
398.740.00
214, 360.14
39, 522.96
3, 594.96
1,
680.00
17,138, 156.79
4, 910.26
711, 620.00
192,807.86
37,931.23
3,572.58
1,618,097.94
12,470,366.95
4,793.11
163,776.16
172.865.83
35,100.58
3,554.96
1,515,004.48
12,083,557.16
5,621.52
115,021.70
4,542,070.07
791,000.00
4,0
786j 710.31
3,981,510.70
482.376.18
3,702,917.27
506.194.83
Department of Commerce and Labor.................. .............. ............................................................................................
17,163,404.62
15,784, 204.75
15,375,758.49
20,885,518.96
Departmental administration and other general business..................................................................................
Acquisition, maintenance, and operation of lands and buildings for ofHce purposes (department build
ings)......................
Inspecting and testing supplies and equipment for general Government use (office supplies and equip
ment, etc.).................................. ........................................................................................................................
216.446.00
181, 235.00
172,029.61
164,660.95
161.554.00
156, 630.00
193,704.54
208,252.26
132.700.00
H5, 300.00
97,349,00
84,992.00
185.435.00
107.540.00
1,053,809.00
22,000.00
TO CONGRESS,
$193,075,238.30
368,347.38
152,861.31
143,685.98
SUBMITTED
$189,887,027.16
387, 586.33
164, 741.67
170, 418.11
23, 300.00
167,215, 384.89
1,933, 881.23
18,790, 269.87
166, 391.48
394 492.53
3,029 575.69
1 1 , 12 1 : 186.29
1914
$204,528,564.07
450, 371.33
523, 835.00
153, 990.76
23, 300.00
187,348, 724.05
2,099, 991.23
19,265, 976.73
441, 300.08
560, 552.94
Sf,637, 315.90
14,018, 907.41
FOR
$230/216,066.50
BUDGET
Department o f the Interior............................. ......................... .......... .........................................................................
The department proper:
Departmental administration and other genera! business.................................................... ....................
Acquisition, maintenance, and operation of lands and buildings for general Government purposes.
Inspecting and testing supplies for general Government use (coal).........................................................
Preparation of maps * * * for general Government use.....................................................................
Expenditures on account of past military services (pensions).................................................................
Granting patents...........1..................................................................... . ..............................................................
Promotion of agriculture, forestry, and fisheries, and care and utilization of the public domain____
Promotion of * * * mining......................................................................................................................
Promotion and protection of interests of the laboring classes (mine-accident work)..........................
Promotion of public * * * education and recreation............................... ...........................................
Care and education of Indians and other wards of the Nation..................................................................
Aid in local government (work for Alaska, Arizona, New Mexico, and Hawaii, and contributions
to roads and schools in States). . — ..........................................................................................................
Institutions under the supervision of the department:
Promotion of public education, * * $ etc. (education of the negro)................................................
Promotion and protection of the public health (medical care of the negro)...........................................
Care and education of the defective, dependent, and delinquent (deaf and insane). . ........................
Preparation and distribution of * * * personnel lists for general Government use (Official Reg
ister) .............................................................................................................................................................................
Adjudication (of rights to naturalization and of claims under workmen's compensation act)...................
Promotion of friendly relations with foreign nations (marking international boundary)...........................
Regulation of commerce (investigation of manufacturing and trading corporations and regulation of
navigation)........................................................................................ ........................................................................
Collecting data regarding population and other general statistical information.............................................
Fixing standards of measurement....................................................................................................................... .
Promotion of agriculture, forestry, and fisheries
Promotion of trading, etc. (information service)
Providing facilities for navigation (lights, buoys, etc., and charts)............................
Promotion of interests of laboring classes (including regulation of immigration)...
Promotion and protection of the public health, etc. (collection of vital statistics).
Care of dependent (relief in remote regions).....................................................................
289,983.48
12,400.00
25.506:87
250^482.56
15,700.00
11,715.22
228,391.24
15,399.00
1,044,490.00
765.060.00
609.500.00
1,773,281.82
475.800.00
7,731; 873.18
3,802,127.29
96.620.00
150.00
1.003.700.00
1.069.310.00
470,954.30
1,339,262.80
375.160.00
6,937,886.45
3,730,262.72
102.120.00
914,106.76
1,990,398.39
570,796.65
1,261,355.66
326,728.15
6,271,688.73
3,152,497.86
133,513.71
872,346.42
7,544,949.08
339,167.39
1,341,386.68
296,610.36
6,394,491.15
3,248,940.41
134,216.80
33,899,702.23
58,277,125.02
37,933,029.71
36,092,385.35
440.075.00
1,790,000.00
360.015.00
1,840,813.68
352,277.46
1,578,508.90
328,439.86
1,395,401.92
988,895.12
30,174,432.11
8,800.00
758,595.12
54,771,719.36
5,000.00
862,703.25
34,912,034.43
6,788.63
1,031,123.62
33,100,941.79
9,555.09
809.64
6,018.03
166,994.42
212,005.04
25,357.15
27,555.83
8,900.00
6,124,508.80
5,134,223.55
5,814,309.05
5,385,488.63
6,092,758.8
5,076,073,55
5,764,659.05
17.250.00
14.500.00
14,150.00
44,000.00
14.150.00
14.500.00
5,301,843.86
10,067.59
9,815.15
12,500.00
51,262.03
Grand total.................................................................................. ............. .............................. .
...............
Less amounts expended by executive departments but payable from the revenues of the District cf Columbia.
1,110,624,372.27
583,795.00
1,067,566,954.94
502,201.90
912,972,709.54
419,728.12
889,366,456.27
417.003.83
Total payable from Federal revenues..........................................................................................................
1,110,040,577.27
1,067,064.753.04
912,552,981.42
88S,949,452.44
Districts and Territories.
District of Columbia—Local government (contributions out of Federal revenues only).
Arizona— Local government......................................................................................................
New Mexico— Local government................................................................. ............................ ^
Alaska—Local government............................................................................................................
Hawaii—Local government........ ..................................................................................................
300,000.00
25,000.00
10.000.00
10,000.00
11,000.00
ESTIMATES.
10,000.00
175.320.00
25.000.00
24,642.85
46,019.01
250,000.00
10,000.00
162.500.00
OF
Civil Service Commission—General executive direction and control (examination and certification of
applicants for civil appointments)........................................................................................................................
Interstate Commerce Commission—Regulation of commerce...........................................................................
Smithsonian Institution—Promotion of public education and recreation, and of art and pure science
(maintenance of museum, zoological park, institutions for research, etc)....................................................
Isthmian Canal Commission—Providing facilities for transportation..............................................................
Commission of Fine Arts—Promotion of public education and recreation, and of a r t ................................
Board of Arbitration on Interstate Commerce Controversies—Promotion and protection of the interests
of the laboring classes..................... ..........................................................................................................................
Superintendent of the State, War and Navy Building—Acquisition, maintenance, and operation of
lands and buildings for office purposes. ; .............................................................................................................
Alaska Railroad Commission—Local government................................................................................................
Lincoln Memorial Commission— Promotion of public education, etc...............................................................
Grant Memorial Commission— Promotion of public education, etc...................................................................
Perry's Victory Centennial Commission—Promotion of public education, etc...............................................
International Irrigation Congress— Promotion of agriculture, etc.....................................................................
*
SUMMARIES
Other Government establishments.
10,000.00
333,212.33
10.590.00
to
<71
B U D O E T S T A T E M E N T NO. 14.
a%a%ysts
ac^aJ
0/
ybr gacA orp am za& m
5y cAam c^r q/^
[In the following statement the subtotals precede Hie items that make them up. The items making up the grand total are indicated by boldface type. The items making up
the boldface subtotals are in roman type, as are also those making up roman subtotals of two grades. The relations of these two grades of roman subtotals are shown by the
indention of the items from the margin of the table, items indented the same distance being coordinate. All subtotals are marked by an underscore.]
Actual expenditures for—
1914
1913
1912
1911
BUDGET
Estimated expenditures for—
Organization units and character of expenditure.
$9,967,463.22
$10,496,324.77
$10,695,467.64
$11,063,546.46
FOR
The Senate.
1,769,716.50
1,815,346.50
1,777,868.78
1,855,047.93
1914
1,757,716.50
1,775,046.50
1,757,781.72
1,770,945. (
1,753,216.50
4,500.00
1,768,746.50
6,300.00
1,750,683.86
7,097.86
1,766,146.12
4,799.56
Current expenses.
Overhead and operating expenses.
Upkeep of property..........................
Acquisition of property—Equipment.. .............................
12,000.00
Other expenditures—Pensions, retirement salaries, etc.
House of Representatives.............................................................
OfRce of Superintendent of Capitol Building and Grounds.............................................
Current expenses.
76,715.00
4,716,979.70
4,746,361.39
4,927,493.10
4,877,920.25
4,627,979.70
4,714,489.87
4,839,681.18
4,876,920.25
1, 000.00
4,626,817.13
1,162.57
4,711,884.77
2,605.10
4,839,681.18
17,500.00
14.000.00
29,186.52
75.000.00
2,685.00
73,905.00
1,912,773.72
1,863,570.00
2,511,329.66
2,223,410.27
178,900.00
951,757.00
520,528.17
861,975.09
176,100.00
427,532.00
361,741.53
480,471.99
Other expenditures—Pensions, retirement salaries, etc.......................... ...................
Joint committees and commissions and joint legislative expenses—Current expenses .
7,387.25
5,550.00
"13J90&92
CONGRESS.
Acquisition of property— Equipment.............................................................................
14,537.06
TO
Overhead and operating expenses.
Upkeep of property..........................
4,895,420.25
17.800.00
22.500.00
SUBMITTED
The Congress.
Overhead and operating expenses.
Upkeep of property..........................
Acquisition of property.
Land...........................................
Buildings....................................
Other improvements to land.
Equipment................................
160,451.00
15,649.00
2,800.00
411.926.00
15,606.00
337,800.47
23,941.06
320,250.28
160,221.71
506.725.00
142,786.64
379,866.96
81,168.78
380.30
179,246.55
4,231.26
196,008.85
500,000.00
Other expenditures.
17,500.00
*6^617^86
16,000.00
Court awards___
Unclassified........
17.500.00
16,000.00
2,800.00
6,725.00
1,636.14
1,636.14
78.450.00
77,256.98
251,424.00
238,364.00
237,201.75
223,978.56
250,421.00
237,413.00
236,255.90
221,956.71
246,823.00
3.598.00
234,002.00
3.411.00
232,861.05
3,394.85
220,689.33
1,267.38
951.00
945.85
2,021.85
858,066.42
Overhead and operating expenses.
Upkeep of property..........................
Acquisition of property—Equipment.......................................................
1.003.00
3.600.00
Government Printing Office (Printing OfRce proper)—Current expenses.
Library of Congress...............................................................................................
849,885.00
795,863.82
797,891.15
Current expenses............................................................................................
719,385.00
679,830.85
664,878.79
683,124.70
611.785.00
107.600.00
574,680.85
!05 ,150.00
560,096.54
104,782.25
578.587.41
104,537.29
130.500.00
116,032.97
133,012.36
174,941.72
3,882.97
29,906.46
7.068.67
135,537.60
2,428.99
Overhead and operating expenses.
Upkeep of property..........................
Acquisition of property.
Buildings....................................
Other improvements to land.
Equipment................................
Unspecified................................
5,000.00
124,000.00
1,500.00
111,500.00
650.00
4,800.00
11,590.31
114,199.58
2,422.47
National Botanic Garden—Current expenses .
30,893.75
32,393.75
27,029.76
29,892.63
24,893 75
25,393.75
7,000.00
20,029.76
7,000.00
22,892.63
7,000.00
Overhead and operating expenses.
Upkeep of property..........................
6,000.00
OF ESTIMATES,
78,450.00
Government Printing Office—Superintendent of documents.
SUMMARIES
Capitol police—Current expenses...................................................
B U D G E T S T A T E M E N T U fO . 14-Continued.
00
o/
aTMf ac^a^ e%pe7M%%Mr%s o/*
orya7MM%o% imtt, c^ossi/M^ &y cAarcc^r q/* %t%M7MKiMr6.
Estimated expenditures for—
Actual expenditures for—
Organization units and character of expenditure^
The President.....................................................................................................................................................................
3449,040.00
$296,056.66
199,040.00
200,056.66
194,137.31
194,762.30
Overhead and operating expenses......... ...................................................................................................... .
Upkeep of property...............................................................................................................................................
186,640.00
12,400.00
187,656.66
12,400.00
181,737.31
12,400.00
182,362.30
12,400.00
enses
Overhead and o eratine expenses
11,000.00
280,128.92
202,706.78
250,000.00
85,000.00
124,390.07
46,742.76
247,000.00
84,500.00
121,679.71
42,818.97
246,800.00
200.00
84,450.00
50.00
121,553.71
126.00
42,811.47
7.50
3,000.00
500.00
2,710.36
3,923.79
Acquisition of property-Equipment
Railroad Securities Commission-Current expenses
Overhead and o eratin e
Acquisition of property-Equipment
Court of Customs'Ap eals
*
17,459.67
1,116.28
5,368.50
12,475.09
5,408,101.00
5,234,003.89
5,119,918.33
4,979,750.13
217,200.00
224,700.00
202,908.64
179,632.82
211,800.00
219,300.00
197,658.43
175,606.45
800.00
218,500.00
800.00
196,858.43
800.00
175,306.45
300.00
211,000.00
5,400.00
5,400.00
5,250.21
4,026.37
70,990.00
71,030.00
67,336.70
73,462.68
TO CONGBESS.
Commission to Investigate Cost of Second-Class Mail-Current expenses
The judiciary
$457,803.21
SUBMITTED
Currente
$621,484.47
1911
1914
Commission on Economy and ESiciency
1912
FOB
1913
BUDGET
1914
Current expenses.....................................................................................
69,590.00
69,590.00
66,686.30
69,611.34
Overhead and operating expenses...............................................
Upkeep of property.........................................................................
69.390.00
200.00
69,390.00
200.00
66,686.30
69,611.34
1,400.00
1,440.00
650.40
3,851.34
United States Commerce Court.................................................................
54.500.00
45,888.89
62,373.98
35,804.18
Current expenses....................................................................................
51,350.00
42,738.89
46,122.62
16,052.91
Overhead and operating expenses..............................................
Upkeep of property.......................................................................
51.235.00
115.00
42,623.89
115.00
45,635.12
487.50
16,052.91
Acquisition of property—Equipment................................................
3,150.00
3,150.00
16,251.36
19,751.27
96.860.00
93,480.00
92,430.98
87,651.23
Current expenses......................................................... ..........................
94,960.00
92,580.00
91,485.79
83,346.91
Overhead and operating expenses..............................................
Upkeep of property.......................................................................
94,460.00
500.00
91,480.00
1,100.00
90,996.68
489.11
82,395.83
951.08
900.00
945.19
4,304.32
224,440.00
235,235.91
310,945.48
Current expenses....................................................................................
232,300.00
223,700.00
233,918.27
217,686.48
Overhead and operating expenses..............................................
Upkeep of property........................................................................
227,090.00
5,210.00
218,490.00
5,210.00
223,732.64
10,185.63
207,513.36
10,173.12
Acquisition of property........................................................................
41,640.00
740.00
1,317.64
93,259.00
Buildings..........................................................................................
Equipment.......................................................................................
40,900.00
740.00
740.00
467.60
850.04
64,208.05
29,050.95
Circuit courts of appeals, and circuit, district, and Territorial courts
4,694,611.00
4,574,465.00
4,459,632.12
4,292,253.74
Current expenses...................................................................
4,394,225.00
4,401,725.00
4,234,085.19
4,145,451.48
Overhead and operating expenses............................
Upkeep of property......................................................
4,393,735.00
490.00
4,401,235.00
490.00
4,233,432.31
652.88
4,140,824.72
4,626.76
Acquisition of property—Equipment............................. .
0 t&eTtexpenditures— Pensions, retirement salaries, etc
160,386.00
L 140,000.00;
32,740.00
92,885.82
28,745.31
140,000.00
132,061.11$
118,056.95
ESTIMATES.
1,900.00
273,940.00
OF
Acquisition of property—Equipment...................................... .....
District of Columbia courts........................................................................
SUMMARIES
Acquisition of property—Equipment...............................................
Court of Claims................................................. ............................. ........... .
BUDGET STATEMENT NO. i4—Continued.
o/
aTMf a c ^ a ^
q/* (rover7MM6%%
/ o r gocA o r y a m za ^ o ^
cAam c^r q / %3pe7K%^%r6.
Estimated expenditures for—
Actual expenditures for—
Organization units and character of expenditure.
1913
1912
1911
$988,129,221.05
$852,788,500.34
$831,387,482.49
4,653,372.61
4,559,767.85
4,258,409.41
4,478,977.28
Current expenses....................................................................................................................................................
4,590,865.11
4,503,486.56
4,116,607.69
4,400,134.52
Overhead and operating expenses.............................................................................................................
Upkeep of property.......................................................................................................................................
4,570,837.97
20,027.14
4,485,318.58
18,167.98
4,098,488.39
18,119.30
4,380,376.58
19,757.94
62,507.50
56,281.29
141,801.72
78,842.76
1,000.00
61,507.50
1,000.00
55,281.29
19,248.62
7,691.23
114,861.87
330.12
78,512.64
136,306,557.92
144,782,143.83
78,891,994.47
76,036,402.11
SUBMITTED
38,717,755.14
38,205,369.19
37,966,311.95
37,697,146.09
36,882,257.92
1,835,497.22
36,555,330.98
1,650,038.21
36,193,234.51
1,773,077.44
35,926,602.52
1,770,543.57
13,688,224.18
22,825,924.64
17,836,441.20
16,057,856.12
69,000.00
9,568,588.00
1,836,435.82
2,211,000.36
3,200.00
1,244,439.00
16,778,197.99
2,908,515.70
1,891,871.95
2,900.00
3.269.577.42
10,893,311.68
2.138.256.42
1,515,059.87
20,235.81
2,197,313.41
8,767,229.15
2,845,671.14
2,266,948.67
1
83,900,578.60
83,750,850.00
23,089,241.32
22,281,399.90
Interest on debt and other obligations......................................................................................................
60.685.000.00
22.860.000.00
Subsidies, grants, contributions, etc..........................................................................................................
220,578.60
135,000.00
60.650.000.00
22.775.000.00
1,750.00
214,100.00
110,000.00
120,616.03
22,616,300.48
2,281.78
214,734.32
135,308.71
246,496.35
21,311,334.12
295,172,71
221,183.42
207,213.30
ETeowtive ^^pArtr"ents.
..
...........
..........................
............. .
.....................
State, and various international commissions and undertakings.......................................................................
Buildm
Treasury
Land
Other expenditures................................................................................................r.............................................
*
CONGRESS.
Acquisition of property
TO
Overhead and o eratingex enses
FOR
$1,054,775,557.02
1914
BUDGET
1914
War
199,195,018.28
189,465,657.75
155,132,061.86
153,973,874.53
98,556,756.10
97,042,749.79
98,378,438.01
88,827,238.62
7,437,662.68
89,904,864.39
8,651,891.71
89,641,650.16
7,401,099.63
89,900,749.92
8,477,688.09
Acquisition of property..................................................
57,124,181.21
56,230,491.24
33,355,584.45
32,140,058.77
Land...........................................................................
Buildings....................................................................
Other improvements to land and to waterways
Equipment................................................................
Stores..........................................................................
Work in progress.....................................................
Unclassified...............................................................
106,200.00
3,804,111.16
37,975,971.57
10,027,871.03
4,425,349.44
115,522.47
669,155.54
666,914.29
1,676,190.77
37,788,464.31
11,331,531.84
4,262,473.36
s%0%,7%l.W
707,637.67
518,054.59
1,819,487.46
19,229,154.24
10,522,434.45
1,927,394.07
2 1,073,353.46
411,918.10
138,950.06
2,989,942.11
16,688,283.72
10,555,621.98
2,358,087.41
3j,i%6,SJ3.47
535,531.96
Other expenditures............................ : ...........................
7,245,051.48
7,541,180.31
7,478,520.16
7,167,811.32
Interest on debt and other obligations................
Court awards.............................................................
Pensions, retirement salaries, etc..........................
Subsidies, grants, contributions, etc....................
190,000.00
491.48
5,854,560.00
1,200,000.00
190,000.00
266,120.31
5,885,060.00
1,200,000.00
187,040.07
22,416.03
6,026,527.32
1,242,536.74
244,233.36
111,596.29
5,594,574.53
1,217,407.14
Unclassified expenditures.............................................
38,560,884.29
27,137,230.10
17,255,207.46
16,287,566.43
Justice........................................................................................
5,768,097.84
5,141,763.87
5,120,348.98
4,947,704.92
5,313,903.00
4,941,661.47
4,882,353.22
4,688,743.17
Overhead and operating expenses
Upkeep of property........................
5,278,136.75
35,766.25
4,910,357.22
31,304. 25
4,848,504.52
33,848.70
4,615,251.28
73,491.89
Acquisition of property.........................
454,194,84
200,102.40
237,995.76
258,961.75
Land........... —
Buildings...
Equipment.. . . ...............................
41,000.00
388,401.84
24,793.00
177,000.00
23,102.40
210,509.84
27,485.92
237,816.97
21,144.78
284,141,018.00
271,608,550.26
250,154,310.29
240,208,410.80
239,417,606.05
239,386,455.73
31,150.32
Post O f R c e .
...
....... .......................
Current expenses.................................................................... .................
282,901,958.88
270,137,045.01
249,235,684.90
Overhead and operating expenses.....................................................
Upkeep of property......................................................................... .
282,846,558.88
55,400.00
270,089,845.01
47,200.00
249,190,048.07
45,636.83
i Decrease in stores; deduction from total expenditures.
2 Decrease in work in progress; deduction from total expenditures.
101
ESTIMATES.
Current expenses....................................
OF
96,264,901.30
Overhead and operating expenses...........................
Upkeep of property.....................................................
SUMMARIES
Current expenses.............................................................
B I H M B T S T A T E M E N T N O , lA-CanMnaed.
C o w p a r a tw ana%i/Ma o /
an d acf^a^ e z p e n d ^ r g s o / G o v e m 7 ? ^ n t / o r 6acA oryam zatton
c^agg^ed &y character o / ea?pe?MK^ye.
Estimated expenditures for—
Actual expenditures for—
Organization units and character of expenditures.
1913
1912
1911
Executive departments—Continued.
Post OiBce—Continued.
$572,927.15
296,556.71
217,877.60
260,000.00
100,000.00
260,000.00
62,000.00
242,394.96
54,161.75
185,912.46
31,965.14
152,626,008.53
126,836,305.40
134,299,250.79
118,987,722.49
86,110,192,03
82,449,759.65
81,398,536.72
79,128,015.65
75,898,199.03
10.211.993.00
72,337,289.65
10.112.470.00
71,437,261.53
9,961,275.19
69,427,895.36
9,700,120.29
62.485.956.00
40.525.852.00
49,409,151.96
36,474,404.29
3,619,055.00
56,358,701.00
2,500,000.00
75,590.00
4,017,145.00
34,183,117.00
2,250,000.00
291,068.66
7,375,919.37
39,039,139.72
2,703,024.21
265,675.64
1.232.639.55
7.846.081.55
24,395,685.19
2,734,322.36
3,979,860.50
3,810,693.75
3,416,154.69
8,363,783.24
42,568.00
3,937,292.50
63,267.00
3,747,426.75
40,302.64
3,375,852.05
27,510.08
3,336,273.16
Subsidies, grants, contributions, etc...
Indemnities for loss of registered mail.
Navy.
Current expenses..
Overhead and operating expenses.
Upkeep of property..........................
Acquisition of property.
Land...........................................
Buildings....................................
Other improvements to land.
Equipment................................
Stores...........................................
Other expenditures.
Interest...............................................
Pensions, retirement salaries, etc.
Unclassified.
Interior.
Current expenses.
Overhead and operating expenses.
Upkeep of property..........................
8,200.00
21,519.31
50,000.00
50,000.00
230,216,066.50
204,528,564.07
189,887,027.16
193,075,238.30
22,405,247.17
19,752,861.33
19,043,183.82
18,898,362.27
20,947,236.18
1,458,010.99
18,446,556.58
1,306,304.75
17,968,600.06
1,074,583.76
17,930,366.36
967,995.91
TO CONGRESS.
$622,068.68
322,000.00
SUBMITTED
$1,149,505.25
360,000.00
1914
$879,069.12
Other expenditures..................................
FOB
Acquisition of property—Equipment..
BUDGET
1914
Acquisition of property.
Land...........................................
Buildings....................................
Other improvements to land.
Equipment................................
Stores...........................................
Other expenditures.
Interest...................................................................................................................................................
Court awards........................................................................................................................................
Pensions, retirement salaries, etc.....................................................................................................
Subsidies,grants,contributions,etc...............................................................................................
Per capita payments to Indians (not including payments from interest and trust funds).
Current expenses..
Overhead and operating
Upkeep of property........
Acquisition of property.
13, 040, 877.46
12, 167, 183.12
304,000.00
737,504.36
13,445,837.54
1,107,792.78
386,494.01
1,115,345.55
10,379,873.06
1,120,733.99
38,430.85
227,637.07
681,007.18
9,870,210.05
1,253,804.81
134,524.01
189,447,520.00
169,180,568.06
157,802,965.88
162,009,692.91
1,700,000.00
1, 700.000.00
1. 198,633.
1,063,957.33
139,698.08
157,325,160.35
2,497,855.76
983,021.39
5,843.
152, i6,433.
2, 732,716.
879,338.
185,000,000.00
2,700,000.00
47,520.00
52,048.06
164, 500.000.00
2, 715.000.00
213,520.00
24,706,012.72
25,422,263.27
19,669,338.89
18,793,633.10
19,913,720.67
18,689,839.76
16,327,806.87
16,158,865.94
19,692,809.47
220,911.20
18,476,785.46
213,054.30
16,121,606.45
206,200.42
15,966,372.89
192,493.05
2,801,292.05
4,741,923.51
1,419,155.84
688,572.33
1,830,700.00
430,456.00
4,500.00
535,636.05
3,775,873.21
447,620.03
18,150.00
500,280.27
17,775.00
923,737.46
3,123.10
474,520.28
296,978.12
1,666.95
389,927.26
OF
Other expenditures—Subsidies, grants, contributions, etc..
1,991,000.00
1,990,500.00
1,922,376.18
1,946,194.83
Commerce and Labor............................................................................
17,163,404.62
15,784,204.75
15,375,758.49
20,885,518.96
13,933,833.21
13,390,431.75
13,867,346.58
19,356,381.36
12,673,862.21
1,259,971.00
12,172,560.75
1,217,871.00
12,608,141.33
1,259,205.25
18,224,216.92
1,132,164.44
Acquisition of property.
3,189,571.41
2,391,130.45
1,508,411.91
1,529,137.60
Land............................................
Buildings....................................
Other improvements to land.
Equipment................................
Unclassified..............................
Other expenditures.
114.275.00
835.700.00
731.550.00
1,508,046.41
90,774.20
1,154,410.73
355,871.20
788,190.05
1,884.27
2,642.55
31,437.00
752,796.11
113,629.57
599,330.85
11,218.38
19,488.80
430,641.99
310,138.67
761,110.60
7,757.54
Current expenses.
Overhead and operating expe:
Upkeep of property.................
Court awards................................
Compensation for injuries and 1
40,000.00
40,000.00
2,642.55
ESTIMATES.
Land............................................
Buildings....................................
Other improvements to land.
Equipment................................
15, 595, 134.68
352,000.00
2,513,090.61
14,072,341.64
1,425,867.08
SUMMARIES
Agriculture.
18, 363, 299.33
104
B U D G E T S T A T E M E N T N O . 14—Continued.
Compara^# tma^/sts q/
Je^pa^cK^rg^ o/*
/or %%cAoryamza^to^
cAarac^r q/*
Estimated expenditures for—
Actual expenditures for-
Organization units and character of expenditures.
1913
1912
1911
Other Government establishments.
$33,899,702.23
$58,277,125.02
$37,933,029.71
6,092,385.35
Civil Service Commission..............
440,075.00
360,015.00
352,277.46
328,439.86
Buildings.. .
Equipment.
Interstate Commerce Commission.
Current expenses.
Acquisition of property.
Equipment..............................
Stores (increase or decrease).
346,887.37
325,730.31
346,200.63
686.74
325,362.68
367.63
10,805.00
5,982.00
5,390.09
2,709.55
10,805.00
4,000.00
1,982.00
5,390.09
2,709.55
1,790,000.00
1,840,813.68
1,578,508.90
1,395,401.92
1,770,750.00
1,819,063.6
1,555,696.21
1,375,174.79
1,768,647.00
2,103.00
1,816,760.68
2,303.00
1,554,046.36
1,649.85
1,372,071.93
3,102.86
21,650.00
22,812.69
20,215.75
21,650.00
12,986.60
9,826.09
16,671.89
3,543.86
862,703.25
1,031,123.62
19,150.00
19,150.00
*
Other expenditures—Medals.
100.00
100.00
Smithsonian Institution................
i,895.12
758,595.12
11.38
i9,146.00
590,645.00
573,432.63
574,797.64
618.431.00
50,715.00
552.180.00
38,465.00
525,085.69
48,346.94
519,658.25
55,139.39
Acquisition of property.
263.054.00
111.255.00
232,575.50
399,630.86
Land...........................
18,650.00
14,695.00
Current expenses..
Overhead and operating expenses.
Upkeep of property..........................
TO CONGRESS,
Overhead and operating expenses.
Upkeep of property..........................
354,033.00
353,483.00
550.00
SUBMITTED
Acquisition of property.
429,270.00
428,720.00
550.00
1914
Overhead and operating expenses.
Upkeep of property..........................
FOB
Current expenses.
BUDGET
1914
Btuldings....................................
Other improvements to land.
Equipment................................
97, 970.00
1 4 6 ,4 3 4 .0 0
1 9 ,0 0 0 .0 0
7 7 ,5 6 0 .0 0
2 2 ,0 8 6 .7 8
525.27
209 ,9 6 3 .4 5
2 2 6 ,2 9 3 .3 9
1 ,2 4 8 .7 8
1 7 2 ,0 8 8 .6 9
5 6 ,6 9 5 .1 2
5 6 ,6 9 5 .1 2
5 6 ,6 9 5 .1 2
5 6 ,6 9 5 .1 2
3 0 ,1 7 4 ,4 3 2 .1 1
5 4 ,7 7 1 ,7 1 9 .3 6
3 4 ,9 1 2 ,0 3 4 .4 3
3 3 ,1 0 0 ,9 4 1 .7 9
2 0 ,0 3 9 ,1 4 0 .8 8
1 0 ,1 3 5 ,2 9 1 .2 3
4 9 ,6 9 2 ,5 6 3 .0 5
5 ,0 7 9 ,1 5 6 .3 1
3 3 ,0 7 9 ,7 9 4 .9 4
1 ,8 3 2 ,2 3 9 .4 9
3 2 ,1 3 3 ,3 5 4 .5 5
9 6 7 ,5 8 7 .2 4
8 ,8 0 0 .0 0
5 ,0 0 0 .0 0
6 ,7 8 8 .6 3
9 ,5 5 5 .0 9
8 ,8 0 0 .0 0
5 ,0 0 0 .0 0
6 ,4 2 8 .9
5 ,9 2 3 .2 5
8 ,5 2 0 .0 0
2 8 0 .0 0
5 ,0 0 0 .0 0
6 ,0 6 7 .3 3
361 .65
5 ,7 4 8 .7 5
174 .50
3 59.65
3 ,6 3 1 .8 4
10,000.00
10,000.00
809 .64
6 ,0 1 8 .0 3
1 6 2 ,5 0 0 .0 0
1 7 5 ,3 2 0 .0 0
166 ,99 4.4 2
2 1 2 ,0 0 5 .0 4
SUMMARIES
1 6 2 ,5 0 0 .0 0
1 5 6 ,6 7 5 .0 0
1 6 2 ,7 3 7 .9 5
16 2 ,9 0 6 .1 1
OF
1 4 4 ,7 6 0 .0 0
1 7 ,7 4 0 .0 0
1 4 1 ,5 3 5 .0 0
1 5 .1 4 0 .0 0
1 4 6 ,8 9 5 .4 0
1 5 ,8 4 2 .5 5
14 2 ,0 7 5 .7 5
2 0 ,8 3 0 .3 6
1 8 .6 4 5 .0 0
4 ,2 5 6 .4 7
4 9 ,0 9 8 .9 3
2 ,5 0 0 .0 0
1 6 ,1 4 5 .0 0
1 ,6 0 4 .9 7
2 ,6 5 1 .5 0
4 9 ,0 9 8 .9 3
2 4 ,6 4 2 .8 5
2 5 ,3 5 7 .1 5
2 4 ,6 4 2 .8 5
25 ,3 1 3 .1 5
Other improvements to land and to waterways.
^
* IRed
Unclassified
Commission of Fine Arts
Current expenses.
Overhead and operating expenses.
Upkeep of property..........................
Acquisition of property—Equipment....................................................................................................
Board of Arbitration on Interstate Commerce Controversies—Overhead and operating expenses.
Superintendent State, War, and Navy Department Building...............................................................
Current expenses.
Overhead and operating expenses.
Upkeep of property..........................
Acquisition of property.
Buildings...
Equipment.
Lincoln Memorial Commission.
3 0 0 ,0 0 0 .0 0
Current expenses.............
Acquisition of property.
Other improvements to land.
Equipment................................
Grant Memorial Commission—Current expenses .
4 4 .0 0
3 0 0 ,0 0 0 .0 0
3 0 0 ,0 0 0 .0 0
4 4.0 0
2 5 ,0 0 0 .0 0
4 6 ,0 1 9 .0 1
2 7 ,5 5 5 .8 3
8 ,9 0 0 .0 0
105
ESTIMATES.
Other expenditures—Interest (paid by the United States to the Smithsonian Institution).
Isthmian Canal Commission—Acquisition of property...........................................................................
B U D O B T g S T A T B M B N T ^ N O . 14— Continued.
q/
q/*
ybr eacA or<7am%a%o%
5y cAarac^r q/*
Estimated expenditures for—
Actual expenditures for—
Organization units and character of expenditures.
1913
MM
1911
Other Government establishments—Continued.
$250,000.00
FOB
10 , 000.00
240,000.00
Overhead and operating expenses
1914
25.000.00
Alaska Railroad Commission-Current expenses
10 . 000.00
International Irrigation Congress-Current expenses
$6,124,508.80
5,134,223.55
$5,814,309.05
$5,385,488.63
District of Columbia—Grants, subsidies, etc. (amount contributed by the Federal Government only)..
6,092,758.80
5,076,073.55
5,764,659.05
5,301,843.86
10 , 000.00
10,067.59
1 1 , 000.00
9,815.15
17.250.00
14,150.00
14.150.00
12,500.00
Hawaii-Current expenses
14.500.00
44,000.00
14.500.00
51,262.03
Grandtotal.................................................................................................................................................................
Less amounts expended by executive departments but payable from the revenues of the District of Columbia.
1,110,624,372.27
583,795.00
1,067,566,954.94
502,201.90
912,972,709.54
419,728.12
889,366,456.27
* 417,003.83
Total payable from Federal revenues...................................................................................................................
1,110/040,577.27
1,067,064,753.04
912,552,981.42
888,949,452.44
TO CONGRESS.
Alaska-Current expenses
SUBMITTED
Districts and Territories................................... ............................................................................................................
New Mexico-Current expenses
BUDGET
1914
B U D G E T S T A T E M E N T N O . 15.
Coi%para%MJ6 anaZg/sis o / ^ s ^ w a M and ac^ aZ g^p^ndt^r^s q /^oven M n en ^ y^nd^ ybr gacA /^ n c ^ to n , c%asst/M &y o r ^ a m m ^ o n
(For an organizational grouping of these items see budget statement 13 (and for greater detail), appendix 1, schedule 6. The subtotals in the following statement precede the
items that make them up and are marked by an underscore; they are also followed by a blank line when any of the items that make them up are likewise subtotals. The
items making up the grand total have been indicated by bold-face type; and subtotals (with coordinate items) that make up the bold-face items have been indicated by italic
type. All other items are in ordinary roman type. The relations between them are shown by the indention of the entries in the stub of the table, coordinate items being
indented the same distance from the margin.]
Estimated expenditures for—
Actual expenditures for—
Functions and organization units.
1913
1912
1911
GENERAL FUNCTIONS.
$8,475,351.20
$9,396,946.73
$9,296,343.04
The Senate......................................................................................................................................................................
1 ,7 6 9 ,7 1 6 .5 0
4 ,8 9 5 ,4 2 0 .2 5
1 ,9 1 2 ,7 7 3 .7 2
7 8 ,4 5 0 .0 0
4 ,0 0 5 .0 0
1 ,8 0 1 ,3 4 6 .5 0
4 .7 1 6 ,9 7 9 .7 0
1 ,8 6 3 ,5 7 0 .0 0
7 8 ,4 5 0 .0 0
4 ,0 0 5 .0 0
1 1 ,0 0 0 .0 0
1 ,7 7 7 ,8 6 8 .7 8
4 ,7 4 6 ,3 6 1 .3 9
2 ,5 1 1 ,3 2 9 .6 6
7 7 ,2 5 6 .9 8
4 ,0 0 1 .0 0
2 80 ,1 2 8 .9 2
1 ,8 5 5 ,0 4 7 .9 3
4 ,9 2 7 ,4 9 3 .1 0
2 ,2 2 3 ,4 1 0 .2 7
8 3 ,6 8 2 .4 6
4 ,0 0 2 .5 0
2 0 2 ,7 0 6 .7 8
151,696,633.91
158,591,806.44
91,917,054.13
88,996,541.95
%,%%,933.63
% ,703,% 1&6F
200,056.66
1,982,146.75
360,015.00
85,000.00
194,137.31
1,995,178.82
194,762.30
2,129,307.07
328,439.86
46,742.76
6,966.66
19,160,333.73
13,376,FF6.%3
13,773,%W.F5
257.282.00
333,384.50
8,151,934.25
2 6 3 ,6 2 0 .8 6
26 6 ,2 9 6 .3 6
263,230.32
592,451.60
8,477,072.19
218,868.93
Joint committees and commissions and joint legislative expenses.....................................................................
Capitol police.................................................................................................................................................................
Department of State (compilation of laws).............................................................................................................
The Tariff Board (investigation of tariff rates) ........................................
................................................
Executive direction and control, and other general business..................................................... ...................
%,336,
The Executive OfEce............................................................................................................................................
Treasury Department (general accounting and auditing)............................................................................
Commission on Economy and Efficiency.........................................................................................................
1 9 9 .0 4 0 .0 0
1 ,9 4 7 ,0 1 0 .0 0
4 4 0 .0 7 5 .0 0
2 50 ,0 0 0 .0 0
Departmental administration and other general business...................................................................................
Department of State.............................................................................................................................................
Department of Justice..........................................................................................................................................
Department of Justice (for other departments)..............................................................................................
Post Office Department.......................................................................................................................................
Department of Commerce and Labor............................................................ ...................................................
267.822.00
277.730.00
9,211,476.27
233.640.00
78,420.00
7,017,779.70
2,306,061.10
450,371.33
754.145.00
216,446.00^
2 3 9 ,1 8 3 .2 9
77,720.00
6,500,418.00
2 ,2 6 8 ,6 4 0 .4 2
387 ,5 8 6 .3 3
7 6 2 .9 0 5 .0 0
181.235.00
3 5 2 ,2 7 7 .4 6
124,390.07
8.481.889.18
215,501.82
7 7 ,8 5 9 .7 7
5.725.875.18
2,091,029.94
368,347.38
714,106.18
172,029.61
7 3 ,4 6 1 .1 5
6 ,0 1 0 ,0 9 6 .3 8
1,952,730.45
366,833.81
653 ,7 9 4 .7 7
164 ,6 6 0 .9 5
ESTIMATES,
$8,660,365.47
OF
Legislation........................................................................................................................... .............................................
SUMMARIES
1914
B U D G E T S T A T E M E N T N O . 15—Continued.
Oompara%MM awa%ys%s o / gs^maM
ac^ttaZ
o/
y^TMfs/o r eacA
00
cZa^ai/M 5y o ry a ^ a ^ ^
Estimated expenditures for—
Actual expenditures for—
Functions and organization units.
1914
1913
1912
1911
BUDGET
GENERAL FUNCTIONS—continued.
Executive direction and control, and other general business—Continued.
General business activities..........................................................................................
% 6 7 ,3 % 7 3 , f .n
#1 % 137,7.27. FI
1 0 1 ,4 9 0 ,2 7 3 .3 4
1 0 1 ,4 8 1 ,8 8 5 .8 8
4 0 ,9 8 4 ,9 8 2 .7 9
3 9 ,8 1 5 ,8 7 4 .0 8
FOB
Acquisition, maintenance, and operation oif lands, buildings, etc., for ofRce and other purposes
(including rents)...............................................................................................................................................
2 1 ,2 6 5 ,9 0 2 .3 8
3 0 ,4 2 2 ,2 4 2 .1 3
2 5 ,0 6 0 ,0 8 5 .2 6
2 3 ,1 6 1 ,5 5 8 .6 4
1914
1 7 8 .9 0 0 .0 0
1 1 3 .8 8 5 .0 0
1 8 ,7 8 9 ,6 3 0 .8 2
3 5 6 .2 0 7 .0 0
4 7 8 ,4 9 3 .5 6
4 0 ,6 2 0 .0 0
2 4 0 .7 6 8 .0 0
5 2 3 .8 3 5 .0 0
2 1 9 .5 0 9 .0 0
1 61 .5 5 4 .0 0
1 62 .5 0 0 .0 0
9 5 1 .7 5 7 .0 0
1 0 2 ,8 6 7 .9 7
2 7 ,7 7 1 ,8 8 8 .6 4
2 6 6 ,2 0 4 .2 8
3 7 1 ,3 3 4 .4 3
4 0 ,6 2 0 .0 0
2 0 6 .5 1 8 .0 0
1 6 4 ,7 4 1 .6 7
2 1 4 ,3 6 0 .1 4
1 5 6 .6 3 0 .0 0
1 7 5 .3 2 0 .0 0
5 2 0 ,5 2 8 .1 7
1 1 6 ,9 8 1 .7 9
2 2 ,8 6 3 ,8 9 2 .9 1
2 6 9 ,5 5 7 .7 0
3 4 0 ,2 3 7 .6 9
4 0 ,2 3 7 .6 3
2 0 2 ,2 8 1 .2 4
1 5 2 ,8 6 1 .3 1
1 9 2 ,8 0 7 .8 6
1 93 ,7 0 4 .5 4
1 6 6 ,9 9 4 .4 2
8 6 1 ,9 7 5 .0 9
1 65 .45 5.2 5
2 0 ,5 2 8 ,0 5 6 .6 4
2 6 3 ,7 6 6 .9 9
3 2 5 ,2 8 8 .2 7
3 5 ,1 2 0 .0 0
2 1 4 ,0 6 9 .2 1
1 7 4 ,7 0 4 .0 6
1 7 2 ,86 5.8 3
2 0 8 .2 5 2 .2 6
2 1 2 ,0 0 5 .0 4
5 5 3 ,5 2 7 .4 5
4 7 9 ,7 8 6 .6 0
4 2 7 ,4 3 9 .8 4
4 0 5 ,8 6 9 .6 6
1 8 1 ,1 1 6 .1 7
3 5 ,4 7 0 .0 0
1 5 3 ,9 9 0 .7 6
5 0 ,2 5 0 .5 2
1 3 2 ,7 0 0 .0 0
3 ,6 0 0 .0 0
1 4 0 ,4 2 5 .5 3
1 0 ,5 2 0 .0 0
1 70 ,4 1 8 .1 1
3 9 ,5 2 2 .9 6
1 1 5 ,3 0 0 .0 0
1 3 8 ,1 2 0 .7 8
1 0 ,4 5 2 .8 5
1 4 3 ,6 8 5 .9 8
3 7 ,9 3 1 .2 3
9 7 ,2 4 9 .0 0
132 ,78 2.1 7
8 ,9 5 2 .0 2
1 4 4 ,04 2.8 9
3 5 ,1 0 0 .5 8
8 4 ,9 9 2 .0 0
Contracting for, purchasing, manufacturing, and inspecting supplies for general Government
purposes................................................................. ...................... ....................................................................
Government Printing Office (unallotted printing cost)........
Department of the Treasury.......... .............................................
Department of the Treasury (General Supply Committee).
Department of the Interior..........................................................
Department of Agriculture..........................................................
Department of Commerce and Labor...... ................................
Conduct of general reference library for the Government—Library of Congress.
5 9 3 ,3 0 0 .3 4
5 5 6 ,2 6 8 .0 5
5 4 7 ,5 1 4 .6 0
56 2 ,5 1 0 .3 5
Distribution of Government documents—Government Printing OfRce...............
2 5 1 ,4 2 4 .0 0
2 3 8 ,3 6 4 .0 0
2 3 7 ,2 0 1 .7 5
223,978*56
Preparation of maps, personnel lists, etc., for Government use.............................
3 3 ,3 0 0 .0 0
2 3 ,3 0 0 .0 0
4 7 ,5 0 6 .8 7
DepartmentJof the Interior][(maps)............ ..........................................................
2 3 ,3 0 0 .0 0
2 3 ,3 0 0 .0 0 _
2 2 ,0 0 0 .0 0 _
3 4 ,1 3 8 .2 2
[2 2 ,4 2 3 .0 0
TO CONGRESS.
Superintendent of Capitol Building and Grounds.........................................
Superintendent of Library Building and Grounds.........................................
Department of the Treasury (Federal buildings outside of Washington).
Department of the Treasury (department buildings)..................................
Department of War (public buildings and grounds in Washington)........
Department of Justice...........................................................................................
Post OfRce Department........................................................................................
Department of the Interior...................................................................................
Department of Agriculture...................................................................................
Department of Commerce and Labor................................................................
Superintendent of State, War, and Navy Department Building...............
SUBMITTED
Administration of the national finances—Department of the Treasury..................................................
Department of Commerce and Labor (ofRcial personnel register).
1 0 ,0 0 0 .0 0
Election of President and Vice President.................................................
The Senate (conveying of electoral vote)..........................
Department of State (publication of certified electors).
Legal advice and representation, detection of crimes and offenses, and collection of evidence—Depart
ment of Justice.........................................................................................................................................................
Adjudication.
1 1,7 1 5 .2 2
1 4 ,0 0 0 .0 0
1 ,5 0 0 .0 0
3 ,3 5 3 ,3 9 0 .0 0
3 ,536,95% . 53
3 ,5 6 9 ,7 3 3 .0 3
3 ,3 1 3 ,1 9 3 .2 4
5,741,313.33
5,523,987.37
5,370,400.89
5,208,141.37
2 1 7 .2 0 0 .0 0
7 0 .9 9 0 .0 0
5 4 .5 0 0 .0 0
9 6 .8 6 0 .0 0
4 ,6 9 4 ,6 1 1 .0 0
2 7 3 .9 4 0 .0 0
3 3 3 ,2 1 2 .3 3
2 2 4 .7 0 0 .0 0
7 1 .0 3 0 .0 0
4 5 ,8 8 8 .8 9
9 3 .4 8 0 .0 0
4 ,5 7 4 ,4 6 5 .0 0
2 2 4 .4 4 0 .0 0
2 8 9 ,9 8 3 .4 8
2 0 2 ,9 0 8 .6 4
6 7 ,3 3 6 .7 0
6 2 .3 7 3 .9 8
9 2 .4 3 0 .9 8
4 ,4 5 9 ,6 3 2 .1 2
2 3 5 ,2 3 5 .9 1
2 5 0 ,4 8 2 .5 6
1 7 9 ,6 3 2 .8 2
7 3 ,4 6 2 .6 8
3 5 ,8 0 4 .1 8
8 7 ,6 5 1 .2 3
4 ,2 9 2 ,2 5 3 .7 4
3 1 0 ,9 4 5 .4 8
2 2 8 ,3 9 1 .2 4
452,566,064.62
404,098,387.77
395,297,299.92
388,244,868.85
PUBLIC SERVICE FUNCTIONS.
Military services........................
#5
9 9 ,7 4 4 ,0 5 6 .3 4
94,7 4% ,5 9 0 .14
9 3 ,5 6 5 ,3 3 3 .4 0
146, 615 , 091.43
1 ^ 1 ,0 3 5 ,5 0 3 .7 3
1 2 3 ,9 9 3 ,2 6 4 -3 5
1 13 ,7 7 3 ,0 7 2 .4 0
2 0 3 ,3 9 4 ,3 0 3 . %
133,313,3% % .20
1 7 1 ,5 5 6 ,4 4 5 .3 3
1 7 5 ,9 0 6 ,4 0 3 .0 5
1 2 ,4 4 1 ,2 2 8 .1 9
3 ,6 0 4 ,8 5 6 .0 0
13,024,553.53
187,348,724.05
1 2 ,6 7 1 ,2 8 1 .0 6
3 ,4 3 2 ,1 5 6 .2 5
1 6 7 ,2 1 5 ,3 8 4 .8 9
3 ,0 9 1 ,5 8 3 .0 7
1 55 ,4 4 0 ,3 0 8 .6 3
1 2 ,9 7 9 ,5 4 6 .1 2
3 ,0 8 8 ,4 0 4 .2 9
1 5 9 ,8 3 8 ,4 5 7 .6 4
483,981,584.79
483,707,140.21
403,594,385.54
390,596,404.88
4 ,3 4 ^ ,6 3 3 .2 0
4 ,2 0 3 ,2 1 0 .0 0
3,9 4 % ,41 4 .3 1
4 ,2 0 5 ,4 0 3 .5 9
4 ,3 3 1 ,0 9 8 .2 0
4 ,1 9 5 ,8 1 0 .0 0
4 ,1 5 1 ,8 2 1 .1 9
3 8 ,1 8 8 .4 0
1 5 ,3 9 9 .0 0
. Department of W ar..................................................
Department of the N avy.........................................
Department of the Interior.....................................
Civil services............................................................................
Promotion of friendly relations with foreign peoples and protection of American interests abroad.
Department of State.............................
Department of W ar.................................
Department of Commerce and Labor..
1 2 ,4 0 0 .0 0
Promotion of the general welfare within the United States....................................................................
4 7 9 ,6 3 9 ,3 9 6 .5 9
4 7 9 ,4 9 3 ,9 3 0 .% !
3 9 9 ,6 5 1 ,9 7 0 .7 3
3 36 ,3 9 0 ,9 9 6 .2 9
Promotion of economic interests............................................................................................................
4 4 5 ,0 7 1 ,8 0 9 .4 2
4 5 0 ,9 9 9 ,6 9 8 .2 9
3 7 1 ,3 5 5 ,1 1 3 .0 7
3 5 8 ,7 7 9 ,7 7 7 .6 6
3 7 ,3 7 2 ,0 3 9 .6 3
3 7 ,3 9 1 ,0 8 9 .4 6
2 9 ,7 3 6 ,4 4 0 .4 2
2 7 ,8 9 2 ,5 2 0 .8 6
9 0 ,0 0 0 .0 0
1 9 ,2 6 5 ,9 7 6 .7 3
1 6 ,2 2 9 ,3 8 1 .0 8
1 ,7 7 3 ,2 8 1 .8 2
1 3 ,4 0 0 .0 0
9 0 ,0 0 0 .0 0
1 8 ,7 9 0 ,2 6 9 .8 7
1 7 ,1 3 8 ,1 5 6 .7 9
1 ,3 3 9 ,2 6 2 .8 0
3 3 ,4 0 0 .0 0
8 8 ,0 0 6 .7 8
1 5 ,9 1 0 ,3 0 4 .5 0
1 2 ,4 7 0 ,3 6 6 .9 5
1 ,2 6 1 ,3 5 5 .6 6
6 ,4 0 6 .5 3
9 3 ,8 3 7 .1 6
1 4 ,3 6 7 ,0 5 1 .5 8
1 2 ,0 8 3 ,5 5 7 .1 6
^ 1 ,3 4 1 ,3 8 6 .6 8
6 ,6 8 8 .2 8
Promotion of agriculture, forestry, and fisheries, and care and utilization of the public domain.
Department of the Navy...................................................
Department of the Interior...............................................
Department of Agriculture........................ ......................
Department of Commerce and Labor.............................
International enterprises under Department of State.
109
1 0 ,5 9 0 .0 0
3 ,9 2 0 ,4 6 6 .3 2
6 ,2 4 8 .4 9
1 5 ,7 0 0 .0 0
ESTIMATES.
;o% ,
National defense by sea—Department of the Navy.
Expenditures on account of past military services ..
OF
National defense by land—Department of W ar.......
SUMMARIES
United States Supreme Court..............................................................
Court of Customs Appeals.....................................................................
United States Commerce Court...........................................................
Court of Claims............. ..........................................................................
Circuit courts of appeals, circuit, district, and Territorial courts .
District of Columbia courts...................................................................
Department of Commerce and Labor.................................................
2 5 ,5 0 6 .8 7
1 5 ,5 0 0 .0 0
110
B U D G E T S T A T E M E N T N O . 15—Continued.
Comparative ana^g^s o / egtt?nated and acttmJ &rpendttt^reg o / Governmentj^ndg/or eacA/Unction, cZagg^ed 5y oryanij?atton t^nttg.
Estimated expenditures for-
Actual expenditures for—
Functions and organization units.
$ 4 3 3 ,0 6 9 .8 3
$ 4 0 4 ,8 8 7 .5 5
1 6 6 ,3 9 1 .4 8
4 ,9 1 0 .2 6
3 7 5 ,1 6 0 .0 0
3 ,5 0 0 .0 0
9 7 ,2 2 2 .1 2
4 ,7 9 3 .1 1
3 2 6 ,7 2 8 .1 5
4 ,3 2 6 .4 5
1 0 0 ,4 3 1 .1 6
5 ,6 2 1 .5 2
2 9 6 ,6 1 0 .3 6
2 ,2 2 4 .5 1
1 1 6 ,8 4 4 ,5 3 8 .0 2
1 3 4 ,5 6 4 ,9 0 6 .1 2
8 2 ,5 1 7 ,8 3 4 .2 5
7 7 ,3 4 7 ,5 9 0 .2 1
5 ,3 9 0 ,7 2 0 .0 0
7 2 ,8 7 8 ,0 4 7 .7 3
2 6 0 ,0 0 0 .0 0
5 ,1 3 8 ,8 5 6 .3 0
6 6 ,7 3 4 ,0 9 9 .0 1
2 6 0 ,0 0 0 .0 0
5 ,3 0 8 ,4 7 7 .7 8
3 2 ,1 6 2 ,3 7 4 .4 6
1 8 5 ,9 1 2 .4 6
7 9 ,6 7 8 .1 9
1 1 5 ,0 2 1 .7 0
6 ,3 9 4 ,4 9 1 .1 5
6 92.68
3 3 ,1 0 0 ,9 4 1 .7 9
10, 000.00
7 1 1 ,6 2 0 .0 0
6 ,9 3 7 ,8 8 6 .4 5
7 25 .00
5 4 ,7 7 1 ,7 1 9 .3 6
2 7 6 ,9 8 3 ,9 4 4 .1 6
2 6 5 ,0 0 1 ,8 7 8 .7 8
2 4 4 ,4 6 0 ,7 4 1 .5 6
2 3 4 ,1 8 5 ,9 5 5 .4 6
3 6 1 ,4 7 3 .8 6
2 7 6 ,6 2 2 ,4 7 0 .3 0
3 6 0 ,2 6 4 .5 2
2 6 4 ,6 4 1 ,6 1 4 .2 6
1 7 ,4 5 9 .6 7
4 5 9 ,5 2 2 .9 8
2 4 3 ,9 8 3 ,7 5 8 .9 1
1 ,1 1 6 .2 8
3 8 6 ,5 0 6 .4 3
2 3 3 ,7 9 8 ,3 3 2 .7 5
3 ,0 2 3 ,6 5 8 .5 3
3 ,0 4 3 ,0 8 8 .6 4
2 ,6 7 7 ,4 5 2 .0 5
2 ,4 6 5 ,1 2 8 .2 1
1 7 8 ,5 8 0 .0 0
3 ,5 8 8 .5 3
1 .0 4 4 .4 9 0 .0 0
1 ,7 9 0 ,0 0 0 .0 0
7 ,0 0 0 .0 0
1 7 9 ,0 8 0 .0 0
3 ,5 9 4 .9 6
1 .0 0 3 .7 0 0 .0 0
1 ,8 4 0 ,8 1 3 .6 8
1 5 ,9 0 0 .0 0
5 ,3 6 8 .5 0
1 7 5 ,8 9 5 .3 1
3 ,5 7 2 .5 8
9 1 4 ,1 0 6 .7 6
1 ,5 7 8 ,5 0 8 .9 0
1 2 ,4 7 5 .0 9
1 8 1 ,3 4 9 .8 2
3 ,5 5 4 .9 6
8 7 2 ,3 4 6 .4 2
1 ,3 9 5 ,4 0 1 .9 2
Providing a medium of exchange—Department of the Treasury........................
4 ,5 8 4 ,5 5 4 .5 9
5 ,1 6 8 ,3 2 5 .2 2
5 ,1 8 8 ,2 6 0 .4 9
4 ,9 9 8 ,0 1 1 .6 3
Meteorological research and weather forecasting—Department of Agriculture..
1 . 7 1 2 .4 9 0 .0 0
1 .6 6 6 .6 8 0 .0 0
1 ,6 1 8 ,0 9 7 .9 4
1 ,5 1 5 ,0 0 4 .4 8
Postal and other communication service..
Commission to Investigate Cost of Transporting and Handling Second-Class Mail.
Department of W ar.......................................................................................................... ..
Post OfHce Department............................................ ..........................................................
Regulation of commerce and banking.
Commission to Investigate Questions Pertaining to Issuance of Stocks and Bonds by Rail
road Corporations..............................................................................................................................
Department of the Treasury..............................................................................................................
Department of Agriculture......................................... .......................................................................
Department of Commerce and Labor....................................................................... .......................
Interstate Commerce Commission.....................................................................................................
International enterprises under Department of State..................................................................
TO CONGRESS.
10 , 000.00
3 9 8 ,7 4 0 .0 0
7 ,7 3 1 ,8 7 3 .1 8
* 725 .00
3 0 ,1 7 4 ,4 3 2 .1 1
4 ,8 7 0 ,9 7 6 .1 0
3 6 ,0 2 5 ,9 0 3 .3 1
2 4 2 ,3 9 4 .9 6
3 0 ,3 6 6 .4 5
1 6 3 ,7 7 6 .1 6
6 ,2 7 1 ,6 8 8 .7 3
694.11
3 4 ,9 1 2 ,0 3 4 .4 3
SUBMITTED
Department of the Treasury.
Department of W ar.................
Post O&ce Department.........
Department of the Navy.
Department of Agriculture................................................
Department of Commerce and Labor.............................
International enterprises under Department of State.
Isthmian Canal Commission.............................................
$ 5 4 9 ,9 6 1 .7 4
4 4 1 ,3 0 0 .0 8
4 ,8 3 8 .5 2
4 75 ,8 0 0 .0 0
8 ,5 0 0 .0 0
1911
1914
Providing facilities for transportation.
$ 93 0 ,4 3 8 .6 0
1912
FOB
Department of the Interior................................................
Department of Agriculture...............................................
Department of Commerce and Labor.............................
International enterprises under Department of State.
1913
BUDGET
PUBLIC SERVICE FUNCTIONS—continued.
Civil services—Continued.
Promotion of the general welfare within the United States—Continued.
Promotion of economic interests—Continued.
Promotion of trading, manufacturing, and mining.........................
1914
Granting patents and copyrights.
1 3 0 ,1 0 0 .8 2
1 ,9 4 1 ,4 3 5 .1 2
12 ,1 3 1 .8 5
Collection of data regarding population and other general statistical information—Department
of Commerce and Labor................................................... ........................................................................
7 6 5 .0 6 0 .0 0
1 ,0 6 9 ,3 1 0 .0 0
1 ,9 9 0 ,3 9 8 .3 9
7 ,5 4 4 ,9 4 9 .0 8
Fixing standards of measurement.
6 1 2 .3 9 5 .0 0
4 7 3 ,8 4 9 .3 0
5 73 ,6 9 1 .6 5
3 4 2 ,0 6 2 .3 9
6 0 9 ,5 0 0 .0 0
2 ,8 9 5 .0 0
4 7 0 ,9 5 4 .3 0
2 ,8 9 5 .0 0
5 70 ,79 6.6 5
2 ,8 9 5 .0 0
3 3 9 ,1 6 7 .3 9
2 ,8 9 5 .0 0
Promotion of individual welfare......................................
3 4 ,5 6 8 ,0 8 7 .1 7
2 8 ,4 9 9 ,2 3 1 .9 2
2 8 ,2 9 6 ,8 5 7 .6 6
2 7 ,6 1 1 ,2 1 8 .6 3
Promotion of the interests of the laboring classes.
4 ,3 7 2 ,8 0 5 .2 3
4 ,1 3 4 ,8 8 0 .2 5
3 ,5 2 9 ,1 5 6 .9 0
3 ,6 2 6 ,3 7 8 .0 1
Department of the Interior............................................................
Department of Commerce and Labor..........................................
Board of Arbitration on Interstate Commerce Controversies.
International enterprises under Department of State.............
Promotion and protection of the public health................................
5 6 0 ,5 5 2 .9 4
3 ,8 0 2 ,1 2 7 .2 9
1 0 ,0 0 0 .0 0
1 25 .00
3 94 ,4 9 2 .5 3
3 ,7 3 0 ,2 6 2 .7 2
1 0 ,0 0 0 .0 0
1 25.00
3 7 5 ,7 3 6 .0 4
3 ,1 5 2 ,4 9 7 .8 6
8 09 .64
113.36
3 7 1 ,3 1 9 .5 7
3 ,2 4 8 ,9 4 0 .4 1
6 ,0 1 8 .0 3
1 0 0 .0 0
7 ,8 1 7 ,3 4 2 .4 8
6 ,5 7 2 ,8 5 9 .4 3
6 ,3 4 7 ,6 0 2 .5 9
5 ,9 8 9 ,4 7 6 .7 5
Department of the Treasury..................................................................................
Department of Agriculture......................................................................................
Department of Commerce and Labor....................................................................
Institutions under the Department of the Interior (Freedmen's Hospital).
International enterprises under the Department of State................................
Promotion of public education and recreation and of art and pure science......................................
3 ,0 6 5 ,2 6 6 .0 0
4 ,5 4 2 ,0 7 0 .0 7
9 6 ,6 2 0 .0 0
1 0 7 ,5 4 0 .0 0
5 ,8 4 6 .4 1
2 ,2 6 9 ,4 2 6 .7 3
4 ,0 9 3 ,8 0 2 .8 5
1 02 ,1 2 0 .0 0
6 4 ,8 4 0 .0 0
4 2 ,6 6 9 .8 5
2 ,1 1 8 ,3 8 0 .3 6
3 ,9 8 1 ,5 1 0 .7 0
1 33,513.71
6 1 ,1 4 7 .2 4
5 3 ,0 5 0 .5 8
2 ,0 6 7 ,3 7 2 .3 1
3 ,7 0 2 ,9 1 7 .2 7
1 3 4 ,2 1 6 .8 0
5 3 ,8 9 5 .6 4
3 1 ,0 7 4 .7 3
5 ,7 3 6 ,5 4 5 .2 1
4 ,8 4 4 ,2 4 1 .7 9
4 ,3 4 6 ,1 8 5 .5 2
4 ,2 6 2 ,9 2 1 .2 6
National Botanic Garden......................................................................................................................
Department of W ar................................................................................................................................
Department of the Interior............................................................ ^....................................................
Institutions under the Department of the Interior (Howard University).................................
Smithsonian Institution......................................................... : ............................................................
Lincoln Memorial Commission............................................................................................................
Grant Memorial Commission...............................................................................................................
Perry's Victory Centennial Commission............................................................................................
Commission of Fine Artis.......................................................................................................................
International enterprises under Department of State...... ..............................................................
3 0 ,8 9 3 .7 5
5 5 0 ,2 4 9 .4 4
3 ,6 3 7 ,3 1 5 .9 0
1 8 5 ,4 3 5 .0 0
9 8 8 ,8 9 5 .1 2
3 0 0 ,0 0 0 .0 0
2 5 ,0 0 0 .0 0
2 7 ,0 2 9 .7 6
4 01 ,99 3.6 7
2 ,8 9 9 ,6 4 5 .5 5
9 2 ,9 0 0 .0 0
8 62 ,70 3.2 5
2 5,3 57 .15
2 7 ,5 5 5 .8 3
2 9 ,8 9 2 .6 3
4 9 7 ,7 0 0 .3 9
2 ,5 7 8 ,8 3 9 .0 1
1 0 4 ,7 0 0 .0 0
1 ,0 3 1 ,1 2 3 .6 2
8 ,8 0 0 .0 0
9 ,9 5 6 .0 0
3 2 ,3 9 3 .7 5
5 96 ,05 9.3 7
3 ,0 2 9 ,5 7 5 .6 9
9 2 ,0 0 0 .0 0
7 58 ,59 5.1 2
2 4 ,6 4 2 .8 5
4 6,0 19 .01
2 5 0 ,0 0 0 .0 0
5 ,0 0 0 .0 0
9 ,9 5 6 .0 0
6 ,7 8 8 .6 3
2 ,2 1 1 .6 8
9 ,5 5 5 .0 9
2 ,2 1 0 .5 2
Care and education of the Indians and other wards of the Nation—Department of the Interior.
1 4 ,0 1 8 ,9 0 7 .4 1
1 1 ,1 2 1 ,1 8 6 .2 9
1 1 ,3 3 9 ,7 1 5 .7 3
1 1 ,8 6 5 ,3 5 2 .6 9
Care and education of the defective, dependent, and delinquent........................................................
2 ,6 2 2 ,4 8 6 .8 4
1 ,8 2 6 ,0 6 4 .1 6
2 ,7 3 4 ,1 9 6 .9 2
1 ,8 6 7 ,0 8 9 .9 2
1 0 ,0 0 0 .0 0
4 0 ,0 0 0 .0 0
1 ,5 5 6 ,5 2 7 .8 4
150 .00
1 ,0 5 3 ,8 0 9 .0 0
2 ,0 0 0 .0 0
1 ,1 9 7 ,2 8 8 .0 0
1 0 ,0 0 0 .0 0
9 90 ,09 6.4 8
1 ,2 1 6 ,9 6 6 .6 8
1 0 ,0 0 0 .0 0
4 0 6 .3 4
1 ,3 0 7 ,0 6 1 .6 0
5 86 ,77 6.1 6
2 ,0 0 0 .0 0
5 16 ,51 0.2 4
623.52
5 4 7 ,7 1 6 .2 8
1 ,9 0 5 .7 0
Department of Commerce and Labor.............................
International enterprises under Department of State.
Department of the Treasury......................................................................................
Department of W ar......................................................................................................
Department of Justice.......................................................................................... —
Department of Commerce and Labor (relief of dependent in remote regions).
Institutions under the Department of the Interior................................................
International enterprises under Department of State.........................................
8 ,9 0 0 .0 0
ESTIMATES,
2 ,0 8 3 ,6 6 7 .7 9
1 3 3 ,39 4.7 6
2 ,0 2 5 ,7 3 1 .7 3
OF
2 ,1 5 9 ,1 2 6 .4 9
1 36 ,72 7.8 0
9 33 ,88 1.2 3
2 ,2 4 2 ,6 9 0 .8 9 t
SUMMARIES
2 ,0 7 0 ,6 0 9 .0 3
1 4 2 ,6 9 9 .6 6
2 ,0 9 9 ,9 9 1 .2 3
Library of Congress.............................................................
Department of the Interior................................................
International enterprises under Department of State.
B U D G E T S T A T E M E N T N O . 15—Continued
Com parative analysts o/* estimated ancf act^a^
o/* Government
/ o r eacA ju n c tio n , c^asst^e^ 5y or^am zation t^nits.
Estimated expenditures for-
Actual expenditures for—
Functions and organization units.
MM
MM
MU
PUBLIC SERVICE FUNCTIONS—continued.
Local government.
$7,024,156.18
659,026.39
440,910.71
482,376.18
5,764,659.05
14.150.00
14,500.00
44,000.00
14.500.00
534,436.87
598,035.85
506,194.83
5,301,843.86
12,500.00
10,067.59
9,815.15
51,262.03
Grand total............................................................................................
Less amount payable from the revenues of the District of Columbia.
1,110,624,372.27
583,795.00
1,067,566,954.94
502,201.90
912,972,709.54
419,728.12
889,366,456.27
417,003.83
Total payable from Federal revenues...............................................
1,110,040,577.27
1,067,064,753.04
912,552,981.42
888,949,452.44
TO CONGRESS.
,
10 000.00
11, 000.00
SUBMITTED
$7,396,622.33
836,628.27
387,719.82
786,710.31
5,076,073.55
39,150.00
1914
$7,170,281.95
717,884.28
345,017.07
791,000.00
6,092,758.80
17,250.00
FOR
$7,978,410.15
Department of W ar.............
Department of the Interior.
Department of Agriculture..
District of Columbia.............
Alaska.......................................
Arizona.....................................
New Mexico............................
Hawaii......................................
BUDGET
1914
SUMMARIES OF ESTIMATES.
118
B U D G E T S T A T E M E N T N O . 16.
o/
o/
p%rc^agi?%r
Ailotments for
1912.
of objects of expenditure.
Grand total.
$1,002,043,739.81
A. Salaries, wages, and other compensation for personal services currently rendered..
3 381,093,311.07
B. Compensation for services other than personal................................................................
140,936,526.74
1 . Transportation of persons (service)................................................................... ..
2 . Transportation of things (service).......................................................................
12,489,527.40
78,022,597.48
8,094,873.17
122,906.32
1,645,497.65
1.884.130.49
276,040.57
2.776.114.49
3.
4.
5.
6.
7.
8.
9.
Subsistence and support of persons (service).....................................................
Subsistence and care of animals and storage and care of vehicles (service)..
Communication service.
Printing^ engraving, lithographing, and binding (service).
Advertising and publication of notices (service).
Furnishing of heat, light, power, and electricity (service).................................... .
Special and miscellaneous services other than* personal (including repairs by
contract or open-market order).................................................................................
35,624,839.17
C. Materials not specifically adapted for use as supplies, equipment, or structures...
19,622,360.0&
D. Supplies, and materials specifically adapted for use as supplies...............................
57,397,960.22
Stationery, drafting, scientific, and educational supplies..................................
Fuel (including burning and illuminating gases, oils, and liquids).................
Mechanics', engineers', and electricians' supplies; furnace and foundry supplies.
Cleaning and toilet supplies........................... .........................................................
earing apparel, household linen, and hand-sewing sup p lies........................
Forage................ ........................................................... ......... ^...................................
Provisions.............................................................................. ......................................
War supplies....................................................... ........................................................
Special and miscellaneous supplies.........................................................................
2.615.068.94
9,852,896.02
1,992,236.18
1,223,951.17
5,469,604.87
4,329,741.25
18,441,519.76
8,229,522.09
5.243.419.94
E. Equipment (including live stock) and parts, and materials specifically adapted
for use as equipment............................................................................................................
40,936,545.89
F. Structures, nonstructural improvements to land, and parts, and materials specifi
cally adapted few use as structures..................................................................................
24,043,756.28
1.
2.
3.
4.
5.
6.
7.
8.
9.
G. Land.................................................................
3,344,518.47
H. Capital outlays for rights and obligations.
76,857,328.85
1.
2.
3.
3.
5.
9.
Purchase of rights to demand, control, or enforce action, or of rights to act...
Payment of debt (including payments to sinking funds).....................................
Repayment of deposits..................................................................................................
Treaty obligations.......................................... ................................................................
Refunds, awards, and indemnities..............................................................................
Special and miscellaneous............................................................................................
23,350.00
63,495,020.00
13,338,958.85
35,477,160.61
1. Rents..............................................................................................
2. Royalties........................................................................................
3. Fees for licenses, permits, and privileges................................
4.1nterest............................................................ .............................
5. Insurance and depreciation funds............................................
6. Educational and general-welfare grants and contributions.
7.Subsidies and bounties...............................................................
8. Burial expenses, providence funds, and other gratuities...
9. Special and miscellaneous..........................................................
J. Pensions and retirement salaries.................
7,897,469.41
23,557,558.00
80,383.20
3,941,750.00
160,479,190.63
K. Losses and contingencies.............................
4,934,233.28
L. Undistributed (work on Panama Canal)..
56,920,847.69
i As the reports of expenditures for 1911 and 1912 and of estimated expenditures for 1913 and 1914 did not
afford the information necessary to prepare a satisfactory summary of this character, a summary of estimates
for 1912, prepared several years ago by departmental committees, is submitted to indicate the character
of the statement which it is thought should be presented.
^ Does not include the amount spent for salaries and wages on the Panama Canal, shown below as " U n
distributed." The same comment applies to all other items.
H. Doc. 1435,62-3-------8
SUMMARY OF PROPOSED CHANGES IN LAW, SETTING
FORTH W HAT LEGISLATION IT IS THOUGHT SHOULD
BE ENACTED IN ORDER TO ENABLE THE ADMIN
ISTRATION TO TRANSACT PUBLIC BUSINESS W ITH
G REATER ECONOMY AND EFFICIENCY.
115
Summary of Proposed Changes in Law, Setting Forth What Legislation
It Is Thought Should Be Enacted in Order to Enable the Administration
to Transact Public Business With Greater Economy and ERiciency.
I.
1. The enactment o f legislation for the creation of a bureau
of central administrative control, responsible directly to
the President and to the Congress, as described in A
memorandum submitted to the Committee on A ppro
priations o f the House of Representatives (Appendix 2
hereof) and the transfer to this bureau o f the general
accounting and auditing divisions now organized under
the Department o f the Treasury.
2. The enactment of legislation providing for a council o f
national defense with a view to coordinating legislation
and executive action in developing a national military
program which will include the Army., the Navy, the
Marine Corps, and the State Militia.
3. The amendment o f the civil-service law so as to broaden its
functions and give to the Executive a bureau of per
sonnel which will not only have charge of the examina
tion of applicants and the certification of their quali
fications for appointment, but also will be responsible for
developing individual efRciency records throughout
the service; for submitting recommendations with re
spect to the classification of positions according to
work done, and the establishment o f salary grades within
each classification; for promulgating general rules gov
erning discipline; for making inspections to determine
the welfare conditions under which employees are re
quired to work; for arbitrating disputes between oiRcials
and subordinates, in so far as in the opinion of the exec
utive these may involve questions affecting the service as
a whole; for giving attention to and representing the in
terests of individuals in the service as distinct from ques
tions of economy of management and the interest of the
manager.
4. The enactment of legislation to provide within each depart
ment for a staff of technical aids, who would be entirely
relieved from details of administration and whose atten
tion would be given entirely to the consideration of ques-
117
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
118
5.
6.
7.
8.
tions o f departmental planning and to advising with the
executive head in matters of executive direction and
control.
The enactment of legislation necessary to the placing o f
all appointments by and with the advice and con
sent o f the Senate under the classified service, excepting
the Secretaries and Assistant Secretaries as executive
heads o f departments, and a comptroller as the head of
a bureau of central administration, the latter to be made
responsible both to the President and to the Congress.
The enactment o f legislation necessary to the coordination
of the several organizations or services engaged in coast
patrol and marine rescue work, including the transfer of
the Life-Saving Service and the Revenue-Cutter Service
from the Department of the Treasury to the Department
of Commerce and Labor.
The enactment of legislation necessary to the abolishment
of the Returns OHice of the Department of the Interior.
The transfer of the Pension OfRce from the jurisdiction of
the Interior Department to the Department of the
Treasury.
II.
<p/
9. The enactment o f legislation requiring that before an au
thorization, appropriation, or contract shall be made or
entered into for any new public building a comprehensive
plan for Government housing shall be approved by the
Congress in a separate bill, which shall govern its loca
tion and the conditions under which it shall be erected,
and that thereafter any authorization, appropriation, or
contract which may be made or entered into shall be in
accordance with such plan or in accordance with an
authorized modification of the same; and among the con
ditions precedent to such action as set forth in the act
would be a statement of the minimum of population o f
a city in which public buildings shall be constructed, the
minimum average rentals for a given number of years
which the Government is required to pay before an
authorization may be given, the maximum of expendi
tures as determined by a minimum rate of capitalization
o f average rentals, and the circumstances or conditions
under which the Government would undertake to con
tribute to buildings which are used jointly for municipal,
State, and Federal purposes.
SUMMARY OF PROPOSED CHANGES IN LAW.
119
10. The enactment of legislation which will require that be
fore any new projects for river and harbor improvement
are adopted, and before any additional contributions are
made for the purpose of developing canals, roads, or
other transportation facilities, a definite plan shall be
submitted and approved by Congress, pursuant to which
all authorizations, appropriations, or contracts for new
improvements or developments of this kind shall be
' granted or made; and in such an act it is recommended
that there be stated the conditions under which the Fed
eral Government will contribute to transportation enter
prises to be carried on by municipal and State authorities.
11. The enactment of legislation which will definitely provide
for the retirement of all of the present public debt
issues within 20 years from July 1, 1913, and for the
retirement of all future issues o f credit of the Govern
ment within 20 years after the date of issue, whether for
public improvements or other purposes, and in this rela
tion to establish a sinking fund and make sinking-fund
appropriations, chargeable against current revenues,
which will be adequate to accomplish this end; also to
designate certain ofRcers as an ex ofRcio sinking-fund
commission, which will be responsible for the adminis
tration of the fund.
12. The repeal of more than 90 statutes at present operative,
dealing with the subject of auditing, accounting, and
reporting, and the passage o f a law prescribing in gen
eral terms the character of original documents and
records to be kept as evidence o f transactions and as a
basis for audit and accounting and the character of the
information which is to be developed in the accounts
and made available through the reports; making it the
duty o f the comptroller, as the head o f a central bureau
o f administrative control, to prescribe the forms of docu
ments o f accounting and reporting and the procedure
necessary to carrying into effect the purposes of the law.
13. The repeal o f the many statutes on the subject o f the
preparation and submission o f estimates and the enact
ment o f legislation which will make the Chief Executive
responsible for submitting to the Congress not only
the requests of ofRcers for future appropriations, but
also summary and detail statements which will show
comparatively, by years, the financial condition as at
the end o f the fiscal year, a monthly statement of trans
actions affecting the Treasury for the last completed
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
120
14.
15.
16.
17.
18.
fiscal year as well as for the current year up to the be
ginning o f the month prior to which the statement was
made, the condition o f appropriations and other authori
zations to incur liabilities and to spend money, classi
fied and summarized by the character of the authoriza
tion, as well as by the purpose; the condition of the
general fund and other funds authorized or created by
law, including the sinking fund and trust funds; a
statement of revenues and expenditures for the past, as
well as estimates for the current and ensuing fiscal years;
the balances of appropriations which will be available
for the purpose of carrying on the work or meeting obli
gations included in the estimates for expenditures; the
amounts of revenues or other collections which will be
made available for the reimbursement of appropriations
during the next fiscal year, and the amounts which it is
estimated it will be necessary to have appropriated in
order to accomplish the purposes for which expenditure
estimates are submitted.
The enactment of provisions of law which will make
certain expenditures reimbursable to the Government at
cost, such as expenditures for the printing of specified
documents or classes of documents that are to be dis
tributed to the public; postage on public documents so
distributed, etc.
The enactment of legislation providing for the readjust
ment of fees in the Patent Office so as to enable this
office to make a more thorough examination before the
issuing of a patent, and changing the provisions of
law pertaining to the issuing o f patent rights accord
ing to the report which was submitted December 9 last
by special message.
The repeal of the law which prohibits transfers of the
employees from the Office of The Adjutant General to
work in other offices of the W ar Department in case it
may be found that persons employed in this office may,
for the time being, not be needed, and thus enabling the
Secretary of War to utilize the staff within his own de
partment to advantage
The enactment of legislation necessary to the retirement
of superannuated employees as outlined in a report sub
mitted by special message on May 6, 1912.
The revision of statutes providing for permanent appro
priations in such manner as to exclude items which have
to do with the current administration and operation,
SUMMARY OF PROPOSED CHANGES IN LAW.
121
and to include within this class of appropriations all
authorizations for the payment of principal and interest
o f the public debt, pensions, retirement salaries, court
awards and indemnities, bonuses, subsidies, and other
fixed charges.
19. The enactment of legislation necessary to authorize the
executive branch of the Government to fund all pur
chases of land and all authorizations for buildings and
other permanent improvements, by bond issues, the
retirement of which would be apportioned equitably
over a period of 20 years by annual contributions from
revenues to the sinking fund.
20. The making of provision by permanent indefinite appro
priation for the upkeep of property, the amount of the
appropriation required each year to be determined by a
board or committee o f engineering, actuarial, or other
experts, who shall take into consideration the average
annual cost for each general class o f properties; such
estimated requirements to be included each year in the
Book of Estimates, and the amount so appropriated to
be set up as a repair and replacement fund.
21. The enactment of legislation necessary to determine what
classes o f current appropriations for administration and
operation shall be placed on an annual, biennial, tri
ennial, quadrennial, or quinquennial basis, with a view
of providing so far as practicable for the funds needed
to carry on the current work of the Government in
accordance with a well-defined plan or program—all
estimates for needs, whether to be met by current or by
permanent appropriations, to be included in the Book of
Estimates.
APPEN D IX 1.
SUPPORTING SCHEDULES TO BUDGET
STATEMENTS.
SUBMITTED WITH THE BUDGET BY REASON
OF THERE BEING NO SUPPORTING DATA IN
DEPARTMENTAL REPORTS.
123
Supporting Schedules to Budget Statements.
General note........................................................................................................
Schedule 1, budget statement No. 1. Amounts payable by the Government
as of the close of business June 30, 1911, and June 30, 1912........................
Schedule 2, supporting budget statement No. 2. Recapitulation of appropria
tion balances and transactions, as reported by departments, bureaus, and
ofRces for the fiscal year ended June 30, 1912, set forth by classes of appro
priations...........................................................................................................
Schedule 3, supporting schedule 2 of budget statement No. 2. Appropriation
balances and transactions, as reported by departments, bureaus, and ofRces for
the fiscal year ended June 30, 1912.................................. ............................
Schedule 4, supporting budget statement No. 2. Recapitulation of appropria
tion balances and transactions, as reported by departments, bureaus, and
ofRces for the fiscal year ended June 30,1912, classified by organization units.
Schedule 5, supporting budget statement No. 7. Reconciliation of estimated
expenditures for 1914, as reported to the President, with the Book of Estimates.
Schedule 6, supporting budget statement No. 13. Comparative analysis of
estimated and actual expenditures of Government funds for each function
and activity performed by each bureau or other subdivision of departments
and establishments..........................................................................................
124
125
126
128
132
142
147
150
GENERAL NOTE.
it was contemplated that the budget submitted by the President to the Congress
would contain only general summaries which might serve as indexes to the more
detailed statements of fact contained in supporting documents. It was thought that
the details of estimated and actual expenditures would be carried in a book of
estimates for appropriations and in greater detail in the annual reports of the depart
ments and establishments; and that the details of revenues would be carried in the
report of the Secretary of the Treasury. Further information, if needed, would be
indicated in those reports by reference to accounting records from which the printed
statement would be prepared.
While an installation had been begun for the purpose of developing this scheme of
information, which was recommended by the Commission on Economy and Efficiency
and approved by the President, it had not progressed far enough to enable any of the
departments except the Department of Agriculture to utilize these accounts directly
in the preparation of reports which were requested by the President as a basis for the
budget, and in the Department of Agriculture the accounting results could be utilized
for only a portion of the period. As the annual reports of departments and the report
of the Secretary of the Treasury do not support these budget summaries, it is thought
desirable to attach as a further analysis the schedules of information which follow.
Although it is recognized that these supporting schedules can not serve the purpose
of an underlying system of accounts and reports, they are significant both of the char
acter and the cost of the activities maintained by the Government and of the serious
ness of the problem which is still before administrative and executive of&cers—that of
working out a scheme of information which will enable them to submit promptly to
Congress and the public a complete and accurate statement of facts concerning each
Subject in which either legislative ofRcers or the public may be interested.
125
ag q /t ^ e c?ogg o/* &t^gt^6gg
a7M?
As of the close of business June 30,1911.
Department, bureau, or ofRce.
^0,
As of the close of business June 30,1912.
Accrued
Unclaimed Outstanding
Vouchers and
salaries
checks of
salaries and
pay rolls
disbursing
wages
and
wages
payable.
payable.
oiHccrs.
payable.
Public in
voices
and other
accounts
payable.
Outstanding
Accrued
Vouchers and Unclaimed
checks of
salaries and
salaries
pay rolls
disbursing
wages
and
wages
payable.
payable.
olRcers.
payable.
The Congress:
Senate, including Vice President.
$49,163.67
2,918.31
2,254.73
$162,538.86
6,213.73
2,561.75
$211,702.53
$137.41
$48,877.39
4,411.31
$21,335.03
6,881.78
3,819.28
$172,968.80
6,189.01
1,789.75
$194,303.83
1,586.70
$109.40
$36,475.62
5,582.15
3,255.85
1,173.55
4,669.31
2,372.88
Commission on Second-Class Mail.
Railroad Securities Commission..
Executive departments:
State ^.................................................
2,750,838.26
703,890.32
955,696.23
49,394.67
135,056.24
167,996.46
3,105.69
4,904,894.19
147,127.48
356,063.59
Post ORice s.......................................
17,209.68
865,719.12
Other Government establishments:
Civil Service Commission..............
Interstate Commerce Commission
Smithsonian Institution a..............
Isthmian Canal Commission i"___
86,136.37
475,455.22
50.71
36,773.20
25,747.00
3,524,000.00
1,005.34
22,979.63
1,731,000.00
44,373.58
3,250.93
74,000.00
7,984,926.54
7,922,420.77
1,616,199.58
596.90
604.04
685,184.57
263,990.75
6,451.11
2,075,036.18
1,653,749.58
573,368.51
W a r * ..^
956,989.51
53,087.35
128,894.11
166,531.98
597.55
1,009.75
596,292.60
278,783.13
87.33
4,359,487.64
638,481.87
27.74
500.00
188.16
1,568.97
2,089,122.41
3,807,025.58
227,398.41
342,756.50
182,874.37
544,463.88
2,533.40
3,131,844.30
18,556.25
724,602.36
93,918.77
144,206.18
432,050.54
84,201.68
*249,950.62
594,324.50
10,029.42
4,001.43
9,865.58
217,000.00714,000.00
93.77
49,548.50
26,363.00
4,989,000.00
601.31
19,243.28
1,547,000.00
57,188.63
2,982.62
75,000.00
11,206,365.07
7,849,844.62
2,133,594.27
200.00
296.67
11,253.85
5,886.54
24,089.47
239,000.00 681,000.00
Board of Arbitration on Interstate
Totals (see budget statement
No. 1 ) .........................................
218,835.02
4,549,185.99
241,432.60
8,107,235.23
TO CONGRESS.
...........................
SUBMITTED
The President (including Executive
boards and commissions):
The Executive Office.....................
The Tariff Board............................
1914
Government Printing Office.........
Library of Congress *.......................
FOB
Joint committees and commissions
(l&pitnl Rnildlngs ?md Grnnnds.
BUDGET
Public in
voices
and other
accounts
payable.
126
S C H E D U L E I , S U P P O R T IN G B U D G E T S T A T E M E N T N O . 1.
.AwMMmfs paya&%6 &y %7ae
1— SUPPORTING
SCHEDULES TO BUDGET STATEMENTS.
127
APPENDIX
* The figures presented under this caption are derived from information furnished by the Superintendent of Building and Grounds, Library of Congress, and by the Librarian of
Congress. The Librarian of Congress did not report any information relating to outstanding liabilities as of the close of business June 30,1911, presenting the amount of vouchers
payable, as of the close of business June 30,1912, which has been used in the schedule, and also presenting the amount of material received and orders placed for material not
received, a figure which could not be used, in view of the fact that it includes an unknown amount which does not represent a liability.
^ Information not available and impossible to estimate with any degree of accuracy.
3 Public invoices and other accounts payable:
This amount includes estimates from the following divisions and services:
As of June 3 0 ,1911Auditor mr the Post OiHce Department, Life-Saving Service, Bureau of the Mint, Public-Health Service, Revenue-Cutter Service, Supervising Architect.
As of June 30,1912—
Life-Saving Service, Bureau of the Mint, Public-Health Service, Revenue-Cutter Service, Supervising Architect.
An unknown amount of undelivered orders of the chief clerk and superintendent and the Revenue-Cutter Service is included.
Accrued salaries and wages payable:
The figures presented include estimates in the 6ase of the following services: Life-Saving Service, Bureau of the Mint, Public-Health Service, Revenue-Cutter Service, Super
vising Architect.
Vouchers and pay rolls payable:
These figures include estimates in the case of the following services: Life-Saving Service, Bureau of the Mint.
Unclaimed salaries and wages payable:
These figures include estimates in the case of the Revenue-Cutter Service.
Outstanding checks of disbursing oiHcers:
These figures include an estimate in the case of the Bureau of the Mint.
< The figures presented for the Department of War include the amounts payable as reported by the following departments and oiHces: Ordnance Department, Quartermaster's
Depot, Washington; Engineering Office, Southern Building, Washington; office of the disbursing clerk.
Information respecting amounts payable by the Department of War as a whole is not available and could not be obtained in the time available or without expense that would be
prohibitive. The figures for the Ordnance Department and the other offices referred to therefore amount to only a part of the total.
5 Includes only the figures for the Post OiHce Department under the legislative, executive, and judicial bill. Figures for postal service not available and impossible to estimate,
s The figures presented are derived from the information supplied by the Bureau of Supplies and Accounts, the Paymaster's Department of the Marine Corps, and the disbursing
clerk.
The Quartermaster's Department of the Marine Corps did not report.
Public invoices and other accounts payable:
This is the amount reported by the disbursing clerk only; the Bureau of Supplies and Accounts and the Marine Corps stated that no accounts are kept from which this infor
mation can be obtained, nor is there any information from which an estimate could be made.
Accrued salaries and wages payable:
This includes the amounts reported by the Bureau of Supplies and Accounts and the Pay Department of the Marine Corps. The amount reported by the latter includes only
the pay of oiHcers and enlisted men serving ashore, there being no record of pay due oiHcers and men serving afloat.
Vouchers and pay rolls payable:
.
This Hgure includes the amounts which were reported by the Bureau of Supplies and Accounts and by the disbursing clerk. The amount reported by the Bureau of Supplie
and Accounts includes only public vouchers.
Outstanding checks of disbursing officers:
This figure includes the amounts reported by the Bureau of Supplies and Accounts, the Pay Department of the Marine Corps, and the disbursing clerk, each of these amounts
being reported as actual, with the exception of that of the Bureau of Supplies and Accounts, which is estimated. It is estimated by the Secretary of the Navy that the
amount of outstanding checks at the close of business June 30,1911, was somewhat less than as of the close of business June 30,1912. For want of more definite informa
tion, the same amount has been used for 1911 as for 1912.
* Figures for 1911 not available—impossible to obtain estimates in time available,
s "Unclaimed salaries and wages" estimated.
9 "Public invoices and other accounts payable" estimated.
10 Does not include figures for "Armament of fortifications."
* Includes only vouchers approved for cash payment for which cash has been drawn.
S C H E D U L E 2, S U P P O R T I N G .
JTecap^tJa^tow o/*approprta%to% &a?a^c^j
^ra^sac^^s a^ report 5y
SET FORTH BY CLASSES
Unexpended balance of appropriation.
Increases during year.
Class of appropria
tion.
Balance as of
June 30,1911.
By act of
appropria
tion.
By receipts By repay
ments,
for credit as
additions to transfers,
appropria and adjust
tion.
ments.
Decreases during year.
By vouchers
approved
ana adjust
ments.
By lapses
to surplus
fund.
DEFINITE CURRENT.
1909 and prior years.,
$19,545.12
$69,441.79
$1.10
$6,116.51
$26,439.43
$79,030.83
191 0
. ........ 14,218,806.68
249,725.20 2,409,476.34 11,939,097.72
14,241.39
191 1
*51^282!15
121,251.32 1,601,733.28 20,999,456.46
30,469.52
28,097,807.76
191 2
1,925,433.59 451,165453.63 4,792,280.87 17,768,036.99 447,677,181.89
256,671.41
Total definite
current an
nual............... 44,311,489.82 451,216,436.88 4,933,890.09 19,645,934.90 471,105,659.81 12,305,269.48
1909-1910.
1910-1911.
1911-1912.
1912-1913.
Total definite
current, bi
ennial..........
1909-1911.
1910-1912.
1911-1913.
48.61
4,793.86
24.49
31,357.18
908,828.02
441,278.58
597,061.10 2,643,370.83
124,490.67
1,176,955.21
5,562,723.01
2,315,698.45
64,584.28
5,425.76
6 ,9$9,789.07
4,678,645.71 1,038,412.78 3,588,349.89
9,179,867.34
70,010.04
18,095.25
490,567.93
1,053,221.16
2,000,000.00
.53
43.05
77,454.65
2,194.86
9,745.45
2,473,432.79
294,216.53
1,561,884.34
2,000,000.00
.53
79,692.56
2,777,394.77
191,445.71
1,378,979.50
5,389,363.86
520,645.71
4,158,000.00
Total definite
current triContinuous.
180,269,399.32 131,017,183.05 4,703,798.69 8,397,539.42 160,145,037.41
690,343.93
Total definite
current........ 233,102,562.55 588,912,265.64 10,676,102.09 31,711,516.77 643,207,959.33 13,065,623.45
i In accordance with the law that requires unexpended appropriations to be covered into the Treasury
after two years (18 Stat. L .. 110, sec. 5), these balances should not appear in this statement unless they
are unexpended balances o: deficiency appropriations.
s These balances, if accurately stated, are no longer available, except for the payment of expenses in
curred during the year for which the appropriations were made (R. S.,*3690).
* These balances, if accurately stated, are no longer subject to allotment.
* These balances, if accurately stated, are no longer subject to encumbrance.
s Payment for these encumbrances can not be made after June 30,1913, unless appropriations are made
to satisfy the claims after examination and certification by the accounting ofRcers of the Treasury Depart
ment (20 Stat. L ., 130).
128
B U D O E T S T A T E M E N T N O . 2.
&%rea%s,
q^cgs ybr ^6 y?sca%
J^??6 ^0, ^9^%.
OF APPROPRIATIONS.
Unexpended
balance of ap
propriation.
Balance as of
June 30,1912.
i $3,422.88
i 134,199.21
2 8.842,148.53
3 27,717,051.78
36,696,822.40
i 7,213.23
a 227,980.20
2 1,697,393.16
7 5,082,733.48
Treasury balances June
30,1912.
Unencum
Unliquidated
bered bal
balance of en
ance of al
cumbrances
lotments
June 30,1912.
June 30,1912.
i $747.10
1 17,241.87
6,561,360.23
3,362,103.98
i $2,675.78
i $24,461.17
192,496.17
4 444,045.98 5 1,836,742.32
^ 1,855,977.77 e 22,498,970.03
1 $3,273.75
1 9,727.84
1 $6,635.31
4,517,071.01 1,068,757.21
13,975,043.15
170,693.23
$117,418.94
566,422.19
9,740,032.46
9,941,453.18
2,324,484.92
24,430,884.30
18,505,115.75 1,246,085.75
10,423,873.59
^ 4,064.28
104,258.93
<87,570.92
118,003.06
<29,916.49
8 795,532.63 82,550,219.89
13,148.95
5 36,150.35
"1,549,473.61
9 1,736,980.96
188,903.47
1,195,290.26
4,486,339.56
8,876.17
8,245.95
30,200.56
493,856.95
596,393.92
24,335.35
1,120,451.43
3
3
3
3
Subject to
requisition
for cash.
Disbursable
by Treas
ury only.
1 7,213.23
7,015,320.07
1,021,858.90
2,667,707.30
3,325,753.87
5,870,533.29
^8,392.85
2 94,590.32
7 761,199.49
3 1,291.65
3 2,959.51
8 50,905.11
<1,918.02
8 249,018.56
5 7,101.20
^89,712.79
9 461,275.82
3,999.72
33,137.62
664,360.08
55,156.27
250,936.58
558,089.81
701,497.42
864,182.66
Disbursing
officers' bal
ances June
30,1912,
available for
payment of
vouchers
when
approved.
Unallotted
and unen
cumbered
balance
of appropria
tion June
30,1912.
4,393.13
61,452.70
96,839.41
162,685.24
163,552,539.14
54,918,248.67 34,145,964.62
265,906.59
12,308,510.54
208,128,864.27
65,936,717.02 39,389,093.42 j102,803,053.83 131,423,923.81 1,536,327.69
24,015,520.80
74,488,325.85 106,346,777.35
< Payment of these encumbrances can not be made after June 30, 1914, unless appropriations are ma3e
to satisfy the claims after examination and certification by the accounting officers of the Treasury Depart
ment (20 Stat. L ., 130).
i Available for expenditure until the close of business June 30,1915.
" Available until 4he close of business June 30,1913.
' Payment for these encumbrances can not be made after June 30,1915, unless appropriations are made
to satisfy the claims after examination and certification by the accounting officers of the Treasury Depart^
ment (20 Stat. L., 130).
^
H. Doc. 1435,62-3---- -9
129
130
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
.Recapitulation o/ appropriation &a?ances an6? transactions as reported &y &part77%nts,
SET FORTH BY CLASSES OF
Unexpended balance of appropriation.
Increases during year.
Class of
appropriation.
Balance as of
June 30, 1911.
By act of
appropria
tion.
Decreases during year.
By receipts By repay
for credit as
ments,
additions to transfers,
appropria and adjust
tion.
ments.
By vouchers,
approved,
andadjustments.
B y lapses
to surplus
fund.
DEFINITE RECURRENT.
Prior years.................
1910..............................
1911............ .................
1912..............................
Total definite
recurrent___
$64,294.92
2,413,604.87
$3,949.47
820,598.64
8,716,749.83
$222.82
448.93 *** $4,413.95*
2,016.97 1,100,492.39
6,226.33 6,517,505.36
$222.82
64,279.37
2,477,899.79
9,541,297.94
8,915.05
64,502.19
7,622,411.70
Revenue s................... 16,914,859.03
123,741.19 $13,878,846.13 7,765,568.32 20,343,882.94
1,168.37
IndeAnite" .................
230,044.54 2,795,729.73
5,138.69
9,926.26 2,728,326.20
123.32
2,771,562.19 35,025,506.77 1,583,529.47 174,274.58 35,657,048.40
15.00
General account of
advances—n a v a l
supply account
Navy Departmentundistributed ........
Unclassified ............ 5,429,351.47 4,053,779.77
28,112.67 265,307.03 5,155,885.29 2,025,755.93
Total, exclu
sive of trust
funds 13......... 260,926,279.57 640,452,321.04
Trust funds n ............ 48,268,195.04
5,787.10
Grand t o t a l
(see Sched
ule 4 )............. 309,194,474.61 640,458,108.14
26,171,729.05 39,938,508.01 714,715,513.86 15,157,188.26
6,741,423.16 1,138,887.73
6,891,690.61
32,913,152.21 41,077,395.74 721,607,204.47 15,157,188.26
1 These balances, if accurately stated, are no longer available, except for the payment of expenses in
curred during the year for which the appropriations were made (R. S., 3690).
2 These balances, if accurately stated, are no longer subject to encumbrance.
^ Payment for these encumbrances can not be made after June 30,1913, unless appropriations are made
to satisfy the claims after examination and certification by the accounting officers of the Treasury Depart
ment (20 Stat. L . , 130).
* Payment of these encumbrances can not be made after June 30,1914, unless appropriations are made
to satisfy the claims after examination and certification by the accounting officers of the Treasury Depart
ment (20 Stat. L . , 130).
5 Revenue appropriations consist of authorizations to spend the amounts of certain revenues or other
collections specified by law.
" Indefinite appropriations consist of authorizations to spend such amounts as may be necessary to
accomplish the purpose stated in the law.
? This amount represents the excess of allotments over appropriations. This excess results from the
practice in the Reclamation Service of making allotments for future operations to be paid for from future
increments to the reclamation fund.
s Determinate appropriations consist of authorizations to spend such amounts as may be necessary to
meet certain obligations stated in the law.
' Encumbrances consisting of purchases of naval-supply-account stores, being a part of the general
account of advances, act as a deduction from the total amount of appropriations of the Navy Department.
Since the amount of these encumbrances can not be distributed, it is necessary to show it as a deduction in
total.
i" Under the law relating to the general account of advances, the Treasury balance subject to requisition
for cash is shown in one amount for all appropriations of the Navy Department.
H This amount is that portion of the general account of advances consisting of cash balanees of disbursing
officers, which, under the law of the general account of advances, is not distributable to appropriations,
and is therefore shown in one amount.
M This includes appropriations reported not in accordance with the classifications requested. In the
time available it was not possible to obtain information on the basis of which to make the classification.
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
and
/or %%<?
^ar gn&d
131
—Continued.
APPROPRIATIONS— continued.
Unexpended
balance of ap
propriation.
Balance as of
June 30,1912.
Treasury balances June
30,1912.
Unallotted
and unen
cumbered
balance of ap
propriation
June 30,1912.
Unencum
bered bal
ance of
allotments
June 30,
1912.
i $2,135,728.09
12,205,470.80
2$2,135,690.77
a 1,931,157.72
4,341,198.89
Unliquidated
balance of en
cumbrances
June 30,1912.
3 $37.32
*274,313.08
Subject to
requisition
for cash.
$2,135,728.09
2,186,038.23
4,066,848.49
274,350.40
4,321,766.32
18,337,963.36 ?$12,658,862.58 20,617,577.35
312,389.70
58.00
105,500.00
3,897,809.61
2,589,796.83
10,379,248.59
206,831.70
1,308,012.78
13,840,933.86
9 6,750,000.00
6,750,000.00
2,597,909.72
237,616,135.55
49,262,602.42
286,878,737.97
Disbursable
by Treas
ury only.
Disbursing
officers' bal
ances June
30,1912,
available for
payment of
vouchers
when
approved.
$19,432.57
19,432.57
3,358,599.25
$1,817.82
24,388.20
28,634.28
1,979,711.26
288,001.50
37,016.87
io 49,735,792.50
2,027,485.61
498,564.41
ii 6,453,606.30
71,859.70
50,557,764. 72 64,337,870.56 122,720,500.27 204,708,501.35 2,089,732.40
32,865,149.00
1,440,055.45
47,722,154.31
158,851.30
999,002.97
1,540,448.11
42,689,735.77 1,143,932.63
3,236,441.33
98,279,919.03 64,337,870.56 124,260,948.38 247,398,237.12 3,233,665.03
36,101,590.33
13 These totals are exclusive of the balances and transactions of the postal service, the public debt, and
the District of Columbia. They are based on the reports received frcm the several departments, tureaus,
and offices, in few of which controlling accounts are kept by means of which the accuracy of the detail
appropriation accounts may be determined. These reports were accepted by the commission without
verification. In a few instances palpable errors were corrected. Although the figures are tnewn to te
inaccurate and incomplete, they are submitted for the information of Congress as the best infoimation
that is at present available pertaining to the condition of appropriations and other past authorizations
to spend money.
14 The amount of trust funds is presented as reported, but is very incomplete, owing to the fact that the
Departments of State and War did not reporc such funds under a separate classification, and also certain
trust funds of the Interior Department and independent establishments were not reported.
o/
o/* appropna%07M wo Zo7%w amiZa&Zg /or
%o%
Zapsed %o gwp&M
6%CM?w&ra7Me, &%f
Definite current:
Annual, 1911.......................................................................................................................................$1,836,742.32
Annual, 1912....................................................................................................................................... 22,498,970.03
Biennial, 1910-11...............................................................................................................................
36,150; 35
Biennial, 1911-12................................................................................................................................ 1,549,473.61
7,101.20
Triennial, 1909-11.............................................................................................................................
Triennial, 1910-12..............................................................................................................................
89,712.79
Definite recurrent, 1911...........................................................................................................................
37.32
Definite recurrent, 1912...........................................................................................................................
274,313.08
General account of advances:
Naval supply account...................................................................................................................... 6,750,000.00
Total (see budget statement No. 2)........................................................................................... 33,042,500.70
S C H E D U L E 3, S U P P O R T I N G S C H E D
.4pproprMt%io% &a%a%C6s
rgp or^d &?/ & p a rf
CLASSIFIED BY KINDS OF APPROPRI
Unexpended balance of appropriation.
Decreases
during
year.
Increases during year.
Class of appropriation.
Balance as of
June 30,1911.
By act of
appropria
tion.
By receipts By repay
for credit as
ments,
additions to
transfers,
appropria and adjust
tion.
ments.
By vouchers
approved
and adjust
ments.
DEFINITE CURRENT.
<4w%M32.
1909 and prior years.
Navy Department............................
Department of Commerce and
Labor
................ ...........
$10.50
28,057.99
$122.90
13,583.52
**$17^789.23
1,648.89
39,724.41
$1.10
$6,116.51
12,733.01
723.85
1,032.04
69,441.79
1.10
6,116.51
26,439.43
19,545.12
1910.
^ p R o l Budding and Grounds___
National Botanic Garden................
Tariff Board .....................................
interior Department........................
Department of Commerce and
Labor................................................
tRvil Service Commission................
Interstate Commerce Commission.
Smithsonian Institution..................
Board of Arbitration on Interstate
Commerce Controversies..............
OdBce of Superintendent State.
War, and Navy Department
Building..........................................
54.722.36
4,353.57
13.411.37
1,559.67
1,772.94
2,448.93
23,594.62
1,136,451.20
5,485,709.51
5,289, f 21.62
1,142,242.46
374,181.83
459,381.98
3,683.33
206,792.14
12,528.54
Agricultural Department................
Department of Commerce and
Labor.
132
1,889.06
1,769.42
47,960.45
132,041.42
5,611.44
601.50
3,581.65
59,851.91
11,030.49
40.90
1,705.47
2,001.75
4,248.86
14,218,806.68
1911.
Senate..................................................
House..................................................
Joint committees and commissions
Capitol Building and Grounds........
Library of Congress..........................
National Botanic Garden................
Executive OfBce.......................... : . .
Tariff Board......................................
10,659.74
6,375.00
31.10
9.30
33.37
25,483.68
28,431.16
798,835.12
1,423,625.56
105,992.60
7,882.59
70,930.12
171,331.17
52.00
34,218.95
77,348.58
6,204.25
4,737.42
58,501.44
2,231,514.11
13,648,701.45
6,980,508.30
1,489,858.72
1,713,296.59
1,334,680.49
14,241.39
15.860.00
30.650.00
249,725.20
2,409,476.34
596.46
403.50
2.00
13,458.59
149,744.83
52.00
29,371.15
75,474.34
4,807.18
1,115.12
58,185.49
1,278,401.99
11,257,365.91
4,539,986.75
857,108.68
1,432,931.77
1,121,120.47
1,750.00
3,021.04
365.55
553.28
185.34
111,759.46
201,111.91
578,377.07
249,376.57
206,220.51
35,344.67
329,747.31
1.11
8,876.40
U L E 2 O F B U D G E T S T A T E M E N T N o. 2
77M%%3,
Oj%C63/or
^6^7* 6^&(?
ATIONS AND ORGANIZATION UNITS.
Unexpended balance of
appropriation.
Decreases
during
year.
By lapses
to surplus
fund.
Balance as
of June 30,
1912.
Treasury balances June
' 30,1912.
Unen
Unallotted
and unen
cumbered
cumbered
balance of
balance of ap allotments
propriation
June 30,
1912.
June 30,1912.
$133.40
23,703.15
$149.13
$149.13
327.07
54,867.21
597.97
2,675.78
597.97
79,030.83
3,422.88
747.10
54,722.36
4,339.60
7,036.37
737.20
Unliqui
dated
balance of
encum
brances
June 30,
1912.
Subject to
requisition
for cash.
$2,675.78
$597.97
2,675.78
2,675.78
3,273.75
13.97
13.97
13.97
791.37
1,763.64
791.37
1,763.64
791.37
1,763.64
1,102,640.17
4,630,366.07
3,997,720.36
1,035,225.99
366,900.74
7,149.29
115,128.51
417.12
6,635.31
7,149.29
949.79
417.12
6,156.69
509,485.05
3,683.33
206,751.24
10,823.07
2,300.00
Disbursing
oiHcers'
balances
June 30,
1912, avail
Disbursable for 3
able by
payment of
Treasury vouchers
only.
when
approved.
2,415.56
$24,461.17
89,717.55
7,149.29
9.57
478.62
$115,118.94
$6,635.31
2,300.00
2,300.00
2,001.75
4,248.86
11,939,097.72
134,199.21
17,241.87
73,927.99
52,639.84
73,927.99
52,639.84
2.00
2.00
6,597.80
2.793.07
1.397.07
3,622.30
315.95
1,157,430.41
65.00 3,081,407.07
2,689,898.12
808,567.14
"**36^404^52
315,709.49
552,183.73
6,597.80
2,543.57
1,397.07
3,622.30
315.95
1.086.143.04
1.990.803.05
2,115,659.74
803,313.53
410,004.76
24,461.17
92,496.17
9,727.84
6,635.31
73,927.99
39,509.56
117,418.94
13,130.28
2.00
3,130.21
1,091.20
*274^089!73
85,865.01
6,597.80
2.793.07
249.50
1.397.07
3,618.68
315.95
409,109.79 730,187.07
68,157.16
194.22
1,089,512.82 2,562,107.17
574,238.38
261,312.61
5,253.61
546,554.51
9,437.52
299,602.72
41,619.76
543,503.94
56,313.96
3.6R
18,133.55
519,105.68
700.02
6,669.25
8,679.79
133
134
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
&a%#7M%s a%d %m%sac%to%s
CLASSIFIED BY KINDS OF APPROPRIATIONS
Unexpended balance of appropriation.
Decreases
during
year. *
Increases during year.
Class of appropriation.
Balance as of
June 30,1911.
By act of
appropria
tion.
By receipts By repay
for credit as
ments,
additions to
transfers,
appropria and adjust
tion.
ments.
By vouchers
approved
ana adjust
ments.
DEFINITE CURRENT— continued.
4 wmal—Continued.
1911.
Civil Service Commission................
Interstate Commerce Commission.
Smithsonian Institution..................
Commission of Fine Arts.................
Board of Arbitration on Interstate
Commerce Controversies.
Office of Superintendent, State,
War, and Navy Department
Building.
$7,280.10
149,550.87
82,574.20
444.91
3,541.72
$81,925.08
69,255.85
$64.57
763.97
32,532.37
28,387.29
28,097,807.76
$51,282.15
9,810.03
1,959,700.30
4,100,725.00
4,000.00
265,700.00
121,251.32 $1,601,733.28 20,999,456.46
1912.
House..................................................
Joint committees and commissions
Capitol Building and Grounds ..
Capitol police.....................................
Government Printing Office..........
Library of Congress..........................
National Botanic Garden................
Executive Office...............................
Tariff Board.......................................
Commission on Economy and
Efficiency.
Treasury Department....................
War Department..............................
Department of Justice and Judi-
2,564.40
9,250.17
7,000.00
47,825.00
9,283.94
5.547.634.00
593.665.00
29,893.75
196.820.00
273.700.00
75.000.00
342,379.92
655.18
541,476.64
16.50
50.00
51,187.92
1,836,636.74
4,060,120.84
1.404.00
261,833.61
46,299.19
5,781,932.18
526,193.31
23,592.41
189,374.66
272,532.49
114,668.80
1,858,514.62 39,541,547.30
845,408.94
273,659.76 38,775,566.54
97,873,870.86 3,419,478.39 1,353,982.54 91,025,871.60
10.040.186.00
1.667.190.00
88,612,224.57
168,697,800.85
17.197.516.00
Post Office Department...................
Navy Department............................
Interior Department........................
Department of Agriculture.............
Department of Commerce and
11.476.070.00
284.790.00
1,800,000.00
742,000.00
8,800.00
91,567.19 9,172,941.09
314.00 1,461,556.20
"72^829.00 14,631,227.65 99,484,998.28
442,359.29 167,408,103.91
30,533.58
9,758.86 14,338,144.44
80,872.51
73.35
345,639.87 10,412,368.11
279,782.40
1,362,887.78
671,298.09
6.800.00
Board of Arbitration on Interstate
799.64
15.000.00
OiHce of Superintendent, State.
War^ and Navy Department
8,032.20
161.320.00
161,475.64
1,925,433.59 451,165,153.63 4,792,280.87 17,768,036.99 447,677,181.89
Total definite current annual. 44,311,489.82 451,216,436.88 4,933,890.09 19,645,934.90 471,105,659.81
1909-10.
Capitol Buildings and Grounds—
War Department..............................
151.30
142,791.21
41,518.42
109.43
48.61
Department of Commerce and La-
6,875.35
191,445.71
48.61
i This sum represents a deduction.
13.08
448.63
122,539.50
1,948.47
4,332.15
2.70
4,793.86
124,490.67
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
2/ear
o^cesyb r ^
Jim e
135
— C o n tin u ed .
AND ORGANIZATION UNITS— c o n tin u e d .
Unexpended balance of
appropriation.
Decreases
during
year.
Treasury balances June
30,1912.
Unen
Unallotted
and unen
cumbered
cumbered
balance of
balance of ap allotments
Balance as propriation
June 30,
of June 30, June 30,1912.
1912.
1912.
By lapses
Unliqui
dated
balance of
encum
brances
June 30,
1912.
Subject to
requisition
for cash.
to surplus
fund.
Disbursing
officers'
balances
June 30,
1912, avail
able for
Disburspayment
of
ableby
Treasury vouchers
when
only.
approved.
-
$7,280.10
67,625.79
13,382.92
444.91
2,777.75
$7,280.10
4,145.08
3,886.83
$30,469.52 8,842,431.87
6,561,360.23
135,437.99
49,854.33
2,596.00
10,866.39
1,525.87
649,558.38
77,427.31
6.301.34
7.445.34
1,167.51
11,569.12
135,437.99
49,854.33
2,500.30
1,899.84
1,525.87
35,749.29
4,711.76
565.12
7,445.34
1,167.51
11,569.12
256,671.41 3,486,892.67
11,621,460.19
1,289,787.90
i 85,869.95
958,812.10
205,947.80
3,831,282.94
1,762,589.81
2,869,130.42
165,437.32
47,566.65
515,469.53
840,937.60
1,490,214.27
5,007.60
437,112.22
70,775.26
2 , 000.00
313,423.65
4,553.13
14,200.36
14,200.36
$7,280.10
$67,625.79
12,244.04
$67,625.79
$1,138.88
13,382.92
444.91
2,777.75
258.25
4,145.08
444.91
2,777.75
444,045.98 1,836,742.32 4,517,071.01 1,068,757.21 $566,422.19
95.70
8,966.55
613,809.09
72,715.55
5,736.22
35,032.60 2,162,-072.17 2,086,340.59
85,746.51 11,621,583.63 6,200,234.34
2,171.32
7,876.56
27,989.94
48,747.64
9,395.43
419.18
92,970.79
69,020.88
5,604.48
2,112.59
4,425.41
42,424.12 1,358,127.96
5,754.25 5,415,471.60
793,374.78
298,493.45 122,467.79
59,744.63
144,206.18
3,315,813.41
921,652.21
989,968.13
1,228,062.60 1,641,067.82 2,195,758.45
47.07
14,174.97
162,939.34 1,013,851.28
454.47
107,345.28
70,520.45
329,766.94
254.81
2 , 000.00
107,448.05
1.106.69
2,596.00
1,470.96
1.106.69
556,587.59
8,406.43
696.86
5,332.75
1,167.51
7,143.71
944,964.07
5,007.60
437,112.22
41,248.87
2 , 000.00
537,850.86
146,203.17
772,621.68
673,324.90
545,250.20
29,526.39
14,200.36
5,705.24
6,907.20
969.36
256,671.41 27,717,051.78
3,362,103.98 1,855,977.77 22,498,970.03 13,975,043.15 170,693.23 9,740,032.46
12,305,269.48 36,696,822.40
9,941,453.18 2,324,484.92 24,430,884.30 18,505,115.75 1,246,085.75 10,423,873.59
151.30
20,313.40
32,805.35
109.43
7,213.23
4,064.28
3,148.95
7,213.23
7,213.23
4,064.28
3,148.95
7,213.23
11,204.80
64,584.28
136
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
M a g e e s a%<?
as
CLASSIFIED BY KINDS OF APPROPRIATIONS
Unexpended balance of appropriation.
Decreases
during
year.
Increases during year.
Class of appropriation.
Balance as of
June 30,1911.
By act of
appropria
tion.
By receipts By repay
for credit as
ments,
additions to
transfers,
appropria and adjust
tion.
ments.
By vouchers
approved
and adjust
ments.
DEFINITE CURRENT— c o n t i n u e d .
—Continued.
-
.
1910-11.
Capitol Buildings and Grounds___
Executive OiHce...............................
War Department..............................
Department of Justice and Judi
ciary..................................................
Interior Department......................
Department of Agriculture.............
Department of Commerce and La
bor.........................
$716.28
4,787.39
948,997.23
$24.49
51,815.98
302,901.90
3,514.60
66,246.12
24.49
1,378,979.50
1911-12.
Senate.....................
House............ ...............
Commission to Investigate Ques
tions Pertaining to Issuance of
Stocks and Bonds by Railroad
Corporations...................................
War Department..............................
Interior Department........................
Department of Agriculture.............
Department of Commerce and La
bor...............................
3,600.00
18,586.95
$47,000.00
3,827,158.11
1,233,910.93
160,042.39
219,850.56
91,065.48
243,000.00
5,389,363.86
520,645.71
$4,744.28
848,059.54
547.61
11,023.01
31.50
39,216.29
227,638.43
3,539.64
3,598.99
53,757.03
31,357.18
1,176,955.21
45,205.60
4,155.08
10,795.15
7,163.65
3,592,485.27
1,474,126.91
134,731.82
440,558.58
720.00
761,264.99
145,280.15
622.78
1,660.10
304,854.68
441,278.58
908,828.02
5,562,723.01
3,000.00
630,000.00
3,525,000.00
597,061.10 2,643,370.83
947.21
618,514.92
1,696,236.32
4,158,000.00
597,061.10 2,643,370.83
2,315,698.45
6,'959,789.07
4,678,645.71 1,038,412.78 3,588,349.89
9^179,867.34
18,095.25
43.05
9,745.45
1912-13.
Senate........................
House.........................
W ar Department............................
Total definite current bien
nial........................................
$16,156.07
TrMMHta?.
1909-11.
War Department..............................
1910-12.
War Department..............................
Department of Commerce and
Labor............................................
.53
190,428.78
300,139.15
2 , 000, 000.00
490,567.93
2 , 000, 000.00
.53
19,054.49
140,501.34
58,400.16
2,332,931.45
77,454.65
2,473,432.79
2,194.86
294,216.53
79,692.56
2,777,394.77
1911-13.
W ar Department..............................
1,053,221.16
Total definite current trien
nial ........... .............................
1,561,884.34
2 , 000, 000.00
.53
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
aiM?
ybr ^
6
year
187
^9^^— C o n tin u e d ,
AND ORGANIZATION UNITS— c o n tin u e d .
Treasury balances June
30,1912.
Unexpended balance of
appropriation.
Decreases
during
year.
Unen
Unallotted
and unen
cumbered
cumbered
balance of
balance of ap allotments
Balance as propriation
June 30,
of June 30, June 30,1912.
1912.
1912.
By lapses
Unliqui
dated
balance of
encum
brances
June 30,
1912.
Subject to
requisition
for cash.
to surplus
fund.
35,425.76
5,425.76
$716.28
43.11
117,118.25
$716.28
43.11
5,632.87
7,721.54
86,286.48
6.46
2,544.84
80,513.06
$716.28
$43.11
$86,291.61
16,088.08
14,808.77
1,279.31
227,980.20
104,258.93
87,570.92
5,394.40
14,431.87
5,394.40
14,431.87
3,631.50
1,436,496.41
180,634.73
25,933.35
Disbursing
officers'
balances
June 30,
1912, avail
able for
Disburspayment
of
able by
Treasury vouchers
when
only.
approved.
$25,193.77
88,324.ay
5,176.70
5,773.42
6.46
7,721.54
77,941.21
6.46
36,150.35
$28,793.38
8,159.89
185.38
14,866.28
1,221.80
188,903.47
8,876.17
30,200.56
5,394.40
13,125.20
3,631.50
3,631.50
32,519.94 * " *29^850! 75 *ij374jl2&72 1,080,254.84
137,982.22
42,652.51
53,873.50
65.74
25,867.61
17,276.89
1,306.67
8,245.95
356,241.57
126,761.23
410.51
8,245.95
493,856.95
21,733.93
30,870.90
19,372.84
11,498.06
1,697,393.16
118,003.06
29,916.49 1,549,473.61 1,195,290.26
2,052.79
11,485.08
5,069,195.61
2,052.79
11,485.08
781,994.76 2,550,219.89 1,736,980.96 .4,486,339.56
2,052.79
11,485.08
582,856.05
5,082,733.48
795,532.63 2,550,219.89 1,736,980.96 4,486,339.56
596,393.92
70,010.04 7,015,320.07
1,021,858.90 2,667,707.30 3,325,753.87 5,870,533.29
24,335.35 1,120,451.43
8,392.85
1,291.65
4,393.13
61,452.70
66,104.93
7,529.76
25,607.86
1,918.02
89,712.79
33,137.62
61,452.73
50,905.11
249,018.56
461,275.82
664,360.08
96,839.41
55,156.27
250,936.58
558,089.81
701,497.42
162,685.24
959.51
2, 000.00
94,590.32
2,959.51
761,199.49
864,182.66
1,918.02
3,999.72
23,607.86
68,982.46
25,607.86
7,101.20
9,136.97
138
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
^ppropria^on 6aJa7M%s and %ran#ac%ons as reporM
&par^m6n^,
CLASSIFIED BY KINDS OF APPROPRIATIONS
Unexpended balance of appropriation.
Decreases
during
Increases during year.
year.
Class of appropriation.
Balance as of
June 30,1911.
By act of
appropria
tion.
By receipts By repay
ments,
for credit as
additions to transfers,
and
adjust
appropria
tion.
ments.
By vouchers
approved
ana adjust
ments.
DEFINITE CURRENT— continued.
COMfiMMOMS.
$7,695.00
$23,987.79
Senate...........................................
6, 000.00
7,614.89
House............................................
13,500.00
154,028.18
Joint committees and commissions
$12.50
974,770.00
727,139.14
Capitol Building and Grounds___
2, 000.00
3,487.73
Congressional Library.....................
Commission on Economy and
$455.00
Efaciency........................................
58,830.91
Commission to Investigate Cost of
Transporting and Handling
25,000.00
Second-class Mail.........................
Committee
on
Departmental
2,444.31
Methods..........................................
,232,991.82
411.500.00
State Department.............................
!, 440,606.53
594,597.47
,169,981.77
Treasury Department......................
147,017.17 ,032,520.91
), 884,838.06 42,391,399.65
War Department..............................
Department of Justice and ju
31.40
202.486.00
314,776.68
diciary..............................................
500,000.00
59,201.45
86.97
Post Omce Department..................
',156,738.63 38,660,024.67
[,489,337.07
Navy; Department............................
t, 404,889.32 2,589,615.95
851.95
29,488.94
Interior Department........................
24.67
227,905.09
Department of Agriculture.............
Department of Commerce and
Labor................................................ 2,126,762.01 1,621,150.00
120,207.14
2 2 ,9 0 2 ."
Smithsonian Institution..................
43,040,000.00 4,555,474.57 1,555,848.05
Isthmian Canal Commission......... 19,397,698.
$21,218.84
13,500.00
42.748.91
148,785.57
2,157.84
59.740.91
18,565.95
541,799.61
18,283,$03.33
47,646,055.28
208,731.03
289.174.87
47,561,239.93
4,393,812.12
63,254.16
969.116.87
21,227.13
39,860,005.06
8,397,539.42 160,145,037.41
Total continuous.........
180,269,399.32 131,017,183.05 4,703,798.)
Total definite current.
233,102,562.55 588,912,265.64 10,676,102.0 31,711,516.77 643,207,959.33
DEFINITE RECURRENT.
222.82
Prior years.................................
1910.
War Department.................
Department of Agriculture.
457.23
63,837.69
3,949.47
448.93
4,398.40
15.55
64,294.92
3,949.47
448.93
4,413.95
820,598.64
372.37
1,644.
820,971.01
279,521.38
820,598.64
2,016.97
1,100,492.3
1,191,749.83
2.500.000.00
5.025.000.00
6,111.00
1,196,677.23
2,500,000.00
2,820,828.13
1911.
War Department...................
Department of Agriculture.
2,413,604.87
2,413,604.87
1912.
War Department.................
Interior Department...........
Department of Agriculture.
Total definite recurrent.
115.33
8,716,749.83
6,226.33
6,517,505.36
2,477,899.79
9,541,297.94
8,915.05
7,622,411.70
22,733.53
622,557.79
7,814,602.31
123,741.19
123,608.65
603.00
362,000.00
3,337,611.91
1,836.35
2,969.20
110,517.55 4* 908,*341.22
131,253.86
356,294.54
2,851,949.76
2,969.20
4,405,575.40
REVENUE.
State Department...........
Treasury Department...
W ar Department............
Post Omce Department.
Navy Department.. ..
1,902,217.05
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
/o r
year
Jime
139
— Continued.
AND ORGANIZATION UNITS— continued.
Unexpended balance of
appropriation.
Decreases
during
year.
By lapses
to surplus
fund.
$1,283.31
114.89
Balance as
of June 30,
1912.
Treasury balances June
30,1912.
Unen
Unallotted
and unen
cumbered
cumbered
balance of
balance of ap allotments
June 30,
propriation
June 30,1912.
1912.
Unliqui
dated
balance of
encum
brances
June 30,
1912.
Subject to
requisition
for cash.
Disbursableby
Treasury
only.
Disbursing
officers'
balances
June 30,
1912, avail
able for
payment of
vouchers
when
approved.
$9,180.64
$9,180.64
$9,165.35
$15.29
124,779.27
1,553,136.07
3,329.89
124,779.27
494,222.59
3,329.89
115,126. 74
$1,058,913.48 1,539,752.38
3,329.89
9,652.53
13,383.69
i 455.00
i 455.00
6,434.05
6,434.05
455.00
6,434.05
2,444.31
2,444.31
2,444.31
***14^419!07 1,088,273.14
$6,289.83 1,010,506.23 1,003,861.34
71,477.08
84,411.80
294,747.92 21,626,534.52 10,524,114.18
11,102,420.34 20,184,371.24 $226*296.16 1,215,867.12
142,887.84 55,666,852. 67 7,793,219.22 32*637,094.01 15,236,539.44 47,739,442.66 36,247.49 7,891,162.52
298,551.78
10, Oil. 27
270,113.55
113,515.78 44,631,344. 66
31,640.85 6,599,393.19
164,675.60
186,240.42
247,011.91
6,608,133.73
6,263,163.20
272,633.70
112,311.36
23,101.64
247,876.88
38,023,210.93
295,563.10 6,355,643.31
*40,*666.*89
155,751.45
8,924.15
160,524.80
763,599.07 2,698,518.42
81,743.00 2,817,259.28
747,497. 77 1,306,162.44
1,675.65
1, 6ip. 25
489.17
62.40
28,689,015.87 21,835,842.16
6,853,173.71 26,007,163.11
3,262.94
22,655.14
22,236.67
100.00
243,649.88
4,150.80
118,740.86
1,186.48
2,681,852.76
690,343.93 163,552,539.14 54,918,248.67 34,145,964.62 74,488,325.85 108,346,777.35 265,906.59 12,308,510.54
13,065,623.45 208,128,864.27 65,936,717.02 39,389,093.42 102,803,053.83 131,423,923.81 1,536,327.69 24,015,520.80
222.82
457.23
63,822.14
64,279.37
2,135,728.09
2,135,690.77
37.32 2,135,728.09
2,135,728.09
2,135,690.77
37.32 2,135,728.09
1,183.60
442.43
2,204,287.20
1,930,715.29
741.17
1,183.60
273,571.91 2,186,038.23
18,248.97
2,205,470.80
1,931,157.72
274,313.08 2,186,038.23
19,432.57
64,502.19 4,341,198.89
4,066,848.49
274,350.40 4,321,766.32
19,432.57
15,088.32
6,505.37
681,608.85
31,754.28
306,387.75 6,956,283.25 7,482,175.15
8,582.95
70,998.59
819,925.66
15,088.32
752,607.44
8,302,100.81
720,853.16
1,039,429.81
2,515,500.42
502,886.03 ...................... ' 2,012,614.39
140
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
M a% c63
as
CLASSIFIED BY KINDS OP APPROPRIATIONS
Unexpended balance of appropriation.
Decreases
during
year.
Increases during year.
Class of appropriation.
Balance as of
June 30,1911.
By act of
appropria
tion.
By receipts By repay
for credit as
ments,
additions to transfers,
appropria and adjust
tion.
ments.
By vouchers
approved
ana adjust
ments.
REVENUE— c o n t i n u e d .
Interior Department........................
Department of Commerce and
Labor................................................
$9,750,380.84 $2,491,653.10 $12,043,416.18
553,154.98
67.45
538,238.85
$6,524,318.69
13,355.84
15,073.82
16,914,859.03
1,670.20
14,185.15
$123,741.19 13,878,846.13 7,765,568.32 20,343,882.94
INDEFINITE.
4,293.65
Joint committees and commissions.
State Department.............................
..............................
179,404.01
War Department
Department of Justice and JudiInterior Department........................
Department of Commerce and
Labor................................................
47,102.26
69,661.66
2,510,915.45
5,138.69
123.32
9,594.78
140,161.11
12,018.75
46,346.88
15,870.50
230,044.54
2,795,729.73
51,395.91
69,661.66
2,404,087.95
128,794.39
11,960.75
5,138.69
208.16
62,425.54
9,926.26
2,728,326.20
DETERMINATE.
1,153,822.22
225,545.08
30.634 28 33.065,599.08
1,812.72
439,829.80
427,320.38
574.15
........................
2,073,993.03 1,959,907.69
Interior Department
Department of Commerce and
1,560.00
112,845.12
744.56 33,069,281.93
439,846.56
46,255.59
127,274.43 2,034,034.79
2,771,562.19 35,025,506.77 1,583,529.47
174,274.58 35,657,048.40
TreasuryDepartment.....................
Total determinate..................
1,040.00
GENERAL ACCOUNT OF ADVANCES—
NAVAL SUPPLY ACCOUNT.
Department of the Navy.................
UNDISTRIBUTED.
UNCLASSIFIED.
All years.
State Department.............................
1,796,993.11
3,378.11
4,053,779.77
57,015.79
239.98
3,874,881.57
30.96
1,800,371.22
4.053,779.77
57,255.77
3,874,912.53
18,056.83:
164,214.77
662,627.10
10,055.84
11,014.10
44.00
35,778.39
384,277.44
147,127.48
86,940.74
1911 and prior years.
Government Printing OiRce..........
Department df Justice and JudiInterior Department........................
1,196,468.75
2,031,474.06
321,490.68
79,546.76
3,628,980.25
28,112.67
211,051.26
1,280,972.76
28,112.67
268,307.03
5,155,885.29
1,303,206.39
2,295,430.14
44,669,558.51
99,806.21
5,751.75
364,408.95
72.26
35.35 6,377,014.21 1,039,009.26
9,079.97
473,170.41
6,409,440.23
Total trust funds.................... 48,268,195.04
5,787.10 6,741,423.16 1,138,887.73
6,891,690.61
5,429,351.47
4,053,779.77
TRUST FUNDS.
Treasury Department......................
Grand total (see Schedule 2 ). 309,194,474.61 640,458,108.14 32,913,152.21 41,077,395.74 721,607,204.47
i This amount represents a deduction.
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
/or ^
6
year 6%<M
141
— Continued.
AND ORGANIZATION UNITS —continued.
Unexpended balance of
appropriation.
Decreases
during
year.
By lapses
to surplus
fund.
Balance as
of June 30,
1912.
Treasury balances June
30,1912.
Unen
Unallotted
and unen
cumbered
cumbered
balance Of
balance of ap allotments
propriation
June 30,
1912.
June 30,1912.
Unliqui
dated
balance of
encum
brances
June 30,
1912.
Subject to
requisition
for cash.
$1,168.37 $6,721,768.08 i $14,924,590.45 $20,290,572.75 $1,355,785.78 $5,659,101.13
28,339.42
20,616.85
7,722.57
8,984.49
2,558.87
2,558.87
Disbursing
officers'
balances
June 30,
1912, available for
Disbursable by payment of
Treasury vouchers
when
only.
approved.
$1,817.82 $1,060,849.13
19,354.93
2,558.87
1,168.37 18,337,963.36 1 12,658,862.58 20,617,577.35 10,379,248.59 13,840,933.86
1,817.82 1,979,711.26
123.32
300,964.98
105,500.00
195,464.98
24,388.20
11,366.72
11,366.72
58.00
58.00
123.32
312,389.70
58.00
15.00
1,266,522.18
29,493.71
473,559.21
2,127,714.51
473,559.21
2,116,237.62
11,476.89 2,091,557.07
2,589,796.83
1,308,012.78 3,358,599.25
105,500.00
11,366.72
58.00
206,831.70
24,388.20
1,266,522.18 1,266,522.18
29,493.71
28,634.28
520.00
520.00
15.00 3,897,809.61
i 6,750,000.00
276,576.78
288,001.50
859.43
36,157.44
520.00
28,634.28
37,016.87
6,750,000.00
49,735,792.50
6,453,606.30
350,760.92 1,682,146.18
3,587.13
577,392.91
158,851.30
945,901.97 1,145,059.38 470,417.10
66,669.70
354,348.05 1,682,146.18
577,392.91
158^851.30
945,901.97 1,145,059.38 470,417.10
66,669.70
446,562.15
269,551.10
269,551.10
1,126,870.73
83,704.81
14,270.19
531,339.99
90,702.39
24,170.06
478,238.99
90,702.39
24,170.06
1,671,407.88
915,763.54
862,662.54
2,025,755.93 2,597,909.72
1,440,055.45
265,050.73
53,101.00
526,673.11
90,702.39
4,500.37
3,977.25
689.63
24,170.06
53,101.00
158,851.30
882,426.23
28,147.31
5,190.00
999,002.97 2,027,485.61 498,564.41
71,859.70
250,000.00 1,143,932.63
1,393,932.63
250,000.00
2,192,492.69 2,192,492.69
45,676,177.10 45,279,661.62
1,143,932.63
49,262,602.42 47,722,154.31
1,540,448.11 42,689,735.77 1,143,932.63 3,236,441.33
396,515.48 42,439,735.77
3,236,441.33
15,157,188.26 286,878,737.97 98,279,919.03 64,337,870.56 124,260,948.38 247,398,237.12 3,233,665.03 36,101,590.33
S C H E D U L E 4 , S U P P O R T IN G B U D G E T S T A T E M E N T N o . 2.
J2ec apt% % % a ^o% o / a p p r o p r m ^ o ? ^
GTMf ^ r a ^ g a c ^ o ^ s
r e p w ^ & y & p a r ^ W 6 ^ ^ , 5 w e a ^ , aTM f o ^ c e & y b r
^ c a Z y e a r 67Mfed
^0,
.
bO
CLASSIFIED BY ORGANIZATION UNITS.
Unexpended balance of appropriation.
Decreases during year.
Increases during year.
Balance as of
June 30,1911.
(Column 1.)
$163,050.30
201,886.58
158,373.83
1,196,468.75
91,679.92
7,977.19
47,825.00
$2,033,255.30
4.767.375.00
64,602.26
5.547.634.00
595,665.00
29,893.75
11,973.74
82,096.06
58,830.91
196.820.00
273.700.00
75,000.00
By vouchers ap
proved, and ad
justments.
(Column 5.)
By lapses to sur
plus fund.
$1,917,466.98
4,846,035.67
95,600.82
6,444,559.28
603,856.59
28,408.89
46,299.13
$56,005.67
4,454.49
$360,436.75
1,020.73
$3,160.86
9,653.67
2.00
705,691.41
569.78
1,889.06
51,187.92
195,267.43
356,201.66
174,409.71
2,415.56
505.00
25,000.00
444.91
10,795.15
8,800.00
2,444.31
3,278,263.54
45,626,863.03
93,234,128.72
2,398,066.72
4,534,941.43
73,328,506.08
148,317,485.00
10,382,833.11
1,277,430.87
848,010.00
8,075,475.18
380,692.13
66,092,503.53
66,017,749.24
775,637.04
4,969,848.33
4,449,780.17
2.167.190.00
127,278,000.99
175,979,230.26
1.242.220.00
22,222,516.00
15,356,090.50
2,969.20
975,075.88
16,170,130.57
10,963.43
356,343.01
5,543.47
(Column 6.)
446,562.15
737.20
Balance as of
June 30,1912.
(Column 7.)
$225,993.81
128,425.09
127,377.27
919,109.48
84,341.64
9,462.05
1,525.87
11,110.75
1,483.46
11,114.12
18,565.95
6,434.05
7,163.65
6,800.00
3,631.50
2,444.91
2,444.31
57,139.11
2,109,313.61
6,486,257.60
103,160.30
4,730,441.82
91,800,990.42
164,711,028.25
9,933,960.24
365.303.31
1,657,661.63
4,849,159.57
1,142,307.76
4,052,029.82
28.454.040.67
86.553.158.68
1,807,792.13
24,470,235! 30
4,534,270.05
7,012.50
48,211.36
925,315.99
1.900.827.75
158,346,232.12
197,554,523.81
446,365.33
19.619.088.33
15.283.556.34
83,704.81
4,134,939.29
1,145,648.67
7,187.67
430.832.31
602,759.92
566,763.74
56,334,644.29
64,001,207.64
1,571,316.54
7,743,810.03
4,938,200.96
284,790.00
1,800,000.00
279,782.40
1.444.853.76
3,683.33
206,751.24
12,287.70
504,738.01
15,090.00
1,563.61
2,001.75
16,978.11
553,154.98
93,330.56
TO CONGBESS.
(Column 2.)
By repayments,
transfers, and
adjustments.
(Column 4.)
FOR 1914 SUBMITTED
The Congress:
Senate..................................................................
House of Representatives................................
Joint committees and commissions..............
Government Printing Office.........................
Library of Congress..........................................
National Botanic Garden................................
Capitol police.....................................................
The President (including executive boards
and commissions):
The Executive OiRce.......................................
Tariff Board.......................................................
Commission on Economy and Efficiency...
Commission to Investigate Cost of Trans
porting and Handling Second-Class Mail.
Commission to Investigate Questions Per
taining to Issuance of Stocks and Bonds
by Railroad Corporations............................
Commission of Fine Arts................................
Committee on Departmental Methods........
Executive departments:
State.....................................................................
Treasury..............................................................
W ar......................................................................
Justice and Judiciary.......................................
Post OiRce (superintendent of Washington
postal service).................................................
Navy....................................................................
Interior................................................................
Capitol Building and Grounds....................
Agriculture.........................................................
Commerce and Labor......................................
Other Government establishments:
Civil Service Commission................................
Interstate Commerce Commission................
Board of Arbitration on Interstate Com
merce Controversies......................................
By act of appro
priation.
By receipts for
credit as addi
tions to appro
priation.
(Column 3.)
BUDGET
Organization units.
Organization units.
Unliquidated
Unencumbered
balance of en
balance of al
lotments June cumbrances June
30,1912.
30,1912.
(Column 9.)
(Column 10.)
$95.70
613,809.09
72,965.05
5,736.22
(Column 11.)
$195,935.79
53,755.42
117,724.74
821,638.32
15,320.76
3,857.57
1.106.69
$30,058.02
74,669.67
9,652.53
97,471.16
69,020.88
5,604.48
419.18
8,994.54
1,483.46
7,143.71
2,116.21
Subject to
requisition
for cash.
Disbursing ofRcers' cash bal
ances June 30, 1912.
On hand.
(Column 14.)
$17,635.64
On deposit
with Treas
urer, Assistant
Treasurers,
and nationalbank deposi
taries.
(Column 15.)
$4,500.37
51,385.24
5,604.48
^970*41
6,434.05
3,631.50
2,444.91
2,444.31
$165,141.13
38,162.81
36,078,021.90
3,238,018.70
14,537,830.29
38,863,301.02
975,330.56
3,421,948.27
23,618,579.76
70.317.453.50
1,105,521.80
14,174.97
5,744,992.43
1,556,246.10
167,307.82
50,675,877.11
3,133,630.28
1,067,880.03
1,998,817.60
1,871,690.23
398,323.90
49.735.792.50
58,214,374.63
1,547,821.14
7,003,920.13
4,252,871.34
397,392.73
454.47
107,345.28
12,287.70
437,112.22
20,331,239.64
16,978.11
$470,417.10
2,171,474.26
66,584.16
129,707.98
309,408.92
716.28
17,730.54
67,625.79
159,664.45
2,663,986.65
16,169,121.02
572.562.35
168,439.84
6,453,606.30
5,477,424.09
22,779.12
722.159.36
685,329.62
17,878.72
902,866.05
24,399.23
381,796.65
134,930.58
4,067,207.84
220,287.99
33,509.26
8,010,440.75
2,230,111.70
249,950.62
51,331.42
722,159.36
633,998.20
143
The Congress:
Senate............................................................
House of Representatives.........................
Joint committees and commissions........
Government Printing OfRce....................
Library of Congress....................................
National Botanic Garden.........................
Capitol police...............................................
The President (including Executive boards
and commissions):
The Executive OfRce....................................
Tariff Board....................................................
Commission on Economy and Efficiency.
Commission to Investigate Cost of Trans
porting and Handling Second-Class Mail.
Commission to Investigate Questions Per
taining to Issuance of Stocks and Bonds
by Railroad Corporations............................
Commission of Fine Arts................................
Committee on Departmental Methods.......
Executive departments:
State....................................................................
Treasury.........................................................
W a r.....................................................................
Justice and judiciary..................... .................
Post OfRce (superintendent of Washing
ton postal service)
.................................
Navy ..................................................................
Interior................................................................
Capitol Building and Grounds......................
Agriculture.........................................................
Commerce and Labor.......................................
Other Government establishments:
Civil Service Commission..............................
Interstate Commerce Commission...............
Board of Arbitration on Interstate Com
merce Controversies............................ .
Disbursing
officers' bal
ances June 30,
1912, avail
able for pay
Disbursable
ment of
by Treasury
vouchers
only.
when ap
proved.
(Column 12.) (Column 13.)
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Treasury balances June 30,
1912.
Unallotted and
unencumbered
balance of
appropriation
June 30,1912.
5a ^ c e s
^ra^ac^ovzs as r e p o r t
5?/ &par^m e?^^,
X w ea n s, aTMf oj^cesybr ^Ae j%scaZ year e/Mfed J^?ze
9
.? Jff— C o n .
144
Recapi&JatMm o / a p p r o p rm ^ o ^
CLASSIFIED BY ORGANIZATION UNITS— c o n tin u e d .
Unexpended balance of appropriation.
Organization units.
Balance as of
June 30,1911.
By receipts for
credit as addi
tions to appro
priation.
B y repayments,
transfers, and
adjustments.
pmved, and a ^
justments.
By lapses to sur
plus fund.
(Column 2 .)
(Column 3.)
(Column 4.)
(Column 5.)
(Column 6.)
Other Government establishments—Contd.
Smithsonian Institution....... ...........................
Isthmian Canal Commission..........................
Superintendent of the State, War, and
Navy Building...............................................
$118,005.52
19,397,698.31
$742,000.00
43,040,000.00
36,781.23
161,320.00
Total, as reported by departments,
bureaus, and offices (see Schedule 2 )* ...
309,194,474.61
640,458,108.14
$137.92
4,555,474.57
32,913,152.21
$763,486.54
39,860,005.06
$10,823.07
$85,833.87
28,689,015.83
8,032.20
189,862.93
4,248.86
12,021.64
41,077,395.74
721,607,204.47
15,157,188.26
3 286,878,737.97
18,180,582.11
944,705,277.00
10 3,023,393.85
TO CONGRESS.
685,163,385.14
Differences:
Amount by which figures reported exceed
(Column 7.)
$1,555,848.05
Total, as per books of the Division of
Book^eping and Warrants, Treasury
Amount by which figures reported fall
short of Treasury figures..............................
Balance as of
June 30,1912.
FOR 1914 SUBMITTED
(Column 1.)
By act of appro
priation.
BUDGET
Decreases during year.
Increases during year.
H. Doc. 1435,62-3
Organization units.
Unallotted and
unencumbered
balance of
appropriation
June 30,1912.
(Column 8.)
Smithsonian Institution................................
Isthmian Canal Commission.......................
Superintendent of the State, War, and
Navy Building............................................
Total, as reported by departments,
bureaus, and offices (see Schedule 2 )...
Total Treasury balance as reported.........
Total, as per books of the Division of
Bookkeeping and Warrants, Treasury
Department s...........................................
Differences:
Amount by which figures reported exceed
Treasury figures..........................................
Amount by which figures reported fall
$1,613.25
21,835,842.16
Unencumbered
Unliquidated
balance of al
balance of en
lotments June cumbrances June
30,1912.
30,1912.
(Column 9.)
$12,498.85
6,058.15
3 98,279,919.03
^64,337,870.56
(Column 10.)
Subject to
requisition
for cash.
(Column 11.)
Disbursing
officers' bal
ances June 30,
1912, avail
able for pay
ment of
Disbursable
vouchers
by Treasury
when ap
only.
proved.
(Column 12.)
(Column 13.)
$71,721.73
6,853,173.71
$55,120.96
26,007,163.11
$30,712.87
2,681,852.76
5,963.49
11,052.28
969.36
247,398,237.12 $3,233,665.03
36,101,590.33
Disbursing officers cash bal
ances June 30,1912.
On hand.
(Column 14.)
$500.00
1,031,393.29
On deposit
with Treas
urer, Assistant
Treasurers,
and nationalbank deposi
tories.
(Column 15.)
$30,212.87
1,650,459.47
922.87
6 6,694,028.64
250,631,902.15
248,972,487.42
H 1,659,414.73
1 These totals are derived from the special reports and recapitulations received from departments, bureaus, and offices. They are exclusive of the postal service, the public
debt, and the District of Columbia, which were omitted in order that the totals arrived at might represent as nearly as possible the condition surrounding the appropriations,
balances, and transactions relating to the ordinary and current business of the Government. These reports and recapitulations were accepted by the commission without verifi
cation. In a few instances, however, palpable errors were corrected. Although the figures are known to be inaccurate and incomplete, they are submitted for the consideration of
Congress as the best information that is at present available pertaining to thQ condition of appropriations and other past authorizations to spend money. The totals presented are
in agreement with Schedule 2, which sets forth the appropriations, balances, and transactions by classes.
2 If accurately stated, this balance is not wholly available, since it includes balances of current appropriations of 1910,1911, and 1912, which are available only for the payment of
expenses incurred during the years for which the appropriations were made.
s If accurately stated, this balance is not wholly subject to allotment, since it includes unallotted balances of appropriations for the fiscal years 1910,1911,1912, the unexpended
balances of which can only be used for the liquidation of expenses incurred during those years. This total has been reduced by approximately $16,000,000, consisting of the amount
by which the Reclamation Service has overallotted its fund by allotments covering future costs of projects.
* If accurately stated, this balance is no longer wholly subject to encumbrance, since it includes unencumbered balances of current appropriations of 1910,1911,1912, the unex
pended balances of which are available only for the payment of expenses already incurred in those years.
145
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Treasury balances June 30,
1912.
146
FOE 1914 SUBMITTED
TO CONGRESS.
BUDGET
&
If accurately stated, the total amount of the unliquidated balance of encumbrances is an obligation which must be met with the unexpended resources of the appropriations—
that is, by payments made from disbursing officers' balances or from undrawn Treasury balances.
of
Column 7, the aggregate of which is, if accurately stated, the unexpended balance of appropriations as of the close of business June 30, 1912, is accounted for and analyzed
by columns which appear below it as follows:
Columns 8, 9, and 10 constitute one analysis of column 7—that is, the unallotted and unencumbered balance plus the unencumbered balance of allotments, plus the unliqui
dated balance of encumbrances equal the unexpended balance (column 7). The resources from which unexpended balances of appropriations are to be met are found in
columns 11,12, and 13, which in aggregate should equal, but as presented fall short of, the unexpended balance, owing to the fact that the Treasury balance, subject to requi
sition for cash, plus the disbursing officers' balances as reported by the Navy Department fall short of the unexpended balance of the Navy Department by $145,245.49. This
discrepancy consists of unsettled and unaudited items between the books of the Treasury Department and books of the Navy, which it was impossible to locate in the time
available.
s This aggregate is inaccurate owing to the fact that many of the organization units did not report the amounts of cash in the hands of disbursing officers.
? This aggregate is inaccurate owing to the fact that many of the organization units did not report the amount of cash on deposit.
s These figures are derived from the "Combined Statement of the Receipts and Disbursements, Balances, etc., of the United States," which is prepared by the Division of Book
keeping and Warrants of the Treasury Department. They are inserted in the statement for the purpose of comparison with the totals reported by the departments, bureaus, and
offices. In order to make this comparison fair they are shown exclusive of the postal service, public debt, the District of Columbia, and the Territorial governments.
a This figure represents the amount by which the reports of the departments, bureaus, and offices fall short of the Treasury figures. This shortage is due to the fact that there
are appropriations which were not reported and also that the amounts of appropriations are in some cases taken up on the books of the department on a basis different from that
on which the same amounts are entered in the books of the Division of Bookkeeping and Warrants of the Treasury Department.
This figure represents the amount by which the reports from the departments, bureaus, and offices of lapses to the surplus fund fall short of the lapses shown in the statement
of the Treasury. This difference is due to the fact that in a great many instances amounts shown by the Treasury as lapses are not so reported by the departments, bureaus, and
offices, and are shown as unexpended balances.
ii
This figure represents the amount by which the Treasury balances reported by departments, bureaus, and offices exceeds the Treasury balances, as shown by the Division
of Bookkeeping and Warrants. This overdifference is due in part to the fact that the Division of Bookkeeping and Warrants shows $3,000,000 as lapses to the surplus fund and
correspondingly reduces the balances at the close of the period, while the departments, bureaus, and offices show this $3,000,000 as unexpended. There are also many differences
between the Treasury balances as reported by the departments, bureaus, and offices and the Treasury balances shown by the Division of Bookkeeping and Warrants. These differ
ences are explained partly by the fact that there are items in transit, but there are many differences, such as the entire omission of appropriations m the reports of the departments,
bureaus, and offices and other unexplained discrepancies from which this difference in the grand total results. It should be stated there were many expenditures charged by admin
istrative ofRcers in June which did not reach the Bureau of Bookkeeping and Warrants until July.
CbwcZMMOws %o 5c drcww/row a co%Mdera%on of
4If the figures in Schedule No. 4 are accurately stated and truthfully reflect the conditions of funds and appropriations, the following conclusions are to be drawn therefrom:
The total amount of authorizations during the year is approximately $673,000,000, which is arrived at by adding together the aggregates of columns 2 and 3. The net expendi
tures during the year are approximately $680,000,000, which is arrived at by deducting column 4 from column 5. Therefore it appears that the Government has spent $7,000,000
more than has been authorized during the year.
Schedule 5, supporting Budget Statement No. 7.
o/
/or
r^por^d
Boo^ o/* F ^iw a^s.
Total estimated expenditures for 1914, as reported to the President:
Expenditures out of Government funds.............................................. $1,110,040,577.27
Expenditures out of trust and private funds.....................................
15,090,403.80
Refunds (deductions from revenues)....................................................
10,662,000.00
--------------------------- $1,135,792,981.07
Total estimated expenditures for 1914, as stated in the Book of Esti
mates.......................................................................................................................................... . . . 1,105,206,963.14
Excess of estimated expenditures as reported to the President...................................
Accounted for as follows:
30,586,017.93
c2ass%/M &y
Items in which the reports to the President exceed the
Book of Estimates:
Items not appearing in the Book of Estimates
(L is tA )............... .........................................................
$681,500.00
Estimated expenditures from balances of prior
years' appropriations (List B )................................... 22,756,231.04
Items reported in excess of items in Book of Esti^ L i s t C ) .............................................................. 8,196,717.70
$31,634,448.74
Items in which the Book of Estimates exceeds the re
ports to the President:
Items in Book of Estimates not reported (List
D ) ..................................................................................
Items in Book of Estimates in excess of items reported(ListE).............................................................
587,569.00
460,861.81
1,048,430.81
--------------------
Z);^rg%ces c?23S!/Z6(% 6y
$30,586,017.93
%%%# o/ ory#7M2a^o% cowcgriW.
Items in which the reports to the President exceed the
Book of Estimates:
The Judiciary........................... .......................................
$16,500.00
Department of State.......................................................
177,360.00
Department of the Treasury.........................................
4,441,597.92
Department of W ar............................................... ......... 19,049,639.29
15,821.84
Department of Justice....................................................
Post OHice Department........................... ?....................
10,000.00
Department of the Interior............................................
7,334,906.97
277,082.72
Department of Agriculture............................................
Department of Commerce and Labor..........................
40.00
Civil Service Commission...............................................
11,500.00
Lincoln Memorial Commission.....................................
300,000.00
$31,634,448.74
Items in which the Book of Estimates exceeds the re
ports to the President:
DepartmentofState.......................................................
DepartmentofWar.........................................................
DepartmentofJustice....................................................
Department of the Navy................................................
Department of the Interior............................................
Department of Commerce and Labor..........................
1,000.00
103,521.81
62,240.00
586,569.00
25,000.00
270,100.00
1,048,430.81
--------------------$30,586,017 93
147
148
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
S c h e d u l e 5, L t s t A .
7%e7MS wo%appear^ m Boo& o/
The judiciary:
Printing and binding, United States Supreme Court (sundry civil
bill)............................................................................................................... $15,000.00
Printing and binding, District of Columbia Supreme Court (sundry
civil bill)....................................................................................................^ 1,500.00
-----------------$16,500.00
Department of State:
Pan American Union, quotas from other countries, receipts from
miscellaneous sales, etc. (revenue appropriation).............................. 35,000^00
Pay of consular agents from fees collected (revenue appropriation).. 100,000.00
— ------------- 135,000.00
Post OiHce Department:
Post-route maps (revenr es reimbursable to appropriation)...................................
5,000.00
Department of the Interior:
Statistics of mine accidents—Bureau of Mines (sundry civil bill).......................... §5,000.00
Department of Agriculture:
Roads and trails for States, national forests fund (revenue appropria
tion).................................................................................................................................. 200, 000.00
Lincoln Memorial Commission (special bill)............................................................... 300,000.00
$681,500.00
S c h e d u l e 5, L i s t B .
ezpewd^Mreg/row 6a?awces of pnor years' appropna%o%F.
Department of State:
Alaska-Canada and United States-Canada boundary (dip
lomatic and consular b ill)..............................................................................
$32,360.00
Department of the Treasury:
Assay ofRce, New York (deRciency bill)...................... ..........
$2,137.10
O&ce of Supervising Architect (sundry civil bill)............... 4,439,460.82
---------------- —
4,441,597.92
Department of War:
Various river and harbor appropriations (sundry civil and
river and harbor bills)............................................................. 12,694,802.73
of Columbia bill)........... ...........................................................
7,000.00
Equipment of Coast Artillery armories (Army bill)...........
10,462.14
Engineer School, Washington, D . C. (river and harbor bill).
50,000.00
Maintenance of Are control at fortifications (Army bill) —
451.69
Improving Alaska cable and telegraph system (Army bill).
7,000.00
Various appropriations for operation of arsenals and manu
facture of ordnance, etc. (Army, fortifications, and sundry
civil bills).................................................................................... 5,217,591.38
Various appropriations for construction of fortifications
(fortifications bill)....................................................................
160,220.60
Monument to Commodore John Barry (special bill)............
3,998.27
Various appropriations for memorial arches and monu
ments (sundry civil bill)...................................................... ^
28,184.78
--------------------- 18,179,711.59
Department of Justice:
United States penitentiary, McNeil Island, Washington
(sundry civil bill)......................................................................
6,421.84
Investigating titles to United States lands in the District of
Columbia (special bill)............................................................
4,400.00
Protecting interests of the United States in lands in the
District of Columbia (special bill).........................................
5,000.00
--------------------15,821.84
Post OiRce Department:
Expenses of delegates to International Postal Convention, entire appro
5,000.00
priation of 1913 (Post OfRce bill)........................................................... .........
Department of the Interior:
Erection of memorial to John Wesley Powell (sundry civil bill)................
4,656.97
Department of Agriculture:
Cooperative fire protection of forested watersheds of navigable streams
(revenue appropriation)..................................................................................
77,082.72
!, 756,231.04
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
149
Schedule 5, List C.
reported m ezcess of z^ws m Book of
Department of State:
Salaries, diplomatic and consular officers, while receiving in
structions and in transit (indefinite appropriation).......................................
$10 , 000.00
Department of War:
Reimbursement to States and Territories and extra pay to
volunteers, War with Spain (indefinite appropriations)....... $133,000.00
Appropriations for rivers, harbors, and canals (indefinite and
640,149.75
revenue appropriations)................................................ .............
Roads, bridges, and trails in Alaska (revenue appropriation).
66,777. 95
-------------------- 869,927.70
Department of the Interior:
Reclamation of arid lands (revenue appropriation)................... 7,000,000.00
Interest on Indian trust funds (determinate appropriation).. .
300,000.00
Miscellaneous special funds (chiefly revenues of national parks)
5,250.00
-------------------- 7,305,250.00
Department of Commerce and Labor:
Bureau of Foreign and Domestic Commerce (legislative[bill)..........................
40.00
Civil Service Commission (estimated amounts not sufficient—additional
amounts to be asked for):
Contingent expenses (legislative bill).....................................
8,500.00
Stationery (legislative bill).....................................................
500.00
2,500.00
Printing and binding (sundry civil bill).................. ............
11,500.00
--------------- $8,196,717.70
Schedule 5, List D.
m Boole of
wo%report.
Department of State:
Revision of fur-seal regulations—money estimated for this purpose
will not be required (indefinite appropriation).....................................................
$1 , 000.00
Department of the Navy:
Naval Home, Philadelphia (determinate appropriation)...................$82,209.00
Navy fines and forfeitures, already included underpay of the Navy,
which was reported in gross without any deduction for Navy fines
and forfeitures (revenue appropriation).............................................. 500,000.00
Miscellaneous indefinite appropriations.................................................
4,360.00
---------------- 586,569.00
------------------ $587,569.00
Schedule 5, List E.
m J3ooA of
m excess of
re p o r t.
Department of War:
Home for disabled soldiers (sundry civil bill).....................................
$142.81
Miscellaneous indefinite appropriations (no estimate submitted
by the department, except for International Congresses of Navi
gation, $3,000)........................................................................................... 12,000.00
Equipment of Coast Artillery armories—estimates reduced at
hearings (Army bill).............................................................................. 91,379.00
---------------- $103,521.81
Department of Justice:
United States penitentiary, Leavenworth, Kans.—site (sundry
civil bill).................................................................................................... 40,400.00
United States penitentiary, Atlanta, Ga. (sundry civil bill)............
6,840.00
Building, National Training School for Boys (sundry civil bill)___
2,000.00
Traveling aad miscellaneous expenses (sundry civil bill).................
3,000.00
Protecting interests of the United States in suits affecting the
Pacific Railroad (sundry civil bill)..................................................... 10,000.00
---------------62,240.00
Department of the Interior:
Five, three, and two per cent funds to States (revenue appropria
tion)................................................... .......................................................
25,000.00
Department of Commerce and Labor:
Bureau of Lighthouses—estimates for new lighthouses and other
improvements that will not be completed in the fiscal year 1914
(sundry civil bill)................................................................................... 270,000.00
Bureau of Fisheries (sundry civil bill)...................................................
100.00
---------------- 270,100.00
------------------ $460,861.81
Cowpara^M a%aZ$^s q/
ac^a^
q/ (rOV%r%7%e%%
ybr eacA
150
S C H E D U L E 6 , S U P P O R T IN G B U D G E T S T A T E M E N T N O . 1 3.
a7M%ac^v^y pe!ybr77!^f
eacA &%r%a% or o^Aer
gM&6Hvwo^ o / &par&yM%(# a ? ^
Estimated expenditures for—
Actual expenditures for—
General functions under which activities are
grouped.
1914
1913
1912
1911
$10,496,324.77
$10,695,467.64
$11,063,546.46
1,769,716.50
1,801,346.50
14,000
1,777,868.78
1,855,047.93
House of Representatives.............................. ; .............................
4,895,420.25
4,716,979.70
4,746,361.39
4,927,493.10
Joint committees and commissions and joint legislative ex
penses.
1,912,773.72
1,863,570.00
2,511,329.66
2,223,410.27
178.900.00
951.757.00
520,528.17
861,975.09
OiRce of the Superintendent of Capitol Building and
Grounds—Care, repair, and improvements of legislative
buildings and grounds.
Acquisition, maintenance, and operation of
lands, buildings, etc., for oiBce purposes.
Capitol police—Policing legislative buildings and grounds.. Legislation...................................................................
78,450.00
78,450.00
77,256.98
83,682.46
Government Printing OiRce—Superintendent of documents. Distribution of Government documents...............
251.424.00
238.364.00
237,201.75
223,978.56
Contracting for, purchasing, manufacturing, and
inspecting supplies for general Government
purposes.
Library of Congress................................................................. ..
Administration and other general business—
Portion assignable to Library divisions.....................
Conduct of general reference library for the Gov
ernment.
Portion assignable to Copyright OiRce...................... Granting patents and copyrights............................
Conduct and mamtenanceof Library—Library divisions Conduct of general reference library for the Gov
ernment.
Protection of authors by copyrights—Copyright OiRce. Granting patents and copyrights........................
Care, maintenance, and improvement of Library Build Acquisition, maintenance, and operation of
ing and grounds—OiRce of Superintendent Library
lands, buildings, etc., for office and other pur
Building and Grounds.
poses.
National Botanic Garden—Culture of rare plants, etc..........
Promotion of public education and recreation.. .
3,600.00
849.885.00
795,863.82
797,891.15
858,066.42
27,730.34
25,622.20
24,934.46
24,700.94
6,669.66
565.570.00
6,297.80
530,645.85
6,074.95
522,580.14
5,712.98
537,809.41
136.030.00
113.885.00
130,430.00
102,867.97
127,319.81
116,981.79
124,387.84
165,455.25
30,893.75
32,393.75
27,029.76
29,892.63
TO CONGBESS.
Government Printing OiRce— Printing OiRce proper—
Printing for the Government (unallotted appropriation).
FOB 1914 SUBMITTED
39,967,463.22
Senate, including Vice President:
All expenditures except for conveying electoral vote. .
Conveying electoral vote....................................................... Election of President and Vice President............
The Congress
BUDGET
Organization units and activities.
The Executive ORice..................................................... .............
General executive direction and control.
The TariH Board—Investigations relative to tariR rates___
Legislation.....................................................
The Commission on Economy and EiRciency—Investiga General executive direction and control.
tion of business methods of executive departments.
Commission to Investigate Cost of Second-class M ail.......... Postal * * * service..............................
Railroad Securities Commission—Investigations relative
to the issuance of stocks and bonds by railroads.
296,056.66
621,484.47
199,040.00
200,056.66
194,137.31
194,762.30
1 1 , 000.00
280;128.92
202,706.78
85,000.00
124,390.07
46,742.76
250,000.00
Regulation of commerce and banking—
The judiciary.
457,803.21
449,040.00
17,459.67
1,116.28
5,368.50
. 12,475.09
5,408,101.00
5,234,003.89
5,119,918.33
4,979,750.13
Supreme Court—Final determination of cases appealed
from lower courts.
Adjudication..
217,200.00
224,700.00
202,908.64
179,632.82
Court of Customs Appeals—Determination of controver
sies arising under customs laws.
------do..............
70,990.00
71,030.00
67,336.70
73,462.68
Commerce Court—Determination of controversies arising ------do.............
under rulings of the Interstate Commerce Commission.
54,500.00
45,888.89
62,373.98
35,804.18
Court of Claims—Determination of claims against the Gov
ernment.
....... do.............
96,860.00
93,480.00
92,430.98
87,651.23
Circuit courts of appeals, circuit, district, and Territorial ....... do.............
courts—Determination of controversies arising under
United States laws (except as otherwise provided for).
4,694,611.00
4,574,465.00
4,459,632.12
4,292,253.74
273,940.00
224,440.00
235,235.91
310,945.48
4,653,372.61
4,559,767.85
4,258,409.41
4,478,977.28
39,615.00
39,615.00
41,015.33
36,596.01
32,330.00
31,590.00
30,121.58
52,045.00
42,345.00
46,981.42
29,093.16
4,042.35
47,158.40
District of Columbia courts—Determination of controver
sies arising in the District of Columbia.
.do.
Department of State.
Departmental administration and other general
business.
.do.
.do.
.do.
.do.
21,232.00
21,132.00
21,477.84
21,240.78
.do.
35,780.00
35,780.00
36,187.78
41,239.19
151
Department proper:
Administrative oiRces—
Secretary and assistant secretaries—General direc
tion.
Chief clerk (including translators, stationery room,
telegraph and telephone operators, mail room,
carpenter, lithographer, and stables)—
Conduct of omce business....................................
Preparation of cipher code ..................................
Miscellaneous services, including printing and
binding.
Dispatch agents, under chief clerk—Forwarding
communications and supplies for foreign service.
Counselor and Solicitor—Legal advice......................
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
The President (including Executive boards and com
missions).
Co7Mpara%u6 (ma^/sts o/
gzpg^^rgs/or gac^ ac^vt^y o/*aacA &^r6a^, 6^c.—Continued.
Estimated expenditures for—
Organization units and activities.
1912
1911
$12,430.00
$11,991.61
18.375.00
18.375.00
17,763.10
17,529.82
41.250.00
41.250.00
43,280.42
39,885.31
14.765.00
14.765.00
1,500.00
4^005.00
19.720.00
14,801.78
14,255.93
4,005.00
19,720.00
4,001.00
30,715.37
4.002.50
29,319.85
56.855.00
56.855.00
49,537.82
54,946.18
37.850.00
37.850.00
31,637.63
30,732.00
21.545.00
21.545.00
32,002.39
34,232.17
14.055.00
1.358.193.00
14.055.00
1,276,043.00
12,829.71
1,147.005.32
13,011.49
1,191,943.47
2.201.400.00
2,120,000.00
2,046,039.83
1,993,258.21
15,000.00
5,000.00
15,000.00
5,000.00
6,113.23
1,045.82
32.700.00
30.200.00
30,063.45
$12,189.37
'
7,018.86
2,942.38
25,878.57
750.00
5,000.00
5,000,00
641.84
i, 532.30
TO CONGRESS.
$12,430.00
FOR 1914 SUBMITTED
.do.
1913
BUDGET
Departmental administration and other general
business.
....... do...........................................................................
.do.
Election of President and Vice-President.............
Legislation....................................................................
Promotion of friendly relations with foreign
powers and promotion and protection of
American interests abroad.
* Divisions of Latin American, Far Eastern, Near ....... do............................................................................
Eastern, and Western European affairs—Corre
spondence, investigations, and advice relative to
foreign relations.
Director of the Consular Service and Consular
.d o .
Bureau—Administration of the Consular Service.
.do.
Bureau of Trade Relations— Advice on commercial
questions.
Bureau of Citizenship—Issuance of passports...........
.do.
.d o .
Diplomatic Service—Conduct of diplomatic relations
with foreign Governments.
Consular Service:
.do.
Local representation and promotion of American
interests abroad.
.do.
Conduct of American prisons abroad.........................
Bringing home criminals...............................................
.do.
Other—
.do.
United States Court for China—Adjudication of
cases affecting American citizens in China.
Special agents—
Investigation of claims of American citizens in
.do.
Samoa.
Investigation of American interests in Liberia..
.do.
Enforcement of the neutrality laws.......................
.do.
Actual expenditures for—
General functions under which activities are
grouped.
1914
Department of State—Continued.
Department proper—Continued.
Administrative afHces—Continued.
Bureau of Appointments—Business pertaining to
the appointment of ofRcers and employees.
Bureau of Accounts—Care of funds and examina
tion of accounts.
Bureau of Indexes and Archives—Care of records..
Bureau of Rolls and Library—
Care of library..........................................................
Publication of ascertained electors......................
Law clerk—Editing and indexing law s.. .................
Resident diplomatic officer and Diplomatic Bu
reau—Administration of the Diplomatic Service.
on
60
Marking boundary between Alaska and Canada___
International Waterways Commission—Surveying and
remapping water boundary, United States and Can
ada.
International Joint Commission—Settlement of water
boundary disputes with Canada.
Northeastern Fisheries Arbitration Commission—
Arbitration of controversies relative to the North
Atlantic fisheries.
Fisheries Commission—Settlement of fisheries question
between the United States and Canada.
St. Johns River Commission—Investigation of uses of
the St. Johns River.
Passamaquoddy Bay Arbitration Commission—Settle
ment of controversy regarding the international
boundary in Passamaquoddy Bay.
American and British Claims Commission—Arbitration
of outstanding pecuniary claims between the United
States and Great Britain.
Joint High Commission—Settlement of international
questions relating to Canada and Newfoundland.
International Commission— Elimination of bancos in
the Rio Grande.
Chamizal Arbitration Commission—Arbitration of the
international title to the Chamizal tract.
International (water) Boundary Commission, United
States and Mexico—Marking water boundary, United
{States and Mexico.
International Institute of Agriculture
Rome—Co
operation for promotion of agriculture.
Pan American Union—Promotion of commercial and
other friendly intercourse with the American Repub
lics.
International Conference of American States at Buenos
Aires—Promotion of commercial and other friendly
intercourse with the American Republics.
24,575.00
24,575.00
17,591.68
4.900.00
14,967.92
1, 000.00
.d o.
.do.
1.250.00
1,250.00
.do.
.do.
31,045.20
2.500.00
*2^500.00
.do.
86,360.00
88.125.00
65,480.00
54,718.65
.do.
.do.
46.000.00
20.000.00
63.525.00
38,789.48
151,195.00
43,138.42
100,155.00
36,322.79
.do.
75,000.00
103,004.36
36,020.78
10,630.86
354.13
17,-483.24
1,144.76
5,751.19
1,281.06
6,614.07
.do.
10,000.00
.d o ..
.d o ..
32,643.16
9.43
613.06
*2j500.00
9,623.04
.d o ..
82,050.00
.d o ..
79,630.00
.do.
13,718.53
4,719.13
5,771. 34
10 , 000. 00
.do.
do.
.do.
45,000.00
500.00
8,747.83
34,463. 06
25,000.00
36,949.66
55,821. 52
* .........................
13,400.00
23,400.00
6,406.53
6, 688. 28
Promotion of friendly relations with foreign
nations, etc.
135,000.00
130,000.00
141,785.89
130,263. 60
Promotion of agriculture * *
.dA.
108,364. 05
1 58
.do.
.do.
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Erection of replica of status of Baron von Steuben.
Consular Service and Customs Service (in terri
tories and insular possessions)—Relief and pro
tection of American seamen abroad.
Negotiation for revision of fur-sea! regulations,
North Pacific Ocean.
International cooperative organizations:
International Bureau of the Permanent Court of Arbi
tration—Promotion of arbitration.
Peace Palace at The Hague—Promotion of arbitration..
Bureau of Interparliamentary Union—Promotion of
arbitration.
Commission for re-marking boundary—
Marking boundary between the United States and
154
Cowparatiug analysis o / dNti??M:^ an^ act%aZ 6a;p^?MKt^rM/br ^acA activity o/* aacA 5 ^ a ^ , ^tc.— Continued.
Estimated expenditures for—
Organization units and activities.
1914
$10,309.45
$155,650.48
$1,500.00
1,500.00
1,326.45
1,324.51
7.000.00
2, 000.00
3,000.00
900.00
400.00
400.00
400.00
400.00
325.00
325.00
*294.11
400.00
5.000.00
.
2 000.00
5,900.00
10,000
.do.
do.
5,000.00
12,131.85
Granting patents and copyrights...................
Fixing standards of weights and measures.
Promotion of the interests of laboring classes___
2,895.00
2,895.00
125.00
125.00
. . . d o . . . . . ................................................................
3,015.62
2,895.00
113.36
10 0 .0 0
9,119.15
3,015.62
3,015.62
3,015.62
36,695.18
6,952.54
5,452.82
10,900.00
do.
.do.
2,895.00
15,752.59
1% %
Promotion and protection of the public health.
___ do...........................................................................
1911
4,500.00
TO CONGRESS.
International OfRce of Public Health— Cooperation for
promotion and protection of the public health.
International Congress of Hygiene and Demography—
Cooperation for promotion of hygiene, etc.
International Congress on Tuberculosis—Cooperation
for prevention and cure of tuberculosis.
International Congress on Alcoholism—Cooperation for
prevention and cure of alcoholism.
Promotion of friendly relations with foreign
nations, etc.
Regulation of commerce, etc.................................
35,000.00
1912
FOB 1914 SUBMITTED
International Radiotelegraphic Conference—Coopera
tion for control of radiotelegraphic communication.
International Maritime Conference—Consideration of
uniform laws and regulations for the greater security
of life and property on merchant vessels.
International Conference—Drawing up international
rules and regulations for the assignment of load lines
to merchant ships.
International Union for Protection of Industrial Prop
erty—Cooperation regarding patents and copy
rights.
International Bureau of Weights and Measures- Co
operation in fixing standards of weights and meas
ures.
International Bureau for Repression of African Slave
Trade—Repression of slave trade.
International Conference on the Opium Evil.................
1913
BUDGET
Department of State—Continued.
International cooperative organizations—Continued.
International expositions at Rome, Turin, Buenos Promotion of friendly relations with foreign
Aires, and Santiago—Promotion of commercial and
nations, etc.
other friendly intercourse with foreign countries.
International Bureau for Publication of Customs Promotion of trading, manufacturing, etc...........
Tariffs—Distribution of commercial information.
...d o ............................................................................
International Conference on Uniform Letters of Ex
change-Promoting uniformity in letters of exchange.
International Railway Congress—Improvement of rail Providing facilities for transportation...................
way operation.
Cape Spartel Lighthouse, Coast of Morocco................. ____do.............................................................................
International Conference on Maritime L aw .................
Actual expenditures for—
General functions under which activities are
grouped.
2,830.79
2,830.55
2,587.14
2 , 000.00
2 , 000.00
623.52
1,905.70
1.300.00
1,300.00
767.25
767.70
7.156.00
7.156.00
1.500.00
1.500.00
1,444.43
1,442.82
136,306,557.92
144,782,143.83
78,891,994.47
76,036,402.11
Departmental administration and other gen
eral business.
88,770.00
149,846.50
73,490.24
94,286.49
Administration of the national finances—collec
tion of revenues.
373,815.00
373,240.00
333,596.18
294,306.67
.do.
161,420.00
109,592.57
150,107.42
168,983.92
.do.
10,065,000.00
10,675,852.45
10,811,474.84
10,790,029.84
49,600.00
44,580.00
43,651.74
43,198.32
Department of the Treasury..
Secretary of the Treasury:
Office of the Secretary (proper)- General direction of
the work of the department.
Division of Special Agents—Inspection of Customs
Service, and prevention and detection of customs
frauds.
First Assistant Secretary;
Division of Customs—Supervision of the collection of
customs duties.
Customs Service at
from customs.
Large—Collecting the revenue
Division of Appointments—Conduct of business per
taining to the department's personnel.
19,999.28
2,830.79
Departmental administration and other general
business.
Second Assistant Secretary:
Disbursing clerk—Disbursement of funds for the
Treasury Department.
.do.
24,240.00
22,700.56
16,103.92
21,851.24
Division of Mail and Files—Handling of mail and
filing of correspondence.
.do.
13,225.00
15,931.44
25,965.37
26,892.27
Division of Printing and Stationery:
Supervision of printing and purchase and distri
bution of ofRce equipment, supplies, and printed
matter for the Treasury Department.
.do.
39,620.00
38,220.00
41,862.30
38,792.00
Expenditures not charged to any bureau or office—
printing and binding.
.do.
25,100.00
25,100.00
26,331.84
18,969.84
10 , 000.00
9,000.00
6,919.75
6,207.74
Purchasing and manufacturing supplies for
general Government use.
155
Purchase of paper for Government checks and
drafts for distribution to all departments.
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
International Red Cross Conference—Cooperation for . . . d o ............................................................................
relief of sick, wounded, etc.
International Sanitary Bureau—Cooperation for pro . . . d o ............................................................................
motion of sanitation.
International Prison Commission—Cooperation in re Care of dependent, defective, and delinquent___
formatory methods.
International Seismological Association—Cooperation Promotion o f * * *
pure science....................
in seismologic investigation.
Permanent International Council for Exploration of . . . d o ............................................................................
the Sea -Cooperation in maritime exploration.
International Geodetic Association for the Measure ____do...........................................................................
ment of the Earth—Cooperation in geodesy.
Comparative aitatysis o/*egti??Mct6(f a?Kf act%a%^jcp^ditt^rgg/or 6acA activity o/*6ac& 5^reaM, 6tc.—Continued.
Estimated expenditures ibr—
Organization units and activities.
1914
General executive direction and control...............
1913
1912
$101,326.67
$98,266.71
30,796.00
28,300.00
22,938.04
$100,605.71
Division of Loans and CurMmcy: ^
Administration of the national finances
Purchase
of distinctive
paper for United
States
468,558.45
492,209.00
460,958.93
31,264.84
434,521.11
notes and certificates and national bank cur
rency, and expenses in connection with the
issue and redemption of such securities.
Division of Public Moneys- Registration of certifi
cates of deposit, etc.
180,350.00
181,512.50
186,283.78
195,682.97
Comptroller of the Treasury—Supervision of auditing ........do....... .....................................................................
and accounting services.
79,760.00
79,751.61
78,990.98
78,530.10
143,590.00
145,088.83
150,366.59
151,556.57
1,750.00
2,281.78
295,172.71
Auditor for Treasury:
Audit of accounts of the Treasury Department____ ........do........................................................ .................
Expenditures not charged to any particular bureau
or oiRce—judgments and awards.
Departmental administration and other general
business.
Contributions to Printing House for Blind...............
Care and education of the dependent, defective,
etc.
10 , 000.00
10 , 000.00
10 , 000.00
10 , 000.00
Auditor for War—Audit of accounts of the War De
partment.
General executive direction and control—general
accounting, auditing, and reporting.
313,070.00
318,497.88
337,434.05
372,540.98
Auditor for Interior Department—Audit of the accounts ........do............................................. ...............................
of the Interior Department.
Auditor for Navy Department—Audit of accounts of ........do............................................................................
the Navy Department.
Auditor for State and Other Departments—Audit of the
accounts of the Departments of State, Justice, Agri
culture, and Commerce and Labor, and of the inde
pendent institutions.
132.475.00
151,657.22
156,697.11
165,646.47
144.765.00
140,022.50
139,148.10
152,533.76
118.300.00
118,479.67
118,692.72
119,236.26
TO CONGBESS.
General executive direction and control—general
accounting, auditing, and reporting.
FOB 1914 SUBMITTED
$103,380.00
1911
BUDGET
Department of the Treasury—Continued.
Second Assistant Secretary—Continued.
Division of Bookkeeping and Warrants—Keeping of
general ledger of appropriation accounts and fidelity
accounts of disbursing ofRcers, preparation of the
Book of Estimates, preparation of reports, etc.
Actual expenditures for—
General functions under which activities are
grouped.
Auditor for Post Office Department—Audit of the
accounts of the Post Office Department and Postal
Service.
Register of the Treasury:
Registering United States bonds, etc..................... .*.
Recording redeemed notes and certificates..
Treasurer of the United States:
Care and disbursement of the public funds.
Issue and redemption of United States notes and
gold and silver certificates.
.do.
731,320.00
745,809.87
729,298.78
792,972.25
Administration of the national finances—admin
istration of the national debt.
31,178.00
34,182.12
43,574.16
51,410.68
Providing a medium of exchange...........................
18,802.00
20,360.00
26,432.71
30,356.05
Administration of the national Rnances___ , ___
229,360.00
231,028.47
229,135.50
249,529.09
Providing a medium of exchange............... ...........
136,830.00
136,830.00
136,830.00
136,830.00
3
§
a
,545,000.00
83,425,000.00
22,736,916.51
21,557,830.47
41.690.00
55.505.00
92.820.00
37.160.00
233,540.00
37.305.00
58.990.00
48.830.00
31.940.00
37,596.95
51,444.50
84.060.00
31,037.78
220,780.83
32.060.00
54,522.81
44.864.00
33,006.25
36,488.91
50,699.47
79,503.69
28,163.01
222,973.09
30,941.51
56,679.25
44,147.87
32,666.27
37,803.82
51,959.04
80,711.38
29,205.41
233,106.38
33,189.06
53,023.90
44,677.79
32,692.56
60,330.00
60,024.72
61,613.80
81,266.74
.do.
.do.
.do.
.do.
.do.
15.100.00
176.600.00
18.500.00
438.700.00
213.100.00
15.750.00
176.600.00
21.500.00
448.800.00
217.200.00
14,048.88
174,668.34
16,860.15
459,729.63
225,941.02
14,132.04
179,453.92
32,941.14
498,905.12
288,979.29
.do.
.do.
.do.
.do.
.do.
.do.
.do.
14.040.00
3,000.00
10.900.00
16.600.00
208,237.10
15.800.00
41.850.00
14.290.00
3,000.00
10.900.00
20.350.00
197,500.00
15.300.00
41.850.00
13,856.03
3,172.26 I
10,239.30 '
16,626.58
222,953.74
13,993.70
35,036.25
13,624.51
4,415.27
8,385.33
20,263.99
155,705.94
13,644.55
41,587.82
Payment of principal and interest on public debt.. Administration of the national Rnances.
Assistant Treasurers of the United States- -Care and
disbursement of the public funds:
At Baltimore, M d.......................................
A t Boston, Mass..........................................
At Chicago, 111.............................................
A t Cincinnati, Ohio....................................
A t New York, N. Y ...................................
At New Orleans, L a...................................
A t Philadelphia, Pa...................................
At St. Louis, Mo.........................................
A t San Francisco, Cal................................
Bureau of the Mint—
OiRce of the Director of the Mint—Supervising the
coinage of money.
Mints— Coinage of money:
At Carson, Nev........................................................
A t Denver, Colo.......................................................
A t New Orleans, La..............................................
At Philadelphia, Pa............. ................................
At San Francisco, Cal...........................................
Assay oiRces— Assaying metals for coinage:
At Boise, Idaho......................................................
A t Charlotte, N. C................................... ...........
A t Deadwood, S. Dak..........................................
A t Helena, Mont....................................................
At New York, N. Y ...............................................
A t Salt Lake City, Utah.......................................
At Seattle, Wash...................................................
6
.do.
.do.
.do.
.do.
.do.
.do.
.do.
.do.
.do.
Providing a medium of exchange.
3
e
BO
3
o
co
o
H
&
u
^
M
co
O
M
P
g
H
co
g
H
co
Comparative
o/
ac%Ma2 e^peTMft^re^/or ea& actwtty o / eacA 5ttr60M, etc.—Continued.
oy
00
Estimated expenditures for—
Organization units and activities.
General functions under which activities are
grouped.
1914
1912
1911
$3,111.37
$3,717.78
$3,711.52
$4,174.50
561,714.20
399.195.52
398,515.47
478,560.80
171,116.17
6,458.77
2,552,536.49
131.425.53
12,634.41
3,148,433.15
131,201.03
12,612.82
3,148,313.57
126,574.43
5,428.23
2,892,286.43
banking .
178.580.00
179.080.00
175,895.31
181,349.82
Secret Service Division—Suppression of counterfeiting.. Providing a medium of exchange..
151.920.00
151,078.90
146,985.60
150,712.38
18,789,630.82
27,771,888.64
22,863,892.91
20,528,056.64
Printing of intemal-revenue stamps...........................
Providing checks, drafts, and other engraved sta
tionery, for general Government use.
Printing of bonds............................................................
Printing United States notes and certificates and
national-bank notes.
Comptroller of the Currency—Supervision of the
national banks.
Regulation of * * *
Third Assistant Secretary:
Acquisition, maintenance, and operation of
lands and buildings for ofRce purposes.
Public Health Service...........................................................
Bureau administration and other general business.
Research in medicine, hygiene, sanitation, etc___
Domestic (interstate) quarantine..............................
Foreign and insular quarantine................................
Medical care of merchant seamen..............................
Compilation of sanitary reports and statistics........
Miscellaneous health activities...................................
Promotion and protection of public health.
.do.
.do.
.do.
.do.
.do.
.do.
.do.
Life-Saving Service—Coast patrol and marine rescue Providing facilities for transporation.
work—
General superintendence of the service,. . . . . . . . ___ ------3o.......................................................
690.890.00
605.840.00
636,158.22
701,265.99
352.180.00
4.801.570.00
342.360.00
4,651,589.44
337,485.62
4,686,493.42
332,752.04
4,553,967.67
3.065.266.00
2,269,426.73
2,118,380.36
2,067,372.31
51.990.00
198.390.00
348,581.73
681.080.00
965,760.00
20.765.00
2,860.00
50,121.21
184.143.31
317,429.23
609,487.18
931.789.31
22,553.09
2,857.03
55,642.01
167,749.55
288,387.13
598,899.60
932,445.05
21,391.94
2,857.03
2.429.195.00
2,318,370.00
2,372,174.01
2,323,887.01
55,07Q.Q0
54,590.00,
51,497.16
51,361.49
58.720.00
501.615.00
628.280.00
768,840.00
1.060.851.00
43.600.00
3,360.0(7*
TO CONGRESS.
Intemal-Revenue Bureau—Collection of internal
revenue:
OfRce of the Commissioner of Intemal-Revenue at Administration of the national finances.
Washington.
.do.
Revenue agents...............................................................
.do..
Intemal-Revenue Service at Large..............................
FOR 1914 SUBMITTED
Administration of the national finances—collec
tion of the revenues.
. . . d o . . . ....................................................................
Manufacturing * * * supplies for general
Government use.
Administration of the national Rnances.............
Providing a medium of exchange..........................
1913
BUDGET
Department of the Treasury—Continued.
Second Assistant Secretary—Continued.
Bureau of Engraving and Printing:
Printing of customs stamps.........
Actual expenditures for—
.do.
4,315.00
28,893.00
30,216.18
29,275.28
do.
124,370.00
70,050.00
78,032.95
115,095.11
.do.
.do.
.do.
.do.
16.770.00
25.520.00
24.560.00
2,178,590.00
15.470.00
25.140.00
22.740.00
2,101,487.00
14,942.09
25,337.51
21,541.01
2,150,607.11
16,543.63
25,662.15
25,726.24
2,060,223.11
2,961,525.00
2,850,486.30
2,498,802.09
2,984,590.77
81,061.00
53,912.50
61,307.00
80,886.00
52,824.90
64,182.00
74,995.96
47,931.68
77,811.33
62,218.44
42,840.68
116,460.16
2,695,540.24
67,690.20
2,014.06
2,552,729.53
66,970.20
2,014.06
879.61
2,210,059.32
86,053.10
1,847.18
103.52
2,685,736.30
74,195.46
2,008.84
1,130.89
.d o .
Revenue-Cutter Service: Coast patrol and marine
rescue work.
Administration and other general business..............
.do.
Division and fleet supervision.....................................
.do.
Practical instruction of officers and enlisted men
.do.
(school of instruction, New London, Conn.).
Construction, operation, and maintenance of fleet..
.do.
.do.
Supplying and repairing revenue cutters...............
.do.
Supervision of anchorages............................................
.do.
Expenditures not assigned to any branch of the
service (certified claims).
Relief of sufferers from volcano, Kodiak, Alaska.. Care and education of dependent, defective, etc.
OfBce of the chief clerk and superintendent:
Supervision of the office force and superintendence Departmental administration and other general
business.
of the building.
Maintenance of library.................................................. ___ do............................................................................
Care, operation, repair, and equipment of office Acquisition, maintenance, and operation of lands
and buildings for ofEce and related purposes.
building.
Care and operation of stables, including horses, etc. ___ do............................................................................
General telegraph and telephone service................... ___ do....................... ...................................................
General Supply Committee—Contracting for office
equipment and supplies for the Government.
Department of W a r ............................................................. ............
General departmental 6f&ces, Staff Corps, and special com
missions (excluding expenditures directly for the Army
and the Organized Militia): t
Secretary—
Departmental administration and other general
business (other than through bureau organiza
tion).
General administration of the Army proper (con
tingencies).
Undistributed expenditures........................................
Departmental administration and other general
busmess.
.do..
.do..
LIncomplete costs in many cases.
35,467.00
34,020.00
35,385.16
52,046.63
1,708.00
333,592.00
1,236.00
240,324.28
1,224.01
250,830.62
1,242.10
243,531.64
11.455.00
11.160.00
14.720.00
11.160.00
9,686.41
9,040.67
11,147.52
9,087.83
35,470.00
10,520.00
10,452.85
8,952.02
199,195,018.28
189,465,657.75
155,132,061.86
153,973,874.53
148,410.00
150,020.00
175,966.52
185,804.65
25,000.00
40,000.00
25,222.66
32,767.40
15,420.00
15,220.00
278,220.00
276,220.00
Correct totals not ascertainable from reports received.
159
Contracting for *
Government use.
30,000.00
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Superintendence of construction and repair of sta
tions.
Superintendence of construction and repair of life
boats, etc.
Inspection of life-saving stations............. . .................
Storage and issu^ of equipment and supplies...........
Construction and maintenance of telephone lines...
Construction, repair, and operation of life-saving
stations.
aTnf ac%%a% 6^p6^6?i^r63/or mcA
o/* eacA 5^rga^, 6^c.— Continued.
Estimated expenditures for—
Organization units and activities.
Actual expenditures for—
General functions under which activities are
grouped.
1914
Departmental administration and other general
business.
1913
1912
1911
$592,160.00
$586,920.00
$689,766.10
$657,152.49
.do..
3,310,221.47
3,064,923.67
3.598.506.58
3,625,957.10
Inspector General—Inspection of the Army and its
equipment, etc.
.do..
117.260.00
111,060.00
101,579.82
90,723.20
Judge Advocate General—Enforcement of discipline
by courts-martial.
.do..
128.700.00
137,372.74
133,193.92
131,677.38
.do..
4,611,504.80
3,785,417.84
3.742.233.58
3,737,769.97
369.620.00
360,760.00
344,760.85
351,606.20
Quartermaster GeneralProviding pay, food, clothing, quarters, transporta
tion, etc., for the Army.
Expenditures on account of past military
services.
Relief of sufferers from Roods, earthquakes, and
storms in the United States.
Care of the dependent, etc....................................... .
990,096.48
406.34
Relief of sufferers from famine in China...................
Promotion of friendly relations with foreign
nations, etc.
6,248.49
38,188.40
4,447,888.01
4,745,254.48
Surgeon GeneralMedical care of the A rm y............................................
Providing artificial limbs and appliances for dis
abled soldiers.
Chief of Engineers—
General direction of military and civil engineering
work:
*
Portion assignable to military work..................
National defense by land................... ......................
5,338,189.82
5,300,508.88
Expenditures on account of past military services.
91,000.00
122,000.00
7,473.32
7,679.43
National defense by land.
93,970.39
14,066.79
16,741,91
TO CONGRESS.
Maintenance and operation of cemeteries................
FOB 1914 SUBMITTED
Adjutant General—Conduct of business pertaining to
the personnel and the records of the Army, including
reoruiting.
BUDGET
Department o f W ar—Continued.
General departmental ofRces, ate.—Continued.
Chief of Staff—General administration of the Army
proper and the militia, making war plans, gathering
military mformation, and training omcers for higher
160
Coi%para%w6 <ma&/sts o /
Providing facilities for transportation....................
133,741.36
129,349.53
142,636.11
125,381.92
Portion assignable to improvement of national
parks, monuments, etc.
Promotion of public education, recreation, etc..
1,010.39
1,156.10
1,594.19
1,943,88
Portion assignable to care of public buildings
and grounds.
Acquisition, maintenance, and operation of
lands, buildings, etc., for office and other
purposes.
879.60
720.47
1,350.16
1,271.11
Local government.......................................................
622.33
720.47
895.83
598.35
National defense by land...........................................
928,689.07
908,859.86
809,699.91
806,391.72
237,716.37
342,721.41
361,638.12
Colum bia^
Military engineering work and providing engineer
ing equipment and supplies (including pay of
engineer troops).
Raising the Maine..........................................................
Serv!ce^
Expenditures on account of past military services.
6,966.66
Executive direction and control—technical in
spections and reports.
Improvement, maintenance, and care Of public
buildings and grounds in and around the District
of Columbia (OiHce of Public Buildings and
Grounds).
Acquisition, maintenance, and operation of lands
and buildings for office and other purposes.
477,613.96
370,613.96
338,887.53
324,017.16
Improvement of rivers and harbors, maintenance
of improvements, and care and operation of canals
and other works of navigation.
Providing facilities for transportation....................
72,526,960.71
66,412,403.82
35,693,762.25
31,838,382.60
Survey of northern and northwestern lakes...........
d o ............................................................................
150,000.00
125,000.00
122,159.29
135,145.59
Supervision of work connected with national parks
and monuments.
Promotion of public education, recreation, e tc...
4,056.00
4,306.04
3,866.00
3,468.35
325,000.00
227,483.65
71,351.23
115,230.92
1,335.96
3,655.43
2,473.32
32,183.05
166,428.68
93,874.81
5,201.76
337,974.00
370,437.80
224,980.62
152,687.79
3,893,635.64
3,219,533.24
2,937,618.14
2,819,728.33
Improvement of national parks.................................
do
Preservation of Niagara Falls.....................................
do
Erection of memorial arches and monuments........
do
Engineering work for the District of Columbia____
Chief of OrdnanceProviding ordnance and ordnancer supplies (cost
not charged to product).
National defense by land
161
Local government
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Portion assignable to work for the benefit of
navigation.
Comparative a%a%ysis o /
act^at ezpe^^it^rgs/or eac^ activity o / gac^ &^rga^, etc.—Continued.
bO
Estimated expenditures for-
Organization units and activities.
General functions under which activities are
grouped.
1914
1913
1912
1911
BUDGET
National defense by land........... ............................
Postal and other communication service.............
$46,864.63
16,475.37
$46,908.97
16,431.03
$46,418.31
21,897.16
$46,179.51
21,379.83
435,298.84
433,798.84
377,265.76
383,220.20
344,998.49
343,833.49
437,625.82
365,126.60
Local government.....................................................
109,680.00
109.640.00
113,016.22
111,903.83
Expenditures on account of past military serv
ices.
2,500.00
2,500.00
1,198.55
1,254.15
Board of Ordnance and Fortification—Military ex
periments.
National defense by land.........................................
10,000.00
25,000.00
39,314.78
36,899.40
Military park commissions (under the Secretary)—ImImprovement and maintenance of national military
parks.
Promotion of public education, recreation, etc..
188,000.00
195,348.94
227,652.01
369,382.16
Alaska Roads Commission (under the Secretary)—Im
provement and maintenance of roads and trails
in Alaska.
Local government.....................................................
269,607.95
355.830.00
320,133.72
269,107.11
Commission for Marking Graves of Confederate Dead
(under the Secretary)—Marking graves of Con
federate soldidrs and sailors.
Expenditures on account of past military serv
ices.
3,477.50
22,780.96
43,046.64
Army division headquarters—Administration of the
several divisions of the Army (Adjutant General and
Quartermaster General), i
National defense by land........................................
567,219.52
500,167.68
620,814.35
526,030.01
...d o ..........................................................................
2,021,735.19
1,664,660.21
1,622,529.65
1,781,561.78
Bureau of Insular Affairs—
Conduct of business pertaining to insular posses
sions of the United States.
Care of insane soldiers in the Philippines and
Porto Rico.
Army schools i.
TO CONGRESS.
National defense by land........+............................
Postal and other communication service...........
FOR 1914 SUBMITTED
Department of W ar—Continued.
General departmental otRces, etc.— Continued.
Chief Signal OiRcer—
General direction of military communication work
and Washington-Alaska telegraph and cable
system;
Portion assignable to military work...................
Portion assignable to Washington-Alaska
cable.
Providing and operating communication, firecontrol, and aviation equipment.
Improvement, maintenance, and operation of
Washington-Alaska telegraph and cable system.
Actual expenditures for—
1 ,3 5 4 ,0 9 4 .2 1
5 8 ,3 5 0 .0 0
5 8 ,0 0 0 .0 0
5 3 ,0 0 6 .2 1
4 9 ,0 9 0 .9 0
Military prisons (expenditures by the Quartermaster Gen ........do..
eral). i
1 40 ,64 6.4 2
2 1 5 ,9 2 4 .7 2
7 5 ,0 0 0 .0 0
2 4 ,8 7 8 .9 6
2 4 ,4 1 6 .8 2
9 0 0 .0 0
9 0 0 .0 0
5 45.00
4 55 .00
2 2 ,1 0 0 .0 0
2 2 ,0 0 0 .0 0
3 5 9 ,5 9 8 .8 3
4 0 8 ,2 7 1 .4 0
3 6 7 ,4 0 9 .7 0
3 4 8 ,8 8 0 .1 8
.do..
8 1 ,1 5 6 ,3 3 3 .0 1
7 9 ,6 0 6 ,5 4 9 .0 5
7 7 ,3 7 9 ,2 4 2 .7 0
7 9 ,8 0 1 ,7 4 2 .1 3
.do..
.do..
.do..
.do..
3 0 ,6 5 3 ,5 8 5 ,8 4
7 ,9 1 1 ,2 5 9 .8 8
5 ,2 2 9 ,3 3 5 .6 0
1 ,7 0 7 ,3 5 5 .0 0
3 0 ,5 9 5 ,8 9 7 .8 4
7 ,2 4 7 ,3 6 3 .8 9
4 ,1 9 2 ,0 1 7 .8 1
1 ,8 2 9 ,3 5 0 .0 0
3 0 ,4 8 3 ,7 7 4 .1 1
7 ,5 9 5 ,4 3 1 .3 9
4 ,3 8 7 ,1 7 0 .3 6
1 ,6 3 4 ,7 4 0 .6 8
2 9 ,5 9 2 ,2 8 3 .9 9
7 ,1 3 8 ,7 3 6 .9 6
4 ,9 2 8 ,8 5 8 .1 8
1 ,9 7 6 ,2 7 1 .2 7
.do..
7 ,4 1 5 ,7 9 3 .6 0
6 ,9 3 1 ,3 9 9 .2 6
7 ,6 3 0 ,4 3 6 .0 8
8 ,1 5 7 ,4 7 2 .9 7
.do..
1 ,5 5 9 ,6 3 7 .2 8
9 3 5 ,5 4 8 .9 0
6 6 6 ,0 1 2 .1 9
1 ,5 6 6 ,3 7 2 .5 7
.d o .
.do..
4 0 ,0 0 0 .0 0
1 ,3 3 2 ,7 1 8 .5 8
4 0 ,0 0 0 .0 0
8 7 1 ,5 9 9 .3 9
7 5 ,7 5 8 .9 5
7 0 6 ,1 4 4 .5 4
6 4 ,2 8 4 .3 8
6 3 2 ,4 8 4 .8 1
.do..
6 ,3 1 7 ,6 7 4 .6 5
7 ,2 3 9 ,1 1 1 .0 0
7 ,3 7 6 ,8 4 0 .6 4
8 ,0 6 9 ,8 0 4 .1 2
.do..
4 ,1 3 8 ,9 9 1 .8 8
4 ,0 9 0 ,7 2 0 .1 8
3 ,7 2 6 ,6 0 0 .8 5
3 ,9 5 7 ,0 1 4 .4 2
.do..
.do..
1 ,1 5 4 ,4 6 6 .1 0
3 ,0 6 7 ,5 4 1 .2 9
1 ,3 7 5 ,3 5 5 .0 0
2 ,7 5 5 ,8 5 9 .0 9
1 ,1 5 0 ,4 6 9 .6 0
2 ,3 9 8 ,1 3 4 .4 8
1 ,3 7 8 ,4 9 3 .9 2
3 ,1 2 6 ,9 9 5 .3 2
.do^.
1 0 ,0 6 8 ,2 7 2 .6 5
1 0 ,8 9 0 ,1 6 7 .7 0
8 ,9 6 8 ,5 8 0 .5 2
8 ,7 6 0 ,6 5 0 .4 1
Correct totals not ascertainable from reports received.
2 Includes some costs properly assignable to schools, prisons, hospitals, etc.
STATEM ENTS.
168
1 5 4 ,6 6 6 .0 0
BUDGET
i Partial costs only.
8 5 ,6 3 7 .0 0
1 1 5 ,0 0 0 .0 0
TO
camp and garrison equipage.
Acquisition, maintenance, and operation of land
transportation equipment (including medical
care of horses).
Acquisition, maintenance, and operation of trans
ports and other vessels.
Miscellaneous expenses of the Army..........................
Expenditures by the Chief of Engineers and Quarter
master General—Construction and maintenance of
works of defense (including fire-control installations).
Expenditures by the Chief of Ordnance and Quarter
master General—Arms and ammunition for the
Regular Army (including transportation).
1 ,4 9 1 ,6 7 4 .3 4
SCH ED U LES
TheArmys....................................... . .............................................
Expenditures by the Quartermaster GeneralPay and allowances of the Army................................
Subsistence of the Army................................................
Clothing of the Army.....................................................
Transportation of ofBcers and enlisted men, includ
ing equipage and baggage.
Acquisition, improvement, and maintenance of
military reservations (except as specified below).
Acquisition, maintenance, and operation of bar
racks and quarters.
Construction and maintenance of post exchanges. .
1 ,4 0 3 ,4 5 3 .0 6 !
1— SUPPORTING
1 ,7 3 9 ,7 4 8 .1 9
APPENDIX
.do.
United States Military Academy (under the Adjutant
General)—Education of prospective Army officer.
Army service schools at Fort Leavenworth. Fort Riley,
.do.
Fort Sill, and Fort Monroe (under the Chief of Staff)—
Practical instruction of o dicers and enlisted men in
military arts.
Post schools (expenditures by the Quartermaster Gen ...d o ..
eral and Chief of Engineers).
Engineers' School, Washington Barracks, D. C. (under ___do.
the Chief of Engineers)—Instruction in military and
civil engineering.
Schools for bakers and cooks (expenditures by the ,....d o .
Quartermaster General)—Instruction in cooking.
Target ranges and rifle competitions (expenditures ___do.
by the Quartermaster General)—Rifle practice.
Comparative a^a^s^ o/* es^7?m^ed a^d ac%%a%e^pe7K?i^red/or eacA ac^v^t/ o/ eacA 5t^rea^, e^c.—Continued.
t+^
Estimated expenditures for—
Organization units and activities.
General functions under which activities are
grouped.
1914
Institutions for the care of old soldiers—
National Soldiers' Home, Washington, D. C ...................
National Home for Disabled Volunteer Soldiers.............
Miscellaneous—
OHicers detailed to the Panama Canal Commission (ex
penditures by the Quartermaster General)—Con
struction of the Panama Canal.
1911
$167,050.00
$205,050.00
$184,926.63
$177,414.12
392,650.66
407,108.99
394,221.68
274,604.69
7,571,116.60
7,136,678.97
5,727,427.29
6,756,270.19
870.661.00
870.661.00
988,354.09
995,228.64
29,685.06
29,685.06
20,105.50
17.659.84
50,200.00
32,900.00
42,025.46
32.674.84
.do.
.do.
3.953.100.00
350,000.00
3.958.340.00
1,350,000.00
4,131,190.68
353,050.00
4,090,066.21
1,528,442.00
.do.
194,804.22
245,811.03
43,517.94
25,966.92
66 231.74
.do.
2,122,666.32
649 281.88
149,183.62
.do.
219.520.00
219.320.00
316,027.12
315,429.53
5.763.560.00
5.763.060.00
5,723,577.49
5,500,604.14
500,000.00
5,227,348.19
500,000.00
5,194,567.19
747,855.79
5,119,719.52
657,832.91
,5,207,034.31
67,345.66
67,345.66
63,464.35
Expenditures on account of past military services.
.d o .
.do.
Providing facilities for transportation .
67,345.)
TO CONGBESS.
Retired oiBcers and enlisted men (expenditures by the
Quartermaster General).
1912
FOB 1914 SUBMITTED
State and other colleges (expenditures by the Quartermas
ter General)—Instruction of students in military art and
1913
BUDGET
Department of W ar—Continued.
The Army—Continued.
Expenditures by the Chief of Engineers and Quarter National defense by land.
master General—Acquisition and maintenance of
engineer equipment of troops, military maps, etc.
Expenditures by the Chief Signal Officer and Quarter ------do..................................
master General—Acquisition and maintenance of
communication and scouting equipment for the Army.
Organized Militia (including oiBcers and enlisted men de
.do.
tailed).
Expenditures by the Quartermaster General—Inspec.d o .
* tion and instruction of Organized Militia.
Pay, subsistence, and mileage of the District of
.do.
Columbia National Guard.
Miscellaneous expenses of the Organized Militia.. . .
.do.
Expenditures by the Chief of Staff (Division of Militia
Affairs) (through other bureaus)—
Equipment and supplies for the Organized Militia..
Encampment and maneuvers of the Organized
Militia.
Equipment of Coast Artillery armories, Organ
ized Militia.
Expenditures by the Chief of Ordnance—Field Artillery
and ammunition for the Organized Militia.
Actual expenditures for—
Judgments, Court of Claims, and other United
States courts.
Expenditures on account
services.
of
ast
military
64,200.00
64,200.00
69,949.96
73,843.27
423,000.00
423,000.00
349,039.17
688,715.99
233,504.31
22,416.03
111,596.29
14,454.60
69,462.74
Local governm ent......................................................
Expenditures on account of past military
services.
National defense b y land...........................................
139.79
.do.
Expenditures b y the Quartermaster General—Damages
for the destruction of private property.
491.48
32,616.00
Department of Justice................
5,768,097.84
5,141,763.87
5,120,348.98
4,947,704.92
Central administrative offices.
274,260.00
279,803.29
255,739.45
253,988.93
233,640.00
239,183.29
215,501.82
218,868.93
40,620.00
40,620.00
40,237.63
35,120.00
ness.
Rental, care, and operation of buildings.........................
.d o .
Acquisition, maintenance, and operation of
lands, buildings, etc., for general G overnm ent
purposes.
Legal ofHces, except district attorneys and officers assigned
to other departments.
Enforcement of antitrust and interstate commerce laws. Legal advice and representation..
Protecting interests of the United States in customs ___ d o ................................................
matters.
Investigation and prosecution of frauds..........................
.d o.
Conduct of public-land cases, including those affecting
.d o.
Indian lands.
Exam ination of title in United States land purchases...
.d o .
Investigating and protecting title of the United States
.d o.
to lands in the District of Columbia.
Defending suits in claims against the United States—
.d o .
Defense in Indian depredation claims...............................
.d o .
Consideration of clem ency cases.........................................
.d o .
Miscellaneous legal w ork......................................................
.d o.
Legal ofHces—solicitors and assistant attorneys general as
signed to other departments.
796,262.58
878,170.62
787,800.43
233,100.00
92,500.00
298,334.03
79,302.22
226,632.49
77,067.87
10,000.00
139,650.00
5,000.00
68,316.73
8,522.59
60,066.27
28,174.93
81,698.85
11,700.00
9,400.00
11,700.00
9,400.00
6,700.00
5,169.72
5,800.00
4,507.75
90,050.00
26,000.00
5,500.00
260,800.00
85,050.00
26,000.00
5,500.00
-259,695.85
83,242.61
26,058.67
5,500.00
305,274.51
82,829.83
23,507.20
5,472.50
252,109.01
78,420.00
77,720.00
77,859.77
73,461.15
5,000.00
5,000.00
5,000.00
5,000.00
30,480.00
6,800.00
29,980.00
6,800.00
30,119.52
6,800.00
30,628.40
5,000.00
5.000.00
5.000.00
26,140.00
5.000.00
5.000.00
25,940.00
5 . 000. 0a
5.000.00
25,940.25
3.000.00
5.000.00
22,832.75
165
Departmental administration and other general
business.
Legal advice for the Department of the Treasury.......... . . . . d o .............................. .............................................
.Legal advice for the Bureau of Internal Revenue, De ____d o .............................................................................
partment of the Treasury.
.d o ..
Legal advice for the Post OfRce Department..................
Legal advice for the Department of the Interior...........
..d o .
.d o ..
Legal advice for the Department of Commerce and
Labor.
981,200.00
333,100.00
95,000.00
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Expenditures by the Quartermaster General and Sur
geon General— Payments to beneficiaries of deceased
ofRcers and enlisted men.
Expenditures b y the Secretary—
Display of Philippine exhibit at Alaska-Yukon
Exposition.
General functions under which activities are
grouped.
Department of Justice—Continued.
District attorneys—Legal advice and representation for the
Government in United States judicial districts.
Legal advice and representation............................
Bureau of Investigation...............................................................
Bureau administration and other general business.
General investigations................ .........................................
........do.............................................................................
Examination of the accounts, etc., of court ofRcers.
....... do.............................................................................
Investigation and prosecution of white-slave cases........ ........do.............................................................................
Post OfRce Department and Postal Service............................
General departmental ofRces—
Conduct of administrative and other general ofRces Departmental administration and other general
(under the Postmaster General, chief clerk, and First,
business.
Second, Third, and Fourth Assistant Postmasters
General).
Operation and maintenance of department buildings, Acquisition, maintenance, and operation of
lands, buildings, etc., for ofRce purposes.
including rents (under the chief clerk).
Publication of OfRcial Postal Guide (under the chief Departmental administration and other general
clerk).
business.
Preparation and publication of post-route maps and ....... do.............................................................................
rural delivery maps and blue prints (under the
Fourth Assistant Postmaster General).
Manufacture and distribution of stamped paper (under
the Second and Third Assistant Postmasters Gen
eral).
1913
Actual expenditures for—
1912
1911
2,344,290.00
2,357,290.00
2,300,712.46
2,162,469.43
533,400.00
433,400.00
390,900.00
362,923.38
21.750.00
21.750.00
23.750.00
20,681.22
194.000.00
64.500.00
53.150.00
200.000.00
194.000.00
64.500.00
53.150.00
100.000.00
193,653.50
66.478.00
52.770.00
54,248.50
215,852.20
63.273.00
49.601.00
13,515.96
1,556,527.84
1,197,288.00
1,216,966.68
1,307,061.60
34,450.00
387.080.00
370.740.00
84,481.84
500,000.00
111.776.00
19.450.00
278.112.00
212.580.00
45.850.00
510,000.00
63.296.00
19,267.03
291,357.68
226,679,63
52,097.55
501,778.15
57,512.23
16,088.92
280.084.90
243,006.87
57,539.65
476,730.64
67,737. 72
68,000.00
68,000.00
68,274.41
165.872.90
284,141,018.00
271,608,550.26
250,154,310.29
240,208,410.80
2.110.142.00
1.773.145.00
1,672,313.21
1,702,622.29
240,768.00
206,518.00
202,281.24
214,069.21
25.000.00
24.000.00
23,175,86
23,236.37
33.000.00
30.000.00
26,860.05
28,785.20
2.922.800.00
2.972.750.00
2,363,950.49
2,694,449.68
TO CONGRESS.
Prison Service.................................................................................
Care of prisoners and convicts of the United States—
OfRce of superintendent of prisons.............................. Care and education of * * * delinquent........
........do............................................................................
........do............................................................................
Penitentiary at McNeil Island, Wash........................ ........do............................................................................
........do............................................................... ............
National Training School for Boys, District of ........do............................................................... ............
Columbia.
Care of prisoners and convicts of the District of
Colum biaUnited States penitentiaries and other institutions
1914
FOB 1914 SUBMITTED
Detection of crimes and offenses and coUection of
evidence.
Estimated expenditures for—
BUDGET
Organization units and activities.
166
Comparative awaZysM o/*eg^vna^d a^d actMaZ ezpe^^regybr eacA activity o/* eacA 5^reat^, etc.—Continued.
.do..
519,200.00
434,900.00
436,309.15
428,153.04
.do..
100,000.00
62,000.00
54,161.75
31,965.14
Field inspection service (under the Postmaster General
and Second and Fourth Assistant Postmasters General).
.do..
1,307,637.70
1,203,623.00
1,149,104.67
1,100,884.66
* * service.
70,254,316.50
68,926,950.00
61,847,804.44
58,914,356.09
___ do..................................
41,440,640.00
37,746,265.00
35,736,037.86
34,421,718.15
City post-office service (first, second, and third class post
ofRces, including the postal agency at Shanghai, China)—
Supervisory and clerical service (under the First and
Fourth Assistant Postmasters General).
City carrier service (under the First Assistant Post
master General).
Rural postal service (fourth-class post offices)—
Rural post-oiHce service (under the First and Fourth
Assistant Postmasters General).
, Rural delivery and collection service (except in Alaska)
(under the Fourth Assistant Postmaster General).
Domestic transportation service (under the Second
Assistant Postmaster General)—
Transportation between post-ofRce districts—
Supervision of mail transportation and sorting of
mail in transit—Railway Mail (supervisory and
clerical) Service.
Contract transportation by railroad—weight pay.
Contract transportation by railroad—space pay____
Contract transportation by power boats.................
Contract transportation by special carriers in
Alaska.
Contract transportation by interurban electric
cars.
Transportation within city post-ofHce districts—
Contract transportation by screen wagons..............
Contract transportation by pneumatic tubes.........
Contract transportation by electric cars..................
Transportation by mail messengers...........................
Transportation between railroad stations and rural post
offices (by mail messengers).
Foreign Mail Service (under the Second Assistant Post
master General)—
Sorting of mail in transit—Sea-post (supervisory and
clerical) service.
Contract transportation (not including mail subsidies)
Contract transportation—mail subsidies.........................
Noncontract transportation...............................................
.do..
16 043,523.80
15,418,784.00
14,872,861.16
15,130,134.42
.do..
54,660,130.00
52,794,180.00
48,718,063.90
44,138,325.31
.do.
26,853,260.00
25,369,697.00
21,029,341.67
20,277,881.99
.do..
.do..
.do..
.do..
50,082,000.00
5,393,000.00
909.900.00
508.300.00
48,088,050.00
4,707,000.00
853,700.00
250,000.00
47,651,576.60
4,428,736.40
848,946.14
238,036.95
46,891,381.01
4,757,199.79
815,718.25
228,198.14
.do..
373,279.70
320,684.00
279,093.73
281,649.96
.do .
.do.,
.do.,
.do.,
.do..
2,160,600.00
962,200.00
474,120.30
1,324,647.93
842,652.07
1,732,000.00
987.400.00
407.316.00
1,013,493.20
668,406.80
1,690,976.26
§33,011.21
401,513.20
961,439.98
643,635.12
1,661,030.91
904,231.10
407,302.24
841,444.89
713,013.17
.do..
109,300.00
102,600.00
71,796.13
75,593.23
.do..
1.100.145.00
260,000.00
2.974.055.00
1,400.00
1.112.431.00
260,000.00
2.745.606.00
1,400.00
813,344.42
242,394.96
2,556,526.15
1,277.66
967,472.13
185,912.46
2,275,802.25
1,270.91
Postal * ' * * service...^*......... . .
____do.........................................................
167
Intemational^Bureau of the Postal Union, Berne,
Switzerland.
Postal *
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Manufacture and repair of mail equipment (under the
Second Assistant Postmaster General).
Payment of indemnities for loss of registered mail
(under the Third Assistant Postmaster General.)
Comparative a%atysis o/ egtimateJ a^c? actt^at e3?pe^6?itMres/or eac^ activity o / eac^ 5^reat^) etc.—Continued.
00
Estimated expenditures for—
Organization units and activities.
General functions under which activities are
grouped.
1914
$155,000.00
$645,651.26
1912
1911
$259,739.93
$94,608.81
750,000.00
152,626,008.53
126,836,305.40
134,299,250.79
118,987,722.49
Administrative oHices...................................................................
2,306,061.10
2,268,640.42
2,091,029.94
1,952,730.45
658,310.00
612,179.45
562,389.84
502,481.11
Departmental administration and other general busi
ness—Office of the Secretary (including aids, General
Board, Judge Advocate General, Solicitor, chief clerk,
disbursing clerk, appointment clerk, library (OfRce
of Naval War Records, etc.).
Departmental and other general business.
.do.
1,647,751.10
1,656,460.97
1,528,640.10
1,450,249.34
Bureau of Navigation—Supervision of naval per
sonnel and of matters pertaining to the naviga
tion of naval vessels.
Bureau of Navigation—OfRce of Naval Intelli
gence— Gathering of information bearing on na
val policy, etc.
Bureau of Navigation—Recruiting oiRces—Re
cruiting the force of enlisted men.
Bureau of Medicine and Surgery—Supervision of
medical care of the Navy.
Bureau of Yards and Docks—Supervision of con
struction, repair, and care of buildings and other
improvements, and of operation of general plant
of navy yards.
Bureau of Ordnance—Supervision of construction,
repair, and operation of armament of naval ves
sels.
Bureau of Construction and Repair—Supervision of
construction, repair, and care of hulls of naval
vessels,
.do.
152,550.00
143,823.67
146,800.72
149,327.26
.do.
57,370.00
52,950.00
52,041.91
52,464.42
.do.
612,316.10
692,244.25
612,911.08
571,183.61
.do.
84.600.00
77.950.00
70,621.00
64,294.15
.do.
61.890.00
58.890.00
57,705.36
64,349.23
.do.
116,520.00
108,060.00
100,589.24
91,958.32
.do.
134,190.00
124,700.00
119,390.03.
117,859.31
TO CONGRESS.
General administration through bureaus at Washing
ton.
FOR 1914 SUBMITTED
Department of the Navy................................................................
BUDGET
Post OfRce Department and Postal Service—Continued.
Miscellaneous—
Postal Savings System—Establishing postal sayings Postal * * * service.
depositories.
Postmaster General— Establishing Parcel-Post Service. ____do...................................
1913
Actual expenditures for—
134.860.00
.do.
123,780.00
.do..
34,120.00
32,814.72
.do.
259.335.00
241,248.33
136,233.59
127,702.45
232,347.17
211,110.59
purchasing, storekeeping, disbursing, and ac
counting for the Navy.
The Fleet..
National defense by sea.
Construction of vessels—
Bureau of Construction and Repair.
Bureau of Steam Engineering...........
Bureau of Navigation.........................
Bureau of Ordnance............................
Repair of vessels—
Bureau of Construction and Repair.
Bureau of Steam Engineering...........
Bureau of Navigation...........................
Bureau of Ordnance............................
Repair of equipage—
Bureau of Construction and Repair.
Bureau of Steam Engineering...........
Bureau of Navigation.........................
Bureau of Ordnance............................
Maintenance of ships in commission—
OiHce of the Secretary........................
Bureau of Construction and Repair.
Bureau of Steam Engineering...........
Bureau of Ordnance............................
Bureau of Medicine and Surgery.......
Bureau of Navigation.........................
Bureau of Supplies and Accounts___
Vessels of the Bureau of Fisheries....................
Bureau of Navigation..................................
Bureau of Medicine and Surgery...............
Bureau of Supplies and Accounts.............
88,023,344.73
73,406,414.30
85,022,675.56
87,935,337.95
73,312,577.14
90,000.00
90,000.00
88,006.78
93,837.16
26,803,135.14
24,400,553.71
.d o .
.do.,
.do.,
.do..
.do..
.do..
.do..
.do..
___ do.............
___ do.............
___ do.............
___ do.............
___ do.............
...d o ............
___do.............
*
*
*
fisheries.
___ do..............
___ do.............
. . . d o ..............
.do.
.do.
.do.
.do.
.do.
.do.
.do.
,do.
27,536,776.8
27,943,518.48
169
85,112,675.56
107,121,458.75
.do..
.do..
.do..
.do..
Y ards and stations.
Yards (21)—Construction and repair of ships —
Secretary's ofHce......................................... ...
Bureau of Navigation.......................................
Bureau of Construction and Repair..............
Bureau of Steam Engineering.........................
Bureau of Yards and Docks............................
Bureau of Supplies and Accounts.................
Bureau of Medicine and Surgery....................
Bureau of Ordnance, .
.
107,211,458.75
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Bureau of Steam Engineering—Supervision of con
struction, repair, and operation of propelling ma
chinery of naval vessels.
Bureau of Equipment—Supervision of acquisition,
repair, and care of theequipment of^naval vessels.
Compamtue
o/*
acfttaZ acpeTMKfMresybr eacA ocftv^y q/*eacA &^rea?z, e^c.—Continued.
Estimated expenditures for—
Organization units and activities.
1914
National defense by sea.............................................
Bnr<*ail of Yards and Dnrlrs
........do............................................................................
Proving ground—Manufacture and test of powder and
test of ordnance equipment—
........do............................................................................
........do............................................................................
........do............................................................................
nn f o f JN^vic&tiou
........do............................................................................
........do............................................................................
........do............................................................................
Coal depots (31)—Storing fuel—
Bureau of Navigation
........do........... ..............................................................
........do.................................................. .........................
Bureau of Supplies and Accounts
Bureau of Ordnance.......................................................
........do............................................................................
1911
TO CONGRESS.
Magazines (12)—Assembling, preparing, and storing
ammunition—
1912
FOR 1914 SUBMITTED
........do............................................................................
. ...d o ............................................................................
1913
BUDGET
Department of the Navy—Continued.
Yards and stations—Continued.
Clothing factory—Manufacture and repair of clothing—
Actual expenditures for—
General functions under which activities are
grouped.
171
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Colliers and supply vessels—Distribution of fuel and sup
plies—
Secretary's office.............................................................
Bureau of Navigation....................................................
BUreau of Construction and Repair...........................
Bureau of Steam Engineering.....................................
Bureau of Yards and Docks.........................................
Bureau of Supplies and Accounts...............................
Bureau of Medicine and Surgery.................................
Bureau of Ordnance.......................................................
Training stations and other schools (26)—Education of
naval personnel—
Secretary's office.............................................................
Bureau of Navigation....................................................
Bureau of Construction and Repair..........................
Bureau of Steam Engineering.....................................
Bureau of Yards and Docks.........................................
Bureau of Supplies and Accounts...............................
Bureau of Medicine and Surgery.................................
Bureau of Ordnance.......................................................
Naval Academy— Education of naval personnel—
Secretary's oRice.............................................................
Bureau of Navigation............................. .......................
Bureau of Construction and Repair...........................
Bureau of Steam Engineering.....................................
Bureau of Yards and Docks.........................................
Bureau of Supplies and Accounts...............................
Bureau of Medicine and Surgery................................
Bureau of Ordnance.......................................................
War College—Preparation of war plans and training of
officers—
Secretary's ofRce.............................................................
Bureau of Navigation....................................................
Bureau of Construction and Repair..........................
Bureau of Steam Engineering....................................
Bureau of Yards and Docks....................................... .
Bureau of Supplies and Accounts............................. .
Bureau of Medicine and Surgery................................
Bureau of Ordnance.....................................................
Hospitals and dispensaries (45)—Care of the sick and
injured—
Secretary's oiRce.............................................................
Bureau ofNavigation...................................................
Bureau of Construction and Repair..........................
Bureau of Steam Engineering.....................................
Bureau of Yards a,nd Docks.......................................
Bureau of Supplies and Accounts.............................
Bureau of Medicine and Surgery____ *.......................
Bureau of Ordnance..................................................... .
Contpamttve
o/*
ac%im% ezpeTiditt^re^ /or eacT^ actwtty o / eacA 5t^rea^, etc.— Continued.
Estimated expenditures for—
Organization units and activities.
Actual expenditures for—
General functions under which activities are
grouped.
1914
1913
1912
$8,248,574.76
$7,618,930.93
$9,501,800.46
$8,574,538.34
1,626,377. 76
1,481,948.56
1,393,521.30
810,561.89
1911
BUDGET
Department of the Navy—Continued.
Yards and stations—Continued.
Navai Home—Care and support of old sailors—
FOR 1914 SUBMITTED
........do............................................................................
........do............................................................................
........do ............................................. .............................
........do............................................................................
........do............................................................................
........do............................................................................
........do............................................................................
Wireless stations (43)—Communication service—
........do............................................................................
___ do............................................................................
........do............................................................................
........do............................................................................
........do............................................................................
........do............................................................................
........do............................................................................
........do.............................................................................
National defense by sea
Providing facilities for transportation, lights,
buoys, etc.
Expenditures on account of past military services.
BeneRciaries of deceased ofRcers and enlisted men.. ........do............................................................................
Commissions and interest on deposits and over
drafts.
Bureau of Sirpplies and Accounts—
........do............................................................................
........do...................................................... L....................
........do............................................................................
dQtorior&tion of storos
Bureau of NavigationProviding charts, sailing directions, etc., for the ___ do............................................................................
Navy (Hydrographic OfRce).
Providing chronometers, compasses, and other „___ do............................................................................
navigation instruments for the Navy and astronomical information (Naval Observatory).
10,000.00
10,000.00
30,366.45
79,678.19
3,529,856.00
75.000.00
5,000.00
3,366,624.25
65,532.00
5,000.00
3,032,249.91
59,333.16
4,708.34
2,982,629.07
105,775.22
5,225.67
50.000.00
2,500,000.00
50,000.00
2,250,000.00
75,407.42
2,703,024.21
1,851,050. 76
21,519.31
2,734,322.36
1,476,892.33
283.516.00
264,471.12
227,428.06
218.096.65
168.825.00
125,356.00
124,710.85
139.837.65
TO CONGRESS,
Miscellaneous
General—
Officers on inspection duty, traveling under orders,
awaiting orders, on leave, sick in hospital, and on
other special duty; prisoners and apprentices.
OfRcers on lighthouse duty..........................................
7,146,298.86
7,110,520.92
204,528,564.07
189,887,027.16
193,075,238.30
974,206.33
552,328.00
521,208.69
541,537.87
450,371.33
387,586.33
368,347.38
366,833.81
523,835.00
164,741.67
152,861.31
174,704.06
3,561,173.24
3,568,899.78
3,465,477.99
3,370,951.61
284,358.24
272,148.24
226,849. (
239,723.56
.do.
.do.
.do.
65.460.00
258.495.00
726.579.00
68.712.00
231,600.00
820,758.54
63,817.52
192,271.27
811,552.99
63,349.01
172,372.67
625,201.80
.do.
.do.
367.310.00
891.521.00
366.960.00
981.521.00
352,381.69
843,541.14
352,898.51
868,767.48
60.650.00
678.500.00
5,000.00
23.300.00
70.400.00
518.500.00
85,287.31
635,060.18
74,912.63
703,447.19
23,300.00
22,000.00
22,423.00
200, 000.00
215,000.00
232,716.20
247,855.76
.do.
.do.
.do.
.do.
.do.
.do.
.do.
.do.
.do.
.do.
230,216,0
Department of the Interior.
General departmental ofRces......................................................
Administration—Secretary's and other general ofRces.. Departmental administration and other general
business.
Operation, repair, and improvement of department Acquisition, maintenance, and operation of
lands,
buildings, etc., for ofRce purposes.
buildings and service plants— OfRce of the chief engi
neer (under the chief clerk).
General Land OfRce......................................................................
Administration and other general business—OfRce of
the commissioner and administrative divisions.
Surveying the public domain—
W ashington ofRce...........................................................
OfRces of surveyors general..........................................
Field service.....................................................................
Selling and granting lands—
Washington ofRce..................L.............................. ........
Local land ofRces............................................................
Protection of public lands—
W ashington ofRce...........................................................
Inspection service..........................................................
Care and preservation of national monuments...............
Furnishing maps of the States and of the United
States—Washington ofRce.
Aid to States in maintenance of roads and schools —
Washington ofRce.
8,056,778.78
* * * Care and utilization of the public do-
.do.
.do.
Promotion of public education and recreation—
Publication of * * * maps, etc., for general
Government use.
Local government.......................................................
173
7,435,504.78
.do.
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Marine Corps—Providing and maintaining a policing and
special landing force.
Administrative ofRces—
OfRce oi the Major General Commandant—general
administration.
OfRces of the Adjutant and Inspector, Quarter
master, and Paymaster—conduct of business
pertaining to personnel, equipment, supplies,
transportation, etc.
The Fleet—
OfRce of the Paymaster................................................
OfRce of the Quartermaster..........................................
Naval stations—
General (bureau control as shown for the Fleet) —
Hospitals (bureau control as shown for the Fleet)..
Prisons (bureau control as shown for the Fleet) —
Marine Corps stations, not naval—
Schools (bureau control as shown for the Fleet).......
Other (bureau control as shown for the Fleet).........
Field forces (bureau control as shown for the Fleet)—
]Co7H'para%ue <ma&/sts o /
ac%%a% 6^p6^6?i^r6s/or 6acA
o / gacA
6^c.— Continued.
Estimated expenditures for—
Organization units and activities.
1912
$13,684,274.52
$10,909,895.85
$11,121,273.96
$11,646,426.93
394,957.99
10,000.00
79.000.00
60.000.00
328,447.99
4.000.00
76.821.00
60,000.00
315,697.95
3,947.92
148,613.93
56,418.41
308, 024.63
4, 008.25
137, 389.26
57, 652.33
3,951,168.25
3,000.00
342,500.00
2,681.953.87
2.000.00
286.500.00
2,281,030.44
2,514.19
268,080.32
2,422, 561.84
4. 721.44
258.69
4,605,828.28
67.500.00
452.000.00
1,795,800.00
175.000.00
47.520.00
3,951,471.37
45,000.00
202,000.00
1,133,722.62
175,000.00
213.520.00
3,658,494.05
21,943.49
410,322.84
1,231,708.63
97,111.03
879,338.80
3,920, 829.07
24, 449.76
485, 589.14
1,342, 517.20
66 , 761.24
021.39
49.459.00
2,328.00
139,534.75
1,700,000.00
129, 037.98
39, 629.13
376, 176.03
247.11
1,198, 633.71
5, 825.08
92, 059.74
25, 313.69
295, 943.97
8.13
1,063 957.33
1,700,000.00
187,348,724.05
Expenditures on account of past military serv
ices.
___ do...........................................................................
___ do...........................................................................
Patent OfRce..
167,215,384.8
1911
155,440,308.63
159,838,457.64
2,001,754.05
2,264,239.05
1,977,971.13
2,042,417.43
346,970.00
185,000,000.00
451,145.84
164,500,000.00
475, 903.78
152,986, 433.72
470, 879.86
157,325, 160.35
2,099,991.23
1,933,881.23
2,025,731.73
1,941,435.12
Granting patents, including general administrative
Granting patents and copyrights.
2,099,241.23
1,933,131.23
2,024,981.73
1,940,817.51
International cooperation for protection of patents—
International Bureau for Protection of Industrial
Property.
___ do.................................................
750.00
750.00
750.00
617.61
TO CONGRESS.
Bureau of Pensions .
1913
FOB 1914 SUBMITTED
Administration and other general business—
Washington office........................................................... Care and education of the Indians.
Board of Indian Commissioners................................... ------do...................................................
Supervision of Reid service—Inspectors............................. ------do...................................................
Purchase, storage, and issue of equipment and sup ____do...................................................
plies—W arehouses.
Conduct of agencies, including support of Indians.........
.do.
Legal services for tribes.........................................................
.do.
Maintenance of law and order on reservations—Indian
.do.
judges and police.
Education in schools.................................... ........................
.do.
Care of insane Indians—Asylum, Canton, S. Dak.........
.do.
Allotment, leasing, and sale of lands.................................
.do.
Construction and operation of irrigation works...............
.do.
Timber and forestry operations..........................................
.do.
Payments to Indians in cash for support and for prop
.do.
erty taken.
Compensation for losses through Indian depredations..
.do.
Interest on trust funds, used for—
Supervision of Reid service—Inspectors......................
.do.
Conduct of agencies, including support of Indians...
.do.
Legal services for tribes................................................
.do.
Education in schools......................................................
.do.
Timber and forestry operations...................................
.do.
Payments to Indians in cash.......................................
.do.
1914
BUDGET
Department of the Interior—Continued.
OfRce of Indian Affairs.............................
Adjudication of pension claims, including general ad
ministrative expenses.
Payment of pensions (expenses of)...............- ....................
Pension payments to war veterans........... ........................
Actual expenditures for-
General functions under which activities
are grouped.
Bureau administration—Washington oRice....................
Dissemination of educational information—Washing
ton oiRce.
Education of natives of Alaska—
Bureau administration—Washington oRicc........... .
Overhead—Washington oRice and disbursing and
supply oRices at Nome and Seattle.
Inspection of Alaskan schools......................................
Conduct of Alaskan sch o o ls......................................
Medicalcare of natives.................................................
Management of reindeer farms...................................
Cooperation with the States in instruction in agricul
ture and mechanic ajts.
Promotion of public education.
-----do..............................................
Care and education of the Indians and other
wards of the Nation.
-----do........................................................................
.do..
do..
.do..
.do..
Promotion of public education
* *
*.
Geological Survey.
Administration and other general business and pub
lication of reports and maps:
Portion assignable to topographic and geologic Promotion of agriculture, etc..............................
surveys, etc.
Portion assignable to statistics of mineral resources. Promotion of * * * mining........................
Geologic surveys of the United States—Geologic branch. Promotion of agriculture * * * and care and
utilization of the public domain.
Investigation of the mineral resources of Alaska, includ ....... do........................................................................
ing topographic and geologic surveys and water re
sources investigations— Geologic branch.
Investigation of the water resources of the United
.do.
States—Water resources branch.
Chemical and physical researches— Geologic branch—
do.
Topographic surveys of the United States—Topo
do.
graphic branch.
Surveying the national forests—Topographic branch..
..do.
Compilation of statistics of the mineral production of
the United States— Geologic branch.
ing.
^
^
Reclamation Service—Construction, operation, and main
tenance of irrigation works.
Bureau of Mines............................................................................
Administration and other general business—OiRce of
the director and administrative assistants:
Portion assignable to investigating methods of
treating ores.
Portion assignable to mine-accident work..............
Portion assignable to testing of coal.
Promotion of trading, manufacturing, and
mining.
'
Promotion and protection of the interests of the
working classes.
Testing of supplies for general Government
purposes.
Local government.................................................
Promotion and protection of the interests of
laboring classes.
2,846,327.82
2,839,098.28
2,567,212.05
6,802,82
256,892.11
4,020.27
131,017.11
3,558.11
117,098.40
3,111.65
95,174.64
8,632.89
6,290.44
6,441.77
6,930.04
35,333.34
35,338.34
36,542.91
35,740.-65
700.00
211,966.66
70,000.00
8,000.00
2,500,000.00
695.00
133,966.66
30,000.00
5,000.00
2,500,000.00
1,547.50
136,983.55
24,926.04
12,000.00
2,500,000.00
915.00
142,442.40
20,901.67
11,996.00
2,250,000.00
2,066,054.93
1,514,454.93
1,478,494.72
1,*58,228.87
625,237.49
456,398.14
421,993.89
404,885.43
43,001.44
430,198.00
31,590.79
289,669.00
29,702.42
290,649.27
29,947.84
290,023.31
92,387.00
82,987.00
91,928.70
85,796.99
278,556.00
137,556.00
130,965.73
143,577.92
53,000.00
383,225.00
43,000.00
336,304.00
40,236.88
334,965.31
20,748.41
342,832.85
70.500.00
89.950.00
70.500.00
66.450.00
70,532.82
67,519.70
69,932.80
70,483.32
14,000,000.00
14,043,255.95
11,139,789.76
9,183,330.68
1,030,609.41
642,069.41
529,059.84
514,036.13
122,089.04
112,168.43
58,348.64
18,350.69
106,072.94
105,912.53
29,082.76
45,732.61
46,333.23 p
1,517.07
95,010.00
2,385.58
86,725.00
3,486.65
72,014.00
41,706.88
1.404.97
108,810.58
175
Portion assignable to inspection of mines in Alaska
Acquisition and operation of mme-rescue cars and
stations.
Promotion of agriculture * * * and care and
utilization of the public domain.
3,098,327.82
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Bureau of Education
Comparative aita^/sig o/*
acti/a! ezpeTMMture*/or eac^ activity o/* eac& &w^ov, etc.—Continued.
Estimated expenditures for—
Organization units and activities.
General functions under which activities are
grouped.
1913
1914
1911
$201,855.00
$181,633.00
6,500.00
50,000.00
124,608.00
7,243.92
3,246.20
96,260.00
96,358.51
$150,340.56
25,000.00
6,500.00
250,000.00
124,608.00
868,920.97
396,615.81
527,476.23
1,031,425.75
863,964.00
4,656.97
394,538.31
278,646.01
343.03
178,480.35
230,552.72
300.00
77.50
1,092.75
5,977.50
2,000.00
68,914.09
69,645.19
725,250.34
743,616.16
670,557.48
706,311.92
defective. .
863.809.00
515,276.16
432,510.24
450,716.28
Promotion of public education, etc.......................
Promotion and protection of the public health..
Care and education of the * * * defective...
185.435.00
107.540.00
190.000.00
92,000.00
64.840.00
71.500.00
92,900.00
61,147.24
84,000.00
104,700.00
53,895.64
97,000.00
Territorial governments under the supervision of the de
partment.
Alaska—
Establishment and maintenance of public schools.. Local government.......................................................
........do............................................... .............................
........do.............................................................................
........do.............................................................................
Exhibits at Alaska-Yukon Exposition....................... ........do.............................................................................
Arizona—Conduct of constitutional conventions and ........do.............................................................................
elections^,.
New Mexico—Conduct of constitutional conventions ........do..................................................... ........................
and elections.
137.000.00
161,834.24
128,549.85
275,883.73
50.000.00
12.000.00
60,000.00
15,000.00
50.000.00
12.000.00
60,000.00
15,000.00
1,281.10
8,727.52
Care of insane soldiers, sailors, marines, etc.—Govern
ment Hospital for the Insane.
Higher education of negroes—Howard University___
Medical care of negroes—Freedmen's Hospital.............
Education of deaf-mutes—Columbia Institution for the
Deaf.
Care and education of the *
*
*
-
14,825.62
50,809.19
47,081.84
11,850.07
51,145.24 ........... 43*649^52
13,411.05
9,924.42
54.72
60.77
1,272.48
90,000.00
7.10
85,167.28
TO CONGRESS.
1,346,784.00
Institutions under the supervision of the department........
FOB 1914 SUBMITTED
Protection and improvement of national parks............. Promotion of public education and recreation . . .
Erection of memorial to John Wesley Powell................. ........do.............................................................................
Protecting lands and property in the Imperial Valley, Promotion of agriculture * * * and care and
utilization of the public domain.
Cal.
Distribution of Supreme Court reports, Revised Stat Purchasing supplies, etc., for general Govern
utes, etc.
ment purposes.
Construction of school buildings and other improve Contributions to local government.........................
ments at Lawton, Okla.
$334,470.00
1912
BUDGET
Department of the Interior—Continued.
Bureau of Mines—Continued.
Investigation of mine accidents and experimental Promotion and protection of the interests of
work— Pittsburgh station.
the laboring classes.
Collection of statistics of mine accidents—Washington ....... do.............................................................................
oiRce.
Inspection of mines in Alaska—Juneau office................. Local government......................................................
Investigation of treatment of ores—Denver office......... Promotion of trading, manufacturing, and mining.
Analysis and testing of fuel for Government use—Wash Testing of supplies for general Government
ington and Pittsburgh ofRces.
purposes.
Actual expenditures for—
24,706,012.72
25,422,263.27
19,669,338.89
18,793,633.10
Central administrative oRices .
973,654.00
977,265.14
906,914.04
826,660.60
242,895.00
235,305.00
218,433.27
192,042.20
219,509.00
214,360.14
192,807.86
172,865.83
115,170.00
114,620.00
104,247.20
87,823.29
339,560.00
361,700.00
338,420.76
326,289.06
56,520.00
1,712,490.00
51,280.00
1,666,680.00
53,004.95
1,618,097.94
47,640.22
1,515,004.48
Meteorological research and weather forecasting.
------do...........................................................................
do...........................................................................
.do.
.do..
.do.,
247.090.00
830.655.00
207.321.00
48.164.00
338.425.00
40.835.00
5,160,986.00
237.090.00
810.835.00
202.817.00
43.028.00
332.075.00
40.835.00
4,701,400.00
234,348.21
789,850.46
195,380.67
37,634.70
319,674.11
41,209.79
4,618,879.74
198,251.80
754,452.21
186.921.03
35.519.79
302,049.86
37.809.79
4,269,876.26
Promotion of agriculture * * * .....................
Promotion and protection of public health * * *
Regulation of interstate commerce * * * . . .
Promotion of agriculture * * * .....................
41,056.29
86,221.18
88.53
186,500.00
39,791.53
84,247.51
94.96
186,430.00
35,565.96
77,503.20
87.58
123,199.00
31,231.35
70,805.00
84.96
107,098.00
Administration and other general business..
Operation and maintenance of department buildings
(including rent).
Supervision of printing and distribution of printed
matter.
Conduct of department reference library.........................
Weather Bureau.......................................................................... .
Study of river flow and issue of flood warnings..............
Study of marine meteorology and issue of Pilot Charts.
Climatological studies............................................................
Research in meteorology......................................................
Bureau of Animal Industry.......................................................
Bureau administration and other general business—
Portion assignable to work in animal industry.......
Portion assignable to enforcement of 28-hour law...
Investigations, experiments, etc., relative to animal
husbandry.
Investigations, experiments, etc., relative to dairy in
dustry.
Investigation, control, and eradication of animal dis
eases.
Inspection of m ea t............. ..............................................
Enforcement of 28-hour law............................... ................
Departmental administration and other general
business.
Acquisition, maintenance, and operation of
lands and buildings for office purposes.
Departmental administration and other general
business.
____do.............................................................................
.do.
.do..
267,980.00
238,680.00
215,631.00
181,768.00
.do..
1,168,100.00
1,042,146.00
1,077,351.00
985,741.00
11,500.00
3,396,040.00
3,500.00
10,470.00
3,096,040.00
3,500.00
10.017.00
3,076,040.00
3,485.00
10,942.00
2,878,735.95
3,470.00
2,933,880.00
2,465,250.86
2,059,128.39
1,772,159.76
191,550.00
1,425,752.32
178,663.86
1,198,243.32
148,494.39
1,076,516.63
150,697.46
894,489.29
18,076.34
......
Regulation of interstate commerce (prevention
of cruelty to animals).
Bureau of Plant Industry..
Bureau administration and other general business........
Investigations and experiments in connection with
field, garden, ami orchard crops.
.do..
103,110.00
103,110.00
32,525.58
.do..
20,691.68
13,720.68
10,230.36
9,812.82
.do..
13,143.00
12,140.00
13,746.97
14,786.84
.do..
.do..
.do..
455.093.00
431.120.00
293.420.00
308.633.00
356.120.00
294.620.00
149,445.89
356,986.29
271,182.28
135,043.90
255,829.45
293,423.66
177
Investigations, etc., relative to the handling of cattle
ranges.
Investigations, etc., relative to plants poisonous to
cattle.
Agricultural extension and demonstration work—
Farm management investigations...............................
Farmers' cooperative demonstration work...............
Congressional seed distribution..........................................
.....do.^....... ... .........
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
H. Doc. 1435, 62-3
Department of Agriculture.........
Comparative a%atysis o / e^tiwate^ a?^d act%at e^pe^^itt^re^/br eac^ activity o / eacA &weat^, etc.— C o n tin u e d .
Estimated expenditures for—
Organization units and activities.
Actua] expenditures fo r -
General functions under which activities are
grouped.
1914
1913
1912
$8,593,906.72
$10,355,287.27
$6,201,974.84
$6,469,893.21
207.660.00
6,217,019.72
199.726.00
7,992,881.96
199,738.73
4,009,200.24
214,451.67
3,603,558.54
350.000.00
13.527.00
350,000.00
13.503.00
201,986.37
14,347.53
1,086,590.89
27,076.21
17.009.00
781.397.00
188.453.00
27.841.00
791.000.00
16.434.00
785.883.00
188.181.00
21.968.00
786,710.31
13,697.32
1,056,260.05
199,302.79
25,065.63
482,376.18
13,319.90
804,102.31
196,119.71
18,479.15
506,194.83
1,164,060.00
999,260.00
922,446.72
850,318.64
1911
Bureau administration and other general business........
Investigation of chemical characteristics of soils.............
Investigation of physical characteristics of soils.............
Promotion of agriculture *
* ..........................
10,772.42
9,873.53
9,887.20
9,300.05
Promotion and protection of public health * * *
117,238.54
112,683.25
91,230.35
82,697.50
Inspecting supplies for general Government use..
Promotion of trading * * * ................................
5,800.52
558.52
5,072.96
630.26
4,359.91
550.93
3,988.57
638.78
Promotion of agriculture * * * ........................ .
Inspecting supplies for general Government use.
Promotion of trading * * *.................................
Promotion and protection of public health * * *
82.550.00
44.450.00
4,280.00
898.410.00
67.050.00
34.450.00
4,280.00
765.220.00
76,131.37
33,571.32
4,242.18
702,473.46
72,542.55
31,112.01
4,982.74
645,056.44
407.626.00
333.780.00
290,080.75
271,311.26
70.826.00
19.000.00
12.130.00
27.200.00
5,000.00
35.870.00
217,600.00
20.000.00
64.980.00
19,000.00
12.130.00
22.200.00
5,000.00
25,870.00
184,600.00
62,903.04
18,139.83
12,828.78
22,442.10
68,588.47
16,861.61
12,152.87
21,264.54
5,826.48
1,844.87
144,772.42
Promotion of agriculture *
*
*
* ..........................
....... do.............................................................................
....... do.............................................................................
Investigation of fertilizer resources.................................... ....... do.............................................................................
....... do.............................................................................
Examination and*classiAcation of agricultural lands in ....... do.............................................................................
forest reserves,
11,339.65
162,427.35
TO CONGRESS.
Bureau administration and other general business—
Portion assignable to investigations in agricultural
chemistry.
Portion assignable to enforcement of the food and
drugs act.
Portion assignable to testing contract supplies........
Portion assignable to investigation of foreign tests
of American food products.
Investigations in agricultural chemistry...........................
Testing contract supplies for general Government use..
Investigation of foreign tests of American food products.
Enforcement of the food and drugs act..............................
FOR 1914 SUBMITTED
Bureau administration and other general business........ Promotion of agriculture, forestry, etc...................
Administration of national forests and acquisition of ....... do.............................................................................
new forests.
....... do.............................................................................
Cooperation with States and private owners in forest
management. ^
....... do.............................................................................
Silvicultural investigations and experiments.................. ....... do.............................................................................
Forest-products investigations and experiments............ ....... do.............................................................................
. . . .do.............................................................................
Contributions to States and Territories from forest re Local government.......................................................
ceipts for the benefit of roads and schools.
BUDGET
Department of Agriculture—Continued.
702,840.00
581,405.89
542,023.78
30,934.37
425.63
289,640.00
31,870.63
239.37
258,200.00
31,366.38
287.90
182,842.15
26,069.14
101.47
157,023.35
62,520.00
5.000.00
7,500.00
5.000.00
57.070.00
5.000.00
5.000.00
3.500.00
2.500.00
15,000.00
23.560.00
295,900.00
5.000.00
45,161.83
5.000.00
5.000.00
3.500.00
2.500.00
14,853.34
22,393.95
268,500.34
16,698.44
2,000.00
2,000.00
3,500.00
2,000.00
10,899.15
22,362.45
299,369.78
182,040.00
199,400.00
124,680.90
90,596.07
35,890.00
2,250.00
29,050.00
2,000.00
24,307.54
1,940.65
20,392.44
766.88
.do..
26,200.00
91,550.00
20,315.01
8,685.66
.do..
6,900.00
2,800.00
3,193.81
1,905.11
.do..
17,750.00
10,550.00
12,929.14
11,236.87
.do..
65,900.00
43,900.00
34,686.95
26,192.09
.do..
1,200.00
1,200.00
883.97
.d o .
25,950.00
18,350.00
26,423.83
21,417.02
275,180.00
268,680.00
250,893.74
235,205.69
64.625.00
167,340.00
43.215.00
61.125.00
166,140.00
41.415.00
61,040.02
148,920.01
40,933.71
54,215.92
132,978.19
48,011.58
1,983,290.00
1,918,800.00
1,890,509.25
1,821,642.64
85,005.28
80,762.28
69,339.76
68,143.34
4,054.72
53,980.00
1,440,000.00
3,502.72
49,980.00
1,440,000.00
3,046.22
43,181.20
1,440,000.00
2,322.55
41,055.14
1,440,000.00
Bureau of Biological Survey.
Promotion of agriculture * * *.
____do....................................................
mals.
Conduct of reservations for birds and mammals, and
feeding elk.
Regulation of interstate commerce in game and aid to
local authorities in game protection.
Preparation and publication of information concerning
game animals and birds.
Study of wild animals in their economic relations with
agriculture.
Demonstration of methods of controlling crawfish in
cotton fields.
Study of geographic distribution of wild birds and
mammals.
Bureau of Statistics.
Bureau administration and other general business.
Crop reporting..................................................................
Statistical investigations................................................
Promotion of agriculture * *
____d o..............................................
____do..............................................
OfRce of Experim ent Stations .
Bureau administration and other general business—
Portion assignable to irrigation, drainage, agricul Promotion of agriculture * * * ...................
tural education, and experiment station work.
Portion assignable to nutrition investigations........ Promotion and protection of the public health.
Conduct of relations w ith experiment stations............. . Promotion of agriculture * * * .......................
Contributions to State experim ent stations.................... ____d o .........................................................................
17,000.00
30,680.00
311,460.00
10,000.00
179
770,160.00
Bureau administration and other genera! business:
Portion assignable to economic investigations____ Prom otion of agriculture * * * . . . ...................
Promotion and protection of the public health.
Portion assignable to health investigations...........
Investigation of insects affecting Reid, garden, and Promotion of agriculture * * * .......................
orchard crops.
.do..
Forest insect investigations................................................
Investigation of insects affecting the health of anim als..
.do..
Investigation of insects affecting the health of m an____ Promotion and protection of the public health..
Promotion of agriculture * * * .........................
Im portation and exchange of beneficial insects.............
Inspection of imported nursery stock.............................. ____d o...........................................................................
____do.................................................................. ........
____d o...........................................................................
____do...........................................................................
Exterm inating the A rm y w orm ................^____' ' .......... ____do............................................................................
Miscellaneous expenses....................................................... ____do...........................................................................
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Bureau of Entomology.,
180
Comparative awa%ysis o/estiwat^d a^J act^at ea?pe^dit^res^or eac^ activity o/*eac^ &^rea^, etc.— Continued.
Estimated expenditures for—
Organization units and activities.
Actual expenditures for—
General functions under which activities are
grouped.
1914
....
1912
1911
$115,100.00
$109,536.48
$100,552.09
26.920.00
20.680.00
121,620.00
107.830.00
20.580.00
16.400.00
92.750.00
99.725.00
14,136.15
15,912.57
98,584.89
96,771.98
15,503.15
10,256.36
64,428.08
79,381.93
711,620.00
163,776.16
115,021.70
81.885.00
55.300.00
160,710.00
58.320.00
23.800.00
70.800.00
52,380.18
18,520.00
47,238.04
33,780.69
14,982.21
42,363.96
........do.................................... .......................................
60,000.00
40.845.00
30.000.00
28.700.00
500,000.00
15,679.31
29,958.63
23,894.84
Promotion of agriculture...................... ^....................
100,000.00
87.000.00
40,550.53
13,919.01
Horticultural Board (enforcement of the plant quarantine ........do............................................................................
act).
50,000.00
25.000.00
Bureau administration and other general business........
Road management work.......................................................
Investigation and demonstration of methods and ma
terials for road and bridge construction.
Experimental road construction and maintenance........
Laboratory testing of road and bridge materials...........t
Improvement of roads for rural-delivery service.............
Insecticide Board (enforcement of the insecticide act).........
....... do............................................................................
Exhibit at International Dry Land Congress, Lethbridge, ........do............................................................................
Alberta.
Department of Commerce and L ab or.......................................
General departmental ofHces.......................................................
Administration—Immediate ofHces of Secretary, As
sistant Secretary, and chief clerk.
Care and operation of department buildings, including
operation of telegraph and telephones, heat and
power plant, elevators, and stables—OfRce of the chief
clerk in (part).
Purchase, custody, and distribution of ofRce supplies
and equipments— OfRce of the chief clerk, Division
of Supplies.
Conduct of correspondence and records relative to per
sonnel—Appointment Division.
10.000.00
17,163,404.62
15,784,204.75
15,375,758.49
20,885,518.96
250,283.82
313,560.00
275,875.00
264,299.02
Departmental administration and other general
business.
Acquisition, maintenance, and operation of
lands, buildings, etc., for ofRce purposes.
72.300.00
67.059.00
65,472.48
65,203.36
97.114.00
94.640.00
92,269.41
85,622.87
Departmental administration and other general
business.
18.940.00
18.340.00
19,310.23
18,686.09
17.926.00
17.476.00
17,427.22
16,599.73
TO CONGRESS.
398.740.00
Providing facilities for [land] transportation.
....... do............................................................................
........do............................................................................
Office of Public Roads..................................................................
FOR 1914 SUBMITTED
$123,200.00
BUDGET
Department of Agriculture—Continued.
Office of Experiment Stations—Continued.
Conduct of Alaskan, Porto Rican, and Hawaiian ex Promotion of agriculture * * * ........................
periment stations.
Advice to farmers' institutes and agricultural schools
do^..........................................................................
Investigations relative to human nutrition...................... Promotion and protection of the public health...
Irrigation investigations........................................................ Promotion of agriculture * * * ..........................
Drainage investigations-............................. ! ......................... ........do......................................... ..................................
1913
Bureau of Lighthouses—Providing lights, buoys, and other
aids to navigation.
Administration and other general business—Washing
ton oiHce.
District administration—District ofHces.........................
Construction^ operation, and maintenance of light and
fog-signal stations, buoys, etc.—
Light and fog-signal stations......................................
Light vessels....................................................................
Buoys...............................................................................
Post lights.........................................................................
Daymarks aud spindles................................................
Unspecified.......................................................................
Administration and other general business and geo
detic and magnetic computing:
Portion assignable to coast surveys............................
Portion assignable to interior surveys.......................
Survey of coasts of the United States:
District administration and inspection.....................
Combined hydrographic, topographic, and geo
detic surveys.
Geodetic surveys (shore parties).................................
Chart construction.................................................... ...
Publication and distribution of charts......................
Compilation of Coast Pilot............................................
Tidal observations and research............. ...............
Basic surveys^ determination of positions, and other
work necessary for the mapping of the interior of the
United States.
Surveys in aid of Hsheries work..........................................
Survey of the boundary between Canada and the
United States.
Relief of distress in remote regions....................................
.do.
3 5 ,1 6 0 .0 0
2 8 ,1 6 0 .0 0
2 8 ,2 7 8 .8 3
2 6 ,4 7 7 .1 6
.do..
7 2 ,1 2 0 .0 0
5 0 ,2 0 0 .0 0
4 1 ,5 4 0 .8 5
3 7 ,6 9 4 .6 1
6 ,6 4 8 ,3 1 0 .0 0
5 ,9 8 7 ,0 3 9 .2 5
5 ,3 8 0 ,9 2 0 .2 5
5 ,5 1 0 ,8 3 4 .2 6
117 ,2 8 0 .0 0
1 1 3 ,6 8 0 .0 0
107 ,14 1.8 7
1 0 8 ,4 1 0 .1 0
.do..
.do..
.do..
3 4 6 .2 1 0 .0 0
4 0 4 .3 0 0 .0 0
1 ,5 9 8 ,4 2 0 .0 0
3 3 7 .8 1 0 .0 0
3 1 6 .3 0 0 .0 0
1 ,3 5 2 ,9 2 2 .5 5
3 3 0 ,7 3 6 .9 2
2 6 6 ,4 5 0 .9 8
1 ,3 3 2 ,0 4 3 .4 8
3 1 0 ,2 9 6 .1 0
3 1 0 ,1 0 9 .5 4
1 ,3 7 9 ,1 2 7 .1 2
.do
.do
.do
.do
.do
.do
2 ,4 8 3 ,1 0 0 .0 0
9 8 6 .0 0 0 .0 0
3 3 0 .0 0 0 .0 0
2 7 2 .0 0 0 .0 0
1 9 .0 0 0 .0 0
9 2 .0 0 0 .0 0
2 ,3 8 7 ,2 5 4 .7 0
8 2 6 .9 7 2 .0 0
3 3 5 .6 0 0 .0 0
2 65 ,0 0 0 .0 0
1 6 ,5 0 0 .0 0
3 5 ,0 0 0 .0 0
1 ,9 4 4 ,9 7 3 .9 5
723,98 2.2 1
3 5 2 ,9 7 8 .2 7
2 66 ,16 6.3 6
1 5 ,5 79 .67
4 0 ,8 6 6 .5 4
1 ,9 8 3 ,0 7 2 .9 5
7 7 1 ,6 2 4 .0 8
3 7 6 ,7 4 4 .7 0
2 2 2 ,1 2 3 .3 6
1 6 ,6 7 7 .0 0
3 2 ,6 4 9 .3 1
1 ,2 2 1 ,8 9 5 .0 0
1 ,0 4 9 ,7 2 0 .0 0
9 92 ,3 9 5 .2 8
9 9 2 ,0 3 6 .6 8
Providing facilities for transportation .
Promotion of agriculture, etc.................
1 7 0 ,6 2 8 .1 8
2 0 ,0 9 1 .8 2
1 4 4 ,2 9 7 .2 0
1 3 ,1 2 2 ,8 0
1 4 7 ,10 0.4 4
1 4 ,1 89 .85
137 ,1 2 8 .6 0
1 4 ,4 2 9 .0 5
Providing facilities for transportation .
— do.........................................................
3 7 ,3 8 0 .0 0
6 5 8 ,7 0 5 .0 0
3 5 ,0 8 0 .0 0
5 8 5 ,8 3 0 .0 0
3 2 ,5 2 8 .0 6
5 2 7 ,5 7 1 .7 6
3 0 ,4 6 8 .4 8
5 4 0 ,7 8 0 .0 3
1 3 .3 9 0 .0 0
1 33 ,40 0.0 0
1 2 .2 7 5 .0 0
2 9 .4 0 0 .0 0
2 8 .1 7 5 .0 0
1 2 .4 5 5 .0 0
1 1 7 ,4 0 0 .0 0
1 0 .5 0 0 .0 0
2 2 .6 0 0 .0 0
2 2 ,5 0 0 .0 0
185.00
17 ,1 5 3 .0 0
115,50 2.1 1
,0 0 0 .0 0
1 9 ,8 31 .87
2 0 ,8 9 6 .2 4
185.00
15 ,8 3 0 .8 3
110 ,17 4.5 3
10 ,9 7 5 .5 4
18,907. 78
1 9 ,2 0 6 .1 0
185.00
10 5 ,4 4 0 .0 0
68,1 0 0 .0 0
6 2 ,5 7 0 .9 0
6 5 ,0 0 5 .0 8
2 ,0 6 0 .0 0
1 0 ,5 9 0 .0 0
5 ,2 5 0 .0 0
1 2 ,4 0 0 .0 0
9 ,1 6 6 .0 5
1 5 ,7 0 0 .0 0
1 3 ,5 4 6 .6 6
1 5 ,3 9 9 .0 0
Providing facilities for transportation.
.
.
.
.
.
.
.do.
.do.
.do.
.do.
.do.
.do.
210.00
Promotion of agriculture, forestry, and Hsheries,
and care and utilization of the public domain.
Promotion
Promotion
tions *
Care * *
of * * * Hsheries * * * ___
of friendly relations with foreign na
* *
* of the * * * dependent___
10
150.00
5 6 6 ,6 4 0 .0 0
5 4 8 ,2 4 0 .0 0
5 33 ,7 9 8 .2 1
5 3 5 ,7 7 2 .8 5
Bureau administration and other general business.......
District administration.........................................................
Inspection of hulls, boilers, life preservers, etc., and
licensing of oiHcers.
3 1 .9 4 0 .0 0
7 1 .5 0 0 .0 0
4 6 3 ,2 0 0 .0 0
3 0 .3 4 0 .0 0
7 1 .5 0 0 .0 0
4 4 6 ,4 0 0 .0 0
3 1 ,1 5 3 .6 7
6 8 ,3 4 0 .0 0
4 3 4 ,3 0 4 .5 4
3 0 ,9 5 1 .3 8
6 8 ,3 4 0 .0 0
4 3 6 ,4 8 1 .4 7
...f d o .^ ............................
-----do.................................
181
Steamboat-Inspection Service—Regulation of navigation..
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Disbursement of funds and keeping of accounts—OiHce
of disbursing clerk.
Supervision of printing and distribution of printed mat
ter—Division of Publications.
act%a% e^pe^M^t^reg/by eacA activity o/eacA &^reat^, etc.— Continued.
Estimated expenditures for—
Organization units and activities.
Bureau of Fisheries.......................................................................
Promotion of * * * fisheries * *
*
..........
1911
$209,250.00
$188,560.00
$159,340.11
$127,985.80
65.780.00
61,280.00
63,120.12
52,947.36
25,000.00
15,000.00
14,833.31
3,500.00
1,000.00
594.94
696.31
76.830.00
73.400.00
73,832.73
74,342.13
38.140.00
37.880.00
6,959.01
3,502,629.62
3,486,896.20
2,923,597.91
3,037,916.01
88.185.00
84,798.50
80,801.26
84,810.10
3,379,080.62
3,366,683.70
2,808,548.87
2,921,550.67
35.364.00
35,414.00
34,247.78
31,555.24
328,580.00
281,460.00
247,598.55
225,281.35
103.580.00
37,030.00
187.970.00
81,460.00
35,000.00
165,000.00
74,393.25
30,344.22
142,861.08
74,154.17
19,348.29
131,778.89
1,325,090.00
957,290.00
906,526.25
973,357.83
71,052.00
70.532.00
66,183.06
68,493.72
353,580.00
81.180.00
102,892.52
81,688.41
TO CONGRESS.
Division of Naturalization—Determination of rights of for
eigners to become American citizens.
Administration and other general business...................... Adjudication...............................................................
District administration......................................................... ........do............................................................................
Conducting hearings and issuing citizen papers..............
1912
FOB 1911 SUBMITTED
Bureau of Immigration and Naturalization—Enforcement of
immigration laws and providing for the advantageous dis
tribution of immigrants.
Administration and other general business—Washing Promotion of the interests of the laboring classes.
ton oiRce.
Enforcement of immigration laws—Immigration Serv
ice at Large.
Promoting the beneficial distribution of immigrants— ........do............................................................................
Division of Information.
1913
BUDGET
Department of Commerce and Labor—Continued.
Bureau of Navigation....................................................................
Regulation of navigation—
Administration and other general business—Wash Regulation of commerce...........................................
ington oiRce.
Enforcement of navigation laws and supervision of ........do............................................................................
collection of tonnage tax—Customs Service.
Admeasurement of vessels and counting of passen ........do............................................................................
gers—Customs Service.
Supervision of shipping of seamen—Shipping serv
ice and Customs Service.
Regulation of radiotelegraphic communication—In ........do............................................................................
spection Service.
Actual expenditures for—
General functions under which activities are
grouped.
1914
Administration and other general business— Washing
ton ofRce.
Operation and maintenance of vessel service...............
182
Comparative awa^ysis q/estimateJ
.do.
.do.
.do.
16,200.00
475.901.00
112.197.00
14.100.00
469,721.00
82.197.00
13,084.52
456,765.23
67,648.39
13,836.94
479,258.91
79,058. 44
.do.
.do.
86,860.00
24,020.00
84.160.00
23.820.00
85,508.96
18,686.42
107,391.22
19,167.44
.do.
.do.
.do.
.do.
12.670.00
150,010.00
11.300.00
11.300.00
12.670.00
99.010.00
11.300.00
8,600.00
12,332.87
65,605.08
9,896.71
7,922.49
5,070.94
109,919.91
8,796.15
676.20
742,200.00
586,254.30
668,045.65
424,159.39
71,635.00
102,585.00
59,355.00
131,375.00
55,090.58
236,990.71
46,093.70
40,923.37
Bureau of Standards.
Administration and other general business..................... Fixing standards of measurement.
Construction, upkeep, and operation of building, power ____do...................................................
plant, etc.
Construction of apparatus for establishing standards of
.do.
measurement and determining physical constants.
.do.
Establishing standards of measurement and determin
ing physical constants.
.do.
Investigations relative to the strength of building ma
terials.
.do.
Investigation of trade weights and measures.................
.do.
Investigating the effects of electric currents on the life
of structures, etc.
.do.
Investigation of methods of insulation for the protec
tion of persons against high potential electric currents.
.do.
Investigation of efficiency of instruments employed in
radiocommunication.
Testing Government supplies and equipment................ Contracting for * * * and inspecting sup
plies and equipment for general Government
purposes.
Bureau of the Census.
Administration and other general business..
Care and operation of buildings......................
Manufacture and repair of machinery..............................
Revision and publication of results...................................
Preparation of statistical maps, etc...................................
Taking of the Thirteenth Decennial Census.....................
Compilation of statistics of city finances (annual).........
Compilation of statistics of the wealth, debt, and taxa
tion (decennial).
Compilation of statistics of tobacco production (annual)
Collection of general statistical information—
Acquisition, maintenance, and operation of
lands, buildings, etc. ,for office purposes.
Collection of general statistical information...
____do........................................................................
------do........................................................................
____do........................................................................
____do........................................................................
....... do........................................................................
Promotion of agriculture, forestry, etc.
32,920.00
23,420.00
46,253.11
21,310.52
262,360.00
221,804.30
177,147.90
187,166.27
90,000.00
25,000.00
40,439.05
19,688.74
10,000.00
14,875.30
9,087.49
14,897.30
132,700.00
115,300.00
97,249.00
84,992.00
1,363,320.00
1,588,920.00
2,519,756.71
8,088,558.55
199,660.00
64,440.00
384,090.00
61,990.00
243,696.47
101,435.13
342,873.41
122,629.39
20,000.00
38.920.00
20.540.00
181.460.00
97.500.00
206.980.00
26,000.00
38.920.00
20.540.00
493,260.00
99.000.00
7,500.00
37,295.46
57,557.86
34,674.21
1,501,147.83
102,054.61
58,057.57
45,425.91
51,589.15
6,892,251.88
111,941.01
20.100.00
15.000.00
25,000.00
15.000.00
10.000.00
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS. 183
Propagation and distribution of food fishes—
District administration................................................
Maintenance and operation of Rsh-culture stations..
Operation and maintenance of distribution car and
distributing messenger service.
Biologic investigations relative to fishes...........................
Investigations relative to statistics and methods of the
fisheries.
Protection of Alaskan seal, salmon, and fur-bearing
animals^Administration...............................................................
Protection of Alaskan fur-seal fisheries.................
Protection of Alaskan salmon fisheries....................
Protection of fur-bearing animals of Alaska.............
Comparative awaZysis o / eatimate^
actttaZ ezpgTKii^res/or eac^ activity q / eacA &Mrea^, etc.— Continued.
---------------- ^
-----------------:----------Estimated expenditures for—
Organization units and activities.
Actual expenditures for—
General functions under which activities are
grouped.
1914
$280,700.00
19.800.00
$260,500.00
20,000.00.
60,000.00
96.620.00
10,000.00
102,120.00
1911
$235,360.96
$231,918.71
33,541.65
43,129.35
133,513.71
25,506.87
134,216.80
11,715.22
13,971.95
42,810.15
Bureau
of Foreign 315,160.00
and Domestic Commerce
296,610.36
326,728.15 (formerly
369,200.00
175,290.00
161,240.00
185,141.44
176,588.32
80.300.00
16.275.00
49.700.00
60.400.00
13.475.00
47.300.00
51,919.22
12.310.00
45.454.00
4.395.00
36,692.96
12,310.00
42,084.51
4.338.00
12.350.00
3,000.00
32.285.00
10,275.00
9.470.00
8.260.00
22,470.00
18,038.49
16,336.57
257,690.00
219,750.00
231,783.96
214,134.29
Promotion of the interests of the laboring classes.
Adjudication...............................................................
61,312.67
1,122.33
58,571.52
2,363.48
67,509.25
850.60
68,000.51
1,002.12
Promotion of the interests of the laboring classes.
189,577.00
1,168.00
3,510.00
140,487.00
1,168.00
6,160.00
159,222.70
1,168.00
2,033.41
140,862.03
1,161.86
2,107.77
Bureau of Labor............................................................................
Administration and other general business:
Portion assignable to labor investigations...............
Portion assignable to investigation of claims for
compensation.
Investigations relative to the welfare of laboring people.
Compilation of labor laws and court decisions.................
Investigation and recording of claims for compensation
under workmen's compensation act.
Adjudication................................................................
TO CONGRESS.
Bureaus of Statistics and Manufactures)—Compilation,
publication, and distribution of commercial information.
Administration and other general business (including Promotion of trading, manufacturing, and min
conduct of library).
ing.
Investigation of trade conditions and opportunities___ ........d o ............................................................................
....... d o ............................................................................
Compiling an5 publishing statistics & foreign commerce. ........do...................... .......................................................
Compiling and publishing statistics of internal com ........do.............................................................................
merce.
Collating and publishing tariffs of foreign countries....... ........do............................................................................
Collating and publishing foreign patent laws................... ........do.............................................................................
........do.............................................................................
FOR 1914 SUBMITTED
106,600.00
1912
BUDGET
Department of Commerce and Labor—Continued.
Bureau of the Census—Continued.
Compilation of the statistics of cotton production (an Promotion of agriculture, forestry, etc.................
nual).
Compilation of statistics of forests and forest products ........do.............................................................................
(annual).
Compilation and statistics of the electrical industries Promotion of trading, manufacturing, and min
(quinquennial).
ing.
Compilation of statistics of births and deaths (annual).. Promotion and protection of the public health...
Compilation of the OiHcial Register of the United States Preparation of personnel lists, etc., for general
Government use.
(biennial).
Other investigations.............................................................. Collection of * * * general statistical informa
tion.
1913
____do...........................................................................
Bureau of Corporations.
Administration and other general business.
Investigation of interstate corporations........
Children's Bureau—Investigation of matters relative to
the welfare of children.
10,000.00
Promotion of the interests of the laboringclasses.
Regulation of commerce and banking.
____do...........................................................
Promotion of the interests of the laboring classes
Other Government establishments.
Civil Service Commission—Examination and certification
of applicants for civil appointments.
Interstate Commerce Commission...........................................
Administration.......................................................................
Regulation of interstate commerce *
Undistributed (printing and binding).............................
.. ..d o ................................................................
*
Regulation of interstate transportation rates and serv
ice, with related investigations.
1,000.00
1,000.00
1,000.00
1,000.00
268,600.00
266,900.00
220,968.44
208,587. 77
65,375.00
203,225.00
61,675.00
205,225.00
56,345.41
164,623.03
56,274.35
152,313.42
46,440.00
32,140.00
33, 899, 702.23
58,277,125.02
37,933,029.71
36,092,385.35
440,075.00
360,015.00
352,277.46
328,439.86
1,790,000.00
1,840,813.68
1,578,508.90
1,395,401.92
75,000.00
75,000.00
71,805.56
73,750.00
90,000.00
90,000.00
98,993.80
97,732.15
1,250,000.00
1,300,000.00
1,117,601.09
1,084,275.59
Regulation of interstate transportation rates and
Regulation of interstate commerce *
*
950,000.00
1,000,000.00
817,540.05
789,326.63
Examination of interstate carriers' accounts...........
____do................................................................
300,000.00
300,000.00
300,061.04
294,948.96
375,000.00
375,813.68
290,108.45
139,644.18
225.000.00
150.000.00
225.000.00
150.000.00
149,791.55
117,901.97
6,702.14
108,180.25
813.68
22,414.93
24,761. 79
988,895.12
758,595.12
862,703.25
1,031,123.62
Prevention of railway accidents (totals)..........................
Regulation of interstate commerce * * *.
-----do......................................................................
investigation of accidents.
^
Investigation of block signals and control of trains...
.do.
Smithsonian Institution....................................................
Administration, and improvements to buildings .
Ethnological researches among American Indians.......
50,000.00
10,000.00
7,480.55
16,725.04
56,695.12
32,200.00
56,695.12
32,200.00
56,695.12
32,199.08
56,695.12
32,194.98
.do.
7,600.00
7,600.00
7,593.13
7,597.32
.do.
86,850.00
63,000.00
57,328.43
62,509.75
Promotion of public education and recreation
and of art and pure science.
— d o ............................................................................
-----do......................................................... .................
185
General investigation............................................................
International exchange of Government and scientific
publications.
Preparation and distribution of international catalogue
of scientific literature.
APPENDIX 1— SUPPORTING SCHEDULES TO BUDGET STATEMENTS.
Representation at International Congress of Social In
surance.
Subvention to International Association for Labor Leg
islation and representation of the United States
therein.
Oontpara%iM analyses q/
Organization units and activities.
and ar^a^ appgiMHtwesybr eacA a c ^ fy o/ eacA &t^reatt, e^c.—Continued.
General functions under which activities are
grouped.
MU
MM
00
Actual expenditures for1912
1911
$15,400.00
$18,335.92
519.500.00
446.500.00
575,901.58
724,006 49
213.850.00
120.200.00
100,170.76
114,964.60
7,000.00
7.000.00
6,998.68
3,447.92
$12,982.40
30,174,432.11
54,771,719.36
34,912,034.43
33,100,941.79
Promotion of public education and recreation
and of art. * * *
8,800.00
5.000.00
6,788.63
9,555.09
Board of Arbitration on Interstate Commerce Controver
sies—Aiding in settlement of labor disputes affecting
interstate commerce.
Promotion of interests of the laboring classes * * *
10,000.00
10,000.00
809.64
6,018.03
Office of Superintendent of State, War, and Navy De
partment building.
Acquisition, maintenance, and operation of
lands, buildings, etc., for ofHce purposes.
162.500.00
175,320.00
166,994.42
212,005.01
Alaska Railroad Commission—Investigation of transpor
tation question in Alaska.
Local government.....................................................
Lincoln Memorial Commission—Erection of memorial to
Abraham Lincoln.
Promotion of public education and recreation
and of art. * * *
Grant Memorial Commission—Erection of memorial to Gen.
UlyssesS.Grant.
Perry's Victory Centennial Commission—Erection of me
morial in commemoration of Commodore Perry's victory.
Intematinnal Irrigation Congress............................................
Districts and Territories................................................. ...........
District of Columbia.
Arizona ......................
New Mexico...............
Alaska..........................
Hawaii........... ..............
.do.
25.000.00
300,000.00
24,642.85
25,357.15
25,000.00
46,019.01
27,555.83
.do.
250,000.00
Promotion of agriculture
Local government............
.d o .
.d o .
.d o .
.do .
.d o .
!,900.00
10.000.00
6,124,508.80
5,134,223.56
5,814,309.05
5,385,488.63
6,092,758.80
5,076,073.55
17.250.00
14.500.00
14,150.00
44,000.00
5,764,659.05
1 10,000.00
1 11, 000.00
' 114,150.00
1 14,500.00
5,301,843.86
10,067.59
9,815.15
12,500.00
51,262.03
i Expenditures for 1912 not available; full amount of appropriation treated as expended.
TO CONGRESS.
Isthmian Canal Commission—Building the Panama Canal. Providing facilities for transportation..................
Commission of Fine Arts—Advice relative to the location
of statues, etc., in Washington, D. C.
FOR 1914 SUBMITTED
$15,200.00
BUDGET
Other Government establishments—Continued.
Smithsonian Institution—Continued.
Researches in astronomical physics (Astrophysical Ob Promotion of public education and recreation
servatory;.
and of art and pure science.
Acquisition and maintenance of scientific, historic, and ....... do...........................................................................
artistic collections (UnitedStates National Museum).
.do.
Acquisition and maintenance of collections of live ani
mals (National Zoological Park).
.do.
Publication of information relative to American his
tory (American Historical Association).
Estimated expenditures for—
APPENDIX 2.
THE NEED FOR THE ORGANIZATION OF A BU
REAU OF CENTRAL ADMINISTRATIVE CONTROL—
MEMORANDUM SUBMITTED TO THE COMMITTEE
ON APPROPRIATIONS OF THE HOUSE OF REPRE
SENTATIVES BY THE PRESIDENT'S COMMISSION
ON ECONOMY AND EFFICIENCY, AT THE REQUEST
OF THE CHAIRMAN.
187
APPENDIX 2.
The Need for the Organization of a Bureau of Central Administrative Con
trol—Memorandum submitted to the Committee on Appropriations of the
House of Representatives by the President's Commission on Economy and
EHiciency, at the Request of the Chairman.
Having in mind the necessity for some adequate means for keeping
the President and the Cabinet, as his advisers, currently in touch
with the doings o f the several departments, and for submitting to
Congress and the country an intelligible report on what has been
done, as well as for enabling oiEcers intelligently to formulate plans
for future work, the commission recommends some such central
organization as the follow ing:
Bureau of Administrative Control.
OHice of the Comptroller/
1. Division of Administration—
Chief clerk.
Mail, files.
Printing, stationery.
Library.
2. Division of Legal Advice—
OiRce of First Deputy Comptroller.
Law clerks.
3. Division of Auditing—
OtEce of Second Deputy Comptroller.
Auditor of Revenues and Receipts.
Customs revenues section.
Internal-revenue section.
Corporation tax revenue section.
Miscellaneous revenues section.
Cash receipts and covering warrants section.
Auditor of Liabilities and Disbursements.
Pay roll and pay voucher section.
Transportation voucher section.
Subsistence voucher section.
Telegraph and telephone service voucher section.
Printing, engraving, lithographing, and advertising voucher sec
tion.
Heat, light, power, and electrical service voucher section.
Material and supplies voucher section.
Equipment section.
Land and buildings section.
Rents and royalties.
Pensions and retirement salaries section.
Money orders and savings fund section.
i
As this would be the oHice of central administrative control, it is suggested that the
head of the ofHce should be called the Comptroller, and the other oHicers in the Govern
ment having that or similar title be given an ofRcial designation corresponding to their
duties.
189
190
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
Bureau of Administrative Control— Continued.
OfRce of the Comptroller— Continued.
4. Division of Standardization, Accounting, Reporting, and Statistics.
OfRce of Third Deputy Comptroller.
OiRce of Assistant Deputy in Charge of Standardization.
Contract forms section.
Contract speciRcations section.
Price lists and order catalogues section.
Report forms and unit§ section.
Procedures for the conduct of business and accounting.
OiRce of Chief Accountant.
Ledger section.
Registration and Rles section.
Accounting reports section.
ORice of Chief Statistician.
Operating statistics section.
Statistical reports, publications, and budget section.
5. Division of Independent Inspections and Tests.
ORice of the Fourth Deputy Comptroller and Chief Inspector.
Heat, light, power, and electrical service section.
Materials and supplies section.
Equipment section.
Construction and manufacturing section.
Taking inventories and making counts, etc.
In establishing such an organization the Division o f Legal A d
vice and the Division of Auditing may be initially constituted by
transfer of the oiRce o f Comptroller of the Treasury and the oBices
of Auditors from the Department of the Treasury to the central
bureau o f administrative control under the President.
The estimated expenditures for the next Rscal year for the oiRces
and divisions which would be transferred to such a Bureau o f Central
Administrative Control are as follows:
OiRce of the Comptroller of the Treasury_______________________________
OiRce o f the Auditor for the Treasury Department----------------------------ORice of the Auditor for the W ar Department____________________ ____
ORice of the Auditor for the Navy Department_________________________
ORice of the Auditor for the Interior Department_____________________
OiRce of the Auditor for the State and Other Departments_____________
OiRce of the Auditor for the Post OiRce Department_________________
Division of Public Moneys *___________________________________________—
Division of Bookkeeping and W a rra n ts"-------------------------------------------------
$78,
141,
308,
141,
180,
116,
629,
30,
88,
460
790
470
390
650
950
620
660
480
Total_________________________________________________________________ 1, 661,470
*
The primary work of the Division of Public Moneys is the registration and classifi
cation of certificates of deposits and other evidences of receipt; in such an organization
as is suggested this would be a part of the work in the Office of the Auditor of Receipts.
This division, however, also performs other work for the Secretary of the Treasury, such
as looking after the deposits and Government depositories, which would be retained in
the Department of the Treasury if such a change were made.
2 The primary work of the Division of Bookkeeping and W arrants in the Department
of the Treasury has to do with the keeping of such general accounts as are kept by the
Government, including a general ledger, appropriation ledgers, and accounts with dis
bursing ofHcers ; furthermore, the Division of Bookkeeping and W arrants prepares each
year the Book of Estimates and such general financial reports as are required by law to
be submitted to Congress. This division also prepares the warrants that are signed by
the Secretary by means of which money is advanced on requisitions and claims are paid.
This duty as well as some of the other work of the division would necessarily remain
in the Department of the Treasury in case the division were transferred as suggested.
APPENDIX 2— BUREAU OF CENTRAL ADMINISTRATIVE CONTROL. 1 9 1
In the opinion of the commission, if these offices were brought into
and made a part of such a bureau as is suggested, these appropria
tions would be adequate not only to do all the work which is at
present being done by them, but also all the other work which is
recommended. Moreover, it is believed by the commission that the
work o f auditing would be very much more effectively done as would
also the work o f all the other branches of the service which would be
transferred, since the auditing could be brought into proper relation
with related processes. Accounting control, auditing, standardiza
tion, bookkeeping procedures, reporting, inspection, budget making,
etc., could all be developed in such manner that each process would
become a part of a well-considered plan for providing complete,
accurate, and prompt information on each subject concerning which
data are needed, whether for protection and advice of the administra
tion or for laying before Congress a statement of affairs in any sum
mary or detail thought to be desirable.
G ENERAL S T A T E M E N T W I T H RESPECT TO T H E O R G A N IZ A T IO N OF A C EN TR AL
B U R E A U OF A D M IN IS T R A T IO N AS O U T L IN E D .
In suggesting the organization, as above outlined, several general
considerations have been present. All of the work which would be
done by such an organization is very closely related. All of it relates
primarily to the problem of central direction and control over the
administration. A Bureau of Administrative Control, such as that
recommended by the commission, would be the central information
plant for the Government. It would be the agency through which
the President would obtain currently statements of fact needed as a
means of keeping before him and his Cabinet a picture of what is
going on—what are the current problems and conditions that require
immediate consideration.
T H E S IG N IF IC A N C E OF T H E SUGGESTED A R R A N G E M E N T .
The suggested order or arrangement of the several divisions of the
proposed bureau in itself has a significance. In the opinion of the
commission the arrangement of the divisions would provide for the
development and utilization of expertness in the performance of
technical and other important work. As a means to this end the
arrangement would also provide for a system of promotions based on
merit. Considering the suggested order from the bottom up, the
thought has been that by making the fifth or last division of the
bureau—i. e., the Division of Independent Inspection and Test— the
place for beginning—provision would not only be made for central
supervision over and independent repot on the various regular depart
mental inspections and tests, but means would be provided whereby
192
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
a foundation would be laid for developing expertness in the personnel
o f the bureau. This plan would first bring the employees o f the
bureau into contact with the physical aspects of governmental activi
ties. That is, those who were employed in the " Division of Inspection
and Test" would first become personally acquainted with the condi
tions and with the technical details o f the work in the Reid.
The next step in the development of expertness on the part of the
personnel o f such an organization would be through experience in
analysis and classification o f data having to do with subjects of
standardization, accounting, reporting, and statistics. Within this
division also regard is had for the gradation o f the work on the basis
o f ability to render expert service. The highest position in the
division (under that o f the deputy comptroller) would be that of
assistant deputy, who would be charged with responsibility for the
development of such forms, procedures, catalogues, and specifica
tions as would be necessary to the standardization of information
required for effective executive direction, or for legislative review.
Correlated with the work of standardization would be the duties
and responsibilities assigned to two other officers, one of whom
would act as a chief accountant, the other o f whom would act as
chief statistician for the Government. Under the chief accountant
would be carried on all o f the technical processes necessary to cen
tral supervision and control over the production o f information
through accounts and statistical records maintained in the various
departments and establishments. The information called for by the
head o f the division having been produced under the chief account
ant, the chief statistician would be responsible for receiving these
financial and statistical reports, properly verified as to their accu
racy, and for combining these data in such manner as to produce the
reports that would be currently needed by the President and the
Cabinet. The chief statistician would also currently compile infor
mation required for the official publications. The further duty and
responsibility of the chief statistician would be to gather currently
the information needed for the preparation and submission o f an
annual budget. Thus, by developing an expert personnel in the
division o f the bureau maintained for handling the data produced
through the technical processes of accounting, experience would be
gained which would furnish the best basis for judgment with respect
to standardization of forms and the amendment of procedures neces
sary to insuring the accuracy of statements o f fact and developing
standards for reporting information needed by officers charged with
responsibility for the efficient and economic conduct of the public
business. This would be the work of the f ourth division, as suggested.
The experience which would be gained in the fourth and fifth
divisions, described would lay the foundation for the semijudicial
APPENDIX 2— BUREAU OF CENTRAL ADMINISTRATIVE CONTROL.
198
function to be exercised in the third, or Auditing Division. In
suggesting this arrangement of the work it is assumed that an
auditor should not only be able to pass on the formal aspect of a
voucher or other claim, for or against the Government, which came
to him for his official scrutiny and review, but he should also know
what is the weight to be given to the evidence that accompanies each
claim—whether it is adequate to proof—and what is necessary to
the verification of summaries of fact produced through the accounts.
Ranking above the third or Auditing Division would be the division
which would be responsible for giving legal advice—a function simi
lar to that at present performed by the Comptroller of the Treasury.
In the opinion of the commission this oiHce should not be a branch
of the Treasury, and this view is supported by the Comptroller. (See
page 212 hereof.) That officer, however, has expressed the view
that his ofRce should be responsible primarily to Congress instead
of the Chief Executive. This leaves out o f consideration the di
rect bearing o f such an agency on the work of a Central Bureau
of Administrative Control. As the constitutional head of the admin
istration the President should be responsible for developing all of
the information needed for executive direction and control. One of
the necessary elements in administration is the interpretation of
authorizations to spend. Some one in the administration must assume
this responsibility currently as questions arise. As has been said, the
exercise of central executive control is one of the constitutional duties
which devolve on the President under the Constitution, and this can
not be done without an agency which is technically equipped for
providing the data needed. This is the one thing that is uniformly
lacking in the Government. Such an agency must necessarily be
provided with the means for interpreting the law so far as it may
affect the accounts. Given a means whereby information may be
regularly, currently, and accurately produced about what is going
on ; given a means for providing the Executive with the reports which
are essential to efficient and economical management, and the agency
which is so equipped must of necessity produce the information which
is needed by the legislature to effectively and intelligently review the
actions and transactions of executive departments. In case it may
be found that any added information may be desired by Congress
that is not a part of the reports which the Executive needs to have
regularly made available, then the same agency which is responsible
for keeping accounts and rendering current reports can readily fur
nish any further details which are desired. The trouble in the past
has been that neither the Executive nor the Congress has been pro
vided with an agency of this kind.
H. Doc. 1435, 62-3------ 13
194
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
R E L A T IO N OF S U C H A N A G E N C Y TO CONGRESS.
The establishment of such an agency, however, would not in any
manner preclude Congress providing any further or independent
means for developing information or for investigating the work per
formed and expenditures made under the Executive which might
serve its purposes, either through committees of Congress or through
a bureau o f legislative reference, such as has been proposed, and
which was deBnitely recommended in the Nelson bill submitted to
Congress during the last session.^
Furthermore, the appointment of the head of a bureau of adminis
trative control would properly be with the advice and consent of the
Senate. In the view of the commission, the law creating such a
bureau should prescribe the qualifications of officers in charge of the
work in such terms as to preclude appointments of persons for po
litical reasons—persons who had not had experience or training
which would qualify them as experts. Again, a very definite pro
vision should be made for testing the qualiRcations of applicants for
appointment and for promotion based on records of efficiency that
would be positive in character. This is a service that is essential to
efficient Government; it is a service such as has been found necessary
to the intelligent management o f corporate affairs, both public and
private. To continue to prosecute the largest, the most complex, the
most highly technical, the most widely scattered business that has
ever been organized without any provision made for expertness in
management can have only one result—increasing disappointment in
public officials, increasing popular unrest. A summary of the reasons
urged by the commission for the creation of a central bureau are
given below:
REASONS FOR R E C O M M E N D IN G
A
C E N T R A L D IV IS IO N
OF
A U D IT .
The reasons for recommending the transfer of the offices of Comp
troller o f the Treasury and the auditors to a central bureau of
administrative control are tw o:
1. The chief subject concerning which legal advice is given by the Comptroller
of the Treasury pertains to the audit of accounts or the construction
which is to be put on the conditions attached to authorizations governing
the administration of funds. The one who is responsible for making
decisions of this kind should not be subordinate to the head of a single
department, and especially to the executive ofRcer who is responsible for
the collection, disbursement, and safe keeping of funds.
2. The chief work of the " auditors " is to make an independent review und
audit of the receipts of the Treasury, of disbursements of fiscal officers.
i Hearings before the Committee on Library in relation to H. R. 18720, 62d Cong., 2d sess.
APPENDIX 2— BUREAU OF CENTRAL ADMINISTRATIVE CONTROL. 1 9 5
The ofRcers who make such review and audit should not be under the
direction and control or subject to any kind of discipline from the head
of a department, and especially from the chief executive officer of the
Treasury, the actions and transactions of whose subordinates are to be
critically reviewed.
The soundness of these conclusions has already been recognized in
the law governing the ofHce of the Comptroller of the Treasury and
the auditors for the several departments. Inconsistency, however, is
found in the fact that these principles have not been recognized as
a matter of organization for doing work. Notwithstanding the inde
pendence which is given in law to the exercise of controlling and
auditing powers, the organization through which the powers are to
be exercised is placed under those whose ofHcial acts are to be scruti
nized. In such an organization, whatever be the desire to be inde
pendent, there is a certain discipline which may be and is exercised
over the personnel through appointment, promotions, demotions, and
other means, that tends to defeat the purpose of the law. Not only
do these functions properly belong to a central administrative group,
such as that to which they are assigned in the outline of suggestions
above made, but to leave them out of this group would, in a measure,
defeat the purpose of a central controlling organization. I f the
President is to assume responsibility for the exercise of direction
and control over the several departments and branches of the service,
he and his Cabinet must have before them an accurate statement of
facts; if the President is to assume responsibility for the fidelity of
employees in the executive branch, he should have an independent
means for determining where infidelity exists. The function of
auditing goes to both of these questions; i. e., to determining whether
facts are accurately stated, to determinations of the fidelity of persons
intrusted with custodianship.
Another subject which is deserving of most serious consideration
is the present and the proposed central audit service within itself.
At the present time the central audit service of the Government is
organized as follow s:
Auditor
Auditor
Auditor
Auditor
Auditor
Auditor
for the Treasury Department.
for the W ar Department.
for the Interior Department.
for the Navy Department.
for the State and Other Departments.
for the Post OiRce Department.
From this it will be seen that the present organization of the
central audit service of the Government is along department lines,
while the suggested' organization is based on a classification of the
claims for and against the Government which are to be audited.
The present organization has already been made a subject o f report
196
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
by the commission, in which it is recommended that the six offices
above listed be consolidated.^ The reason assigned for this consolida
tion is not only that it would add to the efficiency with which the
work may be done but also that there would be a direct economy of
not less than $100,000 a year by so doing. The outline which is
shown above carries the conclusions of the commission a step far
ther and indicates the kind oT organization whi^h should be pro
vided after consolidation.
The commission is o f the opinion that the value of the audits by
the central ofEces of the Government would be very much greater if
the claims were so subdivided and classified as to enable the auditors
to develop a high degree o f expertness, and at the same time to estab
lish uniformity in practice in respect to each class of claims to be
audited. This not only would facilitate the audit itself and add
]argely to the efficiency of each auditor, it would also make possible
decreasing the cost very much more than was indicated in the report
above referred to. The estimate of savings indicated in the report
of the commission recommending the consolidation of the auditors'
offices was based on the obvious eliminations that would result from
centralization. By providing an internal organization of a single
auditing ofRce as indicated above, there would be added savings of
two kinds:
1. Those which would result from enabling each oHice to adopt for itself a
kind of mechanical and otRce equipment best suited to its purpose; and
2. Those which would result from enabling the central oRice to relieve many
of the other oHices from administrative examinations now required, or
at least regularly made.
As a matter o f fact, officers are gradually recognizing the need
for such an organization. A large part of the transportation claims
are now being settled in the office of a single auditor without regard
to the department organization in which these claims have
arisen. The Pension OiRce is another illustration o f a specialized
agency for the audit of pension payments. A part o f its organiza
tion is devoted to establishing the right of an applicant to receive
a pension. But outside of this work, which results in the placing
of the names o f pensioners on the rolls, the other functions o f the
office have to do with the making of disbursements and with the
audit o f the accounts current of the disbursing officer. Within
each of the departmental auditors' offices there is also found a
recognition of the need for classification. For example, the office
*
Report on the accounting oiiices of the Treasury, with recommendations for the con
solidation of the six auditors' oRicos in one, submitted to the'P resident Nov. IT, 1911,
approved by the President, and transmitted to Congress by special message Apr. 4, 1912
(H . Doc. No. 670, 62d Cong., 2d sess., p. 8 9 9 /.
APPENDIX 2— BUREAU OF CENTRAL ADMINISTRATIVE CONTROL.
197
o f the auditor for the Treasury Department is organized as fol
lows:
Auditor /or t7?e Treason/ Department;
OfRce proper of the auditor.
Law clerk.
Rate section.
Customs Division.
Liquidating section.
Other.
Internal-Revenue Division.
Mails.
Other.
Public Debt Division.
Files.
Other.
Miscellaneous Division.
In this oiRce it is found that a large part of the time of auditors
is devoted to the audit of revenues. The organization suggested
is one in which there would be an oiRce for the audit of revenues
and receipts as distinct from the audit o f disbursements.
Another example is found in the ofRce of the Auditor for the Post
OiRce Department. The organization of this otRce is as follow s:
A%<Mtor /or t7i,e Post
Dep%rtwe%t.*
General administration.
Office proper of the auditor.
Assistant and chief clerk.
Law clerk.
Rate section.
Expert accountant.
Division of Postmaster's Accounts.
OfRce proper of chief of division.
Assistant.
Voucher section.
" Late " section.
Division of Warrant Payments.
OfRce proper of chief of division.
Tabulating and bookkeeping section.
Division of Money-Order Auditing.
OfRce proper of chief of division.
Auditing section.
Miscellaneous section.
Division of Money-Order Accounting.
ORice proper of chief of division.
" Round Table " section.
" OfRce " section.
From this it will be seen that there are four distinct classes of
auditors provided for by organization.
Such a subdivision in organization for auditing would also adapt
itself to the administrative work in the several departments having
198
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
to do with the making of requisitions, the issuing of orders, the veri
fication of receipts of stores, materials, equipment, etc., the prepara
tion and certification of vouchers; that is, by promulgating an order
that would require that separate orders, invoices, and vouchers should
be prepared for each different class of accounts represented in the
organization of the central auditing ofRce, the accounting work in
the department as well as the work in the auditing oiRce would be
facilitated. Such a classification would also fit in the classification
and analysis of revenue and expenditure accounts kept in the several
departments for purposes of current administrative control over cost
of work in progress, purchases, stores, etc.
As has been said, the Division o f Legal Advice and the Division of
Auditing would be established by transfer of the ofRces of the Comp
troller of the Treasury and the six auditors from the Treasury De
partment. The other divisions which are suggested for a central
bureau of administrative control under the Executive are those
having to do with problems of standardization, accounting, report
ing, statistics, budget making, and independent inspection.
R EASONS FOR R E C O M M E N D IN G A C E N T R A L D IV ISIO N OF S T A N D A R D IZ A T IO N .
As has been said, the reason suggested for an independent Division
o f Standardization, Accounting, Reporting, and Statistics is that
these at*e all correlated subjects and, as a matter o f coordination of
work, should be brought under a single administrative head. W ith
out some organization which will assume control over the subject of
standardization of contract forms, standardization o f specifications,
standardization o f price lists and catalogues to be used in making
requisitions and issuing orders for purchases, without an organiza
tion for establishing standards to be used in the making of reports
as a basis for judgment with respect to the economy and efRciency of
results obtained, each o f the several operating divisions o f the service
will develop these essential factors along its own lines. Instead of
laying the foundation for judgment by standards that are uniform,
there will be the same confusion and lack of systematic consideration
as at present obtains. There can be no doubt that some organization
o f this kind should be provided. In the opinion of the commission
it should be organized under the Chief Executive instead of being
organized in any one o f the several departments. The establishing
o f standards as a first step toward Executive control belongs very
properly in a central bureau of administration. The first step toward
the organization o f such a section would be to transfer the work of
the General Supply Committee and the work of the Surety Bonds
Division from the Department of the Treasury.
APPENDIX 2— BUREAU OF CENTRAL ADMINISTRATIVE CONTROL. 1 9 9
REASONS FOR R E C O M M E N D IN G
A
CE N T R A L
A C C O U N T IN G
AND
REPORTING
D IV ISIO N .
The reasons for recommending the establishment of a central in
dependent accounting division as a part of the bureau of central
administrative control would seem to be obvious. The need for
such an organization is emphasized by the kind o f accounting and
reporting which has been developed under present law. From the
beginning the Department of the Treasury has had the power to
develop an efRcient accounting and reporting service for the Govern
ment as a whole. But the primary interest of the Department of
the Treasury has been that of administration over funds and deter
mining the fidelity of custodians of money. It has not had any
particular interest in knowing the man-day cost of operating a mess,
or the mule-day cost of operating a corral, or of the cement-yard
cost of lining a tunnel. Although within the Treasury Department
there have been a number of operative services, such as public build
ings, life saving, public health, etc., the predominant interest has
been such that for these services there have never been any forms of
records or reports which would regularly bring to the attention of
executive ofRcers facts necessary to exercise judgment about the
economy and etRciency of management. Notwithstanding the fact
that under section 5 of the Dockery Act it was made the duty of the
Comptroller of the Treasury, under the direction of the Secretary
of the Treasury, to " prescribe the forms of keeping and rendering
all public accounts, except those relating to postal revenues and ex
penditures," this prescription has not been followed. Until within the
last two years practically no attempt was made to do anything except
to take cognizance o f the form of accounting between the Treasury
and the disbursing otRcer in his fiscal relations. Similar results have
been experienced in large corporations where originally the account
ing was organized under the treasury. This has caused them to
establish central independent ofRces of accounting and auditing con
trol and to place at the head of this work an independent comptroller,
who reports currently to the President and annually to the board.
In the opinion of the commission, the only way to develop a system
o f controlling accounts through which a complete, accurate, and
prompt statement o f facts may be made available with respect to
every subject in which the Executive may be interested is to have
such a system evolved under the executive oiRcer who is responsible
for the manner in which the business is done.
REASON FOR R E C O M M E N D IN G A C E N T R A L D IV ISIO N OF STA TISTICS A N D
BUDGET M A K I N G .
The reason for suggesting a division in a central bureau o f adminis
trative control which would have charge of the assembling of statis
200
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
tics and preparation o f the budget is that the Division of Accounting
and Reporting would be primarily interested in the development of
information through accounts, and in making only such information
available as may be reported from accounts. The data which may be
furnished through accounts must necessarily be financial, or capable
of being stated in terms of dollars and cents. In other wwds,
accounts are based on the classification of facts which may be repre
sented in terms of a common denominator, and that common denomi
nator indicated by the dollar sign. Both the accounts kept and the
statistics collected should bear a direct relation to the units or stand
ards established as a basis for administrative judgment, but some
organic means must be provided for bringing them together and re
ducing them to a basis for comparison. The accounts themselves
mean very little without interpretation. The statistics are the neces
sary complement. Such a division is also needed to perform the
function o f bringing together the necessary information for prepare
mg the summaries and supporting documents to be submitted with
the budget. That is to say, if the President is to assume responsi
bility for preparing and laying before Congress a definite, concrete
proposal in an understandable form at the beginning of each session,
such proposal should be formulated in a central ofRce which is re
sponsible directly to the President and not under any one depart
ment.*
The need for providing central accounting and control, as well as
for an agency through which statistical information may be currently
developed, is forcibly illustrated in the experience o f the President in
trying to get together the information necessary to submit a budget.
As is set forth in the report of the commission on " The Need for a
National Budget," ^ it is thought that the least information which
should be made available to the Executive as well as to Congress is
the following:
1. Summary financial statements which will show—
(a ) The current fiscal condition.
(&) The condition of appropriations, special funds, trust funds, sinking
fund, etc.
(c) Government operations in terms of receipts, expenditures, and sur
plus or deRcit.
(d) The present condition of the surplus as well as the effect on the
surplus of the estimate submitted.
2. Summaries setting forth the results of Government contracting and pur
chasing relations.
3. Summaries of estimates setting fo r th :
(а ) The estimated revenues and borrowings.
(б ) The estimated expenditures and date of payments.
i Paper read by chairman of the commission on " The budget as a means for locating
responsibility " : Proceedings of the Academy of Political Science of New York, October,
1912.
3 H. Doc. 854, 62d Cong., 2d sess.
APPENDIX 2— BUREAU OF CENTRAL ADMINISTRATIVE CONTROL.
201
3. Summary of estimates setting forth— Continued.
(c) Such analyses of estimates as are necessary to the consideration of
questions of policy pertaining to the next year's financing.
4. A consolidated financial report for the Government as a whole which would
be in the form of supporting schedules of details to the summaries sub
mitted in the budget.
5. A Book of Estimates setting forth for each organization unit a detail
classification of expenditures for each kind of work done, as well as detail
estimates based on the judgment of officers as to the future needs of each
service.
In preparing the report above referred to, the question as to what
would be the minimum amount of information required was not only
gone into with the President and administrative oiRcers, but was
considered at length by a board of consulting experts. The conclu
sion was reached, unanimously, that less information than would be
called for by the foregoing outline would leave the otRcer who is
responsible for judgment with respect to future plans seriously hand
icapped; in fact, would leave him without the facts necessary to a
well-considered conclusion.
Following the submission of this report, the President, on July 10
last, issued a letter to heads of departments and establishments, as
follow s:
It is my desire to send to Congress at the same time that the Book of Esti
mates for the fiscal year 1914 is presented by the Secretary of the Treasury a
budget along the lines set forth in my message to Congress of June 27 last.
In order that this may be accomplished, it will be necessary for the head of
each executive department and other Government establishments to prepare two
sets of estimates and summaries of estimates— one in accordance with the
present practice and one substantially in accordance with the forms contained
in the report of the Commission on Economy and Efficiency, which was sent to
Congress with my message.
It will be necessary also for the head of each executive department and other
Government establishment to depute some officer whose duty it shall be to
see that the estimates and summaries of estimates for the year 1914 are pre
pared in the form referred to and are transmitted to the W hite House at the
same time the official estimates are transmitted for my consideration before
being sent to the Treasury. I request that you send to me the name of the
officer you appoint for this purpose and that such person so designated be
instructed to confer with the Commission on Economy and Efficiency with
respect to the manner of preparing and reporting the information desired.
A copy of the form on which these estimates are to be prepared, with the
necessary instructions, may be obtained on application of your representative at
the office of the commission.
Furthermore, some of the departments understanding that the
information might be required, had undertaken to prepare for it by
getting the work under way before the letter of the President was
issued. This letter was in the nature of a call for all of the informa
tion which was required by the special message which was sent to
Congress on June 27th. and which in itself showed the requirements
as above outlined. The matter was also taken up with the Cabinet
202
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
and by the Cabinet was taken up with heads of bureaus, urging the
necessity for fullest cooperation in the matter. Notwithstanding
this early beginning, a large part o f the information called for did
not reach the White House until the middle of December.
The reasons for this delay may be fully appreciated when it is
said that the records and reports of the Government as at present
kept and made do not provide for furnishing a complete statement
of facts on any of the subjects listed, the result being that it was
necessary for the commission to prepare special forms on which each
of the departments and services were asked to report the information
requested. In other words, practically all of the information which
was thought to be necessary to the preparation of the budget had to
be prepared as a result of special requests.
What was involved may be more concretely shown by reference to
the requests issued for a statement of facts which would set forth
the condition of appropriations as of June 30, 1911, and June 30,
1912. The hypothesis or theory on which the forms requesting in
formation were drawn was that each act of appropriation carries
with it the following authorities:
1.
2.
8.
4.
An
An
An
An
authority and duty to allot all general or lump-fund appropriations.
authority to incur liabilities.
authority to draw and approve vouchers for payment.
authority to advance money from the Treasury to disbursing oiBcers under
certain appropriations.
5. An authority to make direct settlements at the Treasury under certain other
^ appropriations.
6. An authority to disbursing ofHcers to draw checks and to make payment of
claims which had been approved by heads of departments.
The need for having exact information with respect to each of
these authorities may be understood when it is said that ofHcers are
limited in each of their authorities to the amount of each appropri
ation, and furthermore, in each instance, it is a misdemeanor to ex
tend their authority in acting under the appropriation.
Notwithstanding this very evident necessity for complete, accurate,
and prompt information with respect to appropriations, and not
withstanding the fact that the subject of appropriations is the only
one concerning which accounts are kept, it was found that few
offices of the Government have made provision for giving information
with respect to each of the authorities enumerated. In a few ofRces
accounts are kept from which all the balances are exactly shown. In
some only a memorandum is kept o f the cash which has been ad
vanced from the Treasury.
Under these circumstances, and considering the great variety of
methods employed, the commission in preparing its form which
called for all o f this information about appropriations accom
APPENDIX 2— BUREAU OF CENTRAL ADMINISTRATIVE CONTROL.
203
panied it with an instruction that all of the columns should be filled
in ; that in so far as accounts were kept the results should be stated
from the accounts; that in so far as accounts were not kept and the
cost o f the work necessary to obtain exact information would be
prohibitive, the balances should be estimated as of the dates called
for. The reports received by the commission are the 6rst reports
that have ever been made, the aim of which is to get a complete
statement o f the status of appropriations as o f a particular date.
These returns are partly correct and partly a guess. They have been
used in the budget statement (No. 2) which is submitted to Congress
by the President as the best information that could be obtained on
the subject of the condition of appropriations as of July 80, 1912,
within the Rve months during which the work of collecting budget
data was in progress/
As has been said, the methods which were employed for getting
information on all the subjects which have been listed above as cover
ing the minimum requirements for budget making were similar to the
method which is above described. This must necessarily continue
to be the result so long as no central agency is provided to the Gov
ernment for regularly getting together and making available data
of this kind. Furthermore, it may be said that when such a central
agency is provided and adequately manned and equipped all of this
information which was got together, partly through the accounts
and partly through guesses of employees, in December should be
available as an accurate statement of fact in July, thereby giving
to the President and other executive oiHcers four months within which
to consider the proposals which would be sent to Congress.
T H E R EASON FOR SUG GESTING A D IV ISIO N
OF IN D E P E N D E N T IN S P E C T IO N .
The reason for suggesting the organization of a division for inde
pendent inspection and tests is similar to that which had already been
urged for the transfer of the auditing service from the Treasury to
the Central Bureau of Administrative Control answerable directly
to the President. In a broad organization, such as that of the Gov
ernment, it goes without saying that an executive oiRcer can not
keep in personal contact with every part of the business for which he
is responsible. In fact, as his jurisdiction extends it becomes more
diiRcult for him to come in contact with any considerable part of
the work in hand. In order that he may know what is going
on and obtain a basis for judgment in the settling of questions of
policy, or for giving direction, the Executive requires inspectors who
i Paper by the chairman of the commission, read before the American Political Science
Association, Boston, Dec. 28, 1912, on " How we have been getting along without a
budget/'
204
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
may serve the purpose of eyes. It is through inspectors that he must
obtain an independent first-hand knowledge o f what is going on.
The " account" and the " report" rendered by the department must
be based on what the person in charge of work says he is doing. In
other words, the inspector is the one on whom the administrator must
depend for verifying the accuracy of, or enlarging on, the statements
of fact which are submitted to him by his subordinates. As a matter
o f central administration, it is therefore suggested that a division o f
independent inspection and tests be established which would enable
the comptroller, or head o f the Bureau of Administrative Control,
to make tests with respect to any class of facts concerning which he
may desire to have first-hand knowledge. This would include the
inspection and testing of materials and supplies purchased, inspec
tion and testing of construction in progress, the taking of inven
tories on reported balances o f stock, cash on hand, etc. A few per
sons thus employed as independent inspectors and stock takers will
be the means of establishing discipline and enforcing Executive con
trol over a very widely scattered and complex service.
CO N C L U SIO N S SUPPORTED B Y E X P E R IE N C E OF O T H E R N A T IO N S .
By those who may take issue with the conclusions of the commis
sion in this respect it may be urged that the Bureau of Administra
tive Control logically belongs in the Treasury and that this conclu
sion is based on the experience of nations such as Great Britain.
While at first blush such a suggestion seems to carry with it the au
thority of experience, it does not bear analysis. In fact, the ex
perience of Great Britain and of other parliamentary countries sup
ports the conclusions of the commission as above outlined. In Great
Britain the prime minister is the effective head o f the administra
tion. He is also, with rare exceptions, first lord o f the treasury.
The prime minister of England, therefore, has built up in the bu
reaus and divisions of the treasury an organization for doing prac
tically all the work which is here suggested for the President as
Chief Executive. Furthermore, it is within the treasury of Great
Britain that the civil lists are established and the work carried on
which corresponds to the work above outlined in relation to the recom
mendation o f the commission that there should be a central " bureau
o f personnel." As one goes into the history o f parliamentary gov
ernments, it is found that practically all of their experience sup
ports the recommendations of the commission—that the executive
head should be provided with an independent organization for exer
cising control both over the subject of the efficiency of the personnel
and over the character of the results obtained in the several de
partments.
APPENDIX 2— BUREAU OF CENTRAL ADMINISTRATIVE CONTROL.
205
In addition to the reasons already given, the mere fact that every
four years a new Chief Executive must be elected would seem to
be adequate reason for the development and maintenance of an
expert service with a technique of control that will enable the newly
elected President to obtain the information essential to management.
Without such an organization the Government must continue to
develop along the lines that it has followed in the past, viz, lines
of congressional control, anil isolated, independently functioning,
bureaucratic administration, with all of its frictions, its jealousies,
its handicaps, its wastes, its lack of responsibility for work under
taken and for the eiRciency of results obtained. Even if the per
sonnel of Congress were relatively stable and such expert knowledge
of administrative requirements as is essential to intelligent direction
might be developed in the membership of committees, still the only
control that could be exercised under our Constitution would be
through legislation and through appropriations. There is no con
struction o f our fundamental law which admits of a member of a
committee of Congress, or of Congress itself, assuming executive
functions. The result is that at best Congress can not do more than
develop around itself a corps of clerical experts who, once a year,
may inform Members with respect to the doings of departments, and
this information can not be conveyed to Congress until at least six
months after the happening of events to be controlled. It is then
too late for any action to be taken except that which looks toward
the future. Unless the executive branch is provided with the means
for eiRcient direction and control over current business the manage
ment of public atfairs must become increasingly incompetent and
wasteful as the business of the Government expands and expenditures
mount up each year by added millions.
APPENDIX 3.
REPORT CONTAINING RECOMMENDATIONS OF
OFFICERS OF THE SEVERAL DEPARTMENTS
FOR CHANGES IN LAW AFFECTING THE OR
GANIZATION, WORK, PERSONNEL, AND BUSI
NESS METHODS OF THE GOVERNMENT, PRE
PARED IN RESPONSE TO SPECIAL INQUIRY
OF THE PRESIDENT.
207
TABLE OF CONTENTS.
Changes in law thought to be desirable relating to organizations________
Changes in law thought to be desirable relating to work___________________
Changes in law thought to be desirable relating to unclassiRed civil
service_________________________________________________________________r______
Changes in law thought to be desirable relating to the present classi
fication of the civil service_________________________________________________
Changes in law thought to be desirable relating to the examination of
applicants________________ ^____________- _____________________________________
Changes in law thought to be desirable relating to the making of appoint
ments_________________________________________________________________________
Changes in law thought to be desirable relating to discipline of employeesChanges in law thought to be desirable relating to Rdelity of employees-Changes in law thought to be desirable relating to promoting individual
eRiciency________________________________________________________ ;_____________
Changes in law thought to be desirable relating to the making of pro
motions_______________________________________________________________________
Changes in law thought to be desirable relating to granting of transfersChanges in law thought to be desirable relating to the making of detailsChanges in law thought to be desirable relating to salaries paid___________
Changes in law thought to be desirable relating to retirement___________
Changes in law thought to be desirable relating to the granting of annual
and sick leave_____________________________ __________________________________
Changes in law thought to be desirable relating to other subjects con
cerning personnel and working conditions________________________________
Changes in law thought to be desirable relating to the central purchase
of supplies------------------------------------------------------------------------------------------------------Changes in law thought to be desirable relating to departmental contract
ing and purchasing___________________________________________________________
Changes in law thought to be desirable relating to making payments on
pay rolls, vouchers, claims, etc______________________________,_______________
Changes in law thought to be desirable relating to expenditures for travel
and subsistence_______________________________________________________________
Changes in law thought to be desirable relating to examination and audit
ing of pay rolls, vouchers, and claims______________________________________
Opinions pertaining to the certiHcation at present required on travel and
other vouchers, known as the jurat________________________________________
208
Page.
212
230
261
265
274
277
280
281
288
284
287
290
291
298
302
305
.
310
317
322
325
329
331
APPENDIX 3.
Report containing Recommendations of Officers of the Several Departments
for Changes in Law AEecting the Organization, Work, Personnel, and
Business Methods of the Government.
WASHINGTON, D. C.,
The PRESIDENT: For your information, we are transmitting a
digest o f the recommendations o f ofRcers of the several departments
and establishments for changes in law pertaining to the organization,
work, personnel, and business methods of the Government.
INTRODUCTORY NOTE.
The digest o f recommendations hereto attached was prepared by
the commission from returns made by the several ofRcers of the
Government in response to a letter of the President, under date of
November 1, 1912, which follows:
DEAR MB. SECRETARY: One of the essential features of the budget which I am
planning to submit to Congress next December is a summary of changes in laws
which are thought to be desirable with a view to increasing the economy and
eRiciency with which the business of the Government may be transacted. I
also have in mind preparing a special message, in which, among other things,
I desire to call attention to the need for changes to be made in the form of
and conditions attached to appropriations.
I am asking therefore that you prepare and send to me before November 15
such constructive suggestions as the ofRcers of your department may wish to
have submitted for the consideration of Congress, to the end that they may be
relieved of any of the restrictions or annoyances which in the past have stood
in the way of obtaining the best results.
I request that you send to me such parts of your annual report, as well as
such parts of reports of other executive oiBcers under your jurisdiction as
contain critical or constructive suggestions or recommendations, since it is my
desire to have these views considered by the Cabinet before they are published.
Very sincerely, yours,
WM. H. TAFT.
NOVEMBER 1, 1912.
In order that each oiRcer might have before him a common list of .
points to be covered, the commission was asked to prepare a question
naire to supplement the general request of the President. The form
o f the memorandum sent out is shown below:
I. Changes in statute law :
1. W hat changes in law relating to the organization of your department
or establishment do you think desirable?
2. W hat further legal provisions, if any, should be enacted for the beneRt
of the bureau, oRice, or other subdivision of the work for which you
are responsible?
H . Doc. 1435, 6 2 -3------- 14
209
210
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
I. Changes in statute law— Continued.
3. W hat changes in law pertaining to the personnel of the service do you
think desirable, and particularly in relation to—
a. Unclassified civil service.
&. The present classification of the civil service,
c. Examination of applicants.
(Z. The making of appointments,
e. Discipline of employees.
Fidelity of employees.
Promoting individual efficiency.
/t. The making of promotions,
t. Granting of transfers.
The making of details.
A*. Salaries paid.
%. Retirement.
m. The granting of annual and sick leave.
%. Other subjects relating to personnel and working conditions.
4. W hat changes in law to do you think desirable pertaining to the fol
lowing subjects:
a. The central purchase of supplies.
&. Departmental contracting and purchasing.
c. Making payments on pay rolls, vouchers, claims, etc.
d. Expenditures for travel and subsistence.
c. Examination and audit of pay rolls, vouchers, and claims.
5. In your opinion, does the certification at present required on travel
and other vouchers, known as the " ju rat," cause an unnecessary
annoyance to the service which should be eliminated?
II. Changes in form and conditions attached to appropriations:
1. W hat appropriations affecting your work should be " lump sum " and
what should be "d e t a ile d "?
2. I f Congress should make lump-sum appropriations for each general
class of work and should pass a law requiring that each lump-sum
appropriation should be definitely allotted by the head of each
department for each subdivision of work to be done before lia
bilities are incurred or expenditures are made, would this, in your
opinion—
n. Give to the head of the department the power to exercise
discretion in the use of funds such as is necessary in order
to enable the officer to transact the business of the Govern
ment more efficiently and economically?
&. Better correlate the work of the department by requiring the
heads o f bureaus and subdivisions to obtain the approval of
the head of the department or establishment on allotments?
c. Better provide for the location of responsibility for inefficiency
and waste, as well as for giving credit to officers who are
efficient?
(%. Enable officers to lay before Congress a better account of
stewardship and better information with respect to the needs
of the service than are at present provided under detailed
appropriations?
3. I f you think changes should be made in the conditions attached to
appropriations, specify exactly what, in your opinion, these changes
should be.
APPENDIX 3— RECOMMENDATIONS FOB CHANGES IN LAW.
211
II. Changes in form and conditions attached to appropriations— Continued.
4. Should appropriations authorizing payment of specified salaries be
considered as the maximum to be paid, thereby enabling the execu
tive officer to obtain employees at a less salary, if he may think
desirable?
5. Do you think it desirable to have the salaries for each bureau or
other general organization unit, for 1914, appropriated in a lump
sum, with discretion in the President to reclassify and regrade the
service within the year for which the appropriation is made?
The digest which is attached covers only the recommendations made
with respect to the first general subject, namely, changes in law as
distinguished from the second part of the questionnaire which dealt
with the changes in form and conditions attached to appropriations.
The digest covering the second subject referred to will be submitted
later.
Respectfully submitted.
FREDERICK A. CLEVELAND,
W. W. W A R W IC K ,
M . O . CHANCE.
A N SW ER S TO QUESTION 1.
CHANGES IN LAW THOUGHT TO BE DESIRABLE RELATING TO
ORGANIZATIONS.
STATE DEPARTMENT.
For Me gre^era? administration;
W ith reference to the department, none.
/'o r t^e Diplomatic Service;
W ith reference to the Diplomatic Service, it is very desirable that the law
should be changed so as to cause appointments as secretaries in the Diplomatic
Service to be made to grades rather than to places, so that ofRcers of different
grades of competency and experience may be employed where they are needed
without change in compensation, and without a recommission and renomina
tion to the Senate each time a change of post is made. W ith such a classiRcation, new appointments and nominations to the Senate would be needed only
upoh a change in grade. (See H. R. 20044, 62d Cong., 2d sess.)
For Me <7o%s%%ar Service;
W ith reference to the Consular Service, it is very desirable that the law
should be changed so as to cause consular appointments to be made to grades
rather than to stated places, so that officers of different grades of competency
and experience may be employed where they are needed without change in
compensation, and that offices which have become unnecessary may be closed
and other offices established in other places where consulates are necessary
without the delay incident to congressional action.
/'o r t%e mi#ce77a%eoi%s; (No comment.)
TREASURY DEPARTMENT.
Oj^ce o / Me Secretary— Division o / it/ait and F%es; None.
Oj0%ce ojf ComptroMer o / Me Treasury;
I think it desirable that the office of the Comptroller of the Treasury be
made independent and report directly to Congress.
Division o / P%&?ic i!ione%/s;
a.
Certified checks should be made acceptable in payment of any and all
dues to the Government under regulations prescribed by the department. They
are now limited to duteis on imports and to internal taxes.
&.
Sections 3646 and 3647, Revised Statutes United States, as reenacted and
amended by the act of February 23, 1909, should be further amended by a
provision that when the lost, stolen, or destroyed check does not exceed in
amount the sum of $5, no bond of indemnity shall be required.
0#%ce o / Commissioner o / 7nterna% RercMne;
The importance to the General Government of the Bureau of Internal
Revenue has increased considerably in the last few years, and it seems clear
that its importance will still further greatly increase in the near future. The
212
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
213
general internal-revenue system is, from a collection standpoint, a most ad
mirable one. Its greatest defect is the lack of continuity of interpretation and
enforcement of laws. There is no question but that the difference between a
loose enforcement of the internal-revenue laws and a strict enforcement of the
internal-revenue laws is reflected by a loss or gain to the Government of many
millions of dollars a year. Enormous amounts of revenue are dependent upon
the personal construction and ideas of the Commissioner of Internal Revenue.
In the very nature of things the judgment of the head of this bureau must be
final so far as administrative ofRcers are concerned. It would appear to be
of considerable advantage that instead of a Commissioner of Internal Revenue
there should be an Internal Revenue Commission, consisting of not fewer than
three members, the members of which, if not appointed to serve during good
behavior, should at least be appointed for a considerable period of time, the
termination of service being at different dates, so that consistency of ruling
would be insured. Furthermore, internal-revenue cases could be tried in the
subordinate United States courts as at present in order not to inconvenience
parties interested, but all appeals, instead of being to the different circuit
courts of appeals, should be sent to one court, and it is suggested the present
Court of Customs Appeals in Washington could easily handle both classes of
work. The ofRce of the Solicitor of Internal Revenue and the law division of
the bureau should be strengthened, so that the legal questions involved should
have the attention deserved. By reason of the fact that internal-revenue cases
are now handled by different district attorneys throughout the United States,
who also attend to appeals, there is a remarkable conRict of opinion in the
various circuit courts of appeal, with loss to the Government resulting there
from of enormous amounts of money and loss to the business world on account
of the lack of certainty with respect to the tax Hability that is very much
greater.
Oj^ce ojf Director o /
An important change in the mint organization was accomplished in the act
making appropriations for the legislative, executive, and judicial expenses of
the Government for the Rscal year ended June 30, 1913. No further changes
in organization are desired.
For
ofMce ojf
ArcMtect;
This ofRce is not in position at this time to suggest any changes its organiza
tion, including its Reid force, other than as shown in the estimates for appro
priations for the Rscal year 1914.
For %7?e Oj?%ce ojf gre%er%%
Repeal so much of section 4249, Revised Statutes, as provides " that all lifesaving stations hereafter erected shall be erected under the supervision of two
captains of the Revenue Service, to be designated by the Secretary of the
Treasury and to be under his direction."
*For
Dwisio% o / A c c o s t s /
The act approved August 24, 1912, providing for the sundry civil expenses,
authorized the President to reorganize the Customs Service and to reduce the
expenses of maintaining such service to $10,150,000 and provided that thi&
reorganization should be the organization of the Customs Service for 1914, and?
until otherwise directed by Congress, the permanent organization of the Cus
toms Service. This legislation, although contingent upon the reduction of th#
expenses of the service to the sum mentioned, which will be difRcult to accom
plish, will result in the much-needed reorganization of the Customs Service,
214
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
Additional legislation is, however, most urgently needed in respect to the revi
sion of laws relating to the customs administration.
Statutes affecting customs administration are now being carried upon the
statute books, forming parts of various acts dating back as far as 1799.
Many of these statutes have been repealed either directly or by implication, in
whole or in part, by subsequent legislation. This condition results in con
siderable misunderstanding on the part of commercial interests as to what are
the existing requirements of the customs-revenue statutes. Many existing
statutes no longer meet the changed conditions of commerce, many impose con
ditions and restrictions which under present conditions are not necessary or
desirable and interfere with the course of commerce at this time and with the
orderly administration of the Customs Service. On the other hand, the increase
of commerce and of the volume of business transacted by the Customs Service,
as well as new conditions of comparatively recent origin, call for the enactment
of new statutes to meet them. The statutes relating to the customs revenue
should therefore be revised and codiRed in order to meet the present conditions
and course of commerce and the increased volume of business tranacted by the
Customs Service.
For Me o^tee o / Me Register o / Me Treas%r%/;
I would recommend that the Assistant Register of the Treasury be placed in
the classified service with all of his present powers. This change would result
in having at all times an experienced employee with whom a new Register of
the Treasury could consult and upon whose knowledge of the ofRce he could rely.
For Me o ^ce o / Auditor /o r W ar Department;
This ofRce was reorganized, with a view to more efRcient and economical
administration, July 1, 1911, in accordance with the report of your Committee on
Economy and EfRciency in the Treasury Department, the recommendations of
which were followed by Congress in making appropriations for this ofRce in the
legislative, executive, and judicial appropriation act for the year 1912, and also
in the appropriation for the current Rscal year.
For Me o^ee o / A%%i%or /o r
Depar%i%eM%;
There are no changes in law pertaining to the organization of this ofRce
which it is deemed advisable to suggest. The reorganization of this ofRce which
was effected July 1, 1911, with the approval and recommendation of the Treas
ury Departmental Committee on Economy and EfRciency, has worked very sat
isfactorily, and has accomplished the end desired, viz, that the work of the
ofRce be brought up to date.
NAVY DEPARTMENT.
For M e oj^ee o / Me 8ecre%%r%/ %%%
o / &%re%Ms;
1. The four aids should be legalized (Annual Report of the Secretary, p. 4 ) .
2. A council of national defenses should be established by law (Annual Re
port of the Secretary, p. 5 ).
3. The Bureau of Equipment should be abolished and its duties distributed
to the other bureaus (Annual Report of the Secretary, pp. 5 and 6 ;
also Annual Report of the Paymaster General, p. 22 ).
4. A national naval reserve should be formed (Annual Report of the Secre
tary, p. 6 1 ; also Annual Report of the Chief of the Bureau of Navi
gation, p. 17).
5. Plans for consolidating the activities of the Naval Observatory and
Hydrographic OfRce are now under consideration (Annual Report of
the Secretary, p. 61 ).
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
For ?7?e o#?ce o / ^ 6 ^ec/'e^^r?/ %?M%
215
o / ^^reo Ms— Continued.
6. Examining and retiring boards should be consolidated (Annual Report
of the Secretary, p. 61).
7. The branch ofRce of the Hydrographic OfRce at Port Townsend, Wash.,
should be moved to Seattle and a coordinate branch of the same
established at Tacoma. A branch ofRce should be established at Los
Angeles (Annual Report of the Chief of the Bureau of Navigation,
P- 24 ).
8. The marine riRe range at Winthrop, Md., should be removed to some
other site where it will not interfere with the conduct of important
public work (Annual Report of the Chief of the Bureau of Ordnance,
P- 4 ).
For
^ecre%%r%/ o /
For
Corpg.— The organization of the Quartermaster's Department
should be increased by one major and two captains, as recommended in para
graph 30 of my annual report dated August 1, 1912, covering the operations of
the Quartermaster's Department, United States Marine corps, for the fiscal
year ending June 30, 1912.
(a )
That the authorized strength of the enlisted personnel of the Marine
Corps from year to year be based upon the authorized strength of the enlisted
personnel of the Navy. In view of the duties which the Marine Corps is called
upon to perform in connection with the Navy, the proportion recommended for
the enlisted personnel of the Marine Corps is 25 per cent of that of the Navy.
(&) That the commissioned personnel of the Marine Corps be based upon the
authorized number of the enlisted personnel of the Marine Corps, in the pro
portion of 45 offices in the various grades of the line and staff combined to
each 1,000 m en; the present proportion (slightly less than 30 to the 1,000),
being entirely inadequate for the proper performance of the duties incident to
the service.
(c) That the number of officers of the staff departments be fixed at 7^ per
cent of the total number of officers of the Marine Corps.
For
Dwtsio% o / PersofweL'
For
— The following legislation has heretofore
been recommended by the department and is now pending before Congress:
" To amend an act entitled 'An act to promote the administration of justice in
the N av y/ " etc. (S., 3646) ; passed Senate January 28, 1912, and pending before
House Committee on Naval Affairs. To authorize destruction of deck court
records (S., 1724) ; passed Senate May 29, 1911; reported in House May 15,
1912. To simplify procedure of examining and retiring boards ( S , 3643) ;
passed Senate January 8, 1912; no action in House. To authorize boards of
inquests to administer oaths (S.. 3642) ; introduced in Senate December 11,
191L
For
o/
Hospital, Las Animas.
For
For
For
For
Rwperg/.— The abandonment of the Navy
Fleet surgeons should not be medical ofHcers of the ship.
o / itfafeWaL'
o/
Doc&s.— None.
o/
— No recommendation.
o / Co%s%f%c%io%
Repair.— None. -
For
o/
Permanent abolishment of the Bureau of Equipment, and the consequent
permanent consolidation of the duties, funds, and the clerical force of that
bureau with the duties, funds, and clerical force of the several bureaus along
216
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
the lines of the present temporary assignment. Change the title of this bureau
from " Bureau of Steam Engineering " to " Bureau of Engineering/' Combine
all appropriations and allotments made for the use of the bureau, except " In
crease of the Navy " and " Salaries/' into one appropriation, and change the
title of the appropriation from " Steam machinery " to " Engineering."
9. The establishment of a separate dental reserve corps would be of ad
vantage (Annual Report of the Surgeon General, p. 13).
10. The establishment of the grade of chief pharmacist will be of advantage
to the service (Annual Report of th& Surgeon General, p. 13).
11. That steps be taken toward the ultimate abandonment of Las Animas as
a naval hospital (Annual Report of the Surgeon General, p. 14).
12. It is necessary to create a permanent branch of general storekeepers'
yeomen (Annual Report of the Paymaster General, pp. 6 and 7 ).
13. It is recommended that legislation be enacted by means of which an
additional paymaster may be placed upon every large ship (Annual
Report of the Paymaster General, p. 19).
14. The proportion of officers to men should be increased and it is recom
mended that during the coming year an increase of 49 officers and
800 enlisted men be made (Annual Report of the M ajor General
Commandant of the Marine Corps, p. 1 ).
15. A bill providing for increased Rag rank should be passed. For the
proper administration of the fleet, admirals and vice admirals are
necessary. A battle Beet should be commanded by an admiral ; vice
admirals should command squadrons; rear admirals should command
divisions. A t present the fleet is commanded by a rear admiral with
four other rear admirals under his orders (Annual Report of the
Secretary, pp. 49 and 4 9 ).
16. A permanent corps of paymaster's clerks with warrant rank should be
established (Annual Report of the Chief of the Bureau of Navigation,
p. 7 ).
INDEPENDENT ESTABLISHMENTS.
The following provision was submitted to the Appropriation Committee of the
House of Representatives for incorporation in the sundry civil appropriation act
for the fiscal year 1914:
. " The consolidation of the functions of receiving, disbursing, and accounting
for the funds of the Canal Zone government and the Panama Railroad opera
tions on the Isthmus with the funds appropriated for the Panama Canal is
authorized in so far as may be practicable: Prodded, That separate accounts
shall be kept of the transactions under &ach fund, and all accounts shall
be audited and settled in such manner and under such regulations as may be
prescribed by or with the authority of the President, and the bonds of oiHcers
and employees responsible for the correctness of accounts or for the receipt,
safekeeping, or disbursement of funds or property by virtue of the ofEces or
positions held by them given in such cases and In such penal sums as may be
required by the regulations prescribed by or with the authority of the President
shall be conditioned for the faithful discharge of all duties and trusts imposed
upon them either by law or by such regulations."
The Panama Canal act authorizes the establishment of numerous business
enterprises, and provides that the moneys expended in the conduct of such
enterprises may be reinvested without being covered into the Treasury. It
also requires that the net profits of the business shall be covered into the
Treasury annually. Authority is given for conducting these business enter
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
217
prises either through the Panama Railroad or directly out of the funds appro
priated by Congress. The Canal organization will also have to operate the
railroad and for some time will collect and have authority to disburse local
revenues.
A t the present time there is one method of procedure in handling the funds
of the Panama Railroad. There is another method of auditing the funds of
the Canal Zone government. The vouchers and pay rolls covering payments
from funds appropriated by Congress for the construction of the canal are
handled in accordance with one method in the Washington ofhce and by a
different method on the Isthmus of Panama.
It is desired to consolidate the several offices, and the first part of the above
provision was submitted for the purpose of obtaining authority for this proce
dure. The section would give the President authority to prescribe regulations
under which all the accounts are to be audited and settled and will enable him
to secure uniformity in procedure in handling the different funds in so far as
uniformity is desirable. By the adoption of this section necessary elasticity to
the methods of procedure will be obtained while the permanent system of
handling canal business is being worked out in accordance With the present
laws. The last part of the section gives the President authority to specify the
particular officers and employees who shall be held responsible for the correct
ness of accounts and the proper handling of funds and will enable him to fix
the exact responsibility of each individual. The responsibilities of officers hand
ling cash should be limited to the safekeeping and proper disposal of the funds
coming into their possession, and thus carry to its logical conclusion the pro
vision contained in the last legislative, executive, and judicial appropriation
act, limiting the jurisdiction of disbursing officers. This provision accomplishes
this without in any way removing the safeguards surrounding the disburse
ment of public funds, as it enables the President to bond the officers responsible
for the correctness of accounts if such course is deemed desirable.
The provisions in regard to the conditions of the bonds that may be required
follow the requirements of bonds given by postmasters. The officers handling
funds and certifying to the correctness of accounts on the Isthmus will be
responsible for the proper disposition of many different classes of funds. Not
only will they have control of the fund's of the United States Government,
Panama Railroad Co., and Canal Zone Government, but they will have under
their jurisdiction trust funds of various kinds, money-order funds, postal sav
ings bank funds, amounts deposited to secure the performance of contracts
and to cover the cost of material and services to be furnished by the canal
authorities.
GOVERNMENT PRINTING OFFICE.
The Public Printer should be empowered to transfer the work and equipment
of all branch printing offices to the Government Printing Office with the consent
of the head of the executive department concerned.
The depository libraries should be designated by act of Congress and should
be authorized to select such public documents as they may desire to receive.
CIVIL SERVICE COM M ISSION.
The commission is of the opinion that one of the most serious defects of
administration under our present form of Government is the lack of continuity
in administrative control. At the close of each administration those department
heads and assistant heads who have for the preceding four years administered the
218
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
work of the Government go out of ofHce and are replaced by men who may have
no previous knowledge of Government work and who can not, of necessity, have
a knowledge of the controlling reasons underlying the changes in administration
brought about by their predecessors. W e believe that the routine work of the
Government should be organized and systematized on a purely business basis,
and that such organization and systematization is wholly consistent with any
change in party policy or administration. A knowledge of the vast and com
plicated machinery of a department can be arrived at only after the closest and
most painstaking study pursued through a number of years. The acquisition
of the necessary knowledge of the administrative needs of a department is now
a great burden upon the head of the department, w ho.is responsible not only
for its administration but for the establishment of its policies. It seems to the
commission that in order that the head of a department may be free in the
formulation and establishment of the policies of his department he should be
relieved of the exhaustive study of the machinery of his department necessary
for the maintenance of the highest administrative efficiency, and that such study
should be placed under an independent branch of the Government directly under
the President, as is now being done by the President's Commission on Economy
and Efficiency. The investigation work of that commission in respect to the
vast held of governmental activities has only begun, and yet it has reported
that there is a great need for change in those methods now in operation. This
commission believes that this great work of advisory supervision of adminis
trative methods, which is one of those functions now devolving upon the Presi
dent's Commission on Economy and Efficiency, should be continued and that this
commission should be not only clothed with this power of supervision of ad
ministrative methods, but all other functions of the President's Commission on
Economy and Efficiency, and be granted a sufficient appropriation for the con
tinuation of this great and necessary work. This, in the event that the Com
mission on Economy and EfHciency shall not be continued.
DEPARTMENT OF JUSTICE.
For
yeMeraZ
For the ofRce proper of the Attorney General.
# 0%.
A law should be enacted providing for an additional
Assistant Attorney General for the special purpose of performing such adminis
trative functions as the Attorney General may see fit to lay upon him, including
the inspection and signing of the general mail, the examination and certification
of accounts, vouchers, requisitions, etc., and some general oversight of the needs
and service of the department.
I am disposed to think that this would work considerable improvement in
administration, while it would undoubtedly aid the Attorney General and re
lieve the present corps of assistants of many burdens which curtail their
efficiency in the litigation with which they have primarily to do.
For the chief clerk and superintendent of buildings.
W. T. TVaompsoM,; Section 178 or 351 of the Revised Statutes should be
amended to give authority to the chief clerk of this office to act as solicitor
during the absence of the solicitor and assistant solicitor or in case both offices
should be vacant.
ilfr. 0 . J.
None in mind at present, unless it should be the creation of
specific bureaus or divisions, such as a bureau for the Court of Claims, the dis
bursing clerk's office, etc., similar to the Division of Accounts.
For the superintendent of prisons:
Mr. R. F.
As you are aware, the law not only for the government
of Federal penitentiaries but for the care and custody o f United States prisoners
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
219
generally Is meager, and such as exists is antiquated. There has never been an
attempt to codify these laws or to obtain a system of laws for these purposes.
W e need a change in the law which will enable the department to obtain
suitable places of confinement for prisoners of the class who, after conviction
in the States, would be sent to a reformatory instead of to a penitentiary. You
submitted one phase of this question to Congress in your last annual report.
A change in the law is desirable with respect to the transfer of insane pris
oners from the institutions in which they are confined to the Government
Hospital for the Insane for treatment. This question had the consideration of a
commission appointed with the approval of the President to examine into the
needs of the Government Hospital for the Insane. Upon this commission I rep
resented the department.
Another change in the law that would seem to be desirable is to have pro
vision made in order that prisoners sentenced to confinement for terms of up
wards of one year will be sent to a Federal penitentiary instead of being sent
to local institutions, as is done in some districts. This question was discussed
with you at one time due to the fact that a county jail in Massachusetts was
designated by the court as the place of confinement for two prisoners, one of
whom was sentenced for 5 years and the other for 15 years.
A change in the good-time law is desirable.
The present law is inconsistent. For example, prisoners sentenced for
over 1 year and less than 3 years get 6 days a month; upon a sentence of not
less than 3 years and less than 5 years. 7 days for each month; upon a sen
tence of not less than 5 years and less than 10 years, 8 days for each month;
and upon a sentence of 10 years or more, 10 days for each month. It will be
seen from this table that not only could a man sentenced for a longer period
of time than another get off sooner due to the difference in the good-time allow
ances, but one of the greatest objections to the present law is that there may
be two men working side by side in the prison sentenced to diiTerent terms,
one of whom gets a greater reduction from his sentence for good conduct than
the other.
Under the proposed good-time law all prisoners who have been in the peni
tentiary the same number of years will be receiving the same rate of good
time, regardless of the length of their terms of sentence. For example, a
prisoner sentenced for 3 years and a prisoner sentenced for 10 years would
get the same deduction during the first year of their respective terms and
each would get the same deduction during the second year which they serve,
and so on.
Parole: Attention is called to the, fact that a bill is at present pending ex
tending the benefits of the parole to life prisoners. The passage of such a law
was recommended by the boards of parole, which met with your approval.
It is hoped that such a bill may be passed by the present Congress. Atten
tion has been called heretofore by the boards of parole to the advisability of a
change in the personnel of the board which would either eliminate from the
membership the warden and the physician or that the membership of the
board should be so increased by the appointment of two civilian members as
to make the warden and the physician in the minority on the board.
The above are concrete examples illustrating the need of additional legisla
tion. There are other cases not cited. In my opinion it would be wise to
provide for a commission for the purpose of taking up and giving careful con
sideration to the entire prison question.
F o r M e #% re% % o / /n v e s ^ p a ^ o n ;
H r. A. Bruce
No statute specifically providing for the organization
of the Bureau or Division of Investigation has ever been enacted, the statutory
220
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
authority therefor being conRned to the language of the appropriation " Detec
tion and prosecution of crimes," which is included annually in the sundry
civil appropriation bill, and in the provision in the legislative bill providing for
a Chief of the Division of Investigation. A complete statement with reference
to the organization of this division may be found on pages 8, 9, and 10 of the
Annual Report of the Attorney General for 1909. The language of the appro
priation " Detection and prosecution of crimes " is as fo llow s:
" Detection and prosecution of crim es: For the detection and prosecution of
crimes against the United States; the investigation of the official acts, records,
and accounts of marshals, attorneys, clerks, and referees of the United States
courts and the Territorial courts, and United States commissioners, for which
purposes all the oRicial papers, records, and dockets of said ofRcers, without
exception, shall be examined by the agents of the Attorney General at any tim e;
for the protection of the person of the President of the United States; for such
other investigations regarding ofRcial matters under the control of the Depart
ment of Justice as may be directed by the Attorney General."
I think it desirable that there should be some legislation definitely establish
ing this division and fixing its scope, as indicated by the language of the appro
priation " Detection and prosecution of crimes," and providing for a supervising
special agent, a supervising examiner, a supervising accountant, a chief clerk,
and clerical employees, the chief of the division to have authority to des
ignate one of the supervising ofRcers mentioned above as assistant chief of the
division, and their compensation to be paid in the manner indicated under II, 4.
Persons are now employed who perform the work which belongs to these posi
tions, and the change would not involve the employment of any additional per
sons therefor.
F or
o f Acco?m%s.'
W . R.
I recommend that the examiners employed in making ex
aminations and investigations of the records, accounts, ofRces, etc., of officials
of United States courts be transferred to the Division of Accounts and that
the salaries of such employees be carried in the estimates for said division,
together with an amount sufRcient to pay their expenses, said amount to be
deducted from the estimate for " Detection and prosecution of crimes."
The Division of Accounts and the examiners audit the same accounts— the
former in the department and the latter in the Reid. The consolidation would
bring both systems of accounting— Reid and departmental— together, which
would prevent duplication of work, permit of closer relations and exchange of
views, and better understanding of each other's work and duties. I believe
that upon such consolidation an organization could be effected which would
increase the efRciency of both and be much more economical.
The Attorney General could, of course, detail the examiners to the Division
of Accounts now, but to make the organization permanent it would be necessary
to transfer the estimates as suggested above.
As the Disbursing OfRce and the Division of Accounts, which heretofore
were separate and distinct bureaus, have been brought into close relationship
by recent legislation, I recommend these ofRces be consolidated and the ac
counts and disbursements handled by one bureau, to be known as the " Bureau
of Accounts and Disbursements," somewhat on the order of the Agricultural
Department (37 Stat., 293).
Jir. J. H. Ttfac&e?/.' Where it is practicable I think each ofRce or bureau
should be appropriated for under a separate subappropriation, depending
largely upon the size and importance of the ofRce or bureau and to what ex
tent the character of the work is different from the other ofRces and bureaus;
I have in mind particularly the " Court of Claims Division."
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
221
For Me (Ms&Mfsmgr c?er&;
C%p%. J. J. ^ot?er; In view of the fact that the accounts which are payable
by the disbursing clerk are now required to be examined and audited by the
Division of Accounts prior to payment, it is believed that the disbursing !lerk
and the force under him, or a similar force, and the present Division of Ac
counts should constitute one division or bureau, that division or bureau to be
given proper title, indicating brieRy the work to be done by the division or
bureau.
For Me
oj%ces o / Me dep%r%7%e%%.*
# 0%. W . T. De%%so%.* The clerical force of the department should be a single
force and should not be subdivided by special appropriations, as, for instance,
the Division of Accounts, Solicitor of the Treasury's ORice, Solicitor of Com
merce and Labor, etc. The existing arrangement is difRcult of administration
from the point of view of promotion and practically does not work fairly.
#o%. CMWes W. Co&&.* On July 1, 1911, there was created, as a branch of
this ofRce, the Pension Appeals Section, following the discontinuance of the
Board of Pension Appeals in the ofRce of the Secretary of the Interior. A s a
result of the experience during the past year and a half I believe said board
should be reestablished, and appropriation therefor has been included in the
estimates for appropriations for the Rscal year beginning July 1, 1913, thus to
change the organization of my ofRce in that respect, which change, with the
reasons therein given, have my approval.
No further particular change in the law relative to the organization of this
ofRce seems to me to be necessary. However, a change in the organization is,
I believe, most advisable; but this may easily be done as an administrative
matter, provided Congress will make appropriation for additional assistant
attorneys and provide a generally higher compensation for them. The work of
this ofRce has increased during the past two years at a wonderful rate both
in the quantity of the work and in its great variety and importance. Causes
come here for consideration and determination often involving property of
such great value as seldom go to courts, and legal problems of the most difRcult and complicated character. During the year ended October, 1912, this
ofRce was called upon to consider and determine over 33,000 different matters,
involving numerous questions concerning the public lands, Indians and their
property and rights^ reclamation, land titles, pensions, pending legislation in
Congress, matters affecting practice in the Patent OfRce, and many other and
miscellaneous items. It will at once be seen that with the present force of
23 assistant attorneys and two clerks of class 3, who have been pressed into
service as assistant attorneys, with salaries of $1,600 for the two clerks and
salaries of the assistant attorneys running from $2,000 to $3,000, one-half of
the force being $2,000 and only one at $3,000, it is practically impossible/to
meet the volume of the work or to give to it the careful consideration which
its importance and the interest of the litigants or parties demand.
Aside from these matters not recorded in the volume of business above re
ferred to, there is handled a large amount of work in the Supreme Court of the
District and the court of appeals, wherein the Secretary of the Interior is made
defendant, and cases are defended by the Assistant Attorney General for the
Department of the Interior, which in itself requires the assistance of members
of the force of assistant attorneys, and particularly is this so during the rush
period beginning with the opening of the courts in October of each year. The
Assistant Attorney General is also constantly called upon to render opinions
for the Secretary of the Interior, naturally, on the most diRicult problems that
come before the department, affecting questions arising in any or all of the
bureaus under the supervision of the Secretary of the Interior.
222
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
Although the work seems to have naturally increased to an enormous extent,
another reason for the increase is that prior to the abolishment of the division
system in the oiRce of the Secretary, in 1907, the class of work of the ofRce was
comparatively lim ited: little by little the scope of its work has been increased
until it has included all sorts of matters arising under the heads above men
tioned, including, indeed, the larger portion of the correspondence that goes out
of the department, Notwithstanding all of this increase in the work, there has
been no increase whatever in the numbers of the force nor in the salaries. I
conclude, therefore, that it is absolutely necessary for the proper reorganization
of my oiRce that Congress make appropriation for additional assistant attorneys
and for an increase in salaries commensurate with the qualifications of the
men required and not employed and of the amount and class of the work per
formed.
In the estimates of the appropriation for the next Rscal year I have asked
for additional attorneys, one at $2,750, one at $2,500, and two at $2,250, and
have asked for one increase from $3,000 to $3,750. A small increase was asked
for last year, but was denied. I believe that the increase asked for in this
year's estimates is wholly insufBcient to meet the requirements, but I hesitated
about asking for more on account of the experience of last year and the fear
that it would be useless.
FaW ; No change, except as noted below under 1-3. The ar
rangement whereby the law oRice attached to a department is a part of the
organization of the Department of Justice and the law oRicer's superior is the
Attorney General rather than the bead of the department to which the oRice
is attached is correct and should be continued. W ork of a legal and advisory
nature is essentially unlike work of an executive or administrative sort, and
should take its tone from and be assimilated in form and character to the work
of the general legal department of the Government. Services of a better
quality are more apt to result from this arrangement.
J. EeM&ew
;r.,
ojf
I have received
your letter of November 6 with its inclosures, as also the supplemental memo
randum of the chief clerk of November 9 with its inclosure, requesting from
me practical suggestions regarding the questions propounded by the President
in connection with the work of his Commission on Economy and ERiciency.
After having given the matter very careful consideration, I beg leave to report
as follow s:
A s you are aware, the Solicitor for the Department of State is an oRicer of
your department detailed to the Department of State under a law which
provides—
.
" That the Secretary of State may prescribe duties for * * * the Solicitor,
not interfering with his duties as an oRicer of the Department of Justice."
The fact is that all other members of the solicitor's oRice (Department of
State) are members of the Department of State, including the assistant solici
tors. The result is that while the solicitor exercises jurisdiction over the force
for the purpose purely of conducting the oiRce work, all other matters of
administration, including promotions, salaries, and discipline of members of
the force, are attended to exclusively by the proper oRicials of the Department
of State. It results from this that the solicitor has little or no occasion to
concern himself or become familiar with the problems involved in the questions
put by the President in the communication transmitted by you. I therefore
regret exceedingly having to say that after very careful reRection I have become
convinced that there is nothing of a practical nature which I could suggest for
your consideration. I suppose, moreover, that under the circumstances it is
possible any suggestions I might have on the matter should be transmitted to
APPENDIX 3— RECOMMENDATIONS FOB CHANGES IN LAW.
223
the Secretary of State, since those who work with me are State Department
employees. However, the oRicials of the department have not requested any
statement from me, and therefore I have made no suggestions to them.
o/
Having been absent
from the city last week, I have only been able to-day to consider your com
munication of the 6th instant, transmitting circular from the Efficiency Com
mission, and to which you request a reply by November 12,
Aside from the duty of rendering opinions to the Commissioner of Internal
Revenue, the bulk of the work of this oiRce concerns the business transacted
in the Law, Claims, and Corporation Tax Divisions of the Internal Revenue
Bureau.
A s these divisions are but a part of the organization of the Treasury De
partment and under the jurisdiction of the commissioner entirely, I do not
understand that I am expected to offer suggestions as to changes in the law
or conditions affecting that bureau except through him and to be used by him
^should he see Rt) in any report he may desire to make.
As to this oRice, consisting of the Solicitor of Internal Revenue and one
clerk or private secretary, I have no suggestions as to any change in existing
iaws or conditions which I feel are of suRicient importance to press upon your
attention at this time, at least, not in a limited moment for consideration where
the inquiry takes so wide a scope.
DEPARTMENT OF THE INTERIOR.
For
o/
On July 1, 1911, there was created, as a branch of this oRice, the Pension
Appeals Section, following the discontinuance of the Board of Pension Appeals
in the oRice of the Secretary of the Interior. As a result of the experience
during the past year and a half, I believe said board should be reestablished,
and appropriation therefor has been included in the estimates for appropria
tions for the Rscal year beginning July 1, 1913, thus to change the organization
of my oRice in that respect, which change, with the reasons therein given, have
my approval.
No further particular change in the law relative to the organization of this
oRice seems to me to be necessary. However, a change in the organization is,
I believe, most advisable; but this may easily be done as an administrative
matter provided Congress will make appropriation for additional assistant
attorneys and provide a generally higher compensation for them. The work
of this oRice has increased during the past two years at a wonderful rate, both
in the quantity of the work and in its great variety and importance. Causes
come here for consideration and determination often involving property of
such great value as seldom go to courts; and legal problems of the most difRcult and complicated character. During the year ended October, 1912, this
oRice was called upon to consider and determine over 33,000 different matters,
involving numerous questions concerning the public lands, Indians and their
property and rights, reclamation, land titles, pensions, pending legislation in
Congress, matters affecting practice in the Patent ORice, and many other and
miscellaneous items. It will at once be seen that with the present force of
23 assistant attorneys and 2 clerks of class 3, who have been pressed into
service as assistant attorneys, with salaries of $1,600 for the 2 clerks,
and salaries of the assistant attorneys running from $2,000 to $3,000, onehalf of the force being $2,000 and only 1 at $3,000, it is practically impossible
to meet the volume of the work or to give to it the careful consideration
which its importance and the interest of the litigants or parties demands.
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
224
Aside from these matters not recorded in the volume of business above
referred to, there is handled a large amount of work in the Supreme Court
of the District and the Court of Appeals, wherein the Secretary of the
Interior is made defendant, and cases are defended by the Assistant A t
torney General for the Department of the Interior, which in itself requires
the assistance of members of the force of assistant attorneys, and particularly
is this so during the rush period beginning with the opening of the courts in
October of each year. The Assistant Attorney General is also constantly called
upon to render opinions for the Secretary of the Interior, naturally on the most
difficult problems that come before the department, affecting questions arising
in any or all of the bureaus under the supervision of the Secretary of the
Interior.
Although the work seems to have naturally increased to an enormous extent,
another reason for the increase is that, prior to the abolishment of the division
system in the ofRce of the Secretary, in 1907, the class of work of the ofRce
was comparatively lim ited; little by little the scope of - its work has been
increased until it has included all sorts of matters arising under the heads
above mentioned, including, indeed, the larger portion of the correspondence
that goes out of the department. Notwithstanding all of this increase in work,
there has been no increase whatever in the numbers of the force nor in the
salaries. I conclude, therefore, that it is absolutely necessary for the proper
reorganization of my ofRce that Congress make appropriation for additional
assistant attorneys and for an increase in salaries commensurate with the
qualiRcations of the men required and employed and of the amount and class
of work performed.
In the estimates of the appropriation for the next fiscal year, I have asked
for additional attorneys: One at $2,750,one at $2,500,and two at $2,250,and have
asked for one increase from $3,000 to $3,760. A small increase was asked for
last year, but was denied. I believe that the increase asked for in this year's
estimates is wholly insufRcient to meet the requirements, but I hesitated about
asking for more on account of the experience of last year and the fear that
it would be useless.
For
cMejf
o/
Answer. (1 ) The reorganization and consolidation of the mechanical, en
gineering, labor, and watch force of the department along the lines proposed
in the estimates for the Rscal years ending June 30, 1911 (Book of Estimates,
pp. 77-78, 571-576), and June 30, 1913 (Book of Estimates, pp. 75-77,
556-559).
(2) It is desirable that a Bureau of National Parks under this department
be created. (See H. R. 16090, 18716, and 22995; S. 3463, 62d Cong., 2d sess.)
(3) That the act of incorporation of the Howard University of March 2,
1867 (14 Stat. L., 438), be so amended as to give the Government a proper
representation on the board of trustees; that appropriations made by Congress
shall be expended under the direction of the Secretary of the Interior; and
that the institution be required to secure to the United States, in such manner
as Congress may consider appropriate, under all the circumstances, title to
the lands upon which buildings have heretofore or may hereafter be erected
from funds provided by the Government.
f4) Under existing law, the only duty now imposed upon the Secretary of
the Interior in relation to the Columbia Institution for the D eaf and Dumb is
the reception of the annual report thereof, and the admission of indigent mutes
of the States and Territories to that institution for instruction in the collegiate
department thereof.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
225
A s the department has no general supervision of the affairs of this institution,
the Secretary of the Interior should be relieved of the duties now imposed on
him by law as regards this institution, and the annual report of the president
and directors be made directly to Congress, and the president of the institution
authorized to admit indigent deaf mutes of the States and Territories to the
collegiate department thereof.
(5 ) It is desirable that legislation be enacted requiring the Maritime Canal
Co. of Nicaragua to make its reports directly to Congress.
(6) H . R. 25285 (62d Congress, 2d Sess.), to provide for a United States
bureau of government supplies, should be enacted into law.
For
See " A report of the committee to consider the organization and needs of
the Government Hospital for the Insane, as made to the Secretary of the In
terior under date of November 10, 1911."
F o r f&e L aw d
In my opinion the organization of the General Land ORice is clumsy and un
suitable. The responsibility of all work, both executive and judicial, is upon the
commissioner, and the assistant commissioner when the latter is acting as com
missioner. The executive work, brieRy, is (1 ) the management of the W ash
ington ofRce with its 530 employees; (2 ) the supervision of 102 district land
ofRces with their 414 employees; (3 ) the arrangement of the work of 12 Reid
divsions with 180 agents and other employees; and (4 ) the responsibility of the
surveys of the United States, the work being under the superintendence of two
supervisors of surveys, with 102 United States surveyors at this time and the
corps of approximately 600 assistants, and 13 ofRces of surveyors general with
174 ofRce employees. The total amount of appropriations the commissioner has
jurisdiction of is now approximately $3,400,000.
The work in the Washington office is divided into two branches, (1 ) executive
and (2 ) judicial. The judicial work in many instances closely touches upon the
executive. The questions submitted for judicial determination are as varied as
those presented to any court and are as diRicult, their effect being far-reaching.
The number of letters which the commissioner and assistant commissioner are
called upon to sign every day, including decisions, are in the neighborhood of
1,000, not more than one-third of which can be stamped. O f these letters at
least one-third are decisions, the responsibility of which is directly upon the
oRlcer who signs his name thereto. It is impossible for the commissioner, and
the assistant commissioner when acting as commissioner, to properly consider
the many important cases to which his signature is attached. Any member of
the bar can testify that there is not in the General Land ORice a bench before
which he can practice properly and which the importance of the subject de
mands. This faulty organization under the law has been overcome as far as
possible by the organization of a board of law review consisting of six mem
bers, each one o f which is assigned to a particular line of work and given the
duty of supervising the decisions written by the lawyers of the oRice, and sub
mitted to him after consideration by the chief of the division to which the sub
jects are originally referred. The member of the board of law review, after
consideration, attaches his name at the bottom of the letter, in the left-hand
corner thereof, and the commissioner or assistant commissioner then signs
the same oRicially. This is the best arrangement that can be made to meet the
conditions, but it does not constitute a correct organization.
In my report for the Rscal year ended June 30, 1911, I recommended " the
enactment of legislation under which there should be created the positions of
Rve members of a board of law review, who should be given original jurisdic
H. Doc. 1435,62-3------ 15
226
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
tion upon all cases written by the various law clerks j f this bureau under which
rights of claimants are determined, with the right of review in the commis
sioner and appeal to the Secretary. The two duties, executive and judicial,
will in this way be more adequately taken care of as they should be, and it
would be possible for the work to receive from the heads a more careful con
sideration than it does now. The commissioner as an executive ofRcer could
give personal attention to many important details for which he is responsible
to which he can give only brief attention at present, and by the creation of the
positions of five members of a board of law review with original jurisdiction
all cases which are now submitted to this ofRce could receive closer and more
careful attention than they do at present."
The commissioner in his judicial treatment of cases has, of course, to follow
the decisions of the Secretary. W hile the question of policy may influence the
Secretary, the commissioner can not do otherwise, in a judicial capacity, than
follow the judicial determination of his superior court. B y the creation of the
board as suggested the commissioner would have the proper time to devote ta
the very important executive duties and be relieved from having to do that
which he now has to do, namely, afRx his signature to a great number of cases
which he can not possibly personally consider. The members of the bar would
also Rnd a bench before which they could practice. The commissioner would
further be relieved of the dual and incompatible roll of prosecuting officer, as
chief of the special agents, and the judge on the bench.
F o r M e OjpBce o / in d t a n A # % ir s .
It is believed that all employees in the Indian Bureau who are now paid out
of lump-sum Reid appropriations should be speciRcally provided for in the
legislative, executive, and judicial bill, as directed by the act of August 28, 1912,
which provides that " hereafter estimates in detail shall be submitted for all
personal services required in the Indian OfRce." In compliance with that pro
vision of law there was included in the 1914 estimates for employees in the
Indian Bureau provision for all employees in said bureau heretofore paid out of
lump-sum appropriations.
For Me P#%ew% Oj%ce;
Answer. The Patent OfRce should be made an independent bureau similar to
the Interstate Commerce Commission. Its duties as an ofRce are purely judicial
m character with such incidental clerical work as is necessary to carry them
out; it requires in its employees special training along scientiRc and legal
lines, and such employees are difRcult to obtain and to retain in service, ex
cept at salaries higher than those paid to the other employees of the depart
m ent; and the Patent OfRce has always suffered by reason of the inability o f
the department ofBcials and of Congress to appreciate this difference. I f good
results are to be obtained everything possible should be done to insure the
independence, efRciency, and permanence of tenure of the entire force of the
Patent OfRce. The Patent OfRce has nothing in common with the other bureaus
of the Interior Department, or of any other department. There is no appeal
to the Secretary of the Interior or any question relating to the grant o f a
patent, and all appointments to positions in the Patent OfRce, except such a s
are presidential, are made upon the nomination of the Commissioner o f Patents
approved by the Secretary. The desirability of this change in the status o f the
Patent OfRce is recognized and provided for in a bill introduced by Mr. OldReld,
chairman of the House Committee on Patents, in the House of Representatives,
o n A p f i l l 6 , 1912, and know as H . R. 23417. The subject was also ably dis
cussed by the late Senator O. H . Platt, of Connecticut, one of the best posted
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
22?
men on the character of the work of the Patent OBice and its needs who evei^
sat in either House of Congress, delivered in the Senate on March 81, 1884,
and from which I quote the following extracts:
" I say that the Patent OBice should be made an independent department,
not only because of the vast importance of the interests which it must care
for, but because of the treatment which it has received and must continue to
receive as long as it remains a subordinate branch of the Interior Depart
ment. * * *
" W h a t should be the qualification of the head of the Patent OBice? He;
should combine an accurate and almost universal knowledge of mechanical
principles with a thorough knowledge of patent law and with rare executive;
and administrative ability. He should be preeminently distinguished for these;
qualities. His position should be one of entire independence. It is more judi
cial than executive. H is duties are more like those of a judge of a court than
an executive oBicer; they are purely judicial and ministerial. The ofRce should
be permanent and it should be nonpolitical, by which I mean it should have no
political signiRcance.
Every year's experience adds greatly to the capacity and ability of the
Commissioner of Patents. In a word, the Patent ORice needs and demands;
better administration, and it will never have it, as a rule, until it shall be
made a seperate department. It must be held in entirely different estimation
by Congress and by public sentiment before it will be what it ought to be.
The way to secure this estimation by Congress, the way to secure for it what
it wants and what it needs and what it must have if it is properly to discharge
the high functions which devolve upon it, is to separate it entirely from any)
supervision of the Secretary of the Interior, to make it independent and
digniRed.
That portion of H R. 23193 or S. 6273 which provides for a board of appeals,
consisting of the Commissioner of Patents, the Rrst assistant commissioner,
the assistant commissioner, and the three examiners in chief, should be passedJ
This bill, after protracted hearings before the Committee on Patents of the
Senate and House, was passed by the Senate and favorably reported to the
House, but failed of passage on account of lack of time. I f this bill ia
enacted it will effect an important saving of the time required for the prosecu
tion of an application for a patent to issue and a saving of expense to the
inventor, and will accomplish those results without any increase in salaries;
beyond that which would otherwise be paid to the same ofRcials.
Provision should be made for a grade of supervising examiners. It should
be the duty of these ofRcers to aid the commissioner in exercising a closer
supervision over the work of the examining divisions, with a view to securing
greater uniformity in the work of the examining corps. A recommendation
on this subject has already been made to the President's Commission on
Economy and EfRciency.
For
Statute organizing the United States Geological Survey is general and no
change is demanded, except provision for an assistant director. In view o f
the growth of the survey in the past 33 years statutory provision for a chief
deputy to the head of the bureau seems advisable. In the absence of such an
oBicer recourse is had to the speciRc statute (R . S. 28, p. 197), and one o f th3
geologists is designated by the Secretary of the Interior to serve as acting
director in the absence of the director.
228
For M e
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
jgfervtcer
The undersigned thinks it desirable to place the organization of the Reclama
tion Service on a similar basis to that o f other bureaus, the director to be ap
pointed by the President and conRrmed by the Senate at a salary of $7,500 per
annum, giving him appropriate administrative powers, to be exercised under
the direction and subject to the review of the Secretary of the Interior.
F&r t&e #%rea% o/ Hiwes;
Such as are set forth in the bill H . R. 17260 now pending in the United States
Senate, v iz :
t h a t the act to establish in the Department of the Interior a bureau of mines,
approved May sixteenth, nineteen hundred and ten, be, and the same is hereby,
amended to read as follow s:
" That there is hereby established in the Department of the Interior a bureau
o f mining, metallurgy, and mineral technology, to be designated the Bureau of
M^nea, and there shall be a director of said bureau, who shall be thoroughly
equipped for the duties of said oiRce by technical education and experience
and who shall be appointed by the President, by and with the advice and con
sent of the Senate, and who shall receive a salary of six thousand dollars per
annum ; and there shall also be in the said bureau such experts and other em
ployees, to be appointed by the Secretary of the Interior, as may be required
tocaarry out the purposes of this act in accordance with the appropriations made
frotB t&ne to time by Congress for such purposes.
" SRC. 2, That it shall be the province and duty of the Bureau of Mines, sub
ject to the approval of the Secretary of the Interior, to conduct inquiries and
scientiRc and technologic investigations concerning mining, and the preparation,
treatment, and utilization of mineral substances with a view to improving health
conditions, and increasing safety, efficiency, economic development, and conserv
ing resources through the prevention of waste in the mining, quarrying, metal
lurgical, and other mineral industries; to inquire into the economic conditions
affecting these industries; to investigate explosives and p e a t; and on behalf of
the Government to investigate the mineral fuels and unRnished mineral prod
ucts belonging to, or for the use of, the United States, with a view to their
most eiBcient mining, preparation, treatment, and use; and to disseminate in
formation concerning these subjects in such manner as will best carry out the
putpose of this act.
" SEC. 3. That the director of said bureau shall prepare and publish, subject
to the direction of the Secretary of the Interior, under the appropriations made
from time to time by Congress, reports o f inquiries and investigations, with
appropriate recommendations o f the bureau, concerning the nature, catrses, and
prevention of accidents, and the improvement of conditions, methods, and equip
ment, with special reference to heatlh, safety, and prevention of waste in the
mining, quarrying, metallurgical, and other mineral industries; the use of explo
sives and electricity, safety methods and appliances, and rescue and Rrst-aid
work in said industries; the cause and prevention of mine Rres; and other sub
jects included under the provisions of this act.
" SEC. 4. In conducting inquiries and investigations authorized by this act
neither the director nor any member of the Bureau of Mines shall have any
personal or private interest in any mine or the products of any mine under
investigation, or shall accept employment from any private party for services in
the examination of any mine or private mineral property, or issue and report
as to the valuation or the management of any mine or other private mineral
property: Provided, That nothing herein shall be construed as preventing the
temporary employment by the Bureau of Mines, at a compensation not to
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
229
exceed ten dollars per day, in a consulting capacity or in the investigation of
special subjects, of any engineer or other expert whose principal professional
practice is outside of such employment by said bureau.
.
" SEC. 5. That for tests or investigations of explosives authorized by the
Secretary of the Interior under the provisions of this act, other than those per
formed for the Government of the United States or State governments within
the United States, a reasonable fee covering the necessary expenses shall be
charged, according to a schedule prepared by the Director of the Bureau of
Mines and approved by the Secretary of the Interior, who shall prescribe rules
and regulations under which such tests and investigations may be made. A11
moneys received from such sources shall be paid into the Treasury to the credit
of miscellaneous receipts.
" SEC. 6. That this act shall take effect and be in force on and after its
passage."
POST OFFICE DEPARTMENT.
F o r M e P ost O ^ e
R erw ee;
To remove the restriction that prevents the establishment, beyond the cor
porate limits of a city, of branch post offices and postal stations in places of less
than 1,500 inhabitants or more than 5 miles distant, and to simplify postal ac
counting by enabling the department to convert small independent post ofHces in
the neighborhood of cities into nonaccounting branches.
The Postmaster General may establish post ofBces at such places as he may
deem expedient and may establish postal stations within the delivery area of
any post ofBce, and he shall prescribe the rules and regulations for the govern
ment of branch post offices and postal stations.
DEPARTMENT OF AGRICULTURE.
(See comment under next title.)
DEPARTMENT OF COMMERCE AND LABOR.
For M e
o/
The Division of Publications, in the ofBce of the Secretary, should have a
statutory basis, with prescribed functions, as contemplated in Senate bill 4239,
62d Congress, 2d session, section 80, now pending in the House of Representa
tives.
For Me DtvMoM o / y%%Mr%M2%t%ow;
The Division of Naturalization of the Bureau of Immigration and Naturali
zation should be made a separate and independent bureau of the department.
For M e B%re%M o / Ce%s%s;
In regard to the Bureau of Census, the lack of conformity between the or
ganization as provided by the permanent census act and as provided by sub
sequent appropriation acts is embarrassing and confusing, and it is desirable
that the permanent census act should be so amended as to authorize directly
the character, number, and compensation of the higher oScials of the bureau, as
indicated in the most recent appropriation acts. The necessity and character
of the changes needed are set forth in the attached statement of the Director of
the Census, marked Exhibit 1.
For Me F%re%% ojf La∨
The Commissioner of Labor, as head of the Bureau of Labor, should be re
lieved of the additional duties imposed upon him by the so-called Erdman law.
230
F o r %%e
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
o/
The number of members of the board of visitors of the Bureau of Standards
should be increased from Rve to nine. At present the personnel of the board
of visitors is composed principally of scientiRc men, and it is desirable that the
technological and industrial interests be also represented.
Specific changes in organization desired, involving new positions, increase or
decrease in compensation, or changes of designation, are set forth in detail in the
estimates for the ensuing Rscal year.
ANSWERS TO QUESTION I I .
CHANGES IN LAW THOUGHT TO BE DESIRABLE RELATING TO WORK
STATE DEPARTMENT.
For %7ae
A law should be passed relieving consular ofRcers of the necessity of sending
transcripts of their fee books to the Auditor for the State and Other Depart
ments and permitting consular accounts to be simpliRed. (See recommenda
tions to the Committee on Foreign Relations in connection with consular
readjustment, S. Rept. 1071. 61st Cong., 3d sess.)
DEPARTMENT OF JUSTICE.
Jo/nt Q.
I think the law should empower the Attorney Gen
eral to employ temporary clerks in this bureau, without regard to the Civil
Service Commission, in cases of pressing necessity, to be paid out of the lump
sum appropriation for defense of suits in the Court of Claims. The reason for
this discretion being left with the Attorney General can not be better illus
trated than by citing the fact that the last session of Congress sent to the
Court of Claims over 2,400 claims, all of which must be classiRed, docketed,
and indexed. The force in the Rle room is inadequate to perform this work
within a reasonable time and also keep up the current work. If the Attorney
General could employ one or two clerks from two to four months upon this
work it would relieve the congestion and greatly expedite the business.
The act approved August 24, 1912, known as the sundry civil bill, should be
amended so as to enable this bureau to employ as consulting experts and wit
nesses engineers formerly in the Army and Navy who have not been out of the
service the required time provided in the statute. OfRceP& who have been in
the Government employ and designated to superintend and inspect work done
by contractors, and are therefore thoroughly familiar with its technical details,
frequently leave the Government service. These former oiRcials become impor
tant technical and expert witnesses for the Government. By the act referred
to the department is prohibited from employing persons who within one year
next preceding the date of such employment have been in the service of the
United States Government. The restriction in this act delays, and will in the
future delay, the proper defense of many cases pending in the Court of Claims.
# 0%.
There should be, in addition to the present force, at
least one competent attorney at a salary of, say, $5,000, whose entire time should
be devoted to the work concerning the water rights reserved by the Government
for reclamation projects and the water rights of Indians. He should, of course,
have adequate clerical assistance.
Furthermore, there should be a lump-sum appropriation of not less than
$25,000 for the employment of counsel, clerks, and expert investigators to take
up and prosecute vigorously, tinder the guidance of the department and in
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
231
close cooperation with the Reclamation Service, the business of examining, per
fecting, and adjudicating all such water rights with the utmost expedition.
The lump appropriation should be expressly relieved of the prohibition against
use at the seat of Government.
The Public Lands Division needs an additional messenger at $840 per annum
and an additional clerk at $1,400.
It needs a statutory attorney at $4,000 to take immediate charge of Indian
land matters in the department.
Row. W. y.
The cases arising under the act to regulate commerce
are the only class of cases in my charge which require further legal provisions,
and the only repuirement for these is the extension beyond March 4 of the
appropriations for the Commerce Court. As was fully explained by you to
the congressional committee, the handling of this class of litigation will be
made much more difficult, expensive, and dilatory if the Commerce Court is
abolished.
JTo%. W. T. T&owtpso%; By section 8749, Revised Statutes, the Solicitor of the
Treasury is authorized, with the approval of the Secretary of the Treasury, to
sell at public sale the property of the United States acquired under judicial
process or otherwise in the collection of debts after advertising the time, place,
and conditions of such sale for three months. As the time which said section
now requires that advertisement of such sale has to be made is unreasonably
and unnecessarily long and results in the incurring of unnecessary expense, I
suggest that said section be amended shortening the time of advertisement to
four consecutive weeks next preceding the day of sale.
By section 3469, R. S., the power and authority to compromise claims in
favor of the United States was conferred upon the Secretary of the Treasury
upon the precedent recommendation of the Solicitor of the Treasury and report
by a district attorney or special attorney or agent having charge of any such
claim, except as to claims arising under the postal laws. Section 3229, R. S.,
also excepts claims arising under the internal-revenue laws before judgment
from the provisions of section 3469, R. S. As it appears to have been! the
intention of Congress to lodge the general authority to compromise cases, sub
ject to the exceptions above mentioned, with the Secretary of the Treasury,
I would therefore suggest such amendment of section 3469, R. S., as would
make it clear that in all claims in favor of the United States the authority
of the Secretary of the Treasury in relation to compromise was exclusive,
so that nothing in this regard shall be liable to misconstruction as it has been
in the past, where claims of this character, other than internal-revenue cases
and claims arising under the postal laws, have been compromised independently
of any action on the part of the Secretary of the Treasury under section
3469, R. S.
In this connection I might also suggest that while the compromise of claims
in favor of the United States, subject to the limitations above specified, is
conferred upon the Secretary of the Treasury by section 3469, R. S., it has
been held that his authority to compromise such claims reduced to judgment
may not be compromised on considerations of equity and hardship, but that
in such cases the Secretary is bound to take all the law demands. In the
course of my observation there are frequently cases arising wherein it is
absolutely inequitable and unjust for the Government to exact the full demand
o f a judgment, and since section 3469, R. S., fully protects the Government
from any probable improvident or ill-advised compromise by requiring the
action of at least three oRicials concurring therein, I would suggest the further
amendment of said section conferring upon the Secretary of the Treasury
232
BUDGET FOB 1914 SUBMITTED TO CONGBESS.
and other compromising officers authority to take into consideration equities
and hardships.
The collection of judgments on forfeited bail bonds in criminal cases is one
of the matters falling within the duties of the office of the Solicitor of the
Treasury, and experience has shown that in a very great many cases the
judgments are uncollectible by reason of the inadequacy of the surety or bail.
I would therefore most earnestly suggest the enactment of a statute on this
subject, which would make it obligatory on bail-approving officers to take no
surety offered who was not sufficiently qualified financially to respond to the
Government in case of a forfeiture and judgment on the bond. A duly
authorized surety company should be required on such obligations, or one or
more private individuals who at the time are the fee-simple owners of real
estate unencumbered and above exemptions in double the amount of the
undertaking.
In performing the duties of this ofBce the Solicitor of the Treasury has to
act through and depend largely upon the United States district attorneys, and
the lack of prompt and vigorous action on the part of some of these oiRcers
leads to the suggestion that too much attention is being given by them to their
private business and not the necessary attention to official duties. It might be
well therefore to disqualify district attorneys by statute from engaging in
private business during regular ofRce hours.
How.
iParZ; None, except as noted below under 1-3. The duties of
the solicitor are not defined by statute. Definition is not needed. This fact
(1) permits his work to develop along natural lines and favors its adaptation
to actual needs, and (2) renders the scope of his duties elastic. But while
his duties may thus be varied, they need not be vague, if the broad principle
is recognized, indicated by the nature of the of&ce, that his function is entirely
legal and advisory, and never executive or administrative.
3fr. O. J. FieM.* It is recommended that section 3683, Revised Statutes, be
amended so that the chief clerk can sign orders for supplies purchased from
contingent funds.
Afr. A. Br%ce
I think it desirable that special agents of this
division should be authorized by law to serve subpoenas, execute warrants, etc.,
which have been regularly issued by a United States commissioner or by a
United States court. I think it would be well also to authorize any agent to
arrest, without warrant, a person against whom evidence sufRcient to estab
lish a prima facie case involving a felony has been secured and whose escape
seems imminent. It would, of course, not be the intention to have the agents
do the work regularly performed by United States marshals and their deputies,
but merely to enable them to serve witnesses endeavoring to evade attendance
and to apprehend fugitives from justice or persons whose escape nRght be
made possible by the delay necessary to secure the services of a marshal.
It seems to me desirable that an amendment to section 183, Revised Statutes,
as amended by the act of February 13, 1911, which shall authorize any oiBcgr,
employee, or agent of this division to administer an oath to any person testify
ing or deposing in the course of any investigation made by such officer, em
ploye, or agent under official instructions should be had and that the penalty
for false swearing in such case be made the same as prescribed in section 125,
Criminal Code.
3fr. J. F.
In my opinion, section 365, Revised Statutes, requiring
a certificate from the Attorney General as a prerequisite to the payment of
compensation to special counsel, is superfluous and should be repealed; I
believe the authority and responsibility for the employment of special counsel
is fully covered by sections 363, 364, 366, Revised Statutes.
APPENDIX 3— RECOMMENDATIONS FOB CHANGES IN LAW.
233
I think it desirable to repeal sections 1763, 1764, 1765, Revised Statutes,
section 2 of the act approved July 81, 1894 (28 Stat., 205), and part of the
act approved August 24, 1912 (87 Stat., 462), and to enact a law that would
prohibit the holding of more than one position of any description or for any
reason by the same person.
DEPARTMENT OF THE TREASURY.
For Me oj^ce o? Me Recre^ari/. None.
For Me oj0%ce ojf Me
<%er%.
The provision contained in the act of August 23, 1912 (37 Stat., 375), "and
the disbursing officers shall make only such examination of vouchers as may be
necessary to ascertain whether they represent legal claims against the United
States," places upon departmental disbursing ofRcers the duty of making the
same examination of a voucher as is made by an auditor. The law now
requires at least three examinations of vouchers in the departmental service,
once by the administrative oRice, once by the disbursing ofRcer, and once by
the auditor. The Rrst and third examinations must necessarily be made. The
second examination, I believe, involves a useless expenditure of public money,
but so long as a disbursing oRicer's responsibilities remain as at present he
must, for his own protection, make such examinations so far as is possible.
I suggest legislation to the effect that when a departmental disbursing oSicer
has paid a voucher, regular in form, for the same amount and out of the same
appropriation as approved by an administrative oRicer, the auditor shall credit
the disbursing oiRcer with the amount of such payment. The law should also
require that in case the auditor Rnds that an erroneous payment has been
made he shall charge the amount thereof to the account of the approving
ofRcer, to be collected from him in the same manner as is now done in the
case of property accounts under the act of March 29, 1894 (28 Stat., 47).
Similar legislation now exists in the case of paymasters in the Navy (section
285, R. S.) and as to certain disbursements made by United States marshals
(section 846, R. S.), but in neither case is it made the duty of the auditor to
charge erroneous payments to the oRicer certifying the voucher.
For Me Oj^ce o / Me Coi^wMgsiower o/ 7%%erw%% ReveMMe;
The whole series of intemal-revenue laws might, with advantage, be revised
and enacted into one comprehensive and logical chapter. Unless, however, this
work is to be done by a trained body of lawyers it had best not be undertaken.
For Me O^ce ojf Me ZMrec%or o/ Me
Section 8524, R. S., which governs the charges levied upon bullion for certain
services should be revised, to give the Secretary of the Treasury authority to
fix charges in his discretion, with a view to making these services on the whole
self-sustaining, but with a uniform scale of charges at all ofRces. The charges
for reRning bullion, for instance, should be the same at all Government reRneries, but the cost will vary with the amount of bullion treated.
For Me Oj^ce o/ Me RMpervtstMgr AreM%ecf;
The repeal of the so-called Tarsney Act (act of Feb. 20, 1893) has left the
Secretary of the Treasury without the authority which he previously enjoyed
of securing, in his discretion, plans, designs, etc., for public buildings. Author
ity should be given the Secretary to secure, in his discretion, such special archi
tectural, engineering, or other expert technical services as he may consider nec
essary to assist the Supervising Architect in the design of buildings, or special
features thereof, and in handling large or difRcult engineering problems which
may arise in connection with any of the buildings which the Secretary of the
234
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
Treasury is authorized to construct. This authority should be in such terms
as will enable the Secretary o f the Treasury, without regard to civil-service
laws, rules or regulations, to secure such special or temporary services, to serve
either within or without the District of Columbia, and at such prices or rates
o f compensation as he may consider just and reasonable, payable from the
appropriations for the construction of the particular buildings on which such
services are employed.
For
o/
#Mr%7eo% GeMer%%— #%re%M ojf Ptt&Mc
A new building should be provided for the Hygienic Laboratory to obviate
overcrowding, and additional funds should be appropriated to investigate con
tagious diseases and to cooperate with State authorities for the prevention of
their spread. Appropriation for publications of the service should be increased
to meet the growing demand for the same.
Additional clerical help should be provided. W ith one exception, no increase
in the clerical force of the bureau has been allowed in the past 11 years.
Provision should be made whereby information can be currently obtained of
the geographic prevalence of diseases throughout the country. This can best be
accomplished by the appointment in the various localities of service repre
sentatives for the purpose of forwarding promptly information regarding the
occurrence of diseases in the respective localities. This would require, in most
cases, but a small part of the representative's time. To inaugurate such a
system for the collection of reports and information, it is believed that an
appropriation of $16,000 would be sufficient for the first year. These repre
sentatives should be exempted from the classified civil service.
For
Ojf%ce o /
Ge%era% #%peri%%e%dew% Lt/e-zScwtMg' Reriw e;
That the construction and repair of life-saving stations, except such repairs
as can be made by the keepers and crews of stations, be done by the Supervis
ing Architect, as may be directed by the General Superintendent of the LifeSaving Service.
For
Divtsto% o / C%s%ow^.*
This ofRce is of the opinion that the work of the supervision of the Customs
Service should be centralized and that a sufficient organization provided to
more closely supervise the work of the Customs Service.
For %7&e Oj0%ce o /
Re^%#%er o /
Tre%3Mr%/.*
The bond section should be made a division, with a chief in charge, at $2,000.
For
o / A%%t%or /o r
W ar Dep#r%i%ew%.'
Under this heading attention is invited to the following extracts from my
annual report for the fiscal year 1912, recommending that certain legislation be
enacted relative to the disposition of soldiers' effects, the appropriation of and
accounting for the funds for the support of the National Soldiers' Home, and
the consolidation of the work and personnel of the Treasury Transportation
Rate Board under one auditor, v iz:
" Under the regulations now effective, upon the death of an officer or enlisted
man of the Army certain of their effects, in the nature of heirlooms or souvenirs,
are turned over to this bureau with the Anal statements of the soldier. Upon
proper identification these effects are transmitted to the representatives of the
deceased. But in many cases there are no claimants, and for years these
effects— some of which are of value, such as rings, gold watches, pistols, etc.—
have been accumulating in the bureau, taking up needed spaec and placing upon
the auditor an nnecessary responsibility for their safekeeping. You have
already recommeded to Congress that legislation be adopted providing that after
three years, if there is no claim for the effects, they be sold at public auction
and the proceeds covered into the Treasury as a trust fund for the benefit of
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
285
the heirs of the deceased soldier. This has been favorably acted upon by the
House of Representatives. It is suggested that the Senate be urged to pass
this legislation the coming session.
"T h is institution for the care of disabled soldiers of the Regular Army,
located in the city of Washington, D.
is supported by a permanent appro
priation of all stoppages and fines adjudged against soldiers by sentence of
court-martial, of forfeitures on account of desertion, and of moneys belonging
to the estates of deceased soldiers which may be unclaimed for a period of years
subsequent to the death of said soldiers, as set forth in section 4818, Revised
Statutes. The money thus appropriated for the support of the Soldiers' Home
is ascertained by an examination of the vouchers and accounts transmitted to
this ofRce, and by an auditor's certiRcate is turned over to the Treasurer of the
United States as a trust fund, subject only to the control of the board of com
missioners of the Soldiers' Home, as provided in section 4815, Revised Statutes,
as amended by the act of March 3, 1883 (22 Stat., 564). This board of com
missioners has complete control of the money so appropriated, both as to the
expenditure of the funds and the audit of the accounts of the treasurer of the
home. In carrying out the provisions of section 4818 to ascertain the amount
due the Soldiers' Home requires the entire time of at least three clerks in this
ofRce. As the money appropriated by section 4818 is money which would other
wise remain unappropriated in the Treasury of the United States, this work
appears to be wholly unnecessary. The practice also of turning over money far
in excess of the present needs of that institution, subject only to the control of a
board of commissioners, appears to be contrary to the ordinary and usual
methods of carrying on Government business. I would earnestly recommend
that this be called to the attention of Congress, with a view to the repeal of
section 4818, Revised Statutes, and the support of said home by direct appro
priations by Congress, the accounts for the expenditures of money thus appro
priated to be audited as are other accounts arising under the jurisdiction of
the W ar Department."
Last year the clerks composing the transportation rate board located in the
Treasury Building, were transferred to and located in this building, making
available for all of the clerks engaged on transportation work the files or tariffs
which had hitherto been divided between the rate board located in the Treasury
Building and that in this ofRce. This change has been an improvement, but it
is believed that a further improvement could be had by placing all of the trans
portation work under one auditor, so that the services of each clerk may be
fully utilized wherever needed regardless of the class of transportation accounts.
This transfer can only be effected by congressional action, and I would respect
fully urge that this matter be submitted to Congress for its consideration, as I
am satisRed that such a consolidation would effect a material saving in the
cost of auditing transportation accounts.
For M e oj0%ce o / Me Comp%ro%%er ojf Me C%rre%c%/.*
I prepared and submitted to the National Monetary Commission a proposed
codification and revision of the national-bank act, containing the legal provi
sions which I believe should be enacted for the beneRt of this bureau. A copy
of the proposed codiRcation and the notes thereon is hereto attached.
INDEPENDENT ESTABLISHMENTS.
GOVERNMENT PRINTING OFFICE.
For M e o #ce o / Me P%&Mc Prm%er;
The Public Printer should be empowered to transfer the work and equipment
of all branch printing oSces to the Government Printing OHice with the con
sent of the head of the Executive Department concerned.
236
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
The depository libraries should be designated by act of Congress, and should
be authorized to select such public documents as they may desire to receive.
UNITED STATES CIVIL SERVICE COMMISSION.
Needs o / ?7?e comwi sst oM—
— The commission feels
that an appropriation adequate to meet its growing needs is justiRed by
the success which has attended its work. The increase in the efficiency of
the classified service due to the merit system is many times the expenditure
for obtaining it. The work of the commission increases not only in the num
ber and requirements of positions subject to examination but in the diversity
of its duties in the administration of the system. The compensation attached
to the officers of the commission should be adequate to their duties and
responsibilities, and the number of employees should be sufficient to carry on
the work economically. The commission is asking Congress to make the
salaries of the commissioners $5,000 each, the chief examiner $3,500 and the
secretary $3,000, and to provide 15 additional clerks, and to slightly increase
the average clerical salary, to furnish an incentive for competent clerks to
remain in the service. In addition the commission estimates that to carry
out the provisions of law requiring it to establish a system of efficiency ratings
12 clerks will be required during the inauguration of the system and 7
thereafter for its administration. The district system is no longer an experi
ment, and the commission desires that its 12 district secretaries shall be
designated as such and appropriated for at salaries from $2,000 to $2,400
each. The efficiency of the classified service within a district depends upon
the judgment and knowledge of procedure of the district secretary; as the
representative of the commission he confers with and advises the heads o f
ofBces, supervises the work of the local examining boards, makes certifica
tions, and passes upon the regularity of nominations for appointment, and
makes investigations of whatever character respecting the operation of the
civil service rules and regulations. These investigations, often far-reaching in
their result upon the administration of the public service, require a high
order of ability for their conduct. In his capacity of local representative of
the commission he is chairman of several boards o f examiners, is in charge
of the district headquarters, and meets and conducts correspondence with the
general public and Government officials. The commission is obliged to depend
upon his judgment and discretion to an unusual degree. The salaries are to
be given to men who have been promoted to these positions because of their
proven ability. In the estimation of the commission they are not receiving
salaries adequate to the services which they render.
Many of the examinations are for scientific and technical positions of high
grade, and in rating the papers of such examinations expert examiners other
wise unconnected with the Government service are employed under a total
annual appropriation of $2,000. The commission has secured the services o f
some of the most eminent specialists in particular lines and at a rate of com
pensation in most cases much below what these men are usually able to com
mand for their services. The announcement of the employment of these expert
examiners has resulted in an increase of applications for these high-grade
positions, thereby furnishing a wider degree of competition and a superior class
of eligibles. It is intended to make a more extended use of the appropriation
for this purpose, and the commission therefore asks that the amount available
for the next fiscal year be increased from $2,000 to $3,000.
— The commission needs a corps of inspectors for duty constantly
in the Reid and immediately available to secure exact information required in
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
237
investigations. Far better results can be thus obtained than by having to
depend upon correspondence or occasional assignment of clerks who may be
lacking in experience in this difficult and delicate work. For this purpose it
asks that it be given authority to employ not to exceed eight ex am in es to be
available for Reid duty, at a total cost of $12,000 for salaries. This need is
emphasized by the recent extension of classification to the remaining fourthclass postmasters. I f the commission had a force of inspectors at its command
to make proper investigation in each case it would be able not only to render
political influence ineffective in cases of all fourth-class postmasters, but to
certify the best qualified person available in each community, no matter what
the compensation.
— The drafts upon the appropriation for traveling ex
penses tend to increase with the extension of the classified service. The appro
priation for the last Rscal year proved insufficient for absolute needs, making
it necessary to postpone a large number of investigations of alleged violations of
the civil-service law and rules until further appropriation became available.
This postponement results in an increased amount of traveling required in the
present year. One of the most important duties of the commissioners is to
travel throughout the United States and study at first hand the needs of the
civil service as exemplified in all phases of its work. It is necessary to make
this study in order to prepare suitable regulations to meet constantly changing
conditions. In the past two years it has not been possible for the commissioners
to go into the Reid to the extent necessary and do this work because o f the
routine demands upon this appropriation. The annual appropriation for this
item should be increased from $12,000 to $17,000. Other needs of the commis
sion are for increases of appropriation for printing and binding and for
furniture.
It is imperative that the commission should be given adequate facilities, as
without these facilities long delays in marking papers and in meeting the just
expectations of appointing ofRcers and the public are inevitable.
The work of the commission is peculiar in that it underlies all the other work
o f the Federal Government, and is therefore essential and fundamental. It is
not merely the agency established by law to provide employees selected for
Rtness and not for favor in all branches of Federal activities, but it is further
charged with vital duties safeguarding the integrity of the service in the ex
clusion o f political or religious discriminaton in the personnel and in the attain
ing of efficiency. So far as the work of the commission fails in these respects
the public interests suffer. I f for lack of funds the commission is unable to
adequately carry on its work, the eiRciency, economy, and honesty of the entire
service is undermined, abuses go unchecked, and the loss thus occasioned is
many times the relatively triRing expenditure which would have prevented the
wastes. The examinations to test the Rtness of applicants need to be adequate,
the facilities for proper competition convenient, and justice and promptness
secured.
The commission is directly under the eye of the President and may be trusted
to expend whatever appropriation it gets economically and efficiently, and for
this reason is of the opinion that direct appropriations should be made for
carrying on its work without the intervention of the Interior Department.
The provision of law was desirable in the infancy of the commission, but the
commission is of the view that it should now be put upon an independent
footing. A s a step in this direction in the estimates for 1914 it is urged that
the appropriation for printing and binding be separated from the allotment for
338
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
the Interior Department; and it is believed that at such time as may prove
expedient the other appropriations (contingent expenses, stationery, textbooks,
and books of reference and rent of building) now expended through the Interior
Department should be separated.
.Proposed eaptewatow# o /
1. Loc%% presidential oncers.— The same reasons which require tests of merit
for entrance to competitive positions apply even more strongly to such of the
higher positions as have nothing to do with the policies of the administration.
These positions are chieRy those of first, second, and third class postmasters,
coilectors, and other chief oRicers of customs and internal levenue, district
attorneys, marshals, and registers, receivers, and surveyors general in the
civil service. The President has earnestly recommended in messages to Con
gress of December 21, 1911, January 17, and April 4, 1912, that legislation be
enacted under which these local positions may be classiRed and open to promo
tlon, or in rare cases where this is not practicable, to be Riled by open com
petitive examinations, and bills have been introduced in Congress to this end.
A s long as so large a proportion of the higher purely administrative positions
remain unclassified to be Riled from the outside without promotion the classiRed
service will not offer a career in competition with such outside Reids of employ
ment as are organized and conducted upon a merit basis, and which have sys
tems of retirement upon disability or superannuation. In this respect the civil
service remains inferior to the service of many business establishments, which
assure promotion for merit to the highest salaried positions, and which give
retiring allowances, and the Government can not hope to secure and retain the
services of an equally intelligent and ambitious class of persons while these
unfortunate conditions exist. The large percentage of resignations show an
increasing tendency on the part of the most capable youths to enter the classi
Red service and after a few years, Rnding themselves unable to secure advance
ment to the higher places, leave to secure employment in Reids in which the
service is better organized and the rewards greater. This constant Rux means
an enormous Rnancial drain through the loss in stability and in the supply of
adequate material to Rll the higher administrative positions. The civil service
is inferior to the military and naval services in this regard, since it does not
oiter the same opportunities of advancement and of retirement.
Where the higher positions are not open to promotion it is impossible to get
as good a class of men to enter the examinations. They are deterred if they
feel that they are cut off from rising by promotion and that no adequate career
is open to them. Again, where the higher positions are Riled by political in*
Ruence and when the men Riling them are, as they generally are, active in
political work, it is inevitable that the minor force will fall under detrimental
political inRuences.
2.
o / t7*e District a /
— O f the 15 cities with larger
population than Washington only 3 have no civil-service la w ; in 2 of these
3 cities the competitive system is applied in part, and in the third a civilservice law was passed but was held unconstitutional.
The commission
repeats its recommendation for the classiRcation of the employees of the District
of Columbia that, equally with other large cities of the country and with the
General Government employees of the seat of that Government, it may be placed
upon a similar stable footing.
3.
o/
Li&rarg/ o / Compress.— The Library of Congress is under
the control of what is known as a joiDt committee of Congress upon the Library
and this control is almost exclusively of a legislative character. Section 88 of
the Revised Statutes provides that " the President shall appoint from time to
time a librarian to take charge of the Library of Congress," and section 91 of tb^
APPENDIX 3— RECOMMENDATIONS FOB CHANGES IN LAW.
239
Revised Statutes provides that " the Librarian of Congress is authorized to
employ from time to time " assistance in the business of the library. The posi
tions in the Library of Congress are of the same general character as those in
the different departments, for which examinations have been successfully pro
vided. The departments at times need employees who have been trained in the
Library of Congress, and such persons are not eligible for transfer. The com
mission believes that with its facilities for examinations it can fully meet the
needs of the Library of Congress and probably obtain a better class of em
ployees than can be obtained under any system not so well organized. Classifi
cation of the employees which would render them eligible for transfer would
undoubtedly be of benefit tp the departments. I f such classification is not now
permissible, it is recommended that appropriate legislation be enacted to ac
complish this result.
o/
— After quoting the provision for effi
ciency ratings in the act of August 23, 1912, the commission says in its annual
report:
"*
* * The system of selecting qualified persons for appointment, of pro
tecting the service against being used for political or personal ends, needs to be
supplemented by a system applicable to all classified positions which will be
just to the employee, maintain an adequate standard o f efficiency and insure
promotion for meritorious service. The work of employees thus becomes the
subject of methodical and regular inquiry and determination."
T&e
%%%
serwce records o /
— The purpose
of the Official Register in the infancy of the Government no doubt was to give
a view of the general organization of the Government of the United States, but
in its present bulky proportions the principal if not the only purpose wti'ch
it serves is as a species of directory for the purpose of locating any given em
ployee. It is believed that a card record kept in some central office wouJd be
much more effective and more economical as a means of answering such an
individual inquiry and also for ascertaining the names of persons in a given
bureau or representing a given class of employees. Such a record kept up to date
would serve many more useful punioses than the Register as a basis upon which
could be prepared statistical records of the names of individuals and groups o f
individuals according to their different characteristics in respect to age, sex,
nationality, length of service, and other data of like character. The Register
as now published merely contains information of the individuals, so that one
may ascertain facts regarding an individual but it does not give the facts regardany given bureau or office. Under the proposed system it would be possible at
slight expense to compile from the card records statistical data o f great value
in administrative and legislative inquiries. As it is now, the administrative
services make little or no use of the Register, which is always more or less out
of date. The most recent bill in Congress on the subject provides for the pub
lication of an annual return by name of the most important ofRcials in all
branches of the Government service and a statistical treatment of the civil
service as a whole. Such a publication would give a general view of the
organization of the Government, and the commission hopes that some such bill
may become a law.
A reclassiRcation of salaries on the basis of work performed is highly de
sirable, and essential to any scheme for retirement or further satisfactory and
efRcient reform in the service. The theory of the standardization idea is that
public servants should receive fair rates of compensation, that those who do
the same work should receive the same pay. The salaries need to be related
to duties not merely in the same department but throughout the departments,
240
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
thus treating the Government service as a whole. Until the organization o f the
Government is outlined in some correlated form or plan, it is not possible to
make an adequate classification of the service, to adjust salaries on any uniform
basis, to legislate suitably upon the conditions of employment, or to provide an
equitable basis for the retirement o f superannuated persons. Such a plan
would aid in the making of estimates of expenditures, of appropriations and
their allotment, the keeping of accounts, and the establishment of cost-keeping
records.
POST OFFICE DEPARTMENT.
To provide for the introduction of a parcel post on rural routes, as recom
mended on page 7 of the Report of the Postmaster General for the fiscal year
ended June 30, 1911:
" For one year, beginning July 1, 1912, the Postmaster General may, under
such regulations as he shall prescribe, authorize postmasters and carriers on
such rural routes as he shall select to accept for delivery by carrier on the
route on which mailed or on any other route starting at the post office, branch
post oiBce, or station which is the distributing point for that route, or for
delivery through any post oiBce, branch post ofBce, or station on any of the
said routes, at such rates o f postage as he shall determine, packages not
exceeding 11 pounds in weight containing no mail matter of the first class and
no matter that is declared by law to be unmailable, and the -sum of $50,000
is hereby appropriated for this purpose."
Force? post in cities and towns.— To provide for the introduction o f a parcel
post in cities and towns having free-delivery service, as recommended on page 7
of the Report of the Postmaster General, 1911:
" For one year, beginning July 1, 1912, the Postmaster General may, under
such regulations as he shall prescribe, authorize any postmaster at a city
delivery post office to accept for local delivery, at such rates of postage as he
shall determine, packages not exceeding 11 pounds in weight, containing no
mail matter of the first class and no matter that is declared to be unmailable,
and the sum of $50,000 is hereby appropriated for this purpose."
Parcel post on transportation routes.— To provide for the introduction of a
parcel post on railway and other transportation routes, as recommended on page
7 of the Report of the Postmaster General for the fiscal year ended June 3 0 ,1 9 1 1 :
" For the investigation of a proposed parcel post in connection with the
transportation o f the mails, and for incidental expenses in the introduction o f
a parcel post on railways and other transportation routes, $50,000: Provide#,
That for the purposes of this act the Postmaster General may fix the limit of
weight for parcels at not exceeding 11 pounds and prescribe such rate o f
postage on fourth-class matter as he may deem expedient."
ViMaye delivery service.— To provide for the introduction of a system o f vil
lage mail delivery after the plan suggested on page 11 of the Report o f the
Postmaster General for the fiscal year ended June 30, 1911:
" That after June 30, 1912, experimental mail delivery may be established,
under such regulations as the Postmaster General may prescribe, in towns
and villages having a population of 1,000 or more, and the sum of $100,000 is
hereby appropriated to enable postmasters to employ the necessary assistance
to deliver the mail in such villages, and the amount to be expended at any oiRce
shall not exceed $1,800 a year."
Ocean mai% service.— To enable the department to provide contract ocean
mail service between the United States and ports of South America, the
Philippines, Japan, China, and Australasia, 4,000 miles or more distant, and
to ports on the Isthmus of P anam a:
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
241
" The Postmaster General is hereby authorized to pay for ocean mail service,
under the act of March 8, 1891, in vessels of the second class on routes to
South America, to the Philippines, to Japan, to China, and to Australasia,
4,000 miles or more in length, outward voyage, or on routes to the Isthmus of
Panama, at a rate per mile not exceeding the rate applicable to vessels of the
Brst class, as provided in said act."
postage stamps /o r /rtmMw#.— To prevent abuses of the free mailing
privilege and to enable the Postmaster General to maintain a proper postage
account covering free m a il:
"T h e Postmaster General shall furnish, under such regulations as he may
prescribe, oiBcial postage stamps, stamped envelopes, wrappers, address slips,
and postal cards for use by all ofRcers of the United States and other persons
authorized by law to transmit mail matter free of postage; and after July 1,
1912, no such oiRcer or person shall transmit any matter by mail without
prepayment of postage by means of the ofBcial stamped paper herein authorized;
and all laws and parts o f laws in conflict herewith are hereby repealed."
Coiw%e%s%%io?t to titered e?M%%o%/ees.— To extend to all postal employees in
jured in the line of duty the same privileges and compensation now provided
by law to railway postal clerks:
" A n y employee of the postal service who is disabled by accidental injury,
not due to his own negligence, received while performing his official duties,
may be granted leave of absence with full pay during the period of his dis
ability, but not for more than one year, and then at half pay for the further
period of disability, if any, but not exceeding one year additional; and if he
dies within a year as a result of the injury, leaving a widow, or children under
16 years of age, or dependent parents, such widow, children, and dependent
parents shall be entitled to receive, in such portions as the Postmaster General
may decide, the sum of $2,000."
Reward# /o r ^Mvewttows % employees.— To reward postal employees for the
Invention of labor-saving devices:
"T h e Postmaster General is hereby authorized to pay, in his discretion,
rewards to postal employees whose inventions are adopted for use in the
postal service, and for that purpose the sum of $10,000 is hereby appropriated."
Post o,#!ces 4% Federa? M iM w ps.— To bring the selection of sites and the
preparation of plans for Federal buildings to be used exclusively as post ofRces
under the immediate control of the Post OfBce Department, and to make this
department jointly responsible with the Treasury Department for the selection
of sites and the preparation of plans for buildings to be constructed for the
joint use of post ofBces and other Government otBces:
" That hereafter all sites for public buildings to be used exclusively for
post oBaces shall be selected by the Postmaster General: Provided, That in any
case where a public building is to be constructed for the joint use of a post
ofRce and other Government ofRce or oRices the selection of the site therefor
shall be made and approved by the Secretary of the Treasury and the Post
master General: AiM prodded /%rt&er, That the plans and estimates for any
public building to be used wholly or in part as a post ofBce shall, as to the
post-ofHce quarters, be based on speciBcations and estimates as to space,
interior arrangement, and equipment to be furnished by the Postmaster
General."
Post-oj^ce egi^pwteitt.— To enable the department to furnish equipment for
rented post-ofRce quarters, thus obviating the necessity of paying excessive
rental, by adding the following provision to the item making provision for rent,
light, and fuel for presidential post ofRces for the coming Bscal y e a r :
H. Doc. 1435,62-3-------16
242
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
"Aw% provtde# /%r%7ter, That the Postmaster General may expend not to
exceed $100,000 of this appropriation for the purchase, maintenance, and repair
o f equipment for the use of post oSces of the first, second, and third classes."
Private wai% receptacles.— To effect a material saving in the city delivery
service by requiring mail receptacles to be provided by patrons:
"T h at after December 31, 1912, delivery of mail by city letter carriers shall
be made only at such residences and places of business as provide at the door
or entrance suitable receptacles for its deposit."
Protection o /
&o#es.— To obviate the necessity for establishing the fact
that the Postmaster General has approved mail boxes or receptacles oh rural
routes, star routes, etc., in the trial of persons charged with injuring or
destroying th em :
"T h a t section 3 of the act of March 3, 1903, chapter 1009, be amended to
read as follow s:
'"W h o e v e r shall willfully or maliciously injure, tear down, or destroy any
letter box or other receptacle intended or used for the receipt or delivery of
mail matter on any rural delivery route, star route, or other mail route, or shall
break open the same or willfully or maliciously injure, deface, or destroy any
mail matter deposited therein, or shall willfully take or steal such matter from
or out of such letter box or other receptacle, or shall willfully aid or assist in
any of the aforementioned offenses, shall for every such offense be punished by
a Rne of not more than $1,000 or by imprisonment for not more than three
years/ "
.
/o r %wer#ioMg o?
— To enable the Postmaster General to
readjust compensation on railroad-mail routes affected when mails are diverted
during the contract term :
" When, after a weighing of the mails for the purpose of readjusting the com
pensation for their transportation on a railroad route, mails are diverted there
from or thereto, the Postmaster General may, in his discretion, ascertain the
effect of such diversion by a weighing of such mails for such number of succes
sive working days as he may determine, and have the weights stated and verified
to him as in other cases, and readjust the compensation of the routes affected
accordingly: Provide#, That no readjustment shall be made unless the diverted
mail equal at least 10 per cent of the average daily weight on any of the routes
affected."
Payment to carrier tc&ew contractor /ai%s to pa%/.— To enable the Postmaster
General to pay a carrier who has performed service for a contractor or subcontactor on a mail route the price agreed on by them within two months after the
expiration of the month in which such service shall have been performed, pro
vided the contractor shall not have paid such carrier the amount due, by sub
stituting the word " m o n t h " for the word "q u a r t e r " in the third proviso of
the act of May 4, 1882 (22 Stat. L., ch. 116, p. 5 4 ), so as to make the said
proviso read as follow s:
" I f any person shall hereafter perform any service for any contractor or
subcontractor in carrying the mail, he shall, upon Rling in the department his
contract for such service and satisfactory evidence of its performance, there
after have a lien on any money due such contractor or subcontractor for such
service to the amount of the same; and if such contractor or subcontractor
shall fail to pay the party or parties who have performed service as aforesaid
the amount due for such service within two months after the expiration o f the
month in which such service shall have been performed, the Postmaster General
may cause the amount due to be paid said party or parties and charged to the
contractor: Provided, That such payment shall not in any case exceed the rate
o f pay per annum of the contractor or subcontractor."
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
243
#o%diw# o / ?%ai% /o r postage.— To enable the department, under suitable regu
lations, to forward and deliver to the addressees, on the payment in each case o f
double the amount of the unpaid postage, any or all classes of mail on which
postage is not prepaid or is insufBciently prepaid:
"T h a t mail of such classes as the Postmaster General may prescribe, on
which postage is not prepaid or is insufBciently prepaid, shall be forwarded to
its destination, but double the amount of unpaid postage shall be collected on
delivery; and all acts and parts of acts in conflict herewith are hereby re
pealed."
Disposition o /
dead
— To enable the department to eliminate the
objectionable lottery features inherent in the present method of selling dead
m ail:
" That section 3938 of the Revised Statutes be amended to read as follow s:
" * All dead letters and parcels containing valuable inclosures shall be recorded
in the Division of Dead Letters, and when they can not be delivered to the ad
dressee or to the sender shall be held, subject to reclamation, for one year from
the recording thereof. I f within said period they shall not have been reclaimed,
such letters and parcels shall be disposed of as the Postmaster General may
direct/ "
Registered
i%dew%it2/ accoimt.— To avoid the need of numerous special
appropriations, and to improve the method of accounting for receipts and dis
bursements on account of losses of registered articles, and to permit the imme
diate payment of indemnity claims, both foreign and domestic, without regard
to Rscal years:
" That all moneys now in the hands of ofBcers and agents of the Post OfBca
Department and all moneys hereatfer recovered, collected, or received from any
source on account of the loss of registered mail of any kind, either foreign or
domestic, shall be deposited in the Treasury for the service of the Post ORice
Department; and an account is hereby created, to be denominated " Indemnity
for lost registered m ail," which shall be credited with all such deposits. All
appropriations made for the payment of indemnity for the loss of registered
mail, either foreign or domestic, and all moneys deposited as herein provided
for, shall be available until expended, without regard to Rscal years, for the
payment of indemnity for lost registered mail, either foreign or domestic, and
for the reimbursement to the owners of the moneys to which they are entitled."
Dtdemwit%f /o r ?ost registered m#i% o / t&e /?rs% eZ%ss.— To meet the rapidly
growing competition of private companies engaged in the insurance of mail
matter, to increase the facilities of the registry system, and at the same time
to provide additional revenue:
" That all lost registered mail matter of the Rrst class shall be indemniHed
to its full value, not exceeding $10,000, upon the payment of a prescribed
registry fee, to be Rxed by the Postmaster General, and to be commensurate with
the risk assumed: Provided, That no indemnity shall be paid when the loser
has been compensated by any other means than the Post OlBce Department, and
when indemnity has been paid by the department it shall be subrogated to all
the rights of the loser to the amount of indemnity paid under this act."
Domestic mottei/-order /ees.— To empower the Postmaster General, who now
Rxes international money-order fees, to adjust the rates for domestic money
orders:
" Section 2 of the act of January 27, 1894, entitled 'An act to improve the
method of accounting in the Post ORice Department, and for other purposes/
is hereby repealed. A domestic money order shall not be issued for more than
one hundred dollars, and the fees to be charged for the issue of such orders
shall be determined, from time to time, by the Postmaster General: Provided,
244
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
7toi#ei;er, That the scale of fees prescribed in said section 2 shall remain in force
for three months from the last day of the month in which this act is approved/'
Payment o / i%va%id moMe%/ order#.— To authorize a more economical and satis
factory method o f paying invalid money orders:
" That that portion of section 4, chapter 21, of the act of Congress approved
January 27, 1894 (28 Stat. L., 3 0 ), beginning with the words 'And thereafter/
in line 22 thereof, and ending with the words 'Auditor of the Treasury for the
Post OfBce Department/ in line 27 thereof, be repealed, and the following
substituted:
"'P ro v id e d , That domestic money orders shall not be paid after one year
from the last day of the month of issue except by direction of the Postmaster
. General and under such regulations as he may prescribe/ "
(7oM%sio% amowgr Didders.— To prevent collusion among bidders for furnishing
supplies to the Post ORice Departm ent:
" N o contract for furnishing supplies to the Post ORice Department or the
postal service shall be made with any person who has entered, or proposed to
enter, into any combination to prevent the making of any bid for furnishing
such supplies, or to Rx a price or prices therefor, or who has made any agree
ment, or given or performed, or promised to give or perform, any consideration
whatever to induce any other person not to bid for any such contract, or to bid
at a speciRed price or prices thereon; and if any person so offending is a contrac
tor for furnishing such supplies, his contract may be annulled, and the person so
offending shall be liable to a Rne of not less than $100 nor more than $5,000,
and may be further punished, in the discretion of the court, by imprisonment for
not less than three months nor more than one y ea r/'
transportation &%/ railroad routes.— W hen periodical second-class mail
matter is withdrawn from the regular mail trains preceding a general weighing
and thereafter sent in freight trains, and the mails are weighed on the routes
on which the regular mail trains operate, and pay adjusted upon the weights
so obtained, it is impracticable to return such periodical second-class mail
matter to the regular trains during the term if found advisable to do so for
the reason that there is no way by which the railroad company can be com
pensated for such returned weights without a reweighing of all the mails on
the route, which is inadvisable. The following proposed legislation was hereto
fore submitted:
"Provided, That the Postmaster General is authorized hereafter to restore
to the regular mail trains such periodical mail matter carried in fast freight
trains as in his judgment may be properly restored, and to weigh the same
for a period of not less than thirty succesive days and to ascertain the average
daily weight thereof, and readjust compensation for railroad transportation on
the routes over which it may be carried at not exceeding the rates provided
by la w ."
Domestic rate# to &e /2a?ed
Postmaster #enera%.— By law Congress now
Rxes the rates to be charged for the issue of domestic money orders, while
charges for the issue of international money orders are determined by the
Postmaster General. To the end that the money order revenues may be more
readily regulated to meet conditions as they may arise than is at present pos
sible, and in the Interest o f greater uniformity and the better working o f the
system generally, it is recommended that Congress be asked to grant the Post
master General authority to Rx domestic money order rates.
New sc7tedM?e o / domestic wMMte%/ order /ees.— Under the present schedule of
domestic money order fees, which was Rxed by the act of January 27, 1894,
a fee of 3 cents is charged for the issue of orders from 1 cent to $2.50, in
clusive. Inasmuch as by the terms of the same act postmasters at third and
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
245
fourth class post ofRces are allowed a commission of 3 cents for each money
order issued by them, it is manifest that a very large proportion of the orders
for $2.50 or less are issued at a loss to the department. On the other hand,
it is believed that if the fee for orders for sums of $5 and less be raised to 5
cents, the fees for orders exceeding $60 may be reduced. In the judgment of
this ofRce, moreover, the schedule might be advantageously simpIiRed by
lessening the number of grades or classes of orders therein enumerated.
It is, therefore, recommended that the following schedule of fees for domestic
orders be adopted:
For orders—
Cents.
From $0.01 to $5_________ - __________________________________________________
5
From $5.01 to $20____________________________________________________________10
From $20.01 to $40__________________________________________________________ 15
From $40.01 to $60____________________________________________________ ______20
From $60.01 to $100_____________________ ____________________________________25
The increase of revenue from a raise in the fee as proposed for money orders
for sums of $5 and less (which are the unproRtable ones) would far outweigh
any possible loss of revenue through reduction of fees as here recommended
on orders for sums ranging from $60.01 to $100.
Such reduction naturally
would have a tendency to stimulate the sa!e of the most proRtable class of
orders.
o/
7%owe%/ orders
pos%%% %o%es.— The present
method of paying the amount of invalid money orders and postal notes is by
the issue of Post OfRce Department warrants on the Treasury. Such method
is prescribed by the act of January 27, 1894, but has proven expensive and
cumbersome and not at all satisfactory to the public by reason of delays in
payment which, in many cases, must necessarily result under such system.
In the interest of improved service, therefore, it is recommended that the
act of January 27, 1894, be so amended that payment of invalid money orders
and postal notes may be effected under such regulations as the Postmaster
General may prescribe.
Registered
accoimt.— To avoid the need of numerous special
appropriations, and to improve the method of accounting for receipts and dis
bursements on account of losses of registered articles, it is recommended that
legislation be enacted, in effect as follows, providing for a continuous reim
bursable appropriation which will permit all collections on account of losses
of registered mail to be credited thereto and used as postal revenue, and also
permit the immediate payment of indemnity claims, both foreign and domestic,
without regard to Rscal y ears:
" That all moneys now in the hands of oRicers and agents of the Post OfRce
Department and all moneys hereafter recovered, collected, or received from
any source on account of the loss of registered mail of any &ind, either foreign
or domestic, shall be deposited in the Treasury for the services of the Post
OfRce Department, and an account is hereby created, to be denominated 'I n
demnity for loss of registered m ail/ which shall be credited with all such
deposits. A ll appropriations made for the payment of indemnity for the loss
of registered mail, either foreign or domestic, and all moneys deposited as
herein provided for shall be available until expended, without regard to Rscal
years, for the payment of indemnity for lost registered mail, either foreign or
domestic, and for the reimbursement to the owners of the moneys to which
they are entitled."
FoMaccoMT^w# post o ^ c e s — The methods of furnishing postmasters with
postage stamps, postal cards, stamped envelopes, and loose paper wrappers
246
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
could be much improved if Congress would authorize the smaller post ofBces
to be made nonaccounting ofHces, so far as concerns their stamp supplies;
these small oiRces to receive their supplies from neighboring large post odces
instead of by requisition upon the department.
o / Dea<%
— In the interests of the service, it is believed that
section 3938 of the Revised Statutes, relating to the disposition of valuable
undeliverable mail matter, should be amended to read as follow s:
"A ll dead letters and parcels containing valuable inclosures shall be recorded
in the Division of Dead Letters, and when they can not be delivered to the
addressee or to the sender shall be held, subject to reclamation for one year
from the recording thereof. I f within said period they shall not have been
reclaimed, such letters and parcels shall be disposed of as the Postmaster Gen
eral may direct."
It will be noted that the desired amendment includes the treatment of
"p a rc e ls containing valuable inclosures," and it is not known whether the
proposed treatment of parcels inclosing merchandise will conRict with views
o f the departmental committee charged with preparing rules and regulations
for the treatment of parcel-post matter.
NAVY DEPARTMENT.
For Me Bvreaw o/ yavipatiow;
The law should provide that the Hydrographic OfRce of the Navy Depart
ment publish all pilot and navigational charts and hailing directions and con
duct surveys required in the making of these charts and books.
For M e #vreo% o / Yard#
Doc&s;
Changs title of Chief of Bureau to " Director General of W orks."
letter, Oct. 19, 1912, to Secretary.)
(Bureau
F o r M e #wre%M o / O rdiM m ce;
The law authorizing an assistant to the Bureau of Ordnance should be ex
tended so as to provide two such assistants, their order to seniority to be
either in accordance with their precedence on the Navy list or to be estab
lished by the Secretary of the Navy.
For M e Bureau o / CowsfritcMoM a%d Repair;
The bureau recommends such legislation as may be necessary to provide for
assistants to the chief of bureau as has been recommended from time to time
by the department. In view of the large increase o f the department's work,
the appointment of assistants would relieve the chief o f bureau of many
details and also provide for an ofRcer to act in his absence. A chief of bureau
is frequently absent from the bureau investigating various work under the
bureau's cognizance, and it is considered important that there should be as
signed two officers who are qualiRed in technical matters, coming under the
cognizance of the bureau, to act in the absence of the chief of bureau.
In view of the repeated requests from commandants of navy yards and
naval stations for construction ofHcers, and owing to the Increased number of
ships now comprising the Navy and the number of ships under construction,
necessitating more work under the cognizance of the bureau and the increased
duties devolving upon the present members of the corps, it is recommended
that the number of officers o f the construction corps be increased from 76
to 100.
The repeal of sections 1538 and 1539, Revised Statutes, limiting the ex
penditures on hull and rigging o f vessels without survey.
That the clause in the act of June 10, 1896, making unlawful the employ
ment of active or retired ofHcers of the Navy or Marine Corps by any person
APPENDIX 3— RECOMMENDATIONS FOB CHANGES IN LAW.
247
or company furnishing naval supplies or war material to the Government, be
repealed.
That staff officers be promoted up to and including the rank of captain, with
runnings mates in the line.
That section 10 of the sundry civil bill approved August 24, 1912, relative
to expenses of attendance of officers or employees at any meeting or conven
tion, be repealed.
That section 6 of the sundry civil bill approved August 24, 1912, relative
to submission of estimates for general or lump-sum appropriations, be repealed.
For Me Bwe%M o/ #%e%?w Fnyineeriny;
Modify the present naval supply account act to permit the use of " operating
credits " during the fiscal year in which they accrue. This would prevent the
depletion of appropriations and promote economy and efRciency. Provision
should be made for the purchase of professional and technical books for use in
the bureau. Under the present arrangement such books must be purchased
from the limited funds provided for the Navy Department Library. The num
ber of such books available is, therefore, limited and are not sufficiently
accessible to be of any great value to the bureau.
For M e #%re%M ojf SitppMes
Accounts;
A further increase should be made in the Pay Corps of the Navy and
Increased salaries should be provided for the clerks of the bureau.
The provisos under the following appropriations, pay miscellaneous, ord
nance and ordnance stores, equipment of vessels, maintenance yards and docks,
provisions Navy, construction and repair, and steam machinery, which limit
the amounts to be paid for classified employees under each, should be eliminated
and the following proviso should be inserted at a suitable place in the naval
appropriation b ill:
"Provided, That the total sum to be paid out of all naval appropriations
under the direction of the Secretary of the Navy for clerical, drafting, inspec
tion, messenger and watchmen service, and for chemists, at all navy yards,
naval stations, and other establishments under the Navy Department, shall not
exceed $-----------during the Rscal year ending June 30, 1914: Provided /%rMer,
That the pay of all such classified employees employed on industrial work shall
be charged to cost of work and of those employed on military work shall be
charged direct to appropriation: And provided /%rMer, That each classified
employee shall be designated as either industrial or military and his salary
charged accordingly/'
The abolition of the Returns OfRce, Department of the Interior, as previously
recommended by the President's Commission on Economy and Efficiency.
INTERIOR DEPARTMENT.
Amendment should be made of the existing law relating to Crater Lake
National Park and Mesa Yerde National Park, respectively, so as to authorize
the use of the revenues for privileges granted in said parks in the administra
tion, protection, and improvement thereof, thereby making legislation as to
these parks correspond with similar legislation as to other national parks
under this department. Amendment also of existing law should be made so
as to authorize the Secretary of the Interior to grant leases for a period of
20 years or less in the various national parks under his supervision. The
present limitation of 10 years in most of these reservations is not such as
to induce capital to make investment in buildings and hotels. Provision also
should be made by Congress for the extinguishment of all private holdings
in the several national parks.
248
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
The Secretary of the Interior should be authorized to expend the appro
priations for stationery and contingent expenses of the department in the
purchase of such supplies for the subordinate bureaus o f the department, and
to reimburse the department appropriations for such expenditures through the
medium of transfer vouchers; the accounting officers should be required to
accept the department's certification of transfers for such purpose.
For t^e Government .Hospital /o r M e Jnsane;
See " A report of the committee to consider the organization and needs o f
the Government Hospital for the Insane, as made to the Secretary of the In
terior under date of November 10, 1911."
For t&e (7o%%mMa institution /o r t&e Deo/.*
A law similar in intent to Senate bill 6850, Sixty-first Congress, second
session, favored by former Secretary Ballinger and introduced by Mr. Gallinger,
should be enacted, requiring that the Columbia Institution for the D eaf report
directly to Congress instead of reporting to the Secretary of the Interior, and
giving its board of directors power to bestow free scholarships.
For M e General Land Oj#5ce;
The taking of proofs on the land. A t present proofs are taken before the
register and receiver and United States commissioners. In my opinion this
procedure is not satisfactory. A more expeditious way would be to have the
proofs taken on the land by a special agent designated to visit the land. The
agent should be authorized to collect a fee from the claimant, the amount of
which should be based upon the distance of the claim from some given point
in the land district. I f this procedure is adopted the proof submitted would
be much more satisfactory, and there would be a saving in rendering unneces
sary the expenses of a subsequent examination by a special agent to detect
fraudulent proofs. The cost to the claimant would be about the same that he
is under now in the payment of his expenses.
Amendments to " compulsory attendance act."— It is believed that the diffi
culties and embarrassments now attending procedure under the act of January
81, 1903 (82 Stat., 79 0), known as the compulsory attendance act, would be
obviated by an amendment providing for the attendance of witnesses residing
within 100 miles of the place of hearing, and providing for the taking of depo
sitions of witnesses living at a distance greater than 100 miles from the place
of hearing. The Comptroller of the Treasury has held that, under the terms
of the act cited, a witness who attends at the place of hearing is entitled to
receive only fees and mileage to cover the distance traveled in the county in
which the hearing is held, and that he is not entitled to reimbursement for any
expenses incurred in travel outside o f the county. The comptroller has also
held that, where a deposition is taken under section 4 of said act in the county
of the witness's residence, the witness is entitled to but travel expense for the
distance within the county. This construction of the law has resulted in con
siderable embarrassment to this office, for the reason that a witness may live
just over the line of the county in which the hearing is held, and it would be
considerably less expensive to have him appear at the place of hearing, although
it is in another county, than to take a deposition in the county in which he
resides, for in many instances the nearest officer authorized to take the deposi
tion might be in a part of the same county far removed from the place of the
residence of the witness. I f the amendments as suggested are enacted, the
confusion now arising in the adjustment of fees of witnesses would be obviated.
For tAe Oj%ce o / Indian A#airg .*
There have been submitted to Congress a large number of bills affecting
Indian affairs. This legislation is enumerated in the legislative calendar of
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
249
the Sixty-second Congress, compiled by the Committee on Indian Affairs of
the United States Senate. The calendar shows the docket number, by whom
introduced, and date of reference, bill number, title, subcommittee, and date
referred, and action thereon.
One of the most important items of legislation relating to Indian affairs
pending before Congress is the bill H . R. 46, which has for its purpose the
amending of the act of March 2, 1907 (34 Stat. L., p. 1221), being "A n act pro
viding for the allotment and distribution of Indian tribal funds." I f H. R.
46 is enacted, it will enlarge the scope of the act of March 2,1907, which experi
ence has shown to be advisable and necessary in order to cover classes of
Indians not now provided for under existing law. There are more than
$40,000,000 of Indian trust funds in the United States Treasury, and it is
deemed advisable to segregate these funds to the credit of the individual
Indians and use the funds whenever practicable for the benefit of said Indians
in promoting their civilization.
There is no authority of law to permit mining on Executive order Indian
reservations. The lack of this law is resulting in loss to the Indians and
retarding the development of certain portions of the Indian country. There
has been introduced in Congress a bill, S. 6812, which if amended as recom
mended by the department and enacted, will provide for the leasing of lands
within Indian reservations that have been established by act of Congress or
Executive order.
There is also serious need of legislation which will permit any nation, tribe,
or band of Indians to submit its claims against the United States to the Court
of Claims for adjudication, with the right of either party to appeal to the
Supreme Court. The department has submitted to Congress legislation cover
ing this subject, which was introduced in the Senate as S. 5151, and in the
House as H. R. 19414. I f the general jurisdictional legislation now pending
in Congress is not enacted, it is believed that there should be enacted special
jurisdictional bills permitting Indian nations, tribes, or bands to submit their
claims against the United States to the Court of Claims.
Section 2 of the act of June 25, 1910 (36 Stat. L., p. 855), should be amended
so as to permit Indians to dispose by will of other property than allotments
held in trust. There has been introduced in Congress legislation, H. R. 1332,
which has for its purpose the broadening of the scope of section 2 of the act
in question. This bill has been reported on favorably by the department, and
it is hoped that it may be enacted at the coming session of Congress.
For further information regarding Indian legislation attention is invited to
the Senate calendar herewith, relating to Indian legislation, which shows the
views of the department on the various bills on which departmental reports
have been submitted.
For t&e United States Patent Oj^ce;
Section 4934, Revised Statutes, should be amended as to the fee for recording
assignments in such a manner as to provide for an additional fee of 25 cents
for each patent in excess of one included in an assignment. A t the present time
it is a common practice to include in a single assignment a large number o f
patents, and the expense of making the record is largely in excess of the fee
received for the purpose.
Section 4934, Revised Statutes, should also be amended with respect to the
fees paid upon the filing o f applications and the allowance of the same by
making the first fee $25 and the final fee $10. In the Oldfield bill, H . R. 23417,
the fees for filing and allowance of a patent were reversed, the Rrst fee being
$20 and the Rnal fee $15, but the change above recommended would probably
yield a greater revenue without increasing the total expense to the applicant,
250
BUDGET FOB 1914 SUBMITTED TO CONGBESS.
and such increase in revenue would probably be advisable if additional ex
penses which have been recommended to the Economy and EfRciency Commission
should be hereafter incurred.
Section 4898, Revised Statutes, should be amended by adding at the end thereof
the following words: " O r prior to the date of such subsequent purchase or
mortgage." It would seem to be only just that any assignment or mortgage
which is placed of record in the Patent ORice prior to a subsequent assignment
should be valid against such subsequent purchaser or mortgagee. This subject
was discussed and the change in the law was recommended by Commissioner
H all in his annual report to Congress for the year 1887, but nothing has been
done.
For Me Bureau o / Fdncattow;
The limitation on number of copies of the bulletin and miscellaneous publi
cations that may be issued by the bureau should be removed, and the number
to be issued should be determined by the Secretary of the Interior.
1. Provision should be made for an assistant commissioner to perform such
duties as may be assigned to him by the commissioner.
2. There should be deRnite authority for the commissioner to attend meet
ings of educational conferences, associations, and societies, and to detail
specialists in the bureau to do the same.
3. The Bureau of Education should be authorized to carry on experimental
work in elementary and secondary education in cooperation with public ele
mentary and high schools.
For M e !7wite% State# #eo%o#tc&! #%rvey;
Two amendments to the existing law are desired:
First, to provide for participation in the " compensation for injury " law ap
proved May 30, 1908. The work o f the employees o f the Geological Survey in
the Reid, especially in the W ater Resources Branch, is extremely hazardous.
There have been several accidents in which great hardship was imposed upon
the injured employee, and it was impossible for him to receive any redress.
The employees of the Engraving Division, which includes the instrument shop
and the photographic laboratory, are also exposed to danger, such as the
crushing of hands or feet while working on presses, planing machines, operate
ing grinding or bufRng machines, lathes, drill presses, etc., or in handling the
heavy stones and forms used in printing. In the photographic laboratory
the greatest danger is from accidental poisoning; but there are other sources
of danger, such as injuries in handling large plates of glass and heavy printing
frames.
Second. General authority for expenditures from scientiRc appropriations
outside of the United States. Not only are frequent demands made upon the
Geological Survey, as on other scientiRc bureaus, for representation at inter
national congresses purely technical or scientiRc in character, but occasional
geologic or engineering study of foreign localities is needed in direct connection
with surveys and investigations under way in the United States. A t present
delegates to international congresses are forced to meet necessary traveling
expenses by personal expenditures. I have represented the survey at two inter
national geological congresses at my own expense— one in Mexico and the other
in Sweden— and the same is true of my associates. The Rrst-hand knowledge
which the geologists in the Government service have of the geology and ore
deposits of other countries has been gained by them before entering the service
or while on leave without pay, when traveling at their own expense or as experts
in the employ of foreign corporations. In this way Federal geologists have
made critical profssional studis in South Africa, Australia, South America,
Mexico, and Asia, which experience has contributed largely to the value of the
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
251
survey's work in the United States. To cite one case: W ithin a few months
the chief geologist of the survey was called in an important land case as the
Government's chief expert witness, and in the cross-examination he was called
upon to discuss the copper mines of the world, with the result that his personal
acquaintance with certain of the foreign mines gave added weight to his testi
mony and to the Government's case. H is familiarity with these foreign occur
rences had, however, been acquired at personal expense.
For
/Sendee;
It is deemed desirable to secure legislation which will authorize the Reclama
tion Service to invest a portion, not exceeding 50 per cent, of the receipts from
the sale of town lots upon reclamation projects in municipal imprvements, such
as water supply, sewerage, paving, etc.
For
i?Mre%M ojf
It is desirable that appropriations made for mine accidents investigations,
fuel testing, mineral-waste investigations, or other technical work^ shall pro
vide for all equipment, supplies, expenses of travel, and other expenses of every
sort incident thereto, including personal services in the District of Columbia,
so that the Treasury accounting officers may be in no doubt as to the full scope
and purposes of these funds. See estimates of appropriations for 1918, pages
408 and 409.
DEPARTMENT OF AGRICULTURE.
It would be desirable to codify the laws governing the department work and
to put all the bureaus on the same basis as to laws governing permanency of
work. A t present certain bureaus are governed by specific acts of Congress
establishing them as integral branches of the department, while others are
acting under appropriations made to enable the Secretary of Agriculture to
undertake or continue certain lines of investigation.
W ithin the last few years there has been developing a strong sentiment in
favor of the Government making larger provision for the promotion and pro
tection of human health, and several bills have been introduced in Congress for
the establishment of a bureau of public health. I am in hearty accord with
the general object of providing better facilities for work in the interest of the
public health and believe that all instrumentalities of health should be trans
ferred to the proposed bureau.
In the interest of economy and the securing of better housing facilities for
branches of the Department of Agriculture now occupying rented quarters I
have to suggest the desirability of having authority given by Congress to the
Secretary of Agriculture to secure plans for additional suitable buildings to be
erected on the grounds of the Department of Agriculture, such buildings to have
sufficient capacity to house all units of the department and employees now
occupying rented quarters in Washington. In 1903, when the last building for
the department was authorized, there were only about 1,000 persons in the
department located in Washington. By the time the building was completed
in 1908 the force of the department in Washington had doubled in size and
further additional space was immediately required. At the present time the
department has nearly 3,000 employees in Washington. The appropriations for
the department have increased many fold in the past decade and there have
been added a considerable number of units of work, requiring extensive labora
tory facilities. This large increase has necessitated the securing of quarters
in a number of outside rented buildings, many of which are not well adapted
for laboratory and other investigational work. The department is now occupy
ing rented space in 20 separate buildings, most of which are located just south
o f the department grounds, and $95,329 is appropriated at present for such rent
252
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
of buildings in the District of Columbia. In considering any plan for the future
growth of the department it is absolutely essential and necessary that the
matter of the erection of further buildings on the north lot be given due weight.
The south lot is now occupied by the laboratory wings of the structure author
ized in 1903. Provision has been made for an extension of these structures
any time Congress sees at to make appropriations for the same. This extension
will include a proper administration building suBicient to house a pprtion, but
not all, of the active force now in the city of Washington. The north side o f
the Mall on the grounds of the department is now occupied by 29 greenhouses
and a large brick structure in which the mechanical shops, stables, storerooms,
etc., necessary to the work of the department are located. The actual buildings
now located on the north lot represent an approximate value of from $150,000
to $200,000.
The greenhouses located at this point are used primarily as
adjuncts to our laboratories. Much of the investigational work that is being
conducted by the department makes it extremely important to have sucn
facilities close at hand. I f there be added to the present Agricultural Building
such units as may be necessary to make it suitable for housing all adminis
trative forces, scientific forces, and laboratories now occupying rented buildings,
the approximate cost of this addition will be $8,000,000. The present new
buildings cost $1,500,000 and provide a Boor space of 159,524 square feet. This
is an average cost of $9.40 per square foot. In the same ratio new units of suBi
cient size to accommodate those branches of the department now occupying
rented quarters or quarters on the Government reservation in old buildings
which must be removed to make room for the additions, will cost approximately
$3,000,000, as will be seen from the following tab le:
Square feet.
Present rented quarters_________________________________________________
Main building (to be removed)__________________________________________
Insectary (to be removed)___________ - ____ ___________________________
Annex building (to be rem oved)_______________________________________
Dairy building (to be rem oved)--------------------------------------------------------------
303,250
35,000
2 ,5 0 0
18 ,000
1 ,2 5 0
Total________________________________________________________________
360,000
Three hundred and sixty thousand square feet, at $9.40 per square
foot_________________________________________________ ____________________ $ 3 ,3 8 4 ,0 0 0
In transferring services o f the department from rented quarters a considerable
saving in waste space can be effected and in addition to the rent now paid
several thousand dollars of extra administrative and running expense could be
3aved. The necessity and desirability of this plan was recommended in the
report of the President's Commission on Economy and EBiciency " On the
Housing Services in the Department of Agriculture," July, 1912, as fo llow s:
" The Government can add to the two segments of its owns building, known
as Laboratories A and B, which cost $9.40 per square foot, such additional
^inits as may be necessary to include the Boor space mentioned above, or such
additional space as may be required to include the space in all rented buildings,
the owned buildings that would have to be removed, and the space that may be
required by the Department of Agriculture for a period of years, in order that
the entire service in the city of Washington, except the Weather Bureau, may
be contained in one building rather than rent one or several large buildings,
with the result of an equally positive but less tangible further economy due
directly to better, housing, more complete concentration, intercommunication
and control of the bureaus, divisions, and individuals, and the increased eBiciency and dispatch which would inevitably result to the service therefrom."
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
258
A bill has been introduced in the House of Representatives, H . R. 25574,
July 3, 1912, by Mr. Stanley, " To provide for the securing of plans for addi
tional buildings for the Department of Agriculture in the District of Columbia/'
In order to meet the necessities in the housing of the Department of Agriculture,
this legislation will be a step toward carrying out the recommendations con
tained herein.
In the estimates of appropriations for 1914 I have submitted the following
recommendations for the Bureau of Animal Industry:
First. That the provisions of the act of Congress of March 3, 1905, " T o
enable the Secretary of Agriculture to establish and maintain quarantine dis
tricts, to permit and regulate the movement of cattle and other live stock there
from, and for other purposes," be so amended as to apply to any railroad com
pany or other common carrier whose road or line forms any part of the route
over which cattle or other live stock are transported in the course of shipment
from any quarantined State or Territory or the District of Columbia. This
additional provision is desired, inasmuch as by the decisions of the courts the
Department of Agriculture is now without power to control the treatment,
handling, method and manner of shipment, etc., of cattle or other live stock in
the course of interstate transportation by rail after such shipments have been
moved from quarantined States and have been received by connecting carriers
in States which are not quarantined.
Second. That additional authority be given the Department of Agriculture
to prevent the introduction into the United States of dangerous or worthless
products, some of which products may be the means of introducing diseases not
now known in the United States, and also for the purpose of controlling the
use by preventing the interstate shipment of similar dangerous or worthless
products that may be manufactured within the United States; the products
referred to being worthless, contaminated, dangerous, or harmful viruses,
serums, toxins, or analogous products intended for use in the treatment of
domestic animals.
Third. That authority of law be given the Department of Agriculture to sell
at cost such pathological or biological specimens as the Secretary of Agriculture
may deem of scientiRc or educational value, to scientists or others engaged in
the work of hygiene and sanitation, all moneys so received to be deposited in
the Treasury of the United States.
Fourth. That additional authority be given, extending the provisions of the
Federal meat inspection law to reindeer and the meat and meat food products
thereof.
The Bureau of Animal Industry is of the opinion that in the meat inspection
work authority of law should be secured to require labels to show the principal
ingredients contained in packages of meat products.
In addition to the foregoing recommendations for new legislation the fol
lowing recommendations are made in the report of the Chief of Bureau of
Animal Industry for the Rscal year ending June 30, 1912:
"Experience in the enforcement of what is known as the 28-hour law has
shown the desirability of exempting in some cases from its operation live stock
which is being shipped under quarantine restrictions. Owing to unforseen de
lays it is sometimes necessary in order to comply with the law to unload stock
which is being shipped under quarantine restrictions into pens which are not
specially set apart for that class of stock and which are likely to be used soon
afterwards for other stock, and in this way infection has sometimes been, spread.
This danger could be practically obviated if the Secretary of Agriculture were
clothed with power in such cases of emergency to waive the provisions of the
law so that animals under quarantine might be kept in the cars for a sufficient
254
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
time to reach a point where facilities were available for handling them without
danger to other stock.
"Although existing law authorizes the Secretary o f Agriculture to require
the disinfection o f live stock cars moving into or out of a section that is quar
antined, it is desirable to have this authority extended so as to empower the Sec
retary of Agriculture to require the disinfection of any live-stock cars used in
interstate commerce whenever he may consider such disinfection necessary in
order to prevent the spread of disease.
" In the shipment o f live stock it is sometimes a practice to put into the same
car animals of various sizes and species, with the result that small animals are
often injured or trampled to death by larger ones. In order to remedy this
evil it is desirable that the Secretary of Agriculture should have authority to
regulate the shipment of different classes of stock in the same cars.
"D e a d animals are sometimes shipped in the same cars with live ones, and
there is danger of the spread of disease in this way. Such shipments should
be prohibited by law.
"T h e r e should also be legislation prohibiting the interstate shipment of
young calves, which, on account of their inability to eat solid food and their
refusal to drink water, are sometimes kept for several days without nourish
m ent."
" In previous reports attention has been called to the need of inspecting dairy
products and supervising their shipment. Cream is shipped great distances
to creameries to be made into butter, and is often received in such a Rlthy and
putrid state as to be thoroughly unfit to enter into the composition o f a food
product. Investigations made during the last Rscal year showed that 61 per
cent out of 1,554 lots of cream received at creameries and buying stations was
of third grade, i. e., dirty, decomposed, or very sour; that 94% per cent of the
creameries investigated were insanitary to a greater or less degree; and that
72.6 per cent of these creameries did not pasteurize the milk so as to destroy
any disease germs that might be present. A s butter is taken in the raw state,
this product when made under such conditions as prevail in the majority of
creameries can not be said to be wholesome and free from danger to human
health. It is believed that a proper law, well enforced, would remove a great
majority of the bad conditions now existing. A Federal law would, of course,
apply only to products made for interstate or export shipment or to establish
ments engaged in interstate or foreign commerce. Such a law should embody
the following requirements:
" 1. That a proper standard of sanitation in the plants be maintained.
" 2. Compulsory pasteurization of all cream.
" 8. That low-grade cream which is neutralized, blown, or otherwise renovated
be handled in a separate plant, and that the butter made from such cream be
labeled so as to indicate that it is made from renovated cream ; in other words,
it should be handled in the same manner as renovated butter.
" 4. That the stamp of approval of the United States Government should be
upon all cases before any transportation company is allowed to accept them
for interstate or export shipment.
" T h e power should be given to inspect the cream received at such estab
lishments and to supervise the processes of manufacture, as well as to inspect
the finished product and to condemn and destroy for food purposes any cream
and all butter found to be unwholesome or unRt for human food. These pro
visions could be modeled somewhat after the present meat-inspection la w ."
" The law of May 9, 1902, under which inspection of renovated or processed
butter, and of factories engaged in the preparation of this product, is carried on,
is inadequate and should be amended or superseded by a law containing pro
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
255
visions similar to those of the meat inspection law, so far as they should be
applicable, but retaining the revenue feature of the present law. Some im
provement has been made possible by a provision inserted in the current
agricultural appropriation act, giving authority for enforcing sanitation at
these establishments, but further legislation is needed. The new law should
embody the following provisions:
" 1. The name of the product should be ' Renovated B utter/ This name
would indicate exactly what the product is. The name 'processed butter/
authorized by the present law, is deceptive.
" 2 . The manufacturer should be required to pack all renovated butter in
small packages, of say 1, 2, and 3 pounds, and should be required to place a
stamp upon each package in such manner as to seal the package, which stamp
should not be broken or removed except by the consumer of the goods. A
definition in the law covering the word ' consumer' would of course be neces
sary. A t present a very large per cent of renovated butter is sold as butter, and
while properly renovated butter is a wholesome product, it should be sold to
the consumer for exactly what it is. The manufacturer's original package
would be a great factor in preventing deception.
" 3 . The Secretary of Agriculture should have authority to make regulations
regarding the sanitation of the plants, the kind of packing stock to be used, and
the finished product. There should also be authority to make sufficient inspec
tions to see that these regulations are complied with.
" 4 . The Secretary of Agriculture or his authorized agents should have
authority to condemn &nd destroy for food purposes all packing stock which is
for any reason unfit to be used in a food product. H e should also have authority
to require the pasteurization of all mink, cream, and butter oil to be used in
renovated butter.
" 5 . A ll manufacturer's packages and shipping cases of renovated butter
should be labeled 'Renovated B u tter' in letters of a given size, and in addi
tion the label should bear the words 'U . S. Requirements Complied W it h ' or
some other statement of approval, and the factory number. A ll labels, marks,
and brands should be approved by the Secretary of Agriculture under suitable
regulations issued by him.
" 6. A ll railroad and transportation companies should be prohibited from
accepting for interstate shipment any renovated butter not properly labeled.
" 7. The Secretary of Agriculture should have authority to withdraw and
prohibit the further use of the approval label by plants failing to comply with
the law and the regulations.
" 8. Suitable penalties should be provided for all violations."
I have also submitted in the estimates of appropriations for 1914 the following
recommendations for the benefit of the Forest Service:
1.
The paragraph defining the authority of the Secretary of Agriculture under
the appropriation for general expenses of the Forest Service should be amended
by striking out the words " except the Black H ills and Harney National Forests
in South D akota," and the words,
That the exportation of dead and
insect-infested timber only from said Black Hills and Harney National Forests
shall be allowed until such time as the forester shall certify that the ravages of
the destructive insects in said forests are properly checked, but in no case
after July 1, 1914." There is a very strong demand from the people residing in
and adjacent to the Black Hills and Harney National Forests for the repeal of
that portion of the law which restricts the exportation of forested products to
points outside of the State of South Dakota. These forests are located in the
extreme southwestern corner of South Dakota and adjoin the boundary line of
the State of Wyoming. During the past few years a very large number of new
256
BUDGET FOR 1914 SUBMITTED TO CONGBESS.
settlers have established their homes in southeastern Wyoming adjacent to these
forests. Under the existing restrictions of the law they are unable to secure
any timber supplies from the forest near their homes, but are compelled to
purchase lumber shipped from a distance. This is also true of settlers in
northwestern Nebraska. The needs of the settlers and industries in south
western South Dakota are sufficient to utilize only a small portion of the
mature timber in these national forests and, consequently, with a restricted
market, a very large amount of timber is being allowed to deteriorate in quality
while it is urgently needed by settlers in the adjoining States.
2.
A paragraph should be included as follow s: "Provided, That in all patents
hereafter issued for lands acquired under any of the public-land laws which
are located within the limits of a national forest, it shall be expressed that there
is reserved from the lands in said patent described a right of way thereon for
roads or trails constructed by the authority of the United States or necessary
in the administration of the national forests." It is often difficult to foresee
the need for reserving rights of way which will be necessary for the handling of
timber and other products of the national forests, and many instances have
already occurred in which patent has been issued for lands which control the
natural outlet for large bodies of timber. In listing lands for settlement under
the act of June 11, 1906, such needs can sometimes be foreseen and the neces
sary right of way excepted in describing the land, but even with this class of
entries it is often difficult to tell in advance just where the right of way should
be located. In order to obviate this difficulty and protect the public interests,
it is desired that a reservation of the right to locate necessary rights o f way
should be made in the issuance of patents for lands within the boundaries of
national forests.
8.
A paragraph should be included as follow s: " That hereafter the Secretary
o f Agriculture be authorized to reimburse owners of horses, vehicles, and other
equipment lost, damaged, or destroyed while being used for necessary are
lighting, trail, or official business, such reimbursement to be made from any
available funds in the appropriation for which the hire of such equipment is
properly chargeable." In fighting forest fires the Forest Service depends very
largely upon being able to hire horses and conveyances which may be necessary
for the transportation of men and supplies. It often happens that owing to
the hazardous nature of this work and the danger of injury to horses, vehicles,
or other equipment the owners of such equipment decline to furnish it in the
absence of any guarantee of return in good condition, and great difficulty is
experienced in securing the necessary means of transportation at times when it
is most needed for the protection o f the national forests.
4.
A paragraph should be included as follow s: " T h e Secretary of Agricul
ture is hereby authorized to enter into cooperative agreements with towns,
cities, or States for the management during a limited term of years of lands
owned by them and located either within or adjacent to the national forests,
under terms which will provide for reimbursement of all money expended in the
improvement and protection of such lands." Many of the towns and cities in
the Western States are dependent for their water supply upon streams, the
headwaters of which are located within the national forests. It is extremely
important, therefore, that good forest conditions be maintained upon these
watersheds. In some cases the towns or cities own considerable areas o f land
upon these watersheds within and adjacent to the national forests and are
desirous of securing the assistance of the Forest Service in the proper manage
ment of these lands. In several of the States large areas of timberland have
been selected under the provisions of enabling acts for the benefit of their
schools or other public institutions. These lands are also located either within
APPENDIX 3— RECOMMENDATIONS FOB CHANGES IN LAW.
257
or adjacent to the national forests, and the States are desirous of cooperating
with the Forest Service in their management. For these reasons it is desirable
that legisiation be enacted which will authorize the Secretary of Agriculture
to enter into agreements for the management of municipal or State lands in
connection with the national forest lands until such time as the town, city, or
State is prepared to assume full charge of the lands; the total cost of such
work to be paid by the town, city, or State. This would give the Forest Service
an opportunity to prepare practical working plans for the lands and enable
the municipalities and States to secure the benefit of the advice of the trained
men in the Forest Service.
5.
In addition attention is invited to the following paragraph which appears
in the agricultural appropriation bill for the fiscal year ending June 30, 1912
(36 Stat., 1235, 1253) : " That so much of an act entitled 'An act making appro
priations for the Department of Agriculture for the fiscal year ending June 30,
1908/ approved March 4, 1907 (34 Stat. L., pp. 1256, 1270), which pro
vides for refunds by the Secretary of Agriculture to depositors of moneys to
secure the purchase price of timber or the use of lands or resources of the
national forests such sums as may be found to be in excess of the amounts
actually due the United States be, and is hereby, amended hereafter to appro
priate and to include so much as may be necessary to refund or pay over to the
rightful claimants such sums as may be found by the Secretary of Agriculture
to have been erroneously collected for the use of any lands, or for timber or
other resources sold from lands located within, but not a part of, the national
forests, or for alleged illegal -acts done upon such lands, which acts are subse
quently found to have been proper and legal; and the Secretary of Agriculture
shall make annual report to Congress of the amounts refunded hereunder."
This paragraph should be amended by reenacting it with the words " or adja
cent to " inserted immediately after the words " from lands located within," in
line 23. While this provision clearly applies to sums erroneously collected for
the use of lands, or for timber or other resources sold from lands located
within, but not a part of, the national forests, it has been held not to apply
to lands outside or adjacent to the forests which are outside the exterior
boundaries of the forests. There is no good reason why moneys erroneously
collected for the use of the latter class of lands should not also be paid to the
rightful claimants. Every argument in favor of making such payments to
claimants of lands within the forest applies equally to lands immediately out
side or adjacent to it.
—That the provision of section 84 of the Criminal Code be
extended to include all reservations under the jurisdiction of the Department
of Agriculture and that wardens in charge thereof be given the same authority
to make arrests without warrant as is now accorded Forest Service ofRcers
under the provisions of Thirty-third Statutes, page 700.
Section 8 of act approved June 26, 1912 (U. S. Stats., 1911-12, pt. 1, p. 184),
should be changed so as to permit employees of this bureau outside of Wash
ington, D. C., to attend meetings of farmers, fair associations, and other as
semblages of persons interested in agriculture, at Government expense, because
such assemblages afford superior facilities and opportunities for the collection
of agricultural data.
The provision in Twenty-third Statutes, 356, prohibiting payment of any part
of the appropriation of this department as additional salary or compensation to
any person receiving compensation as an ofEcer or employee of the Government,
should be repealed. This provision constantly hampers the field work of the
department in preventing the employment of members of the Life-Saving Service,
H. Doc. 1435, 62-3-------17
258
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
Reclamation Service, Indian Service, postmasters, etc., as wardens of our reser
vations, storm-warning observers, and in other capacities in the Reid. Such
duties might well be performed by oiRcers in other departments without inter
fering with their regular work, and thus effect economy and increase efficiency
by making available to this department a much higher grade of employees than
could otherwise be secured for the practically nominal salaries offered, wardens,
river and rainfall observers, storm-warning displaymen, collaborators, etc.
There should be an amendment to section 8 of the legislative act (No. 299)
approved August 23, 1912, relative to the centralization of the distribution of
publications in the Government Printing ORice, so as to provide for only the
distribution of regular mailing lists, leaving the miscellaneous distribution to be
conducted by the department.
Under the provisions of Thirty-sixth Statutes at Large, 440, the maximum salary
that may be allowed scientiRc and technical men is $4,000. It is thought that
this should be increased to $5,000, and legislation is recommended accordingly,
the maximum salary to be given only to those few scientists who distinguish
themselves in the department by extraordinary scientiRc work. The department
has already lost many of its most valuable men and will continue to lose them
unti! the present legal limitation is increased as recommended.
In the act to provide for the thirteenth and subsequent decennial censuses
approved July 2, 1909 ( 36 Stat., 3), the following proviso occurs: "Provided,
That hereafter all examinations of applicants for positions in the Government
service, in any State or Territory, shall be had in the State or Territory in
which such applicant resides, and no person shall be eligible for such examina
tion or appointment unless he or she shall have been actually domiciled in such
State or Territory for at least one year previous to such examination." It is
desired that the above proviso be amended by inserting after the words in the
opening sentence, " in any State or Territory," the words " except such examina
tions as test professional, scientiRc, or technical qualiRcations." The Attorney
General has already interpreted this proviso as including only examinations to
appointments in the apportioned departmental service in Washington, D. C., but
the eifect of the law as enforced is to prevent the probational appointment in
Washington, D. C., of eligibles examined for the nonapportioned service except
in the few cases when the residence qualiRcations of the applicant at the time of
the examination, fall within the terms of the proviso. Necessarily eligibles are
therefore certiRed, not in accordance with their relative standing in the list
of all who passed the examination, but in accordance with their relative stand
ing on the restricted list last mentioned, with the result that selection must be
made from eligibles of inferior ratings in the examinations. A large majority
of applicants in professional, scientiRc, and technical examinations are persons
who are just completing their courses at educational institutions, and who would
be put to a prohibitive expense, to say nothing of the detriment to their school
work, in returning to the State of their legal residence to take the examination
there; and even in case of such return their eligibility to take the examination
is questionable in view of the requirements of " actual domicile " for the year
preceding the date of the examination.
Section 7 of the general deRciency bill, approved August 26, 1912, provides as
follows: " No part of any money contained herein or hereafter appropriated in
lump sum shall be available for the payment of personal services at a rate of
compensation in excess of that paid for the same or similar services during the
Rscal year 1912; nor shall any person employed at a speciRc salary be hereafter
transferred and hereafter paid from a lump-sum appropriation at a rate of
compensation greater than such speciRc salary, and the heads of departments
shall cause this provision to be enforced." The solicitor of the Department of
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
259
Agriculture has rendered an opinion in regard to the interpretation of the above
section to the effect that it will be necessary to demote all employees oh the
miscellaneous roll who have received promotions since June 30, 1912, to the
salary received in the a seal year 1912, providing that on July 1, 1913, the em
ployee is still performing the same or similar services as during the fiscal year
1912. The solicitor is also of the opinion that section 7 prevents the transfer
of employees from the statutory to the miscellaneous roll with an increase in
salary at that time or subsequently, even though the work to be done is of am
entirely different nature from that performed under the statutory position.
Since the restrictions of section 7 of the general deficiency bill are of such a
nature as to seriously embarrass the department in the operation of its promo
tion policy by necessitating many undeserved demotions July 1, 1913, and also
preventing many promotions which should be made on account of increased
efficiency of the employees, increased responsibility, or increased cost of living
necessitated by transfer of headquarters, in cases of employees on the lump
sum roll who are performing the same or similar services to that performed in
the fiscal year 1912, it is desired that section 7 of the general deficiency bill be
so modified by legislation as to allow deserved promotions of employees on the
lump-sum roll even though their work is of the same or similar nature as that
performed in the fiscal year 1912, and also to allow transfers of employees from
the statutory to the miscellaneous roll at increased compensation, when the
work to be performed is of a different nature from that performed by the em
ployee under the statutory position.
The existing three-year limitation on transfers should be abrogated. (34 Stat.
L., 449.) It is not apparent what justifiable result is secured from such legis
lation. In addition to the discouragement to employees who feel that they are
being held in a position which is probably not congenial, it very frequently hap
pens that an employee in one department, who is more or less unsatisfactory by
reason of environment and lack of interest in the particular line of work in
which he is engaged, would be of exceptional value in another department.
Every executive, of course, has had the experience that employees who have
been, to say the least, unsatisfactory in certain positions have, when transferred
to other lines of work, met with exceptional success and have been of the high
est value in the service, and it would appear that as long as an employee must
be certified it is a matter of inconsequence as to which of the two departments
concerned the certification is made, provided one of them secures an employee
who is desirous of changing and entering into the proposed work and the other
has the opportunity of replacing a dissatisfied employee with a new man. The
transfer at the same salary will prevent raids upon any department sufficient to
cripple it.
DEPARTMENT OF COMMERCE AND LABOR.
The department should be given authority to sell any or all of its scientific,
technical, and statistical publications at a nominal price, to be fixed by the
head of the department, with due regard to the cost of paper and presswork,
amounts so received to be credited to the department's allotment for printing
and binding and to be used for the purpose of paying for reprints o f such
publications.
The printing and distribution of the publications of the department would
be facilitated by the enactment of Senate bill 4239, Sixty-second Congress,
second session, now pending in the House o f Representatives. The enactment
of this bill would also afford much needed relief to many of the bureaus o f the
department in respect to the number o f copies of certain publications which
may be printed.
260
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
Change the organic law so that consular oSicers shall be required to transmit
directly to the Bureau of Foreign and Domestic Commerce copies of their
oRicial reports, with the proviso that prior to any publication of these reports
the approval of the Department of State shall be obtained. Extend the limit
(20,000 copies) now Rxed by law for the circulation of Daily Consular and
Trade Reports. Statutory provision should be made requiring accurate returns
of export statistics (to be derived from manifests) by shippers (manufacturers
and exporters). Repeal section 73 of the act of January 12, 1895, requiring
the annual printing of 3,000 copies of Commercial Relations for Congress;
authority to publish these annuals by country or geographical section is
desirable, but it should be discretionary and not compulsory.
The law relating to the Bureau of Corporations should be supplemented by
provisions: (a) Requiring that all industrial corporations engaged in inter
state or foreign commerce shall file with the bureau a statement of their name,
capital stock and bonded indebtedness, authorized and outstanding, legal resi
dence, and principal place of business. (&) Requiring the submission of regular
periodic financial reports by industrial corporations engaged in interstate or
foreign commerce (at least of such corporations above a given size limit, such
limit possibly to be determined by the amount of capital stock, although prefer
ably by the amount of assets, or perhaps by the annual gross earnings) ;
the scope of such reports is a matter of great importance and calls for further
consideration, (c) Authorizing the bureau to act in an advisory capacity to
the Federal courts in cases of dissolution or reorganization of interstate cor
porations the existence of which is found to be in violation of law or the
conduct of which may be the subject of judicial regulation, so far as economic
or financial problems are involved. (<%) Authorizing the Secretary, as contem
plated by Senate bill 4239, Sixty-second Congress, second session, now pending in
the House of Representatives, to determine the number of copies of any given
report of the bureau which may be printed, the issue of any one publication
now being limited by law to 2,500 copies in any one fiscal year.
Laws relating to the Coast and Geodetic Survey should be codiRed and
revised, such codification and revision to include all amendments and authoriza
tions now carried in annual appropriation acts. The following additional
legislation is needed: (%) Authority for the President to direct, through the
Secretary of Commerce and Labor, the execution by the Coast and Geodetic
Survey of any authorized public work involving mensurational surveys or
investigational work similar to that now performed by this bureau, when, in
the judgment of the President, such action be for the best interest of the
Government. (6) Authority for the Secretary of Commerce and Labor to
direct the expenditure from the appropriations for the survey of such amounts
as may be necessary for the proper care and preservation of the health of
employees in the Reid, and, in case of death, the necessary expense of burial
and transportation of remains, (c) Legislation Rxing the status of the vessels
of the Coast and Geodetic Survey according to maritime usage, and custom,
including provisions for the contract of employment of the crews of vessels
for periods in excess of the periods for which the appropriation is available;
for the proper discipline of the persons on the vessels and for the extension of
the beneRts usually accorded to seamen of the merchant marine. (%) Legisla
tion providing for a visiting committee of Rve members for the Coast and
Geodetic Survey, to be appointed by the Secretary of Commerce and Labor
and to consist of men prominent in commerce and allied interests, engineering,
physics, and geodesy and not in the employ of the Government. This committee
to visit the bureau at least once a year, and report to the Secretary upon the
efRciency of its scientiRc work and the condition of its equipment. The mem
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
261
bers of the committee to serve without compensation, but to be paid actual
expenses incurred in attending its meetings. The period of service of the
members to be so arranged that one member would retire each year, and
appointments thereafter should be made for the period of five years.
The present authority of the Secretary of Commerce and Labor to direct
officers and employees of the department to attend meetings and conventions
of societies and other organizations at Government expense, under certain
limitations, should be extended. This authority may be coupled with the
condition that a complete report of all such travel performed prior to Decem
ber 1 in any calendar year shall be reported to Congress on or before January 1
of the ensuing year.
The authority of the Director of the Census to furnish copies of tables and
prepare statistical tables for private individuals and State officers should be
specifically granted by statute and materially extended, in order to bring
about greater cooperation between the Federal Government and local authori
ties with reference to statistical work, and provision should be made that the
amounts received for work of this character may be credited to the appropria
tions available for the use of the bureau, in order that temporary additional
clerical assistance may be obtained in the preparation thereof without loss to
the Government.
A N S W E R S TO Q UESTION I I I .
A. CHANGES IN LAW THOUGHT TO BE DESIRABLE RELATING TO
UNCLASSIFIED CIVIL SERVICE.
DEPARTMENT OF STATE.
For the Department of State, none.
DEPARTMENT OF TH E TREASURY.
For Me oj^ce o/ CoTmMissioner o/ internet Ee^enne;
The force employed in connection with the internal tax system of the country,
including the Commissioner of Internal Revenue and with the exception of per
sons temporarily employed, should be embraced in the competitive classified
civil service and entirely free from political influence.
For Me
o/ Me Director o/ Me iMmt;
The mint service is now almost entirely in the classified service. Superin
tendent of mints, the chief assayer at each mint, and the engraver are appointed
by the President and are not in the classified service. They should be included
by law. The other subjects are, with few exceptions, within the authority of
the administration.
For Me oj^ee o/ Me Surgeon General;
It is believed that all employees in the quarantine service and at marine
hospital and relief stations should be in the unclassified civil service.
For Me oj^ce o/ Me Register o/ Me Treason/;
Section 7 of rule 10 civil service regulations should be amended to allow the
promotion of counters to grades about $900.
For Me ojf%ce o/ AntMtor /or interior Department;
There should be a reclassification of employees in the classified civil service.
The difference in compensation between the grades now established is too great.
A difference of about $60 per annum between grades would result in more fre
quent promotions and facilitate a more equitable adjustment of salaries.
262
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
For t%e
o/ t^e (7owptro^er o/
C^rrewey;
I favor a general reclassification of the civil service along the lines of the
bill introduced in the last Congress for that purpose.
INDEPENDENT ESTABLISHMENTS.
For t^e
Service CowM?MS3%o%;
A reclassification is regarded as an essential step in any effective forward
movement toward improving the personnel of the departments and thus bringing
about greater efficiency and economy.
The commission therefore renews its recommendation made in its annual re
ports for legislation for a reclassification of salaries on the basis of quality
and quantity of work performed.
For t&e UiMted State# #ota%%c G a r d e n ;
As the Botanic Garden is under the direction of the Joint Library Committee
of Congress, I think it advisable not to make any suggestions as to this question,
we not being under the classified service.
DEPARTMENT OF JUSTICE.
Jo/nt Q.
I think the law should empower the Attorney Gen
eral to employ temporary clerks in this bureau without regard to the Civil
Service Commission, in cases of pressing necessity, to be paid out of the lump
sum appropriation, for defense of suits in the Court of Claims. The reason for
this discretion being left with the Attorney General can not be better illus
trated than by citing the fact that the last session of Congress sent to the
Court of Claims over 2,400 claims, all of which must be classified, docketed,
and indexed. The force in the Hie room is inadequate to perform this work
within a reasonable time and also keep up the current work. I f the Attorney
General could employ one or two clerks from two to four months upon this
work it would relieve the congestion and greatly expedite the business.
The act approved August 24, 1912, known as the sundry civil bill, should be
amended so as to enable this bureau to employ as consulting experts and wit
nesses engineers formerly in the Army and Navy who have not been out of the
service the required time provided in the statute. Officers who have been in
the Government employ and designated to superintend and inspect work done
by contractors and are, therefore, thoroughly familiar with its technical details,
frequently leave the Government service. These former officials become im
portant technical and expert witnesses for the Government. By the act referred
to the department is prohibited from employing persons who within one year
next preceding the date of such employment have been in the service of the
United States Government. The restriction in this act delays, and will in the
future delay, the proper defense of many cases pending in the Court of Claims.
Jo/m Q. T&ompsow; No suggestion of change.
J?o%. Fr%e#t R^ae&e%.' The United States attorneys should be placed within
the classified civil service, and their salaries should be very materially in
creased, with due regard to the volume and importance of the business within
their respective districts. The law should specify a definite tenure o f not less
than eight years. Special safeguards should be provided to make such appoint
ments strictly nonpolitical. When a satisfactory selection can not be made
within the district the appointee should be selected from without.
Finally, the incumbent should be prohibited by law from engaging in private
practice.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
263
In the above suggestions lies the key to an immense advance in the efficiency
o f the department and also, I believe, in economy.
In honor, in responsibility, and, so far as practicable, in emolument, the
office should be made attractive to the brightest minds in the legal profession.
Ron. W. T. Dem-sow .' I have no improvement to suggest.
# 0%.
W. CoM; Assistant attorneys in this office are excepted from
examination for appointment under Schedule B of the Civil Service Rules, and,
therefore, there seems to be nothing here calling for my attention.
As I understand it, no change in law seems to be necessary. The classifica
tion of the assistant attorneys is not a matter of law, but can be regulated by
executive order, through the Civil Service Commission. That commission has
under immediate consideration the question of the possible inclusion of the
assistant attorneys in this office, and those performing like duty in other depart
ments within the competitive classified service, and it is believed that full report
will be made by that commission thereon, and the matter in due time brought
to the attention of the President.
W. T. Thompson; The Assistant Solicitor of the Treasury should be
included in the classified civil service.
C/*ar?es Far%; None.
Capt. J. J. (Nover.* At present all of the employees of the Division of Accounts
are in the classified service, and I understand that the force under the disburs
ing clerk is in the classified service.
Afr. A. J3r%ce Bie%asM.' I think that regardless of the manner in which the
employee is selected, the principle that he must be retained without regard to
political beliefs or personal friendship as long as needed and efficient, should
be extended throughout the service.
DEPARTMENT OF THE NAVY.
For Me Q?mftermaster's Department;
The question of placing the civilian employees of the Quartermaster's De
partment on duty in the Depot of Supplies, U. S. M. C., Philadelphia, Pa., and
on duty in the carpenter shop in Washington, D. C., in the classified civil service
is now before the department and the Civil Service Commission.
DEPARTMENT OF THE INTERIOR.
All laborers in the department in Washington should have a salary of $660
instead of only $480 or $600 appropriated for a large proportion, as at present.
The law already fixes $660 " unless otherwise specially stated."
For Me Ge%era% Land
The first change which should be made is the enactment of legislation similar
to that recommended last year and adopted by the House of Representatives,
namely, the abolishment of the position of receiver in local land offices and the
substitution of a bonded clerk who should have duties of keeping the books of
the local offices and taking the moneys. In this way over $100,000 per annum
<xmld be saved and a more efficient service created.
An appointee to the position of register ought by law to be some one with
legal attainments—a man who has been admitted to practice in the State in
which he resides. I am of the opinion also that the register should be given
the powers now vested in district judges in various States, of holding court,
for the purpose of hearing contests at given points within his jurisdiction.
Surveyors general should be placed in the classified service and appoints
ments to this position made from the corps of surveyors. The office should not
264
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
be concentrated in Washington, but should be retained in places close to the
operations in the Reid, the local surveyors themselves being brought to their
respective headquarters for the completion of their notes and the preparation
of their plats during the off season. In this way an eRicient corps of surveyors
could always be obtained, with an adequate amount of work, and each surveyor
could secure an annual living wage. There would be a diminution of the
clerical force in the surveyors general ofRces, but the ultimate result would be
good.
For Me
ojf H m es;
Rule V II, section 2. Report of appointments and changes of unskilled laborers.
Referring to section 1 (c ), it has been found expedient in the Bureau of Mines
to have reports of changes in status and appointments made by the nominating
oRicers in the Reid service for the unskilled laborers. The pay rolls are kept
in the Washington oRice, where disbursements are made, and not in the Reid
oRices, and the board of labor employment in any particular district could not
check such records if so desired without going outside the district.
The method of making these records should be governed by departmental
practice. Appointments issued under authority of the department should be
reported in the usual monthly report of changes in employees by the proper
oRicial in the Washington oRice, based upon the completed appointment papers,
and should be submitted to the Civil Service Commission, through the depart
ment, as for all other appointments, else complications would arise and incom
plete information be furnished the Washington oRice, on which to keep records,
base estimates, etc., as the Reid oRicers are engaged with scientiRc investiga
tions and can not devote their time to detailed clerical work. It would also
cause duplication of work.
It is recommended that unskilled laborers for the Reid service be exempt from
civil-service examinations where registers are established as well as where they
are not. The Reid oRicer could keep before him a list of all applicants for such
position, and, with the approval of his bureau chief, could employ the one who
appeared best qualiRed, if immediately available. Most of the common labor
for the Bureau of Mines in the Reid is of an emergency nature.
DEPARTMENT OF AGRICULTURE.
About 5 per cent of the total force of this department is included in the unclassiRed civil service. Examination and certiRcation for the positions of char
women and unskilled laborer are issued in speciRed localities by the civil
service boards of labor employment. The examination, which consists of
certain physical requirements, enables the commission to furnish the department
with persons qualiRed to perform unskilled manual labor. It would not seem
advisable in the interests of the department to recommend any change in the
law pertaining to the unclassiRed civil service.
DEPARTMENT OF COMMERCE AND LABOR.
The following unclassiRed positions, now Riled by appointment by the Presi
dent, by and with the advice and consent of the Senate, should be brought into
the classiRed service: Ten supervising inspectors of steam vessels in the Steam
boat Inspection Service; one agent, Alaska salmon Rsheries; two assistant
agents, Alaska salmon Rsheries; one warden and four deputy wardens, Alaska
service; all in the Bureau of Fisheries. This result may be brought about by
authorizing the appointment of these oRicers by the head of the department.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
B . CHANGES IN
LAW
THOUGHT
TO B E DESIRABLE RELATING
265
TO THE PRESENT
CLASSIFICATION OF THE ClVIL SERVICE.
DEPARTMENT OF STATE.
For Me Department o/ stater None.
TREASURY DEPARTMENT.
For Me o#ee o/ Me dis&Mrgmgr c%er&.'
There should be more grades, with less difference between grades, so that
employees may receive frequent small increases in compensation.
For Me Dw%sio% o/ -Boo^Tceepwy
Warrants;
Reclassification recommended on basis of the Keep Commission and report.
For M^*.%%ce o/ Me 8%rgreo% (re%era%, #%re%M o/ P^&Me Fea?M ^erutce;
The three chiefs of divisions of the Hygienic Laboratory should be commis
sioned by the President, as are other commissioned ofRcers of the service. The
positions in question require the services of men of the highest attainments in
scientific research.
For Me o^%ce o/ R e n te r o/ Me Tre%s%r%/;
No suggestion.
For Me Ojf%ce o/ Auditor /or 7%teWor Dep%rt?%e%t.'
There should be a reclassification of employees in the classified civil service.
The difference in compensation between the grades now established is too great.
A difference of about $60 per annum between grades would result in more fre
quent promotions and facilitate a more equitable adjustment of salaries.
For Me o^ee o/ Me Comptroller o/ Me C^rre^c?/.'
I favor a general reclassification of the civil service along the lines of tlie
bill introduced in the last Congress for that purpose.
DEPARTMENT OF JUSTICE.
# 0%. Jo^% Q. 2%o?%pso%.* There are attorneys in this bureau designated as
"attorneys," others as "assistant attorneys/' who perform the same class of
service and in many instances receive the same salary. This obtains through^
out the entire department. The two titles are confusing, and, in my judgment,
they should all be classed either as " attorneys" or " assistant attorneys,"
preferably the former.
Foil,. JoTm Q. Thompson; No suggestion of change.
# 0%. Freest 7T%%e&e%.' (1) I think the assistant attorneys and attorneys of
the department should be afforded the same protection as is afforded persons
in the competitive service; Rule XII, section 2. (2) The $1,000 grade of clerks
should be abolished.
The first suggestion under &, supra, appears to be covered by section 6 of
last Post OfRce appropriation act, — Statutes, page 555.
Fo%. W. T. Dem3o%.' I have no improvement to suggest that requires legis
lation, but I am clear that the attorneys and assistant attorneys should be put
in the competitive classiRed service by Executive order. The legal service
below the Assistant Attorneys General is the weakest point in the department,
and it would undoubtedly be very greatly strengthened by this change.
Ho%. W. T. T&ompsoit; The present classiRcation of two " docket clerks " in
this ofRce should be changed to " law clerks," since their services partake more
largely of legal than of docket or clerical work. And persons performing
higher-class services should receive higher-class pay. As it now is we have one
266
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
instance where a man performing a $1,800 service receives $1,400 pay, while
the one receiving the $1,800 pay is performing the $1,400 service. This is so
manifestly unjust as to leave no room for questioning the necessity for a
change in this regard, and this is so, because the man who is now performing
the $1,400 service and receiving the $1,800 pay is unable to perform the $1,800
service.
(77?%?*%es J57%r%; Reclassify along lines in report of so-called Keep Com
mission of January 4, 1907.
Afr. A.
This division is affected but slightly by the present
classiRcation of the civil service, as it is applicable only to its oB5ce force in the
department.
POST OFFICE DEPARTMENT.
To classify the salaries of railway postal clerks, so as to provide a system
of annual promotions based on efRciency of service and to permit the transfer
of post-oRice clerks to the Railway Mail Service and the transfer of railway
postal clerks to the post-oRice service:
The Postmaster General may appoint clerks in such number and of such
Respective grades and salaries as may be provided for in the annual appropria
tion acts for the service of the Post ORice Department, to sort and distribute the
mail in railway post oRices, railway post-oRice terminals, and transfer oRices,
to serve in the oRices o f division superintendents and chief clerks, to act as
transfer clerks, and to render such other services as may pertain to the Railway
Mail Service. Such clerks shall be designated as railway postal clerks and shall
be divided into the following grades, with corresponding salaries per annum
hot exceeding the following ra tes:
Grade 1, at not exceeding______________________ _______________________________ $900
Grade 2, at not exceeding______________________________________________________ 1,0 00
Grade 3, at not exceeding______ _____________ __________________________________1,100
Grade 4, at not exceeding___________________________ __________________________ 1, 200
Grade 5, at not exceeding______________________________________________________ 1,3 00
Grade 6, at not exceeding______________________________________________________ 1,4 00
Grade 7, at not exceeding______________________________________________________ 1, 500
Grade 8, at not exceeding___________________________________________________ — 1,6 00
Grade 9, at not exceeding________________________________________ _____________1, 700
Grade 10, at not exceeding_____ _______________________________________________ 1, 800
Chief clerks, at not exceeding_______________________________________________— 2,0 00
The Postmaster General is authorized to classify and Rx the salaries of rail
way postal clerks, under such regulations as he may prescribe, in the grades
provided by law ; and for the purpose of organization and of establishing
maximum grades to which promotions may be made successively as herein
after, provided, he may classify, in his discretion, railway post oRices, terminal
railway post oRices, and transfer oRices, with reference to their character and
Importance, in three classes, with salary grades as follow s: Class A, $900 to
$1,200; class B, $900 to $1,300; and class C, $900 to $1,500. He may assign
to the oRices of division superintendents and chief clerks such railway postal
clerks as may be necessary, and Rx their salaries within the grades provided
by law without regard to the classiRcation of railway post ofRces.
Transfers to the regular force of the Railway Mail Service may be made, and
the needs of the Railway Mail Service with respect to acting, substitute, and
temporary clerk service may be supplied, from the clerical force of post oRices
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
267
of the first and second classes, and transfers may be made between the clerical
force of the Railway Mail Service and post ofiices of the first and second classes
as the necessities may require, and the the clerical forces of the division
superintendents' and chief clerks' offices and terminal railway post offices and
transfer services may be supplied either from the Railway Mail Service force,
from the post-office force, or as otherwise provided by law or regulations, under
such regulations as the Postmaster General may prescribe.
After June 30, 1912, clerks in class A shall be promoted successively to
grade 3, clerks in class B shall be promoted successively to grade 4, and clerks
in class C shall be promoted successively to grade 5 at the beginning of the
quarter following the expiration of a year's satisfactory service in the next
lower grade. Promotions above these grades within the maximum grades of
the classification may be made, in the discretion of the Postmaster General, for
meritorious service. No promotion shall be made except upon evidence satis
factory to the Post Office Department of the efficiency and faithfulness of the
employee during the preceding year.
A clerk of any grade of any class of railway post offices, terminal railway
post ofiices, transfer offices, or in the office of a division superintendent or
chief clerk may be transferred and assigned to any class of railway post
ofRces, terminal railway post ofiices, transfer offices, or to an ofRce of a
division superintendent or chief clerk under such regulations as the Postmaster
General may deem proper.
Clerks assigned as clerks in charge of crews consisting of more than one
clerk shall be clerks of grades 5 to 10. inclusive, and after three years'
continuous, satisfactory, and faithful service in such capacity may be promoted
one grade only.
A clerk who fails of promotion because of unsatisfactory service may be
promoted at the beginning of the second quarter thereafter or any subsequent
quarter for satisfactory and faithful service during the intervening period.
Clerks in the highest grade in their respective lines or other assignments
shall be eligible for promotion to positions of clerks in charge in said lines
or corresponding positions in other assignments, and clerks assigned as assistant
chief clerks and clerks in charge of crews consisting of more than one clerk,
either assigned to the line, the transfer service, or to a terminal railway post
office, and clerks in the highest grades in ofiices of division superintendents in
their respective divisions shall, after two years of continuous service in such
capacity be eligible for promotion to positions of chief clerks in said division
for satisfactory, efficient, and faithful service during the preceding two-year
period, under such regulations as the Postmaster General shall prescribe.
Whenever a clerk shall have been reduced in salary for any cause he may
be restored to his former grade or advanced to an intermediate grade at the
beginning of any quarter following the reduction for satisfactory and faithful
service during the intervening period.
After June 80, 1912, any clerk in a post ofRce of the Rrst or second class
receiving compensation of $800 per annum or more shall be eligible for transfer
ro the Railway Mail Service, and the compensation of such clerk may be in
creased not exceeding $100 per annum at the time of such transfer.
A railway postal clerk of any class shall be eligible for transfer to the
position of clerk in a post ofRce of the Rrst or second class without change
in compensation, providing such compensation does not exceed $1,200 a year.
In the case of a transfer under this law to the Railway Mail Service or to
a post ofRce of the Rrst or second class without change in compensation the
time served by a clerk in a given grade prior to transfer shall be counted as a
268
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
part of the year's service on which the clerk's promotion to the next higher
grade may be based.
Acting, substitute, or temporary service in railway post ofRces may be per
formed by clerks of Rrst and second class post ofRces above the first grade
($600), who shall receive the same pay as when performing the work of their
regular positions: Proi%t%ed, That if their compensation is less than $900 in
their regular positions, they may receive $900 in the Railway Mail Service
when performing such service, and shall be paid from the appropriation for
the Railway Mail Service, and be entitled to such travel allowance as is usual
to the assignment in the railway post-oRice line to which detail is made:
P roved
That in cases of emergency such service may be performed
by clerks of first and second class post offices of the first grade ($600) if there
be any; if none, details may be made from the substitute list of such post
oiBces, and the compensation therefor shall be at the lowest grade of pay of a
regular clerk in the Railway Mail Service, with such travel allowance as is
usual.
All Railway Mail Service substitutes remaining on the roil July 1, 1912, shall
be transferred to post ofRces of the first and second classes nearest to their
places of residence, and in the transfer of substitute railway postal clerks to
the substitute clerks' roll in first and second class post offices their relative
positions thereon shall be determined by the dates when they were placed on
the substitute roll of the Railway Mail Service.
Nothing in this act shall be construed to prohibit the employment of joint
employees at a compensation not exceeding $300 per annum, or the employment
without additional compensation of regular railway postal clerks to perform
such acting, substitute, temporary, or extra service as may be necessary. In
Riling positions below that of chief clerk no clerk shall be advanced more than
one grade in a period of one year.
All clerks appointed to the Railway Mail Service to perform duty on railway
post ofRces shall reside at some point on the route to which they are as
signed; but railway postal clerks appointed prior to February 28, 1895, and
now performing such duty shall not be required to change their residences,
except when transferred to another line.
All laws and parts of laws in conRict herewith are hereby repealed.
While the salaries of railway postal clerks are here graded in the same man
ner as the salaries of post-ofRce clerks and city letter carriers a higher com
pensation is Rxed for railway postal clerks because of the hazardous nature of
their employment. The old method of appointing untrained men in the Railway
Mail Service is abandoned in favor of a plan under which the service will be
recruited by the transfer of expert employees who have served their apprentice
ship in the post ofRces. At the same time railway postal clerks whose efRclency
is declining, or who are becoming physically incapacitated for train duty, will
be transferred to less arduous work in the post ofRces, thus keeping on the
trains only men of the highest capacity for service. It is believed that by this
method the efRciency of the working forces in the Railway Mail Service can be
so greatly increased as to offset in resulting economies the heavy expenditures
necessary to provide for the higher compensation. Under the present system of
salaries in the Railway Mail Service the compensation of employees has in
many instances a direct relation to the amount of car space paid for by the
department, thus tending to create in the employees a constant temptation to
induce the purchase of unnecessary car space. This unfortunate feature of the
present system of salaries for railway postal clerks will be removed by the
adoption of the new plan.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
P r o v id w ^ / o r
%ppoiM%?%e%fs ?o ^^e
H%i% S e r v ic e /r o w
Me
269
e^eric^^
/o v e e s o / pog^ oj^eeg a ^ d / o r %r%M.sjfef3 & e ^ e e ^ pog^ o ^ e e g %%d M e R a i ^ a ^ /
/Service.— The reclassification act submitted to Congress last year included a
provision for appointments to the Railway Mail Service from the clerical forces
o f post offices and for transfers between the clerical forces of post offices of the
Erst, second, and third classes and the Railway Mail Service. Congress passed
the act, with the omission of the provision for transfers, which is as follow s:
" Provided, That hereafter transfers to the regular force of the Railway Mail
Service may be made and the needs of the Railway Mail Service with respect
to acting, substitute, and temporary clerk service may be supplied from the
clerical force of post offices of the first, second, and third classes, and transfers
may be made between the clerical force of the Railway Mail Service and post
offices of the first, second, and third classes, as the necessities may require,
with the consent of the clerk, and the clerical forces of the division superin
tendents' and chief clerks' offices and terminal railway post offices and transfer
offices may be supplied either from the Railway Mail Service force, from the
post-office force, or as otherwise provided by law or regulations, under such
regulations as the Postmaster General may prescribe."
Provided, That hereafter any clerk in a post office of the first or second
class receiving compensation of $800 per annum or more, or in a post ofRce
c f the third class who has performed continuous service in such office for a
period of at least one year next preceding the date of his transfer, shall be
eligible for transfer to the Railway Mail Service, and if he is a clerk in a post
office of the first or second class his compensation may be increased not exceed
ing $100 per annum at the time of such transfer, and if he is a clerk in a
post office of the third class he may be appointed at not exceeding $900 at the
time of such transfer.
Provided, That hereafter a railway postal clerk shall be eligible for transfer
to the position of a clerk in a post office of any class.
Provided, That hereafter in the case of a transfer under this law to the Rail
way Mail Service or to a post office of the first or second class without change
in compensation, the time served by a clerk in a given grade prior to transfer
shall be counted as a part of the year's service on which the clerk's promotion
to the next higher grade may be based.
Provided, That hereafter acting, substitute, or temporary service in railway
post offices may be performed by clerks of first and second class post offices,
above the first grade ($600), and by clerks of third-class post offices who
have served therein at least one year next preceding the date of temporary
detail; who shall receive the same pay as when performing the work of the
regular positions: Provided, That if their compensation is less than $900 in
their regular positions, they may receive $900 in the Railway Mail Service
when performing such service, and shall be paid from the appropriation for the
Railway Mail Service and be entitled to such travel allowance as is usual to
the assignment in the railway post office line to which detail is m ade: Pro
vided /MfMer, That in cases of emergency such service may be performed by
clerks of first and second class post offices of the first grade ($600) and by
clerks of third-class post offices, if there be a n y ; if none, details may be made
from the substitute list of such post offices, and the compensation therefor shall
be at the lowest grade of pay of a regular clerk in the Railway Mail Service,
with such travel allowance as is usual.
Provided, That all Railway Mail Service substitutes remaining on the roll
after the passage of this act shall be transferred to post offices of the first and
second classes nearest to their places of residence, and in the transfer of sub
270
BUDGET FOR 1914 SUBMITTED TO CONGBESS.
stitute railway postal clerks to the substitute clerks' roll in Rrst and second
class post ofHces their relative positions thereon shall be determined by the
dates when they were placed on the substitute roll of the Railway Mail Service.
Fro^Med, That hereafter, except in emergencies when no other authorized
means are available, clerks in post ofHces of the third class shall not be de
tailed for duty in the Railway Mail Service in any capacity, and shall not be
transferred to the Railway Mail Service, as authorized by this act, without
passing a competitive civil service examination.
Fmp7o2/M?e%% o / jom% ei%%?7o3/ees.— The same recommendation contained a
provision for joint employees, also omitted by Congress, and is as fo llow s:
Prori(%((7, That hereafter the act approved August 24, 1912, reclassifying sal
aries in the Railway Mail Service shall not be construed to prohibit the em
ployment of joint employees at a compensation not exceeding three hundred
dollars per annum.
DEPARTMENT OF THE NAVY.
For %7te B^reat/ o / yav%fafio%.'
The present classification of the civil service is archaic. There should be
a reclassification along the lines recommended by the Keep Commission. Any
reclassification should be accompanied by a requirement that an employee shall
perform the work of the rating he holds. This certificate could very properly
be embodied in the certificate of employment on each pay roll. Such a re
quirement would prevent a clerk who is only capable of performing a very low
grade of work from receiving the i?ay of a high salaried position. This is often
the case at the pesent time, and there is no rule or regulation which prohibits it.
The individual efficiency would be greatly increased if the service was re
classified as suggested in answer to question 3b.
For Me # 3/dro^r%pMc O^ce.*
All salaries should be equal in similar grades and for similar work, irrespec
five of the ofHce, bureau, or department in which the employee is at work.
For %7?e B^reaM o / Ord%a%ce.'
The service should be reclassified in such a way that similar salaries will be
paid for similar work in the several departments, their bureaus and other
subdivisions. This reclassification doubtless presents many difficulties, but
it should be done, if possible, in such a way that a clerk in one office can not
be transferred to another at a higher salary while doing exactly the same class
of work. One of the greatest evils with which the several ofRces now have to
deal is due to the fact that such transfers are possible, a clerk having been
(educated and trained in one ofRce applying for transfer to another where he
is to do practically the same class of work, but is to receive an increased salary.
DEPARTMENT OF THE INTERIOR.
Sec. 2, Civil Service Rule V II should be modiRed so as to include all posi
tions at $900 and below that grade in the nonapportioned service. This modiRcation would avoid bringing men from remote places, at considerable expense
to themselves, who Rnd to their regret that the cost of living in Washington
is greatly disproportionate to salaries of $900 and $720, and that there is little
or no chance of promotion.
For Me Gewera% La%<% O ^ e e ;
The present classiRcation seems to meet all requirements for securing the
services of persons who, after reasonable trial, become, as a general rule, efHcient and competent for the performance of the duties assigned to them. The
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
271
present classiRcation is satisfactory to this oiRce, and I have no recommendation
to make providing for a change.
DEPARTMENT OF AGRICULTURE.
No immediate change is suggested in the present ciassiRcation of the civil
service so far as this department is concerned. The authority of the head of
the department to Rx the grade of employees on lump-sum rolls and recommend
to Congress changes deemed desirable in the statutory rolls should be continued,
DEPARTMENT OF COMMERCE AND LABOR.
The positions in the executive civil service should be so reclassiRed as to
increase the number of grades and to decrease the salary difference between
grades. Such a reclassiRcation as was recommended by the Committee on De
partment Methods in 1907 appears to be satisfactory.
CHANGES IN L A W
TH OU GH T TO B E DESIRABLE RELATING TO PRESENT CLASSiFI*
CATION OF THE M ILITA R Y SERVICE.
DEPARTMENT OF THE NAVY.
For Me Paymaster's Department;
There are at present two (2) line oRicers performing duty as special dis* .
bursing agents, stationed at Peking, China, and Camp Elliott, 1. C. Z., Panama,
respectively. It is believed that this duty will be best performed by skilled
oRicers of this department, and there being, under present conditions, an insufRcient number to bring such about it is suggested that, if practicable, Congress
be asked for an increase of three (3) assistant paymasters— two for service at
these two stations, one at Honolulu, T. H. Should this suggestion be deemed
worthy of serious consideration this oiRce would advise that, in its opinion, the
grades to be provided for should be two (2) majors and one (1) captain.
The duties of paymasters in the Marine Corps are similar to those of a pay
master in the Army. The Paymaster General of the Army (Brig. Gen. Charles
H. Whipple, U. S. A .), in his annual report, dated October 1, 1909, stated:
" Under section 26 of the act approved February 2, 1901, vacancies occurring
in certain speciRed stalf departments are Riled by four-year details of line
oRicers of corresponding rank, and by the operation of this act all of the cap*
tains and six majors of the Pay Department of the Army are now detailed
oRicers.
" Three former Paymasters General have recommended that the application
of the detail system in the Pay Department be restricted to captains, and that
the higher grades be made permanent. I fully concur in their recommendations.
" The promotions to major should be made from the captains who have
served, or who may be serving, a detail in the Pay Department, and who have
shown the greatest proRciency in their Work."
This oiRce, for the reasons above indicated, which are very fully set forth
in the annual reports of the Paymaster General of the Army, therein referred
to, would recommend under this contingency that future appointments to the
grade of captain and assistant paymaster be made by four-year details from
the line of the corps, and that promotions to the grade of major and assistant
paymaster be made from those captains who have served, or may be serving,
under such detail and who have shown especial proRciency in their work.
The undersigned does not consider, in view of the fact that there are but
three clerks in this entire department appointed under classiRed-service rules,
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
272
that recommendations from this oHice touching the details indicated with respect
to the classified service are desirable.
For
o #ce o /
Secret#?*?/
o/
1. The proposed personnel bill should be passed which bases the personnel
on the battleship and cruiser tonnage and allows the department to estimate
the numbers needed each year— the estimate in no case to exceed the full
strength as determined by the tonnage— and leaves to Congress the actual
numbers to bo allowed. (Annual Report of the Secretary, p. 52.)
2. A continuation of the present number of appointments to the Naval Acad
emy is necessary. (Annual Report of the Secretary, p. 5 4 ; also Annual Report
of the Chief of the Bureau of Navigation, p. 8.)
8. The act approved June 10, 1896 (29 Stat., 361) which makes the employ
ment of oiHcers of the Navy or Marine Corps by any person or company fur
nishing navat supplies or war material to the Government unlawful should
be repealed. (Annual Report of the Secretary, p. 55 ; Annual Report of the
Paymaster General, pp. 8 and 9 ; also Annual Report of the Chief of the Bureau
of Navigation, p. 6.)
4. Inmates of naval homes should be placed on the same footing as inmates
of soldiers' homes in regard to their pensions (Annual Report of the Secretary,
p. 5 9 ; also Annual Report of the Chief of the Bureau of Navigation, p. 1 6 ).
5. The department renews its recommendation of last year relating to com
pensation of civilian, clerical, and technical forces (Annual Report of the Secre
tary, p. 59 ).
6. The strength and efficiency of the Naval Militia should be increased
(Annual Report of the Secretary, p. 60 ).
7. The administration of discipline in naval landing forces should be pro
vided for. Division commanders should be authorized to convene general courtsmartial. Commanding ofBcers of naval stations outside the boundary limits of
the United States should be authorized to convene courts of inquiry. The
relation between the commanding oiHcer of a naval transport and the command
ing oiHcer of a marine battalion embarked thereon should be Hxed (Annual
Report of the Secretary, p. 61 ).
8. The naturalization of naval aliens should be provided for (Annual Report
of the Secretary, p. 61 ).
9. The manner of appointing Heet staff oiHcers should be changed (Annual Re
port of the Secretary, p. 62 ).
10. Provision should be made for the issuing of medals of honor to oEicers of
the Navy and Marine Corps (Annual Report of the Secretary, p. 62 ).
11. Retired oiHcers should be permitted to accept appointments in the diplo
matic and consular service (Annual Report of the Secretary, p. 62 ).
12. Some form of civilian retirement should be established (Annual Report
of the Secretary, p. 62 ).
13. Provision should be made for a uniform method of promotion of certain
o&cers of the Navy (Annual Report of the Secretary, p. 62 ).
14. Provision should be made for a graded retirement of enlisted men of the
Navy and Marine Corps (Annual Report of the Secretary, p. 62 ).
15. The clerical force should be increased by the addition of three clerks
(Annual Report of the Chief of the Bureau of Navigation, p. 2 ).
16. The compensation of the clerical force should be increased (Annual Re
port of the Chief of the Bureau of Naviagtion, p. 2 ).
17. The distribution of line oScers should be changed; the higher grades
should be increased (Annual Report of the Chief o f the Bureau of Navigation,
pp. 7 and 8 ).
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
273
18. An addition of 1,000 enlisted men is necessary to man the Reet. (Annual
Report of the Chief of the Bureau of Navigation, p. 13.)
19. Flag rank for medical oRicers. (Annual Report of the Surgeon Gen
eral, p. 14.)
20. Assignment of medical officers of the fleet to brief periods of duty on the
hospital ship.
(Annual Report of the Surgeon General, p. 14.)
21. The salaries of the clerical employees should be increased. (Annual Re
port of the Chief of the Bureau of Construction and Repair, p. 2.)
22. Allowances of rations should be made for all officers of the Navy and
Marine Corps while on sea duty.
(Annual Report of the Paymaster General,
pp. 1, 718.)
23. Legislation should be enacted authorizing the appointment of acting
assistant paymasters, the total number not to*exceed 25 at any time.
(Annual
Report of the Paymaster General, pp. 19, 20.)
24. A law should be enacted by means of which assistant paymasters may
be promoted to the next higher grade three years after the date of the Rrst
commission. (Annual Report of the Paymaster General, p. 20.)
25. It is recommended that departmental action be taken in order to correct
the unjust discrimination against civil-service clerks on foreign duty, which
results in not providing such clerks with positions upon their return to the
United States. (Annual Report of the Paymaster General, pp. 21, 22.)
2.
The pay of the clerical force should be increased. (Annual Report of the
Paymaster General, p. 24.)
27. It is recommended that officers while serving at sea receive the increase
of 10 per cent now authorized by law for officers of the Navy, and that this pro
vision be extended to include men of the corps also. (Annual Report of the
Major General Commandant of the Marine Corps, p. 3.)
28. So far as practicable officers of the Marine Corps should be appointed
from the graduates of the Naval Academy. The age limit of civilian appointees
should be changed so that the appointments will be limited to those not less
than 19 years nor more than 23 years of age. All appointments should be
made on probation for a period of two years. No midshipman who has been
dropped or dismissed from the Naval Academy should be commissioned in the
Marine Corps prior to the graduation of the class to which he belongs. (Annual
Report of the Major General Commandant of the Marine Corps, p. 5.)
29. The law limiting the number of officers on duty in the Hydrographic Office
should be repealed (Annual Report of the Hydrographic OfRce, p. 5 ).
30. The pay of employees should be increased (Annual Report of the Hydro
graphic OfRce, p. 5 ).
31. Additional help should be provided for collecting marine data by board
ing incoming ships at Los Angeles. The salaries of the employees of this ofHca
should be increased (Annual Report of the Hydrographic OfRce, p. 5 ).
INDEPENDENT ESTABLISHMENTS.
For Me
Service
A reclassiRcation is regarded as an essential step in any effective forward
movement toward improving the personnel of the departments and thus bring
ing about greater efRciency and economy.
The commission therefore renews its recommendation made in its annual
reports for legislation for a reclassiRcation of salaries on the basis of quality
and quantity of work performed.
H. Doc. 1435, 62-3------ 18
274
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
For Me t7w#ed #%%%es Rotate Garden;
A s the Botanic Garden is under the direction of the Joint Library Committee
of Congress I think it advisable not to make any suggestion as to this question,
we not being under the classiRed service.
C* CHANGES IN L A W TH O U G H T TO BE DESIRABLE RELATIN G TO TH E E X A M IN A T IO N
OF APPLICAN TS.
DEPARTMENT OF STATE.
For Me Depaffy%ew% o / #%a%e; None.
DEPARTMENT OF THE TREASURY.
For M e Bureau o / ^w^ravm^r aw<% PrwtMw#;
The examination of applicants should include a physical examination at time
of competitive examination and at time of appointment, especially for tuber
culosis.
For Me 0#2ee o / C0MM%t#g%0Mer o / 7w%er%a% Ret*e%%e.*
The examination of applicants for this service should embrace the require
ments of common-school education, good character, strict integrity, hard com
mon sense, moral and physical courage, and suRScient mental force to reach a
just conclusion, with the necessary determination to stand by such conclusion.
For Me ojp2ce o / Me Register o / Me Treas^r?/;
Money counters should have at least the eligibility of messengers and laborers
and upon application should be permitted to take the examination for clerical
positions.
DEPARTMENT OF JUSTICE.
Row. Jo&% Q. T%owt%?go%.' No suggestion of change.
# 0%. Frwes% E^ae&e?; My experience has not been such as to suggest any
change of the existing provisions.
Ron. W . T. DeyMSOw; I have no improvement to suggest.
Row. W . T. T&ompgow.' I do not know that any improvement could be made.
# 0%. C%ar%es J57ar%.* None, so far as employees within the competitive classiRed
service are concerned.
(See below, d.)
4fr. A. Br%ce Bte%asM; The present methods of examination seem to produce
satisfactory results in so far as they relate to clerical positions, and this divi
sion is not now concerned as to any other kind of examination.
DEPARTMENT OF THE NAVY.
For M e Bureau o / yavi^atiow;
The examination of applicants as at present conducted by the Civil Service
Commission is satisfactory, so far as the mental examination is concerned. A
physical examination should, however, be required. The bureau has had a
case where an applicant's examination papers stated he had weak ankles,
whereas when he reported for duty he had every indication of being a sufferer
from locomotor ataxia, and walked with difRculty and with the use of a cane.
Other cases of this nature have been noted from time to time, and employees
sometimes state that their physical condition will not allow them to perform a
certain class of work.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
275
INDEPENDENT ESTABLISHMENTS.
For Me
Service Commission.*
It does not appear that any change of law is required at this time relating to
the examination of applicants and the making of appointments for the classified
service.
For Me f7%ite(% States jBota%ic Garden.*
As the Botanic Garden is under the direction of the Joint Library Committee
of Congress, I think it advisable not to make any suggestions as to this ques
tion, we not being under the classified service.
DEPARTMENT OF THE INTERIOR.
For Me United States Ge0%047ica% S^ruey;
Based upon the recent experience of the Geological Survey, it is believed
that either the examination for clerk and the basis examination for the posi
tion of stenographer and typewriter do not afford a sufficient educational test
for those positions, or the system of marking is defective, with the result that
persons who are not properly qualified pass. I think many administrative
officers who have had experience in obtaining clerks and stenographers by
certification from the Civil Service Commission at entrance salaries of, say^
$1,000 and less will agree with me that it is rare that a thoroughly efficient
clerk is obtained, and that when that does happen it is more a matter of luck
than anything else. This appears to be due to the marking not being strict
enough, rather than to the fact that the test is insufficient.
For the technical positions, examinations should not be given when there is
no prospect of additional appointments being called for from the register thus
created.
Even though the apportionment feature of the civil service act should not
be eliminated entirely, it is strongly urged that messengers should be placed in
the nonapportioned service. It is more difficult with this class of employees
to obtain through examination an adequate idea of their qualifications for the
work they must do than it is in the case of employees of a higher grade. Also
the salaries are low, and greater hardship upon appointees coming from a dis
tance would be entailed in the event of separation from the service during the
probationary period than if local residents were employed, who, in such a case,
would not suffer the loss of traveling expenses.
The promotion examination for minor clerks is believed to be particularly
defective. The reason for this belief is that several men in the Geological
Survey who have passed that examination have been assigned to minor clerical
work in various branches and divisions and found wanting. There appears to
be no doubt that the examination does not test sufficiently the qualifications of
an applicant to perform even clerical work of a low grade. A very brief
example may be mentioned in which a man who had passed the minor clerical
promotion examination with a mark of 87 was unable to arrange cards in
alphabetical order. H e was able to place all the A's, B's, etc., together, but
could not grasp the fact that " Ba " should come before " B e."
For Me B%rea% o / Afmes.'
Rule IV. Board of examiners.
It is recommended that a board of examiners be appointed within the bureau
whose duty it will be to prepare drafts of examinations for all technical posi
tions for which there are no eligibles on the registers of the Civil Service Com-
276
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
mission, to be submitted to the commission for its consideration and approval,
such examining board to be responsible for the rating given these examination
papers. W hile there is specific legislation permitting this, considerable em
barrassment has been experienced by the bureau over examiners of the Civil
Service Commission, or those selected by the commission to rate the papers,
not being as familiar with the technical work of the bureau and the qualifica
tions most necessary for its efficient conduct as are the bureau officials.
DEPARTMENT OF AGRICULTURE.
The Civil Service Commission has from time to time, in the effort to meet
the requirements of the departments, increased the number and scope of its
examinations, both regular and special. This has been accomplished in a
reasonable and satisfactory manner. There is one matter, however, which
needs further attention. In the act to provide for the Thirteenth and subse
quent decennial censuses, approved July 2, 1909 ( 36 Stat., 3 ) , the following
proviso occurs: "
That hereafter all examinations of applicants for
positions in the Government service, in any State or Territory, shall be had
in the State or Territory in which such applicant resides, and no person shall
be eligible for such examination or appointment unless he or she shall have
been actually domiciled in such State or Territory for at least one year
previous to such examination."
It is desired that the above proviso be
amended by inserting after the words in the opening sentence, " in any State
or Territory," the words " except such examinations as test professional, scien
tific, or technical qualifications." The Attorney General has already inter
preted this proviso as including only examinations to appointments in the
apportioned departmental service in Washington, D. C., but the effort of the
law as enforced is to prevent the probational appointment in Washington, D. C.,
of eligibles examined for the nonapportioned service, except in the few cases
when the residence qualifications of the applicant at the time of the examina
tion fall within the terms of the proviso. Necessarily the eligibles are therefore
certified, not in accordance with their relative standing in the list of all who
pass the examination, but in accordance with their relative standing on the
restricted list last mentioned, with the result that selection must be made from
eligibles of inferior ratings in the examinations. A large majority of applicants
in professional, scientific, and technical examinations are persons who are just
completing their courses at educational institutions, and who would be put
to a prohibitive expense, to say nothing of the detriment to their school work,
in returning to the State of their legal residence to take the examination th ere;
and even in case of such return their eligibility to take the examination is
questionable in view of the requirements of " actual dom icile" for the year
preceding the date of the examination.
DEPARTMENT OF COMMERCE AND LABOR.
The restrictions upon selection from civil-service registers, brought about by
the law requiring the apportionment of appointments in the departments at
Washington among the States, Territories, and the District of Columbia upon
the basis of population, should be removed.
The provision of section 7 of the act of July 2, 1909, providing for the
thirteenth and subsequent decennial censuses, requiring applicants for posi
tions in the Government service to be examined in the State or Territory in
which they reside, should be repealed; or, at least, the law should be so amended
as to admit of proper exception when the persons seeking examination are
temporarily absent from the State of legal residence.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
1). CHANGES IN L A W
277
TH OU GH T TO BE DESIRABLE RELATING TO THE M A K IN G OF
AP PO INTM EN TS.
DEPARTMENT OF STATE.
For Me Df/Mr????6H% o / /Sfafe; None.
DEPARTMENT OF JUSTICE.
# 0%. Jo7^ Q. 27?ompgo%.* In the making of appointments, I think the head
of the department should be furnished with at least six names by the Civil
Service Commission, from which selection can be made. This will give a wider
latitude in selecting the applicant best fitted for the service required. To this
end, an examination of the papers of the applicant should be made by the head
of the bureau to which the appointee is to be assigned.
F ru e^
My experience has not been such as to suggest any
changes of the existing provisions.
W. T.
I have no improvement to suggest.
W. T.
The appointing power should have a larger number of
eligibles submitted to him from which to select. Appointments to places in
bureaus should not be made without the approval of the chiefs thereof. The
latter have better knowledge of the work required in their offices than anyone else,
C7M*r2e<s F%rZ; After the designation in the annual appropriation acts
providing for this oRice of the employees solely engaged upon legal work (in
cluding, in addition to the solicitor and assistant solicitor, the entire force, with
the exception of a file clerk, two stenographers, and a messenger) from "clerks
of class 1, 2, 3, and 4 ," respectively, to " attorneys" or " assistant attorneys,"
thus removing these positions from the competitive classified civil service and
enabling vacancies to be Riled without being restricted to a choice from certifi
cations of eligibles from the ordinary clerical registers. Under the present
civil-service rules (rule 2, cl. 3 and schedule A, 1 -4 ) , attorneys or assistant
attorneys may be appointed without examination or upon noncompetitive ex
amination. The employees mentioned are, or ought to be, attorneys or assistant
attorneys in reality, and the considerations which led to the exception in the
rules fully apply in their case. They should be designated for what they are.
The ordinary clerical registers as framed are not calculated to yield as good
material for the proper work of a law oRice as may be obtained in other ways.
An examination having special reference to the needs of the ofHce should be
given, but only to selected candidates independently chosen.
O. J. FieM.* The departments would undoubtedly often get more efBcient
clerks from the civil-service list if the apportionment law should be repealed, so
that the persons standing highest on the list from the entire country would be
certified instead of those from the State next entitled to appointment under the
apportionment law, as at present.
Afr. A. Br%ce
W ith reference to appointments to clerical positions
in this division I think the present plans satisfactory, except that I believe
selection should be made in accordance with ratings without regard to the
geographical location of the applicants. I believe that this change would
result in the department securing a higher grade of employees, particularly
for duty at Washington. The present method of making appointments to the
field positions of this division seems to me to be the best that can be followed,
its only weaknesses, as I see them, being that it presupposes an entirely honest,
able, forceful, broad-minded man at the head of the department who will not
place political inRuence or personal friendship before merit and qualiRcations
of training and character, and a head of the division who will be guided by
278
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
similar principles. The Reid service of this division is composed of exceptionally
qualified, highly trained men, selected, with but rare exceptions, indeed, en
tirely on account of their qualiRcations and absolutely without regard to
political, religious, or personal considerations, and I do not believe that any
practicable method of examination can be found which will work to so good an
advantage as the present method of appointment.
DEPARTMENT OF THE INTERIOR.
For Me United States Patent Oj#%ce;
.
I believe that in the making of appointments to scientiRc bureaus like the
Patent ORice the rule which requires the apportionment of such appointments
to the several States should be abolished. Many of the States are not pro
vided with scientiRc schools for the training of men to Rll such positions, and
therefore are able to furnish comparatively few who are capable of Riling
§hem. The result of the present rule is frequently to compel the selection of
men of lower standing in the examination than those who might be chosen if
the rule were abolished, and I believe that the change recommended would be
Ri the interest of the service.
For Me Bureau ojf Education.*
The apportionment requirement in the making of appointments should be
repealed so that the best-qualiRed persons may be selected without reference to
place of residence. This is particularly desirable in connection with positions
requiring a high order of attainments or special qualiRcations.
For Me United States (reo%ogr%ca% S^rve^.*
Such change as would allow the making of appointments of temporary un
skilled laborers by agreements similar to those made with temporary Reid
employees rather than by Secretary's appointment
FOB THE BUREAU OF MINES.
Rule V II. CertiRcation.
SECTION 1 ( c ) . Attention is called to the apparent conRict between this
paragraph of Rule V II and section 2 of Rule X I I as revised by the last session
ef Congress.
Rule V III. Temporary Appointment.
When the services of a temporary clerk or other employee are required for
& brief period, under section 4 of this rule, it is usually due to some great
emergency, and considerable embarrassment has been experienced in the past
j&am the fact that in the Washington oRice prior correspondence must be had
with the Civil Service Commission, names be certiRed, correspondence be
carried on with the eligibles, and almost the entire period for which such serv
ices were required elapsed before an eligible could be obtained. A change
in the ruling cited is therefore recommended which will permit the head of a
bureau, on approval of the head of a department, to select from outside the
register such an employee at once, for a period of not to exceed 80 days, by
the making of a prompt report of such selection to the Civil Service Commis
sion. Such provision is now made for the Reid service, where registers do not
exist, and should be made where they do exist, both for the Reid service and
the Washington oRice, in the interests of good administration and economy of
time and expense.
DEPARTMENT OF AGRICULTURE.
I would recommend that Congress be requested to modify the law in regard
to apportionment of employees so as to permit the certiRcation o f the highest
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
279
eligibles on each register of scientific, professional, or technical employees regarless of the States of which they may be legal residents. The present law re
quiring that certification be made by apportionment among the States permits
the certification of persons who have received comparatively low ratings. It is
especially detrimental to the service to have scientific, professional, and technical
workers in the apportioned service. Our best material often consists of men
who are pursuing post-graduate studies or perhaps hold minor positions in the
large universities of the east in such States as New York, Massachusetts, Penn
sylvania, and Maryland. Such men can not take an examination for the appor
tioned service without returning to their home States, from which they are
frequently at considerable distance. Even those who are residents of the States
mentioned and are allowed to take an examination for the apportioned service
are sometimes placed very low on the eligible list because the quotas of the
States to which they belong are full. W e would have sufficient difficulty in Ril
ing our scientific, professional, and technical positions with men of the caliber
required for economical and efficient work, even without the imposition of un
necessary barriers such as the apportioned service. It is of the utmost im
portance, therefore, that these positions, at least, be removed from the appor
tioned service. Certain exceptions have already been made, such as those in
the Reid service of the military staff of the W ar Department and draftsmen in
the Navy Department. Appointments should be made upon certiRcation by the
Civil Service Commission of applicants who have obtained the highest markings
or ratings on their examinations, without regard to apportionment by States.
Applicants whose examinations show them to be best qualiRed should be ap
pointed, regardless of their State citizenship, in order that the service may
secure the best obtainable employees. Moreover, it often happens that so much
time elapses between the time of examination and the time of certiRcation of
those who have high eRiciency ratings that conditions have changed and the
persons certiRed are no longer willing to accept the positions offered. In many
cases the positions would have been accepted had certiRcation immediately fol
lowed the rating, as would have been the case if certiRcations were based upon
ratings alone. It is also believed that provision should be made for temporary
appointments outside of civil-service lists in emergency cases of experts in semitechnical lines (for example, draftsmen, photographers, etc.), for periods of not
to exceed, say 80 or 60 days. The delay incident to securing certiRcations and
arranging for appointments and the uncertainty as to the abilities of those
selected under existing conditions further complicate a condition that is already
critical and which has caused the demand for emergency employees. In almost
all cases the department could secure persons for immediate service possessing
exactly the qualiRcations desired, and in many cases an intimate experience
along the lines of work involved. This would obviate the necessity of teaching
temporary employees for a short period o f service.
TREASURY DEPARTMENT.
For %%e
o/ Me <7o?MWMS3%oMer o/ interna? Revenue;
The present method of making appointments does not seem to be objectionable,
except where more appointments are made than the service actually requires.
INDEPENDENT ESTABLISHMENTS.
For Me United states
gerrice Comwtssfon;
It does not appear that any change of law is required at this time relating
to the examination of applicants and the making of appointments for the classiRed service.
280
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
For Me &%tte% State# Botanic Garden:
As the Botanic Garden is under the direction of the Joint Library Committee
of Congress, I think it advisable not to make any suggestions as to this question;
we not being und)er the classified service.
E . CHANGES IN
LAW
THOUGHT TO BE DESIRABLE RELATING TO DISCIPLINE OF
EMPLOYEES.
DEPARTMENT OF STATE.
For t&e Department o / State.* None.
TREASURY DEPARTMENT.
For t^e
o/
-Moneys;
No special recommendation except the general belief that discipline reduced
to a minimum and freed from conditions that appear unjust or harassing to the
large body of conscientious workers, increased salaries, and more frequent pro
motions under some such plan as was suggested by the Keep Commission, would
be an incentive to greater individual efficiency.
For t7?,e D%vts%on o /
Fi%es;
The present system is satisfactory.
For Me oj05ce o / Me Commissioner o / 7nterna% Rei7e%Me;
The word " discipline " seems to comprehend the training of officers as well
as their punishment for omission, deliquencies, etc. No change in the law seems
necessary in this respect, since the Commissioner of Internal Revenue, through
his subordinates, has full authority for the training of officers and their punish
ment for delinquencies. The training of officers by the Commissioner of Internal
Revenue, as well as their correction and punishment for delinquencies and m is
conduct. should, however, be free from political influence.
For Me oj^ce o / Me Register o / Me TYeasMrg/.*
Discipline is one of the principles of efficiency and can be best maintained by
efficient supervision and example of superiors which should be secured by legal
requirement.
DEPARTMENT OF JUSTICE.
7/on. Jo&n Q. Thompson; No suggestion of change.
# 0%. Freest Knae&eZ.* My experience has not been such as to suggest any
changes of the existing provisions.
j&ow. W . T. Thompson; Authority should be given the appointing power to
suspend without pay employees for willful misconduct.
Row. (7Mr%e# F%r%; None.
JMr. A. Brttce Bie%asM; The present methods and powers with reference to the
discipline of employees seem to me to be ample to meet all cases and to give all
employees assurance of fair treatment. It might be desirable to require that
every employee, without regard to his civil-service status, should be heard
before his services are dispensed with or his compensation decreased, but in
actual practice this rule is followed at the present time in this division.
DEPARTMENT OF THE NAVY.
For Me FydrogrrapMc Oj0%ce.'
The head of department should be empowered to suspend employees.
For Me Bureau o / AfedMcine and SMrgrerg/.*
The forfeiture of pay of all persons in the Navy and Marine Corps during
disability from disease of venereal origin, such forfeiture to be credited to
the naval-hospital fund.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
281
DEPARTMENT OF COMMERCE AND LABOR.
As a means of discipline, in addition to those of dismissal, reduction in
grade, or suspension without pay, the head of the department should have
authority to temporarily reduce the compensation of an oRicer or employee
without changing his rank or grade, the difference in salary to be turned into
the Treasury to the credit of " Miscellaneous receipts." This should apply to
statutory as well as to nonstatutory positions.
INDEPENDENT ESTABLISHMENTS.
For Me Civi% Service Commission.*
The commission should be given power to make obligatory recommendations
to the heads of departments respecting violations by employees of the civilservice act and rules, particularly in relation to political activity, in order that
penalties may be uniform.
F . CHANGES
IN
LAW
THOUGHT
TO BE
DESIRABLE
RELATING
TO FIDELITY
OF
EMPLOYEES.
DEPARTMENT OF STATE.
For Me Department o / State;
None.
DEPARTMENT OF JUSTICE.
# 0%. W . T. T%ompso%; The fidelity and loyalty of employees depend very
much on fair and just treatment. The large majority of the employees of the
Government are highly educated and refined, and any rules or regulations in
relation to them should be framed in a way not to irritate or bear unduly on
intelligent persons.
Such employees are considered among the best citizens,
and nothing should be done especially by the Government to show a want of
confidence in them.
Heads of bureaus and chiefs of divisions can easily
ascertain when an employee is unfaithful or shirking his duty, and proper
discipline should be administered in such cases. To ascertain who the un^
faithful are, it should never be necessary to assume that all should be sus
pected.
Bon. (%&r%es Far?; None.
Afr. A . Britce Fie%as%i; The fidelity of employees, of course, should be given
consideration in all questions affecting them, but there are no suggestions
which I can make with reference to legislation on this matter.
POST OFFICE DEPARTMENT.
(7oM%sion amonp bidders.— To prevent collusion among bidders for furnishing
supplies to the Post OfRce Department:
No contract for furnishing supplies to the Post OB&ce Department or the
postal service shall be made with any person who has entered, or proposed to
enter, into any combination to prevent the making of any bid for furnishing
such supplies, or to Rx a price or prices therefor, or who has made any agree
ment, or given or performed, or promised to give or perform, any consideration
whatever to induce any other person not to bid for any such contract, or to
bid at a specified price or prices thereon; and if any person so offending is a
contractor for furnishing such supplies, his contract may be annulled, and the
person so offending shall be liable to a Rne of not less than $100 nor more
282
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
than $5,000, and may be further punished, in the discretion of the court, by
imprisonment for not less than three months nor more than one year.
.BoM4s o / Navy
c%er%s.— To enable the Postmaster General to fix the
amount of the bonds of Navy mail clerks and assistant Navy mail clerks:
That every Navy mail clerk and assistant Navy mail clerk shall give bond
to the United States in such penal sum as the Postmaster General may deem
sufficient for the faithful performance of his duties as such clerk.
The fixed bond of $1,000 prescribed by existing law for Navy mail clerks
and assistant Navy mail clerks is frequently insufficient to cover the stamped
paper needed by the larger ships, and, on the other hand, is greater than is
required for the smaller ships.
o / o%Ms.— To facilitate the administering of oaths in con
nection with business relating to the Post Office Department, and to save a con
siderable amount annually to the department:
" A n y post-office inspector or other representative of the Post Office Depart
ment commissioned by the Postmaster General, or any postmaster, assistant
postmaster, or superintendent of a post-ofBce division, branch office or station,
or any sworn employee of a post office designated by a postmaster for the pur
pose, may administer oaths and take affidavits, without fee, in connection with
any business relating to the postal service."
Reim&wse7%e%% o / pog%7%as%erg /o r po#%#% acwiwgr bosses.— To authorize the
reimbursement of postmasters for certain losses of postal savings funds and
postal savings stam ps:
" The provisions of the act of May 9, 1888, chapter 231, as amended by the act
o f June 11,1896, chapter 424, are hereby amended so as to include postal savings
funds and postal savings stamps."
The Postmaster General is authorized by the acts of Congress approved May
9, 1888, and June 11, 1896, to reimburse postmasters in sums not exceeding
$10,000 for losses of Government funds resulting from " fire, burglary, or other
unavoidable casualty " at their respective post offices and for losses o f such
funds in transit from postmasters to their designated depositories. The estab
lishment of the Postal Savings System makes it necessary to extend this
authority to include postal savings funds and postal savings stamps. Such
authority would seem to be in line with the policy of Congress of granting to
the department authrity to reimburse postmasters in small amounts when the
losses result from no fault or negligence of the postmasters.
For Me Oj#Ece o /
c?er%;
I f by this subject is meant fidelity of employees in a fiduciary capacity, I
suggest that the present system of bonding employees be abolished and that in
lieu thereof any person appointed to a position of trust be required to give his
personal bond without sureties. It has been estimated that employees of the
Government now pay $1,000,000 a year to surety companies in premiums on
bonds. This amount is eventually paid by the United States, for the premiums
on bonds merely amount to a reduction in salary. The Government, like a
private employer, on the average receives no more in the way of services than
it pays for. I f the Government should accept personal bonds without sureties
it would have the same hold upon bonded employees that bonding companies
now have. The Government owns the machinery for enforcing payment from
a delinquent employee, and could as well do this work through its own oiBcers
as to pay an enormous sum to bonding companies for the performance of such
work.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
G . CHANGES
IN
LAW
TH OU GH T
TO
BE
DESIRABLE
RELATING
TO
283
PROMOTING
INDIVIDUAL EFFICIENCY.
DEPARTMENT OF STATE.
For Me Department o / stater None.
DEPARTMENT OF JUSTICE.
# 0%. Jo^n Q. Thompson; No suggestion of change.
Fon. F m est ^nae&et; My experience has not been such as to suggest any
changes of the existing provisions.
Fon. W. T. Dennison.' I have no improvement to suggest.
Ron. W . T. Thompson.* Rewards in the way of promotion on account of merit
rather than seniority would promote individual efhciency.
# o n . C%ar%es L?ar%.* None.
Hr. A. Br^ce Bie^asM; The making possible for the head of the department
to recognize individual eiHciency by promotion without regard to length of
service seems to me to be very desirable, although I am unable to suggest any
additional legislation which would be of assistance. The dHRculty in this par
ticular is not in the power, but in the practical situations which are encoun
tered. A second suggestion, which also does not involve any change in law, that,
it seems to me, would go far to increasing individual efficiency, is that the heads
of divisions and others in supervisory positions should give full credit to the
ideas, suggestions, and work which originate in their subordinates, and should
see that, as far as possible, the head of the department knows of the personal
source of work performed and that individuality is not covered up by the
supervising ofEcer. The system of initialing in this division is used with this
object in view.
Jir. J. # . jMa^eg/.* I think promotions should be made on individual efficiency
ratings submitted by the heads of ofRces or bureaus at regular periods during
the year under rules prescribed by the head of the department.
DEPARTMENT OF THE NAVY.
For t%e B%rea% o / Yards and Doc%s;
Provision should be made giving the President power to authorize promotions
on account of individual efRciency, to the end that an employee showing special
ability could be properly compensated according to the value of his services
pending legislative action.
DEPARTMENT OF THE INTERIOR.
For t&e Generat Land 0#%ee;
My recommendation under this head would be the adoption of a lump sum
appropriation system under which promotions could be made as they are earned,
within the limit of the appropriation itself, and not have to wait for the death,
resignation, or demotion of some individual holding a higher salaried position.
DEPARTMENT OF AGRICULTURE.
A ll clerical and executive employees should be provided for on statutory
rolls, and all scientiRc, professional, and technical employees on lump-sum rolls.
In the case of the latter classes of employees, this would permit the head of
a bureau or department to make promotions for individual eHiciency when nec
essary for the good of the service, and would enable the department to retain
284
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
the services of many employees who would otherwise accept offers of more
lucrative employment in the commercial and scientiRc world outside.
Sections 3 and 4 of the legislative bill approved August 23, 1912, provide
that the Civil Service Commission, with the approval of the President, shall
formulate certain rules and regulations designed to improve the efRciency of
the Government service. Until these rules and regulations are in effect, it
would seem that any recommendation for a change in the present practice
would not be appropriate.
Section 7 of the general deRciency bill approved August 26, 1912, provides as
follow s: " N o part of any money contained herein or hereafter appropriated
in lump sum shall be available for the payment of personal services at a rate
of compensation in excess of that paid for the same or similar services during
the Rscal year nineteen hundred and twelve; nor shall any person employed at
a speciRc salary be hereafter transferred and hereafter paid from a lump-sum
appropriation at a rate of compensation greater than such speciRc salary, and
the heads of departments shall cause this provision to be enforced. The Solici
tor of the Department of Agriculture has rendered an opinion in regard
to the interpretation of the above section to the effect that it will be necessary
to demote all employees on the miscellaneous roll who have received promotions
since June 30, 1912, to a salary received in the Rscal year 1912, providing that
on July 1, 1913, the employee is still performing the same or similar services
as during the Rscal year 1912. The solicitor is also of the opinion that section
7 prevents the transfer of employees from the statutory to the miscellaneous
roll with an increase in salary at that time or subsequently, even though the
work to be done is of an entirely different nature from that performed under
the statutory position. Since the restrictions of section 7 of the general de
Rciency bill are of such a nature as to seriously embarrass the department in
the operation of its promotion policy by necessitating many undeserved demo
tions July 1, 1913, and also preventing many promotions which should be made
on account of increased eRiciency of the employees, increased responsibility,
or increased cost of living necessitated by transfer of headquarters, in cases
of employees on the lump-sum roll who are performing the same or similar
services to that performed in the Rscal year 1912, it is desired that section 7
of the general deRciency bill be so modiRed by legislation as to allow deserved
promotions of employees on the lump-sum roll, even though their work is of
the same or similar nature as that performed in the Rscal year 1912, and also
to allow transfers of employees from the statutory to the miscellaneous roll
at increased compensation, when the work to be performed is of a different
nature from that performed by the employee under the statutory position.
DEPARTMENT OF COMMERCE AND LABOR.
It is not perceived what changes in the law, if any, would solve this question.
Apparently it must be worked out by administrative methods.
H . CHANGES IN L A W THOUGHT TO BE DESIRABLE RELATING TO THE M AKING OF
PROMOTIONS.
DEPARTMENT OF STATE.
For Me Deportment o / Stater None.
DEPARTMENT OF JUSTICE.
JHow. Jo An Q. Thompson; No suggestion of change.
Hon. tru e st Knae&e%; My experience has not been such as to suggest any
changes of the existing provisions.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
285
#9% . W. T.
The difficulties arising in promotion matters have been
already met by the legislation of the last session, providing that the Civi!
Service Commission shall establish systems of promotion on the efficiency basis
in the various departments. This department has already provided such a
system.
Some of the limitations imposed in the last appropriation acts (particularly
the deficiency act) apparently may have the effect of preventing any promotion
of clerks engaged under the " lump " appropriations and fixing them perma
nently at the basis of their salaries for the fiscal year 1912. The bills also have
similar effect in regard to clerks transferred from the regular service to the
" lump " appropriations. O f course these provisions should be changed or made
clear to exclude these results, which are very unfair to the service.
W.
Thompson,; Promotions in a bureau should not be made without
the approval of the chief thereof, and his recommendation should be observed.
He is better qualified to know who is the most competent to fill a vacant place
in his ofBce.
(7Mr?ea F%r%; None.
A/r, 0 . </. F%eM.* I would recommend some scheme whereby promotions would
become automatic within certain limits so long as a clerk is efficient. For
instance, let a clerk enter the service at $900 a year, and, if efficient, be
promoted automatically, say $100 a year, up to the maximum of that grade.
Afr. A. BrMce
There are no suggestions for changes in law which I
can make as to this subject. It seems to me that the power of heads of the
department is ample to cover the situation. The recent efforts to place indi
vidual efficiency and the welfare of the department ahead of length of service,
etc., seems to me to be of great importance.
Afr. J. # .
I think promotions should be made on individual efficiency
ratings submitted by the heads of offices or bureaus at regular periods during
the year under rules prescribed by the head of the department.
DEPARTMENT OF THE NAVY.
For Me
o / yarijyatioy!.*
Promotions could be made more satisfactorily and without causing dis
satisfaction among the employees if the service was reclassified as previously
suggested.
For Me Tfg/dro^rapMc %%ce.*
In respect to pay and promotion, the Navy Department should be considered
as a unity, and promotions should be based on efficiency, fidelity, length of
service, etc., as affecting all the employees in the department, and not merely
those of the Hydrographic Office. This means that there need be but one
appropriation clause for the employees of the department, forming the entire
pay table into one roll, the same being roughly subdivided into groups, as, for
example, technical, clerical, and subclerical employees. The effect would be
to stimulate emulation among all the subclerical force, for example, no matter
what particular office the person is employed in. It also would enable the head
of the particular office or bureau to keep his force intact, whereas he now loses
his employees, who naturally seek promotion by transfer. This is particularly
true in the clerical force of the Hydrographic Office.
For Me B%re%M o / Yards
Doc&g;
Promotion should be based upon length of service and efficiency in the whole
of each department instead of each bureau or office, to the end that employees
o f equal efficiency and length of service will not be unequally advanced. But
286
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
this should not necessarily involve a change in duties where special aptitude
for particular work is shown.
For Me Bureau- o? Ordnance;
It is recommended that a longevity system of increase of pay be provided
for under suitable rules and regulations. Under such a plan an eRicient clerk
would receive a promotion, so far as his pay is concerned, at the end of a stated
period, even though there were no vacancy into which he could be promoted.
This increase of pay should be automatic and should not require a special
appropriation, the sums necessary for such promotions during any Rscal year
to be included as a lump sum in the estimates under the legislative bill or
under such bill as provided the salaries of the employees concerned.
For Me i?%rea% o / Construction and Repair;
Under a rule of the Civil Service Commission, dated September 18, 1909,
messenger boys appointed without regard to apportionment shall not be pro
moted or transferred to apportioned positions and thereby are prevented from
attaining a higher grade than messenger boy. The bureau has in its employ
young men who, entering its sen ice as messenger boys, by application and
study have proven themselves of greater value to the bureau than the compen
sation paid, but whose promotion to a higher grade than $600 is prohibited by
the above-mentioned ruling.
These young men are studying and preparing
themselves for examination as stenographers and typewriters, and when they
pass the necessary examination are eligible for promotion to positions in the
Reid service paying a greater salary than they receive under the bureau. It is
recommended that this rule be so modiRed that a young man who qualiRes for
promotion, and who in the bureau's employ has shown a high eRiciency in per
forming his duties, can be promoted to positions in the bureau's clerical force.
DEPARTMENT OF THE INTERIOR.
That promotions be decided, subject to the approval of the head of the depart
ment, by a board in each bureau to consist of the head of the bureau and his
chief clerk and such other employees of the bureau as may be designated, the
action of the board to be subject to the " system of eRiciency ratings " provided
by section 4 of the legislative act of August 23, 1912, but also considering the
qualiRcations and relative standing, length of service, quantity and quality of
work, and general merit of employees.
For Me United States Patent 0 # c e ;
Promotions in the Patent ORice are at present made by seniority, except
where the record of the person next in order for promotion is unsatisfactory,
in which case he is passed over. Unless some more satisfactory means than
has yet been discovered for determining the eRiciency of the force shall be
found, I believe that the present system, when carefully carried out, gives as
good results as can be obtained.
DEPARTMENT OF AGRICULTURE.
Promotions in grade are to a great extent controlled by the civil-service
rules; promotions in salary should be made without regard to political, social,
or personal favoritism and should depend solely on merit. The practice pre
vailing in this department consists of the maintenance of eRiciency records o f
each employee, and recommendations for promotions are based upon such rec
ords. The unbiased recommendation of the chief under whose supervision the
employee is engaged, based upon an adequate record of eRiciency, insures, we
believe, a fair method o f promotion.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
28?
All clerical and executive employees should be provided for on statutory rolls,
and all scientific, professional, and technical employees on lump-sum rolls. In
the case of the latter classes of employees this would permit the head of a
bureau or department to make promotions for individual efficiency when neces
sary for the good of the service and would enable the department to retain the
services of many employees who would otherwise accept offers ofmore lucrative
employment in the commercial and scientific world outside.
Section 7 of the general deficiency bill, approved August 6, 1912, provides as
follows: " No part of any money contained herein or hereafter appropriated
in lump sum shall be available for the payment of personal services at a rate
of compensation in excess of that paid for the same or similar services during
the fiscal year 1912; nor shall any person employed at a specific salary be here
after transferred and hereafter paid from a lump-sum appropriation at a rate of
compensation greater than such speciRc salary, and the heads of departments
shall cause this provision to be enforced." The Solicitor of the Department of
Agriculture has rendered an opinion in regard to the interpretation of the
above section to the effect that it will be necessary to demote all employees
on the miscellaneous roll who have received promotions since June 30, 1912,
to the salary received in the Rscal year 1912, providing that on July 1, HM3,
the employee is still performing the same or similar services as during the Rscal
year 1912. The Solicitor is also of the opinion that section 7 prevents the
transfer of employees from the statutory to the miscellaneous roll with an
increase in salary at that time or subsequently, even though the work to be
done is of an entirely different nature from that performed under the statutory
position. Since the restrictions of section 7 of the general deRciency bill are
of such a nature as to seriously embarrass the department in the operation of
its promotion policy by necessitating many undeserved demotions July 1, 1913,
and also preventing many promotions which should be made on account of
increased efRciency of the employees, increased responsibility, or increased
cost of living necessitated by transfer of headquarters, in cases of employees
on the lump-sum roll who are performing the same or similar services to that
performed in the Rscal year 1912, it is desired that section 7 of the general
deRciency bill be so modiRed by legislation as to allow deserved promotions of
employees on the lump-sum roll, even though their work is of the same or
similar nature as that performed in the Rscal year 1912, and also to allow
transfers of employees from the statutory to the miscellaneous roll at increased
compensation when the work to be performed is of a different nature from that
performed by the employee under the statutory position.
DEPARTMENT OF COMMERCE AND LABOR.
The system of efRciency ratings, as now provided by law, should be supple^
mented by such reclassiRcation of the service as will provide that the designa
tion of the several grades and classes shall signify to relative importance and
salary value of the duties respectively required.
I.
CHANGES
IN
LAW
TH OU GHT
TO BE DESIRABLE
RELATING
TRANSFERS.
DEPARTMENT OF STATE.
For Me Depar%wew% o /
None.
DEPARTMENT OF JUSTICE.
#OM. JoTw Q.
No suggestion of change.
TO
GRANTING
OF
288
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
# 0%. Fr%es% iir%ae&e%; My experience has not been such as to suggest any
changes of the existing provisions.
Fo%. </. (7.
Section 5 of the legislative, executive, and judicial appro
priation act of June 22, 1906 (34 Stat., 449), makes it unlawful for any clerk in
the classified service in any executive department to be transferred to another
department until he shall have served three years in the department from which
he desires to be transferred.
I have always thought that this was a most outrageous provision of law. I
think it should be repealed. I also think that when a transfer is made from one
department to another the clerk should not be compelled to go into the new de
partment at the entrance salary of $900.
#ow. W. T. De?MS0M.* I have no improvement to suggest.
#ow. IF. T. TAo?%pso%; The three-year limitation on transfers from one de
partment to another should be repealed. It is a deterrent on ambition.
#ow. CVtar?e# Far%; None.
iMr. O. J. F%eM; Repeal the present law prohibiting transfers until an em
ployee has served three years in the department in which he was first ap
pointed.
^!ir. A. Br^ee B%e%as%%.' I think the law should be so amended as to permit
transfers from one department, division, or office to another without any re
striction except the approval of the heads of the two departments involved.
(See also II, 3.)
DEPARTMENT OF THE NAVY.
For Me B^reaM o/ yav%7a%to%.*
The bureau approves of the present law which requires three years' service in
one department before an employee can transfer to another. The executive,
however, should be given authority to waive this proviso when in his discretion
such action would be for the good of the service.
For Me R^/droprapMc Oj0%ce;
If the plan recommended under the title of " The making of promotions"
Were instituted it would largely do away with requests for transfers.
For Me B%rea% o/ Yard# a%% Doc%g;
The restriction upon the granting of transfers should be removed and dis
cretionary power given the heads of the various departments and offices.
For Me Bureau o/ CoMS%rMe%io% a%% Repatr.*
The operation of the act of June 22, 1906 (34 Stat., 449), requiring three
years' service in a department before transfer from that department will be
granted is satisfactory.
DEPARTMENT OF THE INTERIOR.
It is desirable that the prohibition contained in the act of June 22, 1906 (34
Stat., 449), as to transfer from one executive department to another until after
three years' service, be repealed. The present law works a hardship upon
capable, deserving employees in departments paying lower salaries than in
other departments, and prevents departments securing employees having special
qualifications and experience.
For Me Oj^ee o/ 7%(Ma% Ajyatrg;
Civil-service rule 10, section 8, provides that before any person shall be trans
ferred from one executive department to another he. must have served three
years in or under the department or independent ofRce from which the transfer
is proposed. The rule referred to contains no provision which would authorize
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
289
the Civil Service Commission to approve the transfer of an employee who has
not served the required length of time, even though the proposed transfer is
unquestionably in the interests of good administration. The provision was no
doubt intended to prevent the moving about from one Government oRice to an
other of employees who desired changes simply for the sake of change, but this
bureau is firmly of the opinion that there should be some way for the Civil
Service Commission to waive the requirements of this rule in the same manner
that the requirements of other civil-service rules are waived by the commission.
For Me United States Patent Oj#%ce;
I do not believe in standing in the way of the transfer of an employee to
another bureau or department in which it may be possible for him to secure
more rapid promotion, but it undoubtedly operates to the disadvantage of the
bureau from which the transfer is made. The greatest cause for such transfers
is the inequality of salaries paid for the same class of work in different bureaus,
and this inequality should be remedied. The Patent OfRce has for many years
suffered from this cause on account of the small number of high-salaried clerical
employees and the fact that other bureaus were paying higher salaries for the
same grades of work. At the present time there are in this ofRce grades of
messenger boys at $360 and $480 a year, and the law forbids the promotion
of these boys except upon passing an examination of a higher grade. The
Land OfRce, however, is able to secure the transfer of these messenger boys at
a salary of $480 and $600, and such transfers are constantly being made, with
the result that it is practically impossible for the Patent OfRce to keep these
positions Riled.
For Me United States Geo%o#ica% S%ri;e3/r
It is believed that the making of transfers is surrounded by too many restric
tions, both from the standpoint of good administration and of justice to the
employees. Everyone recognizes, I think, the fact that while entrance salaries
in the Government service are higher than those usually paid in private busi
ness, the ultimate opportunities for advancement in salary are far more
restricted. On this account, as well as to encourage eRlcient persons who are
anxious to get ahead to enter the Government, merited advancements should be
possible not only within a department, but from one department to another,
but the possibilities are distinctly limited in the Rrst place by the three-year
rule, which prohibits transfer from one department to another, except after
three years' continuous service. Another obstacle in the way of transfers is
that they must Rrst be approved by the Civil Service Commission, and that the
question of apportionment is involved. It is recognized, of course, that it may
be a serious disadvantage to a bureau or department to permit the transfer of
an eRicient employee experienced in the duties he is required to perform, but
it seems that the fact that no transfer can be made without the approval of the
head of the department in which the employee is already serving would guard
sufficiently against detriment to the service through unwarranted transfers. It
may well happen that, while the employee is valuable in his present position,
there is greater need for him in some other department, because of a position
of a different character, which requires the combination of qualiRcations which
he possesses, and because the position he already holds may be more readily
Riled than the one to which it is proposed to transfer him. It seems that is an
administrative matter which should be left to administrative discretion. In
general, however, I believe that if a transfer will afford an employee a promo
tion or better prospects for advancement, he should be given that opportunity
unless a transfer would be a serious detriment to the service where he is
employed.
H. Doc. 1435, 62-3------ 19
290
BUDGET FOR 1914 SUBMITTED TO CONGBESS.
DEPARTMENT OF AGRICULTURE.
Provision should be made for transfer of employees from one department to
another, without restriction, whenever the best interests of the public service
would be promoted thereby. The existing three-year limitation on such trans
fers (34 Stat. L., 449) should be abrogated. It is not apparent what justi
fiable result is secured from such legislation. In addition to the discourage
ment of employees who feel that they are being held in a position which is
probably not congenial, it very frequently happens that an employee in one de
partment, who is more or less unsatisfactory by reason of environment and lack
of interest in the particular line of work in which he is engaged, would be of
exceptional value in another department. Every executiye has had experience
with employees who have been, to say the least, unsatisfactory in certain po
sitions, but who have, when transferred to other lines of work, been of the
highest value in their service; and it would seem that inasmuch as an employee
must be certified it is not a matter of consequence which of the^ two depart
ments concerned requests the certification, since one of them secures an em
ployee who is desirous of changing and entering into the proposed work and
the other has the opportunity of replacing a dissatisfied employee with a new
man. Transfers from one department to another, however, should be made
at the same salary. This would prevent raids upon any department sufficient
to cripple it.
DEPARTMENT OF COMMERCE AND LABOR.
In order that there may be greater freedom in the Riling of positions requir
ing a special order of ability or training, the law placing a three-year restric
tion on transfers between executive departments should be repealed.
J . CHANGES IN L A W TH O U G H T TO BE DESIRABLE RELATIN G TO TH E M A K IN G OF
DE TA ILS.
DEPARTMENT OF STATE.
For Me Department o / State; None.
DEPARTMENT OF JUSTICE.
Hon. John Q. Thompson; No suggestion of change.
Fon. Ernest Knae&e%; The law should be so altered as to permit details of
attorneys, assistant attorneys, and law clerks in the department for service as
assistants under the district attorneys, and details of assistant district attor
neys for service in the department.
This would serve to bring the department in closer touch with t%ie Reid work
and increase the efficiency of its attorneys; and it would also tend to confer
upon the officials detailed from the department such a measure of experience
in the actual practice of law and in conditions outside of Washington as might
greatly assist them to leave the service and establish themselves in their chosen
profession when they wish to do so.
#on. W. T. Dentson; I have no improvement to suggest.
Fon. W. T. Thompson; Transfers or details to or from one bureau to another
should not be made without the approval of the chiefs of the bureaus affected.
.Hon, Charges Far?; None.
J^r. A. Br%ce F%eZasM; I know of no suggestion with reference to legislation
on this matter which I can make, although I am of the opinion that tho&3 in
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
291
volving any considerable length of time or degree of permanency should be
avoided, and any results determined upon as being desirable accomplished by
transfer.
DEPARTMENT OF THE NAVY.
For Me B%re%% o/ yaviyatton;
The bureau does not believe that an employee should be detailed to work
outside of the oRice where paid, except for short periods.
For Me -H^royrapMc Oj^ce.'
The Hydrographer should be empowered to make details at his discretion,
and if these details include additional duty those detailed for this duty could
be rewarded as under / and p.
For Me Bnre%% o/ Ord%%nce.*
It is recommended that legal authority be obtained for temporary transfers
to the oRices and bureaus of the Navy Department of classiRed employees at
navy yards and outlying stations, and vice versa. This authority could be
safeguarded by limiting the duration of such temporary service and by limiting
the number of occasions during any Rscal year that any particular employee
could be so transferred.
DEPARTMENT OF THE INTERIOR.
For Me B%reaM o/ Hine#;
It should be possible for details to be made from one bureau to another and
from one department to another which will permit of the payment of both salary
and expenses by the bureau or department to which detail is made.
As this can not now be done, it is necessary to have work which could be
done by a detailed employee done by a temporary appointee.
DEPARTMENT OF AGRICULTURE.
At present the making of details within the Department of Agriculture is
prohibited by law, with the exception of details to and from the Secretary's
oRice. The permitting of details betweeen bureaus in the department would
make the entire force of the department more elastic and provide for emer
gencies which may arise in any branches of the service. Very often there is an
accumulation of work in one oRice which could be reduced by the detail of
employees from another ofRce where the work is temporarily slack. This would
tend to keep the work of the entire department up to date without the addi
tional expense of hiring extra clerks, as must frequently be done under present
conditions. As such details would be authorized by the head of the department
and not by the bureau chiefs, it is not seen how any special abuse of the privi
lege could result. On the contrary, it would unquestionably increase the ability
of the department to meet emergencies and to keep the work properly balanced.
Some legislation would be required to put the suggested change into effect.
K . CHANGES IN L A W THOUGHT TO B E DESIRABLE RELATING TO SALARIES PAID.
DEPARTMENT OF STATE.
It is believed the salaries paid are in many instances too small, and that there
should be some such salary scale and classiRcation as was devised by the Keep
Commission.
DEPARTMENT OF JUSTICE.
J?on. Jo An Q. T&owpson; No suggestion of change.
Hon. Frnes% ^ncre&e?; Salaries should be increased substantially in the clerical
and legal forces.
292
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
Hon. J. C. Ad&ws.— As I view it, the salaries paid at the present time to the
lower clerks are entirely inadequate, and increase in salary would also afEect
the classification of the Civil Service Commission.
Under section 167 of the Revised Statutes the clerks are divided into four
classes, salaries ranging from $1,200 to $1,800.
The Rrst classiRcation seems to have been made by act of March 3, 1853 (10
Stats., 209), with salaries of $900, $1,200, $1,500, and $1,800. Sometime between
1853 and 1873 the salaries were increased to what they are now.
Of course, since the classiRcation of 1853 the cost of living has enormously
increased without a corresponding change in salaries.
The relative importance of the clerks at the time of the classification will
appear from a comparison of their salaries with those of Members of Congress
and executive officers. Between 1818 and 1856 a Member of Congress received
$8 a day during actual attendance. The Assistant Secretary of State in 1853
received $3,000 (10 Stats., 212), and this was the usual salary of an assistant
secretary. A chief clerk received $2,000. The salary of the Chief Justice of
the Supreme Court was $6,500, and each associate justice $6,000 (10 Stats.,
655). The whole appropriation in 1855 for the salaries of Attorney General
and the clerks and messengers in his ofRce was $18,040 (10 Stats., 656). The
chief clerks at the present time are getting from $3,500 to $4,000. Since this
classiRcation the salaries of the chief clerks and higher ofRcers have been
about doubled, while the classiRcation of 1873 has not only remained stationary,
but large numbers of additional clerkships have been created at salaries less
than $1,200.
I suppose it is impossible, of course, to make an increase all along the line,
but, I think, the situation might be greatly improved by getting new clerk
ships at the higher salaries in lieu of many of the present positions at the small
salaries.
jHo%. W. T. Demso%; I think the department has too many clerical salaries
at $1,600 and $900 per annum, and too few at $1,000, $1,200, and $1,400.
In the subordinate legal service, I think, tiiere should be more at $1,800 and
$2,000 and not so many at $2,500 and above, because I think that the most of
these positions can be Riled to the best advantage by men fresh out of the law
schools, who will either advance to the highest positions in the department or
go out into private practice after two or three years. Such young men of the
very highest ability can be obtained at $1,800 and $2,500 is far above the
market rate. See also answer to 11-5.
Row. W. y. Thompson; Salaries should be more uniform for light work,
and professional work should command considerably more pay than the ordi
nary clerical labor. The pay of the two classes in this ofRce is nearly the
same, while the professional workers in other ofRces of this and other depart
ments receive much more.
Hon. C&ar%es F#r%; Increase salaries by 25 per cent.
Capt. J. J. (Move^; As to the salary of the chief of the Division of Accounts
I make no remarks, leaving that to the Attorney General for his consideration
and action, if any. The salary of the chief bookkeeper should be increased to
at least $2,200 instead of $2,000, but an adequate salary should be provided for
Mr. Harris.
A. Br%ce B4e%#gA%; Legislation should be enacted making it possible to
pay very many of the grades of the service salaries more in keeping with the
present cost of living than is possible at present.
Row. J. Rew&en OZarA?, ^r., SoMcitor, Department o / State; I may, however,
remark in passing that the salaries paid to the assistant solicitors and to the
" law clerk " of the ofRce are wholly inadequate, the law clerks, as they are
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
293
ordinary civil service employees, not being able under any circumstances to
get more than $1,800 per year. (The fact is but one of the three now in the
solicitor's office get that amount.) Experience has shown the difficulty of
getting men who can render effective service for any such figure as this, and
this difficulty is increased by the fact that when new men are brought in they
are entered at salaries ranging from $900 to $1,400 a year instead of at the
maximum $1,800 per year salary. While I am wholly satisfied with the service
of the present force in this ofRce, the chances of securing efficient help in case
of future vacancies would be greatly increased if the salaries of the assistant
solicitors were raised from $500 to $1,000 and the salaries of law clerks raised
to $2,500 each. Moreover, there should be a definite number of law clerkships
assigned to the solicitor's office just as there are a definite number of assistant
solicitorships.
POST OFFICE DEPARTMENT.
Readjustment o/ postmasters' salaries.— To give the department six months
instead of three within which to complete the readjustment for the ensuing
Rscal year of presidential postmasters' salaries, by basing them on the gross
receipts of the offices for the four quarters ending December 31 instead of
March 31:
" That after June 30, 1912, the compensation of postmasters at post ofRces of
the first, second, and third classes shall be annual salaries, graded in even hun
dreds of dollars and payable in quarterly installments, and shall be ascertained
and Rxed by the Postmaster General on the basis of the gross receipts of their
respective ofRces for the calendar year, to take effect at the beginning of the
ensuing Rscal year."
Advancement o/ jfoMrt^-c%ass oj^ces.— To permit the advancement to the presi
dential class of any fourth-class oRice, provided the postmaster's compensation
for the year amounts to $1,000, irrespective of whether it amounts to $250 for
each quarter, as now required:
" That after June 30, 1912, when the total compensation of any postmaster at
a post oRice of the fourth class for four consecutive quarters shall amount to
$1,000, exclusive of commissions on money orders issued, and the receipts of
such post oRice for the same period shall aggregate as much as $1,900, the
Auditor for the Post ORice Department shall so report to the Postmaster General,
who shall, in pursuance of such report, assign such post oRice to its proper class,
to become effective at the beginning of the next succeeding quarterly period, and
Rx the salary of the postmaster accordingly."
DEPARTMENT OF THE NAVY.
For t7?e United states Narine Corps.*
That the second clerk in the ofRce of the major general commandant be in
creased to $1,500.
For Me oj^ce o / t^e solicitor;
The personnel of this oRice comprises the solicitor and eight employees. The
salary of the lowest grade provided for is $840, while the salary of the next
lowest grade is $1,400. The difference between these two salaries is so great
that an employee at $840 can not get a promotion without being transferred
to the rolls of some other ofRce or bureau. Owing to the needs of the other
ofRces and bureaus a promotion of this kind is very difRcult of arrangement,
and as a result it is not practicable to keep in this oRice for a desirable length
of time an efRcient employee in the lowest grade. This evil could be remedied
294
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
by either providing an additional clerkship at $1,000 or raising the salary of
the lowest grade of position froRi $840 to $1,000.
For Me #%re%M o? N a t a t i o n ;
The salaries should be increased in order that the bureau may command the
best class of service. The average salary of clerks in this bureau has actually
decreased since 1884, from $1,328 in that year to $1,140 in 1912. The bureau
does not believe that this condition will be found to exist in business establish
ments. The bureau believes the proper solution of the salary problem is that
there should be a base pay for each rating in the reclassiRcation suggested, with
longevity increase for different periods (years) of service in that rating, not
to exceed a certain total increase for each rating. It would not be necessary,
then, for an employee to wait for the death or resignation of some other person
in order that his increased worth to the service might be recognized. There
should be a proviso, however, that this increase should be only to those em
ployees whose eiBciency rating as shown by the system of efficiency established
by the Civil Service Commission entitles them to promotion.
The salaries paid to many of the employees of this institution are so low
as to make them regard this institution as only a stepping-stone to better
employment, and naturally their interest and fidelity to the institution is not
what it would be if they expected to make it their life work for the Hydrographic OH5ce.
A ll salaries should be equal in similar grades and for similar work, irre
spective of the ofRce, bureau, or department in which the employee is at work.
For the #Mrea% ojf JMedicine and SMrgrerg/;
The gratuity pay under naval acts of May 18, 1908, and August 22, 1912,
should not be subject to deductions of $75 in case of officers, and $3p in case
of enlisted men, as provided. Confusion would be avoided and much paper
work be eliminated by this change. A beneRcient statute should be untrammeled by such conditions.
For the Bnreaw ojf Yard# and Doc%s.*
Salaries should increase 5 per cent automatically after five years' service
in any one grade, provided the employee is above a fair standard of efficiency.
For the Bnrean o / Ordnance:
The bureau is of the opinion that the salaries paid to the clerical force em
ployed in the bureau and in the Navy Department in general are too small.
This applies particularly to the higher grades. It is thought that the chief
clerk of each bureau should receive at least $2,500 a year and that salaries from
$2,000 down to $1,200 should be increased by about 10 per cent.
It is also believed that there should be in each bureau a greater number of
the more highly paid positions than at present, in order that there may be an
incentive for efficient and capable clerks coming in in the lower grades to remain
in the bureaus and ofRces with a fair prospect of promotion. Salaries below
$1,200 are probably sufRcient, as the persons taken into these positions are
usually simple stenographers or copyists, and very capable and efRcient ones
can be obtained for these rates of pay. They will not remain in the service,
however, with prospect of remaining for an indeRnite number of years at the
game rate of pay.
For the Z?%rea% o / Construction a%d Repair;
The bureau has included in its estimates for several years past certain
changes which would make it possible to promote a number of its deserving
employees, but these changes have been omitted in the bill as passed. The
bureau has repeatedly recommended the allowance of a higher salary for its
chief clerk, who is specially qualiRed for this position through technical expe
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
295
rience prior to his appointment to his present position, and who, in the absence
of the chief of bureau, performs the duties of acting chief of bureau, but to
this time has not been granted the merited promotion. The changes desired are
by increasing the number of higher-priced clerks in order that experienced clerks
may be encouraged to remain in its employ. The bureau losses in its clerical
force, through resignation and transfer, during the past four years were more
than 48 per cent of the total force employed. The increase in the limit of ex
penditure for technical and clerical force, which have been included in the
bureau's estimates, should be approved. The repeal of the words "a n d at
rates of compensation not exceeding those paid hereunder prior to January 1,
1912," contained in the legislative, executive, and judicial bill, is recommended.
This provision may become so hampering as to be a serious matter in the future
if allowed to stand.
For Me B%re%% o / R%e%m F^weeriw^.*
The salaries of practically all employees of the bureau should be materially
increased. The present entrance salary is so low as to make it at times diiBcult
to secure competent employees to Hll vacancies.
For Me i?%re%% o / /8%ppMes
Aecowats.'
The Paymaster General of the Navy now has the relative rank of major
general, but receives only the pay and allowances of brigadier general or rear
admiral of the lower nine. The two assistants to the Chief of the Quarter
master Corps of the Army have the rank of brigadier general.
It is considered that the schedule of salaries for clerical employees in the
executive departments in Washington as prescribed in section 167, Revised
Statutes, should be amended so as to make provision for the payment of higher
salaries and to provide for graded salaries, dependent upon the character and
quality of the work performed.
That the pay and allowances of the assistant to the Bureau of Supplies and
Accounts be made the same as that now provided by law for the oiHcers hold
ing a similar position in the Quartermaster Corps of the Army.
DEPARTMENT OF THE INTERIOR.
It is desirable that there be a horizontal increase in all salaries to meet the
increased cost of living; that grades be established with differences of $100 in
the annual salary instead of $200, as provided at present, permitting of more
frequent promotions.
( The Committee on Department Methods— the " Keep
Commission " — covers this in its report to the President January 4, 1907, on
the general subjects of classiHcations of positions and gradation of salaries
for employees of the executive departments and independent establishments in
Washington.)
For Me Ge%cr%2
0#ce;
The salaries paid to the higher oiHcers in this bureau, the men who have
the hardest work both of executive and judicial character, are entirely inade
quate. In my report for the Hscal year 1911 the following statement was made,
which I repeat here:
" In connection with the organization and the changes which have been sug
gested it is my duty to call attention to the inadequacy of the salaries paid to
the higher employees of the General Land OHice. The resume of the character
of the work to be performed, as set forth above, shows very plainly its impor
tance, both in character and results. One chief of division, namely, that of
Surveying Division, received $2,750 (this salary was reduced to $2,400 by Con
gress in the appropriation for the current year) ; the chief clerk receives $2,500
(increased to $2,750 for the present Hscal year) ; the chief law clerk receives
296
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
$2,500; one chief of division $2,400; two members of the board of law review
receive $2,200 each and two $2,000 each. In addition to these there are only
27 employees receiving $2,000 each, only 37 receiving $1,800 each, and 69 re
ceiving $1,600 each. There are employed in the General Land OfRce 131 (now
increased to 140) men who are graduates of law, and it is of the greatest im
portance that this number should be increased and the vacancies in the ofRce
recruited from professional ranks in order that the work may be properly per
formed. It is evident, therefore, that not only are the higher grade employees
underpaid, but that, because of the inadequacy of the amount of salaries, there
is not sufRcient inducement to the right class of men to enter the General Land
OfRce Service. The policy is a poor one, and, in my opinion, the Government
suffers materially. True economy is in the paying of adequate salaries and in
this way attracting to the service men who are energetic and thoroughly com
petent to do good work for the Government and by their force and ability save
the Government money and perform its work properly and intelligently. I can
not lay too great stress upon this matter. There should be places under the
civil service in this bureau paying $4,000 per annum, $3,500 and $3,000 per
annum, and the number of places from $1,600 to $2,000 should be increased.
The ultimate effect of a step of this character would be greatly to be advantage
of the Government."
For t%e Oj^ce o / indian A # a ir s;
Experience leads me to believe that frequent small promotions, especially in
the lower grades, are an incentive to better work, and that intermediate grades,
viz, $1,100 and $1,300 (or their equivalents in even monthly salaries of $1,080
and $1,320), would be an advantage.
For Me United States Patent Oj^ce.*
The salaries of both the examining corps and the clerical force of the Patent
OfRce are entirely too small to enable us to retain the services of competent
employees. I have furnished the Economy and Efficiency Commission with
data on this point, accompanied by a proposed list of salaries which, with
slight changes, corresponds to a list which was submitted to the Patent Com
mittee of the House at the last session, and which it is understood was not
objected to by them. I believe that the enactment of a law providing for these
salaries is absolutely essential to the preservation of efRciency in the Patent
OfRce.
For t&e Fi/reaM o / FdMcation;
The limitation as to the amount of salary that may be paid any one person
from lump-sum appropriations should be repealed. (A ct approved Aug. 23,
1912; 37 Stat., 413.) The entrance salary to clerical positions should be Rxed
at not less than $900 per annum, and salaries should be adjusted so as to pro
vide for advance at the rate of $60 per annum instead of $200, as is now the
case with nearly all statutory salaries.
For Me United States Geo%opica% Sivr^eg/;
The present standard of salaries paid to the clerical employees was adopted
immediately after the Civil W ar. In general, it should be increased about 20
per cent, for three reasons: The cost of living has increased at least 50 per
cent since that tim e; the ultimate possibilities in the way of salaries for Gov
ernment employees are distinctly limited, as stated under " i " ; and, last but
not least, it is increasingly difRcult to get and hold in the Government service
the kind of efRcient, ambitious employees which is most desirable. An in
crease in salary rates should, however, not be made regardless of conditions
outside the Government service. It is commonly stated that as a general rule,
when compared with commercial salaries and wages, the Government employee
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
297
in the lowest grades is not underpaid, but in the higher positions his salary is
far below that paid for similar work outside. As pertinent in this connection
I may cite the results of an investigation made by me two years ago, when I
ascertained that 20 odd geologists leaving the public service in the three pre
ceding years had, on the average, received an advance of 184 per cent when
entering the employ of corporations. I f subsequent resignations of similar
character were considered this percentage of increase would be even higher.
DEPARTMENT OF AGRICULTURE.
The salaries of the chiefs of bureaus of the department should be increased
and recommendations with that end in view have therefore been made in the
estimates of appropriations for 1914, attention at the same time being called
to the fact that the present compensation of the scientiRc staff of the depart
ment generally is inadequate. In comparison with employees in similar capac
ities in commercial lines, the higher grade ofRcials of the department are
underpaid, when relative responsibility and value of services rendered are con
sidered. A comparative small force of competent, well-paid heads of diiferent
lines of work can handle and effectively manage a very large force of sub
ordinates at fair to moderate salaries. Between these two extremes there need
be only a small number of employees at salaries above those paid to general
routine class, and those would be men in training for the higher positions.
Provision should be made for a scale of salaries providing more adequate com
pensation than at present allowed.
Under the provisions of thirty-sixth Statute at Large, 440, the maximum
salary that may be allowed scientiRc and technical men is $4,000. It is thought
that this should be increased to $5,000, and legislation is recommended accord
ingly.
Attention is called to the effect of section 7 of the general deRciency act,
approved August 26, 1912, concerning the rate of compensation of employees.
This section provides in p a r t: " No part of any money contained herein or here
after appropriated in lump sum shall be available for payment of personal
services at a rate of compensation in excess of that paid for the same or similar
services during the Rscal year 1912 * * * ." This provision will prevent the
promotion of any lump-fund employee to a salary in excess of that which he
was receiving during the Rscal year 1912, in case the character of his services
has not been changed, although the amount of responsibility and work, owing
to the rapid growth of his oRice, may have very materially increased. W ith
the enormous increase in the volume of business handled in rapidly growing
branches of the Government service, which sometimes amounts to 100 per cent
in a single year, such a provision would be of a decidedly destructive nature,
since the salaries now paid to the best employees on the lump-fund rolls are
barely suRicient to hold them. A strict interpretation of the second clause of
this same section: " Nor shall any person employed at a speciRc salary be here
after transferred or hereafter paid from a lump-sum appropriation a rate of
compensation greater than such speciRc salary, * * * " would prevent any
person employed at a speciRc salary, i. e., on the statutory roll, from ever re
ceiving on the lump-sum roll a salary greater than that which he received on
the statutory roll, even though he might resign and be appointed again on civil service examination. This would be true regardless of the fact that he might
have qualiRed for service of a different and higher grade. This provision, if it
remains unmodiRed, will prevent ambitious and deserving employees who enter
the service on the statutory roll from ever becoming investigator on our lump
sum rolls, and would cut off a very important avenue through which eRicient
and capable employees familiar with the service can now be obtained.
298
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
During the past year the department has lost many of its trained men
through their having accepted positions with private corporations or other
Governments at salaries higher than those which could be paid under the
existing provisions of the law. It is extremely desirable that the salaries paid
trained employees be advanced as rapidly as possible to a point which will offer
adequate reimbursement and retain them in the Government service.
DEPARTMENT OF COMMERCE AND LABOR.
A general readjustment of salaries in the Government service should be
made. W hile such readjustment may result in the reduction of speciBc salaries
here and there, substantial advances generally are indicated by a consensus
o f the opinions of those familiar with this problem.
L . CHANGES IN L A W THOUGHT TO BE DESIRABLE RELATING TO RETIREMENT.
DEPARTMENT OF STATE.
W h ile the department is in favor of some sort of retirement scheme, the lack
o f time allowed for the preparation of this report and the lack of technical
knowledge necessary makes impossible the suggestion of a scheme of retirement.
DEPARTMENT OF JUSTICE.
Q.
No suggestion of change.
+
j?o%.
I am decidedly in favor of a retirement law applicable
to all oiBcers and employees of the department who are within the classiBed
service.
In regard to the members of the legal force particularly I am disposed to
think that stated portions of their salaries (if made suiBcient) should be re
tained and accumulated as interest to assist them whenever they decide to leave
the service to embark in the practice of law.
# 0%. J. C. AdMws.' There are in the department a large number of old people
who would gladly retire if they could receive some pay, but must otherwise hold
on as long as possible. A head of a department Bnds that a discharge of such
a clerk produces heart-rending appeals for reinstatement, with the result that
most Secretaries will keep the old clerks as long as it is possible for them to
do any work at all.
A retirement plan is the only humane remedy for this. I thoroughly believe
that it should be established, but am not familiar enough with the subject to
suggest the particular plan which ought to be followed.
W . T. De?Mso%.* I think a system of retirement pension is of the deepest
importance, as, practically speaking, it is impossible to throw out employees of
^ n g and formerly valuable service.
#o%. W . T. T&owpsoit; Old ineiRcient employees should be retired with
partial pay or placed in minor positions, or have their work and pay divided
with an additional employee.
#ow. Charles FarL* Provide for the retirement of superannuated employees
and employees disabled after long service on part pay, whether in connection
with a plan of contributions from employees or not.
J. J. (Never; It is understood that large concerns provide for the retire
ment of faithful and worthy employees, and I see no reason why the Govern
ment should not do so.
My. A. BfMce
The question of retirement is one which is not at the
present of particular concern to this division, on account of its comparatively
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
299
short existence, its employees being all capable of rendering full service at
present, and apparently for many years to come. It seems that some law with
reference to retirement which is fair to the Government and to the employees
should be passed, however, as necessarily in years to come the same di8iculties
may confront this division which now confront many other branches of the
Government service.
N r. J. # . Nac%e%/; I am in favor of a retirement system modeled after that
adopted by the more important foreign countries and some of our large com
mercial and industrial concerns.
DEPARTMENT OF THE NAVY.
F o r Me United states Narine Corps— A d ^ ta n t and Inspector's Department;
It is thought desirable to have an appropriate law enacted to provide for the
retirement of civil-service clerks after rendering, say, 30 years' service or
attaining a certain age, those attaining such age with less than the required
service to receive proportionate retired pay.
For t^e United states Narine Corps— Quartermaster's Department;
I am heartily in favor and recommend that some provision should be speedily
made for the retirement of civil-service employees when they become superannu
ated in the public service, to which many of them devote the best years of their
lives and energy. An illustration showing the inconsistency of present condi
tions as they exist in this department is submitted, where a large part of the
clerical force, who are enlisted men, are on a retirement status, whereas no
such privilege is extended to the civilian force, who are employed side by side
with these enlisted men and who perform in many instances a higher grade of
work.
For t^e United states Narine Corps— Commandant's oj^ce;
It is believed that the eSiciency of the departmental service would be in
creased by the enactment of a law providing for the retirement of civil-service
employees, compensation after retirement to depend upon length of service and
rate of pay at retirement.
For t7^e Oj^ce o / t7te 8o%icitor;
It is believed that it would be a decided benefit, so far as this ofHce in par
ticular and the service in general are concerned, if retirement for superannua ted employees upon a sound business basis were provided.
For /7<f Pnrean o / jSteam Fn^ineerin^;
Provision should be made for the retirement of clerks who have served the
Government for a long period, and there should be a graded retirement for those
whose health has failed incident to the duties upon which they have been
engaged.
For t7ae i?%rean o / Navigation.
I f the Government is to continue paying the present inadequate salaries to
3ts employees, which are not suRicient for a man to provide for himself and a
reasonable sized family, the bureau believes a system of retirement absolutely
imperative. The bureau is of the opinion, however, that should the service he
reclassiRed and the living salaries paid employees there would not be such a
demand for a civil retired list. It is hard to understand how some of the em
ployees can manage to live on the present salaries paid, which, as previously
stated, are lower than they were in 1884, when the cost of living has advanced
so much.
For tT^e BnreaM o / Navigation— United states Navat O&servatory.
W hile I am not prepared to advocate a general retirement law I think re
tirement should be provided in exceptional cases at least. For instance, we have
800
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
at this institution a clerk who has completed 64 years of continuous employ
ment in it. It seems to me that such faithful service should be rewarded with
retirement. .
For M e Hg/droprapMc Oj^ce.
Some system of retirement should be provided by law for civil employees.
For M e Bnrean o / Yards and Doc%s.
Provision for retirement for length of service, age, or disability incurred In
service should be made.
For Me Bureau o / Ordnance.
It is believed that the eRiciency of the civil service would be vastly in
creased if a regular plan of retirement were adopted, retirement to be a right
of the civil service employee after a certain number of years of service or upon
incurring physical disability not due to his own fault or upon attaining a cer
tain age to be Rxed by statute; retirement for the last-named cause should not
be optional, but should be obligatory.
For Me B%rean o / Construction and Repair.
The bureau has placed itself on record as favoring some form of civil service
retirement and considers that such a provision would encourage eRicient em
ployees to remain in the service of the Government. It is practically impossible
for a man with a family to save on the average salary paid suRicient to provide
for old age or the probability of incapacitation, especially is this so at tin
present time with the high cost of living and also in view of the fact that no
consequent raise in salary has been made in the salaries of the civilian em
ployees.
For Me i?Mrea% ojf SuppMes and Accounts;
Recommendation for the enactment of legislation leading to the establish
ment of some form of civil-service retirement was made in the Annual report
of the Secretary of the Navy for the Rscal year 1911. The bureau considers
that legislation of this character would be advantageous to the Government.
DEPARTMENT OF THE INTERIOR.
In the interest of economy and eRiciency some judicious plan of retirement,
either by way of straight pension, or otherwise, of superannuated employees
should be devised.
For Me Genera? Land 0.#2ce;
I repeat herein my recommendation made in my report for the year 1912,
which was as follow s:
"A fter a long experience in governmental matters comprising, amongst other
services, that of one year as Assistant Commissioner and four years as
Commissioner of the General Land ORice, I have come to the conclusion that
some system of pensioning should be adopted by the United States Government.
The importance of the work performed in Washington is increasing every year.
It has ceased to be merely clerical. The duties which Congress has placed
from time to time upon the executive department have become more and more
supervisory in their character. The element of trusteeship is recognized, and
trusteeship seems to be passing into guardianship. The general public natu
rally look to the executive head of an oRice and hold him responsible for the
proper performance of the duties that are imposed upon the bureau or depart
ment of which he is in charge. This attitude is reasonable. It is not to be
supposed that the general public can appreciate the fact that the great details
of the work of a bureau must be carried out by its employees, the head being
restricted to the general management and to a personal touch with the most
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
301
important cases, generally those which establish a precedent or possess some
features to which his attention must be called.
" W ith this increasing importance of the work and the seeming demand from
all parts of the country that it shall become wider in its scope, there is a
great necessity that the service be so organized as to attract men of the highest
Qualification. There is no question that the general entrance salary paid to
employees for the ordinary kind of clerical work is ample and compares favor
ably with that paid by private concerns to their new employees for work of
a similar character. As against this, however, there are not the same oppor
tunities in the Government service for the ultimately obtaining of large salaries
as in private employment. No one disputes the fact that these coveted positions
in private life are secured by only a few and that a large per cent of workers
do not rise above a mediocre salary, but those few are the very men whom the
Government ought to secure. Under present conditions they are not attracted
to Government service. This is not because the work is not big and does not
present endless opportunities for the best efforts of men of a high degree of con
structive ability. It is because after youth and middle age devoted to the
public service, there is nothing for a man to look forward to except old age
and hard work at probably a reduced salary or a prospect of being dropped
without any probability of securing another position.
" T h is is not the case in the A rm y; it is not the case in the Navy. Both
of these services attract young men of vigor and strong mental capacity, partly,
of course, on account of the glamor which surrounds the military and naval
service and the patriotic feeling that one's country may demand the highest
sacrifices— and this appeals to many strong natures— but also because of the
fact that the military and naval services provide a competent living for a man
during the vigor of his years and an adequate pension for him in his declining
days.
^
" No one who has followed the history of civil government during the last
decade can fail to appreciate the fact that there is as great a Held for the honest
service of the level-headed, sober-minded man of character in the civil branches
of the Government as there is in the military. The fact that there is but small
opportunity for the ordinary governmental employee to receive the award of
popular applause should not detract from the value of the services which he
performs but rather enhance them, as he is deprived from the very nature of
his work of one reward which so many men covet.
" By the adoption of a pension system there is no doubt but that the very highest
type of men would be attracted to service in the Government, and the general
standard raised above even that of to-day."
For Me 0%%ce o/
A#%%rs.*
Any time and labor devoted to research and statistics for consideration in
connection with retirement and pension plans would at this time seem super
fluous in view of the information gathered heretofore by the various bureaus.
These reports have been presented to Congress by the heads of bureaus, and the
question has been favorably recommended by them as well as by the President.
Various bills have been introduced in Congress and the whole subject has had
consideration. The Indian Bureau believes that if a satisfactory law can be
secured which would eliminate from the Government service persons incapaci
tated by age or other infirmities the work of the departments would be con
siderably enhanced.
For Me IViMted states Pa%e%% Oj^ce.'
I believe that some suitable plan for the retirement of superannuated em
ployees would be a benefit to the service.
302
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
For M e BMreaM o / Education;
Provision should be made for the retirement from ofBce of persons not able
to perform their duties efBciently. This implies a retirement fund.
For Me United States 6reo%ogf%ca% S%ri7e%/;
I have repeatedly expressed myself in memoranda to the department and to
congressional committees as unqualiRedly in favor of provision for retirement
as a means of bringing up the efBciency of the Government employee. Although
the Geological Survey is younger- than many other bureaus, with the result that
the average age is 35, it is a fact that there are members of the survey who,
on account of long and faithful service, deserve consideration, and in some cases
the positions they occupy could be better Blled by younger and lower-salaried
clerks.
For the B^reaM o / H ines;
A retirement law is recommended, based on length of service only and as a
direct pension by the Government, such retirement to take place at any time
after 25 years and before 30 years.
DEPARTMENT OF AGRICULTURE.
Provision should be made for the retirement of all civil-service employees
upon reaching a certain age, and it is therefore recommended that a retirement
law be enacted along the lines of the so-called contributory plan, Congress to
appropriate suBicient sums from year to year to provide pensions for employees
now eligible for retirement until the amount of contributions shall be suiBcient
to take care of such pensions. It is my opinion that this would work for
economy and efficiency in two w a y s: First, it would tend to keep in the service
the more efficient employees who now leave for more remunerative employment
after they have acquired valuable experience in the Government service.
Second, it would provide a humane way for disposing of those Government
employees who, through disabilities of age, are no longer able to perform as
efBcient work as younger employees, who could be secured for the salaries
they are receiving.
DEPARTMENT OF COMMERCE AND LABOR.
An equitable scheme of retirement which will rid the service of superannu
ated employees and at the same time provide reasonable means of support to
those grown old in the civil service should be devised.
M . CHANGES IN L A W THOUGHT TO BE DESIRABLE RELATING TO THE GRANTING OF
ANN UAL AND SlC K LEAVE.
DEPARTMENT OF STATE.
For the Department o / State; None.
DEPARTMENT OF JUSTICE.
Row. John Q. Thompson; No suggestion of change.
Ron. Freest Rl^ae&eZ; The head of a department should be authorized to
allow sick leave for six months, with pay, in cases of unusual merit.
How. W . T. Denison; I have no improvement to suggest.
Row. W . T. Thompson; The granting of annual and sick leave should not be
changed, unless in exceptionally meritorious cases sick leave might be extended.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
303
Hon. (7%ar%es L7ar%; None.
Capt. J. J. G%over; This seems to be the well-established policy of the United
States, and I see no reason why it should be changed.
Mr. A. Br%ce J?ie?as&i.* I suggest that the law with reference to leave should
be extended so that all employees in the departmental and Reid service of the
Government may be granted 30 days' annual leave in each calendar year and
sick leave at the rate of 12 days per calendar year, but which may be allowed
to accumulate to not exceed 36 days, with a proviso that any employee who has
less than 36 days' sick leave to his credit, and who is absent because o f
sickness a total number of days greater than his available annual and sick
leave, may be paid for such number of excess days not bringing his total sick
leave to more than 36 days in any one year, as he may not use in subsequent
years. In other words, that sick leave may be advanced in effect, although
payment is withheld until the leave has duly accumulated.
Mr. J. H. Mac&ag/; In my opinion sick leave should only be allowed after
annual leave has been exhausted.
POST OFFICE DEPARTMENT.
Ann%a? %eave /o r emp%o%/ees.— To grant 30 days' leave of absence to all postal
employees who render services equivalent to that of the departmental employees
at Washington:
"T h a t hereafter the Postmaster General may allow not exceeding 30 days^
leave of absence with pay in each calendar year, under such conditions as he
shall prescribe, tb assistant postmasters? supervisory oRicers, clerks, city letter
carriers, printers, mechanics, skilled laborers, watchmen, messengers, and
laborers, at Rrst and second class post ofRces.
" That the Postmaster General may allow railway postal clerks whose duties
require them to work 6 days or more a week throughout the year, and the em
ployees of the mail-lock and mail bag repair shops, an annual vacation of 30
days with pay."
Leave,
in
Mai? Service.—-To enable the Postmaster
General in his discretion to grant suitable leave of absence to railway postal
clerks who are not entitled to leave under the present la w :
"T h a t hereafter the Postmaster General may in his discretion, under such
regulations as he may provide, allow any railway postal clerk who is not en
titled to annual leave under other provisions of law, leave of absence with pay
for a period not exceeding 30 days, or in cases of sickness 30 days' additional
in any one year, with the understanding that his duties will be performed
without expense to the Government during the period for which leave is
granted, he to provide a substitute at his own expense."
For Me Second Assistant Postmaster (2enera%;
Rai%i#a2/ Mai? Service— Leave o / absence.— At present 15 days' leave o f
absence is allowed in the Railway Mail Service. The following provision,
allowing 30 days' leave of absence, has been recommended:
"Provided, That hereafter the Postmaster General may allow railway postal
clerks whose duties require them to work 6 days or more a week throughout
the year an annual vacation of 30 days with pay."
A t present there is no provision for leave of absence with pay on account
of sickness. The following has been recommended:
"Provided, That hereafter the Postmaster General may, in his discretion,
under such regulations as he may prescribe, allow a railway postal clerk who
is sick leave of absence with pay not exceeding 30 days in any Rscal year."
304
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
A t present if a clerk desires to be absent .on a personal matter beyond his
annual leave, there is no way by which he can provide a substitute to perform
his duties without expense to the Government. In order to permit this, the
following has been recommended:
"Provided, That hereafter the Postmaster General may, in his discretion,
under such regulations as he may prescribe, allow any railway postal clerk,
who is not entitled to annual leave under other provisions of law, leave of
absence with pay for a period not exceeding 30 days in any one year, his
duties to be performed without expense to the Government during the period
for which he is granted leave, he to provide a substitute at his own expense.
DEPARTMENT OF THE NAVY.
For M e B^reait o? Navigation;
The granting of annual and sick leave is very satisfactorily handled in this
department.
The idea is that an employee shall only be granted a total of 30 days' leave
in one year. Even though an employee is ill, his leave is charged to annual
leave until the total of 30 days is exhausted.* When any additional leave,
either sick or annual, is requested, the individual record of the employee is
considered, and the leave only granted in special meritorious cases. Certain
employees of the bureau will probably perform 30 days' extra work .during one
year, and it would not be encouraging to such fidelity if the department refused
to grant a few days of sick leave in a case of this kind.
For Me Bnrea% o / Ordnance;
The existing laws and regulations are satisfactory, but it is believed that
they are interpreted and applied with some difference in detail in several de
partments. These differences should be reconciled, as they tend to create dis
satisfaction among those employees in the less-favored oRices.
Provision
should be made for a larger clerical force, in order that when certain employees
are on leave those remaining on duty should not be required to work overtime
in order to keep the work up to date. Since each employee is entitled to onetwelfth of a year annual leave, he does only eleven-twelfths of a year's work,
and the force should therefore be one-twelfth larger than would be required to do
the work of the oRice if all employees were constantly on duty.
This makes no
provision for absence on account of sickness, which is not deRnite in amount,
but could, if desired, be provided for on an average basis.
For Me B^rean o / Construction and Repair;
The present method, which gives the head of a department discretion in the
granting of leave, is considered suRicient.
DEPARTMENT OF THE INTERIOR.
For Me oj^ce o / Superintendent United States Capitot BMi%diny and Grounds;
Present method of granting annual and sick leave seems to be satisfactory.
Have no suggestions to make, other than that persons outside the classiRed
service in the employ of this oRice, and whose services have been of long stand
ing, should, under some provision of law, be granted some annual and sick leave.
For Me General Land 0 # c e ;
The annual leave should be restricted, when taken in periods of a week or
more, to the number of consecutive days up to 30. A t present, Congress having
granted 30 days' leave of absence, an employee who takes his so-called 30 days
during the month of July, for instance, is entitled to exclude from his count
the Fourth of July, all Sundays, and half days on Saturdays; therefore,
APPENDIX 3-— RECOMMENDATIONS FOR CHANGES IN LAW.
305
leaving on July 1, it is not necessary for him to return until August 8. In my
opinion 30 consecutive days are sufficient for the recuperation of the employee
and gives him sufficient rest to restore him to full vigor. Sundays and holidays
are included in the taking of sick leave, except when they occur at the begin
ning or end of such leave. A large number of the employees of this bureau do
not take anywhere near the amount of leave granted under the law.
For Me Oj^ee o /
A d airs;
Under existing laws the heads of Government bureaus are authorized to
grant to employees annual leave at the rate of 30 days per annum. Sick leave
not exceeding 80 days in any one year may also be granted. The Indian
Bureau recommends that in addition to the leave now authorized by existing
law, leave may be granted when an employee may be injured while in the per
formance of his official duties so as to be incapacitated for the performance of
those duties, this leave to continue during the period for which he is incapaci
tated and not to exceed 12 months, and during this time he shall be allowed com
pensation at his usual rate of pay.
For Me
/S%#%eg P%%e%% Oj^ee;
The only change which I can recommend in the rules relating to the granting
of annual and sick leave is that sick leave should be extended at the discretion of
the Secretary, and after careful investigation, in four classes of cases, as fol
low s: In typhoid fever, surgical cases, accidents, and where an employee is
quarantined on account of contagious disease.
For Me B%re%% o / H w e s;
A provision which would permit annual leave to accumulate for a period of
three years is recommended as in the interest of efficient service.
The provision granting 30 days' sick leave appears to be just, and no modifi
cation is recommended.
DEPARTMENT OF AGRICULTURE.
Under existing laws employees of the Department of Agriculture in W ash
ington, D. C., are allowed 30 days' annual leave and 30 days' sick leave, while
employees in the field are allowed but 15 days' annual leave and 15 days' sick
leave. It is recommended that employees outside of Washington be granted
the same annual and sick leave as that allowed to employees in Washington.
It is also believed to be in the interest of the Government service as well as
the Government employees to limit sick leave to 10 days per annum and make
it cumulative; that is, all sick leave not taken in any one year to accrue to
the credit of the employee during succeeding years. This would prevent the
using of sick leave in cases of slight indisposition, which the 30 days' annual
leave could take care of, and at the same time would enable employees of aver
age health to accumulate enough sick leave to tide them over any serious ill
ness which might occur. It not infrequently happens that an employee who has
taken no sick leave for a period of eight or ten years contracts typhoid or some
other disease which requires him to be absent from duty for a period of six or
eight weeks. This case, under the present arrangement, he must take leave
without pay.
N. CHANGES IN L A W TH OU GH T TO BE DESIRABLE RELATING TO OTHER SUBJECTS
RELATING TO PERSONNEL AND W ORKIN G CONDITIONS.
DEPARTMENT OF STATE.
For Me Dep%r%?neM% o /
H. Doc. 1435, 62-3------ 20
None.
306
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
DEPARTMENT OF JUSTICE.
JoTna Q. T^ompsow; No suggestion of change.
How. Fewest j8L%%e&e%.* Provision should be made for housing the Department
o f Justice in some Rreproof modern oiRce building until its own building is
ready for occupancy.
#o% . J. C. AdMws; I think this department might emulate the work of the
State Department in training its consular ofRcers, by Rrst undertaking to em
ploy in the department a limited number of graduates of law, at small salaries,
with a promise of promotion to attorneyships in the department or to places in
the district attorneys' oRices.
The large law oiRces get the honor men from the law schools for a few hun
dred dollars a year. A half dozen such men would be of great value in the
department. They might be paid, say, $600 a year to start with, but should,
be, of course, given substantial promotions at the end of the year, and at the
end of two years be promoted to attorney in the department or be given a less
lucrative position as an assistant district attorney somewhere in the Reid.
Young men of this character would render very valuable service in the depart
ment, as well as in the district attorneys' oRices. It seems to me that it would
also be wise to authorize in the larger district attorneys' ofRces throughout
the country a similar employment at, say, $600 a year, and the hope should be
held out to them also of appointment to attorneyships in the department.
How. W . T. Dewtsow; The clerical force of the department should be a single
force and should not be subdivided by special appropriations, as, for instance,
the Division of Accounts, Solicitor of the Treasury's oRice, Solicitor of Com
merce and Labor, etc. The existing arrangement is diiRcult of administration
fom the point of view of promotion and, practically, does not work fairly.
How. W. T. T7M??wpsow; No suggestions to offer.
How.
None.
Jir. O. J. FieM.* (1) It would be advantageous to have a small fund of, say,
$2,000 a year for emergency stenographic and other clerical services, so that
when a number of the Reid attorneys are at the department or there is a rush
o f work a suRicient number of emergency stenographers could be handling the
work without delay.
(2 ) It would greatly improve the service if provision should be made for an
automobile mail wagon. It is necessary to make frequently several trips each
day to the Government Printing OfRce, the Supreme Court, the Congressional
Library, post ofRce, etc., and this work could be handled much more quickly
with a small automobile wagon than with the present arrangement of a horse
and wagon.
(3) I would suggest that pending the construction of the department's pro
posed new building, authority be obtained from Congress to enter into an agree
ment with some builder or contractor to erect a temporary oRice building for
the department for a term of, say, Rve or more years. There would be no
trouble in obtaining such building should an arrangement be authorized by
Congress.
(4 ) United States attorneys and marshals should be authorized to incur small
expenses from time to time without obtaining previous authority from the
department, so as to prevent instauces like one which recently occurred, where
a United States attorney wired for authority to incur an expense of $1, the
telegram costing 80 cents.
(7%p%. J. J. Glover; Section 3648, Revised Statutes, United States, should be
so' amended as to enable United States marshals to make temporary advances
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
307
to witnesses, in behalf of the Government, who are without funds necessary to
enable them to respond to subpoenas.
Air. A. Br^ce Bie%asM.' No suggestions as to other legislation occur to me.
POST OFFICE DEPARTMENT.
Con<!pensat^on to tnynred emp?o%/ees.— To extend to all postal employees injured
in the line of duty the same privileges and compensation now provided by law
to railway postal clerks:
Any employee of the postal service who is disabled by accidental injury, not
due to his own negligence, received while performing his official duties, may be
granted leave of absence with full pay during the period of his disability, but
not for more than one year, and then at half pay for the further period of disa
bility, if any, but not exceeding one year additional; and if he dies within a
year as a result of the injury, leaving a widow, or children under 16 years of
age, or dependent parents, such widow, children, and dependent parents shall
be entitled to receive, in such portions as the Postmaster General may decide,
the sum of $2,000.
DEPARTMENT OF THE NAVY.
For Me United states Afarwe Corps—Quartermaster's Department;
Attention is invited to the recommendations of this ofRce relative to an addi
tional clerk at $1,600 per annum in the ofRce of the officer in charge of the
Quartermaster's Department; the promotion of the draftsman in that office
from $1,600 to $1,800 per annum ; the promotion of the clerk at the depot of sup
plies, United States Marine Corps, Philadelphia, Pa., from $1,600 to $1,800 per
annum, and ^o be designated " chief clerk; " the promotion of the clerk at the
depot o f supplies, United States Marine Corps, San Francisco, Cal., from $1,400
to $1,800 per annum ; also for two (2) additional clerks " where their services are
required; " all clerks (5) under this class to receive the same pay, allowances,
etc., now provided by law for paymaster's clerks of the Navy on shore duty. In
addition to the above, one additional clerk at $1,800 per annum in the office of
the officer in charge of the Quartermaster's Department, and two additional
clerks at $1,400 each per annum, one each in the offices of the depot quartermas
ters, United States Marine Corps, Philadelphia, Pa., and San Francisco, Cal., are
required.
For Me %7n%te<% states Afarme Corps— Commandant's O^ee.*
(a ) Hereafter, when a vacancy should occur in the office of Major General
Commandant of the Marine Corps, the President shall appoint to such vacancy,
by and with the advice and consent of the Senate, an officer of the line of the
Marine Corps on the active list not below the rank of colonel, who shall hold
office as such major general commandant for a period of four years.
(b) That the Adjutant and Inspector's Department be amalgamated with
the line of the Marine Corps, and that the duties now performed by ofRcers of
that department be performed by oRicers of the line detailed for a period of
four years.
(e) That two oRicers of the line, not below the rank of lieutenant colonel,
be detailed as assistants to the major general commandant, who, in the event
of the death, resignation, retirement, completion of term and pending appoint
ment, absence, or sickness of the major general commandant, shall, in order
of rank, unless otherwise directed by the President, as provided by section
1879 of the Revised Statutes, perform the duties of such major general com
308
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
mandant until his successor is appointed or until his absence or sickness shall
cease.
(d) That the offices of chief inspector, chief quartermaster, and chief pay
master be created, and that the President shall appoint to such vacancies, by
and with the advice and consent of the Senate, an ofRcer of the adjutant and
inspector's, the quartermaster's, and the paymaster's departments, respectively,
hot below the rank of major, who shall serve as such for a period of four years,
and who shall, while so serving, have the rank, pay, and allowances of a
colonel.
(e) That the existing law of March 7, 1912, which provides that midshipmen
upon graduation from the Naval Academy shall be commissioned ensigns, be
modified so as to permit of their appointment to the rank of second lieutenant
in the Marine Corps upon graduation.
( / ) That hereafter appointments to the Marine Corps, except the appoint
ments thereto of graduate midshipmen, shall be made only after such pros
pective appointees shall have served a probationary period of two years, as
nearly as may be practicable, as acting second lieutenant, and that candi
dates for appointment to such grade from civil life shall be between the ages
of 19 and 23 years at the time of such appointment, which shall be made by
and revocable at the will of the Secretary of the Navy, and shall otherwise be
limited by existing law for appointments to the Marine Corps; and the rank,
pay, and allowances of acting second lieutenants shall be the same as for
second lieutenants; and said acting second lieutenants shall be subject to the
laws governing pensions, gratuities, and other benefits in the Marine Corps,
but shall not be entitled to retirement or retirement pay. Said probationary
period shall end two years from July 1 of the calendar year of original entry.
That upon the completion of the probationary service as describe^ herein act
ing second lieutenants shall, if qualified, be commissioned second lieutenants
in the order of merit as determined by their probationary service, and under
such rules as the Secretary of the Navy shall prescribe; and such commissions
shall date from July 1 of the calendar year of appointment as acting second
lieutenant, but shall not carry any claim for back pay. Ofiicers not so commis
sioned shall be honorably discharged from the service: Provided, That no candi
date from civil life who has been dismissed from the Naval or Military
Academy, or who has resigned to prevent dismissal, shall be appointed a second
lieutenant prior to the commissioning of the class to which he belonged.
(p) That a system of retirement by selection be adopted, with a rate of pay
to be based on rank and length of service.
(7&) The numbers of ofiicers and men now authorized by law for the Marine
Corps is not sufficient to carry on the duties properly without imposing great
hardship, and it is recommended that the corps be increased during the Rscal
year ending June 30, 1918, by 49 ofiicers and 800 men.
(i) That the law providing for payment of ofiicers and men be amended so
that ofRcer s and men of the Marine Corps while serving at sea may receive 10
per cent increase on their base pay.
For Me i?i/feaw o / Navigation.'
The only other subject of interest which the bureau recalls is the working
condition of the bureau. The floor space and the number of office rooms as
signed this bureau are entirely inadequate and the conditions under which
employees work do not tend to efficiency.
Certain rooms are badly over
crowded, and other employees are required to work in rooms that were only
intended for storerooms, and during the winter months their health has been
affected as the result of conditions in these rooms.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
309
For Me .Hydrographic Oj^ce;
The law limiting the number of naval oRicers employed in the Hydrographic
ORice should be repealed. The number of oRicers employed in this oRice should
be left to the discretion of the Secretary of the Navy.
For Me Bnrean o / yards and Doo&s;
Provision should be made for periodical inspections of sanitary and hygienic
conditions and discretion vested in the heads of departments to carry out
needed changes, including the rental of additional rooms or buildings to provide
suRicient air space and proper working conditions for each employee.
For Me i?%rean o / Construction and Repair;
Additional rooms should be provided to more expeditiously carry out the
bureau's work, some rooms being overcrowded to such an extent as to affect the
health of the employees.
For the Bi^rea?/ ojf Steam Engineering;
Under the present arrangement the bureau is allowed laborers for janitor
and messenger service. It is believed the sanitary conditions of the oRices
would be greatly improved, the rooms kept cleaner and brighter at all times,
if such work was performed by charwomen. This would remove the prime
necessity of laborers; the messenger service can better be performed by mes
senger boys, who could be secured at a low rate of pay, which together with the
pa)y of the charwomen would not exceed the present pay of the laborers.
For the Bnrean o / SnppMes and Accounts;
Better working quarters and additional space should be provided. Condi
tions in the bureau, particularly in the accounting section, have become almost
intolerable. A s a means of relief, the bureau urges favorable action upon the
estimates of appropriations submitted to cover the cost of the transfer of the
Hydrographic ORice to the Naval Observatory, as the transfer will make avail
able s^Ricient space to relieve the present congested conditions.
DEPARTMENT OF THE INTERIOR.
For the (Venera? Land Oj^ce;
Under this subhead I refer you to recommendations made by me in regard
to the conditions in this oiRce in the matter of Rles and keeping of records.
The necessity for a hall of records must be recognized. There is no room in
the building now occupied by the General Land ORice for the proper care of
the hundreds of thousands of valuable records which now exist. On the dis
continuance of the last land oRice within a State, the records therein are sent
to the General Land ORice, and are presumed to be Rled in such manner that
they can be of ready access to the general public. Owing to the conRned quar
ters occupied by this oRice these records are not in a proper condition, and any
person who desires to consult them has the greatest diRiculty in Rnding any
specific paper which he desires to see. In addition to this the quarters in which
they are kept are not suitable for the proper preservation of the papers. The
old papers are not Rat Rled, and because of their age and the fact that they
are kept in places which are too dry they become as tinder, and when unfolded
they readily break, become illegible, and drop to pieces.
In the Land ORice are original papers relating to the muniments of title, or
copies of such, to hundreds of millions of acres, and in many instances law
suits involving tracts of land of great value have hinged upon the records of
Ibis olHce. It is a paramount necessity for the proper preservation of these
papers, and for the proper consideration of the interests of those who possess
lands the title of which has been derived from the United States, and a build-
310
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
mg should be erected for the purpose of assembling
and papers at present stored in the General Land
crease in the number of records to be filed it will in
physical impossibility to find space in the building
and keeping the old books
Office A t the present in
a short space of time be a
to store the papers.
DEPARTMENT OF AGRICULTURE.
It is recommended that the civil-service rules be amended so as to restore
to the apportioned service the position of messenger boy, with the salaries
ranging from $360 to $720 per annum. Increasing the maximum salary o f the
grade to $720 would, I think, overcome the principal objection to the inclusion
of the position in the apportioned service, and such inclusion would permit
promotion, upon examination, to the higher grades of minor clerk and clerk.
Experience in the present conditions shows that it is difficult to maintain a
eompetent force of messenger boys for any considerable length of time.
Comfortable and sanitary quarters should be provided for employees. This
is often not the case at present. So far as possible employees engaged upon
similar work should be, and usually are, grouped together, by reason of which
fact the subject of ventilation becomes the most troublesome one in official life.
A ll rooms should be so constructed as to admit of proper ventilation from
the top.
TREASURY DEPARTMENT.
For Me D%i?%s%on o/ Boo/c^eepm# and Warrant.*
Improved sanitary conditions to be enforced and maintained.
For Me O ^ce o / Genera? Superintendent.'
Provision made for medical examinations free of charge for members of lifesaving crews upon reenlistment.
ANSWERS TO QUESTION IV.
A. CHANGES IN LAW THOUGHT ^O BE DESIRABLE RELATING TO THE
CENTRAL PURCHASE OF SUPPLIES.
DEPARTMENT OF ST^TE.
Under proper legislation, and the work to be done by a representative body,
ghis would appear to be desirable from the point of convenience and economy.
TREASURY DEPARTMENT.
For Me o^ce o / Me d%3&%rs%n%7 c%er&;
I suggest the establishment of a general purchasing office fot the Gov
ernment, either as a bureau of some department or as an independent office,
The head of this ofRce should be required to make all purchases of supplies and
material for the departments and Government establishments in the District of
Columbia and for the Reid service in cases where the purchases are now made
by the several departments and articles either shipped from the department or
shipped direct to the Reid by the contractor. The purchasing ofRcer should be
provided with a storehouse and there should be a permanent appropriation of
a sum sufRcient to enable him to carry a working stock of material and supplies
and to make prompt payments to contractors while awaiting reimbursement
from the departments. Departments and separate ofRces would make requisi
tion on the purchasing ofRcer for all material and supplies. I f the purchasing
ofRcer did not have the article in stock he would purchase it. The purchasing
ofRcer would render accounts to the several departments and ofRces at stated
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
811
intervals and the auditors would-m ake settlements, charging the department
appropriations and crediting the purchasing oncer's working appropriation.
The purchasing ofRcer would be authorized to sell any article carried in stock
which was found to be useless and to credit the amount to his appropriation.
All sales of old material might well be conducted by the same ofRcer.
For M e
o / Fnyravm^ aw? Pr%%%#%r;
The present law requires the purchase of all material in use by two or more
branches of the Government, through contracts made by the General Supply
Committee, and so far as this bureau is concerned it has proven to be fairly
satisfactory, although some articles are included in the said contracts that are
specialties used only by this bureau. O f some articles this bureau uses nearly
the entire quantity contracted for and orders in large quantities whereas other
ofHces order in very small quantities, consequently the contracts if made by this
bureau for such articles would undoubtedly be at a lower rate and result in a
net saving to the Government.
There would be no objection to the central purchase of supplies provided that
dry colors, oils, textiles, and other materials peculiar to the manufacture of the
products of this bureau be submitted to the experts of this establishment for
analysis and test and that the accepted samples of the bidders or the standards
as established by the bureau experts shall govern in the purchase of supplies.
It would, however, appear advantageous to have contracts made separately for
special artciles used in quantity by this bureau.
For Me oj^ce o / Me Director ojf Me
The scheme for the central purchase of supplies undoubtedly has large pos
sibilities, but it must be put in the hands of a more important organization
and a direct provision for its maintenance should be made on a liberal scale.
For Me Oj#%ee o / Me SMpervMngr ArcM%ee%;
The experience of this ofRce indicates that better prices and more suitable
articles are obtainable for the Reid service through the ordinary method of
purchase than have been secured by the general supply committee. In the
maintaining of public buildings it is necessary to authorize purchases in advance
o f the Rscal year for which the articles or supplies are required, in order that
they may be on hand at the proper time. It has happened that the contracts of
the general supply committee have not been made until long after the commence
ment of the Rscal year. A s an instance of the kind it may be mentioned that
the contract for Rags has just been entered into, and more than one-third of
the Rscal year 1913 has now elapsed. Again, there is a distinct saving in both
clerical labor and expense in having delivery made direct to public buildings
instead of from the storerooms or departments in Washington. I f the expe
rience of other branches of the public service having Reid forces is similar to
that of the Supervising Architect's OfRce, it is believed that all reference to
supplies and service for the Reid force of the departments should be eliminated
from the law under which the general supply committee operates. The act
should also permit all ofHces or bureaus having control of appropriations to
order from the contracts of the general supply committee without regard to
whether or not they have a Reid service.
For Me oj^ee o? M e #%rpeo% (^ewera?, Bweaw o / PM&Mc J9ea%M;
The central purchase of supplies for the use of the quarantine service is
probably less economical and less convenient for quarantine administration than
to allow each officer to purchase in the local market the articles speciRcally
needed by him and which he is able to inspect just prior to purchase.
The central purchase of supplies for marine hospitals and relief stations,
other than medical and surgical supplies, is not considered best either for
312
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
economical or administrative reasons. It is thought that better prices and more
satisfactory supplies, as a rule, can be obtained in the open market.
For Me ofEce ojf Gewera? ;9i/peri%%ew(%e%%, UW%e(% 8%%%es Ltjfe-8%i%%p Service.*
It is not deemed economical or practicable for the Life-Saving Service.
For Me oj^ce ojf (7Me/ C7erR
^perm^e^de^^.*
The central purchase of supplies under proper conditions would be in the
interest of the service.
For M e
o/
^%^o%e?i/, Oj^ee o / Me J8ecre%%r%/.*
The creation of a central purchase of supplies is favored.
For Me oj^ee o / Me (7o?%p%ro%%er ojf Me (7^rrewei/;
I approve of the central purchase of supplies.
DEPARTMENT OF JUSTICE.
#oy*. JoTm Q. T^ompgo^.* No suggestion of change.
#o% . Freest .K%%e&e%; I have no knowledge of this subject.
#o% . J. C.
I am not familiar enough with the laws covering thi& mat
ter to make any suggestion of value.
JBo%. W . T. D e ^ o ^ r I have no improvement to suggest.
#o% . W . T. T^ompgo^; A general purchasing agent should be provided for,
who would purchase or contract for at least all the common supplies needed
by the Government, based upon estimates furnished him each year by the
different departments and establishments.
#o% . CMr%es F%r%; Remove the obscurities of the present law, and supple
ment it by such changes as the experience of supply officials acting under it
may indicate.
JMr. 0 . J. F%eM.* A t present the function of contracting for supplies is cen
tralized in the General Supply Committee. This might well be extended so as
to have not only a central purchasing agency, but a central storehouse in W ash
ington from which the departments could draw their supplies. The present
practice is frequently ludicrous, as is shown by the following instances:
January 27, 1912, purchased from National Leather Belting Co., yew Yor&
C%%/, 38 feet of 2-inch leather belting at cost of $8.66.
In order to lace this belting there was purchased on same day from Hudson
Belting Co., of Worcester, iMass., 100 feet of ^-inch belt lacing, at cost of 48
cents.
In October, 1912, there was purchased from Glauber & Co., New Yor%
20
water-gauge washers at total cost of 9 cents.
#o% . A. 7?r%ce
The supplies purchased for this division are compara
tively small in amount, and are largely purchased through the Supply Division
of the department, and should, in my judgment, be purchased through some
central office. In my judgment, however, no legislation should be enacted which
would prevent the field employees of the department from personally purchasing
small articles of equipment and supplies, as the annoyance and delays inci
dent to obtaining them in all instances from a central supply far outweigh any
difference in price which the central purchasing plan may secure.
POST OFFICE DEPARTMENT.
For M e (?eMer%% #%pp%%/ <7oMM?M%%ee;
I have the honor to recommend that the President urge the passage of a law
covering the duties of the General Supply Committee, so as to clearly define its
functions, particularly as to its jurisdiction over such Reid service as the posta!
service.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
313
DEPARTMENT OF THE NAVY.
For Me jHydroyrap&ic OF%ce;
No central purchase should be provided. The nature of the supplies required
in each department varies so greatly that a central purchase would be unde
sirable.
For Me Bnrean ojf Yards and Doc&s;
The central purchasing of supplies should be limited to nonperishable material
and articles of standard character or manufacture. In emergencies, and where
special conditions require particular speciRcations, discretion should be allowed
the head of each department to make purchases in the open market.
For Me Bnrean o / Ordnance;
Legal authority should be obtained for the department to carry on hand in a
central storeroom a stock of ordinary oiRce supplies, such as typewriter supplies,
pens, pencils, pins, stationery, and other material not subject to deterioration or
likely to become obsolete. It should not be obligatory on the bureaus and oRices
of the department to obtain only such supplies as are contained in the general
supply list or catalogue for the year. Unforeseen contingencies frequently arise,
making it necessary for the eRiciency of the department to purchase material
not listed by the supply committee. The purchase of supplies on the requisition
of the chief of a bureau or the head of an oRice without the approval of the
Secretary of the Navy should be possible within the limits of the allotment of
funds to that particular bureau or oiRce.
For Me Z?Mrean o / Construction and Repair;
The central purchase of supplies for navy yards, naval stations, etc., would be
less satisfactory than the present practice.
The present method of purchasing supplies for the bureau under " Contingent,"
under a central purchasing and supply oRice, is not considered satisfactory; and
it is considered that the old system, whereby the bureau could order direct
from the general schedule, or, if not included in the schedule, purchase after
competition, was better, resulting in prompter deliveries and in some cases more
economical prices.
For Me Bnrean o / RnppMes and Accounts;
No change is desired, and the bureau is emphatically opposed to any change
which would place the purchasing of supplies for the Navy under a central
purchasing oRicer not under the control of the Navy Department.
DEPARTMENT OF THE INTERIOR.
It is desirable that H. R. 25285 (known as the W illis bill) be enacted into
law. The Government has undoubtedly derived great beneRt from the work of
the General Supply Committee, which was provided for in the act of June 17,
1910, but this committee is only authorized, with the associated action of the
Secretary of the Treasury, to make contracts, and the law leaves the improve
ment in the method of furnishing supplies but half done. It should go further
and provide for a bureau of supplies, with authority to make contracts for all
supplies required by any or all of the executive departments; to purchase and
deliver such supplies; and to maintain a warehouse in Washington in which
standard supplies may be kept on hand. Provision should be made for a suiRcient number of employees to handle the work of the supply committee.
For Me oj^ce o / superintendent United states Capitot BniMinp and Cronnds;
I agree with the general principle for the central purchase of supplies for
the general conduct of departmental business if not hampered by such technical
surroundings as prevent an oRicer from taking care of special work by the imme
314
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
diate purchase of supplies in the open market. This question has been of seri
ous import to this oRice during the last two years, due to the fact that we are
placed in a peculiar situation and often must supply material and changes in rooms
npon immediate notice, and the procuring of material to do the work has been
hampered by details, distance of contractors from the scene of action, and other
similar causes. It would seem that the central purchase of supplies involved
also a great central storehouse where material, under contract, could be pro
vided on immediate demand.
For Me Freedmew's Hospital.'
A central purchase of supplies would be desirable if the peculiar needs of
each bureau were ascertained and a central storehouse suRiciently stored with
same at all times.
For Me Govertnwewt
/o r Me JwMme.'
Conditions should be changed, either by legislation or otherwise, to the end
o f greater eRiciency. The conditions as they maintain at present can best be
described by stating that it is several months from the beginning of the Rscal
year before the hospital is in possession of information as to who contracts
Tiave been let to and what material has been contracted for and the price of
same. It goes without further saying that a system that works no more eRiciently than this results in a perfectly hopeless state of aErairs in the purchas
ing end of the hospital business which continues throughout a large part of
the year. It would seem that the diRiculty is due to the fact that the central
purchasing committee has an amount and character of work which is far
heyond their capacity to accomplish eRiciently, and they should therefore either
he relieved by legislation which creates a suRicient organization to do the
work or they should be abolished and the practices that maintained before
resumed.
For Me Gewera? Lewd 0%%ce.*
This presents one of the most diiRcult propositions. A central system is in
theory correct, but in its administration it is not always easy to perfect. I f
adopted, it should be by the creation, under law, of a purchasing agency at
the head of which should be a high-salaried oRicer who will have time enough
to acquaint himself intimately with the demands of every department. The
present system is not perfect, especially in the supply of articles for the Reid
service. My attention has been personally called to cases where the freight
on articles purchased has cost more than the article itself. The creation of a
purchasing committee by the appointment of representatives of every depart
ment I do not think an ideal one. The subject of purchasing supplies is a big
one. The oRicers detailed from each department are not the heads of depart
ments or the heads of bureaus, whose work necessarily prevents them from
attending to these details, and, in consequence, it very often happens the com
mittee is not big enough in the sense of ability to grasp the subject. Under
the law there is no one oRicer of "a high salary who can devote all of his time
to the work. It is very often impractical and impossible to tie down every
bureau to the purchase of the same article for the performance of its particular
duties.
Until a purchasing agency be created by law, as above suggested, I should
favor (b) departmental contracting and purchasing, with an advisory central
committee composed of members of each departmental committee, who could
meet and compare notes as to prices, desirability of articles purchased, etc.
For Me 0#fce o / iwdmw A#%trs;
No changes in existing law are considered desirable for the reason that con
ditions in the Indian Service are such that a central purchasing agency for
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
815
supplies would be not only uneconomical but not productive of the best results.
There are expended by the Indian Service about $4,000,000 every year for sup
plies, the great bulk of which are articles largely peculiar to the service, and
the places to which they are to go are isolated and hard to reach. Under the
present system all these supplies are the result of an annual estimate made by
at least 200 different ofRcers in the Reid specifying the needs of their particular
agencies. So far as practicable the Indian Service standardizes the requests
and then, under a general advertisement, purchases by contract, deliverable
in the main at its warehouses, where proper inspection is made. On the
other hand, at many of the agencies the superintendents themselves are per
mitted to purchase locally, getting fresher goods and in many instances better
prices, such purchases being made always after the invitation of bids. Unless
the Indian Service controls its purchases of supplies (and these supplies range
from needles to thrashing machines) it will result in the procuring of articles
not adapted to the peculiar needs of the Indians. In many cases certain
articles are required at one agency which would be absolutely unadaptable to
the needs of another, which frequently requires a similar article of an entirely
different construction.
For Me UiM^ed 8%%%es Pa%e%% 0%%ce.'
I am of the opinion that the purchase of supplies for all the departments by
a central committee will be satisfactory if carried out by competent men and
with the careful consideration of the quality of goods purchased, as well as of
the price. At the present time some complaints are made as to the quality of
ink furnished and also as to the quality of typewriter ribbons.. These, how
ever, are details which can be readily adjusted. I f goods contracted for by
the central purchasing committee are unsuitable to the needs of any bureau
or are unsatisfactory in quality, purchases should be made in the open market.
For Me Un^ed
(^eo%o^c%%
The central purchase of supplies is not believed to be desirable from the
standpoint of good administration, unless it involved also the maintenance of a
supply depot or storehouse at which supplies are actually kept in stock. To
merely concentrate the making of purchases might result in com e reduction in
prices below what have been obtained since the law requiring the making of
annual contracts by the General Supply Committee became effective, because
it would probably make possible the assembling of more complete and accurate
information as to the needs of the Government as a whole, both as to articles
and quantities, and contractors could submit bids with greater assurance as
to the amount of^business that would probably be involved. On the other hand,
the delays which would inevitably result from centralizing the purchase of
supplies without the maintenance of stock would, I believe, be costly and inter
fere seriously with Government work. I f purchases only were made, they
would presumably be based in each case upon individual requests from bureaus.
To hold requisitions indeRnitely, awaiting possible requests from other bureaus
or Government establishments for similar articles, might seriously interfere
with the work of the bureau making the original request. Under present con
ditions the present supply contract is available for use of all Government estab
lishments having authority to purchase supplies, and purchases may be made
and handled throughout directly, thus reducing delays and mistakes to a mini
mum. There is also considerable advantage under the present method in being
able to deal directly with contractors, especially where supplies for scientiRc
use are involved. I f all supplies in common use by two or more departments
were kept in stock at a central supply depot, the depot itself would eventually
acquire suRicient knowledge of the quantities required to meet the general
816
BUDGET FOR 1914 SUBMITTED TO CONGBESS.
needs of the Government to take the initiative in ordering supplies to maintain
the stock. I believe, however, that annual contracts should not be made for
scientiRc instruments, and that if Congress should provide for a central sup
ply depot it should not attempt to purchase or carry in stock supplies of that
character. It seems likely that in section 4 of the act approved June 17,
1910 (86 Stat., 581), in using the words " i n common use by, or suitable to,
the ordinary needs of two or more such departments or establishments " Con
gress intended a different meaning than the construction placed upon them by
the Secretary of the Treasury. It is believed that this section was intended
to cover supplies of general or ordinary use, but not supplies required for tech
nical or scientiRc use, because the latter could hardly be described as " suitable
to the ordinary needs" of a department. Because of the construction now
placed upon this clause by the Treasury Department, many articles have been
included in the general supply contract which are exclusively for scientiRc use,
and others which may or may not be used for scientiRc purposes. The comp
troller has held that "w h e n articles are needed by a Government department
or establishment which are not of the exact kind scheduled by the General
Supply Committee as being suitable for the common needs of the different Gov
ernment departments and establishments, but are of a class or type so sched
uled, such articles can not be purchased in the open market or otherwise."
On account of this decision a great deal of trouble has been experienced by the
Geological Survey, as well as by other bureaus. Numerous suspensions were
made by the auditor of purchases covering items which were not believed to
be in conRict with the general supply contract, and in many cases subsequent
inquiry of the Treasury Department, accompanied by a full explanation of the
particular use to which the article in question was to be put, as to whether it
was intended to be covered by the general supply contract, met with the reply
that in preparing the contract the General Supply Committee had not con
sidered such a use, and that therefore the purchase was permissible.
In view of the above, I submit as desirable, changes in the law which will
provide for—
1. The central purchases of supplies, provided—
a. That it involves the maintenance of a general supply depot where supplies
will be carried in stock and be immediately available.
&. That it is conRned to supplies which are required to meet Me
of two or more departments.
It is assumed that if provision is made for the central purchase of supplies
by a general supply depot its functions would include those now performed by
the General Supply Committee.
In the absence of legislation providing for guch a general supply depot
changes in the law are recommended which will
2. Limit the annual contract prepared by the General Supply Committee to
supplies which are required to meet the or(Zi%%f2/
of two or more depart
ments.
For Me
ojf H m ea;
A central purchasing agency would seriously cripple and retard the more im
portant operations of such bureaus and oRices as the Bureau of Mines, as most
of the purchases are of a character peculiar to the work involved and must be
procured by special contract, through proposals, which occasion more or less
correspondence. A ll of which can be done more expeditiously and econmically
by the individual oRice, and with better results generally where the purchases
are to be made out of its own special appropriations.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
317
DEPARTMENT OF AGRICULTURE.
I f it is practicable to establish, in accordance with the recommendations of
the various presidential committees that have given the matter attention, a large
central purchasing establishment with warehouses containing stocks of mate
rials and supplies which are standard and common to two or more departments,
from which selections of equipment and supplies to be used might be made and
immediate delivery provided, I believe that this would be of enormous advan
tage, resulting in the saving of money and time, and the more prompt handling
of work in hand. Each department should be free to contract for the purchase
of all scientific and technical supplies and apparatus needed in its work which
age not standardized and in common use by all branches of the Government.
DEPARTMENT OF COMMERCE AND LABOR.
A central purchasing agency for the purchase and distribution of those sup
plies that are common to the needs of the departments at the seat of Govern
ment should be established. Care should be taken, however, that the supplies
so purchased and distributed are in reality common to the needs of the several
departments, and not supplies specially required to meet particular needs.
Section 4 of the act of June 17, 1910 (36 Stat. 468, 531), creating the General
Supply Committee, should be so amended as to more clearly define the scope of
this committee's functions, as well as the limitations upon the authorities of
the separate departments.
INDEPENDENT ESTABLISHMENTS.
For
o / t%e
P r a te r ;
Stationery and supplies of a similar nature are commercially associated with
printing and binding and should be purchased on contract made through the
Public Printer and issued from the storehouse now maintained at the Govern
ment Printing Office. The present method of purchasing common supplies is
not entirely satisfactory. A mechanical engineer, with experience in the con
duct or operation of a power or manufacturing plant, should be appointed to
membership on the General Supply Committee.
For tAe United States
Ser^ce Co?%??Mssio%.'
Approved ; it being understood that the duty and powers of such central
purchasing agency should be limited to ascertaining and supplying the require
ments of the various departments and independent ofiices and not to prescribing
them.
B.
CHANGES IN L A W
TH OU GHT TO BE DESIRABLE RELATING TO DEPARTMENTAL
CONTRACTING AND PURCHASING.
DEPARTMENT OF STATE.
This should be confined to supplies not common to two or more departments
and not included on a general schedule for all departments. Such contracts
should be handled by a board of three appointed by the head of the department.
TREASURY DEPARTMENT.
For tTte
o / t7?e SMr^eow Genera?,
Sendee.'
The central purchase of supplies for the use of the quarantine service is
probably less economical and less convenient for quarantine administration
than to allow each ofRcer to purchase in the local market the articles speciRcally needed by him and which he is able to inspect just prior to purchase.
318
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
The central purchase of supplies for marine hospitals and relief stations, other
than medical and surgical supplies, is not considered best either for economical
or administrative reasons. It is thought that better prices and more satisfac
tory supplies as a rule can be obtained in the open market.
The stations are widely separated, and departmental contracts with one Rrm
for a particular article would probably be less economical, considering freight
charges, loss of time, etc.
For Me o#ce o / CM e/ C7er%
/S%perw%ewdew%.*
Departmental contracting and purchasing should be done through one ofRce.
For Me Division o / Rpecta7 Agents, oj^ce o / Me Secretary;
I suggest that where a divisional or bureau lump-sum appropriation is drawn
upon arbitrarily for a fixed amount for the purchase of stationery and supplied,
as is the case in both of these divisions, the divisional administrative ofRcer
should have some voice in the character and quality of those supplies. In the
item of typewriter ribbons we are arbitrarily supplied with a brand for the
Oliver machines which is either so brittle that it is cut into stencils by its Rrst
trip through the machines or is inked so badly that the type faces on the ma
chine are immediately clogged to an annoying extent. Under the present prac
tice we are not permitted to receive on requisition high-grade ribbons. I ven
ture the assertion that the additional consumption of poor ribbons necessitates a
total annual expenditure in excess of an amount sufRcient to purchase an ample
supply of high-grade ribbons.
For Me oj^ee o / Me Co?%p%ro77er o / Me C^rrewcy.'
I approve of departmental contracting and purchasing.
DEPARTMENT OF JUSTICE.
#
0%.
Jo7w Q. Thompson ; No suggestion of change.
Frwes% JTwae&eL* I have no knowledge of this subject.
J. C.
I am not familiar enough with the laws covering this mat
ter to make any suggestion of value.
Row. W . T. Dewiaow; I have no improvement to suggest.
Row. W. T. T7tompsow; A general purchasing agent should be provided for,
who would purchase or contract for at least all the common supplies needed by
the Government, based upon estimates furnished him each year by the different
departments and establishments.
Row. C%%r7es F%r7; None.
N r. A. Rrt^e B%e7%sM; There are no suggestions with reference to legislation
which I can make. It seems to me, however, that it might be possible to bring
about considerable economies if the departments should get together in the
matter of renting quarters. That is, if they could both in Washington, and in
other cities wherever practicable and convenient, rent ofRces in the same building
or from the same persons under one contract, thereby renting on a much larger
scale and so being able to obtain much better terms. It might be possible in
some instances, instead of renting ofRces in a very large number of buildings
scattered throughout the city, to rent an entire building or entire Roor of a
building for rates at considerably less than the combined rentals now paid.
POST OFFICE DEPARTMENT.
CoMMStow
MtMers.— To prevent collusion among bidders for furnishing
supplies to the Post OfRce Departm ent:
" No contract for furnishing supplies to the Post OfRce Department or the
postal service shall be made with any person who has entered, or proposed to
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
319
enter, into any combination to prevent the making of any bid for furnishing
such supplies, or to fix a price or prices therefor, or who has made any agree
ment, or given or performed, or promised to give or perform, any consideration
whatever to induce any other person not to bid for any such contract, or to
bid at a speciRed price or prices thereon; and if any person so offending is a
contractor for furnishing such supplies, his contract may be annulled, and
the person so offending shall be liable to a fine of not less than $100 nor more
than $5,000, and may be further punished, in the discretion of the court, by
imprisonment for not less than three months nor more than one year."
Advertism^ /o r
— It is my belief that under the present methods o f
advertising for supplies the Government is not having the competition it should
obtain, due to the fact that the estimates upon which prices are obtained are
not adhered to in the ordering of supplies. A department will issue an ad
vertisement for, say, 40,000 pieces of an article to be delivered during the
course of a year, reserving to itself the right to order any greater or less
quantity. If advertisements and contracts were framed so as to guarantee
that the Government would order at least the estimated quantity of an article
during the contract period, it is only reasonable to suppose that greater com
petition and more advantageous contracts would be made. Any purchasing
ofRcer of the Government can give many instances of complaints by contractors
who had based their prices upon estimates which they believed would be
followed, only to find that the actual purchases fell far below the estimated
quantities.
Such methods cause discontent and lack of conRdence, and are
hurtful in efforts to build up competition.
It would seem to be necessary to have a law to carry this into effect.
Co%%%ston awo^^ Mdders.— Upon the initiative of this office the Postmaster
General successfully urged upon the last session of Congress the passage of
the following la w :
" No contract for furnishing supplies to the Post ORice Department or the
postal service shall be made with any person who has entered, or proposed to
enter, into any combination to prevent the making of any bid for furnishing
such supplies, or to Rx a price or prices therefor, or who has made any agree
ment, or given or performed, or promised to give or perform, any consideration
whatever to induce any other person not to bid for any such contract, or to bid
at a speciRed price or prices thereon; and if any person so offending is a con
tractor for furnfshing such supplies, his contract may be annulled, and the
person so offending shall be liable to a Rne of not less than one hundred dollars
nor more than Rve thousand dollars, and may be further punished, in the dis
cretion of the court, by imprisonment for not less than three months nor more
than one year."
I would suggest that the Postmaster General recommend to the President
that the law be made applicable to all supplies purchased by the Government.
DEPARTMENT OF THE NAVY.
For Me Bnrea% o / F a v ia t io n ;
The present system of departmental purchasing of supplies as outlined in
the previous answer is satisfactory.
For Me United States Nava? Observatory;
It seems desirable that exceptions should be made in favor of institutions
carrying on scientiRc work such as this from the purchase of all supplies
through the General Supply Committee.
320
BUDGET FOR 1914 SUBMITTED TO CONGRESS.
For Me B%re%% o/ Yards %%d Doe&s.*
Contracts for construction work involving the furnishing of engineering or
other technical services and special materials, should be awarded and executed
by the bureau or ofHce responsible by law for the expenditure of the appropria
tion for such work. It is believed better results would be obtained if the
bureau were authorized to award contracts to the most acceptable bidder after
consideration of price, experience, facilities, and resources of bidders, and effi
ciency and durability of materials or articles offered instead of being required
to award to the lowest bidder, and that authority should be granted to limit
competition to five or more acceptable bidders in the discretion of the head of
the department.
DEPARTMENT OF THE INTERIOR.
For Freedwte%'s Ho#pt%%%.'
Department contracting and purchasing would probably be more satisfactory
than the present method through the General Supply Committee, but perhaps
not so satisfactory as a central storehouse. The impracticability of the present
system of letting contracts and making purchases through the General Supply
Committee is easily seen from the fact that the general supply schedule is not
yet complete and one-fourth of the Hscal year gone. In fact, this institution did
not get any part of a corrected section of the general schedule until September
28, 1912, resulting in many embarrassing situations. The law should be framed
so as to compel the General Supply Committee to have the general schedule
ready by the first of the Hscal year.
For Me (yovern4%ew% #ospi%%% /or Me Z^stme;
I f the suggestions as above made could be put in force for central purchase
o f supplies there would be no need for departmental contracting and purchasing
other than the necessary authority to make contracts and purchase that class
or variety of articles not covered by the generar schedule of supplies.
For Me 0 #ce o/
A#%irs;
The law applicable to the purchase of supplies or materials for the Indian
Service should be so far amended as to permit the bureau, in cases where the
bids received contained conditions which are detrimental to the interest of the
Government, to purchase the supplies or materials speciHed therein in the open
market at prices not exceeding those of the lowest bidder. T l^ Indian Service
should further be permitted to purchase supplies and materials aggregating not
exceeding $500 in value at any one time in the open market wherever it is deemed
by the Commissioner of Indian Affairs to be for the best interests of the service.
Under existing laws whenever goods and supplies which have been purchased
for the Indian Service and paid for from an appropriation applicable, have
been delivered to a carrier and lost or destroyed and the value thereof has
been recovered from said carrier or deducted from its claim for transportation
charges, either on the article lost or other supplies, the amounts so collected
have been deposited to the credit of the United States and are not available for
use in the same manner as the original fund. This provision of law operates
to prevent the Government bureaus securing the beneHt of appropriations made
for their use, and legislation should be enacted making available for use in the
same manner as the original fund such amounts as are so collected.
For Me Um%e% 8%%%es Geo%op%ca% 8%rve%/;
For the same reasons given under " a " as to the central purchasing of sup
plies, departmental contracting and purchasing are not believed to be desirable,
if by that is meant the centralization of the purchasing o f supplies in one ofHce
in each department. Similar delays would result as well as similar disadvantages
on account of the inability to deal directly with contractors and dealers.
APPENDIX 3— RECOMMENDATIONS FOR CHANGES IN LAW.
321
A s to present conditions affecting the Geological Survey whereby purchases
are made by the department (when payable from department appropriations)
and directly by the survey (when payable from survey appropriation), changes
in the law are recommended as follow s:
1. To permit of purchases without limitation of articles not listed on the
general supply contract in open market— that is, without advertisement— when
they involve expenditures not exceeding $2 in each case.
Under existing law the only conditions under which supplies may be pur
chased in open market or without advertisement are when an exigency of time
ex is ts ; when there is only one dealer within a practicable distance from whom
the articles can be obtained; when previous advertising for the identical pur
chase has been followed by the receipt of no proposals, or only of such as are
unreasonable and under circumstances indicating that further advertising
would not alter results; when articles are patented or copyrighted and not on
sale by dealers; when prices are fixed by legislation; or when, under a formal
contract for construction, there arises a necessity for additional work practi
cable of performance only by the contractor.
It frequently happens in the case of supplies not listed on the general supply
contract that while no exigency of time exists the amount required, as well as
the cost, is so trivial that the work involved in securing bids is not justified
in the interests of good administration and causes unnecessary delay.
2. Permit of direct purchase by the survey of contingent and stationery
supplies required for its use, the appropriation for these purposes to be made
directly for the survey.
Change in the law is also recommended whereby in the purchase of all ma
chines, instruments, and labor-saving devices, exchange of obsolete or wornout machines, instruments, or labor-saving devices may be permitted.
DEPARTMENT OF AGRICULTURE.
This department should be free to contract for the purchase of all such sup
plies and apparatus as may be needed in its work which are not standardized
and are not in common use by all branches of the Government. Every possible
effort should be made to aid the work of the department. The final results
obtained by the department constitute the entire object for which appropriations
are made and for which the department is organized. The contracting and
handling of materials should be brought to such a point that it will in every
way facilitate the securing of these results and not in any way hamper i t .^
The scientific and technical activities of this department require a large amount
o f unusual materials. The various laboratories are naturally and necessarily
exacting in their requirements, and a very large amount of trouble and delay is
caused by the necessity of securing certain articles simply because they are
on contract in preference to certain other articles or in endeavoring to secure
the desired articles in spite of the fact that a similar but unsuitable one is listed.
It is not believed that any chemicals, any laboratory apparatus, or any materials
or equipment, other than the ordinary articles used in every office, should be
under contract. Contract materials would then embrace stationery, brooms,
mops, coal, ice, etc. As an illustration, it is now possible for the bureaus to
purchase in the open market at prices much lower than those quoted in the
contract lists a great many of the chemicals that are on contract, for the reason
that the bidders in making prices to carry throughout the year are compelled
to provide a margin for possible fluctuations.
DEPARTMENT OF COMMERCE AND LABOR.
The authority of the several departments to purchase direct supplies other
than those common to the needs of all should be clearly provided for.
H. Doc. 1435,62-3------ 21
322
BUDGET FOB 1914 SUBMITTED TO CONGRESS.
INDEPENDENT ESTABLISHMENTS.
For the CtuM Service Commission;
The civil-service act of January 16, 1883, section 4, is as follow s:
"T h a t it shall be the duty of the Secretary of the Interior to cause suitable
and convenient rooms and accommodations to be assigned or provided, heated,
and lighted, at the city of Washington, for carrying on the work of said com
mission and said examinations, and to cause the necessary printing to be done
for said commission."
The commission is of the opinion that direct appropriations should be made
for carrying on its work without the intervention of the Interior Department.
The provision of law was desirable in the infancy of the commission, but the
commission is of the view that it should now be put upon an independent foot
ing. It is therefore recommended that in the appropriation acts the appro
priations for the commission under the heads of " Contingent Expenses,"
" Library," " Stationery," " Printing and Binding," and " Rent of Building " be
made under the heading of the commission and not under the
@FedFRASER