Full text of Annual Report of the Director of the Women's Bureau : 1923

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U. S. DEPARTMENT OF LABOR
JAMES J. DAVIS. Secreluy

WOMEN'S BUREAU

FIFTH ANNUAL REPORT OF THE

DIRECTOR OF THE

WOMEN'S BUREAU




FOR

THE FISCAL YEAR
E N D E D JUNE 30

1923

WASHINGTON
GOVERNMENT PRINTING OFBCE
1923




FIFTH ANNUAL REPORT
OF T H E

DIRECTOR OF THE WOMEN'S BUREAU
FOR T H E FISCAL Y E A R E N D E D JUNE 30. 1923.

U N I T E D STATES D E P A R T M E N T OF LABOR,
WOMEN'S BUREAU,

Washington^ August 31^ 1923,
SIR : The F i f t h Annual Keport of the Women's Bureau, for the
fiscal year ended June 30, 1923, is submitted herewith.
The fifth year of the Women's Bureau, which was created as a
war servi^ in 1918 and made a permanent bureau of the Department
of Labor in 1920, has seen a considerable development of its interests
and activities. The duties of the bureau are " to formulate standards
and policies which shall promote the welfare of wage-earning women,
improve their working conditions, increase their efficiency, and advance their opportunities for profitable employment." I n fulfilling
these duties the bureau necessarily engages in many different types
of activity, and the close of the past year shows a most encouraging
development of interest and support for the work that is being done.
Not only have the activities of the bureau increased in type and
scope, but the cooperation and interest of the women of the country
have developed to a marked degree, with the result that the standards and information which the bureau constantly formulates and
disseminates have been given to a broad field of interested organizations which are increasingly asking the bureau's guidance in matters
relating to the welfare of wage-earning women.
The Women's Industrial Conference.
The outstanding activity during the past year was the Women's
Industrial Conference, which was called by the bureau for a threeday session in Washington, January 11, 12, and 13. The object of
this conference was to place before the women of the country an outline of the extensive and steadily increasing problems attending the
employment of women in industry and to indicate some of the methods and standards which are being adopted i n order to meet these
problems.
W i t h that end in view, representatives were invited from all
women's organizations which are national i n scope and from all
other national organizations interested i n the subject of industry
which include women in their membership. The program of the conference was so planned that important topics of industry and its
relation to women should first be presented by experts in each field




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KEPORT OF T H E DIRECTOR OF T H E W O M E l ^ ^ S B U R E A U .

and the subject then thrown open for discussion. The following
topics and speakers comprised the program: Welcome and introductory remarks, Hon. James J. Davis, Secretary of Labor; What
women workers mean to industry, Mr. Charles Cheney, of Cheney
Bros., South Manchester, Conn., representing the National Association of Manufacturers, and Miss Mary Gilson, superintendent of
employment and service department, the Joseph & Feiss Co.,
Cleveland; What industry means to women workers. Miss Mary
Van Kleeck, director department of industrial studies, Kussell Sage
Foundation and former Director of the Women's Bureau, United
States Department of Labor, and Mrs. Raymond Robins, president
of the International Federation of Working Women; Health standards for women in industry, Dr. R. A . Spaeth, associate professor,
department of physiology, school of hygiene and public health,
Johns Hopkins University; Home work, Mrs. Florence Kelly, executive secretary National Consumer's League; Women's wages, Mrs,
Maud Swartz, president National Women's Trade-Union League,
and Miss Sophonisba P. Breckinridge, dean of women. University
of Chicago; Labor legislation for women. Miss Melinda Scott,
United Textile Workers of America, and Miss Merica E. Hoagland,
director mutual service division, Diamond Chain & Manufacturing
Co., Indianapolis; The need for women to enforce women's labor
laws. Miss Tracy Copp, special agent. Federal Board for Vocational
Education; Miss Agnes Nestor, vice president National Glove
Workers of America; Mrs. James J. Devitt, chairman of the department of social and industrial relations of the Iowa State Federation
of Women's Clubs and member of the State Board of Education
of Iowa; and Miss Mary McDowell, University Settlement, Chicago.
The conference was well attended, 326 women from 40 States being
registered as delegates. I n addition there was a large attendance
of interested persons who were not delegates. One result of this
conference has been that many groups of women who hitherto had
not known of the large number of women in gainful occupations and
who had not appreciated the importance or the significance of the
conditions under which women are employed in the industries of this
country have received from their delegates to this conference a reliable and understanding outline of the subject. More important
still—and perhaps the outstanding achievement of the conference—
has been the understanding developed between different groups
which formerly acknowledged no common interests. The result of
this understanding has been a cementing of the ties of interest and
a common purpose between groups whose knowledge of each other
and of each other's work had been only fragmentary and in many
cases prejudiced.
A t the opening session of the conference a special message from
the President of the United States was brought to the delegates by
the Secretary of Labor. I n this message the President said:
L o n g before women were caUed t o t h a t broader p a r t i c i p a t i o n i n public affairs
w h i c h is now both t h e i r d u t y and the pubUc's advantage I w a s personally
strongly convinced of the great benefits w h i c h w o u l d be derived f r o m a more
insistent expression a n d more general consideration of women*s p o i n t of view
i n relation to social and i n d u s t r i a l concerns. The r e v o l u t i o n a r y change t h a t
has taken place i n the status of women i n the w o r l d of business and a f f a i r s has
not only justified b u t necessitated t h a t broader and more i n t i m a t e a c t i v i t y o f




REPORT OF T H E DIRECTOR OF T H E W O M E N ' s BUREATT.

3

women i n behalf of the p a r t i c u l a r phases of public and social interests w h i c h
especially appeal to them. Conferences a n d continued organized activities of
the k i n d represented by the present g a t h e r i n g are c e r t a i n to be of very definite
public benefit.

Because the delegates to the conference did not carry instructions
from their organizations and because the object of the conference
was an interchange of ideas and experiences rather than the promulgation of definite policies there were no formal recommendations
made by the conference. A t the closing session, however, a resolution was unanimously adopted outlining general principles which
might be followed by all organizations interested in developing
higher standards i n industry. The resolution read as follows:
The members of the Women's I n d u s t r i a l Conference assembled i n Washington, D. a , J a n u a r y 11 to 13, 1923, representing 67 organizations i n 40 different
States, believe t h a t the w o r k of w o m e n I n i n d u s t r y must be made t r u l y an
opportunity to develop to the f u l l e s t t h e i r powers as workers, both f o r t h e i r
own happiness and f o r t h e service of society. T o t h i s end they must have adequate schooling before entrance i n t o i n d u s t r y a n d be free t o choose t h e i r occupations, to secure t r a i n i n g f o r them, t o enlarge t h e i r opportunities as t h e i r
experience grows, t o receive f a i r compensation, a n d to w o r k under safe and
wholesome conditions.
B u t i t should not be f o r g o t t e n t h a t i n d u s t r y includes both skilled and
unskilled tasks, a n d w i t h o u t the u n s k i l l e d w^orker no o p p o r t u n i t y w o u l d be
possible f o r the skilled. A large number of wage earners are i n unskiUed and
semiskilled occupations, a n d the t r a i n i n g a n d p r o m o t i o n w h i c h are possible i n
more intricate processes have no meaning f o r them. T h e conditions of employment of those who do the hardest a n d the most u n s k i l l e d w o r k , w h i c h is a
necessary p a r t of our whole i n d u ^ r i a l system, should be our first concern.
We recognize w i t h appreciation the standards already established by
progi;essive management a n d urge t h e i r more general adoption. W e recognize
also the i m p o r t a n t influence of constructive agreement between employers
and wage earners w h i c h has played so large a p a r t i n establishing standards.
By these means and by the action of the c o m m u n i t y we ask freedom of choice
of occupation, and t h a t p r o v i s i o n f o r t r a i n i n g a n d wage rates be determined
without prejudice because of sex. These things w e ask i n justice to w^omen,
and because we believe t h a t upon them depend the health, happiness, and
spiritual development of women themselves, a n d t h r o u g h them the development of children a n d t h e protection of the l i f e of the f a m i l y .
I n d u s t r i a l problems a r e realities.
No permanent improvement can be
achieved except t h r o u g h knowledge of facts about I n d u s t r y and understanding
of their meaning f o r h u m a n lives. Therefore, i n response to t h i s c a l l of the
National Government t o us as citizens to counsel together about women i n
industry, we pledge ourselves t o earnest a n d thorough study of conditions i n
our own communities. W e look t o the Women's B u r e a u of the U n i t e d States
Department of L a b o r f o r leadership i n describing the realities of i n d u s t r i a l
life as women have seen a n d experienced them a n d i n f o r m u l a t i n g policies a n d
standards.
^j
We urge t h a t organizations represented here give support to the Federal a n d
State agencies t h r o u g h w h i c h f a c t s are collected d n d given to the public, and
that on the basis of these facts we b u i l d up a p r o g r ^ f o r the intelligent share
of women i n h u m a n i z i n g i n d u s t r i a l processes.
i

The program which is outlined in this resolution to provide real
opportunity for women workers through schooling, a free choice of
occupation, training for that occupation, adequate wages without
prejudice because of sex, and safe working conditions is one which
^ i l l have the earnest indorsement of every thinking person. Especially important is the fact that this large group of women appreciated the significance of a well-rounded program which should
cover the entire theory of women's employment in industry, rather
than a set of resolutions dealing w i t h certain specific conditions.
The recognition of the importance of a basis of facts upon which to



4

REPORT OIT T H E DIRECTOR OF T H E W O M E N ^S B U R E A U .

build any program is also of great promise for the development of
the ideals set forth in the resolution.
Since the close of the conference the bureau has been in close
touch with many of the women who served as delegates, and the mterest displayed by them in the work of the bureau has been an
encouraging result of the contacts made during the three days of the
conference sessions.
Standards for the administration of labor laws affecting women.
Another conference in which the Women's Bureau took part and
which is an important example of the development of the policymaking function of the bureau was the meeting called by the newly
elected Governor of Pennsylvania to consider and recommend an
industrial program for that State. The Women's Bureau was asked
to prepare a memorandum on suggested standards for the administration of labor laws affecting women. This memorandum was submitted and discussed at a conference of experts called by Governor
Gifford Pinchot and held at Milford, Pa., in December, 1922.
The standards suggested were based on a careful survey of methods
of administration in force in several States and outline a very definite
policy for the administration of certain laws affecting women. The
most important sections of these suggestions are outlined in the following paragraph:
Subjects covered by laws for the protection of women.
W i t h large groups of women gainfully employed in each State,
the regulations affecting their employment inevitably show great
variety. There are, however, certain general groupings into which
these regulations fall, and these groups show common problems of
administration and enforcement. The subjects which are usually
covered by laws for the protection of women workers are hours of
work, wages, working conditions (including posture at work, comfort, and sanitation), prohibited occupations, and home work.
Special difficulties in enforcement of laws affecting women.
Many of these laws show no immediate results. I t may be necessary to wait until the next generation to find out their beneficial
features, as far as the health and well-being of the women workers
are concerned. This fact and certain necessary details of enforcement give rise to unusual problems i n the administration of these
laws. This administration can not be entirely similar to the administration of safety laws, ^for we have reached a point i n our development where the subject ^pf safety appliances and safety for workers
on dangerous machinery is no longer a debatable question, and,
through compensation laws and educational campaigns, i t has been
made unprofitable for an employer to have dangerous machine^
unguarded. I t is also comparatively simple to prove violations in
this regard.
The proof and the unprofitableness of violation of the special provisions to safeguard the employment of women, unfortunately, are
not so easilj; made evident.
I n enforcing hour legislation it is frequently very difficult for an
inspector to furnish proof in a disputed case, as i t is usually neces^
sary to supply the worker's own testimony as proof of violation, and
the judges sometimes require that the inspector must have seen the



REPORT OF T H E DIRECTOR OF T H E W O M E I S T ^ S B U R E A U .

5

woman at work every minute during the day or week on which the
violation occurred. Irregular worlang hours, as the broken shifts
in restaurants and telephone eixchanges, and tlie reluctance of a worker
to testify against her employer for fear of losing her job also complicate the enforcement of such laws.
The establishment and enforcement of minimum-wage rulings present problems that are unique. I n order to arrive at a minimum
standard of wages for a woman i t is necessary to formulate budgets
and to ascertain the actual cost of women's wearing apparel and of
room and board, taking into consideration living conditions as well
as price. Incidentals necessary for women must also be made a matter of study. To secure such information obviously requires a special
type of investigation and knowledge quite different from that required for factory inspection.
I n enforcing regulations regarding working conditions special difficulty is met in securing information concerning the actual conditions
and violations. For example, an inspector can not, simply by counting the chairs supplied, find out whether a seating law is really being
carried out. Instead, the confidence of the workers must be secured
and their testimony carefully considered on such questions as whether
the seats provided are practicable for use while at work and whether
the workers are encouraged or permitted to use them. I n matters
of comfort and sanitation difficulties of inspection arise because of
the requirements of privacy and the need for cooperative efforts on
the part of both workers and inspector.
Administration.
As the enactment of laws providing for special provisions where
women are employed is of such paramount importance, i t is plain that
the effective administration of those laws must be a matter of vital
need and constant concern. Both play an essential part in the progress of the State.
I n formulating standards and planning the administrative machinery for the enforcement of laws, i t is not always possible to
arrange for an organization which w i l l make possible the best administrative machinery because of the necessity to fit^the machinery
for the enforcement of such laws into the organization policy in
practice i n the State. Often the States are handicapped not only
because of lack of appropriation but because of a lack of freedom
to institute an effective administration, because of legislative restrictions, and because of frequent changes in pei-sonnel in administration
and inspection.
I n a number of States both men and women factory insp^tors are
delegated to enforce all laws which come under the jurisdiction of the
labor inspection service. A f t e r inquiry into this matter and after
talking to many men and women experienced i n this field of service,
the consensus of opinion is found to be that for effective enforceiuent i t is advisable to have inspectors specialize on certain laws.
"When an inspector is looking for protruding screws or for guards
on machines i t is necessary to concentrate on these matters, and the
questions of hours, wages, comfort and sanitation, and prohibited
occupations for women must necessarily be left in the background.
Experience has shown that persons excel in certain kinds of inspect
tions and f a i l in others, and experience has also brought out the



REPORT OF T H E DIRECTOR OF T H E WOMEIST^S B U R E A U . 6

fact that the effective enforcement of laws pertaining to hours, wages,
seats and posture at work, working conditions in the establishments,
and the regulation of home work requires special attention and different methods.
Because of the many special problems and difficulties accompanyi n g the enforcement of laws regulating the conditions of women's
•employment and the distinct difference of enforcement between these
Jind other labor laws, it has been deemed a good practice to establish
31 separate and distinct bureau to administer these laws. This bureau
should have a qualified woman in charge, who should be directly
responsible to the chief executive or agency administering the labor
laws of the State.
(Inalifications and responsibility of chief of women's bureau.
The woman in charge of a State women's bureau should, first and
foremost, have a thorough knowledge of the various industries and
their occupational hazards for women. She should be well versed in
the laws regulating the conditions of employment of women not only
in her own State but in other States, so that she may be competent to
formulate the best legal standards and policies for the employment
of women in her State.. She should be experienced i n legislative
work so that she can assist in the progress of proposed legislation.
She should have tact, tolerance, and understanding of the difficult
problems which confront employers and - employees, as well as inspectors, and should be a good executive.
To insure efficient and effective administration in a women's bureau
i t is necessary not only to have a qualified woman in charge but to
make provisions for a sufficient number of qualified women inspectors
to enforce the laws affecting the employment of women. There are
required for the effective enforcement of such laws attention to details, visits to homes, and other personal contacts necessitating the
service of women inspectors, for naturally the right k i n d of woman
readily comprehends women's problems, and because of her sex and
her understanding the women employees w i l l feel free to discuss
their problems with her.
The inspectors should know industry as a whole and the problems
peculiar to various industries and occupations; they should be competent to pass on conditions and give advice even when there is no
measurement of requirements set by la^v. They should have knowledge and understanding not only of the working of the State laws but
of their purpose and intent. They should be versed in the standards
and practices in the State. Efficient and effective work can not be
done without the cooperation of the employers, and this depends
to a great extent upon the personality of the inspector, her understanding of the special problems under consideration, and her ability
to discuss such problems and to explain the law and its purpose.
Inspectors should have had such training and experience as would
qualify them to investigate and study the special problems which
arise. They should be competent and encouraged to make recommendations and to take part in formulating policies *and standards
for the employment of women. Finally, too much emphasis can not
be placed on the importance of understanding and sympathy which
w i l l invite and secure the confidence of the employers and of the
women workers.




REPORT OF T H E DIRECTOR OF T H E W O M E N ^S BUREAXJ.

7

The Women's Bureau of the United States Department of Labor,
in suggesting these standards, does not intend in any way to intimate
that existing methods of administration which do not conform with
the standards are unsuccessful. Before formulating a policy regarding this matter, however, consultations were held with the administering officials under various systems, and it was with their cooperation,
after a careful consideration of their problems and difficulties, that
the conclusions just given were reached.
labor legislation for women in industry.
During the past winter there have been legislative sessions in 42
States. The interest of women's organizations in improving standards for wage-earniiig women is reflected in the attempts which have
been made, some of them successfully and some unsuccessfully, to
secure legislative indorsement of certain standards. Whatever success may have attended the efforts of those who have attempted to
secure special labor legislation for -women, there can be no doubt of
the educational value of their work. Sometimes bills are introduced
year after year with little hope of their becoming laws, because their
proponents know that no law can be successfully enacted and enforced
if it has not the support of public opinion and enthusiasm for the
principles on which i t is based. Therefore, although many of the
efforts made have had no tangible x^esults, they have contributed m
large measure to the development of standards for women in
industry. Such contributions are an indication of the trend of
public thought and interest, and should be reckoned with in any
account of the situation affecting wage-earning women.
I n a number of States the legislation introduced for the benefit of
^yomen wage earners has met w i t h unfortunate opposition from those
who have felt that any legislation dealing solely with women was
an unjust discrimination against the freedom and equality of that
sex. This theoiy led to the attempt in several States to substitute
the word "persons" for "women" in the bills introduced. I t is
obvious that such a substitution would make any proposed legislation broad enough to include men, with the result that the avowed
intentions of the bills—to relieve conditions which were known to
be an especial handicap to women—would be nullified. I n effect this
method was an attack on the whole theory of special legislation for
women, a theory which is indorsed and actively supported by almost
every important organization of working women and of women who
are interested in improving industrial conditions. The legislative'
activities of the past winter indicate, however, that these proposed
amendments to the bills did not win sufficient support to materially
affect the fate of the legislation.
The chief interest in the various States has been directed toward
securing a legal limitation of hours of work for women. Bills for
regulating hours were introduced i n the legislatures of 18 States.
These bills were of many different types, but most frequently the
standard sought was the 8-hour day or the 48-hour week. I n Illinois,
Indiana, Maine, Michigan, Missouri, New Hampshire, New York,
Pennsylvania^ Rhode Island, West V i r ^ n i a , and Wisconsin, 11
States in all, the standard under discussion was either an 8-hour
day or a 48-hour week. I n Iowa and Connecticut a i)-hour day and
50-hour week, and in South Dakota a 10-hour day and 54-hour week,
63007—23

2




REPORT OF T H E DIRECTOR OP T H E

WOMEN's

B U R E A U .•8

were the goal. I n a few other States, such as Massachusetts, Minnesota, New York, North Dakota, and Wisconsin, effort was also
directed toward the extension or modification of the existing law.
The result of all this activity has not been very great, but in some
cases definite action was taken. I n South Dakota a law was passed,
and went into effect on July 1, 1923, limiting hours for women, except telegraph and telephone operators, to 10 hours a day and 54
hours a week. I n Wisconsin a law was passed reducing from 10
hours a day and 55 hours a week to 9 hours a day and 50 hours a
week the hours of women employed in manufacturing, mechanical,
or mercantile establishments, laundries, restaurants, confectionery
stores, telegraph and telephone offices or exchanges, and express or
transportation establishments. The hours of women in hotels were
limited to 10 hours a day and 55 hours a week. I n Minnesota the
9-hour day was changed to
hours, and with the 54-hour week
was extended to include, in all localities, all women workers except
domestics and nurses, and telephone operators in towns of less than
1,500 population.
I n Massachusetts, although no new law was passed, attempts to
repeal the 48-hour law in favor of a 54-hour law and to repeal the
prohibition of night work were unsuccessful.
I n New Hampshire the 48-hour-week bill was defeated, but a
joint resolution was passed by the house and senate asking the general court to investigate the question.
I n Maine the governor has called a special election, under the initiative and referendum law, on the 48-hour measure which was
initiated during the past winter.
New Jersey has to its credit a law which has been hotly contested
through several legislative sessions—^the prohibition of night work
for women. This law does not go into effect until December, 1924,
but even with such a delay its passage has been hailed as a real
achievement for the organizations which have backed i t and fought
for i t for years.
Working conditions in industry have received scant attention
from legislatures during the past year, probably because many
States have already established excellent standards i n this regard.
According to the latest available information Vermont was the only
State considering this subject I n that State a bill calling for standardization of the seating law passed the house but was defeated in
the senate.
I n Minnesota an unsuccessful attempt was made to secure a law
requiring the appointment of a woman on the industrial commission.
I n Vermont an attempt was made to repeal the laws requiring the
appointment of a woman factory inspector. This attempt was not
succ^sful.
Minimum-wage laws have been the subject of discussion in 11
States—Arizona, Massachusetts, Missouri, Nebraska, New Jersey,
New York, Ohio, Oklahoma, Pennsylvania, South Dakota, and
Texas. I n South Dakota a minimum-wage Jaw was passed, and in
Arizona the minimum amount was raised from $10 t^o $16 a week.
I n Massachusetts effort was made to secure the repeal of the minimum-wage law. This effort was not achieved, and attempts to
amend the law to make i t mandatory were also unsuccessful.




REPORT OF T H E DIRECTOR OP T H E W O M E N ' s B U R E A U .

•

9

The minimum-wage decision.
The decision of the Supreme Court of the United States declaring
unconstitutional the minimum-wage law for women i n the District
of Columbia has had a most far-reaching effect upon the activities of
those who have for years been attempting to secure or to improve
the regulation of women's wages by this method. The opinion of
the court, although the decision applied only to the law of the District of Columbia, indicates that the success of this method may
hereafter be doubtful. Nevertheless, the States which have been
working under laws similar to that which Congress enacted for the
District of Columbia, seem to be unanimous in their intention to
continue to enforce their respective laws as in the past. Some States
, have done more than merely stand their ground and have assumed
an attitude of active support of constitutional changes which would
put the legislation already existing on a more secure basis. The
California Legislature has gone so far as to adopt a resolution
memorialking Congress to amend the Constitution so as to permit
of a minimum-wage law for women. Not only the legislature but
also the industrial commission of the State has shown its intention
to continue with the present legislation through its action in handing down a new wage award after the Supreme Court had issued
its decision for the District of Columbia. The Governor of Washington has shown his belief in such laws by suggesting a conference
of the governors of the various States to consider a nation-wide campaign for a constitutional amendment validating minimum-wage
legislation.
I n Arizona the officials of the State have announced their intention
to support the new wage law, which raised the minimum from $10
to $16 a week, quite as they would have done i f no minimuna-wage
decision had been rendered by the Supreme Court.
Wliile these agencies which are interested in maintaining the advantages of the minimum wa^e for women have been considering
plans for the future, the opposition has not been inactive. Test cases
have been started in both Arizona, and Wisconsin, in each case the
contestant announcing his willingness to carry the issue on to the
last court. Even i n Massachusetts, although the validity of the act
itself is not being questioned, the publicity method of enforcement
has been brought up for settlement in the court.
Organizations which have more than a local interest i n the minimum-wage situation have also been marshaling their forces that they
may be ready to render the greatest service to the women workers
wherever needed. The Director of the Women's Bureau has been in
frequent consultation with these organizations, and the information
in the files of the bureau has been made available to them when
requested. The National Consumers' League was the first organization to recognize the need for consideration of the situation with
which the country was confronted and called a conference on A p r i l
20 of individuals interested in the welfare of working women. I t
was clearly demonstrated that much serious thought and study would
be necessary before any definite program could be formulated, and
in that realization lay the chief value of this first meeting. I t is
expected that the league w i l l be ready to announce a definite program
at the national meeting in )tlie fall.




10

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REPORT OF T H E DIRECTOR OF T H E W O M E K S BUREAIT.

The American Federation of Labor, after the decision of the court,
also called a conference which met in Washington the latter part of
April. A t that meeting a permanent conference for the protection
of the rights and interests of women wage earners was organized.
Plans were also inaugurated for a campaign of union organizations
to be started immediately among women workers in the District of
Columbia.
The Women's Trade Union League called a conference in Washington on May 15 and 16 to consider the situation of the woman
worker so far as legal guaranties were concerned in the light of the
decision of the Supreme Court. Twenty-seven organizations were
represented, including trade-unions, religious organizations, welfare
organizations, research bureaus, and other groups interested in the ^
industrial women's problem in particular and the broader field of
labor legislation in general. A committee was appointed to consider the legislatiA^e proposals which had been discussed at the conference and to recommend a program which might be acceptable to
all of the groups represented. Support of the women workers in
their attempt to obtain protection through organization was also
asked.
Especially significant for the future of wage standards in the
States which have minimum wage commissions has been the attitude of the employers in some of those States. I n Oregon the Manufacturers & Merchants' Association of the State issued a statement
to all of its members which showed a very public-spirited recognition
of the need for maintaining standards. To quote from the statement, the stand taken by this state-wide group of employers was
to—
plead w i t h a l l employers of Oregon to stiU acknowledge the a u t h o r i t y of the
i n d u s t r i a l welfare commission's rulings, and i n no case deviate f r o m them, nor
i n any Instance where a higlier wage t h a n the prescribed m i n i m u m is now
being paid, to reduce such wage to the m i n i m u m ; but, on the contrary, where
production and efficiency justifies i t , rather to increase the wage.

To accomplish this end the organization passed a resolution that—
Whereas the experience of a great m a j o r i t y ( i f not aU) employers of Oregon
who employ women is t h a t the m i n i m u m wage l a w of t h i s State has been
of such m a t e r i a l benefit to both employers a n d employees (aside f r o m the
h u m a n i t a r i a n side of the question) t h a t i t w o u l d be most u n f o r t u n a t e as well
as a disgrace to the State to disturb the equitable and harmonious relations
now e x i s t i n g where women are employed i n our industries. Therefore be i t
Resolved, T h a t the Manufacturers & Merchants' Association of Oregon
pledge to the i n d u s t r i a l w e l f a r e commission t h e i r support and cooperation in
m a i n t a i n i n g the present status of the Oregon l a w , and t h a t we w i l l use every
effort to discourage anyone f r o m testing the v a l i d i t y of tlie l a w i n the courts,
and w i l l also use every effort to prevent the repeal of the l a w by the legislature, should such a t h i n g be attempted, and as an evidence of o u r sincerity
we hereby pledge, ourselves to be governed i n the f u t u r e as we have i n the
past b y the rulings of the i n d u s t r i a l welfare commission.

Broadly speaking, the decision has brought about two types of
reaction. There are those who, remembering the previous defeat of
two national child labor laws and of other welfare legislation, are
questioning the necessity and desirability of the existence of a court
which is in a position to invalidate legislation which has been passed
on by representative bodies. Consequently, various methods of
limiting the power of the court are being suggested, notably a requirement of a 7 to 2 or 6 to 3 vote in the court i n order to override



11

K E P O K T OF T H E DIRECTOR OF T H E W O M E N ^S B U R E A U .

:any State or Federal law, or provision for an amendment of the
Supreme Court decision i f the act were again passed in Congress by
an increased majority.
On the other hand, there are those who are turning their attention
to a type of remedy which would not alter the force of the Supreme
Court but which would so change the situation that minimum wage
laws would have to be upheld by that body. Some of these would
work for an amendment to the Constitution which would be broad
enough to permit the enactment of all welfare or social legislation,
while others would be content with a constitutional change which
would make possible only minimum-wage legislation for women
workers.
W i i c h type of change would be the more desirable is a question
which mi^ht keep political philosophers interested for some time,
yet the serious consideration of the possibilities involved in each line
of attack is of practical importance to those who would advance the
position of underpaid wage earners. The really interesting and
iioj)eful side of the whole situation is the very considerable interest
which has manifested itself in the whole matter, an interest shared
by labor, welfare and civic organizations, churches, those connected
with the Government, and—most important of all—the women themselves through their organizations. The development of such an
active public opinion is bound to have an effect of some sort, even
though it does not come so rapidly as some might desire.
Women's earning.
After five years spent in more or less continuous investigations
of the conditions affecting women in industry the bureau has come
to one inevitable conclusion—^the fundamental importance of the
question of women's earnings. The intimate relation between earnings and standards of living, of health, and of family and community life brings the matter of earnings to the fore, no matter
what general problem of industrial or community standards is under
discussion. - For this reason the bureau has continued and w i l l continue during the years to come to collect data showing the actual
economic situation as it applies to women in industry.
During the past year the bureau has made two wage investigations
which are larger in scope than any before undertaken. I n Ohio a
survey of wages and hours of women in industry was made during
the months of September, October, and November, 1922. This
survey was state-wide in scope, and data were secured from 302
establishments, employing 32,000 women. A similar survey was
made during the same period in New Jersey, this study including
data for 300 establishments, employing nearly 35,000 women. The
outstanding facts secured from the preliminary tabulations of the
statistics gathered during these two surveys were as follows: (1)
The median earnings of the women for the week for which wage
records were secured were $13.80 in Ohio and $14.95 in New Jersey.
(2) The median earnings for the women who had worked practically f u l l time (48 hours or more during the week investigated)
were $14.75 in Ohio and $15.70 in New Jersey.
W i t h one exception (Khode Island, where the median earnings
for a week in 1920 were $16.85) these wage figures are higher than
those in any of the 10 States in which the bureau has conducted



12

KEPOKT

OF T H E DIRECTOR OF T H E W O M E N ^S B U R E A U .

wage investigations. Nevertheless, there were many thousands of
women in these two States who were earning very njeager sums,
which could hardly be considered adequate for the maintenance of
desirable standards of living. Considering in one group all of the
122,000 women for whom the bureau has secured wage figures during
the past year, it appears that less than one-third of them (32.1 per
cent) earned as much as $16 during the week for which their wage
records were secured. Of course this figure includes inany different
kinds of workei-s in many different localities and the data were secured for different periods, but, roughly speaking, when thus combined the resulting figure gives a fairly dependable portrayal of the
economic condition of women in industry.
Women's hours of work.
I n the two State investigations already * mentioned, New Jersey
and Ohio, a large body of information was also collected showing the
standards of th^e various establishments investigated in regard to
scheduled hours of work. I t was found that in both States the
scheduled hours of work were considerably less than the standard
set by law. I n New Jersey, where the hours permitted by law are
54 a Week and 10 a day, only one-fifth of the women were scheduled
to work more than 9 hours a day or 50 hours a week; in Ohio,
where the law permits only 9 hours a day and 50 hours a week, only
40.9 per cent of the women worked a scheduled week as long as
50 hours, and 54.3 per cent on daily schedules as long as 9 hoursThe extensive material showing scheduled hours of work for women
which the bureau has collected during the past five years from more
than 2,000 establishments in 13 States, has shown very different
standards according to locality and industry. Certain industries
have shown consistently short scheduled hours, no matter in what
State they were located or with what other industrial hour standards
they were competing. Other industries have appeared with consistently long hours in whatever State they were operating. I n
some States the great majority of the industries were operating
under scheduled hours much shorter than required by law, and in
other States the industries were practically all running on as long
schedules as were permissible.
The data on hours secured by the bureau are spread over a period
of four or five years, with the result that for only a few States is
comparable material available. Realizing the value of having comparable material for as large a territory as possible, the bureau has
undertaken to bring up to. the same date all of the information which
it has gathered to show hours of work for women in the States
where it has conducted investigations. To secure wage figures for
one date from such a large field would not be possible, but the information on scheduled hours is more easily gathered and may be
brought up to date with comparatively little difficulty. Accordingly
a form letter was sent to each establishment included in any hourstudy investigation made by the bureau. This form letter asked
for definite information as to the hours in force on September 15,
1922, and the number of women employed on that date, and also
gave the hours and number of employees shown by the bureau's
record at the time of the investigation. Very complete response was
made to these letters and the information received is now being



REPORT OF T H E DIKEGTOK OF T H E W O M E N ' s BUREAU.

13

compiled and w i l l be issued in bulletin form, showing not only the
hours prevailing for a large number of women in* many sections of
the country, but the changes which have occurred since the dates
of the original investigations made by the bureau.
SPECIAL STTTDIES.

During the first four years of its existence the bureau emphasized
through its investigational work the collection of data showing
general conditions under which women were employed in the various
States. I n the past year, however, because of the amount of general
information secured and because of increases in the appropriation
and staff of the bureau, i t has been possible to develop, in addition
to the studies of general conditions, the collection of information
dealing with special problems relating to the employment of women.
These special studies promise to make definite contributions to the
solution of several problems which are engaging the attention of
employers, industrial experts, and other persons interested in the
development of opportunity for wage-earning women.
Development of census material.
The occupational progress of women,—^As soon as the preliminary
figures from the census of 1920 showing the occupational distribution of gainfully employed persons were available, the bureau made
a study of these figures showing the principal trend of women's
employment during the past decade and comparing the present
lines of development with those of former decades. Certain of the
changes which were apparent after a careful study of the facts indicated decided upheavals in the traditions of women's employment;
there was a decrease of 13.6 per cent (344,297) among women engaged i n domestic and personal service, an increase of 140.4 per cent
(832,892) among women in clerical occupations, an increase of 38.5
per cent (282,607) among women in professional service, an increase
of 99.8 per cent (106,429) among women engaged in transportation,
and—contrary to general impression—an increase of only 6 per cent
(109,771) among women in manufacturing and mechanical pursuits.
On the whole, th^ great change seems to have been a decrease among
women working in or for the home and in personal-service occupations, and a corresponding increase i n clerical and allied occupations, in teaching, and in nursing. Studying the figures for manufacturing and mechanical industries, i t was apparent that women
had not gone into absolutely new occupations to any great extent.
They had, however, enlarged their field of work by entering, in
greater number, occupations in which formerly they had but scant ^
representation. .
'l^he^^family status of hreadwijming. wxnnen.—In the bureau's report for the year ended June 30,1922, mention was made of a study
which had been conducted with the cooperation of the Bureau of tlie
Census to discover as far as possible from the census schedules for a
selected locality the data which were available to show pertinent
social facts regarding breadwinning women. This study has created
much interest not alone for the illustration i t offers of the tremendous value of much of the information available i n the census schedules and not made public because of limited funds but for the clear-




14

REPORT OIT T H E DIRECTOR OF T H E W O M E N ^S B U R E A U .

cut picture of the problems of the working women in an industrial
community. Because of the significance of the picture thus made
available and because of the general demand for information along
the same lines for other typical communities, the Women's Bureau
has extended this study to include similar facts for the breadwinning
women of Wilkes-Barre, Pa., Butte, Mont., and Jacksonville, Fla.
Those cities were selected because they are located in different sections of the country, because their industrial activities are representative of certain typical situations, and because their size is not
so small as to be unimportant nor yet so large as to make the handling
of the census schedules prohibitive in cost.
Women's inventions as shown by the records of the United States Patent
Office.
The development of occupational opportunity for women has made
marked progress during the last two or three decades, but this
progress has not been achieved without constant pressure and study
of conditions on the part of those interested in developing a better
understanding of the economic importance of the part played by
women in the industries of the country. This recognition is gradually being brought about, but there are still certain fields i n which
popular opinion would deny women a place. W i t h this fact in mind
the bureau undertook to study any available records which would
show the development of women's achievements in the field of creative work, to find out whether women had made material contributions to the sum total of creative achievements; whether their
contributions were comparable with men's contributions in the same
field; and what progress or retrogression in comparative opportunities and achievement had marked the decades that stretch from the
early eighteen hundreds to the current year. The most obvious
source of information on this subject were the records of the United
States Patent Office, and with the cooperation of that office it study
was made of its records, including a detailed study of more than
5,000 patents granted to women during 10 selected years.
The results of this research showed, first, that the actual number of
patents granted .to women inventors is still small, but the rate of
increase from decade to decade is conspicuously high; second, that
the range of women's increasing activity in the field of invention
extends from the home into most of the important branches of industry, commerce, and science; and, third, that the inventions are
not confined to the minor accessories in each field of activity, but in
many cases are contributions to basic processes and substances.
Based on these facts the conclusion was arrived at that, in view of
the handicaps under which women inventors have always labored,
the rate of increase in the number of inventions patented by women
and the range and quality of their inventive achievements furnish an
argument for expanding women's opportunities for research and
experiment and for securing to women easier access to facilities
essential in patent procedure. I t was also found that women inventors, even more than men, are in need of facilities for marketing
or promoting their patented creations, because women are generally
more restricted in funds and less informed concerning the methods
of profitable patent disposal. The Patent Office records, on the
whole, furnish a reasonable guaranty that with a reduction in the



REPORT OF T H E DIRECTOR OF T H E WOMEIST^S B U R E A U .

15

excessive discouragements due to frequent failures to realize money
quickly on patents, with an expansion of opportunities for research,
and with easier access to the facilities essential to patent procedure
the Nation w i l l be rewarded by the increased measure of inventive
service from women of creative abilities, and capable women w i l l find
constantly enlarging opportunities in this'branch of the field of
creative labor.
Domestic workers and their employmeiit relations.
Another study which has taken the Women's Bureau into a new
field where there is an undoubted need for research and the formulation of standards has been a study of domestic workers, based on
information secured from the records of the Domestic Efficiency
Association of Baltimore. This association, formed for the purpose
of putting domestic service on a better and more standardized basis
and trying to get at the causes of the high labor turnover among
domestics, to improve the standards i n the service, and to effect
greater cooperation among employers, requested the Women's Bureau to examine and analyze its records, which contained fairly
complete data for 2,293 women and 672 men. This was done, and
although no definite or far-reaching recommendations can be made
on the basis of so limited a study, from the facts disclosed i t would
seem that there is urgent need for careful consideration of this problem by the employers of domestic workers. I t is especially urgent
that an effort should be made to standardize the requirements of the
work so that an employee engaged for a position may be reasonably
sure of what she is expected to do. The records also showed that
domestic work is to a large extent seasonal, which throws an added
burden on the employee who is left to shift for herself when families
leave town for the summer and houses are closed. The matter of
references was found to be a serious handicap in the placement of
applicants, for there seems to be no common ground or standard for
the judgment of work or personality, and a worker well recommended
by one employer may have an entirely contradictory reference from
another.
Absenteeism amongr women in textile mills.
Of the studies which are at present under way in the bureau and
which w i l l not be completed for some months one of the most important is an investigation to discover the extent and causes of
absenteeism among women employed in textile mills. This investigation involves very great problems of technic and interpretation
and must be carried on over a considerable period of time i f careful
and scientific findings are to be achieved. The bureau has received
most cordial and helpful cooperation from manufacturers in all
parts of the counti-y, and the study has awakened considerable interest among employers and industrial experts. Textile mills have
been visited, their records inspected, and their employees interviewed in Alabama, Louisiana, Georgia, South Carolina, Maryland,
New Jersey, Connecticut, and Vermont. I t is planned to visit other
textile centers within the next few months. From experimental
compilations of the data already gathered there seems to be an
excessive amount of absenteeism, but sufficient analysis of the mate-




16

KEPOKT OF T H E DIRECTOR OF T H E W O M E N ^S B U R E A U .

rial has not yet been made to discover to what extent these absences
are voluntary or enforced by conditions i n the plant or the industry.
I t seems likely that the findings may comprise also a contribution to
the subject of labor turnover.
Industrial accidents among women.
The increase of 110,000 women in manufacturing and mechanical
industries during the Dast decade and the developing there of new
fields of employment for them, has drawn considerable attention to
the accident hazard for women employed in industrial establishments. Unfortunately there has been available only a very limited
amount of information on this subject, as in the majority of cases
accident statistics have not been compiled separately for the sexes,
and even when compiled separately the figures for women have been
of little value because of the absence of current figures showing the
extent of women's employment in the various occupations from
which dependable accident rates could be computed. The 1920 census has afforded this base of complete figures by occupation and sex,
and it seemed therefore that the time was opportune for a careful
study of the accident records in certain States in order to see
whether there were any industries or occupations peculiarly hazardous to women. Such a study is now being made in cooperation
with the department of labor of the State of New Jersey. This
State has made available to the Women's Bureau records of all
accident cases which come under the scope of the workmen's compensation law, and the bureau is securing not only the facts as to
the number and kind of accidents but also correlations which show
the earnings, hours, and living conditions of the women injured^
the treatment given them, and their industrial history before and
after injury. This study w i l l be extended to include several more
States where accident records are complete and comijai'able. I t is
hoped that when the material is assembled i t w i l l provide a basis for
the establishment of very definite standards of. protection and care
for women employed in hazardous occupations in the industries of
the entire country.
Conditions of employment in the canning and preserving industry.
A field survey is being made in conjunction with the Children's
Bureau of the United States Department of Labor of the conditions
under which women and children are employed in the canning and
preserving industry in the State of Washington. This study involves an inspection of the living and working conditions of the
w o m p and children working i n the fields and canneries—i)icking,
packing, and preparing fruits and vegetables. Fish canneries also
w i l l be included. The problems of employment in the canning and
preserving industry, which is necessarily seasonal, are very acute and
difficult to solve and are complicated by the fact that the labor supply
is more or less migratory, and living conditions, with large numbers
of employees to be housed by their employer on the ranch or farm,
present unusual situations. I t is expected that the field work on this
survey w i l l be completed by the fall, and i t is hoped that before the
next season opens a constructive standard may have been developed
for the employment of women i n these occupations. ,




BEPORT OF T H E DIKEOTOR OF T H E W O M E N ^S B U R E A U .

17

Operation and administration of minimum-wage laws.
I n view of the recent decision of the Supreme Court of the United
States declaring unconstitutional the minimum-wage law in the District of Columbia, i t was felt that the time was ripe for a careful
study of those laws which are in operation, so that the experience of
the various administrative bodies might be made available for those
who are seeking to establish some method of enforcing wage standards for women. Accordingly a research study is being made of the
history, operation, and administration of minimum-wage laws. This
study is being conducted in a few of the States where such laws are
in operation and where the records make possible a careful analysis
of methods and results. Copies of and methods of using all forms
and schedules are being secured from the States where the study is
carried on. The files of the State minimum wage commissions are
gone over and methods of recording data are reported on, and where
the records are in such form as to give pertinent data on the actual
effect of the law these records are copied, with the intention of summarizing them when the study is completed. The study has already
been carried on in California, Washington, and Oregon, where the
State officials gave the fullest and most helpful cooperation to the
representatives of the bureau. I t is expected that Massachusetts,
because of its unique minimum-wage law, w i l l also be included in the
study, as well as one or two States in the Middle West where differences in locality and methods of administration w i l l afford additional
examples of the way i n which regulation of women's wages can be
achieved.
Research and educational work.
As the Women's Bureau has become a better-known source of information regarding industrial problems and conditions, there has
been a steadily developing demand on the work of the research department. During the past year, in addition to the special study
of minimum wage laws already outlined, the research department
has kept in touch w i t h current changes in legislation affecting wageearning women; i t has revised and brought up to date the bulletin
issued in 1921 showing, through charts and maps, the State laws
affecting working women; it has issued a monthly news-letter outlining national and international activities affecting working
women; it has compiled a considerable amount of information
secured from the Census of Manufactures to show the development
of the employment of women i n certain industries and States; and
it has maintained what has amounted j)ractically to ah information
service for those persons and organizations which have come to the
bureau with inquiries on manj^ different subjects.
The educational and publicity work has also developed considerably during the past year. Two new exhibits for general circulation
have been prepared. One of these exhibits was planned as an appeal
for general recognition of the importance of women in industry
and the social significance of their hours of work and their earnings.
This exhibit has been used successfully at several large conferences
and exhibitions and was especially appreciated at the Women's
Industrial Conference.




18

REPORT OIT T H E DIRECTOR OF T H E W O M E N ^S B U R E A U .

The other exhibit is a smaller one designed for use by groups who
wish to have a popular presentation of the problems connected with
the employment of women in industry, lit is in the form of six
miniature theaters with the backgrounds showing typical factory
conditions and with several figures indicating the application of
certain standards.
A third display of a different type is now being prepared as the
Department of Labor's contribution to a permanent health exhibit
which is being installed in the Smithsonian Museum in Washington.
This exhibit represents a miniature factory showing models of men
and women at work and illustrating in great detail the equipment
and standards necessary for insuring adequate health protection in
industrial establishments.
The film When Women Work is still a popular form of exhibit
and has been used considerably during the past winter, although
after three years' circulation the demand for it is somewhat slackening. Charts and maps showing the occupational distribution of
wage-earning women, their hours and earnings, and the various State
laws regulating their employment have been prepared and circulated
in considerable number.
A new development of the educational work of the bureau has
heen the broadcasting of short talks by radio once a week from
. October until June. The talks prepared for this radio service have
also been released to the newspapers and the returns have been very
satisfactory.
News releases on the bulletins and special activities of the bureau
have been issued, and preparatory to and during the Women's Industrial Conference an extensive information service was carried on.
Publications.
During the year the following bulletins have been published:
No.

26. Women in Arkansas Industries.
27. The Occupational Progress of Women.
28. Women's Contributions in the Field of Invention.
29. AVomen in Kentucky Industries.
30. The Share of Wage-Earning Women in Family Support.
31. What Industry Means to Women Workers.
Bulletin No. 32, Women in South Carolina Industries, is in press,
and the following bulletins w i l l be ready to go to press within a few
weeks:
Women in Alabama Industries.
Women in Missouri Industries.
Domestic Semce.
Proceedings of the Women's Industrial Conference.
Eadio Talks on Women in Industry.
A preliminary report has been prepared and a final report is now
being written on women in New Jersey industries. A preliminary
report has been issued and the final tabulations are now being made
for the investigation of women in Ohio industries. Tabulations
are also under way for the study of women's hours i n 11 States.
Preliminary and experimental tabulations are being made of the
extent and causes of absenteeism among women employed i n textile
mills.



REPORT OF T H E DIRECTOR OF T H E W O M E K ^ S B U R E A U .

19

The coming year.
The bureau's program for the coming year is a very f u l l one. The
slight increase in the appropriation, from $100,000 for the fiscal
year just ended to $105,000 for the fiscal year beginning July 1, 1923,
will not permit of a great enlargement of activities. Nevertheless i t
is hoped that to a considerable degree the bureau w i l l be able to meet
the requests that have been made for special information, while
at the same time carrying on the work which has been started and
developing certain new lines of research which seem to be urgently
in need of attention.
The study of absenteeism, accidents, and minimum-wage law^s will
be continued. Requests have been made for studies of conditions
affecting women in industry in Illinois, North Carolina, and Oklahoma. IVhile it does not seem likely that all of these requests can
be met, effort w i l l be made to undertake studies in States most
urgently in need of such assistance in order to secure information
of this nature,
A request has also been made that the Women's Bureau shall
undertake a study of the employment records of certain States where
adequate statistics are compiled, with a view to determining whether
or not the unemployment problem among women presents any
unusual aspects which should make i t a subject to be considered
separately from that of men.
I t is hoped that further studies based on census records may be
imdertaken in the near future. A n intensive study of the occupational data secured by the census for foreign-born women to show
the occupational conditions and opportunities for women of different
nationalities in the various sections of the United States has been
asked for by a group of persons interested in the establishment of a
better understanding of American life and opportunity among the
foreign-born population of the United States. I t seems that information compiled with this end i n view would be a definite contribution to the body of facts upon which can be based a satisfactory
policy for the education and treatment of the foreign born. A careful examination and selection of census material as i t applies to
women in industry and the issuance of such material in popular form
would also be of considerable value in outlining to the general public
the scope and the details of the problem of the employment of women
in industry.
The great interest which the past year has witnessed in the methods
and results of legislation to regulate conditions for women points to
the need for an authoritative study and discussion of these matters,
and the growing desire for information pertaining to women in industry has emphasized the need for a critical bibliography on this
subject. I t is hoped that a study of legislation affecting women may
be arranged for and that through a cooperative arrangement with
the librarian of the department a bibliography may be compiled. *
A request has been received for a study of health conditions for
women employed in telephone exchanges. As such a study would
necessarily involve medical as well as industrial knowledge and experience, i t is hoped tliat a cooperative arrangement may be made between the Public Health Service and the Women's Bureau, so that




REPORT OF T H E DIRECTOR OF T H E WOMEIST^S B U R E A U . 20

both interests may be represented in any investigation which may be
undertaken.
Finally, i t seems that for the coming year there is an urgent need
for development of the educational work done by the bureau. There
is a very insistent demand for popular articles in magazines and
newspapers, dealing with the subject of women in industry. The
radio service carried on during the past winter has been the outstanding development along these lines for the past year. Its* success has led to the feeling that considerably more time should be
devoted to popularizing the valuable material which is collected and
published by the bureau.
From an administrative point of view the past year has been a
successful one. Throughout the year and especially during the time
of the Women's Industrial Conference the bureau has received the
fullest cooperation from the other bureaus and divisions of the department. The staff of the bureau has increased from 39 to 47.
There have been 24 new appointments and 16 separations from the
service. Several of these separations were the result of the restriction of sajaries under which the bureau operates. W i t h this restriction to $1,800 a year i t is not possible to hold agents who have far
more advantageous offers for similar employment outside of the
Government service.
Problems of administration w i l l center in the future, as they have
done in the past, mainly around the proper classification of the employees in the bureau. So far as it has gone, in most particulars the
classification of the staff of the Women's Bureau promises to be satisfactory. Upon the successful application of this reclassification depends much of the future work of the bureau, and i t is with the
keenest concern that we await the final allocations that w i l l be made.
M A R Y A N D E R S O N , Director,
H O N . JAMES J . DAVIS,

Secretary of Labor.




o