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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