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MONTHLY REVIEW
OF THE
U. S. BUREAU OF LABOR STATISTICS
WASHINGTON
VOL.V—n o . 6
D e c e m b e r , 1917
COST OF LIVING IN THE DISTRICT OF COLUMBIA.
THIRD ARTICLE— THE FEEDING OF THE FAMILY.1
The second article in this series, published in the November issue
of the M o n t h l y R e v ie w , brought out the fact that a very large pro
portion of the low-income families of Washington were not spend
ing enough money upon food to maintain the family members in
good health. The conclusion was based on the assumption that an
adult male could not be maintained in health at a less expenditure
than 31 cents per day for raw food at present prices. This minimum
standard of 31 cents per day was based upon earlier studies, with
allowance made for recent increases in the cost of food.
A special dietary study made by this bureau in cooperation with
the Department of Agriculture, the results of which were not com
pletely tabulated at the time the above article was published, reaches
substantially the same conclusion—namely, that 30 cents is the least
sum upon which an adult male could be properly fed at the prices
now prevailing.
And such a sum, it must be emphasized, is not offered as a guide to
proper feeding. It is no more than the theoretical minimum upon
which health could be maintained provided that the housekeeper
has a perfect scientific knowledge of food values and food buying,
that there is absolutely no waste in cooking and eating, and that
eating is a mere mechanical process of stoking the stomach with
food to keep the fires of life burning. As a matter of fact, of course,
it is wildly incorrect to assume scientific knowledge of food on the
part of the average housewife; some waste is absolutely unavoid1 Some of th e m ore im p o rta n t studies used as reference in th e p re p a ra tio n
a rtic le w ere :
T he chem ical com position of A m erican food m a te ria ls, by W. O. A tw ater.
No. 28, D ept, o f A g ricu lture.
How to select foods, by C aroline L. H u n t an d H elen W. A tw ater. F a rm e rs ’
No. 808, D ept, of A g riculture.
H ousehold w aste an d w ays to avoid it, by C aroline L. H u n t. C ircu lar of M ay
Office of Hom e Econom ics, D ept, of A griculture.
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Federal Reserve Bank of St. Louis
[1073]
of th is
B ulletin
B ulletin
9, 1917,
1
2
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
able; and eating itself is inevitably, and perhaps desirably, a source
of much enjoyment. To those of very small incomes the pleasure
associated with daily eating is one of the most important incentives
for keeping alive at all.
The minimum of 30 or 31 cents a day for food per adult male is
thus extremely low. But the startling fact, as was pointed out in the
earlier article, is that, even when such standards are taken and no
allowance is made for waste and ignorance, a very large number of
the families covered by this investigation fall below the “ minimum
of subsistence ” line and many fall far below.1
PROPER FOOD NOT ALTOGETHER A MATTER OF COST.
For all of the families falling below the 30-cent-per-day minimum,
an analysis of diet would have little interest. Most of them were
spending as much as they could on food and no better knowledge of
food values and food buying would make possible the obtaining of
a diet adequate to healthful living. To preach to such families the
“ gospel of the clean plate,” or to oifer them dietary advice, would be
bitter irony.
But undernourishment and bad nourishment are not entirely mat
ters of insufficient expenditure for food. Often they are due to a
bad distribution of the amount expended, to lack of knowledge of
food values, and of the needs of the human body.
With this fact in mind, the investigation of the cost of living in the
District of Columbia was made to include a special dietary study of
a group of families. From the data obtained it is possible, by com
parison with recognized standards, to judge whether the families
were undernourished or overnourished and whether the housekeepers
were wise in their selection of food. Also it is possible in some in
stances to point out wherein a different selection of food would have
furnished a more nutritious diet for the same expenditure, or one
equally nutritious for a less expenditure.
PLAN OF THE DIETARY STUDY.
The study was made by the Bureau of Labor Statistics in coopera
tion with the Office of Home Economics of the Department of Agri
culture. In such an inquisitorial and difficult undertaking as a diet
ary study the value of the results obtained depends entirely upon the
intelligence displayed in gathering the facts (the raw material for
tabulations) and in making generalizations therefrom. Three special
agents of the Bureau of Labor Statistics, chosen because of their tact
and special training and experience in dietetics, were assigned to do
the field work under the supervision of Dr. Charles F. Langwortliy and
1 See
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Federal Reserve Bank of St. Louis
M
o n th ly
R
e v ie w
fo r Novem ber, 1917, pp. 2 -4 .
[1074]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
3
his staff in the Division of Home Economics. The families studied
were selected by these three agents, each agent limiting herself to
about three families in any one week, so that she could visit each
family every day for the purpose of weighing and estimating the
quality of the food purchased and weighing and estimating the
amount of foodstuffs going out as garbage. The agent first won
the hearty cooperation of the families and through her daily visits
was able to check up accurately every item of kitchen income and
outgo.
The families cooperating were 31 in number, 23 white and 8
colored, with incomes varying from $400 to $1,600 per year. They
were chosen from the list of those who had previously cooperated by
furnishing data for the general cost of living investigation. Each
of them conformed to the usual definition of a typical family, i. e.,
man, wife, and two or more children under 16 not earning money,
and no boarders or roomers in the household. The study of each
family’s diet covered a period of a week, counted as 21 meals, and,
with four exceptions, all were made in the month of May, 1917, the
four exceptions falling in April, June, and July.
All food in the house was weighed on the first day of the study,
and all food purchased through the week was similarly weighed.
From the total weight of food of various kinds on hand or pur
chased during the week was deducted the weights of the various
foods on hand on the last day of the study. The weight of the
garbage day by day was also subtracted. This gave the amount
actually consumed by the family. The Bureau of Labor Statistics
furnished scales and trays for weighing, a garbage can for keeping
the table and kitchen waste, and blank forms for entering the food
purchased during the week. Facts were also obtained by the agents
regarding the sex, age, weight, occupation, and number of meals
taken by each member of the family, and the number of meals taken
by guests, if any.
HOW WE CHOOSE OUR FOOD.
Very few people understand what their food contains or whether
the food they eat is fitted to the needs of the body. The extent of
the common knowledge is roughly indicated by that of the little
girl who eats bread crusts to make her hair curly and by that of the
man who eats fish to develop his brain power. As a result of this
ignorance there is great waste in the purchase and use of food, loss
of money, and injury to health. The food costing least per pound
may be and often is the most expensive per unit of nourishing
value. The stuff eaten by store and factory employees, especially
young girls, often serves merely to tickle the palate and not to fur
nish fuel and tissue for the body.
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Federal Reserve Bank of St. Louis
[1075]
4
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Even though so much valuable work has been done by the Depart
ment of Agriculture and others on the subject of the nutrition of
man, very few people have informed themselves of it or make any
use of it. I t is not possible, in this place, to enter into an extended
discussion of human nutrition. But it is desirable to point out
briefly what may be considered as necessary to a well-balanced diet,
in order to make clear the results of the present study.
WHAT CONSTITUTES A WELL-BALANCED DIET?
A “ balanced ” ration, as the term is used in connection with meal
planning, is one which provides a mixed diet made up of varied and
sufficient food to meet all bodily needs. I t is absolutely essential
that the diet contain different kinds of food in order that life and
health may be maintained. When people live for a considerable
time on a too restricted diet they develop various definite diseases.
Thus, the rice diet of the poor people of Japan leads to beriberi;
scurvy is caused by too much salt meat and lack of fresh vegetables;
and the lack of lime in the food of children produces rickets. In
addition, variety is desirable because food is more perfectly utilized
when taken as part of a mixed diet than when taken alone. A
dinner of pork chop, macaroni and cheese, suet pudding, and choco
late would be a bad combination because it would preponderate in
the fatty foods. A dinner of baked potato, halibut, spinach, bread,
butter, and Indian pudding would be more nearly balanced.
The three nutrients found in food are protein, fat, and carbohy
drates (starches, sugars, and cellulose). The body demands a cer
tain proportion of each of these and the amounts eaten must be
sufficient to produce a certain fuel value. In the actual serving of
meals, these three nutrients may be obtained through various com
binations of foods. For this purpose food may be divided into five
classes and it is very important that the food consumed during the
day should contain a fairly definite proportion from each of these
groups. The five classes are shown in the following list, with the
approximate amounts which will furnish a balanced ration and a
fuel value o*f 8,000 calories for the support of one adult male for one
day at moderate muscular work. These amounts are liberal rather
than bare minima.1
R ich and
co m paratively
expensive diet.
Protein foods: Meats, eggs, etc-----From 16 oz.
(4 oz. of milk may be substituted for 1 oz. of
F atty foods______________________ From 3 oz.
Cereals and other starches________ From 9 oz.
Sweet foods______________________ From 3 oz.
Cellulose : F ruits and vegetables__From 2 lbs.
down to------- 10 oz.
other protein food.)
down to---------1 \ oz.
up to-------------20 oz.
down to-------- 1* oz.
down to---------1 lb.
1 H ousehold w aste an d w ays to avoid i t j by C aroline L. H u n t.
Office of H om e Econom ics, D ept, of A g ricu ltu re.
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Federal Reserve Bank of St. Louis
[10761
P la in and
com paratively
cheap diet.
C ircu lar of M ay 9, 1917,
M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S ,
5
For convenience in the proper selection of foods according to the
above standards, the following classification of the more common
foods is given.
1. Foods rich in protein:
Lean meat of all kinds.
Fish, etc.
Poultry, game.
Eggs.
Cheese.
Milk.
Dried beans, peas, lentils,
beans.
N uts (except chestnuts).
2. Foods rich in fa t:
Butter, oleomargarine.
Lard, suet, cooking fats.
Oils.
Bacon, fa t salt pork.
Cream.
Chocolate.
3. Foods rich in starch :
Wheat, corn, barley, rye, etc.
Bread, crackers.
B reakfast foods.
Macaroni, etc.
Rice, tapioca, hominy.
Potatoes.
Bananas.
Chestnuts.
4. Foods rich in sugars:
Sugar.
Molasses, honey, etc.
soy
4. Foods rich in sugars— Concluded.
Candy.
Jellies, preserves.
Dried fruits.
Sw eet cakes.
Desserts.
5. Foods rich in cellulose and m in
erals
( body-regulating
sub
stances) :
F ruits—
Apples, pears.
Berries, cherries.
Muskmelons, etc.
Oranges, lemons, grapefruit.
Rhubarb.
Figs, etc.
Vegetables—
Greens, spinach, dandelions,
etc.
Green beans, peas, etc.
Beets, carrots, parsnips, tur
nips, radishes.
Cabbage, brussels sprouts,
cauliflower.
Onions, lettuce, celery, to
matoes.
Squash, cymling.
Okra, artichokes, asparagus,
etc.
FUEL VALUE OF FOODS.
By fuel value is meant the energy-giving quality of food and.
broadly speaking, it is the principal measure of the nutritive value
of food. This fuel value, or energy, is expressed in terms of calories.
Thus, the calorie is the unit measure of heat, the same as the pint is
the unit liquid measure. It is the amount of heat required to raise
one pint of water 4° F. Foods can be burned in a special apparatus
to determine the fuel value. Experiments made with the respiration
calorimeter to measure the energy used up by a man proves that the
heat generated by a given amount of food is the same, whether it is
burned in a crucible or used up (burned) in the human body.
But the number of calories which a given weight of food yields
is not a completely safe guide to its nutritive value. It is a guide
to the extent that all nutrition experts agree that a sufficient number
of calories is the main thing to be sought for in providing a diet. It
is an unsafe guide, unless the housekeeper remembers that the neces
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[1077]
6
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
sary calories are to be taken from a varied selection of foods in order
to get the different materials which the body needs for growth—
that is, the housekeeper should choose her foods from all of the five
food classes mentioned above (fruits, meats, etc.) in order to get
as nearly as possible a “ balanced ” diet.
DIFFERENT AMOUNTS OF FOOD REQUIRED BY PERSONS OF DIFFERENT SEXES,
AGES, AND OCCUPATIONS.
Age, occupation or activity, and size are the most important factors
influencing the total food requirement of the body. Activity of the
body includes the muscular movements required in the performance
of all internal and external work, as digestion, assimilation, circula
tion, shoveling, sewing, walking.
In general, it appears that the food requirements of men and
women of equal activities are in proportion to their body wTeights,
and the amount required by children varies primarily with age.
Women, on the average, weigh about eight-tenths as much as men,
and it is commonly assumed that if equally active their food require
ments will stand in the same proportion. I t is customary to assign
certain factors which will represent, approximately, the amount of
nutrients required by different persons as compared with an adult
man engaged in moderate muscular labor. The factors are based
in part upon actual investigation and in part upon arbitrary assump
tion. They are subject to such revision as future experimental evi
dence may warrant. Representing by 100 the needs of a man at
moderately active muscular work, the relative amounts of food con
sumed by men and women at different kinds of work and by children
of different ages are given in the following table:
M an :
At hard muscular work------------------At moderately active muscular work.
At light muscular work------------------Sedentary occupation---------------------Man or w om an:
Old age „---------------------------------------E xtrem e old age----------------------------W om an:
At moderately active w ork.,-----------At light w o r k --------------------------------Boy:
15-16 years------------------------------------13-14 years________________________
12 years------------------------------------------10-11 years-----------------------------------G ir l:
15-16 y e a r s -----------------------------------13-14 years ________________________
10-12 y e a r s ------------------------------------
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[1078]
120
100
90
80
90
70-80
80
70
100
90
70
60
90
70
60
MONTHLY REVIEW OF TILE BUREAU OF LABOR STATISTICS.
C h ild :
6-9 y e a r s -------------------------------------------------------------------2-5 years_____________________________________________
Under 2 years___________________________
7
50
40
30
By the use of the above table the food consumption of the various
family members can be expressed in terms of adult males, and it
thereby becomes possible to compare the food consumption of families
of varying sizes, made up of members of different ages and occu
pations, on a common basis as to cost and adequacy of the diet.
ANALYSIS OF THE DIETARIES OF 31 FAMILIES.
The results of the analysis of the 31 dietaries are shown in three
tables presented with this article. Table 1 shows each family’s ex
penditures by the familiar food groups such as “ fruits and vege
tables,” “ meats,” “ starches,” etc. Table 2 shows the amounts per
man per day1 of the three nutrients or chemical compounds—protein,
fat, carbohydrates—derived from the foods consumed by the family.
Table 3 shows the distribution of the expenditures for the principal
items of food, as meat, milk, eggs, flour, sugar, etc.; also a column for
“ other foods,” which includes seasonings, cocoa, salad dressing, beer,
etc.
The following discussion is limited to the data of Table 1 as the
classification there used is familiar and may be of practical value in
the actual planning of family menus. The table shows clearly the
composition and income of each family, its expenditures for food,
and the cost and amounts of the different kinds of food consumed.
The foods are divided into the five main classes: (1) Fruits and
vegetables, i. e., foods valuable chiefly for minerals and cellulose;
(2) meats, milk, and other protein-rich foods, such as fish, eggs,
cheese, legumes, and baked beans; (3) cereals and other starchy
foods, such as flour, bread, corn meal, rice, potatoes, macaroni, etc.;
(4) sweets, such as sugar, molasses, candy, sweet pastry, dried fruit,
etc.; (5) fatty foods, such as butter and lard and their substitutes, salt
pork, bacon, and chocolate. The miscellaneous column covers such
items as tea, coffee, seasonings, etc. Those foods which contain
1 T he m ethod used in th e d etailed c alcu latio n s o f th e am o u n ts of food consum ed “ per
m an, per d ay ,” w as briefly as follow s :
T he fam ily w as first reduced to num ber of eq u iv alen t a d u lt m ales, by th e use of the
fa c to rs given on pages 6 an d 7 an d th e num ber of m eals tak en w ere calcu lated in term s
of an a d u lt m an. An exam ple w ill m ake th is p lain er. T hus, a p a r tic u la r fam ily would
be calcu lated as follow s :
Age. O ccupation.
F a c to r.
M eals.
X
C a rp en ter
15 =
1. M an
18. 0 m eals by a d u lt m an.
1. 2
H ousekeeper ___ 0. 8
X
21 =
16. 8 m eals by a d u lt m an.
2. W oman
X
21 =
10. 5 m eals by a d u lt m an.
0. 5
6 A t school
3. Girl
0. 3
X
21 =
6. 3 m eals by a d u lt m an.
4. Boy _
3 A t home
51. 6 m eals by a d u lt m an.
F am ily equals
2. 8
.Total ad u lt-m an m eals (51.6) divided by 3 (co u n tin g 3 m eals a day) gives 17.2 days
p er m an, or th e eq u iv alent of 1 m an fo r 17.2 days.
Next, th e am o u n t of food consum ed by th e fam ily is divided by th is l a t t e r figure—
17.2— an d th e re su lt is th e am o u n t consum ed “ per m an per d ay .”
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[1079]
8
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
T
able
1.— ANALYSIS OF D IE T A R IE S OF 31 FAM I
Expenditures for
food.
Family No.
1
Equiv Num
alent
of
Num adult ber
chil Annual
ber in males dren
fam con under income.
sum
ily.
12
ing
food.1 years.
2
3
4
0
4
9
3.8
3.5
5.4
4
2
6
5
Per
cent Total
for
of in week.
come.
6
7
Per
man
per
day.
8
Fruits and
vegetables.
Amt.
con
Cost
per sumed
family per
for . m an
per
week.
day.
9
10
W h ite .
Annual income $500 and under
$700:
..........................
1
2
..................................
O z.
6.3
Annual income $700 and under
$1,000.
4 .........................................
5
............................
6
...............................
7
..................................
......................................
8
9 .........................................
5.8
3.8
2.6
3.6
3.9
2.8
9
5
4
6
6
4
5.7
Annual income $1,000 and un
der $1,400:
10
...............................
11 ........................................
12
......................................
13
....................................
14 ........................................
5
4
.4
5
4
4
3.7
3.7
4.3
3.6
3.6
3.9
4.3
Annual income $1,400 and un
der $1,700:
16.............................................
17.............................................
18 .........................................
19
..................................
20 .........................................
21
..................................
22
23.............................................
6
4
5
6
6
4
4
5
Average...............................
5
4.4
2.6
3.5
4.0
4.9
4.1
4.6
3.3
$575
624
624
73
77
84
4
607.67
77.9
6
2
2
4
4
2
720
720
738
821
900
965
80
75
48
63
60
47
3.3
810.67
61.3
$8.031 $0.331
9.222
.525
10.06.
.266
$0.435
1.08
.47
2.2
7.9
2.9
9.104
.357
.662
4.1
11.10
10.368
6.798
9.888
10.395
8. 811
.273
.451
.41
.392
.417
.45
.89
2.227
.906
1.46
1.59
1.17
2.9
12.5
11.5
7.7
9.7
9.1
9.560
.385
1.374
8.2
2
2
2
3
2
2
1,000
lj 050
1,056
1,200
1,300
C352
50
39
39
57
33
24
9.55
7.833
7.943
13.67
8.35
6.159
.369
.387
. 466
.542
.41
.308
1.53
1.215
.942
2. 26
.97
.53
6.8
9.9
6.6
9.4
5.0
5.8
2.2
1,159.67
40
8.918
.414
1.241
7.2
4
1.400
2
1.400
1, 464
3
3
l ”475
4 - 1 500
2
1,580
1
1,600
3
1,626
45
38
37
46
42
20
32
29
12.03
10.165
10.377
13.044
12.175
6.124
9.695
9.165
.458
.559
.438
.448
.43
.34
.445
.397
1.59
1.34
1.25
1.19
.68
.635
2.205
1.36
8.0
13.9
7.5
5.8
7.5
6.8
15.6
9.8
2.8
35.7
10.347
.435
1.28
9.2
1,505.63
Colored.
Annual income $400 and under
$700:
24 .........................................
25
......................................
26.............................................
27 ...........................................
Average..
-. . .
Annual income $700 and under
$1,000:
28.............................................
29.............................................
30.............................................
31.............................................
4
4
6
5
2.7
4.0
3.9
3.1
4.8
5
4
5
4
4.2
3.1
3.1
3.8
2
2
4
3
450
520
540
600
87
41
51
48
7.55
4.13
5.309
5.52
.399
. 194
.217
.261
1.02
.30
.60
9.0
2.7
2.1
5.9
2.8
527.50
55. 5
5.627
.256
.59
4.5
3
1
3
2
765
846
900
901
55
43
44
63
8.04
6.982
7.618
10.875
.317
.321
.351
.511
.65
.91
.57
2. 72
3.8
6.1
4.1
15.3
4.5
2.3
853
51.1
8.379
.377
1.21
7.4
All colored....................................
5.2
4.6
2.9
2.5
1,116.96
' 690.25
44.7
52.8
9.607
7.003
.406
.318
1.21
.90
7.7
6.0
Total, white and colored..
5.0
2.8
1,006.84
46.1
8.935
.385
1.13
7."3
Average.............................
Approximate amount per m an p er day 3onsidered necessary...........................................
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1 Some of these include visitors.
[1080]
1 to 2 lbs.
9
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
L IE S , BY T H E 5 F A M IL IA R FOOD GROUPS.
Meats and other protein-rich
foods.
Fresh
Amt.
con
Cost per sumed Cost
family
per
per
for week. man family
per
for
day.
week.
11
12
Qt.
0.0
.4
.1
$0.00
.70
.44
3.47
9.6
.38
3.40
4.337
1.25
3. 835
3. 70
3.519
5.0
12.8
6.9
8.0
9.7
10.2
3.340
8.5
3.56
3.11
2.52
3.55
3.11
2.55
8.9
11.0
7.6
F atty foods.
Fuel
Miscel value
per
laneous. man
per day.
Amt.
Amt.
Amt.
Amt.
con
con
con
Cost
Cost
con
Cost
sumed Cost per sumed
per
per
sumed
sumed
per
per
family
family
family
per
per
per
family
man for week. man
for
for
man
m an
for
per
per
week.
week.
per
per
week.
day.
day.
day.
day.
14
Oz.
7.9
14.9
7.3
Sweets.
milk.
13
$2.19
4.38
3.85
Cereals and other
starchy foods.
15
16
17
$3.071
2.105
2.56
Oz.
24.5
23.2
15.3
$0.94
.495
.59
.15
2.579
20.2
.50
.15
.41
.65
.275
.43
.1
.1
.2
.2
.1
.2
4.04
1.816
1.571
2.283
2.18
1.82
.403
.14
9.8
10.7
9.4
.30
.40
1.62
.43
.58
.0
3.07
9.5
.56
3.39
3.105
3.984
4.62
4.26
1.56
2.95
1.48
7.7
11.8
10.6
9.1
10.7
4.7
8.3
3.6
1.41
1.20
.51
.724
.55
1.45
.825
.94
3.169
8.3
2.05
2.24
2.325
1.435
18
Oz.
19
20
21
Calo
ries.
22
6.1
4.4
2.7
$1.03
.382
1.01
Oz.
2.4
1.3
2.0
.675
4.2
.807
1.9
17.1
13.4
17.0
12.5
16.9
14.5
.72
.643
.446
.71
.89
.662
2.5
3.0
3.4
4.2
5.5
3.7
1.35
.835
.79
.69
1.44
.68
1.7
1.9
3.1
1.9
2.4
2.0
.20
.36
1.425
.26
.32
.53
2,473
2,793
3,226
2,645
3,031
2,990
2.285
15.4
.679
3.6
.964
2.1
.516
2,802.6
.1
.2
.9
.2
.4
.0
2.21
1.293
1.223
3.59
1.49
1.821
17.2
12.2
12.0
20.9
12.9
17.9
.67
1.13
.445
1.41
.97
.35
3.8
6.4
3.8
7.7
5.1
3.2
1.03
.575
.966
1.89
.70
.738
2.2
.9
2.7
3.5
1.4
2.4
.25
.11
.227
.54
.53
.17
2,953
2,538
2,927
4,028
2,683
2,418
.3
1.938
15.4
.829
4.9
.983
2.2
.305
2,916.3
.6
.7
.2
.8
.4
.4
2.954
2.856
2.178
2.957
3.74
.805
1.345
2.40
20.0
25.9
12.6
17.9
23.1
9.8
11.1
16.3
1.033
.49
1.37
1.893
.925
.643
.72
.955
4.8
4.3
6.2
5.7
5.1
5.0
4.5
3.4
1.653
1.154
.965
1.46
1. 50
.801
1.49
1.88
2.3
4.8
1.8
2.1
2.9
2.9
2.5
3.5
.0
.02
.12
.20
.52
.23
.16
.15
.951
.4
2.404
16.9
1.004
4.9
1.363
2.8
.175
3,199.9
5.8
8.2
6.8
4.4
.35
.0
.45
.494
.2
.2
.2
.0
1.97
.88
1.36
1.44
16.5
7.7
11.5
15.9
1.14
.27
.279
.58
9.0
2.3
1.8
2.8
.81
.17
.555
.835
2.5
.5
1.1
2.5
.21
.12
.04
.136
3,264
1,920
2,142
2,924
2.01
6.5
.324
.14
1.41
12.4
.567
3.6
.59
1.5
.127
2,475.2
3.48
3.156
2.335
4. 29
9.2
12. 2
7.7
12.6
.45
.0
.363
.40
.0
.2
.2
.2
1.60
1.576
1.923
2.025
15.7
13.1
16.4
15.4
.81
.46
.685
.82
6.2
3.7
5.8
3.9
.98
.78
1. 665
.48
2.5
1.9
3.6
1.3
.07
.10
.077
.14
3,334
2,882
3,380
3,244
.097
3,221.3
.2
.2
$0.365
.08
1.14
3,295
3,893
2,728
.528 3,218.7
3,470
4,437
2,940
2,893
3,801
2,763
2,820
2,693
3.315
10.4
.303
.16
1.781
15.2
.694
5.0
.976
2.3
3.23
2. 66
8.8
8.5
.63
.313
.29
.15
2. 27
1.597
16.6
13.8
.830
.631
4.5
4.3
1.087
.784
2.3
1.9
.344 3,030.3
.112 2, 854.9
3.08
8. 7
.518
.25
2.10
15.9
.779
4.4
1.01
2.2
.284 2,988.0
5 to 8 OZ.
0.6 to 3.9 qt.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
9 to 20 oz.
[1081]
1.5 to 3 oz.
1.5 to 3 oz.
3,000
10
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
several different nutrients, and most of them do, are put under the
heading representing the nutrient for which they are most valuable.
For each of the five classes there is shown the total weekly cost
and the amount consumed per adult male per day. In order to deter
mine the amount consumed per man per day all members of the
family are converted into terms of adult males according to the
method noted in a preceding paragraph. Allowance is also made for
all visitors eating with the family during the period covered.
Per cent of income spent for food (column 6).—In accord with
usual experience, the per cent of the family’s income spent for food,
as shown in column 6, is seen to decrease as the incomes increase. In
other words, the poorer the family the larger the proportion of its
expenditures that must go for food. As regards the 23 white families,
this proportion varies from 20 per cent in the case of family No. 21,
with an income of $1,580 per year, to the astonishing figure of 84
per cent in the case of family No. 3 with an income of only $624 per
year. Even then, however, this latter family was probably not suffi
ciently fed, the average daily food expenditure per man being only
26.6 cents. Colored family No. 24 is even worse off, spending 87 per
cent of its income for food.
Food expenditure per man per day (column 8).—The figures in
this column measure roughly the sufficiency of the family food ex
penditure, although it does not indicate whether the expenditure is
wisely distributed. The average food cost per man per day, it will
be noted, ranged from 26.6 to 55.9 cents among the white families
and from 19.4 to 51.1 cents among the colored. That the lowerincome families had the lower expenditures for food is to be ex
pected, not because they consciously figured how to get the most
nutriment for the least money, but simply because they did not have
more money to spend. But among the white families the advance
in food cost per man per day was by no means uniform with in
creasing income. The several families also show a very great varia
tion in the return for the money as measured by calories. Thus,
family No. 5 spent 45.1 cents per man per day but got only 2,793
calories, whereas family No. 27 spent only 26.1 cents but got 2,924
calories, which is almost the standard of 3,000 usually considered
necessary.
DISTRIBUTION OF FOOD ITEMS.
Fruits and vegetables (columns 9 and 10).—Although none of the
averages for the income groups is up to the standard assumed to be
necessary in fruits and vegetables, it is noted that the amount eaten
per man daily is just about twice as much in the highest-income
group in both white and colored as it is in the lowest-income group.
This would indicate that people with limited incomes will spend for
meat first, and if they have any money left will then buy a few
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Federal Reserve Bank of St. Louis
[1082]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
11
vegetables. The general idea seems to be prevalent that meat is the
all-important thing in keeping one alive and that all sorts of dire
things may happen if there is no meat on the table.
It will be noted by comparing the amounts of fruits and vegetables
consumed, with the approximate amount considered necessary (about
1 to 2 pounds per man per day), that all the families were low in
the provision of these foods except possibly two families, No. 22,
white, and No. 31, colored; and No. 31 did not have enough to
offset the high amount of protein foods eaten.
Meats and 'protein-rich foods (columns 11 to lid).—These are the
body-building foods, a certain amount of which is indispensable
for growth and repair. An examination of the expenditures for
these foods shows a marked contrast to those for fruit and vege
tables, namely, that the great majority of families, all but three in
fact, consumed sufficient protein foods—in many cases too much.
These three families consumed, respectively, 4.7, 3.6, and 4.4 ounces,
and were thus not very far below the assumed standard of 5 to 8
ounces per man per day. Some physiologists think this standard for
meat consumption too high.
Milk, although it belongs in the class wTith meat and protein-rich
foods, is shown in separate columns (13 and 14) because of its very
great importance as a suitable food for children, being valuable for
minerals, and especially so for lime, which goes to make bone. The
small amount spent by colored people for milk is doubtless respon
sible for the bowlegs and pinched look of many of their children.
In fact, none of the colored families used a sufficient amount, and
two families (Nos. 25 and 29) used absolutely no fresh milk, although
there were two children in each family. No. 29 did use" one-half
quart of condensed milk during the week. I t has frequently been
stated that a quart of milk a day is not too much to provide for each
young child in the family—say between 2 and 12 years.
In the milk consumption “ per man per day” (column 14), from
0.6 to 0.9 of a quart of milk is figured as the standard. By compar
ing the amounts used with this standard a marked absence of this
important article of food is seen. Two families among the whites
used no fresh milk—No. 1, with four children, and No. 15, with
two children. They used one-lialf quart and 0.3 of a quart of
condensed milk, respectively, during the week, but condensed milk
in any amount can scarcely be accepted as a substitute for fresh milk.
Among the white people five families used only the low amount
of 0.1 of a quart per man daily, and only four families (Nos. 12, 16,
17, and 21) seemed to use a sufficient amount. These four used,
respectively, 0.9, 0.6, 0.7, and 0.8 of a quart per man per day. Only
one of these families used any condensed milk in addition, No. 21
using 0.3 of a quart during the week.
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Federal Reserve Bank of St. Louis
[1083]
12
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Cereals (columns 15 and 16).—Cereals and such other starchy foods,
as potatoes and macaroni, are a cheap source of fuel or energy for
the body. Thus, the less money a housekeeper has to spend, the more
she should rely on cereals to give the required number of calories.
The figures in column 16—giving the amount of cereals consumed per
man per day—show that most of the families consumed enough
cereals. Nevertheless nine white and three colored families consumed
less than 15 ounces per man per day, which may be considered a fair
average amount. An inspection of the detailed figures shows that
the cost per man per day was consequently high and the calories
received were low in these nine white families without exception.
They all fell below the standard (3,000 calories per man per day)
in spite of their relatively high food expenditures, which ran from
34 to 46.6 cents per man per day, most of them being above 38.7 cents.
The three colored families who were low in consumption of cereals
(Nos. 25, 26, and 29) got a better return in calories for their money,
but were still below the required number. In these families the
daily cost per man was 19.4 cents, 21.7 cents, and 32.1 cents, and the
number of calories received was 1,920, 2,142, and 2,882, respectively.
Sweets (columns 17 and 18).—Here, as in the case of meats, there
is an overabundance in consumption. By comparing the amounts
eaten (column 18) with the average amount recommended, about
2 ounces, the figures show that in all families except one there was an
excess consumption of sweets, the amounts eaten in many cases being
from twice to three times as much needed.
Fats (columns 19 and 20).—The figures here also show a general
oversufficiency. By comparing the amounts (column 20) with the
standard of 1 | to 3 ounces per man per day, it appears that only six
families fell below this amount—three white and three colored.
Family No. 25 was decidedly the lowest. Five families consumed
over 3 ounces.
Fuel value (column 22).—The meaning of fuel value has been ex
plained in the preceding pages. The best authorities allow an average
of about 3,000 calories as the daily requirements of a man at moderate
muscular work, and this standard is used in the present study. From
an inspection of the figures in column 22, it will be seen that 19
of the families received less than 3,000 calories per man per day,
the lowest (No. 25) receiving only 1,920 calories. The other 12
families all received over 3,000 calories per man per day, the highest
being 4,437 (No. 17).
COMMENTS ON SELECTED FAMILIES.
Interesting side lights on diet and possible,improvement in dietary
distribution appear in the following more detailed analysis of the
expenditures for the week of four of the families listed in the table:
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Federal Reserve Bank of St. Louis
[1084]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
13
Family No. 8 spent three-fifths of its annual income for food, and
the total protein, fat, carbohydrate (and energy) supplied would
seem to indicate that the diet was well planned. But it may be
noted that almost one-half of the total expenditure for the week was
for meat, eggs, and butter, all three of which are very expensive.
Also it is .important to point out that the value of milk for children
has been overlooked, as about 3 quarts had to supply the needs of
father, mother, and four children under 9 years of age during the
entire week. The amount of cereals used was insignificant, except
that served in the form of bread, but the allowance of sugar was
generous. Too much canned goods was used, considering the fact
that certain fresh fruits and vegetables were available at relatively
low prices.
Family No. 13 furnishes an example of relatively extravagant food
habits. The total energy furnished is very generous, as is the pro
portion of the total income spent for food. For butter $1.23 was
spent. The amount for fresh milk was small, as only 43 cents was
expended for this very wholesome food, providing only 4.3 quarts
for the week for a family with three children. Cereals were practi
cally omitted except as served in wheat breads, and even these were
partly furnished in expensive forms. Sweets were also furnished in
considerable excess. I t is obvious that less food could have been
served had ]t been better selected. Less meat and cheaper cuts could
have been used and more money spent for milk. Also the quantity of
fat could have been reduced, and at least a part of that supplied in
the expensive form of butter replaced by a cheaper fat. Some of the
money expended for sweets should have purchased more liberal
amounts of cereals. These few simple changes would have made a
better and cheaper diet.
Family No. 20.—The protein, fat, carbohydrate, and calories per
man per day are in excess of the amount usually considered necessary.
However, in spite of the fact that there were four children in the
family, only 55 cents was spent for fresh milk (5.5 quarts), while
$3.19 was expended for meat and fish. With the exception of bread,
very little cereal food was included in the diet, but more than twice
the necessary amount of sugar was used. The amounts of fresh fruit
and vegetables were small. Had less money been expended for meat
and sugar and more for fresh milk, cereals, fresh fruit, and vege
tables, the diet could have been made not only more satisfactory
from a nutritional standpoint, but much less expensive.
Family No:25 spent only 19.4 cents per man per day for food. At
present prices it is not hard to understand that only 1,920 calories
per man per day were obtained, or that the quantities of protein, fat,
and carbohydrate supplied were below what is required to maintain
health.
25413°—17----- 2
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1085]
14
M O N T H L Y R E V IE W O F T H E B U R E A U O F LABOR S T A T IS T IC S .
T
Family No.
Num
of
Num ber
chil Annual
ber in dren
fam under income.
ily.
12
years.
able
2.—PRIN CIPA L ITEMS OF FOOD
Expenditures for food.
Per
cent Total for
of in week.
come.
Per
man
per
(fay.
Meat.
Fish.
Oz.
Cost.
Oz.
Cost.
White.
1.....................................
2.....................................
3
4.....................................
5.....................................
6
4
9
9
5
4
2
6
6
2
$575
624
624
720
720
73
77
84
80
75
$8.031 $0.331
9.22
.525
. 266
10. 06
11. 10
.273
10.368
.451
89.5
189.0
69.0
185.0
212.5
$1.37
3.477
1. 03
3.37
3.155
72.0
5.0
$0.45
.12
6.....................................
7.....................................
8.....................................
9 .....................................
10.....................................
4
6
6
4
5
2
4
4
2
2
738
821
900
965
1,000
48
63
60
47
50
6.798
9. 888
10. 395
8. 811
9.55
.410
.392
.417
.450
.369
82.5
163. 8
163. 0
78.0
156.5
1.20
3.13
2. 54
2.179
2.62
37.0
.20
41.0
3.0
.25
.05
11.....................................
12.....................................
13.....................................
14.....................................
15.....................................
4
4
5
4
4
2
2
3
2
2
1,050
1,056
1,200
1,300
1,352
39
39
57
33
24
7.833
7.943
13.67
8.35
6.159
.387
.466
.542
.410
.308
98.5
69. 7
152.5
137.7
136.5
1.63
1. 62
2. 49
2. 32
2.01
31.0
.35
20.0
18.0
30.0
.18
.15
.36
16.....................................
17.....................................
18.....................................
19.....................................
20.....................................
6
4
5
6
6
4
2
3
3
4
1,400
1.400
1,464
1,475
1,500
45
38
37
46
42
12. 03
10.165
10.377
13.044
12.175
.458
.559
. 438
.448
.430
70.0
84.0
170.0
149. 1
163.0
1.26
1. 32
2. 58
2. 74
2.79
13.0
.28
39.0
.40
21.....................................
22.....................................
23.....................................
4
4
5
2
1
3
1,580
1,600
1,626
20
32
29
6.124
9.695
9.165
.340
.445
.397
21.7
141.0
78.0
.47
2.25
1.75
15.8
17.5
14.0
.40
.24
.15
Colored.
24.....................................
25.....................................
26.....................................
27.....................................
4
4
6
5
2
2
4
3
450
520
540
600
87
41
51
48
7.55
4.13
5.309
5.52
.399
. 194
.217
.261
%
114. 0
144. 0
158. 5
60.0
2.10
1.99
2.23
1.085
3.5
34.0
.025
.35
28.....................................
29.....................................
30.....................................
31.....................................
5
4
5
4
3
1
3
2
765
846
900
901
55
43
44
63
8.04
6.982
7.618
10. 875
.317
.321
.351
.511
150.5
150.5
85.5
175.1
2. 725
2.45
1.72
3.16
47.0
86.0
68.0
38.5
.40
.39
.545
. 40
11 egg equals about 2 ounces.
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Federal Reserve Bank of St. Louis
[ 1086 ]
M O N T H L Y R E V IE W O F T H E B U R E A U O F LA BO R S T A T IS T IC S ,
15
BOUGHT BY 31 FAMILIES.
Eggs.1
Oz.
Cost.
12. 5 $0.21
40.0
.60
116.0 1.83
12.0 .20
61.0
.927
22.0
.25
68.0
44.0
44.0
1.02
.64
.71
52.0
42.0
36.0
30.0
.76
.61
.60
.42
61.0
24.0
68.0
96.5
38.0
1.00
.455
1.05
1.55
.55
38.0
18.8
12.0
.62
.33
. 19
4.0
.07
32.0
10.0
24.2
34.0
.53
. 15
.37
.64
Milk,
fresh.2
Cheese.
Oz.
Cost.
2.5 80.06
8.0
.15
12.0
8.0
2.0
18.0
.30
.10
.035
.15
Qts.
Cost.
6.9 $0.70
.44
4.3
5.0
.50
1.5
.15
4.0
5.7
2.8
4.2
2.8
.41
.65
.275
.43
.30
3.1
15.5
4.3
8.3
.40
1.62
.43
.58
1.41
1.20
.51
.724
. 55
1.45
.825
.94
16.0
.20
4.0
.07
12.0
6.0
.33
. 10
14.7
12.0
5.2
7.0
5. 5
8.0
.17
14.5
8.1
8.5
4.0
.05
3.5
.35
3.7
4.2
.45
.494
4.5
.45
3.6
4.0
.363
.40
Milk,
condensed.
Qts.
Cost.
0.5 $0.16
.3
.10
1.6
.62
.7
.22
.3
. 11
Oz.
Cost.
16.0 $0.20
.3
.075
14. 4
.3
.07
33.5
24.0
.41
.27
29.0
22.0
. 42
.37
1.1
.6
.3
.28
.17
.075
1.4
.37
.3
. 10
.5
.116
.2
.07
2 1 quart of milk equals 34 ounces.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
Legumes.
[1087]
.33
Butter.
Oz.
Cost.
Butter.
substitute.
Oz.
Cost.
15.0
$0.26
32 0
56
1.0
. 0Ì5
27.7
.438
19.0
.296
15 0
12.0
23
.34
20.0 »0. 57
5.0
. 135
18.0 .52
23.0 . 58
24.0
. 58
40.0
5. 4
1.11
. 15
12. 0 .36
18. 0 . 475
43.0 1. 23
10.0 .33
20. 2
. 255
35.0
51.0
2.0
15.0
16. 0
.66
.73
.024
. 18
15
.66
22.0
27. 0 .58
18. 5 . 57
37.0 1.03
21.0
.55
7.0
2. 5
9. 5
.08
.06
.09
27.0
30.0
30.0
.25
13.0
2. 0
2. 5
22.0
. 105
.05
.05
. 15
.82
. 85
8.0
.24
10.0
1.0
.275
.025
23. 0
4.0
. 63
. 13
16
M O N T H L Y R E V IE W O F T H E B U R E A U O P L A B O R S T A T IS T IC S .
T
able
3 —PR IN C IPA L ITEMS OF FOOD
L a rd an d
c o m p o u n d s.
W h e a t flour.
Oz.
Cost.
Oz.
Cost.
Oz.
Cost.
Oz.
Cost.
Oz.
White.
1 ...........................................
2 ...........................................
3 ...........................................
4 ...........................................
5 ...........................................
37.0
8.0
56.0
24.0
8.0
SO. 46
.12
.49
.38
.12
26.0
88.0
288.0
167.0
120.0
$0.146
.37
1. 00
1.07
.626
324.0
110.5
175. 0
273.0
113. 0
SI. 805
.82
1. 22
1.82
. 64
96.0
66.0
98. 0
58.5
SO. 30
. 14
. 21
.14
32.0
6.5
SO. 21
.02
31.0
.1 9
6 ...........................................
7 ............. ..............................
8 ...........................................
9 ...........................................
10 .....................................
8.0
9 .0
11.0
32.0
12.0
.13
.15
. 19
.435
.21
. 99
1. 70
1.17
1. 29
.85
.21
. 115
.28
.015
.43
147.5
226. 5
214. 0
193. 0
164.0
70.5
28.0
43.0
4.0
96.0
11.....................................
12.....................................
13.....................................
14.....................................
15.....................................
13.0
34.0
2.0
4.0
. 161
.51
.03
.05
12.0
48.0
96.0
6.0
8.0
.068
.22
.45
.02
.038
120. 5
86.0
300. 5
162.0
182.0
.54
.57
2.11
1. 00
1.28
16......... ...........................
17.....................................
18.....................................
19.....................................
20.....................................
11.0
18.0
20.0
9.0
19.3
.138
.224
.32
.15
.30
26.0
11.0
.11
.378
.06
282.9
143.5
195. 5
190.0
.89
277.0
1.40
.815
1.48
2. 03
1.88
18. 0
56.0
21.....................................
22.....................................
23.....................................
25.9
5.0
19.0
.38
.08
.30
22.3
48.0
42.0
.087
.21
68.0
103.4
133.0
.39
.715
.85
32.0
10.0
18.0
36.0
.47
. 17
146. 0
85.0
127.0
.76
.48
.67
33.5
.47
.44
.375
203. 0
197.4
31.5
32. 5
1.11
B rea d .
C orn m eal.
R ice.
F a m ily N o.
100. 0
.22
325.0
Cost.
9 .0
.056
16. 0
9 .0
.05
.05
8. 9
.06
8.0
.05
14.0
3.0
.087
.08
. 08
.15
16 0
22.0
. 11
.08
29.0
12. 0
5.5
. 05
. 04
.08
21.2
.10
.15
32.0
. 12
Colored.
24.....................................
25.....................................
26.....................................
27.....................................
28.....................................
29.....................................
3 0 ...........................................
31.....................................
30. 0
24.3
16.0
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
.28
.61
.22
225.0
1.49
74.0
21.0
.32
1.05
48. 0
8. 0
92.0
150.0
164.0
180.0
.855
1.17
.95
.148
.205
[ 1088]
. 02
.39
.46
16.0
.10
16.4
13.4
.10
.05
94. 0
. 24
24. 0
12.0
16.0
.07
.04
.05
45.5
.18
24.0
.21
MONTHLY REVIEW OF THE BUREAU OF LABOR S T A T IS T IC S ,
17
BOUGHT BY 31 F A M IL IE S —Concluded.
Other
cereals.
Oz.
Cost.
Potatoes.
Oz.
Cost.
116.0 10.61
12.0 SO. 105 94.0
.35
8.0
.03
.10 139.0 .67
20.0
75.0
.55
9.0
43.5
30.5
.08
.33
.13
ÌÒ.Ó
. iô
3.0
20.0
19.5
.6
41.2
7.0
108.0
34.0
110.0
.065 80.9
52.5
. 10 92.5
. 12 63.0
.003 167.5
25.0
40.5
35.7
.22 136.0
.545 183.5
.25
24.0
162.5
97.0
20.0
25.7
40.8
.158 38.0
.12
46.0
.39 126.5
22.5
.23
14.0
7.0
.07
.035
9.0
.08
70.5
31.0
.52
. 15
48.0
54.0
54. 0
66 .9
Sugar, mo
lasses, and
candy.
Cakes and
pastry.
Fresh
fruits and
vegetables.
Canned
fruits and
vegetables.
Oz.
Oz.
Oz.
Oz.
Cost.
132.0 10.78
68.0
.41
103.0 .59
79.0
.46
57.0
.476
.18
21.0
.035 92.0
.45 122.0
.17
53.5
.65
98.0
.12
.56
.80
.515
.67
.36
66.0 .61
.277 46. 0 .275
.72 160.0 1.03
.25
70.0 .54
.50
58.5
.29
.75
74.0
1.038 63.0
.10
76.3
.737 108.0
.62 143.0
.12
.20
.60
.15
.22
.15
.39
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
.387
.33
.45
1.113
.925
73.8
89.0
25.5
.415
.63
.155
80.0
48.0
44.0
46.5
.50
.27
.279
.33
157.0
70.0
126.0
61.7
.81
.38
.685
.39
Cost.
Cost.
Cost.
Tea,
coffee,
and
substitutes
Cost. (cost).
Other
foods.
Oz.
16.0
11. 5
53.5 SO. 435
112.0 .89
46.5 SO. 29
77.5
.20
48. 5 .39
.20
60.0
.48
56.0
.41
. 127 227.7 1. 777 60. 0
16. 0 80.16
36.2
.365
1<S 5
80
14.0
.h
5 8 «1 ?2
16.0
13.0
.15
.15
Ì8.Ó
• Ì4
24.0
49.9
27.0
49.0
8.0
1.531
.643
.27
.732
. 16
.125
.26
.27
.20
25
. 405 38.0
. 15 47 0
.14
40.0
20.0
.15
10.0
.33
616
! 54
.34
.10
,ii
187
.54
.43
.17
8.0 SO. 07
48.8
.39
22.0
22.0
6.0
.20
.28
.06
6.7
24.0
18.2
.12
.38
.23
25.5
. éi
18.0
.19
12.0
22.0
122.5
107.5
72.0
167.7
128.8
.526 68.0
.87
85.7
.35 179.5
1.09
10.0
.99
48.0
146.7
.81
101. 5 . 792
221.8 2.12
101.7 .97
115.8 .53
55.0
11. 5
16.0
10.0
.38
.59
1.39
.08
. 54
80. 365
.08
54
.20
26
195.0
201.5
137.6
96.0
212.2
1.50
1.07
.95
.76
.68
34.0
107.0
40.0
71.5
.21
.87
.30
.43
123.0
49.8
82.5
56.6
45. 0
1. 888
.41
.903
.93
. 62
.12
.20
52
122.5
280.0
205.0
.635
1.90
1.12
61.0
21.5
.305
.24
17.0
31.0
38.0
.343
.66
.68
. 13
.14
.15
.72
.45
.30
.50
40.0
.30
72 0
9.0
.25
130.0
56.5
52.0
109.0
45
. 13
.03
.35
.01
.106
.43
96.0
30.0
89.5
171.7
.65
.24
.57
1.26
_256
.31
. 037
[1089]
16.0
.10
32.0
101.5
.67
154.0
1.46
18. 2
16. 0
2.0
. C6
21
09
.07
10
. 14
18
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
T able 3.—ANALYSIS OF D IETA RIES OF 31 FAMILIES, SHOWING N U TR IEN TS D ERIV ED
FROM FOOD CONSUMED.
Family No.
Num
ber
in
fam
ily-
Expenditures for
Nutrients and fuel value
Equiv Num
per man per day.2
food.
alent ber
adult
of
Nutrients.
males chil Annual Per
con dren income. cent Total Per
man
Fuel
sum under
of
for
per Pro Fats. Carboing
12
in week. day.
hy value.
teins.
food.1 years.
drates.
come.
White.
Aimual income $500 and
under $700:
1......... T...................
2................................
3................................
Average................
Annual income $700 and
under $1,000:
4................................
5................................
6................................
7................................
8................................
9................................
Average................
Annual income $1,000
and under $1,400:
10..............................
11..............................
12..............................
13..............................
14..............................
15..............................
Average................
6
4
9
3.8
3.5
5.4
6.3
9
5
4
6
6
4
5.8
3.8
2.6
3.6
3.9
2.8
5.7
5
4
4
5
4
4
3.7
3.7
4.3
3.6
3.6
3.9
4.3
Annual income $1,400
and under $1,700:
16..............................
17..............................
18..............................
19..............................
20..............................
21. . ........................
22..............................
23..............................
6
4
5
6
6
4
4
5
Average................
5
4.4
2.6
3.5
4.0
4.9
4.1
4.6
3.3
4
2
6
$575
624
624
73
77
84
4
607. 67
77.9
6
2
2
4
4
2
720
720
738
821
900
965
80
75
48
63
60
47
3.3
810.67
61.3
Oz.
$8. 031 $0,331 3.39
9.222 .525 4.99
10.06 .266 2.81
Oz.
3.17
4. 75
2.98
Oz. Calories
18.53
3,295
18. 09
3,893
14.54
2,728
9.104
.357
3. 58 3. 52
16.88
3,218.7
11.10
10.368
6.798
9.888
10.395
8.811
.273
.451
. 41
.392
.417
.45
2.44
3.48
3. 24
3.11
3.38
3.35
3. 26
4. 23
4. 29
3. 25
3.68
4.22
12.03
11.63
15.56
12.91
15. 07
13.53
2,473
2,793
3,226
2,645
3,031
2,990
9. 560
.385
3.09
3. 73
13. 22 2,802.6
2
2
2
3
2
2
1,000
1,050
1,056
1,200
1,300
1,352
50
39
39
57
33
24
9.55
7.833
7.943
13. 67
8. 35
6.159
.369
.387
.466
.542
.41
.308
2.91
3. 47
3. 27
3. 85
3. 48
2. 94
3.98
2. 77
4.83
5.38
3.67
3. 25
14.17
12. 67
11.68
19.56
11.93
11.07
2,953
2,538
2,927
4,028
2,683
2,418
2.2
1,159. 67
40
8.918
.414
3.31
3.99
13.42
2,916.3
4
2
3
3
4
2
1
3
1,400
1,400
1,464
1,475
1,500
1,580
1,600
1,626
45
38
37
46
42
20
32
29
12.03
10.165
10.377
13.044
12.175
6.124
9.695
9.165
.458
.559
.438
.448
.43
.34
.445
.397
3.65
4.93
3.21
3. 26
4. 35
2.59
3. 20
2.53
4. 38 17.09
6. 37 19. 85
4.04 13. 62
3. 87 13. 54
3.89 20.42
4. 42 11.83
4. 21 12.19
4. 07 12.07
3,470
4,437
2,940
2,893
3,801
2,763
2,820
2,693
2.8
1,505.63
35.7
10.347
.435
3.44
4.31
15.07
3,199.9
7. 55
4.13
5. 309
5.52
.399
.194
.217
.261
3.13
2. 34
2.59
2. 69
3.89
2.47
2.81
3.60
16. 91
9.04
9.98
14.98
3,264
1,920
2,142
2,924
5.627
.256
2.65
3.10
12.20
2,475.2
3. 44 3.49
3.34 4.37
3. 51 4.83
4.33 4.47
18.11
12.24
15.43
14.23
3,334
2,882
3,380
3,244
3,221.3
Colored.
Annual income $400 and
under $700):
24..............................
25..............................
26..............................
27..............................
Average................
Annual income $700 and
under $1,000:
28..............................
29..............................
30..............................
31......... .................
4
4
6
5
2.7
4.0
3.9
3.1
4.8
5
4
5
4
4.2
3.1
3.1
3.8
87
41
51
48
2
2
4
3
450
520
540
600
2.8
527. 50 55.5
3
1
3
2
765
846
900
901
55
43
44
63
8.04
.317
6.982 .321
7. 618 .351
10.875 .511
Average................
4.5
2.3
853
51.1
8.379
.377
3.67
4.24
15.21
All colored......................
5. 2
4.6
2.9
2.5
1,116. 96
690.25
44. 7
52.8
9. 607
7.003
.406
.318
3. 34
3.17
3.97
3.68
14. 44 3,030.3
13.73 2,854.9
Total, white and
colored..............
5.0
2.8
1,006.84
46.1
8.935
.385
3. 30
3.90
14. 27
2,988.6
1 Some of these include visitors.
Approximate amounts per man per day considered necessary: Proteins, 100 grams (about 3J oz.); fats,
62 grams (about 2\ oz.); carbohydrates, 510 grams (about 18 oz.); fuel value, 3,000 calories.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1090]
TRADE AGREEMENTS IN THE WOMEN’S CLOTHING INDUSTRIES
IN NEW YORK CITY.1
B Y B O R IS E M M E T , P H . D.
Collective bargaining in the women’s ready-to-wear garment
trades of New York City, has, prior to 1915, been the subject of
detailed study by the Bureau of Labor Statistics, the workings of
certain phases of the trade agreements in existence in the principal
ones of these trades having been described in great detail in Bulletins
Nos. 98, 144, 145, 146, and 147. The following article is an attempt
to outline briefly the present status of trade agreements in these
trades with special reference to changes in the methods of bargain
ing and adjustment of grievances which have taken place since 1914,
and which have been caused to a considerable extent by the cessa
tion of immigration on account of the war.
Collective bargaining on a large scale in women’s ready-to-wear
garment trades of this locality begins with the appearance of the
so-called protocol of peace in the cloak and suit industry, signed
on September 2, 1910, after a protracted and disastrous strike. This
agreement introduced radical changes in the. relations of employer
and employee.
Aside from recognizing the International Ladies’ Garment Work
ers’ Union and its subordinate locals as the legitimate representatives
of the workers, it prohibited altogether the further occurrence of
strikes and lockouts and provided for the establishment of compre
hensive institutions for the peaceful adjustment of any grievances
that might arise.
The first three months of 1913 witnessed the establishment of no
less than four trade agreements in the women’s needle trades of New
York City. The new agreements, or protocols as they have since
come to be termed, were in the chronological order of their adoption:
(1) January 18, 1913, in the dress and waist industry; (2) February
11, 1913, in the house-dress and kimono industry; (3) February 17,
1913, in the white-goods or cotton-garments industry; (4) March 8,
1913, in the children’s and misses’ dress industry. Similar agree
ments, although varying in detail, were signed in the millinery and
ladies’ hat industry, December 20, 1915, and in the lace and em
broidery trade on March 15, 1916.
1 T his a rtic le is a p relim in ary sum m ary of one of th e phases of a stu d y on tra d e ag ree
m en ts to be published by the bureau.
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Federal Reserve Bank of St. Louis
[1091]
19
20
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
The agreements in all of the above-mentioned industries, each
somewhat modified, are in existence at the present time.
One of the principal characteristics of the garment trades, which
was responsible to a very great extent for their centralization in
and about New York City, was the great abundance of relatively
cheap immigrant labor arriving in the port of New York. The
superabundance of labor, due to unrestricted immigration, was re
sponsible for many of the industrial evils which prevailed in these
trades prior to the days of collective bargaining. The constant influx
of new workers, with standards of living lower than the standards of
those already in the trade, had the effect of creating a state of cut
throat competition for positions among the workers. This intense
competition for jobs resulted in a consequent increase in the strategic
importance of the employers’ position. The great supply of labor was
also responsible for the rapid development of the sweating system so
commonly associated with these trades; that is, for the appearance
of a parasitic class of inefficient employers who endeavored to make
their livelihood through the payment of low wages instead of by
superior managerial or manufacturing skill.
The disgust of the public with the sweating system, which was
accompanied by home work and most of the other evils peculiar
to these trades, was partly responsible for the development of col
lective bargaining in these trades in spite of the instability in the
membership of the labor organizations. About 1910 the underpaid
and oppressed garment worker became the object of solicitude on the
part of the public, as well as the subject of study and investigation
by official and unofficial agencies. The success of the general strike
in the cloak trade in 1910, which brought about the first compre
hensive trade agreement, was due, in a great measure, to the financial
and moral support accorded by the public to the cause of the garment
workers.
The sudden cessation of immigration, due to the European war,
appears to have had a profound effect upon the relative strategic
strength of the position of the employer and employee. The entire
situation in this respect has been reversed. The superabundance of
labor, so conducive to the strengthening of the employer’s position, is
here no longer. For the first time in the history of these trades the
workers, and not the employers, on account of the labor shortage
felt during the busy seasons, occupy the more advantageous posi
tion for driving wage bargains.
In considering the facts presented beloiv, regarding the present
workings of trade agreements in these trades, one must constantly
keep in mind the fact that many of the advantages accruing to the
workers are due less to the nature of the agreements than to this
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Federal Reserve Bank of St. Louis
[1092]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
21
new strength of the workers. This advantage could not, of course,
have been utilized had the principle of individual bargaining still
been in operation.
The following discussion of the present status of collective bareraininsr.in the allied women’s needle trades of Greater New York
relates to the workings of trade agreements in eight of the great
branches of these trades, viz., cloaks and suits, dresses and waists,
waterproof garments, house dresses and kimonos, cotton garments,
children’s dresses, hats and millinery, and lace and embroidery. The
agreements in the trades enumerated govern wTage rates, working
hours, and general conditions of employment in 2,500 establishments,
employing over 95,000 workers.
CLOAK AND SUIT INDUSTRY.
As already stated, collective bargaining in the women’s ready-towear garment trades of New York City began with the signing of
the protocol of peace on September 2, 1910, in the cloak and suit
industry. Besides raising the general labor standards of the indus
try by granting considerable increases in wage rates and providing
for better conditions of shop safety and sanitation, this agreement
prohibited home work and subcontracting, outlawed strikes and
lockouts, and established elaborate institutions for the peaceful
adjustment of grievances.
The agreement placed the supreme and final authority regarding
all matters in dispute in the hands of a board of arbitration, com
posed of three members, one to represent the employers, one the
employees, and the third, an impartial member (the chairman)
to be chosen by consent of both parties. It also called into exist
ence a board of grievances, which was to consist of an equal number
of representatives of both sides, without the presence of a third
party—that is, it was to be an organization based wholly upon the
principle of conciliation. This board was given original jurisdiction
in all matters in controversy. Only those cases upon which the
board of grievances could not agree were to be referred for final
adjudication to the board of arbitration.
The agreement curtailed materially the absolute right of the
employer to hire and fire, as well as to regulate certain conditions
of employment in his establishment. Generally speaking, it effected
a sort of realignment of the industrial powers of the trade, reducing
materially some of the traditional privileges of the employer by
obliging him to adhere to the principle of favoring union men in
employment and lay-offs and preventing him from making indis
criminate discharges. In exchange for the concessions granted by
the employers the workers obligated themselves to refrain from
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Federal Reserve Bank of St. Louis
[1093]
22
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
striking and to submit all grievances to the duly constituted authori
ties for peaceful adjustment.
The fundamental principle of the workings of this agreement
during the first two years of its existence was conciliation, and thus
the board of grievances was the dominating agency of adjustment
during this period. The only agency based upon the principle of
arbitration—the intervention of a third party—was the board of
arbitration, but this board was not immediately called upon to exer
cise the full powers vested in it by the agreement. The novelty of
the scheme appealed to all concerned, and both parties apparently
enjoyed the new experience of adjusting their troubles at conference
tables instead of on a picketing line.
During the first two yeqrs of the life of the agreement the board of
grievances succeeded in adjusting the majority of grievances. During
the third year, however, deadlocks began to occur in the deliberations
of this board. Such deadlocks were, of course, to the advantage of
the employer, inasmuch as complaints usually came from the union
side. Although these deadlocks were few in number they concerned
fundamental problems, had ’serious consequences, and. resulted in
the appearance of an antiagreement feeling among the workers.
The development of this sentiment was accelerated by some ultraradical union leadership. The antiprotocol agitation within the
ranks of the union came to a head ill the fall of 1914, when a demand
was made upon the employers for the introduction of the principle
of arbitration into the existing board of grievances, based wholly
upon the principle of conciliation. Officials of the union contended
that the introduction of an arbitrator into the board of grievances
was the only way to avoid deadlocks. After repeated discussions,
joint conferences, and threats to strike, and with the assistance of
some outside agencies, the change requested was agreed upon.
The introduction of the impartial person as arbitrator in trade
controversies was the turning point in the history of the agreement.
The very presence of a person apparently impartial, with the power
to cast the deciding vote and thus quickly to dispose of a controversy,
was conducive to more frequent failures, on the part of the represen
tatives of both sides, to conciliate in order to effect adjustments. This
fact placed the settlement of questions very vital to the industry in
the hands of the outsider, the third party.
The new system worked satisfactorily from the point of view of
the workers, because it was the natural tendency for the outsider
to sympathize with the workers, many of whom, in spite of the rela
tively high rate of wages and greater security of employment insured
by the agreement, still failed to earn a livelihood on account of the
relatively short periods of employment, due to the highly seasonal
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character of the trade. But the impartial chairman became un
popular with the manufacturers. Complaints began to be heard
against “ the interference of outsiders, of uplifters and social re
formers who knew nothing and cared less about the destinies of the
trade.” By 1915 the revolt of the employers against the agreement,
with its impartial authorities, solidified itself. Voices began to be
heard advocating the withdrawal of the Manufacturers’ Association
from the arrangement. This dissatisfaction developed rapidly to a
point where a general lockout appeared to be imminent. The situa
tion became so grave that Mayor Mitchel appointed a council of
conciliation to assist the parties in renewing their friendly relations.
The report of this council served as a basis for a temporary truce
between the parties. I t became known as the decision of the council
of conciliation and subsequently servegl as a basis of a new settle
ment. This settlement, however, was short-lived, for the reason that
the council consisted of six members, no less than four of whom
happened to be outsiders to the trade, though public-spirited citizens.
It did not, therefore, gain much prestige among the employers. The
very composition of this council served to accelerate the existing
dissatisfaction with “ the interference of outsiders in the affairs of
the trade.” Things went from bad to worse, until industrial warfare,
for the first time since 1910, broke out in the industry. The break
in the friendly relations was followed by a general lockout, declared
April 29, 1916, which, in its turn, evoked a declaration of a general
strike on the part of the union. The ensuing industrial warfare
lasted for 16 weeks.
The immediate cause of severance of friendly relations between the
parties was a decision made by the chairman of the council of con
ciliation which, after the settlement, came to act as the board of arbi
tration under the agreement, prohibiting manufacturers from em
ploying any worker except upon production by the applicant of his
union card showing him in good standing with the organization.
The principal points of contention as outlined by the Manufac
turer’s Association in its advertisements in the daily press, while the
strike was in progress, were: The absolute right of the employer
(a) to discharge; (5) to reorganize his shop in any advantageous
way, and to lay off workers at will; (<?) to distribute work during
dull seasons in any manner suitable to his needs, and not according
to the so-called principle of equal division of work of the protocol.
The employers maintained that the right of free and unlimited dis
charge was essential to successful manufacturing; they further
claimed that their right to reorganize the manufacturing methods in
their shops, frequently resulting in wholesale discharges and lay
offs, was a part of an employer’s prerogative and absolutely essential
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
to efficiency. They strongly objected to the union demand for equal
distribution of work during dull seasons, because such a system “ vir
tually gave the employee a vested right in his job.”
Relations with the employees were resumed by an agreement dated
August 1, 1916, to run for three years. This agreement, which is
in effect at the present time, and governs the relations of employer
and employee in 387 establishments employing about 30,000 workers,
is radically different from any of the so-called protocol of peace
agreements which preceded it. I t is not an agreement of peace, for
in exchange for the privilege of absolute discharge granted to the
employers the workers were given the right to strike whenever they
felt such action necessary.
The following are some of the essential features of this agree
ment: (1) Employer given the absolute right to discharge in ex
change for privilege of striking accorded to the workers; (2) em
ployer to give preference in employment to members of union and
not to discriminate against them after they have been hired; (3)
49-hour week; (4) no overtime work to be permitted during certain
seasons of the year; (5) increases in weekly rates of wages, and
payment of double time for overtime work; (6) piece rates to be
computed upon the basis of a minimum of 70 cents per hour for
operators and 55 cents for finishers; (7) piece rates to be determined
in each establishment by a committee representing the employees
and the employer, and employees not to be compelled to work on
garments, the prices for the making of which are still unsettled;
in case of inability to agree on piece rates the controversy to be re
ferred for final adjustment to an impartial price adjuster appointed
by the consent of both sides; (8) prohibition of home work, of sub
contracting, and of section work within the factory; (9) registration
of contractors with the union, in order to enable the latter to know
if agreement standards are maintained in the contract shops; (10)
continuance in existence of the joint board of sanitary control estab
lished by the agreement of September 2, 1910; (11) absolute right
of employer to reorganize his manufacturing methods in the in
terests of efficiency; (12) right of employer to distribute his work
during dull seasons in the manner most suitable to his needs.
From the incorporation of the above-named provisions, it may be
inferred that generally speaking the employers won the points most
contested. They succeeded in eliminating from the new agreement
all limitations upon their power to discharge, they were allowed to
reorganize their shops in any manner most suitable to them, elimi
nating thus the provision, so obnoxious to them, requiring equal
distribution of work during dull seasons. In addition, the new
agreement eliminated altogether the participation of outsiders or
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third parties in the adjustment of grievances. In exchange for all
of the enumerated advantages thus obtained, however, the employers
agreed to give up the right to strikeless shops, the principal benefit
derived by them under the former protocol agreements. Members
of the union were to be accorded preference in hiring and were not
to be discriminated against after having been employed. Week
workers as well as those engaged by the piece, were granted wage
increases.1
The most interesting feature of the protocol agreement of 1910
was the system for the adjustment of grievances. This system pro
vided. for a joint investigation into the facts in each controversy, on
the premises, and gave a chance, therefore, for a close contact be
tween employer and his employees. This is not so now. Under the
present agreement employees having a grievance are compelled to
report the same directly to the union. The union officials, however,
are denied the right to enter the shop for the purpose of getting the
facts of the controversy. The only way of establishing the facts in
each case is for the union officials to call a meeting of the entire
shop at the headquarters of their organization. Thus the union
officials get only an ex parte statement of the controversy. After
such an ex parte investigation a complaint is filed with the Manu
facturers’ Association. The labor department of the latter may then
agree to the request of the union, or, if necessary, send one of its
clerks to the shop of the member for the purpose of getting addi
tional light on the controversy. Here, again, frequently only an
ex parte investigation is made. In case of a final denial to accede
1 Since the signing of the present agreement one general wage increase has been granted to the workers
throughout the trade. The new wage schedule given herewith shows the old rates, as well as the new
r ites which went into effect Aug. 13,1917.
Wage
rates
before
Aug. 13,
1917.
Occupation.
Wage
rates
after
Aug. 13,
1917.
P IE C E W O R K ER S.
Operators....................................................................
Finishers.................................... ................................
Buttonhole makers:
(а) Unfinished. ....................................................
(б) Finished.........................................................
.per hour..
.......do___
SO. 75
.55
SO. 80
.60
..p er 100..
.......do----
.90
1.00
1.20
1. 40
29.00
25.00
26.50
24.00
19.00
16.50
31.00
26.50
28.50
25.00
W E E K W O RK ERS.
Cutters..........................................................................
Skirt cutters................................................................
Jacket and reefer upper pressers...............................
Skirt upper pressers.. : ..............................................
Skirt under pressers........................ ...........................
Piece pressers..............................................................
Jacket and reefer under pressers...............................
Sample makers................................. ........................
Skirt b asters................................................................
Drapers........................................................................
Skirt finishers..............................................................
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22.00
24.00
15.50
16.00
12.00
20.00
17.50
24.00
25.00
16.50
17.00
13.00
26
MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.
to its request, the union has the privilege of calling a strike, pro
vided the Manufacturers’ Association is given 24-hours’ notice.
The present agreement has been in force since August 1, 1010.
The record of the union shows that during the period ending
September 15, 1917, exclusive of cases involving cutters, which are
not numerous, a total of 3,973 grievances were filed by the officials
of the union. The grievances most frequently complained of were:
(1) nonpayment of wages due; (2) absence of a legal chairman or
of a whole shop price committee; (3) wrongful discharge; (4) fail
ure to register contractors; (5) failure to accord preference in em
ployment to members of the union.
The 3,973 cases were disposed of in the following manner: Com
promised, 2,276, or 57.3 per cent; dropped by union, 631, or 15.9 per
cent; union sustained, 422, or 10.6 per cent; temporarily adjusted,
322, or 8.1 per cent; withdrawn by union, 168, or 4.2 per cent; em
ployer sustained, 154, or 3.9 per cent. The real proportion of griev
ances which remained unadjusted is shown in the classification “ with
drawn ” and “ temporarily adjusted,” the latter indicating that the
Manufacturers’ Association refused flatly to concede the justice of
the grievance, which was therefore marked “ temporarily adjusted”
and put aside pending its reopening at a moment more advantageous
to the union. For a similar reason certain complaints were with
drawn. Thus 490, or slightly over 12 per cent, of the grievances
remained unadjusted.
The union records show the extent to which strikes were authorized
by the union for the purpose of adjusting grievances. According to
these records, during the last six months’ period ending September
15, 1917, 72 strikes were officially authorized for such purposes. The
following are the reasons given by the union officials as justifying
strike actions in these cases: “ Employer sent work to outside shops
while his own employees were kept idle,” 33 cases; “ wrongful dis
charge,” 19 cases; “ irregular settlement of piece prices,” 19 cases;
“ sending work to nonunion shop,” 1 case.
A strike officially declared must, of course, be distinguished from
what is known in a trade as a shop stoppage. The latter refers to a
temporary cessation of work on the part of the employees without
previous authorization from their organization. Shop stoppages
were occurring even under the protocol agreement, which specifically
made them illegal. The very nature of shop stoppages makes it im
possible to record correctly the frequency of their occurrence. It is
the general impression of those concerned, however, that such stop
pages take place more frequently now than under the former agree
ments. The faet that the agreement legalizes official strikes makes
for more frequent stoppages, as the difference between a shop stop-
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page and an officially declared strike is rather vague in the mind of
the average worker.
When the settlement of the prolonged lockout and strike of 1916
was effected on the basis of the agreement described above, it was
the impression of all concerned that its terms were more favorable
to the employers than to the employees. Those sympathizing with
the workers feared that the absolute freedom to discharge and re
organize shops by lay-offs, as well as the elimination of the opera
tion of the principle of equal division of work during dull seasons,
might have disastrous effects upon the union and, therefore, upon the
condition of the workers. The advocates of industrial peace were
apprehensive lest the elimination of the elaborate institutions for
the adjustment of grievances would have a detrimental effect upon
the peace of the trade and cause a deterioration of the prevailing
standards. At the signing of the agreement the Manufacturers’
Association appeared to be doubly strong because of an amalgama
tion with another employers’ association which took place in the
latter part of 1915 and which brought the membership of the present
Cloak and Suit Manufacturers’ Association to about 400. It was
thought that this increased power of the employers, coupled with the
new privileges accorded to them in discharging, laying off, etc., would
make them the absolute masters of the labor situation in the industry.
The actual results, however, appear to have been altogether diferent from what was expected and far more favorable to the workers.
The number of wrongful discharges alleged by the union was not
much greater than that under the protocol agreement. According
to the union records, not more than 279 such discharges took piece
during the first 13 months of the working of this agreement. Rec
ords of the union also show that more than two-thirds of all griev
ances complained of by the workers were either adjusted in favor
of the complainants or compromised, that is, settled by mutual con
sent, in a manner apparently satisfactory to both sides. The re
mainder were either dropped or withdrawn by the union. Further
more, if the 6 months’ record may be taken as typical of the opera
tion of the agreement and used as a basis, the statement may be made
that a total of about 160 official strikes were called in individual
establishments during the first 13 months of the life of the agreement,
an average of about 13 per month, a number not very large consid
ering the fact that the agreement in question concerned almost 400
employers and about 30,000 workers. Thus, in spite of the apprehen
sions manifested by those interested in industrial peace, the agree
ment did maintain peace in the industry and did not result in whole
sale discharges and abuses. Moreover, as shown above, it did fur
nish satisfactory methods for the peaceful adjustment of the greater
number of the grievances arising.
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M O N T H L Y R E V IE W O F T H E B U R E A U O F LA BO R S T A T IS T IC S .
Such more or less satisfactory results are due less to the nature of
the agreement than to the following facts: (1) Neither side desires
another general strike and lockout, for the reason that the 1916 lock
out and strike were economically disastrous to both sides, and, in
addition, morally disastrous to the employers because the public
at large, as well as many influential public agencies, definitely sup
ported the cause of the workers; (2) the unexpected increase in the
bargaining power of the workers more than offsets the theoretical
advantages secured to the employers by the agreement as well as by
the amalgamation of the two employers’ associations. As has been
said, this increase in the bargaining power of the workers was due
principally to the cessation of immigration and to the consequent
shortage of labor which began to be especially felt early in the spring
of 1917.
Various facts point almost conclusively to the correctness of the
latter generalization. Employers complain of shortages of labor
during busy seasons, a condition unknown prior to 1915. They are,
therefore, unusually anxious to retain their help. To achieve this
end, they are ready to make concessions undreamed of even in the
days of the protocol system.
By taking advantage of section 6 of the agreement, which allows
an individual employer and his workers to substitute week work for
piecework, many new conditions not mentioned in the agreement are
created. In a considerable number of establishments employers
agree to guarantee to their workers definite periods of employment,
from 8 to 30 weeks. The legal advisors of the union are of the
opinion that such guaranteed employment periods are legal obliga
tions on the part of the employers, which assure to the workers
specified amounts of earnings, irrespective altogether of the need
for the workers’ services. Such guaranties constitute an absolutely
effective method of preventing the employer from sending work to
outside shops in which lower standards of labor prevail—one of the
evils very frequently complained of by the workers.
Opinions differ regarding the actual benefits derived by each of
the parties from this agreement. The present administration of the
Manufacturers’ Protective Association states that from the em
ployers’ point of view the agreement “ has been a success,” because
the most obnoxious features of the protocol order—vested rights in
the job due to the limited power of the employer to dispense with
the services of his employees as well as to the obligation to distribute
work equally during dull seasons-—have been eliminated. The lead
ing officials of the Manufacturers’ Association are gratified by the
fact that for the first time in years “ the power of the outsider,
the social reformer who has nothing at stake in the trade and cares
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for little but aggrandizement, which it is easier to achieve by cater
ing to 30,000 workers than to 400 manufacturers,” has been done
away with.
Such opinions, however, are not the only ones heard. A minority
of the membership of the Manufacturers’ Association is distinctly
against the present agreement and in favor, perhaps, of a return to
the so-called protocol system, with its impartial adjustment tribunals
and the prohibition of strikes. This minority maintains that every
limitation upon the freedom of action of the employer specified in
the former agreements still exists; that by their right to strike em
ployees actually obtain all the privileges accorded to them under the
protocol agreement; that the privilege to strike puts the employer at
the mercy of the workers, the former having “ no grievance board,
impartial chairman, or board of arbitration to which he could either
look for sympathy, cooperation, or assistance.”
Neither is there any unanimity among the workers regarding the
benefits derived by them from the present agreement. The more
radical union members, whose opinions are frequently tinged with
syndicalist doctrines, consider the present agreement more desirable
inasmuch as it gives the workers a chance to “ exercise their economic
power” through strikes. More conservative unionists, and particu
larly some of the officials of the International Ladies’ Garment Work
ers’ Union, would, it appears, welcome the return of the protocol
system with its prohibition of strikes and lockouts and its impartial
tribunals for the adjustment of grievances. The opinion of these
unionists is that the present agreement fosters anarchic action on the
part of the membership which makes it difficnlt for the organization
to direct the action of individual members, which is absolutely es
sential to achieve successful and effective collective bargaining.
Collective bargaining in this industry is not limited to shops con
trolled by members of the Manufacturers’ Association referred to
above. Individual shops which have collective agreements with the
union, but whose owners are not affiliated with the Manufactur
ers’ Protective Association, are known in the trade as independent
shops. The nature, of the trade agreements which govern the
rates of wages and labor conditions in such shops is considerably
different from the trade agreement in operation in shops belonging
to members of the Manufacturers’ Association or association shops,
as they are termed, and more in favor of the workers. The prin
cipal points of distinction are: (1) The existence of the so-called
union shop, in which the employer obligates himself to employ none
but members of the union in good standing, as against the so-called
preferential union shop in association establishments; (2) equal
distribution of work during dull seasons; (3) no employee, having
25413°— 17------ 3
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M O N T H L Y R E V IE W O F T H E B U R E A U O F LABOR S T A T IS T IC S .
been in the service for two weeks, to be discharged without good
cause; (4) provision for the arbitration of differences on the ad
justment of which the parties themselves can not agree.
On September 15, 1917, there were in existence 786 agreements of
this kind. The 786 shops in which these were in operation em
ployed about 12,000 workers.
DRESS AND WAIST INDUSTRY.
The first trade agreement in the dress and waist industry, known
also as the protocol of peace, signed January 18, 1913,1 which intro
duced collective bargaining on a large scale in this industry, is still
in existence, although in modified form. The most profound changes
in its provisions were made February 7, 1916, and January 29, 1917.
The only change of significance which occurred between the sign
ing of the agreement and the first revision on February 7, 1916, took
place in the fall of 1915, when the equipartisan board of grievances,
based upon the principle of conciliation, was replaced by a com
mittee on immediate action, consisting of three members, the chief
clerk of the union, the official holding a similar position with the
Dress and Waist Manufacturers’ Association, and a third—an out
side party, selected by mutual consent of both. Thus the principle
of arbitration was substituted for that of conciliation in cases on the
adjustment of which the parties concerned could not agree. I t was
made at the request of the members of the union, who, like workers
in the cloak and suit industry, complained of frequent deadlocks
on the part of the board of grievances, which, it was maintained,
made it frequently impossible for the workers to secure redress for
violations of the agreement.
The principal changes introduced by the revision of February 7,
1916, which, like the revision of 1917, was brought about by a deci
sion of the board of arbitration, were as follows: (1) Increases in
wages; (2) increase to six of the number of holidays to be paid for
to the week workers, making July 4 a legal holiday in the trade; (3)
authorization of the application of the schedule or log system for
the determination of piece rates; (4) creation of a board of protocol
standards for the purpose of investigating labor conditions in non
association as well as association shops; (5) privilege granted to
employers to reorganize the manufacturing methods in their estab
lishments at the beginning of each season; (6) establishment of an
examining board to classify cutters according to skill and experience
for wage-rate determination.
The official approval given by the agreement to the so-called log
system of governing piece-rate determinations is of considerable im1 A detailed acco u n t of th e w orkings of th is agreem ent d u rin g th e first year of its
existence w as given in Bui. 145 of th is bureau.
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portance, for the reason that the existence of such a system reduces
greatly the number of piece-rate controversies between employer and
employee. This log system is in operation at the present time in the
shops of about 45 members of the association, having about 3,500
employees. It is based upon a mutual understanding between the
representatives of the workers and those of the employers, regarding
piece rates, this understanding taking the form of a schedule of
operations, the piece rates for which are agreed upon in advance, thus
enabling employer and employees to arrive at rates automatically.
The system is similar in its nature to the log system in operation in
the English tailoring trades. In the dress and waist industry the
log system establishes piece rates for specific operations in the sewing
or operating branch of the industry, in which from 60 to TO per cent
of all the workers in the establishments are engaged.
The revision of January 29, 1917, further modified the nature of
the original protocol agreement. Aside from granting additional
increases in wage rates to the majority of the workers in the trade,
it introduced the following changes: (1) Period during which agree
ment is to be in force to be limited to two years; (2) the failure of
an employer to comply with the orders of any of the authorized
grievance-adjustment authorities to have the effect of depriving such
employer of all rights under the agreement; (3) at the request of
the union, manufacturers will be obliged to discharge an}^ employee
delinquent in his union standing, provided the worker in question
was in good standing on January 1, 1916, or thereafter; (4) exten
sion to full-fledged cutters of the operation of the principle of equal
distribution of work during dull seasons; (5) union granted the
privilege of refusing to agree to the acceptance into the Manufac
turers’ Association of any applicant, on the ground that not all of the
applicant’s workers are members of the union in good standing;
(6) during the life of the agreement, the union is not to be allowed
to make a sudden demand for increases in wages, except in some great
emergency affecting either the specific industry* or business condi
tions generally in the country, the board of arbitration to be the sole
judge of the existence or nonexistence of such emergencies, but in the
absence of such emergencies, wages, base rates, and hours of labor
to be subject to revision upward or downward by the board of arbi
tration, provided application therefor is made not later than the
first day of November in any year, any revision in this respect to
become effective on January 1 of the following year; (7) com
plaints, to be entei'tainable by the agencies of adjustment, must be
filed with the defendants not later than 10 days after the facts upon
which they are based have become known to the-chief clerks.
The new provision mentioned under (1) makes the life of the
agreement two years. Prior to this change, the life of the agree
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M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
ment was indeterminate, allowing any of the parties to withdraw
from the arrangement at will.
The withdrawal of the protection of the agreement from employ
ers failing to comply with decisions rendered is of great import,
inasmuch as one of the bitterest complaints of the union has been that
decisions rendered were not complied with by certain members of
the association and that in such cases no redress could be obtained.
The new provision, by withdrawing from such members the protec
tion of the agreement, gives to the union, under certain conditions,
the power to call a strike in such establishments.
The points enumerated under (3), (4), and (5), like the one under
(2), must be considered as concessions favoring the workers. Not so,
however, with the amendments shown under (6). In this instance
the employers seem to have obtained a considerable amount of pro
tection against sudden and frequent demands for increases in wage
rates, so often occurring in all other trades at the present time. The
provision that complaints must be filed not less than 10 days after the
facts on which they are based have become known to the chief
clerks, is to be considered another concession, although of minor im
portance, to the emploj^ers. This revision was made at the request of
the Manufacturers’ Association, which maintained that union officials
were in the habit of filing grievances based on facts which had oc
curred long before, frequently many months, complaints which the
employers could not successfully answer on account of the lapse of
time.
Except for the substitution of the committee on immediate action,
with an impartial chairman, for the old board of grievances, based
wholly upon the principle of conciliation, no radical changes have
taken place since 1913 in either the nature of the grievances or the
agencies through which they are adjusted. As formerly, more than
95 per cent of all the grievances filed are adjusted through the joint
efforts of representatives of the union and of the Manufacturers’ As
sociation, known as clerks or deputy clerks. Between January 29,
1917, and September 1, 1917—a period of 7 months—1,771 complaints
were filed by the union, of which 1,525 have been adjusted. Only 15
out of these 1,525 adjustments were made by agencies other than
the clerks or deputy clerks of the respective sides. Of the 15 cases
in which the clerks could reach no agreement the committee on imme
diate action adjusted 11 and the board of arbitration 4.
Of the 1,771 complaints filed, 246 complaints, principally those
filed during the months of July and August, were pending settlement.
The character of disposition of the 1,525 adjusted cases was as fol
lows: In favor of union, 958 or 62.8 per cent; compromised, 289 or
18.9 per cent; withdrawn, 136 or 8.9 per cent; dropped, 132 or 8.7
per cent; decided in favor of employers, 10 or 0.7 per cent. The
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above figures do not include complaints filed by the cutters’ local.
These, however, are not numerous.
The grievances complained of most frequently during this period
were “ discrimination against union help” and “ preference given
to nonunion workers,” of which there were 216 cases, or 14.2 per
cent of the 1,525 cases adjusted; the grievances next in numerical
importance were “ alleged payment below the scale provided by the
agreement,” of which there were 204 cases, or 13.4 per cent, and
“ noncompliance with decisions rendered by the authoritative
agencies,” numbering 195 cases, or 12.8 per cent.
As would naturally be expected, by far the greatest number of com
plaints originate on the union side. During the same period the
Manufacturers’ Association filed 240 complaints against members of
the union. Of this number 27 were pending settlement on September
1. The character of disposition of the adjusted cases was as follows:
Employer sustained, 74 or 34.7 per cent; compromised, 85 or 39.9
per cent; and dropped by the complainant, 54 or 25.4 per cent. More
than one-half of all the association complaints specified violations of
the provision of the agreement which prohibits the occurrence of
stoppages of work on the part of the workers.
The agreement of January 18, 1913, established the 50-hour week in
the industry. This was reduced to 49 hours by a revision of Feb
ruary, 1916. ISTo reduction in weekly hours of labor has taken place
since. Both revisions granted to the workers increases in wage rates.1
1 C onsiderable changes in th e weekly an d hourly ra te s of w ages have been m ade since
1913. T he follow ing tab le show s th e weekly ra te s of w ages on Ja n . 18, 1913; Feb. 7, 1916;
an d J a D . 29, 1917. In order to get a t th e weekly ra te of piecew orkers th e m inim um
basic ra te p er h o u r specified in th e agreem ent w as m u ltip lied by th e num ber of hours of
lab o r p er week.
2 M u tu al u n d e rsta n d in g , n o t specified in agreem ent.
W E EK L Y RA TES OF W AGES IN D R ESS AND W A IST IND U STR Y IN E F F E C T ON
S P E C IF IE D DATES.
Rates in effect on—
Occupation.
P resse rs (on w o o len s)..................
C u tte rs :
G rad e A , firs t y e a r ...........
G rad e B , second y e a r ..............
G rade C, th ir d y e a r..............
G rad e D , fo u rth y e a r, b u t n o t full-fledged
G rade E , fo u rth y e a r, full-fledged.
G rad e F , 1 y e a r a fte r becom ing full-fledged
E x a m in e rs .............................
D r a p e r s ...................................
J o in e r s ...................................
F in is h e r s ..........................
S am p le m a k e r s ..........................
Iro n e rs , m a le ..................
Iro n ers, fe m a le .......................
C lean ers, girls:
U n d e r 16, firs t v e a r . .
U n d e r 1G, second y e a r .........
16 a n d over, firs t y e a r .........
16 a n d over, seco n d y e a r . . .
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Federal Reserve Bank of St. Louis
J a n . 18, 1913.
F e b . 7, 1916.
J a n . 29, 1917.
$20.00
©oo nn
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18.00
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14.00
15.00
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34
M O N T H L Y R E V IE W O F T H E B U R E A U O F LA BO R S T A T IS T IC S .
Considering the nature of the present labor situation as in
fluenced by the cessation of immigration, which has a decided tend
ency to augment the bargaining power of labor, as well as the high
cost of living due to the war, the protocol system of collective bar
gaining appears to protect the employer from sudden and radical
demands on the part of the workers for increased rates of wages.
The very fact that such demands may not, according to the present
agreement, be made without the sanction of the board of arbitration,
has a tendency to delay the making of such demands, and even if
made and subsequently sanctioned by the board, to result in smaller
gains than those which perhaps might have been affected through
economic pressure—that is, well-organized strikes.
Officials of the union are of the opinion that the January 29, 1917,
revision of the agreement has given the workers substantial advan
tages. At the same time complaints are being heard on all sides that
the earnings of the workers in the dress and waist industry, even
under the protocol agreements, have not kept pace with the increased
cost of living.1
The protocol agreement discussed above governs the rates of wages
and general conditions of labor in shops owned or controlled by
members of the Dress and Waist Manufacturers’ Association. This
association has, at the present time, a membership of 202 shops whose
combined total employed is between 11,000 and 12,000. Collective
bargaining in this industry, however, is not confined to establish
ments of members of the Dress and Waist Manufacturers’ Associa
tion. On September 15, 1917, the Dress and Waist Makers’ Union
(Local No. 25 of the International Ladies’ Garment Workers’ Union)
had in operation trade agreements with 488 individual establishments,
the combined total of employees of which exceeded by about 3,000
the total employed by members of the Dress and Waist Manufac
turers’ Association.
W A T ER PR O O F GARMENTS IN DUSTRY.
The first trade agreement in this industry was signed on August
28, 1910, five days prior to the settlement of the great cloak strike of
that year. Unlike the agreements in the allied branches of the
women’s garment trades, the original agreement in this industry was
not made for an indefinite term, but for a period of two years.
With slight modifications relating principally to wage rates, the
agreement was renewed for a period of twTo years on August 28,
1912, and on the same date in 1914 and 1916.
1 On Oct. 29, 1917, th e unions, am ong o th e r dem ands p resen ted to th e M a n u fa c tu re rs’
A ssociation, requested a general all-round w age in crease of 25 per cent an d a reduction
of th e weekly h o u rs of w ork to 48. T hese dem ands are to be th e subject of discussion
by a jo in t conference of re p re se n ta tiv e s of b o th p a rtie s, to be held on Nov. 26. In
case of disag reem en t, th e dem ands of th e w orkers w ill be presen ted fo r ad ju d icatio n to
th e board of a rb itra tio n of th e in d u stry .
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Federal Reserve Bank of St. Louis
[ 1106]
M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
35
The present agreement, which is to expire in August, 1918, is be
tween the Waterproof Garment Manufacturers’ Association with a
membership of 21, employing over 2,000 workers, and certain locals
of the International Ladies’ Garment Workers’ Union.
Prior to the entrance of the United States into the war, members
of the Waterproof Garment Manufacturers’ Association confined
their activities almost exclusively to the manufacturing of women’s
rain-proof garments. Since the spring of 1917, however, certain of
the larger association establishments have secured contracts for water
proof garments for the Army and Navy.
The agreement worked without serious hitch until the war work
appeared. Since about the middle of August, 1917, four shops, the
largest in the association, employi ng about 750 workers, have been shut
down on account of a strike on Government work. The cause of this
strike is a difference over piece rates to be paid to the operators and
cementers. The employers concerned flatly refuse to grant the de
mands of the workers because “ such increases, if granted, would
reduce the profit to a point far below what is considered a legitimate
return.”
The union still refuses to compromise, principally because it occu
pies a strong strategic position, there being felt in the trade a decided
shortage of raincoat makers. In this industry, perhaps more than in
any of the others described above, the strategic position of labor was
greatly strengthened by the cessation of immigration, on one hand,
and by an increased demand for workers, due to the war, on the other.
It appears that the greater part of the 750 workers nominally on
strike in the four shops of the members of the association are actually
at work in establishments outside of the membership of the associa
tion. Representatives of the Waterproof Garment Manufacturers’
Association maintain that the union violated the existing agreement
b}^ calling strikes in the shops of their members. The controversy,
it is said, should have been submitted to arbitration, which the union
refused to do. A study of the agreement, however, does not sustain
this position of the employers, for paragraph 2 of section 19 of the
agreement specifically states that “ only disputes other than prices”
are to be submitted to arbitration.
HOUSE-DRESS AND KIMONO INDUSTRY.
The first trade agreement, signed February 11, 1913, the detailed
workings of which were described in Bulletin No. 115 of this bureau,
was renewed for a two-year period on February 17, 1916. No radi
cal modification in its nature was made on the latter date.
This agreement governs the relations of employer and employee
regarding wages, hours, and general conditions of labor in the shops
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Federal Reserve Bank of St. Louis
[1107]
36
M O N T H L Y R E V IE W O F T H E B U R E A U O F LABOR S T A T IS T IC S .
of 14 members of the New York Association of House Dress and
Kimono Manufacturers, whose total employed is about 3,600, dis
tributed almost equally between inside and outside, or contract, shops.
Considering the fact that only a small part of the trade, about onethird perhaps, is as yet organized, the agreement appears to have
worked satisfactorily.
Collective bargaining in this trade is not confined to establish
ments owned or controlled by members of the employers’ association
referred to. On October 15, 1917, the union had separate trade agree
ments with 60 individual establishments, in which the total number
employed was approximately 1,000.
COTTON GARMENT (WOMEN’S UNDERWEAR) INDUSTRY.
The first trade agreement in this industry was signed February 7,
1913, between the Cotton Garment Manufacturers’ Association of
New York and the Underwear and White Goods Workers’ Union
(Local No. 62) of the International Ladies’ Garment Workers’
Union for a period of two years. I t was renewed for similar periods
on March 6, 1915, and March 6, 1917.
The text of the first agreement was published in Bulletin No. 145
of this bureau. Except for changes in wTage rates, no radical modifi
cations in its principal provisions have been made since 1913. The
agreement at the present time governs the relations of 84 employers
with their approximately 6,500 workers. During the year 1916 a
total of 411 complaints were filed by the union. Of these, 390 were
adjusted by the chief clerks of the union and association, the remain
ing 21 having been referred to the board of grievances of the industry
created by the agreement, said board consisting of an equal number
of representatives of both sides.
The agreement is reported to work satisfactorily to all concerned.
CHILDREN’S DRESS INDUSTRY.
Collective bargaining conditions in this industry are very similar
to those prevailing in the house-dress and kimono industry, although
the trade is somewhat better organized. The first agreement was
signed March 8, 1913, and subsequently renewed for a period of
about two years on March 4, 1916. Its text, including a statement of
its working, during the years 1913 and 1914, were published in
Bulletin No. 145 of this bureau.The agreement at the present time governs the relations between
39 members of the Children’s Dress Manufacturers’ Association of
New York City and slightly more than 3,000 employees.
The last statement does not, however, indicate the actual extent of
collective bargaining in the trade at the present time. Aside from
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Federal Reserve Bank of St. Louis
[
1108]
M O N T H L Y R E V IE W OF T H E B U R E A U O F LABOR S T A T IS T IC S .
37
the agreement with the Manufacturers’ Association, the union has in
operation at the present time from 100 to 110 trade agreements with
individual establishments employing about 2,000 workers.
HATS AND MILLINERY INDUSTRY.
This industry manufactures ladies’ straw and velvet hats, the
shapes of which are somewhat like those of men’s. The industry
is new, having come into existence less than 15 years ago. Prior
to that time, all such hats were made by milliners by hand and to
order.
The trade is highly seasonal. During busy seasons there fre
quently appears a shortage of skilled help. New York Manufac
turers are then forced to call upon New England towns, in Massa
chusetts principally, for labor. This relative scarcity of workers
accounts for the establishment, by one of the provisions of the agree
ment described below, of a joint employment bureau. The same rea
son may, perhaps, be given for the absence in the trade of subcon
tracting or even contracting.
The first effective organization of the trade was accomplished just
prior to the signing of the agreement herewith discussed. It came
on the eve of a threatened strike on the part of organized labor,
under the leadership of the United Cloth Hat and Cap Makers’
Union of North America, an organization with jurisdiction over the
men’s cloth hat and cap trade. For certain reasons, the manufac
turers engaged in the production of cloth caps and hats gradually
extended their manufacturing activities to ladies’ velvet and straw
hats. This fact was responsible for the extension of the jurisdiction
of the Cloth Hat Makers’ Union to the ladies’ hats and millinery
branch of the trade.
The agreement in existence at present was originally signed
December 20, 1915, between the Ladies’ Hat Manufacturers’ Pro
tective Association (Inc.) and the United Cloth H at and Cap
Makers’ Union of North America and the joint board of Millinery
and Ladies’ Straw Hat Workers’ Union. Its duration was to be
two years. One of its clauses provided that on or about November 1,
1916, either of the parties should have the right to call the other
into conference for the purpose of revising prices and wages. In
case of disagreement in this respect, the final settlement was to be
submitted to arbitration. I t was further provided that about Sep
tember, 1917, some months before the expiration of the agreement,
committees of both sides were to meet for the purpose of determin
ing whether or not the agreement should be continued or modified,
and if continued, for what period.
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Federal Reserve Bank of St. Louis
[1109]
38
M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
Some of the other main features of this agreement were: (1)
Obligation by members of the Employers’ Association to employ
none but members of the union for the operating, blocking, sizing,
and pressing operations, beginning with January 8, 1916; (2) estab
lishment of a joint employment bureau; (3) establishment of mini
mum weekly, daily, and piece rates for operating, blocking, sizing,
and pressing; (4) equal distribution of work among all workers
during the dull seasons; (5) a 53-hour week, January to April, and
a 50-liour week the remainder of the year; (6) prohibition of team
or section work within the shops, as well as of outside contracting;
(T) prohibition of strikes and lockouts; (8) provisions for the
peaceful adjustment of grievances.
All difficulties arising under the agreement were to be referred for
adjustment to the managers of the union and association. In the
event of a disagreement, the controversy was to be referred to a
committee on adjustment, said committee to consist of five mem
bers—two representing the association, two the union, and an umpire
agreed upon by the four.
The revision of wage rates provided for in the agreement took
place at the end of 1916. This revision granted to the workers a
general wage increase of 10 per cent.
The average membership of the Manufacturers’ Association during
the life of this agreement, which has not as yet expired and the
renewal of which is being discussed at the present time, has been 50,
with a total employed of about 3,500. During the first six months of
1917 a total of almost 400 union grievances were peacefully adjusted.
The largest groups of complaints related, in the order named, to
piece rates, alleged wrongful discharge, equal distribution of work
during dull seasons, claims for wages due, discrimination against in
dividuals, and claims for back pay. During the time the present
agreement has been in force-—a period of nearly two years—17 im
portant decisions bearing upon the various problems of the industry
have been rendered by the impartial chairman of the adjustment
committee. All these, were readily complied with by both sides.
On September 20, 1917, the joint board of Millinery and Ladies’
Cloth Hat Workers’ Union presented certain demands to the em
ployers as a basis for a renewal of the agreement about to expire.
These, briefly, were: (1) Extension of the jurisdiction of the agree
ment to processes other than operating, blocking, sizing, and press
ing; (2) a 49-hour week all the year round; (3) 10 legal holidays
Avith pay; (4) increased rates of wages.
The above given demands are at the present time the subject of
conference by representatives of both parties, presided over by the
impartial chairman of the committee on adjustment.
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Federal Reserve Bank of St. Louis
[1110]
M O N T H L Y R E V IE W O F T H E B U R E A U O F LA BO R S T A T IS T IC S .
39
Collective bargaining in this industry is not confined to establish
ments controlled by the Manufacturers’ Protective Association. In
addition to the agreement with the latter, the union has in operation
at the present time about 125 trade agreements, with individual estab
lishments employing about 3,500 workers.
LACE AND EMBROIDERY INDUSTRY.
An agreement very similar in character to the one in operation in
the cotton garment industry of New York was signed for the first
time on March 15, 1916, between the Association of American Em
broidery and Lace Manufacturers and the International Ladies’ Gar
ment Workers’ Union and its local No. 6 which consists of em
broidery workers. At the time of the signing of this agreement,
which is still in force, the Manufacturers’ Association had a mem
bership of 36 with a total employed of approximately 2,100.
The agreement is reported to have worked satisfactorily to both
sides. Chances for its renewal, however, are very small. The Manu
facturers’ Association, in a letter dated September 27, 1917, addressed
to the union, declined to enter into negotiations for the purpose of
renewing the agreement in the near future, on account of the
“ unequal and burdensome conditions of labor under which the mem
bership of the association have been compelled to operate in competi
tion with other local markets,” said conditions “ making it economi
cally impossible ” for the agreement to be renewed.
It appears that more than one-half of the lace and embroidery
manufactured in this vicinity is made in Jersey City, where the em
broidery workers’ union has not as yet secured any foothold and
where, consequently, all the manufacturing of lace and embroidery
is done under nonunion conditions of pay, hours, etc. The New
York employers decline, therefore, to renew the agreement unless the
union succeeds in imposing equal conditions on their competitors,
whose establishments are located in Jersey City.
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Federal Reserve Bank of St. Louis
[11111
WAGES IN GERMANY.
T H A N SL A TED A N D
S U M M A R IZ E D B Y A L F R E D M A Y L A N D E R .
GENERAL TREND OF WAGES DURING THE WAR.1
The imperial statistical office has undertaken an investigation to
ascertain the trend of wages in Germany during the war. Although
the compilation of the data obtained has not been completed, the
statistical office has published in the Reichs-Arbeitsblatt (No. 8) a
preliminary statement of the principal results. Among other things
the statistical office inquired concerning the number of full days
worked by adult male and female workers and the wages paid to
them, and on the basis of the data obtained made an attempt to de
termine the relation of the wages for the last two full weeks of
March and September of the years 1914, 1915, and 1916.
The statistical office admits that the data on this point were very
scant—only 369 questionnaires relating to 13 industry groups being
filled out properly—and that, therefore, the results could not be con
sidered as typical. Nevertheless, the results are interesting, and dis
credit any claim that during the war wages have so increased that
the workers have no reason to complain about the present high cost
of living. As a matter of fact, food prices in Germany have in
creased out of all proportion to wages.
Nearly all industry groups show a decrease of wages for Septem
ber, 1914, but beginning with this month show a continuous increase
of wages. From March to September, 1914, the average daily wages
of adult male workers decreased from 5.17 marks ($1.23) to 5.12
marks ($1.22). During the subsequent half-yearly periods desig
nated above, their wages increased continuously until they reached
7.55 marks ($1.80) in September, 1916, which represents an increase
of 46 per cent over the wages in March, 1914. The increase was
largest during the period September, 1914, to March, 1915 (14.8 per
cent) ; during the period March to September, 1915, the increase
amounted to 11.4 per cent; during the next half year the increase
was 6.7 per cent, and for the period March to September, 1916, it
wTas 7.8 per cent.
The average wage of adult female workers shows a somewhat dif
ferent development. The relative increase of wages of .female
workers during the entire period covered by the investigation was
larger than that of male workers. It amounted to 54.1 per cent.
1 F rom V o rw ärts.
40
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Federal Reserve Bank of St. Louis
Die L öhne w ah ren d des K rieges.
[1112]
B erlin, Aug. 30, 1917.
M O N T H L Y R E V IE W O F T H E B U R E A U OF L A B O R S T A T IS T IC S .
41
The average wages declined from 2.29 marks (54.5 cents) in March,
1914, to 1.94 marks (46.2 cents) in September of the same year, a
decrease of 15.3 per cent. Subsequently wages of female workers
increased continuously up to September, 1916, when they reached a
maximum average of 3.53 marks (84 cents). However, the largest
increase in women’s wages did not, like that in men’s wages, take
place during the first winter of the war—in which it amounted to
16.5 per cent—but during the period September, 1915, to March,
1916, for which it was 18.3 per cent. In the subsequent half-yearly
period, March to September, 1916, the increase again amounted to
16.5 per cent.
As to the development of wages in the individual industry groups
the results of the investigation were as follows:
W A G E S I N M A R C H , 1914, A N D S E P T E M B E R , 1916, A N D P E R C E N T O P I N C R E A S E I N S E P
T E M B E R , 1916, O V E R M A R C H , 1914, I N E A C H S P E C I F I E D I N D U S T R Y .
Males.
A v erag e d a ily w ages in e a c h specified in d u s tr y .
S e p te m b e r, 1916.
In d u s tr y .
M arch, 1914.
A m o u n t.
M ach in ery .....................................
E le c tric a l.......................................
Iro n a n d m e ta l...........................
C h e m ic a l.......................................
P a p e r .............................................
W o o d w o rk in g .............................
F o o d ....................................._____
L e a th e r a n d r u b b e r ..................
E a r th s a n d s to n e s .....................
5.33 m a rk s (11.27)..
4.52 m a rk s ($1.08)..
5.55 m a rk s ($1.32)..
5.14 m a rk s ($1.22)..
3.94 m a rk s ($0,938).
4.22 m a rk s ($1)__
P er cent
of in crease
over
M arch,
1914.
7.89m a rk s
7.44 m a rk s
8.02 m a rk s
6.90 m a rk s
5.54 m a rk s
5.61 m a rk s
($1.88)..
($1.77)..
($1.91)..
($1.64)..
($1.32)..
($1.34)..
48.0
64.6
44.5
34.2
40.7
32.9
8.2
24.6
21.3
3.88 m a rk s
4.80 m a rk s
4.11 m a rk s
3.55 m a rk s
2.94 m a rk s
2.59m a rk s
($0,923).
($1,140).
($0,978).
($0,845).
($9.70)..
($0,616).
70.2
74.5
99.5
50.4
28.5
30.2
37.6
13.6
31.1
Females.
M ach in ery .....................................
E le c tric a l.......................................
Iro n an d m e t a l ...........................
C h e m ic a l.......................................
P a p e r .............................................
W o o d w o rk in g .............................
F o o d ...............................................
L e a th e r and r u b b e r _________
2.28 m a rk s ($0,543).
2.75 m a rk s ($0,655).
2.06m arks($0.490).
2 .3 6 m a rk s ($0,562).
2.29 m a rk s ($0,545).
1.99 m a rk s ($0,474).
As the above table shows, the average daily wage of male workers
in the machinery group increased 48 per cent, while that of woman
workers in the same group increased 70.2 per cent. The largest
wage increase for males took place in the electrical group (64.6
per cent). The wages of women in this industry showed a still
larger increase, 74.5 per cent. Wages of men in the iron and metal
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Federal Reserve Bank of St. Louis
[1113]
42
M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
industry increased 44.5 per cent; those of women increased more
than twice as much. Increases in the other industry groups, though
large, are not so marked.
Small wage increases were also made in the building trades, the
printing trades, and the textile industry. Wages in the clothing
industry remained stationary. It should, however, be remarked
that in the four last-named industries the number of establishments
included in the investigation was very small.
WAGE STATISTICS OF THE BERLIN INVALIDITY INSURANCE INSTITUTE.1
In German invalidity and old-age insurance, one of the three
branches of the national workmen’s insurance system, the insured
persons are grouped, according to their annual earnings, into five
classes with graded weekly contributions. The State invalidity
insurance institutes publish monthly the number of weekly contribu
tions received from each of the five classes of insured persons. As
all gainfully-employed persons, with the exception of salaried em
ployees earning over 2,000 marks ($476), are subject to invalidity
insurance, these statistical data as to contributions permit conclu
sions as to the condition of the labor market and the movement of
wages.
If the data reported by the Berlin Invalidity Insurance Institute
are considered and it is assumed that each member on an average
makes annually 50 weekly contributions—which corresponds to
actual conditions—the following data as to membership in the in
dividual contributory classes are obtained:
M E M B E R S H I P O F T H E B E R L I N I N V A L I D I T Y IN S U R A N C E I N S T I T U T E , B Y C O N T R I B U
T O R Y C L A S S E S , F O R T H E Y E A R S 1902, 1908, 1913, 1915, A N D 1916.
M em b e rsh ip classified according to a n n u a l earn in g s.
Y ear. C lass 1, 350 m a rk s ’
($83.30 or less).
1902..
1908..
1913..
1915..
1916..
M em bers h ip .
P er
ce n t.
4,708
11,681
15,002
31,807
32,019
1
2
2
5
5
Class 2, o v er 350
C lass 3, o v er 550
C lass 4, o v er 850
to 550 m a rk s
to 850 m a rk s
to 1,150 m a rk s
($83.30 to $130.90). ($130.90 to $202.30). (202.30 to $273.70).
M em bersh ip .
158,256
135,674
36,496
30,276
28,271
P er
ce n t.
M em bersh ip .
Per
ce n t.
M em b ersh ip .
P er
c e n t.
30
20
5
5
5
83,057
107,670
194,055
127,768
112,192
16
16
26
21
18
205,298
147,105
121,050
135,208
144,863
37
22
17
23
24
C lass 5, o v er 1,150
m a rk s ($273.70).
M em bersh ip .
82,513
270,946
375,196
279,745
288,583
P er
ce n t.
16
40
50
46
48
If the figures shown in the preceding table for the five contribu
tory classes are added it is found that during the period 1902-1913
the total membership in the Berlin Invalidity Insurance Institute in
creased from 533,832 to 741,799. Under the influence of the war the
1 F ro m V o rw ärts.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
E ine B e rlin er L o h n sta tistik .
[1114]
B erlin, Aug. 3, 1917.
M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
43
membership fell to 604,804 in 1915 and rose slightly (to 605,928) in
1916. Especially noteworthy is the shifting of the members from
one contributory class to another. Up to the outbreak of the war a
shifting of the membership from the lower to the higher contributory
classes can be observed. This is due partly to stricter enforcement of
the law with respect to classifying members in the proper contribu
tory class, but principally to the general increase of wages and sala
ries. In 1915 there is apparent a decrease in the number of workers
in the highest-wage class and an increase in those of the lowest-wage
class. The increase is to be explained by the considerable employ
ment, at low wages, of juvenile and female workers. An opposite
movement may again be observed in 1916 consequent to grants of
high cost of living bonuses by a number of employers.
According to the above table the main shifting apparent between
wage classes following the war is from class 3 to class 4, and the
table seems to show that the much-advertised wage increases during
the war were granted only in exceptional cases. I t should, moreover,
be mentioned that in the insurance institutes of the Kingdom of
Saxony and of the Province of Posen only 28.4 and 9.1 per cent re
spectively of the insured were in the highest-wage class. A highly
noteworthy fact shown by the above table is that in 1916 more than
one-half of the membership of the Berlin Invalidity Insurance Insti
tute still earned less than 1,150 marks ($273.70) per year.
WAGES OF CARPENTERS IN BERLIN.1
In May, 1917, the trade-unions of the building trades of Berlin
concluded a collective wage agreement with the building contractors,
which became effective July 7 and fixed the hourly wage of brick
layers and other skilled workers of the building trades at 1.40 marks
(33.3 cents). In view, however, of the greatly increased cost of liv
ing and because at the time of the conclusion of the above agreement
Berlin carpenters were as a rule, receiving higher wages than 1.40
marks (33.3 cents), the Berlin local union of carpenters declined
to become a party to the agreement. All subsequent efforts by the
imperial office of the interior to bring about an agreement between
the building contractors and the carpenters of Greater Berlin were
fruitless because the contractors unanimously refused to go beyond
the maximum wage rate of 1.40 marks agreed upon with the other
building trades. Consequently the organization of Berlin carpenters
is at present not bound by any wage agreement and its members’
ayages are being fixed by means of individual bargaining.
In order to ascertain the present average rate of wages of car
penters in Berlin, the organization on July 11, 1917, undertook an
1
F r c m V o rw ä rts .
D ie B e r l i n e r Z i m m e r e r u n d d ie L o h n f r a g e .
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Federal Reserve Bank of St. Louis
[1115]
B e r l i n , A u g . S, 1 9 1 7 .
44
M O N T H L Y R E V IE W O P T H E B U R E A U O P L A B O R S T A T IS T IC S .
inquiry which included 192 establishments, employing 1,823 carpen
ters. The results of this investigation are shown in the following
table :
WAGES OF UNION CA R PEN TER S IN B E R L IN ON JU LY 11, 1917.
R a te of w ages p e r h o u r.
0.90 to 1.20 m a rk s (21.4 to 28.6 c e n ts )..
1.25 to 1.30 m a rk s (29.8 to 30.9 c e n ts ) ___
1.30 t o 1.35 m a rk s (30.9 to 32.1 c e n ts )............
1.35 to 1.40 m a rk s (32.1 to 33.3 c e n ts ) ___
1.40 m a rk s (33.3 c e n ts ) ___
1.40 to 1.45 m a rk s (33.3 to 34.5 c e n ts )................
1.50 m a rk s (35.7 c e n ts )....................
1.50 to 1.55 m a rk s (35.7 to 36.9 c e n ts )............
1.60 m a rk s (38.1 c e n ts ) ................
1.65 m a rk s (39.3 c e n ts ) ........
1.70 to 1.80 m a rk s (40.5 to 42.8 c e n ts ) ___
1.80 t o 1.90 m a rk s (42.8 to 45.2 c e n ts ) ........
2 m a rk s (47.6 c e n ts ) .....................
2.10 m a rk s (50 c e n ts ) . . . .
T o ta l..........................
N u m b e r of N u m b e r of
e sta b lis h
c a rp e n
m e n ts.
te rs.
6
11
19
1
40
20
41
16
12
13
9
2
1
1
13
29
106
30
239
281
305
242
77
419
66
10
5
1
192
1,823
The average hourly wage received by the 1,823 carpenters on July
11, 1917, was 1.51 marks (35.9 cents), or 11 pfennigs (2.6 cents) in
excess of the maximum wage building contractors were willing to '
concede in a collective agreement. Numerous instances of further
wage increases have, moreover, been reported to the carpenters’
organization since the date of its investigation of wages.
HIGH COST OF LIVING BONUSES.
As a result of the high food prices prevailing in Germany, work
men in a number of occupations have demanded and received in
creases in wages, or bonuses, or both. The following table shows
some of the more recent bonuses and increases obtained by agreement.
It should be borne in mind that, since it was impossible to obtain
complete data, this table does not purport to show anywhere near the
entire number of trades in which bonuses have been obtained.
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Federal Reserve Bank of St. Louis
[11161
M O N T H L Y R E V IE W O F T H E B U R E A U O F LA BO R S T A T IS T IC S .
45
WAGES, AND H IG H COST OF L IV IN G BONUSES E ST A B L ISH E D BY COLLECTIVE
A G REEM ENT, FOR S P E C IF IE D OCCUPATIONS, IN GERMANY, 1917.1
[In this table m .=m ark, and pf.=pfennig.]
W ages, in ea ch specified occ u p a
tio n , of—
H ig h co st of liv in g b o n u s.
O ccu p atio n .
M ale w o rk ers.
F e m a le
w o rk ers.
(2)
(2)
P er hour.
10 pf.
($0.024)
(2)
(2)
11-21 p f.($ 0 .026-. 05 )
P er hour.
31.05 m . $0.250)
3 1.00 m .
.238)
3 .95 m .
.226)
3 .90 m .
.214)
a .85 m .
.202)
3 .80 m .
.190)
P e r hour.
30.60 m . ($0.143)
a .57 m .
.136)
3 ,54 m .
.129)
3 ,5 1 m .
.121)
3 ,48 m .
.114)
3 .45 m .
.107)
F em a le
w o rk ers.
M ale w o rk ers.
Effectiv e —
P a in tin g trade.
Workers, Berlin.........
Workers, other locali
ties............................
1917.
M ay 16
W oodworking trade.
Local class 1.............. .
Local class 2................
Local class 3................
Local class 4................
Local class 5................
Local class 6................
20
20
20
19
17
15
pf.
pf.
pf.
pf.
pf.
pf.
(
(
(
(
(
(
.048)
. 048)
.048)
. 045)
. 040)
. 036)
P er
15 pf.
14 pf.
13 pf.
12 p f.
11 pf.
10 pf.
hour.
($0.036)
( . 033)
( .a ii)
A ug.
( . 029)
( .026)
( . 024)
8
S to ne industry.
P e r week.
L e t t e r engravers
(sandstone).............. 1.10 m . ( .262)
Marble-cutters:
Heavy work......... 1.05 m . ( .250)
Slab w ork............ 1.00 m . ( .238)
Marble-polishers, mil
lers, and turners:
Shop work...........
.88 m . ( .209)
Outside work....... .93 m . ( .221)
( 4.76 )
* 20 m.
* 20 m.
( 4.76 )
( 4.76 )
(2)
(2)
(2)
(2)
(2)
(2)
(7)
(7)
A ug. II
( 4.76 )
( 4.76 )
* 20 m .
* 20 m .
M u n ic ip a l employees
(B e rlin ).
Gas works employees.
Sewer and construc
tion
department
employees................
East harbor depart
ment employees___
<20 m.
P er hour.
.024) 10 pf. (
f 10 Pf\ 5 5 pf.
i .012) 5 pf. (
1 m.
P er day.
(
. 024) July
. 012) O ct.
.238)
(6)
Paper-box in d u stry.
Makers (Berlin).........
B u ild in g trades.
Bricklayers.................
1 40 m . (
.333)
B ric k a n d h o d carriers
1 35 m . (
.321)
O th e r s k illed w o rk e rs .
1 18 m . (
.281)
L im e m ix ers, concrete
a n d w a te r c a rrie rs . .
1 23 m . (
. 293)
C em en t w o rk e rs .
1 375 m . (
.327)
S c a n tlin g ..............
1 30 m . (
. 309)
...... ..
(»)
P er hour.
i10 0.10 pf.
( .024)
10 . 10 pf.
( .024)
|io . 05 pf.
( .012)
no . 10 pf.
( .024)
. 15 pf.
( .036)
’° . 05 pf.
|i0
( .012)
. 10 pf.
. 024)
(
r10 . 15 pf.
( .036)
|io . 05 pf.
( .012)
no . 10 pf.
( .024)
io . 15 pf.
( .036)
.
05
pf.
I10
( .012)
( .024)
(1,00 . 10 pf.
. 10 pf.
( . 024)
|io . 05 pf.
( .012)
fl° . 10 pf.
( .024)
io . 10 pf.
( .024)
|io . 05 pf.
( . 012)
( 9)
}
}
I
i
}
!
A u g . 25
S ep t.
N ov.
F eb.
S ep t.
N ov.
F eb .
S ep t.
N ov.
F eb.
S e p t.
N ov.
F eb.
S e p t.
N ov.
F eb.
S e p t.
N ov.
F eb.
1
17
2
1
17
2
1
17
2
1
17
2
1
17
2
1
17
2
1 D a ta from B e rlin V o rw ä rts , issu es A ug. 9 to S e p t. 2, 1917.
2 N o t re p o rte d .
3 M in im u m w ages; r a te of w o rk ers u n d e r 18 a n d of in e x p e rie n c e d w o rk ers to be 10 p e r ce n t b elow sch ed u le
d u r in g firs t s ix w eek s of e m p lo y m e n t, of w o rk ers u n d e r 16 to b e fix ed b y in d iv id u a l ag re e m e n t.
1 P iecew orkers e a rn in g o v e r 80 m a rk s ($19.04) p e r w eek receive o n ly 5 m a rk s ($1.19) b o n u s.
6
S pecial b o n u s; d o n o t rece iv e th e “ g en e ra l” co st of liv in g b o n u s (see fo o tn o te ?), b u t a re g iv e n a corre
s p o n d in g in c re a se of h o u rly w ages.
6 T h e se w o rk m e n rece iv e a g e n e ra l h ig h co st of liv in g b o n u s, p a y a b le m o n th ly , of 22 m a rk s ($5.24), for
single w o rk ers; 35 m a rk s ($8.33) for m a rrie d w o rk ers, a n d 7.50 m a rk s ($1.79) for ea ch ch ild u n d e r 16. I n
a d d itio n to th is g en e ra l b o n u s , in creases h a v e b e e n g ra n te d b u t th e a m o u n ts a re n o t r e p o rte d .
7 R a t e of w ages n o t re p o rte d , b u t piecew ork w ages in c re a se d 50, 45, a n d 33J p e r c e n t, a n d m in im u m w age
in c reased 50 p e r c e n t for m a le w o rk ers, a n d 33-1 p e r c e n t for fem ale a n d ju v e n ile w o rk ers.
8 B o n u s fo r w o rk e rs a lre a d y rece iv in g m in im u m p lu s increase, b u t less t h a n 50 m a rk s ($11.90) p e r w eek ,
15 p e r c e n t i f m a rrie d , 10 p e r c e n t if single; for w o rk ers rece iv in g 50 m a rk s ($11.90) or m o re p e r w eek , 10
p e r c e n t i f m a rrie d , 7 J p e r c e n t if single.
9 B o n u s for w o rk ers a lre a d y rece iv in g m in im u m p lu s increase, 10 p e r c e n t.
10 In c re a se in w ages, n o t b o n u s.
25413°— 17
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Federal Reserve Bank of St. Louis
[1117]
46
M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
DEMANDS OF SHIPYARD WORKERS IN KIEL.1
In two largely attended meetings, workmen employed in the ship
building yards of Kiel discussed wage and labor conditions. One of
these meetings, called by workmen employed in the Krupp and
Howaldt yards, resolved that the following demands be submitted to
the employers:
1. A 9-hour workday or 54-hour week in place of the present 56hour week.
2. Regulation of piece rates so that a workman of average ability
may earn a minimum of 1.50 marks (35.7 cents) per hour.
3. An increase of beginners’ wages and other wages now in force
by 10 pfennigs (2.4 cents) per hour.
4. Increase of time wages so that earnings of time-workers shall
be equivalent to at least 90 per cent of the earnings of pieceworkers
in the same occupation.
' 5. The high cost of living bonuses paid at present shall be paid
to all workmen, inclusive of those on furlough with part pay.
6. Family subsidies of workers on furlough with part pay and
those living outside of Kiel to be increased from 2 marks (47.6
cents) to 4 marks (95.2 cents).
7. The provisions relating to workmen’s committees shall be so
amended that all male and female workers shall have the right to
vote and that all members of the committee shall be elected by the
workers.
In the other meeting, which was called by workmen of the Govern
ment yard, the chairman stated that the workmen’s committee had
submitted to the administration of the yard the same demands as those
made by the workmen of the two private yards under 2, 3, 4, and 6,
and an additional demand that for the first two hours of overtime
work the regular rate of pay should be increased by 25 per cent, for any
subsequent overtime by 50 per cent, and that night-shift workers
should receive an increase of 25 per cent.
WAGE DEMANDS OF WORKMEN IN THE STATE RAILROAD SERVICE.2
A noteworthy meeting of workmen in the State railroad service
was held in Berlin on August 10, 1917. The meeting was addressed
by a member of the Reichstag, who pointed out that on account of the
greatly increased cost of living all workmen in Government employ
ment, and particularly those in the railroad service, are in urgent
need of wage increases. He also emphasized the necessity of shorter
hours of labor because long hours of labor combined with the present
general state of undemutrition lessen the efficiency of workmen. He
1 F ro m V o rw ärts.
2 F ro m V o rw ärts.
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Federal Reserve Bank of St. Louis
F o rd e ru n g en d e r K ieler W e rfta rb e ite r.
Bine Lohnbew egung der E isenbahner.
[ 1118 ]
B erlin, Aug. 12, 1917.
B erlin, Aug. 12, 1917.
M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
47
warned the railroad workers against enforcing their demands through
a strike and advised close organization as the best means to obtain
results. He pointed out that opposition of the Government to
organization of Government employees is no longer to be expected,
since a pronounced social democrat has been appointed as under
secretary of state in the Ministry of Railroads.
The chairman of the meeting reported that the demands of the
railroad workers were submitted by him to the ministry with the
result that the ministry consented to an increase of 9 marks ($2.14)
per month of the high cost of living bonus, and promised to consider
the question of shorter hours of labor.
All subsequent speakers at the meeting emphasized that the rail
road workers must firmly insist on the granting in full of their
demands but declared themselves opposed to a strike. Correspond
ing resolutions were adopted by the meeting.
STATE AID DEMANDED FOR WAGE REGULATION IN LOWER SILESIA COAL
MINES.1
A movement for higher wages of the coal miners in Lower Silesia
was in an extraordinary manner brought to a temporary conclusion
in the early part of August, 1917. After months of discussion before
a board of conciliation the mine owners have agreed to grant
to miners proper an average wage of 7 marks ($1.67) per shift, in
clusive of high cost of living bonus. The rate of pay per shift in the
coal mines of the Ruhr district is 10.50 marks ($2.50) and 9 to 10
marks ($2.14 to $2.38) in those of Upper Silesia; and coal miners of
Lower Silesia have frequently left their employment to go to mines
in other districts paying better wages. Notwithstanding these facts
the coal mining companies of Lower Silesia declare that the revenues
from their mines do not permit payment of more than 7 marks ($1.67)
per shift. They have submitted to the workmen their books and
demonstrated by figures that even if they increase the price of coal
2 marks (47.6 cents) per metric ton it is impossible for them to
comply with the demand of the miners for an average wage of 8
marks ($1.90) per shift. One company even produced proof that it
was working with a deficit of 3,000,000 marks ($714,000) during the
present year.
In view of this state of affairs the representatives of the miners as
well as the mining companies have come to the conclusion that funds
to satisfy the fully justified demands for higher wages must be raised
through some new method, namely, through State aid. The mining
companies propose to petition the Government that either freight
1 F ro m V o rw ärts. U n tern eh m er und A rbeiter fo rd ern S ta a tsh ilfe fü r eine L ohnregulierung. B erlin, Aug. 8, 1917.
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Federal Reserve Bank of St. Louis
[1119]
48
M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
rates on Lower Silesian coal be considerably reduced or State sub
sidies be granted.
As freight reductions on Lower Silesian coal have already been
granted (in 1913) it seems very problematic whether the adminis
tration of the State railroads will consent to a further reduction of
freight rates. State subsidies, however, would involve State control
and possibly even State ownership, which at present is still opposed
by the coal-mining companies. The miners, on the contrary, are
strongly in favor of State aid. They see in State intervention the
only possible means to alleviate the distress of 30,000 miners’ families
MINIMUM WAGES DEMANDED BY TEXTILE WORKERS.1
The textile workers of Germany have for some time made strenuous
efforts to obtain the determination of a scale of minimum wages.
So far these efforts have, as a rule, been frustrated by the powerful
organizations of the textile manufacturers, whose influence upon the
military authorities is so great- that the war-arbitration offices
(.SchlichtwngssteUen) and local war offices {Kriegsamter), which are
presided over by army officers, have not shown much consideration
for the demands of the textile workers. The chairman of the arbi
tration office in Hirschberg, Silesia, for instance, declared “ that
the problem of minimum wages for textile workers is a problem of
the future and that arbitration offices are supposed to occupy them
selves only with present-day problems.”
Only in Bavaria the War Ministry, true to its steadily maintained
impartial attitude in labor disputes, has recognized the fairness of
the demands of the textile workers and determined minimum wages
for the manufacture of paper yarns and fabrics. In the Kingdom of
Saxony, though the constant admonitions of the Government to the
manufacturers to pay a living wage have not had the slightest effect,
the introduction of minimum wages has made some progress. In
several wage disputes in which textile workers demanded a minimumwage scale the arbitration offices have rendered decisions in favor of
the workmen.
The demand of the textile workers for a minimum-wage scale is
the result of their bitter experience since the outbreak of the war.
During the last three years the textile industry has reaped large
profits. The gradually restricted production on account of shortage
of raw materials has not lessened profits. The loss in production
has been more than counterbalanced by the high prices which the
military authorities have paid for the diminished output.
Nevertheless, during this same three-year period the wage con
ditions of textile workers became more and more intolerable. While
1 F ro m V o rw arts.
Die M indestlohne in der T ex tillin d u strie.
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Federal Reserve Bank of St. Louis
[ 1120]
B erlin, Aug. 21, 1917.
M O N T H L Y E E V IE W O F T H E B U R E A U O F LA BO R S T A T IS T IC S .
49
workmen in other industries obtained considerable wage increases
and therefore were partly enabled to meet the present high cost of
living, the standard of living of textile workers sank lower from
month to month. Special circumstances made it easy for textile
manufacturers to keep their workmen’s earnings at a low level. The
raw material deteriorated steadily. Each new shipment of raw ma
terial is smaller and contains more surrogates than the preceding
shipment. The output of the individual worker consequently under
goes a steady reduction. Percentual increases, therefore, bring only
temporary relief. It must, moreover, be considered that the work
men of the textile industry are still inexperienced in the use of
paper yarns and that the technique of the manufacture and working
up of paper yarns is in its infancy. Thus, increases of piecework
wages by 30 per cent or even more have not had the effect of increas
ing the actual earnings of the workmen.
That the wages paid at present in the textile industry are virtually
starvation wages is illustrated by the following d ata:
The piecework wages paid at present in the textile industry of
Saxony are equivalent to hourly wages of 4, 6, 8, and 10 pfennigs
(0.95, 1.4, 1.9, and 2.4 cents). A mill in Famau, Baden, has been
paying for years, and continues to pay during the war, hourly wages
of 8, 10, 12, 20 and 25 pfennigs (1.9, 2.4, 2.9, 4.8, and 6 cents). Even
during the present year this firm declined to grant any wage increase.
Another mill which before the war did a world-wide business pays,
for the manufacture of bagging, linings, and linen cloth, weekly
wages of 5.46, 5.18, 6, and 8.90 marks ($1.30, $1.23, $1.43, and $2.12).
The weekly maximum earnings of damask weavers for 44 hours of
labor are 11.38 marks ($2.71). Similar wages are being paid by the
largest linen manufacturers in Landeshut and the large cotton mills
in the Enlengebirge. Strong, robust men are paid at the rate of 33
pfennigs (7.9 cents) or even 25 pfennigs (6 cents) per hour.
All these facts force the textile workers to insist on the granting of
minimum-wage scales. General Gröner, however, who is charged
with the enforcement of the auxiliary service law (Hilfsdienstgesetz)
to which all in industrial establishments are subject, has openly de
clared himself against minimum wages and the army officers in charge
of the local war offices of course maintain the same attitude as their
superior. In Landeshut, Silesia, for example, the textile workers de
manded a minimum wage scale and applied to the war arbitration
office in Posen. They knew they could not expect much sympathy
from this office but expected at least an impartial consideration of
their demands. The presiding officer, however, without further in
vestigation declared that the present wages were sufficiently high
and told the workmen that their demands would bring about the clos-
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Federal Reserve Bank of St. Louis
[ 1121]
50
M O N T H L Y R E V IE W O P T H E B U R E A U O F LABO R S T A T IS T IC S .
ing of the mills and that in such a case the male workers would be
put into the army or into other establishments working on war ma
terial, while the female workers would be sent to West Prussia to
work on farms. The commanding general in Breslau intimated,
moreover, that he would proceed against those organized workers who
had been reported to him to have used intimidation in requesting
fellow workers to join their organization. He also issued an order
that even negotiations between individual workmen’s committees and
their employers in the offices of the latter must be brought to his
notice 8 to 10 days in advance, in the same manner as political meet
ings.
The textile workers of the Landeshut district were so embittered by
this summary procedure that they served notice on their employers
that they would quit work. This led to further negotiations which
were still pending at the end of August, 1917.
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Federal Reserve Bank of St. Louis
[11221
LABOR AND THE WAR.
LABO R PO L IC Y OF T H E W A R D E P A R T M E N T .
[R ep rin ted from tlie Official B ulletin, W ednesday, Nov. 21, 1917.]
The following is a summary of General Orders, No. 13, issued by
the Chief of Ordnance November 15, 1917. A similar order has been
issued by the Quartermaster General.
While circumstances are not such as to render appropriate the
issuance of definite orders upon this subject at the present time, the
following suggestions are commended to the careful consideration of
arsenal commanders and manufacturers executing orders for this
department :
In view of the urgent necessity for a prompt increase in the volume
of production of practically every article required for the conduct of
the war, vigilance is demanded of all those in any way associated
with industry, lest the safeguards with which the people of this
country have sought to protect labor should be unwisely and unneces
sarily broken down.
SAFEGUARDS OF EFFICIENCY.
It is a fair assumption that for the most part these safeguards are
the mechanisms of efficiency. Industrial history proves that reason
able hours, fair working conditions, and a proper wage scale are
essential to high production. During the war every attempt should
be made to conserve in every possible way all of our achievements in
the way of social betterment.
In the preparation of the following memorandum no effort has been
made to establish, or even to suggest, definite rules of conduct, The
memorandum presents what may be considered a fair, if tentative,
basis of action.
The department wishes to be assured that schedules of hours obvi
ously excessive or wage scales distinctly unfair or working conditions
such as should not be tolerated will certainly be brought to its atten
tion.
I. HOURS OF LABOR.
1.
D aily hours.— The day’s work should not exceed the customary hours in
the particular establishm ent or the standard already attained in the industry
and in the community. It should certainly not be longer than 10 hours for
an adult workman.
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The drift in the industrial world is toward an 8-hour day as an efficiency
measure.
It has also been shown that hours of labor must be adapted to the age and
sex of the worker, and the nature of the occupation.
2. Overtime.—The theory under which we pay “time and a h alf ” for over
tim e is a tacit recognition that it is usually unnecessary and alw ays undesirable
to have overtime. The excess payment is a penalty and intended to act as a
deterrent. There is no industrial abuse which needs closer w atching in times
of war.
3. Shifts in continuous industries.— E ight hours per sh ift should be a m axi
mum in continuous 24-hour work.
4. H alf holiday on S atu rd a y>—The h alf holiday on Saturday is already a
common custom in summer, and it is advantageous throughout the year,
especially if the workday be 10 hours long the other days of the week. The
working period on Saturday should not exceed five hours.
An occasional shift of two or three hours on Saturday afternoons is unobjectional if essential, but the additional hours should be regarded as overtime
and paid for on that basis.
5. Hours posted.— It is desirable that the hours of labor for every tour
should be posted.
6. Holidays.— The observance of national and local holidays w ill give oppor
tunity for rest and relaxation which tend to make production more satisfactory.
7. One day of rest in seven.— One day of rest in seven should be a universal
and invariable rule.
II. STANDARDS IN WORKROOMS.
1. Protection against hazards and provisions for comfort and sanitation.— E x
isting legal standards to prevent danger from fire, accident, occupational dis
eases, or other hazards, and to provide good light, adequate ventilaton, sufficient
heat, and proper sanitation should be observed as minimum requirements.
2. Location of toilets.—A ll toilets should be sanitary and readily accessible.
3. E xtrem e temperatures.— Those processes in which workers are exposed to
excessive heat—that is, over 80°; or excessive c o ld ; that is, under 50°-—should
be carefully supervised so as to render the tem perature conditions as nearly
normal as possible.
When extrem e tem peratures are essential workers should not only be prop
erly clothed but avoid sudden changes.
4. Lights.— If any light is at the level of the worker’s eyes it should be so
shaded that its rays w ill not directly strike the eyes.
III. WAGES.
1.
Wage standards.— Standards already established in the industry and in the
locality should not be lowered. The minimum w age rates should be made in
proper relation to the cost of living, and in fixing them it should be taken into
consideration that the prices of necessities of life have shown great increases.
IV. NEGOTIATION BETWEEN EMPLOYERS AND EMPLOYEES.
The need of preserving and creating methods of joint negotiations between
employers and groups of em ployees is especially great in the light of the
critical points of controversy which may arise in a time like the present.
E xistin g channels should be preserved and new ones opened, if required, to
provide easier access for discussion between an employer and his employees
over controversial points.
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V. STANDARDS FOR EMPLOYMENT OF WOMEN.
1. Hours of labor.— E xisting legal standards should be rigidly maintained,
and even where the law perm its a 9 or 10 hour day, effort should he made to
restrict the work of women to 8 hours.
2. Prohibition of night work.— The employment of women on night shifts
should he prevented as a necessary protection, morally and physically.
3. R est periods.— No women should be employed for a longer period than 41
hours without a break for a meal, and a recess of 10 m inutes should be allowed
in the middle of each working period.
4. Time for meals.—At least 30 minutes should be allowed for a meal, and
this, time should he lengthened to 45 m inutes or an hour if the working day
exceeds 8 hours.
5. Place for meals.— Meals should not be eaten in the workroom.
G. S atu rda y half holiday.— The Saturday half holiday should be considered
an absolute essential for women under all conditions.
7. Seats.—-For women who sit at their work, seats w ith backs should be
provided, unless the occupation renders this impossible. For women who
stand at work, seats should he available and their use permitted at regular
intervals,
8. Lifting weights.—No woman should be required to lift repeatedly more
than 25 pounds in any single load.
9. Replacement of men by women.— When it is necessary to employ women
in work hitherto done by men, care should he taken to make sure that the task
is adapted to the strength of women. The standards of w ages hitherto pre
vailing for men in the process should not be lowered where women render
equivalent service. The hours for women engaged in such processes, of course,
should not he longer than those formerly worked by men.
10. Tenement-house work.— No work shall he given out to he done in rooms
used for living purposes or in rooms directly connected w ith living rooms
in any dw elling or tenement.
VI. STANDARDS FOR EMPLOYMENT OF MINORS.
1. Age.— No child under 14 years of age shall be employed at any work
under any conditions.
2. Hours of labor.— No child between the ages of 14 and 16 years shall be
employed more than 8 hours a day or 48 hours a week, and night work is
prohibited.
3. Federal child labor law.—These and other provisions of the Federal child ■
labor law must he strictly observed.
4. Minors under 18.— Minors of both sexes under 18 years of age should
have the same restrictions upon their hours as already outlined for women
employees.
ADJUSTMENT OF LABOR DIFFICULTIES IN ARIZONA COPPER
REGION.
On September 19 the President signed a memorandum for the
Secretary of Labor, appointing a commission to visit, as his personal
representatives, the mountain region and the Pacific coast for the
purpose of learning the causes of existing discontent among workers
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in that section and of adjusting differences by conferences with
employers and employees. The memorandum is as follows:
I am very much interested in the labor situation in the mountain region and
on the Pacific coast. I have listened w ith attention and concern to the numerous
charges of misconduct and injustice that representatives both of employers and
employees have made against each other. I am not so much concerned, how
ever, w ith the manner in which they have treated each other in the past as I
am desirous of seeing some kind of a working arrangement arrived at for the
future, particularly during the period of the war, on a basis that w ill be fair to
all parties concerned. To assist in the accomplishment of that purpose, I have
decided to appoint a commission to v isit the localities where disagreements
have been most frequent as my personal representatives. The commission w ill
consist of W illiam B. W ilson, Secretary of L ab or; Col. J. L. Spangler, of Penn
sylvania ; Verner Z. Reed, of C olorado; John H. Walker, of Illin o is ; and E. P.
Marsh, of W ashington. F elix Frankfurter, of New York, w ill act as secretary
of the commission.
It w ill be the duty of the commission to visit, in each instance, the governor
of the State, advising him that they are there as the personal representatives
of the President w ith a view to lending sym pathetic counsel and aid to the
State government in the development of a better understanding between laborers
and employers, and also them selves to deal w ith employers and employees in a
conciliatory spirit, seek to compose differences and allay m isunderstanding, and
in any w ay that may be open to them to show the active interest of the N ational
Government in furthering arrangements just to both sides. W herever it is
deemed advisable conferences of employers and employees should be called
w ith the purpose of working out a mutual understanding between them which
w ill insure the continued operation of the industry on conditions acceptable to
both sides. The commission should also endeavor to learn the real causes for
any discontent which may exist on either side, not by the formal process of
public hearings, but by getting into touch w ith workmen and employers by the
more informal process of personal conversation. I would be pleased to have the
commission report to me from tim e to time such inform ation as may require
im mediate attention.
GLOBE-MI AMI COPPER DISTRICT.
The attention of the commission was at once directed to the copper
fields of Arizona, where consideration was first given to the strike
in the Globe-Miami district, which had been going on since July 2,
resulting in a decrease in the production of copper amounting to
more than 60,000,000 pounds, the normal monthly output of the dis
trict being about 21,000,000 pounds, requiring a working force of
over 5,000 men. In arriving at an adjustment of the labor situation
in that field the commission proceeded on the following principles:
(1) That the country must have the maximum uninterrupted output
of copper during the period of the war; (2) that no grievances on
the part of the workers, whether well founded or imaginary, must
be allowed to result in stoppage of production; and (3) that prac
ticable machinery must be devised for the adjustment of grievances,
whether real or imaginary, to prevent stoppage of production.
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To carry out these principles the plan of settlement reached by the
commission, which resulted in resumption of work, embodies the
following chief features:1
(1) The establishment of a workers’ committee for each mine,
wholly independent of any influence, direct or indirect, to be exer
cised by the company. This committee is to be composed exclusively
of men working at each mine, with the right, however, of union
members to have a union representative in the presentation of griev
ances.
(2) The employment of those now on strike, except those guilty
of seditious utterances against the United States or those who have
membership in an organization that does not recognize the obliga
tion of contract. In providing for the reemployment an important
principle is introduced in that the district is treated as an indus
trial unit, instead of the individual mine. Reemployment is to be
secured through a central employment committee for the district.
(3) The impartial and effective working of the scheme is assured
through the appointment of a United States arbitrator, acceptable
to both sides, who is to determine all disputed questions of fact.
The success of the settlement rests on the loyal spirit of all parties
in carrying out the agreement, but the arbitrator is necessary to
secure the settlement of any difficulties as to which in perfect good
faith the two sides may not agree. The machinery thus provided
is in substitution of strikes and lockouts during the period of the
war.
CLIFTON-MORENCI-METCALF COPPER DISTRICT.2
In the Clifton-Morenci-Metcalf copper district the strike which
started in July was settled upon the application by the President’s
commission of substantially the same principles as those set out on
page 54. The adjustment of this situation assures a resumption of
the normal monthly output of about 10,000,000 pounds and the
return to work of approximately 6,000 men. The chief features of
the settlement accepted by both sides are as follows:
(1) Companies and men must exert their utmost efforts to secure
the highest possible efficiency in the production of copper consistent
with proper discipline and due regard for the health and safety of
the workmen.
(2) The companies will continue to recognize workmen’s griew
ance committees previously existing in the district. Heretofore,
however, there was a feeling of impotence as to these committees,
because the final decision was with the managers. There is, there1 D a t a t a k e n f r o m O ffic ia l B u l l e t i n o f O c t. 2 5 , 1 9 1 7 .
2 D a t a t a k e n f r o m O ffic ia l B u l l e t i n o f N o v . 2, 1 9 1 7 , a n d f r o m
J o u r n a l , C li f to n , A riz ., N o v . 1, 1 9 1 7 .
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M O N T H L Y R E V IE W
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O F LA B O R S T A T IS T IC S .
fore, added to the existing scheme remedying grievances an appeal
to the United States administrator,1 appointed for the purpose of
supervising the operation of the commission’s settlements in the
entire district, and to act as final arbiter in case the grievance com
mittee and the management are unable mutually to adjust any
difference in dispute.
(3) No man shall be discharged or discriminated against in his
work because he does or does not belong to a union.
(4) Reemployment is assured to all striking workmen without
discrimination, except those guilty of seditious utterances against
the United States, or those who have membership in an organization
which does not recognize the obligation of contract, or those of
demonstrated unfitness for work. In providing for reemployment
here, as in the Globe-Miami district, the placing of striking work
men is to be handled as a district problem instead of as an individual
mine problem. This feature was adopted because the growing labor
shortage throughout the country requires the full, as well as the
regulated, use of all available man power.
(5) One of the causes of the strike was a claim for increased wages
to conform to the high wage scale in the Globe-Miami district.
Owing to the time required to investigate the justice of this claim,
the commisison felt it not within its province to do so, but instead
laid down the principles which should control such a claim for wage
increase and left the application of the principles to the facts as they
should be found by the United States administrator. I t was pro
vided that the administrator should determine if any adjustment
of wage scale is called for in order to secure a fair living wage, hav
ing regard to the high cost of living, to efficiency or lack of efficiency,
and to the financial ability of the companies. If the administrator
should recommend a wage increase and such a wage scale allows a
fair profit to the companies under the existing price of copper, the
President’s commission shall at once promulgate such new wage scale
and the company shall pay all such increases in wages as of the first
day of the return of men to work. If, however, such wage scale rec
ognized by the administrator does not leave a fair profit under exist
ing prices of copper, the President’s commission shall recommend to
the President an increased selling price which will yield a fair profit,
and the wage increase recommended by the administrator shall not
be made effective until such selling price has been obtained. In order
to secure this wage scale and in order to determine the fair profit
of the companies, the administrator is given complete access to all the
records of the companies and has authority to employ all necessary
expert assistants.
1 T h e a d m i n i s t r a t o r is M r. H y w e l D a v ie s o f K e n tu c k y .
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(6)
The agreement provides for wages at the rate of time and
one-half for all overtime and for all work on the 4th of July and
on Christmas.
WARREN COPPER DISTRICT.1
Somewhat different was the situation in the Warren copper district.
The commission found that production amounting to approximately
17,000,000 pounds per month was being maintained and no Federal
intervention was necessary to bring about resumption of work; since
the strike, which was called on June 26, was broken by the Bisbee
deportation of 1,186 men on Julyl2. Here, however, the commission
was confronted by the necessity of securing a continuance of oper
ations during the period of the war; and, to effectuate this result,
it became apparent that some plan should be devised by which
the grievances of the employees could find adjustment through an
orderly process of adjudication before some final disinterested tri
bunal in whose fairness both sides would have confidence and before
whom each side would have equal weight. Such a plan was pro
vided by the commission, embracing the establishment of a grievance
committee in each mine, entirely selected by the men, by and before
whom all grievances must in the first instance be presented. In case
redress be denied by the company, the grievance committee may ap
peal to the United States administrator.
The commission found that claims of discrimination against union
members had been particularly insistent in this district, and this it
prohibited, the enforcement of the prohibition being vested in the
United States administrator. Effective means by which all questions
in dispute between the companies and the men may be promptly and
justly settled under the impartial supervision of Federal authority
being thus established, resort to the strike, at least for the period of
the war, becomes unnecessary and has been abandoned by the men.
ABOLITION OF LEAVING CERTIFICATES IN GREAT BRITAIN.2
Under the Munitions of War Act, 1917, the Minister of Munitions
was given power to repeal the provisions of the 1915 act, under which
a workman engaged in the production of munitions has not been free
.to change his employment at will, and an employer has been liable
to a heavy penalty if he engaged a workman, who within six weeks
had been engaged on munitions work, without seeing a certificate
from his former employer or from a munitions tribunal to the effect
that the workman was free to accept other employment.
1 D a t a t a k e n f r o m O ffic ia l B u l l e t i n , N o v . 7, 1 9 1 7 .
2 R e p r i n t e d f r o m L a b o r G a z e t t e , O c to b e r, 1 9 1 7 , p . 3 5 6 .
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M O N T H L Y R E V IE W
O P T H E B U R E A U O P L A B O R S T A T IS T IC S .
An order has now been made by the Minister of Munitions abolish
ing leaving certificates from Monday, October 15, and on and after
that date any workman engaged on the production of munitions will
be free to leave his present employment for other war work on giv
ing his employer a week’s notice, or such longer notice as is provided
for in his existing contract of service.
EXTENSION OF WAR-MUNITIONS VOLUNTEER SCHEME.
As a safeguard against excessive migration of labor, which might
seriously imperil the production of munitions, it has been decided to
extend the war-munitions volunteer scheme in the following manner:
All of those men who are eligible will be free to enroll as war-muni
tions volunteers, and, on assignment, will become entitled to subsist
ence allowance. Married men and unmarried men whose homes are
mainly dependent on them will receive an allowance at the rate of
2s. 6d. (60.8 cents) per day, and unmarried men whose homes are
partially dependent on them will receive an allowance at the rate of
Is. 6d. (36.5 cents) per day; and these payments, wherever due, will
be made as from the date on which the men are assigned to their
employment by the local employment exchange, acting on behalf
of the Ministry of Munitions. All war-munitions volunteers, on
work to which they have been assigned by the Ministry of Munitions,
will become entitled to free railway passes to and from their homes
on general holidays or generally observed trade holidays. Even
munitions volunteers employed away from home who have no de
pendents, and therefore no right to claim subsistence allowance, will
in future obtain free railway warrants to and from their homes at
holiday times if they have been assigned to the establishments at
which they are working.
*
*
*
*
*
*
*
APPEAL BY TRADE-UNION ADVISORY COMMITTEE.
In order to minimize the dislocation of work which would result
if a considerable movement of labor took place, the trade-union ad
visory committee addressed the following appeal to the workpeople
concerned:
On October 15 leaving certificates w ill be abolished, and workmen w ill be
free to leave for other war work after giving tlieir employer a w eek’s notice,
¡¡niess a longer period is provided for by their existin g contracts of service.
If large numbers of men leave their work suddenly and a big movement of
workpeople takes place, there is danger that the output of urgent munitions may
b e dislocated, and men at the front w ill suffer.
We, therefore, appeal on behalf of the trade-union advisory committee to all
workmen not to change their employment w ithout definite and substantial
grounds, and to show that the output of m unitions w ill not suffer by the
abolition of leaving certificates.
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Any man who is thinking of leaving is asked to consider these p o in ts:
(1) If you w ish to leave because of the expense incurred in working away
from home, remember that the war-munitions volunteer scheme has been ex
tended. If you are eligible to enroll under th at scheme, and have persons de
pendent on you, you w ill be able to get subsistence allowance under the ordinary
conditions by enrolling and staying where you are. Ask for particulars from
any employment exchange or trade-union.
(2) If you w ish to leave because you are working away from your home,
remember that the Government w ill nojv give to war-munitions volunteers who
are, or have been, assigned to employment, free return railw ay passes to and
from their homes for public holidays.
(3) If you feel bound to change your work, you can help your union and the
country by giving notice on a form which you can get either from your em
ployer, from your local union officials, or from any employment exchange. If
you w ill fill up this form and return it to your local union official or nearest
employment exchange, you w ill have the best chance both of helping your
country and yourself.
(4) Finally, we appeal to all eligible workmen to put their services at the
disposal of the Government by enrolling as war-munitions volunteers. Re
member that the output of munitions depends on you.
THE LABOR MARKET AND THE NEW INDUSTRIAL CENSUS IN
GERMANY.
GERMAN LABOR MARKET IN JUNE, 1917.1
The July, 1917, number of the Reichs-Arbeitsblatt contains the
following statement with respect to the German labor market during
June, 1917:
In the m ining and sm elting industry there is the same intensive activity as in
preceding m on th s; compared w ith the preceding year the activity has even
increased. The same can be stated of the iron, steel, and metal industry. In
several branches of the electrical and chemical industry there is increased
activity as compared w ith June, 1916. Employment in the food-products indus
try has increased in part as compared w ith the* preceding month and in part
decreased. The situation in the building trades remains unchanged.
Sick-fund statistics show that on July 1, 1917, the number of em
ployed members has decreased by 102,236, or 1.12 per cent, as com
pared with the number of employed members on June 1. The de
crease for the corresponding period of the preceding year was 0.22
per cent. The Reichs-Arbeitsblatt states that this large decrease is
chiefly due to decreased employment of men on account of further
conscriptions for service in the army and navy, the number of em
ployed male members having decreased during the month under
review by 109,405, or 2.4 per cent. The number of female employed
members increased during the month by 7,169, or 0.1 per cent. It
should be noted that the sick-fund statistics on employment do not
1 B r e m e r B ü r g e r - Z e itu n g .
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take into consideration the extensive employment in Germany of war
prisoners.
Reports received by the Imperial Statistical Office from 33 federa
tions of trade-unions with a total membership of 929,227 show that at
the end of June, 1917, 7,967 members, or 0.9 per cent, were unem
ployed, as against 1 per cent at the end of May, 1917. If the state of
unemployment of trade-union members in June, 1917, is compared
with that existing during the same month of the three preceding
years, a large decrease is found, for in June, 1914, 1915, and 1916,
the rate of unemployment was in every year 2.5 per cent.
Statistics of the employment offices show a further decrease in the
number of male and female applicants for employment. The num
ber of male applicants per 100 vacant situations was 47 in June, 1917,
as compared with 53 in the preceding month. The corresponding
number of female applicants fell from 96 in May to 88 in June.
BERLIN LABOR MARKET IN JULY, 1917.1
The “ Vorwärts” reports that the number of employed members
of 105 Berlin sick funds decreased in July, 1917, by 6,400. The
decrease in employment is ascribed to lack of raw materials, coal,
and electric power. The number of employed male members de
creased by 4,100 and that of female members by 2,300.
Conditions of the Greater Berlin labor market are reported as
generally favorable. There is great demand for earth and buildingtrade workers. In the leather and paper industry the demand for
labor considerably exceeded the supply. In the machinery indus
try the employment situation remained unchanged on account of
lack of raw materials.
The employment offices of Greater Berlin report that the number
of applicants per 100 vacancies was in the case of male applicants
62 and in the case of female applicants 73. The corresponding per
centages for the preceding month were 66 and 76, and for July, 1916,
98 and 115.
NEW INDUSTRIAL CENSUS IN GERMANY.2
The German War Office {Kriegsamt) conjointly with the Imperial
Department of the Interior issued an order for the taking of a new
industrial census on August 15, 1917. This census is intended to fur
nish statistical data on the changes which industrial life in Germany
lias undergone during the war.
rFhe census will include the handicrafts’ industry, inclusive of
home work, the building trades, mines and salt works, wholesale and
retail commerce, hotels, saloons, and restaurants, Sanatoriums con1 V o rw ä rts .
2 V o rw ä rts .
D e r B e r l i n e r A r b e i t s m a r k t im M o n a t J u l i , 1 9 1 7 .
B e rlin , A ug. 3 1, 1917.
D ie g e w e r b li c h e B e t r i e b s z ä h l u n g .
B e rlin , A ug. 7, 1 9 1 7 .
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ducted for profit, private insurance institutes, private transporta
tion enterprises, theatrical performances, fishing, and gardening
carried on for profit but on a small scale. Agricultural establish
ments, hospitals conducted predominantly for welfare purposes, and
large public establishments of the railroad, postal, telegraph and
telephone service, with the exception of their factories and shops,
will not be considered.
The taking of the census will be effected at, the seat of each estab
lishment where the owner or his representative will fill in a schedule.
Each branch establishment will therefore be counted as a separate
establishment. The schedules will in due time be distributed by the
local police forces to the owners of each dwelling or their representa
tives, who in turn will distribute them to the individual industrial
establishments located in their dwellings. The filled-in schedules
are to be returned to the local police authorities on or before August
30, 1917. Imprisonment up to one year and fines up to 10,000 marks
($2,380) are provided in the order for false or incomplete statements.
The order solicits the voluntary cooperation of municipal and
communal authorities and their local statistical offices, of officials
and teachers, and of the general public.
CREATION OF AN IMPERIAL ECONOMIC DEPARTMENT IN
GERMANY.1
Under date of August 9, 1917, the German daily paper, Vorwärts,
reports that the social and economic divisions (divisions II and IV)
of the Imperial Department of the Interior (Reichs aunt des Innern)
have been separated from this department and been established as an
independent department under the name of Imperial Economic De
partment (Reichswirtschaftsamt) with an enlarged sphere of activi
ties. Dr. Schwander, formerly mayor of Strassburg, has been ap
pointed as director of the new department.
The large number of important activities assigned to the new de
partment show clearly how necessary it was to detach these activities
from the jurisdiction of the greatly overburdened Department of the
Interior. The Economic Department will be organized into two
large divisions, an economic and a social division.
The sphere of activities of the economic division will include com
mercial policies, commercial treaties, commerce in general, agricul
ture, industry, economic problems, the customs tariff, taxes, problems
of production in Germany and foreign countries, statistics, the export
1
F ro m V o rw ä rts .
2 5 4 1 3 °— 17
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D as R e ic h s w ir ts c h a f ts a m t.
[1 1 3 3 ]
B e rlin , A ug. 9 , 1917.
62
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
and import trade, banks, and stock and produce exchanges. One of
its principal tasks will consist in the devising of suitable measures
for the period of transition from a war to a peace régime.
The following affairs were assigned to the social division: Work
men’s accident, sickness, invalidity, and survivor’s insurance, salaried
employees’ insurance, workmen’s protective legislation, welfare in
stitutions, and the labor market.
In a special article in the Vorwärts1 it is stated that the Social
Democratic Party has accepted the creation of the new economic de
partment as a substitute for its demand for the creation of an imperial
labor department as an independent ministry. The new department
is merely a subdepartment under the imperial chancellor. The arti
cle summarizes the demands of organized labor with respect to the
activities of the new department as follows:
During the period of transition from a war to a peace regime labor demands
that representatives of all branches of labor be consulted in all m atters coming
before the department which involve labor problems and the interests of the
working classes. The same is demanded w ith respect to the preparation of
future commercial relations. For this purpose labor requests that the National
Economic Advisory Council shall include representatives of labor of the indus
tries and trades involved. As to legislation relating to monopolies and cartels
the workmen’s and salaried employees’ federations have already submitted
their demands to the forifier imperial chancellor.
From the social division labor expects in the first place that it w ill work
for the granting of the right of free coalition. R estrictions of coalition con
tained in the crim inal code must be removed, all unfair practices in this con
nection by the political authorities must cease, and agricultural workers and
domestic servants as w ell as workmen and salaried employees in public estab
lishm ents must be granted the right of coalition and the right to strike. W ith
respect to workmen’s representation, labor favors the creation of workmen’s and
salaried employees’ chambers, but equipartisan (paritä tisch e) labor chambers
would also be acceptable provided that the representatives of labor be permitted
to act separately in pure labor problems. In order that a social organism be
built up labor demands the creation of labor offices in each urban and rural
district, of State labor offices in each Federal State and each Province, and
of an im perial labor office. An equipartisan representation of employers and
workmen should be attached to these offices for cooperation in the preparation
and enforcement of law s, decrees, orders, etc. Labor further demands that the
procuring of employment be regulated by im perial legislation in the sense of
the demands submitted by organized labor to the R eichstag and accepted by the
latter in 1915, which provided for extension of the system of public w elfare
employment offices under equipartisan adm inistration and of employment offices
of employers and workmen’s organizations operated on the basis of collective
agreements. Finally, labor demands that housing work be promoted through
ample loans from imperial and State funds, the granting of special facilities to
communes and cooperative building societies engaged in housing work, and the
creation of imperial and local housing offices.
1 “ D a s n e u e R e i c h s w i r t s c h a f t s a m t ” b y P a u l U m b r e i t.
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V o rw ä rts , B e rlin , A ug. 14, 1917.
M O N T H L Y R E V IE W
O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
63
AGRICULTURAL LABOR PROBLEM IN GERMANY.1
The Berlin daily paper, Vorwärts, reports under date of August 8,
1917, that Dr. Paasche, a member of the Reichstag, interpellated
the imperial chancellor as follows:
The German Central Employment Office for agricultural labor [Deutsche
Arbeiter zentrale, Berlin, a semiofficial employment office] has announced for
1917 the conditions under which foreign migratory agricultural laborers will
be employed in Germany. In addition to minimum wages, payable in cash,
these conditions provide for the follow ing compensation in kind per worker
and per w e e k : F ifteen kilograms [38 pounds] of potatoes, 7 liters [7.4 quarts]
of skimmed milk or 3 i liters [3.7 quarts] of unskimmed milk, 250 grams
[0.55 pound] of flour, 1% kilograms [3.31 pounds] of bread, 1 kilogram [2.20
pounds] of barley groats or oat meal, one-half kilogram [1.1 pounds] of
legumes, 250 grams [0.55 pound] of meat, one-half kilogram [1.1 pounds] of
sugar, and 250 grams [0.55 pound] of salt. Is the im perial chancellor ready
to inform me how, in view of the fact that the rations for native workmen
employed at heavy labor have been fixed much lower, it is possible to attract
foreign labor to Germany w ith such promises, and whether there is any possi
bility that these promises can be kept in practice?
The above data as to foodstuffs to be furnished to foreign agricul
tural laborers are corroborated by an article in the Deutsche Tages
zeitung of August 2, 1917. This paper reports that in Lobau,
Saxony, a meeting of agriculturists expressed itself as opposed to
the furnishing of such large quantities of foodstuffs to agricultural
migratory laborers as part compensation, because the present scarcity
and high prices of food make this impossible. At the same time
the meeting voiced its opposition to commutation of this compensa
tion in kind into compensation in cash at the market value of the
foodstuff's involved, because this would mean an enormous wage
increase for imported foreign labor. The participants in the meet
ing stated that it does not seem advisable to spoil these migratory
laborers, and also expressed their apprehension that native agricul
tural labor would rightly demand the same high wages and com
pensation in kind as are being paid to foreign labor.
In this connection it should be stated that the State agricultural
council of the Kingdom of Saxony, a semiofficial organization, which
receives a State subsidy, has decreed the above minimum wages and
compensation in kind as in force in Saxony for migratory foreign
laborers. The Vorwärts states that this action invites comparison
with the low food rations fixed by the Government for the urban
population in Saxony and accepts it as further proof of the fact
that agricultural authorities do not pay any attention to war food
regulations.
1 F ro rn V o rw ä rts .
Z u r la n d w ir ts c h a f tlic h e n A rb e ite rfra g e .
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B e rlin , A ug. 8. 1917.
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M O N T H L Y R E V IE W
OE T H E B U R EA U
O F L A B O R S T A T IS T IC S .
In its issue of June 5, 1917, the Vorwärts points out that the
scarcity of agricultural labor is being much exaggerated by agricul
tural organizations, and in support of this assertion refers to the
data on agricultural employment published by employment offices.
The Vorwärts also refers to an article by Dr. Horst in the official
bulletin of the agricultural chamber of Schleswig-Holstein, in which
the agricultural labor market in the Province during 1917 is dis
cussed. This article states that as a rule there is at present a sur
plus of agricultural labor and explains this phenomenon by the fact
that agriculturists prefer to emplo}^ war prisoners because their
employment costs less than that of native labor. Agriculturists,
moreover, show themselves unwilling to give work to unemployed
urban workers assigned to them.
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[ 1136 ]
PROVISION FOR DISABLED SOLDIERS.
FINDING JOBS FOR GREAT BRITAIN’S DISABLED SOLDIERS.1
BY
M R S . M . A . G A D SB Y .
In Great Britain, at the beginning of the war, responsibility for
such State provision as existed for the care of disabled officers and
men was divided between the Admiralty, the War Office, and the
Koval Hospital of Chelsea. The Admiralty dealt with all naval
cases, the War Office with officers of the army, and the Koyal Hospital
of Chelsea awarded pensions to disabled soldiers and provided arti
ficial limbs in amputation cases. Care of the men’s families while
they were in the service and for the disabled after discharge was
undertaken by various voluntary societies and largely supported by
voluntary funds.
With the progress of the war, the need for more systematic pro
vision led in November, 1915, to the creation of the War Pensions
Statutory Committee2 having among its duties (1) the care of the
disabled officers and men after they had left the service, including
provision for their health, training and employment, and (2) the
making of grants in special cases for the purpose of enabling the
dependents of the deceased officers and men to obtain employment.
For assisting in the execution of its duties, the committee was em
powered to establish local committees for every county and large,
town in the country.
A more centralized administration was effected by the creation of
the Ministry of Pensions in December, 191G.3 All pensions work
for disablement, handled by the Chelsea Hospital, the Admiralty, and
the War Office was transferred to the new ministry, and the Statutory
Committee with its attendant local committees was placed under its
direction and control. For the further coordination of effort the
whole country was divided into 20 or more districts and the local
committees of each area were organized into a joint committee, with
out surrendering their local functions.
1 C o m p ile d f r o m p a m p h l e t s a n d m e m o r a n d a is s u e d b y t h e M i n i s t r y o f P e n s i o n s a n d t h e
e m p lo y m e n t d e p a r t m e n t o f t h e M i n i s t r y o f L a b o r . F o r l i s t o f t h e s e c i t a t i o n s s e e b ib lio g
r a p h y a t t h e e n d o f t h i s a r t i c l e , p. 79.
2 N a v a l a n d M i l i t a r y W a r P e n s io n s , e tc ., A c t, 1 9 1 5 , 5 a n d 6 G eo . V , e h . 8 3 .
3 M i n i s t r y o f P e n s i o n s A c t, 1 9 1 6 , 6 a n d 7 G eo. V, cli. 6 5 .
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6 6
M O N T H L Y R E V IE W
OF T H E BUREAU
O F L A B O R S T A T IS T IC S .
Later, under authority of the Naval and Military War Pensions
(Transfer of Powers) act, passed August 21, 1917,1 the War Pen
sions Statutory Committee was entirely absorbed by the Ministry
of Pensions and its name changed to the Special Grants Committee,
its duties, however, remaining the same. Under the present ar
rangement, then, the entire work for the disabled is under supervi
sion of the Ministry of Pensions, working in conjunction with other
departments concerned.
Provision for the disabled man involves four lines of effort: (1)
Medical and surgical treatment, including appliances by means of
which his condition may be alleviated; (2) training, both functional
and technical, for the purpose of fitting him for his former work
or some new occupation when he is unable to resume the one to
which he has been accustomed; (3) employment, the finding of suit
able occupation for him when he is in condition to accept it; (4)
maintenance, which includes pensions, and allowances for himself and
family while he is in training or becoming adjusted to his new em
ployment.
This article is limited in its scope to the employment phase of the
problem as it is being met by the Special Grants Committee of the
Ministry of Pensions working in close collaboration with the em
ployment department of the Ministry of Labor. I t is compiled
from such pamphlets and memoranda issued by the Ministry of Pen
sions and the employment department as have reached this bureau.
Upon discharge from His Majesty’s forces the address to which
the disabled man proposes to proceed is sent to the employment ex
change for that district. The exchange then writes to the man, in
viting him to register in case he wishes assistance in obtaining em
ployment. From May, 1915, when the above arrangement went into
effect, to July 13, 1917, there were 127,300 such registrations and
59,400 cases of disabled men placed in employment. On July 13,
1917, there were 2,800 men on the register awaiting employment.
This number represents the number of men on their way from the
forces to civil employment and has remained practically uniform.
The remainder represents cancellations, due either to the disabled
man’s finding employment through his own efforts or to his realiza
tion after registration that owing to his disablement he is not really
capable of accepting normal employment.
The question of employment involves many serious difficulties.
Thus, unless the state of the general labor market be carefully
watched, the supply of men reeducated for any particular trade may
exceed the demand. A system of coordination between schemes of
training put forward by the different local or joint committees is
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a n d 8, G eo. V , c h . 37.
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M O N T H L Y R E V IE W
OE T H E B U R EA U
O F L A B O R S T A T IS T IC S .
67
therefore regarded as necessary. Furthermore, if employers are
asked to pay a man more than he can actually earn, they might pro
tect themselves by employing only the able-bodied. Again, less
scrupulous employers might take advantage of the fact that the pen
sioned man may undersell his able-bodied competitors and pay the
pensioner less than the fair market rate for his labor. The most
serious difficulty, however, is that encountered by local committees
in persuading employers’ associations and trade-union branches con
cerned to agree upon occupations into which men are to be trained,
the wages to be paid, and other conditions of employment. To avoid
such difficulties, to ascertain the views and gain the interest and
cooperation of the trade as a whole in these matters, committees have
been and are being set up in all the principal towns and in each of
the principal trades in which it is proposed to provide training for
disabled men. These committees are of two sorts, the Trade Ad
visory Committee and the Advisory Wages Board.
TRADE ADVISORY COMMITTEES.
The Trade Advisory Committee consists of an equal number of
employèrs and workpeople in a single industry or group of trades,
elected by the associations of employers and workpeople, respec
tively. The chairman is appointed by the committee, or in case of its
failure to agree, by the Ministry of Labor. A representative of the
Special Grants Committee and a representative of the employment
department of the Ministry of Labor attend the meetings in a con
sultative capacity.
The functions of the committee are as follows :
(a) To advise as to all questions that affect the reinstatem ent into employ
ment of disabled men formerly employed in the trade.
(b) To make inquiries and to advise w ith regard to the possibility of the
permanent employment of disabled men not hitherto working in the trade.
(c) To report upon any scheme of training either in technical institutes or
in factories that may be necessary for disabled men, whether form erly em
ployed in the trade or not, and to give advice as to suitable centers throughout
the country in which such training might be given.
(d) To advise upon any general questions w ith regard to the rate of wages
to be paid to disabled men in the trade.
It is intended that advice of the Trade Advisory Committees
should be asked upon the kind of training needed, the period of
training necessary and the number of men who can be safely trained,
taking the trade as a whole into consideration.
The Trade Advisory Committees deal only with national indus
tries. In case of industries which are confined to only one town or
to a small area, any local committee may set up a small panel of
employers and trade-unionists to advise with regard to local indus
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M O N T H L Y R E V IE W
O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
try, if, after communication with the Special Grants Committee,
there is found to be no overlapping.
By July, 1917, Trade Advisory Committees for the following
trades had been formed: (1) Cane and willow; (2) building; (3)
furniture; (4) engineering and shipbuilding; (5) tailoring; (6) boot
and shoe repairing; (7) boot and shoe manufacture; (8) gold, silver,
and jewelry; (9) brush making; (10) printing and kindred trades;
(11) paper; (12) leather goods; (13) cinematograph; (14) electricity
substations; (15) mechanical dentistry. Proposals were also under
consideration to form further Trade Advisory Committees for the
electrical industry, the textile industries, coal mining, etc.
ADVISORY WAGES BOARDS.
The Trade Advisory Committee deals with general questions affect
ing rates of wages in a given trade, but is not to deal with the ques
tion as to the rate of wage that should be paid to any man so dis
abled as not to be able to produce, even after training, as much as
an able-bodied man can produce. For this purpose advisory wages
boards have been set up in all the principal towns, and to these boards
such matters can be referred by local committees or by the individual
man or employer affected.
The function of these advisory wages boards is to give an authori
tative opinion as to the proper wages which should be paid to a
disabled soldier or sailor in any particular case, having regard to
the physical disability of the man, the current local rate of wages,
and other relevant circumstances.
The Wages Board consists of a permanent chairman, appointed by
the Ministry of Labor, one representative of employers, and one of
workmen, drawn from panels of representatives formed for the
purpose, together with not more than three members of the local
pensions committee as assessors without right to vote. An officer
of the Ministry of Labor acts as clerk of the board. Representatives
hold office for such period, not less than 12 months from the first
meeting of the board, as the Ministry of Labor may determine. Peri
odical meetings are arranged for according to the volume of work
anticipated, with supplementary meetings whenever necessary. A
definite area is assigned to each board. Their meetings are not open
to the general public.
Any employer or workman directly interested in the matter, or
the secretary of the local pensions committee for the workman’s dis
trict, may apply to the Wages Board for advice as to the wage of any
workman employed upon specific work, or the local pensions com
mittee may apply for advice as to his earning capacity. In consider-
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M O N T H L Y R E V IE W
OF T H E BU REA U
O F L A B O R S T A T IS T IC S .
69
ing advice to be given in any case, the board is to disregard entirely
the question of pensions.
The chairman of the Advisory Wages Board is in practically every
case the chairman of the local court of referees set up under part 2 of
the national insurance act, 1911. It is considered that the special
knowledge of local ir .ustrial conditions which he has gained upon
the court of referees will be of value in connection with the work
of the advisory wages boards.
The Wages Boards exist only to give advice in cases in which their
advice is sought. They have no power to enforce their decisions
upon either employer or workmen.' I t is expected, however, that the
mere fact that such advice has been obtained from an official body
created for this specific purpose will carry weight with the indi
viduals concerned. These boards are regarded as experimental and
it is proposed in a short time to review the working of the arrange
ments, in order to determine whether and how far the system should
be extended.
According to a memorandum issued in July, the districts for which
the advisory wages boards were to be formed were listed as follows:
Birmingham.
Bristol.
Bradford.
Ki ngston-upon-Hull.
Leeds.
Leicester.
Liverpool.
London.
Manchester and Salford.
Newcastle-upon-Tyne.
N ottingham ..
Portsmouth.
Sheffield.
Stoke-upon-Trent.
Cardiff.
Edinburgh.
Glasgow.
B elfast.
Dublin.
INQUIRY REGARDING TRADES AND TRAINING SUITABLE FOR THE DISABLED.
In December, 1916, special investigators were appointed to make
inquiries into possible openings in the various trades of the country
for disabled men and the kind of training needed. A schedule of
questions was drawn up with a view to obtaining more detailed in
formation with regard to certain industrial processes. These sched
ules were sent to technical schools, Home Office factory inspectors,
officials of the Employment Department, trade associations, manu
facturers, and other persons whose detailed knowledge of the trade
would enable them to select the processes suitable for the disabled
man. Inasmuch as the object of the inquiry was to ascertain what
particular processes could be performed by disabled men, a sepa
rate schedule was filled out for each separate process, e. g., in the
tailoring trade, detailed information was asked for with regard to
particular operations, such as cutting and trimming. In order to
keep the number of schedules within a reasonable limit, all processes
were ruled out in which the work was regarded as too hard or too
unhealthy for the disabled man ; those which before the war were
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M O NTH LY REVIEW OF TH E BUREAU OF LABOR STATISTICS.
done by women and young persons; those in which the normal wage
in peace times did not exceed 18s. ($4.38) per week, and those in
which the trade is declining and in which there is a surplus of
workers.
The character of the information asked for is explained in the
following extract from the memorandum issued in connection with
the schedule: 1
W ith regard to disabilities, there is a w idely prevalent idea that the only
problem is that of finding work for the man who has lost an arm or a leg.
In a return drawn up by the W ar Office relating to all casualties up to the end
of June, 1916, only 4 per cent of the cases involved the amputation of a leg
and only 2 per cent the amputation of a hand or an arm. In 16 per cent of
the cases there were injuries of the legs not n ecessitating am putation, and in
20 per cent there were injuries to hands and arms. It w ill thus be seen that
only 42 per cent of the cases involved injuries to arms, hands, and legs. In
addition, 4 per cent involved injuries to the eyes.
The remaining classes fell into two main divisions. Either the disabled man
is likely to be incapacitated in the future from working out in the open or
where there is exposure to d am p ; or else he w ill in the future be unable to
undertake heavy work, and it will be necessary for him to find work of a light
character, in some cases preferably out of doors. Hence, it is important to
collect inform ation w ith regard to such questions as atmosphere, noise, vibra
tion, etc.
The schedule includes the following questions:
P A E T I . ---- C E N T E R S I N
W H IC H
TRADE IS
C A R R IE D O U T .
Give list of towns or districts where this particular trade is carried out and
approxim ate numbers of men, women, and young persons employed in each
center.
(a) How far is the trade a seasonal one, and, if so, at w hat seasons is it
busy ?
(b) Is there normally much unemployment among men engaged in tins trade?
(c) W hat are the normal working hours per day in this trade?
(d) Is there normally much overtime or night work?
P A R T I I . ---- N A T U R E O F D I S A B I L I T I E S .
1. Is the process usually performed by—
(a) Machinery?
(b) Hand?
2. Does the process usually involve—
(a ) Standing? (b) Sitting? (c) Kneeling? (d) Bending?
ing forward? (f) W alking?
Other remarks.
3. If pressure of legs is needed, is pressure from—
(a ) Hip? (b.) Knee? (c) Ankle?
Other remarks.
1 In q u iry
q u e s ti o n s .
in to
tr a d e s
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and
tra in in g
fo r
d is a b l e d
[1142]
s o ld ie rs
and
s a ilo rs .
(e) B each
S c h e d u le
of
M O N T H L Y R E V IE W
OF T H E BU REA U
O F L A B O R S T A T IS T IC S .
71
4. Does process involve use of—
(a ) Thumb? (b) Fingers on hand? (c) R aising above shoulder of
arm? (d) Rotary or lateral motion of arm from shoulder? (e)
Rotary or lateral motion of arm from elbow? (f) Strong arm pres
sure? (g) Motion of forearm for turning over hand? (h) Move
ment of w rist? (i) Strong grip pressure of hand?
Other remarks.
5. Could process be done by a man w ith a hook to replace—(1) Right hand?
(2) L eft hand?
6. Is good eyesight needed for—
(a) R ight eye?
(b) L eft eye?
7. Does process involve exposure to heat or glare?
8. Is process done out of doors?
9. If indoors, is the atmosphere—
(a ) Damp? (b) Cold? (c) Hot? (d) Normal? (e) Liable to change
from hot to cold or vice versa? (f) Dusty? (g ) Charged w itli
fum es ?
Other remarks.
10. Does the process involve—
(a) H eavy work? (b) Medium work? (c) Light work?
11. Does process involve—
(a) Much noise? (b) Much vibration?
12. Is a weak heart an obstacle?
13. Does process involve—
(a) Special liability to accident? If so, what is the nature of the
liability?
(b) Special physical or mental strain?
(c) Special liability to poisoning, and of what kind?
14. Does process need good hearing?
PA RT
I I I . ---- T R A I N I N G .
15. How long does it normally take for a person learning the process to be
come efficient, and at w hat age is it usually begun?
16. W hat is the shortest tim e in which, in your opinion, the particular process
could be learned by an adult man of average intelligence?
17. Could the process be learned—
(a) In a technical school alone?
(b) In a factory alone?
(c) I f in both, how long in each?
18. Could the process be learned by a man formerly accustomed to unskilled
work ?
19. Would any previous experience, outside the process itself, be v a lu a b le;
and if so, of w hat kind?
20. H as there been any previous experience in training in this process—
(a ) Adult men? (b) Women during the war? (c) Disabled soldiers?
I f so, give a short account of it.
21. Give any examples that you know of adaptations of machinery or subdi
visions of processes that have been made w ith a view to employing disabled
men.
22. Could you suggest any adaptations or subdivisions that would be of value
for the employment of disabled men?
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M ONTHLY
REVIEW
OF TH E BUREAU
O F LA BO R. S T A T IS T IC S .
1'A R T IV .---- P O S S I B I L I T I E S O F P E R M A N E N T W O R K .
28.
by—
H as the process been done before the w a r ; and if so, in w hat districts,
(a) Women?
(b) Young persons?
24. H as the process been done for the first time during the w a r ; and if so, in
what districts, by—(a) Women?
(b) l Toung persons?
25. Is the work, in your opinion, too hard for women and juveniles?
26. H as the introduction during the war of either women or young persons
been agreed upon by trade-unions? Give any details that you can.
27. Is there any present likelihood of the process being changed in character
or abolished by the introduction of fresh processes?
28. To how many disabled men do employers estim ate that they can give
permanent employment? Give, if possible, an estim ate for each different center.
29. How far is the demand for goods made by these processes likely to be
brisk after the war?
30. How far has there been before the war a shortage of men in this process?
31. How far is there likely to be a shortage in the future? Can you give any
indications from the number of men who have enlisted and the number already
known to be killed?
The schedule was concerned with trades which were essentially
of a national character or which cover a wide area. The local com
mittees have made similar inquiries as to trades and industrial
processes in their own areas.
Up to the present English experience is reported to have been that
an employer finds work in his own factory for a disabled man
previously employed, provided his disability permits. But a serious
difficulty arises in finding employment for those formerly employed
in mines or in rolling mills who are no longer fitted for such heavy
work, for those in the building trades who had no regular employer,
and for those, who enlisted at 18 or under or were employed only as
juveniles. It was one of the purposes of the schedule to ascertain
what fresh trades could be found for these men.
HANDBOOKS ON OPENINGS IN INDUSTRY SUITABLE FOR THE DISABLED.
These investigations have been carried out in most of the principal
trades of the country and from information thus obtained a series
of pamphlets is being issued by the employment department of the
Ministry of Labor in collaboration with the Special Grants Com
mittee of the Ministry of Pensions, and with the sanction of the
Trade Advisory Committee for the special trade concerned. To
date the following “ reports upon openings in industry suitable for
disabled sailors and soldiers ” have reached the Bureau of Labor
Statistics:
I. Attendants at electricity substations.
II. Employment in picture theaters.
III. Tailoring.
IV. Agricultural tractor work in England and Wales.
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The reports are similar in construction and divided into the follow
ing sections: Suitability of work for the disabled man; Training;
General prospects for the worker in the trade; Maintenance during
training; Wages and hours. The section on suitability of the work
for the disabled man states in detail the conditions under which the
worker would be placed, and the necessary requirements and peculiar
disabilities which would unfit a man for the work.
The section on training includes information concerning the
previous experience necessary, the minimum period of training re
quired, the method of training, the number admitted to the course,
the existing facilities and training centers planned. The information
in these sections seems sufficiently suggestive to warrant its reproduc
tion from each of the reports.
I.
ATTENDANTS
AT
E L E C T R IC IT Y
S U B S T A T IO N S .
Suitability of w ork for disabled men.
Substations are very varied in character, and there are some in which it
would be dangerous to employ any disabled men at all. But there are others,
especially the sm aller ones, which offer suitable openings for the employment
of such men. The follow ing points must, however, be borne in m in d :
In no case should a man work there who is suffering from a nervous break
down or who has a weak heart. The work could be done by men who have
lost one leg, so long as they could stand for at least two hours at a stretch.
It could also be done by men who have lost the sight of one eye so long as the
other eye is normal. Good hearing is essential, and a sense of smell is also
needed in case of burning. There are also a few substations where there
is no running machinery, where the work could be done by men who have lost
either their right or their left arm so long as they have the fu ll use of their
other arm, hand, and fingers. The work is medium to light in character and
is carried on in an equable indoor temperature. There are in some cases con
siderable noise and vibration. The work does not require much handicraft
skill and could be taught to a man who had formerly been accustomed to
unskilled work, so long as he w as generally intelligent and adaptable. A man
must be able to keep records, add up figures, and use the telephone. W hile it
is desirable that the men should be under 35, men of 40 or even over can, in
some cases, learn the work successfully.
Training.
In the March of 1916 the Council of the Institution of E lectrical Engineers,
in cooperation with the Education Committee of the London County Council
and in consultation w ith the governing body of the Northampton Polytechnic
Institute, appointed a joint committee to make arrangements for classes at the
Northampton Polytechnic Institute, Clerkenwell, E. C., for giving a prelim i
nary training to disabled sailors and soldiers as substation attendants. The
minimum period of training at the Northampton Polytechnic lias up to the
present been three weeks, but this must be regarded as a probationary period.
A fter a few further weeks in a substation a man would be expected to be
fairly useful as an assistant in the same or a sim ilar substation. He could
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then continue to fit him self for more skilled work. The course of training
adopted at the Northampton In stitu te is as follow s:
(a) Workshop practice in w iring work and the use of simple tools.
(5) Power-house dem onstrations to fam iliarize the students w ith switching
gear and running machinery.
(c) Electrical and physical laboratory work of a simple nature.
(cl) Class demonstrations in the elem ents of electrical engineering and
simple engineering physics.
(e) The w riting of reports upon the demonstration and laboratory work.
( /) A brief viva voce exam ination at the end of the course.
Any previous experience in connection w ith electrical work or w ith simple
engineering, such as the use of tools, is helpful to a man.
The work m ight be learned entirely at a substation, but the advantage of
preliminary training at a technical school is that it shortens the probationary
period required in the actual substation and enables a man more readily to
adapt him self to different types of substations.
The number of men who have been admitted by the selection committee to
the courses at the Northampton Polytechnic since their commencement in June,
1916, down to February, 1917, is 111, w hile the number of men placed has been
78. Of the 33 men not placed, some had to give up owing to ill health, others
were offered posts in other trades during the period of training, w hile a few
failed to pass the exam ination.
A sm all number of men are also being trained as electricity substation atten
dants at the Regent Street Polytechnic. The men are first of all trained in
general electrical work and are then passed on to the London United Tramways
for completion of their generating and substation practice. The whole course
takes from two to three months.
A course has also been started by the Newcastle-upon-Tyne E lectric Supply
Co. (L t.), at the company’s school at Carville power station, Wallsend-on-Tyne.
The prelim inary theoretical and practical training is given by the company
itself in a course which la sts for six weeks. T hirty-six men started the first
co u rse; of these 26 finished the course and were placed at work w ithin the
company’s own substations. Three gave up the course, w hile the remaining
seven were found unfit for the particular work, and were placed elsewhere with
the company.
A course of training has also been started at the M anchester School of Tech
nology in connection w ith the M anchester local w ar pensions committee, and a
sim ilar course is being arranged at Edinburgh by the Edinburgh local war
pensions committee.
II.
T H E C IN E M A T O G R A P H I N D U S T R Y .
(T his report is confined to branches of the work peculiar to the industry.)
Suitability for disabled men.
(1)
Operators and operators' a ssistan ts.— The worker needs the full use of
both his arms and all his fingers, though no strong grip pressure is required.
It is an excellent opening for men who have lost one leg, so long as they are able
to w alk about, as the operator can sit down part of the time. Several men have
been already trained for this work who have been injured in the leg or have
had a leg amputated. Good eyesight is essential, but good hearing is not. Some
degree of nervous strain is involved. The work is light in character, and is
carried out under cover, where there is little dust, noise, or vibration. In the
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larger theaters the temperature in the operator's box is alm ost normal, but it
must be noted that in the older types of picture theaters, and in some of the
sm aller modern ones, the operator’s box is very sm all and the atmosphere very
close and hot. Any man w ith a tendency to pulmonary disease should not be
sent to this type of theater.
(2) Doorkeeper.— This is also work of a light character, performed partly
indoors and partly out of doors, and is admirably suited for men who are cer
tified by doctors to be fit only for light work, though it must be remembered
that a man has to stand at the door in all weathers. In a sm all theater the
doorkeeper m ig\it also be required to do the cleaning, but in a larger theater
his only business is to supervise others. A man w ith one arm or w ithout the
use of his fingers could perform the work. In placing men in this position who
have been injured in the leg it must be remembered that a great deal of standing
is involved.
(3) A tten da n t.—The work is mainly carried on indoors, but owing to the
amount of bodily movement required a man injured either in the arms or legs
would be handicapped. At some theaters both doormen and attendants assist
in distributing window bills and posters.
Training.
(1) Operators and assistants.— In London a training center solely for dis
abled sailors and soldiers has been established since the beginning of the war.
The man receives his electrical tuition at the Polytechnic, Regent Street, and
in some cases also at Roehampton, and his practical training in a private pro
jection theater and workshop (the Cinematograph Training and Employment
B ureau). Experience has shown that an intelligent man of an adaptable
nature, even w ithout previous knowledge of electricity or engineering, can in
such an intensive course be taught and placed as a first-class assistant operator
in about 12 weeks. The practice of the school has been to send a man on com
pletion of his course to a picture theater for a trial period of one month, where,
if he proves satisfactory, he is ready at the end of a further period of three
months, to become a first-class operator. * * *
It w as recommended that additional training centers on the model of the
Cinematograph Training and Employment Bureau in London should be estab
lished in Birmingham, Cardiff, Glasgow, Leeds, Liverpool, Manchester, and
Newcastle-upon-Tyne.
(2) Doorkeepers and atten dan ts.—No previous training is needed.
III.
T A IL O R IN G .
(The report deals only w ith the retail trade, the wholesale branch, involving
important differences in the method of manufacture, being left for a later
report.)
Suitability for Disabled Men.
The work falls into two divisions, (1) cutting and (2) making-up.
(1) Cutting.— The cutter is the most important and the most highly paid of
tailors. H e takes custom ers’ measurements, drafts the patterns, does the
fitting-on, and supervises the sew ing and making-up, and generally acts as fore
man of the tailor’s workshop. A good knowledge of the work of a sew ing tailor
is considered indispensable, and most cutters have them selves risen from the
ranks of the sew ing tailors. A long training and extensive knowledge of the
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trade are required in most cases, and tins would seem to make the position un
attainable by men with no tailoring experience, but it may be noted that a man
who has already been a sew ing tailor would not be debarred, by the loss of one
or two fingers of his left hand, from filling a cutter’s post. As a matter of fact,
men thus disabled have already been trained w ith success as cutters.
(2) Making-up.— H ere there would appear to be an excellent prospect for a
partially disabled man, so long as he possessed the fu ll use of both his hands
with all his fingers and had good eye-siglit. The loss of one leg, or even both,
would not be a serious h an d icap ; indeed, there has alw ays been among tailors
a certain number who were incapacitated by some injury to the legs. The only
severe muscular exertion is in connection w ith the manipulation of a heavy iron
used in pressing. The work otherw ise is light and the conditions under which it
is done in the workshops are normal, there is no noise of machinery, no vibra
tion, no extrem es of tem perature or of moisture or dryness in the air. It would
afford a very good opening for a young or youngish man, though less suitable
to men over thirty. The work is done either in the private workshops which
many of the firms engaged in the best class of work possess, or at the worker’s
own home, or in common workshops conducted on a cooperative basis, in which
each tailor hires a “sittin g.” For the highest class of work considerable experi
ence and dexterity are essential. A first-rate tailor is an artist, and there is
much scope for individual taste and ingenuity.
Each man must be able to make garments throughout and, as a rule, he
specializes in one particular type, so that there are three branches of the tr a d e :
(1) Coat making, (2) trousers making, and (3) vest making, which is often
done by women.
Length of training required.
A thorough training is necessary, but the length of tim e would vary w ith the
learner’s adaptability. A year in a technical school during the usual hours
of day trade schools would provide a good foundation, and, except in those
sections of the trade in which craftsm anship of a high order is required, a
man would afterwards probably be qualified for employment that would yield
a living w age and should need no further maintenance allowance from the
M inistry of Pensions. After introduction to the workshop he would acquire
the knowledge of details and the varied skill which lie beyond the range of a
school. In London and in many of the large tow ns classes exist for the train
ing of tailors, but where such do not exist arrangements could be made w ith
the local educational authorities for the form ation of such classes.
A full-tim e day training course in tailoring has for some time past been
in existence at Regent Street Polytechnic, and a special 12 months’ course of
training for disabled sailors and soldiers has recently been established, w ith the
concurrence of the associations of employers and workpeople concerned.
This class has already been approved by the W ar Pensions Statutory Com
mittee, and arrangements are being made at the Merchant Venturers’ Technical
College, Bristol, to start a course of a sim ilar nature. It is suggested by the
Trade Advisory Committee (disabled sailors and soldiers) that further train
ing centers be established in Glasgow, Leeds, and M anchester as an experiment.
If a further demand arise, it is suggested that training centers might also be
established in Aberdeen, Birmingham, Cardiff, Edinburgh, Liverpool, and
Plymouth.
The follow ing recommendations have been made by the Trade Advisory Com
m ittee :
(1) That training be given in day trade training schools for a period of 12
months for the hours customary in such schools.
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(2) That there be, in the ease of each man accepted for training, a pro
bationary period of four weeks, and that during the whole period of training
the man remain under continuous supervision.
(3) That a syllabus of the training which should be given in training schools
be framed by the Trade Advisory Committee.
(4) That local technical committees, consisting of representatives of em
ployers and workpeople in the trade, be appointed in connection w ith each
training center to superintend the training given.
(5) That questions arising w ith regard to the wages of individual disabled
men be referred to the local advisory w ages boards, and that the advisory
w ages boards should take steps to secure the advice of persons f •- m iliar with
and representative of the trade.
(6) That the Trade Advisory Committee be kept informed of the number
of disabled men to be trained for the tailoring trade, and have power to im
pose restrictions on the training of any number in excess of that which the
trade can reasonably be expected to absorb.
IV .
A G R IC U L T U R A L M O TO R T R A C T O R W O R K I N
ENGLAND AND W A LES.
(The report states in effect: The use of motor machines for farm work is in
its infancy in the United Kingdom, but it is likely to develop considerably.
The best types of machines can be used not only in moving tractors but also
as stationary power engines. As continuous cropping is also likely to be largely
increased, the industry w ill probably offer a steady and secure field of employ
ment. At present the work is being organized by the Board of Agriculture.
There are openings for at least a thousand men, and suitable men w ill probably
find work in their own counties.)
Suitability for disabled men.
The work for which men are required im m ediately is tractor plowing, and
this is, of course, likely to be a very important part of the permanent work of
the tractor after the war. As a general rule, this requires two men, one on
the tractor and one on the plow. They should be capable of changing places
and of helping one another, and both men should not have the same disabilities.
In selecting suitable men regard should be had to both these processes.
Owing, however, to the variety of machines in use, it is impossible to say with
certainty exactly w hat disablem ents would disqualify. Moreover, the types of
machines and the methods of working are still to some extent in an experim ental
stage.
The tractor driver is usually seated. Fie is subject to a good deal of noise
and vibration. The steering is harder work than on an ordinary motor. In
some types there is considerable resista n ce; in others the steering wheel has to
be spun rapidly w ith one hand when turning and spun back again when the
turn is finished. Continuous attention is needed to keep a straight line, but the
pace is slow, and sharp curves only occur at intervals. The reversing lever has
also to be operated. The starting handle is considerably harder to work than
that of an ordinary car. The driver must be able to reach over to get at parts
that require adjustment.
The plowman rides on the p lo w ; he is subject to oscillation. He has to
work several levers—usually one for steering and one on each side for raising
or lowering the plowshares, and sometimes one for determ ining the number of
shares in operation at the same time, which may vary from one to four. These
levers often require considerable strength and a w ide hand g r ip ; but, as in the
tractor driving, the special muscular exertion is only needed at intervals.
25413°—17-----6
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M O N T H L Y R E V IE W
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W ith some types of machine the work could be done quite satisfactorily by a
man w ith an artificial leg below the knee, provided that he were fairly active.
Generally speaking, it may be said that for the two processes full use of both
hands and arms is needed, but the loss of one or two fingers would probably be
no great obstacle so long as the hands w ere sufficiently sound to grip w ell and
to tighten bolts, etc., connected w ith the machinery.
Only moderately good sight and hearing are required. The work is fairly
heavy in character and involves considerable noise and vibration. There is
little liability to accident.
The follow ing grouping may be of assistance in a provisional selection of
men for this w o rk :
(1) Men sound in limb and m uscularly strong, but disabled from their pre
vious occupations by the after effects of shell shock, gas poisoning, neuras
thenia, or tuberculosis, provided that they can, after suitably graduated train
ing, do a full day’s work in the open, especially men already experienced in
other classes of motor driving, but unable to return to their former occupation
owing to their inability to bear the strain of driving w here much traffic is
concerned.
(2) Men suffering from specific injuries, including, e. g., an artificial leg below
the knee, but having the fu ll use of both shoulders, arms, and hands.
Training.
The length of training needed depends largely upon the previous experience
of the men concerned. A man already qualified as a motor driver should be
able to learn the special mechanism of a tractor in from 5 to 10 days. A man
w ith no previous knowledge of motors could learn to drive in about the same
time, but would hardly become proficient, in the sense of being able not only
to drive but also to keep the machine in order, in less than three months. In
either case the management of the plow would be part of the training.
The work could be learned by an intelligent man even if formerly accustomed
to unskilled work, but any m echanical knowledge or experience of farm work,
especially of plowing, would be of value.
Two alternative methods of training w ill soon be in op eration :
(a ) A short course of training in actual driving and plowing, provided locally
by the Board of Agriculture through its local tractor representatives, w ith a
guarantee of im mediate temporary local employment at the end of the course
by the board itself, which w ill provide its own organization for supervision and
repairs. The arrangements made by the board w ill be such as to ensure a
reasonable prospect that the men employed by them after this elem entary train
ing w ill acquire, during their period of employment by the board, the additional
skill necessary to qualify them for permanent private employment afterwards,
including the care of the machine.
(b )
, A course of theoretical and practical training at a technical school for
three months, followed by a short course of actual driving and plowing under
the local tractor representative of the Board of Agriculture as in (a).
At the B attersea Polytechnic a three months’ course has been in operation
for some time for training disabled sailors and soldiers in motor tractor work
and plowing, including a knowledge of the theory of the motor engine, and such
workshop processes as w ill enable a man to take charge of the machine and do
ordinary repairs. This course ha£ been approved by the Statutory Committee.
A few other local war-pensions comm ittees are arranging for sim ilar experi
m ental courses in connection w ith local technical schools.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
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THE PROBLEM IN THE UNITED STATES.
Our military and naval forces are now actively engaged in fighting
and before many months we shall be confronted by the necessity of
restoring physically and mentally as completely and as quickly as
possible the wounded and broken men who will inevitably come
streaming back from the battle front, and putting them back into
industry, where they can give a full “ quid ” for every “ quo ” they
receive in the form of wages or payment for what they produce.
Unfortunately we have done all too little in the way of proper medi
cal, surgical, and hospital treatment of men injured in industry, and
we have done almost nothing to restore the crippled man to indus
try. We must, therefore, meet the emergency practically as a new
problem. Fortunately the Surgeon General of the Army and his
stall’ are fully cognizant of the importance of this work and have en
listed the enthusiastic interest and cooperation of physicians and
surgeons throughout the country in the medical and surgical aspects
of the great task before them. Every agency, governmental or pri
vate, which can contribute anything to the solution of the problem of
how to restore the wounded man to industry is hard at work assist
ing in organizing a system of training that will not only meet present
requirements but that can be continued after the war to care for the
industrial cripples. The Division of Military and Naval Insurance
of the Bureau of War Bisk Insurance, the Bureau of Labor Statistics,
and the Federal Board for Vocational Education all have extremely
important functions to perform toward the working out of such a
system. They will be materially assisted in their constructive work
by what has already been accomplished in Great Britain.
SOURCES.
Naval and M ilitary W ar Pension Act, 1915.
M inistry of Pensions Act, 1916.
Naval and M ilitary W ar Pensions (Transfer of Pow ers) Act, 1917.
Recalled to Life. London. June, 1917.
War Pensions Statutory Committee. Circular (Trade Advisory C om m ittees).
April 20, 1917.
Ministry of Labor. Employment Department. Advisory W ages Boards fordisabled sailors and soldiers. Explanatory Memorandum. 1917.
Inquiry into trades and training for disabled soldiers and sailors. Schedule
of questions.
(D . S. S. 2) and accompanying explanatory Memorandum
(D. S. S. 3 ).
M inistry of Labor. Employment Department. Reports upon openings in
industry suitable for disabled sailors and soldiers.
I. A ttendants at electricity substations. April, 1917.
II. Employment in picture theaters. May, 1917.
III. Tailoring. June, 1917.
IV. Agricultural motor tractor work in England and W ales, July, 1917.
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BRITISH LABOR PARTY AND THE DISABLED.1
B Y G. J . W A R D L E , M . P .
The general attitude of the Labor Party to the question of the
treatment of disablement caused in the war is that every possible
opportunity for securing the best treatment should be afforded, and
that every appliance that ingenuity can provide or skill suggest
should be devoted to the restoration and aid of those who have be
come disabled. The Labor Party welcome the fact that Government
is making itself responsible for the provision of artificial limbs, and
for their repair and refitment. They are also glad to know that
endeavor is being made to bring these facilities within reach in every
district. It is most important that treatment should be available
locally for every form of disability, so that men may not have to go
long distances for it.
As regards pensions, there is now, thanks to the good offices of the
late pensions minister and those who are working with him, no rea
son to complain of the system that is being pursued. The rates are
on a better scale than ever before, and while it is never possible to
say that further improvements may not have to be introduced here
after, there is no ground for any general criticism at the moment.
In the matter of the training and reeducation of the disabled, to
aid them to become self-supporting members of the community, the
Labor Party strongly favor the opening of every possible avenue
of training to every man who desires to avail himself of it. This
applies not only to men who had no special trade before they joined
up, it also concerns those already in possession of training, whose
wage-earning capacity is capable of being improved by further in
struction. I t is not quite certain that adequate training facilities
are yet in view in all parts of the country; but the setting up of local
committees, in the smaller as well as in the larger districts, to deal
with this matter, is a step in the right direction. The object to be kept
in view should be the bringing of efficient training within easy reach
of all.
Concerning the disabled man’s position in regard to trades-unions,
the situation is simple. Subject to there being no diminution in
standard of living, or possibility of the disabled man being used
to defeat the legitimate objects which the trades-unions have in
view, the trades-unions are not only sympathetic but desire to assist
1 R e p r i n t e d f r o m R e c a ll e d t o L i f e , N o . 2, S e p te m b e r , 1 9 1 7 , p p . 2 3 2 a n d 2 3 3 .
80
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the disabled in every possible way to secure employment on re
munerative work. The question of the relation which the wages of
the disabled should bear to those of men not suffering from disa
bility may possibly become one of some importance eventually. Up
to the present it has not been taken into consideration at all com
pletely. It is understood that arrangements are being made to set
up, throughout the country, joint committees of employers and
trades-unions to regulate it. Some central clearing station with
authority to coordinate the work of these joint committees will also
be required, so that the policy adopted may be uniform throughout.
The maintenance of standard rates of wages is so important to tradesunions that they can not be expected to set it aside lightly. If a
disabled man is able to do the same work as others, the fact that he
is in receipt of a pension must not be allowed to interfere with his
receiving the same rate of wage. If he is not able to do this, such
arrangements must be made, by joint agreement between tradesunions and employers, as shall effectually protect both the man
himself and also those who are working alongside of him.
In conclusion, it can not be too strongly pointed out how deeply
labor sympathizes with and is prepared to help in the solution of
the problem of war disablement. The Labor Party have been work
ing continuously in the interests of the men concerned, who are
their own flesh and blood, and they will not desist from this course.
There is no fear whatever that they will desert disabled men in
their hour of need.
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PRICES AND COST OF LIVING
RETAIL PRICES OF FOOD IN THE UNITED STATES.
The price of food, as a whole, for October 15, 1917, shows an
increase of 3 per cent over the price for September, 1917. Of the 27
articles for which prices are given, 17 increased in price, 5 decreased,
and 5 articles remained the same.
Lard shows the greatest increase, or 25 per cent; bacon is 9 per cent
higher; milk increased 8 per cent; and eggs show an increase of 5
per cent. Corn meal shows a decline of 15 per cent, flour of 4 per
cent, and sugar of 2 per cent.
The following table shows the course of prices in the United States
for September and October, 1917:
AVERAGE MONEY R ETA IL PRICES ANU R ELA TIV E R ETA IL PRICES OF FOOD ON
SEPT. 15 AND OCT. 15, 1917.
[The relative price shows the per cent th at the average price on the 15th of each m onth was of the average
price for the year 1910.]
A verage m o n e y p ric e.
A rtic le.
U n it.
S ep t. 15,
1917.
S irloin s te a k ......................................................................... P o u n d ___
R o u n d s te a k ........................................................... . . - d o ...........
R ib* m o st
........................................................ .. .d o ...........
C h u n k r o n s t ,.......................................................................... . . .d o ...........
Plat,© Lfip.f
.................................................................... .. .d o ...........
. . .d o ..............
P o rk n h n p s
.............................
P an o n
........................................................................ . . .d o ..............
ITp m
......................................................................... . . .d o .............
L p rd
......................................................................... .. .d o .............
LT fin s
.................................................................... .. .d o ...........
. . .d o ...........
$ alm o n p .p n u fid
.........................................
Eggs................................................................. Dozen___
B u tter............................................................. P ound -----O hfifisfi
........................................................................... . . .d o .........
Milk
..................................................... Q uart.......
B read.............................................................. 16 0?.loaf1
Flour ......................................................................................... P ound -----Corn iDfi.pl
.................................................................... . . .do .........
P in o
............................................................................. . . .do ..............
PotflffifiS
......................................................................... . . .d o .............
Onions
.....................................- ...................................... . . .d o .............
P fip /n s , n a v y ..........................'............................................. . . .d o .............
Primes
......................................................................... . . .do ..............
R pi si ns, seeded ............................................. . . .do..........
SrjOfpr
............................................................ . . .do..........
Coffee
....................................................... . . .do..........
T ea........ .. ........................................................ . . .d o .............
10.333
.296
.259
.218
.163
.388
.442
.409
.296
.302
.277
.525
.496
.335
.118
.088
.073
.082
.108
.030
.046
.188
.163
.148
.098
.305
.612
A ll a rticles eo m h m ed
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
R e la tiv e p ric e.
O ct. 15,
1917.
$0.330
.309
.257
.218
.165
.388
.482
.426
.371
.312
.283
.551
f 508
.348
.127
.088
.070
.070
.111
.031
.049
. 1S9
.165
.150
.097
.305
.612
S e p t. 15,
1917.
O ct. 15,
1917.
122
121
122
127
127
171
154
139
169
128
121
126
121
127
129
171
168
145
212
132
134
138
137
140
126
130
130
135
166
241
119
111
94
171
122
115
123
102
112
140
147
129
135
140
135
159
206
122
115
100
172
123
116
121
102
112
116 ounces, weight ol dough.
[1155]
83
84
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
A comparison between October, 1916, and October, 1917, shows
that food, as a whole, increased 30 per cent. No article shows a de
cline. Corn meal shows the greatest increase, being twice as high in
1917 as it was in 1916.
Taking October, 1917, as compared with October, 1913, food, as a
whole, advanced 52 per cent. Lard shows the greatest increase, 133
per cent; corn meal with an increase of 124 per cent and flour with
an increase of 115 per cent are next in order.
A table showing the average and relative retail prices of food in
the United States on October 15, of each year, 1913 to 1917, inclu
sive, follows:
A V E R A G E M O N E Y R E T A I L P R I C E S A N D R E L A T I V E R E T A I L P R I C E S O F F O O D O N O C T.
15 O F E A C H Y E A R , 1913 T O 1917, IN C L U S I V E .
[T h e re la tiv e p ric e show s th e p e r c e n t t h a t th e a v e ra g e p ric e on th e 15th of ea ch m o n th w as of th e averag e
for th e y e a r 1916.]
A verage m o n e y p ric e O ct. 15.
A rtic le .
1917
1913
1914
1915
1916
$0.257 $0.262 $0.259 $0.276 80.330
.238
.233
.233
.247
.309
.206
.201
.212 .257
.199
.174
.165
.174
.218
.129
.128
.122
.165
.225
.232
.247
.229
.388
.278
.273
.298
.482
.287
.282
.276
.265 .332
.426
.156
.144
.371
.159
.231
.212
.312
.215
.205
.243
.198
.204
.283
.416
.390
.551
.401
.458
.382
.374
.418
. 50S
.351
.230 .268 .348
........do.
.090
.090
.094
.127
Q u a r t.
.088
.062
.072
.057
.088
o a f1
... . .033 .037 .037 .051 .070
.033
.035
.070
.d o .
.031
.033
.d o .
.091
.111
.091
.016
.d o .
.016
.031
.029
.d o .
.033
.047
.049
.122 .189
.d o .
.079
.165
.d o .
. 134 .135
. 150
. 125 .130
.d o .
.082
.d o .
.055 .072
.061
.097
.299
.305
.d o .
.299
.546
.612
.546
.d o .
94
95
94
99
97
94
91
90
96
97
97
101
100
101
100
96
89
91
111
97
104
95
99
74
92
99
88
83
97
68
58
69
90
91
93
95
95
95
96
95
102
95
90
82
87
98
107
89
89
97
95
84
96
100
61
67
72
100
97
76
100
100
90
101
101
100
101
101
109
104
113
132
103
101
122
106
104
103
111
115
104
100
106
96
111
101
101
102
100
100
106
1913
1914
1915
1916
........do.
........do.
........do.
........do.
........do.
........do.
........do.
........do.
........do.
........do.
D ozen.
o '
QO '
Sirloin steak......... ......
Round steak...............
Rib roast..... ..............
Chuck roast................
Plate beef....................
Pork chops.................
Bacon..........................
H am ............................
L ard ............................
H ens............................
Salmon, canned.........
Eggs............................
B utter..........................
Cheese..........................
Milk.............................
B read.............. ...........
Flour............................
Corn m eal...................
Rice.............................
Potatoes......................
Onions........................
Beans, navy................
P runes.........................
Raisins, seeded..........
Sugar...........................
Coffee..........................
Tea...............................
All articles combined.
R e la tiv e p ric e O ct. 15.
U n it.t .
1917
121
126
121
127
129
171
168
145
212
132
140
147
129
135
140
135
159
206
122
115
100
172
123
116
121
102
112
138
1 ounces, w e ig h t of d o u g h .
Average retail prices are also given for 28 articles of food in 15
selected cities for October 15, 1913, October 15, 1916, and for Sep
tember 15 and October 15, 1917.
For 30 cities the average retail prices for the same articles of food
are shown for October 15, 1917.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[11561
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
.
85
A V E R A G E R E T A I L P R I C E S O F T H E P R I N C I P A L A R T I C L E S O F F O O D F O R 15 S E L E C T E D
C I T I E S F O R O C T. 15, 1913, 1916, A N D 1917, A N D S E P T . 15, 1917.
[T h e a v erage prices show n b elo w are c o m p u te d fro m re p o rts s e n t m o n th ly to th e b u r e a u b y r e ta il d ea lers.
A s som e d ealers occasionally fail to re p o rt, th e n u m b e r of q u o ta tio n s v aries fro m m o n th to m o n th .]
Atlanta, Ga.
Article.
Sirloin steak...........
Round steak ..........
Rib roast................
Chuck roast............
Plate beef................
Pork chops.............
Bacon, sliced..........
Ham, sliced............
L ard........................
Lamb......................
H ens.......................
Salmon, canned__
Eggs........................
B u tter.....................
Cheese.....................
Milk.........................
B read......................
Flour.......................
Corn m eal...............
Rice.........................
Potatoes..................
Onions.................
Beans, n av y ...........
Prunes__ ~.............
Raisins....................
Sugar.......................
Coffee..............
T ea..........................
Unit.
Baltimore, Md.
1917
1917
1917
Oct. Oct.
Oct. Oct.
Oct. Oct.
15,
15,
15,
15,
15,
15,
1913. 1916. Sept. Oct. 1913. 1916. Sept. Oct. 1913. 1916. Sept. Oct.
15.
15.
15.
15.
15.
15.
L b .... $0.242 $0.254 $0.312 $0.311 $0.235 10.252 $0.334 SO. 326 «0.350 *0.427 $0.464 $0.442
L b .... .213 .219 .281 .278 .220 .240 .319 .315 .350 .372 .467 .449
Lb__ .19? .199 .237 .241 .173 .202 .259 .259 .256 .268 .327 .315
L b .... .154 .165 .203 .212 .153 .168 .225 .220 .180 .208 .273 .269
L b ....
.111 .154 .157
.138 .171 . 169
L b .... .250 .250 .373 .399 .196 .224 .395 .371 .244 .258 .405 .409
L b .... .322 .312 .439 .490 .225 .255 .454 .457 .254 .270 .439 .458
L b .... .308 .325 .413 .439 .285 .350 .445 .477 .313 .345 .447 .456
L b .... .154 .189 .294 .319 .148 .198 .299 .326 .157 .190 .295 .309
L b .... .202 .2*4 .324 .316 .180 .240 .326 .333 .205 .259 .346 .345
L b .... .208 .225 .288 .337 .208 .257 .315 .321 .256 .282 .329 .344
L b ....
. 162 .229 .246
.165 .254 .254
. 197 .294 .294
D o z .. . 3dl ,3n5 .475 .482 .363 .404 .491 .519 .533 .573 .652 .660
L b .... .390 .432 .531 .551 .388 .426 .528 .538 .380 .406 .512 .524
L b ....
.291 .341 .355
.270 .350 .360
.265 . 324 328
Q t.... .106 .123 .150 .159 .087 .088 .117 .117 .089 .096 .130 !l30
16-oz.i
.069 .090 .091
.062 . 079 . 082
064 .085 .081
L b .... .035 .049 .072 .072 .032 .053 . 075 .070 .036 .055 .078 .075
L b .... .027 .028 .061 .059 .026 .029 .063 .064 .035 .042 .075 .075
L b ....
.079 . 104 .108
.0Q8 . 110 . 112
112
115
.097
L b .... .023 .035 .033 .038 .018 .030 .028 .030 .017 .029 .027 .034
L b ....
.057 . 0o9 . 059
. 044 . 052 . 055
057 056
. 054
L b ....
. 126 .186 .188
184
. 129 . 180 .187
. 115 . 184
L b ....
. 133 . 176 . 179
. 128 . 164 . 165
.147
167 168
L b ....
.149 .150 .162
. 120 . 145 . 146
. 127 150 15(*)
L b .... .058 .088 .104 .104 .049 .078 .092 .092 .054 .079 .097 .098
L b ....
.282 .285 .294
.235 .279 .277
341
.346 .340
L b ....
.617 .753 . 796
.550 .638 .634
.600 .652 .646
Buffalo , N. Y.
Sirloin steak...........
Round steak...........
Rib roast.................
Chuck roast...........
Plate beef................
Pork chops..........
Bacon, sliced.......
Ham, sliced............
L ard........................
Lam b......................
H ens..................
Salmon, canned__
Eggs........................
B u tte r.....................
Cheese.....................
M ilk........................
B read.................
F lo u r.......................
Corn m eal...............
R ice.........................
Potatoes..................
Onions.....................
Beans, n av y ...........
Prunes__ ".............
Raisins....................
Sugar.........
C offee........................
T e a ..............................
Boston, Mass.
Chicago, 111.
Cleveland, Ohio.
L b .... $0.223 $0.252 $0.318 $0.315 $0.248 $0.274 $0. 315 $0. 306 $0.254 $0.255 «0.312 10.307
L b .... .193 .227 .298 .293 .216 .235 .281 .273 .229 .232 .291 .288
L b .... .165 .187 .251 .247 .201 .223 . 25S .247 .187 .198 .238 .232
L b .... .150 .167 .218 .220 .158 .171 .220 .213 .169 .177 .214 .211
L b ....
.128 . 173 .172
. 128 . 165 . 165
. 122 . 158
158
L b .... .210 .215 .415 .388 .210 .233 .374 .358 .230 .250 .415 .387
L b ....
.255 .433 .461 .327 .329 .476
452 468
475 .281 .307
L b .... .26? .323 .425 .432 .320 .359 .439 .439
.421 ] 436
L b .... .144 .i82 .286 .306 .150 .184 .283 .299 . Ì 64 .198 .302 .318
L b .... .153 .195 .283 .289 .198 .223 .320 .314 .187 .222 .308 .306
L b .... .210 . 2i5 .314 .309 .184 .223 .294 .271 .209 .240 .327 .317
.U6 .263 .275
L b ....
.230 .283 .300
.180 .262 .270
D o z .. .366 .490 .536 .551 .333 .383 .465 .469 .427 .507 .542 .570
L b .... .3/1 .401 .493 .510 .354 .394 .484 .487 .392 .437 .516 .530
L b ....
.256 .325 .333
350
.277 .344 .368
.283 .332
Q t.... .080 .080 .110 .130 .080 .090 .100 .129 .080 .090 .120 .120
16-oz.>
.064 .086 .089
066 .090
089
.065 . 093 093
L b .... .030 .0i9 .069 .065 .029 .049 .069 .066 .031 .052 .073 ! o71
L b .... .025 .030 .062 .070 .028 .036 .065 .071 .030 .037 .069 .073
L b ....
.0Q3 . 106 .108
.094 . 103 . 103
.094 . 106 111
L b .... .017 .029 .029 .031 .017 .027 .027 .028 .019 .033 .029 .032
L b ....
. 0i6 .056 .056
049 .049
050
.047 .039 .048
L b ....
. 119 . 185 .182
. 125 . 183 . 186
. 131 . 186 . 191
L b ....
. 135 .150 .156
.129 . 159 . 161
136 . 165 165
L b ....
. 107 .130 . 137
.132 . 147 . 145
. 124 . 143 . 143
0Q1
Lb
088 .055
083 098
.054 .093 . 095 -100 .052 .074
L b ....
L b ....
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
.286
.436
.286
.496
.293
.534
.300
.540
. 284
.564
1 L oaf; 16 ounces, w e ig h t of d o u g h .
[11571
1285
.573
*.288
.475
*294
.565
! 291
.566
86
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
AVERAGE R E T A IL PRICES OE T H E PR IN C IPA L ARTICLES OF FOOD FOR 15 SELECTED
CITIES FOR OCT. 15, 1913, 1916, AND 1917, AND SEPT. 15, 1917—Continued.
A rtie le .
S irlo n s te a k ..............
R o u n d s te a k ............
R ib r o a s t..................
C h u ck r o a s t .............
P o rk c h o p s ..............
B aco n , s lic e d ...........
H a m , s lic e d .............
L a r d ...........................
L a m b .........................
H e n s ...........................
E g g s ............................
B u t t e r ........................
C heese
Milk........................
B read
F lo u r ..........................
C o rn m e a l.................
Tli no
P o ta to e s ....................
P ru n e s
S u g a r..........................
Tea__
U n it.
1017
O ct.
15,
1913.
O ct.
15,
1916. S ep t.
15.
O ct.
15.
O ct.
15,
1913.
Plate beef
P o rk c h o p s ...............
B ac o n , s lic e d ...........
H a m , s lic e d .............
L a r d ...........................
L a m b .........................
H e n s ...........................
E g g s ...’. .....................
B u t t e r ........................
Cheese.....................
Milk........................
Bread ...................
F lo u r ..........................
C o rn m e a l.................
R ic e ............................
P o ta to e s ....................
O nions
B ea n s, n a v y ............
P r u n e s .......................
R a is in s ................
S u g a r..........................
Coffee.....................
T e a ..............................
1917
O ct.
15,
1916. S ep t. O ct.
15.
15.
O ct.
15,
1913.
1917
O ct.
15,
1916. S ep t. O ct.
15.
15.
b . . . . $0,239 $0.248 $0.317 $0.307 $0.254 $0.260 $0. 313 $0.305 $0.236 $0.243 $0.300 $0.293
.214 .219 .283 .285 .208 .222 .283 .275 .216 .218 .281 .280
b ....
.178 .189 .239 .232 .200 .208 .252 .242 .188 .194 .240 .238
b ....
.158 .169 .206 .207 .154 . 162 .205 .197 .164 .166 .219 .217
b ....
.124 .161 .160
. 126 .161 .158
T /h
. 105 .140 . 144
.208 .229 .399 .402 .216 .242 .403 .369 .212 .230 .383 .370
L b ....
.452 .472
.286
.299
.457
.280 .325 .480 .520 .235 .257 .448
L b ....
.317 .338 .464 .463 .270 .230 .425 .436 .290 .299 .418 .436
L b ....
.294
.315
.158
.198
.314
.188
.303
.161 .200 .310 .329 .165
L b ....
.146 .194 .302 .303 .164 .210 .316 .313 .195 .231 .321 .316
L b ....
.272
.216
.297
.188
.314
.242
.331
.194 .212 .285 .284 .198
L b ....
.213 .266 .277
. 195 .289 .288
T ,h
. 185 .275 .264
D o z ...
.371 .438 .493 .503 .356 .448 .511 .532 .350 .389 .454 .482
.390 .395 .494 .495 .370 .407 .497 .502 .350 .405 .485 .499
L b ....
.285 .331 .369
.266 .329 .344
.263 .352 .352
Lb
.084 .083 .115 .116 .090 .100 . 120 .120 .070 .070 .090 .110
Q t ___
.075 .093 .089
.084
.080
.065
.076 .091 .089
1fi-oz t
.026 .041 .058 .057 .031 .049 .071 .068 .030 .052 .073 .069
L b ....
.038 .080 .078
.037
.072
.075
.028
.033
.061
.026 .028 .059
L b ....
.097 .113 .114
.089 .113 .116
.093 . 113 .111
Lb
.029 .027
.016
.029
.030
.028
.029
.023
.016
.026
.025
.014
L b ....
.043 .046 .047
.046 .048 .049
.034 .039 .039
Lb
.188 .193
.129
.194
.
190
.128
.
185
Lb
.113 .091
.142 .159 .165
.126 .170 .170
Lb
.135 .183 . 179
.132 .150 .148
.110 .140 .140
Lb
. 141 . 145 .144
.054 .083 .095 .089 .054 .081 .099 .104 .055 .078 .094 .091
L b ....
.283 .273 .263
.284 .310 .307
.300 .304 .300
T ,b
.523 .599 .584
.430 .559 .545
.510 .572 .573
Lb .
L
L
L
L
N ew Y o rk , N . Y.
S irlo in s te a k ............
R o u n d s te a k ............
R ib r o a s t..................
C h u ck r o a s t.............
M ilw au k ee, W is.
D e tro it M ich.
D en v er , Colo.
P itts b u r g h , P a .
P h ila d e lp h ia , P a .
L b . . . . $0.261 $0.283 $0.368 $0. 356 $0.312 $0.326 $0.402 $0.392 $0.277 $0. 284 $0.365 $0. 356
.255 .277 .368 .360 .264 .288 .374 .365 .237 .250 .337 .329
L b ....
.216 .231 .298 .298 .221 .235 .295 .291 .217 .230 .279 .274
L b ....
.160 .176 .235 .236 . 182 .193 .258 .252 .178 .179 .242 .2*1
L b ....
.120 . 170 .171
.126 . 171 .174
. 163 .211 .213
Lb
.229 .260 .394 .399 .233 .268 .403 .400 .232 .253 .403 .406
L b ....
.321 .462 .483
.306
.257 .275 . 44C .464 .275 .299 .447 .467
L b ....
L b . . . . 2.205 2.228 2.30C 2.314 .319 .359 .470 .479 .299 .351 .453 .465
.201
.308 .328
.163 .196 .294 .313 .156 .198 .303 .328 .157
L b ....
.152 .200 .295 .284 .191 .231 .335 .331 .200 .246 .353 .363
L b ....
.218 .259 .316 .323 .231 .271 .327 .344 .255 .287 .371 .378
L b ....
.211 .297 .301
. 179 .251 . 26C
T ,b
. 238 .335 .334
.479 .517 .592 .627 .425 .470 .531 .548 .380 .420 .509 .528
.375 .408 .507 .515 .431 .462 .559 .562 .395 .424 .517 .527
L b ....
. 27S .338 .357
.273 .355 .361
. 255 .338 .341
Lb .
Q t . . . . .090 .098 .124 .138 .080 .085 .110 .110 .088 .098 .125 .125
.054 .079 .079
.065 .092 .092
.068 .088 .088
.032 .053 .079 .078 .032 .052 .076 .075 .032 .053 .075 .072
L b ....
.076 .082 .028 .033 .066 .071 .030 .036 .079 .081
.035 .04^
L b ....
.095 .106 .110
.097 .112 .118
.093 . 107 . 115
Lb
.024 .034 .033 .038 .023 .030 .035 .038 .019 .030 .030 .032
L b ....
.054 .050 .052
. 05C .054 .056
.050 . 05£
.054
Lb
.132 . 184 .188
.112 .182 .185
. 119 . 185 .185
Lb
.134 .162 .165
.137 .157 .164
. 139 . 164 . 167
Lb
.134 .147 .148
.121 .138 .139
. 125 . 145 . 146
Lb
.049 .074 .092 .097 .050 .075 .091 .094 .057 .084 .099 .101
L b ....
.271
.303 .299
.283 .277 .283
L b.
.269 . 25( .265
.575 .693 .702
.530 .583 .583
.460 .536 .521
Lb__
»Loaf; 16 ounces, weight of dough.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1158]
2 Whole.
MONTHLY BE VIEW OF THE BUREAU OF LABOR STATISTICS.
87
A V E R A G E R E T A I L P R I C E S O F T H E P R I N C I P A L A R T I C L E S O F F O O D F O R 15 S E L E C T E D
C I T I E S F O R O C T . 15, 1913, 1916, A N D 1917, A N D S E P T . 15, 1917—C o n clu d ed .
S t. L o u is, Mo.
A rtic le .
S irloin s te a k ..............
R o u n d s t e a k ............
R ib r o a s t....................
C h u ck r o a s t..............
P la te b e e f..................
P o rk ch o p s................
B aco n , s lic e d ............
H a m , s lic e d ..............
L a r d ............................
L a m b . ........................
H e n s ............................
S alm o n , c a n n e d ___
E g g s ............................
B u t t e r ........................
C h ee se.....................
M ilk ............................
B re a d ..........................
F lo u r ...........................
C orn m e a l..................
R ic e .............................
P o ta to e s .....................
O nions.
B ea n s, n a v y ...........
P ru n e s.
R a isin s ..............
S u g a r...........................
Coffee
T ea..
U n it.
S an F ran cisc o , C al.
1917
1917
O ct.
15,
1913.
O ct.
15,
1916.
S ep t. O ct.
15.
15.
S e a ttle W a sh .
O ct.
15,
1913.
O ct.
15,
1916.
S ep t. O ct.
15.
15.
1917
O ct.
15,
1913.
O ct.
15,
1916.
S ep t. O c t.
15.
15.
1
L b . . . . $0.260 $0.258 $0.308 $0.308 $0.214 $0.203 $0.230 80.236 $0.243 $0.224 $0. 264 80.267
.243 .247 .307 .301 .197 .193 .225 .231 .207 .200 .250 .251
L b ....
.195 .203 .253 .256 .213 .207 .226 .232 .193 .186 .218 .225
L b ....
L b . . . . .156 .165 .214 .206 .152 .133 .159 .162 .160 .133 .178 .181
. 128 .163 .166
.129 .154 .157
L b ....
. 109 .150 .153
L b ....
.197 .222 .382 .374 .242 .237 .335 .363 .243 .236 .401 .400
L b ....
.269 .278 .463 .486 .344 .350 .470 .519 .325 .320 .494 .490
L b ....
.273 .288 .439 .456 .340 .333 .456 .475 .300 .310 .410 .431
.131 .183 .291 .293 .180 .191 .290 .302 .171 .184 .285 .301
L b ...
L b ....
.183 .218 .296 .308 .167 .201 .274 .306 .177 .210 .269 .287
L b ....
.168 .203 .271 .275 .245 .273 .291 .315 .243 .210 .262 .271
.168 .277 .284
. 179 .245 .249
L b ....
.188 .269 .277
D o z . . .310 .365 .459 .460 .564 .558 .538 .608 .500 .531 .528 .652
L b ....
.379 .420 .509 .526 .400 .404 .530 .545 .400 .428 .530 .546
.238 .316 .316
L b ....
.256 .340 .369
.244 .308 .312
.088 .080 .110 . 132 .100 .100 .121 .121 .097 .098 .120 .120
Q t....
.067 .094 .093
.058 .083 .083
16-oz.i
.092 .092
L b ....
.029 .048 .066 .063 .034 .045 .068 .064 .029 .041 .065 .060
L b ....
.025 .033 .065 .066 .035 .038 .071 .074 .033 .038 .075 .075
.086 .100 .106
.085 .102 .105
L b ....
.084 .104 . 109
L b ....
.019 .029 .028 .029 . ÓÌ8 .025 .032 .031 .014 .018 .024 .023
.045 .043 .047
.036 .026 .032
L b ....
.038 .031 .040
.121 .180 .177
L b ....
.121 .191 .192
.113 . 191 .190
.124 .146 .152
L b ....
.130 .169 .173
.131 .147 .146
.110 .143 . 143
L b ....
. 139 . 170 .167
.131 .145 .145
L b ....
.053 .079 .093 .089 .054 .075 .089 .082 .Óé4 .085 .095 .089
L b ....
.242 .280 .283
.317 .304 .303
.326 .313 .316
L b ....
.543 .617 .628
.517 .540 .534
.500 .533 .542
1 L oaf; 16 ounces, w e ig h t of d o u g h .
A V E R A G E R E T A I L P R I C E S O F T H E P R I N C I P A L A R T IC L E S O F F O O D F O R 30 C I T I E S
F O R O C T . 15. 1917.
[T h e av e ra g e p ric es sh o w n b elo w a re c o m p u te d fro m re p o rts s e n t m o n th ly to th e b u r e a u b y re ta il d ealers.
A s so m e dealers occasionally fail to re p o rt, th e n u m b e r of q u o ta tio n s v aries fro m m o n th to m o n th .)
A rtic le.
S irlo in s te a k ...............
R o u n d s te a k .............
R ib r o a s t....................
C h u ck r o a s t ...............
P o rk c h o p s ................
B acon, s lic e d ............
H a m , s lic e d ...............
L a r d .............................
L a m b ...........................
H e n s .............................
S alm o n , c a n n e d ----E g g s .............................
B u t t e r .........................
C heese..........................
M ilk..............................
B r e a d ...........................
F lo u r ............................
C orn m e a l...................
R ice...............................
P o tato es......................
O n io n s .........................
B ean s, n a v y . ............
P r u n e s .........................
R a is in s ........................
S u g a r ...........................
C offee...........................
T e a ................................
U n it.
B ir
C in
m in g B rid g e B u tte , C harles c in
p o rt,
to n ,
ham ,
n a ti,
M
ont.
C onn.
S .C .
A la.
O hio.
L b . . . . 80.355
.314
L b ....
.266
L b ....
.212
L b ....
.170
L b ....
.389
L b ....
.509
L b ....
L b ....
.450
L b ....
.308
L b ....
.433
L b ....
.286
L b ....
.278
.494
D o z ...
L b ....
.560
.356
L b ....
.152
Q t....
.094
16-oz.i
.072
L b ....
.054
L b - .- .
.122
L b ....
.037
L b ....
.058
L b ....
.197
L b ....
L b ....
.160
.160
L b ....
.102
L b ....
.328
L b ....
.740
L b ....
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
Co
I n d i
lu m D allas, F a ll a n a p
R iv e r,
b u s,
Tex.
olis,
M ass.
O hio.
In d .
$0.428 $0.300 SO.277 80.274 SO. 329 SO. 311 SO.427 SO.329
.272
.300
.395
.258
.261
.303
.325
.367
.261
.333
.243
.258
.247
.229
.293
.236
.272
.191
.230
.251
.200
.226
.218
.189
.172
.150
. 185
.135
. 176
.165
.153
.392
.404
.403
.386
.386
.391
.386
.371
.472
.434
.560
.535
.488
.509
.471
.467
.480
.483
.441
.436
.446
.503
.425
.447
.298
.294
.318
.311
.325
.301
.308
.306
.342
.250
.326
.358
.315
.284
.300
.339
.272
.327
.278
.333
.301
.355
.343
.325
.282
.238
.355
.281
.277
.350
.266
.259
.692
.693
.480
.461
.706
.464
.475
.507
.499
.504
.500
.517
.559
.499
.534
.515
.324
.383
.341
.387
.338
.345
.363
.350
.148
.130
.100
.110
.140
.1210
.150
.160
.088
.085
.085
.093
.104
.087
.081
.091
.068
.077
.073
.124
.075
.078
.078
.071
.069
.074
.059
.069
.085
.073
.069
.066
.111
.121
.117
.132.
.094
. Ill
.117
.119
.037
.030
.031
.031
.036
.031
.020
.034
.052
.054
.048
.053
.046
.046
.051
.060
.,203
.191
.173
.190
.178
.161
.195
.185
.162
.178
.168
.183
.165
.168
.173
.165
.168
.144
.149
.150
.145
.149
.153
.157
.102
.101
. 104
.100
.096
.096
.107
.101
.323
.295
.274
.290
.336
.288
.319
.416
.704
.743
.823
.487
.664
.683
.755
.623
1 Loaf; 16 ounces, w e ig h t of d o u g h .
[1159]
Jack
so n
ville,
F la .
SO. 323
.293
.253
.199
.154
.397
.484
.420
.301
.300
.316
.278
.545
.531
.349
.137
.093
.076
.066
.106
.040
.054
.197
.181
.178
.100
.326
.735
88
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
AVERAGE R E T A I L P R I C E S O F T H E P R I N C I P A L A R T IC L E S O F F O O D F O R 30 CITIES
F O R O C T . 15. 1917—C oncluded.
Article.
Sirloin steak............
Round steak...........
Rib roast.................
Chuck roast.............
Plate beef................
Pork chons. -...........
Bacon, sliced...........
Ham, sliced.............
L ard....................... L am b.......................
H ens........................
Salmon, canned___
Eggs.........................
B u tter......................
Cheese.......................
Milk..........................
B read.......................
Flour........................
Corn m eal................
Rice..........................
Potatoes...................
Onions.....................
Beans, navy.............
Prunes.....................
Raisins.....................
Sugar........................
Coffee.......................
T ea...........................
A rtic le .
S irlo in s te a k ...............
R o u n d s te a k ..............
R ib r o a s t....................
C h u ck r o a s t...............
P la te b e e f...................
P o r k c h o p s .................
B ac o n , s lic e d .............
H a m , s lic e d ...............
1iard .............................
L a m b ...........................
H e n s .............................
S alm o n , c a n n e d . . . .
E g g s ..............................
B u t t e r ..........................
C h eese..........................
M iik ...............................
B r e a d ...........................
F lo u r ............................
C o rn m e a l...................
R ic e ..............................
P o ta to e s ......................
O n io n s .........................
B ea n s, n a v y ...............
P r u n e s .........................
R a is in s .........................
S u g a r............................
C offee...........................
T e a ................................
Unit.
Man Mem Minne New New
Kansas Little Los
An Louis
Ha
City, Rock, geles,
ville, ches
phis, apolis, ark,
ter,
ven,
Mo.
Ark.
Ky.
Cal.
N .H . Tenn. Minn. N .J. Conn.
New
Or
leans,
La.
L b .... $0,317 $0.306 «0.277 $0.285 $0.448 $0,307 $0.256 SO.378 $0.437
.292
.382
L b ....
.278
.247
.271
.409
.280
.245
.399
.232
L b ....
.235
.255
.229
.277
.246
,209
.297
.323
Lb —
.254
.198
.197
.186
.203
.248
.210
.181
.287
L b ....
.165
. 168 . 152 .175
.173
.136
.188
.382
.372
L b ....
.381
.365
.393
.389
.356
.410
.401
L b ....
.477
.513
.546
.455
.495
.486
.455
.523
.498
.432
L b ....
.419
.433
.463
.513
.438
.436 i . 333
.505
L b ....
.323
.304
.335
.301
.320
.317
.301
.317
.313
L b ....
.270
.308
.288
.310
.330
.353
.248
.345
.345
L b ....
.265
.297
.319
.297
.348
.301
.247
.348
.363
L b ....
.294
.322
.296
.298
.268
.253
.277
.316
.329
D o z ...
.441
.674
.449
.485
.610
.473
.640
.448
.733
L b ....
.502
.552
.544
.535
.539
.475
.516
.508
.538
.382
.332
.332
L b ....
.350
.339
.351
.361
.336
.375
.
122
.120
.140
.128
.167
.120
.120
.123
.146
Q.t---.092
.082
16-oz.2.
.082 .100
.082
.089
.096
.089
.096
.066
L b ....
.073
.065
.071
.076
.070
.061
.075
.076
.062
L b ....
.065
.059
.060
.063
.084
.075
.078
.077
.112
.102
.114
.105
.104
.104
.103
.111
L b ....
.103
.032
.032
.034
.031
.035
.031
.025
.037
L b ....
.048
.042
.052
.054
.046
.038
.059
.053
L b ....
.046
.033
.194
.184
.195
.199
.179
.196
.187
.188
.183
L b ....
.161
.155
.166
.159
.165
.170
L b ....
.159
.178
.158
.152
.152
.150
.153
.145
.146
.148
L b ....
.151
.167
.102
.084
.102
.099
.091
.096
.100
L b ....
.095
.095
.335
.305
.313
.304
.288
.279
.337
L b ....
.330
.318
.564
.585
.709
.489
.535
L b ....
.608
.803
.590
.733
U n it.
O m a
ha,
N eb r.
P o r t P ro v i R ic h R o c h
la n d , dence, m o n d , este r,
V a.
N. Y.
O reg. R . I .
L b . . . . $0.319 $0.255 $0. 524 $0.325 $0.314
L b ....
.298
.295
.246
.435
.305
L b ....
.333
.257
.232
.236
.260
.301
L b ....
.203
.183
.227
.238
.182
L b ___
.154
.147
.187
L b ....
.378
.373
.425
.378
.398
.480
.456
L b ....
.465
.510
.467
.506 i. 351
.428
L b ....
.438
.445
.323
.313
.322
L b ....
.318
.310
.332
.306
L b ....
.357
.320
.275
L b ....
.342
.363
.265
.248
.308
.294
L b ....
.282
.289
.226
.325
.638
D o z ...
.453
.600
.663
.496
.541
L b ....
.496
.559
.515
.543
.346
.341
.337
L b ....
.363
.357
.120
.130
.133
.127
Q t....
.112
.000
.084
.089
16-oz.2 .096
.086
.062
.073
.073
.072
L b ....
.059
.073
.073
.062
.076
L b ___
.065
.114
.113
L b ....
.107
.108
.115
.026
.024
.036
.029
L b ....
.035
.042
.052
.049
L b ....
.045
.059
.184
.183
L b ....
.198
.180
.199
.187
L b ....
.166
.138
.173
.147
L b ....
.163
.140
.146
.145
.147
.097
.092
.099
.099
L b ....
.089
.341
L b ....
.314
.320
.291
.295
.682
L b ....
.604
.540
.503
.565
1 W h o le.
S t.
P a u l,
M inn .
S alt
S cran S prin g L ake
to n ,
field,
C ity ,
Pa.
111.
U ta h .
$0.293 $0.275 $0. 341
.258
.259
.305
.234
.234
.275
.232
.199
.199
.142
.159
.166
.386
.370
.414
.473
.483
.464
.439
.423
.429
.336
.300
.303
.290
.344
.247
.321
.255
.344
.276
.283
.281
.436
.573
.592
.550
.507
.477
.341
.331
.337
.120
. Ill
.123
.090
.093
.081
.062
.055
.076
.066
.075
.106
.104
.109
.024
.020
.032
.034
.053
.038
.206
.191
.206
.162
.153
.165
.144
.146
.139
.092
.093
.098
.321
.350
.319
.631
.561
.536
$0. 344
.328
.240
.226
.183
.394
.504
.441
.321
.369
.240
.262
.497
.525
.381
.118
.099
.071
.071
.121
.031
.048
.207
.172
.172
.103
.300
.658
$0.271
.246
.233
.183
. 155
.401
.503
.425
.301
.314
.327
.304
.469
.519
.350
.130
.077
.079
.072
.100
.041
.045
.176
.177
.160
.099
.269
.625
W ash
in g
to n ,
D.C.
0.350
.337
.278
.243
.191
.415
.497
.438
.318
.360
.325
.236
.546
.534
.351
.140
.090
.075
.062
.115
.031
.054
.201
.178
.154
.094
.281
.592
2 Loaf; 16 ou n ces, w e ig h t of d o u g h .
RETAIL PRICES OF DRY GOODS IN THE UNITED STATES.
Average retail prices for eight articles of dry goods on May 15 and
October 15, 1917, are shown in the following tables. The bureau
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[ 1160 ]
M O N T H L Y R E V IE W
O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
89
secures these prices in May and October of each year from firms in
45 cities.
AVERAGE R E TA IL PRICES OF 8 ARTICLES OF DRY GOODS IN 45 CITIES, MAY 15, 1917,
AND OCTOBER 15, 1917, BY ARTICLES.
Atlanta, Ga.
Article.
Calico......................
Percale...................
Gingham, ap ro n ...
Gingham, dress—
Muslin, bleached...
Sheeting, bleached.
Sheets, bleached...
Outing flannel.......
Unit.
Baltimore,
Md.
Oct.
May
Oct.
May
Oct.
May
Oct.
May
191*.
191*.
191*.
15,
1917.
191*.
15,
1917.
191*.
15,
1917.
Per y ard . $0,100 $0.108 $0.098 $0.130 $0,094 $0.121 $0.100 $0.118 $0.107
...d o ........ .158
.243
.190
.230
.190
.258
.177
.190
.170
.122
. ..d o ........ .131
.185
.190
.138
.150
.125
.190
.123
...d o ........ .146
.196
.162
.160
.240
.228
.210
.166
.163
.. .do........ .146
.203
.152
.214
.187
.146
.157
.223
.158
.529
...d o ........ .421
.430
.550
.385
.450
.465
.518
.443
Per sheet. 1.068 1.362 1.058 1.342
.960 1.170 1.242 1.358 1.140
Per y ard . .142
.186
.157
.223
.158
.170
.160
.193
.125
Chicago, 111.
Columbus,
Ohio.
Dallas, Tex. Denver, Colo.
Indianapolis, Jacksonville, Kansas City,
Ind.
Fla.
Mo.
Manchester,
N. H.
Memphis,
Tenn.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
$0.120
.250
.175
.202
.179
.508
1.288
.172
$0.143
.225
.160
.238
.231
.594
1.608
.198
Little Rock,
Ark.
$0.125
.225
.163
.193
.204
.528
1.340
.190
Milwaukee,
Wis.
Per yard. $0.098 $0.119 $0,093 $0.127 $0,117 $0.122 $0.099 $0.120 $0.100
.181
.217
.200
.220
.180
.. .do........ .194
.231
.163
.190
.123
.150
.171
.124
...d o ........ .138
.188
.125
.125
.133
.161
.234
.159
.167
.177
- ..d o ........ .190
.248
.213
.238
.204
.194
.155
.148
.160
.230
.146
.213
.. .do........ .159
.434
.598
.400
.482
.469
.581
.466
.563
.. .do........ .455
Per sheet. 1.275 1.590 1.147 1.348 1.293 1.530 1.181 1.411 1.367
.208
.142
.168
.178
.160
.204
.190
. 156
Per yard. .161
[ 1161 ]
$0.117
.190
.143
.215
.186
.605
1.370
.170
Detroit,
Mich.
Per y ard . $0.090- $0.090 $0.102 $0.121 $0.125 $0.150 $0.100 $0.125 $0.100
.177
.183
.200
.200
.250
.178
.235
...d o ........ .163
.185
.124
.150
.150
.150
.190
.133
.187
...d o ........ .120
.125
.177
.188
.209
.216
.180
.200
.166
...d o ........ .150
.158
.147
.211
.220
.193
.238
.173
.160
.. .do........ .150
.157
.441
.545
.564
.525
.553
.460
.441
.450
...d o ........ .440
Per sheet. 1.183 1.413 1.070 1.319 1.145 1.375 1.150 1.400 1.108
.149
.207
.180
.150
.190
.158
.185
Per yard. . 145
.150
Louisville,
Ky.
Oct.
15,
1917.
Cincinnati,
Ohio.
Per y ard . $0.090 $0.108 $0.110 $0,118 $0,098 $0,125 $0.100 $0.122 $0.101
.185
.219
.198
.210
.200
.225
...d o ........ .168
.159
.193
.125
.150
.158
.142
.117
.175
.119
...d o ........ .117
.130
.197
.300
.215
.157
.180
.255
.200
.150
...d o ........
.198
.213
.170
.185
.167
.233
.191
.140
.. .do........ .158
.180
.590
.564
.621
.456
.496
.473
.391
.471
...d o ........ .486
Per sheet. 1.190 1.476 1.214 1.450
.981 1.173 1.461 1.732 1.320
.164
.194
.180
.206
.210
.150
Per yard. .146
.188
.159
Los Angeles,
Cal.
Calico.....................
Percale...................
Gingham, ap ro n ...
Gingham, dress__
Muslin, bleached..
Sheeting, bleached.
Sheets, bleached...
Outing flannel.......
Charleston,
S. C.
Per y ard . $0.102 $0.134 $0.100 $0.108 $0.113 $0.144 $0,100 $0.125 $0.098
.233
.235
.197
.223
.178
.195
.250
...d o ........ .190
.170
.168
.125
.100
.156
...d o ........ .130
.116
.125
.140
.125
.201
.221
.187
.203
.154
...d o ........ .170
.186
.216
.165
.230
.188
.142
.158
.151
...d o ........ .164
.215
.213
.137
.411
.588
.533
.561
.607
...d o ........ .470
.479
.439
.398
Per sheet. 1.279 1.539 1.483 1.717 1.197 1.464 1.218 1.600 1.063
.198
.190
.217
Per y ard . .162
.173
.174
.205
.148
.150
Fall River,
Mass.
Calico......................
Percale...................
Gingham, ap ro n ...
Gingham, dress__
Muslin, bleached..
Sheeting, bleached.
Sheets, bleached...
Outing flannel.......
Bridgeport,
Conn.
May
Cleveland,
Ohio.
Calico......................
Percale...................
Gingham, ap ro n ...
Gingham, dress__
Muslin, bleached..
Sheeting, bleached.
Sheets, bleached...
Outing flannel.......
Boston,
Mass.
15,
1917.
Buffalo, N. Y. Butte, Mont.
Calico......................
Percale...................
Gingham, ap ro n ...
Gingham, dress__
Muslin, bleached..
Sheeting, bleached.
Sheets, bleached...
Outing flannel.......
Birmingham,
Ala.
$0.116
.207
.150
.207
.175
.572
1.604
.200
90
MONTHLY REVIEW OP THE BUREAU OF LABOR STATISTICS.
A V E R A G E R E T A IL P R IC E S O F 8 A R T IC L E S O F D R Y GOODS IN 45 C IT IE S , MAY 15, 1917,
A N D O C TO B ER 15, 1917, B Y A R T IC L E S —Concluded.
M inneapolis,
Minn.
Article.
U n it.
May
15,
1917.
Oct.
191*.
N ewark,
N. J.
May
15,
1917.
Oct.
15,
1917.
N e w H av en ,
Conn.
May
1917.
Oct.
15,
1917.
New Orleans,
La.
New Y ork
N. Y.
May
15,
1917.
May
15,
1917.
Oct.
15,
1917.
Per y a r d . SO. 107 SO. 127 SO. 095 SO. 125 SO. 097 SO. 131 SO. 100 $0.150 SO. 109
.187
.240
.218
.183
.177
.150
.235
.220
. 180
__d o .........
.161
.161
. 117
.163
.117
. 150
.125
.117
.. .d o ......... .129
.246
.244
.212
.194
.179
.167
.168
.150
. 197
. . .d o .........
.202
.149
.213
.150
.210
.125
.183
. 152
. . .d o ......... .149
.523
.546
.427
.417
.501
.428
.450
.900 1.150 1.112
Sheets, b leach ed ... Per sheet. 1.142 1.406 1.150 1.370 1.120 1.340
.189
.154
.173
.151
.191
.170
O uting flannel........ Per y a rd . .155
C alico.......................
Percale.....................
G ingham , a p ro n ...
Gingham , dress.. . .
Muslin, bleach ed . .
O maha,
Nebr.
Calico........................
Percale.....................
G ingham , a p ro n ...
G ingham, dress___
M uslin, bleach ed . .
Sheeting, bleached.
Sheets, b le a ch e d ...
O uting flannel........
Portland,
Oreg.
Rochester,
N. Y.
St. Louis,
Mo.
St. Paul,
Minn.
Scranton,
P a.
Seattle,
W ash.
Springfield,
111.
SO. 139
.208
. 154
.216
.213
.569
1.392
.188
Providence.
R. I.
80.130
.188
.170
.188
.217
.498
1.422
Salt Lake
C ity, U tah.
Per y a rd . SO. 103 $0.131 SO. 086 SO. 095 $0.103 SO. 141 SO. 087 SO. 108 SO. 110
.158
.221
.190
.250
. 175
.. .d o ......... .171
.200
.210
.200
.168
.125
.150
.147
.115
.150
.115
.125
. ..d o ......... .122
.234
.172
.191
.170
.245
.147
.173
. . . d o ......... .157
.223
.149
.222
.144
.142
.169
.208
.201
.193
. . . d o ......... .169
.554
.581
.424
.386
.508
.540
.474
.. .d o ......... .446
.442
P er sheet. 1.107 1.392 1.167 1.387 1.090 1.318 1.078 1.370 1.363
.184
.156
.156
.142
.168
.200
.195
.170
Per y a rd . .148
San Francisco Cal.
C alico.......................
P ercale.....................
Gingham , a p ro n ...
Gingham , dress___
Muslin, bleached...
Sheeting, bleached.
Sheets, b leached. . .
O uting flannel........
P ittsb u rgh,
Pa.
Per y a rd . $0.095 SO. 134 SO. 125 SO. 133 SO. 100 SO. 119 $0.094 SO. 127 SO. 098
.250
.223
.228
.176
. 197
.187
.175
.235
. . .d o ......... .175
.168
.1 6 6
.113
. 108
.119
.171
.147
.133
. . .d o ......... .113
.162
.196
.205
.165
.147
.215
.160
.202
. . . d o ......... .150
.201
.187
. 159
.143
.152
.157
.213
.200
. . . d o ......... .140
.454
.578
.542
.530
.447
.450
.418
.553
. . .d o ......... .406
Per sheet. 1.100 1.342 1.206 1.443 1.147 1.412 1. 213 1.467 1.105
.189
.153
.176
.149
.193
.167
.182
Per y a rd . .144
Richm ond,
Va.
Calico.......................
Percale.....................
Gingham , a p ro n ...
Gingham , dress___
M uslin, bleach ed . .
Sheeting, bleached.
Sheets, b leach ed ...
O uting flannel........
Philadelphia,
p&.
Oct.
15,
1917.
SO. 142
-.238
.167
.234
.203
.571
1.638
.216
W ashington,
D. C.
SO. 088 SO. 125 SO. 103 $0.150 SO. 100 SO. 125 SO. 102
Per y a rd .
. 178
__d o ......... SO. 208 SO. 250
. 190
.220
.200
.250
.134
.193
.158
. . .d o ......... . 125
.110
.125
.190
. 165
.125
.214
.146
. 164
.194
.219
.207
. . . d o ......... .163
.151
.185
. 146
.154
.198
. . . d o ......... .161
. 230
.145
.170
.209
.190
.626
.546
.526
.626
.461
.422
.448
.. .d o ......... .493
.520
Per sheet. 1.270 1.540 1.070 1.320 1.313 1. 538 1. 225 1.625 1.138
.142
.173
. 168
.213
.170
.190
.214
.150
Per y a rd . .162
SO. 130
.217
.192
.257
.219
.601
1.563
.198
PRICE CHANGES, WHOLESALE AND RETAIL, IN THE UNITED
STA TES.
Price changes, both wholesale and retail, among important articles
of food in a few selected cities of the United States are shown in
figures compiled by the Bureau of Labor Statistics. From these it is
evident that retail prices, while showing a less degree of variation,
have fluctuated in much the same manner as have wholesale prices
in recent months.
In collecting data for the comparison it was found that in some
instances slight differences of grade or quality existed between the
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M O N T H LY REVIEW OF TH E BUREAU OF LABOR STATISTICS.
91
articles for which wholesale prices were obtainable and those for
which retail prices could be secured. I t was found impracticable,
also, in most instances to obtain both kinds of quotations for the same
date. The retail prices shown are uniformly those prevailing on the
15th of the month, while the wholesale prices are for a variable date,
usually several days in advance of the 15th. For these reasons exact
comparison of retail with wholesale prices can not be made. The
figures are believed to be of interest, however, in showing price varia
tions in the retail as compared with the wholesale markets.
In the table which follows, the wholesale price represents, in each
case, the mean of the high and the low quotations on the date selected,
while the retail price is the simple average of all prices reported for
the article and city in question. For convenience of comparison with
retail prices, beans and corn meal are here quoted by the pound,
wholesale, instead of the customary 100 pounds. Similarly, to facili
tate comparison with the wholesale price, flour at retail is priced by
the barrel instead of the one-eighth barrel. In this table the whole
sale price of fancy patent flour a t St. Louis is shown instead of the
first patent flour included in the table published in the November
issue of the M o n t h l y R e v i e w , a s this is believed t o offer a better
comparison with the brand quoted at retail.1 The initials W. and R.
are used to designate wholesale and retail prices, respectively.
W HOLESALE AND R E TA IL PRICES OF IM PORTANT FOOD ARTICLES IN SELECTED
CITIES, OCTOBER, 1913 TO 1916, AND JANUARY, A PR IL, JU LY, AUGUST, SEPTEM
B E R , AND OCTOBER, 1917.
[The initials W=wholesale; R =retail.]
October.
Article and city.
'1 9 1 7
Unit.
1913
1914
1915
1916
Jan.
Apr. July. Aug. Sept. Oct.
Bacon, short clear sides, Chicago....................................... W .. Lb. $ 0 . 1 2 9 $ 0 . 1 3 7 $ 0 . 1 1 3 .$ 0 . 1 6 2 .$ 0 . 1 5 8 $ 0 , 2 1 8 $ 0 . 2 4 7 $ 0 . 2 6 1 $ 0 , 2 7 4 $ 0 . 3 1 8
.3 3 4
.3 1 4
.3 2 9
.3 1 6
.3 9 5
.4 3 9
.4 2 9
Bacon, sliced, Chicago............ R .. Lb.
.3 2 7
.4 7 6
.4 7 5
Beans, medium, choice, New
.0 5 9
.0 8 8
.1 3 0
.1 5 4
.1 5 0
York......................................W .. Lb.
.0 3 8
.0 4 7
.1 0 8
.1 3 5
.1 3 8
Beans, navy, small, white, New
.1 1 9
.1 4 9
.1 6 2
.0 8 7
. 188
.1 8 9
.1 8 5
Lb.
.1 8 5
Beef:
.1 3 0
.1 4 4
.1 6 0
.1 3 8
.1 3 8
.1 3 8
.1 6 3
.1 6 8
.1 9 0
.1 9 0
Fresh, carcass, Chicago...W .. Lb.
.2 5 4
.2 3 8
.2 3 5
.2 5 6
.2 1 6
.2 2 7
.2 6 6
.2 7 3
.2 8 1
.2 7 3
Round steak, Chicago. . . . R .. Lb.
.1 3 0
.1 3 5
.1 2 8
.1 3 0
.1 3 3
.1 7 3
.1 7 0
Fresh, sides, New Y o rk ..W .. Lb.
.1 6 3
.1 8 5
.1 8 3
Rib roast, bone in, New
.2 2 2
.2 3 1
.2 7 0
.2 7 9
.2 8 6
.2 1 6
.2 2 6
.2 3 8
.2 9 8
.2 9 8
Y ork............................... R -. Lb.
Butter, creamery, extra, Chi.4 4 0
.3 9 4
.2 9 0
.2 9 5
.2 7 5
.3 4 5
.3 7 0
.3 7 5
.4 2 5
.4 3 5
cago....................................... W .. Lb.
B utter, creamery, extra, Chi.4 8 4
.4 8 4
.3 5 4
.3 4 0
.3 2 4
.3 9 4
.4 3 2
.4 4 8
.4 3 8
.4 8 7
cago........................................R -. Lb.
Butter, creamery, extra, New
.444 . 4 4 3
.3 0 8
.3 1 0
.2 9 1
. 35C
.4 5 0
.3 9 5
.4 0 8
York'......................................W .. Lb.
.3 9 5
Butter, creamery, extra, New
.4 6 0
.4 7 0
.5 0 7
.515
.3 7 5
.3 7 2
.3 3 9
.4 0 8
.5 1 3
.4 5 3
Y ork...................................... R -. Lb.
Butter, creamery, extra, San
.4 3 5
.4 3 5
.4 6 0
.3 9 0
.3 8 5
.2 7 0
.3 4 0
.3 5 5
.3 3 5
.3 0 5
Francisco.............................. W .. Lb.
1 W holesale prices of fancy p a te n t flour a t S t. L ouis for th e m o nths show n in th e
N ovem ber issue of th e M o n t h l y R e v i e w an d n o t in th e p resen t issue a re a s fo llo w s:
Septem ber, 1913, $4,300 ; Septem ber, 1914, $5,324 ; Septem ber, 1915, $5.2 0 0 ; Septem ber,
1916, $7,300.
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[1163]
92
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
W HOLESALE AND R E T A IL PRICES OF IM PORTANT FOOD A RTICLES IN SELECTED
CITIES, ETC.—Concluded.
October.
Article and city.
1913
Butter, creamery, extra, San
Francisco............................... R . .
Cheese, whole milk, American
twins, Chicago................... W ..
Cheese, full cream, American, Chicago........................................ R„.
Cheese, whole milk, State, New
York......................................W -.
Cheese, full cream, American,
New York............................. R . .
Cheese, fancy, California flats,
San Francisco.......................W ..
Cheese, full cream, American, San
Francisco............................... R . .
Eggs, fresh, firsts, Chicago__ W ..
Eggs, strictly fresh, Chicago. . R ..
Eggs, fresh, firsts, New Y o rk.W ..
Eggs,
strictly
fresh,
New
Y ork.......................................R ..
Eggs, fresh, extra, pullets’, San
Francisco.............................. W ..
Eggs, strictly fresh, San Francisco........................................R ..
Flour, w inter patents, Kansas
City....................................... W ..
Flour, Aristos, Kansas C ity ...R ..
Flour, standard patents, Minneapolis..................................... W ..
Flour, Pillsbury’s Best, Minneapolis......................................R ..
Flour,fancy patents, St. Louis. W ..
Flour, Gold Medal, St. L ouis.R ..
Ham, smoked, Chicago.......... W ..
Ham, smoked, sliced, Chicago.R..
Lamb, dressed, round, ( hicago....................................... W ..
Lamb, leg of, yearling, Chicago........................................ R ..
Lard, prime, contract, New
York......................................W ..
Lard, pure, tub, New Y o rk ...R ..
Meal, corn, fine, yellow, New
York...................................... W ..
Meal, com, New York............ R ..
Milk, fresh, Chicago................W ..
Milk, fresh, bottled, delivered,
( hicago.......... .......................R ..
Milk, fresh, New Y ork........... W ..
Milk, fresh, bottled, delivered.
New Y ork............................. R ..
Milk, fresh, San Francisco__ W ..
Milk, fresh, bottled, delivered,
San Francisco....................... R ..
Potatoes, white, good to choice,
Chicago................................. W ..
Potatoes, Chicago....................R ..
Poultry, dressed fowls, New
York...................................... W ..
Poultry, hens, dressed, New
York.......................................R ..
Rice, head, Honduras, New Orleans..................... ................ W ..
Rice, head, Louisiana, New Orleans....................................... R . .
Sugar, granulated, New York. W ..
Sugar, granulated, New Y o rk .R ..
1817
Unit.
1914
1915
1916
Jan. Apr. July. Aug. Sept. Oct.
Lb. $0.400 SO.379 SO.342 SO. 404 $0. 425 $0,452 30.455 $0.504 $0.530 $0. .545
Lb.
.153
.140
.186
.218
.223
.216
.215
.240
.246
. 23C
.277
.321
.327
.339
.342
.344
.368
.148
.208
.220
.245
.238
.229
.244
.255
.234
.255
.301
.335
.328
.331
.338
.340
.130
.165
.165
.180
.215
.200
.235
.235
.220
.238
.308
.383
.345
.242
.485
.525
.105
.207
.305
.376
.330
.297
310
.406
.350
.323
.428
.380
. 385
.465
.413
.370
.469
.400
.627
.128
Lb.
Lb.
.161
.145
Lb.
Lb.
.165
Lb
Doz.
Doz.
Doz.
.255
.333
.290
.220
.301
.250
.226
.253
. 34C
. 30C
Doz.
.479
.421
.456
.517
.667
.424
. 4i 7
.544
.592
Doz.
.350
.335
.385
.435
.380
.280
.320
.370
.430
.435
Doz.
.564
.533
.542
.558
.480
.374
.392
.475
.538
.608
Bbl. 4.075 5.075 5.05C 7.550 8.950 11.450 11.15012.90010. 700 10.500
Bbl. 5.900 6.534 7.30C 9. 700 10.600 13.689 13.680 14.320 13.289i 13.066
Bbl.
4.450 5. 750 5.55C 8.850 9.450 11.025 12.000 13.200 11.350 10.550
Bbl 5.600 7.000 6.400 10.000 10.800 13. 200 13.42414.336 12.208[11.984
Bbl. 4.150 5.075 5.325 7.600 8.675Ì11.375 11.37512.87510.800 11.250
Bbl. 6.200 7.400 6.880 9.667 10.587 12.853 13.200 14.800 13. 700 13.100
.164 .173 .163 .193 .188 .243 .243 .233 .263 .283
Lb.
.320 .346 .328 .359 .333 .382 .414 .407 .439 .439
Lb.
Lb.
.135
.135
. 155
.170
.200
.220
.260
.230
.280
Lb.
.198
.204
.204
.223
.232
.263
.287
.288
.320
.314
Lb.
Lb.
.107
.163
.102
.159
.100
.150
.152
.196
.159
.213
.215
.263
.201
.274
.226
.275
.240
.294
.246
.313
Lb.
Lb.
Q.t.
.016
. 035
.040
.019
.036
.043
.017
. 035
.039
.021
.044
.045
.027
. 051
.045
.031
.057
.054
.040
.070
.047
.052
.067
.051
. 050
.076
.051
.049
.082
.074
Qt.
Qt.
.080
.040
.080
.040
.080
.038
.090
.050
.100
.051
.100
.049
.100
.050
.100
.060
.100
.060
.129
.072
Qt.
Qt.
.090
.039
.090
.039
.000
.038
.098
.038
.100
.038
.109
.038
.114
.043
.125
.043
.124
.058
.138
.059
Qt.
.100
.100
.100
.100
.100
.100
.100
.100
.121
.121
Bn.
Bu.
. 60S
1.020
.480
.775
.615 1.200 1.750 2.700 2.625 1.600 1.250 1.135
.796 1.640 2.370 3.455 2.975 2.012 1.623 1.184
.270
Lb.
.185
.195
.220
.230
.220
.265
.248
.240
.258
.285
Lb.
.218
.223
.220
.259
.261
.293
.287
.288
.316
.323
Lb.
.051
.048
.043
.043
.048
.049
.071
.072
.070
.077
.059
.066
.070
.048
.054
.073
.070
.074
.066
.074
1081
.087
074
.084
.082
.090
.082
.092
.082
.097
Lb
Lb.
Lb.
.042
.049
A comparison of wholesale and retail price fluctuations, expressed
as percentages of the price in October, 1913, is contained in the
table that follows. I t will be seen from this table that the whole
sale prices of practically all articles in October, 1917, had increased
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93
to a larger extent than had retail prices. This is particularly notice
able in the case of bacon, flour, ham, lamb, lard, meal, milk, and
potatoes. Of the 22 articles included in this table, only 1, granulated
sugar, showed a larger per cent of increase in the retail than in the
wholesale price. In nearly all instances retail prices were relatively
lower in the other months shown in the table than were wholesale
prices.
RELA TIV E PRICES, W HOLESALE AND RE TA IL , OF IM PORTANT FOOD ARTICLES IN
SELECTED CITIES, IN OCTOBER, 1914, 1915, AND 1916, AND IN JANUARY, A PR IL, JULY,
AUGUST, SEPTEM BER, AND OCTOBER, 1917, COMPARED W ITH OCTOBER, 1913.
[The initials W=wholesale; R=retail.]
October.
1917
Article and city.
Bacon, short clear sides, Chicago.. . W . .
Bacon, sliced, Chicago..................... ..R ..
Beef:
Fresh, carcass, Chicago........... . W . .
Round steak, Chicago.............. ..R ..
Fresh sides, New Y ork........... . W . .
Rib roast, bone in, New York. . , R ..
Butter, creamery, extra, Chicago.. . W . .
Butter, creamery, extra, Chicago.. ..R ..
Butter, creamery, extra. New Y ork.W ..
P utter, creamery, extra, New Y ork-.R ..
Butter, creamery, extra, San Francisco............................................... . W . .
Butter, creamery, extra, San Francisco............................................... ..R ..
Eggs, fresh, firsts, Chicago............ . W . .
Eggs, strictly fresh, Chicago........... ..R ..
Eggs, fresh, firsts, New Y ork........ . W . .
Eggs, strictly fresh, New Y ork__ ..R ..
Eggs, fresh, extra, pullets’, San Francisco............................................... . W . .
Eggs, strictly fresh, San Francisco. ..R ..
Flour, winter patents, Kansas C ity .W ..
Flour, Aristos, Kansas City........... ..R ..
Flour, standard patents, Minneapolis................................................ .W ..
Flour, Pillsbury’s Best, Minneapolis. R ..
Flour, fancy patents, St. L ouis... .W ..
Flour, Gold Medal, St. Louis........ ..R ..
Ham, smoked, Chicago.................. .W ..
Ham, smoked, sliced, Chicago....... ..R ..
Lamb, dressed, round, Chicago... . W . .
Lamb, leg of, yearling, Chicago__ . _R_.
Lard, prime, contract, New York. . W . .
Lard, pure, tub, New Y ork........... ..R ..
Meal, corn, fine, yellow, New York . W . .
Meal, corn, New Y ork.................... ..R ..
Milk, fresh, Chicago........................ . W . .
Milk, fresh, bottled, delivered, Chicago................................................ ..R ..
Milk, fresh, New York................... . W . .
Milk, fresh, bottled, delivered, New
York.............................................. ..R ..
Milk, fresh. San Francisco............. .W ..
Milk, fresh, bottled, delivered, San Francisco............................................... ..R ..
Potatoes, white, good to choice. . . .W ..
Potatoes, Chicago............................ ..R ..
Poultry, dressed fowls, New York .W ..
Poultry, hens, dressed, New York ..R ..
Sugar, granulated, New York....... . . W . .
Sugar, granulated, New Y ork....... ..R ..
25413°— 17-
•7
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Federal Reserve Bank of St. Louis
1916 Jan.
1913
1914
1915
Apr. July. Aug. Sept. Oct.
100
100
106
102
88
96
126
101
122
97
169
121
191
134
202
131
212
146
247
145
100
100
100
100
100
100
100
100
111
110
104
103
102
96
101
99
106
118
98
105
95
92
94
90
106
109
100
107
119
111
114
109
106
105
102
110
128
124
128
123
123
119
133
125
152
137
146
137
125
123
125
129
129
122
128
121
129
126
131
132
136
127
132
125
146
130
142
138
147
137
144
135
146
126
141
138
150
138
144
137
100
91
81
101
106
116
115
130
130
137
100
100
100
100
100
95
86
90
86
88
86
99
102
103
95
101
121
115
119
108
106
190
158
174
139
113
120
113
114
89
114
122
122
121
100
126
127
129
131
114
133
151
140
142
124
136
145
141
138
131
100
100
100
100
96
95
125
111
110
96
124
124
124
99
185
164
109
85
220
180
80
66
281
232
91
70
274
232
106
84
317
243
123
95
263
225
124
108
258
221
100
100
100
100
100
100
100
100
100
100
100
100
100
129
125
122
119
105
108
100
103
95
98
119
103
108
125
114
128
111
99
103
115
103
93
92
106
100
98
199
179
183
156
118
112
126
113
142
120
131
126
113
212
193
209
171
115
104
148
117
149
131
169
146
113
248
236
274
207
148
119
163
133
201
161
194
163
135
270
240
274
213
148
129
193
145
188
168
250
200
118
297
256
310
239
142
127
170
145
211
169
325
191
128
255
218
260
221
160
137
207
162
224
180
313
217
128
237
214
271
211
173
137
200
159
230
192
306
234
185
100
100
100
100
100
95
113
125
125
128
125
123
125
125
125
150
125
150
161
180
100
100
100
100
100
97
109
97
111
97
121
97
127
139
no
138
149
153
151
100
100
100
100
100
100
100
100
79
76
105
102
140
135
100
102
78
119
101
114
100
198
161
124
119
167
151
100
289
232
119
120
157
151
100
446
339
143
134
193
178
100
434
292
134
132
176
171
100
264
197
130
132
195
184
121
207
159
139
145
195
188
121
188
116
154
148
195
198
[1165]
no
no
94
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
WHOLESALE PRICES IN THE UNITED STATES, JANUARY TO
SEPTEMBER, 1917.
Information collected by the Bureau of Labor Statistics shows that
steep increases took place in the wholesale prices of many important
commodities in the United States during the first eight months of
the present year. The rise was most pronounced in the period from
March to May, particularly among farm products and articles used
for food. From June to August some commodities advanced in
price while others declined. Considered in the aggregate, September
prices were below those of August.
Among the articles showing a decrease in September as compared
with the preceding month were cotton, oats, wheat, flour, corn meal,
rice, potatoes, bituminous coal, copper, pig iron, and steel. In the
case of wheat, bituminous coal, and steel, the prices of which have
been placed under Government regulation, decided decreases took
place. Increases between August and September were recorded for
corn, hay, cattle, hogs, sheep, tobacco, butter, eggs, meats, wool,
anthracite coal, and petroleum. The bureau’s weighted index num
ber for September, based on 292 separate articles or price series, stood
at 149, as compared with 151 in July and 122 in January.
In the following table are shown the index numbers of wholesale
prices for the first nine months of 1917 by groups of commodities.
The table also shows the number of articles or price series in each
group, together with the per cent of increase in September as com
pared with January.
IN D E X NUMBERS OF W HOLESALE PRICES, JANUARY TO SEPTEM B ER , 1917.
(1916=100.)
Per cent
of in
crease in
Septem
ber com
Feb. Mar. Apr. May. June. July. Aug. Sept. pared
with
January.
Index numbers, 1917.1
Commodity group.
Number
of articles
or price
series
included. Jan.
Farm products..................
Food, etc............................
Cloths and clothing...........
Fuel and lighting..............
Metals and metaF products
Lumber and building materials............................ .
Drugs and chemicals........
House-furnishing goods...
Miscellaneous.....................
30
90
65
15
25
120
119
127
147
124
123
127
127
154
128
132
127
128
157
134
147
144
132
154
140
160
151
136
162
146
160
148
140
167
161
162
142
145
168
173
167
142
150
152
168
166
141
149
149
154
38.3
18.5
17.3
1.4
24.2
30
10
6
21
105
101
116
114
107
103
117
115
109
106
117
116
113
109
137
120
116
115
137
122
126
116
148
126
130
130
150
125
131
139
150
129
133
143
150
128
26.7
41.6
29.3
12.3
All commodities__
292
122
126
130
139
147
150
151
151
149
22.1
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Federal Reserve Bank of St. Louis
1 Preliminary.
[ 1166 ]
FOOD AND FUEL CONTROL.
RULES AND REGULATIONS OF THE FOOD ADMINISTRATOR GOV
ERNING LICENSING OF DEALERS IN CERTAIN STAPLE FOOD
COMMODITIES.
The licensing of all dealers doing an annual business of more than
$100,000 in certain staple food commodities enumerated in the
President’s proclamation of October 8 1 became effective on Novem
ber 1, after which time no unlicensed person is permitted to trade in
the commodities mentioned. In order to make the licensing system
effective, as contemplated by the food-control law under which it is
authorized, the Food Administration has prescribed complete and
definite rules and regulations, the announced object being: (1) To
limit the prices charged by every licensee to a reasonable amount
over expenses, and to forbid the acquisition of speculative profits
from a rising market; (2) to keep all food commodities moving in as
direct a line and with as little delay as practicable to the consumer;
and (3) to limit, as far as practicable, contracts for future delivery
and dealings in future contracts.
Under the. Food Control Act, in addition to the power to promul
gate rules, the President is given broad powers to deal with indi
vidual cases, and this will be exercised, if necessary, to accomplish
the purposes above set out. Violation of' the rules and regulations
is cause for revocation of license, as well as subjecting the offender
to such criminal penalties as may be prescribed. I t is not necessary
to note here the large number of general rules governing all licensees,
together with additional special regulations for various trades in
which there are special conditions or specific abuses to be governed.
Attention, however, may be called to a few of the more important
rules and regulations.
The elimination of excessive prices charged by small retailers, who
are not subject to license, will be helped by a rule forbidding licensees
to sell foods to any person who is violating section 4 of the Food
Control Act by taking excessive profits or speculating.
An important rule provides that no licensee shall “ import, manu
facture, store, distribute, sell, or otherwise handle any food com1 A n a c c o u n t o f t h i s l i c e n s i n g s y s t e m a n d t h e l i s t o f c o m m o d it ie s a f f e c te d w a s g iv e n in
t h e M o n t h l y R e v i e w f o r N o v e m b e r, 1 9 1 7 , p p . 8 5 a n d 8 6 .
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Federal Reserve Bank of St. Louis
[1167]
95
96
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
modities on an unjust, exorbitant, unreasonable, discriminatory, or
unfair commission, profit, or storage charge.”
With respect to a large group of commodities, particularly non
perishables, the regulations require that profits shall be no greater
than a reasonable advance over the actual purchase price of the par
ticular goods sold, without regard to the market or replacement
value.
In determining the amount of such advance, the Food Admin
istration announces that the licensee may average the cost of goods
of each class. For example, the cost of all canned com on hand may
be averaged and a reasonable advance over such average will be
deemed a fair sale price for canned corn; but the licensee will not be
permitted to average the cost of all licensed commodities on hand
and add an advance over such average.
Hesales within the trade without reasonable justification, especially
if tending to result in higher market prices, will be dealt with as
unfair practices.
Whenever practicable all shipments are to be made in car lots, in
cars loaded to maximum capacity.
Another rule reads: “ The licensee shall not knowingly commit
waste, or willfully permit preventable deterioration in connection
with the production, importation, manufacture, storage, distribution,
or sale of any food, commodities.”
The storage or control by a licensee, by contract or otherwise, of
food commodities in a quantity in excess of the reasonable require
ments of his business, for use or sale by him during the period of 60
days, is prohibited, with exceptions in specified commodities and
under certain conditions.
Handling foods in such ways as to monopolize or restrict the
supply is guarded against.
Special rules require that foods which have been held in cold
storage for more than 30 days shall be marked “ Cold Storage
Goods” when offered for sale; prohibit speculation in futures on
canned goods; forbid the shipment of potatoes which have been
seriously damaged; protect the producer who ships his products to
markets on consignment against unfair charges by commission men,
brokers, and auctioneers; and cover many other special points.
Licensees are required to keep records, to make regular reports
upon forms that will be furnished by the Food Administration, giv
ing complete information regarding transactions in the controlled
foods, and to permit representatives of the Food Administration to
inspect their property or records. Information obtained in this way
is to be carefully safeguarded and kept confidential by the Food
Administration.
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Federal Reserve Bank of St. Louis
[ 1168 ]
M O N T H L Y R E V IE W
OE T H E B U R E A U
O F L A B O R S T A T IS T IC S .
97
The Food Administration makes clear that no one is expected to
do business at a loss and that the regulations have been drawn with
the purpose of protecting all legitimate dealers, strengthening them
in the performance of useful functions, and avoiding interference
with normal activities.
The speculator, the hoarder, the w aster of food do harm not only to the public
but to all honest and patriotic merchants.
W ith this kind of competition eliminated, the great majority of food handlers
who have consistently tried to abide by the law and the program of the Food
Adm inistration w ill find that they are doing business under greatly improved
conditions and that they can obtain a normal, reasonable return for the
important services which they render to the Nation.
PRESIDENT ORDERS LICENSING OF BAKERS.
It having been determined that the licensing provision of the Food
Control Act is properly applicable to those manufacturing bread or
other bakery products, the President on November 7 issued a procla
mation requiring all bakers, hotels, restaurants, and others using at
least 10 barrels of flour monthly to procure a license before Decem
ber 10. This proclamation, after reciting the provisions of law
under which the action is taken, proceeds as follows:
Now, therefore, I, Woodrow W ilson, President of the United States of
America, by virtue of the powers conferred upon me by said act of Congress,
hereby find and determine and by this proclamation do announce that it is
essential, in order to carry into effect the purposes of said act, to license the
m anufacture of necessaries to the extent hereinafter specified.
All persons, firms, corporations, .and associations w ho manufacture for sale
bread in any form, cake, crackers, biscuits, pastry, or other bakery products
(excepting, however, those w hose consumption of any flour and meal in the
m anufacture of such products is in the aggregate less than 10 barrels a m onth),
are hereby required to procure a license on or before December 10, 1917. This
includes hotels, restaurants, other public eating places, and clubs who serve
bread or other bakery products of their own baking.
Application for license must be made to the United States Food Adm inistra
tion, Washington, D. C., law department, license division, on forms prepared by
it for that purpose, w hich may be obtained on request.
Any person, firm, corporation, or association, other than those hereinbefore
excepted, who shall engage in or carry on any business hereinbefore specified
after December 10, 1917, w ithout first procuring such license, w ill be liable
to the penalty prescribed by said act of Congress.
On November 13 the Food Administration announced some of the
general rules and regulations governing all licenses covered by the
President’s proclamation of November 7. They are:
The licensee, in selling bakery products, shall keep such products moving to
the consumer in as direct a line as practicable and w ithout unreasonable delay.
R esales w ithin the same trade w ithout reasonable justification, especially if
tending to result in a higher market price to the retailer or consumer, w ill be
dealt w ith as an unfair practice.
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Federal Reserve Bank of St. Louis
11169]
98
MONTHLY REVIEW OP THE BUREAU OF LABOR STATISTICS.
The licensee shall not bay, contract for, sell, store, or otherw ise handle or
deal in any food commodities for the purpose of unreasonably increasing the
price or restricting the supply of such commodities or of monopolizing, or
attem pting to monopolize, either locally or generally, any of such commodities.
The licensee shall not destroy any bakery products and shall not knowingly
commit w aste or w illfu lly permit preventable deterioration in connection with
the manufacture, distribution, or sale o f any bakery products.
The licensee shall not accept returns of bread or other bakery products, nor
make cash payments, nor allow credit, to any retailer for any unsold bread or
other unsold bakery products, nor shall the licensee exchange any bread or
bakery products for other bread or bakery products which he has sold.
The special rules and regulations governing licensees manufac
turing bread and rolls have been made public:
Rule 1. The licensee shall m anufacture bread and offer it for sale only in the
follow ing specified w eights or m ultiples thereof, which shall be net weights,
unwrapped, 12 hours after b a k in g :
16-ounce units (not to run over 17 ounces).
24-ounce units (not to run over 25i ounces).
Where tw in or m ultiple loaves are baked each unit of the tw in or multiple
loaf shall conform to the w eight requirements of this rule.
Rule 2. The licensee shall m anufacture rolls and offer them for sale only
in units w eighing from 1 to 3 ounces, but no rolls shall be m anufactured or
offered for sale which shall weigh, unwrapped, 12 hours after baking, less than
1 ounce or more than 3 ounces.
Rule 3. The standard w eights herein prescribed shall be determined by aver
aging the w eight of not less than 25 loaves of bread of any one unit, or five
dozen rolls of any one unit, and such average shall not be less than the m ini
mum nor more than the maximum prescribed by these rules and regulations for
such units.
Rule 4. The licensee in m ixing any dough for bread or rolls shall not use the
follow ing ingredients in amounts exceeding those specified below, per unit of
196 pounds of any flour or meal or any m ixture th e r e o f:
Sugar: Not to exceed 3 pounds of cane or beet sugar, or in lieu thereof
3 | pounds of corn sugar. W here sweetened condensed milk is used the licensee,
in determ ining the permitted amount of sugar, shall deduct the added sugar
content of such condensed milk from the net amount of other sugar of the
kinds herein designated.
M ilk : Not to exceed 6 pounds of fresh milk from which the butter fa ts have
been extracted, or the equivalent thereof.
Shortening: No shortening shall be used except as follow s: Not to exceed
2 pounds of “ compounds ” containing not more than 15 per cent of animal fats.
In lieu of such “ compounds ” the licensee m ay use not to exceed 2 pounds o f
vegetable fats.
The licensee in making any bread or rolls shall not add any sugars or fats
to the dough during the process of baking, or to the bread or rolls when baked.
FOOD ADMINISTRATOR AUTHORIZED TO REQUISITION FOODS AND FEEDS.
The President, on October 23, issued an order authorizing the Food
Administrator to requisition foods and feeds, the text of the order
being as follows:
Under and by virtue of an act of Congress, entitled “An act to provide further
for the national security and defense by encouraging the production, conserving
[1170]
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Federal Reserve Bank of St. Louis
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
99
the supply, and controlling the distribution of food products and fuel,” approved
August 10, 1917, I, Woodrow W ilson, President o f the United States, hereby
authorize and direct Herbert Hoover, United States Food Administrator, from
time to time, to requisition any and all foods and feeds, and storage facilities
for the same, that said Herbert Hoover, United States Food Administrator,
may deem are necessary for any public use connected w ith the common de
fense, other than the support of the Army or the m aintenance of the Navy,
and to ascertain and pay a ju st compensation therefor.
Done in the D istrict of Columbia th is twenty-third day o f October, in the
year of our Lord one thousand nine hundred and seventeen, and of the inde
pendence of the United States of America the one hundred and forty-second.
FOOD CONTROL IN GERMANY AND GREAT BRITAIN.
As a preliminary statement it may be said that food conservation in
the United States has been developed along the line of securing vol
untary cooperation as far as possible from both the public and the
producers and the handlers of food articles.
In Germany a policy of rationing the consumer has been adopted,
the food value of this ration, according to the United States Food
Administration, being insufficient properly to maintain bodily health
and vigor. The Food Administration announces that under this
system the amounts now being allowed to each person per week are
as follows:
Flour, 3.45 pounds; potatoes, 7.05 pounds; cereals (oats, beans, and peas),
7 ou n ces; meat, 8.8 ounces; sugar, 3 o u n ces; butter and margarine, 2.8 o u n ces;
and other fats, 2.8 ounces.
Stated in term s of American housekeeping, these item s amount to sufficient
flour to bake 4 \ pounds of b rea d ; one-half peck of p o ta to es; a cupful of beans,
peas, and oa tm ea l; one-half pound of m e a t; 12 dominoes of su g a r ; 6 individual
patties of b u tter; and an equal amount of other fats.
For the population of that portion of northern France occupied by the Ger
mans the allowance is as follow s: Sufficient flour for five pounds of bread;
one-fifth peck of p otatoes; one cupful of c erea ls; 12J ounces of bacon and la r d ;
and 10 dominoes of sugar.
Here meat, butter, and margarine are all replaced by bacon and lard. The
allowance of flour and cereals is slightly increased, but the allowance of
potatoes is less than h alf the German ration, w hile that of sugar is also reduced
even below the meager German allowance.
The ration for the civilian population of the occupied portion o f Belgium is
sim ilar to that o f northern France, except bacon and lard are replaced by meat
and blitter.
The German ration, compared w ith the ration used as standard for purposes
of comparison by the Food Administration, shows that in body building protein
the Germans have 0.41 of a pound, and the standard ration has 1.08 pounds. In
fats the German ration contains 0.43 of a pound, as compared w ith standard
0.7 pound. In carbohydrates the German ration contains 4.17 pounds, as com
pared w ith 9.9 pounds for the standard ration. In total calories the German
ration aggregates 10,542, as compared w ith 24,000 in the standard ration.
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Federal Reserve Bank of St. Louis
[1171]
1 0 0
M O N T H L Y R E V IE W
O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
The standard ration is regarded as sufficient only for a person in a sedentary
occupation, or one involving relatively slight physical labor ; and yet it pro
vides two and one-half tim es as much body-building protein and nearly tw ice
as much fat and nearly two and one-half tim es as much carbohydrates as the
German ration.
In the ration for northern France the substitution of bacon and lard makes
the weekly allowance of protein equal only three-fourths of the German ration
and only one-third of the standard ration.
BRITISH IDEA OF FOOD CONTROL.
The British idea of food control lies between that of the United
States and Germany. As little compulsory rationing as possible
is imposed upon the general public, but there is a far-reaching and
rigid supervision of all food articles by regulating the manufacturers
and merchants ; by the establishment of maximum prices, and by the
issuance, after December 30, of rationing cards for sugar. A state
ment recently issued by Lord Rhondda, the British Food Controller,
offers a concise outline of the system there in force, and is interesfing
by way of comparison with the system practiced in this country.
Lord Rhondda says:
My aim is to safeguard the interests o f the consumer, to do away w ith
profiteering altogether, and to prevent excessive profits of any kind. The fram e
work of our machinery is formed on the civil service. They are the adm inis
trators, but in all cases w e secure the best available business men to advise
them, as w ell as a num ber, of expert com m ittees dealing w ith alm ost every
food commodity. The policy is to lim it profits at every step from the producer
to the consumer, and at the sam e tim e to regu late supply.
A costings department, under the direction o f chartered accountants, has
been set up, through which the profits made by any manufacturer or retailer
o f food can be ascertained. The country has been divided into separate areas,
in each of which a leading firm of accountants has been appointed by this de
partment to do the necessary work. R easonable profit based on prewar rates
is added to the present cost, and price lim its agreed on that basis, after consul
tation w ith the representatives of the trades concerned.
D ecentralization is obtained by dividing Great B ritain into 16 food divisions,
consisting of so many counties. Each division is under the superintendence of
a commissioner appointed by the Food Controller. In each of these divisions
the borough, urban or rural district councils, or other local authorities, ap
point local food committees, w ith lim ited powers and certain discretion, to
carry out such regulations as regards price and distribution as may be issued
from headquarters.
Local tradesmen are registered w ith their local committees, and if any trades
man does not carry out regulations and orders he may be struck off . the register
and prevented from further trading. The various orders fixing or amending
the maximum prices of meat, milk, potatoes, bread, etc., are communicated to
the local committees, and the trades and public are informed through the daily
and trades press. A staff of inspectors is kept at headquarters, and a number
of sentences have been imposed by m agistrates throughout the country for
contravention of the regulations. The general penalty is a fine not exceeding
£100 ($486.65), or a term of six months’ imprisonment with or w ithout hard
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Federal Reserve Bank of St. Louis
[1172]
M O N T H L Y R E V IE W
OF TH E BUREAU
O F L A B O R S T A T IS T IC S .
101
labor, or both. This punishment may be inflicted for every several offense.
I purpose to make the penalties more severe.
W hile the prices of practically all essential foods are now under control no
compulsory rationing is imposed on the general public, although all public
eating places are rationed as to the amount of meat, flour, bread, and sugar
which may be used in every week on the basis of an average for each meal.
A fter December 30 only a half-pound of sugar per capita (per w eek) w ill be
permitted. This w ill be obtainable through a system of each consuming
householder or consumer registering w ith a specified retailer and securing
from the local food committee a card entitling his household or him self to the
ration. The retailer w ill keep a record of his deliveries to insure his not
supplying any one customer in one week w ith more than the proper allowance.
Arrangements for the issue of these cards are in progress, and they w ill form
the groundwork should it become necessary later on to ration other foodstuffs.
There are many restrictions in manufacturing. Flour made from wheat
must be straight-run flour, milled to 81 per cent extraction, and it is compul
sory to mix in 20 per cent of flour from other cereals and pulse, and permissible
to m ix in up to 50 per cent, w hile no bread may be sold unless 12 hours old.
Follow ing on restrictions of 50 per cent and 40 per cent m anufacturers are now
restricted to the use of only 25 per cent of the amount o f sugar they used in
1915. Speaking generally, the use o f foodstuffs for industrial purposes and
for the feeding of anim als has been either restricted or prohibited. W aste of
bread is a crim inal offense.
Appeals for economy in consumption have been made, and a new campaign
is being organized to this end. The maximum price of the quartern loaf has
been reduced to 9d. (18.3 cents) for cash over the counter. It w as found
possible to do this by subsidizing flour. I find it necessary to control prac
tically all essential commodities. The danger that in reducing prices w e may
restrict supplies and increase consumption is obvious, but I think it can be
largely overcome. It has been suggested that our recent fixing of m eat prices
will lead to excessive slaughtering. If it does we are in a position to control
the transport of meat, and w e are taking steps to license the slaughterhouses.
A condition of the license w ill be that no more than a certain number of cattle
are to be slaughtered per week. We also propose to control the sales through
the auctions, and we can lim it the quantity there. In the course of a month
or two we hope to be able to determ ine approxim ately w hat quantity o f meat
ought to go to each industrial area, and to lim it the quantity if necessary.
Maximum w holesale meat prices for the whole Kingdom have been fixed inde
pendently of the cost of transport, but we hope to m eet the danger that pro
ducing areas, because of this, might get more than their fair share of supplies,
by fixing a flat railw ay rate. As regards nearly all imported commodities,
adequate distribution is being secured, as the sole control is in the hands of
the Government, and importers or w holesalers are required to supply in fair
proportion the needs of their usual customers.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1173]
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
WAGES AND HOURS OF LABOR.
WAGE INCREASES IN NAYY YARDS.
The schedule of wages for employees in certain navy yards of the
United States, as revised, has been made effective from November
1, 1917.
In most cases an increase of wages has been decided upon. In
many of the skilled trades workmen were heretofore divided into
five grades. Under the new schedule the number has been reduced
to three. In the revised schedule wages for the lowest-paid grade of
skilled labor in each trade are fixed in nearly all cases at $1.04 per
day below the maximum rate paid in that trade.
An effort has been made to equalize and standardize the rates of
wages so far as circumstances would permit. For this reason the
rates of increase have not been uniform in all trades, and vary as
between yards.
Owing to these variations and to the elimination of two of the
intermediate grades in many trades, the increase in per cent as it
affects a trade, an establishment, or the service as a whole is not
readily computed. The increases in the maximum wages, considered
as a whole, seem to be a little below 10 per cent.
The following table has been prepared from data furnished by the
office of the Secretary of the Navy, and shows the maximum rate of
wages for workmen by groups (common labor, semiskilled, and
skilled trades) in force January 1, and November 1, 1917. Minimum
and intermediate wages in the skilled trades are not shown.
New scales for the Mare Island and the Puget Sound navy yards
have not been decided upon, but are now under consideration.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1175]
103
104
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
MAXIMUM SCALE OF DAILY WAGES FOR W ORKERS IN SPEC IFIED NAVY
Portsmouth: Boston:
Newport: New York:
Scale
Scale
Scale
Scale
effective— effective— effective— effective—
Line
No.
Occupation.
Jan. Nov. Jan. Nov. Jan. Nov. Jan. Nov.
1,
1,
1,
1,
1,
1,
1,
1,
1917. 1917. 1917. 1917. 1917. 1917. 1917. 1917.
GROUP I.
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
A ttendant, battery...........................
Attendant dispensary
Attendant^ powder factory.......................... .
Boy.......... .......................................................
Charwoman........................................................
Coal handler.......................
Deck hand...........................................................
Deck hand, ferry boat........................................
Hod carrier.........................................................
Janitor......................................... .•......................
l aborer, common...............................................
Stable keeper......................................................
Team, double-.....................................................
Teamster.............................................................
Teamster, with team .........................................
$2 56 $2 HO $2.56 82.80
1.52
1.68
1.60
$2.56 $2.64
1.76 $1.60 $1.76
1.52
1.68
2.80
2.88
3.20
2.72
2.72
2.72
3.20
2.48
2.48
2.48
3.20
2.72
2.72
2.72
2.88
2.96
2.56
2.56
2. 80
2.56
2.96
2.96
2.96
2.96
2.96
2.96
2 96
2.96
2 96
2.96
2.48
2.48
2.48
2. 72 2.48
2. 72 2.48
2.72 2.48
2.72
2.72
2.72
2.24
2.40
2.56
2.48
2.40
2.40
2.64
2.96
2.72
2.96
2.40
2.80
3.04
3.36
3.12
3.36
2.48
2.88
2.56
2.56
3.04
2.56
2.96
2.96
2.96
2.48
2.88
2.56
2 96 2.56
2.96 2.56
0)
2. 96 2.56
3.04
2.96
2.96 2.56
2.72
2.96 2.56
3.28
2.96
2.96
2.96
2.48
2.56
2.48
2.56
2.96
2.56
2.96
2.48
2.64
2.96
2.96
2. 88 2.56
2.96 2.72
2.88 2.56
2. 56
2.88 2.56
2.64
2.56
2.56
2.96
2.96
GROUP II.
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
32
33
34
35
Cupola m an.........................................................
Cupola tender.....................................................
Dredger......................................... .....................
Hammer m an.....................................................
Hammer runner.................................................
Helper, blacksmiths’.........................................
Helper, boat builders’........................................
Helper’ boilermakers’........................................
Helper' coppersmiths’........................................
Helper^ divers’....................................................
Helper’ electricians’...........................................
Helper' flange turners’......................................
Helper' forgers,’ heavy......................................
Helper’ general........ ..........................................
Helper' laboratory.............................................
Helper) machinists’........................................
Helper' metal workers’......................................
Helper' molders’...................................
Helper' ordnance................................................
Helper' painters’................................................
Helper' pipefitters’.............................................
Helper' plumbers’..............................................
Helper' riggers’...................................................
Helper' ropemakers’...........................................
Helper, sheet metal workers’............................
Helper) shipfitters’.............................................
Helper, shipsmiths’...........................................
Helper, shipwrights’..........................................
Helper, smiths’! ................................................
Helper, steel workers’........................................
Helper, woodworkers’........................................
Holder-on.........................................................
Oiler.......................................................
Primer worker (female).....................................
Rivet heater........................................................
2.56
2.64
2.96
2.96
2.64
2.72
2.96
3.04
2.64
2.72
2. 96
3.04
2.96
2.56
2.80
2.96
3.04
2.56
2.80
2.96
3.04
2. 56 2.96
3.20 3.52
2.00
2.24
2.00
2.24
2.48
2.56
3.04
2.24
2.56
4.00
4.04
4.24
4. HH
4.00
4.00
4.80
4.48
4.24
0)
4. HH
4. HH
3.28
3.68
GROUP III.
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
Acetylene operator............................................. 3.76 4.16 3.76 4.16
A nglesm ith..........................................
4.24 4.80 4.24 4.80
Armature winder...............................................
Blacksmith................ ...................................
3.28 0)
3.60
Block m aker....................................
3.36 3.36
Boat builder...........................................
4.00 4. 64 4.24 4. 64
Boilermaker...................................................
4.08 4.80 4.24 4.80 3.84
Bolter-up.............................................................
Boxmaker................................ ...........................
3.12 3.52
Buffer and polisher............................................ 3.12 3.52
B utcher... .....................................................
3.04
Cabinetmaker.....................................................
Cable splicer......................................................
Calker, wood..................................................... 3.84 4. 56 4.16
Calker and chipper, iro n................................... 3.84 M. so 3.84 24.80
1 Position aDolished.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1176]
3.04
4.32 4 . 7?.
4.00 H.88
J.
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
1
2
3
4
5
6
2.88
2.88
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
32
33
34
35
1
2
3
4
5
6
7
8
9
10
11
12
4. 24
24.72
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
13
14
15
106
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
M AXIM UM SCALE O F D A IL Y W A G E S F O R W O R K E R S IN S P E C IF IE D N A V Y
Portsm outh: B oston:
Scale
Scale
effective— effective—
Line
No.
O ccupation.
N ew port: New Y ork:
Scale
Scale
effective— effective—
Jan. Nov. Jan. Nov. Jan. Nov. Jan. Nov.
1,
1,
1,
1,
1,
1,
1,
1,
1917. 1917. 1917. 1917. 1917. 1917. 1917. 1917.
group hi —continued.
16
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
32
33
34
35
^•OTTVO*2WnrkeT*
Carpenter, h o u se..................................................... $4.24 $4.64 *4.24 $4.64 $4.16 $4.64 $4.24 $4.88
nesting cleaner
2.72 3.12
C em ent finisher
C hauffeur.................................................................. 2.72 3.04 3.20 3.20 3.20 3.20 3.20 3.20
Eon Crete w orker
...........................................
Cooper
C oppersm ith............................................................
Corem aker
C ranem an..................................................................
...............................................
D iesinker. .
D iv e r..........................................................................
D riller........................................................................
D riv er.....
.........................
Electrician
...............................................
Electrician, chronograph
Electrician radio
Electrician, storage b a tte ry .................................
Electric dredge operator
36 Electric welder
...........................................
37 E lectro p later... .
38 E ngineer...................................................................
.........................
39 Engineer, fire
........................................
40 Engineer, m arine
.........................
41 Engineer, pile driver
Eabric worker
.........................
42
43 F ire m a n ....................................................................
.
.........................
44 Elagm aker.
...........................................
45 Flange tu rn e r . .
Forger, d ro p .............................................................
46
47 Forgerj h e a v y ..........................................................
48 F o u n d ry ch ip p er............................ ........................
................................
49 Eram e bender
.....................
50 Eurnacem an, forge
51 E urnacem an, foundry
....................................
52 G alvanizer. ....
53 G ardener...................................................................
....................................
54 H eater, furnace
....................................
55 In stru m e n t m ak er
56
57
58
59
60
61
62
63
64
65
66
67
68
69
70
71
72
73
74
75
76
77
78
79
80
81
82
83
84
■85
86
Iro n w o rk e r..........
......................................
J o in e r. . .
.
..............................
Jo in e r, s h i p ...................................................................
T,ead b u r n e r .......
......................................
T .eather w o rk er
......................................
Tiens g rin d e r, te lesco p e
......................................
L e tte re r a n d g r a i n e r * ...............................................
L e v e le r. .
T Jnem an
Tvoftsm an...........
......................................
M achine o p e r a to r .
......................................
M a c h in is t..............
......................................
M achinist, a ll a ro u n d
......................................
M achinist, electrical
......................................
M achinist, floor or v ise h a n d
M achinist, to o lm ak e r
M achinist, to rp e d o
......................................
M arine engine e rec to r
......................................
M ason, b r ic k ............
......................................
M ason, s to n e ................................................................
M attress m a k e r
M echanic, electrical
M elter......
......................................
Mel te r j o p e n -h e a rth
..........................
M etallic cartrid g e-case m a k e r
..........................
Mill m a n ........................................................................
M illw right
.
........................
M odel m a k e r, wood
M odel te s t e r __
M o ld er.............. .............................................................
M older, irre g u la r w o o d w o rk ..................................
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
4.00
3.36
4.40
4.00
3.60
4.80
2.88
5.28
6.00
3.20
3.20
5.52
6.00
3.76
4.32
4.80
5.04
5.44
3.36
3.76
4.48
4.80
4.80
0)
5.28
5.28
5.28
6.00
5.28
6.00
3.68
3.52
4.08
4.72
3.68
3.60
4.08
4.72
2.96
3.04
2.96
3.04
4.72
5.12
5.04
5.76
4.72
4.72
4.80
5.12
5.12
5.20
4.64
5.28
3.36
2.72
3.60
3.04
3.36
3.12
3.60
3. 60
3.12
3.60
4.24
4.64
2.72
3.12
4.48
•
4.24
4.64
4.48
4.00
4.00
5.04
5.28
4.32
4.80
4.40
4.80
4.32
4.80
4.08
6.08
3.60
2.64
4.32
2.64
3.52
4.56
3.60
4.88
2.88
5.28
9.60
3.60
4.80
3.20
5.52
9.60
3.84
3.28
4.88
6.00
6.00
4.00
4.00
4.40
4.72
4.24
4.48
4.24
3.04
2.96
3.04
4.80
2.88
4.72
4.72
5.76
3.04
5.12
5.12
6.16
3.04
3.36
3.04
3.60
3.12
4.80
6.72
4.24
4.72
3.28
3.68
3.12
3.12
3.76
4.16
3.84
4.24
4.48
4.16
4.88
4.80
4.96
5.36
4.80
4.80
5.12
5.12
5.52
6.00
4.40
4.88
4.48
4.48
4.48
4.88
5.20
4.56
5.20
4.80
4.40
4.40
4.80
4.80
5.20
5.20
5.20
5.20
3.28
3.52
3.44
3.52
3.44
3.52
4.00
4.48
4.64
4.80
4. 40
4.88
4.24
4.80
4.24
4.88
4.24
4.24
4.80
4.64
1 Position abolished.
[1178]
4.24
4.80
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
107
YARDS OF TH E UN ITED STATES, E FFE C T IV E NOV. 1, 1917— Continued.
Philadelphia: Washington: Indian Head:
Scale
Scale
Scale
effective—
effective—
effective—
Jan.
1,
1917.
Nov.
1,
1917.
S3.60
S4.64
3.12
3.44
3.04
3.20
4. 72
4.32
4. 96
3.20
4.80
3.44
5.20
5.28
5.28
4.40
4.96
Jan.
1,
1917.
Nov.
1,
1917.
$4.32
2.52
4.40
2.56
$4.72
2.72
4. 40
2.96
2.24
2. 72
4. 24
2.88
3.20
8.00
3.04
8.00
3.76
5.28
5.52
4.00
4.00
4. 40
4.72
4.00
4.00
2. 72
2.96
3.52
4. 24
5.20
5.60
4.80
5.12
3.36
3.60
3.04
3.84
3.60
3.12
4.32
4.72
4.00
4.00
4.80
5.28
4.32
4.72
4.32
4. 72
5.28
4.80
3.20
5.28
4.80
3.52
3.76
4.72
2. 72
3.04
4.80
5.20
5.20
5.60
3.36
3.36
2.80
3.68
4.32
4.32
4.80
4.80
Charleston: New Orleans Pensacola:
Scale
Scale
Scale
effective— effective— effective—
Jan.
1,
1917.
Nov.
1,
1917.
Jan.
1,
1917.
Nov.
1,
1917.
$4.32
$4.80
$4.00
$4.64 $3.12 $4.00 $3.84 $4.40 $3.36 $4.00
5.28
5.28
3.36
4.72
3.76
4. 24
2.48
3.04
3.68
3.68
2.56
3.36
Norfolk:
Scale
effective—
2.40
2.80
4.64
4.96
6.88
4.00
4.96
4.64
3.76
3.84
4.56
4. 56
4.56
4.56
4.96 4.56
4.96
4.56
4.96
4.96 1
4.96
4.96
5.20
5.20
5.36
5.36
5.36
6.00
3.52
3.52
6.48
3.92
4.00
4.32
3.52
4.48
4.80
3.92
4.96
5.20
2.32
2. 48
4.00
3.20
4.24
4.40
2.56
2.64
0)
3. 44
4.72
2.88
5.04
8.00
2.96
3.20 2.64
5. 44
9.04 8.00
3. 44 2.96
2.56
4.00
2. 48 2.48
2.88
3.60
4.00
4.00
4. 72 4.00
2. 72
2.96
5. 04
8.00 10.00
3.44 2. 72
3.20
3.20
3. 28
4. 72 4. 32
2.72
0)
4.72
5. 44
10.00
3. 44
4.24
4. 72 4. 24
4. 72 4. 24
4. 72 3. 84
4.72
5.28
6.00
6.00
6.00
5.20
5.28
5.28
5.28
4.00
4.00
4.40
4.72
3.36
4.72
4.00 '4. 40 5. 04 5.04
3.52 4.72 3.52 4.72
2.40
2. 72 2.32
2.40
2.72
4. 64
5.44
5.04
5.12
5.60
5.76
5.04
5. 44
4.80
5.12
3.04
2.64
3.60
2.80
3.20
3.04
3.60
2.80
4.00
4.64
6.88
3.60
4. 56
4.32
Jan. Nov. Jan. Nov. Jan. Nov.
1, 1, 1, 1, 1, 1,
1917. 1917. 1917. 1917. 1917. 1917.
4.32
4.72
5.20
4. 48 4. 72
4. 72
3.04
3.04 3.52
3.04 3.52
2.32 22.72
4. 48 5.04
3. 36 3.60
2.24 2.24
4.00
4. 40
3.04
5.04
3.04
5. 28
4.32
4.72
2. 72 3.12
3. 36 3.60
2. 24 3.04
4.00
4.32
2.80
2.80
2.00
2.40
5. 04
5.20
4. 40 3.52
4. 40
2.88
3.04
4. 72
4. 40 4.72
4. 40 4. 72
4. 40 4.72
5.04
5.04
5.20
5.20
4.00
4.00
4.00
4.00
5.20
5.20
4.48
5.04
3.28
3.24
4.00
4.72
4.00
4.72
4. 40 4. 72
3.76
3.52
4.24
4.24
4.24
4.72
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
4 . 24
4 72
3.60
4.00
4.00
4.72
*Authorized Nov. 12,1917.
[11791
4.00
4.72
Line
No.
16
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
32
33
34
35
36
37
38
39
40
41
42
43
44
45
46
47
48
49
50
51
52
53
54
55
56
57
58
59
60
61
62
63
64
65
66
67
68
69
70
71
72
73
74
75
76
77
78
79
80
81
82
83
84
85
86
108
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
MAXIMUM SCALE OF DAILY WAGES FOR W O R K ER S IN SPEC IFIED NAVY
Newport: New York:
Portsmouth: Boston:
Scale
Scale
Scale
Scale
effective— effective— effective— effective—
Line
No.
Occupation.
Jan. Nov. Jan. Nov. Jan. Nov. Jan. Nov.
1,
1.
1.
1,
1,
1,
1,
1,
1917. 1917. 1917. 19Î7. 1917. 1917. 1917. 1917.
group hi—concluded.
87
88
89
90
91
92
93
94
95
96
97
98
99
100
101
102
103
104
105
106
107
108
109
110
111
112
113
114
115
116
117
118
119
120
121
122
123
124
125
126
127
128
129
130
131
132
133
134
135
136
137
138
139
140
141
Moldcr, steel-casting...........................................
Motorman .........................................................
Oakum spinner...................................................
Ordnance, man
Packer.................................................................
P ainter................................................................
Pattern maker....................................................
Paver...................................................................
Pile, driver
Pilot, ferryboat...................................................
Pipe coverer........................................................
Pipe fitter............................................................
Plasterer..............................................................
Plumber, house..................................................
Plumber, ship.....................................................
Pressman ..........................................................
Puncher and shearer..........................................
Railroad conductor............................................
Rigger..................................................................
R ivetcr ............................................................
Riveter, machine................................................
Roller, brass and c o p p e r ............
............
Rodm an..............................................................
Roofer..................................................................
Ropemaker.........................................................
Sailmaker............................................................
Sand blaster
................................................
Saw filer..............................................................
Seamstress
..................................................
Sewinu-maohir.e operator _ .
Sheet-metalworker ........................................
Ship fitter............................................................
Shipsmith .......................................................
S hipw right.........................................................
Spar maker..........................................................
Steam fitter .......................................................
Steel worker........................................................
Stevedore............................................................
Stonecutter.........................................................
Switchman..........................................................
T in n e r ................................................................
Tool dresser
..................................................
................................................
Toolmaker
Tool sharpener ..................................................
Tmvern.an
...........................................
Trackman .......................................................
Turbine blader
.............................................
U nholsterer. ....
.........................................
Varnisher and polisher......................................
Water tender.......................................................
Wharf builder.....................................................
Wheelwright.......................................................
Wireman
............................... ............
W ire worker.........................................................
Woodworker, areo..............................................
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
$3.52 $3. 84
2. 72 3.04
3.52 4.08
4.32 4.80
*2.64 $2.80
4. 00 4.08 $3.84 $1.08
2.64 3.04 3.04 3.12
3.68 4.16 3.52 4.16
4. 40 4.80 4.32 4. SO
4.48 4.48
2. 72 (2)
3.76 4.00
3. 44
(2)
4.00
4.00
4.32
4.32
4.80
4.40
4.80
4.80
4.00
4.72
4. 48
4.40
4.80
4.96
4.80
4.80
3.36
3.76
3.28
3.68
4.00 4.40
3.84 14.80
3.52
3.52
3.76
(2)
4.00
4.80
4.24
4.80
4.96
4.80
4.16 4.88
4.80 4.96
4. 48 4.88
4. 48 4.88
2.80 3.04
3.76 4.00
4.00 4.40 3.68
3.84 14.80
4.16
4.16 14.56
4.00 14.88
4.80
3.52
4.00
3.04
5.04
4.80
3.76
4.40
3.44
5.04
4.00
4.40
3.76
4.16
4.32
4.32
4.32
4.00
4.24
4. 80
4. 80
4.80
4. 64
4. 64
4.40
4.48
4.16
4.16
4. 80
4.80
4.80
4.64
3.76
4.16
4.00
2.88
4.16
2.96
3.68
4.56
4.08
4.80
4.00
4.56
4.08
4.80
2. 56 2.88
2.96
2.96
4.00
4.00
3.76
4.00
3.84
4.24
4.24
(2)
3.92
3.52
4.56
4.32
3.92
4!80
1Authorized Nov. 12,1917.
[1180]
$4.00 $1.08
2.88 3.04
3.60 4.16
4.56 4.88
4.48 4.48
1
3.76
4.80
3.84
4.48
4.24
3.76
....
1
3.76
4.88
4.00
4.40
5.44
2.32
5.44
2.40
4.40
4. 48
4.48
4.32
4.88
4.88
4.88
4.88
3.04
3.20
2.88
2.72
2.96
3.12
4.00
4.00
3.20
4.00
3.52
4.00
4.16
3.20
4.10
3.92
3.52
3. 76
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
109
YARDS OF TH E U N ITED STATES, EFFE C T IV E NOV. 1, 1917— Concluded.
Philadelphia:
Scale
effective—
Washington: Indian Head:
Scale
Scale
effective—
effective—
Jan.
1,
1917.
Nov.
1,
1917.
Jan.
1,
1917.
Nov.
1,
1917.
$4.24
3.20
$4.72
3.20
$4.48
$4.96
Jan.
1,
1917.
Nov.
1,
1917.
$3.12
$3.20
4.08
3.76
4.08
4.16
4.96
3.92
4.48
Norfolk:
Scale
effective—
Jan.
1,
1917.
Nov.
1,
1917.
Jan. Nov. Jan. Nov. Jan. Nov.
1,
1,
1,
1,
1,
1,
1917. 1917. 1917. 1917. 1917. 1917.
$2.00
4.08
2.48
4.16
4. 72
4.00
3.20
$3.28
2.80
3.20
4.24
3.52
.........1..........
1
$3.60
$2.80 $3.04
3.04
4.08 $3.52 i$4.08 3.44 4.08
4. 72 4.08 4.72 4.32 4.72
3.84
4.00 3.28 4.00
4.40
4.72
5.04
4.72
4.72
3.36
3.60
4.40
4.40
4.24
3.76
4.08
3.84
3.68
4.32
4.24
3.44
4.16
4.72
4.48
(2)
3.92
4.64
4.16
4.96
$1.84
3.76
2.08
3.68
4.32
3.84
2.24
4.00
4.24
5.04
4.40
4.24
4.40
4. 72 " 4. 4Ò" ” 4*96" "Ï.32 ” 4.’96'
5.04 5.20 5.36
4.72 4.40
4.96 4.32 4.96
4.72
4.00
4.24
5.04
4.40
4.24
3.36
3.76
3.76
4.48
3.52
4.40
3.60
3.12
4.32
4.40
3.44
(2)
3.04
3.44
3.04
4.00
3.44
4. 72 3.28
3.68
4.40
3.76
4.16
3.68
4.00
3.44
5. 28 .
3.04 2.32
3.04
4.72
4.80
4.72
4.72 4.08
5.28
5.28
2.56
4.00
4.40
4.00
4.48
4.24
4.00
4.72
4.80
4.72
4.64
4.00
4.48
4.24
4.00
4.72
4.80
4.72
4.40
4.72
4.72
4.00
4.32
4.24
4.24
3.28
3.28
4.24
4.64
4.00
4.32
2.96
4.08
4. 72 4.32
2.96
; ; .....
4.00
4.40
2.96
4.32
4.72
4.00
4.00
3.04
3.76
3.12
4.16
3.60
3.20 2.72 3.20 2.80 3.20
3.60
4.24 3.76 4.16 3.60 4.08 3.28
14.72 3.76 14.72
H. 72
3.84 4.32
4.40
3.76
2.48
3.44
4. 72
4.80
4. 72
3.92
3.52
3.04
4.00
4.48
4.24
4.32
3.04
3.84
4.48
3.44 3.04
4. 72 3.84
4.80 4.56
4.40
4.72
3.76
4.72
4.80
4.72
4. 72
2.80
3.60
3.76
3.84
3.76 4.16
3.84 14.72
3.84
(2)
5.28
Charleston: New Orleans: Pensacola:
Scale
Scale
Scale
effective— effective— effective—
3.76
2.56
4.16
4.72
4.80
4.48
4.32
3.12
3.52
3.92
3.36
3.52
4.40
4.96
3.28
3.92
3.20
3.20
4.40
4.96
4.48
4.72
3.28
3.76
4.00
4.00
4.00
2.64
3.52
3.44
2.88
4.24
3.84
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1181]
3.44
3.52
4.00
3.52
(2)
3.44
3.84
4.00
4.24
4.16
3.84
4.72 4.00
4.80 4.32
4. 72
4.40
4.72
4.80
4.00
4.40
4. 72
2.88 3.20
4.48 4. 72
3. 76 3. 76
2.80
3.52
3.44
3.28
3.28
2 Position abolished.
25413°— 17----- S
3.04
3.04
4.00
3.84
3.68
3.52
3.52
4.00
3. 76 4.16
2.56
2.56
2.32
(2)
3.20
3.92
3.28
4.32
3.60
4.64
Line
No.
87
88
89
90
91
92
93
94
95
96
97
98
99
100
101
102
103
104
105
106
107
108
109
110
111
112
113
114
115
116
117
118
119
120
121
122
123
124
125
126
127
128
129
130
131
132
133
134
135
136
137
138
139
140
141
110
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
COAL PRICES ADVANCED IN CONNECTION WITH INCREASE IN
WAGES OF MINERS.
On October 27 the President issued an order, effective at 7 a. m.
October 29, based on information furnished him by the Fuel Admin
istrator, granting an increase of 45 cents per ton over the scale of
prices for bituminous coal at the mine as prescribed in the Executive
order of August 21, 1917. This increase, however, is subject to two
restrictions: (1) I t shall not apply to any coal sold at the mine under
an existing contract containing a provision for an increase in the
price of coal thereunder in the case of an increase of wages paid to
miners, and (2) it shall not apply in any district in which the opera
tors and miners fail to agree upon a penalty provision satisfactory
to the Fuel Administrator for the automatic collection of fines in the
spirit of the agreement entered into between the operators and
miners at Washington on October 6, 1917.
The Washington agreement provides for wage increases and became
effective the first pay period following the President’s order of Octo
ber 27, to which reference has been made. These increases in wages
were effected as a result of a conference held in Washington between
operators and the miners of the central field, and include an advance
of 10 cents per ton to miners, advances ranging from 75 cents to
$1.40 a day to laborers, and an advance of 15 per cent for yardage
and day workers. The text of the agreement is as follows:
The follow ing agreement, supplemental to the existin g interstate .and district
agreements, is entered into w ith the hope and belief that the advance in wages
w ill result in an increased production o f coal and the abolition of local strikes.
It is a g reed :
First. That the mining prices for mining mine-run coal, pick and machine,
in the present contract be advanced 10 cents per ton.
In the Block Coal F ield o f Indiana the screen coal price to be advanced
12\ cents per ton.
Second. That all day labor and monthly men except trappers and other boys
be advanced $1.40 per day. Trappers to be advanced 75 cents per day. Boys
now being paid more than $1.90 per day and less than men’s w ages shall be
advanced $1 per day.
Third. That all yardage, deadwork, and room turning be advanced 15 per
cent.
Fourth. Subject to the next biennial convention of the United Mine Workers
of America, the mine w orkers’ representatives agree that the present contract
be extended during the continuation of the war, not to exceed two years from
April 1, 1918.
Whereas, stoppage of work in violation of the agreement has become so
serious as to menace the success and perpetuity o f the United Mine Workers of
America and our joint relations, this conference instructs the respective dis
trict executive boards to meet the operators in their various districts for the
purpose of agreeing on a penalty clause w here none now exists, and if neces
sary meet to amend and strengthen existin g clauses so as to make the penalty
more effective in preventing strikes and violations of agreements.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1182]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Ill
All fines provided for in all agreements shall be autom atically collected, and
any operator failin g to collect and forward to proper parties such fine shall
pay a penalty of $2 for each employee subject to be fined, the same to be
collected and retained in the m iners’ district organization. And in no case
shall any fine be refunded except by m utual agreement of the accredited rep
resentatives of the operators and miners.
It is further agreed th at where any employee enters suit in the civil courts
to recover any fine collected in accordance herew ith the district organization
shall reimburse the operator for expense incurred on account of such suit.
T his agreement is subject to and w ill become effective only on the condi
tion that the selling price of coal shall be advanced by the United States
Government sufficient to cover the increased cost in the different districts
affected, and w ill take effect on the first day of the pay period follow ing the
order advancing such increased prices.
In recommending to the President the 45-cent advance in prices
of bituminous coal as indicated, the Fuel Administrator stated that
these wage increases mean an advance over the wages of April 1,
1914, of 50 per cent to miners and of 78 per cent to the best-paid
laborers, which “ are not in excess of the advance in the cost of living
for that period.” I t is further explained in this communication to
the President that the Fuel Administrator, in reaching the conclu
sion that prices of coal should be increased, was influenced partly by
the provisions of the agreement intended to secure an increased and
uninterrupted production of coal. The communication continues:
Under the provisions of the draft law , miners are not excluded as a class.
Considerable inroads have been made, as a result of the first draft, upon mine
labor. Moreover, the conditions surrounding the industry in ordinary tim es
account for the fact that the average number of days’ work in the year has been
from 200 to 230 only. They also, in part, account for the fact that the average
hours of labor per day have fallen considerably below the 8 hours stipulated
in w age agreements. It is the deliberate judgment of the best informed among
the representatives of the m iners’ union that if the miners now at work should
labor in the m ines eight hours* during even five days o f the week, there would
be no shortage of coal. It is the purpose o f the proposed supplemental agree
ment to secure an approximation at least o f this result by means of fines auto
m atically collected. These fines are quite distinct from the penalizing fines
som etim es attempted to be imposed by employers for their own benefit.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[11831
MINIMUM WAGE
MINIMUM WAGE FOR MINORS IN THE STATE OF WASHINGTON.
The following order relating to minimum wages and to conditions
of labor of minors was issued by the Industrial Welfare Commission
of the State of Washington September 14, 1917 :
Pursuant to the authority vested in it by chapter 174, Session Law s of W ash
ington for 1913, the Industrial W elfare Commission, after due investigation of
wages and conditions of labor of minors employed in the industries hereinafter
mentioned and due determ ination of w ages and conditions of labor suitable
for such minors hereby orders:
(1) T hat the word “ p e rso n ” is used in th is order to include corporations,
copartnerships, and associations as w ell as individuals.
(2) That no person, shall employ any minor in or in connection w ith any
mercantile, manufacturing, printing, laundering, or dye-works establishment,
sign-painting, machine, or repair shop, or parcel-delivery service, at a weekly
w age rate of less than $6 for minors under 16 years of age, or of less than .$7
for minors between 16 and 18 years of age ; nor shall such minor be employed
or permitted to work in any such industry more than eight hours in any day
or more than six days in any week, or after th e hour of 7 p. m. or before the
hour of 6 a. m. (See paragraph (5) below.)
(3) T hat no person shall employ any minor in or in connection w ith any
telephone or telegraph establishm ent, at a weekly w age rate of less than $6
for minors under 16 years of age, or o f less than $7 for minors between 16 and
18 years of age : P rovided, That this order shall not apply to messengers in
rural comm unities and cities of less than 3,000 population who are not continu
ously employed and who are paid by piece rate for their services; nor shall
any minor be employed in such occupation before 6 a. m. or after 9 p. m. :
P rovided, That if, after investigation by the commission of any particular
establishm ent, conditions are found not to be detrim ental to the health or
morals of minors, perm its may be issued by the commission to male minors
for night employment. (See paragraph (5) below.)
(4) That no person shall employ any minor in the occupation of stenographer,
bookkeeper, typist, billing clerk, filing clerk, cashier, checker, invoicer, comp
tometer operator, or any clerical office work whatsoever, including assistants
and helpers in doctors’ and d en tists’ offices, at a w eekly w age rate of less than
$6 for minors under 16 years of age, or of less than $7.50 for minors between
16 and 18 years of age. (See paragraph (5) below.)
(5) That no person shall employ any minor between the age of 16 and 18
years in any of the occupations mentioned in paragraphs 2, 3, and 4 of this order
w ithout increasing the w eekly w ages of such minor by 50 cents per week after
every six months of service, or until the minimum w age of adult fem ales is paid.
(6) That no person shall employ any minor in any hotel, lodging house,
restaurant, or lunch-room occupation at a weekly w age rate of less than $7
112
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[11841
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
113
for minors under 16 years of age or of less than $8 for minors between 16 and
18 years of age: P rovided, That where lodging is furnished by the employer to
any minor employed in such occupation as part payment of wages not more
than $2 per week may be deducted therefor from the weekly minimum wage of
such employee, and if a room be furnished for such lodging it must be properly
heated and ventilated and of size and condition conforming to the general
standard of rooms in the locality which are rented for the amount thus deducted
from the w a g e s: A nd provided, T hat w here board or meals are furnished by
the employer to such minor employee as part payment of wages, not more than
$3.50 per week may be deducted from the weekly minimum wage of such em
ployee for a full w eek’s board of 21 meals, or a proportionate amount jfor less
than a w eek’s b oard : And provided, T hat where both board and lodging are
furnished by the employer to such minor employee as part paym ent of wages
not more than $5 per week may be deducted from the weekly minimum wage,
and the lodging thus furnished shall comply w ith the requirements hereinabove
set forth.
(7) That no person shall employ any fem ale under the age of 18 years as
“ shaker ” in a laundry, such occupation being hereby declared injurious to
the health of minor girls, nor as clerk in selling cigars or tobacco, nor as mes
senger or delivery girl in out-door messenger or delivery service, such occupa
tions being hereby declared injurious to the morals of minor girls.
(8) That this order shall become effective 60 days from the date hereof, to
w it, on November 14, 1917, and shall supersede the following-described orders
of the comm ission: No. 2, dated April 28, 1914; No. 4, dated June 2, 1914; No.
6, dated June 25, 1914; No. 9, dated August 7, 1914; No. 11, dated December 21,
1914; and No. 13, dated June 18, 1915.
DETERMINATION OF WAGES BY THE STATE IN GERMANY, AUS
TRIA, AND SWITZERLAND.1
Of late there have been repeated instances in which Governments
have fixed minimum wages in the interest of labor. In Germany the
first step to induce the Government to fix minimum wages was taken
in January, 1911, by the conference of German home workers, which
in a resolution requested the Government to fix by legislation mini
mum wages for home workers, so that in order to earn a living they
would no longer be'forced to work excessive overtime. This resolu
tion brought no immediate results, but during the present war the
Government in awarding contracts for war material has often pre
scribed minimum wages for home workers, and the national auxiliary
service law, while making labor compulsory, also provides that the
wage and general labor conditions must correspond to present living
conditions.
The Austrian auxiliary service law, which is much stricter than
the corresponding German law, also provides that the wages of labor
employed under the law must correspond to local living and labor
conditions and provides special commissions for the enforcement of
1
F ro m
V o rw ä rts .
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
S ta a tlic h e
L o h n fe s ts e tz u n g .
[1185]
B e r l in , A u g .
1, 1917.
114
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
this provision. These commissions have authority to decide all dis
putes relating to wages or general labor conditions, such as hours of
labor, rest periods, safety and sanitary conditions, and housing and
boarding of workers. The parties to a dispute brought before such
a commission may be represented by trade representatives or organi
zations, managers, or employees. Employers or their authorized
representatives who do not pay the wages or observe the labor condi
tions which the commission has determined may be punished with
imprisonment up to three months or a fine up to 20,000 crowns
($4,060), and the law makes the employer liable for fines imposed
upon his authorized representatives.
In Switzerland the embroidery industry has suffered considerably
from the war. To alleviate the distress of employees of embroidery
establishments caused by unemployment or part-time employment
the Federal Council, in December, 1916, issued a decree creating in
several cantons emergency funds for the embroidery industry, from
which needy employees receive subsidies. The capital of these funds
was raised through assessment of the embroidery manufacturers
and voluntary donations. The manufacturers were assessed onefourth of 1 per cent of the value of their average yearly output
during the years 1913 to 1915.
Some employers of the embroidery industry attempted to reduce
the wages of their workmen. This led to an order, based on the
above decree of the F ederal Council, establishing minimum piece and
time wages for embroidery workers. The minimum piecework wages
were fixed at from 35 to 37 rappen (6.8 to 7.1 cents) per 100 stitches
and the minimum time wages at from 22 to 60 rappen (4.2 to 11.6
cents) per hour. Contraventions of the order are punishable with a
fine up to 10,000 francs ($1,930) or with imprisonment up to three
months, or with both. Both parties are punishable for contraven
tions of the provisions relating to minimum piecework wages, while
only the employer is liable for contraventions of the provisions
relating to time wages.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[ 1186]
EMPLOYMENT AND UNEMPLOYMENT
WORK OF FEDERAL, STATE, AND MUNICIPAL EMPLOYMENT
OFFICES IN THE UNITED STATES AND OF PROVINCIAL EM
PLOYMENT OFFICES IN CANADA.
In the following table statistics are presented showing the opera
tions of public employment offices during the month of October,
1917, and the corresponding month in 1916. For the United States
the table includes figures for Federal employment offices in 27 States
and the District of Columbia, Federal-State employment offices in 4
States, Federal-State-county-municipal employment offices in 2
States, Federal-municipal employment offices in 2 States, State em
ployment offices in 16 States, State-municipal employment offices in
3 States, municipal employment offices in 7 States, and a municipalprivate employment office in 1 State. The total number of employ
ment offices in the United States represented in the table is 152.
Figures for two Canadian employment offices are also given.
OPERATIONS OF PUBLIC EMPLOYMENT OFFICES, OCTOBER, 1916 AND 1917.
UNITED STATES.
State, city, and kind
of office.
Persons applying for
work.
Applica
Persons
tions from asked for by
employers. employers. New regis
Renewals.
trations.
Oct., Oct., Oct., Oct., Oct., Oct., Oct., Oct.,
1916. 1917. 1916. 1917. 1916. 1917. 1916. 1917.
Persons re
ferred to
positions.
Oct.,
1916.
Positions
filled.
Oct.,
1917.
Oct.,
1916.
Oct.,
1917.
A labam a.
>4 (2)
■6
Mobile (Federal)...........
(2)
A rka n sa s.
67
Little Rock (S ta te ).. . .
475
101
302
176
126
California.
2,070
994
Fresno (State).............
74
1
99 i 90 i 410 (2)
1
Los Angeles (Federal) .
Los Angeles (State-municipal) »..................... 3,337 4,798 5,565 8,985 2,305 >3,344 (2)
502 1,187 375
965 3,485
Oakland (S tate)...........
578 1,651
514
7
24
Sacramento (Federal)..
Sacramento (S ta te ).. ..
428 728 1,310 2,267
79Î
931 361
262 336 <*>
65
Sacramento (municipal) (2)
61 (2)
San Diego ( Federal). -.
431 763 883 1,845 i 854 i 961 U)
San Francisco (Federal)
425 810 61*6 3,344 >1,320 >2,765 ( 2)
San Francisco (State)... 1,264 3,125 3 , l ß 7,125 2,713 3,20S 1,041
Santa Barbara (Fed1
20
eral)............................
10
T otal..................
------- 1-------
■Number applying for work.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
............-
— ---- ■
!Not reported.
[1187]
-
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
1
1,815
124
1
1,688
80
5,365
1,003
7,934 4,852 7,239
2,423
713 1,830
13
6
1,104 1,780 1,032 1,681
336
344
336 (2)
923 1,412
726 1,211
776 2,406
457 1,845
2,880 6,597 2,178 5,165
2
2
12,388 24,506 10,295 12,388
3 Includes Los Angeles district, 8 counties.
115
116
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
OPERATIONS OF PUBLIC EMPLOYMENT OFFICES, OCTOBER, 1916 AND 1917—Continued.
UNITED STATES— C ontinued.
Persons applying for
work.
Applica
Persons
tions from asked for by
employers. employers. New regis
Renewals.
trations.
State, city, and kind
of office.
Persons re
ferred to
positions.
Oct., Oct., Oct., Oct., Oct., Oct., Oct., Oct., Oct.,
1916. 1917. 1916. 1917. 1916. 1917. 1916. 1917. 1916.
Oct.,
1917.
Positions
filled.
Oct.,
1916.
Oct.,
1917.
Colorado.
Colorado Springs (State'}
Denver (Federal)___..
Denver No. 1 (State)...
Denver No. 2 (State)...
Grand Junction (State)3
Pueblo (State)..............
T otal....................
0)
4
m
C)
0)
706
7
958
1,191
112
753
593 706
43
46
588 958
468 1,191
24C
717
753
682 2 575 (O
223 296 (l)
404 2 686 (O
374 2 684 0 )
2 312
672 2 642 i 1)
_____ _____ _____ _____ _____
C1)
(l)
(l)
0)
(1)
(0
565
8
378
286
617
C1)
C1)
2
0)
0)
(!)
0)
C1)
(1)
1,854
____
96
0)
485
594
629
240
634
2 2,582
96
Connecticut.
Bridgeport (State).......
Hartford (State)...........
New Haven (State)__
Norwich (State)...........
W aterbury (State).......
(D
(0
822 787 21,070 2 875
1,272 1,294 21,576 21,577
1,072 1,21C 2 1,226 21,280
18C 262 2 200 2 305
154
177 2168 2 234
0)
(O
(0
(■)
(*>
0)
(O
0)
(>)
0)
(')
0)
(')
(0
(0
(D
(O
(*)
T otal....................
0)
0)
0)
0)
0)
0)
(>)
0)
0)
(0
739
947
868
170
111
714
1.150
1,052
251
136
(l )
0)
2,835
3,303
51
280
D elaware
Wilmington (Federal)..
21
2 52 2 314 0 )
(!)
3,235
21,832
0)
950
20
2 21 2 887
2 45 2 43
29
70 1,308
590
60
307
D istrict o f Columbia.
Washington (Federal)..
1,605
1,469
Florida.
Jacksonville (Federal)..
Miami (Federal)...........
1
9
1
7
500
19
(1)
0)
0)
C1)
T otal................
16
1,286
10
15
430
3
16
1,296
15
433
Georgia.
Savannah (Federal)__
3
5
50
150 2 129 2 115 ( 0
«
36
30
36
22
94
125
50
94
150
600
(!)
(«)
94
113
57
83
103
57
94
170
83
160
Idaho.
Boise (municipal).........
Moscow (Federal).........
94
113 (!)
2 57
T otal..................
Illin o is.
Chicago (Federal).........
318 406 1,820 2,399 2 1,885 3 2,611 0)
1,757 2,135 1,730 1,872
(1)
Chicago (State)............. 4,459 4,492 11,216 14,031 11,056 13,434 1,747 1,055 11,729 14,089 8', 830 11,210
East St. Louis (State). .
667 792 1,536 1,399
771 587 589 '581 L 300 1.159 1,137 1,099
Peoria (State)................
873 1,109 1,426 1,815 245 523 808 981 1,003 1,476
996 1,470
Rock Island-Mo lin e
(State)........................ ( 0
1,040 727 3,048 1,231 1,481 (')
732 0 )
615 1,934
2,087
Rockford (State)...........
619 864 1,258 1,401
708 921 211
167
863
762
893
796
Springfield (Stale).......
558 726 780 1,176 255 401
422 662
614 1,029
582
792
Total....................
17,266
22,868
14,652
—
In d ia n a .
Evansville (State)........
Indianapolis (Federal).
Indianapolis (State)__
South Bend (State)___
Terre Haute (State)__
Total....................
207 (O
379 (*)
(0
(»)
(’)
111 213 583 1,022 4 407 41,449 0 )
(1)
479 1,455
884 1,488
429 1,284
00
137
328 281 1,074 540 427 300
141
90
175 0 )
328 0 )
190 0 )
41
(l)
|
...........
1.
0)
(!)
377
397
407
0)
461
784
1,421
430
231
(’)
379
618
1,421
407
212
1,279
3,327
1,181
3,037
(i)
401
397
481
1 Not reported.
2 Number applying for work.
3 Temporary office, conducted during fruit season.
4Figures for this office showing num ber referred to positions are incomplete.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[11881
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
117
OPERATIONS OF PUBLIC EMPLOYMENT OFFICES, OCTOBER, 1916 AND 1917—Continued.
UNITED STATES—Continued.
State, city, and kind
of office.
Persons applying for
work.
Applica^
Persons
tions from asked for by
employers. employers. New regis
Renewals.
trations.
Oct., Oct., Oct., Oct., Oct., Oct., Oct., Oct.,
1916. 1917. 1916. 1917. 1916. 1917. 1916. 1917.
Persons re
ferred to
positions.
Oct.,
1916.
Positions
filled.
Oct.,
1917.
Oct.,
1916.
Oct.,
1917.
Iow a.
Des Moines (FederalState)..........................
60
106
317 2,844
19
100
118
687
282
687
266 (2)
385
285
-589
136
29
138
1572
69
356
2
60
410
59
390
873
266
873
266
442
290
481
128
192
1,163
747
1,001
458
(2)
168
1,558
39
1, 437
i 6 (2)
(2)
1
3
1
3
169 3 240 3 567 (2)
(2)
164
573
160
457
5
2 001
5
1,593
1,117
713
930
1,509
1,119
806
6,806
9 050 3,428
4,364
143
84
5,992
771
872
810
415
246
450
137
4,696
1,014
996
666
664
691
199
463
143
84
5,992
771
872
794
415
246
205
790
450
127
4,684
976
896
648
376
670
193
463
9,976 11,236
9,483
550
19
K ansas.
Topeka (State)..............
650
73
478 (2)
K en tu cky.
Louisville (State).........
Louisville (municipal■private)......................
(2)
332
i 304 (2)
258
705
(2)
Total....................
L o uisiana.
New Orleans (FederalState)..........................
82
122
100 1,540 2 348 i 140 (2)
1
1
1
153
77
217
M aine.
Portland (Federal)__
135
M aryland.
Baltimore (Federal)__
M assachusetts.
Boston (Federal)..........
169
Boston (State).............. 2,497 2,002 2,728
Springfield (State)........ 1,067 1,025 1,500
Worcester (State)......... 1,005 1,019 1,301
1 092 3 50 32,432
2,352 31,485 4L 635
1,473 « 516 3 743
1,269 4 608 3 654
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
Total....................
5 3,721 6 3,697
51,673 5 1,832
5 1,407 51,520
M ichigan.
Battle Creek (State)__
Bav City (State)...........
Detroit (State)..............
F lint (S ta te )...............
Grand Rapids (State)..
Jackson (State).............
Kalamazoo (S ta te )......
Lansing (State!............
Muskegon (State).........
Saginaw (State)............
192 482 154 450
96 281
44 120 143
84
145
38
510 1,219 6,531 4,696 (2) 4,696
86 448 886 1,731
771 1,037
891 1,077
476 579 896 1,053
359 452 828 686 838 666
305 340 460 657 430 750
96 134 275 697 262 704
60
77 230 724 235 237
183 182 946 680 790 463
(2)
i2)
(2)
C)
C)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
( 2)
(2)
(2)
(2)
(2)
222
790
11,329
Total....................
M innesota.
Duluth (State)..............
Minneapolis (Federal)..
Minneapolis (State)---St. Paul (State)............
(2)
(2)
(2)
(2)
n
H
19
Total....................
3
(2)
22
(2)
(2)
(2)
(2)
(2)
4 3 28 3 63
4,584 (2) . 34,077
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
(2)
|
(2)
(2)
(2)
10
(2)
3,957
(2)
1,379 1,509
9
2,573 2,995
1,586 1,563
10 3,957
6,067
55
40
M ississippi.
Gulfport (Federal).......
3
544
3 63 3166 (2)
(2)
1 Figures for this office showing number referred to positions are incomplete.
2 Not reported.
3 Number applying for work.
* Number who were registered.
5 Number of offers of positions.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1189]
118
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
OPERATIONS OF PUBLIC EMPLOYMENT OFFICES, OCTOBER, 1916 AND 1917—Continued.
U N ITE D STATES— C ontinued.
State, city, and kind
of office.
Persons applying for
work.
Persons
Applica
tions from asked for by
employers. employers. New regis
Renewals.
trations.
Oct., Oct., Oct., Oct., Oct., Oct., Oct., Oct.,
1916. 1917. 1916. 1917. 1916. 1917. 1916. 1917.
Oct.,
1916
Positions
filled.
Oct.,
1917.
Oct.,
1916.
Oct.,
1917.
•
Missouri.
Kansas City (FederalState)..........................
St. Joseph (State).........
St. Louis (FederalState)..........................
Persons re
ferred to
positions.
847 1,319 2,689 2, 797 22,215 22,162
735 847 1,570 1,485 1,055 1,030
O)
(*)
(l)
U)
647 2,304 2 378 1,870
0)
«
265
295
2,024
1,055
365
3,444
1,939
1,030
1,679
1,052
1,805
1,861
1,026
354
1,784
4, 774 3,085
4,671
345
474
345
474
Montana.
Butte (municipal)........
Hftlfvna, (F ed eral).........
Total
606
C1)
380
503
640 2507 (*)
1 0)
3
560
0)
(l)
560
..............
I1)
1
1
Nebraska.
166
Omaha (Federal-State-
1,115
450
2 406
2,277
770
C1)
616
T o ta l...................
Nevada.
Reno (Federal)..............
New Jersey.
Jersey City (FederalState)..........................
Newark (Federal-State)
Orange (Federal-Stated.
T otal....................
New York.
Albany (State)..............
Buffalo (Federal).........
Buffalo (State)..............
New York City (Federal).............................
New York City (State).
New York City (municipal)..........................
Rochester (State).........
Syracuse (State)...........
306
1,283
1,061
1,674
1,367
388 2 178 2182 F)
(*)
178
182
106 548 977 2 313 582 (»)
50
819 3,192 2,929 1,161 23,423 1,643 0)
358
1 016
301
|
(>)
(>)
C1)
195
2,556
823
4,819
392
804
163
1,854 5,683
371
2,741
6,025
2,017
6,858
570 669 838 972 600 539 272 373
16C 1,482 1,104 2,323 21,181 2,792 (»)
0)
1,067 1,483 2,118 2,234 1,605 1,508
104 193
939
1,150
2,118
978
2,50C
2,429
516
986
2,134
640
2,084
1,884
148 3,662
343 7,986 21,063 29,341
1,757 2,288 2,495 2,852 1,325 1,450
0)
0)
598 980
499
2,694
6,185
2,931
45C 4,183
1,601 1,858
2,977 2,793 3,304 2,962 2,528 2,274 (*) 2,517
945 1,547 343 618
1,608 1, 72C 2,262 2,673
579 937 123 305
926 1,111 1,293 1,741
4,311
1,896
1,029
3,818
2,546
1,861
2,138 2,469
1,183 1,716
790 1,108
14,636 23,248
9,798 15,942
52
105
192
391
_
Total....................
Ohio.
Akron (State-m unicipal)............................ (»)
(»)
Athens (State-municipal)............................
(l)
Canton (State-m unicipal)............................
0)
C h illico th e (S ta te municipal).................
C)
C in c in n a ti ( S ta te m unicipal)................. C1)
(>)
17
Cleveland (Federal)___
7
Cleveland (State-municipal)....................... 0)
(*)
Columbus (State-municipal)....................... 1 0)
0)
1 Not reported.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
2,063 2,415
780
729 1,401 1,861
1,629
1,929
178
1,382
18
1,630
136
42
56
10C
87
645
564
207
61(
372
1,426
91C
179
1,425
1,423
1,81E 2,889 1,342 2,249 2,382 3,263
11 127 2 91 2153 0)
(0
1,983
82
2,989
136
1,078
31
8,184 8,019 2,961 2,958 7,571 8,272
7,232
7,179
5,969
5,742
896 2,065 2,590 2,998 2,290 3,579
2 Number applying for work.
1,872
2,891
2,673 4,007
[1190]
2,159
50
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
119
OPERATIONS OF PUBLIC EMPLOYMENT OFFICES, OCTOBER, 1916 AND 1917-Continued.
U N ITE D STATES— C ontinued.
State, city, and kind
of office.
Persons applying for
work.
Applica
Persons
tions from asked for by
employers. employers. New regis
trations. . Renewals.
Oct., Oct., Oct., Oct., Oct., Oct., Oct., Oct.,
1916. 1917. 1916. 1917. 1916. 1917. 1916. 1917.
Persons re
ferred to
positions.
Oct.,
1916.
Oct.,
1917.
Positions
filled.
Oct.,
1916.
Oct.,
1917.
Ohio—Concluded.
Dayton (State-municipal).............................
Hamilton (State-mum cipal).......................
Lima (State-municipal)
Mansfield (State-municipal)............................
Marietta (State-municipal).............................
Marion (State-municipal).............................
Portsmouth (State-municipal).......................
Sandusky (State-m um cipal).......................
Springfield ( State - municipal).......................
Steubenville (State-mucipal)..........................
Tiffin (State-municipal)
Toledo (State-municipal).............................
Washington C. H.
(State-municipal)___
Youngstown (State-municipal).......................
Zanesville estate-m unicipal).......................
(‘)
(O
(9
0)
1,138 1,875
640 1,106
905 1,226
0)
(9
289
490
229
423
too
161
288
490
1,362
208
411
326
193
96
240
201
307
193
117
275
231
(0
346
312
141
418
324
(9
423
430
126
455
322
201
(9
342
266
107
288
(9
336
223
179
242
148
(9
(9
657
344
418
290
302
143
654
319
554
288
(9
4,898 4,996 1,762 2,633 2,570 4,951
(9
180
(9
1,198 2,076
(9
191
3,093
59
122
625 1,095 1,089 1,455
163
5,074
2,640
4,477
971
1,596
202
1,123
75
1,843
148
172
87
18,342 30,602 14,756 24,912
0)
0)
0)
(l)
130
408
343
1,053
111 267 (9
257 844 (9
641 1,060 (9
825 2,609 (9
2 129
2 321
2 721
21,348
(9
(9
(9
(9
Oregon.
58
Astoria (Federal)..........
9 344 669 2366 2 47 (9
Portland (Federal-municipal)....................... 1,507 1,544 5,720 5,137 24,260 4,744 (9
(9
(9
(9
(9
279
705
418
141
Total....................
95
(9
2,414
1,788
2,255
13
184
13
(9
3,908
4,615
4,303
4 870 4,092
4,628
(9
155
26
66
93
245
222
55
77
245
816
1,121 3,170
512
429
544
389
37
108
2,725
5,530
(9
(9
368
(9
1 Not reported.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
545
309
'
118
274
587
1,276
4,857
I
26
257
156
231
592
809
189
56
16
67 203
81
6
46
178
513
119
2
131
437
180
240
178
77
94
0)
79 180 173
50
68
16
(0
10
119 257 468 754 2 266 909 (9
(9
(9 1,064 1,186 3,606 806 5,027 511 678
33
25 412 1,339 2 788 460 (9
(9
187 789 1,308 700 386 143 117
(')
50
79
64
431
244
12?
44
256
126
308
696
1,284
4,114
(l)
Total....................
(9
(9
(9
(9
(9
Total....................
Rhode Island.
Providence (F ed eral)..
Providence (State).......
813
0)
Total....................
Pennsylvania.
Altoona (State).............
Erie (State)...................
Harrisburg (State).......
Johnstown (State)........
Philadelphia (Federal).
Philadelphia (State)__
Pittsburgh (Federal)...
Pittsburgh (State)........
Scranton (State)...........
Williamsport (S tate)...
1.707
(9
Total....................
Oklahoma.
Enid (State)..................
Muskogee (State)..........
Oklahoma City ( State).
Tulsa (State).................
910
2 Number applying for work.
[1191]
368
25
65
84
192
222
46
70
182
779
946 3,037
461
406
479
356
37
96
2 331
5,152
279
246
418
279
664
120
MONTHLY REVIEW OP THE BUREAU OF LABOR STATISTICS.
OPERATIONS OF PUBLIC EMPLOYMENT OFFICES, OCTOBER, 1916 AND 1917—Concluded.
U N ITE D S T A T E S —C ontinued.
State, city, and kind
of office.
Persons applying for
work.
Persons
Applica
tions from asked for by
employers. employers. New regis
Renewals.
trations.
Persons re
ferred to
positions.
Oct., Oct., Oct., Oct., Oct., Oct., Oct., Oct.,
1916. 1917. 1916. 1917. 1916. 1917. 1916. 1917.
Oct.,
1916.
Positions
filled.
Oct.,
1916.
Oct.,
1917.
Oct.,
1917.
South Carolina.
Charleston (Federal). . .
1
3
Tennessee.
Memphis (Federal).......
2
12
Texas.
Dallas (m unicipal).......
R] Paso (Fodoral').........
Forti Worth (Fp.doral)..
Fort W orth (municipal)
Galveston (Federal)__
Houston (Federal).......
3
i 62 i 365
(2)
0)
44
419
15 1,433
i 39 11,261
(2)
0)
17
1,024
536
392
41
456
299
10
1
369
610
7
283
7
1
295
10
302
351
498
7
846
1,898
747
1,463
45
181
473
24
225
25
213
249
238
1
42
6 0)
246
49
i 53
55
0)
11,996
4,476
0)
3 635 (0
9
417 '515 i2)
4 i 27 i 19 (2)
61
0)
3 150 i 26 i 17 (2)
0)
502
272 (2)
29
8
105
149
3
10
4
3
T otal....................
Virginia.
Norfolk (Federal).........
Richmond (municipal).
13
270
8
277
281
403
795 i 110 i 230
379 434 410
(2)
(2)
0)
0)
Washington.
12
8 280
36 i 361 i 84
Aberdeen (Federal)___
Bellingham (Federalmunicipal).................
295
268
14S
4 238 i 257
146
740 (2)
E verett (municipal)__ (2)
(2)
(2)
(2)
North Yakima (Federal)............................ 2,460 1,316 2,250 2,806 12,07642,507
144
163 624 1,605 11,041 13,837
Seattle (Federal)...........
Seattle (municipal)...... 3,561 4,224 6,646 7,610 (2)
(2)
114
169 463 11,518 1 565
Spokane (Federal)........
113
Spokane (m unicipal)... 2,932 2,117 4,275 2,680 (2)
(2)
Tacoma (Federal-mu657: 1,418 1,605 11,731 12,036
nicipal).......................
580
Walla Walla (Federal).
98 375
19C 455 i 132 1 365
0 7 2 ______
7 0 S 1______
Wenatchee (Federal) ..
1 566
0)
63
36
63
36
(2)
(2)
O)
0)
251
0)
183
0)
211
516
165
324
m
<*>
(2)
m
(2)
0)
0)
0)
0)
(2)
2,044
254
6,593
157
3,986
2,206
1,273
7,598
415
2,528
1,883
219
6,203
155
3,935
2,056
1,212
6,943
403
2,492
(0
(2)
0)
V)
0)
1,418
118
1,436
168
542
1,401
102
1,401
151
542
(2)
|
!
................
1
14,884 16,385 14,688 15,707
Wisconsin.
La Crosse (State-mu185 (2)
nicipal).......................
16C 137 28c i 224
223
Milwaukee (FederalState - county - municipal)4...................... 2,162 2,177 4,246 5 ,173,13,67£ 14,37C (2)
Oskosh (State-muniei140 235 241 i 28C
174 09
316
p a l ) ............................
Superior (State-muniei394 388 1,201 i 850 992 0)
p a l ) ............................ 1,114
0)
179
166
98
83
0)
3,901
4,660
2,941
3,368
0)
244
147
191
114
0)
937
951
657
906
5,260
5,924
3,887
4,471
1 2 0 .4 0 8 1 8 6 .3 9 0 ; 1 0 8.974
104,772
Total....................
Grand to tal.........
. ...j
419
638
580
T otal....................
Total
535
44
1.
!
'
CANADA.
Quebec.
Montreal (provincial). .
Quebec (provincial)----
337
(2)
242
49
870
322
723 i 492 1 402 (2)
304 i 140 216 (2)
Total....................
1 Number applying for work.
2 Not reported.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
......... .........
(2)
(2)
510
(2)
511
215
432
122
405
183
510
726
554
588
3 Includes 265 unw ritten applications.
4 Not cooperative w ith Federal office in 1916.
[1192]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
121
REPORT OF EMPLOYMENT EXCHANGES IN THE UNITED KING
DOM (GREAT BRITAIN AND IRELAND) FOR FOUR WEEKS END
ING SEPTEMBER 7, 1917.
According to the British Labor Gazette of October, 1917, the total
number of workpeople remaining on the registers of the 382 British
employment offices on September 7, 1917, was 109,216, compared with
99,595 on August 10, 1917, and with 110,388 on September 8, 1916.
The figures comprise workers in professional, commercial, and cleri
cal as well as industrial occupations. The operations for the four
weeks ending September 7, 1917, are summarized as follows:
Men.
Item.
Women.
Boys.
Girls.
Total.
On registers on Aug. 10,1917.........................................
Number of individuals registered during period.........
28,192
76,837
56,496
140,196
6,642
20,994
8,250
21,655
99,580
259,682
T otal......................
Reregistrations during period........................................
On registers on Sept. 7; 1917...........................................
Vacancies notified during period..................................
Vacancies filled during period.......................................
Applicants placed in otner districts.............................
105,029
3,283
28,240
66,806
44,595
10,610
196,692
3,055
64,562
63,484
54,985
15,575
27,636
458
7,030
11,739
9,656
1,667
29,905
326
9,384
10,502
8,218
1,264
359,262
7,122
109,216
152,531
117,454
29,116
The average daily number of registrations and of vacancies filled
for the four weeks ended September 7, 1917, is shown in the follow
ing table, together with comparative figures for a month ago and a
year ago:
Average registrations per day
in period ending—
Average vacancies filled per
day in period ending—
Sept. 7,
1917.
Aug. 10,
1917.
Sept. 8,
1916.
Sept. 7,
1917.
Aug. 10,
1917.
Men.................................................................
W omen..........................................................
Boys................................................................
Girls....................................................
3,338
5' 969
'894
916
2,882
5; 028
843
830
3,865
5' 942
'804
871
1,858
2,291
402
343
1,623
1,855
'367
307
2,121
2,331
- 382
359
Total....................................................
11,117
9,583
11,482
4,894
4,152
5,193
Department.
Sept. 8,
1916.
EMPLOYMENT IN SELECTED INDUSTRIES IN OCTOBER, 1917.
In continuation of statistics printed regularly in the M o n t h l y
figures are given showing the change in the volume of
employment in manufacturing establishments in the United States
in October, 1917, as compared with October, 1916. The figures pre
sented are compiled from reports rendered by representative estab
lishments in 13 different industries. The comparison of October,
1917, with October a year ago indicates a decrease in 7 of the 13
industries as to the number of persons on the pay roll. The silk
industry shows the greatest decrease—9.6 per cent. On the other
hand, the increase in several industries was favorable. The greatest
increase reported was 11.4 per cent in iron and steel.
R e v ie w
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Federal Reserve Bank of St. Louis
[1193] -
122
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
9
With respect to the total amount of the pay roll all the industries
except silk show an increase in October, 1917, as compared with Octo
ber, 1916. Iron and steel showed an increase of 49.2 per cent, and
woolen indicated an increase of 41.6 per cent. These large increases
are partly due to the fact that there were many increases in wage
rates in several industries during October, 1917.
There were strikes on in two cigar establishments in October, 1916,
which make the figures for that industry appear slightly smaller.
One small clothing establishment wTas reported closed during October,
1917, because of no work to do.
COMPARISON OF EMPLOYMENT IN IDENTICAL ESTABLISHMENTS IN OCTOBER, 1916,
AND OCTOBER, 1917.
Industry.
Estab Estab
lish lish
ments ments
to report Period
which ing for of pay
roll.
in Octo
quiries ber,
were both
sent. years.
Boots and shoes................
Cotton manufacturing___
Cotton finishing................
Hosiery and underw ear...
Woolen.............................
S ilk ...................................
Men’s ready-made clothing
Iron and steel....................
Car building and repairing
Cigar manufacturing.........
Automobile manufactur-
85
88
19
82
56
65
86
141
78
103
66
Leather manufacturing ..
Paper making...................
46
80
68
53
17
52
■IS
37
34
107
26
61
43
1 w eek..
. - .do----...d o ___
...d o ....
...d o ----2 weeks.
1 week..
h month.
...d o ----1 w eek..
. . .do___
Number on
pay roll in
October—
1916
1917
57,094 53,170
55,818 54,417
14,439 14,482
29,411 29,378
43,854 46,411
13,818 12,498
20,902 22,063
165,355 184,281
32.631 30,172
20,162 20,211
115,549 110,427
33 . . .do___ 15,571
47 ..d o ----- 24,433
14,603
26,094
Per
cent
of in
crease
(+ )
or de
crease
(-)•
Amount of pay roll
in October —
1916
1917
Per
cent
of in
crease
(+ )
or de
crease
(-)•
- 6.9 $719,306 $758,706
635,775
- 2.5
534,677
181,323 218,633
+ .3
- .1
284,040 347,018
512,412
725,525
+ 5.8
- 9.6
306,397
300,485
+ 5.6
290,092 347,653
+11.4 6,658,180 9,934,443
- 7.5 1,059,507 1,227,655
226,305 256, 637
+ .2
- 4.4 2,409,981 2,610,926
+ 5.5
+ 18.9
+20. G
+ 22.2
+ 41.6
- 1.9
+ 19.8
+49. 2
+ 15.9
+ 13.4
+ 8.3
- 6.2
+ 6.8
+ 11.5
+ 21.1
222,181
352,087
247,657
426,2?6
Some establishments, in response to the inquiry, furnished figures
showing the number of persons actually working on the last full day
of the reported pay period. The figures for October, 1917, as com
pared with October, 1916, are given in the next table :
COMPARISON OF EMPLOYMENT IN IDENTICAL ESTABLISHM ENTS ON LAST
DAY’S OPERATION IN OCTOBER, 1916, AND OCTOBER, 1917.
Industry.
Boots and shoos.............................................
Cotton manufacturing...................................
Cotton finishing.............................................
Hosiery and underwear................................
W oolen..........................................................
Silk..................................................................
Men’s readv-made clothing..........................
Iron and steel.................................................
Car building and repairing...........................
Cigar manufacturing.....................................
Automobile manufacturing..........................
Leather manufacturing.................................
Paper making.................................................
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
Establish
ments re
porting for
October,
both years.
12
30
13
15
37
23
8
84
25
22
24
15
14
[1194]
Period of
pay roll.
1 week___
. . .d o .........
.. .do..........
. . .do..........
. _.do.........
2 weeks. . .
1 week. . . .
1 m onth...
...d o .........
1 week__
. . .do.........
...d o ..........
. . .do..........
FULL
Number actu ally work
ing on last full day of
reported pay period Per cent
of increase
in October—
(+ ) or de
crease (—).
1917
1916
5,537
23,173
10,429
12,062
32', 031
10,011
1,439
131,279
28,567
4,277
71,946
9,046
8,939
4,895
22,442
10,195
12,415
34,934
8,896
1,291
143,263
26,349
4,217
68,011
8.041
9,324
-1 1 .6
- 3.2
- 2.2
+ 2.9
+ 9.1
-11.1
-10.3
+ 9.1
- 7.8
— 1.4
— 5. 5
- h .i
+ 4.3
M O N T H L Y R E V IE W
OF T H E BU REA U
O F L A B O R S T A T IS T IC S .
123
The comparison of data for October, 1917, with September, 1917,
appears in the next table. The figures show that in 10 industries
there were more people on the pay roll in October than in September.
Cotton finishing, silk, and men’s ready-made clothing showed a
decrease.
All of the 13 industries listed showed an increase in the amount of
money paid to employees in October of this year as compared with
September. This is explained in part by the large number of
increases in wage rates which were made by establishments in several
industries during October. The greatest increase was 18.1 per cent
in iron and steel.
COMPARISON OF EMPLOYMENT IN IDENTICAL ESTABLISHM ENTS IN S EPT EM B E R
1917, AND OCTOBER, 1917.
Industry.
Boots and shoes................
Cotton manufacturing---Cotton finishing................
Hosiery and underwear...
Woolen...............................
S ilk.....................................
Men’s ready-made clothing
Iron and steel..................
Car building and repairing
Cigar manufacturing.........
Automobile manuiacturing.
Leather manufacturing...
Paper m aking...................
Number on
Estab
pay roll in—
Estab lish
lish- ments
ments report
to ing for e rio d of
which Sep Ppay
ro ll.
Sep
Octo
in
tem
te m b e r, ber,
quiries ber
1917.
1917.
were and
sent. Octo
ber.
Amount of pay
roll in—
Per
cent
of in
crease
(+ ) or
Septem October,
de
1917.
crease ber, 1917.
(-)•
Per
cent
of in
crease
(+ )o r
de
crease
(-)•
51,839 52,866
54,289 54,384
14,760 14.693
26,939 27,225
44,746 45,989
13,283 13,049
22,602 22,095
184,646 188,350
27,580 29,420
19,747 21,116
100,770 101,851
+2.0 $751,796 $756,841
625,491 634,850
+ .2
221,606
216,431
- .5
+ 1.1
301,581 321,048
652,372 711, 898
+2.8
301,509 314,457
- 1 .8
- 2 .2
342,847 348,252
+2.0 8,573,258 10,124,392
+6.7 1,015,778 1,198,049
245,341 272,603
+6.9
+ 1.1 2,350,021 2,455,629
+ 0.7
+ 1.5
+ 2.4
+ 6.5
+ 9.1
+ 4.3
+ 1.6
+ 18.1
+ 17.9
+ 11.1
+ 4.5
85
88
19
82
56
65
86
141
78
103
66
46
80
69
55
18
51
47
38
34
108
25
63
42
1 week..
..- d o ----. . -do---.. .d o ___
.. .d o ---2 weeks.
1 week..
i month.
. . .do----1 week..
. . .d o ___
32 . . .d o ___ 13,806
45 .. .do----- 25,117
13,843
25,440
+ .3
+ 1.3
223,456
398,893
236,113
411,994
+ 5.7
+ 3.3
Comparable figures for October and September of this year as to
the number of persons working on the last full-time day of the re
ported pay period appear in the next table. The number including
such data in the reports furnished is rather small, and this should
be noted when using the figures.
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Federal Reserve Bank of St. Louis
[11951
124
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
COMPARISON OF EMPLOYMENT IN IDENTICAL ESTABLISHM ENTS ON LAST FULL
DAY’S OPERATION IN SEPTEM BER, 1917, AND OCTOBER, 1917.
Industry.
Boots and shoes..................
Cotton m anufacturing.......
Cotton finishing..................
Hosiery and underwear__
Woolen.................................
S ilk.......................................
Men’s ready-made clothing.
Iron and steel......................
Car building and repairing.
Cigar manufacturing...........
Automobile manufacturing
Leather m anufacturing__
Paper m aking................... .
Establish
ments re
porting for
September
and Octo
ber.
24
34
13
16
38
24
7
87
25
27
25
16
13
Period of
pay roll.
Number actually work
ing on last full day
of reported pay
Per cent
period in—
of increase
( + ) or de
crease (—).
September, October,
1917.
1917.
1 w eek__
. . .do.........
. . .d o .........
.. .do .........
.. .d o .........
2 weeks__
1 week__
h m onth...
.. .d o .........
1 week---. . .d o .........
. . .d o .........
. . .d o .........
10,934
26,069
7,853
10,250
34,065
9,372
7,635
145,578
24,452
5,420
70,439
8,175
8,628
10,683
26,067
7,717
10,488
35,219
9,377
7,063
147,709
26,728
6,022
70,989
8,153
8,754
- 2.3
(‘)
- 1.7
+ 2.3
+ 3.4
+ .1
- 7.5
+ 1.5
+ 9.3
+ 11.1
+ .8
- .3
+ 1.5
Decrease of less than one-tenth of 1 per cent.
CHANGES IN WAGE RATES.
The returns concerning volume of employment received by the
bureau show that wage-rate changes were made in 12 of the 13 in
dustries canvassed between September 15 and October 15, 1917. In
the men’s ready-made clothing industry no changes were reported.
The aggregate number of establishments making changes in wage
rates during this period was much greater than in any one of the
several months immediately preceding.
I t is significant to note that out of 110 establishments in the iron
and steel industry rendering data, 61 reported increases in wage
rates. The increase in 23 of these establishments was 10 per cent,
affecting all employees on the pay roll. Eleven plants granted
a 10 per cent increase, affecting a part of the force in each as
follows: Fifty-one per cent of the force in two establishments, 75
per cent of the force in one establishment, 42 per cent of the force in
two establishments, all tonnage men in one establishment, 55 per
cent of the force in one establishment, 56 per cent of the force in one
establishment, 35 per cent of the force in one establishment, 44 per
cent of the force in one establishment, and 80 per cent of the force
in one establishment. Eight plants reported a 10 per cent increase
to all employees on an hour, turn, or tonnage basis and the same in
crease to all salaried men receiving $3,600 per annum or less. In
five establishments there was a general increase of about 13 per cent.
Three plants granted to all employees an increase of 8 per cent, 6 per
cent, and 4.2 per cent, respectively. One plant reported a 9.4 per
cent increase to all operatives, while another gave a 9.9 per cent in
crease to all employees. A 10 per cent increase to one-third of the
force and a 5 per cent increase to the remaining two-thirds of the
force were reported in one instance; while in another there was a
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Federal Reserve Bank of St. Louis
[1196]
M O N T H L Y E E V IE W
OF T H E BU REA U
O F L A B O R S T A T IS T IC S .
125
13 per cent increase to 11 per cent of the force, an increase of 11 per
cent to 24 per cent of the employees, and a 10 per cent increase to
the remaining 62 per cent of the force. There was an increase of
20 per cent, affecting one-seventh of the force in one establishment.
One plant gave a 4.7 per cent increase to one-third of the force and
a 4 per cent increase to two-thirds of the force. Twenty per cent of
the employees in one instance received a 7 per cent increase, while
09.5 per cent of the force was granted a 9.6 per cent increase in an
other establishment. In one case a 10 per cent increase to 50 per
cent of the force and a 2.5 per cent increase to 40 per cent of the em
ployees were reported. A 9.4 per cent increase was given to 98.1 per
cent of the force in one plant. The report from one establishment
stated that what was formerly a 30 per cent bonus was increased to 40
per cent.
There were five establishments in the hosiery and underwear in
dustry which granted a 10 per cent increase in wage rates to all em
ployees. Two establishments in this industry gave a 15 per cent
increase to all persons on the pay roll. Two other plants reported
a 10 per cent increase, affecting 95 per cent of the force in one of
them and 50 per cent of the force in the other. One plant gave a
20 per cent increase and another granted a bonus of 11 per cent, but
neither stated the proportion of the force affected.
In cotton manufacturing three establishments reported a 10 per
cent increase, this affecting all operatives in two of them and approx
imately all in the third. One plant gave an increase of about 6 per
cent to all employees, and another granted a 10 per cent bonus.
In leather manufacturing one establishment gave a 10 per cent
increase to the entire force. Another plant granted a 5 per cent in
crease to 50 per cent of the force. In a third establishment each
person on the pay roll received an increase of 15 cents per day. One
other establishment gave a 10 per cent bonus to 15 per cent of the
force for the three months ending September 30, 1917.
Forty establishments in the woolen industry reported a 10 per cent
increase, affecting all employees on the pay roll. One plant gave a
5 per cent increase to the entire force.
In the silk industry three establishments reported increases. There
was a 10 per cent increase to 55 per cent of the force in one of them,
a 7 per cent increase to 15 per cent of the force in the second, and a
5 per cent increase to all persons on the pay roll in the third.
In cotton finishing one plant gave an increase of $1 per w7eek to
e a c h employee, while another reported an increase of 2 cents per hour
to all receiving 23 cents per hour or less. A third establishment gave
all employees a 10 per cent increase.
25413°— 17-
0
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Federal Reserve Bank of St. Louis
[1197]
126
M O N T H L Y R E V IE W
O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
Two establishments in paper making gave increases. One of them
reported a 10 per cent increase and the other reported an increase of
6 cents per day, affecting the entire force in each instance.
In automobile manufacturing one establishment stated that an
increase of one-lialf cent per hour was made, affecting all persons em
ployed; and another plant reported that the working hours of the
office force had been reduced from 8 to 7 hours per day.
There was a 10 per cent increase to 30 per cent of the force in one
car building and repairing plant, and an 8 per cent increase to 10
per cent of the force in another plant in the same industry.
One plant in cigar manufacturing gave an 8 per cent increase to 70
per cent of the force. In another instance there was a 5 per cent
increase, affecting 88 per cent of the force.
In boot and shoe manufacturing the report from one plant stated
that about 10 per cent of the piecework rates wrere increased from 10
“to 12.5 per cent. One other merely said that a few piecework rates
were raised.
VOLUME OF EMPLOYMENT IN THE UNITED KINGDOM (GREAT
BRITAIN AND IRELAND) IN SEPTEMBER, 1917.
The figures in the following table relating to the condition of em
ployment in Great Britain and Ireland in September, 1017, as com
pared with August, 1917, and with September, 1916, have been com
piled from a report appearing in the British Labor Gazette of
October, 1917.
The most important changes are shown to have occurred in the
employment of seamen, of whom there were 13.1 per cent fewer em
ployed in September, 1917, than in August, 1917, and 28.9 per cent
fewer than in September, 1916. The next largest percentage of
changes was found in dressmaking and millinery, in which there
were 25.7 per cent more persons employed in September, 1917, than
in August, 1917, and 12.5 per cent fewer than in September, 1916.
There was a marked falling off in the number of dock and riverside
laborers employed. The number in September, 1917, was 8.2 per
cent less than in the preceding month, and 20.4 per cent less than in
September, 1916.
A shortage of labor was reported in the following trades: Pig iron
industry; iron and steel works; wire-manufacturing works; carpet
trade; bleaching, printing, dyeing, and finishing; boot and shoe
trade; leather trade; tailoring trade; brick and cement trades; pot
tery trades; glass trades; and agriculture. The shortage in agricul
ture was made up to a large extent by employment of women and
soldiers.
Overtime work was reported in the following trades: Engineer
ing trades, shipbuilding trades, brass works, sheet-metal works,
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Federal Reserve Bank of St. Louis
r il9 8 j
M O N T H L Y R E V IE W
OF T H E BU REA U
127
O F L A B O R S T A T IS T IC S .
leather trades, tailoring trades, coach building, coopers, printing and
book binding, pottery trades, and glass trades. Short time was re
ported in woolen, worsted, and hosiery trades, but to a smaller extent
than in the preceding month, owing to the partial removal of re
strictions on working hours.
V O L U M E O F E M P L O Y M E N T IN T H E U N I T E D K IN G D O M ( G R E A T B R I T A I N A N D I R E
L A N D ) I N S E P T E M B E R , 1917, A S C O M P A R E D W I T H A U G U S T , 1917, A N D S E P T E M B E R ,
1916.
[C om piled from figures in th e L a b o r G az e tte (L o n d o n ), O cto b e r, 1917.]
I n d u s tr ie s a n d basis of com
p ariso n .
'
Per cenVof in- j
• crease (+ ) or
decrease (—)
in September,
1917, as com
pared with— • * Industries and basis of com
parison.
Sep
tem
ber,
1916.
Aug
ust,
1917.
Coal m in in g : A verage n u m b e r of
d a y s w o r k e d .....................................
Iro n m in in g : A v erag e n u m b e r of
d a y s w o r k e d .....................................
Q u a rry in g : N u m b e r of em ployees.
P ig iro n : N u m b e r of fu rn ace s in
b l a s t .....................................................
I r o n a n d s te e l w o rk s:
N u m b e r of e m p lo y e e s ...............
N u m b e r of sh ifts w o rk e d .........
E n g in e e rin g tra d e s : N u m b e r of
em p lo y ees2 ........................................
S h ip b u ild in g tra d e s : N u m b e r of
em p lo y ees 2........................................
T in p la te , ste e l a n d g alv an ize d
sh e e t tra d e s : N u m b e r of m ills in
o p e r a tio n ............................................
C o tto n tra d e :
N u m b e r of e m p lo y e e s ...............
E a rn in g s of e m p lo y e e s..............
W oo len tra d e :
N u m b e r of em p lo y e e s ...............
E a rn in g s of e m p lo y e e s..............
W o rs te d tra d e :
N u m b e r of e m p lo y e e s ...............
E a rn in g s of e m p lo y e e s ..............
H o sie ry tra d e :
N u m b e r of em p lo y e e s ...............
E a rn in g s of e m p lo y ees..............
J u te tra d e :
N u m b e r of e m p lo y e e s ...............
E a rn in g s of e m p lo y e e s .............
L in e n tra d e :
N u m b e r of e m p lo y e e s ...............
E a rn in g s of e m p lo y e e s ,............
S ilk tra d e :
N u m b e r of em p lo y e e s ...............
E a rn in g s of e m p lo y ees..............
C a rp e t tra d e :
N u m b e r of e m p lo y e e s ...............
E a rn in g s of e m p lo y ees..............
L a ce tra d e :
N u m b e r of em p lo y e e s ...............
E a rn in g s of e m p lo y e e s ..............
B leach in g , p rin tin g , dy ein g , a n d
fin ish in g :
N u m b e r of e m p lo y e e s ...............
E a rn in g s of em p lo y e e s..............
B o o t a n d sh o e tra d e :
N u m b e r of e m p lo y e e s ...............
E a rn in g s of em p lo y e e s..............
L e a th e r tra d e s : N u m b e r of e m
p loyees ................................................
T a ilo rin g tra d e s :
N u m b e r of e m p lo y e e s ...............
E a rn in g s of em p lo y ees..............
1 N o change.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
- 4.2
-0 .7
- .1
+ .7
-12.0
+ 1.7
+ 3.2
+ .2
+ .4
+ 8.2
+ 7.2
- .06
-
.29
+ .07
-
.01
-2 6
- 4 .0
-5 .9
-11.1
- .8
+ .1
+ 4.0
- 3.9
+ 14.1
+ .3
+7.0
- 3.0
+ 16.4
0)
+ 1.2
- 4.4
+ 11.4
— .5
- ,i
+ 1.8
+22.3
+ 1.0
+ 8.3
+ 2.5
+ 33.8
+ .3
+2.8
- 3.0
+ 17.5
+ .5
+ 2.5
- 1.0
+ 17.7
+ .6
+ 4.2
- 8.0
+ 2.2
- .5
+ 1.8
- 3.5
+ 15.0
- .4
+ .2
- 5.6
+ 7.5
- .2
+
+ .8
+ .1
+ .6
+ 24.5
.6
Aug
ust ,
1917.
Sep
tem
ber,
1910.
+ 1.2
+ 1.3
— 9 <8
+ 5.8
+ 25.7
-12.5
j ■
(0
- 6 .0
Per cent of in
crease ( + ) or
decrease (—)
in September,
1917, as com
pared with—
Shirt and collar trade:
Number of employees.............
Earnings of employees............
Other clothing trades:
Dressmaking and millinery—
Number of employees.......
Wholesale mantle, costume,
blouse, etc—
Number of employees—
London...........................
Number of employees—
Manchester.................
Number of employees—
Glasgow..........................
Corset trade—Number of employees...................................
Building and construction of
works: Number of employees 2. .
Sawmilling
and
machining:
Number of employees2..............
Brick trade:
Number of employees..............
Earnings of employees............
Cement trade:
Number of employees..............
Earnings of employees............
Printing, bookbinding, and paper
trades:
Printing trades—
Number of employees reported by trade-unions 2
Number of employees reported by employers__
Earnings of employees reported bv employers__
Bookbinding trades—
Number of employees reported by trade-unions2
Number of employees reported by employers__
Earnings of employees reported by employers__
Paper trades: Number of employees...................................
Pottery trades:
Number of employees.............
Earnings of employees............
Glass trades:
Number of employees..............
Earnings of employees............
Food preparation trades:
Number of employees..............
Earnings of employees............
Dock and riverside labor: Number of employees..........................
Seamen: Number of employees...
2 B ased o n u n e m p lo y m e n t re tu rn s .
[1190]
+ 4.3
+ 1.2
+ 3.3
- 4.8
+ 1.8
- 8.2
+ 1.5
-13.4
+ .1
— .9
+
.1
-
.4
+ ■«
+ 2.4
- .7
+ 17.8
+ .3
+ 4.1
- 9.6
+ 7.3
+
.1
+
-
.3
-
+ 1.0
.7
7.9
+ 5.8
+
-1
-
+
.3
- 7.1
-f
.3
+ 12.8
+
.6
- 3.1
— .5
+ 1.4
- 1 .4
+ 16.1
- .1
-f~ 1.5
- 1.3
+ 12.9
_
-
.3
-11.4
+ 5.2
- 8.2
-13.1
-20.4
-28.9
9
.1
128
M O N T H L Y R E V IE W
OF T H E BU REA U
O F L A B O R S T A T IS T IC S .
The extent of unemployment in Great Britain during the four
weeks ending September T, 1917, is indicated by the following tables,
which show the operations of the Ministry of Labor Employment
Exchanges for that period :
INDIVIDUALS R E G IST E R ED , VACANCIES N O T IFIE D , AND VACANCIES FIL L ED IN
THE 4 W E EK S EN D ED SEPT. 7, 1917.
A.—Insured trades.
Juveniles.
Adults.
Occupation groups.1
Vacancies
Individuals
registered din notified dur
ing period.
ing period.
Vacancies
filled during
period.
Vacancies
notified dur
ing period.
Vacancies
filled during
period.
om Men. Wom Men. Wom Boys. Girls. Boys. Girls.
Men. Wen.
en.
en.
Building:
Carpenters, Joiners, etc__
Bricklayers
Masons
Plasterers ..
Painters, decorators, etc...
Plumbers, glaziers
Other skilled occupations.
Laborers.............................
Works of construction..............
Sawmilling.................................
Shipbuilding:
Platers, riveters
Laborers.............................
Engineering:
Molders...............................
Smiths.................................
Erectors, fitters, turners...
Metal machinists................
Wiremon.............................
Other skilled occupations.
Laborers.............................
Construction of vehicles..........
Cabinetmaking, e tc..................
Miscellaneous metal trades__
Precious metals, etc.................
Bricks and cem ent...................
Chemicals, etc...........................
Rubber and waterproof goods.
Ammunition and explosives..
Leather, boots and shoes.........
Leather, excluding boots and
shoes.......................................
3,095
1 354
'361
510
1,684
509
50
4,953
4,927
830
1 019
179
1,594
118 2,776
1,456
2
108
314
262 1,875
1
457
78
119 5,078
31 6,325
1,489
701
20
4
325
1 044
524
1,985
648
111
71
485
5,599 1,587
1.973 6.947
73
674
2,244 4,752
7, 703 1,904
673
237
109
166
1,339 1,927
106
199
44
76
810
546
866
154
2,919 39,230
173
347
668
466
5,585
1,273
562
1,830
7,214
459
132
1,672
102
150
1,411
136
2,255
292
2,045
916
50
225
184 1,067
214
19
1
103 3,091
31 3,442
983
354
76
80
33
2
32
3
1
143
27
847
1
31
25
2
118
9
195
4
100
32
7
128
2
13
4
94
2
4
112
318
138
80
94
249
850
855 4,167
7,442
993 7,078
47
49
352
3.353 1,088 3,289
2,304 6,413 2,098
256
394
246.
60
75
39
854
925 1.207
208
220
26
40
59
43
510
673 1,132
111
478
472
13,980 2,079 14,451
86
119
97
58
36
771
496
35
210
422
43
25
227
43
13
106
30
356
60
22
26
43
284
7
134
88
4
8
324
105
3
63
42
520
59
40
26
702
446
30
175
377
39
20
183
32
5
100
32
336
38
24
21
26
256
6
119
86
5
6
267
69
2
60
49
488
30
2
4
99
120
1,094
165
7
2
4
3
141
1
23
18
2
102
9
171
3
2
5
3
139
3
142
46
63
38
53
T otal................................ 46,681 62,218 47,061 32,881 31,885 32,002
3,560
1,958
3,091
1,724
170
541
133
182
73
Total, males and females..
108, 899
79,942
63, 887
5,518
4, 815
4 weeks ending Aug. 10,1917...
87,364
63 441
51, 116
4,243
3, 841
1
1 Occupations are grouped according to the industry with which they are mainly connected and appli
cants are registered according to the work desired by them.
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Federal Reserve Bank of St. Louis
[12001
M O N T H L Y R E V IE W
IN D IV ID U A L S
OF T H E BU REA U
129
O F LA B O R S T A T IS T IC S .
R E G I S T E R E D , V A C A N C IE S N O T I F I E D , A N D V A C A N C I E S
I N T H E 4 W E E K S E N D E D S E P T . 7, 1 9 1 7 — C o n c lu d e d .
F IL L E D
B .— Uninsured trades.
Adults.
Occupation groups.1
Vacancies
Individuals
registered dur notified dur
ing period.
ing period.
Men.
M in in g a n d q u a r r y in g ..............
T e x tile :
C o tto n .....................................
W o o l a n d w o r s te d .............
S ilk , fla x , l in e n , e t c ...........
D ress:
T a ilo rs a n d ta ilo re ss e s ____
D re ssm a k e rs a n d m illin e rs
S e a m stre sse s........................ .
O th e r s .....................................
C o n v ey a n ce of m e n , goods, etc.:
O n r a ilw a y s ............................
O n r o a d s , seas, riv e rs , e t c . .
A g ric u ltu re :
F r u it, e tc ., p ic k e r s ............
O th e r s .....................................
P a p e r , p r in t s , b o o k s, a n d s ta
tio n e r y ........................................
W o o d , f u r n itu re , fittin g s , e tc .
P o tte r y a n d g la s s .......................
F o o d , to b a c c o , d r in k , a n d
lo d g in g :
B re a d a n d b is c u it, e tc .,
m a k e r s ................... ..............
W a ite r s ....................................
O th e r (ja m , cocoa, to b a cco ,
e t c . ) .......................................
B ru s h e s , b ro o m s, e t c ..................
G as, w a te r , e le c tric a l s u p p ly ,
a n d s a n ita r y serv ic e................
C o m m ercial a n d c le ric a l............
D o m estic:
L a u n d r y a n d w ash in g
s e rv ic e ...................................
P r iv a t e in d o o r s e r v a n t s .. .
O th e r in d o o r s e rv a n ts ........
C h a rw o m e n , d a y g irls, d a y
s e r v a n ts ...............................
O th e r s .......................................
G en eral la b o re rs ............................
S h o p a s s is ta n ts ..............................
G o v e rn m e n t, defense a n d p ro
fessio n al........................................
A ll o th e r ................ .........................
Juveniles.
Wom
en.
Vacancies
filled during
period.
Vacancies
Vacancies
notified dur filled during
ing period.
period.
Men. Wom
Men. Wom
en.
en. Boys.
Girls. Boys. Girls.
34.5
15
548
25
223
16
16
3
26
3
330
163
213
1.412
306
1,467
290
153
300
632
142
591
151
91
93
412
128
489
86
43
103
165
23
270
67
36
84
,83
18
224
158
92
357
122
404
810
43
214
244
36
45
569
209
518
816
28
58
760
519
987
1,539
28
102
20
152
171
210
67
199
8,418
423
3,325
374
5,874
200
830
284
4,108
176
90
676 2, 480
8
1,113
87
1,695
9
853
1,106
695
978
1,558
1,483 3,477
662
966
1,322
234
3,310
814
95
97
147
50
85
85
143
35
164
128
125
840
193
327
232
97
161
489
98
98
85
31
83
400
79
54
224
144
72
511
91
45
154
106
54
407
76
28
123
93
498
1,542
130
76
272
723
29
47
241
551
70
27
80
65
55
23
64
51
134
10
874
36
253
15
671
17
115
2
666
13
103
16
197
18
76
14
174
15
70
2.686
48
8,436
468
1,450
94
2,753
84
215
825 2,094
13
843
1,110
10
712
963
1,334
926
1,987
6, 220
874
2,053
4,492
651
582
2,832
402
4,913
136
666
406
576
171
774
127
131
2,306
77,978 19,745 30,603 12,710 22,983
8,179
11,021
411
975
1,197
T otal................................ 30,156
1,164
12. 740
414
11,444 4,307
3,357
244
3,886
10,921
10
585
6,341
165
743 3,241
639
91
710
617
934
172
477
340
129
291
345 ■ 294
1,092
23
422
493
94
486
74
159
198
683
11
367
338
267
768
107
2,152
237
681
8,544
6,565
6,494
Total,m ale and fem ale..
108,134
50,348
35, 693
16, 723
13,059
4 weeks ending Aug. 10,1917...
Casual employment (men only)!
89,329
168
43,007
28,894
Q 212
14, 375
11,655
1 Occupations are grouped according to the industry w ith which they are mainly connected and applicants
are registered according to the ‘‘ work desired ” by them .
These tables show that during the period in the insured trades
108,899 adults registered for work—46,681 men and 62,218 women.
There were 85,460 vacancies reported—47,061 men, 32,881 women,
3,560 boys, and 1,958 girls. The number of positions filled were
68,702—31,885 men, 32,002 women, 3,091 boys, and 1,724 girls. The
occupation groups in which the largest numbers of positions were
filled by adults were: Ammunition and explosives, 16,530; laborers,
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Federal Reserve Bank of St. Louis
[1201]
130
M O N T H L Y R E V IE W
O E T H E B U R E A U O F L A B O R S T A T IS T IC S .
engineering, 8,511; metal machinists, 8,071; erectors, fitters, and
turners, 5,017 ; works of construction, 3,469; laborers, building, 3,234.
In the uninsured trades there were 108,134 registrations—30,156
men and 77,978 women. The number of vacancies reported was
67;071—19,745 men, 30,603 women, 8,179 boys, and 8,544 girls. The
total number of positions filled was 48,752—-12,710 men, 22,983
women, 6,565 boys, and 6,494 girls. The occupation groups in the
uninsured trades, in which the largest numbers of positions were
filled by adults were: Domestic service, 9,699; agriculture, 5,680;
conveyance of men, goods, etc., 5,244; general laborers, 3,907 ; com
mercial and clerical, 2,919.
The totals show that the number of positions filled by adults in
both the insured and the uninsured trades during the four weeks end
ing September 7, 1917, was 23.5 per cent greater than during the
preceding four weeks. The number of positions filled by men was
22.6 per cent greater and by women 24.1 per cent greater. Much
the largest number of women were employed in the manufacture of
ammunition and explosives and in domestic service.
No comparison can be made of the number of registrations in the
employment exchanges of Great Britain with the number of appli
cations for work reported by the employment offices of the United
States, owing to the differences in method of registering applicants.
It is possible, however, to make a comparison of positions filled by
the offices in the two countries. The figures show the following
results :
Positions filled.
Number of
offices.
Great B ritain...............................
TTrnt.p.rJ Stfrtes...............................
3S2
154
Total.
117,454
1G4' 772
Average
per day.
4,894
0,337
Average
por day,
each office.
12,8
41.1
The above figures are significant in view of the fact that a very
large percentage, if not practically all, of the employment office
work of Great Britain is done through the free employment ex
changes, while in the United States but a very small proportion of
the placements is made through the public employment offices, the
much greater proportion being handled by the private employment
agencies.
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Federal Reserve Bank of St. Louis
[ 1202]
M ONTHLY
E E V IE W
O F T H E B IJE E A U
O F L A B O R S T A T IS T IC S .
131
FLUCTUATIONS IN EMPLOYMENT AND UNEMPLOYMENT IN
AUSTRALIA.
In report Xo. 7, issued in June, 1017, by the labor and industrial
branch of the Australian bureau of census and statistics,1 a section
is devoted to fluctuations in employment and unemployment, the
tables presented showing the extent of unemployment in tradeunions, 1907 to 1916, employment index numbers in certain years
from 1891 to 1916, unemployment in the various States of the Com
monwealth and in the different industries, and the causes of unem
ployment. The extent of unemployment in trade-unions, together
with the number and membership of the unions for which returns
were available, and the employment index numbers are set forth in
the following table :
NUMBER AND M EM BERSHIP OF TRADE-UNIONS MAKING RETU RN S AND NUMBER
AND P E R CENT OF UNEM PLOYED MEMBERS, 1907 TO 1916, T O G ET H ER W ITH EMPLOY
MENT IN D EX NUMBERS,i 1909 TO 1916.
Item.
1907
Number of unions...
51
Membership.........
13,179
Number of unemployed at end of
?
year....................
Per cent of unemployed at end of
year........................
5. 7
Employment index
(2)
num ber1............
1908
1909
1910
18,685
84
21,122
109
32,995
1,117
1,223
1,857
5.8
5.6
988
990
CS
6.0
(2)
1T ear 1911 taken as the base, or 1,000.
1911
1912
1913
1914
1915
160
464
465
439
465
67,961 224,023 251,207 250,716 273,149
1916
470
292,051
3,171
12,441
13,430
27,610
5.6
5.3
11.0
6.8
6.7
1,000
991
994
934
978
979
18,489
19,562
2Not given in the report.
( lassified by industries the report indicates the largest amount of
unemployment (10.6 per cent) based on returns for the last quarter
of 1916, in the building trades, with the least unemployment (2.9
per cent) in the industrial groups “ Clothing, hats, boots, etc.,” and
Other land transport.” Particulars as to causes of unemployment
are given for the fourth quarter of 1916, showing that of 19,051 re
ported as out of work, 15,-307 (80.3 per cent) were unemployed
through lack of work, 2,211 (11.6 per cent) through sickness and
accident, and 1,533 (8 per cent) through other causes (excluding
persons on strike or locked out). Of the total membership of unions
reporting for this period, namely, 278,759, 5.5 per cent were unem
ployed on account of lack of work. As noted in the table, the per
cent of unemployed members of the unions reporting in 1916 was 6.7.
^ 1 A u s tra lia .
B u re a u o f C en su s a n d S ta tis tic s , L a b o u r a n d I n d u s tr ia l B ra n c h , R e p o rt
N o . (.
P ric e s , p u r c h a s in g p o w e r o f m o n e y , w a g e s, tra d e -u n io n s , u n e m p lo y m e n t, a n d
g e n e ra l in d u s tr i a l c o n d itio n s , 1916.
M e lb o u r n e , 1 9 1 7 .
pp. 3 4 6 -3 5 2 .
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Federal Reserve Bank of St. Louis
'[1203]
132
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
UNEMPLOYMENT INSURANCE AND LABOR EXCHANGES IN THE
NETHERLANDS.1
Under a decree of September 26, 1916, a bureau of labor has been
established in the department of public works, charged with insti
tuting unemployment insurance, establishing labor exchanges, and
endeavoring to prevent unemployment and to provide unemployment
benefits. The new bureau is expected to subsidize unemployment in
surance funds, special or otherwise, and to prepare a draft of an in
surance law; to develop by subsidies and other appropriate means
the present system of labor exchanges and to establish interurban and
international relations; to establish interurban offices, and various
central offices for compensation, whether for particular industries or
for employment in general ; and to prepare and enforce laws relating
to labor-exchange offices.
In general the amount of subsidies permissible shall be no greater
than the amount of premiums paid by members of the fund. They
shall be granted in equal proportions by the State and the district
authorities of the territory in which the fund operates. District au
thorities are not obliged to grant subsidies, but the State subsidies
are contingent on such subsidies.
Subsidized funds are subject to municipal supervision, and each
member must signify his willingness, under penalty of forfeiting his
right to unemployment benefits, to accept any suitable employment
offered him.
The fund administrators are authorized to fix the amount of bene
fits and conditions under which they may become payable. No
benefits are payable if the unemployed person has refused an offer
of employment tendered by the public labor exchange.
Cases of disagreement regarding the right to benefits or the in
terpretation of “ suitable employment” are to be referred to the
minister of public works, who, after consultation with the proper
committee, shall decide the question at issue.
A consulting committee is provided for, composed of 12 members
named by the minister, of whom 6 shall be representatives of the
insurance funds and 6 representatives of the State and district
authorities.
The bureau shall establish a system of exchanges, one for each
of 30 districts, and group the bureaus of each commune. A central
exchange for each district shall be established and supported by the
State, but the commune shall contribute in part to the expenses of
the district offices.
1 B u lletin du M in istère du T ra v a il e t de la P révoyance Sociale, .T une-July, 1917, p. 327.
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Federal Reserve Bank of St. Louis
[12041.
LABOR ORGANIZATIONS.
ACTIVITIES OF GERMAN TRADE-UNIONS.
CONFERENCE OF PRESIDENTS OF GERMAN TRADE-UNION FEDERATIONS IN
BERLIN. JULY 24-26, 1917.
The presidents of the federations of German free trade-unions
(freie Gewerhschaften) held a three days’ conference (July 24 to 26,
1017) in Berlin at which a large number of administrative tradeunion problems were discussed. In addition, the conference adopted
several resolutions defining the attitude of organized labor with re
spect to political questions of the day which affect the interests of
the trade-union movement. A brief summary of the proceedings of
the conferences as reported in the Leipziger Volkszeitung1 and in
the Vorwarts2 is here given.
The reports of the individual presidents were very encouraging.
They emphasized the fact that the efficient work done by the free
trade-unions during the war has had the effect of large increases in
membership. Former members who have been discharged from the
army without exception rejoin their trade-union, and large numbers
of unorganized workers are daily becoming members of free tradeunions.
With respect to the conclusion of peace the conference adopted the
following resolution :
The free trade-unions of Germany are gratified that the Reichstag through
its resolution of July 10 lias in the name of the German nation declared itself
in favor of conclusion of peace hy means of negotiations. The working popu
lation whose interests are represented by the free trade-unions unanimously
approves the desire for quick termination of the war through agreement of
the nations involved, and what is more, the workmen of Germany are more
than ever ready and resolved to make the strongest efforts to achieve this end.
As to the proposed internal reform of Germany the conference
adopted the following resolution, which, as an expression of the
mental attitude of the representatives of several million workers,
has a claim to general consideration:
With respect to the problem of internal political reorganization of the Ger
man Empire the conference of representatives of the central federations of the
1 L eipziger V olkszeitung. E ine K onferenz der G ew erkschaftsvorstände. Leipzig,- Ju ly
27, 1917.
2 V o rw ärts. E ine K onferenz von V e rtre te rn d e r V erbandsvorstände. B erlin, Aug. 7,
1917.
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MONTHLY BE VIEW OF THE BUREAU OF LABOR STATISTICS,
free trade-unions is of tlie opinion that these long-needed reforms, which, in
part, have been promised by the Imperial Government must not be retarded
any longer.
The conference considers the establishment of a system of government in
harmony with the resolutions of the representatives of the people and the
introduction of real democratic right of suffrage for the diets of all individual
States and for all communes as the most urgent preliminary for a sound
internal political and economic development which alone will enable the Ger
man nation to overcome the devastating effects of the war.
The conference also expects that this internal political reorganization will
lead to social legislation which will guarantee to the German working classes
full equality in economic and civic life and social elevation to unrestricted
participation in the cultural development of the nation.
Numerous complaints submitted to the conference by trade-unions
in the districts of the first and sixth army corps led to the follow
ing resolution :
The conference of representatives of the central federations of the free
trade-unions protests peremptorily against the orders relating to the exercise of
the right of association and of holding meetings issued by the commanding
generals of the iirst and sixth army corps.
These orders make it impossible for labor organizations to fulfill their task
of safeguarding the interests of workers. The orders in question infringe
against the provisions of article 14 of the auxiliary service law ( H i l f s d i e n s t g c s e t z ) and are incompatible with the assurance repeatedly given by the
Imperial Government that even during the continuance of martial law tradeunions would be granted the most far-reaching freedom of movement.
Tlie conference charges the general commission to promptly take proper steps
to the effect that the competent authorities rescind these orders. The con
ference also declares that suspension of martial law is absolutely necessary in
order that the legally guaranteed right of association and of holding meetings
may again be exercised undisturbedly.
Legien, the president of the General Commission, reported on the
subsidizing' of workmen’s secretaries, strikes of workmen employed
in the manufacture of war materials, and the attitude of the General
Commission toward such strikes, the joining of the Red Cross by the
commission, collections for war invalids, several economic war
problems and problems of the period of transition from a war to a
peace regime. He also discussed the regulations restricting the use
of paper, with special consideration of their effect on the trade-union
publications. A demand made by the president of the Mercantile
Clerks’ Federation that the General Commission should not only
cooperate with the Social Democratic faction of the Reichstag, but
also with the representatives of the Independent Social Democratic
Party was rejected by Legien. He pointed out that in the Mannheim
agreement of the free trade-unions with the Social Democratic Party
the unions had obligated themselves to recognize only this party and
its representatives.
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135
Bauer reported on problems of the auxiliary service law. He dis
cussed exemptions from auxiliary service, elections of auxiliary
service committees, and the attempts of the so-called “ yellow ” (nonmilitant) trade-unions to get their representatives in these commit
tees, and his experiences with the operation of the auxiliary service
law (wage questions, employment, and organization of aliens, em
ployment offices, right of association, and complaints).
The report of K. Schmidt on problems of nutrition dealt with the
phases of the nutrition of the nation since the reduction of the bread
ration. He expressed the conviction that the scarcity of bread and
potatoes is largely due to the feeding to animals of supplies desig
nated for human nutrition. He also discussed existing abuses in the
supplying of the nation with fruits and vegetables, the measures re
lating to the new crops, and the regulation of the coal supply.
Bauer made a report on the international socialistic conference in
Stockholm, which was intended to bring about the agreement of the
labor parties of all countries. The General Commission had sent
three delegates to this conference. Bauer stated that, although this
conference had not attained its object, nevertheless because of it
foreign labor parties have been made to understand the real atti
tude and peace aims of the German Social Democratic Party and
trade-unions. He declared that it was especially gratifying that
the Russian workmen and soldiers’ council could be informed as
to this attitude and peace aims and thereby could become an in
fluential promoter of an international agreement. The present con
ference authorized the General Commission to send delegates to
further peace conferences of this kind.
The conference discussed the sending of delegates to the interna
tional trade-union conference in Berne, called for October 1, 1917,
by the Swiss Federation of Trade-unions in pursuance of a resolu
tion of the Stockholm conference. The conference resolved to send
10 delegates to Berne. Seven delegates and a like number of al
ternate delegates were elected by the conference and the General Com
mission was authorized to appoint the other three delegates. The
costs of participation in the conference were to be borne by the Gen
eral Commission and afterwards to be assessed on the individual
trade-unions. A number of trade-union demands were to be sub
mitted to this conference in Berne and to be discussed by it. On the
conclusion of peace these demands are to be incorporated in the peace
treaty. The General Commission of the German free trade-unions
has prepared a list of general demands alone. Special demands
relating to individual trades are to be submitted to t3ie International
Labor Office in Basel. It is intended that to this office shall be given
the character of an international legal institution.
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M O N T H L Y R E V IE W O F T H E B U R E A U OF LABOR S T A T IS T IC S .
Finally the conference approved the affiliation with the General
Commission of the Federation of German Railroad Employees and
of the General Federation of German Choir Singers. The Federa
tion of Railroad Employees may not be assessed for strike contribu
tions as its by-laws prohibit strikes as a means of enforcing labor
demands.
INCREASE IN NUMBER OF FEMALE MEMBERS OF FREE TRADE-UNIONS.1
The Gewerkschaftliche Frauenzeitung reports that the effect of
trade-union propaganda among gainfully employed women and girls
is that the female membership of the free trade-unions is now
larger than at the outbreak of the war. On March 30,1917, the female
membership was 226,105, as compared with 221,071 on June 30, 1914.
These figures are, however, still much below the average membership
for 1913, which was 280,347. The female membership was lowest on
December 31. 1915. Since then a slow upward movement has set in.
The above figures for March, 1917, are, however, not very grati
fying, if the large increase in the number of female workers employed
in industry is considered. The last enumeration showed that in
19 organizations the female membership is even now smaller than
before the outbreak of the war, while only 15 organizations have an
increased female membership. Decreases in membership, however,
are, as a rule, due to economic difficulties. This is especially true
with respect to the organization of textile workers, which lias lost
12,321 female members.
The above-quoted labor paper is of the opinion that the number
of organized female workers could be much larger, and explains their
relatively small number by the fact that in the first place it is very
hard to induce women to join a labor organization, and, secondly,
that few of those who do join maintain permanent membership. The
latter assertion is borne out by the fact that the number of newly
joining female members is much larger than the increase of female
memberships shown by the last enumeration.
The metal workers’ organization has experienced the largest
increase in female membership, 2,039 new female members having
joined the organization. In the tailors’ organization the increase of
the female membership was very small, notwithstanding the fact
that the badly regulated working conditions of the trade make
organization more necessary than in other trades. The last enumera
tion showed for the first time a female membership in the miners’
federation, although a very small one, 334 female workers having
joined.
1 B rem er B iirger-Z eitung.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
137
THE FEDERATION OF BUILDING TRADE WORKERS DURING 1916,
Like the metal and leather industry, the building trades have
entirely assumed the character of a war industry. Private building
activity has been restricted since the outbreak of the war, and during
1016 it has come to an entire standstill, with the exception of insig
nificant repair work. In its place large building operations for the
war industry are in progress in the entire country, some of them
employing 1,000 or more workmen. All builcling-trade workers who
were not called into military service found employment in these
building operations, and consequently there has been practically no
unemployment.
The favorable condition of the labor market has, however, not been
able to prevent a further decrease of the capital of the Federation
of Building-trade Workers. Continuing conscription of members
for service in the armed forces has made great inroads in the mem
bership of the federation, notwithstanding the fact that 23,677 new
members joined the organization during 1916. At the end of 1915
the membership of the federation was 82,983, and decreased up to the
end of 1916 to 72,948.
The receipts of the federation during 1916 amounted to 3,522,097
marks ($838,259.09) and the expenditures to 4,677,495 marks ($1,113,243.81). A total of 2,966.434 marks ($706,011.29) was disbursed
for benefits, of which subsidies to families of members in war service,
amounting to 2,123,885 marks ($505,484.63), formed the largest item,
while the remainder was expended for sickness and traveling bene
fits. The administration of local unions cost 1,003,529 marks ($238,839.90) and that, of the central organization 140,646 marks ($33,473.75). At the end of 1916 the total capital of the federation
amounted to 15,724,123 marks ($3,742,341.27). It decreased 1,137,570
marks ($270,741.66) during the year under review.
Collective agreements were concluded extensively in the building
trades. A special collective agreement was concluded for the recon
struction district in East Prussia which had been invaded by the
Russian army, which increased all wages 25 pfennigs (6 cents)
and more per hour. It established hourly wages of 85 pfennigs
(20.2 cents) for masons and up to 20 pfennigs (4.8 cents) less
for the various kinds of helpers, and provided for reimbursement
of traveling costs. In addition, it contained special agreements as
to housing and board, and medical treatment in case of accident or
sickness. The movement for a general collective agreement was
initiated by an invitation by the Imperial Department of the Inte
rior to a conference. This conference ended with the renewal of the
national and local agreements expiring on March 31, 1916, and the
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
granting of a liigh cost of living bonus of from T to 11 pfennigs
(1.7 to 2.6 cents) per hour. Similar bonuses were stipulated for the
auxiliary trades such as tile layers, stucco workers, etc.
GENERAL MEETING OF THE FEDERATION OF BREWERY AND FLOUR MILL
WORKERS.1
In submitting to the general meeting of the Federation of Brewery
and Flour Mill Workers his report for the second quarter of 1917,
the president of this federation made the following statement:
As a result of tlie legal restriction of the production of beer the situation of
the brewing industry continues to be as unfavorable as in the first quarter of
tlie present year. It also seems doubtful whether the supply of grain to the
breweries will improve after the new harvest. In several localities the brew
eries have combined for purposes of operation. Whether this will also be done
in Berlin has not yet been decided. So far, brewery workers in Berlin have
not reported any unemployment.
The federation has made repeated efforts to obtain an increase of
the high cost of living bonus from the brewers’ association. At first
these efforts were unsuccessful because the brewers’ association de
clared that the present beer prices did not permit the granting of
wage increases. The federation, however, continued its efforts in
this respect and finally obtained an increase of the high cost of living
bonus of married workers from 12.50 to 20 marks ($2.98 to $4.76), of
single workers from 11 to 18.50 marks ($2.62 to $4.40), and of female
workers from 6 to 12 marks ($1.43 to $2.86). The bonus for overtime
work was increased from 25 to 37 pfennigs (6 to. 8.8 cents) per hour.
These increases became effective on August 10. The federation will
make efforts to obtain like increases from breweries not affiliated with
the brewers’ association.
Idie mill workers of the Victoria Mill have demanded an increase
of the wage and overtime rates. Their demands were in part granted.
In consideration of the fact that during the last three years the work
ers of the mill were not allowed their contractual annual leave the
mill agreed to compensate them for this loss of leave.
The general meeting voted unanimously that an extra weekly con
tribution of 10 pfennigs (2.4 cents) shall be collected from all
contributory classes beginning with the fortieth contributory week.
The president of the federation explained that such an increase of
the contributions had become imperative, because during the present
war the federation not only had not reduced its benefits, as many
other trade organizations had done, but in some instances had even
introduced new benefits. As the war had caused a considerable
decrease of the membership and consequently of the revenues of the
1 V orw ärts.
V erband der B rauerei- und M ühlenarbeiter.
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M O N T H L Y R E V IE W OF T H E B U R E A U O F LABOR S T A T IS T IC S .
139
federation, the increase of the weekly contributions became abso
lutely necessary if the financial strength of the federation was to be
maintained.
REPORT OF THE FEDERATION OF LEATHER WORKERS FOR THE YEAR 1916.1
According to its annual report for the year 1916, the Federation of
Leather Workers at the beginning of 1916 had 12,900 male members
(inclusive of members in military service) and 1,745 female members,
or a total membership of 14,645. The membership movement of the
federation continued to be unfavorably influenced by the long dura
tion of the war and the extensive conscription of members for
military service. Inclusive of members conscripted for military
service, the federation lost 3,060 members during the year under
review, while the number of newly acquired members was only 1,146.
At the close of 1916 the total membership of the federation was
14,631 (inclusive of members in military service), of which 12,895
were male members and 1,736 were female members.
Unemployment in the glove industry and in the tawing and
tanning trade has considerably decreased as compared with the pre
ceding year. Temporary unemployment of female workers was,
however, reported in some instances.
During the. year under review 88 wage disputes were reported to
the federation by local unions; 86 of these were peacefully terminated,
while 2 ended in strikes. As a rule the workers obtained grants of
high cost of living bonuses. In most instances, however, these bo
nuses were insufficient to offset the greatly increased cost of all neces
sities. A total of 2,252 workers participated in the above wage dis
putes, which covered 80 localities and 220 establishments. Wage in
creases amounting to 11,695 marks ($2,783.41) per week were obtained
for 3,967 workers, and shorter hours of labor for 50 workers.
During 1915 no new collective agreements were concluded, those
expiring being extended. In 1916 a total of 11 new collective agree
ments covering 28 establishments and 325 workers were concluded,
while 36 agreements covering 68 establishments and 1,363 workers
were either discontinued by notice or expired without being renewed.
At the end of 1916 a total of 86 agreements covering 296 establish
ments with 7,456 workers were in force.
The numerous conscriptions of members for military service have had
a very unfavorable effect upon the finances of the federation. The
total net revenues in 1916 amounted to only 206,109 marks ($49,053.94). The decrease in receipts was partly offset by a decrease
in disbursements from 220,729 marks ($52,533.50) in 1915 to 198,618
marks ($47,271.08) in 1916. For subsidies to families of members
1 V o rw ärts.
D er L ed era rb eiterv erb an d im J a h re 1916.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
in war service the federation paid out 32,668 marks ($7,774.98)
during 1916. Since the outbreak of the war, according to the report,
the sum of 105,283 marks ($25,057.35) has been disbursed for such
family subsidies. The net capital of the federation has increased
during the year from 217,666 marks ($51,804.51) to 225,246 marks
($53,608.55).
MEMBERSHIP OF AUSTRIAN TRADE-UNIONS DURING THE WAR.1
The “ Gewerkscliaft,” the official organ of the Austrian Tradeunion Commission ( Gewerkschaftshommission) , in a recent issue
discussed the trade-union movement of Austria during the war. The
first year of the war (1914) brought the largest loss of membership
to the Austrian trade-unions. During the second year of the war
(1915) the decrease in membership became less marked, and during
the third year (1916) the loss of male members was much less than
the number of members conscripted for military service during the
same year, while the female membership experienced an increase.
These facts are illustrated by the following table :
M EM BERSHIP OF AUSTRIAN TRADE-UNIONS, 1913 TO 1916, BY SEX.
Membership.
Membership.
Year.
Year.
Males. Females. Total.
1913................................. 3~2.216
1911................................. 210,421
42,959 415,195
30, 260 2-tO, 681
7-------Males. Females. Total.
1915................................. 151.424
1916................................. 138,789
25,689
28,148
177,113
166,937
As a result of the amalgamation of the federation of flour mill
workers with that of the brewery workers, and of the- liquidation of
the federations of the brickmakers, umbrella makers, and paper-box
makers, the number of central federations has been reduced from 52
to 48. The number of independent local unions has fallen from 22 to
21. The number of local unions affiliated with central federations
decreased from 2,665 in 1915 to 2.346 in 1916.
SIXTH CONGRESS OF THE HUNGARIAN TRADE-UNIONS.2
On August 19 and 20, 1917, the trade-unions of Hungary held
1heir sixth congress in Budapest. The congress ought to have con
vened three years ago, but its convention had heen deferred on ac
count Of the war.
After receiving the report of the secretary of the central organiza
tion the congress devoted most of its time to discussion of the great
1 B rem er B ürger-Z eitung.
2 B rem er B ürger-Z eitung.
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B rem en, Aug. 30. 1917.
B rem en, Sept. 3, 1917.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
141
problems of the period of transition from a war to a peace régime.
Several speakers stated that all the belligerent countries had granted
to organized labor a consulting voice in economic problems arising
from the war while the Hungarian Government had steadily ignored
the working people in the formation of economic advisory councils.
The congress adopted a program with respect to the period of transi
tion from war to peace which included the following four demands
of labor: (1) Payment of subsidies to all discharged soldiers until
they obtain regular employment; (2) the procuring of raw materials
by the Government ; (3) the building of workmen’s dwellings by the
Government, such action having become necessary on account of the
standstill of building activities during the war; and (4) immediate
inauguration after conclusion of peace of extensive public works.
This program was submitted to the Trade-union Council for further
supplementation and revision.
The report of the secretary shows that the -first two years of the
war caused large decreases in the membership of the trade-unions.
In 1914 the unions lost 55,976 members, or 52.07 per cent of the total
membership. A further loss of 8,129 members took place during
1915. For 1916, however, the organizations report an increase of
membership by 11.957 members. The secretary states that in the
present year the membership continues to grow at the same rate as
before the outbreak of the war. Even workmen in Government
establishments are now joining the trade-union movement, and a con
siderable number of new members have been recruited in provincial
towns where formerly the trade-unions had never been able to gain
a footing. The iron and metal workers’ organizations alone in
creased their membership by 20,000 members during half the year,
and thousands of miners have joined the miners’ organization. As
the result of the recent rapid increase of membership the number of
organized workers in Hungary is now in round numbers 100,000.
The report of the secretary makes it evident that the activities of
the trade-unions have by no means been restricted to the acquisition
of new members, but that the unions have been very active in safe
guarding the general interests of labor. They have intervened in the
conclusion of numerous collective agreements, submitted several
memoranda to the Government, and spent several hundred thousand
crowns for the aid of families of members conscripted for military
service, most of whom were in great distress, as the Hungarian Gov
ernment has been less generous to the families of its soldiers than
have the governments of other belligerent countries. The secretary
in his report regrets the fact that so far organized labor has been
unable to obtain the enactment of a law regulating the right of asso
ciation and of the holding of meetings. In Hungary it is at present
2.1413°—17-
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
left to the arbitrary will of the authorities to permit or prohibit the
formation of associations and the h o l d i n g of meetings.
The increased demands which the development of the trade-unions
have made on the Trade-union Council, the central organization, led
to a motion that the contribution of the members to the central organ
ization be increased. The congress adopted a resolution fixing the
contribution to the Trade-union Council at 12 hellers (2.4 cents) per
member per quarter.
LABOR ORGANIZATIONS IN AUSTRALIA.
The general situation in regard to the trade-union movement in
Australia at the present time and its development since the year
1906 are set forth in report No. 7, issued in June, 1917, by the labor
and industrial branch of the Australian Bureau of Census and Sta
tistics.1 This report shows that there were 705 unions in 1916, more
than twice as many as in 1906, with a total membership of 546,556,
or an increase of approximately 211 per cent over the estimated total
membership of all unions in 1906. The increase in membership in
1916 over 1915 was 18,525, or 3.5 per cent.2
The following table gives the number and the membership of tradeunions in Australia at the end of each year, 1906 to 1916, except
1907, the membership at the end of the years 1906, 1908, 1909, 1910,
and 1911 being estimated, since reports were not received from all
unions.
NUMBER AND MEM BERSHIP OF TRADE-UNIONS IN AUSTRALIA AT TH E END OF
EACH YEAR 1906 TO 1916 (EX C EPT 1907), AND PERCENTAGE OF INCREASE EACH
YEAR.
Item.
1906
1908
1909
1910
1911
1912
1913
19141
19151
19161
302
419
482
573
621
712
378
710
705
Number of unions............
713
Membership...................... 2175,529 2240,475 2273,461 2302,119 2364,732 433,224 497,925 523,271 528,031 546,556
Percentage of increase
13.7
10.5
20.7
18.8
14.9
5.1
0.9
over preceding y ear....
3.5
1Members of trade-unions who had joined the expeditionary forces at the end of this year are not
included in the membership.
2Estim ated membership, since reports were not received from all unions.
Of the 546,556 members at the’ end of 1916, 506,981, or 92.7 per
cent, were males and 39,575, or 7.3 per cent, were females. In 1912
and 1913 the male membership was 95.9 per cent and the female mem
bership 4.1 per cent of the total union membership. In 1914 the per1 A u stralia. B u reau of Census an d S ta tistic s , L ab o u r an d In d u s tria l B ranch, R eport
No. 7. P rices, p u rch asin g pow er of money, w ages, trad e-u n io n s, unem ploym ent, and
g en eral in d u stria l conditions, 1916. M elbourne, 1917. pp. 339-346.
2 M em bers of trad e-u n io n s w ho h ad joined th e ex p ed itio n ary forces a t th e end of 1915
an d 1916 a re n o t included in th e m em bership of these years.
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143
centages were 95.7 and 4.3, and in 1915, 94.5 and 5.5. The following
table shows the number of unions and the membership by industrial
groups in December, 1916:
NUM BER AND M E M B E R S H IP OF TRA DE-UNIONS IN AU STRA LIA , BY IN D U S
T R IA L GROUPS, D ECEM BER, 1910.
Industrial group.
Number
of unions.
Wood, furniture, etc.............................
Engineering, metal works, etc............
Foods, drink, tobacco, etc...................
Clothing, hats, boots, etc.....................
Books, printing, e tc............................
Other manufacturing...........................
Building................................................
Mining, quarries, etc............................
Railway and tramway services...........
Other land transport........................
Shipping, e tc .....................................
Pastoral, agricultural, e tc ....................
Domestic, hotels, e tc ......................
Miscellaneous.................................
Total.........................................
Number of
members.
20
70
69
28
29
78
63
20
28
23
65
10
?.?.
168
i 13,020
49,230
41,515
i 23,938
11,079
32,119
36,255
33,515
75,896
15,719
45, 868
37,679
9,907
117,050
705
546,556
1 Incom plete, re p o rts from some S ta te s n o t being available.
An interesting feature of the report is a table showing the number
of male and female members of trade-unions, the estimated total num
ber of employees of each sex 20 years of age and over in al! profes
sions, trades, and occupations, and the percentage the former is of
the latter. It should be pointed out that the estimated total number
of employees comprises all persons (over the age specified) in receipt
of wages or salary, as well as those unemployed; the estimate there
fore includes a large number of adults who are either not eligible at
all for membership in any trade-union (such as certain persons em
ployed in professional occupations) or who, while eligible for mem
bership in so far as the nature of their trade or occupation is con
cerned, do not reside in a locality which is covered by any union em
bracing their particular trade or occupation. It is also proper to
observe that the age at which persons are eligible for membership
varies in different unions. The census results are classified in quin
quennial age groups, and the sum of those in the groups 20 years of
age and over is taken, since their average age more closely approxi
mates the average age of admission to membership than if those in
other groups were included. The table referred to is as follows:
Item.
Males.
Number of members of unions................................
Estim ated total number oi employees 20 years of age and over.
Percentage of members on estimated total number of employees
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920! 686
55.0
Females.
229,118
17.2
WORKMEN’S COMPENSATION.
TENDENCIES IN WORKMEN’S COMPENSATION LEGISLATION IN
THE UNITED STATES.1
BY CARL H O O K ST A D T .
Certain provisions of workmen’s compensation laws are more
susceptible of change and revision than others. The scope of the
acts and the partial disability schedules, for example, have under
gone very little change since their initial enactment, while the wait
ing period and particularly the requirements as to medical service are
in a constant state of flux. Compensation commissioners are not
always familiar with the experience and results of compensation
laws in other States.2 This unfamiliarity, together with the human
proneness to overvalue those things to which one has been accustomed,
has led many of the commissions not only to prefer their own type
of law but to consider it superior to all others. These facts are of
especial importance, therefore, to States having under consideration
the adoption of a compensation law. The following summary shows
some of the more important statutory changes which have occurred
in the 35 States and Territories having workmen’s compensation ex
perience.3 A large majority of these changes were enacted this year.
COM PENSATION
AND INSURANCE
SYSTEMS.
There has been considerable dissatisfaction with the elective fea
ture of compensation laws. A large proportion of employers in
many of the 26 States having such elective laws have refused to
accept the compensation provisions, thus depriving their employees
of the benefits of this legislation. Notwithstanding this fact and also
the fact that several compensation commissions have recommended a
change from the elective to the compulsory system, only one (Illi
nois) of the 26 elective compensation States has substituted the com
pulsory for the elective system. On the other hand, of the eight
States in which employers were not required to insure, four (Cali
fornia, Illinois, Nebraska, and New Jersey) changed to a compulsory
1 Section of a fo rth co m in g bu lletin on com parison of w orkm en’s com pensation law s.
2 T he w ord S ta te s in th is a rtic le includes H aw aii an d P o rto Rico w here applicable.
s T he five S ta te s w hich enacted com pensation law s in 1917 h ave n o t been tak en into
acco u n t in th e follow ing analysis.
144
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insurance system. No State lias established a State insurance fund
which was not provided for in the original compensation act nor has
any State abolished such a State fund after its establishment.
'
"
SCOPE.
The scope of the various acts, i. e., the employments covered, has
on the whole remained quite stationary. None of the States which
originally excluded agriculture, domestic service, or nonhazardous
industries has later included such employments, although several
laws in which only enumerated hazardous employments were covered
have added a few minor employments to enumerated statutory lists.
Among these were the inclusion, in New York, of hotels having 50 or
more rooms and the repeal of the provision in Texas exempting cot
ton ginning. Two States (Oregon and Rhode Island) subsequently
included public employees after having made no provision therefor
in the original acts. In one particular, however, the scope of the
compensation acts has been considerably increased. Seventeen States
originally exempted employers having less than a stipulated number
of employees. Of these, three States (Texas, Wisconsin, and
Wyoming) have reduced the number of employees, and two States
(Nebraska and Nevada) have abolished the numerical exemption
provision altogether. Many of the States originally exempted casual
employments, but there is a tendency to abolish this exemption. Of
the 13,500,000 employees1 covered by the 35 State compensation laws
approximately 200,000, or less than 2 per cent, have been added sub
sequent to the initial enactment of the laws.
W A IT IN G PER IO D .
The waiting period has been changed in 12 States, two (California
and Connecticut) having made two successive changes. Of these, 10
States2 reduced the waiting period; one State (California) first in
creased its waiting period from one week to two weeks and then re
duced it 10 days; and one (Washington) increased the period from
W days to 8 days. In addition, several States have abolished the
waiting period entirely in certain cases. Of these, six States
(Louisiana, Nebraska, New York, Rhode Island, Washington, and
Wyoming) abolished the waiting period if the disability exceeds
stated periods, while Hawaii abolished the waiting time in partial
disability injuries.
1 T hese figures are com puted from the U. S. Census of O ccupations of 1010 ; fo r more
detailed in fo rm atio n see B u lletin No. 203 of th e U. S. B ureau of L abor S ta tistic s, pp.
04 to 72.
- F rom tw o w eeks to one week, C onnecticut, H aw aii, In d ia n a , K ansas; L ouisiana, M inne
sota, N evada, an d V erm ont ; from tw o weeks to ten days, M a ssach u setts ; from th ree weeks
to tw o weeks, Colorado.
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COM PENSATION SCALE.
Some of the factors entering into the compensation scale have re
mained quite rigid while others have been relatively more susceptible
to change. In practically all of the States the compensation pay
ments are based upon the wages of the injured employee, ranging*'
generally from 50 to 66§ per cent. Only six States have increased
their original percentages. Of these, Massachusetts and Nebraska
increased the scale from 50 to 66§ per cent; Kansas and Minnesota
from 50 to GOper cent; and Illinois and Nevada made minor increases
in certain cases. Eight States1 increased their weekly maximum
compensation limits. Eight States also increased the period during
which compensation shall be paid. Of these, four (Massachusetts,
Nebraska, Nevada, and Ohio) increased the period in case of death;
six (Maryland, Minnesota, Nebraska, Nevada, Texas, and Wiscon
sin ) in case of total disability ; and two (Massachusetts and Nevada)
in case of partial disability. However, probably the most inelastic
factor of the compensation scale is the schedule for permanent par
tial disability. Of the 28 States having such schedules only two
(Washington and Wisconsin) have materially increased the com
pensation periods or amounts; one (Wyoming) has slightly increased
the amounts in individual cases; while one (Nebraska) has reduced
the periods considerably. Hawaii and Nebraska have materially
enlarged the list of injuries in the schedule without increasing the
in certain cases. Eight States1 increased their weekly maximum
In addition, Texas increased its schedule substantially both as to
list of injuries and compensation periods, but it also amended its law
by providing that payments under such schedule shall be in lieu of
all other payments, instead of in addition to all other compensation
as formerly.
MEDICAL SERVICE.
The provisions as to medical service have undergone greater
change than any other feature of the workmen’s compensation laws.
Sixteen States2 have increased the medical service originally pro
vided, either as to maximum amounts or length of time during which
such medical service is to be furnished. In California, Connecticut,
and Porto Bico the maximum limit has been abolished entirely, and
employers must provide medical attendance as long as reasonably
necessary. Most of these increases were provided for by laws passed
this year. States legislatures and compensation commissions seem at
last to realize the fact that adequate medical and hospital service is
1 C onnecticut, Illin o is, Iow a, M a ssach u setts, M innesota, N ebraska, N evada, and W est
V irginia.
2 C alifo rn ia, C onnecticut H aw aii, Iow a, K an sas, L ouisiana, M assach u setts. N ebraska,
N evada, Ohio, P o rto Rico, Rhode Islan d , T exas, V erm ont, W ash in g to n , an d W isconsin.
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absolutely essential for the complete economic rehabilitation of in• jured workmen. There is also a tendency toward closer State super
vision over the quality of the medical service furnished bv employers.
A number of States this year authorized compensation commissions to
approve or supervise hospitals and benefit funds maintained by em
ployers. There is also a trend toward allowing the injured employee
to select his own physician. For the first time in the history of the
compensation legislation in this country employees were specifically
given this right this year, four States (Illinois, Massachusetts, Rhode
Island, and Washington) amending their laws to that effect.
A D M IN ISTR A TIV E SYSTEM.
Nebraska is the only State which has changed its system of admin
istration, the former method of administration by the courts having
been replaced by one by a compensation commissioner. The De
partment of Labor of New Jersey has been given limited adminis
trative supervision over the act in that State, and Massachusetts has
abolished the arbitration committee system.
SECTIONAL VARIATIONS.
A cursory review of the workmen’s compensation laws of the sev
eral States brings out three significant facts. One is the absence of
these laws in the Southern States, North Dakota being the only one
of the remaining 111 noncompensation States not in this section of
the country; another is the refusal of most States to be guided by
the experience of other States; and a third fact is the inclination of
the far Western States to strike out along new lines, as shown by the
following facts :
The only States which have established monopolistic State insur
ance systems are Nevada, Oregon, Porto Rico, Washington and
Wyoming. The only States (Oregon, Washington and Wyo
ming) which have established pension systems, the amounts pre
sumably based upon the need of the workman or his dependents
rather than upon loss of earning power, are in the far West. Wash
ington is the first and only State providing for the administration of
medical service through local medical aid boards, patterned after
the German system. The only laws2 which provide for the main
tenance of hospital benefit funds to which the employee is required
to contribute his proportionate share have been enacted by far West
ern States. Of the three States in which the administrative com
missions are authorized and have formulated elaborate schedules for
permanent partial disabilities based as far as possible upon the
1 N ot co u n tin g th e D istric t of Colum bia.
2 Id ah o , M ontana, N evada, U tah , an d W ashington.
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loss of earning power, two (California and Washington) are
in the far West, And of the seven States providing a penalty in *
ease the employer charges part of the compensation cost against his
employees, six1 are in the West.
One regrettable fact in connection with the enactment of work
men’s compensation legislation, as already noted, is the disinclination
of most States to be guided by the experience developed under the
laws of other States. The type of law, including scope, compensa
tion scale, administrative system, etc., usually adopted by a State is
determined generally by two factors—contiguity and the economic
and political progressiveness of the State. An examination of the
five State compensation laws passed in 1017 shows that these two
factors were most influential in determining the type of law enacted.
The far Western States especially have been inclined to pattern their
laws after those adopted by contiguous States, due in part to the
fact that owing to the great distances investigating commissions and
others responsible for the enactment of the laws have found it inex
pedient to acquaint themselves with the experience of the Eastern
States by personal investigation. Eventually, no doubt, all of the
States will adopt those compensation laws which shall have been
empirically proved to be the best, but apparently it is necessary for
each State to attain this through its own experience.
■ actu al
CONFLICTS OF JURISDICTION OYER INDUSTRIAL ACCIDENTS
BETWEEN FEDERAL AND STATE AUTHORITIES.
Report giving tlie genesis and activities of the Committee on Jurisdictional
Conflicts of the I. A. I. A. B. C.
THE
GENERAL
SITU A TIO N .
The Federal Government has. sole jurisdiction over maritime mat
ters. In spite of this fact, some compensation commissions and State
courts extended the compensation provisions of their laws to em
ployees engaged in maritime pursuits. The extension of State com
pensation laws over this field was held to be unconstitutional by the
United States Supreme Court' in two admiralty cases arising in
New York, namely, the Southern Pacific Co. v. Jensen and the Clyde
Steamship Co. v. Walker. These decisions deprived not only bona
fide seamen of any right to workmen’s compensation under State
laws but also'longshoremen, stevedores, and all engaged in loading
and unloading cargoes and repairing vessels as well.
Before the enactment of the Federal employers’ liability law of
1908, amended 1910, railroad employees injured in the course of
1 N evada, Oregon, T exas, U tah, W ashington, and W isconsin.
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employment could recover damages only under the common law,
modified in some States by statute enactment. The act above referred
to, by taking from the railroads the common-law defenses in cases
of injury to employees engaged in interstate commerce, was a great
step in advance. This act, however, left without remedy all em
ployees engaged in interstate commerce who were injured in the
course of their employment through no fault of the employing rail
road. It, of course, did not apply to employees engaged solely in
intrastate commerce. These latter employees are now included under
the compensation laws in most of the States having such laws.
Prior to May, 1917, the compensation commissions and courts in
several States had held that in cases of injuries due to no negligence
on the part of the employing railroa'd the injured employee had a
right to claim compensation under the State law, even though he
were engaged in interstate commerce. The Supreme Court, in its
decisions of May 21. 1917, in the case of the New York Central Co.
v. Winfield and in the case of the Erie Railroad Co. v. Winfield,
held that such an extension of the State compensation laws into the
field of interstate commerce is unconstitutional. These decisions
work great hardship, in that they block the way to any recovery to
workmen engaged in interstate commerce who are injured through
no fault of the employing railroad.
The conflicts in jurisdiction between the Federal authority, on the
one hand, and the State authorities, on the other hand, have long
been recognized. Mr. A. J. Pillsbury, chairman of the Industrial
Accident Commission of California, discussed these conflicts before
the Third Annual Conference of the International Association of In
dustrial Accident Boards and Commissions, at Columbus, Ohio,
April, 1916. He proposed as a solution that the Federal Congress
enact a law abrogating the Federal Employers’ Liability Act in those
States having workmen’s compensation laws covering railroad em
ployees. These conflicts in jurisdiction were made more conflicting
and the need for some remedy made still more imperative by the
decisions of the Supreme Court of May 21, 1917, above alluded to.
The subject was again presented in a paper prepared by Mr. Pills
bury at the fourth annual meeting of the International Associa
tion of Industrial Accident Boards and Commissions, which was
held in Boston. Mass., in August, 1917. Mr. John Mitchell, chairman
of the New York State Industrial Commission, in discussing the re
sults of the Jensen case, the Walker case, and New York Central Co.
r. Winfield, brought out the urgent necessity of immediate action to
relieve the serious situation, especially in reference to longshoremen
and those engaged in loading, unloading, and repairing vessels.
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L
As a result of this discussion the conference passed the following
resolution:
R e s o l v e d . That in accordance with the recommendations of Chairman A. .T.
Pillsbury, of the Industrial Accident Commission of the State of California,
and Chairman John Mitchell, of the Industrial Commission of the State of
New York, a committee of three, to consist of Royal Meeker, A. ,T. Pillsbury,
and John Mitchell, be appointed to meet in Washington, D. C., at the earliest
possible date, for the purpose of formulating and promoting legislation for
eliminating conflicts in jurisdiction between Federal and State authorities in
cases involving injuries occurring in transportation by railroad or water, or in
the loading and unloading of cargoes, or kindred occupations.
A D M I R A L T Y AND M A R I T I M E J U R I S D I C T I O N ,
The matter which first required the attention of the Committee on
Jurisdictional Conflicts was the serious situation affecting the long
shoremen of the port of New York City. These workmen or their
surviving families had been receiving compensation under the New
York State workmen’s compensation law. The decision of the
United States Supreme Court, which declared that the longshoremen
were under the jurisdiction of the admiralty courts of the United
States, cut off compensation benefits from these people just at the
time when the work of handling cargoes was of first importance to
the proper conduct of the war. Prompt relief was necessary if
labor troubles were to be averted and the needed force of longshore
men kept at work. The situation at other ports was only less critical
because of the smaller amounts of tonnage entering and clearing.
To consider the best ways of meeting the crisis, the Committee on
Jurisdictional Conflicts met for the first time on September 12, 1917,
in the office of the Commissioner of Labor Statistics, Washington,
D. C.
Those present were: Koval Meeker, United States Commissioner of
Labor Statistics; John Mitchell, chairman of the New York State
Industrial Commission (of the I. A. I. A. B. C. Committee on Juris
dictional Conflicts).
John B. Andrews, secretary of the American Association for Labor
Legislation, was present by invitation as an adviser.
At this meeting the general lines of legislation to remedy the situa
tion in respect to those engaged in loading, unloading, and repairing
vessels were agreed upon. The committee visited Hon. Hiram W.
Johnson, of the United States Senate, and Hon. Warren Gard, of the
United States House of Representatives, and arranged for the intro
duction of amendments to the Judicial Code intended to effect the
result desired as soon as such amendments could be prepared. Ac
cordingly, these amendments were prepared and introduced simul
taneously in the House and the Senate. The sections of the Judicial
Code with the amendments italicized are given below:
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Clause 3, section 2'/.
Third. Of all civil causes of admiralty and maritime jurisdiction, saving to
suitors in all cases the right of a common-law
remedy where the commonlaw
is competent to give it, and to claimants the
rights and remedies under the
workmen's compensation law of any S ta t e ; of all seizures on land or waters
not within admiralty and maritime jurisdiction; of all prizes brought into the
United States; and of all proceedings for the condemnation of property taken
as prize.
Clause 3, section 256.
Third. Of all civil causes of admiralty and maritime jurisdiction, saving to
suitors in all cases the right of a common-law
remedy where the commonlaw
is competent to give it, and to claimants the
rights and remedies under the
w orkm en’s compensation laic of any State.
The amendments were passed without debate in the Senate October
9, 1917, and in the House October 5. The bill was signed by the
President October 6, 1917, and became a law at once. These amend
ments give to those engaged in the loading, unloading, and repairing
of vessels the right to accept compensation under State law' in addi
tion to the right already possessed by them of suing for damages
under the common law. This remedy is admittedly not a complete
one, in that it gives no right of compensation for injuries received
through no fault of the employer to citizens or those coming under
the jurisdiction of States having no workmen’s compensation laws.
The only remedy open to those injured in loading, unloading, and
repairing vessels in these States is the extremely inadequate and
uncertain remedy afforded by the admiralty law or the common law.
The Supreme Court decisions which deprived these employees of the
compensation rights they had come to believe were unquestionably
theirs precipitated an emergency, especially among the longshoremen
of New York City and vicinity, which required quick action. #The
legislation amending the Judicial Code seemed the only relief pos
sible to obtain in the closing week of the crowded extraordinary
session of Congress.
IN TERSTA TE
C O M M E R C E B Y R A IL R O A D .
The second conference of the Committee on Jurisdictional Con
flicts was held in the office of Mr. John Mitchell, chairman of the
New York State Industrial Commission, New York City, on the
morning and afternoon of October 15 and the afternoon of October
16. 1917.
Those present were: Royal Meeker, United States Commissioner
of Labor Statistics; John Mitchell, chairman New York State In
dustrial Commission; A. J. Pillsbury, chairman California Indus
trial Accident Commission (members of the Committee on Jurisdie
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tional Conflicts). Robert W. Bonynge, chief counsel New York
State Industrial Commission; John B. Andrews, secretary American
Association for Labor Legislation; N. T. Dowling, of the Legisla
tive Reference Bureau of Columbia University, New York (advisers
to the Committee on Jurisdictional Conflicts).
A discussion was held as to the advisability of the Federal Con
gress enacting a law abrogating the federal employers’ liability
law in those States which have compensation laws which measure
up to a certain standard of adequacy. Mr. Pillsbury recommended
as a tentative standard of adequacy 60 per cent of the compensation
schedule provided under the United States employees’ compensation
law. It was generally agreed that this standard is inadequate. Mr.
Mitchell and Mr. Meeker felt that legislation of the kind suggested
w is not the most desirable solution. Therefore the question of the
advisability and feasibility of the enactment of a Federal workmen’s
compensation law which would cover all interstate employees was
taken up and discussed fully.
The question of the kind of administrative machinery which
should be provided in case a Federal compensation law should be
enacted was also discussed. Mr. Pillsbury advocated administration
by State compensation commissions or other State authorities em
powered to administer the State compensation laws, while Mr.
Mitchell and Mr. Meeker were inclined to favor the creation of
Federal administrative machinery.
. It was agreed by all the members of the Committee on Jurisdic
tional Conflicts that before a decision could be reached as to the
kind of bill to be advocated there must be a conference with repre
sentatives of the steam railroads, the railroad brotherhoods, the
American Electric Railway Association, and the Amalgamated As
sociation of Street and Electric Railway Employees of America.
The committee accordingly authorized the chairman to communicate
with the representatives of these organizations and arrange for a
meeting in the early part of the week beginning October 22, 1917.
C O N F E R E N C E OF C O M M I T T E E ON J U R I S D I C T I O N A L C O N F L IC T S , I. A. I. A. B. C.,
W I T H R E P R E S E N T A T IV E S OF STEAM R A IL W A Y S , R A ILR O A D B RO T H ER H O O D S,
A N D A M E R I C A N E L E C T R I C R A I L W A Y A S S O C IA T IO N , OCT. 22 A N D 23, 1917,
W A S H I N G T O N , D, C.
First session, October 22.
The meeting was to have convened at 10 a. m., but owing to the
lateness of trains was not called to order until about 11 a. m.
Those present were : Royal Meeker, United States Commissioner
of Labor Statistics; A. J. Pillsbury, chairman, California Industrial
Accident Commission (of the I. A. I. A. B. C. Committee on Juris-
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dictional Conflicts) : Alfred P. Thom, general counsel Railway Exec
utives’ Advisory Committee; A. R. Garretson, president Order of
Railway Conductors; P. J. McNamara, legislative representative
Brotherhood of Locomotive Firemen and Enginemen; D. L. Cease,
representing Brotherhood of Railroad Trainmen; W. N. Doak, legis
lative representative Brotherhood of Railroad Trainmen; John N.
Shanahan, representing American Electric Railway Association;
John B. Andrews, secretary American Association for Labor Legis
lation; L. D. Clark, expert, United States Bureau of Labor Statistics.
After some preliminary discussion the chairman asked the repre
sentatives of all the organizations represented in the conference to
indicate the attitude of their respective organizations toward legis
lation to correct the existing confusion and conflicts in jurisdiction
as between the Federal Government on the one hand and the various
State governments on the other hand in the fields of industrial acci
dent liability and workmen’s compensation.
It appeared from the statements made by Mr. D. L. Cease, Mr. P. J.
McNamara, and Mr. A. B. Garretson—
That the Railway Trainmen have taken the position of opposing
compensation legislation of any kind;
That the Locomotive Firemen and Enginemen have given discre
tionary powers to the president of their organization;
That the Order of Railway Conductors has taken the position of
favoring compensation of the elective type, giving the injured work
man a choice between remedy under the Federal employers’ liability
law and award under his State compensation law.
It was stated that the locomotive engineers had taken a position
favoring a Federal compensation law to cover railway employees.
Col. Thom said that the railroads were united in favoring a Fed
eral compensation law to cover all railway employees in all depart
ments on all roads carrying any interstate business. He said further
that this F ederal compensation law should be “ administered lo
cally ” ; that is, by State authorities named in the act or to be desig
nated by the proper Federal authority. This local administration he
deemed essential in order to prevent delays and to prevent the crea
tion of unnecessary duplicating machinery, and, as a consequence, to
reduce the expense of administration so that the injured workman
would receive as nearly as-possible the amount awarded as compensa
tion.
The railway brotherhoods can not reconsider the action taken by
them in regard to workmen’s compensation until their supreme bodies
meet again, which will not be until May, 1919, and June, 1919.
Mr. Shanahan stated that the American Electric Railway Associa
tion was favorable to compensation legislation. In view of the fact,
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however, that the railway brotherhoods, who are the parties most
concerned, are divided on the question of compensation versus em
ployers' liability, Mr. Shanahan suggested that he be excused from
further participation in the deliberations.
Col. Thom was obliged to withdraw from the conference before
adjournment. In his absence the conference considered further
what action could be taken by the Committee on Jurisdictional Con
flicts that would serve to keep the question alive and help formulate
public opinion for the purpose of curing the evils suffered by em
ployees engaged in railway employment. The unwisdom of framing
a compensation bill of any kind for presentation to Congress at this
time was recognized by all. It could result only in arraying the
brotherhoods against each other, against the International Associa
tion of Industrial Accident Boards and Commissions, and against the
United States Department of Labor. Public opinion, especially
public opinion within the brotherhoods, must be informed and
educated before a Federal compensation law can be pressed in Con
gress with any hope of success. It, therefore, does not seem worth
while to consider further the form and contents of a Federal work
men’s compensation bill at this time.
Before adjournment it was proposed by Dr. Andrews and Mr.
Pillsbury that the conference consider the advisability of framing a
bill for presentation to Congress, giving to railway employees en
gaged in interstate commerce the choice of remedy under the Federal
employers’ liability law or compensation under State laws. This
would do for the railway employees engaged in interstate commerce
exactly what the Johnson-Gard Act did for the longshoremen and
those engaged in maritime pursuits.
The conference then adjourned to convene at 10 a. m., Tuesday,
October 23.
Second session—October 23.
The conference was called to order at 10 a. m.
Those present were: Royal Meeker, United States Commissioner
of Labor Statistics; A. J. Pillsbury, chairman California Industrial
Accident Commission (of the 1. A. I. A. B. C. Committee on Juris
dictional Conflicts) : Alfred P. Thom, general counsel Railway Exec
utives’ Advisory Committee; A. B. Garretson, president Order of
Railway Conductors; D. L. Cease, representing Brotherhood of Rail
road Trainmen; John B. Andrews, secretary American Association
for Labor Legislation; L. D. Clark, expert United States Bureau of
Labor Statistics.
Mr. W. N. Doak, legislative representative of the Brotherhood of
Railroad Trainmen, came in just before adjournment.
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The Committee on Jurisdictional Conflicts and its advisers took up
for discussion a proposal for amending the Federal employers’ lia
bility law so as to give employees engaged in interstate commerce by
railroads a choice of suing under the Federal employers’ liability
law or accepting compensation under State law. Mr. Cease thought
that the Brotherhood of Railroad Trainmen would oppose the
amendment on the ground that it provided for workmen’s c o m p e n s a
tion in case the injured employee elected if and thereby deprived him
of his constitutional right of remedy at law. At this point Col. Thom
arrived. When the proposal under discussion was explained to him,
he expressed complete and unalterable opposition to it and withdrew
from the conference. In reply to the objections raised by Mr. Cease
it was pointed out and agreed to by all the other members present
that the amendment deprived no railroad employee of any rights, but
gave him an additional right to claim compensation for injuries
received in those cases where he would have no remedy under the
employers’ liability law or would have a doubtful or insufficient
remedy. It was urged that if the matter were put in the right way
to the railroad brotherhoods, and especially to the trainmen, they
could have no objection to the proposed legislation, as the election of
compensation is to be left entirely to the determination of the
employee.
Just before adjournment for luncheon Mr. Pillsbury suggested that
the conference take up for consideration a Federal compensation bill
embodying the elective feature as provided in the amendment under
discussion.
The conference adjourned at 12.30 p. m. to reassemble at 2 p. m.,
when Mr. John Mitchell, chairman of the New York State Industrial
Commission, would be in attendance.
Third session— October 23.
The conference was called to order by the chairman a little after
2 p. m.
Those present were: Royal Meeker, United States Commissioner
of Labor Statistics; John Mitchell, chairman, New York State In
dustrial Commission; A. J. Pillsbury, chairman, California Indus
trial Accident Commission (of the I. A. I. A. B. C. Committee on
Jurisdictional Conflicts) ; A. B. Garretson, president, Order of Rail
way Conductors; D. L. Cease, representing Brotherhood of Railroad
Trainmen; W. N. Doak, legislative representative of the Brother
hood of Railroad Trainmen; John B. Andrews, secretary, American
Association for Labor Legislation; L. D. Clark, expert, United
States Bureau of Labor Statistics.
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M O N T H L Y R E V IE W
O E T H E B U R E A U O F L A B O R S T A T IS T IC S .
Mr. Pillsbury explained that he proposed the Federal compensa
tion bill with the elective feature added out of deference to the opin
ions of the other two members of the Committee on Jurisdictional
Conflicts, who had expressed themselves as favorable to a uniform
Federal compensation act.
The other members of the committee objected to the consideration
of a Federal workmen’s compensation bill at this time upon the
ground that such a measure would necessarily be opposed by the legis
lative representative and the officers of the Railroad Trainmen and
that such opposition would inevitably defeat the measure and gen
erate bitterness of feeling against the State compensation commis
sions and others concerned with the legislation and might array
brotherhood against brotherhood and lead to factional fights within
the brotherhoods. No permanent good could result from such action,
while much evil would inevitably grow out of it. It probably would
prevent the enactment of compensation legislation for many years,
by forcing action upon the subject from the outside and without any
adequate preparation or understanding of the end sought. The
amendment of the Federal Employers’ Liability Act, on the other
hand, would result in giving to interstate railway employees the right
to elect to take advantage of laws already on the statute books and
ought not to arouse such opposition. This view was substantially
concurred in by Mr. Garretson. The conference, therefore, put
aside further consideration of a Federal compensation bill to devote
the rest of the session to discussing various angles of the proposed
amendment.
It was thought by Mr. Cease that the proposed legislation would be
less likely to arouse opposition on the part of the trainmen if it were
made a separate act instead of an amendment to the existing Federal
Employers’ Liability Act. After full discussion of this point it was
decided to have the subject presented in both forms, as an amend
ment to the Federal Employers’ Liability Act and as a separate act
giving choice of remedies. Whether the subject should be introduced
into Congress as an amendment or as a separate act was left to be de
termined after consultation with Congressmen familiar with legisla
tive matters of this kind.
It was suggested that if the proposal is to be submitted as an
amendment to the Federal Employers’ Liability Act, a further
amendment or amendments to this act should be submitted with a
view to strengthening the act, which is a proposal to which the train
men have already committed themselves.
The proposed amendment reads as follows :
P rovided further, That where by the law of any State a system of compensa
tion of workmen for injuries is established, and the same is applicable to em-
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MONTHLY REVIEW OE THE BUREAU OE LABOR STATISTICS.
157
ployees of common carriers by railroad engaged in intrastate commerce, the in
jured employee, or, in case of death, the person or persons entitled to benefits
under such compensation law , may, a t any tim e after the receipt of the injury
and before the rendering of final judgment, choose and elect to claim the bene
fits and remedies provided by the compensation law of the S tate; and where
such choice and election is made the provisions of this act shall not apply,
and the rights and remedies under the compensation law of the State shall
be exclusive.
Below is the text of the proposed separate act which will accom
plish the same purpose :
B e it enacted, etc., That where by the law of any State a system of compen
sation of workmen for injuries is established, and the same is applicable to em
ployees of common carriers by railroad engaged in intrastate commerce, it
shall be law ful for the employees of any common carrier by railroad engaged in
interstate commerce injured w ithin the State in the course o f their employment
in such commerce, or, in case of death, for the person or persons entitled to
benefits under the compensation law of the State, at any tim e after the receipt
of the injury and before the rendering of final judgment, to choose and elect
to claim the benefits and remedies provided by the compensation law of the
State, to be recovered in accordance w ith the provisions of such law : P rovided,
That nothing in this act shall be held to lim it the liability of common carriers or
impair the rights of their employees under the provisions of an act entitled
“An act relating to the liability of common carriers by railroad to their em
ployees in certain cases,” approved xVpril 22, 1908, as amended by an act ap
proved April 5, 1910, in any case other than where the choice and election are
made to accept the provisions of the compensation law as above provided ; but
where such choice and election are made, the provisions of the act of April 22,
1908, as amended April 5, 1910, shall not apply, and the rights and remedies
under the compensation law of the State shall be exclusive.
The desirability was recognized of obtaining more information as
to the number and proportion of injured railway employees who
have no remedy under the Federal Employers’ Liability Act because
their injuries were not due to any fault of the employing railway, and
who are not entitled to compensation under existing State law, be
cause they were injured while employed in interstate commerce. The
committee agreed to collect all available information on this subject
and to publish the same in the M o n t h l y R e v ie w of the United States
Bureau of Labor Statistics. The committee then adjourned.
R o y a l M e e k e r (Chairman) ,
J o h n M it c h e l l ,
A . J. PlLLSBURY,
Committee on Jurisdictional Conflicts, /. A . /. A. B. C.
WORKMEN’S COMPENSATION INSURANCE IN OHIO.
As is well known, the subject of the obligation of employers to pay
benefits to injured workmen in accordance with the provisions of
compensation laws is one that has given rise to much vigorous dis25413°— 17----- 11
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MONTHLY REVIEW OE THE BUREAU OE LABOR STATISTICS.
cussion. The laws of a number of States provide for funds to be
administered by State agencies, sometimes as an alternative means of
procuring insurance and sometimes as the exclusive method. Refer
ence has already been made (see M o n t h l y R e v ie w of April, 1917, p p .
552-554) to the situation as it has developed in the State of Ohio,
where the attempt of the State insurance commission to obtain a
monopoly of such insurance has been strongly contested by the stock
companies. Decisions by the supreme court of the State construing
the law indicate that the requirements of the compensation statute as
to scope and nature of the insurance must be strictly complied w ith;
that these provisions do not repeal section 9510 of the Code, which is
a general statement of the powers of insurance companies to write
employers’ liability insurance; but that the act does define and limit
the nature and extent of the contract that may be written in cases
where employers of more than five employees desire to secure in
demnity. By section 22 of the original act (codified as section
1465-69), persons showing themselves to be of sufficient financial
ability or credit to render certain the payment of compensation may
carry their own insurance without the payment of premiums into the
State fund. It was ruled that as to such self-insurers, policies taken
out by them to reimburse themselves must contain provisions cover
ing costs of medical and surgical services and funeral .expenses in
case of death; also that where employees elect to bring suit instead
of accepting compensation, the insurance contract should contain no
agreement covering the liability of an employer for injuries due to
his willful failure to comply with lawful requirements for the safety
of employees; further, that an employer of five or more persons could
not obtain a contract of indemnity on account of accidental injuries
due to his negligence of any kind if such employer is not a con
tributor to the State fund or has not legally exercised the option of
carrying his own insurance under section 22 of the act.
These rulings of the court were given in a case in which the
attorney general of the State brought proceedings against an insur
ance company whose contracts did not comply with the provisions
of the law as indicated above, and there was judgment of ouster of
the company in so far as it was exercising its franchise to write in
surance policies contrary to these rulings. However, the operation
of ouster was suspended for 100 days, in order to permit the company
to conform to the determination of the court (State v. Employers’
Liability Assurance Corporation (Jan. 31, 1917), 116 N. E. 513).
The validity of the section of the workmen’s compensation law
authorizing self-insurance, mentioned above, was directly challenged
in an attempt to procure a judicial ruling that would effectually ex
clude insurance companies from any field of operations in the State.
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Federal Reserve Bank of St. Louis
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
159
In this case (State v. United States Fidelity & Guaranty Co. (Apr.
IT, 1917), 117 N. E. 232), the company admitted that it was writing
insurance for employers who had complied with the requirements as
to self-insurance under the compensation law but who were desirous
of securing their own protection by insurance in a stock company.
The company claimed that in writing such insurance it conformed
with the requirements as to the payment of medical, surgical, and
hospital expenses, and for funeral benefits where the injuries were
fatal, such payments being made directly to the injured employees
or their dependents. I t also denied that its policies covered any
liability on account of willful acts of the employers or a failure to
observe lawful safety requirements.
In passing upon the validity of this section, however, the court
took the view that the matter of insurance was not involved, since
the only point that could be considered was the nature and effect
of the section itself. I t was charged that it contravened provisions
both of the State and Federal constitutions in denying equal pro
tection of the laws and making provisions not of uniform operation.
On these points the court declared that it rested with the industrial
commission of the State to determine the ability of the self-insuring
employers, and to see that the law in behalf of employees was com
plied with in every respect by those employers no less than by those
contributing to the State fund. The employee was, therefore, as
fully protected in the one case as in the other, and the employer
as fully obligated; so that no substantial favor was gained by either
class, nor any greater burden fastened on either by reason of the
form of classification adopted by the law. The commission wTas
obligated still to exercise its duties in behalf of both employers and
employees, whether self-insurers or contributors to the State fund,
so that “ the claim of inequality before the law is dissipated to the
very vanishing point.” I t was pointed out that the matter of the
wisdom or unwisdom of permitting indemnity-insurance, contracts to
survive in Ohio had no possible connection with the matter of the
fundamental law at issue, and the law as it stood was completely
sustained.
It was pointed out by the court in a concluding paragraph that
while the name of the attorney general appeared as a party to the
proceedings attempting to overthrow the law, it was done only at
the request of associated counsel, who were the. attorneys of the Ohio
State Federation of Labor, while the attorney general himself, both
by brief and oral arguments, upheld the section as being constitu
tional.
The law, as it existed when the cases which are above discussed
arose, provided for the exemption from the requirements of making
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Federal Reserve Bank of St. Louis
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
contributions to the State insurance fund, not only of persons who
were found financially able to carry their own insurance, but also of
persons who maintained benefit funds or mutual associations in co
operation with other employers for the payment of suitable benefits.
As the law was amended by an act approved March 29, 1917, exemp
tion from contributions to the State fund is limited to persons who
are of sufficient financial ability to render certain the payment of
compensation benefits, “ and who do not desire to insure the payment
thereof or indemnify themselves against loss sustained by the direct
payment thereof.” The maintenance of benefit funds and mutual
associations is, therefore, no longer an alternative privilege of em
ployers, and it would appear that since only those who do not desire
to insure may be exempt from membership in the State fund, the
stock insurance companies are effectively barred from the field.
REPORT OF INDUSTRIAL ACCIDENT BOARD OF MONTANA.—A
CORRECTION.
In a summary of the Second Annual Report of the Industrial
Accident Board of Montana for the year ending June 30, 1917,
which appeared on page 162 of the M o n t h l y R e v ie w for November,
1917, it was erroneously stated that the workmen’s compensation law
of that State “ applies only to hazardous employments having five
or more employees.” While the law applies only to employers en
gaged in the industries, works, occupations, or employments specified
therein as “ hazardous,” it includes all the employees of such em
ployers, whatever may be their number.
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Federal Reserve Bank of St. Louis
[1232]
INDUSTRIAL ACCIDENTS AND DISEASES.
TREND OF ACCIDENT FREQUENCY RATES IN THE IRON AND
STEEL INDUSTRY DURING THE WAR PERIOD, BY CAUSES.
BY L U C IA N
W . CHANEY.
In the M o n t h l y R e v ie w for November, 1917, the general trend of
accident rates in the iron and steel industry—both fatality rates and
rates of all accidents—was presented. There was also given the
experience of the concerns represented classified according to the
product which they turn out.
In the present article the accident experience of the same establish
ments is considered from the standpoint of the principal groups of
causes which were involved. Table 1 gives in detail the frequency
rates for these groups of causes. This table, like those in the
November R e v ie w , is arranged b y full years ending with each month
of the period under review. The chart on page 165, plotted accord
ing to the percentage of change which occurred from period to
period, projects the facts graphically.
Considering the chart, it will be observed that in each cause group
there is a downward trend during the depressed year of 1914, extend
ing into 1915, approximately to the middle of the year. From that
point there is an upward swing for about one year. The highest
point reached in this upward swing is in no case as high as that
reached in the year ending with March, 1914, which includes nine
months of the calendar year 1913 and three months in 1914. From
this point in 1916 there is a decline in all but two causes. “ Falls of
worker ” runs an almost uniform course, while “ cranes and hoists ”
continues to rise somewhat.
The comparative frequency of accident due to the different causes
is indicated by their position on the chart, “ handling objects and
tools” and “ falling objects” much exceeding any other group.
For precise information regarding- the amount of the differences,
recourse must be had to Table 1. The chart is intended to present
the rate of change and does not disclose directly the amount of
difference.
It should be constantly borne in mind that a rising rate is not
simply the expression of the natural increase in number of accidents
due to the fact that more people are exposed to the dangers of the
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Federal Reserve Bank of St. Louis
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161
162
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
employment. When more people are employed there will naturally
be an increased number pf accidents simply because of this greater
exposure. If this number is exactly proportional to the increased
employment the accident rate will remain constant, neither rising
nor falling. On the other hand, a rising accident rate indicates a
greater number of accidents in proportion to the number of em
ployees and means either that the industry is being conducted in a
more dangerous manner or that the working force has undergone
modification in some way rendering them more liable to injury.
The rising rate demands the solicitous attention of the safety man in
order that adequate checks may be discovered and applied. The
present compilation indicates clearly that a rising rate is not a
necessary accompaniment of increasing employment since toward the
close of the period, while the employment was still rising, the acci
dent rate began a steady decline.
All studies so far made point to the conclusion that the propor
tion of inexperienced men in the working force is the decisive factor
in causing accident rates to rise when employment increases. No
other factor which can be suggested is sufficiently pervasive in its
influence to produce a change of such a uniform character. I t is
found with scarcely an exception that when the proportion of inex
perienced men increases the accident frequency increases. When
this increment of inexperience begins to slacken the rise in the rate
slackens, and as the recruits gain experience the accident rate may
even begin to fall. This relation is sufficiently well established to
carry a very emphatic lesson to the safety man. If he is to avoid
the rise of rates incident to recovery from industrial depression he
must devise means for the thorough instruction of his recruits. He
must find ways of saving them from the inevitable results of their
ignorance and lack of experience.
Table 2 analyzes some of the cause groups into their constituent
elements. It also shows that, with a single exception, the year of high
frequency is the earliest year covered, while the low point almost
always occurs in the years ending near the middle of the calendar
year 1915.
Table 3 shows the relation of the cause groups to the different
products produced by plants. This table is chiefly important in its
presentation of the variations in the rates of the producing companies
due to the difference in their operations. For example, the manufac
ture of wire products is a typical machine-using industry, and
naturally it has a high frequency (22.7 cases) in the operation of
machines. In the fabrication of girders and other similar products
large use is made of hand tools. This results in a rate in these shops
of 28.2 cases for such tools. Other characteristic rates will be
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Federal Reserve Bank of St. Louis
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
163
observed on inspection of the table. In this table, too, the safety
man engaged in plants of a character similar to those under con
sideration may find reason for careful attention. The high rates
point to danger spots. Have each of them had the searching atten
tion which they deserve?
T a b l e 1.— A C C ID E N T F R E Q U E N C Y R A T E S F O R T H E P R I N C I P A L C A U S E G R O U P S IN
T H E I R O N A N D S T E E L IN D U S T R Y , 1913 T O 1917.
Y e a r en d in g w ith —
M arch , 1914...................................................
A p ril, 1914.....................................................
M ay , 1914.......................................................
J u ñ e , 1914....................................................
J u ly , 1914.......................................................
A u g u st, 1914.................................................
S e p te m b e r, 1914...........................................
O c to b e r, 1914................................................
N o v e m b e r, 1914.................
D ecem b er, 1914..........................................
J a n u a r y , 1915...............................................
F e b r u a r y , 1915............................................
M arch , 1915..................................................
A p ril, 1915.....................................................
M ay , 1915.......................................................
J u n e , 1915......................................................
J u ly , 1915......................................................
A u g u st, 1915.................................................
S e p te m b e r, 1915..........................................
O c to b e r, 1915................................................
N o v e m b e r, 1915...........................................
D e c e m b e r, 1915...........................................
J a n u a r y , Í916................................................
F e b r u a r y , 1916.............................................
M arch , Í916...................................................
A p ril, 1916.....................................................
M ay , 1 9 1 6 ...................................................
J u ñ e , 1 9 1 6 . . . . . ............................................
J u ly , 1 9 1 6 ....................................................
A u g u st, 1916..................................................
S e p te m b e r, 1916..........................................
O c to b e r, 1916................................................
N o v e m b e r, 1916...........................................
D ecem b er, 1916............................................
J a n u a r y , 1917...............................................
F e b r u a r y , 1917............................................
M arch , 19Í7...................................................
A p ril, 1917.....................................................
M ay, 1917.......................................................
J u n e , 1917......................................................
T
able
2
H ot
Cranes
sub
and
stances. h oists.
16.8
16.3
15.7
15.0
14.4
13.6
12.9
12.5
12.0
11.8
11.5
11.2
10.9
10.5
10.3
10.2
10.2
10.5
10.8
11.0
11. 1
11.5
11.7
11.9
12.1
12.4
12.8
13. 1
13.4
13.6
13.5
13.6
13.5
13.6
13.4
13.4
13.3
13.0
12.9
12.4
10.3
10.2
9.6
9.4 9.0
8.7
8.4
7.9
7.6
7.6
7.5
7.3
6.9
6.7
6.8
6.6
6.4
6.5
6.8
7.0
7.3
7.4
7.7
7.7
7.8
7. 8
7.8
8.0
8.1
8.4
8.4
8.4
8.3
8.4
8.4
8.5
8.7
8.7
8.7
8.6
F alls
of
w o rk
ers.
F a ll
ing
objects.
14.2
14.2
14.1
13.7
13.1
12.8
12.7
12.6
12.5
12.5
11.8
11.1
11.0
10.7
10.4
10.4
10.3
10.4
10.6
10.7
10.7
10. 8
11. 1
11.1
11.4
11.2
11.3
11.2
11.2
11.2
11.1
11.3
11.2
11.2
11.1
11.1
11. 0
10.9
10.9
10.8
O p era H a n
tio n
dlin g
F ly
R a il
of
o b jects
in g
m a
and
objects. w ay s.
chines. tools.
34.3
33.1
31.6
30.6
28.8
27.1
25.7
24.9
24.3
23.7
23.3
22.2
21.4
20.7
20.4
20.8
20.5
21.2
22.3
22.4
23.2
24.1
24.3
26.3
26.9
27.1
27.7
27.6
27. 8
28.0
27.8
28.0
27.6
27.1
26.4
25.7
25. 0
24.8
24.2
23.5
12.6
12.4
12.1
11.7
11.0
10.8
10.4
10.1
10. 1
9.9
9.3
9 .0
8.9
8.3
8.1
8.2
7.9
7 .8
8.1
8.0
8.1
8.2
8.5
8.6
8.7
8 .8
8.8
8.7
8.7
8.7
8.7
8.7
8.6
8.6
8.3
8.3
8.1
7.9
7.8
7.6
55.5
54.2
52.9
51.5
48.7
47.2
46.6
45.6
44.8
44.5
43.9
43.2
42.4
42.3
41.8
41.6
41.5
41.9
43.5
44.7
45.1
45.6
45.8
46.7
46.8
47.1
47.2
47.1
47.6
47.7
47.2
46.5
46.8
46.1
45. 8
45.1
44.5
43.7
42.7
42.0
11.5
11.1
10.6
10.1
9.3
9 .0
8.4
8.1
8.0
7 .8
7.6
7.2
7.1
6 .8
6.7
6.5
6.4
6.4
6 .8
7.1
7 .2
7.4
7 .5
7 .4
7.4
7.4
7.5
7.9
7 .9
8.0
7.9
7. 8
7 .8
7.7
7 .6
7.7
7 .8
7 .8
7.6
7.1
6.4
6.4
6 .2
5.9
5.5
5.4
5.1
4.7
4.6
4.6
4.5
4 .6
4.5
4.5
4.3
4 .3
4.3
4 .3
4.4
4.6
4 .6
4.8
4.9
5.1
5.3
5.3
5.3
5.2
5.2
5.3
5.4
5.4
5.4
5.1
5.1
5.0
4. 8
4,7
4.7
4 .6
— A C C ID E N T F R E Q U E N C Y R A T E S B Y C A U S E S A N D H I G H A N D L O W Y E A R S
T E R M IN A T IN G W I T H S P E C I F IE D M O N T H S .
H ig h y ears.
L o w y ears.
C ause of ac cid en t.
T e rm in a l
m o n th s.
R a te s .
H o t su b stan ce s:
E l e c tr ic ity ................................................................ M arch, 1914.........
H o t m e ta l................................................................. ........ d o ....................
H o t w a te r a n d s te a m ........................................... ........ d o ....................
1.60
10. 90
4.30
T o t a l ....................................................................... ........ d o ....................
1 16.80
C ranes a n d h o is ts ........................................................... ........ d o ....................
10. 30
T e rm in a l
m o n th s .
J a n u a r y , 1 9 1 6 ...
J u ly , 1915
J u n e , 1915_
. .d o .
J u ly , 1 9 1 5 ...
R a te s .
0.60
6.20
2.90
i 10.20
6.40
1 These ra te s are n o t th e sum s of th e item s, since th e high an d low r a te s show n by th e
item s a re for different years.
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T
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
2.—ACCIDENT FREQ U EN CY RATES BY CAUSES AND H IG H AND LOW YEARS
TERM INATING W ITH SPEC IFIED MONTHS—Concluded.
able
Low years.
High years.
Cause of accident.
Terminal
months.
Falls of worker:
From ladders.
From scaffolds
Due to slipping
Miscellaneous.
Terminal
months.
Rates.
Rates.
.67
November, 1915.
June, 1915...........
July, 1915...........
April, 1915.........
T otal. . .
do
1 14.19
July, 1915...........
1 10.29
Falling objects
do
34. 29
May, 1915...........
20.35
Flying objects:
From tools....... .
Striking the eye
Miscellaneous..
do
do
do
.58
8.34
2.57
June, 1917..........
August, 1915___
June, 1915...........
.31
4.50
1.45
0. 77
.80
March, 1914
__ do ........
__ d o ........
__ do .........
12.02
0.36
.55
8.91
.22
.do.
1 11.48
.Tulv, 1915...........
1 6.38
.do.
12. 56
August, 1915___
7.64
.......do ..........
....... do..........
....... do ..........
....... do ..........
May, 1916...
March, 1914.
11.15
5.09
9.74
10.19
11.61
June, 1915...........
April, 1915.........
June, 1917...........
August, 1915___
March, 1915.......
May, 1917...........
7.48
2.86
6.60
7.53
6.35
8.37
....... do..........
1 55.45
July, 1915...........
1 41. 58
Railw ays................................................................ !........do.
6.42
June, 1915..........
4.25
Grand to ta l............................... ..................1........do.
1 181. 00
T otal..................
Operation of machines.
Handling objects and tools:
Caught between............
Truck or barrow ...........
Striking against............
T ools.............................
Lifting............................
Sharp objects................
T otal.
T
able
8.02
July, 1915-..........I 1112.80
3 .—ACCIDENT FREQUENCY RATES CLASSIFIED BY CAUSES AND BY SPECI
FIED PRODUCTS PRODUCED BY PLANTS.
Fabricated
products.
Sheets.
Wire
products.
Cause of accident.
Miscella
Miscella
neous steel neous steel
products,
products,
B.
A.
Tubes.
High Low High Low High Low High Low High Low High Low
year. year. year. year. year. year. year. year. year. year. year. year.
7.6
32.0
24.4
58.3
28.3
18.4
3.4
14.5
15.5
33.8
9.9
9.1
13.3
6.5
15.7
27.4
10.2
10.3
7.5
3.0
8.4
12.7
3.2
3.6
13.3
5.0
12.3
23.2
6.8
22.7
8.8
2.9
9.5
17.1
5.0
12.4
25.2
15.4
18.1
51.9
13.9
9.0
12.8
8.3
11.6
26.6
7.7
5.7
15.8
10.0
10.7
26.7
10.2
7.7
8.1
6.0
6.6
13.4
5. 5
3.6
7.7
4.9
6.2
14.6
4.0
4.8
2.5
2.5
2.2
6.0
1.2
2.5
33.3
7.6
6.9
28.2
7.2
9.1
20.1
1.8
2.6
9.6
3.5
2.8
8.8
8.5
22.0
12.3
7.0
26.4
3.0
3.6
10.1
7.4
4.0
17.6
7.9
9.7
11.1
9.3
16.4
24.1
5.6
6.4
6.0
6.3
11.4
16.1
12.8
4.5
12.3
13.9
11.5
8.4
7.9
2.2
5.1
8.7
7.6
6.1
9.4
1.9
5.2
6.2
4.1
2.8
2.9
.8
2.9
3.1
1.7
1.3
4.0
2.4
4.0
4.3
2.7
3.1
1.2
.4
.9
.9
.7
.9
Entire group 1........... 90.5
Railways.............................. 4.8
44.4
2.4
79.9
3.5
51.0
1.3
72.2
3.9
54.2
1.3
58.6
13.6
38.4
8.7
28.2
3.9
12.8
1.0
20.1
1.7
6.2
.6
96.5 177.9 129.5 212.8 126.2 123.1
60.3
81.5
26.1
Hot substances....................
Cranes and hoists................
Falls of worker.....................
Falling objects.....................
Flying objects......................
Operation of machines........
Handling objects and tools:
Caught between............
Truck or barrow ...........
Striking against............
Tools..............................
Lifting............................
Sharp objects................
All causes1........................... 300.0 147.9 184.9
i These rates are not the sums of the items, since the high and low rates shown by the items are for diffferent years.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
[1237]
165
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166
MONTHLY BE VIEW OF THE BUBEAU OF LABOB STATISTICS.
ACCIDENTS IN THE MACHINE-BUILDING INDUSTRY.
During the past few years there has been widespread interest in the
subject of industrial accidents and their prevention, and important
safety campaigns have been carried on by many employers and by
many private and public organizations. No doubt these efforts have
been successful in reducing the huge toll of death and suffering which
modern industry levies upon its workers. But the effectiveness of
all such efforts has been seriously handicapped by the general lack of
information regarding the prevalence, causes, and effects of acci
dents in the industries of the country.
A recent report (Bulletin 216) of the United States Bureau of
Labor Statistics entitled “Accidents and accident prevention in
machine building ” supplies this detailed information for a large
group of plants engaged in the building of different kinds of ma
chines. The character of the machines built by these plants varied
greatly, from mammoth locomotives and ships to delicate electrical
apparatus, but it is of interest to note that they are all of a type for
which the war has made enormous demands. Therefore, although
the present study was made prior to the war, the information regard
ing accident hazards in the industry is now of particular pertinence.
A notable feature of the report is the measurement of accidents
according to their severity. Previous studies have been chiefly con
cerned with the frequency of accident occurrence and have counted
all accidents as of the same value. A broken finger and a broken
back have been counted alike in computing accident rates, although
clearly the latter is immeasurably more serious. The method offered
in this report is to measure each accident according to the resulting
amount of time lost. To do this it is necessary, of course, to express
fatal and permanent injuries as well as temporary disabilities in
terms of workdays lost. This is done by valuing a fatal injury, on
the basis of life-insurance experience, as equivalent to the loss of
30 years of a man’s working life, while permanent total disability is
rated at 35 years. Other injuries are credited with lower time losses
in proportion to their probable effect upon earning capacity.
Applying this method to the accident data for the machinebuilding industry, some very interesting results are obtained. Thus,
in the 194 plants covered by the investigation the number of acci
dents occurring in 1912 was 13,647, resulting in 37 deaths, 411 perma
nent injuries, and 13,199 temporary disabilities. This is equivalent
to an accident-frequency rate of 118 per 1,000 full-time (300-day)
workers and a severity rate of 5.6 days lost per worker. These rates
may be contrasted with the experience of a representative steel plant
during the same year, for which the frequency rate was 154 and the
severity rate 14 days lost. Accidents in the steel plant were thus
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[1238]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
167
only about one-third more frequent than in machine building, but
their severity was two and one-half times as great.
The accident hazards of the machine-building plants vary greatly
with the character of their products. Those engaged in the making
of locomotives have the highest severity rate—11 days lost per
worker—and the builders of ships have the next highest—8 days lost
per worker.
Classifying the combined plants by departmental divisions, boiler
shops and yard labor show by far the greatest hazards. Boiler
shops have a frequency rate of 224 cases per 1,000 full-time (300-day)
workers and a severity rate of 27 days lost per 300-day worker, while
yard labor has a frequency rate of 221 and a severity rate of 29 days
lost. The high rates of the boiler shops are primarily the result of
insecure trestles and scaffolding. For the excessive rates in the yard
department responsibility rests upon the general neglect of safe loca
tion and construction of the transportation systems of many plants,
coupled with lack of safety precautions and instruction.
One of the fundamental inquiries in a study of this character is
whether or not accidents are decreasing. A precise answer is diffi
cult, because of the fact that very few plants had reliable accident
records over a period of years. For one group of plants for which
such information was obtainable for the years 1910 to 1913 the frequencjr rate shows no decrease, but the severity rate, after running as
high as 6 days in 1910, 8 days in 1911, and 7 days in 1912, drops to
3 days in 1913. This decrease may reflect the more thorough safety
organization effected in some of these plants in 1912. The fact that
the frequency rate shows no decline is certainly due to the more
complete reporting of minor accidents in the later years.
A striking method of showing the effect of a good safety system
in accident prevention is to compare the accident rates in plants
having with those in plants not having well-organized systems. This
is done for three important groups of plants. In every case the
plants not having a good safety organization show accident frequency
rates three or four times as high as those having a well-developed
system.
The report presents a very careful study of the very important
subject of accident causes. For the industry as a whole “ falling
objects ” stands out as the most frequent cause of accidents, the fre
quency rate being 14 cases per 1,000 300-day workers. As measured
by severity, “ cranes and hoists ” assumes first place, the severity rate
varying from 1.2 to 2.3 days lost per 300-day worker in different
groups of plants.
In discussing the question of safety in the machine-building indus
try it is important to remember that that industry not only uses
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[1239]
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
machinery which needs to be safeguarded but that its work consists
of the production of machines for use in other industries. The
extent to which the machines thus manufactured will later be a source
of danger to the workers in those other industries depends in con
siderable measure upon the character of their original construction.
The subject of machine design—of building a machine in such a way
as to offer the minimum of hazard to its future operators thus
becomes of very great significance. This subject is covered in con
siderable detail in the report.
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[1240]
THE STUDY OF OCCUPATIONAL DISEASE IN HOSPITALS.1
B Y D A V ID L . E D S A L L ,
M . D ., M A S S A C H U S E T T S
GENEKAL
H O S P IT A L ,
BO STO N.
It is always emphasized in any discussion of occupational diseases
that we need methods of acquiring more information as to the extent
and character of the effect upon health that occupation exerts, and
we need to have some more accurate method of knowing how these
things are progressing from, day to day, how they are being con
trolled by measures that may be introduced to control them, and we
need to know in which character of industries they are active, and
therefore which character of industries need particularly to be con
trolled. There are some facts known about conditions in this country
and, of course, we have learned a great deal from what has been
gathered abroad, but a great many, even of the facts which have been
obtained there, have been gathered in a rather loose way. In recent
years, and only in recent years, we have been acquiring some facts
in regard to local conditions in America. There are some very im
portant ways in which information can be obtained. The physical
examination of employees in plants where that is carried on can con
tribute a great deal in regard to this. For a long time, at any rate,
that will probably be done only in the better plants, and it is par
ticularly in the poorer plants that we need to have conditions under
careful control. The study of these subjects can be very greatly
helped by investigations such as the Public Health Service is carry
ing out. I have felt for years, however, that a vast amount might be
contributed to our knowledge of industrial disease if we could use
the experience of hospitals, the clientele of which is made up in large
part of working people, and amounts all told to an enormous number
of persons. If the cases which come day by clay to the hospitals
were studied and recorded with a view to determining what the re
lations are between their ill health and their occupations, it would
contribute a vast amount to our knowledge, and would also be a very
valuable factor in determining what is going on from time to time
in industry as regards health conditions; and it would largely cover
what the other methods of examination do not cover so well, the
roving classes of the population that roam from one industry to
1 T h is p ap er w as read a t th e Social In su ran ce Conference held in W ashington, D. C.,
in December, 1916, b u t its publication has been delayed. T he clinic described in the
p ap er h as recen tly been tem p o rarily suspended owing to th e heavy d ra in of th e w ar on
th e staff of th is an d o th e r p a rts of th e h ospital.
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170
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
another and that are particularly prone to become diseased from
whatever they may be doing’ if there be danger of disease in it.
Those who are familiar with methods of welfare work and other
things of that kind, but are not familiar with hospital conditions,
may be surprised to know that we can learn scarcely anything now
in regard to the relations of occupation to health from the records of
the great majority of hospitals. One can not learn in most hospitals
anything in regard even to such general questions as the occurrence
of occupational disease in its clientele or the character of occupa
tional diseases that do occur, the main reason for that being briefly
that it has been customary in medical records to put down very gen
eral terms, indeed, in regard to the occupation of the individual;
even such general terms as “ laborer ” and “ mechanic ” and words of
that kind, which when one comes to study occupational disease of
course mean absolutely nothing. Dr. Alice Hamilton, who has in
vestigated a good many hospitals, told me that there were only two
hospitals where she had been in this country in which she could get
any facts amounting to anything of any value at all in her studies of
the conditions to which she has been giving her attention. I think
others who have been interested in it will substantiate that statement.
There are some reasons for this. Industry is only a part of the
things that one is interested in in a hospital. For those working
on health questions in the industries themselves, the industry is the
f actor of chief interest. In a large hospital you may have a hundred
or more doctors dealing with people in their various lines of work,
and most of them not at all interested in any particular way in
industry; and with such a disorganized organization as that in re
gard to this matter, it is very apparent that it is hard to get any
accurate facts unless some system is developed.
I am going to show you some of our blanks indicating some
methods we have adopted at the Massachusetts General Hospital in
attempting to get more system into this matter, because I thought
it would be of interest to those who have some connection with this
particular type of work; and the figures which I will give will indi
cate also upon what experience I base some very general statements.
We have not yet facts enough, and have not been at this thing with
our present methods long enough, to make any very detailed state
ments, but I can make some general statements in regard to occupa
tional diseases, and particularly in regard to their «frequency and
importance, that I think will be borne out by what we have already
learned.
In the beginning, about four years ago, we started the plan of
having the medical students, who took most of the histories of the
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Federal Reserve Bank of St. Louis
[1242]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
patients entering the out-patient department,
medical clinic, where most cases of this kind
extra card relating to occupation, which was
most likely results of industry upon health.
follows:
Mass. G eneral H
o s p it a l
Name
171
make out in the male
occur, a separate and
intended to cover the
A copy of this card
O c c u p a t io n C a r d
No.
I ...................................Industry
........... Occupation
........... Length of tim e
P r e s e n t................................................................................................................
Previous................................................................................................................
Name and address of present employer.
II. Description of patient’s own w o rk ..
(o) Material handled..................................
(&) Present working h o u rs........................
III. Conditions of work. Specify the following:
Extremes of heat..................................
Of m oisture..
D ust................... Irritating fumes...
......... Acids
Other poisonous substances................
Muscular.......................(local)..
(general)
Postural....................................
Strain] General nervous....................... General physical.
E ye.............................................
E a r.............................................
IV. Are fellow workmen affected........................
V. Subsequent notes and reports.
There was also a social worker assigned to this work who went
over all these occupation cards. In case anything suspicious ap
peared upon the card she saw the patient and went carefully into
the details of his occupation and even visited the place where he was
employed and at times his home, and then made out a statement of
the occupational conditions elaborated upon the plan of this card.
The fact that in this way a considerable number of cases otherwise
overlooked could be found was shown by our having at the end of
18 months collected 624 cases in which there were very definite ex
posures to some form of occupational hazard which were apparently
having a part in producing the disturbances of health that the patient
showed, in most of these cases at least. That is a far larger number
than would be found in the ordinary medical clinic when no such
attention was given to this subject, and the following list of the
exposures which the patients showed indicate how varied they are
in nature in the ordinary medical clinic.
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[1243]
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
[1 ,2 0 7 e x p o s u r e s f o r 6 2 4 p a t i e n t s . ]
L
is t
o f
E
x po su r es
.
O c to b e r, 1 9 1 3 —A p r il, 1 9 1 5 .
Fumes.
Poisons.
Aniline dyes_________________
11
A rsenic__________________________
2
B r a s s ___________________________ 12
Chrome salts_____________________
1
Chrome yellow _____________ :------1
C op p er__________________________
3
F o r m a lin ____
3
L e a d _____________________________ 143
R ubber__________________________
2
178
D ust.
M e ta llic _________________________
Lead i ____________________________
Stone and earth_________________
V eg eta b le.______________________
A n im a l__________________________
A tm osp h eric_____________________
M iscellaneous____________________
30
104
37
42
30
14
6
263
Skin irritan ts.
Bichloride of mercury__________
B rine_________ - __________________
Cashew n u t______________________
Chlorinated soda________________
Constant use of w ater and soap
and powders ___________________
Glue__________________________
Leather__________________________
L in im e n t______ __________________
L y e -------------------------------------------Machine o il s __________________ ’__
Metol____________________________
Muriatic a c id ____________________
Naphtha _________________________
Oxalic a c id ______________________
P aste_________________________
Polishing rouge__________________
P otash___________________________
S u g a r ___________________________
Shoe p o lish ______________________
Tobacco _________________________
Turpentine______________ :________
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Federal Reserve Bank of St. Louis
3
1
1
1
17
1
14
1
1
8
1
2
1
1
5
2
2
10
1
5
3
Acetic acid_______________________
A m m onia________________________
A m y la c e ta te____________ -________
B e n z in e __ _______________________
B enzol___________________________
Carbon m onoxide______1-------------L a cq u er-------------L e a d ____________________________
Hydrochloric a c id _______________
N ap h th a___________
Potassium cyanide_______________
Potassium n itr a te _______________
S u lp h u r _________________________
Sulphuric a c id __________________ _
Wood alcohol----- -------------------------Turpentine_______________________
Z inc______________
3
8
3
14
1
11
1
12
14
28
7
1
4
4
16
16
3
146
S train s and postures.
Local m uscular____________________127
General m uscular________________ 36
Postural strain____________________118
Eye s tr a in ---------------26
General nervous__________________ 51
Local p ressu re__________________
23
381
O ther factors.
A n th ra x _________________________
Compressed a ir_________
Exposure to w eather__________:__
Extrem e c o ld ______________ 1_____
Extrem e h e a t ____________________
E xtrem es of tem perature__ ______
H u m id ity________________________
Irregular hours of work_________
Jar of m achinery________________
Long hours of work_____________
M agnetism _______________________
M etallic fr a g m en ts______________
Noise ___________________________
O d o r s_________________
V itiated atm osphere____________
1
1
6
5
31
33
25
1
10
6
4
5
7
11
12
158
81
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
173
I would especially note a few points in regard to this table. In the
first place the large number of lead cases was due to the fact that a
special study was being made of lead poisoning and a good many old
cases of lead poisoning were included in this list, while the other
cases were all newT. I would emphasize particularly the large number
of cases of strains and of evil results of posture. I have long been
convinced that these are far more numerous than is customarily
thought and are probably more common as causes of some degree of
disturbance of health or comfort than any other effect of occupation.
They come within the general group of fatigue effects. I f we had had
any method of determining the existence of general fatigue with ac
curacy this number would undoubtedly have been much increased
above what shows in this table. I would note also that there are a
few things in this table, such as the four cases of the effects of a strong
magnetic field, which were introduced not because they were proven
but because we were interested to see whether we could demonstrate
the existence of such things. There are, however, very few cases on
the list in which there was not apparent some real relation of the
disorder of health to the occupation. The fact that there is only one
case of irregular hours of work and only six of long hours of work
means only that as these cases were studied there appeared in this
group only that small number of such cases in which health was ap
parently actually disturbed by these factors. These factors are, of
course, much more important than this table would indicate.
As another indication of the great variety of sources of occupa
tional disturbances of health as seen in the ordinary medical clinic,
the following table is of interest. I t shows the very considerable
variety of sources of the cases of lead poisoning. That I would em
phasize somewhat to medical men, as there is altogether too much
tendency in most medical teaching and textbooks to suggest that the
sources of occupational diseases are comparatively limited, whereas
anyone familiar with the subject knows that they are legion.
I n d u s t r ie s
and
O c c u p a t io n s
P a in tin g :
H o u s e _______________________
Carriage_____________________
Sliip_________________________
A u to _______________
C a r _________________________
P ain t factory:
Grinders_______________ :_____
M ix e r s______________________
Lead fa cto ry:
Lead b u rn er________________
M elter_______________________
R efin er______________________
12
25413°— 17
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Federal Reserve Bank of St. Louis
from
07
4
G
1
1
1
1
1
1
1
W
h ic h
C a m e L ea d H
azards.
P rin tin g:
E lectro ty p er___________
M onotypist__________________
C om positor_________________
Linotyper____________________
1
1
3
1
T ype fou n dry:
Type caster___________ ;______
2
Plum bing:
P lu m b er_____________________
R epairer_____________________
earn fittin g:
Steam fitter_________________
[1245]
3
1
1
174
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
M achine shop:
M achinist____________________
Car fa cto ry:
Latherer________________
S h ipyard:
Laborer_________
Steam fitter_____________ ____
Boiler m aker____________
Club:
W a itr e ss____________________
F o restry:
S p rayer_____________________
R ubber fa c to ry:
M ix e r _______________________
Breaker u p _________________
Vulcanize r___________________
Calendrer_______________ _____
L aborer_____________________
Rubhcr-shoc fa c to r y :
Setter up__________
Shoem aker__________________
B rush fa cto ry:
Sohierer_____________________
1
1
1
1
1
1
1
9
1
1
1
1
1
1
1
Tin-can fa cto ry:
Bottom fin ish er__________ ___
S older er_____________________
Jeioclry fa c to ry :
Bracelet maker _____________
Sohierer_____________________
S ilv e rw a re fa c to r y :
Silversm ith s_a.___________________ _
E ngraving:
R etou ch er__________________
E lectrical w ork :
H e lp e r______________________
Glass fa c to ry :
Runnea*______________________
Glazier______________________
Iron fou n dry:
M old er______________________
S tru ctu ra l iro n :
L ab orer_____________ ,_______
S h eet m etal:
T in sm ith ____________________
Loam harness fa cto ry:
P r im e r______________________
1
2
1
2
1
T
1
1
1
1
1
2
1
I merely point out in passing that we also, in order to exercise as
much influence in preventing occupational disease as we could, pre
pared a series of slips to be given to persons exposed to certain forms
of occupational hazards, particularly lead, of which the following
two are samples:
M a ssa c h u setts
A © V IC E T O M S O K S
Geneeal
H o s p it a l .
W O ltK T X G W I T H
LEAD.
L E A D I S A P O IS O N .
I. Persons who work w ith lead in any form are liable to be poisoned.
I I. Lead poisoning may be acute or chronic.
III. The ch ief symptoms o f acute lead poisonong are: Loss of appetite, head
ache, foul breath, indigestion, constipation, and severe pain in the
stomach ( abdomen 1.
IV. Some of the symptoms o f chronic lead poisoning a r e : Paleness of the skin,
headache, loss of appetite, indigestion, constipation, pains and aches in
the muscles and joints, p aralysis o f w rists or feet, and convulsions and
unconsciousness - hut there are many other bad effects.
V. Poisoning occu rs:
(a ) By sw allow ing tiny particles of lead that have settled on food, or
into the mouth in other ways, as from the hands or tobacco.
<b) By breathing into the mouth, or into the lungs, tiny particles of
lead dust or fum es from melted lead.
(c) By lend being absorbed through the skin.
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HOW
175
TO P R E V E N T L E A D P O IS O N I N G .
I. Personal cleanliness is of great importance, as particles of lead may stick to
anything they touch.
II. A lw ays wash the face and hands before leaving the shop, and wash the face
and hands and rinse the mouth and clean the finger nails before eating.
III. The teeth should be thoroughly brushed at least once a day.
IV. Alw ays eat a good breakfast before beginning work. The presence of foot!
in the stomach helps to prevent the lead from getting into the system.
Drink milk.
E xercise in the fresh air. W alk to and from your working place if possible,.
ArI. Never, eat anything, or chew or smoke tobacco, w hile at work, because of
the danger of getting lead into your mouth and so into your stomach.
ATI. H ave one good bowel movement each day.
AH I - Avoid using alcohol in any form. It greatly increases the danger of lead
poisoning and its severity.
IX. E at your luncheon outside the workroom, if possible. If not, eat in a part
of the room away from the lead.
X. Weai- overalls, or a long coat, and some head covering at your work, taking
these things off before going home. These garments should be washed
frequently.
X I. Be careful not to stir up any more dust that may contain lead than you can
help.
X II. Persons working in the dust or fum es of lead should use a respirator, to
avoid inhaling the poison into the lungs.
X III. Follow this advice and tell others of it.
M a s s a c h u s e t t s G e n e r a l H o s p it a l .
P R E C A U T IO N S F O R P R IN T E R S .
I. Remember pig lead used in linotyping is softer than lead of type. H andle it
as little as possible.
IT. Drop pig lead carefully into m elting pot. Splashings of molten lead dry
and become lead dust.
III. Do not shake crucible in order to blend molten lead better. It w ill blend
of itself.
IA . Plungers on linotype machines should never be cleaned in the workroom.
Clean them in boxes in the open air.
Ar. Avoid lead dust as much as possible when trimming and m itering or when
saw ing and routing. AVear a respirator when routing.
AH, Graphite used for lubricating is not poisonous, but all dust is irritating to
the lungs.
A IT. Lead dust in type cases should be removed in the open air or by means of
a vacuum cleaner.
AHIT. Benzine and lye are skin irritants. Wear gloves when cleaning type
with them, and carefully wash the benzine and lye from the type.
IX. Never put type in the mouth or moisten the fingers to get better hold of
type.
X. Insist upon having good ventilation in the office or factory and in sist that
floors should not be swept during working hours.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
X I. Suggest to your -employer that w alls and ceilings of workroom, if not of
smooth, washable surface, should be lim e washed once a y e a r ; that
close-fitting floors which can be cleaned by m oist methods are desir
able ; and that type cases should fit closely on the floor or have legs
high enough to brush under.
X II. E at a good breakfast before beginning work. Food in the stomach helps
to prevent lead poisoning.
X III. Do not eat food or use tobacco w h ile working because of the danger of
getting lead into the mouth.
XIV. W ash hands thoroughly w ith warm w ater and soap and rinse the mouth
and clean the finger nails before eating.
XV. H ave your own tow el and cake of soap.
XVI. E at your lunch outside the workroom.
X V II. Do not wear working clothes too long w ithout change.
X V III. H ang street clothes apart from the dust of the workroom.
X IX . B athe frequently and brush the teeth each night.
X X. Avoid alcohol. It increases the danger of lead poisoning.
X X I. H ave a good bowel movement each day.
X X II. E xercise in the fresh air as much as possible.
X X III. B e exam ined by a doctor occasionally and do preventive work by keep
ing in good health.
It is gratifying to note that in a considerable number of instances
the instructions on these slips were not only followed as well as pos
sible by the workers themselves, but the gospel was spread by them
to others with whom they were associated. In several instances the
employers had their interest in the matter first awakened through
seeing these slips, and thus first realized the element of danger and
the possibility of preventing it. We have had a number of opportu
nities of offering employers advice as to preventing trouble, which
advice, in some instances at least, has been followed. I would note
also in regard to the precautions for printers that they were re
quested by the printers themselves, who heard that we had made
similar slips for other persons, especially lead workers, and who
wished to have this help in protecting themselves. The printers’
union printed this slip and distributed it among the members and
in their journal advised printers at large throughout the country
to follow such precautions.
After having tried this system for some time, it became apparent
that there were two main needs. In the first place, that in spite
of the relatively large number of cases we were getting actually a
much smaller number than we believed could be secured by more
satisfactory means. This method depended to too great an extent
upon having the cases referred to the social worker by the physi
cians in the clinic, most of whom were not interested in the matter,
or upon the histories taken by unskilled persons who in spite of
a form to follow probably overlooked a good many cases; and fur
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Federal Reserve Bank of St. Louis
[1248]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
177
thermore we wished to cover all the cases entering all divisions of the
out-patient department so far as possible. In the second place, it
seemed necessary, in order to have a critical decision whether the
evident hazard was directly related to the disturbance of health,
that this decision should be made by a medical man with special
knowledge and training in occupational disease. Since the early
part of the year we have had established the following system.
Owing to the generosity of a friend of the hospital a salary has been
provided for a medical fellow in industrial disease and money for
some other necessary expenses in conducting a special industrial
clinic. The following system then has been put in force: In the
first place all patients now admitted to the out-patient department
have on their admission blank a statement not only of the industry
in which they are engaged, but their actual occupation in that indus
try; in other words, their individual job. The patient passes from
the admission desk to a social worker, whose duty it is to look over
this statement of occupation and in case there is anything suspi
cious in the occupation to mark that patient’s card in such a way
that he must go to the industrial clinic, which now exists as a sepa
rate clinic,1 before he leaves the hospital; in other wTords, we do not
depend upon references from other clinics, but take everyone who
seems likely to yield anything. This social worker is trained in com
prehension of industrial hazards to some extent, but also has a list
at hand indicating the .kinds of patients that must always be referred
to the industrial clinic as showing some definite possible hazard and
another list from which some are sent according to the conditions
as mentioned. These two lists follow:
I n d u s t r ia l C l i n i c .
M a ssa ch u setts General H
sen d
o s p it a l ,
all
Abdominal pain w ith possibility of lead.
Ammunition workers.
B rass foundrymen.
Bronze workers.
Buffers, grinders, polishers, liiers.
Chemical workers (w ith germicides, insecticides, fertilizers, paint, powder, fire
works, etc.).
Chippers (rivet cutters).
Cigar makers.
Comb and celluloid workers.
D ecorative and structural-iron workers, if lead.
D yers and dye grinders.
Electroplaters.
1 The in d u stria l clinic h as been discontinued since th is p ap er w as read.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
Glass blowers, m ixers, polishers, bevelers.
Granite, other stonecutters.
Lead workers, burners, sm elters, grinders.
Metal refiners.
Painters (house, ship, sign, carriage, automobile.
Varnishers, enamelers,
bronzers, glaziers).
Paper and pulp-mill workers.
Plumbers, ship fitters, steam fitters.
Pneum atic tool handlers.
Pottery and enamel-ware workers.
Printing trade, if hand compositors, stone men, linotypers, monotypers, stereo
typers, electrotypers, lithographers.
R iveters and holders on.
Roofers, sheet-lead workers.
Rubber workers, except packers, truckmen, stitchers, or clerks.
Scalers (p ain t).
Shoe workers (except those cases w ith no apparent relation between occupa
tion and illness which can be conveniently interview ed at the d esk ).
Tannery and leather workers.
Telephone operators.
Temperers, hardeners, annealers.
T extile workers, cotton, silk, wool. (S ee note under shoe workers.)
Tinsm iths, sheet-m etal workers, if solderers.
Tobacco workers.
I n d u s t r ia l C l i n i c .
M a ssa c h u se tts G eneral H
o s p it a l .
send
Automobile chauffeurs, garage men if nervous or physical strain. Ask for dizzi
ness, headache in re gas-engine exhaust.
Barbers, if possibly occupational.
Brewers, if working about vats, refrigerating plants.
Butchers, abattoir workers, if possibly occupational.
Carpenters, if presenting dermatosis, or of occupational comp, interest.
Candy workers,* if dippers, or w ith skin lesions, or gastric history, or special
occupational interest.
Cold-storage workers, as in fruit and fish warehouses. Alternation w ith heat
or general temperature.
Cordage, .lute workers, if work is dusty or productive of sm all injuries.
Farmers, if accustomed to using insect sprays (lead arsen ate), etc.
Foundrymen, if brass molders ; also core makers.
Garment workers, if operating footpower machines. Inquire regarding dust,
ventilation, new dyes, etc.
Junk handlers, if handling lead, babbit, etc.; also rubber scrap.
Longshoremen, only if marked effect of strain or injury from nature of goods
handled.
M achinists, if industrial hazard seem s to be related to illness. Determ ine kind
of machine used (turret lathe, punch press, etc.). Metal handled. U se o f oil
and kind (especially lard oil on la th es). Ask if any form of lead is used.
Plasterers, if attitudinal strain, etc. Ask regarding salam anders (charcoal
heaters), dizziness, headaches, etc., if heaters are used.
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179
Railroad accidents, only if severe. Inquire regarding nature of accident. Send
if of special interest or importance.
Stenographers, if any evidence of fatigu e effect.
Stokers and firemen, also coal passers, if story of high heat.
Tailors, if history of shoulder pain, or if of special interest. Do not send
phthisis suspects.
Telegraphers, if any evidence of fatigue effects.
Upholsterers, m attress workers, if work is said to he dusty.
Watchmakers, if fine work, jew el setters, etc. Eye strain. Evidence of height
ened nervous state.
I n General, no children, unless illegally employed; no domestics or housewives.
No bakers, dressmakers, electricians, fishermen, hotel workers, as bell boys,
porters, or w aiters; no lumbermen, peddlers, or pick-and-shovel laborers.
I n General, send all cases of special industrial interest.
Do n o t s e n d critically ill patients, those in marked distress, or chair or crutch
cases unless very important. Such may be interview ed at the clinic to which
they were originally destined.
The difference between this method of securing the cases and the
old method is at once shown in the fact that now from 20 to 30 or
more patients a day are sent to the industrial clinic, and a year will
yield at the present rate more than 5,000 cases, perhaps many more.
Indeed, so many cases are now sent that it is impossible with our
present staff to investigate all of them with great accuracy. They
are, however, examined and questioned individually in a rapid way,
and if anything of actual interest appears the case is investigated in
careful detail by the staff of the industrial clinic. This clinic is in
charge of Dr. Wade Wright, who has had some years’ training in
industrial disease and who devotes his whole time to the work in the
clinic, to visiting places of employment, and to special research in
occupational disease. He also visits the cases in the wards in- which
any interesting occupational hazard appears and frequently clears up
for us situations that could not be comprehended without a careful
investigation of the industrial side of the ease. There is also a
special social worker in the clinic, Miss Bradfield, who devotes her
time to this work, helping in the work in the clinic and also making
visits frequently to factories and investigating the home conditions
of these patients whenever it seems desirable. When completely
investigated, then, a patient will have had an elaborate industrial
history made out, a special physical examination directed toward
bringing out any of the suspected effects of the industry, and a
social investigation of his home conditions, etc.
The following four card records are taken from the actual history
of a case to show how this is done. The names of the patient, em
ployers, etc., have been deliberately altered, otherwise the record is a
bona fide one, The first two indicate the front and back of the
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
medical industrial card, the third is simply an extension of this, and
the fourth is the special record of the social worker.
M
a
s s a
c h
u
G
*
s e t t s
e n
IN D U S T R IA L
e r
a
l
H
o
s p i t a
l
C L IN IC
Name John Angelo
Ago 26
S.
Address 43 Staniford St., Boston, Mass. Flight 1st
Industrial Clinic No. 41
O. P. D. No. 298-781
House No. E M 295-406
S. S. D. No. 10406
Date referred May 30,1916 Adm.— Clinic M M Dr. Gerald Blake
Born in Italy
Mother horn in Italy Immigrated 18 yrs. ago Mass. 12 yrs.
First work Water boy, railroad construction Age began 12, in Italy.
Name and address of interested person Vincenzo Giardini, 107 North St., Boston
(friend)
Industrial data:
^
D u raE m p lo y e r— A d d re ss.
In d u stry .
D e p t.
P ro ce ss.
tio n .
8 d.
Construction. Muck man.
1 Pres. Jas. Donnell,
Tunnel.
26 & C Sts., So. Boston.
Candy
Mfg.
Cold
R
’m.
Packer’s
helper.
9.\
y.
2 Prev. Star Choc. Co.,
417 Elm St., Roxbury.
6 m.
3 Prev. Various employers. Pick and
Boston.
shovel work.
Total tim e in present industry 8 days. Apr. 24- May 2,1916. (See note 1)
Hours«
7 a. m to 3 p .m . Lunch period 0 hour Overtim v {see note 2) Regu
larity
Wages", piecework $2.50 day
Week
Overtime rate Jt0 c. per h.
Open, union shop open Number men in plant 600 In departm ent 40.
Trade-unions None
Local
Asst, per
Benefit
for weeks
Insurance, kind None
Asst, per
Benefit
for weeks
Employees insured tinder W. C. A. Yes
Carrier Arrier. Cas. &
k
Liab. Co.
Employee’s service
No
Yes (.see notes)
S o c ia l
Unemployment Present illness
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Federal Reserve Bank of St. Louis
M e d ic a l
S a fe ty w o rk
C au se
'F ro n t—over].
[1252]
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MONTHLY REVIEW OF THE BUREAU OF LABOR. STATISTICS.
H A Z A R D S
Dust
None
T y p e an d so u rce
A m o u n t
P re v e n tio n
Hum idity water, concrete, muck
S o u rce
M o d e ra te
Illumination
R e s p ira to rs
moderate in amount
E x ce s siv e
electric
D ry n e ss
fairly
M e th o d
A d e q u a te
H a rm fu l
Ventilation by compressed air, delivered at heading, exhaust through locks.
O d o rs
Heat and cold
F u m es
variable
T e m p e r a tu re
S
Jf
Fatigue
H e a v y w ork
E ffe ct
L o n g h o u rs
F a u lty p o s tu re
E y e stra in
C o n s ta n t s ta n d in g
N o ise
none
M a te r ia l h a n d le d
T ra n s m issio n
S m a ll in ju r ie s
Poisons? “ smoke” from dynamite used in blasting
K in d
compressed air
W o rk e r, ig n o r a n t, c a r e le s s
Dangerous machinery
air locks!
W h y
c o n tr o lle d
in change house:
B u ild in g c o n s tr u c tio n
L o ck e rs
good
good
W a s h in g fa c ilitie s
city
yes
P a la ta b le
S a fe ty d e v ice s
yes
yes
S h o w ers
no
T o ile t fa c ilitie s
S o u rce
P re c a u tio n s
(see Note 0)
H ow
Plant and personal hygiene
W a te r s u p p ly
F a n s
heavy clothing
yes (see Note Jf)
a fe g u a rd s
H e a t a n d co ld a lte rn a tin g
if
#
(see Note 5)
M o n o to n o u s m o v e m e n ts
V ib r a tio n
Infections
O p e n w in d o w s
L u n c h fa c ilitie s
Alcoholism fostered by nearby saloons
A c c e s s ib le
Hot coffee, furnished in change house and at work.
Note 1. 13y in U :S .A .,6m water boy, 9m polished marble, 5m bamboo shop, Am
painting iron beds, ly teamster, ice wagon, dm coal miner Pcnna., 9m general laborer
in Pittsburgh steel mill, chest crushed by fall of load of wire from travelling crane (no
safety work), 3m white lead wks., lead colic. 2m coal miner Penna.
Note 2. On 8h shift, 8hrs. reckoned atheading, 2500ft., 15 min. walk from heading.
Diagnosis
Caisson disease?
Psycho neurosis.
Acute mastoiditis, left.
Operated.
Otitis media chronica, sin.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
M
a
s s a
c h
u
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s e t t s
e n
e r
IN D U S T R IA L
Name
a
H
l
o
s p i t a
l
C L IN IC
John A ngelo
Industrial Clinic No. 41
Overtime every day. With gauge pressure 28 lbs., worked 9kh three times, lOh
tivice, 10^h twice. No lunch recess.
Note 8. Two physicians provided by employer, 1 to examine applicants, 1 to
treat injuries. Pt. not examined before admission to tunnel.
Note 4. Heat during period of compression in air lock, copious and free per
spiration while working, many workmen stripped to waist. Extreme cold
on decompression, heavy coats usually loom.
Notes. Almost continuous heavy work for 8h, under 25-28 lbs. gauge pressure.
Note 6. Compression in from 2 to 3 minutes, decompression in from 7 to 10
min. determined by size of nipple in exhaust valve. Lock tenders unin
telligent, mere guards. One lock to each of two tubes, cylindrical, 6x20 ft.,
hold about 40 men. Many men left tube by muck lock with 2-3 min. decom
pression, pt. did not. Pt. admitted from Eye and Ear post oper. History
of daily nose bleeds while on tunnel job. After 6d bled from left ear while
in lock. Cont’d on job 2d. liep't’d to nurse, saw no doctor; in bed 2d.
Rep’t’d to doctor again. Rec’d to Eye and Ear.
Cplt. Pain in chest. Pain in head, dizziness. General weakness.
For med. record over.
M
a
s s a
c h
u
s e t t s
G
e n
e r
a
l
H
o
s p i t a
l
SOCIAL SER V IC E D EPA R TM EN T
IN D U S T R IA L
C L IN IC
Nam 0 John Angelo
Date May 30,1916 Age 26 S. M. W .D . Industrial Clin
ic No. 41
Address 43Staniford Street, Boston, Mass.
Flight 1st O. P. D. No. 298-781
S. S. D. No. 101,06
House No.EM295.106
Home conditions
Tenement
5
$3.00 mo. as lodger
H o u se , te n e m e n t
Poor toilet facilities
S a n ita tio n
R e n t
E n v ir o n m e n t
Sleeps in room with 4 other lodgers, windovjs shut
S le e p in g fa c ilitie s
N u m b e r in ro o m
Street-car @ SO $ per weelc
2 miles
D is ta n c e fro m
R o om s
w o rk
H o w co v e re d
S u p p le m e n ta r y w o rk
Deeply worried because unable tosend money todependent parents in Italy.
W o rr ie s
Household
Members—kin—age Patient boards with family of four, two children.
Nine
lodgers
Patient's parents, both over 70, in Italy, supported by Pt. and his brother. This
brother killed one month ago in war. Pt. has brother-in-law in this country.
Finances
$15.00 per week
none
under W. C. A . only
F a m ily e a rn in g s
S a v in g s
In su ra n ce
Case followed by 0. P. D. and House Social Service. After discharge from
M .G .H . entered Eye & Ear, from which discharged against'advice. Settled
case with liability insurance company for $1,200, receiving $150 in cash,
balance forwarded by Italian consul to Italy. Patient left for Italy the day
. he settled case.
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183
That is the method adopted since the early part of the year in the
attempt to get a more accurate idea of the number and character of
the cases with which we are dealing. The difference is this, that
whereas before in 18 months we got 624 cases we now get every day
from 20 to 30 cases, and about 40 per cent of those cases show all
the way from some slight result to severe results of their occupation.
As already stated, at the present rate we shall be getting 5,000 or
more records a year of individuals who have hazards in their occu
pations, and at the present rate of progress about 40 per cent of them
will show in their occupation something that is affecting their health
unfavorably.
Take a very concrete thing, which is clearly the result of occupa
tion, and is always a good index of the results you are getting in the
study of occupations in general, namely, lead poisoning. In the five
years just preceding the adoption of any special methods of study
of this matter we had 146 cases of lead poisoning in the records of
the hospital. At the rate that we are going now, with the special
method of rooting out those cases, we are getting cases of lead pois
oning at the rate of about 150 a year in the same clinic and under
about the same conditions of clientele. The fact that the symptoms
are due to lead poisoning is proved, if there is any doubt about it, by
an examination of the excretions, showing that the individual is
excreting lead. It is fair to believe that we are probably seeing at
the hospital at least three or four times the number of cases of lead
poisoning that would lie caught by the ordinary method. This and
our other results would make me take some exception to one remark
of Prof. Willard Fisher, that industrial diseases are not very com
mon. I think these records show that they are not in the least
uncommon, and cases are coming in all the time in which there is
an effect on health from occupations, and a very considerable number
of cases that are definitely entirely due to occupation, like lead
poisoning and cases of that kind.
Now, occupational effects upon health (as against specific occupa
tional disease) are as varied as industry itself, almost. I do not mean
to go into that in detail. But there are one or two things in relation
to that particular point that I should like to speak of, and especially
in their bearing upon the chief interest of this conference. In the
first place, I think one can fairly say as to such things as lead poison
ing, and other things that are clearly and definitely due to occupa
tion, and about which no honest and sane man can have any doubt,
that, as Prof. Fisher stated, there is no reason in justice why such
things should not be subject to compensation, just as much as an in
jury that an individual suffers from an accident. Compensation for
industrial diseases is, it seems to me. on precisely the same basis as
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MONTHLY REVIEW OP THE BUREAU OF LABOR STATISTICS.
compensation for industrial accidents, so far as justice is concerned.
There is a considerable number of such cases, and they are quite as
much in need of compensation as cases of industrial accident and
oftentimes more in need of compensation, because the workers are
likely to be hit harder by the thing and to be hurt longer.
On the other hand, I think there is an element of distinct danger
in the question of compensation for industrial disease. While it does
not change my opinion at all that compensation ought to be given for
industrial disease, as is done now in Massachusetts, I think, on the
other hand, we must recognize the fact that in dealing with occupa
tional disease there are a great many cases which will or will not be
included in that class, depending entirely upon personal opinion and
not upon a consensus of opinion. There is this difference between
occupational disease and industrial accidents. An accident is clearly
and undeniably an accident. There is no question about it. You can
demonstrate that it is an accident and that the accident caused the
result. When you are dealing with occupational diseases, individual
opinions will vary a great deal in individual cases, and it seems to me
that it will be necessary to adopt some clearer way of telling which
of these things can fairly be imposed upon industry and which can
not be imposed upon industry. Otherwise there is the possibility of
letting in pretty nearly everything in the way of disturbed health
that may occur in any and all occupations. If there is no dividing
line drawn, I can see no place where you can stop short of the point
of saying that almost all disturbed health that occurs in industries
might be considered to be subject to compensation. That question has
come up very decidedly in some of the conferences that I have had
with the Industrial Accident Board of Massachusetts. Indeed, the
rulings of the court there last year showed that they saw clearly some
such possibility, and that if it was not to be met the law must be
changed.
I believe we need to have trained persons who are in the employ
of the State, and not merety getting fees from the State from time
to time, so that their interest and study are devoted to this thing
and they are in an unbiased position. We need to have trained
medical men, as they have in England, for example, to give the
deciding opinion in these matters, otherwise medical opinions will
vary from A to Z. I have in mind one exceedingly important case.
A very important opinion was given by a medical man who had no
training in industrial disease, and training in industrial disease is
as necessary as training in surgery or any other technical matters
if an opinion is to be reliable. This man gave an opinion in favor of
a man whom T saw afterwards, and who I am sure never had any
occupational condition at a ll; and yet that opinion had an extraor
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185
dinary wide legal and economic influence as a precedent. On the
other hand, I have repeatedly seen medical men decide that cases
were not occupational diseases although they were clearly so. I think
one of the most important things is to have trained persons making
the decision in cases about which there is any doubt.
Now, in regard to the large number of cases in which there is a
good deal of doubt as to whether the industry is responsible, or, at
any rate, doubt as to how far it is responsible, I do not believe that
a large proportion of them can ever be given compensation without
burdening industry so that it can not carry them. I think those
will have to be covered in some other way. There are questions, for
instance, like that of fatigue, which is, I think, probably the most
common and the most important bad effect of occupation on thè
individual. The figures of Dr. Wright, who is in charge of our
clinic, show that fatigue is probably the largest element we deal
with. Yet it is a very hard element to prove in most individual cases.
These cases and various other kinds will have to be covered in some
other way, and, all told, these constitute the vast bulk. It seems to
me our experience in occupational disease confirms the opinion gained
from other sources, that probably the best available way that we
have to cover these things is by something that spreads out over all
industry and is aided by the State—that is, by health insurance or
something like it.
AN INDUSTRIAL CLINIC.
B Y
W A D E
W E IG H T ,
M .
I > .,
H E A D
O F
T H E
G E N E R A L
IN D U S T R IA L
C L IN IC ,
M A S S A C H U S E T T S
H O S P IT A L .
The first organized effort to study industrial disease in the Massa
chusetts General Hospital was made in 1913, when a social worker,
Miss Susan Holton, began the work in the out-patient department,
assisted by volunteers. To her were referred by the visiting physi
cians such cases as they considered of industrial interest or im
portance.
The pioneer work of Miss Holton was admirably carried on by
Miss Alice Sinclair until 1916, and in all about a thousand records
were made. But excellent as the industrial and social histories were,
in but rare and exceptional instances could such histories taken by
the earlier plan be closely linked with a thorough clinical study of
the ease. The physicians were usually almost wholly out of touch
with the industrial conditions and occupational hazards involved, and
the social worker of course knew little medicine.
In March, 1916. the industrial clinic was opened in the out
patient department of the hospital, its staff eventually consisting of
one full-time salaried physician, a full-time salaried industrial-social
worker, a secretary, and a number of volunteer social workers. A
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
worker was placed each morning at a table before which passed the
“ admitting line ” of new patients, with authority to select therefrom
any and all patients whom she considered suitable cases for study
in the industrial clinic, in view of the hazards of their occupations
or the complaints which brought them to the hospital. A selected
case was diverted temporarily from the clinic to which it was origi
nally assigned by the admitting officer, as, for example, to the male
medical or the throat clinic, and the patient and his record appeared
instead in the industrial clinic.
Patients were selected, with few exceptions, upon the basis of in
dustry or trade process without relation to the particular ailment
or complaint presented. Reference lists (revised from time to time)
of industries and trade processes in this locality which were known
or suspected to be injurious to health were furnished to the volun
teer worker, who soon acquired much skill in quickly questioning
the persons passing before her and thereby determining the correct
ness of statements as to “ industry,” “ occupation,” and “ period of
time therein employed,” already typewritten by a clerk upon the
heading of the patient’s record card, and in choosing proper cases to
send to the industrial clinic.
Thus all the new cases taken in by the out-patient department were
sifted by a trained worker of the clinic, the reference lists in great
measure aiding her to secure the cases. (For these lists, see pre
ceding article, by Dr. Edsall.)
In addition to cases received from this source, cases were referred
for study to the clinic from the other clinics of the out-patient de
partment, from the pay-consultation clinic, and from the wards of
the hospital.
In one year, March, 191G, to March, 1917, 5,121 cases were received,
of which about 5,000 were from the out-patient department, to which
department during a corresponding period 32,122 new patients were
admitted. Of the 5,121 cases, 4,280 were male and 841 female.
It was hot to be expected that all cases studied would present evi
dence of a relation between the hazards of industry and the patients’
ill health. Hence many patients were dismissed from the industrial
clinic after brief questioning and examination to continue in the
clinic to which they were originally designated. In each case, how
ever, an effort was made to secure a brief record on a standard 3
by 5 inch index card, noting the patient’s name, address, industry,
trade process, employer, and duration of employment, with possibly
a^note of previous employment and some comment upon the indus
trial or medical aspects of the case. This card was then dated and
filed by the patient’s serial out-patient department number. Later
the diagnosis and other important data were secured from the
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
187
patient's medical record and added to the industrial clinic card.
(For samples of these cards, see preceeding article, by Dr. Edsali.)
If a patient upon first questioning or examination seemed to war
rant more thorough study, a more detailed record was made upon
special forms and a more thorough examination instituted.
When the industrial clinic was opened no patients were treated
therein, but after some months a special assignment was made to it
of cases of lead poisoning. Otherwise the patients were placed un
der immediate care of the physicians of other clinics.
Table 1 shows the distribution of cases among the several trade
processes of the industries represented, with a rough classification of
the nature of the medical conditions found. This table has no exact
relation to occupational disease. It gives chiefly an indication of the
industries that furnish most patients to this hospital. Their illness
was often not occupational, but the table is of interest in showing
in a general way the industrial source of our clientele.
T
1 . — D IS E A S E C O N D IT IO N S F O U N D A M O N G E M P L O Y E E S I N C E R T A I N S P E C I F I E D
IN D U S T R IE S A N D T R A D E P R O C E S S E S , W H O W E R E S E N T TO T H E IN D U S T R IA L
C L IN IC , M A S S A C H U S E T T S G E N E R A L H O S P IT A L .
able
Disease condition.
Industry and trade inTotal
trade
Gastro
process.
Respi intes Strains. Skin. Consti Vene Phthis Tuber Miscel
group. ratory.
pation. real.
is.
culosis. lane
tinal.
ous.
Boot and shoe (105)
establishments.
Cutters......................
Vampers, etc............
Lasters, e tc ...............
Bottom fixers, e tc ...
Ironers, etc..... .........
Miscellaneous...........
110
196
174
22
44
454
34
37
34
2
4
80
18
34
29
3
7
75
6
9
14
2
8
35
13
28
11
3
3
34
6
25
8
Q
39
17
14
24
4
6
45
T otal...............
1,006
191
166
74
92
81
110
6
3
2
Rubber (.48) establishmints.
Mixers, etc................
Spreaders..................
Cutters
Stitchers...................
Cementers................
Miscellaneous. . . __
32
19
24
36
106
176
T otal...............
Cotton ( 104) establishments.
Carders, e tc ..............
Spinners,, etc............
Weavers...................
Miscellaneous...........
6
9
9
6
10
9
20
10
1
1
30
31
35
7
12
96
44
57
191
.
9
19
14
y
5
1
6
16
51
3
1
16
23
6
11
12
6
2
3
4
2
3
7
43
393
57
86
28
32
30
15
14
17
114
21
77
91
90
6
11
11
14
5
13
12
14
2
2
5
12
3
12
2
16
21
5
3
3
5
8
4
6
8
11
23
17
T otal...............
*
Woolen (51) establishments.
Carders, e tc ..............
Spinners, e tc ............
W eavers...................
Miscellaneous...........
279
42
44
9
27
44
19
29
50
30
85
10
6
2
4
24
26
25
4
9
141
5
16
15
27
5
1
2
9
3<)
T otal...............
366
63
84.
14
22
64
no
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Federal Reserve Bank of St. Louis
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2
9
2
1
6
1
4
6:
4
15
2
4
6
8
2 0
[1259]
1
1
6
. 8
13
15
12
7
13
11
25
44
30
2
f,
7
4
2
7
47
10
3 0
188
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Considering the above industrial data relating to employment
alone, several points of interest are found. Of the leading industries
of Massachusetts, the shoe industry furnished 1,006 cases, coming
from 195 establishments; the rubber industry, 393 cases from 48 es
tablishments; the woolen industry, 366 cases from 51 establishments;
and the cotton industry, 279 cases from 104 establishments. A study
of the distribution of cases among various employers has furnished
much valuable and suggestive material upon which to base construc
tive advance in factory hygiene. It was noted, for example, that one
establishment was the source of an overwhelming majority of cases in
its industrial group, a majority not proportionate to the relative
size of the factory. ' This establishment also maintains a very large
dispensary at its plant, and this means that they have more illness
there than our figures would indicate.
I t is too early to go into great detail, but in more direct relation to
occupational disease the following facts are important :
In the first year of the clinic 466 cases were observed in which
there was apparent definite relation of a patient’s disease or disability
and the hazards incident to that patient’s work ; in many more cases
it was suggested. There were 91 cases of “ occupational strain,”
usually from faulty posture at work, often associated with excessive
fatigue, but rather indefinitely distinguished from the group of “ oc
cupational neuroses,” numbering 22 cases. This latter group was
of special interest because of the variety of processes represented,
including among others cigar makers, piano students, a telephone
operator, a seamstress, and a cloth cutter. These cases were particu
larly interesting because of the psychic element often involved, the
difficulty in treatment, and the probability that many so-called neu
roses have a very real pathological condition as their cause. For
example, the cervical hypertrophic arthritis sometimes found in cigar
makers may possibly explain their so-called neuroses on a pathologi
cal basis.
There were 56 cases in which the respiratory tract was affected
and 54 cases of industrial dermatoses, exclusive of anthrax, of
which there were 18 cases. Nineteen persons were affected by}
naphtha fumes, usually in the chronic form. There were 12 cases
of caisson disease, none very acute, 148 cases of lead poisoning, and
46 cases in the group of miscellaneous diagnoses.
These patients were studied with the primary purpose that through
an accurate knowledge of etiological and contributory factors they
might be adequately treated and advised. In addition to the benefit
to the patients themselves there was no little gain of knowledge to
the hospital staff. A keen and growing interest has been manifested
in the varied problems of industrial diseases.
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[ 1260 ]
MONTHLY REVIEW OF THE BÜBEAU OF LABOE STATISTICS.
189
LEAD POISONING.
Special attention has been given to lead poisoning because it can be
studied more accurately and definitely than can at present most other
common industrial diseases, and it provides an excellent index of
what special study of these diseases accomplishes as against the
usual method of caring for them simply as the general run of cases are
cared for.
In a period of five years before the industrial clinic was estab
lished 147 cases were diagnosed as lead poisoning in the various
departments of the hospital. In the first year of the industrial clinic
148 cases of lead poisoning were diagnosed. This diagnosis was in
every case based upon such evidence as a lead line, tippling of the red
blood cells, lead in the stools or urine, or in both, coupled with ade
quate clinical evidence, and in almost all cases with a history of ex
posure to lead in some form. The series of cases, tabulated according
to industry and trade process, is shown in Table 2.
T a b l e 2 . — C A S E S O F L E A D P O IS O N IN G D IA G N O S E D D U R IN G F I R S T Y E A R O F IN D U S
T R I A L C L IN IC , M A S S A C H U S E T T S G E N E R A L H O S P I T A L , B Y O C C U P A T IO N S .
Number
of cases.
Occupation.
Painters:
House...............
Carriage and au to __
Machine.............. .
Dip.
Stiray......................
Bed...
Can.......................................................
• Car..............
Total................
56
2
1
1
1
1
1
68
Shipyard:
P ainter.........
Plum ber.................
Pipe fitter..
Boiler maker__
R iveter. . .
Holders on...........................................
Heater boy...........................................
T otal.............
1
1
1
1
1
3
1
9
Navy yard:
Painter.......................
..............
Plum bers__
R iveter...........
B older on............
Chipper and calker ................
Occupation.
Lead and lead oxide workers—Con.
Smelters___
T otal........
Printers:
Stereotyper.........
Compositors (3 males, 1 female).......
Pressmen and helpers.
l
4
2
Bundle boy (knitting mill)...............
Photo-engraver........
Linotype?................
i
x
i
T otal.............
Miscellaneous:
Tinsmiths..........................
Storage b attery . . .
Structural iron__
1
3
1
1
1
Farmer (spraying).....................
Insect powder makers. ..
Bearings painter. . . .
Tube polisher............
Chalk sifter.........................
Carpenter......................................
Blacksmith's helper
6
2
1
1
1
Nonindustrial:
Housewives.........................................
Foundrym en....................
Candy worker.................................
Pick and shovel laborer...........
4
Lead and lead oxide workers:
Roaster.
Castings stripper..
Packers and helpers............................
1
1
2
Shoe worker............................
Barber
Machinist........................
T otal.................................................
Grand to ta l.................
1 W o rk ers w ith lig h t brass.
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ii
3
x
1
i
2
X
X
x
X
x
14
Brass foundrymen 1.
25413°—17----- 13
6
8
H
T otal........
2
Plum bers.......
T otal........
Rubber workers:
Mixers and helpers.............................
Calenderers and helpers.....................
Spreader.. ..
Stacker..........................
Vamisher...
Number
of cases.
[1261]
2
2
x
x
x
1
x
1
10
148
190
MONTHLY REVIEW OP THE BUREAU OF LABOR STATISTICS.
Table 3 sliows the number of cases of lead poisoning observed in
relation to the number of persons from the same trade groups ex
posed to lead but in whom no satisfactory evidence of lead poisoning
was obtained.
T a b l e 3 . —NUM BER
OF W O R K ER S OF SPEC IFIED OCCUPATIONS B E FO R E INDUS
TRIAL CLINIC, MASSACHUSETTS G EN ER A L H OSPITAL, WHO W E R E FOUND TO
BE POISONED BY LEAD, AND NUM BER E X PO SED TO BUT NOT FOUND TO BE
POISONED BY LEAD.
Exposed
to lead,
Poisoned
not
known by lead.
to be
poisoned.
Occupation.
Total.
121
68
11
16
11
6
4
8
10
14
217
64
54
169
6
9
42
10
135
558
148
706
Painters......................................
P rinters......................................
Shipyard w orkers.....................
Rubber w orkers........................
Lead oxide and sm elting...........
Brass foundrymen.....................
Plumbers....................................
Nonindnstrial............................
Miscellaneous.............................
149
53
38
i 158
Total....................................
5
34
1Workers with compounded rubber included because of eases of lead poisoning found among such workers.
Of the group of 148 cases of lead poisoning, 145 were males and 3
females; 25 were native born, 106 foreign born, IT not specified.
This is a larger proportion of foreign born than is shown in the
hospital at large, and suggests a possible relation of the poisoning
to ignorance of dangers, though not to the ignorance of wholly un
skilled workmen, for most of the individuals poisoned were of the
skilled or semiskilled class. The average age, average number of
years in the trade, and average duration of symptoms, when figures
were obtained, are shown in Table 4.
T a b l e 4 . —AVERAGE
AGE, YEARS IN THE TRADE, AND DURATION OF SYMPTOMS OF
148 LEAD POISONED W O R K ER S B E FO R E IND U STR IA L CLINIC OF MASSACHUSETTS
GENERAL HOSPITAL.
Average
age.
Average
yearin
trade.
Painters...............................
Printers...............................
Ship and navy yards.........
Rubber workers.................
Lead and lead oxide
Brass foundry.....................
Plumbers.............................
Nonindustrial.....................
Miscellaneous......................
36. 58
34.44
31.87
37. 80
34.16
44. 66
32.14
41.12
35.57
14.17
10. 60
8.74
4.19
4.23
9.08
13. 88
13. 58
8.12
Total............................
36.47
19 .12
Occupation or industry.
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1 Excluding nonindustrial cases.
[1262]
Average
duration of
symptoms.
Yrs.mos.u'lis.
1 4 ..
9 9 ..
1 .. 3
.. 4 3
.. 11 ..
1 4 ..
2 9 ..
.. 0 ..
2
3 ..
M ONTHLY
R E V IE W
OF T H E
BUREAU
O F L A B O R S T A T IS T IC S .
1 9 1
ymptOTns.
/S '
The most common symptom was low abdominal pain, almost always
associated with constipation. In but 6 cases was there diarrhea.
Loss of appetite was often an early though seldom the earliest of gas
trointestinal symptoms. Nausea and vomiting were not infrequent.
Indefinite pain in the lower lumbar and sacro-iliac regions was
very often described, as well as pain in the arms and legs, most fre
quently in the thighs, and seldom in the joints.
Weakness of one or both wrists, notably of the group of extensor
muscles, was second in frequency only to colic, but a complete wrist
drop was seen in but 5 cases.
An interesting symptom observed in several cases, which was
almost bad enough of itself to bring two of the patients to the hos
pital. was pain in the external condyle of the humerus, closely local
ized, on pressure, to an area about 2 centimeters in diameter. It may
be recalled that it is to this bony eminence that most of the extensor
muscles of the forearm are attached, and the pain is possibly to be ex
plained by this circumstance.
A lead line was observed in 78 cases. I t was not always distin
guishable at a distance, but definite when viewed closely with a lens.
A measure of much value in searching for a lead line was the cautious
rubbing of the edge and surface of the suspected gum with a piece of
gauze, avoiding if possible the bleeding so frequent with the gums of
ill-kept and pyorrheic mouths. In a number of instances when little
or no evidence of a lead line was apparent at the edge of the gum,
even on careful examination, when a tab of gum was everted and the
surface normally in contact with a tooth was exposed, it was found
to be thickly set with blue-black markings similar to those of a
typical lead line.
Pallor, weakness, and loss of weight were frequently observed and
in many cases insomnia, headache, and vertigo. Partial loss of mem
ory, attacks of unconsciousness, and a variety of.minor mental dis
turbances were noted in several cases.
Owing to the lack of a technical assistant no systematic effort was
made to study the blood of all cases. Of those cases whose blood was
examined, a basophilic stippling of the red cells was usually found.
In doubtful cases or for the purpose of checking up treatment the
chemical analysis of urine and stools was of great value. The analy
ses were usually called for only iq, questionable cases because of the
time and expense involved. They were made in the chemical labo
ratories of the hospital under the direction of Dr. Willy Denis. '
In the cases cited lead was found in the urine 28 times and in the
stools 41 times. For each set of analyses 2 quarts of urine and
1 pint of stools were required. No quantitative determinations
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M ONTHLY
r e v ie w
o e
t h e
b u r e a u
o f
LABOR
s t a t is t ic s
.
were made. Inasmuch as lead has been found in a patient’s specimens
for months, lias then disappeared and reappeared, the patient being
under treatment and free from exposure to lead during the entire
period, there seemed little reason for employing quantitative tests in
the clinical studies.
Table 5 shows the findings in 238 analyses of specimens from sus
pected cases, 126 analyses of urine, 112 of stools.
T able 5 .—NUM BER AND RESULT OF ANALYSES OF U RIN E AND STOOLS OF SUSPECTED
CASES OF LEAD POISONING AMONG W ORKERS B E FO R E INDUSTRIAL CLINIC, MASSA
CHUSETTS GENERAL HOSPITAL.
Result of 238 analyses of specimens—
Stools.
Urine.
Positive.
28
1
Negative.
Positive.
41
22
28
22
21
(i)
(l)
10
0)
0)
(’)
(l)
8
39
87
58
Negative.
44
1
(!)
(l)
9
54
1 Analysis not made.
Of the 238 analyses, 97 were positive, 141 negative, thus offering
negative evidence as a check upon the accuracy of the method.
It is important to note that in 22 cases lead was found in the stools
but not in the urine, and that in but one instance were these findings
reversed and lead found in the urine but not in the stools. The ex
amination of the urine alone, as so often recommended in the study
of lead poisoning would in these 22 cases have been most misleading.
Treatment.
The treatment of lead poisoning was surprisingly satisfactory. It
was of course essential that the source of lead be found if possible,
that it might be avoided by the patient, although not all of our
patients could or would give up their hazardous trades or even ob
serve caution. The first step in treatment was, painstakingly and
in untechnical words, to inform the patient how he could be and
probably was poisoned, how he could get rid of the lead, and the
evil consequences of his failure to do so. He was then given ex
plicit instructions regarding; his eliminative treatment, which as a
routine involved large closes of Epsom salts and a decided increase
of fluids taken. Hue regard for the difficulties of such treatment for
a man at work had to be observed, and the orders were tempered to
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[1284]
M ONTHLY
R E V IE W
OF T H E
BUREAU
O F LA B O R S T A T IS T IC S .
193
meet the needs of the individual or to avoid conflict with the treat
ment of any other ailment or complication. It was usual that after
two weeks of obedience to directions a patient was able to report to
the clinic that there was distinct improvement, freedom from pain
and constipation, from pain in the back or the extremities, improve
ment of the appetite, loss of headaches, and a steady gain in weight.
Potassium iodide was seldom used, and no evidence was observed to
show that it was of material benefit when employed.
The conduct of the cases was much simplified through the follow
up system of the industrial clinic, by wThich a delinquent patient was
kept reminded of the necessity for continued visits to the hospital,
and also by the fact that when the patient returned he would be seen
upon each visit by the same physician, who the patient felt knew
about him and his job, and who possibly had even visited his place
of employment and knew his boss.
Cases in which there were social complications and certain prob
lems relating to workingmen’s compensation were referred to the
clinic social worker for investigation and disposition—by her alone
or in cooperation with other agencies.
All of the clinic staff endeavored to familiarize themselves with
local industrial conditions through frequent visits to factories and
other industrial establishments, where they rarely encounter other
than ready cooperation and a real interest in the problems of in
dustrial diseases and industrial hygiene.
Special mention should be made of the earnest and enthusiastic
work of Miss Helen Bradfield, social worker of the clinic; Miss Ruth
Ensign, clinic secretary; and Miss Cecilia Markel, volunteer social
worker ; while to Dr. Richard C. Cabot, and Dr. David L. Edsall,
of the staff of the Massachusetts General Hospital, and to Miss Ida
M. Cannon, chief of social service, the fullest credit for the progress
of the clinic should be given, for its existence and growth have been
the result of their broad vision, sympathetic understanding, and wise
guidance.
Because of conditions arising out of the present state of war, the
industrial clinic has been temporarily suspended.
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Federal Reserve Bank of St. Louis
[1265]
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Federal Reserve Bank of St. Louis
PRACTICAL POINTS IN THE SAFE HANDLING OF TRINITRO
TOLUOL.1
B Y
J .
W .
S C H E R E S C H E W
S K Y ,
S U R G E O N ,
U N IT E D
S T A T E S
P U B L IC
H E A L T H
S E R V IC E .
The great reduction in individual efficiency, the lost time, the ill
health, and the sometimes fatal results due to chronic poisoning from
the nitro and amido compounds of benzol and toluol in general, and
trinitrotoluol in particular, are now so well known, and the danger
of the occurrence of cases of such poisoning in the tremendously
developed munitions industry is so manifest, that there can be little
doubt that attempts will be made by all firms engaged in handling
such poisons to safeguard their workers from chronic poisoning.
The safe handling of trinitrotoluol, however, can not be accom
plished by the will to prevent poisoning alone. Poisonous com
pounds like trinitrotoluol can only be handled with safety to the
workers concerned provided strict attention be paid to a considera
ble number of details, each of which is perhaps but a small compo
nent factor in the defense, the integrity of which, nevertheless,
depends upon its unbroken front. This paper, therefore, is an
attempt to summarize the practical means for securing effective pre
vention of poisoning by trinitrotoluol.
Channels of poisoning.—It is well known that trinitrotoluol, like
many of the other nitro and amido coal-tar compounds, is readily
absorbed through the skin. The next important avenue of absorp
tion is the respiratory tract. Trinitrotoluol is absorbed with much
more difficulty through the mucous membrane of the intestinal tract.
The main channel of excretion is probably the urinary tract, although
it is possible that a certain amount may also be excreted through
the intestines.
Like all other poisons, there is a minimum toxic dose, which varies
according to the susceptibility of the individual. As long as the
amount absorbed remains beneath these limits symptoms will not be
observed. While it is well-nigh impossible to prevent completely
the absorption of trinitrotoluol whenever this substance is handled,
nevertheless it is quite practicable, by attention to the points pres
ently to be discussed, to keep this absorption well below the mini
mum toxic dose, except, perhaps, in the case of susceptible persons.
The following remarks are confined solely to the processes involved
in the loading of shells with trinitrotoluol, for the reason that its
1 R ead before th e section on in d u stria l hygiene of th e A m erican P ublic H e a lth Asso
ciatio n , W ashington, D. C., Oct. 18, 1917.
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[111G7]
195
196
M O N T H L Y R E V IE W
OF T H E BU REA U
O F L A B O R S T A T IS T IC S .
manufacture is mainly confined to a few firms, whereas loading proc
esses are likely to be carried on by any manufacturer possessing the
requisite facilities, which, after all, are rather simple. For this rea
son the number of workers involved in loading operations is likely
to be very much greater than that concerned in the manufacture of
this substance. Besides this, long contact with the production of
other poisonous nitrated benzol products should have given manu
facturers of trinitrotoluol the requisite experience to enable them to
handle the manufacture of this substance with safety to the workers
concerned. In addition to this, in the manufacture of trinitrotoluol,
except at the final sieving and packing operations, the substance is
handled either in closed containers or in a moist condition, under
which circumstances the risk of poisoning is very greatly reduced.
In loading operations, on the other hand, there is constant oppor
tunity for nearly everyone connected with such work to become the
subject of chronic poisoning through either the fumes or the dust
of this substance.
PRECA U TIO N S TO BE OBSERVED.
If it is desired to reduce to a minimum the risk of poisoning with
trinitrotoluol, attention must be paid to certain details under the
following general headings:
1. Planning and construction of workrooms.
{a) Separation of processes.
(b) Conveyor systems.
2. Methods and processes employed.
3. Sanitary precautions on the part of the workers.
4. Hours of labor.
5. Medical supervision.
Planning and construction of workrooms.—The planning and con
struction of buildings used for handling trinitrotoluol can either
greatly simplify or complicate the problem of its safe handling.
There is no doubt that great advantage, so far as both production
and safety to the health are concerned, is derived from correct loca
tion of buildings in relation to each other, the general principle being
that these should permit continuous routing of the raw materials so
that at no point will there be any crosses in the route of the product
as it proceeds from the raw to the finished state. This permits the
complete segregation of one stage in the process of loading from
another, and prevents the exposure of one set of workers to hazards
derived from a process with which they have nothing to do.
Type of buildings.—The type of buildings in which a dangerous
substance like TNT is handled has also much to do with the facility
with which sanitary conditions may be obtained. All such build-
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ings should be long, narrow, and of one story. Such construction
lends itself readily to the installation of the conveyor system and
methods of progressive assembly; abundant natural ventilation is
readily furnished because of cross currents of air through opposite
openings. Moreover, monitors in roofs in conjunction with the side
openings will operate more effectively than similar installations in
rooms which are approximately square. Another favorable charac
teristic of a long and narrow construction, which aids in the main
tenance of sanitary conditions, is the abundant natural illumination
afforded. This not only facilitates the work, thus preventing un
necessary splashing and spills, but a well-lighted condition in a workmom reveals accumulations of dust and dirt which otherwise lurk
unnoticed.
Separation of process—X fundamental tenet in all .hazardous
processes is that the only persons exposed to the particular hazard
should be the group of workers involved. The long narrow construc
tion of buildings renders the segregation of various processes easy
by the use of cross partitions. With the square building, this is much
more difficult to secure. Such partitions cut off needed light; the
greater length makes them expensive to erect ; the necessity for using
all the floor area either renders their erection impracticable, or, if
erected, disturbs the routing of the material.
Conveyor systems.—There can be no question that a properly in
stalled conveyor system greatly facilitates the safe handling of trini
trotoluol in loading operations, because handling the substance in the
shells is reduced to a minimum. Again, as previously pointed out,
such conveyor systems are much more readily installed in long nar
row buildings than in square buildings.
Methods and processes involved.—There are two general ways in
which the explosive is introduced into the empty shell. The pow
dered trinitrotoluol may either be pressed into the shell by power
presses, or poured into the shell in a molten condition.
The former process is used mainly for loading large shells, which
of course are used in much less quantities than small shells, in mili
tary operations. Moreover, presses are installed in heavy concrete
compartments to guard against the effects of possible explosions.
Very simple precautions are all that are needed to prevent any escape
of dust in handling the powdered trinitrotoluol prior to pressing the
charge.
In the average loading plant, however, we find that the charge is
usually placed in the shell by pouring it in in a molten condition.
Because of the ease with which poisoning may occur when handling
melted trinitrotoluol, the following deals especially with the methods
for rendering such handling safe.
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Precautions in melting trinitrotoluol.—The melting of trinitro
toluol is carried on, as a general rule, in large iron kettles heated by
steam coils. Such melting kettles should be installed in a separate
compartment, provided with abundant natural ventilation, through
opposite openings, a monitor roof, and mechanical exhaust in the
neighborhood of each kettle. Such kettles should be preferably broad
and somewhat shallow in form, rather than narrow and deep. The
kettles should be covered in, and provided with an exhaust pipe in
which a gentle upward draft is maintained by mechanical means, so
that at all times a slight negative pressure exists in the kettles. This
prevents the escape of trinitrotoluol fumes into the air of the melting
room. The heat should be applied to the lower portion of the kettle
rather than uniformity over its area. This brings about the melting
of the eharge from below upward, so that the trinitrotoluol at the
top is distinctly at a lower temperature than that at the bottom. In
this way the amount of fumes which must be gotten rid of by the
exhaust is substantially less. Attention should also be paid to the
temperature maintained in the kettles, so that this is not unnecessarily
high. The application of too great a degree of heat in melting not
only increases the loss by evaporation of valuable material, but
also increases greatly the amount of fumes which may be present
in the air of the melting room.
In charging the kettles with fresh trinitrotoluol attention should
be paid to the prevention of dust. The aperture in the kettle should
be provided with a lip to prevent spilling of the powder. A remov
able hopper fitting tightly into the aperture would also assist greatly
in the prevention of unnecessary dust. The installation of perma
nent hoppers above each melting kettle, provided with a cut-off, also
merits consideration, as a large quantity of the explosive could be
placed in the hopper at one time, and then gradually added in small
quantities to the melting kettle as needed. In this way the exposure
to trinitrotoluol dust would be reduced to a minimum.
Casting.—After the trinitrotoluol has been melted in the kettle, it
is usually drawn off in tubs, in which it cools, while being continu
ously agitated until near the point of solidification, whereupon it is
poured into the shells. The purpose of the agitation is to secure
uniform and more rapid cooling of the melted product. Very often
this agitation of the melted trinitrotoluol is carried on by the use of
wooden hand paddles by workers who sit continuously at these tubs,
doing nothing else. Obviously this is extremely hazardous, as the
trinitrotoluol is constantly above the temperature at which vola
tilization takes place. Where this process of hand agitation is car
ried on an attempt is usually made to reduce the risk of poisoning
by the installation of exhaust hoods over the tubs. Personal obser-
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vations, however, have led to the conclusion that hand agitation of
melted trinitrotoluol can never be made safe; that the only permis
sible method is the use of mechanical agitators over hooded tubs.
All workers seen engaged in the hand agitation of melted trinitro
toluol have presented a uniformly bad appearance.
Pouring in the shells.—Two methods are in general use. The
first consists in arranging a large number of shells in racks on the
pouring lioor. The pourer takes a considerable quantity of melted
trinitrotoluol in a spouted container, and walks along the rows of
shells filling each one as he comes to it. This method is inherently
had. In order to fill an adequate number of shells at one pouring,
the pouring container is large, and when full, necessarily heavy.
This leads to awkwardness and inaccuracy in pouring the charges,
especially in the first shells, thus causing numerous splashes of the
trinitrotoluol on the exterior of the shells, the floor of the castingroom, the shell racks, and the person of the pourer. In plants
where this method of pouring is carried out, the writer has. seen
thick incrustations of trinitrotoluol on all the localities mentioned,
the overalls of the pourers especially being fairly caked with tri
nitrotoluol. Such methods not only greatly increase the risk of
poisoning, but are wasteful of valuable material. Such wasteful
methods, however, spring originally from poor design of buildings,
as this is about the only practicable method in workrooms of square
construction.
The only casting method which should be considered is the one in
which the shells are placed in racks on a conveyor and passed before
the pourer, who is stationed at the cooling kettle. There is no
danger in this position to the pourer if the cooling kettle is ade
quately hooded with exhaust ventilation and provided with a me
chanical agitator. It is needless to say that the charge in the coolingkettle should be conveyed by gravity from the melting kettle above,
the opening in the cooling kettle being situated in its lower part,
so as to avoid splashing of trinitrotoluol while the charge is running
in. The proximity of the pourer to the cooling kettle permits the
use of a small pouring ladle. This enables the charge to be accurately
poured into the shell, because of the light weight handled.
A voiding splashes on exterior of shell.—It is evident that all splash
ing of the explosive on the exterior of the shell should be avoided.
Such splashing is not only wasteful of material, but increases the risk
of poisoning in subsequent handling, as naturally all such deposits
must subsequently be scraped off. Such splashing on the exterior
of the shell may be reduced to a minimum by the use of the conveyor
system and a small pouring ladle. As an additional precaution,
however, the adapters, which are screwed into the shell orifice to
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protect the screw threads of the shell from being clogged with melted
trinitrotoluol, and also to hold the spout through which the charge is
introduced into the interior of the shell, should be provided with a ;
perforated square of tin or stiff paraffined cardboard, slipped over
the spout to catch any splashes which would otherwise be deposited
on the exterior of the shell. With careful work it is quite possible
to pour charges into shells without any splashing of the exterior.
Wherever such methods are used the personal appearance of those
engaged in pouring is all the evidence that is required to convince
the observer of the superiority of such methods.
Recessing the charge.—After casting, the charge is recessed for the
reception of the “ booster charge” of a more sensitive explosive,
required for the detonation of trinitrotoluol. The end of the charge
must also be surfaced. This is usually accomplished in special drill
presses. In drilling out the charge, naturally considerable dust is
produced from the boring. There is also danger of a possible
“ blowing” of the charge. For this reason the recessing of such
charges should be carried on in completely inclosed compartments,
provided with doors which may be automatically opened and closed,
and with the provision of some holder or jig to hold the shell in the
drill press. When carried on under such conditions, workers operat
ing these drilling machines are exposed only to a minimum extent
to any danger of poisoning.
The remainder of the operations concerned consist mainly in
blowing out dust remaining after the boring, inspecting the shells,
introducing “ booster charges,” capping the shell for shipment, and
painting the exterior when this is required by the specifications.
After casting and recessing the charge the degree to which workers
are exposed to trinitrotoluol poisoning will depend upon the care
with which these processes have been carried out, such subsequent
exposure being due for the most part to scraping off deposits from the
exterior of the shell and cleaning out the screw threads in the nose
or base of the shell, according to its type, from any trinitrotoluol
which may be adherent. The quantities of the poison involved are
naturally dependent upon the care which has been employed in the
foregoing operations.
Additional operations which bring the workers in contact with
trinitrotoluol consist in the recovery of trinitrotoluol which adheres
to adapters and casting spouts, and the squares of tin or pasteboard
which may have been used to catch splashes during pouring. Be
sides this, dust from the floor of workrooms and from borings is
gathered up for recovery. Charges must also be recovered from
shells which have failed to pass the inspection. Such recovery is
simple and may be carried out safely by'simple melting operations
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in appropriate melting apparatus, in which the general principles
described in the primary melting of trinitrotoluol are complied
with. There is no doubt that the recovery of trinitrotoluol from
sweepings, which is usually attended to by ordinary laborers, is
frequently accompanied by poisoning, as such employees are usually
the least intelligent in the plant and are likely to be careless. Due
attention, however, to the loading methods previously described
reduces such need for sweeping to a minimum. Whatever sweeping
is necessary should be done by moist methods, all sweepings being
deposited in fiber or tin paper-lined boxes, with close-fitting covers.
The collection of dust from boring machines in tin or fiber boxes
provided with a tight-fitting lid, which may be closed subsequently,
will also reduce exposure to a minimum. If tin boxes are used these
should be paper lined.
¡Sanitary precautions on the part of the workers.—A lively sense of
the poisonous qualities of trinitrotoluol and the will to prevent
poisoning by the requisite cooperation with the management are
necessary on the part of all the workers. This means that all workers
should receive instructions from the plant officials as to the methods
by which trinitrotoluol poisoning may be avoided. These consist
obviously in reducing personal contact with the fumes and dust of
this substance to a minimum. There is no evidence that females
are more susceptible than males, but the young of both sexes are
likely to be highly susceptible. For this reason persons less than
21 years of age should not be employed in processes in which the
worker is brought into contact with trinitrotoluol.
. A complete suit of overalls, fitting closely at the neck, wrists,
and ankles, gloves,, and a cap covering the hair should be worn by
all the workers. Men should keep their hair short and be clean
shaven. The overalls should be provided with drawstrings at the
neck, wrists, and ankles. The wristband of the overalls should be
pulled over the glove gauntlet, and a snug fit secured by the use
of a drawstring. Overalls should be laundered weekly. There
should also be provided change and locker rooms with lockers or
other facilities of such nature that the street and working garments
do not come in contact with each other or with those of others.
The eating of lunches in workrooms and keeping of food in work
rooms should be rigidly prohibited. Compliance with this rule is
best secured by providing attractive and commodious eating rooms
for the use of the workers.
ddie workers should be especially instructed concerning the value
of scrupulous bodily and oral cleanliness as a prevention of trini
trotoluol poisoning. The hands and face should be thoroughly
washed and the mouth rinsed out before eating, and a full shower
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bath taken at the close of the day’s work. Proper facilities for this
should be furnished. The teeth should be brushed twice daily with
a soft toothbrush and a good dentifrice.
One of the chief difficulties in avoiding* poisoning* is the reluctance
on the part of workers to report to the company physician when
they begin to feel sick. This is due to the relatively high wages
which are paid to the workers who load ammunition and the natural
desire to keep on earning these wages as long as they are able to stand
up. Much of this can be done away with by a system of rotation of
jobs, workers being transferred from hazardous to less hazardous
employment regularly at intervals of two weeks.
Hours of labor.—Except in an emergency no person engaged in a
process in which trinitrotoluol is .handled should work longer than
eight hours a day. By thus limiting the time of exposure, the danger
of poisoning may be materially reduced. As previously stated,
workers engaged in hazardous processes should be rotated to less
hazardous jobs at least once in every two weeks, and oftener if
necessary.
Medical supervision.—An efficient system of medical supervision
under the direction of a competent physician must necessarily be
provided in all plants engaged in the manufacture and handling of
trinitrotoluol. The physician in charge should be familiar with the
symptoms of poisoning and the precautions for preventing it. He
should keep a constant check upon the efficiency of the enforcement
of sanitary precautions and be given the authority to transfer or
to lay off, as may be required, all workers who are showing symptoms
of poisoning. He should also make frequent rounds of inspection
through the workrooms, noting all workers showing the character
istic appearance of trinitrotoluol poisoning, and requiring them to
report to the works dispensary for further examination. Careful
records should be kept of all cases of poisoning and their subsequent
treatment.
INDUSTRIAL HEALTH AND OCCUPATIONAL DISEASES IN MASSA
CHUSETTS.
One section of the fourth annual report of the Massachusetts State
Board of Labor and Industries1 is devoted to a consideration of the
health of persons employed in buildings used for industrial purposes
and embraces paragraphs on ventilation, dust and fume removal,
sanitation, and a brief history of instances of occupational diseases,
including anthrax, benzol poisoning, brass poisoning, caisson disease,
lead poisoning, and fume and gas poisoning. A somewhat complete
1 M assach u setts. F o u rth a n n u a l re p o rt of th e S ta te B oard of L abor a n d In d u stries,
Ja n u a ry , 1917. B oston, 1917. pp. 44-104.
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description of ventilation and lighting is given, being taken for the
most part from a report issued by the British Health of Munition
Workers Committee,2 which emphasizes the necessity of providing
hoods, exhausts, flues, etc., to effect the removal of poisonous vapors
and gases. It is important, however, in installing exhaust systems to
give attention to details such as size and shape of hoods, inlets, etc.,
for the particular requirement.
It is noted that the department made several special studies of dust
and fume removal. In plants manufacturing trinitrotoluene inade
quate ventilation facilities were found and measures taken for their
correction. A hospital was established in which, of 1,6-48 accidents
treated from March 1 to October 1 [1916], it is stated that there was
not a single case of infected wound when the man reported at the
time of the accident, and only two infected wounds due to failure to
report until infection had set in. An investigation of carbon monox
ide fumes in laundries, arising from the use of gas as a fuel, led the
department to suggest that electricity be substituted for gas as a
heating power and that adequate ventilation and exhaust systems be
established at or near each point on the stove where the possibility
of the escape of gas exists.
The use of wood alcohol as well as ethyl acetate and amyl acetate
in the shoe industry increased during the year, it is stated, because
of the substitute of fiberloid compounds. Upon investigating this
matter the department found considerable danger from the fumes
generated by these chemicals, and thus summarizes the conditions
of safety relative to the use of wood alcohol: (1) Eliminate as far
as possible the odors which give rise to the psychic symptoms com
plained of by so many persons working in atmospheres where wood
alcohol and other solvents are used; (2) reduce the proportion of
wood alcohol to less than 2\ per cent, or, better still, use alcohol de
natured with other substitutes than wood alcohol; (3) use acetone
chemically pure; (4) use boxes to contain the liquid, so as to pre
vent so far as possible the escape of fumes into the atmosphere;
(5) eliminate amyl acetate so far as possible because of its odor;
(6) install adequate exhaust system near the point of application of
the fluid, especially in the shoe industry, where the fiberloid ma
terial is moistened with a solution, and where considerable evap
oration of the solvent solution takes place.
Investigations were conducted into the dangers from salamander
fumes and paranitranilin fumes and dust and hazards caused by
asbestos dust and antimony dust. In order to reduce to a minimum
the possibility of dust and fume poisoning in the various industries
1 T h is re p o rt w as su m m arized in th e M o n t h l y R e v i e w
is re p rin te d in fu ll in B u lletin 221 of th is B ureau.
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of the State the department prepared and distributed to the manu
facturers, especially to those manufacturing benzene derivatives, a
tentative set of rules and regulations which seems to have been quite
generally adopted, resulting in reducing greatly the number of cases
of such poisoning.
Details of a number of cases of human anthrax are given. I t is
stated that in 1916 there were 27 such cases (4 fatal) reported, many of
the cases being connected with the handling of a particular shipment
of hides. There were 4 cases each in 1915 and in 1914, making a
total of 35 cases, 6 of which resulted fatally. Information concerning
specific shipments of hides is given, and it is noted that there is
less danger from anthrax where hides are handled wet than where
dry handling is practiced. In this connection the report says:
An investigation by one of the manufacturers led to experiments by him
in which he was able to develop anthrax in guinea pigs by injecting into the
peritoneal cavity cultures from the sides of the sulphide pit. The fluid from
the peritoneal cavity of the inoculated animals grew the anthrax bacillus on
agar. The first field in the culture was cloudy and the bacillus was not isolated.
Subsequent cultures, however, grew true bacilli of anthrax. It is believed that
a gelatin culture will grow the bacillus primarily. The conclusions of this
investigation were that the sodium sulphide bath does not kill the anthrax
spores, but does affect them so that they become latent or dormant, and are
revived into activity by the heat of the human body after inoculation. It was
noticed frequently that the men inoculated while handling hides at this sulphide
dip had the disease in a lighter form than men inoculated while handling dry
hides. The practical lesson from these observations is to substitute wet handling
for dry handling of hides.
In addition to the case of anthrax, there were reported during the
year 1 case of brass poisoning, 8 cases (5 fatal) of benzol poisoning,
15 cases of caisson disease, 112 cases of lead poisoning, and the fol
lowing cases of fume and gas poisoning: Carbon monoxide, 7 (1
fatal) ; hydrogen sulphide, 1 (fatal) ; nitrous acid gas, 4 (2 fatal) ;
sulphur dioxide, 1 (fatal) ; trinitrotoluene, 3 (2 fa ta l); wood alcohol,
1. There were 2 cases (1 fatal) of a miscellaneous character, making
a total of 182 cases of occupational diseases, 17 (9.3 per cent) of these
being fatal.
TRADE DISEASE CAUSED BY THE WORKING UP OF MOA WOOD.1
The Berlin daily paper Vorwärts states that in the factory inspec
tion district of Berlin three workmen employed in working up moa
wood, an Australian wood species, were taken sick. On account of
its very high cost, moa wood is not in general use, but as it assumes
a splendid color when polished it is sometimes used in wainscoting
parlors of luxurious passenger steamers. The three workmen were
1“
V o r w ä r ts .”
E r k r a n k u n g e n b e i d e r B e a r b e i t u n g v o n H o lz .
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afflicted with an itching eruption which at first broke out on the
arms and then spread over other parts of the body. After three
weeks’ hospital treatment the workmen could resume their work
without relapse. In another case of sickness, also caused by the
working up of moa wood, the workman after being cured retained
such hypersensitiveness that small particles of the worked-up wood
which adhered to his tools were sufficient to cause a violent inflamma
tion of his skin. The workman in question could no longer work in
the same room. An examination of the wood showed the abundant
presence of an oil. As the result of a chemical analysis a crystalline
alkaloid was found to be the real cause of the disease. Rubbing of
fat into the skin and thorough washing have proved to be effective
preventive means. Similar sickness has been observed in workmen
working up box and satin woods and other species of wood rich
in resin.
25413°—17------ 14
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SOCIAL INSURANCE.
MASSACHUSETTS COMMISSION ON HEALTH INSURANCE.
While the question may be raised whether the appointment of
commissions is not sometimes offered as a substitute for the enact
ment of laws, the fact remains that the Legislature of Massachusetts
has provided for pioneer work in a variety of fields touching upon
the subject of social insurance, the present instance taking the specific
form of a commission to investigate “ the extent to which poverty
occasioned by sickness may be alleviated, medical care for wage
earners and others of limited means provided for, and measures to
prevent disease may be promoted by insurance.” This commission
consists of three members of the senate, six members of the house, and
two other members appointed by the governor. Its investigations are
to extend to the health of wage earners and the conditions under
which they work, and to existing systems of mutual, stock, fraternal,
State, and other forms of insurance in effect. A report is to be made
not later than January 15, 1918. Cooperation of various State
departments is directed, and public hearings with power to summon
and examine witnesses are provided for. The members of the com
mission are Senators Herbert A. Wilson, Boston; Charles D. Brown,
Gloucester; and Edward F. McLaughlin, Boston; Representatives
Fred P. Greenwood, Everett; Charles B. Frothingham, Lynn; Ben
jamin G. Collins, Edgartown; Carl C. Emery, Newburyport; Ernest
A. Larocque, Fall Riv.er; and Vincent Brogna, Boston; and gov
ernor’s appointees Robert M. Washburn, Worcester, and Everett
Morss, Boston.
The commission was organized in July and has held a number of
conferences, as well as a series of public hearings. The cooperation
of all interested parties is invited, especial attention being given to
the viewpoint of employers and employees. No part of the report
has as yet (Nov. 6) been prepared.
206
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HOUSING AND WELFARE WORK.
LUNCH ROOMS FOR EMPLOYEES.
B Y A N IC E L . W H IT N E Y .
In the last three issues of the Monthly R eview 1 accounts were
given of the provisions for medical and surgical treatment and
of the various recreational facilities furnished by different estab
lishments to their employees. The survey made by the Bureau of
Labor Statistics included 431 establishments in a great variety of
industries, such as mining, foundries and machine shops, manufac
turing of iron and steel, electrical supplies, automobiles, furniture,
boots and shoes, textiles and explosives ; also steam and electric rail
roads, telegraph and telephone companies, electric light and power
companies, and stores. Of these 431 establishments, 224 provide
lunch rooms for their employees. Seven of these establishments did
not report the number of employees, but for the 217 establishments
reporting, the total number employed was 830,125.
Lunch rooms, like emergency hospitals, belong probably among the
more essential features of industrial betterment, for while the provi
sion of recreational facilities of different kinds tends to promote
good fellowship and interest in the place of employment, these facili
ties do not have as direct a bearing on the health of the workers as
does the opportunity to secure a warm and wholesome meal at a
cost which puts it within the reach of all.
KIND OF SERVICE.
Restaurants, with waiters, and cafeterias seem to be about equally
popular, there being 112 of the former and 96 of the latter, while 16
establishments have restaurants for the office force and officials and
cafeterias for the factory workers. The cafeteria method of serving
seems to be especially desirable where large numbers must be taken
care of in a short space of time, as the two, four, or six way
cafeterias permit of very rapid service. One company states that
1 “ M e d ic a l, s u r g i c a l , a n d h o s p i t a l t r e a t m e n t f o r e m p lo y e e s ,” M o n t h l y R l v i e w f o r
S e p te m b e r , 1 9 1 7 , p p . 5 9 - 6 7 ; “ R e s t a n d r e c r e a t i o n r o o m f o r e m p lo y e e s ,” M o n t h l y R e v i e w
f o r O c to b e r, 1 9 1 7 , p p . 1 5 1 —1 5 6 ; “ C lu b s , g y m n a s i u m s , a n d r e c r e a t i o n g r o u n d s f o r e m
p lo y e e s ,” M o n t h l y R e v i e w f o r N o v e m b e r, 1 9 1 7 , p p , 2 0 1 - 2 1 2 .
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
1,500 people are served by this method in nine minutes and another
that 1,300 are served in six minutes.
The following table shows, by industries, the number of estab
lishments having restaurants, cafeterias, and lunch rooms, the char
acter of management, and the total employees.
E S T A B L IS H M E N T S H A V IN G R E S T A U R A N T S , C A F E T E R I A S , A N D L U N C H
IN D U S T R I E S A N D B Y C H A R A C T E R O F M A N A G E M E N T .
ROOM S,
BY
[In t h is ta b le 16 e s ta b lis h m e n ts a re s h o w n u n d e r b o th “ r e s ta u r a n ts ” a n d “ c a fe te ria s ” as th e y m a in ta in
b o th ; a n d 12 of t h e e s ta b lis h m e n ts s h o w n as fu rn is h in g ro o m , coffee, e tc ., for e m p lo y e e s b rin g in g theno w n lu n c h e s also h a v e r e s ta u ra n ts or ca fe terias.]
Num
ber of Number
estab of em
lish ployees.
ments.
Industry.
Number of estab
lishments hav
ing restaurants
managed by—
Number of
establish
Number of estab
ments fin
lishments hav ishing
accom
ing cafeterias modations
for
managed by— those bringing
lunches.
Con Em Com Con Em Room Room,
Com trac
coffee,
trac ploypany. tor? . ployees. pany. tors. ees. only. etc.
Automobiles...................................
Boots and shoes.............................
Chemicals and allied products__
Clothing and furnishings..............
Electrical supplies...... ~.................
Fine machines and instrum ents..
Food products...............................
Foundries and machine shops__
Gas, electric light, and power
companies....................................
I ron and steel..................................
Offices.............................................
Paper and paper goods.................
Printing and publishing...............
Railroads, electric........................
Rubber and composition goods...
Soap.................................... ...........
Stores......................................
Telegraph and telephone companies.........................................
Textiles......................................
Other industries.....................
Total...........................
7
4
4
9
5
6
8
26
93,384
23; 230
9,446.
15,710
51', 040
22; 553
1 11,665
64;401
4
3
22
7
14
7
1 24,768
4
1 10; 651
4
7
5
6
4
41
76,092
1,472
9,666
40,402
35,588
8,168
1 116; 068
2
1
3
1
5
6
2
4
3
3
9
1
2
3
1
1
i
1
6
1
1
1
1
14 2 64,538
9
20; 051
36 1 125,232
22
1
224 3 830,125
109
14
1
1
2
8
3
2
3
8
1
2
4
1
1
1
2
2
9
1
7
1
3
1
2
3
4
5
4
2-
1
1
1
1
1
29
3
7
1
5
5
3
14
1
1
98
6
8
1
2
1
4
2
8
9
34
29
1
3
1 N o t in c lu d in g em p lo y ees of 1 e s ta b lis h m e n t, n o t re p o rte d .
2 N o t in c lu d in g e m p lo y ees of 2 e s ta b lis h m e n ts , n o t r e p o rte d .
3 N o t in c lu d in g em p lo y ees of 7 e s ta b lis h m e n ts , n o t r e p o rte d .
ESTABLISHMENTS HAVING RESTAURANTS, CAFETERIAS, OR OTHER LUNCH
FACILITIES.
Of the 224 establishments providing lunch rooms, 18 maintain
them for only the office force and officials, and sometimes for fore
men, while the remaining 206 serve employees of the factory as well,
although in the majority of cases there are separate rooms or a
section of the dining room reserved for the office people and fore
men. This does not seem to be inspired altogether by a feeling of
superiority on their part, as might be supposed, for a number of
establishments reported an unwillingness on the part of the factory
workers to eat with the office force and foremen; in some cases be
cause members of the office force are better dressed, and in others
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because they feel more freedom without the presence of those under
whom they work. This was especially true in plants where many
foreigners of different nationalities were employed, as they usually
desire to eat by themselves.
For 181 establishments, with 605,174 employees, it is estimated
that the number using the lunch rooms daily is approximately
168,000, or 28 per cent of the total number of their employees. These
figures include those employees who bring their own lunches to the
regular lunch room and buy nothing and those who supplement their
own lunch with one or more dishes from the counter, as well as those,
usually the larger number, who buy the entire lunch.
There are 63 companies which provide a room for the use of those
bringing their own lunches. Twelve of these furnish such a room
in addition to the regular lunch room and therefore are included in
the total number of establishments having lunch rooms. Thirty-four
of these 63 firms provide the room and tables and chairs only, but
29, in addition to this, supply tea, coffee, or milk and in a few cases,
soup. Twelve of these 29 establishments serve coffee free to all who
wish it, one furnishes soup free, and several of them give tea and
milk as well as coffee. In this connection it might be stated that
several companies report that it is their practice to discourage the
excessive use of coffee.
CHARACTER OF MANAGEMENT.
1 he majority of the lunch rooms are managed directly by the com
panies, but in 20 cases the management is turned over to an outsider,
the company supplying space and generally light, heat, and equip
ment also. In these cases, too, the companies usually supervise the
quality of the food offered and also limit prices, although the food
prices are not as low as in the many establishments which manage
this work with no thought of profit. In 13 instances the companies
allow the employees to manage the restaurant. A few of these lunch
rooms are run on a cooperative basis, but most of them make a small
profit which is turned over to the benefit association or to the athletic
association, the lunch room usually being managed by a committee
of employees appointed by the association which is to receive the
profits.
GENERAL DESCRIPTIONS OF RESTAURANTS AND KITCHENS.
One company, having both a large factory and office force, has
a large lunch room for each. The one for the office employees is
a very beautiful room with specially designed tables and leather
seated chairs. These specially designed tables, having concealed
seats, can be transformed, by a folding back of the top, into eom
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fortable settees for use during gatherings of employees. About 800
are served here daily. The main part of the service is cafeteria,
but there are tables where service by waiters can be had at an addi
tional charge of 5 cents. The regular luncheon is 20 cents, dinner
is 25 cents, and a la carte orders are at moderate prices. Employees
bringing their own lunches must eat them in this room. About
1,500 members of the factory force use their lunch room, where a
club luncheon, consisting of soup, meat, potatoes, and another vege
table, dessert, and tea, coffee or milk, is served for 15 cents. The
company aims to provide employees with wholesome food at low
cost.
A new lunch room which had been opened but two days at the
time of the agent’s visit is attractively finished as to wall decora
tions and lighting. The tables have vitrolite tops and seat 14 peo
ple each. It was the plan of the company to furnish the service
free and apply the 20 cents charged for the meal to the purchase of
the foodstuffs. If at the end of a month there should be a surplus
the employees were to vote as to whether they would have a more
elaborate meal or the same kind of a meal at a lower price. This
factory, which employed no women, is situated in a locality having
no lunch rooms except those in connection with barrooms, and it was
the desire on the part of the management to keep the men away
from the saloons at noontime which led to the installation of the
lunch room.
One establishment manufacturing playing cards has a beautifully
equipped cafeteria seating about 1,400. This is located in a sepa
rate building. The dining room has marble-topped tables with a
raised marble shelf in the center of each, which contains a porcelain
ice-water keg, with faucet. The glasses and condiments are on this
shelf, and a wire basket suspended beneath contains the silver. The
office employees have a section reserved for them and are waited on
by waitresses. The prices are so moderate that the company has a
large deficit to meet each year. Music is provided each day during
the luncheon period.
I t is, of course, often found to be the case that employees go to
work in the morning with little or no breakfast. Two firms, each
employing a large number of girls, allow them to go to the lunch
room in the morning for milk or coffee and rolls. One of these firms
grants 10 minutes each morning for this purpose.
A lunch room for which construction and equipment costs were
given was built to seat 1,100 people at one time. The room has a very
large cafeteria counter and small tables with Carrara glass tops.
The cost of the special construction of the dining room and kitchen
was about $5,300, while the equipment, furniture, and fixtures cost
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approximately $6,200. The lunch room is under the general super
vision of the welfare secretary, but the preparation and dispensing
of food are taken care of by a private caterer, who provides good
substantial food at a moderate cost in consideration of the company
supplying space, equipment, light, and heat for which no rental is
charged. About 2,500 people use this lunch room daily.
Many of the establishments, in addition to the attractive restau
rants, have exceptionally well equipped kitchens with all the up-todate electric machines for saving work. An electric dish-washing
machine through which 24,000 pieces could pass in an hour with
practically no breakage and an electric potato peeler holding a barrel
of potatoes at a time are features of one establishment. In almost
all of the restaurants which serve large numbers, part or all of the
many electric labor-saving devices have been installed. I t was notice
able that a large proportion of the kitchens would pass with a very
high mark as to sanitary conditions, although a number were visited
which were not adequately screened for flies and which in general
neatness left a good deal to be desired. However, these were in the
minority and the general standard of cleanliness and quality of food
served by most of the companies was very good, while some were
models of neatness, kind of equipment, and generally efficient service.
There are different methods of payment in use by the various com
panies. One company, whose charges are based on the amount of
wages, uses tickets of three colors to indicate the three rates which are
charged. In some cases metal checks are used, while in others books
of tickets are sold either by the cashier or by foremen in the shops.
In the majority of cases, however, the employees pay cash.
NUM BER OF ATTENDANTS REQ U IRED .
In several restaurants the attendants at counters and tables are
members of the regular working force who usually receive their
regular rate of pay while performing this service and their lunches,
their coats or uniforms being furnished and laundered. In one case
the office errand boys and apprentices wait on the tables, leaving their
work 15 minutes before the others and receiving only lunch in pay
ment; in another case the girls volunteer their services and receive
lunch in return; and in still another case factory boys serve in the
dining room for two hours, being paid their regular factory rate,
except for half an hour, and receiving a free lunch also.
The number of attendants necessary to serve an average of 4,100
people daily is reported by one firm. This company has four restaur
ants, a cafeteria, a dining room, a ranch counter, and a grill room.
The cooking for the four restaurants is done in one kitchen, and the
same quality of food is served in all. Employees are free to patronize
any one of them, although the cafeteria is the one generally preferred.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Here a full meal may be purchased for 18 cents, the average check,
however, being but 11 cents. Besides the manager, his assistant, and
the chef there are 13 full-time kitchen and dining-room workers and
about TO others who work during the luncheon period only. Twenty
of these are porters in the plant who clear away the used dishes.
It is the practice of a number of companies which have cafeterias
to have the employees carry their used dishes to a shelf or window
which they pass on the way out. In this way the amount of help
needed is lessened without imposing unduly upon each individual.
FIN A N C IA L RESU LTS OF OPERATING RESTAURANTS.
Forty-six of the companies which keep the entire control of the
lunch rooms have reported as to the financial returns of the under
taking. In 35 cases there is a deficit varying with the size of the
plant and the prices charged for food. In 9 cases the restaurant is
self-supporting, and only two of these reported a surplus. One com
pany reports a deficit of about $1,000 a month. The office and factory
employees in this plant are served separately. A regular dinner is
served the factory workers for 15 cents, the a la carte rates for the
others being correspondingly low. The company feels that its deficit
is too great, although, since the feeling with the firm is that the em
ployees are entitled to one good, wholesome meal a day, a loss is
expected.
A company employing about 12,000 has several mess halls in dif
ferent sections of the plant. These are located in separate frame
buildings. The main mess hall is in tivo sections, one for clerks and
foremen and the other for the general working force. About 1,300
eat in this building daily. The average price paid for a meal by
the office force is 23 cents; by the factory employees 21 cents. The
colored employees are fed in a separate mess hall having long, high
tables at which the men stand. About 350 meals are sold here daily
at a cost to employees of 10 cents each. Two other lunch counters
together serve 1,400, the average check being 23 cents. Owing to the
creasing cost of foodstuffs and the desire on the part of the com
pany not to loAA7er the food standard, the company was paying a
deficit of from $900 to $1,200 per month at the time the schedule
was taken.
EST A B L ISH M EN TS SERVIN G F R E E MEALS.
In few instances are meals served free to employees. One insur
ance company, however, having several thousand employees, serves
to each person in its employ a lunch, consisting of soup, meat, one
vegetable, bread and butter, a choice of desserts, and tea, coffee, milk,
or buttermilk. At the time the schedule ivas taken this lunch ivas
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213
costing the company about 19 cents per person. This plan was in
stituted as a means toward greater efficiency in the afternoon’s work,
since it was found that many could not, or at least did not, get the
proper luncheon. This is not regarded by the firm as a gift but as
a supplement to the wages, which are already as high, it is claimed,
as those paid for similar work by other companies.
Another firm, doing a. large mail-order business, gives breakfast to
those of its clerks who are required to come early to attend to the
incoming mail. Several give supper to overtime workers, and several
others, whose plants are run during the entire 24 hours, provide free
coffee at midnight. One company giving a free lunch to officials
and clerical force has furnished a small kitchen and dining room
for its 35 women employees and provides the materials from which
the girls prepare their own lunches. Another, with 600 employees,
serves an a la carte lunch to the men for 10 cents and the same lunch
free to the 250 women employed.
Boys earning less than $5 per week are given their lunch by
another company. Still another gives milk and soup to all juniors.
Nearly all of the banks visited give a free lunch to all employees,
which is done largely for the purpose of keeping the clerks in the
building at the noon hour. A newspaper company pays a restaurant
for furnishing a lunch consisting of sandwiches, coffee, cake, pie,
and cookies to from 20 to 30 of its newsboys every night.
Many companies which charge for other items on their bills of
fare provide tea, coffee, or milk free. This is almost universally
done by the telephone companies, whose lunch-room food and service
is always excellent and provided at very low prices. The employees
of one large office building are provided with a lunch room seating
about 1,300 girls at one time. The majority of them bring their
lunches, supplementing them with dishes from the cafeteria counter.
Tea. coffee, and milk, the latter in unlimited quantity, is provided
for them free by the company.
U N D E S IR A B IL IT Y OF SERVING LUNCHES IN WORKROOMS.
Several firms insist that their employees shall leave their work
places at lunch time and that those who wish to bring their own
lunches shall eat them in the dining room. In these cases it is usual
to assign a permanent place at the table, where the lunch may be
left upon arrival. In only one instance was there evidence of any
objection on the part of the companies to employees bringing all or
part of their lunches from home. This one company insisted that
all employees who wished to eat in the building should buy their
lunches in the dining room, although there was no objection offered
to their going outside for them.
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Nine establishments having restaurants also have lunch counters in
the plant, either because of lack of space to take care of all the
employees, or for the use of those workers who do not consider
themselves sufficiently well dressed to eat with the others. For these
same reasons eight firms provide box lunches to be distributed
through the factory at lunch time, and several have coffee booths.
One company has soup stations throughout its large factory, and
another in addition to its restaurant has eight electrically heated
“ cafemobiles,” each carrying trays, dishes, and food enough for 300
men, which go through the plant at mealtime. One company, with
about 11,000 employees, has, in addition to a fine restaurant for its
office force, five lunch counters in the factory, where about 6,000 are
served daily with sandwiches, coffee, and milk. There are no tables
but benches are provided adjacent to the lunch counter. It is with
out doubt something of a problem for firms which employ large
numbers of workers to provide a place separate from their work
rooms in which all can eat, but since it is generally conceded to be
undesirable for employees to be obliged to eat at work places, it
would seem that in such cases either a very simply furnished room
might be provided or the employees might be served in the restau
rant in shifts, as many of the companies find that this plan works
satisfactorily.
AVERAGE PR IC E S CHARGED FOR FOOD.
The prices generally charged for a table d’hote meal for factory
workers vary from 15 to 25 cents, in the majority of cases the
charge being 20 cents. In a few cases office workers pay slightly
more. The a la carte prices vary, of course, greatly. The usual
prices of bread and butter are from 2 to 5 cents; sandwiches, soups,
and vegetables, 3 to 5 cents; meats, 8 to 15 cents; fruits and desserts,
2 to 5 cents; tea, coffee, and milk, 2 to 5 cents; the usual price of a
cup of coffee being 3 cents. It is possible, in most of the cafeterias,
to get a good lunch for from 15 to 20 cents, and in some of them for
even less. It must be borne in mind, however, that the prices
charged for food as quoted in this article do not cover the general
rise in foodstuffs in the last few months. They only serve to show
that the average cost of a sufficiently satisfactory meal was much
below that of the average outside restaurant, and that it is probable,
therefore, that whatever increase the employers may be obliged to
make because of the present high prices of fuel and foodstuffs will
be in the same proportion .
i
CONCLUSION.
There seems to be no particular reason why lunch rooms should
be installed in one industry more than another. The determining
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factors seem to be the distance from homes; the lack of good restau
rants or the presence of many saloons near the plant; the desire to
keep employees upon the premises during the luncheon period; and,
perhaps the most frequent reason of all, the wish to give employees
the proper kind of food, since the tendency with many workers is
to economize in this way to the detriment of their health, strength,
and efficiency. Several of the companies reported that the meal
served in the company restaurant was the best one of the day for
many of their employees. Of the industries reporting restaurants
the iron and steel industry and foundries and machine shops showed
the smallest proportion of these facilities for the general working
force. Their restaurants are mainly for the office force and for offi
cials, although there are a few cases where large numbers of the
plant men are served. Steam railroads do practically nothing along
this line, although the employees are sometimes served, at a reduc
tion, in the regular station restaurants. All of the telephone com
panies, most of the large offices, and nearly all of the department
stores visited maintain lunch rooms.
Only two of the companies visited reported that they had tried
lunch rooms and given them up. Two or three others reported that
the patronage was not satisfactory, but generally where they were
found they seemed to be regarded as necessary to the successful
operation of the plant, office, or store. It is certainly rather remark
able that a business of such magnitude should have grown up in
so many and such varied industries. That they are so largely run at
a loss is not an indication of poor management but rather of the
belief that the expenditure is necessary and that it is justified from a
business point of view if it results in better health and greater effi
ciency for part or all of the working force.
SIXTH NATIONAL HOUSING CONFERENCE.
The Sixth National Housing Conference met at Chicago on Octo
ber 15, 16, and 17. The topics discussed were: The real estate man
and housing; How to cheapen the workingman’s dwelling; Housing
as a war problem; What England has done in war housing; What
employers have done to house their employees in the United States;
The best house for the small wage earner; Ready-made houses; An
intensive study of certain blocks in Chicago with relation to tuber
culosis found in those blocks; Organizing the housing work of a
health department; Chicago’s housing problems; The housing of the
single workers, including the men in the Army cantonments and
railroad laborers; Housing famines in certain cities—Bridgeport,
Conn., Kenosha, Wis., and Akron, Ohio; The modern science of
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
ventilation as applied to dwellings; Shall the health department or
the building department enforce housing laws? The zoning of
cities; Organizing the housing work of a community; The after-care
of a housing law.
The discussions were of a practical and technical nature, relating
predominantly to matters of construction and management. The
legislative side of housing was also emphasized; and in the general
discussions the larger social aspects of housing came up, particularly
in the discussion of Chicago’s housing problems at the afternoon
session of October 16.
The summary here attempted will be confined to the papers and
discussions which dealt with matters of industrial housing—provi
sion of housing accommodation for the low-paid wage earner.
The papers and discussions on this subject showed a general agree
ment as to the necessity and advisability of utility and simplicity
in construction to bring the house within the means of the wage
earner. All were agreed on the policy of making the houses an
economic and not a philanthropic investment; economic or commer
cially profitable rent should be made possible. Variety was thought
best secured by artistic grouping of the houses, judicious use of vege
tation, trees, grass, and shrubs. Two speakers showed the possi
bilities of cheapening construction by the use of concrete-monolithic,
precast or block form. To be profitable, however, building must be
on a large scale.
Mr. Leslie H. Allen, of the Aberthaw Construction Co., interested
in concrete work, listed the following as essential features of a work
ingman’s house: Water-tight roof, walls, and floors; bedroom for
parents; bedroom for male children; bedroom for female children;
one or more living rooms; private toilet with sanitary water-closet
and sewer connections; suitable heating arrangements; running
water supply fit for drinking; kitchen sink with waste connected
to sewer; uninterrupted daylight and ventilation through windows
in every room. As not absolutely necessary he considered a cellar,
bathtub with running water, window screens, and a separate parlor.
Among improvements or additional luxuries he classed porches, lava
tory bowls, hot-water supply, window blinds, window shades, sep
arate dining room, electric light and gas installation, wall paper,
laundry tub, and picture molding. If a single house is to be erected
a square house will be found to be relatively cheaper.
Mr. Richard Henry Dana, jr., architect, New York City, confined
his discussion to the problems involved in constructing a suburban,
two-family, semidetached house to be rented profitably at $20
per month. As land is a large element in the final cost, “ undesir
able ” land should be sought in the unfashionable side of the town;
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land next to a cemetery or railroad tracks; and land either sloping
or low, but not over five minutes’ walk to some means of transpor
tation. This land should be improved to make it attractive by the
planting of grass, shrubs, trees, etc. The type of material to be used
should be determined largely by the locality. There is economy in
building low ceilings, counteracting this by the use of high windows
for better ventilation. Compactness is gained by reducing hall
space, privacy by having all the rooms face either the street or the
back yard, and not the houses on either side. There should be a
separate parlor on the first floor not connected with the stairway;
the dining room and kitchen may be combined, if necessary. On the
second floor there should be three small bedrooms rather than two
large ones, so as to accommodate children of both sexes; water-closet
and bathtub are essential requirements.
Mr. John E. Conzelman, of the Unit Construction Co., St. Louis,
Mo., described the work of that company as exemplified in an under
taking at Youngstown, Ohio. The method employed consists in the
use of precast, standardized reinforced concrete. The chief parts of
the house—the side, floors, and roof—are cast as units on the grounds
and then placed in position by means of derricks. In the develop
ment in question at Youngstown, Ohio, discussion brought out the
fact that the four-room family unit would probably cost between
$2,000 and $2,200, including land.
Mr. A. E. Owen, chairman, camp committee, Pennsylvania Rail
road, described the portable bunk houses being used upon the Penn
sylvania Railroad for its construction workers. These buildings are
of tongue-and-groove white pine, built in 10-foot sections, each build
ing when complete being 20 feet wide and 15 to 16 feet high from
the floor to the ridge pole; the floors are built on piers and elevated
about 18 inches from the ground. The exterior is covered with
pebble-dash roofing paper. They are lighted by electricity and
equipped with fire extinguishers and screens for windows and doors.
There are stationary washstands and hot and cold water; and in
those camps which are sufficiently large and in which drainage is
available, shower baths are provided. Recreation facilities are pro
vided in some places.
While the papers noted above were confined chiefly to problems of
construction, matters of organization and management of indus
trial housing enterprises were given particular consideration at
the symposium on house famines. The plans adopted in organiz
ing industrial housing enterprises at Bridgeport, Conn., Kenosha,
Wis., and Akron, Ohio, were described.
At Bridgeport the employers joined with public-service cor
porations and banks in organizing an improved housing company
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having only common shares and limiting its dividends to 6 per cent.
At Kenosha there has been organized the Kenosha Homes Co., a
stock company with a capitalization of $25,000. This company has
formed an agreement with the Kenosha Homes Building Co., a group
of local builders, to do the actual construction work and the sell
ing of the houses. The former company passes upon the applica
tion for purchase of houses, inasmuch as, being closely in touch
with the employers’ association of the locality, it has at its disposal
complete records of every factory employee of the members of that
association. A somewhat similar organization has been created at
Akron, Ohio.
The Bridgeport company has built row houses costing per family
unit $2,603, plus an additional $449 for land and street development.
I t has also built apartment houses costing $2,410 per family, plus $150
for land development. The one apartment constructed accommo
dates 39 families, giving each three rooms and bath, steam heat, hot
water, and janitor service at from $24 to $35 per month. Of the
87 row dwellings constructed 64 have two rooms and bath, 47 four
rooms and bath, and 28 five rooms and bath. The company also
has a suburban development where five rooms and bath are the mini
mum and seven rooms and bath the maximum accommodation. The
houses here are to cost on an average $3,708, plus an additional
$900 for land development. The average rent will be $34.02 per
month. None of these developments, it was admitted, reaches the
low-paid wage earner; but plans for housing that type of laborer
are under way.
At Kenosha, Wis., frame houses of the single and double variety
have been erected. They consist of five rooms and bath in the bun
galow type, and six rooms and bath in other houses. The cost varies
from $1,700 to $1,900; the lot, generally 50 by 100, costing $300;
and improvements, including sewer, water, gas, concrete walks, grad
ing and planting, costing $200. The houses are sold on a minimum
payment of $100 down, and a maximum payment of $18 monthly.
If the workman owns the lot no cash payment is necessary.
WAR HOUSING IN THE UNITED STATES.
The following statement, authorized by W. S. Gifford, director of
the Council of National Defense, was recently given to the press:
The committee on housing, of the Council of National Defense,
appointed on October 9, 1917, to investigate and report upon the
extent of the housing problem in connection with workers employed
on Government contracts and the relation of that problem to the
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output of war materials submitted its findings to the council on
November 1.
The testimony and records obtained by the committee on housing
clearly indicate that, with few exceptions, the Government contracts
for ships, guns, ammunition, and other war materials have thus far
been made with little or no Government provision for the housing
necessities incident to a rapid and large increase of labor. In its
investigation the committee has been materially aided by the report
of Philip Hiss, chairman, sectional committee on housing of sub
committee on welfare work of the labor section of the advisory
commission, which report called the exigency of the situation to the
attention of the council.
The situation may be well instanced by one New England manu
facturing city where there exists a distinct community problem.
In this city 16 concerns are engaged upon war contracts, and it was
disclosed to the committee on housing that nearly 10,000 additional
men, for whom there now exists practically no living quarters, will
be required by January 1 if the plants in question are to run to their
full capacity.
One great steel company, already mainly employed with Govern
ment contracts, has extensive additions to its present plant
approaching completion. The testimony before the committee on
housing disclosed that unless immediate provision be made for neces
sary housing the possible production of guns, gun carriages, and
other munitions will be curtailed fully one-third of the plant’s
possible output within the next three or four months.
Notwithstanding the existence of such cases as those cited above,
the committee on housing deprecates any exaggeration as to the ex
tent of the existing housing problem. As a matter of fact, many
communities and individual industries are now taking care of their
own housing requirements. Others, where there is serious congestion,
are preparing to do so ; but there are a number which will need finan
cial assistance in house building if full production capacity is to be
had.
In general it is the opinion of the committee on housing that the
existing emergency demands immediate action and it is convinced that
under proper safeguards the Government should give quick financial
aid to such industries or communities as can clearly demonstrate
their right to relief. In this regard it is suggested that any aid
which may be given by the Government should preferably be rendered
in the form of loans at a low rate of interest. Some loss to the
Government may be reasonably expected, but the expenditure neces
sary to give relief is negligible when measured by the loss incident
to delay in the execution of the vast war orders already placed.
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It is the judgment of the committee that an organization of rea
sonable permanency and authority is necessary to administer quickly
and effectively such funds as may be available for housing purposes,
and that such organization should have broad powers to conduct
building operations, to deal in real estate and securities, and to bor
row and loan money.
The committee further recommends that, in line with the recent
findings of the advisory commission of the Council of National De
fense, all authorized agencies of the Government making contracts
for war materials shall give due consideration in the future to the
labor supply and housing conditions prior to closing contracts, and
that future contracts shall be distributed, as far as possible, to pre
vent undue concentration of workers in any one locality.
The committee on housing particularly emphasizes the conviction
that any Government aid for industrial housing should be considered
as a war measure and be rigidly confined to cases where restriction of
output of war materials would otherwise occur.
The committee on housing, of the Council of National Defense, is
composed as follows:
Otto M. E i d l i t z , chairman, architect and builder, New Tork City.
G ertrude B eeks E asley , chairman, welfare department, National
Civic Federation.
W illiam J. S pencer , secretary, building trades department, Amer
ican Federation of Labor.
C. G. DuBois, comptroller, American Telephone and Telegraph Co.
T heodore R obinson , vice-president, Illinois Steel Co., Chicago, 111.
WAR HOUSING IN GREAT BRITAIN.
B Y
L E IF U R
M A G N U S S O N .
The shortage in workingmen’s houses in England before the war
had become so great that on October 21, 1913, the chancellor of
the exchequer, Mr. Lloyd George, declared in a speech that the Gov
ernment proposed to build cottages. For this purpose the Govern
ment was prompted to use all money which was being accumulated
for the national insurance scheme. It was proposed to let the dwell
ings at a commercially profitable rent.1 The Prime Minister esti
mated the shortage of cottages at that time to be about 100,000 or
120,000. A later estimate by the secretary of the International
1
The Yearbook of Social P ro g ress for 1914-15. B eing a sum m ary of recen t legisla
tio n , official re p o rts, an d v o lu n ta ry effort w ith re g a rd to th e w elfare of th e people.
London. (1915.) p. 225.
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Garden and Cities Town Planning Association, with headquarters in
London, has estimated that the shortage in housing facilities is in
creasing at the rate of 75,000 per annum. This would mean that not
less than 400,000 cottages are required in England and Wales to
satisfy the present housing famine.1 The Local Government Board in
1916 was so impressed with the situation as to state that there “ will
exist, on the conclusion of the war, a very serious need for additional
accommodations for persons of the working class.” 2 Mr. Sidney
Webb has estimated that the Government will need to spend £200,000,000 (973,300,000) in housing after the war.3 The Joint Com
mittee on Labor Problems after the war estimates a need of 1,000,000
houses and an expenditure to meet it of £250,000,000 ($1,216,625,000).4
A hatever may be the cause of this shortage—increased cost of
building material, other more profitable fields for investment, lack
of building labor, building by local authorities and renting at un
economic rates, actual restriction of building by the Government5—
the shortage of houses in England during the war has become a
factor in industrial unrest. The royal commission of inquiry into
industrial unrest reports that a lack of housing in certain areas is
one of a number of leading causes of disturbance.6 While the
shortage is fairly general over the country,7 it varies in seriousness
in different localities. The housing situation in one locality is
characterized by the commission as a “ crying scandal,” 8 and as
being in the forefront as a cause of industrial unrest.9 It is a serious
problem in London,10 Wales, and Monmouthshire.11 That aspect of
the housing situation, which as much as a mere shortage of housing,
is causing industrial unrest, has been increased rentals, particularly
in and about London.10
A committee was appointed by the Local Government Board in
August, 1917, to consider questions of building construction, with a
1 T he Jo u rn a l of th e A m erican I n s titu te of A rch itects, W ashington, D. C., 1917 vol 5
No. 4, p. 157.
2 F o rty -fifth a n n u a l re p o rt of th e Local G overnm ent B oard for th e y ear 1915-16.
London, 1916, P a r t I I, p. 8.
3 W hen peace comes : The w ay of in d u stria l reco n stru ctio n , by Sidney W’ebb, London,
T he F ab ian Society, 1916, p. 10 (F a b ia n T ra c t No. 181).
4 Local G overnm ent C hronicle, L ondon, Aug. 4, 1917, pp. 429, 430.
5 O rder re g u la tin g an d re s tric tin g building an d co n stru ctio n w ork. O rder of m in ister
of m u n itio n s, J u ly 14, 1916. (D efense of th e R ealm M anual, 3d enlarged edition, re
vised to Feb. 28, 1917. L ondon, 1917, pp. 64, 313.)
6 The re p o rt of th is com m ission is re p rin te d in B u lletin 237 of th e U. S. B ureau of
L abor S ta tistic s, W ash in g to n, D. C.
7 Cf. also fo rty -fifth an d fo rty -six th a n n u al re p o rts of th e Local G overnm ent Board,
1915—16, 1916—17. London, 1916, 1917.
(Sum m arized in M o n t h l y R e v i e w of t h e
U. S. B u re a u o f L ab o r S ta tistic s , O ctober, 1916, p. 102, an d Decem ber, 1917, p. 252.
8 B u lletin 237 of th e U. S. B ureau of L abor S ta tistic s , p. 67.
8 Idem , p. 68.
10 Idem , p. 106.
11 Idem , p. 178.
25413°—17-
15
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view to securing economy and dispatch in the provision of houses.1
As yet no report of this committee has appeared.
While the need for providing workingmen’s houses has been
brought into prominence by the war, it has been a subject of British
legislation since 1851. Private enterprise in England has failed to
meet the shortage and resort has been had to Government financial
aid.2 Under the laws of 1890 and 1909, which form the basis of
British housing legislation, the' different local governments are
charged with authority to advance funds to lay out towns, buy land,
build houses and to rent these to workingmen. Government funds
are also available for advances to building societies, which may agree
to limit their profits to 5 per cent.
THE HOUSING ACTS OF 1914.
Under the legislation outlined above, the central Government has
never taken direct initiative in the housing question; it has done no
direct building on its own part. The war, however, has hastened
matters. Two housing acts, supplementing the existing body of
legislation, were placed on the statute books early in August, 1914,
“ which but for the exceptional crisis would certainly not have passed
without considerable discussion and opposition, if at all,’' 3 although
the Government was in reality carrying out part of the housing
policy to which it had been committed before the ward
These two British war housing acts, the Housing Act, 1914, and
the Housing (No. 2) Act, 1914, both passed August 10, 1914. The
first was introduced on July 8 and had no relation to the war. As
drafted, it aimed to give the Board of Agriculture and Fisheries
powers with respect to housing in agricultural districts, and to make
provision for houses for persons employed by or on behalf of Gov
ernment departments wherever dwelling accommodations might be
insufficient. As passed, it deals only with the housing of Govern
ment employees or workingmen on Government contracts. It grants
no powers for the compulsory purchase of land for housing. There
are provided for its purposes not to exceed £2,000,000 ($9,733,000).
The act applies to Great Britain and Ireland.
The Housing (No. 2) Act, 1914, was a direct consequence of the
war. It contained the provisions of the first act as originally intro1 Local G overnm ent C hronicle, L ondon, Ang. 11, 1917, p. 448.
2 F o r a discussion of th e n a tu re an d e x te n t of th is aid , reference is m ade to B u lletin
158 of th is b u reau on G overnm ent Aid to Home O w ning an d H ousing of th e W orking
P eople in F o re ig n C ountries. W ashington, 1915, pp. 284—347. Cf. a l s o : T he L abor
Yearbook, 1916. L ondon [1 9 1 6 ], pp. 605—612.
8 T he H o using A cts, 1914, being th e te x t of th e H ousing Act, 1914, an d th e H ousing
(No. 2) A ct, 1914, to g eth er w ith in tro d u c tio n , notes, circ u la r le tte r, an d a v a rie ty of
su p p le m e n ta ry m a tte r, in clu d in g th e p a rlia m e n ta ry discussion an d a sum m ary of housing
leg islatio n alread y in force, by th e e d ito rs of th e L ocal G overnm ent J o u rn a l [London,
1915], p. 7.
4 T he Y earbook of Social P ro g ress fo r 1914-15, p. 228.
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duced as respects rural housing by the Board of Agriculture and
Fisheries and gave the Local Government Board power to lend
money for housing or to build directly in urban communities. The
primary purpose of the law was to mitigate unemployment in the
building trades. As no widespread unemployment developed the
act was not utilized at any time during the year it was to be in force,
and the £4,000.000 ($19,466,000) appropriated for its purposes were
never used.1
Under the Housing Act, 1914, two Government departments are
authorized to sanction loans for industrial housing to local authorities
and public utility or authorized societies which limit their profits to
5 per cent. These departments are the Local Government Board and
the Commissioners of Works, who have direction of all public works
and undertakings. The latter also has power to do direct building
for Government employees.
Both the Local Government Board and the Board of Agriculture
and Fisheries, by the second act of 1914, it may be noted, had been
pledged not to do any direct building unless after public hearing
they were satisfied that there was an insufficiency of accommodations
or that existing dwellings were unsuitable or could not be provided
otherwise.
Under the basic housing acts, 1890, 1909, the Government makes
loans not only to local authorities and limited dividend companies
but also to building associations of every sort and to private persons.
Presumably, therefore, employers are entitled to loans for housing
if they so desire. Private borrowers, furthermore, have borrowed
in the past as much from the Government as the local authorities,
in spite of the higher rates they must pay, as local authorities can
secure funds almost anywhere at reasonable rates because borrowing
on the security of their taxes.2
Employers in borrowing from the Government, it has been stated,
have been permitted to charge a portion of the increase on the cost
of building due to war conditions to the profits which might have
gone to the Government under excess profits legislation.3
RATES OF INTEREST—PERIOD OF LOANS.
The new war legislation makes no changes in the period for which
loans run—a maximum of 60 years for building, and 80 years for
land loans. The Government probably makes the rate of interest
the same at which it can borrow,4 although housing reformers urged
1 F o rty -six th an n u a l re p o rt of th e Local G overnm ent B oard fo r th e y ear 1916-17.
L ondon, 1917, P a r t II, p. 6.
2 B u lletin 158, U. S. B u reau of L abor S ta tistic s , pp. 292, 293.
3 Nolen, Jo h n . W h a t E n g la n d h as done in w a r housing.
(P a p e r read before th e
S ixth N a tio n al H ousing Conference, Chicago, Oct. 15, 1917.)
4 T he H ou sin g A cts, 1914. L ondon [19 1 5 ], p. 11.
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it to loan at rates prevailing before the war.1 A recent memoran
dum raised the rate of interest generally from 5 to of per cent (Mar.
26, 1917)2 to local authorities under the housing acts. The rate on
loans secured by taxation is 5-| per cent for those not exceeding
30 years, and 5f per cent for those not exceeding 50 years. On
loans not secured by taxation the rates to limited dividend companies
are the same as for loans to local authorities. To other companies
and other private persons who do not limit their profits the rate
is 6 per cent on loans not exceeding 30 years and 6f per cent on
those not exceeding 10 years.
OTHER GOVERNMENTAL HOUSING ROWERS.
An amendment to the Defense of the Realm Act, on March 16,
1915, gave the Government the power to take possession of any un
occupied land for the purpose of housing workmen employed in any
way in connection with the manufacture of war materials.3 The
terms of such acquisition and control were later more fully set forth
and defined in the Defense of the Realm (Acquisition of Land) Act
of December 22, 1916.4 In paying for land taken for war purposes,
the Government will not give consideration to unearned increments
or decrements created since the beginning of the war as a result of
work by the Government or other party not interested in the land.
The section in question is as follows:
In determ ining the amount o f compensation, the value of the land acquired
shall be taken to be the value which the land would have had at the date of
the notice to treat, if it had remained in the condition in which it was at the
commencement of the present war, w ithout regard to any enhancement or
depreciation in the value which may be attributable directly or indirectly to any
buildings, works, or improvements, erected, constructed, or made on, over, o r (
under the land, or any adjoining or neighboring land for purposes connected
w ith the present war w holly or partly at the expense of the State, or, w ith the
consent of the occupying department, at the expense of any person not being a
person interested in the land.
To prevent the steady rise in rents resulting from a house famine,
on December 23, 1915, the Government passed a law restricting, for
the period of the war, the increase in rents and taxes on small dwell
ing houses after November 25, 1915, over the standard rates in force
August 3, 1914.5 The act applies to the dwelling and yard or lot con
nected with it, and only to those houses the standard rental value of
1 The H o u sin g Act, 1914. London [1 9 1 5 ], pp. 77, 78.
2 F orty -seco n d A n n u al R e p o rt of th e P ublic W orks L oan B oard, 1916-17 (w ith ap
p en d ices). L ondon, 1917, 27 pp. (P a rlia m e n ta ry P a p e r H. of C., 1916-17, No. 85.)
3 An a c t to am end th e D efense of th e R ealm (C onsolidation) Act, 1914, M ar. 16, 1915.
(P u b lic G eneral A cts, London (19 1 6 ), pp. 73, 74).
i D efense of th e R ealm (A cquisition of L an d ) A ct 1916 (D efense of th e R ealm M an
ual, 3d en larg ed edition, revised to Feb. 28, 1917, L ondon, 1917, pp. 10—27).
5
In crease of R en t an d M ortgage In te re s t (W ar R e stric tio n s) Act, 1915 (P u b lic Gen
eral A cts, London (1 9 1 6), pp. 3 4 5 -3 5 1 ).
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225
which on August 3, 1914, in the metropolitan area did not exceed £35
($170.33) per annum, £30 ($146) per annum if situated in Scotland,
and £26 ($126.53) if elsewhere.
The landlord may not increase the rent for decorations, but for
alterations and repairs he may add an amount equal to 6 per cent
interest on the value of the improvements. The landlord may not
ask the tenant to make repairs formerly made by himself. Neither
may he extract a bonus or other premium for renting the house, but
such a bonus, if charged, may be deducted by the tenant from any
rent due. As respects mortgages, it is not lawful to foreclose, if
interest and installments are paid regularly and repairs kept u p ; nor
is it permissible to raise interest rates above the rates in force on
August 3, 1914. The making of any illegal charges under the guise
of arrears was prohibited by an amendment, July 10, 1917.
In order to control living conditions in localities where the Gov
ernment has not found it necessary or practicable to erect additional
housing facilities, the Billeting of Civilians Act was passed May 24,
1917. Through a Central Billeting Board, operating through local
authorities and committees, surveys of housing conditions are made
where warranted, and, if found necessary, civilian workers have been
billeted upon the civil population. It is reported by Mr. Frederick
L. Ackerman, representing the American Institute of Architects and
the Housing Section of the Committee on Welfare of the Advisory
Commission of the Council of National Defense is now in England,
that it is possible in some cases to billet a working population equal
to or greater than the population disclosed by the census.1 It has
also been possible to relieve congestion and increase the capacity in
towns where it was assumed that conditions of crowding were bad.
While this legislation aims to secure the largest number of muni
tion workers in a given amount of housing accommodations, the
regulation added to the Defense of the Realm Regulations, Sep
tember 29, 1917, is designed to secure stability in the supply of
workers. The regulation in question prohibits the ejection from
rented premises of munition workers within certain declared areas
provided rent is paid regularly and the conditions of the lease ob
served except as regards yielding possession.
PRACTICAL RESULTS.
It is extremely difficult to secure any data as to results of war
housing legislation in Great Britain—the extent of Government con
struction undertaken, what departments have engaged in it, and the
amounts expended—as information has been held back for military
1 F ro m correspondence p rin te d in J o u rn a l of th e A m erican I n s titu te of A rchitects,
W ashington, D. C., 1917, vol. 5, No. 11.
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and other reasons. Even the location of the different Government
undertakings can not be ascertained definitely.1 Mr. Culpin, secre
tary of the Garden City and Town Planning Association, who has
been intimately connected with the progress of this governmental
work, declares that “ when the time comes for a record to be placed
before the world of what has been done in this regard, it will be a
revelation.” 2 Numerous towns have been developed as permanent
communities under the town-planning principles of the act of 1909.
Buildings have been predominently of a permanent type, establishing
a governmental policy in that respect.
In Scotland the Local Government Board has advanced funds to
a local company to open an extensive development for the admiralty
workers in the Bosyth Dockyards; and a law to hasten the develop
ment, permitting it to proceed expeditiously without waiting for the
approval of the town-planning scheme as required under the law of
1909, was specially enacted.3
Thus far the only official of those mentioned in the housing acts
of 1914 to do direct Government building has been the Commissioner
of Works, to whom the Public Works Loan Board advanced funds
for a development near the Woolwich Arsenal.
The construction work was done by two firms for cost, plus a
percentage for establishment charges and an additional percentage
for profit. Competitive bids were tried at first, but the offers were
considered too high.
For the work there had been advanced up to March 31, 1915,4 to
the Commissioner of Works £100,000 ($486,650), which was all that
had been advanced out of a total of £2,000,000 ($9,733,000) available
under the Housing Act, 1914, as the Local Government Boards of
both England and Scotland had as yet done no war housing under
the 1914 laws.5 The amounts actually expended in the Woolwich
housing scheme up to March 31, 1915, were as follows:
Erection of buildings-------------------- £28,507 2s. 7d. ($138,729.94)
Roads, sewers, etc------------------------1,004 4s.
(
4 ,8 8 6 .9 4 )
Superintendence and m iscellaneous
charges_________________________
1, 095 Is. 3d. (
5, 329.12)
Total_________________________
30, 606 7s. lOd. ( 148,946.00)
1 T he rem ark ab le ap p licatio n of to w n -p lan n in g p rinciples to th e w artim e necessities
of E n gland, by E w a rt G. Culpin, se cre ta ry of th e I n te rn a tio n a l G arden C ities and T ow n
P la n n in g A ssociation. (In T he Jo u rn a l of the A m erican I n s titu te of A rchitects, W ash
in g to n , D. C., 1917, vol. 5, No. 4 (A p ril), pp. 157-159.)
2 Op. cit., p. 158.
2 H ousing (R o sy th D ockyards) Act, 1915 (Public G eneral A cts, 1914 -1 9 1 6 ). London,
1916.
i H o using A ct, 1914. A ccount 1914-15. London, 1915, 3 pp. (P a rlia m e n ta ry P ap ers,
H. of C., 1914-15, No. 354.)
5 Cf. A n n u al re p o rts of th e L ocal G overnm ent B oard (4 5 th a n d 4 6 th ). L ondon, 1915,
1916.
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During the fiscal year ending March 31, 1917, the Public Works
Loan Board made new loans amounting to £1*11,479 ($542,513) for
the housing of munition workers.1
TYPES OF HOUSES.
Mr. Raymond Unwin, architect and town planner, officially con
nected with the housing work of the Ministry of Munitions, has de
scribed the houses which are being erected by that department.2
These are of four types, as follows:
(1) Huts.—Under this heading we include all the buildings of a temporary
or semitemporary character, whether they are built of concrete slabs or of
wooden framing, covered w ith plaster or w eather boarding outside and lined
inside usually w ith Beaver board. T his I have found on the whole the most
satisfactory m aterial for lining the huts inside when they are constructed of
wood, though we have used asbestos sheets largely, too.
Of these huts we have built three main types i
Type I.—C onsisting of a pair o f sem idetached fam ily huts having three bed
rooms, living room, scullery, bath, etc.
Type II.— Is a sm all hostel containing 10 beds, which m ight be used either
for a caretaker and nine single lodgers or for a fam ily taking six or eight
lodgers w ith them. It is moreover fairly easily converted into quarters for
two fam ilies sim ilar to Type I. W e have found this hut very popular. Not
only has it been used for operatives, but has been used for members of the
staff, and even taken as a larger house by officials of a higher grade. We then
have—
Type III, of which there are various subtypes marked A. B. C. This con
sists of a larger hostel in which single men or single women can be lodged in
numbers up to about 100, either in open dormitories or in dormitories fitted
w ith cubicles.
(2) Hostels.—We have also built a number of hostels in the form o f cottage
shells of a permanent character, which after the war can readily be converted
into a good fam ily cottage by slight alteration. These were adopted because
w e found that the cost of temporary buildings of wood and slabs, when account
is taken of all the costs of drainage, road access, w ater supply, etc., is so little
under that of permanent buildings that it seemed bad economy to erect the
latter except where the greater speed in erection w as a vital consideration.
For this type of hostel w e have usually adopted groups of four cottages each
and taken three groups for one hostel, linking them up w ith temporary corridors
and arranging them som etim es in a row and som etim es around three sides
of a quadrangle. * * *
(3) Completed cottages and staff houses of various sizes to suit the means
of the different grades of labor and staff employed in the factories. * * *
These are built, the sm aller cottages, usually in groups of four and spaced
about 12 houses to the a c r e ; the larger ones are built in pairs w ith a little
more ground usually left to them.
1 F orty -seco n d an n u a l re p o rt of th e P ublic W orks L oan B oard, 1916-17 (w ith a p
p en d ices). L ondon, 1917, 27 pp. (P a rlia m e n ta ry P a p e rs, II. of C., No. 85.)
2 L e tte r to Mr. Jo h n Nolen, Cam bridge, M ass., m ade p a r t of th e R e p o rt of th e Section
on H ousing to th e ch airm en of th e C om m ittee on W elfare W ork, A dvisory Com m ission of
th e Council of N atio n al D e fe n se ; conference held in W ash in g to n , Sept. 21, 1917. (M imeo
g ra p h copy in files of th e B u reau of L abor S ta tistic s .)
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(4)
In addition to these buildings, we have erected shops, institutes, and the
other necessary public buildings required for a complete township in connection
w ith some of the larger schemes, and in one case have had to provide bakeries,
central kitchen, laundry, schools, churches, and the accessories of a sm all town.
At Well Hall, near the Woolwich Arsenal, the Ministry of Muni
tions has built some 1,600 houses of a permanent type. It has erected
stores, halls, schools, and other public buildings; also bakeries, a cen
tral kitchen, laundries, and churches.1
A development at Eastriggs2 is one of the more recent housing
enterprises undertaken by the Ministry of Munitions. Here there
have been constructed some of all of the different types of houses
described above in Mr. Unwin’s letter.
AFTER THE W A R PROBLEMS.
That after the war the housing problem will probably present
greater difficulties than at present is the view of reformers.3 Several
reasons are given for th is:4 (1) High cost of construction. “ With
capital bearing interest at 5 per cent (at least) it is difficult to see
how it will be possible to let a cottage, costing £250 ($1,216.63), for
building construction, roads, and land, at a rent less than from 9s.
($2.19) to 9s. 6cl. ($2.31) per week.” (2) Increasing rents when
limitation act expires. (3) Lack of a unified governmental policy—
Unionist policy favoring State aid to local authorities and State sub
sidy if necessary to meet losses created by charging uneconomic rents;
the Liberal policy favoring increase in wages to make charging of
. profitable rents possible; the Labor party view, a combination of the
above policies. (I) Lack of compulsory town planning in rural
areas. (5) Lack of definite municipal housing policies. Up to the
present the action of local authorities has been confined to building
and renting houses to municipal tenants. Local authorities, it is
urged by housing reformers, should have power to acquire estates,
to lay them out on town-planning principles, then to lease these sites
and advance public money to all who might desire to build houses for
the working people. Local authorities should also have power to
form public utility societies for housing purposes.5
The Joint Committee on Labor Problems after the War, composed
of representatives of the Parliamentary Committee of the Trade1 D escribed w ith p lan s in the Jo u rn a l of th e A m erican I n s titu te of A rch itects, W ash
ington, D. C., 1917, vol. 5, No. 9. Also sam e Jo u rn a l fo r A pril, 1917, vol. 5, No. 4, pp.
157, 158.
2 D e s c r ib e d w i t h p l a n s i n J o u r n a l o f t h e A m e r i c a n
i n g t o n , 1 9 1 7 , v o l. 5, N o . 1 0 ( O c t o b e r ) , p p . 4 9 9 —5 1 0 .
In s titu te
of
A r c h ite c ts ,!
W ash
3 Cf. Webb, Sidney, op. cit., pp. 10, 11 ; A ldridge, H enry R., H ousing a f te r th e w ar,
p. 237. (In A fter-w ar Problem s, edited by Wm, H a r b u tt Daw son. London, A llen and
U nw in [1 9 1 7 ], pp. 233—250.)
4 A ldridge, op. cit., p. 237 e t seq.
5 A ldridge, op. cit., pp. 249, 250.
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Union Congress, the executive committee of the Labor Party, the
management committee of the General Federation of Trade-Unions,
and the War Emergency Workers national committee, has suggested
as a part of its housing program that priority should be given for
four years after the war to building material for industrial cottages
and that “ luxury ” building should be suspended.1 In order to reach
the class of labor to be benefited, it has also been proposed that only
those persons who come within the national insurance scheme should
be allowed to occupy cottages built by or with the aid of Government
money.2
HOUSING IN SCOTLAND.
On January 19, 1909, representatives of the Scottish Miners’ Fed
eration made representations to the Secretary for Scotland on the
question of housing conditions in the mining districts of Scotland.
The deputation urged the appointment of a special committee of
inquiry; but at that time the only action taken was to direct the
medical officers in the mining counties to make such inquiry and to
suggest possible lines of legislation to correct existing evils. On
April 26, 1911, a second committee of the Miners’ Federation was
received in London by the secretary, who called attention to what
had already been done through the medical officers (Report of Local
Government Board for Scotland, 1910) and stated that the matter
was still receiving the attention of the local authorities. On Novem
ber 20, 1911, a deputation of Scottish members of the British Parlia
ment, representing the mining districts, urged upon the secretary
for Scotland the desirability of a departmental committee of inves
tigation. The then secretary promised to consider the advisability
and practicability of an extended investigation of housing condi
tions in Scotland, and on October 30, 1912, his successor appointed a
commission of 12 members for the purpose in question.
The results of the investigation by this Scottish commission have
recently appeared in a large folio volume of 460 pages, to be followed
by volumes of hearings and reports of special investigations.3
The work of the commission, begun before the war, continued up
to February, 1916, after which time it was halted for about a year
on account of war activities, to be taken up again in January, 1917.
The report covers a number of problems in housing growing out of
the war emergency besides being an extremely comprehensive survey
1L o c a l
2 Idem ,
8R o y a l
G o v e r n m e n t C h r o n ic le , L o n d o n , A u g . 4, 1 9 1 7 , p . 4 3 0 .
Oct. 6, 1917, p. 555.
C o m m is s io n o n H o u s i n g in S c o tl a n d .
R e p o r t o f t h e R o y a l C o m m is s io n o n t h e
h o u s in g o f t h e i n d u s t r i a l p o p u l a t i o n o f S c o tl a n d , r u r a l a n d u r b a n .
E d in b u rg h , II. M .
S t a t i o n e r y O ffice, 1 9 1 7 , 4 0 0 p p . (c d . 8 7 3 1 ) .
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m o n t h l y r e v ie w of t h e b u r e a u of la bo r s t a t is t ic s .
of housing conditions in Scotland. Some of the headings in the
table of contents are as follows: (1) Instances of bad housing con
ditions; estimated shortage of houses and extent of the housing
problem; housing legislation and powers of local authorities; hous
ing conditions and problems in cities; merits and demerits of tene
ment system; relations of landlords and tenants; the one-room
house; overcrowding; housing conditions in fishing communities;
housing of migratory and seasonal workers; housing in the crofter
or small tenant farming districts; land in relation to housing; build
ing, public utility, and copartnership societies ; town planning and
transit; Government aid to housing; and the formulation of a
housing policy.
The war has created a widespread interest in housing, it is de
clared, as defective housing is one of the counts in an analysis of
the industrial unrest created by the war. As a war problem “ none
is more pressing or more vital, in the interests of the welfare not
only of the individual but also of the nation.”
The housing problem is not wholly or distinctively an urban as
opposed to a rural problem, it is noted. The two sets of problems—
urban and rural housing—dovetail because the conditions that give
rise to them overlap. Conditions of industrialism have been created
in rural districts by the movement of industrial plants to the “ outer
rim s” of the cities. “ The real divisions of the subject are, indeed,
not numerical so much as industrial,” as exemplified by the study
the commission made of miners’ housing, a summary of which will
appear in a future number of this R eview.
The 12 commissioners are agreed as to the facts regarding hous
ing conditions in Scotland; they divide, however, as to the remedies
to abate existing evils and to meet the shortage of houses. The
findings of the eight members of the majority are in their own words
as follows:
M A JORITY REPO RT.
The modest inquiry initiated by the Scottish M iners’ Federation in 1909 has
resulted in the national survey o f Scottish housing here presented. These are
the broad results of our su r v e y : U nsatisfactory sites of houses and villages,
insufficient supplies of water, unsatisfactory provision for drainage, grossly
inadequate provision for the removal of refuse, widespread absence of decent
sanitary conveniences, the persistence of the unspeakably filthy privy-midden
in many of the mining areas, badly constructed, incurably damp laborers’
cottages on fanns, whole townships unfit for human occupation in the crofting
counties and islands, prim ative and casual provision for many of the seasonal
workers, gross overcrowding and huddling of the sexes together in the con
gested industrial villages and towns, occupation of one-room houses by large
fam ilies, groups of lightless and unventilated houses in the older burghs, clotted
m asses of slums -in the great cities. To these, add the special problems
symbolized by the fanned-out houses, the model lodging houses, congested back
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lands, and ancient closes. To these, again, add the cottages a hundred years
old in some of the rural villages, ramshackle brick survivals of the mining out
bursts of 70 years ago in the m ining fields, monotonous m iners’ rows flung
down w ithout a vestige of town plan or any effort to secure modern conditions
of sanitation, ill-planned houses that must become slums in a few years, old
houses converted w ithout necessary sanitary appliances and proper adaptation
into tenem ents for many fam ilies, thus intensifying existin g evils, streets of
new tenem ents in the towns developed w ith the minimum of regard for j
amenity.
O V E R C R O W D IN G .
The last census showed that thousands of one-room houses continued to be
occupied by fa m ilie s; that overcrowding reckoned even by the most moderate
standard is practically universal in the one and two room h o u ses; that, in spite
of protest and adm inistrative superintendence, domestic overcrowding of houses
and overbuilding of areas have not been prevented. To our amazement, w e
found that, even if w e take overcrowding to mean more than three persons per
room, w e should, to secure even this moderate standard for Scotland, have to
displace some 284,000 of the population. B ut this is not all. W e conclude
that, at least, 50 per cent of the one-room houses and 15 per cent of the two- '
room houses ought to be replaced by new houses. In brief, merely to relieve
existing overcrowding, and replace houses that should be demolished, some
121,000 houses are required, and, if an improved standard is adopted, as we
recommend, the total number of new houses required would approach 236,000.
For such gigantic figures our report subm its full justification. On this point
the commission is unanimous.
j
R E A S O N
F O R
E X C E S S I V E
H O U S IN G
IN S U F F I C IE N C Y
A N D
L O W
H O U S IN G
S T A N D A R D .
If it be asked how this enormous accumulation has occurred, one answer i s :
T hat the conditions of Scottish housing have never been adequately investi
gated. The Scottish inquiry by the D ilke Commission of 1885 w as too lim ited
in its scope. It is only now that the nation has had the means of discovering
how far Scotland has been left behind, and by what poor standards the housing
of her working classes has been measured. Our report, and the evidence it
rests upon, w ill carry conviction to every disinterested person.
O B S T A C L E S
T O
H O U S IN G
R E F O R M .
These, then, are the conditions that cry aloud for redress. B ut the path of
reform is blocked by many o b sta cles: The failure of commercial enterprise fo
keep pace w ith housing needs, the failure of the local authorities, both of town
and county, to appreciate the full value o f their powers, the rapacity of prop
erty owners in their claim s for compensation, the persistence of antiquated
methods of arbitration, the absence of any definite basis for the assessm ent of
compensation, the impotence of the arbiters to check speculative claims, the
consequent enormous and deterrent expense of improvement schemes and recon
struction schemes, the impotence of the local authorities to control the prices
of building sites w ithin the city or of potential building land in the im m ediate
neighborhood, the absence of a direct obligation on any authority to see that
adequate housing is provided for the whole community, the inadequate size,
area, and resources of many local authorities, the absence of powers to require
combination of authorities, the consequent im possibility of effective enforcement
of statutes by the central authority, the insufficiency of the central authority’s
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equipment, the unsatisfactory status of the central authority itself— these 'and
their many derivative difficulties of procedure stand in the w ay of reform.
Both commercial enterprise and municipal enterprise have failed to keep pace
w ith the steadily rising demand for more and better house room.
C O S T
A N D
A C Q U IS IT IO N
O F
L A N D .
To the various problems here named we have given earnest consideration.
Above all, we adduce very definite view s on the relation of land to housing.
The question of the land is fundam ental. I f nothing is done to make it pos
sible either for individuals or for public authorities to obtain building land
at more reasonable prices than hitherto,, housing reform w ill be paralyzed at
the outset. If the methods of compulsory acquisition of lands, including land
and other property, are not simplified, the exorbitant claim s that have already
stopped building schemes in the cities w ill continue to be raised. These two
reforms are of primary urgency ; our specific proposals we subm it w ith every
confidence.
O B L IG A T IO N
O N
L O C A L
A U T H O R IT IE S
F O R
A D E Q U A T E
H O U S IN G .
But there is an adm inistrative point that is equally fundam ental. From the
national survey we have conducted, w e are satisfied that, in the present unique
disorganization of affairs the State alone, acting through the local authorities,
can meet the present discontent. For the tim e being, commercial enterprise
has failed to keep pace w ith the demand. The causes of the failure w e have
fully expounded. D oubtless the clim ax came w ith the w ar; the failure, how
ever, had become m anifest long before the war. B ut w hatever its causes, the
disorganization flowing from the war makes an im m ediate revival of uncon
trolled commercial enterprise on an adequate scale impossible. There is, in
our view, only one a ltern a tiv e: The State itself, through the local authorities,
is alone in a position to assum e responsibility. Here, then, is our primary
point in procedure. H itherto the local authorities, though their powers for
the provision of houses are extensive, have for various reasons been restrained
or have refrained from using them to any appreciable extent. W e are satisfied
that, if those powers are to be exercised on the scale necessary to realize the
program w e have set forth, the local authorities must be placed under an
unm istakable obligation to m aintain a continuous and system atic survey of
their housing accommodation, to ascertain how far private enterprise can meet
the demands, but failin g provision of houses by other agencies, to undertake
them selves—w ith financial assistance from the State— the necessary building
schemes. W ithout such a definite obligation, exercised under direction of the
central authority, w e are satisfied that by no adm inistrative machinery known
to us, can the necessary houses be provided. For the double purpose of avoid
ing delay and assistin g demobilization after the war, the consideration of
building schemes should proceed at once. This matter broods no delay. For
these strong conclusions w e have given our detailed reasons in the body of the
report.
C E N T R A L
A U T H O R I T Y ----- I T S
R E L A T IO N
T O
L O C A L
A D M IN IS T R A T IV E
A U T H O R IT IE S .
But if this obligation is to be made effective the local government board, as
central authority, should be strengthened by an increase of its direct executive
powers and an increase in its membership and staff. The nature of the ex
tended powers is fully explained in the report, but one power we regard as of
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primary importance, namely, the power to require the combination of existing
authorities for all purposes of public health and housing. This poposal w e
make because it involves the least disturbance of existing authorities and be
cause the urgency of housing should not be sacrificed to the prolonged discussion
of elaborate reforms. On the other hand, w e consider that the tim e has now
come for a readjustm ent of public health and housing areas, and for a radical
reconsideration of the relations between the various authorities in town and
county. We are aware that proposals for a m inistry of health are under con
sideration, but the proposals we now make are in no way inconsistent w ith
larger proposals for the consolidation of health services, both local and central.
C E N T R A L
A U T H O R IT Y
T O
B E
A
P R I N C I P A L
D E P A R T M E N T
O F
S T A T E .
Ill any such reforms, it is assumed, the Scottish m inistry of health w ill be
independent of an English ministry of health. But whatever form the new
changes take, it is essential that the central authority for housing and public
health should be elevated into a principal department o f the State. At present
the secretary of Scotland represents the local government board in Parliam ent
not as president of that board, but as head of the Scottish office. T his indirect
responsibility to Parliam ent is not, in our opinion, compatible w ith the extended
powers and increased responsibilities of the board. The local government
board for Scotland should have at least the same parliam entary status as the
Scotch Education Department.
T H E
O N E -R O O M
H O U S E .
On one problem discussed in the report we desire to focus public attention,
viz, the one-room house. That the one-room house is incompatible w ith decent
or wholesome fam ily life we have, we think, shown conclusively in our report.
The policy adopted for dealing w ith the one-room house w ill determine, in
large measure, the general housing policy of the country. That is w hy we have
devoted to it a special chapter. In our opinion the time has now come when the
Scottish nation should rid itse lf of the reproach of the one-room house. It is
now tim e to say that, subject to the qualifications specified in our report, the
one-room house must go.
O P P O S IT IO N
T O
S T A T E
S U B S ID IE S
T O
S P E C U L A T IV E
B U IL D E R S
A N D
O T H E R S .
In our main specific suggestions for new policy w e have, to our regret, not
carried w ith us our colleagues of the minority. B ut we have given every
consideration to their argu m en ts; w e have answered many of them directly or
by anticipation, and in the remainder we have failed to find either any ground
for a practical compromise or any reasons for altering the lines of policy
we have laid down. If the present crisis is to be met in the way that Scotland,
by her many sacrifices of life and treasure, has the right to expect, it can not
be met either by a reversion to the building conditions of prewar days or by
direct subsidies to emifioyers of labor, landowners, and the speculative builders
of to-day.
R E S P O N S IB I L I T Y
O F
T H E
S T A T E .
For im mediate and practical purposes w e have suggested that for a period
of 14 years, with an opportunity for revision at the end of 7 years, the State,
in assum ing full responsibility for housing, should operate through the local
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authorities and should place upon them the responsibility of seeing to the pro
vision of building. In our view the mere offer of financial assistance— to be
taken or left— may stim ulate some local authorities to a greater exercise of
their present powers, but w ill not meet the situation, the urgency and gravity
of which it would be difficult to exaggerate. To bear its full fruit, State
assistance requires the im position of definite obligations and the provision of
simple and effective organization. In this latter connection we can not but
look with strong disfavor on the proposals of the minority to create three new
departm ents:
(1) An ad hoc board for the Outer Hebrides and Skye to supersede the cen
tral and local authorities.
(2) A special financial board to adm inister loans and grants which in our
view would be more appropriately done by the central authority w ith their
direct knowledge of housing requirements, and by the public works loan board,
who are at present intrusted w ith the adm inistration of loans, and by the
Treasury, w hose approval would be necessary to the distributions of grants.
(3) A special land court to assess the price of land taken for housing— with
no definite basis of compensation 'laid down to guide them or lim it their
awards.
Such departments would m our opinion be expensive and useless additions to
adm inistrative machinery.
C O N C L U S IO N .
Our national survey has revealed the set determ ination of the Scottish people
to secure, for every class o f the community, wholesome conditions of living.
Their watchword is no longer lim ited to a healthy mind in a healthy b o d y ;
rather it now is a healthy fam ily in a healthy home. In this ambition they
have our encouragement and support. From beginning to end our proposals
are anim ated by the desire to see the housing o f the Scottish people made more
worthy of Scotland’s great history as a nation.
M IN O R ITY R EPO RT.
The four commissioners who sign the minority report declare
that the house shortage is so acute as to require the cooperation
of other agencies than the local authorities, who, it is pointed out,
have hitherto supplied only 1 per cent of the necessary dwellings,
although having all power to do so. Building funds, the minority
believe, should come from as many sources as possible.
The minority members also deplore the tendency toward too great
centralization of authority in housing matters, which they state the
majority report features. They also emphasize the necessity of so
administering State assistance during the period of reconstruction
as to mark its emergency character.
WORKINGMEN’S SUBURB IN NEW SOUTH WALES.
The American consul general at Sydney, Australia, under date of
August 30, 1917, reports that the Government of New South Wales
has set aside 337 acres of Crown land in the suburbs of Sydney for
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the purpose of erecting workingmen’s cottages. Reservations have
been made for roads, parks, and churches—for parks 32 acres, public
schools and technical colleges 74 acres, and churches 5^ acres. There
are also reservations for police stations and administrative build
ings. The main roadway in the suburb will be 100 feet and the
secondary highways 66 feet wide.
There are 211 acres reserved for cottages, which are now in course
of construction, there being seven to each acre of land. Altogether
there will be provided 1,437 cottages and 40 shops; and of this num
ber 240 cottages and 6 shops have been completed. These cottages
are built of brick or concrete, with tile or slate roofs. The cost of
constructing each cottage ranges from £276 ($1,343) to £640 ($3,115).
Each cottage will rent for from 12s. 6d. ($3.04) to 18s. 6d. ($4.50)
per week.
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LABOR LAWS AND COURT DECISIONS.
COURT DECISIONS ON LABOR QUESTIONS IN THE UNITED
STATES.
An unusual array of important decisions is presented by tbe
United States Bureau of Labor Statistics in its annual compilation
of court decisions on labor questions, just published as Bulletin
No. 224. A number of the decisions of the Supreme Court of the
United States, handed down since December, 1916, are included in
this bulletin, but for the most part the decisions were made in the
calendar year 1916.
Most notable among the Supreme Court, decisions, on account of
the circumstances attending the enactment of the law construed by
it, is the decision sustaining the constitutionality of the Adamson
eight-hour law for trainmen in interstate commerce and declaring
at the same time the right of Congress compulsorily to arbitrate
disputes between the railroads and their employees for the benefit
of the public.
The first broad decisions ultimately deciding the constitutionality
of workmen’s compensation laws are also noted in this volume.
Although a number of State courts of last resort had passed upon
laws of this type, it was not until the Supreme Court of the United
States had given the seal of its approval that the matter could be
considered as finally settled. In upholding the compulsory com
pensation law of New York and of Washington, the latter also,
providing for a compulsory State insurance fund, the farthest reach
of compensation legislation has received judicial approval. The
elective law of Iowa was likewise sustained.
Another important decision by this highest court was that sus
taining the Oregon 10-hour day for factory employees without
regard to sex or age—a marked reversal of position from the action
of the same court in 1905 in holding the 10-hour law of New York
applicable to bakeries unconstitutional; the power of the State to
enact laws limiting the hours of service of adult males in private
employment, as well as the hours of females and of children, is now
recognized. The fixing of wages for women and minors under 18
is also a valid exercise of the police power according to another deci
sion of this court, the Oregon minimum wage law being left un
disturbed in its position of constitutionality as determined by the
236
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supreme court of that State; on this point the Federal supreme bench
was equally divided, one justice not voting.'
Of hardly less interest than these decisions of the Supreme Court
is the action of the court of last resort of the State of Massachusetts
in declaring unconstitutional an act of that State which undertook
to limit the issue of injunctions in labor disputes, declaring that in
junctions should issue only when property rights are affected, and
that labor is not property. The court took the view that this atti
tude excludes from the protection of the law those who have no other
property than their right to work, and held that such a deprivation
could not be effected by statute.
Besides the decisions of the Supreme Court on the subject of work
men’s compensation, the bulletin contains numerous decisions and
rulings by the State courts, questions of construction and constitu
tionality being involved. The Kentucky Court of Appeals, which
had declared unconstitutional the workmen’s compensation law of
1914, found the enactment of 1916 conformable to the tests of validity
established by i t ; while the Supreme Court of Texas sustained the
compensation law of that State in all points as against an opinion of
a subordinate court that the provision was void which took from
employees of accepting employers their option to accept or reject
the act.
The point that continues and apparently will continue to furnish
the greatest number of cases for determination is found in the phrase
which appears in most of the compensation laws—“ injury arising
cut of and in the course of employment.” In the State of Washington,
however, the law does not contain the limitation, “ arising out of
employment,” so that discussion of this point is avoided, the supreme
court of the State saying that the employee “ is the soldier of
organized industry, accepting a kind of pension in exchange for
absolute insurance on his master’s premises.”
No less prolific of litigation is the Federal liability law covering
railroads in interstate commerce, since not only must the employing
company be an interstate carrier, but the injured person must at the
time of his injury have been employed in interstate commerce; it is
only when he is so employed that he can claim the benefits of the act,
while, on the other hand, if so employed he is restricted to such
recovery as that statute provides. With the wide extension of com
pensation legislation (now found in 37 States), there is constant
contrast, not to say conflict, between the two classes of remedy, i. e.,
by compensation and by suits for damages; furthermore, as appears
from a number of the cases discussed in this bulletin, it is frequently
a practical impossibility to determine whether relief should be sought
under the one law or under the other until the evidence has been
25413°—17----- 16
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Federal Reserve Bank of St. Louis
[1309]
238
M O N T H L Y R E V IE W
OF T H E BU REA U
O F L A B O R S T A T IS T IC S .
submitted to a jury and a verdict rendered. While therefore such a
compilation of decisions, selected for their particular interest as
illustrating the various legal phases of the labor question, possesses
an attraction for every student of labor, it is of especial value as
indicating those points in our legislative system which require atten
tion, to the end that more certain and prompt adjustments may be
made of the rights of the respective parties to labor contracts. At
the same time certain boundaries are indicated which can not be
passed without an alteration of constitutions, or at least of views of
constitutional interpretation. Evidence is not lacking of changes in
both these respects.
RECENT LABOR LAWS OF VENEZUELA.1
The Congress of Venezuela recently enacted legislation2 providing
for the safety and health of industrial laborers. The law requires
that all workshops and establishments shall be kept in constant and
perfect conditions of cleanliness, ventilation, and hygiene; and that
all machinery, apparatus, and appliances used in such establish
ments, which may become the cause of bodily injuries, shall be safe
guarded for the protection of health and life.
Eight and one-half hours shall constitute a day’s work, except in
cases where mutual agreements provide for a longer working period.
Working days include every day in the year except those known as
rest clays, days declared national holidays, and January 1, Holy
Thursday, and Good Friday.
The retention by any employer, owner, or director of any portion
of the pay due an employee or laborer for the sustenance of any
cult or for the benefit of any association is prohibited.
The President of the Republic and municipal authorities are vested
with authority to issue regulations under this law.
1G a c e t a O fic ia l.
2J u n e 2 5 , 1 9 1 7 ;
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
E s t a d o s U n id o s d e V e n e z u e la , J u n e 2 8 , 1 9 1 7 .
e f f e c tiv e J u n e 2 8 , 1 9 1 7 .
[1310]
ARBITRATION AND CONCILIATION.
CONCILIATION WORK OF THE DEPARTMENT OF LABOR,
OCTOBER 16 TO NOVEMBER 15, 1917.
Under the organic act of the department, which gives the Secre
tary of Labor the authority to mediate in labor disputes through the
appointment, in his discretion, of commissioners of conciliation, the
Secretary exercised his good offices between October 16 and Novem
ber 15, 1917, in 57 labor disputes. The companies involved, the
number of employees affected, and the results secured, so far as
information is available, were as follows:
STATEMENT SHOWING NUM BER OF LABOR DISPUTES HANDLED BY T H E
DEPA RTM EN T OF LABOR, THROUGH ITS COMMISSIONERS OF CONCILIATION
SUBSEQUENT TO OCT. 15. 1917.
Workmen affected.
Name.
Result.
Directly.
Strike, Chester Shipyards, Wilmington, Del...........................
Strike’ General Processing Co., Philadelphia, Pa...................
Strike’ Harlan & Hollingsworth Shipyards, Wilmington, Del.
Strike, Springfield Woolen Mills, Springfield, T enn..............
Controversy, Savage Arms Corporation and its union ma
chinists, Utica, N. Y.
Controversy, Merrill-Stephens Shipbuilding Co. and its ma
chinists, Jacksonville, Fla.
Controversy, Great Northern R. R. Co. and its station em
ployees, Sroux City, Iowa.
Controversy, Southern Saddlery Co., Chattanooga, Tenn__
Controversy, General Electric Co., Pittsfield, Mass................
Strike, clerks, Atlantic Coast Line R. R. Co...........................
Strike’, American-British Manufacturing Co., Providence,
R. I.
Controversy and strike, Gulf Coast oil regions, as follows:
Louisiana oil fields—
Mooringsport.................................................................
Vivian..................... ......................................................
Oil City..........................................................................
Trees...............................................................................
Goss .............................................................................
Ged.................................................................................
E dgerly.. .......................................................................
Lensburg........................................................................
Shreveport....................- ...............................................
Texas oil fields—
Goose Creek....................................................................
Sour Lake......................................................................
H um ble..........................................................................
Damond’s Mound.........................................................
Saratoga ........................................................................
Batson...........................................................................
Spindle T op...................................................................
Clemville......................................- ................................
Texas, teamsters and handv m en..... ................................
Firms operating in Texas and Louisiana oil fields—
Standard Oil Co.
Atlas Oil Co.
Caddo Oil Co.
Gulf Refining & Production Co.
Texas Oil Co.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1311]
156
50
900
47
Indirectly.
Adjusted.
Do.
Do.
Do.
250 '
Do.
1,268
Do,
23
90
48
700
200
Do.
200
6,000
5,000
Pending.
Adjusted.
Pending.
Do.
333
1,325
425
475
325
100
325
143
Do.
2,450:
1,000
825
275
209
180
111
110
522
Do.
Do.
239
240
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
STATEMENT
SHOWING NUM BER OF LABOR D ISPU TES HANDLED
D EPA RTM EN T OF LABOR, ETC.—Continued. -
BY
THE
Workmen affected.
Name.
Result.
Controversy and strike, Gulf Coast oil regions—Concluded.
Firms operating in Texas and Louisiana oil fields—Con.
Producers Oil Co.
Sims Sinclair Corporation.
Sun Oil Co.
Humble Oil Co.
Republic Producing Co.
Magnolia Petroleum Co.
Arkansas Natural Gas Co.
Reserve Gas Co.
South Western Gas Co.
Controversy, American Shipbuilding Co. and its boiler
makers and helpers, Cleveland, Ohio.
Strike, McCray Refrigerator Co., Kendallville, Ind................
Controversy, Pacific States Telephone & Telegraph Co." and
its electrical workers, involving California, Washington
Oregon, Idaho, and Nevada.
Controversy, railroad shopmen, Southern Pacific R. R. Co.
Oakland, Cal. [Commissioners report as follows: “ While
there were a few men who went on strike at Oakland it
does not appear th at any of the other shops were affected,
and it does not look as if employees will work in such
unison th at they will materially affect the business of
their employers. Actual number of employees who were
to strike if concessions not granted vague and indefinite 1
Controversy, flour mills, St. Paul and Minneapolis, Minn
Controversy, C., B. & Q. R. R. Co. andits carmen, Aurora ill
Controversy, metalliferous miners, Bingham, U tah .
Controversy, Pacific Steamship Co. and International Long-’
shoremen’s Union, San Diego, Cal.
Threatened strike, blacksmiths, Texas Shipbuilding Co
Bath, Me.
Threatened strike, blacksmiths, Hyde-Windless Plant
Bath, Me.
Threatened strike, blacksmiths, B athlron Works, Bath Me
Controversy, Port Newark Terminal, Newark, N. J ’
Strike, Watertown Arsenal, Boston, M ass.. . .
Controversy, longshoremen and employing stevedores ’ San'
Pedro, Cal.
Controversy, Willys-Morrow Co., Elmira, N. Y
Controversy, Spreckels Bros. Commercial Co.,"San Diego"
Cal,
Strike, painters, Wm. Cramp & Sons Ship & Engine Co
Philadelphia, Pa.
Strike, Fore River Shipbuilding Co., Quincy, Mass
Controversy, Kerr Turbine Co., Moore Turbine Co Weils-’
ville, N. A .
Controversy, oil and gas well workers and oil operators
California.
Lockout, Sexton Garment Co., Princeton, Ind
Controversy, General Aluminum & Brass Manufacturing’
Co., Detroit, Mich.
Controversy and walkout, Southern California iron and
steel workers, Los Angeles, Cal.
Strike, St. Louis Smelting & Refining Co., Collinsville, 111
Strike, Thew Automatic Shovel Co., Lorain, Ohio.
Threatened strike, machinists, Cleveland, Cincinnati *’c ’h"i-’
cago & St. Louis R. R. Co. (Big Four), Indianapolis,’ind.
Lockout, packing house employees, St. Joseph, Mo.
Strike, S. Slater & Sons Woolen Mills, Webster, Mass............
Controversy, Mechanical crafts, Toledo and Cincinnati’
division, Baltimore & Ohio R. R. Co.
Strike, carmen, Gulf & Ship Island R. R. Co., Gulfport, Miss
Controversy, coal drivers Jersey Citv, N. J ..
Controversy, Seaboard Air Line R. R. Co. and it’s"laborers'
and helpers, southeastern States.
Strike, freight handlers, Boston & Maine R. R. Co. and
Boston & Albany R. R. Co., Boston, Mass.
Strike, shop employees, Morgantown & Kingwood R. R. Co.
Morgantown, W. Va., to Morgantown and Kingwood’
Junction, W. Ya.
Directly.
Indirectly.
8Ò
1,725
214
300
7
350
6,000
60
2 1,400
Adjusted.
Tending.
Do.
(')
Pending.
Adjusted.
Pending.
Do.
2 600
Adjusted.
2 1.500
Pending.
Do.
Do. 3
Do. 4
240
250
25
40
110
Do.
Do.
Adjusted.
(6)
3,500
350
1,000
6,581
15,000
55
85
Do.
Unable to adjust
Pending.
Do.
Do.
Do.
100
420
600
100
430
800
98
637
1.375
1,500
Unable to adjust
Adjusted.
Pending.
Do.
Adjusted.
Pending.
Do.
Adjusted.
Pending.
400
67
( 6)
Adjusted.
Do.
1Commissioner withdrew from case.
2Metal tradesmen.
3 Men have agreed to return to work pending settlem ent of question causing strike.
* Men promised to continue work pending adjustm ent.
6 Several hundred.
6 Several thousand.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1312]
241
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
STATEM ENT SHOW ING NUM BER OF LABOR D ISPU TES HANDLED
PARTM ENT OF LABOR, ETC.—Concluded.
BY T H E
DE
Workmen affected.
Result.
Name.
Directly.
Tending.
Do.
Walkout, ship carpenters, McBride & Law Shipyards,
Beaumont, Tex.
Controversy, Kling Bros. Engineering Co. and its iron
molders, Chicago, 111.
Strike, plumbers, New Jersey Shipbuilding Co., Gloucester,
N. J.
Threatened strike, shipyards, Orange, le x .:
International Shipbuilding Co...........................................
National Shipbuilding Co...................................................
Southern Dry Dock & Construction Co............................
Orange Maritime Corporation............................................
Strike, Crown, Willamette & Hawley Pulp & Paper Co.,
Oregon City, Lebanon, Oreg., and Camas, Wash.
Ul/liACj XliUClllJillocOj
u i -i-i.'-’
DII liVC. UlOHW J1XUV/ iliiu u .
wu.
j
—
'■
’ ' • ' “ • - - - --------------------------
Strike, pipe fitters, American Shipbuilding Co., Cleveland,
Ohio.
Indirectly.
1
35
100
55
500
Do.
Adjusted.
Tending.
Adjusted.
Pending.
Do.
Do.
Do.
Do.
.
Cases in October statement noted as pending have been disposed
of as follows:
Strike, boiler makers, Volk & Murdock’s Boiler Shop, Charleston, S. C.
Adjusted.
Strike, L. Wolff M anufacturing Co., Chicago. Unable to adjust.
Shipbuilding controversy, San Francisco. Temporarily adjusted.
Controversy, Loose-W iles Co., K ansas City, Mo. Strike declared off.
Controversy, Curtiss Aeroplane Co. and its pattern makers, Buffalo, N. Y.
Adjusted.
Controversy, Northern Pacific Railroad and its railw ay clerks and station
employees. Adjusted.
Controversy, Columbus Oil Producing Co., Brea, Cal. Unable to adjust.
Lockout, m achinists, Anniston, Ala. Adjusted.
General controversy, weavers, Philadelphia. 13 a d ju sted ; 29 pending.
Strike, m achinists, Symington Anderson Plant, Rochester, N. Y. Adjusted.
Controversy, jew elry employees and manufacturers, Newark, N. J. 10 ad
justed ; S pending.
Strike, velvet workers, American V elvet Co., Stonington, Conn. Adjusted.
Controversy, T exas & Pacific R ailroad Co. and car department employees,
D allas, Tex. Adjusted.
Lockout, American Lace Co., Elyria, Ohio. Adjusted.
Strike, roofers, Los Angeles, Cal. Adjusted.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1313]
STRIKES AND LOCKOUTS.
STRIKES AND LOCKOUTS OCCURRING IN THE UNITED STATES
DURING SEPTEMBER, 1917.
According to information received by the United States Bureau of
Labor Statistics, 290 strikes and lockouts occurred in this country
during the month of September, 1917. Inasmuch as many reports
do not reach the bureau for many months after the strikes occur,
it is believed the number of strikes in the country probably ap
proached 450 in the month under consideration. For the correspond
ing month in 1916 the number reported to the bureau was 225. It
should not be considered, however, that the number of strikes this
year is twice that of last, for the facilities of the bureau in the col
lection of data have increased during that time. The number, never
theless, seems to be in excess of that of last year. Complete data
relative to these strikes have not been received by the bureau, and it
has not been possible to verify what have been received. The figures
given should therefore be understood to be only an advance state
ment and to be considered merely as approximate.
The more important strikes of the month were those of the workers
in the shipyards on the Pacific coast, in which the number involved
aggregated nearly 50,000; of the packing-house employees of Omaha
and Kansas City, involving 10.000 persons; the general strike at
Springfield, 111., involving 8,000 persons; and the strikes of long
shoremen at New York City, Norfolk, and New Orleans; the tele
phone workers in Arkansas and Oklahoma; the telegraphers on the
Pennsylvania system; the clothing workers in New York City; the
miners in Pennsylvania and Ohio; the steel workers in Pittsburgh;
and the switchmen in South Chicago and Gary.
The data in the following tables relate to the 288 strikes and 7
lockouts reported to have occurred in the month of September, 1917:
STATES IN W HICH FIV E OR MORE STR IK ES AND LOCKOUTS W E R E R E P O R T E D AS
OCCURRING IN SEPTEM BER, 1917.
State.
New Y ork.........................
Pennsylvania...................
Missouri............................
Ohio..................................
Illinois...............................
Massachusetts...................
New Jersey.......................
Arkansas...........................
Oregon...............................
Rhode Island...................
Strikes. Lock
outs.
47
30
2
21
21
15
15
12
10
10
10
242
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
Total.
49
30
21
21
1
15
15
13
10
10
10
State.
W ash itigtrvn
Louisiana
Texas.
Conneeti m11
Virginia
Wisconsin
22 nth or States
[1314]
Total
Strikes.
Lock
outs.
g
g
g
7
1
Total.
Q
y
Q
Q
O
7
c
O
5
5
5
51
O
54
283
7
290
243
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Of these disputes 171 strikes and 3 lockouts occurred east of the
Mississippi and north of the Ohio and Potomac Rivers; 91 strikes
and 2 lockouts west of the Mississippi; and the remaining 21 strikes
and 2 lockouts south of the Ohio and Potomac Rivers and east of
the Mississippi.
As to sex. the distribution was as follows: Males, 220 strikes and
5 lockouts; females, 21 strikes and 1 lockout; both sexes. 15: not
reported, 27 strikes and 1 lockout.
The industries in which four or more strikes and lockouts were
reported were as follows:
NUM BER OP STR IK ES AND LOCKOUTS IN SPEC IFIED IN D U STR IES R E P O R T E D AS
OCCURRING IN SEPTEM BER, 1917.
Industries.
Strikes. Lock
outs.
40
22
19
19
15
15
14
13
13
10
8
5
5
5
Building trades................
Mining.. v ........................
Telegraph and telephone.
Textiles.............................
Shipbuilding.....................
Stieet railways.................
Team ing...........................
Express companies..........
Longshoremen.............—
Munitions..........................
Industries.
Total.
42
22
19
19
17
15
14
13
13
11
8
5
5
5
2
2
i
Strikes. Lock
outs.
Total.
5
4
4
5
4
4
Street and paving............
Glass working...................
Lumbering........................
Meat cutting and butch
ering ...............................
Musicians and theatrical
employees......................
Waiters and cooks...........
Tobacco.............................
Miscellaneous...................
N ot reported.....................
4
4
3
51
1
1
1
4
52
1
T otal.......................
283
7
290
4
4
-
4
4
Included in the above are 6 strikes of carpenters, 6 of machinists,
and 5 of tailors.
In 176 strikes and 5 lockouts the employees were reported as con
nected with unions; in 23 strikes and 2 lockouts they were not so
connected; the remaining 84 strikes were not reported. In but 3
strikes were the employees reported as connected with the I. W. W.
The following table shows the causes of the strikes and lockouts
in so far as reported. In about two-thirds of the strikes the ques
tion of wages or hours or both was prominent ; in 16 per cent the
question of the recognition of the union in some way was involved.
PRINCIPAL CAUSES OF STR IK ES AND LOCKOUTS R E P O R T E D AS OCCURRING IN SEPTEM BER, 1917.
Causes.
Strikes. Lock
outs.
For increase of wages.......
Because of decrease of
Because of nonpayment
For decrease of hours.......
For increase of wages and
Gunui al Cuiiditions ------Conditions and wages---Conditions and hours----Conditions, wages, and
Recognition of the union
fl.nd closed shop............
Recognition and"wages...
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Federal Reserve Bank of St. Louis
104
1
Causes.
Total.
105
2
2
2
5
2
6
1
30
6
5
1
1
17
16
4
Recognition and hours...
Recognition, wages, and
hours..............................
To compel discharge of
foreman..........................
Because of discharge of
Strikes. Lock
outs.
1
Total.
1
4
4
5
5
16
16
4
17
9
1
4
17
9
1
30
6
5
1
Because" of presence of
nonunion m en..............
In regard to agreement...
i
Miscellaneous...................
Not rp,ported.....................
29
1
30
21
16
T otal.......................
283
7
290
S y m p a t h y ...................................
113154
8
8
244
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
In 1T1 strikes the number of persons involved was reported to be
147,349, an average of 862 per strike. In 31 strikes, in each of which
the number involved was 1,000 or more, the strikers numbered 120,387,
thus leaving 26,962 involved in the remaining 140 strikes, or an
average of 193 in each. In 4 lockouts the number reported to have
been involved was 705.
In 211 strikes and 5 lockouts only one employer was concerned in
each disturbance; in 8 strikes, two employers; in 7 strikes, three; in
15 strikes and 1 lockout, more than three; in 42 strikes and 1 lockout
the number of employers was not reported.
One hundred and sixty-one strikes and 3 lockouts were reported
as ending in September. Of this number, 112 strikes and 2 lockouts
began in September and 49 strikes and 1 lockout began in former
months. Of these, 66 strikes and 1 lockout were reported as ter
minating in favor of the employees, 19 strikes and 1 lockout in favor
of the employers, 41 strikes and 1 lockout were compromised, in 16
strikes the men returned to work under promise of the employer to
arbitrate the matter in dispute, while in 19 strikes the result was not
reported. The duration of 127 of these strikes was given as follows :
Less than 1 day, 11; 1 day, 5; 2 days, 20; 3 days, 18; 4 days, 8; 5 to 7
days, 14; 1 to 2 weeks, 24; 2 to 3 weeks, 8; 3 weeks to 1 month, 9;
1 to 6 months, 10. The number of days lost was 1,701. Average
duration of these strikes was less than 13| days. The average dura
tion of the 117 strikes that lasted less than one month was about
7i days.
It is impossible to state how many strikes were in progress at the
end of the month. The bureau has a record of the ending in
October of 21 of the strikes that started in September. It has a
record of 268 others that started before the month of September
that are still known to be pending. It is believed, however, that the
number pending is much larger than these figures would indicate.
STRIKES AND LOCKOUTS IN GERMANY, 1916.1
Statistics of strikes and lockouts during the year 1916 have re
cently been published as volume 232 of the Statistics of the German
Empire (Statistik des Deutschen Eeiches). The principal facts
given in this volume are the following: .
The number of labor disputes reported during the year 1916 is
considerably greater than the number reported since the outbreak
of the war up to the end of 1915. A total of 240 strikes with 124,183
striking workers were reported for 1916, 225 of these strikes being
offensive strikes and 15 defensive strikes. No lockouts took place
1 B rem er B ürger-Z eitung.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
B rem en, Aug. 0, 1917.
[1316]
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
245
during the year. For the first five months of the war (August to
December, 1914) only 26 strikes with 2,084 strikers were reported,
and the statistics for 1915 show a total of 137 strikes and four
lockouts with 124,183 striking or locked-out workers. Nevertheless
the number and intensity of the strikes of 1916 appear very insig
nificant if compared with the data of the strike statistics of peace
times. In 1913, for instance, 2,127 strikes and 337 lockouts with
311,048 participant workers were officially reported.
The real extent of labor disputes is best indicated by the number
of working days lost, which is obtained by multiplying the number
of striking or locked-out workers with the duration of the disputes.
During the year 1913 the number of working days lost was 11,190,497; in 1914 it fell to 2,843,895; in 1915 (the first full year of the
war) it fell still more, namely, to 45,511, and during 1916 it. rose to
245,404, or one-fortieth of the number of days lost in 1913. In 1916
labor disputes were most extensive in the metal working and ma
chinery industry, i. e., in those industries which now are essentially
war industries. The number of strikers in these two industry groups
was 65,081, or more than half of the total number of strikers. The
next largest number of strikers, namely, 44,166, is reported for the
mining industry. All other industry groups participate, with small
numbers of strikers.
As to the result of the strikes, only 2.4 per cent terminated with
full success for the strikers; 55.1 per cent were partly successful,
while 42.5 per cent were unsuccessful. The corresponding per
centages for the preceding year Avere 12.0, 51.7, and 36.3, i. e., much
more favorable to the strikers. The majority of the labor disputes
of 1916 were caused by demands for wage increases.
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Federal Reserve Bank of St. Louis
[1317]
IMMIGRATION.
IMMIGRATION IN AUGUST, 1917.
The number of immigrant aliens admitted to the United States
during the year 1916 was 355,767, as compared with 258,678 for the
year 1915, an increase of 97,089, or 37.5 per cent, There was also
an increase from month to month during 7 of the 12 months in
1916. During the current year the figures for the first three months
show a considerable decrease from month to month. The decrease
from the preceding month for January, February, and March, 1917,
is 19.9, 22.3, and 19.-1 per cent, respectively. For April, however,
the number of immigrant aliens admitted shows an increase of 32.3
per cent over the number admitted in March. As compared with
April, the figures for May show a decrease of 48.9 per cent. The
figures for June indicate an increase of 5.5 per cent over those for
May. During July immigration reached a very low point, only
9,367 immigrant aliens having been admitted, a total even smaller
than that for May, which was the smallest total for any month in
many years. As compared with figures for July, however, those for
August show an increase of 7.3 per cent. These facts are brought
out in the following table:
IMMIGRANT ALIENS ADM ITTED INTO T H E UN ITED STATES IN SPEC IFIED MONTHS,
1913 TO 1917.
1917
Month.
1913
1914
1915
1916
Number.
January......................................
February....................................
March.........................................
A pril..........................................
Mav............................................
Ju n e...........................................
July............................................
August.......................................
September...............................
October....................................
November..................................
December...................................
46,441
59,156
96,958
136,371
137, 262
176,261
138,244
126.180
136,247
134^ 440
104,671
95; 387
44, 708
46,873
92,621
119,885
107,796
71,728
60,377
37,706
29,143
30^ 416
26,298
20,944
1 Decrease.
246
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
[1318]
15,481
13,873
19,263
24,532
26,069
2?, 598
21,504
21,949
24,513
25,450
24' 545
18,901
17,293
24,740
27,586
30,560
31,021
30,764
25,035
29,975
36,398
37' 056
34,437
30^ 902
24,745
19,238
15,512
20,523
10,487
11,095
9,367
10,047
Per cent
increase
over
preceding
month.
1 19.9
1 22.-3
1 19.4
32.3
1 48.9
5.5
1 15.6
7.3
MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.
247
Classified by races, the number of immigrant aliens admitted into
and emigrant aliens departing from the United States during August,
1916 and 1917, was as follows:
IMMIGRANT ALIENS ADM ITTED AND EMIGRANT A LIEN S D E PA R TE D FROM THE
UNITED STATES, AUGUST, 1916 AND 1917.
Admitted.
Race.
Departed.
August,
1916.
August,
1917.
August,
1916.
African (black)...................................................................................
Armenian...........................................................................................
Bohemian and Moravian ................................................................
Bulgarian, Servian, Montenegrin....................................................
Chinese...............................................................................................
Croatian and Slovenian ..................................................................
Cuban.................................................................................................
Dalmatian, Bosnian, Herzegovinian...............................................
Dutch and Flem ish..........................................................................
E ast Indian ....................................................................................
English .............................................................................................
Finnish..............................................................................................
French ...........................................................................................
German...............................................................................................
Greek..................................................................................................
Hebrew.............................................................................................,
Irish ....................................................................................................
Italian (north)...................................................................................
Italian (south)...................................................................................
Japanese.............................................................................................
Korean................................................................................................
Lithuanian ......................................................................................
Magyar...............................................................................................
Mexican..............................................................................................
Polish..................................................................................................
Portuguese.......................................................... ..............................
Roum anian.......................................................................................
Russian...............................................................................................
Ruthenian (Russniak)............ ........................................................
Scandinavian.....................................................................................
Scotch.................................................................................................
Slovak................................................................................................
Spanish...............................................................................................
Spanish-American.............................................................................
Syrian ...............................................................................................
Turkish...............................................................................................
Welsh
................................................... ........ ..............................
West Indian (except Cuban)...........................................................
Other peoples. .................................................................................
Not specified......................................................................................
606
202
25
110
145
39
488
8
741
13
3,042
452
1,874
912
4,767
1,344
1,502
297
3,964
366
2
38
47
2,222
517
19
to
13
151
3
175
7
103
8
992
234
699
166
781
417
445
99
600
1,055
15
7
2
160
5
109
39
2
10
192
96
355
6
342
243
144
81
96
2
607
47
256
53
599
37
218
849
1,732
44
41
3
1,084
173
738
64
394
138
286
80
222
Total.........................................................................................
29,975
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1,084
66
315
197
2,058
1,176
13
765
208
105
39
66
94
138
August,
1917.
33
39
18
2
9
58
32
129
8
576
1
381
95
5
201
53
12
2
20
37
127
902
7
4
1
39
1
36
602
7
988
3
526
306
2
348
63
22
3
36
29
35
10,047
7,6S6
7,569
549
22
129
2
1,129
'387
728
246
17
PUBLICATIONS RELATING TO LABOR,
OFFICIAL—UNITED STATES.
—D epartm en t of Labor and Industry. Report on coal-mine accidents.
Topeka, 1917. 67 pp.
Devoted alm ost exclusively to a report, including testim ony taken, on tw o
coal-mine disasters, in one of which 20 men lost their liv e s ; in the other, two
were suffocated. During the year 1916, 54 fa tal accidents occurred in coal
mines, the largest number, 19, or 35.2 per cent, being caused by falls of rock.
Of 1,015 nonfatal accidents, 305, or 30 per cent, were due to cars, 250, or 24.6
per cent, to falls of rock, and 245, or 24.1 per cent, to m iscellaneous causes.
The report tabulates fa ta lities in coal mines from January 1, 1900, to Janu
ary 1, 1917, show ing a total of 529, of which 248, or 46.9 per cent, were caused
by falls of roof or slate, w hile 119 men, or 22.5 per cent, met their death w hile
firing shots. On account of the disasters mentioned above, the record for 1916
is the largest of any year during the 17-year period.
K
a n sa s.
—Bureau of Statistics. Forty-seventh annual report of the
statistics of labor for the year 1916. Public Document No. 15. Boston,
1917. Six pa rts m one volume. ' 59,103, 60, 83, 254, 59 pp.
The various parts com prising th is volume have been issued a s labor bul
letins, and include (1 ) F ifteen th annual directory o f labor organizations in
M assachusetts, 1916 (see M o n t h l y R e v i e w for August, 1916, p. 94) ; (2) Sixth
annual report on union scale of wages and hours o f labor in M assachusetts,
1915 (see M o n t h l y R e v i e w for September, 1916, p. 102) ; (3) R ates of wages
and hours of labor in steam and electric railw ay service in M assachusetts (see
M o n t h l y R e v i e w for October, 1916, p. 93) ; (4) Labor legislation in M assa
chusetts, 1916 (see M o n t h l y R e v i e w for January, 1917, p. 158) ; (5) Labor
injunctions in M assachusetts (see M o n t h l y R e v i e w for May, 1917, p. 795) ;
(6) Eighth annual report on labor organizations for the year 1915 (see
M o n t h l y R e v i e w for July, 1917, p. 162).
M
a s s a c h u s e t t s .-
------ Fourth annual report of the S ta te Board of Labor and Industries, Jan
uary, 1917. Boston, 1917. 197 pp.
That portion of this report which relates to industrial health and occupa
tional diseases is noted on pages 2 0 2 to 2 0 4 of this issue of the M o n t h l y
R
e v ie w
.
.-—D epartm en t of Labor. Thirty-fourth annual report. Lansing, 1917.
627 pp.
Although not stated, the statistics indicate for the most part that this report
covers the calendar year 1916. The commissioner comments on “ the phenomenal
growth of the industries of our State,” noting the fact that during the year
covered by the report there w as an increase of 104,272 w age earners over the
number employed during the preceding year in the factories and workshops of
the State. It is recommended that the fire marshal and the commissioner of
labor be designated and empowered to prepare standard specifications for all
fire escapes to be used throughout the S ta te ; that the industrial accident board
be authorized to establish an office in each of the industrial cities of the State
M
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where injured workers may apply for inform ation as to their rights under the
law ; that legislation should be enacted fixing, for all m ale employees, the
number of hours which shall constitute the standard workday, the provision
of the present 54-hour law affecting certain classes o f fem ale employees being
extended so as to include all fem ale employees and all m ales as w e ll; that a
special legislative committee be appointed to investigate and report on the
employment situation throughout the State; and that a more liberal appropria
tion be made available to carry on the work of the free employment bureaus.
The commissioner believes “ that the security of a position or job should not
be the subject of barter and exchange,” and that those desiring work should be
furnished inform ation free and as expeditiously as possible as to where it can
be secured. To this end five additional free employment offices were established
during the year, “ and so steadily has the business increased that last year
we succeeded in furnishing nearly double the number of positions which we had
furnished the year previous, and at the amazingly low cost of a fraction over
13 cents each.” The number of positions secured, according to the report,
w as 104,048.
The report tabulates 191 accidents in 15 coal mines, 2 of the accidents being
fatal, 13 serious, 66 severe, and 110 slight.
During the year 14,692 factories and workshops were inspected, the number
of workers employed being 557,537, wages being paid to 543,442. The aggre
gate wages paid w as $1,515,171.06 and the average daily w age w as $2.78. The
number of girls under 16 years of age employed w as 550, their average daily
w age being $1.01, and the number of boys under 16 years of age employed w as
1,106, their average daily wage being $1.17.
Michigan.— Annual report of the inspector of mines, M arqu ette County, fo r the
year ending Septem ber 30, 1917. [_Ishpem ing, October 1, 1917.] 19 pp.
Gives details of 15 fatal accidents, 5 of which were caused by fa lls of rock
or ore from roof or w all, and 4 by falling down s h a f ts ; 2 were surface acci
dents. There were 21 serious and 29 slight accidents. Of 117 m ines in the
county, 35 were in operation, employing 5,569 men. The accident rate per
1,000 employees w as 2.69.
Minnesota.—D epartm en t of L abor and In du stries. B u lletin No. Ik. Court
decisions, attorn ey general’s opinions, D epartm en t of L abor opinions, rela
tive to the w orkm en’s com pensation act. St. Paul, Septem ber, 1917. J/9 pp.
Contains decisions on the follow ing su b jects: Determ ination of com pensation;
dependency; employments covered by compensation a c t ; injuries, when covered
by a c t ; lim itations, when effectiv e; m ed ica l; procedure; territorial scope of
a c t ; third party c a s e s ; computation of w a g e s; words and phrases.
New Jersey.— D epartm en t of Labor. T h irty-n in th annual report of the Bureau
of In du strial S ta tistic s for the y ea r ending October 31, 1916. Trenton,
1917. 275 pp.
The thirty-ninth annual report of the bureau of industrial statistics of the
New Jersey Department of Labor is presented in three parts included in one
volume, giving (1) the statistics of m anufactures; (2) a report and analytical
review of steam-railroad operations in the State, w ith particular reference to
labor conditions as regards the working tim e and w ages of all classes of labor
em ployed; and also a compilation of prices of a selected list of food supplies
based on reports from retail dealers representing all cities, towns, and rural
centers of the S tate; (3) a comprehensive presentation of current industrial
history as shown by the erection of new buildings for industrial purposes and
the enlargem ent of old establishm ents; changes in working hours and w ages;
industrial property destroyed by fir e ; organization of trade and labor u n io n s;
and a detailed record of strikes and lockouts.
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MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.
Pennsylvania.—D epartm en t of L abor and In d u stry.
M onthly bulletin, June,
1917. H arrisburg, 1917. 54 PP•
The leading article in this issue is the report of an investigation of th e health
of 400 tobacco workers, preceded by a statem ent of the establishm ent by the
Department of Labor and Industry, in cooperation w ith the U niversity of Penn
sylvania, of a clinic for the study of occupational diseases. Reports by the
bureaus of statistics and inform ation and of workmen’s compensation show that
1,032 workers were killed during the first four months o f 1917, and th at 82,044
other workers were in ju red ; that during the sam e period compensation amount
ing to $1,529,932.55 w as awarded to dependents of workers killed, and $816,159.01 to workers disabled. Records of accidents during 1916 show a total of
255,616, of which 2,670 were fatal. Industrial accidents caused workers to
lose time equivalent to 3,025,371 working days, the total amount of w ages lost
being $7,535,059. Approximately 23.4 per cent of the accidents caused disabili
ties exceeding 14 days in duration.
U n it e d S t a t e s .— Congress.
Senate. D ocum ent No. 84. B ritish Labor's W ar
M essage to A m erican Labor. A ddresses and discussions a t a m eeting of
the com m ittee on labor of the Council of N ational D efense, held in W ash
ington, D. C., on M ay 15, 1917. W ashington, 1917. 100 pp.
The addresses and discussions appearing in this pamphlet present in con
cise form, from authoritative sources, detailed information relative to the indus
trial problems which Great B ritain has been called upon to face by reason of
the w ar and the methods that have been employed for their adjustment. The
purpose of the m eeting of the committee on labor of the Council o f National
D efense, at which the addresses were given, w as to afford an opportunity for
American labor to receive the benefit of and profit by the B ritish experience
in m eeting industrial problems. There were about 200 members and guests
present, representing all phases of our industrial and civic life, and “ the
addresses and discussion proved o f extraordinary practical value, both from
the standpoint of industrial ju stice and o f the highest patriotism .”
-------------- House. C om m ittee on In te rsta te and Foreign Commerce. H earings
on H. R. 5723, to amend the Bureau of Insurance act so as to insure the
men in the A rm y and N a v y . A ugust 11, 1917. W ashington, 1917. 29 pp.
Included in this pamphlet is a copy of the proposed amendment, which, with
certain changes, subsequently became a law, and a copy of the letter by the
Secretary of the Treasury to the President outlining the purposes of the amend
ment.
------ D epartm en t of the In terior. Bureau of Mines. A dvanced first-aid in stru c
tion fo r m iners: a rep o rt on stan dardization . W ashington, 1917. 154 pp.
T his publication, prepared w ith the assistance o f the Red Cross, is an effort
to standardize first-aid practices as applied by the Bureau of Mines rescue
corps. It is intended to be used as a textbook for the guidance of the bureau’s
teachers, and is also to serve as a guide and reference book to m iners and
others.
---------------------- Control of hookworm infection at the deep gold mines of the
m other lode, C alifornia, by Dr. Jam es G. Gumming and Joseph H. W hite.
B u lletin 139. W ashington, 1917. 52 pp. Illu stra ted .
The United States Bureau of Mines, working w ith the California State Indus
trial Accident Commission and the State board o f health, has made an investi
gation of hookworm infection in th e deep gold mines of the mother lode in
California, a report of which appeared in July, 1917, under the above title.
In this investigation an exam ination of 1,096 m iners from 8 mother lode
m ines revealed 337 cases (31 per cent) of infection, by far the largest propor
tion being among miners working underground. B ut little attention w as given
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to determ ining the source of the infection, the important fact to be faced being
that it is present in these mines and ought to be eradicated.
The investigation showed that the skip tenders and bosses and repair men
are more liable to infection than the m iners and the muckers and car men;
also that the proportion of infection is greatest among Austrian workers and
least among Italian workers, no satisfactory explanation of this fact being
given.
The report includes recommendations for the prevention of hookworm infec
tion, applicable prim arily to the mother lode workers, but containing sugges
tions of practical value to operators of other m ines where hookworm infection
may appear.
OFFICIAL—FOREIGN COUNTRIES.
Australia.—B ureau of Census and S ta tistic s.
Labor and In d u stria l Branch.
R eport No. 7. Prices, purchasing p ow er of money, wages, trade-unions,
unem ploym ent, and general in d u stria l conditions, 1916. Melbourne, 1917.
pp. 333-586.
Portions of this report are noted on pages 131, 142, and 143 of this issue of
the Monthly Review.
----- (Victoria).—R eport of the reg istra r of frien d ly societies, for the year
1916. M elbourne, 1917. 4 PPD e n m a r k . — Sygekasseinspektgrens.
In dberetn m g til In d en tig sm in iste riet for
aaret 1916. Copenhagen, 1917. 36 pp.
The annual report of the inspector general of sickness insurance funds for
the year 1916. presented in two parts, one covering the operations of recognized
sickness insurance funds, and the other the operations of funds entirely sub
ject to Government supervision. Shows the number of funds, the number of
persons insured, and the number receiving benefits ; also a statem ent of receipts
and expenses.
F rance.—M inistères du T ra va il et de la P révoyance Sociale, de la Guerre
et de VInterieur. Office N ational des M utilés e t R éform és de la Guerre.
B u lletin No. 1 (E x tr a its ) Année 1916. P aris, 1917. 69 pp.
The N ational Office for Soldiers Maimed and Invalided in the W ar ( Office
N ational des M utilés et R éform és de la G u erre) w as created by a joint decree
of the m inisters of war, interior, and labor, under date of March 2, 1916. Its
object is to coordinate public and private effort and to bring together infor
mation for the purpose of facilitatin g the return of war invalids to active
life under conditions most advantageous to the w elfare o f all concerned.
The office comprises (1) an adm inistrative committee in charge of general
questions and the centralization of information relating to war invalids, (2)
a commission of reeducation to give advice on technical questions of reeduca
tion and on the granting of subsidies for reeducational centers, and (3) an
advisory board whose purpose is to safeguard the general interests of the
men. The national office unites in a common work the departm ental and
local comm ittees organized in the various departments.
The bulletin discusses in detail the purpose, organization, and program of
the national office and the departmental comm ittees for the reeducation, em
ployment, and support o f the war invalid. Included there are reprints of law s
passed and a summary of proposed legislation on the subject and a list of
departm ental comm ittees and schools of reeducation, which indicates the
number of pupils that can be accommodated and the occupations taught.
A study based on this bulletin and such additional inform ation as can be
obtained, w ill appear in a future issue of the Monthly Review.
Great Britain.— County Borough of Salford. Annual report of the medical
officer of health fo r the ye a r 1916. M anchester and London, 1917. 190 pp.
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M O N T H L Y R E V IE W
O P T H E B U R E A U O F L A B O R S T A T IS T IC S .
G r e a t B r i t a i n .—Hom e Office.
M ines and quarries. General rep o rt w ith sta tis
tics for 1916. P a rt I : D ivision al sta tistic s and reports. London, 1917. 63 pp.
N otes a total of 998,063 persons employed in and about 2,847 coal mines
in Great B ritain and Ireland; 19,455 employed in and about 468 m etalliferous
m ines in Great Britain, Ireland, and the Isle of M an; and 48,196 employed
in and about 5,476 quarries (more than 20 feet deep) in the three places
mentioned. The statistics of fa ta lities are as fo llo w s:
NUMBER OF MEN EM PLOYED AND NUMBER K ILLED IN MINES AND QUARRIES IN
1916, SHOWING FATA LITY RATES IN 1916 AS COMPARED W ITH 1915.
Fatality rates.
Item.
Coal m ines.................................................................................
Metalliferous..............................................................................
Quarries.......................................................................
Number
employed. Accidents.
998,063
19,455
48,196
1,313
23
58
1916
1.32
1.18
1.20
1915
1.36
1.06
1.19
------- Local G overnm ent Board. F o rty-six th annual report of the Local Gov
ernm ent Board, 1916-17. London, 1917. 3 pts. in 1 {59 p p .).
On account of the w ar the report, it is stated, is much abbreviated. The
report of a year ago noted a continued diminution in the activities of the local
authorities in housing matters, a remark which applies w ith even greater force
to the year under review.
The board sanctioned loans to 11 local authorities during the year, to the
amount of £58,531 ($284,841.11). This is only one-twentieth of the loans
sanctioned in 1914-15. F ive of the 11 loans, amounting to £55,712 ($271,122.45),
were for war requirements, and would make possible the erection of 218 houses.
------ M in istry of labor. A greem ents betw een em ployers and w orkpeople w ith
regard to the su bstitu tio n of fem ale for m ale labor in in du stries other than
the m anufacture of m unitions reported to the M in istry of L abor up to M ay
1, 1917. 46 pages.
Copies of agreem ents regulating the substitution of fem ale for male labor in
23 industries, ranging from gold, silver, and electroplating to cooperage and
brass m anufacture. The earliest, signed May 12, 1915, is a very brief and
inform al agreement that m anufacturers of china and earthenware who engage
women to fill the places left vacant by men going to the war shall employ them
at the same w ages and under the sam e conditions as those of the men whose
places they fill, w ith the distinct understanding that the men on their return
shall have the first claim on their old places. The later agreements become
increasingly precise as to the extent to which women may be introduced, the
kind of work they may do, and the w ages they are to receive. Also, they become
more insistent that women are not to be employed on any other ground than
the im possibility of securing men. It is a frequent provision th at women shall
be employed in place of men only “ w here and for so long as it is not possible
to obtain competent male labor.”
Very generally it is provided that the women thus engaged shall hold their
positions only w hile the scarcity of men persists. In a few cases three or six
months are allowed after the declaration of peace for the dism issal of fem ale
workers employed under these agreements, but more often it is expressly stated
that the agreement is an emergency measure to be effective only during the
continuance of the present war.
In the larger industries there are carefully worked out scales of wages which
the women are to receive. W here such scales are not agreed upon it is usually
stated that they shall be paid the same w ages “ as are now paid to males for
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an equivalent quantity of work.” L ittle effort is apparent to safeguard tlieir
health, though it is sometimes stipulated that they are not to be employed in
occupations for which they are not physically fit. There is a conspicuous failure
to provide that membership in a trade-union shall be a condition of employment
for women substitutes. One binders’ union stipulates that in employing women
preference shall be given those who belong to the union, and in another agree
ment it is provided that women engaged in making clay tobacco pipes shall
w ithin one month after employment join the national u n io n ; apart from these
two instances the subject is ignored.
Great B ritain.— [N ational H ealth Insurance.]
N ational Insurance A cts.
H andbook for the use of approved societies ( Irish e d itio n ). Dublin, 1911.
317 pp. Price, Is. 9d., net.
The announced purpose of this volume is to provide the officers of approved
societies w ith a book of reference to which they can turn for inform ation on pro
cedure and for assistance in the application of the provisions of acts and regu
lations. It is believed that com plaints w ill be considerably reduced if in any
difficulty which may arise a member’s rights and duties are explained to him.
------ S u bstitu tion of wom en for men. T abular reports by H. M. In spectors of
F actories showing the present position in in du stries oth er than munitions
industries. January, 1917.
Reports on 81 industries, showing to w hat extent women have been substi
tuted for men, on w hat processes they are working, how far these processes
are considered suitable for them in normal times, the amount of training
required, and any reasons m ilitating against their employment. The extent of
substitution seems greatest in industries in which before the w ar women were
but little employed.
I ndia.— G overnm ent of M adras.
port, 1916.
Hom e D epartm en t {J u d icia l).
M adras, J u ly 17, 1917. 15 pp.
F actories R e
Reports a total of 460 factories subject to the Indian Factories Act, 1911,
employing a daily average of 91,415 operatives, an increase of 6,996 over 1915.
Approximately 25 per cent of those employed were women and children. The
daily w ages paid to the main classes of labor in factories in the Presidency
ranged from 1 rupee 4 annas 8 pie (41.9 c en ts), paid to engine drivers, to
4 annas 6 pie (9.1 cen ts), paid to messengers. There were 420 accidents (15
being fa ta l), the accident rate per 100 operatives employed being 0.46. The
number of accidents is an increase o f 23.5 per cent over 1915.
Scotland.—R oyal comm ission on housing in Scotland. R eport of the royal
comm ission on the housing of the in d u stria l population of Scotland, rural
and urban. Edinburgh, 1917. 1(60 pp. ( Cd. 8131.) Price, 4sA review of this report appears on pages 229 to 234 of this number of the
Monthly Review.
UNOFFICIAL.
Alexander H amilton I nstitute. B usiness and the w a r: An in vestigation of
the a b ility of A m erica’s in du stries to serve the G overnm ent and care for
the needs of p riva te consumers during the ivar. N ew York, A lexander
H am ilton In stitu te, 1911. 46 pp.
A survey of American trade and industry im m ediately before and since
the outbreak of the war. In an appendix is a detailed list of war orders by
the United States from the time of our entrance into the conflict up to July 31,
as far as such information is available. E ight pages of the booklet are devoted
to the effects of the war upon business in Canada.
B oyce, W. Scott, Ph. D. Economic and social h istory of Chowan County, N. C.,
1880-1915.
N ew York, Columbia U niversity, 1917.
25413°— 17----- 17
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254
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Cabnegie F oundation fob the Advancement of Teaching. F ederal aid for
vocational education. B y I. L. K andel. B u lletin No. 10. 576 F ifth A ve
nue, N ew York City. [1917.] 127 pp.
Gives the legislative history of Federal aid for vocational education, a state
ment of constitutional and educational precedents upon which vocational educa
tion is based, and brief chapters on recent movements for Federal grants for
education, land-grant colleges, and students of agriculture, and an outline of
the curricula of agricultural colleges.
Cole, G. D. H., and Aenot, R. P age.
Trade-unionism on the ra ilw a y s: I ts
histor’y and problem s. London, A llen d Unwin, 1917. 147 pp. Price,
cloth, 2s. 6d.; paper, Is. Fabian R esearch D epartm ent, Trade-union series
No. 2.
This book w as planned and partly w ritten in 1913-14, but has been thoroughly
revised and now constitutes a comprehensive study of trade-unionism on the
railw ays of Great B ritain from its earliest history to the spring of 1917.
Trade-unionists in every industry are looking forward to the problems which
w ill confont them after the war. “ The organized railw ay workers have an
enviable chance of leading the w ay for the whole trade-union movement and
for this they have need to equip them selves w ith the fu llest possible knowledge
of their industry and o f its organization.”
De Vesselitsky, V.
The home w orker and her outlook: A d escrip tive stu d y
of tailoresses and box m akers. London, G. B ell & Sons, 1916. 118 pp.
Price, 2s. net. R a ta n T a ta F oundation ( U n iversity of London), S tu dies in
the m inim um w age, No. 4.
The object of this study is to supplement earlier reports on the working of
the B ritish Minimum Wage Act of 1909 by exam ining its effect upon home
workers in the London tailoring and box-making industries.
Ellinger, B arnard. P ro d u c tiv ity of labor a fte r the w ar.
L eeds (E n g.),
Inm an & Sons, 1917. 24 PP- Price, 6d.
A paper read before the B ankers’ Institute, Manchester, England, in January,
1917.
J ackson, D. D., and B u s well, A. M. D isin fection o f tannery w astes.
In
Journal of th e A m erican L ea th er C hem ists’ A ssociation, June, 1917. pp.
229-253.
About two years ago an epidemic o f anthrax w as said to have been caused
by the infection of meadows by the w aste from a tannery. The authors were
requested to investigate the subject and devise means for treating the effluent
from the tannery which would prevent the possibility of any further spread
of infectious matter. The investigation showed that anthrax was at tim es
present in the factory effluent. Accordingly laboratory experim ents w ere car
ried out w ith various disinfectants to determ ine w hat w as the most effective
and least expensive method o f treating the sewage.
The results of these experim ents are summarized in the article under review.
As far as the authors are aw are the installation described is “ the only one
where disinfection of a tannery effluent for the prevention of spread of anthrax
has been attempted on a large scale and over a long period.” Though on six
occasions anthrax has been found in the raw sewage, at no tim e since the
installation was complete— a period o f 14 months— has it been found in the
treated sewage.
Miller, Joseph D ana, ed. Single ta x yearbook (qu in qu en n ial): The history,
principles, and application of the single-tax philosophy. N ew York, Single
T ax R eview Publishing Co., 1917. 460 pp. B ibliography.
N ational Canners’ Association. Canners’ directo ry and lists of m em bers of
the Canning M achinery and Supplies A ssociation and the N ational Canned
Foods and D ried F ru it B ro k ers’ Association. W ashington, D. C., 1739 H
S treet, 1917. 170 pp.
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National Child Labor Committee. F ederal aid to elem en tary education.
A
reprin t from The Child L abor B u lletin, M ay, 1917. 105 E ast 22d S treet,
N ew York City. 12 pp.
Contains two articles, one by John Dewey, of Columbia U niversity, and the
other by Hon. P. P. Claxton, United States Copimissioner of Education.
------ The *rural child-labor problem. B y A. C. Monahan. A rep rin t from The
Child-Labor B ulletin, May, 1917. 105 E a st 22d S treet, N ew York City.
8 pp.
Rea, Samuel.
H o w the S ta te s can cooperate in the efficient national regulation
of railroads. P hiladelphia, Allen, Lane & Scott, 1917. 30 pp.
An address by the president of the Pennsylvania Railroad system before the
N ational Association of Railroad Commissioners, at W ashington, D. C., in
October of the present year, on the pressing need for the cooperation of the
State commissions w ith national agencies.
Recalled to Life, No. 2, September, 1917.
London, 1917. pp. 205-320. E dited
by Lord Charnwood.
The first issue of Recalled to Life, a journal devoted to the care, reeduca
tion, and return to civil life of disabled sailors and soldiers, issued in June,
1917, w as reviewed in the Monthly Review for October, 1917, pp. 48-52.
The September number, under title “ Recent developm ents,” reviews arrange
m ents for the care of the disabled made by the Pension M inistry, the War
Office, and the B ritish Red Cross Society, which are in progress or which have
been recently completed. In an article called “A general survey ” the editor
outlines the different forms which disablement takes and the needs arising in
each case, the actual extent to which provision for these needs is lacking or is
relatively complete, the practical issues involved in controversies in the matter,
and the functions of the different authorities and institutions in regard to
disabled men. There is a brief account of reeducation and reemployment of
crippled sailors by Fleet Surg. P. Ham ilton Boyden. A statem ent concerning the
general attitude of the Labor Party toward the question of the treatment of
disablement caused in war, made by G. J. Wardle, M. P., is reprinted else
where in this Review. A report on the “ M anagement of neurasthenia and
allied disorders,” contributed by Sir John Collie, president o f the special
medical board for neurasthenia and allied nervous diseases, and director of
institutions for neurasthenia, under the M inistry of Pensions, deals w ith causes,
effects, and treatm ent of nervous diseases. Of the 160,000 to 170,000 pensioners
about 20 per cent are suffering from functional nervous diseases. A considera
tion of steps which are being taken to secure for the tuberculous soldier the
care best suited to him is presented by Maj. P. Horton-Smith H artley. There
are also brief surveys of the work in Canada, Newfoundland, India, and
South Africa, and a report of the constitution and proceedings of the joint
committee on institutional treatm ent for the period February 12, 1917, to
August 12, 1917. This committee, representing the M inistry of Pensions, the
War Pensions Statutory Committee, the W ar Office, and a joint war committee
o f the B ritish Red Cross Society and the Order of St. John of Jerusalem in
England, has for its function the arrangement for provision of suitable in
stitutional treatm ent for paraphlegics, neurasthenics, epileptics, and advanced
cases of tuberculosis. A letter from Mr. A. Gwynne James, a county court
judge under the workmen’s compensation acts, calls attention to th e need for
orthopedics in industrial accident cases, and the necessity for perpetuation of
the institutions and training now being founded for injured soldiers, that they
may be available to the English workman.- The Joseph and Jane Cowen Home
for the training for disabled soldiers and sailors at New-Castle-upon-Tyne, and
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the Lord Roberts Memorial workshops are described. There is a list of the
special hospitals and special institutions which have been established in Great
Britain.
Russell, B erteand. P rinciples of social reconstruction. London, Allen &
Unwin, 1017. 252 pp.
Lectures w ritten in 1915 and delivered in the beginning of 1916. * Included
among these review s because of the chapter on “ Property,” consisting of 32
pages and dealing largely w ith the present industrial system.
Spooner, H enry J. In d u stria l fa tig u e in its relation to m axim um output.
London, C opartnership Publishers, 1917. 59 pp. Price, 6d. net.
Reprinted by the Labor Copartnership A ssociation from Copartnership, De
cember, 1916, to May, 1917, w ith forewords by Sir Robert A. Hadfield, chair
man of Messrs. Hadfields (L td .), and Mr. J. R. Clynes, M. P„ district secre
tary of the N ational Union of General Workers. These papers form a valu
able contribution to the discussion of the length of the working day by an
authority on the science of industrial engineering.
T he Merchants National B ank, B oston. W omen's w ork in w a r time, by
W. Irvin g B ullard, M anager T ex tile D epartm en t. Cambridge, Mass., The
U n iversity Press, 1917. 85 pp.
A discussion of the replacement of men by women in Great B ritain in the
wool industry, the cotton industry, printing, bleaching and dyeing, hosiery and
knitting, heavy and light clothing m anufacture, leather tanning and currying,
boot and shoe m anufacturing, the leather trade (case and fancy leath er), the
glove industry, soap and candle trades, paper making, glass-bottle and flintglass trades, woodworking trades, pottery (coarse w are) and brick trade, china
and earthen w are trade, silver and electro plate trades, the chemical industries,
color, paiht and varnish trade, and in sugar refineries. Gives lists of processes
in which women have either wholly or in part taken the place of men.
Weyforth, William O. The organ izability of labor. B altim ore, Johns Hop
kins Press, 1917. 277 pp. Johns H opkins U n iversity Stu dies, Series
X X X V , No. 2.
A monograph by the present instructor in economics in W estern Reserve
U niversity. The sources of inform ation for the conclusions drawn were tradeunion publications, various Government reports, the work of other students
along the same lines, and personal interview s w ith trade-union officials.
A summing up of the factors affecting organization leads the author to the
conclusion that “ on the whole, those influences favorable to organization are
likely to increase in importance in the future, and the unfavorable influences
seem likely to decline.”
Whetham, William Cecil D ampler. The w ar and the nation: A stu d y in
constructive politics. London, John M urray, 1917. 312 pp. Bibliographies.
Youngstown [Ohio] Sheet & Tube Co. R ules and instructions. Third
edition, July, 1917. 98 pp.
General rules and rules applicable to each department of the plant are pre
sented, preceded by a brief outline of the safety organization of the company
and by instructions to superintendents and to foremen. The pamphlet contains
also rules for emergency work, instructions for resuscitation, information
applicable to the employment bureau, and a statem ent of the benefits afforded
by the relief association.
------- S a fety first. 22 pp. Illu stra ted .
This pamphlet describes the safety and w elfare work as carried on by the
Youngstown Sheet & Tube Co. and is a reprint of an article which was
prepared by the safety director for publication in the Electric Journal of
August [1917].
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