Full text of Monthly Labor Review : May 1918, Volume VI, Number 5

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U. S. DEPARTMENT OF LABOR
BUREAU OF LABOR STATISTICS
ROYAL M EEKER, Commissioner

MONTHLY REVIEW
OF THE

U. S. BUREAU OF LABOR STATISTICS

VOLUME VI—MAY, 1918—NUMBER 5


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WASHINGTON
GOVERNMENT PRINTING OFFICE
1918


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/

CONTENTS.
Special articles:
•
Page.
Woman street railway employees, by Benjamin M. Squires.......................... 1-22
Effect of railway nationalization on wages, hours, and transportation rates,
by Florence E. Parker....................................................................................... 23-44
Food situation in Germany, November 1, 1917, to January 31, 1918, com­
piled and translated by Alfred Maylander..................................................... 45-53
Labor and the War:
National war labor board—its purpose and functions..................................... 54-58
United States Employment Service conserving farm labor............................ 58, 59
Second report on joint standing industrial councils, Great B ritain.............. 59-61
Women agricultural workers in Great Britain .................................................. 61-64
Labor resettlement committee, Great B ritain................................................... 64-68
Bill for the creation of labor boards in Germany.............................................. 68-72
Proposed decentralization and standardization of German industry............ 72, 73
Demobilization in Austria after the W ar............................................................ 73, 74
Labor conditions in industrial and commercial establishments in France,
July, 1917............................................................................................................ 74-77
Labor regulations for factories in Switzerland................................................... 77, 78
Provision for disabled soldiers and civilians:
Proposed vocational rehabilitation a c t............................................................... 79-81
New French law relating to the rehabilitation of disabled soldiers.............. 81-86
French experience in the placement of disabled soldiers............................... 86-92
Prices and cost of living:
Retail prices of food in the United States........................................................ 93-102
Price changes, wholesale and retail, in the United States.......................... 103-107
Meat prices in France............................................................................................
108
Cost of living in H olland................................................................................... 108,109
Changes in the character of food consumption in Sweden.......................... 109-112
Civil requisition in France..................................................... ......................... 113,114
Recent labor awards:
Labor award in pacuing-house industries...................... ............................... 115-127
Recent awards of the Shipbuilding Labor Adjustment Board................... 127,142
Wages and hours of labor:
Wage award to Cincinnati bricklayers............................................................ 143-145
Wage increases in certain foreign cities reported by American consuls... 145-149
Increase of salaries of persons in civil service in France............................. 149,150
Women in industry:
Women in the munition trades in Great Britain, by Mary Conyngton. .. 151-163
Employment of males and females in certain United States munition
plants................................................................................................................. 163,164
Shop uniforms for women munition workers..........................................>-----164,165
Agreements between employers and employees:
Trade agreements in the stove industry, by Boris Emmet, Ph. D ---- 166-179
New agreement for adjustment of railroad labor disputes........................... 180-182
in


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IV

CONTENTS.

Employment and unemployment:
Page.
Employment conditions in shipyards of the Emergency Fleet Corpora­
tion.................................................................................................................... 183-191
How the United States Employment Service is mobilizing workers, by
C. F. Stoddard...................................................................................................191-205
Work of public employment offices in the United States and of provincial
employment offices in C anada................................................................... 205-211
Employment in selected industries in March, 1918..................................... 211-215
Employment in Massachusetts, October to December, 1917...................... 215-217
Employment in New York in March, 1918.................................................... 217, 218
Employment in Ohio in March, 1918............................................................... 219, 220
Labor distribution offices in Germany............................................................ 220, 221
Unemployment legislation in Sweden............................................................ 221, 222
Labor organizations:
Trade-unions in Denmark................................................................................ 223, 224
Swiss trade-unions in 1916................................................................................ 225, 226
Workmen’s compensation and social insurance:
Health insurance bill in the New. York Legislature..................................... 227-230
Operation of Washington’s new medical system ........................................... 230-233
Report of workmen’s compensation board of Nova Scotia........................... 233-235
State insurance in Queensland......................................................................... 235, 236
Industrial poisons and diseases:
Causation and prevention of trinitrotoluene (TNT) poisoning, by Alice
Hamilton, M. D .............................................................................................. 237-250
Resolutions of the New York Academy of Medicine on occupational
diseases.............................................................................................................. 251, 252
Dangers in the manufacture and industrial uses of wood alcohol............. 252-254
Regulations concerning dangerous or objectionable establishments in
France............................................................................................................... 254-256
Industrial accidents:
Conference of safety engineers of 'U nited States Government establish­
ments................................................................................................................. 257,258
Hazards of blast-furnace operation.................................................................. 258-260
Accidents at metallurgical works in the United States, 1916..................... 260-262
Accidents in mines and quarries in Ohio, 1916............................................. 262, 263
Birth rates and mortality statistics:
Vital and sickness statistics for Germany and Austria during the W ar... 264-267
Housing and welfare work:
Housing and the land problem, by Leifur Magnusson................................. 268-277
Agricultural camp housing, by Leifur Magnusson...................................... 277-287
Housing after the War in Scotland................................................................. 287-289
New ministries of public welfare and public health in Austria................. 289-291
Arbitration and conciliation:
Conciliation work of the Department of Labor, March 15 to April
14, 1918............................................................................................................. 292-296
Strikes and lockouts:
Strikes and lockouts in Canada, 1901 to 1918................................................ 297-299
Immigration:
Immigration in January, 1918.......................................................................... 300, 301
Publications relating to labor:
Official—United States................. ................................................................... 302-304
Official—foreign countries................................................................................. 305-307
Unofficial.................................. .......................................................................... 307-314


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MONTHLY REVIEW
OF THE

U. S . BUREAU OF LABOR STATISTICS
WASHINGTON

VOL. VI—NO. 5

MAY, 1918

WOMAN STREET RAILWAY EMPLOYEES.
B y BEN JAM IN M. SQ U IR E S.

In the present world crisis women must do some of the work here­
tofore done by men. Already many of the occupations previously
restricted to male employees have been opened to women, and as
the War progresses the need will become more imperative and the
practice probably more prevalent. Women are eager to do their
share in the War and for that very reason are likely to accept, without
weighing the consequences, any new employment offered, especially
when appeal is made to their patriotism to take up the burdens
dropped by the drafted men. I t is important, therefore, th at careful
inquiry be made to determine the suitableness of such employ­
ment for women workers as to (1) shop and work conditions, (2) the
nature of the work, (3) the hours of work, and (4) the wages paid
women and men in the employment. I t is also desirable to ascer­
tain whether women are being employed because men can not be
had or because women will accept a lower wage than men.
In this country woman car cleaners and ticket agents and choppers
have been employed by street railway companies in some cities even
in normal times, but the car crews have always heretofore been men.
Quite recently, however, perhaps inspired in part by the accounts
from other warring countries, women have been taken on as street
car conductors. Information is not available as to the total number
of women thus employed throughout the country or the number of
cities in which the experiment is being tried. In New York City
and Brooklyn, however, women have been employed as conductors
in the operation of surface street cars since December, 1917, and as
subway guards in Brooklyn since October, 1917. The Hudson &
Manhattan Railway Co. employs a number of woman guards on its
subway trains, as well as woman porters and ticket agents a t the
stations, and the Second Avenue and Queens surface lines have
recently placed woman conductors on their cars.
The plan to increase the number of women on the surface lines of
New York City and Brooklyn “ as rapidly as housing accommoda-


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[1049]

2

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

tions for women can bo provided at the various depots/’ together
with the large number of woman applicants for this work, empha­
sizes the need of a careful consideration of this particular problem in
“ dilution of labor.” In this article are given the first findings of an
investigation which has just been made by the United States Bureau
of Labor Statistics into the hours and working conditions of women
employed by the New York Railways Co. and the Brooklyn Rapid
Transit Co. in the operation of their lines.
On February 15, 1918, the New York Railways Co. had in its
employ 452 woman conductors,1 or approximately 30 per cent of all
conductors employed. The Brooklyn Rapid Transit Co. on the same
date had 138 woman conductors2 on its surface cars and 297 woman
guards,3 or carmen, and conductors on its subway trains. These
were 5.6 and 21.7 per cent, respectively, of the total number of con­
ductors and guards employed.
In addition to the above, the Brooktyn Rapid Transit Co. employed
at its subway-elevated stations 929 woman ticket agents out of a
total of 1,002 in this occupation and 50 woman porters out of a
total of 180. As stated previously, however, the use of woman ticket
agents is not an innovation. Woman porters are virtually cleaners
about the stations, and in neither position does the employment of
women present any unusual difficulties.
Obviously it will be impossible within the scope of this article to
discuss all of the many ramifications of street railway or rapid transit
operation which, in a greater or less degree, affect employees. It
is necessary, however, to keep a number of points in mind.
The transit lines of any large city must operate continuously day
and night, with the familiar rush hours and high peaks in the number
of cars and passengers followed by low levels in the number of pas­
sengers carried and of cars operated. The problems of the operat­
ing department are twofold: First, so to arrange schedules as to
have cars out a t the proper time, yet to avoid moving empty cars
unnecessarily; second, to arrange car schedules into what is famil­
iarly known as “ runs” (day’s work) for employees. These runs may
be “ straight”—that is, with no intermission between the beginning
and the end of the day’s wTork—or they may be ‘£swung ” runs, on which
an employee has one or more intervals of time between periods of duty.
In addition to these regular runs it is usually necessary to have a
number of regularly scheduled “ trippers” of a few' hours’ duration
to take care of rush periods.
1 N ot including 35 stu d en ts.
2 N ot including 41 students.
3 N ot including w omen em ployed regularly in ocher occupations w ho w orked a portion of th e ir tim e as

guards.


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[1050]

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,

3

To provide for this variable service and at the same time to replace
employees absent from all or portions of their regular runs and those
leaving the service, it is necessary to maintain an extra list of em­
ployees not assigned to regular runs. The number of extras employed
depends upon traffic conditions, the percentage of daily absences,
and the general policy of the company. In normal times, in Greater
New York approximately 20 to 25 per cent of all conductors and
slightly less of all motormen are extras.
Regular runs are usually chosen by seniority of service, those oldest
in the service having the first choice of vacant runs. The extra list
is also on a seniority basis. When vacancies occur in the regular
list by resignation, discharge, or other cause, those at the head of the
extra list go to the foot of the regular list and take their turn in the
choice of runs.
Without going further into modifications of the above procedure,
it will be apparent that the extras get what is left. If employees
with regular runs are to be absent the following day, the runs are
posted and employees on the extra list sign up for these runs in order
of seniority. Wlien thus assigned, the extras acquire the status of
regulars for this day and know definitely what their hours are to be.
However, in case extra service is required or some one does not put
in an appearance, it may become necessary, even for those assigned
to regular runs, to work portions of other runs or trippers. Those
on the extra list not assigned to runs for the following day are required
to report and “ cover the list” for unforeseen absences or emergency
service, unless and until released by the dispatcher.
The above explanation has seemed necessary in order to make clear
the conditions under which woman conductors now work or may be
expected to work. All of them begin, of course, as extras, after a
short period of instruction. On February 15, 1918, practically all
of the 138 woman conductors employed on the surface lines of the
Brooklyn Rapid Transit Co. were extras. Of the 297 women em­
ployed as guards and conductors on the subway lines of the same com­
pany, 40 were extras. Of the 452 woman conductors employed by
the New York Railways Co., 119 were extras. All of the male
conductors employed by the New York Railways Co. had regular
runs.
Both of the above companies emphasize their impartial treatment
of woman employees. The women take their turn with male employees
both as extras and as regulars. As regulars some women must have
afternoon and night runs, some must have “ night hawks” or “ owls”
running into the morning hours, and some will draw day runs, either
“ straights” or “ swings.” As extras, through their position on the
extra list, they may be able to choose for each day’s work runs


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[1051]

4

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

fairly uniform as to duration or as to time of beginning and ending.
But it is inevitable that a considerable number of those on the extra
list will not be thus favorably situated. Even if the list rotates,
that is, those at the bottom one week being at the top the next,
much of the work must be irregular, at least in the arrangement of
hours from week to week. I t will be apparent, too, that women
must be in the service for some time before their position on the list
of regulars will entitle them to much choice in the selection of runs.
A better idea of the hours of service of woman conductors and
guards may be had from the following examples of hours actually
worked during a period of seven days. These are not intended to
be averages nor to represent the worst or the best of hours, but are
types selected more or less at random to show the variety of hours
making up a week’s work.
H O U R S O F SE R V IC E O F F O U R W OM AN S T R E E T R A IL W A Y C O ND U CTO RS E M PL O Y E D
B Y T H E N E W Y O R K R A IL W A Y S CO. D U R IN G S E V E N D A Y S E N D IN G F E B . 16, 1918.
D uration of periods of w ork on each specified day.
Tim e
worked.

D ay.
On a t— Off a t— On a t— Off a t— On a t— Off a t-

S un d ay ........
M onday___
Tuesday___
W ednesday.
T h u rsd a y ...
F r id a y ........
S a tu rd a y . . .

12.56p. 3 .32p.
12.58p. 3 .25p.
12.30p. 3 .21p.
6. 22a.
9.11a.
6 .18a.
8. 59a.
11.05a. 12.14p.
6. 20a.
9 .07a.

5 .13p.

11.35p.

11.52a.
11.52a.
1 . 12p.
11.28a.

3. lip .
3. lip .
2.51p.
3. OOp.

6. 34p.
6. 51p.

1.43a.
1.33a.
1 . 11 a.
1 .18a.
1.27a.
1.05a.
2.07a.

5 .41p.
5 .41p.
4 .52p.
5 .41p.

8. OOp.
8. lOp.
7 .39p.
8. 12p.

T otal.
S un d ay ........
M onday___
T uesday___
W ednesday.
T h u rsd a y ...
F r id a y ........
S a tu rd a y . . .

1. 50p.
1. 52p.
12.49p.
12. 48p.
12. 48p.
12.45p.
12.44p.

4 .30p.
5 .02p.
3. 46p.
4 .22p.
4 .05p.
4 .05p.
3 .09p.

5 .44p.
6 .19p.
5 .46p.
5 .56p.
5.44p.

T otal.
S un d ay ........
M o n d a y ....
Tuesday---W ednesday.
T h u rsd a y ...
F r id a y ........
S a tu rd a y . . .

11.48a.
1.48p.
2. 30p.

3 .45p.
4 .35p.
6 . 43p.

5 .47p.
6 .19p.

12.26a
1.39a

6. 53p. 12 . 11 a.
12.47p. 4 .14p.

5 .23p.

12.55a

5 .32p. 7 .18p.
5 .45p. 11.34p.
12.48p. 5. lip .
5 .50p. 12.04a.
5 .22p. 11.27n.
12.31p. 3. 38p.'
4 .45p.
11.34a.

8 .26p.
1.16a
2 . 00a.
6 .13a
7. lOp. 12.57a
2 .25a.
7.09a
1.04a.
5 .22a
6 .13p. 2 . 02a
7 .19p. 1.07a

Total .
S un d ay .......
M onday___
T uesday___
W ednesday.
T h u rsd a y ...
F r id a y ........
S a tu rd a y . . .
T otal.


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1.28a.

5 .45a.

H. m .
2 36
8 49
2 51
8 27
8 29
5 35
•8 50

II.
2
10
2
13
13

m.
36
37
51
38
52
8 34
13 52

45 37

66 00

9
9
10
10
10
10
10

49
52
24
33
58
29
48

11 53
11 41

72 53

86 48

10 36
10 07
4 13

12 38
11 51
4 13

5 18
10 59

12 08

41 13

46 08

10 53

12 13
12 28
12 09
13 19

10
10

02
10

10
10
10
10

58
23
56
59

74 21

[10521

Time
w ithin
which
work
was com­
pleted.

12 22

12 30
12 39
12 20

13 23

5 18

12

00

13 31
13 33
89 13

5

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
H O U R S O F SE R V IC E O F W OMAN E M P L O Y E E S O F T H E B R O O K L Y N R A P ID
CO. D U R IN G S E V E N DAYS E N D IN G F E B . 14, 1918.

T R A N S IT

Two guards— subway-elevated lines.
D uration of periods of w ork on each specified day.

Day.

F r id a y ........
S a tu rd a y . . .
S unday ........
M onday___
T uesday___
W ednesday.
T h u rsd a y ...

Tim e
w ithin
w hich
Time
w orked .1 work
On a t— Off a t— On a t— Off a t— On a t— Off a t—
was com­
pleted.

2. 20p.

2.2 Op.
2 .28p.
2.3 Op.
2 . 20p.
2. 20p.
2 . 20p.

12.08a.
1.40a.
12.24a.
12.30a.
12 . 08a.
12.08a.
12.08a.

6. 00a.
6. 00a.

9 .20a.
9 .20a.

H. m.
9 48
11

...........................

T o tal.
F r id a y ........
S a tu rd a y . . .
S unday........
M onday___
T uesday—
W ednesday.
T h u rsd a y ...

9.41a.
5 .54a.
6. 45a.
6.15a.
6. 00a.

9.25a.
9 .25a.
.............
3 .54p.
4. 30p.
9 .25a.
9.00a.
9.20a.
9.25a.
9 . 20a.
9 .25a.

7.21p.
8 .25p.
8 .05p.
7 .45p.
7 .21p.
7 . 21p.
3 .55p.

Total.

20

H. m.
9 48
11

20

9 56

9 56

10 00

10 00

9 48
9 48
9 48

9 48
9 48
9 48

70 28

70 28

13
14
10
13

13 01
9 50

13
14
10
13
12
13
9

86 17

87 38

12

16
20
24
15
11

21
25
24
51
36
06
55

Four conductors—surface lines.
F r id a y ........
S a tu rd a y ...
S un d ay ........
M onday---T uesday ___
W ednesday.
T h u rsd a y . .

5 .50a. 12.20p.
5. 42a.
9 .37a.
12.04p. 3 .40p.
1. 42p. 3. 2Op.
1. 42p. 3 .20p.
4 .12p. 7 .17p.
4 .12p. 7 .17p.

3 .30p.
7 .00p.
5 .46p.
11.42a.
5. 52p. 12.09a.
4 .35p. 12.44a.
4 .35p. 12.44a.
7. 54p. 2 .51a.
7 .54p. 2 .51a.

1 .26p.
7.02a.
3 .14p.
11.55a.
12.14p. 3 .34p.
2 .17p. 4 .03p.
4. 05p. 12.15a.
2 .08p.
10. 34a.
1 .43p.
6. 53a.

4 .12p. 7 .02p.
5 .54p. 1 .35a.
5 .34p. 12.59a.
4 .40p. 12.53a.

11 00
10 45

4 .29p.
4 .51p.

6 .29p.
9 .25p.

11

T o tal.
F r id a y ........
S a tu rd a y . . .
S u n d ay .......
M onday___
T uesday ___
W ednesday.
T h u rsd a y . .

69 30

80 41

9 14

12 00

02
02

39
39

13 40

8 10

12 45
10 36
8 10

5 34
24

7 55
14 32

9 59

66 06

79 38

5.28p.
11.46a.

8 .29p.
7.32p.

10 12
10 08

12 50
12 33

8 .05p.
8 .05p.
7.30a.
7 .44a.

10.24p.
10.24p.

1. 45a.
1 .45a.
4. lip .
5 .04p.

7 .13a.
7 .13a.
7 .41p.
8. 37p.

10 10
10 39

7 47
7 47

11 08
11 08
12 11
12 53

56 43

72 43

2 .14p.
1 . 02p.
12.15p.
2 .14p.
2 .14p.
2 .14p.
2 .14p.

6. 59p.

2 .10p.

2 .50p.

5 .12p.
6 .15p.
6 . 59p.
6. 59p.
6. 59p.
6. 59p.

7. 34p. 1 .03a.
7. 34p. 1.03a.
8. 18p. 12.32a.
7. 34p. 1.03a.
7. 34p. 1.03a.
1 .03a.
7. 34p.
1.03a.
7. 34p.

10

9
10
10
10
10
10

14
39
14
14
14
14
14

71 03

Total
i T h irty to forty m inutes are allowed off d u ty for meals on stra ig h t runs.
period is n o t shown on th e daily record of w ork perform ed.


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10 02
10 02

59
53
47
47

2. 50p.
9 .21a.

T o tal.
F r id a y .....
S a tu rd a y . . .
S unday ........
M onday___
T uesday___
W ednesday.
T h u rs d a y ..

13 10
04
05

12
12
11
11
10
10

9
9
9
9

7.39a.
6. 59a.

T o tal.
F r id a y ........
S a tu rd a y . . .
S un d ay ........
M onday___
T uesday ___
W ednesday.
T h u rsd a y ...

10 00

[1053]

10
12
12
10
10
10
10

49
01

17
49
49
49
49

78 23

This tim e is paid for and the

6

MONTHLY BEVIEW OF THE BUREAU OF LABOR STATISTICS.

The hours that employees are actually engaged in operating the
cars give but little notion of the suitableness of the employment for
women. The “ within” time, or the period between the time of
reporting at the bam and the time when they are released for the
day gives a much better idea of the demands of the occupation upon
the time of the employees. For the most part the time between
“ swings” or portions of the day’s work is sirtiply dead time with the
choice of loafing about the car barn or on the street. If suitable
waiting and rest rooms and comfort stations were provided a working
day for woman employees of nine hours’ actual work to be completed
within 10 hours could be regarded with some degree of complacency
as not being necessarily injurious to health. That such an ideal
arrangement of hours does not prevail is evident from the following
table, which shows the “ completed within” time of the day’s work
during a period of seven days.
T IM E W IT H IN W H IC H T H E D A Y ’S W O R K O F W OM AN E M P L O Y E E S W AS C O M P L E T E D
D U R IN G A P E R IO D O F S E V E N D A Y S.
B rooklyn R ap id T ran sit Co.
N ew Y ork
R ailw ays Co.
N um ber of hours w ith in w hich d a y ’s
w ork was com pleted.

U n d er 6.......................................................
6 a nd u n d e r 6J ..........................................
6J and u n d e r 7 ..........................................
7 a n d u n d e r 7 J..........................................
7£ an d u n d e r 8 ..........................................
8 a n d u n d e r 8J ..........................................
8J and u n d e r 9 ..........................................
9 an d u n d e r 9 J ..........................................
9 i a n d u n d e r 10 ........................................
10 a n d u n d e r 101 ......................................
10 i a n d u n d e r l i ......................................
H a n d u n d e r 11J ......................................
H i a n d u n d e r 12 ......................................
12 a n d u n d e r 124......................................
12J a n d u n d e r IS ......................................
13 a n d u n d e r 13J......................................
13J a n d u n d e r 14......................................
14 an d u n d e r 144......................................
14J a n d u n d e r 15......................................
15 a n d u n d e r 154......................................
154 a n d u n d e r 16........................................
16 and u n d e r 164 ........................................
164 a n d u n d e r 17......................................
17 a nd u n d e r 174......................................
1 7Jand u n d e r 18......................................
18 a n d u n d e r 184......................................
184 a n d u n d e r 19......................................
19 a n d u n d e r 194......................................
19J an d u n d e r 20......................................
20 a n d u n d e r 204......................................
204 a nd u n d e r 2l ......................................
2lJ an d u n d e r 22 ......................................
22 a nd u n d e r 224......................................
224 an d u n d e r 23......................................
23 a n d over.................................................
T o ta l................................................


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Federal Reserve Bank of St. Louis

Surface lines.

Subw ay lines.

N um ­
b er of
runs.

N um ­
b e r of
ru n s.

55
9
4
5
4
3
5

Per
cen t.
8.2

1.3
.6

.7
.6

.4
.7

8

1.2

16
36
75
63
60
90
103
75
42
5
4

2.4
5.4

1
1
1
1

9.4
9.0
13.4
15.4
11.2

6.3
.7

14.9

139

1.6
.6
1.2

12
11

22
66

1.4
4.3
2.5
5.8
4.2
3.9
1. 7
3.8
4.3
7.9

120

180

13.8

53
31

3.5

.1
.1
.1
.1

1

.1
.3

670

8.0

12

2.0
.8

7
4
4
3

.5
.3
.3

4

.3

1

2
1
1
1
2
1

11.8

210
122

.6

N um ­
b er of
runs.

227
25
9
19
38
89
64
60
26
58
65

11.2

Per
cent.

.2
.1
.1

17

Per
cent.

6.5
.6

.5

.8

20
20

.9
.9

23

1 .1
1.0
1.2
1.6
2. 6

22

26
34
55
134
270
413
392
255
192
72
12
1

6.3
12.7
19.4
18.4
12.0

9.0
3.4
.6
0)

1
1
1
2

(i)
(l)
(*)

1

0)

,i
.1
.1

.1

N um ­
ber of
runs.
421
46
24
41
46
89
66

119
106
130
156
255
395
623
675
540
356
130
47
13
7
5

2

.1

1

1,526

100.0

2,127

1 Less th a n one-tenth of 1 p e r cent.

[1054]

«

(l )
100.0

Per
cent.

9.7
1 .1
.6

.9
1 .1
2.1
1 .5
2.8

2.5
3.0
3.6
5.9
9.1
14.4
15.6
12.5
8.2

3.0
1.1

.3

.2

.1

6

5
4
5
3
1
1
1
1

2
1

.1

100.0

Total.

.1
.1
.1
.1
.1

(l)
(!)
( 1>
(J)

(1)
(1)
(Y)

3

.1

4,323

100.0

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

7

Thus, on the New York Railways Co.’s lines, 13.5 per cent of the
total days worked by woman conductors during a period of seven
days were completed in less than 10 hours, whereas 62.9 per cent
required 12 hours and over within which to complete the day’s
work. On the surface lines of the Brooklyn Rapid Transit Co.,
16.1 per cent of the total days worked by woman conductors during
a period of seven days required less than 10 hours within which to
complete the day’s work, and 48.5 per cent required 12 hours and
over. On the subway-elevated lines of the Brooklyn Rapid Transit
Co. 36.5 per cent of the total days worked by woman guards and
conductors required less than 10 hours within which to complete
the day’s work, and 50 per cent required 12 hours and over.
The duration and time of occurrence of the waiting periods in the
day’s work are summarized in the following table:
T IM E O F O C C U R R EN C E A N D D U R A T IO N O F W A IT IN G P E R IO D S IN T H E D A Y ’S W O R K
O F W OM AN E M P L O Y E E S D U R IN G A P E R IO D O F S E V E N DAYS.

New York Railways Co.
N um ber of w orkdays w ith a w aiting period (tim e off d u ty be­
tw een p arts of d a y ’s w ork ) of—
Tim e of occurrence of w aiting period(tim e off d u ty betw een p arts
of d a y ’s work).

7 a. m . a n d before 8 a. m ................
8 a. m . a n d before 9 a. m ................
9 a. m . a n d before 10 a. m ..............
10 a. m . an d before 11 a. m .............
11 a. m . an d before 12 m ................
12 m . a n d before I p . m ....................
1 p. m . a n d before 2 p . n i ................
2 d. m. a n d before 3 p. m ................
3 p. m . and before 4 p. m ................
4 p. m . a n d before 5 p . m ................
5p. m . a n d before 6 p. m ................
6 p. m . a n d before 7 p. m ................
7 p. m . a n d before 8 p. m ................
8 p. m . a n d before 9 p. m ................
9 p. m . and before 10‘ p. m ..............
10 p. m . an d before 11 p. m ............
11 p. m . a n d before 12 p. m ............
12 p. m. and before 1 a) m ..............
1 a. m . a n d before 2 a. m ................
2 a. m. a n d before 3 a. m ................
T o tal.........................................


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

1
2
3
4
5
6
7
U n­ and and and and and and and
der un ­ un ­ u n ­ un ­ un ­ u n ­ u n ­
1
der der der der der der der
hr.
2
4
3
5
6
8
7
hrs. hrs. hrs. hrs. hrs. hrs. hrs.
1
2

12

19

43

2

4

12

7
23
14
25
18

1
22

43
84
102

6

90
196
155
50
25

5

10

2
1
1

3

1
1
22

13

18
73
30
44
120

75
188
165

1

38
56

6

7
26
24
37
44

86

8

7

4

6
2
2

3
5
16

8
9
10
11
To­
and and and and tal.
un­ un­ un­ un­
der der der der
10
11
12
9
hrs. hrs. hrs. hrs.

25
19
2
1
10
2
8

3
1

8

3

15

6
1
1

6
1

29
3

7
4

77
103
253

2

210

340
422
275
80
38
17
7

3

1
1
1

8

3
2

2

1

1
1

2

149

873

843

254

«
[1055]

111
201

9
38
18
4
3
77

11

23

42

11

2,283

8

MONTHLY EEVIEW OF THE BUREAU OF LABOR STATISTICS,

T IM E O F O C CU R R EN C E A N D D U R A T IO N O F W A IT IN G P E R IO D S IN T H E D A Y ’S W O R K
O F W OM AN E M P L O Y E E S D U R IN G A P E R IO D O F S E V E N D AYS—Concluded.

Brooklyn Rapid Transit Co. ( subway-elevated lines).
N um ber of w orkdays w ith a w aiting period (tim e off d u ty be­
tw een p arts of d a y ’s w ork) of—
Tim e of occurrence of w aiting pe­
1
riod (tim e oft d u ty between p arts U n­ and
of d a y ’s w ork). .
der u n ­
1
der
hr.
2
hrs.
6am

a nd before 7 a. m ................
7 a m an d before 8 a. m ................
fi a m an ri be fore 9 a. m ................
9 a. m . a nd before 10 a. m ..............
10 a m . and before 11 a. m ............
11 a. m . an d before 12 m ................
12 m a nd before l p . m ...................
1 p. m . an d before 2 p. m ................
2 p. m a nd before 3 p. m ................
3 p. m . a nd before 4 p. m ................
4 p. m. a nd before 5 p . m ................
5 p . m . and before 6 p . m ................
6 p. m . a nd before 7 p . m ................
7 p. m .a n d before 8 p . m ................
8 p. m . and before 9 p . m ................
12"p. m . an d before T a. m ..............
3 a] m. a nd before 4 a. m ................
4 a. m. an d before 5 a . m ...............
T o tal.........................................

4

1
1
8
1
1

4
2
3
and and and
u n ­ un ­ un ­
der der der
4
5
3
hrs. hrs. hrs.

2

3
18

31
11

1

1
1

9
10
T o­
11
and and and tal.
un­ un­ un­
der der der
10

hrs.

11

12

hrs. hrs.

3

1

4
5

6
5
8
7
and and and and
u n ­ u n ­ un­ u n ­
der der der der
6
7
8
9
hrs. hrs. hrs. hrs.

5
1
1
1
1

1

9

1

23

15
19

100

10

4

2

5

10
2

3
1
1

2

7

16
195
62

56
148

16

3

2

8

1

3

429
91 §
45
7
1
15
15
9
2*

1

8

15
*
1

2

1

1
2
1
2
1
1

1

1
1

27

35

51

31

'56

140

274

213

24

3

7

7
\
107

1

862

Brooklyn Rapid Transit Co. (surface lines).
7 a. m. and before 8 a. m ................
8 a. m . and before 9 a. m ................
9 a. m . and before 10 a. m ..............
10 a. m . and before 11 a. m .............
11 a. m . and before 12 m ..................
12 m . and before l p . m ...............
1 p. m . an d before 2 p. m ................
2 p. m . a nd before 3 p. m ................
3 p . m . and before 4 p. m ................
4 p. m. an d before 5 p . m ................
5 p. m . a nd b efo re 6 p . m ................
6 p. m . an d before 7 p . m ..............
7 p . m . an d before 8 p , m ................
8 p . m . a n d before 9 p. m ................
9 p. m , a nd before 10"p. m ..............
1 0 1>. in . and before 11 p. m ............
11 p. m . and before 12 p. m ............
12 p. m . an d before l a ] m ..............
1 a. m. and before 2 a. m ................
3 a. m . a nd before 4 a. m ................
T o ta l..........................................

3
3

1
1

2

5

4
3

26
28

6

21

5

9

14
45
44

1

1
1

7
15
8

15
8

3
2
2

3
1

8

32
27
13
16
9
3

4
16
8

3
23
32

21

12
2

16
14
4

1
1

2
1
2
6
6

4
13
47
46

1
1

1

39

57
90
S9
57
33
36
36
13

4

1

0

1

4
2

2
1

3

3
9

1

7

2
1
1

1

83

146

239

107

21

1

2

~

599

Neither “ completed within” time nor waiting periods show'the
arrangement of hours with reference to night work. This can be
brought out only by considering the hours of beginning and ending
work. The following table classifies the working days of all woman
employees during a period of seven days by hours of beginning and
ending work.


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Federal Reserve Bank of St. Louis

[1056]


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

10

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
N U M B E R OE W O R K D A Y S O F W OMAN E M P L O Y E E S W H IC H B E G A N A N D

New York Railways Co. (surface lines.)
N um ber w ith ending tim e—A. M.
12

and lancl 2 and 3 and 4 and 5 and 6 and 7 and Sand 9 and 10 and 11 and
be­ before before before before before before before before before before before
12.
8.
9.
10.
11 .
4.
5.
6.
7.
3.
fore 2.
1.

Beginning tim e.

2 and boforp, 3 a. m
4 and bp for p, ft a, m
5 and bpfore fi a._ m ____
fi and before 7 a, m ...........
7 and bpforo 8 a,, m
2
8 a n d before 9 a . m
...
9 and before VOa. m
9
10 a.pd before 11 a, m
11 and before 1 2 m
59
147
12 m and before 1 p m
1 and before 2 p m
51
2 and before 3 p m
8
3 and before 4 p m
4
4 and before 5 p .m
4
5 and before ftp . m
2
6 and before 7 p m
2
i
7 a n d before 8 p . m ..
8 a nd before 9 p . m ..
i
9 and before 10 p. m .
12 an d before 1 a. m

T o tal......................... 290

1
1

2

i2

1

3

12

1

3

11
1

2
6
1

7
2

1

2

1

24
173
128
19
5
7
5

5
43
38

2

2

1

1

3
3

2
2
1

5

I

5

8

3
5

2

5

12
1

1

6
6

2
6
1

25

12

27

24

9

12

i3

3

6
1

1
1

7

2

1

370

93

7 ..........|

20

Brooklyn R apid Transit Co. (surface lines.)
2 and before 3 a. m ...........
4 and before 5 a. m ...........
5 and before 6 a. m ...........
0 and before 7 a. m ..........
7 and before 8 a. m .........
8 an d before 9 a. m .........
9 and before 10 a. m __
10 a nd before 1 1 a . m . . . .
11 and before 12 m ............
12 m. a nd before 1 p . m . .
1 a nd before 2 p . m ........
2 and before 3 p. m ..........
3 and before 4 p . m ........
4 a nd before 5 p. m ..........
5 a nd before 6 p . m ..........
6 and before 7 p . m ..........
7 a nd before 8 p. m ..........
8 a nd before 9 p. m ..........
9 and before 10 p. m ........
10 a nd before 11 p. m ___
12 and before 1 a,, m ____
T o ta l........................

1
2-1

21

22

10

5

27
15
14
3
3

14
18

6
10

3

2
1

8
1
20
10

1
6

1

1

1
1

1
1
1
1

75

1

2

21

58

40

8

1

2

5

2

3

3

2

i

8

8

Brooklyn R apid Transit Co. (subway-elevated lines.)
1 a nd before 2 a. m ...........
2 a nd before 3 a. m ...........
3 a nd before 4 a. m ...........
4 and before 5 a. m ...........
5 and before 6 a. m ...........
6 and before 7 a. m ...........
7 a nd before 8 a. m ...........
a nd before 9 a. m ...........
9 a nd before 10 a. m ........
10 and before 11 a. m . . . .
11 a nd before 12 m ............
12 m. and before 1 p . m . .
1 and before 2 p . m ..........
2 a nd before 3 p . m ..........
3 and before 4 p. m ..........
4 an d before 5 p . m ..........
5 a nd before 6 p. m ..........
6 a nd before 7 p. m ..........
7 a nd before 8 p. m ..........

8

T o ta l........................

2

1

3
2

13
2

23
26
5

2
1

2

3
3

4
16
19

2

5

1

13

23
17

4

3
3

48

10

8

1

1

9
21

16
9

2

4
13
5
1

2
2
1

1

1
2

62

25

0

1

2

44

1 Including 1 w orkday w hich ended th e m orning of th e following, day.


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Federal Reserve Bank of St. Louis

1

3
........9

1
120

1

3

[1058]

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

11

E N D E D A T EA C H C L A S S IF IE D TIM E D U R IN G A P E R IO D O F S E V E N D A Y S.

New York Rail-ways Co. (surface lines.)
N u m b er w ith ending tim e —P. M.
12 and

before
1.

1 and
before
2.

2 and
before
3.

4 and
before
5.

1
6
2

5

‘ *

1
2

3 and
before
4.

6 an d
before
7.

7and
before
8.

33
27
3

36
214
30

98
217

1
1
2

2

5and
before
6.

ï

12
1

1

i

1

2
8
2
1

3

2
1
2
1

3
4

1

1

2

8 a n d 9 an d 10 a nd H a n d
before before before before Total.
9.
10.
11 .
12 .

1
1

3
4

3
3
5

6

2

1

4
5

1

1

88
8
6

3

2
2

4
13
3
1

1

1

i
3

3

1

8

5

7
5
2

5

8
6
2
1
1

i
i

'
'

1

189

1

fiOQ
18ß
33

2

S>
9
5
3

1

....

3
89
40
18

i
i

2

i

15
51
137
459
263
44
24
19
18
2ô
38
15

101

2,127

lß
24
33
14
3
i
i
3
1

2

i
5

4

8

22

25

79

305

447

172

44

Brooklyn R apid Transit Co. (surface lines).

Brooklyn R apid Transit Co. (subway-elevated lines).


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

[1059]

26

12

MONTHLY KEVIEW OF THE BUREAU OF LABOR STATISTICS.

Thus, of 2,127 days worked by woman conductors on the cars of
the New York Railways Co., 993, or 46.6 per cent, began between
midnight and 8 a. m.; 968, or 45.5 per cent, ended between 6 p. m.,
and 10 p. m.; 887, or 41.7 per cent, ended between the hours of
10 p. m. and 4 a. m. Of 670 days worked by woman conductors
on the surface lines of the Brooklyn Rapid Transit Co., 326, or 48.7
per cent, began between midnight and 8 a. m.; 348, or 51.9 per cent,
ended between the hours of 6 p. m. and 10 p. m.; 242, or 36.1 per cent,
ended between the hours of 10 p. m. and 4 a. m. Of 1,526 days
worked by woman guards and conductors on the subway lines of the
Brooklyn Rapid Transit Co., 1,102, or 72.2 per cent, began between
midnight and 8 a. m.; 925, or 60.6 per cent, ended between the hours
of 6 p. m. and 10 p. m.; 282, or 18.5 per cent, ended between the
hours of 10 p. m. and 4 a. m.
Of even greater significance, however, in view of the fact that
all woman conductors and guards begin work as extras and do not
have regular runs for a considerable period of time, is the irregularity
in the time of beginning and ending work as between successive days.
Even on regular runs, the Saturday and Sunday schedules differ from
the Monday to Friday schedules in beginning and ending time. The
following table shows the variation in the time of beginning and ending
work for both regular and extra woman street railway employees
during a period of seven days:
V A R IA T IO N O F T H E B E G IN N IN G T IM E A N D T H E E N D IN G T IM E O F W O R K D A Y S OF
W OM AN S T R E E T CAR E M P L O Y E E S IN N E W Y O R K C IT Y .
N um ber whose beginning tim e and ending tim e
of w orkdays during one w eek varied th e
classified n u m b er of hours.
R apid
B rooklyn R ap id B rooklyn
ransit sub­
T ran sit surface wTay-elevated
lines.
lines.

L en g th of variation.

New Y ork
R ailw ays Co.

Begin­ Ending Begin­ E nding Begin­ E nding
ning
ning
ning
tim e.
tim e.
tim e.
tim e.
tim e.
tim e.
U nder 1 h o u r............................................................................
1 and under 2 h o u rs................................................................
2 and under 3 h o u rs ................................................................
3 and under 4 h o u rs.................................................................
4 and under 5 h o u rs................................................................
5 and under 6 h o u rs ................................................................
6 and under 7 h o u rs................................................................
7 a nd under 8 h o u rs ................................................................
8 and under 9 h o u rs ................................................................
9 and under 10 h o u rs ..............................................................
10 and und er 11 h o u rs ............................................................
11 and under 12 h o u rs ............................................................
12 and und er 13 h o u rs............................................................
13 and und er 14 h o u rs ............................................................
14 hours a n d o v e r....................................................................

27
15
7

17
16

10

13
5
15

T o ta l................................................................................


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

[1060]

5
13

6

152
49
17
12
6

01

52
35
23
26
18
18
5

8
6
12

11
10

4

3
7
7
16

13
5

12
6

21
10

4
7

11

1

4
3
4
5

2
1

131

131

314

2
2

5

8
12
22

104
66

42
24
18
25
31
17
4
2

8S
75
57
27
17
15
31
19
11

15

5

20

13
7

7
7

1
2
1
1

314

403

403

9

1

7

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

13

It will be observed that of 131 woman conductors employed
on the surface lines of the Brooklyn Rapid Transit Go. during all or
a portion of one week, the variation in beginning time was less than
one hour for 27 conductors; one hour and under two hours for 15 con­
ductors; two hours and under three hours for 7 conductors. For 82
conductors the variation in time of beginning work was three hours
and over.
The irregularity in time of ending work was quite as marked.
Only 17 of the 131 woman conductors quit work within less than one
hour of the same time each day. For 92 conductors the variation in
time of ending work was three hours and over.
Those who advocate the employment of women as street-car con­
ductors have given scanty consideration to irregularity of hours, to
“ within” time and to night work, or else they regard these as more
than compensated by the comparative lightness of the work. It is
necessary, however, to take into account the nervous strain resulting
merely from riding for hours at a time on a car that is constantly
starting and stopping and that of handling crowds at rush hours.
On many cars the conductor is obliged to be on his feet constantly
and the principle has been clearly established that a woman can not
work at employment requiring constant standing without seriously
endangering her health. Moreover, the conductor is exposed to cold,
damp, and draughts, even on the best type of inclosed-vestibule and
center-door cars. On the closed-vestibule car there is added the
strain of opening and closing the door at each stop. On the open
summer car, in such common use, the conductor is required to pass
constantly along the running board, clinging to a swaying car with
one hand and collecting fares with the other. Cars other than “ pay
as you enter” require often that the conductor force a way through
the crowded car to collect fares. The danger of injury, resulting
seriously, to a woman doing this work is by no means negligible.
However, woman conductors must operate these cars or the type of
car must be changed at great expense.
The point has been made repeatedly by the companies during the
investigation, that even when women have a choice, they frequently
select night runs. At this time the cars are, of course, less crowded
and the work less strenuous except, perhaps, during the after-theater
rush hours on certain lines. Some of the women have remarked that
they preferred the night runs because it left them the day free to do
other things. Others with families have said that the night runs
enable them to look after the children and prepare the meals during
the day. The disastrous consequences of employing women on night
work to enable them to work all day for their families have been so
thoroughly demonstrated in other industries that it needs no further
54591°—18----- 2

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MONTHLY REVIEW OP THE BUREAU OP LABOR STATISTICS.

demonstration in street-car operation. Lack of sufficient rest must
very soon so lessen the vitality that the woman is not only unfit for
street railway service but unable to resume her former place either
in the home or in industry. There should be added to this a con­
sideration of the dangers to which a woman is conceivably exposed
in having to go home unattended, sometimes through practically de­
serted streets, at hours of the night when police protection is least.
Quite apart from the question of hours or severity of work is that
of adequate waiting and toilet rooms at the car barns. The barns
are the starting places of the cars. Here the movement of cars is
directed, orders are issued to employees, and the run sheet for each
day is posted. Here are located the waiting rooms for the employees,
with such facilities for rest, comfort, and amusement as it is the pol­
icy of the company to provide.
The introduction of women necessitates that some provision be
made to house them at these barns. The adequacy of these pro­
visions must be determined in part by well-defined standards of sani­
tation and comfort, and in part by equally well-defined principles of
decency and privacy. Obviously a separate waiting and rest room
must be provided for women employees. It must be considered, too
that since the strain upon women is greater than upon men in this
work, opportunity for rest and relaxation must be provided in even
greater measure than for men. The need of adequate rest-room fa­
cilities for all women off duty becomes more apparent when it is
taken into consideration that employees often live too far from the
car barns to make it practicable for them to go home between por­
tions of the day's work. The immediate neighborhood of the car
barns is seldom inviting. Even if the waiting period comes at a con­
venient time or is of sufficient duration to permit woman employees
to shop or to go to places of amusement, it is necessary for them to
change to street dress and again to uniform or work dress. As a
consequence a great many of the women prefer to spend the “ time
off” at the car barns.
It has been stated previously that woman conductors were being
employed on the surface lines in New York City and Brooklyn as
rapidly as housing facilities could be provided. In order to deter­
mine just what these facilities were, an inspection was made of all
the car barns, both surface and subway, where women are employed.
On February 21, 1918, accommodations had been provided for
women at eight of the car barns of the New York Kailways Co. and
at one additional point to supplement the facilities at one of the
barns. At all of these points one room had been set aside for the
woman employees. For the most part these rooms were quite pri­
vate, but at one bam the room was separated from the foreman’s


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15

office only by a partition extending about half way to the ceiling.
At another barn the entrance to the manager’s office was through
the women’s room. All of the rooms had one or more outside win­
dows and were furnished either with steel or wooden lockers, straightbacked chairs, tables, and, with one exception, with wooden benches.
Hot and cold water was provided in five of the rooms. In three
rooms only cold water was available, and in one room it was neces­
sary to use the facilities provided in the foreman’s room. Wash
basins, soap, and towels were provided at six of the rooms. Toilet
accommodations for the exclusiAm use of women were found at all
places where women were employed. Two of these were small and
dark, but all were clean and well kept. Lunch rooms were provided
at three barns, open in each case to both sexes. At two barns tele­
phones had been installed to notify women of their runs or to call
them for extra work. At one bam the toilet-room equipment
included four shower baths.
In general it may be said that the rooms were adequate in size and
were kept clean, though some were not particularly inviting, and
none may be said to satisfy approved standards of comfort and con­
venience. A matron or janitress was in charge of each room and
was expected to be in constant attendance. In addition the com­
pany employs a traveling inspector to whom the women may make
complaints or suggestions. Women are forbidden to loiter in any
other place than the rest rooms, except for 10 minutes just preceding
the leaving of their cars. This rule is not rigidly enforced at all
times, however.
A less favorable situation was found in the accommodations pro­
vided on the Brooklyn Rapid Transit surface lines, though it should
be said that arrangements are being made for more adequate facilities.
At one barn there was no waiting and rest room for the exclusive use
of women, though a separate toilet was provided. A room was in
process of being remodeled for the use of women. This room was
located on the ground floor alongside the car tracks that enter the
barn. A lunch room was provided at this barn and used by both
men and women. The entrance to the lunch room was through the
men’s waiting room.
At another barn a small room was used temporarily by the women.
This room was crowded at the time of inspection. The permanent
room to be provided at this barn is located just off the men’s club
and billiard room, the latter being the entrance to the women’s room.
No windows are provided for this room, the only light coming from
the glass top of a ventilating shaft about 5 by 5 feet.
At still another barn a women’s waiting and rest room was pro­
vided in a building formerly used as a store. The room had a glass
front and, being on the ground floor, was not very private. The

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

toilet was small and in bad condition. I t had previously been kept
locked and the women had the use of a toilet in the office located
across the street. The room was furnished with a lounge, chairs,
and tables, and was heated by a coal stove. A matron was in charge.
No lunch room was provided at this barn, and the restaurants in the
neighborhood were not very desirable.
One of the remaining three surface-line barns where women were
employed had a waiting room located on the ground floor so close
to the surface and elevated tracks that rest was almost impossible.
The room was entirely apart from the rooms provided for the men,
however, and though rather long and narrow—about 9 by 30 feet—
was well equipped and was in charge of a matron. Apart from the
noise, the most objectionable feature was the location of the toilet
which was at the end of the room facing the street, the only means
of ventilation'being a window opening on the street.
At the other two barns of the surface lines the accommodations
were more adequate. The toilets were clean and well kept. Hot and
cold water, wash basins, towels, and soap were provided. At one of
the rooms a matron was in charge; at the other the woman car
cleaners were expected to look after the room.
On the subway-elevated lines of the Brooklyn Rapid Transit Co.
women work from four stations. At one station a car standing on
the elevated track is used as a crew room for both men and women.
This was furnished with the same kind and number of seats as the
cars in operation. The only toilet room for women was the one
provided for the general public, and at the time of inspection this was
in need of repair and was locked. No lunch room was provided.
At another station a car standing on the subway track is used as
a crew room for both men and women. A separate toilet room,
located conveniently near, was provided for the exclusive use of wom an
employees. The company does not maintain a lunch room but
plenty of good lunch rooms are within reasonable distances from
the station.
At one of the two remaining stations both men and women were
crowded into the dispatcher’s room two flights below the ground level.
The women were expected to use the toilet provided for the general
public and this was only moderately well kept. Plans have been
made for a women’s room at this station but it will be some time
before the room is ready. At the other station the women’s room
was separated from the dispatcher’s room only by a partition extend­
ing about half way to the ceiling. The women’s room served as a
passageway to the men’s room and to the dispatcher’s office. The
room contained lockers but they were used by the men. No toilet
facilities were available, the pipes being frozen. There was no wash
basin and no drinking water.

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17

The accommodations at some of the stations, as indicated in the
brief description given above, can not be passed over by a mere
enumeration of present shortcomings or by an outline of plans later
to be carried out. To omit a condemnation of the failure to provide
for at least the personal needs of woman employees in advance of
their employment would be an evasion of responsibility. Whatever
the demand may be for women in the street railway industry, it can
not be sufficient to justify their employment under the conditions set
forth.
%
The nature of street railway employment makes it very difficult
at best to provide adequate toilet facilities. At each car barn the
question was raised as to how long women were required at any one
time to be away from toilet facilities provided by the company. At
the barns of the New York Railways Co. it was stated that this time
never exceeded 30 minutes. The same statement was made at the
surface-line barns of the Brooklyn Rapid Transit Co. It was further
stated at the barns of both companies that if the car crew found it
necessary to stop longer than the car schedule would allow, the crew of
the car just behind would take charge of the car vacated and that this
would in no way be held against the time or quality of work of the
employee. In practice, however, this is not so simple as it appears
and several conductors complained that it was not always convenient
to take care of personal needs. Obviously at those barns where toilet
facilities have not been provided, or where they are not kept in usable
condition, women must be subjected to much embarrassment and
discomfort. Women at one barn complained that they had to depend
upon private homes in the vicinity and that these had finally been
closed to them. One extreme case was cited of a woman conductor
who was forced to proceed to the end of the line and then use the
men’s toilet in a saloon. Even under the most favorable conditions,
it is doubtful whether the nature bf the industry makes it possible
properly to safeguard women employees in this respect.
Reference has previously been made to lunch-room facilities either
at the car barns or in their vicinity and what has been said of the diffi­
culties in the way of attending properly at all times to personal needs
applies as well to the securing of proper food at regular intervals.
Every one has observed the familiar sight of motormen or conductors
hastily gulping down cold sandwiches while operating the car. Some­
times the cold clamminess of the lunch is relieved by a cup of hot
coffee. Lunch rooms in the vicinity of the car barns are often so
dirty and the food so bad as to be a real menace to health. No per­
son, male or female, whether or not an employee of the company,
should be obliged to patronize these places. Because of the condi­
tions pointed out it is imperative that clean, wholesome lunch rooms
be provided by the street railway companies as a means of maintain
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

ing the health and efficiency of their employees, especially their
woman employees. At best many crew employees must eat hastily
and at irregular hours, oftentimes while running their cars.
The question of the dress or uniform of woman street railway em­
ployees has not been mentioned previously because it is after all
of but trifling significance in comparison with other problems. If
anything at all were to be said, it would be in favor of the regulation
of apparel of women in this and in other industries. It might be
stated in passing, however, that the woman conductors employed by
the New lo r k Railways Co. wear a regulation uniform consisting of
an all-wool shirt, and a coat, trousers, puttees and cap of khaki.
The company furnishes these at a cost of $5.75 to the employee.
The women provide their own heavy coats and other apparel. The
Brooklyn Rapid Transit Co. require their woman conductors to wear a
dark skirt furnished by the employee, and a cap and heavy coat,
both dark blue in color, supplied by the company at a total cost to
the employee of $16.10.
Both the New York Railways Co. and the Brooklyn Rapid Transit
Co. submit evidence showing that an unusually large number of male
employees have left their service. The latter company, at least, has
lowered its standard of physical requirements for male applicants.
Both insist that they have been unable to secure a sufficient number
of suitable men to operate their cars. A considerable number of
employees have been taken by the selective draft, others have left
for voluntary service, still others have undoubtedly left because of
higher wages in other industries. It is with reference to those who
leave for higher wages in other industries that the wage scale of
street railway employees is significant. Much has been made of the
fact that woman employees do the same work as men, under the
same conditions and at the same wages. It is denied that women
are employed to fill the easy jobs or to lower the wage scale of men.
However, the wage rates in most industries have advanced very
greatly, while the-rates of street railway employees in New York City
and Brooklyn—and probably elsewhere—have advanced much less
rapidly. First-year conductors are now paid 27 cents per hour on the
New York Railways Co.’s lines and on the surface lines of the Brooklyn
Rapid Transit Co. First-year subway conductors employed by the
latter company are paid 26 cents per hour; first-year guards, 24
cents. In 1914 the rate of first-year surface-car conductors was 24
cents; of first-year subway conductors, 23 cents; of first-year subway
guards, 20 cents. There is thus an advance in four years to firstyear surface-car conductors of 12^ per cent; to first-year subway
conductors of 13 per Cent; to first-year guards of 20 per cent. The
rates for the years 1914 and 1918 and the percentage of increase are
shown in the following tables:

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

W A G E SCALE O F C O ND U CTO RS E M P L O Y E D B Y T H E N E W Y O R K R A IL W A Y S CO .1
R ate per hour.
Period of service.
1914

$0.24
.25
.26
.27
.27
.27
.27

F irst yp,ar
.... ...................................................................................................
Second y e a r...................................................................................... .
T h ird a n d fo u rth y ears.......................................................................................
F ifth year ______................................................................................................
S ixth to te n th y e a r..............................................................................................
E leventh to fifteenth y e ar..................................................................................
Sixteenth year and after...... .............. ..............................................................

1918

P er cent
of increase in
1918 over
1914.
12.5

$0.27
.30
.31
.31
.32
.33
.34

20.0

19.2
14.8
18.5
22.2

25.9

1 R u n s of less th a n 8 hours on d u ty were paid for as 8 hours; over 8 an d under 9 hours, paid for as 9 hours;
over 9 a n d u n d er 10 hours, paid for as 10 hours; over 10 hours, credited to th e nearest 6 m inutes, b u t paid
for in even hours, th e fraction of an hour being carried to th e n e x t 7-day pay-roll period. G uaranty of
$12.25 per week to m en w ho w orked some tim e every d ay in 1914; no g uaranty in 1918.

W A G E SCALE O F E M P L O Y E E S O F T H E B R O O K L Y N R A P ID T R A N S IT CO.

Conductors—surface lines.1
R ate per hour.
Period of service.
1914

First v e a r................................................................................................................
Second y e a r.................................................................................................. .
T hird y ear.........................................................- ....................................................
F o u rth y ear .
................................................................................................
Fifth year ............................................................................................................
Sixth y e a r...............................................................................................................
Seventh to n in th y e a r.........................................................................................
T enth year . .........................................................................................................
E leventh to fifteenth y e a r................................................................................
Sixteenth year a n d after.....................................................................................

$0.24
.24
.25
.26
.26
.27
.27
.28
.28
.28

1918

$0.27
.30
.30
.31
.32
.32
.33
.33
.34
.35

P er cent
of increase in
191S over
1914.
12.5
25.0

20.0

19.2
23.1
18.5
22.5
17.9
21.4
25.0

Conductors and guards—subway lines.2
Conductors:
F irst y e a r.................................................................. .....................................
Second y e a r....................................................................................................
T h ird y e a r.......................................................................................................
F o u rth y e a r....................................................................................................
Fifth y e a r a n d a fte r......................................................................................
G uards:
F irst y e a r.........................................................................................................
Second y e a r....................................................................................................
T hird y e a r............................................................... ......................................
F o u rth an d fifth years............................... ................................................
A fter fifth y e ar............................................................................................. -

$0.23
.23
.24
.25
.25
.20
.21
.22
• 22|

.23

$0.26
.27
.28
.29
.30
.24
.25
. 25i
.26'
.26

13.0
17.4
16.3
16.0
20.0
20.0

19.0
11.4
15.6
13.0

1 M onday to F rid ay ru n s of less th a n 10 hours on d u ty were generally paid for as 10 hours. Saturday
a n d Sunday ru n s of less th a n 7 hours were paid for actual tim e; over 7 a nd under 8 hours, paid for as 8;
over 8 a n d un d er 9 hours, paid for as 9; over 9 and u n d er 10 hours, p aid for as 10; over 10 hours, paid fqr
actual tim e. E x tra s w hp reported regularly as required were guaranteed $1.50 per day in 1914 and $1.75
per d ay in 1918.
2 A pproxim ately all conductors and guards operating regular ru n s of less th a n 6 hours were paid for
7 or 8 hours; of over 6 an d under 7, paid for 8; of over 7 an.d un d er 8 , paid for 9; of over 8 and under 9, paid
for 91 or 9J; of over 9, p aid for 9 j or 10 hours. R eporting tim e of 10 m inutes for employees startin g from
yards an d 30 to 40 m inutes allowed oil d u ty on straig h t ru n s for meal periods were paid for.

It will be observed that the highest increase is 25.9 per cent. The
increase in the cost of living for the same period has advanced about
44.7 per cent in New York City.1 This, coupled with the prevailing
1 See th e results of th e investigation in to “ Cost of living in th e New Y ork shipbuilding distric t,” M o n th ly
R e v ie w , A pril, 1918, pp. 151,152.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

high rates of wages in other industries, is at least a contributing
factor in the shortage of male labor for street railway work. Women
are being paid the same wages as men in the industry. Wages have
not actually been lowered by the introduction of women into the
employment but quite probably wages have been prevented from
rising as much as they otherwise would. The consequences may be
far reaching depending upon the attitude of the women thus employed
and the attitude of the company. In a measure, too, the attitude of
the public and of male employees in the industry toward the intro­
duction of women will determine the extent of the practice, the con­
ditions of employment, and its consequences.
Public sentiment is rarely manifested except when inconvenience is
threatened or occasioned. To those who use the street cars the intro­
duction of women meant the operation of a greater number of cars
and consequently better transit facilities. Attracted at first by the
novelty of woman conductors and inclined somewhat sentimentally
toward the idea of women doing their “ b it” and releasing men for
service, the general public seems now to have complacently accepted
the situation with little thought of the consequences that may result
and with less knowledge of the conditions under which woman con­
ductors work. A woman conductor, though still an object of interest,
no longer excites any considerable comment.
In order to ascertain the attitude of women workers in other in­
dustries toward the employment of women in the street railway
industry, personal interviews were had with representatives of three
women’s leagues having headquarters in New York city.
The attitude of the Consumers’ League of New York City as ex­
pressed by its representatives is that women shoidd receive identical
pay for identical work, but they stated that there are industries which
women ought not to enter and work that they ought not to attempt.
No objection was made to women being used in the operation of
street cars, but the belief was expressed that there should be pro­
tective legislation regulating the conditions under which women work.
The attitude of the Women’s Trade Union League, is clearly
defined in its bill introduced into the New York State Legislature and
now known as the “ Lockwood ’’ bill. This bill, which has the indorse­
ment of the New York State Child Labor Committee and of the Con­
sumers’ League, provides that—
No female employee over the age of 16 years shall be required, permitted or suffered
to work in or in connection with any * * * steam, elevated, subway or surface
electric railways * * * more than six days or 48 hours in any one week or more
than 8 hours in any one day unless for the purpose of making a shorter workday of
some one day of the week; or before 7 o’clock in the morning or after 10 o’clock in the
evening of any day.


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21

An organization known as the Women’s League for Equal Oppor­
tunity has recently come into being in New York City. This league,
which was organized in January, 1918, has now 75 members. It
asserts that women should demand “ equal rights, equal oppor­
tunities, equal responsibilities, equal work, equal pay” ; there
should be no law that would forbid a woman from doing anything a
man does; a woman should be her own judge as to whether she
has the strength to do the work or the endurance to work long hours;
therefore women should have the opportunity to work as street rail­
way conductors under the same conditions that men work.
Men employees on the cars at the time women were introduced were
inclined to treat it as a joke or a new fad of the women. Those who
took it seriously looked upon it as a move to take away their jobs or
to keep wages down. The fact that women take their turn with men
and do not have the.easy runs has tended to allay somewhat the fear
that women would be used to drive the men out or to break down
standards. The ticket agents of the Interborough Rapid Transit
Elevated Lines, however, voluntarily agreed to work 12 hours per
day instead of 10 if women were not put on to make up the shortage.
Organized male labor, it may be said, is not opposed to the introduc­
tion of women, providing standards are maintained.
No canvass has been made of woman employees to ascertain why
they responded in such large numbers when word went out that the
street railway companies would use women on their cars. With
some it was undoubtedly economic stress, with others novelty, with
others the seizing of the opportunity to enter an industry previously
closed to them; still others have been attracted by the prospect of
earning more than in other occupations open to women. A few have
no doubt been actuated by patriotic motives and the appeal to be of
service. From the large number of applicants, the companies have
been in a position to choose those most apt and physically able to
remain in service. The age limits are 21 to 45, and a large percentage
of applicants is rejected. A careful investigation is made by the
company of the record of every applicant in order to weed out those
who, for any cause, would not be desirable and permanent employees.
Comparative figures are not available to show the relative stability
of women in this work. From December 4, 1917, to February 15,
1918, however, the New York Railways Co. took on 532 women, not
including those who were students on the latter date. During the
same period 100 women left the service of the company. The
surface lines of the Brooklyn Rapid Transit Co. took on 258 woman
conductors between the dates December 14, 1917, and February 15,
1918, not including those who were students on the latter date.
During this period 79 left the service. The subway lines of the


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

Brooklyn Rapid Transit Co. took on 348 guards during the period
October 24, 1917, to February 15, 1918, not including students on
the latter date, and 51 left the service of the company. This indicates
that in spite of the opportunity afforded the companies for careful
selection, a rather high percentage of women have either found the
work disappointing and have left the service or were found to be
unsatisfactory and were discharged.
From the facts brought out in this report it must be evident to
any thinking person that it is practically impossible to make the
conditions of street railway employment even tolerably endurable to
woman employees and that the operation of street cars is one of the
last occupations into which women should be lured or forced. There
are thousands of clerical and factory positions now filled by men
which could be filled just as well or better by women. Common
sense dictates that women be first placed in those positions where
conditions are most favorable and most readily adaptable for their
employment. If the exigencies of war make it necessary to put
women into the less desirable employments such as street railway
operation, the public should first oblige such industry to prepare
itself for the employment of women by providing the irreducible
minimum of decency and comfort before it is permitted to employ
them. Moreover, any policy of employing women to lower wages
or to keep wages from rising to meet increases in the cost of living will
have a most detrimental effect on the labor market and will result in
a lowering of standards of wages and working conditions for both
male and female labor.


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23

EFFECT OF RAILWAY NATIONALIZATION ON WAGES, HOURS, AND
TRANSPORTATION RATES.
B Y FLORENCE E . PA R K ER .

By the action of the Government in assuming control of the rail­
roads of the country, the United States joins Great Britain, France,
Russia, and Italy, all of which took over the operation of their
railroads as a war measure. Of these countries, all but Great Britain
already owned and operated a part of the railroad lines before the
War. Aside from State operation of railways as a purely war
measure, the tendency toward Government ownership of this public
utility has been marked. France has owned and operated the State
Railway since 1878, and in 1908 purchased the Western Railway.
The other lines were operated, until the outbreak of war, under
private management. Before the War Russia was gradually acquir­
ing the private lines of that country. Italy has owned the majority
of her railroads since 1884 and has operated them since 1905.
Switzerland and Japan have also definitely committed themselves to
Government ownership of railways, the former in 1898 and the latter
in 1906.
The following table shows the comparative extent of public and
private ownership of railways in specified countries, in 1913, the
latest year for which figures are available:
M IL E A G E O F ST A T E AND P R IV A T E R A IL W A Y S IN 1913, B Y C O U N T R IE S.
fSource- A rchiv fü r Eisenbahnw esen, 1913, pp. 520-522. Publication of Preussischen M inisterium der
tk
‘
öffentlichen A rbeiten.]
N um ber of m iles of railroad.

P er cent of
mileage—

P rivately
owned.

ri­
State v P
ately
owned. owned.

C ountry.
S tate
ow ned.

T otal.

Europe.

36,597
23,429

T folvr

.........................................................................................................................

5,606
24,549
9,085
2,704
122

1,113
1,700
713
1,217
1,634
2,863
634
2,204
1,199
T
c licillvlo
n n r l c i Ui
r\ f
J.O

A/f
o l i1/elf
o JOllJVj'
ToTQOVi «JJ.
flTlri
.71J•_ - .......................................
___________. . . . . . . . . .
iridi
VI AI£
A"A«»A

T o ta l.....................................................................................


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Federal Reserve Bank of St. Louis

[1071]

115,369

2,979
5,260
23,422
26,182
14,076
1,866

2,770
204
909
1,320
9. 532
1,139
1,125
286
6,136

39,576
28,689
23,422
31,788
38,625
10,951
5,474
326
2,022

1,238

3,020
9,532
1,852
2,342
1,920
8,999
634
2,337
999
1,199
1,238

68

68

99,644

215,013

133
999

92.5
81.7
17.6
63.6
83.0
49.4
37.4
55.0
56.3
38.5
52.0
85.1
31.8

7.5
18.3

100.0

82.4
36.4
17.0
50.6
62.6
45.0
43.7
100.0

61.5
48.0
14.9
68.2

100.0

94.3

5.7
100.0

100.0
100.0
100.0

53.7

46.3

24

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

M IL E A G E O F S T A T E A N D P R IV A T E R A IL W A Y S IN 1913, B Y C O U N T R IE S — Concluded.

N um ber of m iles of railroad.
C ountry.
State
owned.

The A inericas.
C anada................. ...........................................................................

1,771

P riv ately
owned.

27,509

Total.

29,280
255,180
769
15, 831
2,004
3,404
336
621
633
104
37
651
1,718
1,502
15,516
232
1,638
3,956
20,627

P er cent of
mileage—
P ri­
S tate
owned. vately
owned.

6.0

50.1
16.9

94.0
100.0
100 0
22.0
82.1
95.6
100 0
82.3
89.3
100 0
100 0
100 0
38.8
100 0
56.7
100 0
100 0
49.9
83.1

354,039

7.9

92.1

3,081
6,119
1,955
5,329
603
34
2,484
51
857
236
105
2,296

9,880
6,119
6,822
34,628
603
34
3,396
51
857
1,772
702
2,296

68.8

31.2
100 0
28.7
15.4
100 o
ioo o
73! 1
100 n

44,010

23,150

67,160

65.5

34.5

E g y p t (including S u d an )...........................................................
Algiers and T u n is ......................... : .............................................
Belgian Congo C olonies..........................................................
U nion of S outh Africa:
Cape Colony...........................................................................
N a tal........................................................................................
C entral S o u th A frica............................................................
R h o d esia...............................................................................
Colonies:
G erm an ............................................. .'...............................
E nglish....................................................................................
F re n c h .....................................................................................
Ita lia n ..................................................................................
P o rtugu ese.............................................................................

2.908
1,802

785
2,161
863

3,693
3,963
863

78.7
45. 5

21.3
54.5
100.0

3,429
1,102
3,311

545

3,974
1,102
3,466
2,405

86.3
100. 0

13.7

155
2,405
1,041
1,998
96
1,009

2,593
2 ,354
1,998
96
1,009

100 0

55.8

44.2

T o tal.....................................................................................

16,458

11,058

27,516

59.8

40.2

Australia.
New Z ealan d ...............................................................................
V ic to ria ...........................................................................................
New S outh W ales........................................................................
S outh A u stra lia ........................................................................
Q ueensland....................................................................................
T asm an ia....................................................................................
W estern A u stralia....................................................................

2,859
3,645
3,928
2,079
4,521
507
2,852

29
25
167
232
294
194
576

2,888
3,670
4,095
2,311
4,815
Z01
3,428

99.0
99.3
95.9
90.0
93.9
72.3
83.2

E u iu id o r....
...........................
P e ru .................................................................................................
Bolivia
.
...........................
B ra zil.............................................................................................
Paraguay
...............................................
U ruguay .........................................................................................
C hile. . ...........................................................................................
A rgentina.......................................................................................

6,723
1,980
3,488

769
3,487
1,645
3,254
336
511
565
104
37
651
666
1,502
8,793
232
1,638
1,976
17,139

T o tal.....................................................................................

28,045

325,994

6,799

M exico............................................................................................
Central America 1.........................................................................
G reater A ntilles............................................................................

12,344
359
150

Colom bia........................................................................................
V enezuela.......................................................................................

iiò
68

1,052

78.0
17.9
4.4
17.7
10.7

61.2
43.3

Asia.
A siatic R ussia and Siberia.........................................................
C hina...............................................................................................
Japan (including K orea).............................................................
B ritish In d ia ..................................................... ...........................
Ceylon..............................................................................................
Persia.............................................................................................
Asia M inor.....................................................................................
Portuguese In d ie s........................................................................
Malay S ta te s..................................................................................
D utch In d ie s ................................................................................
S ia m ................................................................................................
O ther countries.............................................................................
T o tal.....................................................................................

4,867
29,299
912
1,536
597

71.3
84.6
26.9
86.7
85.0

100 0
13! 3

15.0
100 0

A frica.

T o ta l.....................................................................................
G rand to ta l................................................................... .
1

2,593
1,313

95.5


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Federal Reserve Bank of St. Louis

1.0

.7
4.1
10.0
6.1

27.7
16.8

20,391

1,517

21,908

93.1

6.9

224,273

461,363

685,636

32.7

67.3

Including G uatem ala, H onduras, Salvador, N icaragua, Costa R ica, and P anam a.

[1072]

4.5
100.0

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

25

Eleven of the European countries for which figures are given
owned all or the greater part of their railways in 1913. All of the
seven States of Australia owned the greater part of their railroad
lines. In the Americas, on the other hand, the railroads of 16 of the
19 geographical divisions were predominantly private-owned.
The transfer of railroad operation from private to public manage­
ment in the United States brings up the question of what effect this
transfer will be likely to have upon the wages received by railroad
employees and the length of their working day, as well as upon the
freight and passenger rates charged. These points are of present
ixiterest not only to the employees concerned but also to the traveling
and shipping public. It was thought that, in this connection, the
experience of other countries might throw some light on what may
be expected to happen here. Accordingly, a historical study of the
effect of nationalization of railways in France, Italy, Switzerland,
and Japan was undertaken. The results of this study, though not
satisfactory in all respects on account of the scarcity of available
data, are given here.
FR A N C E.

The railroad policy of France dates from 1842, when a national
railway system was planned. Under the plan the State undertook
the construction of earthwork, masonry, and stations, and provided
one-third of the necessary land. The Departments, corresponding
to our States, were to pay the other two-thirds of the land cost.
Private companies were to lay the rails, maintain the permanent way,
and supply and operate the rolling stock. Nine lines were laid out
by expert engineers in such a way as to avoid parallel lines.1
In 1883 the railroads were reorganized into six systems, in addition
to the State system of 1,615 miles acquired in 1878.2 Each of the
six “ great companies/’ as they are called, had a distinct territory in
which it had a monopoly. The affairs of the companies were subject
to close scrutiny by the State. By the “ conventions” and “ cahiers
des charges” under which the companies operated they were allowed
to charge up to certain maximum rates (which, as a matter of fact,
were higher than the companies cared to charge), but no change
could be made in the rates of any company without the approval
of the Minister of Public Works.3 The minister also regulated the
maximum hours which railroad employees should be allowed to
work. The Government guaranteed each company a minimum
dividend equal to the dividend it had formerly paid; but, on the
1 New Encyclopedia of Social Reform, p. 1022.
2B ritish B oard of Trade. R etu rn to H ouse of Commons on railw ays (foreign countries a nd B ritish

possessions), 1907, p. 46.
8 R eport to B ritish B oard of Trade on railw ays in Belgium, France, and Ita ly . |Cd. 5106.] 1910, p. 137.


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Federal Reserve Bank of St. Louis

[1073]

#
26

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

other hand, two-thirds of the amount available for dividends, above
a certain fixed profit, went to the State.1
From the foregoing it is evident that in France the interests of
railroads and'State are closety connected.
On July 13, 1908, the bill authorizing the purchase of the railway
lines of the Western Co. was passed. This step was taken because
the Western had become so in debt to the State, through subventions
granted to it, that doubt was felt as to its ability ever to repay the
money owed. Thus, 3,707 miles were added to the “ old” State
System, as it was henceforth called, which had by this time increased
to 1,844 miles.2
Following is a statement showing the length of each of the “ great”
railways in 1908,2 when the Western was taken by the Government,
and the per cent that the mileage of each is of the total mileage of
the “ great” lines:
Mileage.

S tate...................................................................................
W estern..............................................................................
N orthern.....................
Eastern................................................................................
Orleans.................................................. ............................
Paris-Lyon-Mediterranean.
........................................
M id i...................................................................................
T o ta l................................................................. .

P er cent.

1, 844
3, 707
2,342
3,101
4, 816
5,906
2,380

7.7
15.4
9.7
12.9
20.0
24.5
9.9

24,096

100.0

Wages.—According to a report made to the British Board of
Trade in 1910, the salaries fixed by the decree of December 16, 1899,
amended by the decree of July 2, 1901, for engineers (“ engine
drivers” in the British report), guards, firemen, and brakemen on
the State lines, were as follows:
A N N U A L S A L A R IE S O F S P E C IF IE D O CCU PA TIO N S ON F R E N C H ST A T E R A IL W A Y S
F IX E D B Y D E C R E E , 1901.3

Salaries fixed for each class of—
Class.
First-grade engi­
neers.

Class No. 1.......................
Class No. 2 .......................
Class No. 3 .......................
Class No. 4................. .
Class No. 5 .......................
Class No. 6 .......................
Class N o. 7.......................

Francs.
4,200
3,900
3,600
3,300
3,000
2,700

($810.60)
($752.70)
($694.80)
($636.90)
($579.00)
($521.10)

Engineers.

Francs.
3,300
3,000
2,700
2,400
2,100
1,800

($636.90)
($579.00)
($521.10)
($463.20)
($405.30)
($347.40)

G uards * and fire­
m en.
Francs.
2,250
2,100
1,950
1,800
1,650
1,500
1,350

($434.25)
($405.30)
($376.35)
($347.40)
($318.45)
($289.50)
($260.55)

Brakem en.

Francs.
2,100
1,950
1,800
1,650
1,500
1,350
1,200

($405.30)
($376.35)
($347.40)
($318.45)
($289.50)
($280.55)
($231.60)

1 New Encyclopedia of Social Reform, p. 1023.
! France. Ministère du Travail et de la Prévoyance Sociale. A nnuaire Statistique, 1910, p . 162.
pp 201 "205 ° B n tish Boarcl ot H a d e on railw ays in Belgium, France, a nd Ita ly . [Cd. 5103.] 1910,
4 Corresponding to “ conductors” on U nited States railw ays, b u t w ith less extensive duties.


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Federal Reserve Bank of St. Louis

L10741

27

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

The following table shows, for the same occupations, the salaries
fixed by the decree of January 22, 1910, in effect November 1, 1909:
A N N U A L SA L A R IE S O F S P E C IF IE D O CCU PA TIO N S ON F R E N C H ST A T E R A IL W A Y S,
F IX E D B Y D E C R E E , 1909.1
Salaries fixed for each class of—
Class.
First-grade engi­ •
neers.

Class
Class
t ’lass
Class
Class
Class
Class

No.
No.
No.
No.
No.
No.
No.

1.......................
2 .......................
3 .......................
4 .......................
5 .......................
6 .......................
7 .......................

Francs.
5.000
4,500
4.000
3,600
3,300
3.000

($965.00)
($868.50)
($772.00)
($694.80)
($636.90)
($579.00)

Engineers.

Francs.
3,600
3,300
3,000
2,700
2,400
2,100
1,800

($694.80)
($636.90)
($579.00)
($521.10)
($463.20)
($405.30)
($347.40)

Guards 2 and fire­
men.
Francs.
2,400
2,200
2,000
1,800
1,650
1,500
31,350

($463.20)
($424.60)
($386.00)
($347.40)
($318.45)
($289.50)
($260.55)

Brakem on.

Francs.
2,100
1,950
1,800
1,650
1,500
1,350
3 1,200

( 8405.30)
($376.35)
($347.40)
($318.45)
($289.50)
($260.55)
($231.60)

1 France. B udget of 1912, vol. 4, p p . 1327-1331.
2 Corresponding to “ conductors” on U n ited States railw ays, b u t w ith less extensive duties.
3 Class was later abolished b y decree of Dec.' 23, 1911, a n d employees of the class were prom oted to class
No. 6. (B udget of 1913, vol. 4, p p . 808, 809.)

Comparison of the two tables above shows an increase in every class
of first-grade engineers and of engineers. In the case of the latter
a seventh class was created, with the salary of the former class 6.
Salaries of guards and firemen were increased in the three higher
classes but remained unchanged in the four lower classes. No change
was made in the salaries of any of the classes of brakemen, though, as
noted in the second table, employees of class 7 were promoted to
class 6 when, in 1911, class 7 was abolished by order. The same
order abolished all classes of employees with salaries of less than
1,200 francs ($231.60), and thus established 1,200 francs as the min­
imum salary on the French State railways.
According to the statement of the director of the State railroads,
the effect of the new scale of 1909 was that it brought about “ an
immediate improvement in the situation of employees whose salary
did not correspond to that of one of the classes of the new scale.” All
these employees obtained, beginning with November 1, 1909, the
salary provided for the class immediately above that in which they
had formerly been.1
Each year two tables of advancement are made out, one according
to seniority and one according to selection on the basis of merit. Pro­
motions are from one class to the next higher class and occur January
1 and July 1, according to the directions of the tables, and may be
made on the basis of seniority or of merit, or a combination of the
two. Advancements on the ground of seniority take place auto­
matically at intervals varying with the classification group of the
employee. Such promotions may be hastened, on the ground of
merit, by the recommendation o r“ choice ” of a promotion committee.2
1 France. B udget of 1913, vol. 4, 2» annexe à l’Ordre Général No. 525, p. 827.
2 Inform ation relative to prom otions obtained from B udget of 1912, vol. 4, p. 1336, and B udget of 1913,

vol. 4, p . 828.


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Federal Reserve Bank of St. Louis

[1075]

28

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

The following table shows the basis upon which advancements are
made, as established in 1912:
BA SIS E S T A B L IS H E D IN 1912 F O R PR O M O T IO N S ON T H E F R E N C H ST A T E R A IL W A Y S.
In te rv a l betw een p ro ­
motions according to—
.

Salary classification.

O ver 4,500 francs an d including 6,000 fran cs...............
Over 2,400 francs a n d including 4,500 fran cs...............
1,650 francs a n d including 2,400 francs...........................
U nder 1,650 fran cs..............................................................
G roup X I V ..................................................................

Seniority.
(Maxi­
m um .)

M erit.
(Mini­
m um .)

4 y e a rs ---........do........
3 y e ars___
2 years —

4 y e a rs. . .
3 y e ars. . .
2J y e a rs..
........do___
2 y e ars. . .
1î y e ars..

Proportionate w eight of
m erit a nd of seniority.

M erit entirely.
Do.
| seniority, f m erit.
§ seniority, | m erit.
Do.
Do.

The following statement shows the average salary in each of the
four most important branches of the railway administration and of
ail employees in 1911 computed on the basis of employees actually
in service December 31, 1911:1
Service of direction..............................................................................$584. 73
Service of operation............................................................................. 302. 81
Service of traction and m aterial........................................................ 385.14
Service of way and construction....................................................... 224.07
Total employees (all branches of the service)................................ 312. 32

All the above figures are for actual salary. In addition, the em­
ployees of all French railways are given allowances of various kinds—
residence allowance, pension deposit, yearly bonus for good service,
family allowance (per child under 16 years up to third child)—
besides the privilege of reduced freight rates, passes on the company
lines, and concessions in the matter of physician and medicine.2 The
railroads do not supply the uniforms.
Hours of labor.—As mentioned before, the length of the working
day is regulated by decree of the Minister of Public Works. Up to
the time the Western Railroad was taken over, the hours of “ engineers,
firemen, and employees in train service were fixed by decrees bearing
date of November 4, 1899, amended May 20, 1902, and May 9, 1906.
An order applying to station employees was issued on November 23,
1899, while the hours of labor of those engaged in the supervision
and maintenance of way were regulated by an order of October 10,
1901.” 3
From 1883 to the dates named above the hours of labor of engineers, firemen, con­
ductors, and brakemen had been fixed at not more than 12 hours daily, including
the time of their obligatory presence at duty points before and after actual employ1 France. B udget of 1913, voi. 4, p. 622.
2 Léon Seilhac: L a Grève des C hem inots, 1910, p. 26.
3 B ui. 68, U. S. B u reau of L ab o r Statistics, Ja n u a ry , 1907, p. 124.


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Federal Reserve Bank of St. Louis

[1076]

29

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

ment, while the hours of labor of switchmen had been fixed at 12 per day as early
as 1864.1

The decree of May 9, 1906, stipulated that the hours of actual
work of engineers and firemen should not exceed 90 in any consecu­
tive 9 days, and that those of trainmen should not exceed 140 in any
consecutive 14 days, thus establishing an average working day of
not over 10 hours.2
According to a decree issued April 10, 1909, so far as possible 270
hours should be the maximum number of hours for engineers and
firemen and 280 hours for trainmen, over a period of 30 consecutive
days.2 This decree reduced the maximum hours per day of engineers
and firemen from 10 to 9 and of trainmen from 10 hours to 9 hours
and 20 minutes.
The decree of April 10, 1909, was canceled and superseded by that
of May 28, 1914. The principal changes effected by the later decree
are that the minimum interval of rest separating two periods of
work is reduced from 17 to 15 hours, and that a period of rest of 30
hours must be allowed every 10 days instead of every fortnight.
The following table, the figures of which are taken from bulletins
of the French labor office, shows the average number of hours actu­
ally worked on each of the “ great” railways of France during the
years 1907, 1910, and 1912. The figures in this table are not very
satisfactory, in that the average number of hours as given is not
a definite number, but a range, of hours. They were, however, the
only figures for actual hours that could be obtained.
A V E R A G E D A IL Y H O U R S W O R K E D ON F R E N C H R A IL R O A D S, 1907, 1910, AND 1912.
A verage n u m b e r of h o u rs w o rk e d p e r d a y .
O c c u p a tio n a n d ra ilro a d .
1910 4

1907 3

E n g in e e rs a n d firem en:
Olid S ta te "Railroad . r T.............. ..... . . . . . . . . . . . . . . . . . . .
W este rn "R.ail r o a d ........................... ......................................
N o rth e rn Ra.ilroa.d
............ ............ ...............
E a s te rn R a i lr o a d ....................................................................
Op loans R a ilroa d .....................................................................
P a ris -P y o n -M e d ite rra n e a n R a ilro a d . .............................
M idi R a i lr o a d ......................................................................
T r a in ag e n ts:
O ld S ta te R a ilr o a d .............................................................
W e ste rn R a i lr o a d ...............................................................
N o rth e rn R a i l r o a d ................................................................
E a s te rn R a i lr o a d ....................................................................
O rleans R a ilro a d
............................................................
P a ris -P y o n -M e d ite rra n e a n R a ilr o a d ...............................
M idi R a i lr o a d ...........................................................................

II. m.

II. m.

H. m.

H . m.

4
5
5
6
6
6
7

32 to
08 to
28 to
27 to
58 to
22 to
05 to

10
9
9
10
10
9
9

00
54
15
00
00
59
55

5
3
5
5
5
5
6

52 to
35 to
40 to
02 to
01 to
42 to
37 to

9
9
10
9
9
10
9

4 28 to
5 31 to
4 35 to
6 08 to
6 01 to
7 18 to
6 32 to

10
10
9
10
10
10
10

19
32
52
52
52
53
23

2 21 to
4 23 to
6 11 to
5 48 to
6 22 to
6 56 to
6 39 to

10
10
9
9
9
10
10

1 B ui. 68, U . S. B ureau of L abor S tatistics, Jan u a ry , 1907, p. 124.
2 France. B u lletin de l’Office d u T ravail, M ay, 1909, p. 572.
B u lletin de l ’Office d u Travail, Ju ly , 1910, pp. 731, 733.
* Idem . Septem ber, 1913, p p. 881, 883.
6 Idem . June, 1914, p. 404.

8 France.

54591°—18-

-3


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Federal Reserve Bank of St. Louis

[1077]

1912 5

H. m .

H. m.

52
49 r
00 4 13 to 9 57
56 5 05 to 9 00
55 5 03 to 9 58
00 5 57 to 9 53
58 5 53 to 9 57
05

33 }>
34

26
41
13
13

6 25 to
5 28 to
6 27 to
7 25 to
6 54 to

9
9
10
10
9

51
08
17
16
58

30

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

This table shows that while the average hours actually worked by
engineers and firemen in 1907 did not exceed the 10-hour maximum
established by the decree of 1906, on only one railroad, the Northern,
was this true of trainmen. In 1912 three lines were still offenders
with respect to the hours of trainmen, the State lines (the old State
System and the Western Railroad) being among them. Only one
line, the Eastern, conformed to the decree of April 10, 1909, estab­
lishing 9 hours as the working day for engineers and firemen and 9
hours and 20 minutes as that for trainmen.
I t will be noted that both upper and lower limits of length of
average actual time worked by engineers on the State lines were
reduced between 1907 and 1912. On the other hand, while the
lower limit on the State lines in 1912 was lower than on the other
lines, the upper limit of hours of engineers and firemen was not
noticeably lower than that of the private companies, and in the case
of trainmen was higher.
Freight and 'passenger rates.—The question of French freight and
passenger rates is involved. Freight rates are very complicated,
and the difficulties in determining them have led to the growth of a
distinct business, that of the “ expéditeur,” the professional rate
computer. In France freight is sent by “ grande vitesse” and by
“ petite vitesse.” The former, or fast freight, corresponds some­
what to our “ express” service, and the latter, or slow freight, to our
regular freight service.
In this study no attempt was made to secure rates for the fast
freight, for the reason that it corresponds more nearly to our
“ express” service and not to “ freight” as we understand it. In
securing the rates for slow freight, only the receipts per ton-mile
could be obtained from the figures available. It was thought, how­
ever, that the receipts per ton-mile would answer the present purpose,
since these receipts may be taken as the average of freight rates, as
“ rates” are understood in this country, and since the object of this
article is to show the upward or downward trend of the rates rather
than the amount of the rates themselves.
Somewhat the same difficulty was encountered in ascertaining the
passenger rates. French railroads carry first, second, and third class
coaches, but while the official reports give the number of people who
traveled in each class, they do not give the miles traveled in each
class, nor the receipts from each class of travelers. Therefore, only
the receipts per mile from all classes of passenger travel are given.
By the “ cahier des charges,” passengers are allowed free transpor­
tation of 30 kilograms (66 pounds) of baggage.1
1

R eport to B ritish Board of Trade on railw ays in Belgium, France, and Ita ly .


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

31

The following table shows the average receipts per ton-mile and per
passenger-mile for the years 1907, 1910, and 1912. For purposes of
comparison, the corresponding receipts of the five private railroad
companies are given.
A V E R A G E R E C E IP T S P E R T O N -M IL E A N D P E R P A S S E N G E R -M IL E O F F R E N C H R A IL ­
R O A D S, 1907, 1910, AND 1912, AN D P E R C EN T O F IN C R E A S E OR D E C R E A S E IN 1910 AND
1912 AS C O M P A R E D W IT H 1907.
Average receipts per m ile .1
1910

1907

R ailroad.

Old State R ailro ad ................................
W estern R ailro ad ..................................
P rivate railroads:
N o rth e rn ...........................................
E a s te rn .............................................
O rleans..............................................
Paris-L yon-M editerranean. . . . . .
M idi...................................................
All p riv ate railro ad s..................

1912

Passenger.

Freight.

Passenger.

Freight.

Passenger.

Cents.
0.950
1.109

Cents.
1.460
1.460

Cents.
0.933
1.046

Cents.
1.446
1.471

Cents.
0.929
1.044

Cents.
1.447
1.470

1.128
1.028

1.026
1.126
1.348

1.095

1.029
1.069
1.278
1.213
1.276

1.073
.983
1.059

1.353

1.068
1.204
1.078

1.079

1.014
1.037
1.268
1.195
1.294

1.190

1.107

1.158

1.097

1.139

1.101
1 . 242
1.100

1.140

1.002

1.221

1.201

Freight.

Per cent of increase ( + ) or decrease (—)
as com pared w ith 1907 in —
R ailroad.

1910

1912

Passenger.

Freight.

Passenger.

- 1.8
-5 .7

- 1.0
+ .8

- 2.2
-5 .9

-0 .9
+ .7

P riv ate railroads:
N orthern ....................................................................................
E astern .......................................................................................
O rleans. . . .
......................................................................
Paris-L yon-M editerranean.....................................................
M idi..............................................................................................

-2 .9
-2 .5
-3 .0
- 3 .1
- 2.0

+ .3
- 5 .1
-5 .2
- .7
-5 .7

-4 .9
-4 .4
-3 .8
-3 .3
-1 .9

- 1.2
-7 .9
-5 .9
- 2.1
—4.4

A ll p riv ate railro ad s.............................................................

-2 .9

-2 .7

-3 .8

- 4 .3

Old S tate R ailro ad...........................................................................
W estern R ailro a d .............................................................................

'

Freight.

1 Figures com puted from d ata given in A nnuaire Statistiq u e of th e French M inistère d u Travail et de la
Prévoyance Sociale for th e years 1909, 1912, and 1914.

As the above table shows, passenger receipts on the Western Railroad
declined 5.7 per cent between 1907 and 1910. Freight receipts, how­
ever, increased 0.8 per cent in the same time. It is a question whether
the decrease in passenger receipts was due to State operation of the
road, inasmuch as during the same period, 1907 to 1910, the private
companies reduced not only their receipts per passenger-mile 2.9 per
cent, but also their freight receipts 2.7 per cent. Instead of Western
passenger rates (already lower than the average passenger rate of the
companies) being reduced and the freight rate (much higher than that
of the companies) being increased, one would expect to find the
reverse. The explanation may be that, as noted before, each com
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

pany, having a monopoly in its district, does not have to compete
with the others in the matter of rates.
It will be noticed that instead of the passenger rate being higher
than the freight rate, as in the United States, the opposite is true.
This was found to be the case in all of the countries studied.
ITALY.»

Italy has tried various policies with regard to her railways. Origi­
nally the lines were owned and operated by private companies,
but were gradually acquired by the State under whose management
they continued until 1884. In that year, though ownership still
remained in the Government, operation was leased for 60 years to
three companies, called the Mediterranean, the Adriatic, and the
Sicilian, respectively. The lease provided that the 60 years should
be divided into three periods of 20 years each, and that at the end of
any 20-year period the State or the companies might abrogate the
contract, the railways to revert to the State in that case.2
At the end of the first period the State exercised its right and
took over the operation of the railroads by the law of April 22, 1905.3
Actual management was undertaken July 1, 1905.3
Wages.—In 1903, while the railways were being operated by the
three companies, the average annual salary (including supplementary
allowances) of all railway employees was $257.46.4 In 1908, three
years after the resumption of Government operation, the average
wage had risen to $301.38,5 and by 1910 to $315.38. A British
official report gives the wages, for 1910, of engineers, firemen, and
brakemen, as follows:
A N N U A L S A L A R IE S O F E N G IN E E R S , F IR E M E N , A N D B R A K E M E N O N IT A L IA N ST A TE
R A IL W A Y S , 1910.«
A nnual salaries.

A m ount of
Years to supplem en­
a tta in
ta ry allow­
M inim um . M axim um . m axim um . ances per
year.

Occupation.

Engineers.....................................................
F irem en ...............................
B rakem en ..........................................

$289. 50
173. 70
b. 41

$521.10
318.45
b. 62

a R eport to B oard of T rade on railw ays in Belgium, France, a n d Ita ly .
b Per day.

18
23
23

$171.60
156. 60
118.20

[Cd. 5106.1 1910, p . 271.

The following table shows the average annual salaries of employees
of the different branches of the railway service, 1910 and 1913. No
» G rateful acknow ledgm ent is m ade o f assistance rendered b y M r. A ndré B ernard, of th e Legislative
Reference Division, L ib rary of Congress, m obtaining inform ation on Ita ly .
2 B ui. 31, U . S. B ureau of L abor S tatistics, N ovem ber, 1900, p . 1211.
8 R eport to B oard of Trade on railw ays in Belgium, France, a n d Ita ly . [Cd. 5106.] 1910, p . 228.
« Ita ly . M inistero d i A gricoltura, In d u stria e Commercio. Direzione Generale della Statistica. A n­
nuario Statistico Italiano, 1905-1907, p . 655.
8 Idem , 1911, p . 187.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

33

detailed figures relative to salaries could be obtained for the years
prior to 1910.
A V E R A G E A N N U A L S A L A R IE S O F E M P L O Y E E S ON IT A L IA N ST A T E R A IL W A Y S , BY
B R A N C H O F S E R V IC E , 1910 A N D 1913.
1913.2

1910.1

B ranch of service.

Average
annual
salary.

Total
annual
salary
Average
Average
am ount (includ­ annual
of allow­ ing con­
salary.
ances. tributions
to pen­
sion, etc.)

General ad m in istratio n .................................... $354.11
234.36
M ovem ent...........................................................
T rac tio n ............................................................... } 230.94
Rolling stock.......................................................
M aintenance and construction...................... ’ 157.66

$90.73
76. 59
138.66
26.27

214.26

76.37

All em ployees........................................

Total
annual
salary
Average
am ount (includ­
of allow­ ing. con­
ances. tributions
to pen­
sion, etc.)

$476.97
$407.06
272. 56
340,20
/ 281.97
401.17 \ 258.25
197.08
186. 69

$122.99
95. 71
183.71
117.12
41.24

$572.87
400.40
506.34
402.83
243.07

252.09

96.43

376.81

315.38

1 Ferrovie dello Stato. Statistica dell’Esercizio, A nno 1910, P a rt I, p p . 374-377.
2 Idem , 1913, P a rt I, Voi. II, p p . 280-283.

In 1914, the latest year for which figures are available, the average
wage for all employees was S378.26.1
Employees are not provided with their uniforms free of charge,
but the railway administration contributes to the cost..2
Promotions and increases in.salary are determined by the Council
of Administration.3
Hours oj labor.—Up to 1900 no effort was made by the Italian Gov­
ernment to fix definite hours for employees of railways. The law
of March 20, 1865, provided merely that “ the companies must fix a
time schedule of service for the employees so as to allow them the
necessary hours of continuous rest.” 4 This was so vague as to have
no real force.
The decree of November 7, 1902, specified definite hours:
The average duration of a day’s labor of locomotive engineers and firemen, inclusive
of the reserve days, days subject to orders, and days of rest, must not exceed 10 hours.
The hours of labor include the time of actual service, counting from the moment when
the employee is required to he present on duty until the time when he is perm itted to
leave, together with intervals between the arrival and departure of trains, when such
intervals are not more than one and one-half hours in length. Time required to go by
train to the place of duty and to return, and the tim e during which employees must
be on their locomotives subject to orders to go to the relief of any train, are also com­
puted as work time. * * *
Actual working time, or the time considered as .such, should fall within a period of
not more than 17 hours’ length, which must be both preceded and followed by periods
1 Ita ly . M inistero d i A gricoltura, In d u stria e Commercio. Direzione Generate della S ta tistic a l AnBiiario Statlstico Italian o , 1915, p. 222.
2 R eport to B oard of T rade on railw ays in Belgium, France, an d Ita ly . [Cd. 5106.] 1910, p. 280.
3 Idem , p. 229.
4 Bui. 31, U. S. B u reau of L abor Statistics, N ovem ber, 1900, p. 1216.


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MONTHLY REVIEW OP THE BUREAU OP LABOR STATISTICS.

of unbroken rest. The maximum work time w ithin such a period is fixed at 13 hours,
unless the labor is broken by brief periods of rest, when the hours of labor may be
increased to 14. * * *
For train employees, including conductors, guards, and brakemen, the hours of
labor include the schedule time of the train, the time spent in preparation for work,
and in turning it over, and intervals of not more than 14 hours’ length between the
arrival and departure of trains. To this is added one-fourth of the time which any
employee must spend at the stations on reserve and subject to call. The average
duration of daily labor thus computed, including reserve service and short periods of
rest during working time, is limited to 11 hours. The working time must fall within a
period of not more than 17 hours’ length, unless the day is broken by one or more
periods of inactivity of not less than 4 hours’ length, when the day may be prolonged
to 19 hours. Actual labor, however, must not exceed 15 hours in any work pe­
riod. * * *
The hours of labor of station employees, including track workmen, are fixed with
regard to the nature of their employment. The lim it named in the decree is 10 hours
where the labor is difficult or taxing, and 12 hours under ordinary conditions. Where
service alternates between night and day shifts, labor of the more difficult kind may
be extended to 12 hours, if in addition to the hour allowed for meals there is given each
week a continuous rest of 24 hours at the time of the change from night to day service,
or the reverse. The time of actual labor must fall w ithin a period of 16 or 17 hours,
according as the period of unbroken rest allowed is 8 or 7 hours. The latter lim it is
allowed only when the employee resides in the station or at a point not more than 500
meters (1,640 feet) distant from his post of duty.
The regular term of daily service for gatekeepers is fixed at 14 hours for males and 12
hours for females. Trackmen who also serve as gatekeepers may be employed for not
more than 13 hours daily, w ith a rest of not less than 8 hours, besides the time required
for going to and from home.1

As far as can be determined the Italian railways are still working
under this law.
Freight and passenger rates.—In Italy, as in France, the freight
service generally has been divided into fast and slow freight.
In 1903, while the operation of the railroads was still being carried
on by private companies, the average receipts per passenger-mile
were 1.303 cents and per ton-mile 1.175 cents.2
Since 1903 no figures for passenger-miles or ton-miles have been
published by the Italian railway administration and therefore figures
corresponding to those given above for 1903 could not be obtained.
In 1910, however, a report3 dealing with Italian railways was made to
the British Board of Trade giving actual rates for the various classes
of freight and passenger service. The following facts are taken from
that report.
Passenger rates on the Italian State railways are divided into two
classes: (1) For journeys up to 150 kilometers (93.2 miles) and (2)
1 B ui. 68, U . S. B u reau of L abor Statistics, Ja n u a ry , 1907, p p . 128-131.
2 Ita ly . Direzione Generate della S tatistica. A nnuario Statistico Italiano, 1905-1907, pp. 660, 635.
3 R ep o rt to B ritish B oard of T rade on railw ay s in B elgium , France, a nd Ita ly . [Cd. 5106.] 1910.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

“ differential” rates for longer distances.
meters the rate is as follows:

35

For the first 150 kilo­

Tare per passenger per m ile .
K ind of train .
F irst
class.

F ast ................................................................................................................................
Slow and m ix e d ...........................................................................................................

Second
class.

Cents.
3.964
3.603

Cents.
2.774
2.522

T hird
class.
Cents.
1.818
1.623

For trains composed entirely of first-class cars the fare is 0.1392
lira per passenger per kilometer (4.32 cents per mile).
Beyond 150 kilometers the fares rise gradually.
No free baggage, except hand baggage, is allowed.
Goods may be shipped by either fast or slow freight. Fast-freight
rates vary according to the kind of goods sent. Slow freight is di­
vided into eight classes, the rates for which are as follows:
Class 1. Class 2. Class 3. Class 4. Class 5. Class 6. Class 7. Class 8.

P e r to n per m ile .......................................
Fixed term inal charge per to n .............

Cents.
4.64
5.80

Cents.
4.00
5.80

Cents.
3. 48
5.80

Cents.
2.90
5.80

Cents.
2.32
5.80

Cents.
2.03
3.48

Cents.
1.74
3.48

Cents.
1.45
3.48

The following changes in rates were effected by the act of April
13, 1911, effective June, 1911:
1. Nine per cent increase in the price of all tickets 40 per cent or
more under the regular rate.
2. Graded increase in regular rate, according to length of journey.
3. Nine per cent increase on all season tickets.
4. Six per cent increase on all round-trip tickets.
5. Increase of 0.0515 lira (0.99 cent) for goods of the first five
classes of slow freight, and of 0.0258 (0.5 cent) on the last three
classes.
In 1913 a commission was appointed to inquire into the question
of rates. Its report was made in 1917, but the recommendations
have not jTet gone into effect.
S W IT Z E R L A N D .

Up to 1898 the railways of Switzerland were privately owned and
managed. On February 29, 1898, a referendum was taken and the
purchase of the chief railways authorized. The dates of purchase
were as follows: Central Suisse, Nord-Est, and Union Suisse, January
1, 1901; Jura-Simplon, January 1, 1903; and St. Gothard, May 1,
1909.1
1 B ritish B oard of Trade.
possessions), 1907, p. 72.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,

Wages.—Immediately upon the passage of the railway-purchase
bill, an investigation of the wages of employees of all the principal
railway companies in Switzerland was undertaken. The following
table taken from the consequent report shows salaries of specified
employees in 1898, at entrance, and after each classified length of
service:
A V ER A G E A N N U A L S A L A R IE S O F E M P L O Y E E S ON S W I S S R A IL W A Y S IN
E N T R A N C E AN D A F T E R EA C H S P E C IF IE D L E N G T H O F SE R V IC E .

1898, A T

[Source: Les tra ite m e n ts d u personnel des chem ins de fer suisses, b y Sourbeck.]
Average a n n u al salary in 1898.
Occupation.
A t en­
trance.

A fter 1 A fter 3 A fter 6 A fter 11 A fter 16 A fter 21
to 2
to 5
to 10
to 15
to 20
to 25 A fter 25
years of years of years of years of years of years of years of
service. service. service. service. service. service. service.

Engineers.................................... $303.40
C onductors.................................
F irem en....................................... 261.71
B rak em en ................................... 218.86

$352. 80
267.11
220. 02

$364.77
314. 98
297.22
234.30

$388. 70
332.35
308.22
255. 53

$434.64
349. 52
342.19
270. 59

$473.62
379.05
347.79
280.43

$534. 61
391. 23
360.33
274. 64

$555.45
509.52
370.56
277.92

254.37

260. 74

289.11

321.35

362. 26

389. 67

273.90

468.99

All em ployees.................

Shortly after the purchase of the railroads was authorized, the
Swiss parliament took up the question of salaries of railroad employees
and passed a law, in effect June 29, 1900, dividing the employees into
nine classes for which the following minimums and maximums were
established:
M INIM UM AND

M AXIM UM A N N U A L S A L A R IE S F O R E M P L O Y E E S ON S W I S S R A IL RO A D S E S T A B L IS H E D B Y LA W O F JU N E 29, 1900.1
Salaries established in each class.
Class.
M inimum.

Class No.
Class No.
Class N o.
Class No.
Class No.
Class No.
Class No.
Class No.
Class No.

1.....................................................................................
2 .....................................................................................

3 .....................................................................................
4 .....................................................................................
5 .....................................................................................
6 .....................................................................................
7 .....................................................................................
8 .....................................................................................
9 ................................................................................

Francs.
10,000 ($1,930.00)
6.000 ($1,158.00)
5.000 ($965.00)
4.000 ($772.00)
3.000 ($579.00)
2,400 ($463.20)
1,800 ($347.40)
1,500 ($289.50)
1,200 ($231.60)

1 H . H aguet: Le rach at des chem ins de fer suisses.

M axim um.

15.000
10.000
8.000
7.000
5.000
4,800
3,600
2,700
2,500

($2,895.00)
($1,930.00)
($1,544.00)
($1,351.00)
($965.00)
($926.40)
($694.80)
($521.10)
($482.50)

1903, pp. 81, 82.

The law of June 29, 1900, also stipulated that every three years
increases should be given of 500 francs ($96.50) for the first and
second classes, and of 300 francs ($57.90) for the remaining classes.1
A law of 1906 provided that each married employee, or unmarried
employee with dependents, earning less than 4,000 francs ($772) a
1 H . H aguet: Le rach at des chem ins de fer suisses.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

37

.y e a r should receive a bonus of 100 francs ($19.30); and all other
employees earning less than 4,000 francs a bonus of 50 francs (I9.65).1
The table below shows the average annual salaries received by
employees in the different branches of the Swiss railway service (all
railways) in 1898, and in the corresponding branches of service on
the State railways, 1907, 1910, and 1915:
A V E R A G E A N N U A L SA L A R IE S O F E M P L O Y E E S ON S W IS S R A IL W A Y S , B Y B R A N C H
O F SE R V IC E , IN S P E C IF IE D Y E A R S.
Average annual salary received in each specified
branch of service.
B ranch of service.
S tate railw ays.
All rail­
ways, 1898.«

1907 b

1910 c

1915 d

General adm in istratio n ............................................................
M aintenance and inspection of w ay.....................................
O peration and m ovem ent of tra in s ............. .................
T raction a n d m aterial..............................................................

1476.17
126. 79
334. 47
235. 82

8501. 81
131.38
379. 01
259.13

8550. 86
146. 33
420. 84
289. 50

8618.33
146. 72
478,18
317. 20

All employees.................................................................

254.63

291. 20

328. 25

366.10

a Sw itzerland. Post- u n d E isenbahn departem ent.
114-135.
b Idem . 1907, p p . 162-199.
e Idem . 1910, pp. 160-197.
d Idem . 1915, p p . 148-181.

Schweizerishe E isenbahn-S tatistik, 1898, pp.

This table shows that there was a steady increase in the salaries
in all departments during the time in which acquisition of the rail­
ways was taking place, and continuing to 1915, the latest year for
which reports were available.
Hours of labor.—The hours of labor on Swiss railways were regu­
lated, until 1902, by the law of June 27, 1890. This law provided
that the maximum day for all employees should not exceed 12 hours.2
This law was superseded by a new enactment of December 19,1902,
after the nationalization of the railroads took place.
This law fixes 11 hours as the lim it of the actual working tim e of officials, employees,
and laborers of all kinds, which period may be reduced by the Federal Council in
appropriate cases. The work period is to be divided into two parts, as nearly equal
as possible, by a rest period of at least one hour. The time of rest is to be allowed
at home where possible.
The period of work must fall within 14 consecutive hours for persons employed on
locomotives and trains, and within 12 consecutive hours for female gatekeepers.
The duty period is fixed at 16 hours’ length for other classes of employees if they
lodge in company buildings near their places of work, and at 15 hours in other cases.
The hours of duty of all males may be extended to 16 when required by special condi­
tions, provided that the periods of duty do not exceed an average of 14 and 15 hours,
respectively, in any 3 days.3
1 A. N . H olcomb: F irst decade of th e Swiss Federal railw ays. In Q uarterly Journal of Economics,
vol. 26: 341-362. F eb ru ary , 1912.
2 B ui. 20, U. S. B ureau of L abor Statistics, Jan u ary , 1899, p. 110.
3 B ui. 68, U. S. Bureau of L abor Statistics, Jan u ary , 1907, pp. 132, 133.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

It will be seen that the chief feature of the new law was the reduc­
tion of hours from 12 to 11 per day.
P a s s e n g e r a n d f r e i g h t r a t e s .—There are several classes of passenger
travel in Switzerland, but as was the case in France, no division into
classes is shown in the official reports. The figures given below are
therefore receipts per ton-mile and per passenger-mile:
A V E R A G E R E C E IP T S P E R T O N -M IL E A N D P E R PA S S E N G E R -M IL E O F S W I S S R A IL R O A D S, 1898, 1910, AN D 1913, A N D P E R C E N T O F IN C R E A S E OR D E C R E A S E IN 1910 AND
1913 AS C O M PA R E D W IT H 1898.
Average receipts per mile.
Railroad.

18981
Passenger.

P riv ate railro ad s....................................
S tate railro ad s...................................... .

Cents.
1.502
A,

19132

19101

F reight.’ Passenger.
Cents.
2.617

.................

Cents.
1.615
1.164

Freight.

Passenger.

Cents.
6.214
2.465

Cents.
2.073
1.144

Freight.
Cents.
4.280
2.447

P er cent of increase ( + ) or decrease ( —)
as com pared w ith 1898 in—
Railroad.

P riv ate railro ad s...............................................................................
S tate ra ilro ad s...................................................................................

1910

1913

Passenger. Freight.

Passenger. Freight.

+ 7.5
3 -2 2 . 5

+145.1
5.0

3-

+38. 0
3 -2 3 .8

3-

+64.4
6.5

1 D ata from A nnuaire statistiq u e de la Suisse, 1912, pp. 115,116. B ureau de statistique du D épartem ent
F édéral de l ’Intérieur.
2 Idem , 1915, pp. 106, 107.
3 Percentage com puted on basis of 1898, w hen all railw ays were p rivate.

Assuming that income per ton-mile and per passenger-mile may
be taken as equivalent to averages of freight rates and passenger
rates, respectively, then in Switzerland, ownership by the Confedera­
tion has accomplished a good deal in the matter of reduction of
rates. From 1898 to 1910 (the year after the last of the important
lines, the St. Gothard, was purchased) passenger receipts declined
22.5 per cent and by 1913 had declined 23.8 per cent. During the
same time passenger rates on the private lines had risen 7.5 and 38
per cent. On the State lines freight receipts per ton-mile also declined
5 and 6.5 per cent; on the private lines these rates increased 145.1
per cent between 1898 and 1910, and in 1913 were still 64.4 per cent
higher than in 1898.
I t is evident that there is a great disproportion between the rates
of the private and those of the State lines.


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39

JA PA N .

Japan is unique in its railway development in that the State entered
the railway field before private capital. The first line, running
between Tokio and Yokohama, was laid'in 1870.1 Once a begin­
ning was made, however, private enterprise outstripped the State,
and in 1906 the State owned only 1,531 miles of railroad as compared
with 3,251 miles owned by private companies.2 The bill for Federal
purchase of the 17 principal privately owned lines passed March,
1906, and provided that the acquisition was to take place between
1906 and 1915. As a matter of fact the transference to public man­
agement was practically complete by March, 1908. During the
financial year 1906-7 3 six private railways were purchased, and by
the end of March, 1908, the Government owned and operated the
lines of the 17 companies,4 90.9 per cent of all the railways of the
country.5
Wages.—The wages of certain employees on Government railways,
as reported to the State Department in 1910, by an American consul,
were as follows:
A N N U A L S A L A R IE S O F E M P L O Y E E S ON J A P A N E S E S T A T E R A IL W A Y S.
[U. S. D ep artm en t of S tate Doc. No. 477, Wages and prices abroad, 1910, pp. 76 and 85.]
Salaries of engineers.
Grade.
Throne
appointees.
Special...........................................................................................
F ir s t...........................................................................................
Second.......................................................................................
T h ird ......................................................................................
F o u r th ...........................................................................................
F if th ...............................................................................................
S ix th ...............................................................................................
S e v e n th .........................................................................................
E ig h th .......................................................................................
N in th .....................................................................................
T e n th ...........................................................................................

82,241.00
1.992.00
1.743.00
1.494.00

C abinet
appointees.
$1,494.00
1,245.00
1,095.60
996.00
896.40
796.80
697. 20
597.60
498.00
448. 20
398.40

Salaries of as­
sista n t
engi­
neers and clerks
(including sta­
tio n m asters).
$597.60
448. 20
358.56
298.80
268.92
239.04
209.16
179.28
149.40
119.52
89.64

The consul, reporting the above in 1910, stated that a bill was
passed on March 10, 1910, providing for a general increase of 25 per
cent in the wages of railroad employees, to take effect on and after
April 1, 1910.
The following table shows the average amount received per month
by certain employees in 1907-8 and 1910-11:
1 Japan. B ureau of Commerce a n d In d u stry . General view of commerce and in d u stry of the E m pire
of Japan. 1913, p. 41.
2 The “ Jap an G azette” Japan Y ear Book, 1914, p. 91.
3 The Japanese fiscal year ends Mar. 31.
4 Japan. B ureau of Commerce and In d u stry . General view of commerce a nd in d u stry of the E m pire
of Japan. 1916, p. 3.
6 The Seventeenth Financial a n d Economic Journal of Japan, 1917, p. 148.


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A V E R A G E M O N T H L Y S A L A R IE S O F C E R T A IN E M P L O Y E E S ON J A P A N E S E ST A T E
R A IL W A Y S, 1907-8 AN D 1910-11.
Average m onthly
salary per em­
ployee in —

Occupation.

F.ngirtep.rs, eh o ln in in 3ra n k ...........................
F.nuinpers, sonin 4rank"............... ..................
Assistant, engineers, h a n n in 5ra n k ..............
A ssistant engineers..........................................
Ttrakp.men.........................................................
Assistant firemen .
.........................
G uards................................................................

1907-8 1

1910-112

$133.46
53.65
21.06
10. 73
5.90
5. 75

$161.47
67.98
26.32
11.60
6. 24
7.53

1 R eport of Im perial G overnm ent R ailw ays of Jap a n for y ear ended Mar. 31, 1908, appendix Table X L .
2 Idem , 1911, p. 129.
8 D enotes ap p o in tm en t b y th e Em peror.
4 Denotes a p p o in tm e n t m ade w ith th e ap p ro v al of th e Em peror.
6 D enotes ap p o in tm e n t a t th e discretion of th e chief official.

The figures in the above table are not, of course, comparable with
the figures reported by the consul for 1910.
In the table following are shown the average monthly salaries of
the various grades of employees on the Japanese State railways in
1905-6 (the year the railway-purchase bill was passed), in 1907-8
(the year in which the purchase of the roads was practically com­
pleted), as well as those for the years 1910-11, 1911-12, and 1915-16.
A V E R A G E M O N T H L Y S A L A R IE S O F E M P L O Y E E S O F EA C H G R A D E ON J A P A N E S E
G O V E R N M E N T R A IL W A Y S IN S P E C IF IE D Y E A R S . 1

Average m o n th ly salaries of employees of each
grade in —
Grade.
1905-6

1907-8

1910-11

1911-12

Officials, chokunin r a n k .....................................................
Officials, sonin r a n k .............................................................
Clerks, h a n n in r a n k .............................................................
A ssistant engineers, h a n n in r a n k .....................................
Em ployees, koin class........................................................
Em ployees, yonin class.......................................................

$145. 25
64.72
16. 73

$135.38
52.12
15.90
21.05
9.24
6.89

$164. 39
66.76

$165.78

T o ta l.............................................................................

7.75

21.66

7.57
6.67

8.29 |

21.22

68.10

1915-16
$166. 83
75.99
21.86

26.32
9.77
7.31

21.58
26.07
9.68
6.94

9.25

9.34

9.74

26.09
10.08
7.92

1 R ep o rt of Im p erial G overnm ent R ailw ays of Jap a n for y ear ending Mar. 31, 1916, p. 89.

The foregoing table shows that upon the inauguration of State
ownership of the Japanese railways, in 1907-8, the average monthly
salary of employees of the four higher grades fell, though that of all
employees increased. This was due to the fact that the salary of
employees of the koin and yonin classes, who comprised about 92
per cent of the total number of employees, increased. During the
period 1907 to 1910 the average salary of all classes of employees
increased, the increases ranging from 5.7 per cent for employees of
the koin class to 33.5 per cent for clerks of hannin rank. Considering
all classes together the average increase was 11.6 per cent. I t is

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evident that the 25 per cent increase spoken of by the consul was
not evenly distributed among all grades of employees.
Hours oj labor— Japan has never officially regulated the length of
the railway employees’ working-day.1
Freight and passenger rates.—Following are the average receipts
per passenger-mile (all classes), and per ton-mile:
A V E R A G E R E C E IP T S P E R P A S S E N G E R -M IL E A N D P E R TO N -M IL E, O F J A P A N E S E
R A IL R O A D S , 1905-6, 1907-8, A N D 1911-12, A N D P E R C EN T O F IN C R E A S E OR D E C R E A S E
IN 1907-8 AND 1911-12 AS C O M PA R E D W IT H 1905-6.a
Average receipts per mile.
Railroad.

1905-6

•

S tate lin es................................................
P rivate com panies.................................

1907-8

1911-12

Passenger.

Freight.

Passenger.

Freight.

Passenger.

Freight.

Cents.

Cents.

Cents.

Cents.

Cents.

Cents.

0.709
.659 .

0.999
.898

0. 741
.773

0.866
1.065

0.689
.775

0.826
1.230

P er cent of increase ( + ) or decrease (—) as
com pared w ith 1905-6 in —
Railroad.

1907-8

1911-12

Passenger.

Freight.

Passenger.

+ 4.5
+ 17.3

- 1 3 .3
+ 18.6

- 2.8
+ 17.6

S tate lin e s...........................................................................................
P riv ate com panies............................................................................

Freight.
-2 0 .9
+ 3 7 .0

a D ata from Sixteenth and Seventeenth Financial a n d Economic A nnuals of Japan, 1916 and 1917.

As the table shows, in 1907-8 there was an increase over 1905-6
of 4.5 per cent in the average receipts per passenger-mile on the
State lines. By 1911-12, however, these receipts were 2.8 per cent
less than in 1905-6. Between 1905-6 and 1907-8 freight rates on
the State lines fell 13.3 per cent, and between 1905-6 and 1911-12,
20.9 per cent. I t is interesting to note that while the rates of the
State railroads were decreasing, those of the private companies
were increasing.
G R E A T B R IT A IN .2

Less than 24 hours after formal declaration of war between Great
Britain and Germany, August 4, 1914, the Government had taken
over the control of the entire railway system and had placed it in
the hands of the Central Railway Executive Committee.
In reading the following account of changes in wages and rates
which followed upon the Government assumption of control, it
1 Inform ation from Japanese E m bassy.
2 Great B ritain has been included in th is stu d y because G overnm ent control of th e railw ays was u nder­

tak en there, as in th e U nited States, as a w ar measure, and likewise, as here, ow nership rem ains in th e
original companies, th e G overnm ent sim ply directing th e operation.


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should be borne in mind that these changes are principally due to
the War and can not* be pointed to®as results of Government oper­
ation.
Wages. 1—Up to the outbreak of the War no general increase in
the wages of railway employees had taken place since 1911, though
the unions had been striving for one.
The following table shows the average weekly earnings per em­
ployee (exclusive of clerical staff, salaried officers, and casual em­
ployees) on 27 of the principal railways, in the first week in December
of the years 1911 to 1913:
AVERAGE

W EEKLY

E A R N IN G S

O F R A IL W A Y E M P L O Y E E S
1911 TO 1913.o

IN

G R E A T B R IT A IN

A verage w eekly earnings p er employee.
Year.
England and Wales.

1911................................
1912................................
1913..............................

s.
27
28
28

d.
4J ($6. 66)
0 ( 6.81)
6J ( 6.95)

Scotland.
s.
23
24
25

d.
5J ($5. 71)
4* ( 5.92)
U ( 6.12)

•

a Great B ritain, Board of Trade.
in 1913. [Cd. 7635.] p. 30.

R eport on rates of wages and hours of labor in th e U nited Kingdom

Since the outbreak of the War various “ war bonuses” have been
granted because of the advance in cost of living due to the War.
With the exception of the first bonus, one-fourth of the cost of which
was borne by the railways, these bonuses have been guaranteed by
the Government. The following table show's the amount of each
separate bonus granted, together with the time the increases went
into effect and the employees affected.
1 E xcept as otherw ise noted, inform ation in regard to wages and rates in Great B ritain was secured from
W ar adm in istratio n of th e railw ays in th e U n ited States a n d G reat B ritain, b y F ra n k H aig D ixon and
Julius H . Parm elee. Carnegie E ndow m ent for In tern atio n al Peace.


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43

TIM E O F G R A N T IN G B O N U S E S, A M O U N T O F BO N U S, AN D E M P L O Y E E S A F F E C T E D ,
G R E A T B R IT A IN .
A m ount of bonus
(per w eek).

Y ear and m onth.

Em ployees
affected.

s. d.
( ') ..................................................
June, 1915....................................
October, 1915..............................
Septem ber, 1916.........................

A pril, 1917..................................

November, 1917.........................

Total:
Men............................
B oys...........................
W om en.....................
G irls...........................

2 2 6 ($0. 61)
1 6 ( .37)
2 6 ( .61)

1 0(
5 0(
2 6(
3 0(
1 6(
5 0(
2 6(
2 6(
1 3(
6 0(
3 0(
3 0(
1 6(

.24)
1. 22)
.61)
.73)
.37)
1 . 22)
.61)
.61)
.30)
1.46)
.73)
.73)
.37)

21 0 (
10 6 (
8 6(
4 3(

5.11)
2. 56)
2.07)
1. 03)

Men.
Boys.
Men.
Boys.
Men.
Boys.
W omen.
Girls.
Men.
Boys.
W omen.
Girls.
Men.
Boys.
W omen.
Girls.

1 D ate n o t reported.
2 Average; bonus was 3s. for m en receiving 30s. or more per week, 2s. for m en receiving less th a n 30s. per
week.

The shopworkers were given bonuses similar to those noted in the
table. The first bonus was given to them in February, 1915. This
bonus, which amounted to 3s. (73 cents) a week, was later increased
to 4s. (97 cents) for timeworkers and 10 per cent for pieceworkers.
In September, 1916, the shopworkers were given an additional bonus
of 5s. ($1.22) per week, in February, 1917, 5s. more, and in August,
1917, still another increase of 3s. to men, and Is. 6d. (37 cents) to
boys. The same increases were added to the weeldy earnings of
pieceworkers.
On .July 1, 1916, salaried employees receiving an annual salary
of from £200 to £213 ($973.30 to $1,036.56) were given a bonus suffi­
cient to bring the annual income up to £213. These bonuses were
doubled in September, 1916.
Until April, 1917, the bonuses did not apply in the computation
of overtime and Sunday work which was paid for at the old rate.
Passenger and freight rates.—In 1911 as the result of a threatened
general strike of railway workers, wages were advanced. To com­
pensate the railways for this increase in expenses a law was passed
early in 1913 permitting the roads to raise their rates approximately
4 per cent. The advances did not, however, go into effect until a
few months before the War. Freight rates have increased very little
since the railways have been controlled by the Government. Passen­
ger rates have been increased several times and on January 1, 1917,
were advanced 50 per cent. The normal passenger scale was as fol-


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lows: First-class, l|d . (3.04 cents) to 2d. (4.06 cents) per mile; second
class l^d. (2.54 cents) per mile; third class Id. (2.03 cents) per mile.
SUMMARY.*

Wages.—The data secured in this study show that in each of the
four countries studied 1 an increase of wages has taken place either
coincident with or shortly after State purchase. In France an
increase was given in the wages of employees of the Western Railroad
when that line was taken over, but since no data could be secured
showing their average wage before 1908, it is impossible to calculate
just what the per cent of increase was. In Italy, the increase, from
1903 to 1908, amounted to 17 per cent; in Switzerland, from 1898 to
1910, to 28.9 per cent; and in Japan, from 1905-6 to 1907-8, to 7 per
cent. It can not be asserted that those increases of wages occurred
solely in consequence of the ownership of the railways by the State,
since many factors may enter into the question of wages. In France,
for instance, a general strike occurred on the railways in 1910. This
may or may not have had an effect in bringing about the increase.
Hours of labor.—It is difficult to say just what effect Government
ownership has had on the length of the working-day of railway
employees. France was the only country for which information as
to actual hours worked could be secured. It is known, however, that
France reduced the maximum working-day from 10 to about 9 hours,
and Switzerland from 12 to 11 hours. No evidence was found of
reduction of hours in Italy since the first definite pronouncement on
the subject in 1902, three years before resumption of Government
operation. Japan, as has been said, has no official limitation of
working hours on railways.
Passenger and freight rates.—In France, in the period 1907 to 1910,
average receipts per passenger-mile decreased 5.7 per cent, and per
ton-mile increased 0.8 per cent. Government ownership in Switzer­
land resulted in a decrease, during 1898 to 1910, of receipts for both
passengers and freight, the decreases being 22.5 and 5 per cent,
respectively. In Japan, during 1905-6 to 1907-8, receipts per pas­
senger-mile increased 4.5 per cent and those per ton-mile decreased
13.3 per cent.
i Great B ritain is no t included in th e sum m ary discussion for th e reason th a t, as explained before, changes
in wages, hours, and rates in th a t country, consequent to G overnm ent control, are stric tly w ar changes.


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45

FOOD SITUATION IN GERMANY NOVEMBER 1, 1917, TO JANUARY 31, 1918.
CO M PILED A N D TR A N SL A T ED BY A L F R E D M A Y LA N D E R .

A detailed survey of the food situation in central European belligér­
ant countries, compiled from articles in the daily press of those coun­
tries, has recently been published by the Bureau of Labor Statistics
as Bulletin No. 242. This survey covered the period January 1 to
October 31, 1917. In the following pages this survey is continued
with respect to Germany, in more summarized form, for the period
November 1, 1917, to January 31, 1918.
TH E MEMORIAL OF T H E NEUK Ö LLN C ITY COUNCIL.

The outstanding feature of the food situation in Germany during
the three months under review in this article was the sensational case
of the Neukölln memorial which demonstrates the utter breakdown
of the economic system of the imperial food authorities. On Decem­
ber 3, 1917, the municipal administration of that Berlin suburb,
reduced to desperation by the impending breakdown of its organiza­
tion for the food supply, addressed to the War Food Bureau a lengthy
memorial reviewing the whole situation; and on December 13 a
report on the matter was presented to the city council. The muni­
cipal administration had intended to publish the memorial and to
send copies of it to other municipalities; but von Waldow, the State
secretary of the War Food Bureau, alarmed at the very frank exposure
of the state of affairs, intervened with a prohibition to publish. The
Berlin Socialist daily Vorwärts, however, by some means procured a
copy of the memorial, and published it in full, with a defiant editorial
note to the effect that in such cases to keep silent is to be an accessory
after the fact. The memorial is too long to be reproduced in full, but
in view of its importance some parts of it are given here J
The growing popular discontent, particularly among munition workers, leads us to
call attention to conditions in the food supply which demand speedy remedial action,
because, in our opinion, they are the cause of the discontent observable everywhere.
Of the 1,300 or so establishments employed on Avar work in our town some 350 employ
over 50 workmen and 6 over 1,000. Our large establishments, like K rupp’s and other
establishments, have bought foodstuffs themselves and sold them to their employees
in addition to the foodstuffs rationed to the general population. As a rule, the arma­
ment firms, in order to get food supplies, have paid prices in excess of the maxima.
Some firms have sold to their workmen at the legal retail prices, paying the difference
themselves; others have sold at cost price, thus in some cases exceeding the maximum
prices. Hence the smaller establishments have asked the communes to secure to
their workers ad\rantages similar to those enjoyed by employees in the larger estab1 V orw ärts. Berlin, Dec. 16, 1917.

54591°—IS----- 4

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lish m e n ts, since th e y th e m se lv e s w ere u n a b le to b u y on a large enough scale. T h e
m ilita ry in sp ecto rs su p p o rte d th is d e m a n d , a n d in o rd er to p re v e n t d is c o n te n t we
w ere com p elled to b u y food in th e op en m a rk e t for d is trib u tio n to th e sm aller e sta b ­
lish m e n ts, e v e n a t p rices e x c e e d in g th e m a x im u m p rices. M ost of th e foodstuffs
b o u g h t b y us w ere from ab ro ad . I n o rd er to k e e p w ith in th e law w e re p e a te d ly asked
for im p o rt p e rm its, b u t in v a in . W e d id a t le a st su cceed in effectin g a c e rta in e q u a li­
z a tio n b e tw e e n th e w orkers in large a n d in sm all e sta b lish m e n ts a n d p re v e n te d , a t all
e v e n ts, general u n re s t am ong th e w orking classes, so th a t till th e b e g in n in g of O ctober
m a tte rs w ere fa irly satisfacto ry ; b u t sin c e th e n g re a t d is c o n te n t h as m an ifested itself,
b ecau se th e large firm s, ow ing to th e grow ing sc a rc ity , h a v e b o u g h t u p all o b ta in a b le
foodstuffs. M any u rb a n com m unes h a v e d o n e likew ise, a n d those w h ic h h a v e trie d ,
a t le a s t in th e m a in , to k e e p th e law are faced b y in so lu b le p roblem s in th e fu tu re .
T h ese co n d itio n s are d u e to th e u tte r b re a k d o w n of th e econom ic sy stem of th e im p e ria l
food au th o ritie s, as w e w ill show in d e ta il b y single foodstuffs:
Grain and flour .—T h e g ra in a n d flour s u p p ly is a d m itte d ly based on a so und fo u n d a ­
tio n , b u t a w eak sp o t in th e o rg an izatio n is th e p erm issio n to c e rta in estates to tra d e
fre e ly in seeds. T h e re s u lt is t h a t large q u a n titie s of g ra in find th e ir w ay in to th e
m a rk e t th ro u g h th e seed farm s. W e fre q u e n tly re c e iv e from sp ecu lato rs offers of
seeds for use as food w ith o u t a seed v o u ch er. S om etim es as m u c h as 3,000 c e n tn e rs
(3,306.9 h u n d re d w e ig h t) or over are offered, p rices u p to 200 m ark s 1 p e r c e n tn e r 2
($43.18 p e r h u n d re d w e ig h t) b e in g ask ed for w h eat, oats, a n d b a rle y . T hese are n o t
w ild offers; d e liv e ry is g u a ra n te e d .
Puisé.-—S eed peas, b e a n s, horse beans, a n d v e tc h h a v e b e e n offered us a t prices
ra n g in g from 140 to 260 m ark s p e r c e n tn e r ($30.23 to $56.14 p e r h u n d re d w e ig h t) w ith o u t
a seed v o u ch er. W h e n w e d e c lin e d th e m th e y w ere b o u g h t b y a n o th e r com m une of
G re a te r B e rlin . T h e q u a n tity a m o u n te d to 3,100 centner’s (3,417.1 h u n d re d w e ig h t).
P o ta to e s — T h e p o tato s u p p ly is also sy s te m a tic a lly organized, b u t a w eak sp o t is
left in so fa r as p otatoes n o t re q u isitio n e d for th e citie s are le ft for free tra d e , a n d are
b o u g h t a t co n sid e ra b ly ab o v e th e m a x im u m prices. R h e n ish in d u s tria l tow ns h a v e
now b o u g h t p o tato es in su c h q u a n titie s t h a t th e y can s u p p ly m ore th a n th e legal
ra tio n ; a n d th e y h a v e done th is b y p a y in g p rices of 6.7 m ark s p e r c e n tn e r (86.8 cents
p e r b u sh e l) in s te a d of th e legal p ro d u c e rs’ p ric e , p lu s sp e e d bonus, of 5.5 m ark s (71.3
c e n ts p e r b u sh e l), a n d b y allow ing th e grow ers for storage 50 p fennigs p e r c e n tn e r p er
m o n th (6.5 c e n ts p e r b u sh e l). T h e y h a v e also s u p p lie d coal to th e d e liv e rin g grow ers’
u n io n s. N ow im p o rtin g u n io n s h a v e b e e n a d v ise d b y th e Im p e ria l P o ta to Office to
secure b y d e liv e ry c o n tracts potatoes n o t o b ta in e d on D ecem b er 15. If th e y w ish to
g et potatoes b y th is m e th o d , com m unes w ill h a v e to m ak e sim ila r offers; otherw ise th e
c o n tracts w ill n o t b e c a rrie d o u t. B u t how , th e n , are potatoes to b e sold a t
th e p re sc rib e d re ta il p rice w ith o u t enorm ous su b sid ies from th e m u n ic ip a l funds?
Vegetables and fru it .— T h e perm ission acco rd ed to large firm s, e tc ., to c o n clu d e
c u ltiv a tio n a n d d e liv e ry c o n tra c ts for v eg eta b les h as h a d th e effect of c re a tin g a v e ry
u n w elco m e c o m p e titio n w ith th e com m unes, for to th e se firm s, w ith th e ir enorm ous
profits, m o n ey w as no object, a n d e v e n in m a k in g c o n tra c ts th e y co n sid e ra b ly ex c e e d e d
th e m a x im u m p rices. M oreover, th e am m o n ia w h ic h m ost of th e m w ere a b le to offer
to grow ers w as an a d d itio n a l assistan ce in m a k in g co n tracts.
B u t e v e n am ong com m unes th e m se lv e s th e re w as a w ild c o m p e titio n , lead in g to
disregard of th e re g u la tio n ; a n d o n ly those com m unes w h ic h h a d am m o n ia to dispose
of w ere a b le to o b ta in c o n sid erab le q u a n titie s of v eg eta b les b y c o n tracts. O ne B e rlin
c o m m u n e w ith 900 c e n tn e rs (992.07 h u n d re d w e ig h t) of a m m o n ia o b ta in e d enough
v eg eta b les to s u p p ly th e m to fam ilies for w in te r storage b y th e h alf c e n tn e r, w hereas in
o th e r com m unes th e re is now a d e a rth of v eg eta b les.
1 $47.60.
2 A centner of w heat is 1.837 bushels; of oats is 3.445 bushels; a n d of barley is 2.296 bushels.


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About the middle of September matters became intolerable. Since in addition
to the vegetables secured by contracts others could be sold in the open market at
exorbitant prices, growers were tem pted to deliver, not to holders of their contracts,
b u t to the open market. Hence, of our total contracted quantity of 260,000 centners
(286,598 hundredweight) in autum n vegetables alone, we received only 5,000 to 10,000
centners (5,511.5 to 11,023 hundredweight) and were compelled to buy in the open
market against the competition of the big industrial firms and at prices above the
maxima, prices rising from day to day, particularly as live-stock keepers were buying
up vegetables to give to their cattle, owing to the fodder shortage.
Even official bodies were unwilling to let us have vegetables at the fixed prices,
b u t demanded in addition allowances of all kinds, sometimes 50 per cent above the
maxima. Finally, at the present time both State and imperial offices are selling
vegetables to their staff at prices much above the maxima.
We inclose a note of our purchases, forced upon us by prevailing conditions, at
prices above the maxima; only in this way were we able to satisfy the enormous demand
for vegetables, and so in some measure to stem the unrest, which was largely due to
discontent at the ample supply of vegetables in the other commune referred to above.
Our food expert represented to the authorities that in order to redress inequalities
we ought to receive a larger supply of other foods, but this caused opposition in other
communes, and the authorities could give us no assurance.
M i l k .—Greater Berlin is receiving even smaller supplies of milk. This is due
mainly to a fodder shortage; b u t the Greater Berlin F at Office has had recourse to a
bonus system, which has already had a measure of success.
C heese .—Prices are fixed imperially for all varieties, b u t nobody regards them.
In butter shops cheese is not to be had at these prices, b u t in all restaurants cheese is
obtainable, because restaurant keepers are not bound by the prices. We are daily
offered (and have had to accept the offers in order to supply small industrial establish­
ments) all kinds of cheese a t prices, at least 100 per cent above the maximum prices.
M e a t s u p p l y .—The distribution is determined by the quantities of animals assigned
for slaughter to the Livestock Dealers’ Union. At times, especially last September,
the deliveries were irregular; those of hogs have considerably declined, from a weekly
average of 450 to at most 50, and in September no pork could be distributed at all.
The increased prices for young pigs, intended to cause more slaughtering, have not
affected the direct regular supply. We, like other towns, bought some 5,000 young
pigs in September and October, when the country people were getting rid of them in
large quantities, but we had to pay 1.9 marks per pfund (41 cents per pound) instead
of the legal 1.6 marks (35.1 cents per pound). Although the trade in live stock is
confined to the organizations created for the purpose, pigs can not be had at the max­
ima, b u t they can be bought by the thousands from the same organizations when
higher prices are offered; and a similar state of things exists as regards cattle. Large
firms buy animals for their employees at exorbitant prices; and naturally workers not
favored are discontented.
M e a t p r e p a r a tio n s , f a t , a n d b u tte r .—1
T he Hindenburg Fund for the F at Supply of
Workers in War Industries, from which so much was hoped, was so utter a failure, so
far as we are concerned, that we had combined the first and second consignments in
order to distribute 225 grams (7.9 ounces) per capita. As Greater Berlin firms received
considerably larger quantities we were compelled by the im portunity of the munitions
industry to buy meat preparations, fat, and butter from abroad through the agency of
private dealers, at prices ranging from 8 to 15 marks per } kilogram ($1.73 to $3.24 per
pound); but for the last three weeks we have had to leave the market to the big indus­
trial firms, which pay prices quite beyond the reach of the workers.
F o d d e r .—As regards oats, the system is in general satisfactory, though there must
be a gap somewhere, since in illicit trade oats are sold at 100 to 140 marks per centner


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Federal Reserve Bank of St. Louis

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($6.91 to $9.67 p e r b u sh e l) in s te a d of th e legal 20 m a rk s ($1.38 p e r b u sh e l). C ondi­
tio n s are in to le ra b le as regards h a y , straw , a n d chaff. W h e n th e g re a te r p a r t of th e
fo d d er h a rv e s t was re q u isitio n e d for arm y n eeds, m o st d is tric ts w ere closed, a n d th e
tow ns re c e iv e d e x p o rt p e rm its for p a rtic u la r d is tric ts to co v er th e sm all q u a n titie s
allow ed th e m . As soon as a few d is tric ts w ere o p e n e d ag ain free tra d e w as possible
for sto ck s n o t re q u isitio n e d ; a n d as th e q u a n tity w as sm all th e re w as fierce c o m p e ti­
tio n , a n d th e m a x im u m p rices w e n t to th e w inds. N e u k ö lln b o u g h t a t th e following
p rices p e r c e n tn e r: H a y 9.75 to 12.2 m ark s ($42.10 to $52.68 p e r to n ), in s te a d of
th e legal m a x im u m , 3.4 m ark s ($14.68 p e r to n ); straw 6 m ark s ($25.91 p e r to n ), in ­
ste a d of th e legal m a x im u m , 4 to 4.5 m ark s ($17.27 or $19.43 p e r to n ); chaff 7 m ark s
($30.22 p e r to n ), in s te a d of th e legal m a x im u m , 5 m a rk s ($21.59 p e r to n ). A nd
e v e n so i t w as n o t possible to o b ta in th e w h o le q u a n tity assigned, sin ce dealers
p re fe rre d to sell to p riv a te custom ers, w ho p a id s till h ig h e r prices.
T h e n e t re s u lt is a c o m p e titio n b e tw e e n in d u s try a n d m u n ic ip a litie s, w hich is ta k e n
fu ll a d v a n ta g e of b y profiteers, w ho know t h a t th e ir v ic tim s w ill n o t re v e a l th e ir ow n
ille g a l acts. I n a m e e tin g h e ld b y th e S ta te d is trib u tio n office for G re a te r B e rlin i t
w as e sta b lish e d t h a t a ll th e G re a te r B e rlin co m m u n es th e r e re p re se n te d h a d e x ceed ed
th e m a x im u m p ric e s for v e g eta b les. C om m unes w h ich a b sta in from such ille g a litie s
in c u r th e risk of fin d in g th e ir ow n c itiz e n s w orse p ro v id e d for th a n o th ers.
W e c o n c lu d e t h a t th e s e co n d itio n s u rg e n tly d e m a n d redress. A bove all, th e
system of d e liv e ry c o n tra c ts is q u ite u n fitte d to p ro d u c e a un ifo rm d is trib u tio n , a n d
illic it tr a d e c a n b e p re v e n te d o n ly if all foodstuffs are officially re q u isitio n e d a n d
in d iv id u a l foodstuffs n o t su b je c te d to a m ix e d sy stem of free tra d e a n d official control.
I t is w ell k n o w n t h a t p riv a tio n s c a n b e b o rn e fa irly easily w h e n w e know t h a t oth ers
are sh arin g th e m , b u t in e q u a litie s le a d to b it te r in d ig n a tio n . U niform d is trib u tio n
is w h a t th e tim e d em an d s. M atters c a n o n ly b e p u t rig h t b y re q u isitio n in g a ll food­
stuffs a t th e p la c e of p ro d u c tio n , w h ic h sh o u ld b e do n e n o t m e re ly , as in w ar com ­
p anies, b y persons in te re ste d , b u t b y im p a rtia l su p erv iso ry officials. W e th erefo re
reco m m en d th e follow ing m easures:
(1) T h e p ro d u c in g cen te rs, d e liv e ry un io n s, d is trib u tin g cen te rs, e tc ., to b e su b ­
je c te d to a su p erv iso ry com m ission of six m em b ers, of w hom a t le a s t four m u s t belong
to con su m in g circles. F o r th e d e liv e ry of a g ric u ltu ra l p ro d u c ts th e four co n su m ers’
re p re se n ta tiv e s m u s t b e ta k e n from th e d is tric ts of th e im p o rtin g u n io n s; of in d u s tria l
p ro d u cts, from th e tra d e -u n io n s of th e in d u s try in q u e stio n . T h e com m ission sh all b e
a tta c h e d as a n ad v iso ry a n d co n tro llin g a u th o r ity in ru ra l d e liv e rin g d is tric ts to th e
L a n d ra t [h ig h est a d m in is tra tiv e official in ru ra l d is tric ts ]; in in d u s tria l p ro d u cin g
d istric ts, to th e c h a irm a n of th e c o m p e te n t d is trib u tin g a u th o rity for th e w ar c o m p an y .
I t s decisions m u s t b e ca rrie d o u t b y th e h e a d of th e d eliv e rin g , p ro d u cin g , or d is trib u t­
in g a u th o rity , w ith rese rv a tio n to h im of th e rig h t of o b je c tio n . I n case of o b jectio n
th e W ar F ood B u re a u is to d ecid e .
(2) A ll foodstuffs to b e re q u isitio n e d a n d le ft to th e control of th e im p o rtin g a u th o ri­
ties. S eeds to b e co n tro lle d b y th e su p erv iso ry com m ission a n d d is trib u te d according
to a g ric u ltu ra l re q u ire m e n ts.
(3) I n larger re s id e n tia l a n d in d u s tria l areas th e food d is trib u tio n m u s t b e in uniform
q u a n titie s a n d according to a u n ifo rm sy stem . H e n c e u n ifo rm food d is trib u tin g
offices m u s t b e a p p o in te d for th e s e d istric ts.
W e express t h e h o p e t h a t th e W ar F ood B u re a u , in view of th e in to le ra b le c o n d i­
tions, w h ich m u s t c e rta in ly le a d to a c a ta stro p h e , w ill sp e e d ily ta k e s u ita b le m easures
to e lim in a te t h e cafises of d isc o n te n t. T h e m u n ic ip a l b o d ies h a v e u n a n im o u sly
d ec la re d th a t i t is th e ir first d u ty to su p p ly th e p o p u la c e w ith such food as is pro c u ra b le ,
a n d t h a t th e y are d e te rm in e d to p u rsu e th is en d b y th e le g a l1 m e th o d s a lre a d y ad o p te d ,


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Federal Reserve Bank of St. Louis

1 Illegal is evidently m eant.

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unless the War Food Bureau speedily provides a remedy, even though this should
mean the economic ruin of the municipalities through th e paym ent of usurious
prices which they can hot charge upon the poorer classes.
We ask you to adm it a committee of six appointed by us to a discussion of existing
conditions.

The Vorwärts, which, ever since its publication of the above
memorial, has devoted special attention to the subject of illegal
trading and profiteering, quoting from a report of a meeting in the
Imperial Fruit and Vegetable Office held since the Neukölln revela­
tions and attended by representatives of the Greater Berlin food
committees, the Usury Office, and the police authorities, states 1
that the food expert of a western Berlin suburb described the memorial
as very calm and true to facts, and said he had experienced much
worse things lately.
In reply to a demand for an alteration in the system, the chairman
of the meeting, a Regierungsrat, stated that no alteration would be
made. At the conclusion of his remarks he said that the observance
of maximum prices at present could not be thought of. The com­
munes were right to exceed them until an end was put to the compe­
tition of the large industrial establishments. But this proceeding
must go on only for a definite period, which would be made known
later. After that there must be no more exceeding of the maxi­
mum prices. Vorwärts comments:
What a situation for the public prosecutor. The legal authorities have announced
their intention of prosecuting all offenses against maximum price legislation, and
meanwhile the imperial authorities, with the express consent of the Usury Office and
of the police authorities, decide that for the time being maximum prices may be
exceeded. Not only so, but the presiding Regierungsrat states th at nothing will be
altered in the system, and stopped all debate on this point. The nation will certainly
conclude th at there is no serious desire to improve matters. Who can doubt that
offenses will still go on after the certain period has elapsed? The people th at ask for
bread are being played with. When the Reichstag meets shortly, let it see if a solid
structure can be erected out of the ruins of the present food policy. But certainly
things can no longer go on without thoroughly drastic measures.

Meanwhile the authorities continue on their ill-advised course of
bullying the municipalities without (so far as can be seen) taking any
serious steps either to remove the causes of the prevailing abuses or
to interfere with the activities of the great armament firms. Vor­
wärts learns2 that the public prosecutor has brought an action
against Mayor Kaiser and Municipal Councillor Mier, of Neukölln, for
exceeding maximum prices, and against Municipal Councillor Adam
for evasion of the seed-corn order. Vorwärts says:
I t appears that the Neukölln municipal administration will be made responsible
even for transgressions not actually committed. The municipal authorities recently
purchased a number of carloads of white cabbage at a price above the maximum, viz.,
i V orw ärts.


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Federal Reserve Bank of St. Louis

Berlin, Jan. 13, 1918.

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MONTHLY EEVIEW OF THE BUREAU OF LABOR STATISTICS.

11 marks per centner ($2.38 per hundredweight). However, Neukölln never got this
cabbage, the firm of Krupp paying 17 marks per centner ($3.67 per hundredweight),
and thus acquiring the goods. Nothing is so far known of any action against Krupp.
Perhaps i t will be the irony of fate th at Npukölln will be punished, while Krupp von
Bohlen will be given a distinction for showing such solicitude for his workers. Even
the War Department has tried to profit by such transactions. We learn th at the War
Department quite recently was offered ham and sausages at 14 marks per half kilogram
($3.02 per pound), which were bought up at once.
If the public prosecutor means to take proceedings against all authorities and big
firms guilty of exceeding the maximum prices, a great number of judicial officials will
have to be released from active military service to cope with the mass of work. Or are
the people of Neukölln only to be treated as transgressors of the law and the profiteers
to go unscathed?
TH E GENERAL FOOD SIT U A T IO N .

During tire month of January of the present year, though the
German press contains a good many items relating to the food supply,
there was no change in the general situation. The most important
review of the food situation noticed by the writer is a speech made to
the Saxon Agricultural Council by Undersecretary of State von
Braun.1
He admitted failures in the present system, but said that it could
not be radically altered. To restore free trade in foodstuffs was
impossible, for it would run the prices up so high that many people,
especially those of the middle classes and those with a fixed income,
would not be able to pay them. The proposal to grant State aid to
such was impracticable, for the cost would run into billions. There­
fore maximum prices and public control of foodstuffs must continue.
The speaker stated that the new proposals for putting the control
into the hand of agricultural organizations could not in any case be
put into operation before the next harvest year. (According to the
Dresden correspondent of the Münchner Neueste Nachrichten, the
Saxon Government has the gravest doubts about the new proposals,
deeming them in many cases impracticable.)
As to present conditions he said:
We shall get through all right with the bread grain, thanks to the early threshing
arrangements which must be repeated in 1918. Whether there will again be a tem­
porary reduction of the bread ration is not yet clear; it would then again have to be
replaced by increased rations of other foodstuffs. The manufacture of barley and oat
preparations must unfortunately be restricted, because the harvest was poor and there
are insuperable difficulties in the way of a sufficient supply of raw materials and coal
to the factories. The potato supply for the winter is assured; there are also sufficient
stocks to maintain till April the present ration and to provide material to eke out the
bread supply. The supply of milk, butter, and fat is not very hopeful. The present
meat ration can be maintained, at any rate for the present.

This, according to his view, is not a very cheering utterance, and
one may infer from it that there is at least considerable likelihood of
i M ünchner N eueste N achrichten.


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Federal Reserve Bank of St. Louis

M unich, Jan. 29, 1918.

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a reduction of the bread ration in the spring, and that a reduction of
the potato ration after April and of the meat ration at almost any time
is by no means improbable. The cumulative weight of evidence con­
tained in articles in the German press published during January goes
to indicate a continued deterioration both in the actual state and in
the future prospects of the German food supply. The months from
March to June are always the most trying, and, failing help from the
Ukraine or elsewhere, the coming spring will almost certainly bring
the severest privations which Germany has yet had to endure.
CROP PR O SPE C TS.

The Frankfurter Zeitung1 contains the following crop report:
The warm weather has thawed the snow in the fields almost everywhere, and in
many parts of Germany has so far softened the ground th at plowing for the spring
cultivation has again become possible. According to the reports to hand, the appear­
ance of the autumn crops, especially of the rye fields, is very good. The first half of
the winter, therefore, seems to have passed without deterioration, though the most
dangerous months are undoubtedly still to come. There is not yet very much trace
in the consignments of bread grain of any effect of the warning to farmers mentioned
in earlier reports, and repeated in the meantime, that on March 1 the prices of grain
would be lowered. On the other hand the offer of seed grain has undoubtedly im­
proved a little, and, indeed, as the season advances rather better supplies seem to be
forthcoming of several kinds of stocks.
FOOD R A TIO N S.

Food rations are generally fixed by the Imperial War Food Bureau,
on the basis of the estimated supply, for the entire Empire. In prac­
tice, however, the food rations apportioned to the civilian population
of the individual localities vary greatly from locality to locality and
are dependent on the actual supply on hand.
A table compiled from the local German press showing the average
weekly rations of principal foodstuffs in 24 representative towns
during the four weeks ending August 26, 1917, has been given in
Bulletin No. 242 (pp. 63, 64) of this bureau. Like data have been
compiled for the four weeks ending December 30, 1917, arid are
given in the table below. In many cases the rations shown in
the table are the maximum rations, the actual rations depend­
ing on the available supply. Hamburg professes to publish only
the actual rations available for distribution. Brunswick, on the
other hand, qualifies nearly every amount with the condition “if
sufficient supplies are in the hands of the authorities.” I t will be
noticed that for several towns the list is very incomplete. All
rations which could be obtained from the press were noted, but only
a few towns (Flamburg, Altona, Berlin, and Gladbach) publish com­
plete lists. In the case of all other towns the rations had to be taken
1 F ran k fu rte r Z eitung.


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Federal Reserve Bank of St. Louis

F ran k fo rt on th e Main, Feb. 3, 1918.

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

from announcements in the advertisement columns and elsewhere.
Naturally these announcements refer mainly to special distributions
of foodstuffs and not to staple foods. The table does not include
special supplementary rations for children, nursing mothers, and sick
people.
A V E R A G E W E E K L Y R A T IO N S O F P R IN C IP A L F O O D S T U F F S IN 23 R E P R E S E N T A T IV E
G ER M A N TO W N S F O R T H E F O U R W E E K S E N D IN G D E C E M B E R 30, 1917.
[Compiled from th e local G erm an papers. B lanks m ean th a t i t is n o t know n w hat (if any) rations are
given; in m an y cases, of course, th e re m a y he no ration of th e food in question. A star m eans th a t a
ratio n is know n to be given, b u t th e am o u n t is n o t stated.]

City.

Aix-la-Chapelle.................
A lto n a .................................
B erlin ............<...................
C harlotten b u rg ..........
Schöneberg.................
W ilm ersdorf...............
B rem en ...............................
B reslau................................
B runsw ick .........................
D resden ..............................
D ü re n ..................................
D üsseldorf...........................
Frankfort on th e M a in ...
G ladbach............................
H am burg (u rb a n )............
H am burg (ru ra l)..............
H a n o v er.............................
K ie l......................................
K refeld................................
L eipzig................................
M agdeburg.........................
M unich................................
S tu ttg a r t............................

City.

Aix-la-Chapelle.................
A lto n a .................................
B erlin ..................................
C harlotten b u rg ..........
Schöneberg.................
W ilm ersdorf...............
B re m e n ...............................
B reslau................................
B ru n sw ick .........................
D resden ..............................
D ü re n ..................................
D üsseldorf..........................
Frankfort on th e M a in ...
G ladbach............................
H am burg (u rb a n )............
H am burg (ru ra l)..............
11 an over .•...........................
K ie l......................................
K refeld................................
Leipzig................................
M agdeburg.........................
M unich................................
S tu ttg a r t.............................

B read.

Flour.

H ulled
barley. Groats. Grits.

Lbs. ozs, Ounces. Ounces. Ounces. Ounces.
4 6
If
1.75
1.75
3 15
3}
4 41
.87
4 41
.87
4 4-Ì
.87
1.09
4 4}
1.09
.87
4 4}
1
1.09
4 6
(*)
(*)
4 2}
(*)
(*)
4 6
1.09
2.19
3 13}
3 131.87
2.19
(*)
4 6
.87
4 31
4 4}
.70
2.19
(*)
21
3 15
2.6
1.75
3 13}
8. 75
4.37
4.37
(*)
1.09
(*)
4 6
1. 75
.87
4 4}
.87
.87

Fresh
m eat.

Sau­
sage.

Fish.

Ounces. Ounces. Ounces. Ounces.
7
1.75
0.87
7
3.50
8. 75
8. 75
.87
8. 75
8. 75
8. 75
1.09
8. 75
(*)
8. 75
7
1.75
7
1.75
.87
2. 62
6.12
.87
7
1. 75
.87
5. 25
3. 50
(*)
1.40
8. 75
1.05
7
2.19
7
7
1. 75

1.75
1.75
2.19

8. 75

8.75

Legu­
M ar­ E dible
B utter. garine.
Cheesy. Potatoes. Vege­ minous Sugar.
fat.
tables. prod­
ucts.

Eggs.

Average
number.
i
14


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

F arina­
ceous
foods.

1
1
1.

i
Ì
4

X
14
1

•I

2.19
1.75
1.05
1.05
1.05
1.05
1.75
(*)
2.80
.54
.54
1.05
.87
2. 27
2. 27
.54
1.18
2.62
2.19

1.09
1.09

1.05
1.75
1.75
1.75
1.75
1.05

4.37
4.37

2. 37
1.75
1.64
1.75
2.19

.87

Lbs. ozs.
7 10}
7
7
7
7
7
7
7
7

1fP10} 1 5to l0
in|
10}
10}
(*)
1}
10}
10}
8 7}
7 10}

7 10}
7 if
7 10}

2.10

3.85
1.09

1.53
2. 45
.44
1.09
1 Cabbage.

[1100]

.52
3. 50
2.19

Lbs.

7
7
7
7
7
7

10}

10}
10*
10}
10*
10}

6.12
6.12
8. 75

6.06
6.12
6.12

5.69
(*)

6.12
6.12
6.12
6.12

6.30
5.69
.70

6.12
6.12
6.12

(*)
6

.

12

5. 33

53

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

A V E R A G E W E E K L Y R A T IO N S O F P R IN C IP A L F O O D S T U F F S IN 23 R E P R E S E N T A T IV E
G ER M A N TO W N S F O R T H E F O U R W E E K S E N D IN G D E C E M B E R 30, 1917—Concluded.

City.

Aix-la-Chapelle......................
A ltona.................................... .
B erlin .......................................
C harlottenburg.............
Schöneberg.....................
W ilm ersdorf............
B rem en....................................
B reslau....................................
B runsw ick..............................
D resden ...................................
D ü re n ......................................
D üsseldorf...............................
F rankfort on the M ain ........
G ladbach .................................
H am burg (u rb an ).................
H am burg (ru ral)...................
H an o v er..................................
K ie l..........................................
K refeld.....................................
L eipzig.....................................
M agdeburg..............................
M unich....................................
S tu ttg a rt.................................


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Federal Reserve Bank of St. Louis

Artificial Sirup.
honey.

Jam .

Coffee
substi­
tu tes.

Soup.

Ger­
m an
tea.

Ounces. Ounces. Ounces. Ounces. Ounces. Ounces.
7
2.19
2.19
2.19
4.37
2.19
0.87
(*)
1.09
1.09
4.37
1.09
4.37
4.37
.87
. 56
4.37
2.19
5.69

H e av y workers.
Potatoes.
Lbs.

2

ozs.

Bread.
Lbs. ozs.

Ilf

6

(*)
3.27
1.31

2.19
(*)
1.09
4.37
1.09

6.30
4.37

6.12

2.19
3. 50
7
2.19
4.37
4.37
4.16
2.19
1.75

[1101]

(*)

3
/
2
\ to 3

4J
3'
A\

2.19
.44
.44
.87
. 75
1.09

8

2.19
3.93

1.75

2
3

.87

(*)
2.19
.6 5

Ilf
4h

1

6

1

8J

1 15i

LABOR AND THE WAR.

N A T IO N A L W A R LA B O R B O A R D —IT S P U R P O S E A N D F U N C T IO N S .

The War Labor Conference Board,1 appointed by the Secretary of
Labor to aid in the formulation of a national labor program, sub­
mitted its report under date of March 29, 1918. The recommenda­
tion made by this board is that there be created, for the period of the
war, a national war-labor board whose primary duty shall be to
handle all questions in dispute between employers and employees,
to the end that maximum production may be maintained.
This National War Labor Board has been formally created by the
President, who, in a proclamation issued on April 8, designated as
members thereof the same representatives of employers and em­
ployees who, together with ex-President William H. Taft and Frank
P. Walsh, as chairmen, representing the public interests, had com­
posed the War Labor Conference Board whose recommendation was
thus consummated. The President’s proclamation is as follows.2
Whereas, in January, 1918, the Secretary of Labor, upon the nomination of the presi­
dent of the American Federation of Labor and the president of the National Ind A trial Conference Board, appointed a War Labor Conference Board for the pur­
pose of devising for the period of the war a method of labor adjustment which would
be acceptable to employers and employees; and
Whereas said board has made a report recommending the creation for the period of
the war of a national war labor board with the same number of members as, and to
be selected by the same agencies, that created the War Labor Conference Board
whose duty it shall be to adjust labor disputes in the manner specified, and in
accordance with certain conditions set forth in the said report-; and
Whereas the Secretary of Labor has, in accordance with the recommendation con­
tained in the report of said War Labor Conference Board dated March 29, 1918,
appointed as members of the National War Labor Board Hon. William Howard Taft
and Hon. Frank P. Walsh, representatives of the general public of the United
States; Messrs. Loyall Z. Osborne, L. F. Loree, W. H. Van Dervoort, C. E. Michael,
and B. L. Worden, representatives of the employers of the United States; and
Messrs. Frank J. Hayes, W illiam L. Hutcheson, W illiam H. Johnston, Victor A.
Olander, and T. A. Rickert, representatives of the employees of the United States;
Now, therefore, I, Woodrow Wilson, President of the United States of America,
do hereby approve and affirm the said appointments and make due proclamation
thereof, and of the following for the information and guidance of all concerned:
The powers, functions, and duties of the National War Labor Board shall be: To
settle b y mediation and conciliation controversies arising between employers and
workers in fields of production necessary for the effective conduct of the war, or in

1

A n account of th e ap p o in tm en t of th is board appeared in th e M o n th ly R e v ie w for A pril, 1918,
pp. 103 to 105.
Official B ulletin, A pr. 10, 1918.

2

54


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

55

other fields of national activity, delays and obstructions which might, in the opinion
of the national board, affect detrimentally such production; to provide, b y direct
appointment or otherwise, for committees or hoards to sit in various parts of the
country where controversies arise and secure settlem ent b y local mediation and
conciliation; and to summon th e parties to controversies for hearing and action by
the national board in event of failure to secure settlem ent b y mediation and concilia­
tion.
The principles to be observed and the methods to be followed b y the national
board in exercising such powers and functions and performing such duties shall be
those specified in the said report of the War Labor Conference Board dated March
29, 1918, a complete copy of which is hereunto appended.
The national board shall refuse to take cognizance of a controversy between em ­
ployer and workers in any field of industrial or other a ctivity where there is by
agreement or Federal law a means of settlem ent which has not been invoked.
And I do hereby urge upon all employers and employees within the United States
the necessity of utilizing the means and methods thus provided for the adjustment
of all industrial disputes, and request that during the pendency of mediation or
arbitration through the said means and methods there shall be no discontinuance
of industrial operations which would result in curtailment of the production of war
necessities.
In witness whereof I have hereunto set m y hand and caused the seal of the United
States to be affixed.
Don© in the District of Columbia, this eighth day of April, in the year of our Lord
one thousand nine hundred and eighteen, and of the independence of the U nited
States the one hundred and forty-second.

The following is the text of the report of the War Labor Conference
Board as submitted to the Secretary of Labor on March 2 9 :1
Hon. W il l ia m B. W i l s o n ,
S e c r e ta r y o f L a b o r .

S ir : The commission of representatives of employers and workers, selected in accord
with the suggestion of your letter of January 28, 1918, to aid in the formulation in
the present emergency of a national labor program, present to you as a result of
their conferences the following:
(a) That there be created for the period of the War a National War Labor Board
of the same number and to be selected in the same manner and b y the same agencies
as the commission making this recommendation.
( b) That the functions and powers of the national board shall be as follows:
1. To bring about a settlem ent, by mediation and conciliation, of every controversy
arising between employers and workers in the field of production necessary for th e«
effective conduct of the War.
2. To do the same thing in similar controversies in other fields of national activity;
delays and obstructions in which may, in the opinion of the national board, affect
detrimentally such production.
3. To provide such machinery, b y direct appointment or otherwise, for selection
of committees or boards to sit in various parts of the country where controversies arise
to secure settlem ent b y local mediation and conciliation.
4. To summon the parties to the controversy for hearing and action by the national
board in case of failure to secure settlem ent by local mediation and conciliation.
(c) If the sincere and determined effort of the national board shall fail to bring
about a voluntary settlement, and the members of the board shall be unable unani­
mously to agree upon a decision, then and in that case, and only as a last resort, an


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i Official B ulletin, A pr. 1, 1918.

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

umpire appointed in the manner provided in the next paragraph shall hear and
finally decide the controversy under simple rules of procedure prescribed by the
national board.
(d) The members of the national board shall choose the umpire b y unanimous vote.
Failing such choice, the name of the umpire shall be drawn b y lot from a list of 10
suitable and disinterested persons to be nominated for the purpose by the President
of the United States.
(e) The national board shall hold its regular meetings in the city of Washington,
with power to meet at any other place convenient for the board and the occasion.
(/) The national board may alter its methods and practice in settlem ent of contro­
versies hereunder from tim e to tim e as experience may suggest.
(.g) The national board shall refuse to take cognizance of a controversy between
employer and workers in any field of industrial or other a ctivity where there is by
agreement or Federal law a means of settlem ent which has not been invoked.
(.h) The place of each member of the national board unavoidably detained from
attending one or more of its sessions may be filled by a substitute to be named by
such member as his regular substitute. The substitute shall have the same repre­
sentative character as his principal.
(i) The national board shall have power to appoint a secretary and to create such
other clerical organization under it as may be in its judgment necessary for the dis­
charge of its duties.
O') The national board may apply to the Secretary of Labor for authority to use
the machinery of the department in its work for conciliation and mediation.
(k) The action of the national board may be invoked in respect to controversies
within its jurisdiction b y the Secretary of Labor or b y either side in a controversy
or its duly authorized representative. The board, after summary consideration, may
refuse further hearing if the case is not of such character or importance to justify it.
(l) In the appointment of committees of its own members to act for the board in
general or local matters, and in the creation of local committees, the employers and
the workers shall be equally represented.
(to) The representatives of the public in the board shall preside alternately at
successive sessions of the board or as agreed upon.
(n) The board in its mediating and conciliatory action, and the umpire in his con­
sideration of the controversy, shall be governed by the following principles:
There should be no strikes or lockouts during the War.
1. The right of workers to organize in trade-unions and to bargain collectively
through chosen representatives is recognized and affirmed. This right shall not be
denied, abridged, or interfered with b y the employers in any manner whatsoever.
2. The right of employers to organize in associations of groups and to bargain col­
lectively through chosen representatives is recognized and affirmed. This right shall
not be denied, abridged, or interfered with b y the workers in any manner whatsoever.
3. Employers should not discharge workers for membership in trade-unions, nor
for legitimate trade-union activities.
4. The workers in the exercise of their right to organize shall not use coercive
measures of any kind to induce persons to join their organizations, nor to induce
employers to bargain or deal therewith.
1. In establishments where the union shop exists the same shall continue and the
union standards as to wages, hours of labor, and other conditions of employment
shall be maintained.
2. In establishments where union and nonunion men and women now work together,
and the employer meets only with employees or representatives engaged in said
establishments, the continuance of such condition shall not be deemed a grievance.
This declaration, however, is not intended in any manner to deny the right or dis-


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

57

courage the practice of the formation of labor unions, or the joining of the same by
the workers in said establishments, as guaranteed in the last paragraph, nor to prevent
the War Labor Board from urging, or any umpire from granting, under the machinery
herein provided, improvement of their situation in the jn atter of wages, hours of
labor, or other conditions, as shall be found desirable from tim e to time.
3.
Established safeguards and regulations for the protection of the health and
safety of workers shall not be relaxed.
If it shall become necessary to employ women on work ordinarily performed by
men, they must be allowed equal pay for equal work and must not be allotted tasks
disproportionate to their strength.
The basic eight-hour day is recognized as applying in all cases in which existing
law requires it. In all other cases the question of hours of labor shall be settled with
due regard to governmental necessities and the welfare, health, and proper comfort
of the workers.
The maximum production of all war industries should be maintained, and methods
of work and operation on the part of employers or workers which operate to delay or
lim it production, or which have a tendency to artificially increase the cost thereof,
should be discouraged.
For the purpose of mobilizing the labor supply with a view to its rapid and effective
distribution, a permanent list of the number of skilled and other workers available in
different parts of the Nation shall be kept on file by the Department of Labor, the
information to be constantly furnished:
1. By the trade-unions.
2. By State employment bureaus and Federal agencies of like character.
3. B y the managers and operators of industrial establishments throughout the
country.
These agencies should be given opportunity to aid in the distribution of labor,
as necessity demands.
In fixing wages, hours, and conditions of labor regard should always be had to the
labor standards, wage scales, and other conditions prevailing in the localities affected.
1. The right of all workers, including common laborers, to a living wage is hereby
declared.
2. In fixing wages, minimum rates of pay shall be established which will insure
the subsistence of the worker and his family in health and reasonable comfort.
F r a n k J. H a y e s .
L o y a l l A. O s b o r n e .
Wm . L. H u t c h e s o n .
L. F. L o r e e .
T h o m a s J. S a v a g e .
W. H. V a n D e r v o o r t .
V i c t o r A. O l a n d e r .
C. E. M i c h a e l .
T . A. R i c k e r t .
B. L. W o r d e n .
F r a n k P. W a l s h .
W m . II. T a f t .

At the conclusion of the deliberations of the War Labor Conference
Board the following statement was issued by ex-President Taft:
I am profoundly gratified that the conference appointed under the direction of
Secretary Wilson has reached an agreement upon the plan for a National Labor Board
to maintain maximum production by settling obstructive controversies between
employers and workers. It certainly is not too much to say that it was due to the
self-restraint, tact, and earnest patriotic desire of the representatives of the employers
and the workers to reach a conclusion. I can say this with due modesty, because I was
not one of such representatives. Mr. Walsh and I were selected as representatives
of the public. Personally it was one of the pleasant experiences of my life. It brought
me into contact with leaders of industry and leaders of labor, and my experience gives
me a very high respect for both. I am personally indebted to all of the board, but


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58

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 .

especially to Mr. Walsh, with whom, as the only other lawyer on the board, it was
necessary for me to confer frequently in the framing of the points which step by step
the conference agreed td. Of course, the next question is “ WTill our plan work?”
I hope and think it will, if administered in the spirit in which it was formulated and
agreed upon.

In a statement issued at the same time Frank P. Walsh said:
The plan submitted represents the best thought of capital and labor as to what the
policy of our Government with respect to industrial relations during the War ought
to be. Representing capital were five of the largest employers in the Nation, but
one of whom had ever dealt w ith trade unions, advised and counseled by ex-President
Taft, one of the world’s proven great administrators and of the very highest American
type of manhood. The representatives of the unions upon the board were the national
officers of unions engaged in war production and numbering in their ranks considerably
over 1,000,000 men and women.
The principles declared might be called an industrial chart for the Government,
securing to the employer maximum production and to the worker the strongest
guaranty of his right to organization and the healthy growth of the principles of
democracy as applied to industry as w ell as the highest protection of his economic
welfare w hile the war for human liberty everywhere is being waged. If the plan
is adopted by the Government, I am satisfied that there will be a ready and hearty
acquiescence therein by the employers and workers of the country, so that the volume
of production may flow with the maximum of fruitfulness and speed. This is abso­
lutely essential to an early -victory. The industrial army, both planners and workers,
which are but other names for employers and employees, is second only in importance
and necessity to our forces in the theater of War. Their loyal cooperation and en­
thusiastic effort will win the War.

U N IT E D S T A T E S E M P L O Y M E N T S E R V IC E C O N S E R V IN G F A R M LABO R.

During the agricultural season of 1917 farm laborers from the
United States were recruited by the Canadian Government under an
agreement entered into between the two Governments permitting
free passage across the line. Many Canadian Government agents
were in the field soliciting agricultural workers, the laborers being
paid railroad fare to their places of employemnt and very liberal
wages while working on the farms. In order to protect American
farmers against this competition, a new arrangement has been made
between the Canadian Government and the United States Depart­
ment of Labor, based on last year’s agreement but with an important
exception noted in the following statement issued by the United
States Department of Labor:
“At the beginning of the present season officials of the Canadian
Government called upon the Department of Labor at Washington to
propose a renewal of the previous year’s agreement. The agreement
was renewed, but a provision was inserted, at the suggestion of the
United States Employment Service, under which the Canadian Gov­
ernment will not place recruiting forces in the field this year and
instead will rely on supplies of surplus farm labor which will be sent

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

59

through offices of the United States Employment Service after the
demands of American farmers have been met.
“Under the agreement above referred to the Canadian Government
is advertising through a number of publications in the Middle West,
asking that farm workers apply at United States Employment
Service offices for opportunity. This advertising itself carries the
agreed statement that farm labor will not be directed to Canada until
local needs have been supplied, and this policy will be carried out by
the United States Employment Service.”

S E C O N D R E P O R T O N J O IN T S T A N D IN G IN D U S T R IA L C O U N C IL S , G R E A T
B R IT A IN .
[From T h e L ab o u r Gazette of th e M inistry of Labor, G reat B ritain, M arch, 1918. ]

The Second Report on Joint Standing Industrial Councils, which has
been prepared by the Committee on Relations between Employers and
Employed, has now been published.1 This report deals especially
with industries in which organization on the part of employers and
employed is less completely established than in the industries covered
by the previous report 2 and with industries in which such organi­
zation is weak or nonexistent.
For convenience of consideration the committee have divided the
industries of the country into three groups:
Group A .—Consisting of industries in which organization on the
part of employers and employed is sufficiently developed to render
their respective associations representative of the great majority of
those engaged in the industry.
Group B .—Comprising those industries in which, either as regards
employers and employed, or both, the degree of organization, though
considerable, is less marked than in Group A.
Group C.—Consisting of industries in which organization is so im­
perfect, either as regards employers or employed, or both, that no
associations can be said adequately to represent those engaged in the
industry.
In the more highly organized industries (Group A) the committee
have, in their first report, proposed a triple organization of national,
district, and workshop bodies. In industries where there are repre­
sentative associations of employers and employed, which, however,
do not possess the authority of those in Group A industries, they
now propose that the triple organizations should be modified by
attaching to each National Industrial Council one or at most two
1 Cd. 9002.

Price Id.

2 R eprinted in B ulletin 237 of th e IT. S. B u reau of L abor Statistics, In d u strial U nrest in Great B ritain,

pp. 229-237.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

representatives of the Ministry of Labor to act in an advisory
capacity. In industries in both Groups A and B they propose that
unorganized areas or branches of an industry should be provided,
on the application of the National Industrial Council and with the
approval of the Ministry of Labor, with trade boards for such areas
or branches, the trade boards being linked with the industrial council.
In industries having no adequate organization of employers or
employed, it is recommended that trade boards should be continued
or established, and that these should, with the approval of the
Ministry of Labor, be enabled to formulate a scheme for an industrial
council which might include in an advisory capacity the 11appointed
members ” of the trade board.
Briefly, the proposals are that the extent of State assistance should
vary inversely with the degree of organization in industries. The
committee do not, however, regard Government assistance as an
alternative to the organization of employers and employed. On the
contrary, they regard it as a means of furthering the growth and
development of such organization.
The proposals which are set forth do not require legislation except
on three points, namely, to provide: (1) That the trade boards shall
have power, in addition to determining minimum rates of wages,
to deal with hours of labor and questions cognate to wages and hours;
(2) that the trade boards shall have power to initiate inquiries and
make proposals to the Government departments concerned on mat­
ters affecting the industrial conditions of the trade, as well as on
questions of general interest to the industries concerned respectively;
(3) that when an industrial council sufficiently representative of an
industry makes application, the Minister of Labor shall have power,
if satisfied that the case is a suitable one, to make an order institut­
ing for a section of the industry a trade board on which the industrial
council shall be represented, or constituting the council a trade
board under the Trade Boards Act.
The committee remark that their proposals must necessarily be
adapted to meet the varying needs and circumstances of different
industries, and do not anticipate that there will be uniformity in
practice. Their recommendations are intended merely to set forth
the main line of development believed to be essential to insure better
relations between employers and employed. The application of the
recommendations to the several industries can, the committee assert,
be safely left to those intimately concerned, with the conviction that
the flexibility and adaptability of industrial organizations which
Lave been so large a factor in enabling industry to stand the enormous
strain of the war will not fail the country when peace returns.


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In a prefatory note it is stated that this report is now receiving
the joint consideration of the Minister of Reconstruction and the
Minister of Labor in the light of the practical experience which has
been gained in establishing joint industrial councils in accordance
with the proposals of the first report. A statement will shortly be
published with regard to any modification of the recommendations
of this second report which may be considered expedient from the
administrative point of view.
W O M E N A G R IC U L T U R A L W O R K E R S IN G R E A T B R IT A IN .

An important report on “ Industry and Finance—War Expedients
and Reconstruction” 1 has recently been published under the au­
thority of the council of the British Association for the Advance­
ment of Science. Following is a summary of one of the most interest­
ing contributions to this document—the chapter dealing with women
workers in agriculture :
When war conditions brought about a shortage of “ pickers” and
later on of male agricultural laborers, it was difficult to get women
to fill their places as there was a strong prejudice, among both women
and farmers, against women working on the land. The public mind
associated such work with the evils of casual labor, with a poor class
of workers, and a low state of progress. This attitude has been over­
come to a considerable extent as a result of “ the patriotism of the
educated woman, who threw herself into the breach with spirit and
self-sacrifice, demonstrating the possibilities of women’s work on the
land both by precept and example.”
The employer has found the new type of woman workers, in general,
more conscientious and intelligent than the customary worker, and
this has created a favorable impression even when the inexperience
of these women results in less rapid work. Educated women are
in demand as farm hands, and there are often refusals to take any
other type. The supply of such women is, of course, very limited.
The placing of women on the land proceeded very slowly during
the first months of the war. In 1915, however, a movement was
started at the instigation of the Board of Agriculture to organize
women’s agricultural committees or farm labor committees through­
out England and Wales. At the close of 1916 most counties had
committees of this kind. The Board of Trade’s women agricultural
officers and the sole woman officer of the Board of Agriculture, at
that time appointed, kept in touch with these committees, visiting
and encouraging them.
1 In d u stry a n d Finance—W ar E xpedients a n d R econstruction, edited b y A. W . K irkaldy.
(1917). 371pp.

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Toward the close of 1916 there were 4,000 registrars and some 1,000 district repre­
sentatives, and thousands of public meetings had been held for the purpose of con­
vincing the farmer and the village woman of the necessity of using her labor on th e
land. There is no doubt th a t this organization accounts largely for the great increase
in local labor which undoubtedly took place in 1916.

Despite various efforts of a number of organizations, the finding
and placing of women for permanent work on the land did not go
forward rapidly.
This was partly due to the natural difficulties of the position and a little, perhaps,
to a certain prejudice against labor exchanges. This was evidenced by the better
results often obtained by a voluntary organization such as the Women's Land Service
Corps (State aided) and by the direct work of placing, beginning to be carried on
by the women’s war agricultural committees.
At the beginning of 1917 a great impetus was given to the movement by the formula­
tion of a scheme for the more extensive recruiting and training of women on a national
basis. At the same time, the task of developing and extending the work of the
women’s war agricultural committees was undertaken by th e Board of Agriculture,
thus linking their work more closely with th a t of the county war agricultural com­
mittee (composed almost entirely of men), which worked under the auspices of the
Board of Agriculture, and upon whose executives had been conferred very wide
statutory powers.
The work of both these committees is now controlled by the new Department of
Food Production, the work of the women’s war agricultural committee being directed
from the women’s branch of the Board of Agriculture.
In March, 1917, the energies of the women’s organization became concentrated on
the effort to secure for the land a permanent body of women who should undertake
service for the duration of the War under semimilitary conditions of mobilizing, etc.,
and be guaranteed to the farmer as strong and medically fit, having been in all cases
selected with considerable care and, when necessary, trained in farm work for at
least a month. In return for this, the farmer is expected to pay a minimum wage
of 18s. ($4.38) per week or the current rate of the district, which ever is the highest.
The scheme was launched under national service, the actual work of receiving
applications and calling up volunteers being carried out by the Minister of Labor.
The first members of the Women's Land Army were placed in employment about
the beginning of May, and by the end of July more than 5,000 had been chosen from
some 40,000 volunteers and enrolled for land service.

The replacement of men by women has been more direct in agri­
culture than in other industries, agricultural work being more
individual and there being little opportunity under present circum­
stances for bringing about the adjustments and modifications which
have been made in factories to adapt the tasks to women’s strength.
S e l e c t i o n . —References, medical examinations, and interviews weed out the un­
suitable volunteer at the outset; the period of training reveals cases of unsuitability;
and, finally, the exigencies of actual employment test the strength of character and
physique more than some are able to stand. Of some 20,000 applicants who had
appeared before the selection and allocation committees up to September, only
about one-third, viz, 6,500, therefore, were accepted. The great majority—nearly
5,000—required training, but about 1,500 were placed directly on the land.
T r a i n i n g .—There are two methods of training—
(a ) That which may be regarded as a system of apprenticeship, whereby the volun­
teer, who has some knowledge of land work, is placed with an employer, who receives


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lier services free for three weeks, during which time she gains in knowledge and he
instructs her in his own special methods. At the end of this time he takes her into
ordinary employment a t not less than 18s. [$4.38] per week. During- apprenticeship
the girl is maintained by the Government, as a bursar, at a cost not exceeding 15s.
[$3.65] a week.
(b ) That which is carried out by the board of agriculture at its special training
centers, or by arrangement at certain agricultural colleges and farm institutes, or on
private practice farms. The cost of this training with maintenance must not exceed
25s. [$6.08] per head per week for four weeks; and, in practice, varies from 15s.[$3.85j
to 25s. [$6.08] and is very commonly carried out for 20s. [$4.87] or 21s. [$5.11].

In tlie beginning the training was generalized, but efforts are now
being made to standardize the reports of instruction, etc., by estab­
lishing special tests. When the training exceeds four weeks, 4s.
[97 cents] per week in addition to maintenance are granted to the
trainee.
P l a c i n g .—The greatest care is taken to insure the maximum of safety and comfort
for the worker on the land. A member of the organization is required to inspect
and guarantee the place of employment and the place of lodging before a national
service volunteer is allocated to it, and when placed, a welfare supervisor keeps
in touch with her.

To avoid winter unemployment preparations were made to pro­
vide land workers for timber work, hay-baling, tree-pruning, etc.
In some sections there are so few cottages that the housing problem
is acute. In most cases the farms are too scattered for the use of
hostels for permanent workers. Women can seldom be put in the
lodgings formerly occupied by men farm hands, and often where there
are suitable accommodations the cottagers will not take in women
land workers on account of the extra domestic burdens involved.
The conclusion is reached that “ it may become necessary to put in
force the compulsory billeting bill.”
Wages.—Although in general the guaranteed minimum wage of
18s. ($4.38) per week is not difficult to secure, the cost of subsistence
is so high that it is practically impossible for the worker to maintain
herself decently.
The following statement is made in this connection:
I t is very much to be desired that the minimum should be raised at an early date.
The present low rate of pay militates heavily against securing a sufficient number
of suitable land workers, and it is very probably one of the chief reasons why not
more than half of the original volunteers follow up their cards by appearing before
a selection committee. * * * except for the comparatively few able women and
willing to offer sacrifice on the altar of patriotism, food production must depend upon
workers drawn from the less intelligent and less fit residue. This is, of course, only
the current feminine aspect of the dire consequences of th e wage disability under
which agriculture has labored for so many years.
Since the establishment of the minimum wage, members of the Women’s War
Agricultural Committee in some counties have found it necessary to counteract its
lowering effect by insisting—often with the ready collaboration of the farmers—upon


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the payment of a minimum initial wage exceeding by at least 5s. [$1.22] per week
the cost of maintenance. This generally necessitates a payment of 20s. [$4.87] or
21s. [$5.11] per week. The most profitable arrangement is undoubtedly th at whereby
the worker lives in, and is paid in addition a wage varying from 5s. [$1.22] to 10s.
[$2.43] per week. As the Government supplies free outfit, free travel, and mainte­
nance during a limited period of unemployment to the members of the Women’s
Land Army, they are just able to keep going. I t should be noted th at many of the
more skilled and experienced workers are able to secure 25s. [$6.08] or even 35s.
[$8.52] per week.

Among the higher type of volunteers it is clear that in addition to
the earnest desire for patriotic service, “ many feel the call of the land.”
It is not unusual to hear a worker declare, after experiencing for some
time the real hardships of agricultural toil, that she would not under
any circumstances return to her old life—it may be, that of a West End
showroom girl.
Although the work of 1917 has resulted in adding to the ranks of
agricultural labor a body of women with some claims to being skilled,
it can not be definitely concluded that local labor was increased or
improved during that year.
The farmer is still much in need of reliable seasonal help, which at the moment is
supplied sporadically and unequally by soldiers, school children, and, more rarely,
by prisoners.
The situation indicates that local labor still needs stimulating to the full and sup­
plementing by gangs of imported women available as required and at short notice.
On the other hand, there is not wanting signs of willful neglect of available and much
needed labor to the great detrim ent of crops.

It may be reasonably expected that women “ will constitute a per­
manent element on the land both at home and in our colonies as
workers and wives under new and better conditions. War demands
are doing away with the stigma attached to agricultural labor for
women and are indicating the place women should hold “ in the more
highly skilled and intensive cultivation of the future.”
LABO R R E S E T T L E M E N T C O M M IT T E E , G R E A T B R IT A IN .
[From th e L abour G azette of th e M inistry of Labor, G reat B ritain, M arch, 1918.]

The minister of labor has set up a committee, to bo known as the
Labor Resettlement Committee, to advise him on the problems aris­
ing out of the demobilization of the forces. The questions which will
be referred to it include not only those connected with the resettle­
ment of soldiers and sailors in civil life, hut also those connected with
the disbandment of munition workers, inasmuch as the restarting of
industry after the War demands that these two sets of questions
shall be treated on uniform lines. All schemes devised for dealing
with these questions will be referred to the committee for their con
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sidération and advice before they are put into operation, and the com­
mittee will be closely associated with their administration. By this
means the minister hopes to secure the cooperation of employers and
trades-unions with the Government, which he regards as an essential
condition for success. The committee’s terms of reference are as
follows :
To advise the Ministry of Labor on the resettlement of labor consequent upon the
demobilization of the forces and the discharge of workers owing to the cessation of
work connected with the war.

The first meeting of the committee took place on March 12.
The minister of labor, who presided, in opening the proceedings
said that it was a m atter of great satisfaction to him that he had been
able to gather such a powerful and representative committee, repre­
senting as it did the employers and workpeople of the principal
industries of the country as well as great associations like the Par­
liamentary Committee of the Trade-Union Congress, the Federation
of British Industries, and the Associated Chambers of Commerce,
which were closely concerned with all the general questions affecting
industry as a whole. They would also have the assistance of the
departments of State affected, such as the Admiralty, War Office,
and Ministry of Munitions, which would enable them to obtain readily
full information as to the position as far as the Government was con­
cerned in regard to the Navy, Army, and civil workers. He felt
that if his department was going to discharge successfully the onerous
task which had been placed upon it by the War Cabinet of resettling
into civil life the millions of men who were now fighting for us, and
those other millions of men and women who were engaged in the
production of munitions and in other essential services connected
with the War, it would be necessary for them to be able to seek at
every stage the advice of a body such as the committee before him,
who would be competent to speak on behalf of industry. I t was,
therefore, his intention to avail himself to the fullest extent of the
committee’s services and to associate them very closely with the
administrative work which the department would have to carry out.
He could not, of course, devolve upon them the responsibility to
Parliament and the country for the measures which would have to
be adopted, but he did intend to ask them to share that responsi­
bility with him to some extent by placing all those measures before
them for their consideration and advice before they were adopted.
He was afraid that when the time for resettlement arrived he might
have to make considerable calls on the members of the committee,
but he felt sure that they would agree with him in thinking that no
task wTas more important for the future of industry and the country
than that of restoring normal conditions as quickly and as early as


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possible after the War. He felt that the War would have been
largely fought in vain unless it produced a better state of society, in
which the advantages of leisure and education were more equally
and justly distributed throughout the whole population, but in
order to bring* this state of affairs about it was necessary to restore
the prosperity of industry, which would largely depend on the suc­
cess which attended the committee’s labors.
Turning to the subjects with which the committee would be called
upon to deal, he pointed out that there were two sets of questions
which they would have to consider, though they constituted a single
problem. First, there was the resettlement of sailors and soldiers
to civil life, and secondly the resettlement of those who had been
engaged in war industries. As regards the former, a subcommittee
of the Reconstruction Committee had examined the matter with
great care and they would be asked to consider the scheme which
that committee recommended for adoption. He thought they
would agree that the committee’s work had been done well and that
they had studied the question with great thoroughness. As regards
civil workers, another committee appointed by the Reconstruction
Department had been considering their case and are submitting two
reports, which would shortly be laid before them. The question of
the civil worker he regarded as being more difficult even than that
of the soldier and sailor. Recent events, of which the committee
would be aware, in connection with discharge of a certain number of
munition workers, had brought this question up already in a concrete
form. The position arising from these discharges, whether as regards
the total numbers discharged or the prospect of finding fresh work,
was not of a nature that need cause alarm, but it should be carefully
watched, and he proposed to ask the committee to appoint a sub­
committee whose function it would be to keep the matter under
review.
Among the most important subjects for consideration by the com­
mittee would be the arrangements for providing out-of-work pay for
ex-service men and others who were unemployed. In the case of
ex-service men it was proposed to give a month’s furlough with full
pay and allowances, to be followed by a free policy of insurance
against unemployment which would be valid during the succeeding
year. The precise amount of the weekly rate of benefit was not yet
settled, but it was proposed that it should be possible to draw benefit
up to a total of 20 weeks during the year. The majority of civil war
workers were already insured against unemployment, but the rate of
benefit in their case was only 7s. ($1.70) a week, and though this was
in many cases supplemented by voluntary insurance through tradeunions, the amount was clearly inadequate for any prolonged period


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of unemployment. Tlie best method of dealing with this difficulty
and also of providing for the workpeople who were not at present
covered by insurance was receiving careful consideration.
There was, further, the question of the machinery by which the
schemes adopted were to be administered. The Government had
decided that the work would have to be largely carried out by the em­
ployment exchanges, which were the only national organization capable
of coping with the problem. We possessed a great advantage in hav­
ing the organization of the employment exchanges ready to hand.
He did not think, however, that the exchanges, or indeed any piece
of official machinery, could carry out the task unaided. They, like
the ministry itself, would need the constant advice and cooperation of
the employers and workpeople in their districts. In order to secure
this he and his predecessor had undertaken the formation of local
advisory committees consisting in the main of an equal number of
employers’ and workpeople’s representatives who would be asso­
ciated with the work of the exchanges. Some 250 of these committees
were already in working order and some of them had performed very
valuable work, especially in the direction of finding employment for
disabled men. Through the agency of these committees he hoped
that the exchanges would be able to ascertain the demand for labor
in their districts and to secure the cooperation of the local branches
of the trade-unions in meeting it. He was sure that in order to obtain
the best results it was necessary to utilize the trade-union organization
to the fullest extent. He knew that some trade-unionists did not
like using the exchanges, but he also knew many others who did, and
he hoped that by a free interchange of information between the ex­
change and the local branches of the trade-unions through the latter’s
representatives on the local advisory committees it would be possible
to deal successfully with these men. In other words, his view was
that every scrap of machinery suitable for the purpose ought to be
used in order to carry out the work of resettlement as smoothly and
easily as possible, and he hoped that the committee would be able to
give him very useful advice as to how coordination could best be se­
cured over the whole field of industry.
There was another class of questions connected with resettlement
which would have to be dealt with on a basis of industry. An impor­
tant part of the scheme so far as the army was concerned was the
classification of the various trades of the country according to their
national importance and the immediate prospects of employment
which they offered. In order to deal with this very difficult problem
the Government would require the most complete and up-to-date
information about the prospects as regards raw materials, financial
facilities, and employment in all the principal industries. Again,


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there were questions such as the arrangements for reinstating soldiers
and munition workers in the industries from which they have gone,
the arrangements in regard to substitutes who have been introduced
in their places, the arrangements necessary to enable men whose
apprenticeship or training had been interrupted by military service to
resume their instruction so that they might become qualified as fully
skilled men. All these were very difficult problems which could only
be settled by each industry for itself, and it was in connection with
these questions among others that the Government hoped to obtain
very substantial assistance from the joint industrial councils which
were in process of being set up in various industries, and the interim
joint reconstruction committees which the Ministry of Reconstruction,
the Board of Trade, and the Ministry of Labor were collaborating to
bring into being in those industries which were not ready for the
immediate formation of industrial councils. It was essential that
these difficult questions to which he had referred should be carefully
considered beforehand by joint bodies fully representative of the
employers’ organizations and the trade-unions in every important
industry.
BILL FOR THE CREATION OF LABOR BOARDS IN GERMANY.1

The various federations of German trade-unions and of salaried
employees have joined in laying before the Federal Council (Rundesrath) and the Reichstag the draft of a law for establishing
labor boards which will come up for discussion during the present
session of the Reichstag. Enactment of the bill seems assured as
the new imperial chancellor, Count von Hertling, before taking
office, had pledged the Government’s support of the bill.
The proposal of establishing labor boards is by no means new. A
bill creating such boards was submitted to the Reichstag by several
parties in 1910, but on its second reading failed of passage, owing to
the opposition of the Federated Governments to the role assigned in
the bill to the workmen’s secretariats. Since then various new
considerations have made it seem expedient to abandon the bill of
1910 and to draft a new bill. First, the bill of 1910 provided for
the creation of labor boards on purely occupational lines. In view,
however, of the growth of occupational organizations of workmen
and salaried employees and of the general recognition accorded to
them the interest in occupational representation of the workmen
has greatly diminished, while the need for general territorial repre­
sentation of the workmen' which guarantees comprehensive safe­
guarding of the general social interests of all occupational groups
1 Correspondenzblatt der G eneralkom mission der Gewerkschaften D eutschlands. Vol. 27, No. 49.
Berlin, Dec. 8,1917.


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lias become more urgent. Second, there arose the necessity to
enable the proposed labor boards to represent labor interests proper,
because otherwise the workmen and salaried employees would be at
a disadvantage as compared with the employers, to whom the legis­
lation has already given official representation in the form of cham­
bers of commerce, chambers of handicrafts, and chambers of agri­
culture. Third, the experiments made during the war have taught
the workmen that it does not suffice to charge labor boards with the
maintenance of industrial peace as an ideal, but that this task
requires legal regulation and creation of positive institutions for
which the arbitration boards and workmen’s committees of the
national auxiliary service law may serve as suitable models.
The central organizations of the federations of trade-unions and
of salaried employees have therefore themselves undertaken the
task of rewriting the bill of 1910 in a manner corresponding to the
interests of the wageworkers represented by them. The accom­
plishment of this task was not easy, for the conceptions as to the
scope of the bill already diverged on the main question as to whether
the creation of labor boards or of workmen’s chambers is to be
demanded. The Christian and Hirsch-Duncker trade-unions were
bound by the resolutions of their congresses to equipartisan repre­
sentation of employers and workmen in the proposed boards, while
the socialist free trade-unions (Freie Gewerksdiafien) at their congress
in Cologne in 1905 had voted with two-thirds majority in favor of
workmen’s chambers proper. As a bill for the creation of work­
men’s chambers proper had no prospects of enactment this last fact
would not have prevented the Social-Democratic Party in the
Reichstag from voting for a law creating labor boards, provided
such a lav/ would have given to the working classes suitable legal
representation with sufficient authority and rights. At the present
time the enactment of a bill giving legal representation to labor in
the form of equipartisan boards seems possible, wdiile a bill creating
workmen’s chambers proper would not even pass the Reichstag.
This outlook caused the general commission of the free trade-unions
in agreement with the other central organizations to formulate their
bill in such a manner that it will suit the representatives of em­
ployers’ interests while at the same time it safeguards the interests
of the workmen and salaried employees. The bill recently sub­
mitted to the Reichstag contains 48 sections, based mainly on the
bill of February 11, 1910, and on a later bill submitted by Repre­
sentative Mumm on November 30, 1915, but containing several
novel proposals. Owing to the length of the bill only its principal
provisions can be given here.


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The bill provides for the creation of labor boards for the safe­
guarding of the common industrial and economic interests of em­
ployers and workmen and of the special interests of workmen. It
gives the boards a legal character. They are to be created for the
district of one or several administrative authorities. Special work­
men’s divisions for the safeguarding of workmen’s interests are to be
formed in all labor boards and in their vocational sections. These
divisions shall be composed only of representatives elected by the
workmen.
The special tasks assigned to the labor boards and their sections
are the following:
1. To promote mutually beneficial relations between employers and
employees.
2. To aid the State and municipal authorities in the promotion of
the economic and industrial interests of both employers and em­
ployees through the communication of facts and the rendering of
opinions; to participate on request of these authorities in investiga­
tions of industrial and economic conditions in their district ; to render,
in particular, opinions as to the issuance of regulations in pursuance
of articles 105b, paragraphs 2 and 3; 105d, 105e, paragraph 1; 120,
120e, 128, 139a, 139c to 139m; 154, paragraph 4, of the Industrial
Code; article 62 of the Commercial Code, and of mining regulations
having as their aim the protection of the lives, health, and morality
of the workmen; further, to render opinions as to the local customs
for the interpretation of contracts and the compliance with obliga­
tions between employers and employees.
3. To discuss demands and proposals which relate to employers’
or employees’ industrial or economic interests.
4. To set on foot institutions and measures which aim at the pro­
motion of the general welfare of employees, and, on request of the
representatives of such institutions, to participate in their admin­
istration.
5. To cooperate in the regulation of the system of mercantile and
trade apprenticeship and vocational education and to cooperate in
the school administration.
6. To promote the conclusion of collective and minimum-wage
agreements through collection of material relating thereto.
7. To create trade boards for the home industries and to promote
their activity through regulation of working and wage conditions.
8. To promote free employment exchanges.
9. To promote the procuring of employment for war invalids.
10. To appoint experts on request of the authorities.
The bill also authorizes the labor boards to undertake independently
investigations as to the industrial and economic conditions in their


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district and to give legal force to wage schedules fixed by the trade
boards for home industries.
The divisions for workmen within the labor boards are assigned the
following duties:
1. To discuss demands and proposals of the workmen and to pre­
pare such proposals for discussion by the labor board or its sections.
2. To make investigations required therefor as to the amount of
wages and their relation to the cost of living and as to hours of labor.
3. To render independently opinions if required and to make pro­
posals to authorities, communal unions, and the legislatures of the
Federal States and of the Empire.
According to the bill submitted by the trade-unions the labor
boards are not to be founded on a vocational but a territorial basis;
but they are to contain vocational sections, among them being those
for agriculture and forestry, and for technical and mercantile salaried
employees. Government and municipal works are included in the
scheme.
This radical alteration of organization, in comparison with that of
the older schemes, seems to be contemplated chiefly because it makes
possible the incorporation in it of a conciliation board conceived on
broad lines, which is desired under the trade-union scheme when the
national auxiliary service law ceases to be in force. In this direction
the following proposals are made in the bill under discussion: The
compulsory formation of workmen’s and salaried employees’ com­
mittees is to remain in force and is extended to all establishments
employing at least 20 workmen or salaried employees. The bill
assigns to these committees essentially the same tasks as are assigned
to the workmen’s committees in the auxiliary service law. Should
no agreement be arrived at in case of differences arising between the
workmen’s or salaried employees’ committee and the management
of an establishment, or should no such committee exist a conciliation
board provided for in the bill intervenes. The chairman of this
board, who may be neither an employer nor an employee, is to be
appointed by the competent labor board. In addition to the chair­
man the conciliation board is to be composed of four permanent and
two nonpermanent associates. The employers’ and employees’ rep­
resentatives in the labor board each elect in separate meetings two
of the permanent associates, while the nonpermanent associates (one
employer and one employee) of the conciliation board are appointed
by the chairman of the board. Such conciliation boards are to be
created for the district of one or more administrative authorities.
Decisions of the conciliation board may be appealed to an arbitration
board to be created for the district of each chamber of labor. The
chairman of the arbitration board may be neither an employer nor
an employee, while the associate members of the board must be se
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lected in equal numbers from among employers and employees.
Parties may be represented by counsel before the conciliation and
arbitration boards. The conciliation courts, so far as they have
existed in peace time, and the intervention of trustworthy private
individuals are to be retained to the extent that the conciliation
boards provided for in the present bill shall only be summoned to sit
if neither side appeals to some other suitable authority.
Finally, the bill differs from the older proposals in yet another
particular, viz, the question of expenditure; it desires the Empire to
bear the costs of the labor boards, as indeed the Bundesrath is to fix
the district in which labor boards are to be established.
Commenting on the scheme of the trade-unions the Soziale Praxis 1
says that—
While this scheme does not agree with its own demands, it desires to abstain from
criticism and only wishes to emphasize the fact that the scheme contains both the
advantages and disadvantages of a compromise between organizations which held
views in some measure widely divergent. The mere fact th at all the organized
workers of Germany are united on this platform will certainly enhance the prospect
of realization of the demands put forward in the scheme.

P R O P O S E D D E C E N T R A L IZ A T IO N A N D S T A N D A R D IZ A T IO N O F G E R M A N
IN D U S T R Y .

In the organ of the German Employers’ Association,2 Engineer
Georg Siener discusses the question whether it would not be possible
after the war to decentralize German industry more or less by remov­
ing factories from the cities to the country. “ Decentralization” in
this sense is eminently desirable to prevent overcrowding in large
cities. Whether it is possible in any particular case depends on three
factors—technical facilities (i. e., access to raw materials, to power,
and to markets), labor, and lands. The cheapening of transportation
and the erection of large central power stations will greatly increase
the mobility of industry; and decentralization is favored by the
modern tendency, especially in the iron and steel and machinery in­
dustry, to specialization and the production of standardized parts
which can be carried on quite apart from the main factory. The
difficulty of procuring labor in out-of-the-way places constitutes the
chief obstacle to decentralization of industry; it can perhaps be partly
overcome by offering the workman a plot of ground for growing
vegetables, etc. On the other hand the cheapness of land in the
country offers the greatest inducement to the manufacturer to remove
his plant there; but care must be taken that this advantage is not
lost through speculation in land. Finally, if decentralization is to be
1 Soziale P rax is a n d A rc h iv fiir V olksw ohlfahrt.
2 Arbeitge'oer-Zeitung, Dee. 30, 1917.


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B erlin, Dec. 6, 1917.

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

73

a success, it must be carried out on an organized plan under the super­
vision of public bodies dealing with large areas, not piecemeal by
individuals. Good results, too, might be attained by laying out “ in­
dustrial highways” alongside railways and canals.
The Welthandel1 states that the Society of German Engineers in
cooperation with a large number of industrial concerns is agitating
for standardization of the machinery industry and of the iron and
metal industry generally. This movement, the Welthandel predicts,
will promote the development of German industries on fresh and
improved lines.
Tools, threads, nuts, bolts, rivets, and other small fittings, having
ail the same dimensions, will be manufactured and employed every­
where. Every manufacturer, manager of a plant, or engineer has very
often gone through the disagreeable experience of finding that threads
were not the same, or that tools did not fit the existent mandrels, or
that the dimensions of rivets, nuts, and bolts supplied by every manu­
facturer were of different sizes. For instance, the hexagonal nuts:
Their width and depth vary with each manufacturer. If tools are
considered, it is hard to find, for instance, two reamers or countersink
drills of different makes having the same dimensions as regards their
diameter, length, and slot to take up the drive. The difference in the
conical end of reamers and countersink drills is very often so small
that it can not be detected by the eye and is only noted at the time
of fitting them in the chucks.
The “ German Industrial Standards” are published in tables under
the title “ D. I. Norm,” by the standard committee for the German
industry. All the societies and unions of special trades, officials, and
a large number of firms belonging to all kinds of industries are repre­
sented in this committee by their best experts. The draft of the
“ D. I. Norm” is based upon the opinions collected from forms which
are sent to be filled in to as many industrial establishments as possible.
These drafts are discussed and approved by the standard committee.
The restrictions which are imposed on the industries by the “ D. I.
Norm” are kept for this reason within practical limits. I t may be
expected, therefore, that the use of the “ D. I. Norm” will greatly
facilitate the manufacture and purchase of products of all kinds in
the industrial world.
DEMOBILIZATION IN AUSTRIA AFTER THE WAR.

2The Bremer Bürger-Zeitung3 calls attention to an article by the
well-known trade-union writer, Julius Deutsch, of Vienna, in the
Austrian labor periodical, “ Der Kampf,” in which he points out a
i Der W elthandel, Dee. 14, 1917.


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2 B rem er B ürger-Z eitung.

[1121]

B rem en, N ov. 16,1917.

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

difference in the attitude of the German and Austrian trade-unions
toward demobilization. Both are agreed that after peace is con­
cluded no worker should be kept in the army longer than is absolutely
necessary on military grounds ; but in regard to the exact process of
demobilization they differ. The Austrian trade-unions demand dis­
charges according to age, preference to be given only in exceptional
cases to specially important groups of workers; while the German
trade-unions insist that the first consideration should be given to par­
ticular callings and particular groups of workmen. The motive which
weighs with them is the desire to bring about the economic revival
as quickly as possible. With regard to the problem of work for the
discharged soldiers, Deutsch says that the Social-Democratic policy
is not to keep them in barracks till they have found some means of
supporting themselves, but to enable them, by Government assist­
ance, to resume their duties as citizens. The ways in which the Gov­
ernment can assist are by cheapening the cost of living, supporting
the unemployed, continuing military pay for one month after dis­
charge, granting sick leave, and, where necessary, expenses of a stay
in a health resort, establishing employment offices with equal rep­
resentation for employers and employed, granting free transportation
to places of employment away from home, protecting soldiers’
families against creditors (prolonging period of payment and pro­
hibiting too hasty sale of pledges), and, lastly, by resuming social
reforms and provision for housing.
L A BO R C O N D IT IO N S IN IN D U S T R IA L A ND C O M M E R C IA L E S T A B L IS H ­
M E N T S IN F R A N C E , JU L Y , 1917.1

A summary of the reports relative to the supply of labor in indus­
trial and commercial establishments in France at various dates from
August, 1914, to January, 1917, was published in the M o n t h l y
R e v i e w for August, 1917. The data upon which the reports have
been based were collected by the labor inspection service, and cover
only such establishments as were able to furnish comparable data
for the entire period under investigation. For this reason the num­
ber of establishments varies in the different investigations.
The ninth investigation relative to labor conditions was made in
July, 1917. The figures cover only such establishments as are subject
to inspection laws; consequently mines and quarries, railroads and
tramways, and establishments under the supervision of the minister
of war and the minister of marine are not included. It is reasonable
to suppose that if these were considered, the number of persons
employed in industry and commerce would show a much greater per
1 France. B ulletin d u M inistère d u T rav ail e t de la Prévoyance Sociale Nos. 10-12, October to Decem­
ber, 1917. Paris.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

75

cent of increase than is shown in the tables prepared by the labor
office. There has been an especial increase in the number of em­
ployees in establishments engaged in work for national defense
These are not subject to inspection by agents other than those of the
departments of Government for which they are being operated.
The number of establishments for which data were reported in
July, 1917, was 52,278, which before the War furnished employment
to 1,524,959 persons. The data given in the following tables refer
only to these establishments and are entirely independent of any data
reported at any of the preceding investigations.
The figures shown are not to be taken as indicating in any manner
the extent of unemployment, but rather the business situation in the
industries considered. The decreases in employment shown in most
of the industrial groups do not mean that the workmen leaving them
were necessarily unemployed. An average of 24 per cent was
mobilized and many others who were unable to find employment in
their usual occupations have accepted employment in industries
which have not suffered from the war, or in which the demand for
employment has increased, as in the chemical and metallurgical
groups, in which, while the number of establishments in operation has
decreased, the number of employees is largely in excess of the number
employed before mobilization.
The investigation shows a gradual movement since July, 1915,
toward recovery in every industrial group, both in the number of
establishments in operation and the number of persons employed.
N U M B E R O F E S T A B L IS H M E N T S F U R N IS H IN G D A TA R E L A T IV E TO IN D U S T R IA L
C O N D IT IO N S P R E V A IL IN G D U R IN G T H E W A R A N D N U M B E R A N D P E R C E N T IN
O P E R A T IO N A T S P E C IF IE D D A TE S.
[From B ulletin d u M inistère du T ravail et de la Prévoyance Sociale, October to D ecember, 1917, p. 434.]

In d u strial group.

N u m ­ E stab lish m en ts in operation in—
ber of
establishm ents
Ju lv ,
Ju ly ,
ugust, Ju ly ,
report­ A 1914.
1916.
1917.
1915.
ing.

Food prep aratio n .................................... 4,222
1,583
C hem ical...................................................
786
R ubber, paper, card b o ard ....................
1,312
P rin tin g a n d b in d in g .............................
T extiles...................................................... 3,605
Clothing, m illinery, e tc ......................... 10,817
L eather a n d h id es................................... 3,151
W ood w orking............ ............................. 5,142
7,908
M etallurgy (b a se)...................................
562
M etallurgy (fine).....................................
98
Precious sto n es........................................
2,930
Building trad es, e tc ...............................
1,258
Porcelain, p o ttery, glass, e tc ...............
469
Storage a n d tra n s p o rta tio n ..................
8,435
Commerce.................................................

3,094
894
351
652
1,124
5,187
1,217
1,622
3,160
57
7
785
363
291
4,973

3,655
1,243
642
952
2,681
6,963
1,768
2, 751
5,273
388
41
1,134
682
354
5,411

3,852
1.357
697

52,278

23, 777

33,938

38,209

T o ta l...............................................


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Federal Reserve Bank of St. Louis

[1 1 2 3 ]

1,022

2,951
8,013
1,948
3,401
5,969
407
54
1,354
791
405
5,988

3,908
1,410
724
1,103
3,135
8,211

2,023
3,706
6,436
497
52
1,479
884
416
6,320
40,304

P er cent of establish­
m ents in operation in —
A u­
July, Julv,
gust, July,
1914. 1915. 1916. 1917.
93
89
92
84
87
76
64
72
81

91

/
27
29
62
59

87
79
82
¡6
74
64
56
53
67
69
42
39
54
75
64

71

53
50
70
89
75

45

65

73

77

73
56
45
50
31
48
39
32
40
10

86

89
78
82
74
62
66

75
72
55
46
63
86

88

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

N U M B E R O F P E R S O N S E M P L O Y E D IN E S T A B L IS H M E N T S F U R N IS H IN G D A TA R E L A ­
T IV E TO IN D U S T R IA L C O N D IT IO N S P R E V A IL IN G D U R IN G T H E W A R A N D NUM ­
B E R A N D P E R C E N T A T W O R K A T S P E C IF IE D D A T E S.
[From B ulletin du M inistère du T ravail e t de la Prévoyance Sociale, O ctober to D ecember, 1917, p. 435.
T he num ber of employees a t work, as shown by th is table, does n o t include mobilized workers.]

In d u strial group.

Food p rep aratio n .........................
C hem ical........................................
R ubber, paper, card b o ard ........
P rin tin g a n d b in d in g .................
T extiles..........................................
Clothing, m illinery, e tc ..............
L eather a n d h id e s.......................
W oodw orking...............................
M etallurgy (base)........................
M etallurgy (fine).........................
Precious stones.............................
Building trades, e tc .....................
Porcelain, n o ttery , glass, e t c . ..
Storage and tra n sp o rta tio n ___
Commerce......................................

N um ber of employees a t work in—
P er cent a t w ork in—
N um ber
of em­
ployees
A u­ Ju ly , July,
before A ugust, Ju ly ,
Ju ly ,
July, gust,
July,
th e W ar.
1914.
1916.
1915.
1917.
1914. 1915. 1916. 1917.
93,775
78,892
55,298
38,114
309,287
137,764
70,212
84,790
371,300
8,037
2, 842
72,351
81,227
39,162
90,908

T o ta l.................................... U,524,959

50,469
35,470
17.606
13; 198
104,698
44,332
26,864
19,315
122,356
1,050
543
11,502
16.494
14,548
40,284

73,406
66,228
33,467
18,509
220,090
87,222
48,097
43,161
324,041
3,586
1,196
24,042
32,386
22,314
53,029

80,671
84,070
40, 040
A 845
246, 642
104, 743
55,999
61,905
514,318
4,473
1,410
32,430
41,735
28,933
62,652

SO, 577
93,667
42, 50S
21,397
255,227
109, 743
59,375
72,581
642,539
4.861
1,517
36,609
45,258
28,127
65,407

518, 729 1,050,774 1,380, S66jl, 559,393

54
45
32
35
34
32
38
23
33
13
19
16

86

86

119

48
44

51
87
45
42
33
40
74
58

107
72
55
80
76
80
73
139
56
50
45
42
96
69

173
60
53
51
55
93
72

34

69

91

102

20

78
84
61
49
71
63
68

77

56
83
SO
85
86

1 This to ta l is n o t th e correct sum. of th e item s; th e figures are given as th e y appear in th e source shown
above.

In July, 1917, 77 per cent of the establishments reporting for the
entire war period were in operation, and employed 102 per cent of
the number of persons employed before the War in these estab­
lishments. If to this 102 per cent employed be added the 24 per
cent withdrawn by mobilization, the number of active and potential
employees in July, 1917, exceeded the number before the War by 26
per cent. The source of this increase is discussed in the M o n t h l y
R e v i e w for August, 1917.
The following table shows (1) the estimated proportion of indus­
trial workers mobilized for military duty when the War began, and
(2) the per cent of increase or decrease in the number of employees
in specified months, 1914 to 1917, in establishments investigated as
compared with the normal number of employees before the War.
In this table both active and mobilized workers are considered as
employees. That is to say, in computing the percentages of increase
or decrease the decrease due to mobilization of workers is not taken
into consideration.


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M O N T H L Y REV IEW OF T H E B U R EA U OF LABOR, STA TISTIC S.

77

P E R C E N T O F IN C R E A SE OR D E C R E A S E IN N U M B E R S E M P L O Y E D IN S P E C IF IE D IN ­
D U S T R IA L G R O U P S A T S P E C IF IE D P E R IO D S AS C O M PA R ED W IT H N O R M A L NUM ­
B E R S E M P L O Y E D -B E F O R E T H E W A R .

[In this table mobilized workers are not deducted in computing the per cent of increase or decrease as com­
pared with normal.]
Per cent Per cent of increase ( + ) or decrease (—)
as com pared w ith norm al n u m b e r be­
of em ­
fore th e W ar.
ployees
withdraw n by
July,
July,
m obiliza­ August,
Ju ly ,
1914.
tion.
1915.
1916.
1917.

In d u stria l group.

Food p re p a ra tio n ..................................................................
C hem ical.................................................................................
R ubber, paper, card b o ard .................................................
P rin tin g and b in d in g ..........................................................
T ex tiles...................................................................................
Clothing m illinery, e tc.......................................................
Leather and h id e s................................................................
W ood w orking........................................................................
M etallurgy (base).................................................................
M etallurgy (Fine) and precious sto n es...........................
B uilding trades, e tc .............................................................
Porcelain; pottery, glass, e tc .............................................
Storage and tra n s p o rta tio n ................................................

26
27
19
24
15

6

. ............................................................................

26
30
32
23
33
28
32
25

Total ...........................................................................

24

C o m m erce.

-2 0

-2 8
-4 9
—41
-5 1
-6 2
-3 6
-4 7
-3 5
-6 2
-5 1
-5 2

+ 4
+ 11
-2 0

-3 1

-2 7
-1 4
—31
- 6
+19
-1 9
-3 3
-3 4
-3 2
+ 6
-1 7

-4 2

-

-2 0

7

+ 12

+34
—9
—21

- 5
-1 8
+ 6
4- 3
+71
-2 3
-2 2

-3 0
+28
-

6

+ 12
+ 46
— 4
— 20
- 2
— 14
+ 1Î
+ 16
+105

- 8
- 16
- 16
+
-

25
3

+15

LA B O R R E G U L A T IO N S F O R F A C T O R IE S IN S W IT Z E R L A N D .1

The Federal Council, by ordinance, effective November 15, 1917,
enacted the following factory regulations to be observed in applying
the Federal neutrality law of August, 1914.
Hours of labor in factories shall not exceed 10 per day. On Satur­
days and the days next preceding holidays 9 | hours shall constitute
a day’s work. When the hours of labor on Saturdays do not exceed
0^ and labor ends at 1 o’clock p. m., the hours on other days may
extend to 10
A rest period of one hour near midday is mandatory, unless the
day’s work ends at 2 o’clock p. m. and a half-hour rest period is
granted, or the hours of labor do not exceed 9 with a like rest period
granted, or unless the day’s work does not exceed 6^ hours and a rest
period of 15 minutes is granted.
In establishments employing but one shift the rest periods shall
not be deducted unless they are regularly and simultaneously granted
to all employees, and during that time they are permitted to leave
their working places.
From May 1 to September 15 labor shall be performed between the
hours of 5 a. m. and 8 p. m., and for the rest of the year between
6 a. m. and 8 p. m. On Saturdays work shall stop at 5 p. m.
A schedule of hours of work shall be filed with local authorities.
Permits may be granted: To arrange rest periods by turns; to
extend hours of labor 2 hours for not moro than 25 days a year
i B ulletin d u M inistère d u Travail et de la Prévoyance Sociale. Nos. 10-12, O ctober to D ecember, 1917,
Paris.

54591 °— 18-------6


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M O N T H L Y RE V IE W OF T H E B U R E A U OF LABOR STA TISTICS.

(exceptionally the number may be further increased when the permit
applies to a small portion only of the employees, or a portion of the
factory); permitting night work 30 nights per year, except 1 night
between Saturday afternoon and Monday morning, and provided
that not more than 10 hours’ work is required during the 24, broken
by a rest period of at least one-half hour; and to work 12 Sundays,
at the most, per year.
The department of political economy may extend these permits
when important reasons, especially for national defense, or to increase
the food supply, warrant such action.
Notice that these permits have been granted must be filed with the
cantonal authorities and with the proper labor inspectors.
When overtime, night, or Sunday work is permitted the employer
is required to pay the employees so engaged time and a quarter.
Extra pay in piecework shall be based on average earnings. If
working at a fixed rate that shall be the basis.
No other method of payment for overtime work is permitted. All
permits shall specify this rate and be posted in the factory.


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fll261

PROVISION FOR DISABLED SOLDIERS AND CIVIL­
IANS.
PROPOSED V O C A TIO N A L R E H A B IL IT A T IO N ACT.

A bill to provide for the vocational rehabilitation and return to
civil employment of disabled soldiers and sailors discharged from our
military and naval forces was introduced in the Senate of the United
States on April 8, 1918.
The new bill places entire responsibility for the vocational reeduca­
tion and placement of disabled members of the forces with the Fed­
eral Board for Vocational Education and provides that every person
who is disabled under circumstances entitling him, after discharge
from the military or naval forces, to compensation under Article III
of the War Risk Insurance Act, as amended, and who in the opinion
of the Federal Board for Vocational Education is unable to resume
his former occupation or to enter some other suitable occupation, and
who may be vocationally rehabilitated, shall either be ordered by
the Bureau of War Risk Insurance to follow such course of vocational
rehabilitation as the Federal Board for Vocational Education shall
provide, or shall be retained in the forces and detailed to the control
of the Federal board until such course of training has been satisfac­
torily completed. Every person so designated shall receive as
monthly compensation a sum equal to the amount of his pay for
tlie last month of active service, or to the amount to which he would
be entitled under the War Risk Insurance Act, in the same manner
as if ho were an enlisted man. Failure to follow the prescribed
course of training will result in the withholding by the Bureau of
War Risk Insurance, in its discretion, of all or any part of the monthly
compensation due him.
The bill proposes to give the Federal Board for Vocational Edu­
cation power to provide such facilities, instructors, and courses of
vocational rehabilitation as it deems necessary for the proper train­
ing of persons concerned, power to provide for the placement of
rehabilitated persons, and to use in its placement work, with the
approval of the Secretary of Labor, the facilities of the Department
of Labor, in so far as it may be practicable. The Federal board is
also authorized to make studies, investigations, and reports regarding
the vocational rehabilitation of disabled persons and their placement
in suitable occupations,and to cooperate with such other public or
private agencies as it may deem advisable in the performance of the
duties imposed upon it by the proposed act


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79

80

M O N T H L Y REV IEW OF T H E B U REA U OF LABOR STA TISTICS,

Section 5 of the bill provides that all medical and surgical work
and other treatment necessary to give functional and mental resto­
ration to disabled persons prior to their discharge shall be under the
control of the War and Navy Departments; and for cooperation
between these departments and the Federal board to insure a proper
process of prevocational and vocational training.
The proposed act, if passed, will repeal section 304 of the War Risk
Insurance Act, as amended, which embodies the only provision which
has as yet been made for this important work. This section appar­
ently places the work of rehabilitation within the jurisdiction of the
Bureau of War Risk Insurance, and is a promise of what should be
done, rather than a workable program. It makes no appropriation
for carrying on the work. Section 304 reads:
In cases of dismemberment, of injuries to sight or hearing, and of other injuries
commonly causing permanent disability, the injured person shall follow such course
or courses of rehabilitation, reeducation, and vocational training as the United States
may provide or procure to be provided. Should such course prevent the injured
person from following a substantially gainful occupation while taking same, a form
of enlistment may be required which shall bring the injured person into the military
or naval service. Such enlistm ent shall entitle the person to full pay as during the
last month of his active service, and his family to family allowances and allotments
as hereinbefore provided in lieu of all other compensation for the time being.
In case of his willful failure properly to follow such course or so to enlist, payment
of compensation shall be suspended until such willful failure ceases and no com­
pensation shall be payable for the intervening period.

The Congressional Record for April 8, 1918, which reprints the
bill and memoranda submitted in connection with it, includes the
following paragraph:
Section 304 is buried in an act, every one of whose other important sections deals
with war-risk insurance. Admittedly it was inserted as a promise by Congress that
the rehabilitation, reeducation, and vocational training of injured sailors and soldiers
would be more definitely provided for at the ensuing session. Naturally, under these
circumstances, this very difficult and highly specialized work is committed, under
the general terms of the act, to an organization and administration which, while
admirably adapted for war-risk insurance—for which it was primarily intended—is
inadequate, so far as section 304 is concerned, for the proper care, education, and
placement in industry of injured men.

The practicability of such economic adjustment as is proposed in
this bill has already been established by the other belligerent coun­
tries, who have already in operation carefully worked-out organiza­
tions which carry on the work of rehabilitating the disabled victims
of the War, and which have accomplished remarkable results. In
England the authority for carrying on this work is centralized under
the Minister of Pensions, a cabinet office which has been created since
the beginning of the War. In France the vocational reeducation and
employment of disabled members of the forces is under the super-


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MONTHLY BEVIEW OF THE BUREAU OF LABOR, STATISTICS.

81

vision of the Minister of Labor. In Canada a new department,
known as the Department of Soldiers and Sailors Civil Reestablish­
ment, has recently been created to supervise the vocational and
employment work of that country. The experience of all of these
countries has been that a centralization of governmental authority
in this matter is essential, whether vested in a department created
for the purpose or in an existing agency suitably equipped.
N E W F R E N C H LAW R E L A T IN G T O T H E R E H A B IL IT A T IO N O F D ISA B L E D
S O L D IE R S .

A French law, adopted January 2, 1918,1 places the vocational
reeeducation and employment of disabled soldiers in France under
the supervision of the Minister of Labor and makes some changes
in the organization and work of the national office of disabled and
retired soldiers. The decree of February 26, 1918,2 determines some
of the measures necessary to the application of this law. A com­
plete translation of the law and extracts from the decree applying
it are here reprinted :
A rticle 1. Every soldier or former soldier of the m ilitary and naval forces suffer­
ing from infirmities resulting from wounds received, or from sickness contracted or
aggravated during the present war may request his inclusion in a school for vocational
reeducation for the purpose of readjusting himself to industry with particular reference
to his occupational training and employment.
The request may he addressed either to a school for reeducation; to a prefect of the
“ Departement ” in which the applicant formerly resided ; to a departmental committee
of wounded and retired soldiers of th a t “ D epartem ent;” or to the national office of
wounded and retired soldiers.
Persons under treatment, or whose retirement is being considered, should make
their requests to the chief physician of the health office ( F o r m a t i o n S a n i t a i r e ) in
which they are under treatment.
A r t . 2 . The national office of wounded and retired soldiers, which is declared a
public establishment, under the supervision of the Minister of Labor, constitutes an
organ of cooperation between public offices and private associations or enterprises
concerned with the soldiers mentioned in article 1. Its functions are : To collect and
collate information concerning the aims of these offices, associations, or enterprises;
to encourage and assist in the réadaptation of such persons to industry; to investigate
fegislative provisions and regulations which may be adopted in their favor and to
lollow the application of it, and in a general way to assure the support and permanent
assistance recognized by the nation to be justly due them.
Art . 3. The resources of the national office of wounded and retired soldiers include:
1.
The annual credit carried in the budget of the Minister of Labor and Social Wel­
fare, in the special division entitled “ National Office for Wounded and Retired
1 Loi concernant la rééducation professionnelle e t T Office N ational des M utilés e t Réformés de la G uerre..
Published in th e Journal Officiel de la R ép u b liq u e Française for Jan. 3,1918, pp. 99, 100. Paris.
2 U n décret ren d u en conseil des m inistres d éterm in an t les m esures d ’execution nécessaires à l’applica­
tion de la loi concernant la rééducation professionnelle e t l’Office N ational des M utilés e t Réformés de la
G uerre. Feb. 26,1918. Published in th e Journal Officiel de la R épublique Française, Feb. 28,1918, pp.
1992-1995.


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Soldiers,” and other subventions which may be appropriated by the State, the depart­
ments, and the communes.
2. Gifts, legacies, and donations of any nature or origin which may be made either
directly to the office, whether to the whole body of soldiers or former soldiers named
in article 1, or to a definite class of them. Provided th at when such gifts, legacies, or
donations are made for the wounded and retired soldiers of a definite district, they
shall be distributed by decree, issued upon the advice of the national office, between
the departmental committees and localities interested.
3. All other resources which may by law accrue to the national office.
A r t . 4. In case the national office or any departmental office is abolished, the
funds resulting from gifts, legacies, or donations made to the office or committee
shall be placed by decree of the Council of State, with the approval of the Minister
of Labor, to the credit of public establishments or of recognized public utilities capable
of fulfilling the wishes of the donors.
A

rt.

5. I n e a c h “ D e p a r te m e n t” th e r e s h a ll b e c r e a te d , u p o n t h e a g r e e m e n t of th e

g e n e r a l c o u n c i l a n d t h e n a t i o n a l o f f ic e , b y d e c r e e w h i c h s h a l l

d e te r m in e th e e x t e n t

of t h e i r t e r r it o r i a l j u r i s d i c t i o n a n d s p e c i f y t h e n u m b e r o f t h e i r m e m b e r s , d e p a r t m e n t a l
or l o c a l , w o u n d e d a n d r e t i r e d s o l d i e r s ’ c o m m i t t e e s .
These committees may receive State, departmental, or communal subventions,
gifts, and legacies, subject to the conditions prescribed by the civil code for the estab­
lishment of public utilities.
They shall not acquire any other real estate except that necessary for their meetings,
or for the conduct of the business provided for in article 1.
A r t . 6. The council of ministers shall determine by decree the methods necessary
for the execution and application of this law, and especially:
1. The organization of the national office for wounded and retired soldiers, and the
departmental committees provided for in article 5, as well as the conditions under which
the private associations or enterprises shall be represented in the said bodies;
2. The conditions under which State aid may be granted to departmental commit­
tees and institutions for reeducation after consultation with the national office (com­
mission of reeducation), as well as the control and supervision of the use of such
subventions;
3. The proofs necessary to be furnished the departmental committees by the soldiers
mentioned in article 1 in order to become beneficiaries under the provisions of paragraph 1 of article 7.
A r t . 7. During the period of occupational reeducation of a soldier whose pension
has not been liquidated, his family shall continue to receive the military allowance.
If his pension is liquidated and if the twelfth of that amount is less than the amount
of the monthly allowance to the family, the difference shall be paid until the comple­
tion of the period of reeducation.
The departmental committee shall determine the duration of the period of occu­
pational reeducation during which the family of the soldier may be paid the benefit
provided for in the paragraph above. Appeal from this decision can be made to the
national office by the soldier involved within one month after his notification of it.
A r t . 8 . In no case shall the pension be reduced because of the fact of occupational
reeducation and réadaptation to work.
A r t . 9. The minister of labor shall make an annual report to the President of the
Republic showing the operations of the national office, the results of occupational
reeducation and employment secured for the persons mentioned in article 7, and
relative to the distribution of State subventions.


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83

EXTRACTS FROM THE D E C R E E OF F E B R U A R Y 26. 1918, APPLYING IN A B O V E LA V .
Ch a p t e r

I.

N

a t io n a l

O f f ic e

of

D

is a b l e d a n d

R

e t ir e d

S o l d ie r s .

A r t i c l e 1 . The national office of disabled and retired soldiers, under supervision
of the minister of labor and social welfare shall be composed of 60 members of French
nationality, appointed for three years, by decree, upon the nomination of the Min­
ister of Labor, namely:
5 senators.
10 deputies.
3 representatives of the minister of labor.
3 representatives of the minister of war, of whom one shall represent the mili­
tary health service.
2 representatives of the minister of the interior.
2 representatives of the minister of commerce.
2 representatives of the minister of agriculture.
2 representatives of the minister of the navy, of wnom one shall represent the
health service.
1 representative of the minister of finance.
1 representative of the minister of public instruction.
1 representative of the minister of the colonies.
2 members, one an employer, the other a workman, of the superior labor council.
1 member of the superior council of mutual aid societies.
1 member of the superior council of technical instruction.
1 member of the superior council of agriculture.
1 member of the Paris chamber of commerce.
1 member of the superior council of public assistance.
1 surgeon and one physician from the hospitals.
3 directors of the schools of professional reeducation.
6 members of associations of the wounded or disabled.
6 persons chosen from associations or private institutions concerned w ith the
care of wounded or retired soldiers.
4 persons known by reason of their special abiLity, their work, or their services.
*
*
*
*
*
*
*
The president of the national office shall be assisted by three vice presidents ap­
pointed by the minister of labor from among the members of the national office.
A r t . 2. The national office shall include three branches, the organization of which
shall be fixed by an order of the minister of labor: (1) an executive committee, (2) a
commission of reeducation, and (3) an advisory council ( c o n s e il de p e r fe c tio n n e m e n t) .
A member may serve in more than one of these branches.
The executive committee shall establish the plan for the official budget and financial
statements; shall prepare decisions relative to the acceptance of gifts and legacies;
shall have charge of the reports of departmental and local committees in matters
with which the executive committee is concerned, whether concerning the constitu­
tion and administration of those committees, or placement; shall keep a register of the
disabled, giving useful information which will facilitate their reeducation and employployment, and giving information concerning the general assistance which they may
need; shall gather definite information regarding occupations open to the disabled
according to the nature of the disability, the needs of each industry and of each locality,
the placements made, and the offers and demands for work which can not be met by
local organizations; shall give advice concerning the distribution of occupations
reserved for disabled and retired soldiers, according to the law of April 17, 1916; in a
general manner, shall include in its functions all th at concerns the administrative
and financial working of the national office, ail th at concerns the working of the de-


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partmental and local committees, and questions within the jurisdiction of the ministry
of labor, especially that of placement.
The commission of reeducation shall give advice upon the demands for State aid
made by institutions or associations which are concerned with professional reeduca­
tion; shall assemble documents relating to equipment, methods, and the general
organization of reeducation ; shall secure reports relative to attendance at the schools
and results obtained; shall examine appeals made against the decisions of departmental
committees relative to reeducation and in a general manner include in its functions
all questions concerning vocational reeducation and the administrative working,
financial or technical, of centers and schools of vocational reeducation.
The advisory council (c o n s e il de p e r f e c tio n n e m e n t ) shall include in its functions all
questions concerning the general interests, material and moral, of disabled soldiers,
keeping in touch with all kinds of institutions (except those concerned with vocational
reeducation) whose purpose is to lend assistance to soldiers or former soldiers named in
article 1 of the law.
I t shall secure all documents relating to institutions which aid the disabled, as well
as information regarding the help afforded them.
A rt. 3. The full assembly of the members of the national office shall examine the
matters referred to it, either by the minister or by the divisions specified in article 2.
I t shall decide particularly upon the appeal made against the decisions of the depart­
mental or local committee by the application of article 7 of the law of January 2,
1918, and upon the acceptance or refusal of gifts or legacies which are made to the
office.
Its decisions shall become operative if within 20 days from the close of the session
the minister of labor does not ask their annulment on the ground of excess of power or
violation of legislative or regulative order. In case of urgency the minister may sign
a resolution for immediate execution.
If after two months, annulment has not been confirmed by a decree rendered in the
council of State, the decision shall become executory.
A rt. 5. The full assembly of the national office shall meet at least once in six months
and at any other time the needs of the service require a meeting, or upon request of
the executive committee.
Within 8 days after the meeting a copy of the proceedings shall be sent to the min­
ister of labor.
A r t . 6 . Every hospital, school of reeducation, or other institution (with the excep­
tion of field hospitals, or hospitals behind the lines designated by the m ilitary health
service), which in any way gives aid to soldiers or former soldiers who, because of
injuries or infirmities contracted during the war, have become incapable of remun­
erative work, or whose capacity for work is greatly diminished, shall be required to
send to the departmental committee of the departm ent in which the institution is
located a statement accompanied by a medical record card, the form for which has
been established by agreement between the minister of labor and the military health
service. These documents shall be transm itted to the national office by the com­
mittee within a month at most.
A r t . 7. The administrative service of the national office shall be divided into three
sections corresponding to the three special divisions specified in article 2.
The heads of the sections shall have a consulting voice in the full assembly, where
they perform the duties of secretaries, one of them acting as general secretary of the
national office. They shall be responsible to the chairman of the executive committee,
who can delegate his powers either to another member of the committee or to the
general secretary.


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Ch a p t e r

II.

D

e p a p .t m e n t a l o r

L

ocal
of

C o m m it t e e s

the

W

ar

of th e

D

is a b l e d a n d

R

85
e t ir e d

.

A r t i c l e 16. The departmental committee shall have its headquarters at the
largest city of the Department. I t shall be composed, with the prefect as chairman, of
members named by the prefect w ith the approval of the minister of labor, the general
council of the department, and of the national office (executive committee). Members
of the local committee shall be selected in the same way.
The departmental or local committee may appoint qualified persons to visit the
wounded in hospitals to give advice which wounded men may need and assist them
in their readjustment to industry.
A daily list of these persons shall be made and sent to the national office.
A r t . 17. Employment service for the disabled and retired shall be assured by the
public employment offices which, in cooperation w ith the departmental or local
committees, shall adopt measures expedient for this purpose.
Public employment offices shall make known to the departmental committees the
results of the work of placing the disabled and retired. In the executive committee
of each departmental employment office the departmental committee for disabled
and retired soldiers shall be represented by at least one member and not more than
three.
A r t . 18. The departmental or local committee shall watch over the interests of
the disabled soldiers, except in the case of special institutions for the assistance of
the tubercular, in all cases in which the disabled men need aid, including appren­
ticeship and employment.
I t shall endeavor to create centers or schools of reeducation in the departments
which are unprovided, or insufficiently provided, w ith them.
As soon as it is known that a disabled soldier, capable of reeducation, is in a hospital
of a Department the committee shall have him visited by an advisor, who will aid him
in choosing a vocation, w ith due consideration to his probable invalidity and the
nature of his former vocation, as well as to the opportunities for work which are offered
in the department in which he lived before the war and persuade him to enter upon
a course of reeducation as soon as possible.
The school shall be designated by the president of the commission of reeducation
of the national office, taking into consideration the places available and the region to
which the wounded man belonged before the war.
A r t . 19. The departmental or local committee shall meet at least once in three
months and whenever i t is called by the president.
A r t . 23. The assembly of the departmental committee or of the local committee
shall give advice upon:
1. Regulations relative to the appointment of an efficient force and the manage­
ment, promotion, and discipline of the administrative personnel.
2. The acceptance or refusal of gifts and legacies which may be referred to it under
the conditions prescribed by article 910 of the civil code.
3. Ail questions relating to disabled or retired soldiers which are submitted to it
by the minister of the national office or the prefect.
A r t . 24. Apireáis may be made against the decisions of the departmental or local
committee by a person or a group of persons concerned. These appeals shall be
addressed to tlie minister of labor, who shall transm it them at once to the executive
committee of the national office, and notify the chairman of the departmental com­
mittee and the chairman of the local committee advising them that they have a month
from the date of notification in which to reply.
At the expiration of the time indicated the prefect shall transmit the papers of appeal
to the minister of labor, w ith his report, for examination by the national office.


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The executive committee of the national office shall decide from this memorandum
upon the decisions which should be made.
A r t . 26. The national office shall be advised, in a form which will be fixed by
ministerial order, of all placements made, of all relief accorded by departmental or
local committees.
Ch apter

III.

S tate S

u b s id ie s .

A r t . 38. State grants allowed to departmental committees, whether for their own
working or for that of local committee, shall be determined by the minister of labor
upon the advice of the national office (executive committee). State grants allowed
to establishments for professional reeducation of the disabled and retired shall be
determined by the minister charged Avitli the management of the divisions of the
budget relatiAre to those grants, upon the ad vice of the national office (commission of
reeducation).
Ch a p t e r

IV.

R

e q u ir e m e n t s

for

A

d m is s io n

.

A r t i c l e 4 1 . Soldiers or former soldiers mentioned in article 1 of the law of January
2,1918, who desire to be admitted to the advantages specified in paragraph 1 of article 7
of the said law shall make their request by letter, addressed either to a school of reedu­
cation, or to the prefect of the Department in which the wounded man resided before
the War, or to the departmental committee of th at department, or to the national
office. This request may be sent by the man interested to the mayor of the commune
where he is staying, ayI io Avill transm it it to the national office.
Soldiers in course of treatm ent or about to be retired shall address their request to
the m ilitary authority.
The request shall make know n:
1. The name, given name, and address of the man;
2. The place (commune and Department) of his residence before th e War;
3. His m ilitary position;
4. The nature of his disability and the cause of his wound;
5. His former vocation;
6. The vocation in which he wishes to be reeducated;
7. The establishments for reeducation to Avhich he has been previously admitted,
or the declaration that he has been in none;
8. The region in which he wishes to locate after reeducation;
9. The allowances Avhich he, or members of his family, have been receiving.
A r t . 4 2 . Upon the admission of a disabled man to a school the director shall notify
the national office and the prefect of the Department in Avhich the man lives. The
prefect in his turn shall advise the departmental committee and the mayor of his home
commune as to the day on which the man began his reeducation.
Upon the conclusion of the period fixed for reeducation, or upon the departure for
any reasons whatever, of the disabled man from the place of reeducation, the director
of the school shall immediately advise the national office and the prefect interested,
of his departure, who in turn shall ad vise the mayor of the m an’s home commune and
the departmental committee.

FRENCH EXPERIENCE IN THE PLACEMENT OF DISABLED SOLDIERS.

One section of the interallied conference for the study of questions
concerning war invalids, which was held at Paris in May, 1917, was
devoted to the discussion of the problem of employment of disabled


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men.1 A summary of the opinions of certain French specialists
present at the conference, on the subject of placement of such men
in commerce and industry, is printed below:
I. Is it well to keep disabled men so far as possible in their former
vocations ?
There is evidently every advantage from both the technical and the
psychological point of view in placing a disabled man in his former
calling or at least in an industry which is related to it, even though
in order to readapt himself he finds it necessary to go through a school
of reeducation. Every injured workman should be advised before
choosing another calling to consider under what conditions he could
continue his former trade, and if this seems possible, every facility
should be given him to make an attempt for two or three months
at readapting himself to it, with all the aid which can be afforded him
by means of prosthesis, tools, and experience. If he (especially a man
with his upper limbs crippled) is persuaded that by the help of
physical means he can do this, the results will be better in the trade
which he knows and which he has acquired through several years of
practice, habit, and experience, since each profession, each trade has
a special technique, its own manners, its usages, its traditions, and
its particular character which it stamps upon the worker. According
to an inspector of labor, disabled men employed in a new calling on
account of their infirmity become easily discouraged, and cases are
not infrequent in which such men give up their work entirely.
II. Should disabled men remain in the region in which they were
living before the war ?
Of course the choice of residence is subordinated to the exercise of
their calling. They can not return to the parts of the country from
which they came unless they are sure of finding work there by which
they can make their living. Rural exodus is not favored. I t is
indispensable that the greatest possible number of injured farmers be
influenced to return to the land. . A large number of wounded can be
of great service to agriculture and there is not the slightest doubt of
the need for agricultural workmen. I t is considered advisable to
train those formerly on the land and unable to return to it in some
skilled trade which can be pursued in the country. I t is hoped that
all efforts, both in the line of vocational reeducation and of employ­
ment, will be directed toward the returning of disabled soldiers to the
regions in which they originally lived.
III. Is it well to create special shops for invalids?
Special shops are necessary for invalids in whom the degree of
disability makes certain equipment and tools of a special nature
necessary, for example, for the blind. There is no reason why
i Conference interalliée pour l’étude de la rééducation professionnelle et des questions qui intéressent les
invalides de la guerre d u 8 a u 12 Mai, 1917. Paris, 1917. pp. 239-269.


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invalids whose disabilities do not demand special equipment should
be separated from their comrades and isolated in special shops, which
would very soon be considered “ charity” shops. Invalids employed
in such shops would soon form a special category of workmen hostile
to the other workmen in their occupation; and, too, the disabled
gain a certain amount of inspiration from association with their nor­
mal comrades and become less sensitive to their physical inferiority.
IY. Should if be admitted as a principle that the disabled ought to
receive for equal production a salary equal to that of the normal
workman ?
Unless some equable arrangement be made, there is the risk that
upon demobilization the uninjured soldier will find himself opposed
in his prewar occupation by his disabled comrade. All of the em­
ployers from whom the labor office has received reports on the em­
ployment of war invalids have spontaneously declared that reedu­
cated or readapted disabled men will be employed under normal
conditions and that the work which they do, whether at home or in
the shop, will be paid for at the same rate as that done by normal
workmen. All employers and others interested in the employment
of the disabled are not in accord on this point. However, there seems
to be no objection to the formula “ Equal production, equal pay.”
The principle of equal wages being admitted, it is always necessary
to establish a distinction in its application to different methods of
executing the work. For piecework the rule can be inflexible as its
application is simple. For work by the day the minimum salary
should be equal for the disabled and the normal workman. If the
production of the disabled worker is less than that of the normal
workman, it is suggested that this situation be relieved by reducing
the working day for the disabled by one, two, or three hours, as the
exigencies of the case demand. In some cases the disabled might
work half a day and the day be filled by two such men working
alternately. This, of course, involves the question of special cases.
As to the comparative earning capacity of the disabled and nor­
mal workman, authorities seem to disagree. By some it is stated
that disabled workmen should be able to earn as much as normal
men, for the occupations in which they are engaged should be such
that these men could fill them as well as normal workers; that when­
ever the vocations of the disabled men are adapted to their possi­
bilities, the output is about the same as that of normal workmen
doing the same work. Other authorities have estimated that for
woodwork the production of the disabled man is a little more than
SO per cent of that of the normal workman. This valuation is also
found m the report of an inspector of labor, who says that “ a metal
establishment of Biliancourt employed 10 disabled men, of whom 5


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80

had crippled legs, 2 were blind in one eye, and 2 had projectiles in
the thorax which had not been extracted.” He estimated that the
production of these workmen is 80 per cent of that of the normal
specialists in each class.
One inspector of labor reports an important factory in Paris which
employs an almost equal number of normal and disabled workmen
(more than 200 of each class). Those with crippled legs work sit­
ting, are engaged as stampers, measurers, turners of sheaths, and
polishers. In this factory the number of processes has to be in­
creased on account of their employment, for it is necessary to carry
their work to and from them. This inspector further states that the
inferior production of the disabled man may be quite variable, but
it is in general incontestable and that in order to lessen it in a measure,
and to reach the limit of possible output, it will be necessary to per­
mit the reduction of the day and choice of work.
Another inspector says, “ The length of the day need not be changed
on account of the employment of disabled men if such men are given
work suitable for their physical condition. I t is indispensable to
give disabled men work which is compatible with their strength and
ability.”
V. Ought special organizations to be created for the employment
of the disabled or ought they to be placed through the ordinary pub­
lic employment offices ?
An investigation of the subject was made by the French depart­
ments concerned, with the result that the public employment offices
already established have been expressly charged with the placement
of the wounded. It was believed that the question of employment
for this class of workers was the same as for normal workers and
that special institutions created for the purpose would create a dan­
ger that these workers would not be employed under normal condi­
tions of remuneration.
The fact that they enjoy military pensions might influence the
disabled to accept places at a scale of wages inferior to that of nor­
mal workmen. There would arise the possibility of conflicts between
the normal workers and the injured ones, whom the former might
accuse of underbidding them. Besides this, offices created especially
for the disabled or wounded would have a tendency to concentrate
these workmen in a small number of vocations and establishments.
I t is not to be expected that an employer would always apply to
special placement offices from pure philanthropy. On the contrary,
there is danger that employers who apply to these special placement
offices would only do so with the idea of finding cheap labor.
The conclusion which has been drawn by all concerned with plac­
ing wounded soldiers is that it is best not to separate their placement
from that of the general workers, and that both classes of workmen

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should be placed through the public employment service. It is there
that employers who are looking for them will find them under the
best material and moral conditions. It is there that employers who
do not intend to employ wounded soldiers and who do not think
themselves able to employ them may jmt be influenced to employ
them, perhaps by persuasive methods or perhaps by failure to find
other labor.
For the duration of the ¥vTar the private offices concerned exclu­
sively with the employment of the disabled, such as those established
by associations of employers and by the trades-unions have a useful
function and it is not considered expedient to abolish them, Reedu­
cation schools are placing the disabled who have been reeducated.
It is foreseen, however, that most of these institutions will survive
only a short time after the War, and they do not now reach a large
number of invalided men who have not undergone vocational reedu­
cation. This class of the disabled have recourse to the offices which
have already taken charge of placing ordinary workmen.
YI. Rules to be observed in placing wounded soldiers.
Ail departmental or municipal employment offices are under the
control of a commission composed of employers and workmen chosen
from among the principal trades expected to have recourse to their
placement services.
Public employment offices have been instituted in all parts of the
country for placing normal workmen and the conditions under which
they function are determined by general rules, the application of
which presents a minimum of guaranties sufficient for those involved.
For the placing of invalids it would be necessary to make these guar­
antees more exact and complete. (1) Some one- in authority in each
office should thoroughly familiarize himself with the requirements of
the work and,take necessary steps to learn the exact conditions under
which the wounded men will work and the salaries which they will
receive. These should, if possible, be stipulated by contract. (2)
The office should always, before directing the disabled workman to
the employer who has asked for him, become familiar with the con­
tract between the parties. (3) The placing office should cooperate
with the office in the region to which the disabled man is sent, in order
to know whether the conditions stipulated in the contract are kept
by the employers, and if adequate living conditions can be assured
in the locality in which the workman will reside. (4) Managers of
the offices should get in touch with the employers in the trades in
which the disabled men are likely to be employed in order to show
the employers the possibilities for their employing wounded men.
In this way they can dissipate doubts that may exist on this subject.
(5) Employment offices should keep in intimate relation with the de­
partmental committees of the disabled. Only the close and con
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[1138]

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

91

tinued collaboration of these two organizations can give satisfactory
results, either on the economic or on the moral side. (6) Employ­
ment offices should impress upon disabled men the desirability of
entering, schools and learning trades suited to their infirmities, and
of not being seduced by offers of immediate employment which may
be remunerative now because of the present abnormal demand for
labor or because of the interest which is felt in the disabled. After
the War these employments will not suffice for them and they will
find that results are demanded of them more in keeping with the high
wages, employers forgetting with time the sentiments which have
guided them in employing the wounded. (7) Employment offices
should make it their special effort to see that all disabled men capa­
ble of filling positions are put in the way of securing work of as high
a grade as is possible for them and in which they will be most use­
ful to society. If the organization of the offices is good and the
cooperation between them sufficiently close, they will find it easy to
attain these ends.
VII. Ought it to be made obligatory for employers to employ
disabled soldiers ?
Laws have been proposed making obligatory the employment of a
certain number of disabled men in Government service or any of the
enterprises enjoying governmental assistance and making it obliga­
tory on ail employers to employ a proportionate number of disabled
men.
These measures are considered justifiable. If, it is said, the owners
of large businesses were frightened at the thought of the law making
it their duty to employ some injured men among a large personnel of
employees, and if such a thought could be capable of discouraging
their initiative, one might well fear that left to themselves they would
fail of the duty of employing the disabled, and the latter would be
left to live on their pensions alone. So far these laws have not been
necessary in France, employers giving evidence of their appreciation
of their moral obligation to employ a proportionate number of dis­
abled employees in their establishments.
The following resolutions on the questions discussed were proposed
for the adoption of the interallied conference:
1. So far as possible, disabled soldiers should be kept in their former vocations.
2. Disabled men should be kept so far as the trade followed by them w ill permit, in
the region in which they lived before the war.
3. It is not best, in the majority of cases, to create special workshops for disabled
soldiers.
4. The disabled soldiers should receive for equal production, wages equal to those
of normal workmen.
5. In general, it is preferable to commit the placement of disabled soldiers to public
and private organizations which are charged with the placement of normal workmen,


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

However, it is advisable (1) for the vocational schools to place their pupils directly,
(2) for the war offices which have already been constituted in each allied country to
continue their placement work until the termination of hostilities.
6. Public and private placement services should apply, in placing the disabled
soldiers, besides the general rules for placing normal workmen, stricter rules, notably
those concerning the stability of employment, the conditions of labor, and the scale
of wages.
7. It belongs to the legislature in each allied country to decide whether or not
employers should be placed under obligation to employ disabled soldiers. Meantime,
the interallied conference holds that there is a moral obligation resting upon employers
to employ disabled soldiers in a number proportional to the importance and personnel
of each industrial and commercial establishment.


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Federal Reserve Bank of St. Louis

PRICES AND COST OF LIVING.
RETAIL PRICES OF FOOD IN THE UNITED STATES.

The retail prices of food in the United States, according to reports
received from retail dealers by the Bureau of Labor Statistics, show
a decrease of 4 per cent on March 15, 1918, compared with February
15, 1918. This decrease is caused, to a large extent, by the price
changes in eggs, butter, and potatoes, which changes are natural at
this season of the year.
Prices are not given for hens because, conforming to the ruling of
the Food Administration, no live or fresh hens were sold in March.
This restriction was lifted at midnight, April 19.
Of the 15 articles for which relative prices are given, 4 show the
following decreases: Eggs, 28 per cent; potatoes, 22 per cent; sugar,
13 per cent; and butter, 5 per cent. Two articles, milk and flour,
show no change, while the increase in the price of lard is practically
negligible, being less than one-half of 1 per cent.
A table showing the course of prices in the United States in Febru­
ary and March, 1918, is given below:
A V E R A G E M O N E Y R E T A IL P R IC E S A N D R E L A T IV E R E T A IL P R IC E S O F FO O D ON
F E B . 15,1918, A N D M AR. 15,1918.
[The relative price shows th e per cent th a t th e average price on th e 15th of each m onth was of the average
price for the year 1913. F o r certain articles relativ e prices are no t show n because quotations were not
secured for 1913.]
Average m oney price.
Article.

U nit.

Sirloin stea k ........................................................
R m]nH <?t,p.nk
_____ __________ - .........
RjU rnfl.st
. ______________________
Elm o\r rncwf
_ _____. . . . . . .
E late beef
* » _______ . . . . . . . .
Pork ctmps
_______ . . . . . . . . . . . . . . . . . .
Bacon
............. - .........................
Ham
.....................................................
h p ■■
n. i__._ o^****a<3
Ffrcrq
......................................---................................................................
B litter
............. ........................................

P o u n d ___
.. .d o ..........
.. .d o ...........
. . .d o ...........
. . .d o ..........
. . .d o ..........
.. .d o ..........
.. .d o ..........
.. .d o ..........
.. .d o ..........
__d o ...........
D ozen.......
P o u n d ___
...do. .. .. .
Q u a rt........
16-oz. loaf i
P o u n d ___
. . . d o ...........
__d o ...........
. . . d o ..........
.. .d o ..........
__d o ...........
.. .d o ..........
. d o ..........
. . . d o ..........
. . .d o ..........
. . . d o ..........

Milk
Brunei
Elmir
Unryi muni
Potatoes

Sn par

........................................
...... ..............................................
.................................................
.....................................
_______ . . . . . . . .

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

Feb. 15,
1918.
$0.334
.314
.263
.227
.177
.336
.484
.438
.330
.362
.291
.611
.579
.349
.134
.083
.066
.070
.118
.032
.049
.181
.165
.150
.106
.304
.609

Mar. 15,
1918.
SO. 338
.318
.268
.232
.182
.339
.488
.441
.332
.295
.443
.552
.351
.134
.084
.066
.072

R elative price.
Feb. 15,
1918.
131
141
133

133
143
135

160
179
163
209
170

161
181
164

177
151

128
144

151
166

5 4 5 9 1 ° — 18------ 7


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Federal Reserve Bank of St. Louis

[1 1 4 1 ]

210

151
168

200

200

233

240

.120

188
.025
147
.040
.181
.165
.151
.092
167
193
.304
.615 ..................... 1......................
161

1 16 ounces, w eight of dough.

Mar. 15,
1918.

154

94

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

Prices of food as a whole advanced 16 per cent in the }u'ar from
March 15, 1917, to March 15, 1918.
In this one year period, the only decline in price is that of potatoes.
This article decreased 51 per cent. Corn meal shows the greatest
increase, or 75 per cent. Sugar shows the least increase, or 4 per cent.
The increases in the prices of the other articles range from 14 per
cent to 47 per cent and are in detail as follows: Rib roast, 14 per cent;
flour and sirloin steak, 15 per cent each; bread, 17 per cent; butter,
19 per cent; round steak, 20 per cent; pork chops, 21 per cent;
eggs, 27 per cent; ham, 31 per cent; milk, 35 per cent; lard, 39 per­
cent; and bacon, 47 per cent.
Food as a whole was 59 per cent higher in March, 1918, than in
the same month in 1913. In this 5-year period, every article in­
creased in price 33 per cent and over. Flour was just twice as high
in March, 1918, as in March, 1913. Lard increased 112 per cent and
corn meal, 145 per cent. The increase in only four articles was less
than 50 per cent. Eleven articles increased over 50 per cent, and 3
of these increased 100 per cent and over. The percentages of in­
creases in detail for this 5-year period are as follows: Corn meal, 145
per cent; lard, 112 per cent; flour, 100 per cent; bacon, 87 per cent;
ham and sugar, 69 per cent; bread, 68 per cent; potatoes, 67 per
cent; eggs and pork chops, 66 per cent; milk, 51 per cent; round
steak, 49 per cent; rib roast, 38 per cent; sirloin steak, 37 per cent;
and butter, 33 per cent.
A table showing the average and relative retail prices of food in
the United States on March 15 of each year, 1913 to 1918, inclusive,
follows:


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Federal Reserve Bank of St. Louis

[1 1 4 2 1

95

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

A V E R A G E M O N EY P R IC E S AN D R E L A T IV E R E T A IL P R IC E S O F FO O D ON MAR. 15 OF
EA C H Y E A R , 1913 TO 1918, IN C L U SIV E .
[The relative price shows th e per cent th a t th e average price on th e 15th of each m onth was of the average
price for th e year 1913. For certain articles relativ e prices are n o t show n because quotations were
n o t secured for 1913.]
Average m oney price, Mar. 15—
A rticle.

1913
Sirloin s t e a k . . . . . . .
R ound ste a k ...........
R ib ro a s t.................
Chuck ro a s t............
P la te beef................
P ork chops.............
B acon.......................
H a m .........................
L a rd .........................
Salmon, c a n n e d ...
Eggs..........................
B u tte r......... t'..........
Cheese......................
M ilk..........................
B re a d .......................
F lo u r........... ............
Corn m eal...............
R ice...........................
P otato es...................
O nions.....................
Beans, n a v y ...........
P ru n e s .....................
R aisins, seeded___
Sugar........... .
Coffee.......................
T e a ...........................
All a rtic le s com ­
b in e d ....................

R elative price, Mar. 15-

U lilt.
1914

1915

1916

1917

1918

L b . .. . 10.246 $0.254 $0. 246 $0. 262 $0.295 $0.338
. . .d o ..
.230
.213
.221
.233
.267
.318
.. /d o . .
.193
.199
.195
.206
.233
.268
.. . d o . .
.169
.160
.193
.232
. . .d o ..
.124
.122
.124
.146
. 182
. . .d o ..
.209
.202
.177
.218
.279
.339
. . .d o ..
.267
.264
.261
.276
.333
.488
.256
. . .d o ..
.262
.265
.303
.338
.441
. . .d o ..
.156
.152
.156
.182
.238
.332
. . . do..
. 198
. 200
.222
. 295
.349
D o z ...
.308
.255
.263
.285
.443
L b ....
.359
. 414
.351
.402
.461
.552
.232
. . . do..
.250
.323
. 351
.090
.088
.100
.089
.088
Q t....
.134
.055
.063
16 o z 1 .
.064
.072
.084
.044
L b ....
.033
.033
.039
.057
.066
. . .d o ..
.031
.033
.032
.030
.041
.072
.. . d o . .
.091
.091
.091
. 120
. . .d o ..
.014
.019
.024
.015
.052
.025
. . .d o ..
.033
. 045
. 125
.040
. . .d o ..
.076
.092
. 154
. 181
. . .d o ..
.137
.133
.141
.165
. . .d o ..
.125
. 126
.141
. 151
. . .d o ..
.051
.066
.054
.074
.087
.092
. . .d o ..
.299
. 299
. 299
.304
. . .d o ..
.546
.546
.546

1913 1914 1915 1916 1917 1918
97
96
98
97
97
97

100

103
101
100

99
99

97
99
99

104
104
104

116
119
118

133
143
135

85
98
95

104
103
113

133
123
125

161
181
164

99

99

96

115

151

210

77
108

90
92

74
94

82
105

101
121

128
144

100
100
100
98

101
110
99
103

99
190
136

112

151

no

100
19£
120
107

174
137

200
240

88

107

82

140

297

147

99

93

120

137

160

Ì67

97

39

98

107

133

154

1 Loaf; 16 ounces, w eight of dough.

The next table gives average retail prices for February, 1918 and
for March, 1913, 1914, 1917, and 1918, for 15 of the larger cities.
The prices for Atlanta, Ga., are not included as less than 80 per cent
of the firms of that city sent in their reports for March, 1918, to the
bureau.


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96

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

A V E R A G E R E T A IL P R IC E S O F T H E P R IN C IP A L A R T IC L E S O F FO O D F O R 15 S E L E C T E D
C IT IE S , FO R M AR. 15, 1913, 1914, 1917, F E B . 15, 1918, AN D M AR. 15, 1918.
[The average prices show n below are com puted from reports sent m o n th ly to th e b ureau b y retail dealers.
As some dealers occasionally fail to report, th e num ber of quotations varies from m onth to m onth.]
A tla n ta , Ga.

Article.

Feb.
15.

Mar.
15.

1918

1918

0)

Gì
0)
G)
G)
G)
Gì
G)
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G)
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G)
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G)
0)
. G)
Gl
(G
G)
G)
G)
G)
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C1)
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(!)
(1)
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(!)
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(G
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G)
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G)
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(G
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(G
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(i)
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(i)
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(G
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(G
G)
G)
(G
G)

Unit.

Mar. 15.

1913
Sirloin steak ..........
R ound steak .........
R ib ro a st...............
Chuck ro a s t..........
Plate b e e f . . . . . . . .
P ork c hop s...........
Bacon, sliced........
H am , sliced...........
L a r d .......................
L a m b .....................
H e n s .......................
Salmon, can n ed . .
Eggs, strictly fresh
B u tte r....................
Cheese.....................
Mi l k ..........................

B re a d .....................
F lour.......................
Corn m e a l..............
R ice............. ...........
P otatoes___: . ___
O nions...................
Beans, n a v y ..........
P ru n e s ...................
R aisins...................
Sugar......................
Coffee.....................
T ea..........................

P o u n d ___
. .. d o ...........
.. .d o ...........
.. .d o ...........
. .. d o ...........
.. .d o ...........
.. .d o .. . ___
.. .d o ...........
.. .d o ...........
.. .d o ...........
.. .d o ...........
.. .d o ...........
Dozen.......
P o u n d ___
.. .d o ...........
Q u a rt........
16-oz. loafs.
P o u n d ___
. .. d o ...........
. .. d o ...........
.. .d o ...........
.. .d o ...........
.. .d o ...........
.. .do...........
.. .do...........
.. .d o ...........
.. .do...........
.. .do...........

B altim ore, Md.

0)
G)
0)

(■)
G)
0)
G)
G)
G)
0)
0)
G)
Gì
0)
(1)
0)
G)
Gì
G)
( 1)
G)
(1)

1914
G)
Gì
0)
0)
0)

1917

Mar. 15.

1913

. . . d o ..........
.. .d o ...........
.. .d o ...........
. .. d o ...........
.. .do...........
. .. d o ...........
.. .d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
.. .d o ...........
Dozen.......
P o u n d ___
. .. d o ...........
Q u a rt........
16-oz. lo af 2
P o u n d ___
. .. d o ...........
. .. d o ...........
.. .d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
.. .d o ...........
. .. d o ...........
.. .d o ...........

1 0 .3 4 6
.3 3 0
.2 3 4

$0. 322
.3 4 3
.2 4 4
. 168

$0. 396
.3 7 6
.2 7 4
.2 1 8

10. 424
.4 3 0
.3 0 3
.2 5 4

.2 2 2
.2 5 4
.2 8 8
. 157
.2 1 8
.2 4 2

.2 2 7
.2 5 0
.3 1 3
.1 5 4
.2 1 2
.2 4 7

.3 2 8
.4 1 4

.3 4 7
.3 5 7

.0 8 9
.0 5 2
.0 3 7
.0 3 5

.0 8 9
.0 5 2
.0 3 7
.0 3 5

.0 1 6

.0 1 9

.0 5 3

.0 4 9

.2 7 9
.3 1 7
.3 7 3
.2 4 3
.2 7 9
.3 0 0
.2 2 5
.4 5 0
.4 5 7
.3 2 1
.1 0 5
.0 6 9
.0 5 3
.0 4 8
.0 9 8
.0 5 2
.1 2 1
. 153
.1 4 4
.1 4 0
.0 8 3
.3 3 4
.6 0 0

. 345
.4 6 0
.4 6 0
.3 3 5
.3 3 3
.3 8 0
.3 0 8
.7 4 8
.5 6 0
.3 3 6
.1 4 5
.0 7 6
.0 7 3
.0 7 9
.1 2 2
.0 3 8
.0 5 4
. 186
.1 7 0
. 150
.0 9 8
.3 4 1
.6 3 1

1917

.0 5 1

.0 4 6

. 130
. 140
.0 8 6
.2 3 5
.5 5 0

Buffalo,
1 0 .4 2 3 $0. 220
.4 2 8 *
.1 9 0
.2 9 8
.1 7 3
.2 4 9
.3 4 6
.4 6 3
.4 5 8
.3 3 5
.3 3 4
.3 0 8
.5 4 6
.5 5 8
. 335
.1 4 5
.0 8 0
.0 7 0
.0 7 9
. 123
.0 2 5
.0 4 3
. 186
.1 7 0
. 149
.0 9 3
.3 4 1
.6 3 8

Mar.
15.

1918

1918

$0. 220 10.238 S0.282 $0. 334
.207
.218
.268
.329
.180
.180
.218
.255
.153
.190
.237
.128
.154
.186
.193
.184
.258
.344
.220
.236
.288
.449
.300
.290
.380
.479
.140
.144
.238
.326
.183
. 185
.265
.332
.218
.208
.278
.403
. 183
.261
.314
.217
.316
. 655
.421
.374
.486
.604
.335
.357
.088
.087
.092
.130
.048
.049
.066
.077
.032
.032
.058
.067
.025
.025
.036
.060
.093
. 115
.015
.056
.019
.036
. 139
. 049
. 150
. 182

B oston, Mass.
Sirloin steak ..........
R ound s te a k .___
R ib ro a st...............
Chuck ro a s t..........
P late beef..............
P ork ch o p s...........
Bacon, sliced........
H am , sliced ..........
L a r d .......................
L a m b .....................
H e n s .......................
Salmon, can n ed ...
Eggs, stric tly fresh
B u tte r.....................
Cheese.....................
M ilk.........................
B re a d .....................
F lo u r......................
Corn m e a l..............
R ice.........................
Potatoes.................
O nions...................
Beans, n a v y ..........
P ru n e s ...................
R aisin s...................
Sugar...............
Coffee.....................
T ea..........................

1914

Feb.
15.

.1 9 3
.2 1 0
.2 5 0
.1 4 1
.1 7 3
.2 1 7

$0. 216
.1 9 4
. 168
. 154
. 118
.1 9 8
.2 0 2
.2 5 3
.1 4 1
.1 6 3
.2 1 8

.2 4 7
.4 0 6

.3 2 7
.3 4 1

.0 8 0
.0 5 0
.0 2 9
.0 2 5

.0 8 0
.0 4 6
.0 2 9
.0 2 6

.0 1 4

.0 1 7

.0 5 3

.0 4 9

. 166
. 151
.0 9 0
. 282
.6 4 4

N. Y.

$0. 265
.2 3 8
.2 0 0
ISO
! 150
.3 0 3
.2 9 0
.3 5 0
.2 2 5
.2 3 3
.2 8 0
192
.3 8 0
.4 5 0
212
!io o
.0 7 6
.0 5 3
.0 4 0
0Q5
.0 5 5
. 202
. 154
. 122
122
.0 8 8
. .222
.4 2 5

10.338
.329
.268
.237
.189
.343
.446
.482
. 325
.337
.256
.421
.583
. 364
.130
.084
.068
.067
. 117
.027
.041
. 184
. 169
. 149
.0 8 7
. 285
.6 3 3

'

$0. 321
.2 9 9
.2 5 3
220
. 1 7Q
.3 2 1
.4 3 8
.4 4 8
.3 1 8
.2 9 4
. 360
220
.6 9 0
.5 8 5

$ 0 .3 2 4
.3 0 1
.2 5 7

.1 4 0
.0 7 8
.0 6 3
.0 7 5
121
! 031
052
120
172
141
.0 9 7
200
! 567

.1 4 0
.0 8 3
• .0 6 4
.0 7 8

.3 4 2
.4 4 8
.4 5 3
.3 2 3
.3 0 1
222
.4 6 8
.5 4 0

! 024
040
175
! 098
. 570

* 1 No averages are show n for th is c ity because over 20 per cen t of th e firms ®n th e B u re a u ’s list failed
to report for M arch, 1918.
2 16 ounces, w eight of dough.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

11144]

MONTHLY KEVIEW OF THE BUREAU OF LABOR STATISTICS.

97

A V E R A G E R E T A IL P R IC E S O F T H E P R IN C IP A L A R T IC L E S OF FO O D F O R 15 S E L E C T E D
C IT IE S , F O R M AR. 15, 1913, 1914, 1917, F E B . 15, 1918, A N D M AR. 15, 1918—C ontinued.
Chicago, 111.

Article.

Mar. 15.

U nit.

1913
Sirloin ste a k .........
R ound s te a k ........
R ib ro a st...............
Chuck ro a s t..........
Plato, bftei..............
P ork chops............
Bacon, sliced ........
H am , sliced..........
L ard ...................
L am b ...................
Hons
Palm on can nod
Eggs, strictly fresh
B u tte r....................
Lhop.so .
M ilk........................
B r e a d ....................
F lo u r......................
C o rn m e a l..............
P i 00.
P otatoes.................
Onions
"Rpivns nnyy
Prrmos
Rnpar ..

Toa

1914

1917

Cleveland, Ohio.

Feb.
15.

Mar.
15.

1918

1918

Mar. 15.

1913

1917

Mar.
15.

1918

1918

P o u n d ___ $0.220 $0.242 $0,269 $0.304 $0,303 $0,237 $0.249 $0.282 $0.316
.. .d o ..........
.233
.272
.274
.210
.221
.258
.189- .210
.299
.194
.216
. 255
.192
.196
.194
.251
.227
.252
. . . d o ..........
.214
.160
.182
.220
.170
.202
.236
.. .d o ..........
.119
.166
.124
.143
.. .d o ..........
.137
. 169
.177
.184
.258
.312
.. .d o ..........
.179
.301
.309
.198
.203
.326
.348
.492
.256
.278
.349
. . . d o ..........
.298
.309
.499
.477
.343
.450
.335
.400
. .. d o ..........
.313
.312
.448
.357
.455
.. .d o ..........
.152
.226
.321
.161
. 163
.252
.322
. 146
.317
.203
.191
.288
.311
.195
.250
.306
.316
.. .d o ..........
.197
.268
.203
.352
.230
.307
.373
.199
.227
.. .d o ..........
. .d o ..........
.246
.303
.286
.200
.281
.323
.593
.272
. 354
.702
Dozen.......
.234
.277
.407
.287
.445
.506
.434
.495
.578
.329
.547
. 360
P o u n d ___ .404
.381
.318
.377
.317
.342
. . . d o ..........
.090
.119
.119
.088
.100
.130
.080
.080
Q u a rt........ .080
.078
.084
.089
.049
.050
.070
.054
.073
16 oz. lo a f2. .054
.032
.058
.068
.053
.063
.064
.032
. . .P o u n d .. .027
.029
.043
.071
.029
.069
.047
.069
. . .d o ..........
.029
.029
.027
.092
.121
. 121 - .124
. .d o ..........
.087
.054
.031
.020
.014
.018
.045
.029
. ..d o ..........
.013
.017
.130
.048
.111
.046
.036
. .d o ..........
.185
.184
.160
.177
.157
. .d o ..........
.140
.172
.143
.165
.165
__d o ...........
.144
.150
.130
.146
.151
__d o ...........
.092
.094
.082
.087
.055
.050
. . .d o ..........
.049
.050
.087
.288
.286
. 291
d o ..........
.283
.282
.433
.591
.583
.580
.530
__d o ...........

. . . d o .......... 9.227
.196
. . .d o ........
. .. d o ........
.166
. .. d o ........
. .. d o ........
.176
. .. d o ........
. . .d o ........
.270
. .. d o ........
.283
.139
. ..d o ........
. . . d o ........
.169
. . . d o ........
.207
. ..d o .........
D ozen__
.261
P o u n d ...
.390
. . . d o ........
.084
Q u a rt___
16 oz. loaf
.047
P o u n d ___ .026
.024
...d o ...........
... d o .. .
.010
. . . d o .. .
. .. d o .. .
. .. d o .. .
. .. d o .. .
. .. d o .. .
. . . d o . ..
. .. d o .. .
. .. d o .. .


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

.229 $0.244
.225
.198
.174
.175
.158
.118
.097
.255
.192
.274
.307
.367
.351
.243
.163
.236
.164
.233
.204
.211

.200

.260
.336
.084
.048
.026
.026
.015

.350
.428
.325
.083
.075
.047
.032
.092
.047
.144
.138
.138
.131
.082
.288

9.303
.282
.236
.209
.151
.325
.483
.475
.341
.292
.338
.279
.000

.560
.361
.115
.087
.054
.056
.116

.307 $0.240
.194
.286
.198
.238
.217
.152
.330
.186
.224
.518
.255
.489
.344
.162
.172
.297
.216
.280
.415
.252
.406
.497
.357
.115
.080
.086
.050
.031
.056
.060
.027

.241
.203
.198
.156
.119
.188
.228
.280
.160
.170
.223

9.270
.232
.236
.178
.134
.262
.300
.300
.230
.244
.276

.314
.337

.350
.454
.300

.089
.050
.030
.029

.110

.200

.120

.022

.020

.044
.174
.171
.153
.090
.300
.575

.034
.173
.168
.147
.092
.295
.576

2 16 ounces, w eight of dough.

[1 1 4 5 ]

$0,318
.301
.259
.239
.184
.336
.483
.469
.328
.323
.285
.446
.539
.340
.130
.081
.067
.071
.121
.022

.034
.177
.173
.146
.089
.300
.595

D etroit, Mich.

D enver, Colo.
Sirloin s te a k ...
R ound s te a k .........
R ib ro a st..........
Chuck ro a s t. . .
P late beef.........
P ork chops___
Bacon, sliced........
H am , sliced.........
L a rd ......................
L a m b ....................
H e n s .......................
Salmon, c a n n e d ..
Eggs, strictly fresh
B u tte r....................
Cheese.....................
M ilk........................
B read ......................
F lo u r.......................
C ornm eal...............
R ice.........................
Potatoes.................
O nions....................
B eans, n a v y .........
P ru n es....................
R aisins...................
Sugar......................
Coffee......................
T e a ..........................

1914

Feb.
15.

.012

.016

.050

.050

.073
.056
.045
.086
.051
.119
.155
.129
.128
.090
.275
.475

9.321
.298
.259
.224
.177
.331
.457
.426
.336
.324
.375
.274
.668

.568
.343
.140
.075
.065
.077

.321
.293
.271
.224
.181
.331
.474
.428
.335
.327
.290
.449
.526
.350
.140
.084
.068
.074

.121

.122

.029
.055
.182
.171
.141
.089
.304
.573

.021

.044
.179
.170
.141
.088
.301
.547

98

M O N T H L Y REV IEW OF T H E BU R EA U OF LABOR STA TISTICS.

A V E R A G E R E T A IL P R IC E S O F T H E P R IN C IP A L A R T IC L E S O F FO O D F O R 15 S E L E C T E D
C IT IE S , F O R M AR. 15, 1913, 1914, 1917, F E B . 15, 1918, A N D M AR. 15, 1918—Continued.
M ilwaukee, Wis.
A rticle.

Mar. 15.

U nit.
1913

Sirloin ste a k ........
R o u n d s te a k . . . .
R ib ro a s t.............
C huck ro a s t.........
P la te beef............
P ork c hop s..........
B acon, slic ed ___
H am , sliced..........
L a rd ....................
L a m b ..................
H e n s ...................
Salm on, canned
Eggs, stric tly fresh
U»Hotvi.. . . . . . . . . . .

Cheese.....................
M ilk...................... .
B r e a d ....................
F lour.......................
Corn m e a l..............
R ice.........................
P otatoes.................
O nions....................
Beans, n a v y .........
P runes....................
R aisins...................
S ugar......................
Coffee......................
T e a ..........................

P o u n d __ SO. 215
.. .d o.........
.200
. .. d o ..........
.178
. ..d o ..........
...d o ..........
.. .d o ..........
.188
...d o ..........
.273
.. .d o ..........
.268
.. .d o ..........
.153
.. .d o ..........
.200
.. .d o ..........
.218
..d o ..........
Dozen.......
.232
P o u n d ___ .396
. .d o ..........
Q u a rt. . . . .
.070
16-oz,loaf2. .050
P o u n d ___ .031
. .d o ..........
.033
. .d o ..........
. .d o ..........
. .d o ..........
. .d o ..........
. .d o ..........
do
.do.
.do.
.d o .

1917

New Y ork, N . Y.

Feb.
15.

Mar.
15.

1918

1918

Mar. 15.

1913

1914

$0.286 $0,300 $0,345 $0,401 $0,398 $0.260 $0.277
.235
.257
.309
.376
.374
.220
.237
.214
.219
.256
.303
.303
.218
.217
Chuck ro a s t. ___j. . . d o .........
.178
.215
.258
.260
.168
P late beef.
.do
. 190
.119
. 145
. 192
P ork ch o p s........... j.. . d o . .
.203
.215
.294
.363
.356
.218
.213
Bacon,sliced......... !.. .do
.238
.257
.326
.470
.466
.281
.295
H a m ,s lic e d .. . . . .
do
.297
.296
.395
.488
.489
.288
.290
L a rd .......................
do
.150
.152
.235
.334
.334
.151
.156
L am b ...................... .. .d o ........... .186
.195
.266
.324
.326
.225
.203
H e n s ....................... .. -do.........
.218
.238
.293
.371
.264
.270
Salmon, c an n e d . . . .. d o ...........
.193
.265
.265
Eggs, stric tly fresh Dozen
.254
.347
.368
.690
.460
.254
.343
B u tte r.................... P o u n d ___ .475
.407
.519
.630
.592
.434
.367
Cheese.................... ...d o
.333
.374
.377
M ilk........................ ! Q uart
.080
.080
.090
.130
.132
.088
.092
B re a d ..................... i 16-oz.loaf2
.043
.043
.064
.071
.071
.048
.048
F lo u r...................... I P o u n d ___
.032
.032
.058
.072
.070
.031
.032
Corn m e a l............. '. . . d o ...........
.028
.028
.037
.073
.076
.027
.029
R ice........................ ¡ ...d o ...........
.097
. 130
.131
Potatoes.................. . . . d o . ......... .021
.025
.062
.039
.028
-Öiö
.018
O nions...................... . . d o ...........
.122
.052
.039
Beans, n a v y .......... j.. .d o ............
.148
.186
.184
P ru n e s................... j.. .do
.168
.142
.171
R aisins................... ¡...d o
. 127
.140
. 142
Sugar...................... L .-d o
.049
- 045
.079
.092
.088
.056
.055
Coffee......................!.. .do
285
.278
.279
T e a ............................ ..d o
.544
.596
.587

Whole.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

1918

1918

2 16 ounces, w eight of dough.

[1 1 4 6 ]

1.346
.357
.296
.233
.221

.349
.457
.333
.334
.301
.’§53
.501
.527
.344
.146
.079
.078
.082
.119
.036
.038
.183
.171
.149
.088
.266
.584

P ittsb u rg h , P a.

.. .do.

1

Mar.
15.

1.230 $0,277 $0,302 $0.303 $0.254 $0.260 $0.296 $0,347
.210
.247
.287
.288
.238
.254
.291
.356
.185
.218
.248
.249
.217
.218
.254
.295
.163
.195
.227
.229
.161
.192
.237
.118
.140
.171
.173
. 148
.172
.220
.182
.272
.306
.311
.213
.218
.285
.349
.325
.273
.479
.482
.236
.251
.311
.459
.342
.277
.452
.451 1.198 1.195 1.256 L336
.160
.244
.326
.328
.160
.157
.232
.331
.188
.290
.323
.328
.173
.166
.237
.283
.212
.273
.326
.211
.216
.274
.365
.233
.272
.284
.258
.350
.259
.342
.635
.411
.318
.398
.408
.697
.324
.475
.551
.514
.412
.349
.470
.582
.317
.348
.354
.313
.345
.080
.070
.110
.110
.090
.090
.109
.146
.051
.077
.075
.076
.053
.055
.077
.077
.030
.057
.065
.065
.032
.032
.057
.071
.033
.050
.075
.082
.034
.034
.051
.080
.095
.121
.120
.089
.117
.051
.016
.029
.019
.023
.016
.057
.044
.137
.147
.038
• 111
.052
.153
.186
.183
. 152
.183
.148
. 166
.159
. 142
.169
.145
.148
.146
.137
.149
.081
.086
.089
.048
.045
.084
.091
.268
.283
.270
.267
.267
.557
.589
.606
.454
.536
P hiladelphia, Pa.

R ound s te a k . . .

1917

Feb.
15.

>0.315 ¡0.377
.285
.351
.247
.290
.200
.256
.148
.192
.308
.333
.337
.501
.373
.478
.236
.332
.303
.347
.350
.436
.227
.305
.350
.697
.489
.591
.325
.357
.103
.138
.071
.086
.058
.069
.045
.085
.094
.121
.054
.037
.129
.050
.165
.190
.138
.175
.142
.149
.099
.098
.270
.299
.567
.728

$0,373
.347
.296
.257
.188
.347
.502
.478
.330
.364
.306
.458
.568
.366
.135
.086
.068
.082
.123
.026
.037
.188
.172
.146
.099
.301
.732

MONTHLY REVIEW OP THE BUREAU OF LABOR STATISTICS.

99

A V E R A G E R E T A IL P R IC E S O F T H E P R IN C IP A L A R T IC L E S O F FO O D F O R 15 S E L E C T E D
C IT IE S , F O R M AR. 15, 1913, 1914, 1917, F E B . 15, 1918, A N D M AR. 15, 1918—Concluded.
St. Louis, Mo.

A r tic le .

M a r. 15.

U n it.

1913

1914

1917

San Francisco, Cal.

F eb.
15.

M a r.
15.

191S

1918

M a r. 15.

1913

1914

1917

F eb.
15.

M a r.
15.

1918

1918

P o u n d ___ $0. 228 80.258 $ 0 .276 $ 0 .300 $ 0 .317 $0.203 $0.210 $0.231 $0.264
.2 3 4
.3 1 2
.1 9 0
.1 9 7
.2 2 7
.2 5 8
. . . d o .............
.2 0 2
.2 6 3
.2 9 7
.221
.221
.2 3 7
.1 4 7
.2 0 0
.2 6 9
.2 0 7
.2 4 9
.261
. . . d o ............
. . . d o ............
.1 5 5
.2 2 2
.1 5 5
. 163
. 191
.1 7 9
.2 1 3
.1 4 2
.1 5 6
. 182
.1 3 6
.171
.1 8 0
.1 5 0
__ d o .............
.2 5 7
.3 0 8
.1 8 8
.2 9 3
.3 0 0
.2 4 0
.2 5 0
.351
. . . d o ............
.1 8 0
.3 2 2
.4 8 8
.321
.3 3 7
.3 7 5
.5 3 8
.2 3 8
.2 5 0
.4 7 8
. . . d o ............
.2
6
7
.3
5
6
•
167
.2
7
0
.2
7
9
. . . d o ............
.2 7 5
.4 5 8
.3 8 3
.4 9 4
.3 3 4
.1 3 6
.1 2 6
.2 2 6
.2 9 3
. 303
.1 6 9
. 165
.2 3 5
. . . d o ............
.2 6 5
.3 0 2
.3 1 7
.1 8 3
.2 5 3
.171
.1 7 9
.1 7 3
.2 9 3
. . . d o ............
.251
.3 4 7
.2 3 8
.2 4 0
.2 8 3
.4 1 8
.1 8 6
.1 9 6
. . . d o ............
.2 8 8
.2 5 4
__ d o .............
.1 6 6
.2 8 9
.1 9 6
.2 5 8
.2 9 8
.3 9 8
.2 4 6
.3 2 5
.4 8 9
.2 2 0
.5 7 3
.2 3 5
D o z e n .........
.3 0 7
.4 1 7
.4 1 2
.3 2 0
.4 7 6
.5 8 0
.5 6 3
.4 2 9
.5 8 9
P o u n d ___
.3 1 4
.3 6 5
.3 6 8
.2 8 8
.3 2 9
. . . d o ............
.1 0 0
.1 0 0
.121
.0 8 0
.0 8 0
.0 9 5
.1 3 0
.1 2 0
.1 0 0
Q u a r t .........
.0 5 2
.0 8 4
.0 7 4
.0 8 5
.051
.0 6 3
.0 5 0
.0 8 8
16 o z. l o a f 2
.0 4 9
.0 2 8
.0 3 4
.0 6 2
.061
.0 3 3
.051
.0 3 0
.0 5 3
.061
P o u n d ___
.0 4 4
.0 6 2
.0 3 4
.0 3 5
.021
.0 3 5
.0 6 8
.0 6 9
. . . d o ............
.0 2 6
.0 8 8
.1 1 9
.0 8 6
.111
.1 1 3
. . . d o ............
.0 1 2
.0 1 7
. 045
.0 1 7
.0 4 8
.031
.0 2 3
.0 2 3
.0 1 3
. . . d o ............
.0 9 2
.0 3 4
.1 1 4
.0 4 4
.0 2 9
. d o ............
.1 4 7
.1 5 8
. d o ______
.1 4 9
.1 8 0
.1 7 9
.1 2 4
.1 4 2
.1 6 7
.141
.1 6 8
. . . d o ............
P ru n es
.1 3 5
.1 2 8
.1 5 0
P a is in s
. . d o .............
.1 6 9
.1 6 9
.0 8 7
.0 4 7
.0 8 3
.0 8 7
. Ò5Ì
.0 7 9
.0 5 1
.0 8 6
.0 5 3
S u g a r .......................... . . . d o ............
.2 3 7
.3 1 7
. . . d o ............
.2 7 4
.2 7 5
.301
Co if oo
.5 1 7
.6 5 2
. 543
. . . d o ............
.5 4 3
.6 6 0
Tea
1

S ir lo i n s t e a k ............
R o u n d s t e a k ..........
R i b r o a s t ..................
C h u c k r o a s t __
P la to beef
P o r k c h o n s ..............
B a c o n , s l i c e d ..........
H a m , s l i c e d ............
L a r d ............................
L a m b .........................
H ons
S a lm o n c a n n e d .
E g g s, s tr ic tly fre sh
B u t t e r ........................
C hoose .
M i l k .............................
B r e a d ..........................
F l o u r ..........................
C o r n m e a l ................
P ic o
P o t a t o e s ....................
O n io n s

S e a t tle , W a s h .

S ir lo i n s t e a k ............
R o u n d s t e a k ..........
R i b r o a s t ..................
C huck ro a st
P l a t o ho o f ..............
P o r k c h o p s ..............
B a c o n , s l i c e d .........
H a m , s l i c e d ............
L a r d ............................
L a m b .........................
E g g s, s tr ic tly f r e s h
B u t t e r ........................
Choose,
M ilk ..........................
B r e a d .........................
F l o u r ..........................
C o r n m e a l ................
P ice
P o t a t o e s ....................

P a isin s
S u g a r ........................
C offee
Toa


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

[1147]

.2 5 3
.4 3 3
.5 6 8
.3 2 6
.121
.0 8 4
.061
.0 7 3
.1 2 0
.0 2 3
.0 2 6
.1 5 9
.1 3 5
.1 3 7
.0 8 8
. 300
.5 2 9

W a s h i n g to n , D . C

. . . d o ............ 8 0 .218 $ 0 ,240 $ 0 .250 $0.300 $ 0 .305 $0.264 $0.271 $0.291 $0.380
.2 7 9
.3 6 0
.2 1 2
.2 3 0
.2 8 5
.2 0 0
.2 9 0
. 231
.2 3 3
. . . d o .............
.2 1 0
.2 9 6
.2 2 2
.251
.2 5 5
.2 1 0
.1 8 2
.191
.2 1 0
. . . d o .............
. 203
.1 7 2
.2 1 4
.2 1 7
.1 7 0
.2 5 7
.151
. . . d o ............
.2 0 2
.1 5 8
.1 2 8
.1 2 8
.1 3 5
.1 8 3
.1 8 4
__ d o .............
.3 7 8
.3 8 8
.2 0 8
.283
.2 8 8
.3 8 8
.2 1 9
.2 3 4
.2 4 0
. . . d o ............
.4 8 5
.2 5 4
.2 4 6
.3 0 8
.5 3 3
.3 0 0
.3 1 4
.3 7 6
. 535
. . . d o ............
.3 5 0
.4 7 3
.4 6 5
.2 8 6
.2 8 6
.4 6 9
. . . d o ............
.3 0 0
.3 0 0
.3 6 0
.143
.2 3 0
.3 3 6
.3 2 7
.3 3 4
.1 4 6
.1 6 2
.2 4 0
.1 7 3
. . . d o ............
.2 8 2
.3 4 6
.3 2 7
.2 1 4
.1 9 9
.2 6 2
.3 2 8
182
.1 9 1
. . . d o ............
.391
.2 3 0 .
.2 8 3
.221
. . d o ............
.2 7 5
.3 5 9
.2 5 0
.2 4 0
.2 8 7
.1 9 7
.2 8 9
.2 1 8
.2 8 3
. . .d o
.671
.2 9 4
.331
.5 2 8
.4 5 6
.2 2 6
.2 5 7
.321
.2 3 5
D o z e n .........
.6 0 5
.441
.4 9 0
.5 8 8
.5 8 2
.3 5 9
.4 4 4
.4 4 0
.3 5 0
P o u n d ___
.3 5 7
.3 2 6
.3 0 8
.281
.3 0 8
.d o . .
.1 4 0
.0 9 0
.1 0 0
.0 9 0
.1 2 6
.0 8 8
.1 0 0
.1 2 6
.0 8 6
Q u a r t ____
.071
.0 7 4
.0 8 7
.0 4 9
.0 5 0
.081
.0 8 6
.0 5 1
.0 4 9
16 o z. l o a f 2
.0 3 8
.0 5 7
.0 6 9
.0 5 8
.0 3 6
.0 5 8
.0 2 9
.0 4 8
.0 3 0
P o u n d ___
.0 3 6
.0 6 3
.0 7 2
.0 2 5
.0 2 5
.0 4 0
.0 7 2
.0 3 2
.0 3 0
. . . d o ............
.1 2 7
.121
.0
8
9
.1 1 7
. . d o ............
.0 8 6
.051
.0 3 6
.0 1 9
.0 1 7
.0 1 6
.0 1 5
.0 2 5
.0 1 2
. . . d o ............
.0 0 9
.0
50
.0
3
4
.1
3
8
.0
4
2
.1 1 5
. d o ............
.1 9 6
.1 5 6
.1 6 8
.1 6 9
.1 5 0
. d o ______
.1
75
.1
4
0
.1
4
5
.1 4 6
.d o _.
.1 3 0
.1 5 6
.1 3 5
.1 4 7
.1 4 5
. . d o . ..........
.131
.0
8
9
.0
4
8
.0
8
3
.0
8
5
.091
.091
.0
5
0
.0 5 6
. . . d o ............
.0 6 1
.2 9 3
.2 8 6
.3 1 2
.3 1 5
.3 2 6
. . . d o ............
.6
3
7
.5
5
7
.5
6
4
.5
5
6
.5
0
0
. . . d o ............
2 16 o u n c e s , w e ig h t o f d o u g h .

$0.284
.2 8 2
.2 6 7
.2 0 6
.1 9 3
.3 5 6
. 535
.4 9 4
.3 3 7
.3 1 4

$ 0 ,3 9 2
.3 6 9
.308
.2 6 6
.1 9 6
.3 8 7
.4 8 5
.431
.3 3 3
.3 6 3
.3 0 0
.443
.5 9 2
. 363
.1 4 0
.0 8 2
.0 6 8
.0 6 4
.1 2 7
.0 2 4
.0 3 9
.1 7 8
.1 7 5
.1 5 5
.0 8 9
.2 9 6
.6 5 2

100

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

The following table gives average retail prices in 29 smaller cities
for February and March, 1918:
A V E R A G E R E T A IL P R IC E S O F T H E P R IN C IP A L A R T IC L E S O F FO O D F O R F E B . 15,
1918, A N D M AR. 15, 1918, IN 29 C IT IE S .
[The average prices below are com puted from reports sent m o n th ly to th e bureau by retail dealers. As
some dealers occasionally fail to re p o rt, th e n u m b er of quotations varies from m o n th to m onth.]
B irm ingham ,
Ala.
Article.

Mar.
15,
1918.

Charleston,
S. C.

C incinnati,
Ohio.

Mar.
15,
1918.

Feb.
‘ 15,
1918.

Feb.
15,
1918.

Mar.
15,
1918.

Feb.
15,
1918.

Feb.
15,
1918.

Mar.
15,
1918.

L b . . . . $0.352 $0.349 $0,418 $0,402 $0.310 $0,323 $0.308 $0. 312 $0. 282
. . . d o . . .376
.322
.384
.368
.278
.298
.302
.299
.273
. . . d o . . . 279
. 267
.316
.302
.253
. 263
. 244
. 270
. 268
. . . d o . . .225
.274
.210
.263
.209
.208
.210
.223
.223
. . . d o . . .170
.170
.152
. 162
.181
.190
.178
.175
.177
. . . d o . . .339
.356
.362
.325
.338
.329
.356
.363
.284
. . . d o . . .520
.572
.507
.530
.506
.506
.568
.506
.453
. . . d o . . .440
.501
.501
.494
.494
.460
.460
.434
.445
. . . d o . . .321
.323
.330
.339
.338 ■ .338
. 340
. 302
.331
. . . d o . . .350
.320
.350
.312
.319
.330
.357
. 277
.373
. . . d o . . .300
.368
.383
.363
. 365
. . . d o . . .267
.362
.355
.274
.280
. 275
.366
.383
.261
D o z ... .522
.794
.694
.396
.542
.500
.650
.438
.614
L b . . . . .590
.588
.536
.530
.588
.569
.580
.595
.585
. . . d o . . .363
.352
.353
.347
. 344
. 350
. 350
. 368
. 353
.152
.145
.140
. Ì50
.150
.155
.160
.130
Q t . . . . .152
16 oz.i. .089
.089
.083
.089
.106
.106
.091
.094
.081
L b . . . . .067
.070
.068
.074
.067
.070
.067
.076
.070
. . . d o . . .055
.074
.056
.085
.082
. 074
. 061
.065
. 060
. . . d o . . .121
.118
.092
. 118
. 118
. 126
. 125
. 125
.087
. . . do..
.039
.041
.030
.029
.019
. 018
. 043
.036
.037
. . . d o . . .058
.040
.058
.046
.037
.043
.053
.051
.051
. . . d o . . .188
.185
.190
.185
.165
.179
.191
.194
.159
. . . d o . . . 161
.161
. 160
. 171
. 169
. 157
. 158
. 165
. 160
. . . d o . . .158
.157
.158
.158
.147
.150
.150
.150
.146
. . . d o . . .094
. 100
.091
.097
. 100
. 100
. 091
. 090
. 094
. . . d o . . .320
.282
.281
.323
.326
.319
.420
.427
.273
. . . d o . . .762
.759
.796
.634
.618
.778
.636
.645
.706
Columbus,
Ohio.

Sirloin steak ___
R ound ste a k ................
R ib ro a st.......................
Chuck ro a s t..................
P late beef......................
P ork c hops............
Bacon, s lic e d ...
H am , sliced............
L a rd ...............................
L a m b .............................
H e n s...............................
Salmon, c an n e d ..........
Eggs, strictly fresh__
B u tte r............................
Cheese............................
M ilk................................
B re ad .............................
F lour..............................
Com m e a l.....................
R ice................................
P o ta to e s ......................
O nions...........................
Beans, n a v y ............
P ru n e s ...........................
R aisin s...........................
S ugar..............................
Coffee....................
T e a .................................

B u tte ,
Mont.

U nit.
Feb.
15,
1918.

Sirloin s te a k ............. .
R ound ste a k ................
R ib ro a st.......................
Chuck ro a s t..................
P late beef......................
P ork ch o p s..........
Bacon, sliced................
H am , sliced............
L a rd ...............................
L a m b .............................
H ens...............................
Salmon, c an n e d ..........
Eggs, stric tly f r e s h .. .
B u tte r............................
Cheese................. ..........
M ilk................................
B re a d .............................
F lo u r..............................
Corn m e a l.....................
R ice................................
Potatoes........................
O nions.........................
Beans, n a v y ............
P ru n e s ...........................
R aisin s...........................
S u g ar..............................
Coffee..............
T e a .................................

B ridgeport,
Conn.

’

F all R iver,
Mass.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

[1148]

$0.288
.279
. 246
.210

.183
.322
.451
.438
.310
.290
.259
.384
.545
. 376
.130
.082
.070
.064
. 117
.029
.048
.164
. 153
.158
. 093
.264
.694

Indianapolis, Jacksonville,
Ind.
Fla.

. . . d o .. $0.322 SO. 323 SO. 330 $0.340 $0. 425 $0.435 $0. 315 $0.322 $0.348
. . . d o . . .291
.300
.316
.334
. 364
.372
.313
.306
.313
. . . d o . . .249
.254
.272
.288
.278
.278
.238
.277
.239
. . . d o . . .226
.230
.244
.242
.259
.235
.216
.222
.213
__d o . .
.173
.179
. 196
. 211
. 171
. 177
. 167
. . . d o . . .316
.341
.341
.313
.337
.337
.325
.353
.336
. . . d o . . .478
.481
.541
.448
.500
.547
.445
.400
.476
. . . d o . . .445
. 455
.461
.438
.483
.437
.436
.457
.453
. 315
. . . d o . . .328
. 333
.329
.339
.345
.320
.317
.310
. . . d o . . .315
.321
.367
. 283
.325
.417
.319
.324
.300
. . . d o . . .325
.302
.363
.363
.333
. . . d o . . .275
.282
.266
.277
.292
.240
.285
.315
.239
D o z ... .615
.374
.497
.400
.784
.598
.576
.369
.556
L b . . . . .574
.544
.551
.542
.568
.542
.599
.531
.529
. . .d o . .
.347
.353
.365
.353
.331
.384
.385
.331
.353
Q t ----- .130
.130
.158
.163
.128
.130
.107
.107
.180
160Z.1. .089
.078
.089
.085
.088
.088
.077
.087
.089
L b . . . . .067
.066
.065
.065
.074
.074
.065
.066
.071
. . . d o . . .062
.070
.066
.069
.087
.093
.065
.067
.061
. . . d o . . . 123
. 121
. 121
.119
.119
. 118
. 120
. 106
. 118
. . . d o . . .031
.032
.013
.026
.038
.030
.021
.043
.031
. . . d o . . .052
.044
.058
.045
.057
.047
.051
.048
.047
. . . d o . . .181
.182
.181
.179
.180
.183
.186
.178
.195
. . . d o . . .157
. 154
. 172
.170
. 173
. 168
. 163
. 165
. 176
. . . d o . . . 152
. 152
. 151
. 153
-159
. 173
. 176
. 156
. 173
. . . d o . . . 094
.090
.094
.094
.092
.098
. 100
.099
.091
. . . d o . . .300
.362
.324
.288
.355
.334
.294
.327
.295
. . . d o . . .780
.800
.863
.823
.535
.765
.768
.506
.703
1 Loaf; 16 ounces, w eight of dough.

Mar.
15,
1918.

$0. 338
.313
. 269
.228
. 170
.344
.505
.438
. 329
.331
.285
.470
.594
.358
.180
.084
.070
.063
. 106
.037
.054
.196
. 177
. 181
. 092
.319
.724

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

101

A V E R A G E R E T A IL P R IC E S O F T H E P R IN C IP A L A R T IC L E S O F FO O D F O R F E B . 15,
1918, A N D MAR. 15, 1918, IN 29 C IT IE S —C ontinued.
1

Article.

Sirloin s te a k .................
R ound s te a k ................
R ib ro a s t.......................
Chuck ro a s t..................
P late b eef__
Pork c h o p s...................
Bacon, slic ed ............. '.
H am , slic ed ..................
L a rd ...............................
L a m b .............................
Salmon, c an n e d ..........
Eggs, s tric tly fresh—
B u tte r...........................
Cheese............................
M ilk................................
B re ad .............................
F lour..... .......................
Corn m e a l.....................
R ice................................
Potatoes........................
O nions...........................
Beans, n a v y .................
P ru n es...........................
R aisins..........................
Sugar..............................
Coffee.............................
T e a .................................

U nit.

K ansas City,
Mo.

L ittle Rock,
A rk.

Los Angeles,
Cal.

Feb.
15,
1918.

Feb.
15,
1918.

Feb.
15,
1918.

Mar.
15.
1918.

Salm on, c a n n e d ..........
Eggs, s tric tly fresh —
B u tte r............................
C h e e s e .........................
M ilk................................
B re ad .............................
F lour..............................
Corn m e a l.....................
R ice................................
P otatoes........................

O n io n s .............................

Beans, n a v y .................
P ru n e s ...........................
R a is in s ............................

S ugar.............................
C offee...............................

T e a .................................

Mar.
15,
1918.

Feb.
15,
1918.

Mar.
15,
1918.

M anchester,
N . H.
Feb.
15,
1918.

L b . . . . 80.321 80.329 $0,313 $0.340 $0.290 $0,310 $0.303 $0,315 $0.438
.398
.278
.295
.254
.293
.302
.279
.293
. ..d o ... .296
.241
.269
.236
.262
.260
.260
.231
.243
.. .d o ... .233
.200
.210
.221
.239
.204
.221
.223
.211
.202
. ..d o ...
.158
.204
.185
.183
.168
.197
.193
. .d o ... .167
.324
.338
.337
.378
.388
.320
.344
.311
.. .d o ... .310
.498
.494
.453
.529
.564
.506
.529
.495
...d o ... .493
.416
.4SI
.529
-.450
.461
.488
.519
.460
.456
...d o ...
.342
.340
.337
.315
.326
.341
.333
.344
.. .d o ... .344
.314
.330
.317
.345
.320
.323
.333
.255
.. .d o ... .271
,378
.378
.373
.329
.d o ... .293
.295
.250
.295
.329
.246
.289
.326
.300
. ..d o ... .292
.430
.608
.715
.389
.567
.393
.491
.397
D o z ... .586
.538
.597
.575
.579
.585
.555
.534
.575
L b . . . . .562
.370
.338
.374
.337
.369
.379
.335
.363
.. -d o ... .360
.128
.140
. 140
.128
.150
.140
.150
.122
Q t ----- .123
.077
.081
.084
.076
.076
.093
.088
.093
16 o z i. .089
.068
.068
.071
.063
.067
.067
.063
.067
L b . . . . .064
.080
.083
.063
.065
.064
.066
.080
.074
. ..d o ... .069
.117
.120
.119
.115
.115
.119
.117
.119
.. .d o ... .113
.028
.035
.037
.027
.021
.019
.033
.025
.. .d o ... .031
.047
.041
.051
.037
.026
.054
.048
.049
. ..d o ... .052
.185
.168
.185
.181
.185
.166
.182
.184
...d o ... .185
.169
.175
.160
.156
.169
.151
.144
.171
.. .d o ... .145
.138
.142
.159
.153
.141
.149
.153
.146
.. .d o ... .145
.097
.088
.090
.097
.088
.091
.095
.100
.100
__d o ...
.268
.342
.312
. 265
.317
.303
.326
.286
.. .d o ... .291
.724
.605
.718
.591
.591
.658
.835
.760
. ..d o ... .618
Memphis,
Tenn.

Sirloin ste a k .................
R ound s te a k ................
R ib ro a s t.......................
Chuck ro a s t..................
Plato, hoof
Pork c h o p s...................
Bacon, slic ed ...............
H am , s lic ed ..................
L a rd ...............................
L a m b .............................

Mar.
15,
1918.

Louisville,
K y.

Minneapolis,
Minn.

Newark,
N . J.

Mar.
15,
1918.
$0,441
.400
.270
.242
.324
.459
.418
.345
.325
.307
.539
.583
.339
.140
.077
,069
.077
.121

.027
.043
.186
.163
.153
.098
.342
.586

New H aven, New Orleans,
Conn.
La.

...d o .. 80.302 80.318 80. 264 $0.277 $0.366 $0.365 $0.418 $0.409 $0.291 $0.301
.376
.253
.259
.377
.382
.308
.261
.373
.255
. ..d o ... .288
.318
.312
.243
.253
.298
.226
.302
.264
.214
...d o ... .243
.268
.192
.199
.266
.276
.205
.265
.197
.233
...d o ... .204
166
.172
.195
.195
. 155
. 199
. 149
.183
.327
356
.350
.337
.304
.356
.362
.321
.302
...d o ... .331
.517
.500
.506
.502
.488
.442
.450
.500
.482
...d o ... .500
.438
.450
.503
.501
.343
.342
.440
.437
.436
. ..d o ... .429
.338
.336
.338
.331
.340
.342
.327
.326
.319
.. .d o ... .327
.301
.319
.335
.327
.336
.349
.330
.279
.259
. ..d o ... .306
.368
.367
.383
.318
.315
.328
.330
.336
.345
.283
.353
.301
.342
.331
...d o ... .312
.485
.395
.565
.718
.513
.783
.384
.384
.585
D o z ... .500
.498
.569
.549
.549
.609
.552
.534
.489
.559
. ..d o ... .581
.348
.345
.342
.353
.360
.358
.340
.327
.318
...d o ... .337
.143
.143
.143
.143
.145
.145
.110
.150
.110
Q t . . . . .150
.
0S9
.073
.073
.086
.076
.076
.088
.077
.079
I60Z.1. .087
.075
.070
.071
.071
.073
.072
.060
.068
.059
L b . . . . .067
.060
.087
.085
.063
.084
.085
.056
.059
.062
.. .d o ... .059
.108
.110
.123
.125
.121
.121
.107
.116
.110
...d o ... .103
.034
.038
.034
.040
.042
.034
.018
.024
.026
. ..d o ... .037
.037
.049
.045
.062
.058
.049
.031
.041
.039
. ..d o ... .051
.174
.191
.173
.187
.190
.185
.179
.188
.176
. ..d o ... .191
. 160
.179
. 155
.179
.174
.178
.155
.162
.150
. ..d o ... .166
.154
.151
.154
.153
.144
.150
.151
.147
.144
. ..d o ... .144
.090
.088
. 101
.105
.096
.093
.093
.092
.091
.. .d o ... .096
.261
.322
.266
.329
.298
.299
.309
.294
.301
.309
. . .d o ...
.637
.634
.600
.580
.504
.546
.563
.734
.504
...d o ... .697


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

1 Loaf; 16 ounces, w eight of dough.

[1149]

102

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

A V E R A G E R E T A IL P R IC E S O F T H E P R IN C IP A L A R T IC L E S O F FO O D F O E F E B . 15,
1918, A N D M AR. 15, 1918, IN 29 C IT IE S —Concluded.
O maha,
N ebr.
A rticle.

Sirloin ste a k .................
R ound s te a k .......... .
R ib ro a s t.......................
C huck ro a s t..................
Plate beef.....................
P ork chop s...................
Bacon, sliced ................
H am , sliced..................
L a rd ...............................
L a m b ..................... .
H e n s...............................
Salmon, c an n e d ..........
Eggs, s tric tly fre s h . . .
B u tte r..........................
Cheese............................
M ilk....................
B re ad .............................
F lo u r..............................
Corn m e a i.....................
R ice................................
P o tato es........................
O nions...........................
Beans, n a v y .................
P ru n es...........................
R aisins..........................
S u g ar.............................
Coffee.............................
T e a .................................

Providence,
R. I.

R ichm ond,
Va.

R ochester,
N. Y.

U nit.
Feb.
15,
1918.

Sirloin ste a k .............
R ound s te a k ............
R ib ro a s t...................
Chuck ro a s t..............
P late b e ei..................
Pork c hop s...............
Bacon, sliced............
H am , sliced..............
L a rd ...........................
L a m b ........ ...............
H e n s...........................
Salmon, c an n e d ___
Eggs, stric tly fresh .
B u tte r........................
Cheese........................
M ilk............................
B re ad .........................
F lo u r..........................
Corn m e a l.................
R ice............................
P otato es....................
O nions......................
Beans, n a v y ............
P ru n e s ..................... .
R aisins.......................
S ugar..........................
Coffee.........................
T e a .............................

Po rtlan d ,
Oreg.

Mar.
15,
1918.

Feb.
15,
1918.

Mar.
15,
1918.

Feb.
15,
1918.

Mar.
15,
1918.

Feb.
15,
1918.

Mar.
15,
1918.

Feb.
15,
1918.

. . . d o . 80.302 10.312 $0.282 $0,281 $0,514 $0.519 $0,330 $0.336 $0,320
...d o .
.282
.296
.262 ■.265
.425
.426
.307
.317
.309
. . . d o . . .234
.241
.254
.255
.333
.334
.270
.289
.263
. . . d o . . .205
.217
.204
.208
.298
.301
.233
.245
.250
. . .d o . . . 157
.164
.167
.171
. 202
. 198
. . .d o . . .297
.297
.352
.355
.362
.359
.359
.359
.327
. . - d o .. .486
.490
.514
.529
.471
.476
.479
.470
.443
. . .d o .. .442
.455
.469
.464
.523
.523
.423
.430
.445
.. . d o . . .336
.338
.345
.346
.341
.341
.340
.332
.333
. . . d o . . .266
.275
.300
.294
.355
.332
.313
.338
.321
.. . d o . . .322
.337
.397
.371
.377
.. - d o .. .285
.288
.336
.338
.305
.309
.238
.244
.294
D oz...
.577
.351
.507
.421
.735
.567
.617
.392
.710
L b ....
.549
.504
.591
.594
.572
.576
.599
.596
.565
. - d o . . .349
.353
.324
.336
.341
.340
.356
.360
.337
Q t....
.123
.123
.127
.126
.145
.145
.147
. 147
.136
16 oz.i. .088
.088
.087
.087
.084
.088
.089
.089
.073
L b ....
.060
.060
.057
.056
.068
.069
.072
.069
.067
. - d o .. .062
.063
.069
074
.075
.076
.061
.063
.078
. . d o . . .110
.114
.118
.124
. 119
.121
.127
. 128
.128
. . d o . . .025
.016
.023
.014
.036
.026
.040
.030
.027
. . d o . . .045
.043
.032
.029
.050
.034
.061
.047
.045
. . d o . . .173
.172
.149
.149
.185
.187
.202
.198
.182
. . d o . . .164
.164
.136
.133
.177
.179
.149
.161
.188
. . d o . . .166
.168
.137
. 137
.147
.149
.149
.149
.151
. . d o . . .090
.090
.092
.097
.089
.096
.100
.095
.097
. . d o . . .315
.315
.325
.331
.339
.339
.281
.289
.303
. . d o . . .635
.642
.569
.569
.586
.586
.738
.724
.538

...d o ..
. . .d o ..
. . .d o . .
...d o ..
. . - d o ..
. . .d o ..
. . - d o ..
. . .d o ..
. . .d o . .
. . .d o ..
. . - d o ..
D oz. . .
L b ___
. . - d o ..
Q t ----16 oz.1.
L b ___
. . - d o ..
. . - d o ..
. . - d o ..
. . - d o ..
. . - d o ..
. . - d o ..
. . .d o ..
. . .d o . .
. . - d o ..
. . - d o ..


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

St. Paul, Minn.

S alt Lake City,
U tah.

Scranton, Pa.

$0,289
. 254
.237

$0.280
.261
.236
.205
.170
.352
.500
.445
.360

$0.355
.324
.281
.242
. 179
.338
.483
.441
.326

$0.357
.326
.285
.247
.184
.347
.495
.450
.324

$0.322
.312
.251
.224
. 190
.314
.494
.443
.334

.387
.302
.705
.541
.325
.140
.085
.071

.299
.466
.539
.329
.140
.085
.071

.268
.645
.598
.386
.125
.090
.064
.075
.126
.031
.049
.195
.164
.179
.092
.295
.675

.202

.146
.300
.482
.454
.321
.266
.297
.298
.589
.549
.331
.110

.088
.062
.065
.120

.024
.038
.188
. 165
.147
.096
.319
.543

$0.298
.267
.250
.216
.158
.304
.482
.456
.320
.277
.298
.380
.493
.334
.110

.079
.062
.067
.128

.020

.0.30
. 187
.165
.151
.095
.323
.550

.348
.299
.604
.575
.338
.115
.087
.054
.074
.109
.017
.045
.182
.154
.146
.097
.354
.647

$0.283
.268
.238
.215
.173
.352
.508
.446
.359
.293
.321
-394
.546
.337
.114
.088
.055
.075
.108
.014
.042
.179
.150
.145
.097
.350
.627

1 Loaf; 16 ounces, w eight of dough.

[1150]

.121

.032
.061
.180
.174
.147
.007
.316
.596

. 124
.025
.052
.181
.171
.147
.092
.318
.586

Mar.
15,
1918.
$0.323
.303
.259
.243
.346
.447
.430
.336
.318
.298
.474
.552
.342
.136
.080
.067
.079
.128
.019
.028
.193
.187
.151
.091
.303
.533

Springfield, 111.

$0,335
.327
. 265
. 233
. 319
.4Q2
.455
.338
.333
270

.390
.545
.386
. Ill
.090
.063

083

. 130
.021

.029
. 195
. 169
.178
.093
.296
.696

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

108

P R IC E C H A N G E S . W H O L E S A L E A ND R E T A IL , IN T H E U N IT E D S T A T E S .

A comparison of wholesale and retail price changes for important
food articles in recent months shows that for most commodities the
rise continues to be more pronounced in wholesale than in retail
prices. This accords with the well-established principle that whole­
sale prices respond more quickly to change-producing influences than
do retail prices.
In collecting data for the comparison it was found that in some
instances it was impossible to obtain both wholesale and retail prices
for articles having precisely the same description. For example,
fresh beef is not retailed in the same form in which it is customary
to handle it at wholesale. In such cases the articles most nearly
comparable were used. It was found impracticable, also, in most
instances to obtain both wholesale and retail prices 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 com­
parison of retail with wholesale prices can not be made. The figures
are believed to be of interest, however, in contrasting price variations
in the retail with those in the wholesale markets.
In the table which follows the wholesale price is in each case the
mean of the high and the low quotations on the date selected, as
published in leading trade journals, while the retail price is the average
of all prices reported directly to the bureau by retailers for the article
and city in question. The initials W. and R. are used to designate
wholesale and retail prices, respectively.
To assist in comparing wholesale with retail price fluctuations, the
differential between the two series of quotations at successive dates
is given. It should not be assumed, however, that this differential
represents even approximately the margin of profit received by the
retailer since, in addition to possible differences of grade between the
articles shown at wholesale and retail, various items of handling cost
are included in the figure.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

[1151]

104

MONTHLY REVIEW OF TJIE BUREAU OF LABOR STATISTICS.

W H O L E S A L E AN D R E T A IL P R IC E S O F IM P O R T A N T FO O D A R T IC L E S IN S E L E C T E D
C IT IE S .
[The in itials W =w holesale; R = re ta il.]

A rticle and city.

Beef, Chicago:
Steer loin en d s__ _W ..
Sirloin ste a k .......... . R . .
Price differential.
Beef, Chicago:
Steer rounds, N o.2. .W ..
R ound stea k ......... . R . .
Price differential.
Beef, Chicago:
Steer ribs, No. 2 .. .W ..
R ib ro a st............... .L i..
Price differential.
Beef, New York:
No. 2, lo in s............ .W ..
Sirloin ste a k .......... . R . .
Price differential.
Beef, New York:
No. 2, ro u n d s........ .W ..
R ound stea k ......... .R . .
Price differential.
Beef, New Y ork:
No. 2, rih s .............. .V /..
R ib ro a s t............... A i . .
Price differential.
Pork, Chicago:
Loins....................... .W ..
Chops...................... A i . .
Price differential.
P ork, New Y ork:
Loins, w estern___ .W ..
Chops...................... A i . .
Price differential.
Bacon, Chicago:
Short clear' sid e s.. W ..
Sliced..................... R . . .
Price differential.
H am , Chicago:
Sm oked................. W ..
Smoked, sliced___ -R ..
Price differential.
L ard, New York:
P rim e c o n tra c ts .. -W ..
P u re t u b ................. . R . .
Price differential..
L am b, Chicago:
D ressed ro u n d ___ ,W _.
Leg of y earling___ . R . .
P ricf differential..
P o u ltry , New Y ork:
Dressed fowls........ .W ..
Dressed hens.......... .R . .
Price differential..
B u tte r, Chicago:
Cream ery, e x tra .. W ..
Creamery, e x tr a ... . R . .
Price differential. .
B u tte r, New Y ork:
Cream ery, e x tra . . W ..
C ream ery, e x tr a . . . R . .
Price differential..
B u tte r, San Francisco:
Cream ery, e x tra . . .W ..
Cream ery, e x tr a .. . R . .
Price differential..
Cheese, Chicago:
W hole m ilk........... W ..
F ull c re am ............. . R . .
Price differential. .
Cheese, New Y ork:
W hole m ilk, S tate W ..
F ull cream ............. A i . .
Price differential..

Ju ly .
1913:
Aver­
U nit. age
for
year. 1914 1915

1917

1916

Jan.

1918

Mar. A pr. July.

Oct.

Jan.

Mar.

L b .. SO. 168 $0.175 $0.160 $0.205 $0.200 $0.200 $0. 200 $0.190 10.235 $0.200 $0.220
L b .. .232 . 26C .258 .281 .265 .269 .293 .302 .306 .302 .303
.061 .085 .098 .076 .065 .069 .093 .112 .071 . 102 .083
.143
.228
. 085

.145
.241
.096

.227
.107

.135
.233
.098

. 155
.256
.101

.170
.266
.096

.190
.273
.083

.165
.273
. 108

.165

. 145
.213
.068

.175
.229
.054

.160
.223
.063

.175
.216
.041

.210

.200

.241
.031

.246
.046

.230
.247
.017

.200

.047

.254
. 054

.255
.055

.183
.274
.091

.200

.112

.294
.094

.180
.284
.104

.195
.296
.101

.190
.318
.128

.190
.337
.147

.275
.356
.081

.235
.344
.109

.121

.249
.128

.135
. 27C
.135

.135
.271
.136

.145
.289
.144

.130
.275
.145

.150
.291
.141

.170
.315

.175
.337
. 162

.190
.360
. 170

.180
.352
.172

.190
.357
.167

L b ..
L b ..

. 151
.218
.067

.165
.225
.06C

.160
.227
.067

.180
.243
.063

.160
.238
.078

.185
.254
.069

.200

.270
.070

.190
.279
.089

.275
.298
.023

.235
.294
.059

.215
.296
.081

L b ..
L b ..

.149
.190
.041

.165
.204
.039

.150
.051

.165
.217
.052

.165
.227
.062

.225
.258
.033

.240
.285
.045

.250
.292
.042

.330
.358
.028

.270
.316
.046

.250
.309
.059

L b ..

Lb..

.152
.217
.065

.163
.230
.067

.153
.217
.064

.165
.239
.074

.170
.248
.078

.210

. 285
.075

.235
.319
.084

.235
.326
.091

.300
.399
.099

.265
.348
.083

.349
.094

L b ..
L b ..

.127
.294
. 167

.139
.318
.179

.113
.315
.202

. 159
.328
. 169

.158
.316
. 158

.196
.348
. 152

.218
.395
.177

.247
.439
. 192

.318
.475
.157

.301
.498
.197

.284
.492
.208

L b ..
L b ..

.166
.266

.175
.338
.163

.163
.328
.165

.190
.349
. 159

.188
.333
. 145

.228
.343
. 115

.243
.382
.139

.243
.414
.171

.283
.439
.156

.298
.428
.130

.304
.450
.146

.160
.050

.104
.156
.052

.080
.151
.071

.133
.168
.035

.159
.213
. 054

.193
.232
.039

.215
.263
.048

.201

.274
.073

.246
.313
.067

.246
.330
.084

.262
.334
.072

L b ..
L b ..

.149
.198
.049

.170
.219
.049

.190
.208
.018

.190
.231
.041

.200

.200

.220

.232
.032

.250
.050

-.263
.043

.260
.287
.027

.270
.314
.044

.240
.306
.066

.240
.316
.076

L b ..
L b ..

.182
.214
. 032

.188
.032

.175
.219
.044

.215
.256
.041

.220

.220

.261
.041

.230
.274
.044

.265
.293
.028

.248
.287
.039

.285
.323
.038

.298
.326
.028

....

L b ..
L b ..

.310
.362
.052

.265
.312
.047

.265
.322
.057

.275
.335
.060

.370
.438
.068

.400
.445
.045

.440
.484
.044

.375
.432
.057

.435
.487
.052

.490
.544
. 054

.455
.506
.051

L b ..
L b ..

.323
.382
.059

.280
.328
.048

.270
.336
.066

.285
.346
.061

.395
. 460
.065

.408
.470
.062

. 450
.513
.063

.395
. 453
.058

.443
.515
.072

.510
. 574
.064

.059

L b ..
L b ..

.317
.388
.071

.245
.329
.084

.265
.338
.073

.255
.333
.078

. 355
.425
.070

.330
.417
.087

.390
.452
.062

.385
.455
.070

.460
.545
.085

.530
.602
.072

.500
.568
.068

L b ..
L b ..

.142

.133

.145
.229
.084

.145
. 242
.097

.218
.321
. 103

. 240
.318
.078

.223
.327
.104

.216
.339
.123

.246
.368
.122

.233
. .375
.142

.248
381
.133

.146
.229
.083

.151
.228
.077

.220

.261
.313
.052

.245
. 335
.090

.238
. 328
.090

.255
. 340
.085

.230
. 344
.114

.251
. 344
.093

L b ..
L b ..
L b ..
L b ..
L b ..
L b ..

L b ..
L b ..

L b ..
L b ..


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

.131

.120

.145
.233
.088

L b ..
L b ..

.202

.071
.157
.195
.038
.158
.259
.101
.121

.100
.110

.154

.212

.144

.170
.282

.201

[11521

. 301
.081

.170
.274
.104
.200

.225
.346

.343

. 468

MONTHLY EEVIEW OF THE BUREAU OF LABOR STATISTICS.

105

W H O L E S A L E AND R E T A IL P R IC E S O F IM P O R T A N T FO O D A R T IC L E S IN S E L E C T E D
C IT IE S —Concluded.

A rticle a n d city.

Cheese, San Francisco:
F a n c y .......................W ..
Full firp,am................I t ..
Priee d ifferential............
M ilk, Chicago:
F resh .........................w ..
Fresh, b o ttle d ..........R . .
Price differential............
Milk, New Y ork:
F resh........................ W ..
Fresh, b o ttle d ..........R ..
Priee differential............
Milk, San Francisco:
F resh .........................W ..
F resh , b o ttle d ........R ..
Eggs, Chicago:
Fresh, firsts............ W ..
Strictly fresh............R . .
Priee differential...........
Eggs, New York:
Fresh, firsts............ W ..
Strictly fresh............R . .
Priee differential............
Eggs, San Francisco:
F resh.........................W ..
Strictly fresh............R ..
Meal, corn, Chicago:
F ine...........................W ..
F in e ........................... R - Pri ee d i fferential............
Beans, New Y ork:
Medium, choice— W . .
N avy, w h ite ............ I t ..
Priee differential............
Potatoes, Chicago:
W h ite 1 .....................W . .
W h ite ........................R -.
Price differential............
R ice, New Orleans:
H ead ..................... ..W ..
H ead.......................... I t . .
Price differential............
Sugar, New Y ork:
G ran u lated ............. W . .
G ran u lated .............. R . .
Price differential............


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

Ju ly .
1913:
Aver­
U nit. age
for
year. 1914 1915

1917

1916

Jan.

1918

Mar. A pr. July. Oct.

Jan.

Mar.

L b .. $0.159 $0.125 $0.115 $0.135 $0.180 80. 210 $0. 215 80.200 80.220 80.255 80.255
.200 .229 .242 .288 .297 .297 .316 .335 .326
L b ..
.085 .094 .062 .078 .082 .097 .096 • 0S0 .071
.038
.080
.042

.036
.080
.044

.037
.080
.043

.036
.081
.045

. 035
.090
.055

.030
.090
.060

.030
.090
.060

.031
.090
.059

.100

Q t..
Q --

.039

.039

.038

.038

.100

.100

.100

.100

.061

.061

.062

.062

Doz.
Doz.

.226
.292
.066

.188
.261
.073

.168
.248
.080

.218
.296
.078

Doz.
Doz.

.249
.397
. 148

.215
. 353
.138

.200

Doz. ..2 6 8
Doz. .373
.105

.230
.338
.108

.220

L b ..
L b ..

.014
.029
.015

.016
.028

L b ..
L b ..

.040

.040

B u ..
B u ..

.614 1.450
.900 1.640
.286 . 190

L b ..
L b ..

.050

O .t..
Q t..
Q ,t..
Q t. -

L b ..
L b ..

.043
.049
.006

.100

.100

.046

.053

.074
.129
.055

.070
.119
.049

.062
.119
.057

.049

.049
.109
.060

.049
.109
.«60

. 050
.114
.064

.072
.138
.066

.081
.150
.069

.075
.146
.071

.038

.038

.038

.043

.100

.059

.066

.100

.100

.121

.066

.100

.121

.121

.062

.062

.062

.057

.062

.055

.055

.485
.525
.040

.263
.323
.060

. 305
.376
.071

.310
.406
.096

.370
.469
.099

. 565
. 651
.086

.341
.407
.066

.241
.372
.131

.505
.667
. 162

.273
.408
.135

.330
.424
.094

.350
.477
. 127

.400
.627
.227

.645
.808
.163

.380
.501
. 121

.310
.090

.240
.333
.093

.380
.480
. 100

.215
.325
. 110

. 2S0
.374
.094

.320
.392
.072

.435
.608
. 173

.610
.710
.100

.380
.433
.053

.031

.019
.031

.024
.042
.018

.026
.047

.012

.021

.036
. 050
.014

.045
. 058
.013

.052
.071
.019

.051
.070
.019

.055
.071
.016

.098
.113
.015

.108
. 149
.041

.125
.152
.027

.130
. 162
.032

.154
.188
.034

.138
.185
.047

.141
.185
.044

.136
. 183
.047

.012

.054

.042
.046
.004

. 054

.040
.090
.050

.326
.126

.058
.081
.023

.045
.100

.055
.051

.047

.400 .975 1.750 2.100 2.800 2.625 1.135 1.185 .810
.700 1.356 2.370 2.717 3.455 2.975 1 . 660 1.680 1.189
.300 .381 .620 .617 .655 .350 .525 .495 .379
.049
.075
.026

. 046
.074
.028

.048
.074
.026

.048
.077
.029

.049
.088
.039

.071

. 059
.063
. 004

.075
.079
.004

.066
.074
.008

.069
.084
.015

.081
.087
.006

.074
.084

1 Good to choice.

[1153]

.101

.030

.010

.077
. 100
.023

.088
.106
.018

.085

.082
.097
.015

.073
.097
.024

.073
.088
.015

.110

.025

106

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

Wholesale and retail prices, expressed as percentages of the aver­
age money prices for 1913, are contained in the table on page 107
A few articles included in the preceding table are omitted from this
one, owing to the lack of satisfactory data for 1913. I t will be seen
from the table that since the beginning of 1917 the retail prices of
most of the commodities included in the exhibit have fluctuated at
a lower percentage level, as compared with their 1913 base, than have
the wholesale prices. This is particularly true of pork, bacon, hams,
lard, butter, milk, eggs, and com meal. For com meal especially,
there has been a much smaller percentage of increase in the retail
than in the wholesale price. Comparing March, 1918, prices with
the average for 1913, it is seen that only 3 articles of the 25 included
in the table show a larger per cent of increase in the retail than in
the wholesale price. These are beef in Chicago (two price series)
and granulated sugar in New York. In several of the months of
1917 the retail prices of these articles were relatively lower than were
the wholesale prices.
While the percentage of increase in retail prices was less than that
in wholesale prices for most of the articles, it should be noted that a
comparison of the actual prices shown in the preceding table indicates
that in the majority of cases the margin between the wholesale and
the retail price in March, 1918, was considerably greater than in
1913. The following table shows, for example, that the wholesale
price of short clear side bacon increased 124 per cent between 1913
and March, 1918, while the retail price of sliced bacon increased only
67 per cent. The preceding table show's, however, that the difference
between the wholesale price of the one and the retail price of the other
was 16.7 cents per pound hi 1913 and 20.8 cents per pound in March,
1918, or 4.1 cents more at the latter date than at the former. It
is also seen that the wholesale price in March, 1918, had increased
15.7 cents over the 1913 price, while the retail price had increased
19.8 cents.


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Federal Reserve Bank of St. Louis

[1154]

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

107

R E L A T IV E W H O L E S A L E A N D R E T A IL P R IC E S O F IM P O R T A N T FO O D A R T IC L E S IN
S E L E C T E D C IT IE S (A V E R A G E F O R 1913=100).
[The initials W = w holesale; R = re ta il.]
1913:
July.
Average
for
year. 1914 1915

A rticle and city.

Beef, Chicago:
Steer loin ends (h ip s ). . . W .. 100
Sirloin s te a k ....................... . I t . . 100
Beef, Chicago:
Steer rounds, No. 2 ......... W .. 100
R ound s te a k ...................... . R . . 100
Beef, Chicago:
Steer ribs, No. 2 ............... W .. 100
R ib ro a s t............................. -R .. 100
Beef, New York:
No. 2 loins, c ity ............... W .. 100
Sirloin s te a k ....................... . i t . . 100
Beef, New Y ork:
No. 2 rounds, c ity ............ w . .
100
R ound stea k ....................... . I L . 100
Beef, New York:
No. 2 ribs, c ity ................. W . . 100
R ib ro a s t............................. . R . . 100
P ork, Chicago:
L oin s.............. ................... W . . 100
C hops................................... A l .. 100
P ork, New Y ork:
Loins, w e ste rn .................. W .. 100
C hops................................... . i t . . 100
Bacon, Chicago:
Short clear sides............... w . .
100
Sliced................................... A i .. 100
H am s, Chicago:
Sm oked.............................. W .. 100
Sm oked, sliced................... . i t . . 100
L ard, New York:
Prim e, c o n tra c t................ W .. 100
Pure, tu b ............................ .R .. 100
L am b, Chicago:
Dressed, ro u n d ................. . W . .
100
Leg of, yearling............... . I t . . 100
P o u ltry , New Y ork:
D ressed fow ls.................... w
100
Dressed h e n s..................... 1?
100
B u tte r, Chicago:
Cream ery, e x tra ............... W- - 100
Cream ery, e x tra ............... . i t . . 100
B u tte r, New Y ork:
Creamery, e x tra ...............
100
Creamery, e x tra ............... .1 1 .. 100
B u tte r, San Francisco:
Creamery, e x tra ............... AY'.. - 100
Cream ery, e x tra ................ . I t . . 100
Milk, Chicago:
F re s h .................................. w
100
Fresh, b o ttled , delivered A i . . 100
Milk, New Y ork:
F resh ................................... W
100
Fresh, b o ttled , delivered . 1 1 . . 100
Milk, San Francisco:
F re s h ................................... . W .. 100
Fresh, b o ttle d ................... . I t . . 100
Eggs, Chicago: •
Fresh, firsts....................... AY.. 100
Strictly fresh..................... . I t . . 100
Eggs, N ew Y ork:
Fresh, firsts....................... . W .. 100
Strictly fresh..................... . I t . . 100
Eggs, San Francisco:
F re s h ...................................
100
Strictly fresh..................... . R . . 100
Meal, corn, Chicago:
F in e ..................................... W
100
F in e ..................................... . R . . 100
Potatoes, Chicago:
W h ite , good to choice. . . A Y .. 100
W hite.................................. A t. . 100
Sugar, New Y ork:
G ran u lated ........................ AV.. 100
G ran u lated ........................ . R . . 100


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

w

w

1917
1916

Jan.

119
114

119
116

119
126

112

92

103
115

1918

Mar. A pr. July.

Oct.

Jan.

113
130

140
132

119
130

131
131

118
127

130
132

145
135

126
135

130
136

111
111

134
124

127
126

146
127

127
130

127
131

123
114

120

120

123

130

174
137

149
133

134

Mar.

104

95

112

111

122
121

111

115

109
113

119

105
109

92
109

111

102

117

114

116
106

108
109

127
114

114

112
10S

112

120

107

109

116

110

124
117

140
127

145
135

157
145

149
141

157
143

109
103

106
104

119
111

106
109

123
117

132
124

126
128

182
137

156
135

142
138

111

101

111

111

106

114

119

151
136

161
150

168
154

221

107

188

181
166

108
163

107
106

101
100

109

112

110

114

138
131

155
147

155
150

197
1S4

174
160

168
151

109
108

89
107

125
112

124
107

154
118

172
134

194
149

250
162

237
169

224
167

105
127

98
12.3

114
131

113
125

137
129

146
144

146
156

170
165

180
161

1.83
169

95
98

73
94

121

145
133

175
145

195
164

183
171

221

105

186

224
206

238
209

114
111

128
105

128
117

134
117

134
126

148
133

174
145

181
159

161
155

161
160

103
103

96

118

102

120

121
122

126
128

146
137

136
134

157
151

164
152

188

85

85
89

89
93

119

129
123

142
134

121

121

119

140
135

158
150

147
140

137
135

158
150

145
138

86

111

112

88

91

122
120

126
123

139
134

122

86

77
85

84
87

80

112
110

104
107

123
116

121

86

117

145
140

167
155

158
146

105
113

142
125

124
125

195
161

184
149

163
149
214

87

84

88

110

119

97

95

100

100

101

118
12.5

86
100

86
100

89

146

140

140

100

111

121

121

143
127

206
153

231
167

100
100

97

97

97

100

121

1S9

100

110
100

151

100

100

97

100

97

121

121

83
89

74
85

96

215
180

116

101

135
129

137
139

164
161

250
223

151
139

86

80
82

97
94

203
168

133
107

141

103

120

161
158

259
204

153
126

82
83

90
89

142
129

80
87

105
100

119
105

162
163

22S

91

190

142
116

114
97

136
107

171
145

186
162

257
172

321

107

200

371
245

364
241

393
245

236
182

65
78

159
151

285
263

342
302

456
384

428
331

185
18-1

193
187

132
132

98
94

137
129

174
161

153
151

160
171

188
178

172
171

191
198

170
198

170
180

95

89
86

[1155]

111
110

102

169

108

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
M E A T P R IC E S IN FR A N C E .

The following table, taken from the Journal Officiel de la Répub­
lique Française for February 25, 1918, shows the wholesale prices for
three grades of each of six kinds of meat as reported by the Villette
market, for the second week of February, 1918, and for the third
week in February, 1914, to 1918, inclusive.
A V E R A G E W H O L E S A L E P R IC E S O P M EA TS A T T H E S L A U G H T E R H O U S E IN T H E
V IL L E T T E M A R K E T , P A R IS , F O R S P E C IF IE D W E E K S .
Average wholesale prices of m eats p e r pound.
Second

K in d s of m eat.

February,
1918.
Ox:
F irst grade............................
Second grade........................
Third grade...........................
Cow:
F irst grade............................
Second erade........................
Third grade...........................
Bull:
F irst grade............................
Second grade........................
Third grade...........................
Veal:
F irst grade............................
Second grade........................
Third grade...........................
M utton:
F irst grade............................
Second grade........................
Third grade..........................
Pork:
F irst grade............................
Second grade........................
T hird grade...........................

T h ird w eek in F e b ru a ry 1918

'

1917

1916

1915

1914

$0.313
.296
.268

$0.348
.326
.306

$0.235
.226
.208

10.215
.203
.189

$0.193
.184
.172

$0.164
.147
.137

.313
.289
.263

.348
.319
.301

.235
.224
.207

.215
.203
.189

.193
.184
.172

.165
. 149
.140

.289
.278
.261

.317
.303
.284

.211
.202

.191

.198
.191
.180

.184
.179
.170

.136
.128
.123

.490
.433
.354

.525
.473
.394

.304
.260
.216

.320
.280
.245

.226
.208
.180

.234
.214
.189

.515
.459
.398

.534
.494
.433

.380
.354
.311

.306
.271
.236

.226
.208
.191

.258
.235
.214

.484
.457
.431

.490
.464
.438

.313
.290
.265

.298
.287
.270

.189
.186
.170

.143
.140
.134

C O S T O F L IV IN G IN H O L L A N D .

The appended table taken from the December issue of the monthly
Bulletin of the Dutch Statistical Office 1 gives index numbers of the
price movement of some articles of daily consumption in Holland
during the months of September, October, and November, 1917, and
for the years 1913 to 1916, inclusive:
IN D E X N U M B E R S O F P R IC E S O F S E L E C T E D A R T IC L E S O F D A IL Y C O N SU M PTIO N IN
H O L L A N D , 1913 TO 1916, A N D S E P T E M B E R , O C T O B E R , A N D N O V E M B E R , 1917.
[Prices of 1393=100.]
1917
Article.

Cheese...............................................
Coffee................................................
M argarine.......... .............................
B u tte r oil.........................................
R ape o il............................................
Starch...............................................
Sugar (m oist)..................................
Sirup.................................................
Sugar (refined w h ite )...................
S a lt....................................................
T ea....................................................

1913

1915

1914

140
94
127
94
136
103
89

100

85
80

112

139
88

99
97
137
107
91
100

89
80
113

160
91
102

130
192
130
105
125
98
90
116

1916

180
100

no

149
214
157
115
161
102

90
119

Septem ­
ber.

Octo­
ber.

233
126
123
252
323
387
116
182
103

246
126
123
300

100

100

117

Novem­
ber.
247
128
125
308
!

116
182
103

117

i M aandschrift van h e t C entral B ureau voor de S tatistiek. T he H ague, Dec. 31, 1917.


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Federal Reserve Bank of St. Louis

[1156]

118
182
103
130
117

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

109

The figures for coke, putting the average price of eight municipal
gas works for the year 1913 at 100, were as follows:
1914 .............................................................................................................
1915 .............................................................................................................
1916 .............................................................................................................
First half of 1917.........................................................................................
July, 1917.....................................................................................................
August, 1917................................................................................................
September, 1917.........................................................................................
October, 1917..............................................................................................
November, 1917.....................................................................

85.58
123.73
152.10
200.99
230.24
229.80
243.16
243.27
265.45

CHANGES IN THE CHARACTER OF FOOD CONSUMPTION IN SWEDEN.

It is generally known that as prices of certain articles of consump­
tion increase purchasers whose incomes do not increase in like
proportion will begin buying articles of a cheaper grade of the same
kind, or will substitute others of a different kind lower in price.
Thus oleomargarine may be substituted for butter, beans for meat,
and mixed breads for wheat bread, to mention only a few. While
these facts are generally known, the matter has never been definitely
disclosed in any formal investigation because of the difficulties of
securing data from the same families at different periods of time—a
period of low prices, and a period of high prices.
Such an investigation, however, has now been made by the Swedish
labor office 1 at a time when changes of the kind mentioned have been
very rapid. In 1913-14 an extended inquiry was made by that office
into the cost of living of families of moderate or low earnings. In
1916 a similar inquiry was directed by the Crown. Household
account books were distributed in the cities taking part in the former
inquiry and were kept by the same families that participated in the
earlier investigation. The data secured covered the month of May,
1914, and May, 1916, so as to reflect conditions before and during the
War. Twenty-five cities participated in the inquiry. The study
included 601 family budgets kept for one month.
The average income per family per week was 35.92 crowns ($9.63)
in 1914, and 39.22 crowns ($10.51) in 1916. The average weekly
income, however, per unit of consumption—adult 15 or more years
of age—had increased only slightly, i. e., from 10.67 crowns ($2.86) to
10.84 ($2.91) because of a corresponding increase in the number in
each family and in the average age of the members during the period
between the two inquiries. While there was a slight change in
average weekly income only about half as many families in 1916 as in
i Ilvsm edelsforbrukningei! inom m indre bem edlade hushS.Il &ren 1914 och 1916 av. K . Soeialstyrelsen.
Stockholm, 1917. 77 p p .

54591°—18— —8

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Federal Reserve Bank of St. Louis

[1157]

110

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

1914 were in the lowest income group—i. c., under 30 crowns ($8.04)
a week.
The results of the inquiry show that between May, 1914, and May,
1916, the tendency was to substitute cheaper for dearer articles of
food and cereals and vegetables for animal foods. There was a
decreased consumption of meat, milk, butter, cheese, and eggs and
an increased consumption of fish, oleomargarine, bread, flour, cereals,
peas, potatoes, and sugar. For example, rye bread took the place of
wheat bread and oleomargarine the place of butter.
In 1914 the average consumption of meat per household was 1,464
grams (3.23 pounds) per week, and in 1916 it was 1,402 grams (3.09
pounds), a decrease of 4.2 per cent per family, but of 11 per cent per
unit of consumption. A decreased use of salt or smoked pork per
family is shown, i. e., 270 grams (9.5 ounces) per week in 1914 to 211
grams (7.4 ounces) in 1916. Consumption of veal decreased from
249 grams (8.8 ounces) to 194 grams (6.8 ounces) per week.
In 1914 the average quantity of salt herring and codfish used per
family was 237 grams (8.37 ounces); in 1916, 298 grams (10.52 ounces),
the increase being entirely in the use of salt herring. Tire increase
was equal to 17.1 per cent per unit of consumption.
The consumption of milk decreased 10.3 per cent per unit of con­
sumption, due almost entirely to a decrease in the quantity of whole
milk used. The consumption of butter decreased from 634 grams
(22.38 ounces) to 483 grams (17.05 ounces), or 23.8 per cent, while
the use of oleomargarine increased from 431 grams (15.21 ounces) to
616 grams (21.74 ounces) per week, or 42.9 per cent. Per unit of
consumption butter fell off 29.3 per cent and oleomargarine increased
32.8 per cent. The quantity of cheese used per family decreased
28.7 per cent. There was a smaller number of eggs used per family
in 1916 than in 1914.
In grains, flour, and bread a considerable increase of consumption
is shown. The weekly supply of flour changed from 3,830 grams
(3.5 pounds) to 4,982 grams (11 pounds), an increase of 30.1 per
cent. The consumption of bread increased 11.5 per cent—4,471 to
4,984 grams (9.86 to 11 pounds). Of the different classes of bread
rye flour shows a greater increase in Its use than any other, i. e., 15.2
per cent. The consumption of white bread decreased 14.3 per cent,
from 441 to 378 grams (15.6 to 13.3 ounces). The use of oats, rice,
and other grits and groats increased 19.4 per cent; that of rice alone
increased 31.1 per cent.
Calculated per unit of consumption the increase was 21.2 per cent
for flour, 3.8 per cent for bread, and 11.5 per cent for groats and
grits.
The increase in the use of potatoes is shown to have been 51.8
per cent per famdy and 41.3 per cent per unit of consumption. The

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MONTHLY REVIEW OP THE BUREAU OF LABOR STATISTICS.

Ill

use of sugar increased 11.4 per cent per family and 3.7 per unit of
consumption. Coffee shows a slight increase per family, 9.3 per cent,
and 1 per cent per unit of consumption.
Of the total expenses for foods and drinks, proportionately more
was spent for food in 1916 (95.16 per cent) than in 1914 (93.92 per
cent). Expenses for spirituous liquors formed 2.97 in 1914 and 2.11
per cent in 1916. Meals taken away from home amounted to 2.4
per cent of total spent for food in 1914 and 1.56 per cent in 1916.
The cost of foods served at the home was 15.01 crowns ($4.03) per
week in 1914 and 19.73 ($5.29) in 1916, being an increase of 31.4 per
cent, while the decrease in the cost of spirituous liquors was 8.3 per
cent and in meals away from home 13.2 per cent. The expenditure
for tobacco remained practically stationary.
The average expenditures for meat increased during the period
from 1.98 crowns (53.1 cents) to 2.70 crowns (53.5 cents) weekly, an
increase of 36.4 per cent. The cost for this item was 12.32 per cent
of the entire weekly budget in 1914, and 13.04 per cent in 1916. The
expenditure for sausage and prepared meats increased by 29.8 per
cent, and was 3.51 and 3.57 per cent of the total food budgets of the
respective years.
Dairy products, eggs, etc., formed 35.10 per cent and 34.68 per cent
of the food budgets in 1914 and 1916, respectively. This decrease
was due to a diminished use of high-priced articles—butter, cream,
whole milk, cheese, and eggs. The per cent of expenditures increased
for skimmed milk (2.17 to 2.32), oleomargarine (3.71 to 5.62), and lard
(0.51 to 0.74).
The expenditure for bread changed slightly from 12.34 per cent to
12.29 per cent of the food budget. The expenditure for rye bread, dry
and fresh, increased, and for ail other classes of bread an approxi­
mately equal decrease is noted. Flour formed 6.91 per cent of the
budget in 1914, and 8.58 per cent in 1916. The expenditures for this
class of foods increased from 1.11 crowns (29.7 cents) per family per
week to 1.78 crowns (47.7 cents) or 60.4 per cent. Wheat flour
formed about 70 per cent in value of all flour and meal purchased.
Oats, rice, and other grits cost 52.4 per cent more per family in 1916
than in 1914.
But little difference is noted in the percentage of expenditures for
beans, peas, and other vegetables as compared with the whole food
budget. The cost of potatoes, however, increased 69 per cent.
Sugar and molasses and coffee showed a decreased proportion of
expense in the budget for the latter year, but an absolute increase,
the percentage of increase being 20.6 for sugar and molasses and 14.9
for coffee.
The Swedish labor office continued its investigation into the
changes in the dietary of the workingman's family and in the cost of

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112

MONTHLY BEVIEW OF THE BUREAU OF LABOR STATISTICS,

living, and has presented the results in a recent number of its official
journal.1 During the period May, 1916, to June-July, 1917, changes
in food consumption were somewhat different from what they were
between 1914 and 1916. Scarcity of certain foods and a system of
governmental rationing compelled a limitation in the consumption
of the cheaper cereals and vegetables. The consumption of bread,
flour, cereals, peas, potatoes, oleomargarine, and sugar decreased,
while the consumption of meat, fish, and butter increased con­
siderably, although these were not the cheaper commodities, the
principal increase in consumption being of meat and fish. The de­
tails as to amounts consumed are set forth in the following table:
A V E R A G E Q U A N T IT Y O F V A R IO U S A R T IC L E S O F FO O D CO NSU M ED P E R W E E K P E R
F A M IL Y M E M B E R MAY, 1914, MAY, 1916, A N D J U N E -JU L Y , 1917.
[Sociala M eddelanden, Stockholm, 1917, No. 10, p p. 1190,1191.]
Average w eekly consum ption p e r
fam ily m em ber.
U n it of
q u a n tity .

Ite m .

May, 1914.

May, 1916. June-July,
1917.

N um ber of m em bers in all fam ilies........

2,412

2,951

2,832

Average n u m b e r of persons p er fa m ily ..

4.55

4.66

4.60

A rticles of consumption.
M eats (all k in d s)..........................................
F resh m e a ts................ ..........................
B e e f.................................................
V eal..................................................
M u tto n ............................................
P o rk .................................................
Salt m e a ts..............................................
Beef..................................................
P o rk .................................................
Fish:
S alt h e rrin g ............................................
C od...........................................................
M ilk.................................................................
W hole.....................................................
Skim m ed ................................................
B u tte r.............................................................
O leom argarine..............................................
Cheese.............................................................
E ggs................................................................
Bread:
R ye, h a rd ...............................................
R ye, soft.................................................
W h e a t........................... ..........................
B iscuit.................................. .................
Flours:
W h e a t.....................................................
R y e..........................................................
P o ta to .....................................................
O at m eal.................................................
O th e r.......................................................
Groats a n d g rits....................................
O a ts.........................................................
R ic e .........................................................
C orn.........................................................
O th e r.......................................................
P e a s .................................................................
B eans..............................................................
P o ta to e s.........................................................
S ugar...............................................................
Coffee...............................................................

Ounce.......
. . . d o ...........
. .. d o ...........
. .. d o ...........
- - d o ...........
.. .d o...........
.. c.o...........
-. -d o ...........
. . . d o ...........
. .. d o ...........
. ..d o ...........
Q u a rt........
. .. d o ...........
. .. d o ...........
Ounce.......
. ..d o ...........
. .. d o ...........
N u m b e r ..
O unce__
... d o ...........
. ..d o ...........
...d o ...........
. .. d o ...........
. .. d o ...........
---d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
. .. d o ...........
. ..d o ..........
Q u a rt........
O unce.......
. .. d o ...........

i Sociala M eddelanden u tg iv n a av K . Socialstyrelsen.


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[ 1160]

11.5
9.1
4.1
1.9

11.1

.1

1.2

3.0
2.4

9.1
4.4
1.5

3.1

.1
2.2

2.0
.2
1.8

1.8
.2

2.2
.2

4.0

3.8
2.7

2.8
1.2

4.9
3.4
2.3
3.0
5.6
23.1
4.2
2.3
28.2
19.9
6.9
.7
.3
.4
4.1
2.8
.8
.1

.3
.7
.5

1.2
12.6

2.5

1.1

13.5
10.1

5.8

2.0
.1
2.2

3.5
.2

3.3
3.1
.4
4.1
3.2
.9

3.4
4.7
1.7
3.0

8.0

6.8

23.3
3.5

7.4
18.1
2.3

35.4
25.0
9.1

26.5
13.0

2.2

.8
.2

.3
4.9
3.4
1.0
.1

.4
1.0

.4
1. 7
13.8
2.8

Stockholm, 1917. No. 10, p p . 1176-1191.

1.7
2.0

1.0
12.1
.2
.1
1.0

2.5
.7
1.0
.2
.6

.5

.2
1.1

11.3
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

113

CIVIL REQUISITION IN FRANCE.1

A law passed August 3, 1917, provides that during the War certain
commodities stored by private persons and by certain classes of
establishments are subject to requisition. The classes of commodi­
ties and establishments to which the law applies include all articles
necessary for food, clothing, light, and heat for the civil population,
all materials used and all establishments engaged in producing, man­
ufacturing, handling, or conserving such articles.
No requisition shall be made except upon authority of decrees
issued by the council of ministers, which shall determine (1) the
nature of the commodity requisitioned, (2) the period allowed for
persons having such commodity in storage or in process of manu­
facture to furnish a declaration, (3) the quantities and materials not
subject to declaration or requisition, because of the indispensable
needs of the producer during the current season, for seeding, fertiliz­
ing, grain or fodder for working animals and for sustenance of the
members of the producer’s family and his employees engaged in the
exploitation of the enterprise, (4) the quantities of commodities not
subject to requisition because of their minor importance, and those
which will be exempt from all requisition as necessary for the require­
ments of the family of the holder and persons living with him for
the ensuing three months, but such exemptions shall be considered
in determining the quantity apportioned the holder in case the popu­
lation is placed upon rations.
The directors or proprietors of all industrial and commercial estab­
lishments of the classes subject to requisition and not in operation
are required to make a declaration in so far as it relates to the stock
of articles or materials mentioned, regardless of the purpose for which
they are held in store.
The authority of requisition is vested in the minister of commerce
and industry, upon the proposition of the minister interested. He
may delegate his authority to commissions presided over by the
prefects.
Written notice of requisition is served by civil authorities upon the
holders, operators, or proprietors.
Persons upon whom requisition shall be illegally enforced may
enter protest, and the issue may be determined by summary pro­
ceedings in a civil court of last resort. The court may declare the
writ null and allow pecuniary damages.
Notwithstanding the fact that a protest is made, all requisitions
are immediately enforcible, and no court shall suspend an execution
unless after a hearing the requisition is annulled.
1 B ulletin d u M inistère d u Travail e t de la Prévoyance Sociale.
Paris.


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Nos. 10-12, O ctober to December, 1917.

114

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 *.

Industrial and commercial establishments may be requisitioned in
whole or in part. In case of partial requisition, if the operator
agrees to conduct production or manufacture of commodities as
required by the minister of commerce, under conditions imposed by
him, the requisition is immediately canceled. In case of the requisi­
tion of an entire establishment, its operation is conducted on the
account of the State, even when at the request of the operator he
may bo permitted to direct its operations.
Before taking possession of any establishment requisitioned, an
inventory of the plant, materials, stock, and merchandise must be
taken in the presence of the operator or proprietor, who shall be
duly notified, and an expert appointed by agreement between the
minister of commerce and the interested partjq or in default of
agreement by the president of the civil court as referee. Statements
made by the operator or proprietor and by the expert shall be made
a matter of record.
A commission to which one industrial operator, one merchant,
and one member of the chamber of commerce shall be appointed,
shall decide the amount of indemnity payable in case of requisition.
The minister shall also appoint a president, who shall vote only
when there is a parity of votes. The operator or proprietor may
appeal from the award.
The same method of procedure is followed when products are
requisitioned. Awards are payable within 15 days, or thereafter
draw interest at the legal rate.
Penalties- are provided for failure to furnish declaration, and for
preparing fraudulent, etc., declarations; and requisition of commodi­
ties not declared may be ordered.


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Federal Reserve Bank of St. Louis

[11621

RECENT LABOR AWARDS,
LABOR AWARD IN PACKING-HOUSE INDUSTRIES.

The following arbitration wage award issued by the United States
administrator, Samuel Alschuler, in the packing-house industries is
of significance and importance not only because of the decisions
rendered but especially because of the argument upon which these
decisions were based. With the exception of the wage demand,
substantially everything asked for by the employees was granted
by the arbitrator. This included the important demand for a basic
eight-hour day. The eight-hour demand was granted upon eco­
nomic and social grounds. The wage increases were determined
with reference to the cost of living, although the arbitrator stated
that in arriving at these increases he was influenced by the proba­
bility of overtime work. The lower paid employees, however, were
granted not only a higher relative increase, but also a higher abso­
lute increase.
Following is the text of the award in full:
IN THE MATTER OF THE ARBITRATION OF SIX QUESTIONS CONCERN­
ING WAGES, HOURS, AND CONDITIONS OF LABOR IN CERTAIN
PACKING-HOUSE IN DU STRIES, B Y AGREEMENT SUBMITTED FOR
DECISION TO A U N ITED STATES ADMINISTRATOR.
In pursuance of agreements made with the President’s Mediation Commission, in
December, 1917, and later supplemented,1 whereunder a United States administrator
was constituted to adjust differences between certain large employers in the packing­
house industry and their employees respecting wages, hours, and conditions of em­
ployment, 18 questions were submitted for immediate arbitration by the adminis­
trator. Through subsequent negotiations between those concerned 12 of these
questions were settled by agreement, and as so agreed upon are appended hereto for
reference. The six remaining questions, in tbe form of propositions, constituting the
demands by the employees, are as follows:
1. Eight hours shall constitute the basic workday, and such workday shall lie
completed, in so far as possible, within a period of not more than nine consecutive
hours.
2. Overtime work shall be paid for at the following rates: Double tim e for all time
w'orked on Sundays and holidays, including New Year’s Day, Washington’s Birth­
day, Memorial Day, Independence Day, Labor Day, Thanksgiving Day, and Christ­
mas Day, or the days legally celebrated in lieu thereof; tim e and one-half for all time
worked upon week days in excess of the regular eight-hour workday.
3. Where plants are operated three eight-hour shifts daily, employees shall be
allowed 20 minutes off with pay, for lunch.


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1See M o n th l y R e v ie w for M arch, 1918, p. 59.
115
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

4. January 1, 1918, wages shall be increased as follows: For all hourly rate workers,
$1 per day increase over amount paid December 31, 1917, to employees in the same
classification for 10-hour day; for all pieceworkers, a percentage increase equal to
that applied to hourly rates in the same classification.

5. Wage rates shall be the same for male and female employees doing the same class
of work.
6. There shall be no change made in the guaranteed time in effect November 30,
1917.
The plants involved are those of Armour & Co., The Cudahy Packing Co., Morris
& Co., Swift & Co., and Wilson & Co., one or more of whom have packing plants at
one or more of these cities: Chicago, Kansas City, Sioux City, St. Joseph, St. Louis,
East St. Louis, Denver, Oklahoma City, St. Paul, Omaha, and Fort Worth.
The hearing for arbitration of these six questions began before me last February 11,
and continued until March 7, during and since which period the matter has had my
constant attention. It is to be regretted that the exigencies of the situation do not
admit of many months of further research and study which the importance of the
main questions involved, in principle and in conse quences, would well have justified.
If earnest devotion to the grave duty thus devolved on me could alone give assur­
ance of the excellence of the outcome, I would have no concern regarding it; but
profoundly conscious of my own limitations, I can only trust that good intent may be
so far furthered by good fortune that the award may at least fairly approximate justice
to all so deeply and alike concerned in it—employers, employees, and the public.
The award proper will be premised by a statement as brief as I can well make it,
of reasons for m y conclusions.
From the stock pens to the finished product there are many operations in this
industry, involving numerous classifications of the labor with varying wage rates.
The employees in all the plants are mostly men. The female employees are more
numerous in those few of the plants in which much canning is done. The far larger
proportions of the employees work on an hourly wage, a comparatively small number
working on the piecework plan. Of the male employees of the various plants con­
siderably more than half are what may be termed common laborers—being the men
now paid the hourly wage of 27-J cents.
Since the occurrence in 1904 of a strike at the Chicago plants, which resulted in the
complete defeat of the employees and their organizations, wage rates remained for
about 12 years practically unchanged, save perhaps for some reduction in case of the
common laborers, who theretofore were receiving about 18 cents per hour. The sharp
and progressive advance in living costs, beginning shortly after the commencement
of the War in Europe in 1914, brought about some raise in pay in March, 1916, which
operated to equalize as to the different plants the wages of the common laborers who
thereafter in all of them were paid 20 cents. The subsequent raises in the hourly
pay of all employees were: October, 1916, 2 \ cents; April, 1917, 24 cents; September,
1917, 2 \ cents. Pieceworkers were given this hourly wage for the time employed, in
addition to their piecework earnings.
The industry is of a quite seasonal nature, mainly because of larger stock shipments
during the cold weather months. Mr. O’Hern, general superintendent of the Armour
plants, stated that for two-thirds of the year the plants are not worked 50 per cent of
full capacity. The number of employees varies greatly in different seasons, and the
daily hours vary greatly not only for the different seasons, but often in the same
season.
The employers seem to regard this as a 10-hour day industry, but in practice the
hours of daily work are greater or less than 10, as best suits the needs or convenience of
the particular operation or plant. Figures submitted for one of the largest of the con­
cerns show that the average hours worked by the large number of employees in what is


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

117

known as the killing gangs, for a period of over a year next preceding the ninth day of
the present month, were about 50 hours per week. In one of the other plants it was
considerably less, and in still another somewhat more. In most of the other packing
employments more daily hours were cpiite generally served in that period; hut even
in these, it appears the daily work hours have been quite irregular, being at times
much under 10 hours, and at other times, for protracted periods, far in excess. Eleven,
12 and 13 hours daily are exceedingly common, and 14 and 15, and even more hours
daily for a number of days, not unusual, and Sunday work very frequent. The average
laborer in this industry, who, in the course of this last busy year, received for his work
an aggregate pay equal to 10 hours daily at his prevailing hourly rate, for 300 days,
would probably have worked many days far less than the 10 hours, and many other
days far in excess. In the case of women employees excess time is generally prevented
by statutory maximum time limits, this being in some of the States where there are
plants, 9 hours—in Illinois, 10.
The employers could consult their own convenience in the matter of overtime,
since there has been no advanced rate for time beyond 10 hours, save in those few
employments wherein they have made trade-union agreements, viz., printers, masons,
and teamsters, aside from which employments, it appears there have been no tradesunion agreements in these establishments since the strike of 1904.
For a number of years there has been in force a guaranteed pay system, whereunder
employees, while on the pay roll and ready for duty, are guaranteed a certain weekly
minimum wage—40 hours—in all of the plants, except Swift’s, in which it is 45. No
higher wage rate has been paid for Sunday and holiday work.
Employments which in their nature are continuous, such as heating and power plant
work, are conducted by two 12-hour daily shifts working seven days weekly.
The general nature of the work in packing houses is too well understood to require
description. The common laborer’s work does not involve any considerable degree of
skill, but is generally laborious and heavy. In the very extensive canning operations
and in some of the others the employees are largely women, whose work appears to be
of a nature lighter than that of the men, and whose hourly wage is materially less.
The building and shop trades are also represented on the pay rolls—carpenters,
machinists, plumbers, steam fitters, electricians, coopers, and others. The daily
work hours of these employees are perhaps more regular, and work generally limited
to 10.
Very many of the employees are Poles, Lithuanians, Russians and of kindred origin,
unversed in the English language, and many of them are colored. No very substantial
difference in conditions was pointed as to the plants in the different cities. In some
of them there are fewer foreigners than in others; some variance in proportion of colored
employees, and of the sexes, and some difference in different localities in prevailing
wage rates.
The much greater part of the current output of these plants must be put into suitable
form for use b y our soldiers and sailors and our allies. Tins involves the preparation
of a vast quantity of canned product, far in excess of what was theretofore made, and
the consequent employment of a great many more persons in the canning and related
departments than in normal times. It is of prime importance that there be no diminu­
tion in this output. Indeed, one of the stipulated purposes of constituting this adminis-'
tration is that there may be no interruption, cessation or curtailment in the supplies,
and services of the companies essential to the successful prosecution of the War and
military activities of the Government. Far, indeed, from curtailment of output, it
should, if necessity require, be increased, if this can be done without, through over­
work, impairing the efficiency of the employees, and rendering them less capable of
even maintaining present output.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

While we fondly hope th a t the war may be brought to a speedy end, and with com­
plete trium ph of our cause, we are confronted with the possibility th at it may be
long protracted, in which event the continued strength, confidence, and good spirit
of our defenders and of our allies will he very materially dependent upon the con­
tinuous uninterrupted and dependable movement of supplies from our country, and
largely from this industry. We must, therefore, look forward, not to spasmodic and
temporary spurts of larger production, but to the long and the steady pull under the
strain of which the strength and spirit and efficiency of the workers will likewise
be continuously assured, and the productivity of the industry steadily and reliably
maintained. This is of vital moment to us all, and particularly to the workers of our
land, for if through dire mischance this war be lost to us, and we become a vassal
Nation, dominated by a foreign m ilitary autocracy, the eight-hour day, the living
wage, and all the economic advances in labor conditions here achieved or in process
of achievement would disappear—relegated to a time so far away that no one living
would likely endure to realize them. Work hours would be to the very lim it of daily
human endurance, and the wage the merest pittance sufficing for miserable handto-mouth existence. Democracy, the hope of all men wrho believe in equality of right
and opportunity, would indeed “ perish from the earth.”
1.

TH E BA SIC E IG H T -H O U R D A T .

Assuming this to be a 10-hour industry in the sense that 10 hours is considered the
time of daily service within which the employee shall earn a livelihood for himself
and family, the demand is that this time be reduced to eight hours. Primarily, there
is involved the economic soundness and wisdom of the principle of the eight-hour
day as the normal day’s work for normal men and women under normal conditions;
for if not a sound proposition under normal conditions, it would surely be unsound
in our present situation.
Economists, sociologists, philanthropists, and publicists are quite generally favor­
able to the eight-hour workday, as being most conducive to the welfare of employers,
employees, and the community, and it would serve no beneficial purpose here to
m ultiply words in detailing and arguing the reasons they assign therefor beyond
stating the general propositions—sanctioned, I believe, by reason, and justified by
experience—that longer daily hours in most factory employments tend to induce
undue strain and fatigue, to reduce the vitality of the employee, with tendency to
irritability, listlessness, and carelessness, and to diminution of industrial efficiency,
and consequently less productivity, not only for the overtime worked b u t for the
working days; that the workman, strained and fatigued by too long hours of work, is
more prone to seek comfort in the excessive use of stimulants and other harmful in­
dulgences; that the eight-hour day gives opportunity for due recreation and rest,
for concourse with family and friends, and for self-improvement, making the happier,
healthier, more contented employee, ready day by day, with good will and vigor, to
give the best that is in him to his work, producing greater and better results, pleasing
at the same time his employer and himself, and generating far better understanding
and feeling between them ; th at the longer exemption from factory toil will broaden
his vision, tend to his moral development, and to inspire ambition for better things—
better living conditions, larger conception of our institutions, particularly on the part
of the non-English speaking foreign-born employees, fitting all for better citizenship
and a higher appreciation of its privileges and duties; th a t i t will tend to dignify
the labor itself, making it seem, as in tru th it is, worthy and proper to be undertaken
by poor or rich, foreign or native, educated or ignorant. If b ut modest part of such
benefits are fairly to be anticipated from the shorter wnrkday, it should not be delayed
longer than reasonably necessary to institute it.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

119

The public policy of the eight-hour workday has been given oft-repeated sanction
by legislation in the majority of the States as well as by Congress, through enactments
of various kinds too numerous for specific mention. In a message to Congress in
August, 1916, our President stated: “ I t seemed to me that the whole spirit of the time
and the preponderance of evidence in recent economic experience spoke for the
eight-hour day. I t has been adjudged by the thought and experience of recent years
a thing upon which society is jus tified in insisting as in the interest of health, efficiency,
contentment, and a general increase in economic vigor.” The President's Mediation
Commission in its unanimous report of last January 9 declared, “ The eight-hour day
is an established policy of the country.”
The voluminous evidence adduced at the hearing in support of the contention for
the eight-hour day is in the main logical and convincing, and it is particularly to be
noted that in so far as concerns the general principle of the eight-hour day no evidence
to dispute it was presented. Indeed on behalf of the employers it was repeatedly,
openly, and frankly, adm itted th at a workday shorter than the 10-hour day was
desirable, and on behalf of the employers and in the presence of their superintendents
it was freely stated that they all believed in a shorter workday; th at they had said
so, and th at there was no room for argument about it. Mr. O’Hern stated th at they
saw the eight-hour movement coming, and that his concern had prepared plans
involving millions of dollars for the construction of additional equipm ent for the
purpose of meeting i t ; and it was likewise stated for them that after the War is over
the packers would themselves probably put the plants on an eight-hour day, and that
the only question for the administrator respecting the eight-hour day was as to the
wisdom and advisability of installing it while we are at war.
For the employers the contention was earnestly pressed, and much evidence was ad­
duced in support, th at the plants were now constructed with a view to the 10-hour
day; th at equipment and capacities were arranged with reference to such a day, and
th at to make the necessary change for equipping the plants to be run on the 8-hour
day would entail vast structural changes and additions th at would require perhaps
two years to install, even though materials and labor were now available. I t was main­
tained that these plants are running largely to their full capacity in making the vast
meat products required by the Government for supplying our soldiers and sailors, and
our allies, and th a t if now they were placed on an actual 8-hour basis it would reduce
their output by at least 20 per cent. I t was pointed out th a t the plants, except
Armour’s Chicago plant, could not run two 8-hour killing shifts largely because of.
insufficiency of rendering tanks and cooling space. I t was urged th a t the docks for
loading cars, mainly at the Chicago plants, were insufficient to take care of a larger
output than a t present; also th a t the killing rate as to hogs had to be slowed down on
demand of the inspection authorities; and there were other difficulties suggested. All
of them I do not deem it necessary to consider in detail. If more rendering tanks were
necessary to accommodate two killing shifts, if required, I believe they would be
speedily forthcoming. Greater cooling space would doubtless require considerable
time to install, b u t the evidence shows th at in the years gone by, at times the daily kill
a t Chicago was considerably larger than even nowadays, and the cooling space, not
greater then than now, was sufficient. I t is my judgment th at the cooling space is very
infrequently taxed to its maximum, and would generally take care of a considerably
larger kill than is customary even in the busy season. Unloading facilities would, I
am sure, be readily accommodated to needs; and as to inspection, it is not likely th at
this function, maintained by the Government, would be perm itted to retard or impede
compliance with th e Government’s demands upon these plants. If this industry were
suddenly to pass from long-existing conditions to the actual eight-hour day, undoubt­
edly for a tim e there would be more or less confusion and embarrassment, w ith a
probable slowing up of production as against the present maximum. B ut I do not


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believe this would last long, but on the contrary, th a t the industry would adjust itself
to the new conditions, and the same force of employees would become quite as effective
as before to keep up the output, not to mention the employment of more if necessary.
Such results, well exemplified in other institutions which have adopted the actual
eight-hour day, the superintendents seem to have entirely omitted from their cal­
culations, in concluding th a t merely because 20 per cent was taken from the workday
of the present force it would entail a like percentage of reduction in output.
So even if the actual eight-hour workday were imposed upon this industry, I feel
abundantly assured that before very long, such would be the increased productivity of
the employees, supplemented if need be by some further equipment, and some addi­
tional help, th at there would be no diminution in the output. B ut if the confident
predictions of enthusiastic partisans of the eight-hour day, in respect to the greater pro­
ductivity of employees, should fail of substantial realization, I would yet feel confident
that the genius and ability of the men, who are in effective and successful charge of
these great plants, would soon adjust them to the new order of things w ithout lessening
the output.
The demand, however, is not for the actual eight-hour day but a basic eight-hour
day. The distinction is apparent. The one fixes the ultim ate hours of work; the
other defines and fixes the normal workday within which the wage earner should earn
his living, w ith right to require service for further time if the exigencies of the indus­
try demand. Under the agreement referred to wherein employers and employees alike
loyally and patriotically pledged themselves to the uninterrupted operation of the
plants and an undiminished output, it is plain whatever the basic day may be, em­
ployers may in good faith require, and employees will cheerfully and to the limit of
their ability render, any further service calculated to assure our Government and our
allies an undiminished meat supply, to the very ultimate capacity of the plants.
Indeed, on the hearing, all the superintendents declared, in th at same good spirit
of loyalty, th at notwithstanding the difficulties they believed were in th e way of
adopting the eight-hour workday during the continuance of the War they would,
if required, conform to the basic eight-hour day, whatever the added inconvenience
and cost, without diminishing the output of the plants.
In the recent Federal legislation making provision for further hours of service in
its many and varied industries theretofore limited to an actual eight-hour day, and
in the proclamations for authorizing such further hours of service, the Government
did not impeach the principle, nor abandon the practice of the eight-hour day, but,
foreseeing the possibility of extraordinary contingencies in these extraordinary
times, it made provision to meet them by changing the actual eight-hour day to a
basic eight-hour day 'with increased pay for overtime. The Mediation Commission
in its report above referred to said further th a t "experience has proved justification
of its principle also in war tim es.”
It is my belief th at we cam not go far astray in applying to this essential and basic
war industry substantially the declared and practiced policy of the Government
with respect to its industrial functions. I am well convinced th at the basic eighthour day, applied to these plants, will make more contented, useful, and effective
workers, better and truer Americans, and will redound to the material and moral
interest of employers, employees, and the public; and I find in principle for the
demand to have concrete application as hereinafter indicated.
As to employments which are continuous during the 24 hours, and in which it has
long been customary to employ two 12-hour shifts, it was stated on behalf of the
packers at the time of the hearing that this should and would be converted into
three 8-hour shifts, and I am of the opinion th at this should be done.
That part of this demand which refers to the serving of the eight hours in nine
consecutive hours is reasonable and is usual where labor hours are fixed, to prevent


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inconvenience and hardship by dividing the workday into various parts, which,
while aggregating no more than the total workday hours, might have to be served in
remote parts of the 24 hours.
I t is readily conceivable that so material a change in the plan of service in these
large concerns will entail much thought and planning on the part of those in charge
to avoid undue waste and the least embarrassment for all concerned, and had it been
possible to have made the decision at the time of my appointment as administrator,
in February, I would probably have fixed about 90 days in which to install the basic
eight-hour day pending which there should be in practical effect a basic ten-hour day.
But I must assume that these careful and efficient superintendents, together with their
competent aids and superiors, have not been wholly unmindful of the possibilities
of these proceedings, and have already given the m atter some thought and study.
Feeling th at it would not be just to employers to be required imm ediately to make
this change, nor to the employees to delay too long its installation I have fixed upon
May 5, 1918, as the date upon which the basic eight-hour day shall begin.
2.

C O M PEN SA T IO N F O R SU N D A Y S A N D H O L ID A Y S A N D W E E K -D A Y O V E R T IM E .

As to the fairness of the demand for a higher rate of compensation for Sundays,
holidays, and week-day overtime there was no controversy at the hearing, b u t it was
frankly conceded by such of the packers who testified, and by all of the superinten­
dents. In testifying before the United States Commission on Industrial Relations
about three years ago Mr. O’Hern, referring to the result of overtime work, said, “ we
do not get the results in overtime nor do we have men working as efficiently.” While
presumably he was referring to overtime beyond 10 hours, it would of course have
application to the true economic day’s work whatever it may be, and it is likewise
true th at if the overtime beyond the economic day’s work is continued on successive
days for any considerable time, the impaired results of the labor, and the inefficiency
of the laborer would not be lim ited to the overtime itself, b u t be reflected in the entire
day’s work as well. The higher rate serves to deter employers from unnecessarily
requiring employees to work at such times; b u t if such work is necessary it serves
also to compensate the employee for the added sacrifice he makes in so working at
times when he should have his liberty.
As to the particular holidays there was some contrariety of view, and likewise as
to the amount of the extra pay for Sundays and holidays. I t is my judgment that
double tim e should be allowed for work on Sundays, and on the following holidays:
New Year’s Day, Memorial Day, Independence Day, Labor Day, Thanksgiving Day,
and Christmas Day. Where any operation is continuous in three eight-hour shifts,
I do not believe extra pay for Sunday should be allowed if provision is made for re­
lieving the employee from work on some other day of the week.
As to overtime pay for weekdays, the employers, while conceding the general fair­
ness of the principle, contend th at the overtime should be allowed for the excess of
hours served in the week. T hat is, if the basic day were 10 hours, excess time should
be allowed only if in the week over 60 hours were served. This system is in vogue
in many industries, b u t I do not think it tends so well to serve the purpose of mini­
mizing the daily hours, or rather of equalizing them from day to day, as would the
daily application of the principle. If w ith the eight-hour day the employers may
with im m unity work the employees 16 hours daily for three days of the week, and not
at all for the others, they might regulate their stock purchases and holdings accord­
ingly, whereas if the added pay for overtime applied to the days, they would be more
likely to make effort to conform to the eight-hour day, as it would probably be more
to their advantage to carry over some of the stock for another day or two than to pay
the added rate for overtime.


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The most usual and customary rate for weekday overtime is time and one-half,
and as to such tim e served beyond 10 hours I have no hesitancy in fixing th at rate,
I am convinced, however, that for a very considerable time after th e basic eight-hour
day becomes effective, at least until employers and employees have become adjusted
to the new conditions, it will from time to tim e be necessary to serve some overtime.
In view of this fact I do not believe it would be fair, at least until long enough after
the basic eight-hour workday becomes effective to determine more definitely from
experience in this industry, to impose on the first two hours so large a penalty as for
the excess over 10 hours; and I have accordingly concluded th at on and after next May
5 for the first two hours of week day overtime the rate of compensation shall be time
and one-fourth.
As to the week day overtime rate for the time intervening between January 14
1918 (on and after which date the said arbitration agreement is by its terms effective),
until said May 5, when the basic eight-hour day becomes operative, week day time in
excess of 10 hours daily shall be compensated at the rate of time and one-half, and
Sundays double time.
3.

A LLO W A N CE OF 20 M IN U T E S F O R LU N C H W H E R E
H O U R S H IF T S .

O PE R A T IO N IS B Y T H R E E

E IG H T -

This demand was not resisted by the employers, and it appearing reasonable is
granted.
4.

IN C R E A S E IN W A G E S .

With the installation of the eight-hour workday following the theretofore 10-hour
day, there naturally goes adjustment of the hourly and piecework wage rate so that
in the full eight-hour workday there is earned an amount equal to th at theretofore
earned in the full 10-hour workday. The evidence for the employees and employers
as well, is unanimous to the effect th at whatever the economic workday is found to
be it should under normal conditions afford to the workman a day’s living wage
for himself and family of average size, generally considered to be wife and three chil­
dren of about school age. The proposition itself is too clear to require elaboration.
The superintendents agreed that while so-called market price of labor, as evidenced
by what other industries pay for it, should have some influence, yet in any event it
should be a living wage.
While it might seem th at the term “ living wage” should itself fix its boundaries
and convey its significance, it is one of those phrases not capable of exact definition,
b ut is quite dependent on the viewpoint of the one who employs it. While it might
generally be understood to be a wage affording a living suited to one’s condition in
life, it could hardly be said that if because of an unreasonably low wage the condition
in life of the employee sinks low, but that his family manages to subsist thereon, that
the condition in life of this family is thereby established, and th at th e wage paid is
suited thereto. A living wage surely imports something more than this. On the
other hand, th e common laborer’s living wage can not under th e existing order of
things be said to include extravagances and superfluities which only those of large
means can afford. On behalf of the employees various so-called “ living budgets ” were
presented. With the best of intent these must, it seems to me, reflect more or less
the point of view of those who gathered the data or those who compiled them. Where
they are made from observations of what a given number of families has actually
required to maintain them, they may not afford just guide for those families whose
earnings are customarily sufficient to warrant better living, or for families whose
earnings were unduly low but which nevertheless have been compelled to subsist
thereon, deprived of many things which they ought to have had b ut could not for
lack of means procure. As to whether or not the man w ith th e low wage has been


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compelled unduly to so deprive himself and his family, and if so to what extent,
affords room for wide divergence of opinion depending in large measure upon the
personal views and experiences of those who make or interpret the budgets. Those
used to better living might include more, and those not so accustomed less. The
budgets presented at the hearing varied from about $800 to about $2,000. While
budgets are helpful, there is difficulty in reconciling them to each other, and to the
actual conditions w ith which we have to deal.
T hat the cost of living, from the humblest to the highest, has greatly and progress­
ively increased since shortly after the War in Europe began to the present tim e is
too well known to require more than the statement. Price tables may w ith some
approximation convey an idea of percentages, but we know th at it is the common
and most generally used articles which have increased most in price. I shall not
undertake to prescribe a specific living budget for workingmen, nor to indicate with
mathematical exactness the percentage of increased living costs for the average work­
ingm an’s family, as between the present tim e and some supposedly normal period
when the wages received might have been considered adequate—if indeed as to some
of these employees such tim e there was. The raises given the employees in the last
two years have been considerable, but at least in the case of the laboring men they
supplemented a wage rate which in my judgment was for a considerable tim e before
any of these raises, quite inadequate.
If the 10-hour workman receiving 27-J cents per hour, or the eight-hour workman at
correspondingly increased rate worked 300 days a year, his wages would be $825. I
have no hesitation in saying that I do not believe under existing conditions this sum
is adequate to the ordinary needs of the average workingman’s family in the cities
involved. It should be materially increased, and in my judgment there should be a
similar increase for all those employees whose wages are lower and even somewhat
above that rate, and an increase, though not so much, for all those whose wages are
considerably more. This distinction is, I believe, warranted from the fact th at those
receiving the higher wages do not stand so greatly in need of the increase as the lower
rated workers, because w ith their far higher rate they are much better provided,
although their plane of living is no doubt higher. Such of these more skilled workmen
whoso average d a y ’s work has been nearer eight hours than 10 will of course profit
more from the eight-hour day rate, and of course, when the basic eight-hour day is in
force where overtime is worked the earnings therefor will supplement their incomes,
as well, to be sure, as the income of the others so working overtime.
In fixing the rates of increase, as well as in the overtime rate, I feel that it is my
duty to take into consideration the likelihood that under present conditions overtime
will be served. While this is my best judgment, experience alone must determine
how material a factor this will prove. A well-known economist and statistician,
testifying for the employees, stated that while it was his belief that overtime work
would be unnecessary to maintain the output, if the administrator was satisfied that
for any material tim e it would be necessary, it would only be fair for him to take
this into consideration in fixing overtime rates and wage increases.
We are not here met, as is frequently the case in wage fixing, with the ofttimes
embarrassing and influential contention th at the profits of the industry will not
warrant th e demanded hours or wages; or th at the highly competitive nature of the
business would forbid the change except at ruinous cost; or that prices and income
are so fixed by law or otherwise th at until there is possibility of change in that regard
th e change in hours or wages would prove destructive to th e employer. I t has at no
tim e been suggested in these proceedings that from the standpoint of income or profits
th e industry can not afford to meet the demands. This would not of course warrant
th e granting of wage demands which are not fair and just. If increased cost through
change of hours or advance in wages is not wholly or in part absorbed through appli-


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cation thereon of a proportion of the profits which employees are so indispensable
a factor in creating, so much of the increased cost not so met would doubtless be
reflected in the price charged for the product. The administrator is not constituted
to pass on profits nor prices. If industrial profit sharing, as notably in the Henry
Ford industries, is to be inaugurated in this industry, in due time it may come through
voluntary cooperation of employers and employees.
So far as I have been advised or know, there is no scientific method for accurate
wage fixing. In view of all the facts and conditions, I can only exercise my best
judgment, and so guided, I have concluded th a t beginning January 14, 1918, the
wage rates shall be increased over those in force December 31, 1917, by adding 41
cents an hour to the pay of all employees then receiving up to and including 30 cents
per hour, 4 cents per hour to those then receiving from 30 cents up to and including
40 cents per hour, and 3J cents per hour to all those receiving over 40 cents per hour,
piecework rates to be adjusted in like proportion according to earnings; th a t on and
after May 5, 1918, when the basic eight-hour day takes effect, the increased hourly
wage rates then in force shall be readjusted, so th a t thereafter the full eight-hour day
shall yield the same wage to the employee as did the 10-hour day immediately there­
tofore, and th a t piecework rates be readjusted on like principle.
5.

EQ U A L ITY OF W A G E R A T E S FO R M ALE AND F EM A L E E M P L O Y E E S .

There was no controversy regarding the principle which this proposition involves.
I t was conceded, and is right, and is therefore allowed.
B ut the employers m aintain th a t where males and females are doing the same class
of work they are in fact paid the same wage. The evidence shows th is to be so in
piecework, wherein it clearly appears th a t the same rate is paid to both, for the same
kind of work. There was some contrariety of evidence as to whether in the hourly
wage employments males and females were employed in the same kind of work.
The superintendents stoutly maintained th a t the work done by females is of the
lighter class, which would ordinarily not require the services of a man, b ut was such
as boys of 16 and over might ordinarily be employed to do, at a lower rate of wage.
The preponderance of the evidence in my judgment sustains the contention th at in
the main this now is the practice in this industry, and I conclude generally th a t the
evidence so shows. I t was stated by some of the superintendents th at occasionally
in workrooms where there are both male and female employees, if for an hour or so or
even somewhat longer there is no work for a male employee in the particular heavier
work at which he is customarily engaged, he may turn in and help on the lighter
work of the female employees, although he would continue to receive his usual larger
wage. The evidence shows this to be an occasional happening, and in my judgment
it would not vary the general conclusion th a t the evidence did not show male and
female employees to be doing the same class of work in the hourly-pay jobs.
6.

guaranteed

t im e

.

The demand is th at there be no change in the guaranteed tim e. I t is contended
for the employers th a t the existing guaranteed tim e, being predicated on a 10-hour
day, if the basic day is less than 10 hours, the guaranteed tim e should be correspond­
ingly reduced. I do not agree ivith this contention. The guaranteed time is weekly
and, of course, the employer would have the benefit of any overtime th a t may be
served. I believe th a t under all the circumstances it is reasonable. But if the plants
are to be run so near their full capacity as the superintendents seem to think, the
question of guaranteed time will be of slight importance. There should be some
adjustment so th a t the generally prevailing 40-hours-weekly guaranty will apply
to all of the plants. The existing 45-hour guaranty of SAvift & Co. is entirely too close
to a 48-hour week at the neAV basic-day schedule to be wholly fair. There should

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also be some change in the guaranty as to those weeks in which any one of the stated
holidays occurs; otherwise the guaranteed tim e would equal the basic-day hours for
the rest of the week. It is my judgment that as to employees who do not work on such
holidays the guaranteed tim e for the week in which it occurs be 33-| hours.
On argument it was earnestly insisted that if a basic day shorter than 10 hours
were fixed upon, it should have application only to those in the skilled trades and
occupations, the assigned reason being that in some of the operations, particularly on
the killing floors, the laboring men must of necessity serve after many of the skilled
workers have completed their day’s tasks, in order to complete the work. If all of
the workers began and quit at the same hour, there would lik ely be embarrassment
from this situation, necessitating a shorter day’s work on the part of some of the skilled
workers or a longer day’s work for these laborers. I believe this may be obviated by
having some of the laborers begin work a little later, or even if necessary, working over­
time by different ones of the laborers on different days, until some better plan can be
evolved by those whom I firmly believe to be fully capable of working it out. But it
seems to me that in any event the embarrassment incident to such a situation would be
slight compared with that which would result from the great dissatisfaction that would
undoubtedly follow if the major part of the men were excepted from the application
and benefits of the shorter day. It is these very common laborers who stand most in
need of it. It is these who in Chicago largely liv e in great numbers in that unlivable
section of the city known as “ Back of the Yards,” many of them in habitations and
in conditions in which human beings should not be permitted to remain. Whether
this is of choice or of necessity, the shorter workday w ill have tendency to elevate
the choice, and relieve the necessity. I do not believe it would be wise or just to make
the exception.
In conformity with these views I make the following award:
1. Beginning May 5, 1918, and thereafter, eight hours shall constitute the basic
workday, and such workday shall be completed, in so far as possible, within a period
of not more than nine consecutive hours.
Those operations which are continuous during the 24 hours shall on and after said
date be conducted by three shifts of eight hours each.
2. Overtime work shall be paid for at the following rates: Double time for all time
worked on Sundays and holidays, including New Year’s Day, Memorial Day, Inde­
pendence Day, Labor Day, Thanksgiving Day, and Christmas Day, or the days
legally celebrated in lieu thereof. Where the operation is necessarily and generally
carried on for seven days of the week, provision may be made by relief gangs or other­
wise, so that the employees in such operations may be relieved from duty on some
day of the week, and in case of such relief on any other day of the week double time
shall not be allowed for work on Sunday of such week.
On and after the induction of the basic eight-hour day as aoove provided, the week­
day overtime pay (not including any day for w hich double time is paid) shall be at
the rate of time and one-fourth for the first two hours in excess of the regular eighthour day on each such day and at the rate of time and one-half for all time thereafter
on each such day. For the time commencing on and intervening between January
14, 1918, and until such induction of the basic eight-hour day as above provided such
week-day overtime pay shall be at the rate of time and one-half for all time in excess
of 10 hours of work on any such day, and Sundays double time.
3. Where plants or any part thereof are operated on three eight-hour shifts daily
employees shall be allowed 20 minutes off for lunch with pay.
4. Wages shall be increased as follows: Predicated on the hourly wage rate in force
December 31, 1917, 41 cents per hour to such employees as were then being paid at
the rate of 30 cents and under per hour; 4 cents per hour to such employees as were
then being paid from 30 cents up to and including 40 cents per hour; and 3-J cents per

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hour to such employees then being paid at the rate of over 40 cents per hour. For all
pieceworkers there shall be a percentage of increase equal to that applied to hourly
rates in the same classification. All these increases shall be effective as of January 14,
1918. Upon the induction of the basic eight-hour day as aforesaid, the hourly wage
rates shall be readjusted so that thenceforth the compensation for a full eight-hour
workday shall be equal to the compensation im mediately theretofore for a full 10-hour
workday at the increased wage rates above fixed; and piecework rates shall be pro­
portionally readjusted in accordance with the same principle.
5. Wage rates shall be the same for male and female employees doing the same
class of work.
6. There shall be no change made in the guaranteed time in effect November 30,
1917, except that the weekly guaranteed time in the plants of Swift & Co. shall be 40
hours, the same as in all the other plants; and except also in those weeks wherein
any one of the above-named holidays occurs the guaranteed tim e of such employees
as do not work on any such holiday shall for such week be 33?,- hours.
S

Chicago, III., March 30, 1918.
A

g r e e m e n t

a m u el

A

l sc h u le r

, A d m in is tr a to r .

.

1. Should an employee, or employees, feel that they have been unjustly dealt with
the matter may at once be taken up with the foreman. Should a satisfactory ad­
justment not be made, the affected person or persons may appeal the matter through
the proper officials up to tire general manager of the companies. Such appeal may
be made in person or by representative, or representatives, selected by the affected
employee or employees.
It being understood that there shall be no permanent person or committee on com­
plaints or grievances in the plants, but such employee or employees have the full
right to name the same representative or representatives for successive complaints or
grievances if they see fit to do so.
Such complaints shall be made during working hours at a convenient time and
place and disposed of without unnecessary delay.
All complaints growing out of dismissals from the service must be made within
five days.
2. No employee covered by this agreement shall be suspended, demoted, or dis­
missed without just and sufficient cause. If, after proper investigation, it is found
that an employee has been disciplined unjustly he shall be reinstated with such
rights and such compensation as the arbitrator may determine.
3. No employee shall be suspended, demoted, or dismissed because of trade-union
membership or for trade-union activity not carried on at the premises nor interfering
with the operation of the plant.
4. Employees attending conventions or other duties affecting themselves shall
upon giving proper notice to the foreman or superintendent be permitted to absent
themselves without pay to attend to such duties in the same manner as workers at­
tending to the duties of fraternal organizations, so long as such absence from the plant
does not unduly interfere with the operations of the plant. Upon their return such
workers shall be reinstated into the service with all their former rights.
5. There shall be no discrimination against any employee or prospective employee
because of creed, color, or nationality.
6. The principles of seniority shall prevail as to all employees below the grade of
foreman.
7. No employee shall be discharged or discriminated against in his or her work nor
shall any person be refused employment because he or she belongs to a trade-union.


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8. Thirty days’ continuous employment shall be accepted as prixna facie proof of
general competency. After said period the specific act or acts of incom petency must
be given a dismissed employee upon demand of himself or representatives.
9. Where pieceworkers are employed piece-rate schedules shall be constantly
displayed for unhindered inspection.
10. Employees shall not be required to join company sick and death benefit asso­
ciations.
11. The companies shall furnish proper dressing rooms, lunch rooms, wash rooms,
and toilets.
12. Copies of this agreement shall be printed, framed, and posted in all shops and
other work places.

RECENT AWARDS OF THE SHIPBUILDING LABOR ADJUSTMENT BOARD.

The following awards have recently been made by the Shipbuilding
Labor Adjustment Board:
Decision as to wages, hours, and other conditions in the shipyards
of the Newport News Shipbuilding & Dry Dock Co., March 7, 1918.
Decision as to wages, hours, and other conditions in South Atlantic
and Gulf shipyards, March 4, 1918, corrected and extended April 6,
1918.
Decision as to wages, hours, and other conditions in North Atlantic
and Hudson River shipyards, April 6, 1918.
Decision as to wages, hours of work, and other conditions in ship­
yards about the Great Lakes, April 19, 1918.
In addition to the above the following awards have been made by
the board and have been published in the M o n t h l y R e v i e w :
Decision touching disputes in shipyards of San Francisco Bay and
Columbia River and Puget Sound districts, November 4, 1917, as re­
vised to February 1,1918. (M o n t h l y R e v i e w for March, 1918, p. 67.)
Decision as to wages, hours, and other conditions in the Delaware
River and Baltimore shipyards, February 14, 1918, as corrected and
extended March 1,1918. (M o n t h l y R e v i e w for April, 1918, p. 186.)
The text of three1 of the recent awards follows:
DECISION AS TO WAGES, HOURS, AND OTHER CONDITIONS IN
THE SH IPYARD OF THE NEW PORT NEWS SH IPBU ILD IN G & DRY
DOCK CO.
First. The wage scale for day workers prescribed in this decision in E xhibit “ A 2’
is to be put into effect on March 11. Pieceworkers are to have piece earnings begin­
ning March 11, increased 10 per cent until the new piece rates prescribed in the piecerate book about to be issued by the Shipbuilding Labor Adjustment Board can be
put into effect. The board directs that the uniform rates prescribed in its forthcoming
piece-rate book be put into effect by the Newport News Shipbuilding & Dry Dock Co.
as soon as practicable after copies of the piece-rate book have been received.
Second. As regards hours of employment, we prescribe the following rules:
(1)
Eight hours shall constitute a day’s work from Monday to Saturday, inclusive;
provided that during the months of June, July, and August the working days on
Saturdays shall be four hours.
i T h e a w a r d a f f e c tin g e m p lo y e e s i n t h e s h i p y a r d s a b o u t t h e G r e a t L a k e s is p r a c t i c a l l y t h e s a m e a s t h a t
a ff e c tin g e m p lo y e e s i n t h e N o r t h A t l a n t i c a n d H u d s o n R i v e r s h i p y a r d s ( p p . 136 t o 142. T h e v a r i a t i o n s a re
n o t e d o n p . 142.


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(2) W ork in excess of th e se periods on a n y w eek d a y sh all b e c o u n te d as o v e rtim e
a n d p a id for a t th e ra te of tim e a n d one-half.

(3) Work in excess of 60 hours a week for any employee shall not be permitted,
except on repair work, or when ordered by the N avy Department or the Emergency
Fleet Corporation, or to protect life or property from imminent danger.
(4) Work on Sundays and the following holidays shall be paid for at the rate of
double time: New Y ear’s Day, Washington’s Birthday; Decoration Day or Memorial
Day; Fourth of July; Labor Day; Thanksgiving Day; and Christmas Day.
(5) Men employed on the night shift shall receive compensation 5 per cent higher
than is paid to those employed on the day shift.
(6) Employees engaged on repair work in or upon vessels undergoing repair shall
receive double time for all overtime on week days as defined above, as well as on
Sundays and the specified holidays.
Our purpose in limiting overtime by the above 60-hours-a-week regulation is to
discourage a resort to excessive overtime, which leads to inefficiency and tends to
lessen rather than to increase production, and to encourage the introduction of the
two and three shift systems. The feasibility of working two or three eight-hour shifts
in shipbuilding plants has been conclusively demonstrated, and we urge the Newport
News Shipbuilding à Dry Dock Co. to take immediate steps looking toward th e
introduction of additional shifts in their yards.
Third. For all “ dirty work-’ in connection with the repair of vessels performed
in or upon the vessel, employees of the different crafts shall receive 10 cents an hour
more than the minimum hourly rates prescribed in Schedule “ A ” of this decision.
Fourth. Rates of wages now being paid to individual employees in excess of the
minimum rates fixed are in no wise altered or affected by the establishment of these
rates.
Fifth. Believing that in this national emergency past differences between employers
and employees must be forgotten in the common determination to produce the maxi­
mum possible number of ships, the board will not tolerate any discrimination either
on the part of employers or employees between union and nonunion men.
Sixth. Rates of wages for occupations not covered by this decision shall be tenta­
tively agreed upon between the individual shipyard and employees concerned.
Such tentative rates shall be reported to the examiner, who shall satisfy himself as
to the fairness of the rates tentatively fixed and report a recommendation for their
confirmation or modification by this board. The board may on the basis of such
report and recommendation determine a uniform minimum rate for each such occu­
pation, and add it to the rates prescribed in this award.
|
(Signed)
V. E v e r i t M a c y , Chairman.
(Signed)
L ouis A. C o o l i d g e .
(Signed)
À. J. B e r r e s .
W a s h i n g t o n , D. C . , March 7, 1918.
E

x h ib it

A.

M inim um wage scale fo r journeymen, specialists, helpers, and laborers in specified crafts
in the em ploy o f N ewport News Shipbuilding & D ry Dock Co.

Acetylene department:
Burners, first class__
Burners, second class
Grinders
Chippers
Welders.


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Federal Reserve Bank of St. Louis

R a te p e r h o u r.

$0. 65
. 60
. 50
. 50
.65

Angle smith department:
Angle smiths, heavy fires
Angle smiths, other fires .
Electric welders..... ...........
Firem en................................

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R a te p e r h o u r.

.65
.45

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
R a te p er h o u r,

B la c k sm ith d e p a rtm e n t:
H a m m e r a n d m a c h in e forgers,
h e a v y .. f ........... .......... , ............... $1.35
.55
H e a te rs ................ .........................
.70
L e v e r m e n a n d c r a n e m e n .........
H a m m e r ru n n e rs, h e a v y ...........
. 55
.874
B lac k sm ith s, h e a v y fires............
.724
B lack sm ith s, o th e r fire s ..............
.70
D rop forgers.....................................
B o lt m a k e r s .....................................
.724
.5)5
L in e r fo rg e rs....................................
.724
T o o lsm ith s........................................
B oiler shop:
B oiler m a k e r s .................................
.70
.60
D rille rs . . ____ ________ _______
H o ld e rs-o n ........................................
.50
.25
R iv e t h e a te rs ...................................
.55
P la n e r h a n d s ...................................
B o ltin g a n d lin e r d e p a rtm e n ts:
B o l t e r s . . . . . ....................... ...............
.50
L in e r m e n ........................................
.54
C em en t d e p a rtm e n t:
C e m e n te rs.........................................
. 50
C h ip p in g a n d c alk in g d e p a rtm e n t:
.70
T a n k te s te rs .....................................
.70
H a n d c h ip p e rs a n d calkers
P n e u m a tic
c h ip p e rs
and
.65
c a lk e rs ...........................................
.50
P a c k e rs ..............................................
C o p p ersm ith d e p a rtm e n t:
.70
C o p p e rsm ith s...................................
.724
P lu m b e rs ...........................................
P ip e fitte rs .......................................
• 724
.65
P ip e c o v e re rs..................................
.65
P ip e -fittin g m a c h in e m e n ..........
D rillin g a n d ream in g d e p a rtm e n t:
.60
D rille rs ..............................................
.50
R e a m e rs ............................................
E le c tric a l d e p a rtm e n t:
.70
E le c tric ia n s, first class.................
.65
E le c tric ia n s, second cla ss...........
. 55
W ire m e n ............................................
.70
J o in e rs ........... ...................................
.724
M achinists, first cla ss...................
.624
M achinists, second class..............
F ittin g -u p d e p a rtm e n t:
.724
F itte rs , first c la s s ...........................
.65
F itte rs , second c lass......................
.60
R egulators, first c la ss...................
.524
R eg u lato rs, second c la ss..............
F o u n d ry d e p a rtm e n t:
M o ld e rs..............................................
.724
.55
C u p o la te n d e rs ................................


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129

R a te p e r h o u r.

Foundry department—Concld.
Chippers........................................ $0. 50
Furnace m en......................................... 55
Hull engineering department':
Marine erectors, first class..................724
Marine erectors, second class...
. 624
Joiners...... ............................................ 70
Joiner department:
Joiners..................................................... 70
Machine operators............................... 70
Lumber department:
Machine m en................................
.65
Machine shop:
Machinists, first class.......... ................ 724
Machinists, second class..................... 624
Buffers and polishers...........................52
Die sinkers....................................
.75
Riggers.................................................... 624
Material labor department:
Engineers, locom otive.............. .
. 65
Operators, locomotive, canti­
lever, gantry, and other
cranes of over three tons................ 70
Operators, stiff-legged derricks.
.65
Hoisting and portable firem en..
. 45
Locomotive conductors.......................50
R,oad crane conductors...........
.50
Mold loft:
Gang leaders......................................... 85
Loftsmen, first class............................824
Loftsmen, second class...................... 724Joiners. ! ................................................70
Paint department:
Painters and polishers........................60
Pattern shop:
Pattern makers ................................... 75
Power house department:
Engineers.......................................
.70
Oilers......................................................45
Water ten d ers..............................
.45
Rigging department:
Marine leaders..................................... 75
Marine riggers...................................... 624
Crane leaders............ ,...........................75
Crane-gang leaders.. ........................... 674
Cranemen..............................................60
Erector leaders.....................................60
Erectors................................................. 50
Riveting department :
R ivet testers.........................................70
Stage builders...................................... 574
Hand riveters.......................................70
Pneumatic riveters.............................65

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R a te p e r h o u r.

R iveting department—Conoid.
$0.50
Holders-on................................
Heater boys............................................. 25
Passer boys.........................
20
Ship carpenter department:
Ship carpenters, first class___ _
.70
Ship carpenters, second class...
. 65
Fasteners...................
60
Erectors.....................................................50
Wood calkers........................................... 70
Wood reamers.......................................... 55
Ship shed department:
Punchers...................................................55
Planers and scarfers............................ 55
Countersinkers........................................ 55
Drillers...................................................... 60

R a te p e r h o u r.

Ship shed department—Concld.
Bending rollers............................. $0. 621Mangle rollers........................................ 571Pressmen, first class.............................62\
Pressmen, second class....................... 55
Offsetters..............................................55
Sawyers..............
47J
Ventilation department:
Layers-out.............................................. 70
Sheet metal workers............................ 70
All departments:
Helpers, first class................................ 42 £
Helpers, second class...........................37 J
Laborers.................................................. 35
Common laborers.................................. 30

If unable to secure an adequate force of fully qualified journeymen at the rates
specified in this award, the Newport News Shipbuilding & Dry Dock Co. may employ
men who have not yet become fully qualified journeymen at minimum hourly rates
10 cents less than those fixed for such journeymen in this scale; provided such men,
if retained in employment, shall be advanced to journeymen’s wages after having
been employed for six months after the date of this award, or after the date there­
after when they accept employment at such lower rate.

DECISION AS TO WAGES, HOURS, AND OTHER CONDITIONS IN SOUTH
ATLANTIC AND GULF SHIPYARDS BY SH IPB U IL D IN G LABOR ADJUST­
MENT BOARD MARCH 4, 1918, CORRECTED AND E X T E N D E D A PR IL 6,
1918.
First. Since the publication of the board’s decision in regard to wages, hours, and
working conditions in South Atlantic and Gulf shipyards on March 4, we have held a
conference in Washington with the shipyard owners and employees affected which
has revealed the special difficulties which must be overcome to attract and hold in
these Southern yards the force of skilled mechanics which they require to complete
the ships they have under construction.
To the South even more than to the North the shipbuilding industry is a new
industry. Not only shipyards and equipment have to be called into being, but
skilled mechanics have to be drawn in or trained in numbers far beyond the available
local supply. To these obstacles to the successful prosecution of the industry, the
long, hot summer offers a further handicap. Testimony not only from employees but
also from employers and the district officers of the Shipping Board Emergency Fleet
Corporation presented at our second hearing indicated a very general conviction that
unless wages and other conditions are made as attractive in Southern yards as they
are farther north skilled workers, whose earnings permit them to move freely from
place to place w ill migrate. In fact we are advised officially that such migration
from one Southern city has already begun. Unless this tendency is checked, the
completion in any near future of the ships in process of construction in the Southern
yards will be impossible.
In the light of these facts we have decided to substitute a modified wage scale for
that previously announced. B y means of it we hope that the shipyard contractors
may be enabled to draw skilled mechanics to their yards from interior towns.


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Encouraged by it we hope that these skilled craftsmen and the employees in the
Southern shipyards will disprove the current assumption that Southern labor is less
efficient than Northern labor and set an example to the whole country by turning out
the ships we so vitally need in record-breaking time.
B y establishing the same wage scale for skilled mechanics for the whole Atlantic
coast and Gulf, we have made it possible in coming months to institute accurate com­
parisons between all shipyards. The actual cost of each ton of shipping turned out
by the different yards will from now on measure the efficiency of the shipyard
employers and employees in these yards and enable the Government to decide wisely
what yards should be fostered through additional shipbuilding orders and what should
be suppressed because unable to keep pace with the rest of the country. Southern
shipyard owners and shipyard employees are thus given an opportunity by our
decision to show that they can build ships as economically and efficiently as the
shipyards of any other district. We believe that they will seize this opportunity
with loyal enthusiasm for the benefit of our common country.
Second. At different times since November, 1917, disputes have arisen on the
different shipyards in the district covered by this award. In accordance writh state­
ments made either by this board or by officials of the Emergency Fleet Corporation,
on the basis of which these disputes have been temporarily settled, we make the
minimum rates of wages fixed in E xhibit “ A ” of this decision retroactive for the
employees of the Tampa Shipbuilding & Engineering Co., to November 1, 1917; for
those of the Terry Shipbuilding Co. in Savannah, Ga., to January 11, 1918; for those
in the shipyards of Brunswick, Ga., and Mobile, Ala., and vicinity, to January 15,
1918; for those of the shipyards of Beaumont, Houston, and Orange, Tex., to
January 23, 1918, except for laborers in the shipyards of Orange for whom the retro­
active date is to be November 27, 1918, and for those of all the other shipyards of the
district under the jurisdiction of the board to February 1, 1918.
To determine the back pay due to an employee on the hourly wage system, the new
hourly wage fixed by the board is to be multiplied by the total number of hours which
such employee worked from the retroactive date until the date when the new wage
scale was put into effect. From the product thus determined the total wage, includ­
ing premiums and bonuses of every kind, which the employee received for his work, is
to be deducted. The balance constitutes the back pay to which he is entitled. In
determining the total number of hours of employment, hours counted and paid for at
tim e and one-half, or double time when the original payment was made, are to be
counted as time and one-half or double time in calculating earnings at the new rates
of wages, but all other hours are to be calculated as straight time.
The back pay to employees in accordance with this provision shall be paid at the
earliest date at which the elaborate calculations necessary to their determination
can be completed and approved by the auditing department.
Third. In fairness to employees whose rates of wages are fixed by this award and
who because of the lack of adequate housing facilities near the plants in which they
are employed, are compelled not only to lose tim e but to suffer a reduction in their
earnings to reach their place of employment, we direct that shipyards provide the
employees whose rates of wages are fixed by this award and who are compelled to
expend regularly more than 10 cents a day in coming to and going from their work
with free commutation or other tickets. In providing free transportation to its
employees coming from a distance, each shipyard must adopt such precautions to
prevent the privilege from being abused as may be prescribed b y the auditors of
the N avy Department and the Emergency Fleet Corporation. This provision is
subject to change at any time that the board is convinced that suitable and adequate
housing facilities are available.


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E v id e n c e has b e e n p re se n te d to n s show ing th a t som e of th e sh ip y a rd s s u p p ly
c e rta in of th e ir em ployees to o th e r sh ip y a rd s, re q u irin g su c h em ployees to p a y th e ir
ow n tra n sp o rta tio n charges. W h en su c h e x p en se for tra n sp o rta tio n for em ployees
ordered to w ork for o th e r y a rd s ex ceed s 10 c e n ts a d a y w e d ire c t th a t th e em p lo y in g
y a rd p a y th e excess a b o v e 10 c e n ts in a d d itio n to wages conform ing to th e m in im u m
scale fixed in th is aw ard.

Fourth. As regards hours of employment, we prescribe the following rules for all
of the shipyards of the district covered by this award:
(1) Eight hours shall constitute a d a y ’s work from Monday to Saturday, inclusive,
provided that during the months of June, July, and August the working day on Sat­
urdays shall be 4 hours.
(2) Work on ship construction in excess of these periods on any week day shall
be counted as overtime and paid for at the rate of tim e and one-half.
(3) Work in excess of 12 hours a day or 60 hours a week for any employee shall not
be permitted except when ordered b y the N avy Department or the Emergency
Fleet Corporation, or to protect life and property from im minent danger.
(4) Work on Sundays and the following holidays shall be paid for at the rate of
double time: New Year’s Day, Washington’s Birthday, Decoration Day, Fourth
of July, Labor Day, Thanksgiving Day, and Christmas Day.
(5) Men employed on the night shift shall receive compensation 5 per cent higher
than is paid to those employed on the day shift.
(6) Employees engaged on repair work upon or for vessels undergoing repair shall
receive double tim e for all overtime on week days as defined above, as w ell as on
Sundays and the specified holidays.
Our purpose in prescribing the maximum daily and w eekly working period is to
discourage a resort to excessive overtime which leads to inefficiency and tends to
result not only in increased costs but in lessened production. We wish also to encour­
age the introduction of the two and three shift system. The feasibility of working
two or three eight-hour shifts in shipbuilding plants has been conclusively dem^
onstrated, and we urge the southern shipyards to take immediate steps looking
toward the introduction of additional shifts in their yards.
Fifth. The shipyard owners are directed to cooperate with employees in making
effective the following rules in reference to machinery for the settlem ent of industrial
disputes.
(1) The employees in each craft or calling in a shop or yard shall have the right
to select three of their number to represent them as members of a shop committee.
Each member of this committee shall be chosen by majority vote through secret
ballot in such manner as the employees shall direct. The chairman of each shop
committee shall be a member of a joint shop committee.
(2) When a grievance arises it shall be taken up by the craft or laborers’ cojnmittee,
with the foreman or general foreman. In the event the grievance has not been
adjusted, it shall then be taken up by the joint shop committee, first with the superin­
tendent, and then failing a settlem ent, with the higher officials of the company.
If the matter can not be adjusted between the joint shop committee and these officials,
the joint shop committee shall have the right to call into the conference a representa­
tive chosen by the committee. In case such conference fails to result in a satisfactory
adjustment, the grievance shall be submitted to the examiner to be appointed by the
Shipbuilding Labor Adjustment Board as provided in the memorandum of December
8, 1917, creating thisboard.
(3) A ny committeeman appointed hereunder who shall be found to have been
discharged without just or sufficient cause after due investigation in the matter herein
provided for the adjustment of grievances shall be reinstated with full pay for all
tim e lost.


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Sixth. The question of employing apprentices shall be taken up for adjustment
in the manner provided herein for the adjustment of grievances.
Seventh. B elieving that in this national emergency past differences between
employers and employees must be forgotten in the common determination to produce
the maximum possible number of ships, the board w ill not tolerate any discrimina­
tion either on the part of employers or employees between union and nonunion men.
Eighth. Employees shall be paid at least once a week on the company’s time,
and in no case shall more than three d a y ’s pay be held back.
Ninth. A ny employee laid off or discharged, shall within 24 hours receive all
wages due him.
Tenth. No employee shall be required by the employing shipyard to pay any assess­
ment for insurance, medical attendance, or other benefits, or to sign as a condition
to employment any waiver of his legal rights.
Eleventh. Competent medical first aid shall be provided for employees requiring
such aid and paid for by the employer.
Twelfth. Shipyard owners are directed to provide for their employees adequate
and sanitary toilets, washing facilities, and pure drinking water, properly cooled
during the summer months.
Thirteenth. The minimum rates of wages to be paid to different classes of employees
by all of the shipyards of the district shall be those set forth in the schedule appended
hereto (E xhibit A), which is made a substantive part of this award.
Fourteenth. Rates of wages now being paid to individual employees in excess
of the minimum rates fixed are in no wise altered or affected by the establishment
of these rates.
Fifteenth. Rates of wages for occupations not covered by this decision shall be
tentatively agreed upon between the individual shipyards and employees concerned.
Such tentative rates shall be reported to the examiner, who shall satisfy himself as to
the fairness of the rates tentatively agreed upon and report a recommendation for their
confirmation or modification by this board. The board may, on the basis of such
report and recommendation, determine a uniform minimum rate for each such occupa­
tion and add it to the rates prescribed in this award.
Sixteenth. Under rulings of the N avy Department and the United States Shipping
Board Emergency F leet Corporation, the jurisdiction of this board is lim ited to ship­
yards which have direct contracts, other than lump-sum contracts, for submarine
chasers, from the N avy Department or the Emergency Fleet Corporation and to em­
ployees engaged in work in connection with such contracts. The provisions of this
decision apply only to yards and employees in yards under our jurisdiction as above
defined, and not to private contracts or to employees engaged in work in connection
with such contracts.
Seventeenth. The rates and other conditions prescribed in this decision, except
as otherwise provided, shall be put into effect on or before Monday, April 22, 1916.
(Signed)
V. E v e r i t M a c y , Chairman.
(Signed)
L ouis A. C o o l i d g e .
(Signed)
A. J. B e r r e s .
W a s h i n g t o n , D. C., A p ril 6, 1918.
ADDENDA

TO D E C IS IO N E O R S O U T H A T L A N T IC A N D

G U L P S H IP Y A R D S .

(1) To the stated holidays add: Half holidays on State and national election days.
(2) The retroactive provision does not apply to the payment by the employer of
the transportation expense of employees nor to the 5 per cent bonus for night work;
these payments are intended to begin with March 25.


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E

x h ib it

A.

M i n i m u m w a g e sc a le f o r jo u r n e y m e n , s p e c ia lis ts , h e lp e r s, a n d la b o re rs i n s p e c ifie d c ra fts
i n s te e l-s h ip y a r d s.
R a te p e r

Acetylene department:
hour.
Burners, first class....................... $0. 65
Burners, second class.......................... 60
Grinders.................................................. 50
Chippers..................................................50
Welders................................................... 65
Helpers....................................................46
Angle smith department:
Angle smiths, heavy fires.................... 87*
Angle smiths, heavy fires,
helpers.................................................55
Angle smiths, other fires.......................721Angle
smiths, other fires,
helpers.................................
.46
Furnace men on shapes and
plates (ship work)............................ 82*
Electric welder..................................... 65
Blacksmith shop:
Hammer and machine forgers,
heavy.......................................... 1. 35
Heater......................................................55
Lever men or cranemen......................70
Helpers..................................................50
Hammer runner, heavy...................... 55
Blacksmiths, heavy fires..................... 871
Blacksmiths,
heavy
fires,
helpers................................................55
Blacksmiths, other fires...................... 72*
Blacksmiths,
other
fires,
helpers................................................. 46
Drop forgers............................................70
Drop forgers, helpers............................50
Bolt makers............................................72 *
Bolt makers, helpers........................... 46
Liner forgers...........................................55
Liner forgers, helpers.......................... 46
Boiler shop:
Boiler makers........................................70
Drillers.................................................. 60
Holders-on..............................................50
R ivet heaters.........................................40
Flange turners.......................................75
H elpers....................................
.46
Slab furnace m en................................. 75
Planer hands......................................... 55
Bolting and liner department:
Bol ters....................................................50
Liner m en............................................ 54
H elpers................................................... 42*


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Federal Reserve Bank of St. Louis

Cement department:

R a te per

hour.

Cementers...................................... $0.50
H elpers.................................................. 42*
Chipping and calking department:
Tank testers..........................................70
Chippers and calkers..........................70
Packers...................... ........................... 50
C o p p ersm ith d e p a rtm e n t:
C o p p e rsm ith s..................................
P lu m b e rs a n d p ip e fitte r s ..........
H e lp e r s ..............................................

. 72*
.72*
.46

D rillin g a n d ream in g d e p a rtm e n t:
D rille rs ...............................................
R e a m e rs ................................... ..

.60
.50

E le c tric a l d e p a rtm e n t:
E le c tric ia n s, first c la ss.................
E le c tric ia n s, second c la s s ..........
W ire m e n ............................................
Jo in e rs................................................
M achinists, first c la s s ...................
H e lp e r s ..............................................

.70
.65
.55
.70
•72*
. 45

E re c tin g d e p a rtm e n t:
L e a d in g m e n ...................................
M arine erectors, first c la s s .........
M arine erectors, second c la s s ...
S p e cialists or h a n d y m e n ..........
H e lp e r s ..............................................
F ittin g -u p d e p a rtm e n t:
F itte rs , first c la s s ...........................
F itte rs , second c la s s .....................
R egulators, first cla ss...................
R egulators, second c la ss.............
H e lp e r s ..........................................
F o u n d ry d e p a rtm e n t:
M o ld e rs..............................................
C upola te n d e r s ................................
H e lp e r s ................................ ............
H a n d a n d m a c h in e c h ip p e r s .. .
F u rn a c e d e p a rtm e n t:
L e a d e rs ..............................................
F ire m e n a n d h e lp e rs ....................
S tr ik e r s ..............................................
H u ll en g in ee rin g d e p a rtm e n t:
M arine erectors, first c la s s ..........
M arine erectors, second c la s s ...
S p e c ia lists or h a n d y m e n ...........
J o in e rs ...............................................
H e lp e r s ..............................................

[11821

.85
.72*
.62*
.52
.45
.72*
.65

.60
.52*
. 46
.72*
.72*
.46
.50

.67*
. 55
.55
.72*
.62*
.52
.70
.40

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
R a te p e r

135
R ate per

Rigging departm ent—Contd.
hourCrane leaders.............................. $0.75
70Crane-gang leaders..............................67|
Cranem en........... ..................................60
Erector leaders...................................60
E rectors................................................ 50
Riveting departm ent:
Rivet testers........................................80
Stage builders..................................... 571Riveters................
.70
Holders-on............................................50
Heater b o y s.........................................38
Passer boys....... ...................................30
H elpers................................................. 46
Ship carpenter department :
Material labor department:
Ship carpenters, first class................ 70
Engineers, locom otive........................ 65
Ship
carpenters, second class...
. 65
Operators, locomotive, canti­
H elpers................................................. 46
lever, gantry, and other cranes
Ship shed department:
of over 3 tons..................................... 70
Punchers..........................................
.55
Operators, stiff-legged derricks. .65
Planer
and
scarier...............................55
Hoisting and portable firemen.. .50
Countersinkers.....................................55
Locomotive conductors...................... 50
Drillers....................................... *
.60
Road crane conductors............ ..
.50
Bending rollers....................................70
Mold loft:
Mangle rollers...................................... 571
Gang leaders.......................................... 85
Pressmen, first class........................... 62^
Loftsmen, first class............................. 82J
Pressmen, second class...................... 55
Loftsmen, second class..........................72J
Offse tiers..............................
Joiners..................................................... 70
Sawyers.................................................. 47J
H elpers..................................................... 42J
H elpers................................................. 46
Paint department:
Ventilation department :
Painters and polishers........................ 60
Sheet-metal workers...........................70
Bitumastic painters............................. 72\
H elpers................................................. 46
H elpers.....................................................42J All departments:
Layers-out shall receive 3 cents
Pattern shop:
Pattern makers...........................
75 an hour more than first-class
journeymen in the same de­
Laborers...........................................
.40
partm ent.
Rigging department:
Laborers...............................................40
Marine leaders...................................... 75
Common la b o re rs.................. - -30
Marine riggers....................................62^

Joiner department:
hourJoiners............................................ $0.70
Machine m e n ...........................
H elpers................................................... 421
Lumber department:
Machine m en ..............................,« .65
H elpers................................................... 422Machine shop:
Machinists, first class...........................721
Machinists, second class...........,
. 62^
Specialists or handy m en................... 52
Metal polishers, buffers and
platers................................................. 70
H elpers................................................... 46

M i n i m u m ra te s f o r e m p lo y e e s i n w o o d e n s h ip y a r d s , i n a d d itio n to tho se s p e c ifie d f o r ste el
s h ip y a r d s.

Loftsmen, first class..................................................................................................... $0.
Loftsmen, second class.......................................................................................................
Ship carpenters, first class.................................................................................................' 6
Ship carpenters, second class............................................................................................. 65
Joiners...................................................................................................................................
Mill m en................................................................................................................................. ' ^
Calkers.................................................................................................................................... ^
Fasteners......................... .....................................................................................................
Reamers..................- .............................. ..................................- .........................................
Offsetters........................................ - .................... - .......................... ........................ .


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Federal Reserve Bank of St. Louis

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136

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

Erectors...................................................... ........................................................................ $0. 55
Carpenters’ helpers, j ........................................................................................................
.46
Laborers............. . ......... ¿...................................................................................................
.40
Common laborers.
....................................................................................... ......................30
Oakum spinners, per b ale............................................................... ................................ 2. 25

DECISION AS TO WAGES, HOURS, AND OTHER CONDITIONS IN NORTH
ATLANTIC AND HUDSON R IV E R SH IPY A RD S.
First. One of the most serious influences retarding the progress of the shipbuilding
industry, according to the unanimous testimony of the yard owners and of the district
officers of the Fleet Corporation who have come before us, is the shifting of men from
yard to yard. If the shipbuilding program, so vital to our success in the war, is to
be realized, this shifting must be stopped. The only effective way to stop it is to
remove its inciting cause, the variable wage rates paid by different yards in the same
competitive region. With this purpose in view we have sought in all of our hear­
ings to determine with accuracy the lim its of each competitive region, so that we
might extend over it a uniform wage scale for shipyard employees.
We have been successful in checking the shifting of labor from yard to yard within
the districts in which we have established uniform scales, but this has only aggravated
the tendency toward shifting between districts. From Maine to Florida complaints
reach us that this shifting is going on to the extent of thousands of men a clay. Just
as this decision is issued, a single yard reports that its daily loss of employees exceeds
200. The loss in output of tonnage of ships to the country as a whole from this cause
can hardly be exaggerated.
After giving the most careful consideration to every aspect of the question, the
ease of transportation along the Atlantic and Gulf coasts, the available local labor
supplies, and local wage conditions, the cost of living in different shipbuilding cen­
ters, etc.—we have come to the conclusion that the shifting of labor will not be checked
until the same wage scale, at least for all skilled mechanics, is established for the
whole Atlantic coast and Gulf region. We have accordingly decided to establish for
all shipyards of the North Atlantic under the jurisdiction of this board the scale set
forth in E xhibit A. We are at the same tim e extending the same rates for skilled
mechanics to all South Atlantic and Gulf coast shipyards.
Second. The wage rates set forth in E xhibit A are higher than those now paid
in the North Atlantic shipyards and as high or higher than the rates paid in the most
representative outside shops employing the same crafts as the shipyards. Neverthe­
less, they are lower than were requested by the representatives of organized labor at
our hearings. The principal argument urged for still higher rates was the increase
in the cost of living in the vicinity of New York City, claimed to have been not less
than 100 per cent since the beginning of the War.
Appreciating the justice of the contention that wages should be advanced to keep
pace with the rising cost of living, we have made a special effort to secure exact
information on this point. A thorough investigation of changes in the New York
district, nof only in retail prices of food, clothing, and other items consumed by
wage earners, but also in rents, related to the family budgets of over 600 typical
families whose heads are employed in shipbuilding, has been made for us by the
United States Bureau of Labor Statistics. This proved an increase so much smaller
than that claimed by the representatives of labor that we submitted the data which
they presented at our hearings to the bureau for careful analysis. The bureau’s
report showrs that the principal reason for the discrepancy was the difference in the
method used in the two investigations. The bureau correctly weighted each item
in its investigation according to the proved importance of that item among a normal
[1184]

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

137

fam ily’s expenditures; in the investigation of the men showing the 100 per cent
increase all items, even the most insignificant, were treated as of equal importance.
Thus salad oil increasing 275 per cent was treated as equally important with bread
increasing only 3 3 per cent; caps increasing 100 per cent as equally important with
suits of clothes increasing only 52.2 per cent. Other reasons for the abnormally
high increase in the cost of living shown was the comparison of the prices of vegetables
and fresh fruits in the winter with their prices in the summer, and of the prices of
winter garments with those of summer garments. In view of the fact that the con­
clusions of the Bureau of Labor Statistics as to the true rise in the cost of living since
the beginning of the War correspond closely with other investigations, such as those
made for the railroad brotherhoods and submitted by them in connection with their
request for an increase in wages, we feel constrained to accept it as substantially accu­
rate. Adding this increase to the wage rates submitted by the men as having pre­
vailed in shipyards in 1914, we get rates somewhat lower for nearly all crafts than
those given in E xhibit A. We believe, therefore, that the wage scale fixed makes
full allowance for the increased cost of living in the New York district, which appears
to have been about the same as in other localities.
Because of this fact and of the necessity which the War imposes of adopting the
policy which will result in the maximum production of ships in the minimum time,
we have thought it our duty to disregard local considerations and to stabilize as much
as possible the whole shipbuilding industry. Though this policy does not benefit
wage earners equally in all sections, it wrnrks injustice to none. We count confi­
dently on the patriotic cooperation of both shipyard owners and employees to make
this national war policy a success.
Third. In accordance with the statement made by the board when the hearing on
labor conditions in the yards in and near New York City was postponed, the wage
rates enumerated in E xhibit A are to be retroactive for the employees in the occu­
pations enumerated in E xhibit A in the shipyards in the district about New York
Harbor, including Bridgeport, under our jurisdiction, to March 11, 1918, for steel
shipyards north of Bridgeport under our jurisdiction, to March 20, and for all other
yards covered by the award to April 1, 1918.
To determine the back pay due to an employee on the hourly wage system, the new
hourly wage fixed by the board is to be m ultiplied by the total number of hours
which such employee worked from the retroactive date until the date when the new
wage scale was put into effect. From the product thus determined the total wage,
including premiums and bonuses of every kind which the employee received for his
work, is to be deducted. The balance constitutes the back pay to which he is enti­
tled. In determining the total number of hours of employment, hours counted and
paid for as overtime when the original payment was made are to be counted as over­
time at the established rating in calculating earnings at the new rate of wages, but
all other hours are to be calculated as straight time. The back pay due to both day
workers and pieceworkers shall be paid at the earliest date at which the elaborate
calculations necessary to their determination can be completed and approved by
the auditing department.
Fourth. As regards hours of employment, we prescribe the following rules for all
of the shipyards of the district covered by this award:
(1) Eight hours shall constitute a day’s work from Monday to Saturday, inclusive:
provided, that during the months of June, July, and August the working-day on
Saturdays shall be four hours.
(2) Work on ship construction in excess of these periods on any week day shall be
counted as overtime and paid for at the rate of time and one-half time.
(3) Work on ship construction on Sundays and the following holidays shall be paid
for at the rate of double time: New Year’s Day, Washington’s Birthday, Decoration


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Day, Fourth of July, Labor Day, Thanksgiving Day, and Christmas Day, and a half
holiday on State and national election days.
(4) Employees engaged on repair work upon or for vessels undergoing repair shall
continue to receive the extra compensation which was customary in the yard at the
tim e this decision was rendered for overtime on week days, as defined above, as well
as on Sundays and the specified holidays.
(5) Men employed on the night shift shall receive compensation 5 per cent higher
than is paid to those employed on the day shift.
(6) Work in excess of 12 hours a day or 60 hours a week for any employee shall not
be permitted, except when ordered by the N avy Department or the Emergency
F leet Corporation, or to protect life or property from imminent danger.
Our purpose in prescribing the maximum daily and weekly working period is to
discourage a resort to excessive overtime, which leads to inefficiency and tends to
result not only in increased costs but lessened production. We wish also to encourage
the introduction of the two and three shift system. The feasibility of working two or
three eight-hour shifts in shipbuilding plants has been conclusively demonstrated,
and we urge the shipyards of this district to take immediate steps looking toward the
introduction of additional shifts in their yards. We believe that this is entirely
practicable even for repair yards since such yards, during the War, have been and
probably will be continuously employed to their full capacity.
Fifth. The shipyard owners are directed to cooperate with employees in making
effective the following rules in reference to machinery for the settlem ent of indus­
trial disputes:
(1) The employees in each craft or calling in a shop or yard shall have the right to
select three of their number to represent them as members of a shop committee.
Each member of this committee shall be chosen by majority vote through secret
ballot in such manner as the employees shall direct. The chairman of each shop
committee shall be a member of a joint shop committee.
(2) When a grievance arises it shall be taken up by the craft or laborers’ committee
with the foreman or general foreman. In the event the grievance has not been ad­
justed, it shall then be taken up by the joint shop committee, first with the superin­
tendent, and then, failing a settlement, with the higher officials of the company. If
the matter can not be adjusted between the joint shop committee and these officials,
the joint shop committee shall have the right to call into conference a representative
chosen by tire committee. In case such conference fails to result in a satisfactory
adjustment, the grievance shall be submitted to the examiner to be appointed by the
Shipbuilding Labor Adjustment Board, as provided in the memorandum of December
8, 1917, creating this board.
(3) Any committeeman appointed hereunder who shall be found to have been dis­
charged without just or sufficient cause, after due investigation in the manner herein
provided for the adjustment of grievances, shall be reinstated with full pay for all
tim e lost.
Sixth. The question of employing apprentices shall be taken up for adjustment in
the manner provided herein for the adjustment of grievances.
Seventh. Believing that in this national emergency past differences between em­
ployers and employees must be forgotten in the common determination to produce
the maximum possible number of ships, the board will not tolerate any discrimination
either on the part of employers or employees between union and nonunion men.
Eighth. Employees shall be paid at least once a week on the company’s tim e and
in no case shall more than three days’ pay be held back.
Ninth. Any employee laid off or discharged shall, within 24 hours, receive all
wages due him.
Tenth. No employee shall be required by the employing shipyard to pay any
assessment for insurance, medical attendance, or other benefits.

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

139

Eleventh. Competent medical first aid shall be provided for employées requiring
such aid and paid for by the employer.
Twelfth. Shipyard owners are directed to provide for their employees adequate
and sanitary toilets, washing facilities, and pure drinking water properly cooled
during the summer months.
Thirteenth. The minimum rates of wages to be paid to different classes of employees
by all of the shipyards of the district under our jurisdiction shall be those set forth in
the schedule appended hereto (Exhibit A) which is made a substantive part of
this award.
The board found conditions as regards the size of yards and the efficiency of their
equipment so variable in the district that it deems it unwise to attempt to standardize
piece rates. It directs that the piece rates prevailing for pieceworkers employed in
the district at the time this decision is rendered be increased 15 per cent and that the
back pay for such pieceworkers be determined by multiplying their total earnings at
piecework during the period when they are entitled to back pay under this award
by 15 per cent.
Fourteenth. In a yard in process of construction where the Navy Department
or the Emergency Fleet Corporation is paying the entire cost of such construction
the rates of wages to be paid to employees engaged on construction work shall be at
the prevailing rates in the building trades in the locality in which the yard is situated.
Fifteenth. Hourly or weekly rates of wages now being paid to individual employees
in excess of the minimum rates fixed are in nowise altered or affected by the estab­
lishment of these rates.
Sixteenth. Rates of wages for occupations not covered by this decision shall be
tentatively agreed upon between the individual shipyards and employees concerned.
Such tentative rates shall be reported to the examiner, who shall satisfy himself as
to the fairness of the rates suggested and report a recommendation for their confirma­
tion or modification by this board. The board may on the basis of such report and
recommendation determine a uniform minimum rate for each such occupation.
Seventeenth. Under rulings of the Navy Department and the United States Ship«ping Board Emergency Fleet Corporation, the jurisdiction of this board is limited
to shipyards which have direct contracts, other than lump-sum contracts for sub­
marine chasers, from the Navy Department or the Emergency Fleet Corporation
and to employees engaged in work in connection with such contracts. The pro­
visions of this decision apply only to yards and employees in yards under our
jurisdiction as above defined and not to private contracts or to employees engaged
in work in connection with such contracts.
Eighteenth. The rates and other conditions prescribed in this decision, except as
otherwise provided, shall be put into effect on or before Monday, April 22, 1918.
(Signed)
V. E v e r i t M a c y , Chairman.
(Signed)
L ouis A. C o o l i d g e .
(Signed)
A. J. B e r r e s .
Approved, with the following reservation:
In my opinion there should be a clear disavowal of any intention to impose the
findings of the board upon shipyards within which no disputes between employer
and employed have arisen resulting in the failure of attempts at mediation or con­
ciliation between those directly involved. The board under the memorandum
creating it has no jurisdiction over such yards. It is established to meet a grave
war emergency, and its machinery should not be used by organizations of employers
or employees to strengthen permanently such organizations or to change working
conditions in plants where labor controversies do not imperil effectiveness of operation
or impede production.
(Signed)
L ouis A. C o o l i d g e .
W a s h i n g t o n , D. C., A p r il 6, 1918.

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
E

x h ib it

A.

M i n i m u m w a g e scale f o r jo u r n e y m e n , sp e c ia lis ts , h e lp e r s, a n d laborers i n sp e c ifie d c ra fts
i n ste e l-s h ip y a rd s.

Acetylene department:
hour.
Bolting and liner department:
hour.
Burners, first class................ .
$0. 65
Bolters............................................ $0.50
Burners, second class......................... 60
Liner m e n .............................................54
Grinders....................
50
H elpers.................................................. 42£
Chippers...............................................50
Cement department:
Welders................................................ 65
Cementerà............................................. 50
H elpers.................................................46
H elpers.................................................. 42^
Angle smith department:
Chipping and calking department:
Angle smiths, heavy fires................. 87J
Tank testers........................................... 70
Angle smiths, heavy fires, help­
Chippers and calkers......................
.70
ers..............................................
.55
Packers................................................... 50
Angle smiths, other fires.................... 72\ Cleaning department:
Angle smiths, other fires, help­
Leader..................................................... 55
ers................................
46
Laborers................................................. 40
Furnace men on shapes and
Coppersmith department:
plates (shipwork)....... ..................... 82J
Coppersmiths...........................................72J
Electric welder...........................
.65
Plumbers and pipe fitters................ 72J
Blacksmith shop:
H elpers................................................... 46
Hammer and machine forgers,
Drilling and reaming department:
heavy....................................... 1.35
Drillers.................................................... 60
H eater..........................................
Reamers.................................................. 50
.55
Lever men or cranemen............
.70
Electrical department:
H elpers......................................
.50
Electricians, first class........................ 70
Hammer runners, heavy...........
. 55
Electricians, second class................... 65
Blacksmiths, heavy fires...........
Wiremen................................................. 55
Blacksmiths, heavy fires, help­
J o in e r s .................................
.70
ers..............................................
.55
Machinists, first class......................... 72J
Blacksmiths, other fires..............
■T2\
H elpers................................................... 46
Blacksmiths, other fires, help­
Erecting department:
ers..............................................
.46
Leading m e n ............ .....................
.85
Drop forgers.................................
.70
Marine erectors, first class................ 72J
Drop forgers, helpers..................
.50
Marine erectors, second class...
. 62J
Bolt m akers.................................
Specialists or handy m en ................... 52
•72^
Bolt makers, helpers.................
.46
H elpers.......... ..................................
.46
Laborers.......................................
.40
Fitting-up department:
Liner forgers.............................. .
.55
Fitters, first class..................................72§
Liner forgers, helpers.................
.46
Fitters, second class.............................65
Boiler shop:
Regulators, first class...........................60
Boiler m akers........................... .
.70
Regulators, second cla ss.. ..................52|
Drillers...................................
.60
Helpers................................................... 46
Holders-on...................................
. 50
Foundry department:
Rivet heaters...............................
.40
Holders......................................................72J
Flange turners.............................
.75
Cupola tenders.....................................72^
H elpers........................................
.4 6
H elpers................................................... 46
, Slab-furnace m en.......................
.75
Hand and machine chippers. . .
.50
Planer han d s......................... ..
.55
Laborers.........................................
.40


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Federal Reserve Bank of St. Louis

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Furnace department:
hour.
Leaders........................................... $0,672
Firemen and helpers........................... 55
Strikers...........................................
.55
H ull engineering department:
Marine erectors, first class..................724
Marine erectors, second cla ss...
. 62\
Specialists or handy m en...................52
Joiners..................................................... 70
H elpers................................................... 46
Joiner department:
Joiners....................................................70
Machine m en....................................... 70
H elpers.................................................. 42 4
Lumber department:
Machine m en....................................... 65
H elpers.................................................. 424
Machine shop:
Machinists, first class......................... 724
Machinists, second class...................624
Specialists or handy m en..................52
Metal polishers, buffers, and
platers............................................... 70
H elpers.................................................. 46
Material labor department:
Engineers, locom otive....................... 65
Operators, locomotive, canti­
lever, gantry, and other cranes
of over 3 tons............................
.70
Operators, stiff-legged derricks.
. 65
Hoisting and portable firemen .
. 50
Locomotive conductors..................... 50
Road crane conductors......................50
Mold loft:
Gang leaders.........................................85
Loftsmen, first class............................824
I^oftsmen, second class...................... 72 \
Joiners....................................................70
H elpers..................................................42 \
Paint department:
Painters and polishers....................... 60
Bitumastic painters............................724
Helpers..................................................42 J

141
R ate per

Pattern shop:
hour.
Pattern makers............................. $0. 75
.40
Laborers.........................................
Rigging department:
.75
Marine leaders....... ......................
.624
Marine riggers...............................
.75
Crane leaders...... . ........................
Crane-gang leaders........... ........
.674
.60
Cranemen......................................
.60
Erector leaders.............................
.50
Erectors.........................................
Riveting department:
R ivet testers..................................
.80
.574
Stage builders...............................
.70
R iveters.........................................
.50
Holders-on.....................................
Heater b oys...................................
.38
.30
Passer boys....................................
.46
H elpers...........................................
Ship carpenter department:
Ship carpenters, first class........
.70
Ship carpenters, second class. .
.65
H elpers...........................................
.46
Ship shed department:
Punchers........................................
. 55
Planer and scarier.......................
.55
.55
Countersinkers..............................
Drillers..................... .....................
.60
Bending rollers.............................
.70
Mangle rollers......... .....................
.574
Pressmen, first class....................
.624
Pressmen, second class...............
. 55
. 55
Offsetters........................................
Sawyers.............. ............... ............
.474
.46
H elpers...........................................
Ventilation department:
.70
Sheet-metal workers...................
H elpers...........................................
.46
All departments:
Layers-out shall receive 3 cents
an hour more than first-class
journeymen in the same de­
partment.
Laborers................. ........................
.49

M i n i m u m ra te s f o r e m p lo y e e s i n v jo o d e n -s h ip y a r d s i n a d d itio n to tho se s p e c ifie d f o r steels h ip y a r d s.

Loftsmen, first class.............................................. . ..................................................... $0. 824
. 724
Loftsmen, second class.. . \ .................................................................................. .
Ship carpenters, first class...................................................................................................70
Ship carpenters, second class............................................................................................. 65
Joiners...........................................
70
54591°—18----- 10

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B ate per hour.

Millmen.............................................................................................
$0.70
Caulkers..........................................................................................................................................70
Fasteners........................................................................................................................................ 55
Ream ers....................... ....................................................................................................... .
.55
Oft’se tiers........................................................................................................................................ 55
Erectors.......................................................................................................................................... 55
Carpenters’ helpers...................................................
46
Laborers......................................................................................................................................... 40
Oakum spinners (per bale)........................................................................................... ... 2.25
D ECISION AS TO WAGES, HOURS, AN D OTH ER CONDITIONS IN SH IP Y A R D S ABOUT
T H E GREAT LAKES.

The award affecting employees in shipyards about the Great Lakes
is practically the same as that affecting employees in North Atlantic
and Hudson River shipyards given in the preceding pages, the ship­
building labor adjustment board concluding “ that substantial justice
will be done to all classes of employees if we establish for each yard
the same wage scale, hours, and other regulations that we have
established for the shipyards on the North Atlantic coast. This
wage scale will advance substantially the wages now paid in these
yards to nearly all crafts.’’
The second provision in the North Atlantic award is not included
in the award covering the Great Lakes district. Provision is made
that the wages shall, be retroactive until April 1, and that “ piece­
workers shall receive as their back pay 15 per cent of their total
earnings at piecework from April 1 or other retroactive date until
the piece rates to be established in accordance with this decision
are put into operation.” A new provision in connection with rate
of wages established suggests that the board found that in certain
departments—for example, the department of riveting and chipping
and caulking—the employers and employees both prefer the piece
wage system, and that the piece rate scale appropriate to the types
of boats under construction in the yards of the Great Lakes dis­
trict, when agreed upon and recommended to the adjustment board
by representatives of shipyards and the piece rate crafts, shall, after
approval by the board, be adopted by all the yards of the district
employing pieceworkers.
Hours of employment after 5 p. m. and before 8 a. m. are to be
counted as hours on the night shift and are entitled to the extra
compensation provided. Hours in excess of 12 per day or 60 per
week are not permitted except in special cases.
The Great Lakes award makes the following variations from the
schedule of rates noted on pages 140 to 142: The inclusion of pipe
coverers, coppersmithing department, at 65 cents per hour; the
omission of drillers, ship-shed department, at 60 cents per hour, and
the inclusion of drillers (operators of drill presses) at 55 cents per
hour; and the establishment of a rate for laborers, all departments,
of 40 cents per hour instead of 49 cents, as shown on page 141.


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WAGES AND HOURS OF LABOR,
WAGE AWARD TO CINCINNATI BRICKLAYERS.

There exists in the city of Cincinnati an agreement between the
Contracting Bricklayers’ Association and Bricklayers’ Union No. 18.
Among the several provisions of this agreement is one which provides
for a joint board of six members, three from each side, for the adjust­
ment of grievances. Another provision of the agreement specifies
that when the adjustment board is unable to agree upon the dis­
position of a difficulty it is to be augmented by a seventh person
selected by mutual consent, and that the decision of the augmented
board is to be final and binding.
Recently a question of the wage scale for bricklayers to become
operative May 1, 1918, was submitted to the board for determination
and, as no agreement could be reached, it was finally decided to
augment the board by a seventh person. This seventh person was a
prominent trade-unionist.
Aside from the fact that the decision of the arbitrator established
a wage of $7.20 for an 8-liour day, the award made is interesting be­
cause of the procedure followed in making it. Inasmuch as the
decision was to be based upon the facts presented by the opposing
parties, the arbitrator decided to prepare a tentative or trial award
which was to be read to both parties before the final decision was made.
In effect, this procedure permitted both parties to file what might
have been considered a bill of exceptions and to be heard upon these
exceptions. This not only enabled both sides to discover the specific
values which the arbitrator had placed upon the facts submitted to
him, but also afforded an opportunity to the arbitrator to verify his
conclusions and to modify them, if necessary. This novel method of
procedure met with the unqualified approval of both parties and gave
the award a value which otherwise it would not have had.
The following is the verbatim text of the award made:
AW ARD

O F T H E A R B IT R A T O R .

When the seventh person sat with the joint hoard for the first meeting the state­
ments made were that the members of the Bricklayers’ Union No. IS had presented a
request to the Contracting Bricklayers’ Association that their1 wages should be ad­
vanced from the present rate of 75 cents per hour to a rate of 90 cents per hour begin­
ning with May 1,1918, and that the representatives of the contractors’ association had
proposed the acceptance of an hourly wage rate of 80 cents.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

At this meeting it was unanimously agreed that the question of wages would be con­
sidered from two broad points of view:
(a ) Was the increase in wages which had been requested justified by any evidence
to be introduced?
(b ) If the evidence justified the request, would it be advisable to establish this
rate, giving due consideration to the welfare of the industry?
Inasmuch as there were certain contracts for bricklaying entered into over a year
ago, it was considered essential that the application of any new wage rate to such
contracts should be determined.
One session of the joint board was devoted to the consideration of statements and
evidence bearing upon the reduction in the purchasing power of wages since the
European war began. I t was found from the statistics supplied by the Federal Bureau
of Labor and other authoritative sources that there had been a marked increase in the
price of those necessities of life purchased by wage earners. The examination of these
statistics led to the conclusion on the part of the six regular members of the joint board
that the increase of 20 per cent asked for, which would make the hourly wage rate 90
cents instead of 75 cents, was not sufficient to meet the increase in the cost of living, or,
in other words, to maintain the purchasing power of the bricklayers’ earnings. The
evidence upon this subject was so conclusive as to leave no ground for doubt or uncer­
tainty and was accepted without a dissenting opinion.
Inasmuch as the evidence introduced had indicated that the members of Brick­
layers’ Union No. 18 had been justified in requesting an hourly wage rate of 90 cents,
the important question then arose as to whether it was advisable in the best interests
of the contractors and the bricklayers to establish this rate. Would a 90-cent rate
affect the cost of building to such an extent as to prevent building operations which
would be carried on if an 80-cent rate prevailed, and to what an extent would an 80 or
85 cent rate stimulate building operations which a 90-cent rate would check or
prevent?
Would a 90-cent rate lim it to any marked extent the number of buildings to be
erected and reduce the amount of work for bricklayers?
In this field for examination, some definite evidence was introduced and the
opinions expressed by the regular members of the joint board varied in degree if not
in substance. The uncontradicted statements bearing upon this phase of the question
were in effect, that a majority of building materials ranging from sand, cement, and
bricks to lumber, paint, and structural steel had increased from 10 to 300 per cent.
The consensus of opinion expressed by the regular members of the joint board was that a
minimum average increase of these materials as used in the average building would
approximately be 50 per cent higher than in normal times. I t was also adm itted that
the cost of materials in the erecting of buildings was a larger item than the labor cost.
These statements made it apparent to the seventh person th at the increase in the
cost of building materials would prove a much greater factor in restricting building
operations than the advance in wages asked for. From estimates introduced, which
were not seriously questioned by any member of the joint board, the 90-cent hourly
rate would increase the cost of erecting the average brick dwelling about 1 per cent.
I t is apparent that every increase in the cost of erecting a building must tend to
restrict building operations and the responsibility of determining whether the 90-cent
hourly rate asked for would operate to a marked degree in holding back the investor
and retarding building operations rests upon the seventh person. After giving most
searching examination to all of the statements and arguments presented, it is his
conclusion that regardless of the price of material, or the rates of wage, building opera­
tions will be at a minimum during the period of the War, except where these are required
in connection with the production of war munitions or other national necessities.
Furthermore, that there are no indications which would warrant the belief that the


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present price of building material will be reduced during the period of the War, the
probable tendency being toward still further increases. Furthermore, th at these
present prices of material are a far greater factor in retarding building operations than
the wage rate, and finally, th at the wage rate requested by the bricklayers will not
materially affect the number of buildings to be erected in Cincinnati and vicinity
during the War.
Believing that these conclusions are fully justified by the evidence and testimony
introduced at the sessions of the joint board at which the seventh person was present,
and convinced that the facts indicate that the bricklayers are entitled to a 90-cent
hourly rate and that a lower rate would prove of no material benefit to the bricklaying
industry, he submits as his decision that, beginning May 1, 1913, the hourly rate for
bricklayers shall be 90 cents.
The question of the application of 90-cent rate to work previously contracted for
which remains unfinished May 1, 1918, presents some features which the seventh
person would not be justified in passing upon, except in so far as the establishing of
the actual rate beginning May 1 is concerned.
As the result of many years of experience, it has become the practice by mutual
agreement, that the bricklayers should give the contractors approximately six months’
notice of their desire for an advance in wages. Not only is this a six months’ notice
for contractors, but it is also the period during which bricklayers must wait for such
advance as the circumstances may justify them in receiving.
To establish a wage rate and then provide that contractors may employ members of
the union for wages below the established rate, is to merely render a decision which
even though justified, contains no power to carry it into effect, for no bricklayer could
be persuaded or compelled to work against his will for a lesser rate than the one which
had been established.
These are self-apparent facts.
The only body which has authority to pass upon such questions as to their merits,
or grant such relief as may be justified by the facts connected with any particular
case, is Bricklayers’ Union No. 18.
In so far as the present award is concerned, the 90-cent hourly rate is to apply to all
bricklayers on and after May 1, 1918.

W A G E IN C R E A S E S IN C E R T A IN F O R E IG N C IT IE S R E P O R T E D BY A M E R I­
CAN C O N SU L S.

Through the State Department the Bureau of Labor Statistics is
in receipt of communications from American consuls, respectively,
at London, telling of newly established rates of pay for British navi­
gation officers; at Nottingham (England), giving a statement of
increased wages for tramway employees; at Bordeaux (France),
noting wage increases in specified trades since the War began; at
Amsterdam (Netherlands), indicating a contemplated increase in
wages for municipal employees; and at Kingston (Ontario), outlining
a campaign for the purpose of enlisting boys for farm work, with
statement of wages to be paid, etc.
ST A N D A R D P A Y F O R B R IT IS H N A V IG A T IO N O F F IC E R S .

According to the communication from the consul general at
London, under date of February 27, 1918, the shipping controller
announced a decision reached at a meeting held on February 25,

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1918, of the navigating officers’ panel of the National Maritime
Board with regard to the monthly pay of navigating officers on cargo
liners and general trading vessels, the new standard rates being set
forth in the following table:
ST A N D A R D R A T E S O F P A Y F O R B R IT IS H N A V IG A T IO N O F F IC E R S .

R ank.

F irst m ate (w ith certificate of superior ra tin g ).

F irst m ate (w ith certificate of ra tin g ).................

Second m ate (w ith certificate of superior ra tin g )........................................... ...............................

Officer (w ith second m a te ’s certificate or uncertific a te d )............................................................

Gross tonnage.

Pay at
begin­
ning.

1,000 to
3,001 to
5,001 to
7,001 to

3,000
5,000
7,000
9,000

$107. 06
111.93
116.79

1,000 to
3,001 to
5,001 to
7,001 to

3,000
5,000
7,000
9,000

102.19

1,000 to
3,001 to
5,001 to
7,001 to
1,000 to
3,001 to
5,001 to
7,001 to

P a y after P ay after Pay after
1 year.
2 years.
3 years.
$109.49
114.36
119.23
124. 09

$111.93
116.79

$116.79

121.66

126.53

126.53
131.39

107. 06
111.93
116. 79

104.63
109. 49
114.36
119.23

107.06
111.93
116.69

111.93
118.79

3,000
5,000
7,000
9,000

91. 89
97.33
99. 76
102.19

97.33
99.76
102.19
104.63

3,000
5^00
7;000
9,000

92.46
94.89
94.89
97.33
■

94.89
97.33
97.33
99.76

121.66

121.66

121.66

121.66

126.53

Third mates, with or without certificates, receive $82.73 on all
vessels up to 9,000 tons.
It is announced that “ an officer’s pay under the new scale will be
determined as regards services by the period he has held his rank in
the same employment as at February 25, 1918” ; also that “ an officer
will be entitled to back pay at the same rate for any period of service
on articles (or continuous employment with the same owners irre­
spective of articles) as from October 6, 1917, or from the date of
commencing pay if subsequent thereto.”
The consul general states that the rates indicated in the table are
without prejudice to the question of overtime, and that it is to be
understood that the cases of oil-tank steamers, motor vessels, sailing
vessels, salvage and cable steamers, and other exceptional matters
are not covered by this decision and have yet to be considered by the
board.
IN C R E A S E D W A GES F O R N O T T IN G H A M TR A M W A Y E M PL O Y E E S .

The question of the demand of the tramway employees of Notting­
ham (England) for higher wages, declares the American consul at that
place in a communication dated March 11, 1918, was submitted, after
it became apparent that no decision could be reached between the
employers and the employees, to the Ministry of Labor, which in turn
referred the matter to the Committee on Production for settlement.
This committee reached the decision that there shall be paid to the
men concerned who are IS years of age and over, and to the grades

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147

of women of similar age whose terms of employment provide that they
shall be paid the same rates as the grades of men whose places they
are filling, a bonus of £1 ($4.87) over the prewar rates of the grades
concerned, payment to be made on the basis of a week of six days of
six shifts. It is further stated that in the case of women IS years of
age and over, not covered by the preceding clause, the advances now
being paid are to be increased by 4s. (97 cents) per week, subject to
a maximum of £ 1 ($4.87) per week over the prewar rates of the grades
concerned. The report continues:
In the case of girls and boys under 18 years of age, the advances now being paid are
to be increased by such amount per week as shall give them half the additional ad­
vances given by this award to the men or women in the same line of employment.
The advances became operative for the week beginning March 1, and are to be taken
into account in the calculation for overtime and Sunday work where extra payment
was made for such work. All existing bonuses will be taken into account in the cal­
culation of paym ent for overtime and Sunday work.
The advances thus made are to be regarded as war wages and recognized as due to
and dependent upon the existence of the abnormal conditions now prevailing in con­
sequence of the War.
So far as Nottingham is concerned the award means an advance of 5s. 8d. [$1.38]
to the men over 18 years of age employed by the Nottingham corporation tramways,
as they had previously received in bonuses since the outbreak of the War an aggregate
of 14s. 4d. [$3.49], The women, whose total bonuses heretofore have amounted to
6s. 6d. [$1.58] will be increased to the extent of 6s. 4d. [$1.54], as they have not been
receiving the same rate of war bonuses as the men.
Prior to the War the motormen employed by the Nottingham tramways were paid
wages ranging from $6.84 to $8.67 per week of six days, and the conductors were paid
$6.96 to $8.26 for the same period. Under the award recently made by the Committee
on Production the weekly wages to be paid to the Nottingham tramway employees will
be as follows:
Motormen.............................................................................. $11- 70 to $13. 53
Conductors............................................................................. 11. 82 to 13.12
Conductors (women)............................................................ 10. 08 to 11.38
The above figures are based upon a week of six days and do not take into considera­
tion Sundays and overtime, for which the employees are paid an additional amount
based upon the above rates.
The increases above mentioned affect about 450 employees of the Nottingham tram ­
ways, of whom about 180 are women.
W A GE IN C R E A S E S IN B O R D E A U X .

An average increase of 165 per cent in the prices of food and the
necessaries of life since 1913 compared with a rise in wages averaging
only 43 per cent is the interesting statement contained in a com­
munication from the American vice consul at Bordeaux (France)
writing under date of February 25, 1918. A table is furnished, com­
piled by the labor unions, indicating the daily rates of wages in 1913
and 1918 and the per cent of increase in the latter year, the con­
versions into American equivalents in 1913 being based on 5.IS francs
per dollar and in 1918 on 5.70 francs per dollar.

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D A ILY S A T E S O F W A G E S IN S P E C IF IE D T R A D E S IN B O R D E A U X (F R A N C E ), 1913 A N D 1918.

D aily rate
of wages.'
Trade.
1913

Coopers...............................
Chemical w o rk ers............
D yers, cleaners (m e n )...
D yers, cleaners (women)
Saddlers, harness.............
W om en garm ent makers
C em ent w orkers...............
Stonem asons................. ;.
C oppersm iths...................
R ailw ay em ployees.........
C arpenters.........................
M atch iactories (m e n ). . .
M atch factories (w om en).
Mechanics..........................
H oopm akers.....................

1918

81.25 $1. 75
.97 1.32
1.01 1.27
.59
.43
1.01 1.36
.48
.61
1.35 1. 75
1. 35 1.40
1.28 1.53
.68
.91
1.16 1.75
1.39 1.56
1.00 1.15
1.06 1.67
1.29 1.97

D aily rate
of wages.'

Per
cent
of in ­
crease,
1918
over
1913.2
40
36
26
37
35
27
30
4
20

34
51
12

15
58
53

Trade.
1913

Saw m ill w o rk ers...............
T ypesetting m achine operato rs ................................
B ak ers..............................
T inners (sm ith s)...............
Compositors (ty p e )........
L ithographers.................
B oxm akers..................................
L ighting em ployees.................
Can m ak ers................................
Coal y a rd labor..........................
T ailors..........................................
F u rrie rs........................................
L o ck sm ith s.................................

Per
cent
of in ­
crease,
1918
1918 over
1913.2

$1.16 $1.58
1.25
1.06
1.11

1.19
1.35
.98
1.06
. 79
1.50
1.06
.68

1.06

1.46
1.23
1.58
1.46
1.46
1.58
1.39
1.19
1.75
1.27

.88

1.40

36
17
16
42
23

8

31
51
17
20

29
32

1 E rrors in conversion, as appearing in th e consul’s report, have been corrected in this table.
2 Com puted; th is colum n does n o t appear in th e report sent by th e consul.

Compared with the rise in the cost of living, the wage increase is not very favor­
able. The scale of wages for the various trades does not at all resemble that which is
effective in the United States, neither before nor after the four years of war. It must
be considered, however, that both labor and living have heretofore been less ex­
pensive in France than in the U nited States, and may still be, though the per cent
of increase in the cost of both in the two countries since the commencement of the
War might be found varying to a lesser degree.
M U N IC IP A L W A GES IN A M STE R D A M .

The American consul at Amsterdam (Netherlands), on January
31, 1918, sent to this Government the following communication
respecting municipal wages in that city:
The Amsterdam city authorities contemplate increasing the wages paid to both
skilled and unskilled workmen in municipal employment. There is complaint that
the increase is unequal among different trades and kinds of work, but nevertheless
it appears that in practically all cases the proposed wages are above those paid for
similar work by private employers. In comparison with the wages paid in 1916, the
proposed increase for municipal workmen is from 6 to 12 per cent, and the proposed
new wages average 20 per cent more than wages paid by private persons for similar
work in 1916.
The proposed wages for municipal workpeople would be florin 0.33 [13 cents] an
hour for unskilled and florin 0.37 [15 cents] for painters, plasterers, smiths, horseshoers, and carpenters. For extra work and overtime, these wages would be in ­
creased 5 or 10 per cent.
In factories and other private industries, wages have been advanced in effect, from
tim e to time since the War began, by extra allowances of 5, 10, or an even greater per
cent, because of higher cost of living, which arrangement leaves, the rate of wages
unchanged and therefore is supposed to obviate the probable difficulty of reducing
wages when the cheaper time of peace returns.


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149

O N TA R IO FA R M LA B O R .

A plan to enlist boys for farm work in Ontario, together with a
statement of the wages to be paid during the approaching season,
is described by the American consul at Kingston in a statement
dated March 14, 1918, as follows:
On March 18 a campaign will be started in Ontario for the purpose of enlisting boys
for farm work. Last year seven or eight thousand boys were enlisted as soldiers of
the soil. The boys will be available for service on the farms about April 1. It is
not only boys who are to be enlisted in the cause of production. It is expected that
7,500 men will be obtained as well.
The ages of the boys will run from 15 to 19 years. Last year a minimum wage of
$12 per month was fixed for these in advance. The average wages actually paid was
$18, w ith some getting as much as $30, and in one or two exceptional cases $35 or $40.
This year the minimum wage is fixed at $15, the boys to serve at least three months
and in as many cases as possible for the whole season.
Men sent out from the cities last spring received at the start $25 to $40, but this
year the suggested minimum is $40, and it is expected that as much as $60 will be paid
in some cases. The work of securing and distributing this labor is carried out under
the auspices of the Ontario Government Public Employment Bureau. In 1917, 1,245
girls from Ontario cities took part in farm work. This year it is hoped that the num­
ber will be 5,000. Under present arrangenient girls and women registered for three
classes of employment; for work in the fields, for housework on the farms, and for a
combination of both, with a further division that girls will be expected to go to the
fruit farms of the Niagara district.
The girls who are to go out for general farm work have been given a preliminary
training by spending an afternoon a week on farms near cities, where they are shown
how to harness horses, drive, clean stables, etc.
The terms of employment have not been definitely decided upon in the case of
these girls, bu t it is believed that a reasonable arrangement woidd be about 10 hours
a day. The m atter of remuneration will probably be about $15 a month, including
board. In the case of girls going out to fruit farms, where houses are available girls
will be grouped in these, and where houses can not be had tents will be p ut up, each
ten t providing living quarters for three girls.
F ruit packers are to be guaranteed $1 per day, rain or shine. When on piecework
2 cents per box is to be paid for picking strawberries, 3 cents for raspberries, 2 cents
for blackberries or small gooseberries, 20 cents for 11-quart basket of cherries, 40 cents
for black currants, and 20 cents for red currants. When picking pears, peaches,
plums, apples, or grapes, $9 a week is to be paid or 20 cents an hour for extra good
pickers. For hoeing the wage is to be 15 cents an hour.

IN C R E A S E O F SA LA R IE S O F P E R S O N S IN CIV IL SE R V IC E IN FR A N C E .

The President of the Republic of France recently (Feb. 18, 1918)
signed a decree which to some extent modified the classification
of the employees in the Department of Agriculture 1and increased the
salaries of all grades except the entrance salary. The increases are
not to be considered as advances from one grade to another, nor does
the present classification in any manner influence the automatic pro1 Jo u rn al Officiel de la R épublique Française, Feb. 20,1918, p. 1733.


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motions from grade to grade. All such promotions are to be based
upon the date of the last promotion.
The new classification and salary increases became effective as of
July 1, 1917. The increases are as-follows:
S A L A R IE S O F E M P L O Y E E S IN T H E D E P A R T M E N T O F A G R IC U L T U R E

IN

FR A N C E .

Salaries of—

Classification.

B u reau chiefs.

Form er.

Class excep tio n al 2___
F irst class........... .......
Second class...........
T h ird class...................
F o u rth class................
F ifth class....................
S ix th class...................
S eventh class..............
N ew appo in tees..........

$1,930
1,737
1,544
1,351

Ju ly 1,
1917.

A ssistant bu reau
chiefs.
Form er.

Ju ly 1,
1917.

Special agents .1

Form er.

Ju ly 1 ,
1917.

$2,316
$1,544.00
2,123 $1,351.00
351.00 $1,351.00 $1,447.50
1,930 1,158.00 1,254.50 1,158.00 1.351.00
1,737 1,061.50 1,158.00 1,061.50 1.254.50
1,544
965. 00
965.00 1.158.00
868. 50 1.061.50
965. 00

1 P ro p erty clerk,, cashier, an d lib rarian .
i Ucw classification.
s New classification; prin cip al clerks.
4 New classification; clerks, class 1.

Clerks.

Form er.

July 1 ,
1917.

381,158.00
$965. 00 3 1,061.50
868. 50
3 965.00
772. 00
3 868.50
694. 80
4 772. 00
617. 60
6 675.50
540.40
6 579.00
482.50
7 482.50
386.00
386.00

3 New classification; clerks, class 2.
e New classification; clerks, class 3.
7 New classification; clerks, class 4

The salaries are exclusive of all bonuses, but no extra pay is allowed
for extra hours nor for any indemnities unless in conformity to
ministerial decrees.
Similar decrees followed, covering the department of public works
and transports (Mar. 4, 1918) 1 and the keeper of seals, minister of
justice and of finance (Mar. 13, 1918),2 effective as of July 1, 1917.
In the department of public works, etc., the increases granted are
generally 1,000 francs ($193), and for clerks they vary from 100 francs
($19.30) in the lowest grade to 500 francs ($96.50) for the first class
per year. A new grade is made in the clerks’ class at a salary of 6,000
francs ($1,158). The salary of class 1 under the former scheme was
5,000 francs ($965).
In the last decree above noted an exceptional grade is created in
each of the classifications of chiefs, assistant chiefs, and principal
clerks. The exceptional grades carry increases of 2,000 francs ($386),
1,500 francs ($289.50), and 1,000 francs ($193) over the former
highest-paid grades in each class, respectively.
Salaries of assistant chiefs of bureaus of grades 1, 2, and 3 are
advanced 1,000 francs ($193), of chiefs of bureaus of grades 1, 2, and
3 are advanced 2,000 francs ($386), and the fourth class is paid 8,000
francs ($1,544), being 1,000 francs ($193) more than was formerly
paid the next higher grade (third). Principal clerks and clerks are
granted an increase of 500 francs ($96.50) in each grade.
! Jo u rn al Officiel de la R épublique Française, Mar. 6,1918, p . 2130.
2 Idem , Mar. 15, 1918, p. 2372.


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W OM EN IN INDUSTRY.

W O M E N IN T H E M U N IT IO N T R A D E S IN G R E A T B R IT A IN .
BY M ARY CONYNGTON.

In an earlier article1 some account was given of the changes
brought about by the War in the employment of women in Great
Britain. In this it is proposed to deal with their experiences in
the munition trades. These are selected, first, because the increase
in the number of women employed was greater than in other
industrial groups, and, second, because women engaged in them
were mainly employed either in Government factories or in “ con­
trolled” establishments, i. e., establishments directly under the
control of the Ministry of Munitions. Consequently the treatment
of the women is at once more uniform, and, being a matter of official
record, more available for research purposes than are their expe­
riences in trades carried on wholly under private control.
The so-called “ munition trades” include a large number of indus­
tries, since in a very general way anything the Government needs for
carrying on the War is classed as munitions. The term “ munition
worker” is therefore an elastic one, including workers engaged in
occupations as diverse as those in the manufacture of aero engines and
rubber sheets, of munition cases and high explosives, of barbed wire
and motor lorries, of shells and searchlights. In most of the industries
covered, however, women had long been employed to some extent,
though usually in a very subordinate capacity. Consequently the
novelty brought about by the demands of the War was not in the
employment of women, but in the kind of work to which they
were put.
The question of using women in new employments was first settled
for the engineering trades. At the outbreak of the War these were
in the hands of skilled and highly organized men who guarded
jealously the position they had won through their unions. Naturally
they did not look with favor on the introduction of unskilled work­
ers, and the splitting up of skilled jobs into a number of simple
operations each of which might easily be done after a short period
of training. There were protracted negotiations between the unions
and the Government, ending in what is known as the Treasury
Agreement of March, 1915. Under its terms the unions gave up for
the period of the War all trade-union-customs which might tend to


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,

restrict output, specifically agreeing to the employment of women
“ under suitable conditions.” In June a Ministry of Munitions, with
Lloyd George at its head, was formed, and in July, 1915, the first
munitions act was passed. This gave the Minister of Munitions power
to declare any establishment in which munitions work was carried
on a controlled establishment, and thereafter the terms of the Treas­
ury Agreement in regard to trade-union restrictions and the employ­
ment of unskilled labor, including women, became effective for that
establishment. From the date of the passage of this act the question
of the employment of women on any form of munition work was
settled; it was merely a matter thereafter of where they could be
most effectively employed.
There are no available data to show exactly how many women
entered the munition trades under this agreement, but it is known
that the number is large. According to the Labor Gazette, the great
majority of the women munition workers are in the metal and the
chemical trades. For these it gives the following figures of increase:1
Metal
trades.

Chemical
trades.

B oth
groups.

N um ber of females em ployed, Ju ly , 1914........
Increase, O ctober, 1917, in n u m b er e m p lo y e d ..

170.000
379.000

40.000
53.000

432,000

Total, O ctober, 1917.......................................

549,000

93,000

642,000

210,000

As the total increase between these two dates in the number of
women industrially employed is given as 530,000, it is evident that
these two branches of the munition trades are responsible for some
four-fifths of the whole increase.
Two questions suggest themselves: blow were these hundreds
of thousands of women secured and trained, and how did they fare
in the new employments to which they rushed? As to the first,
there was little difficulty about securing them. When the demand
first arose, women were still suffering severely from the unemploy­
ment which followed the outbreak of the War, and the munition
trades offered a welcome resource for the surplus workers. ' As this
was absorbed and the demand continued, women came in from other
trades, and from domestic service, married women who had with­
drawn from industry came back, and women who had never worked
for wages entered munition factories as a patriotic duty. An inquiry
into the pre-war occupations of women for whom insurance books
had been issued under the insurance act of 1916 showed the following
facts as to workers in two groups of munition trades: 2
1 T he L abour Gazette, London, F eb ru ary , 1918, p. 48.
2 For d a ta on w hich th is table is based, see The L abour Gazette, D ecember, 1917, p. 438.


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153

N U M B E R A N D P E R C E N T , B Y P R E W A R O C CU PA TIO N S, O F W O M EN E M P L O Y E D IN
TW O G R O U P S O F M U N IT IO N T R A D E S IN JA N U A R Y , 1917.
W om en em ployed Jan u ary , 1917, in—

Prew ar occupation.

trades,
Metal trades, exclud­ Chemical
including sm all
ing engineering.
arm s.

B oth groups
com bined.

N um ber. Per cent. N um ber. Per cent. N um ber. Per cent.
Same tra d e ..........................................................
H ousehold du ties or n o t previously occu­
p ie d ...................................................................
Textile tra d e s.....................................................
Clothing tra d e s..................................................
O ther ind u stries................................................
Domestic service...............................................
O ther no n in d u strial occupations..................

53,249

48.1

11,634

6.8

64,883

23.1

18,927
3,408
4,635
12,458
12,502
5,449

17.1
3.1
4.2
11.3
11.3
4.9

52,407
6,226
17,941
20,879
44,438
17,079

30.7
3.6
10.5

25.4
3.4

10.0

71,334
9,634
22,576
33,337
56,940
22,528

T otal in su red ...........................................

110,628

100.0

170,604

100.0

281,232

12.2

26.0

8.0

11.9
20.2
8.0
100.0

How far these women are representative of the whole number
who came into munition work can not be known, but as they number
more than a quarter of a million, they are a large enough body
for the above figures to be significant. A striking feature of the
table is the number coming directly from their homes, who form
25 per cent of the total, the number from domestic service, 20 per
cent, and the number from nonindustrial pursuits, 8 per cent. That
is, over one-half, 53 per cent, were either not gainfully employed or
were in nonindustrial occupations before entering these trades.
The training given the women has changed with the changing
needs of the War. At first they were employed mainly either in
manual labor, which required only strength, not training, or in what
might be called ordinary factory work, on which women had long
been employed in other industries. For this, little instruction was
needed; the woman was shown her machine, told what to do, and
with little or no practice could begin work. At this time, she was
very apt to be employed either as a helper to a man, or on one of a
group of machines under the supervision of a skilled man. Later
as the need for skilled workers became more urgent, the technical
schools of the Kingdom were pressed into service for training
munition workers, and the Government itself established instruc­
tional factories in which women were trained for work demanding
skill and accuracy. Under this training they have shown an unsus­
pected capacity for mechanical work; they are already performing
a variety of highly skilled operations, and the field of their activities
is steadily extending.
WAGES OF WOMEN U N D E R TH E M UNITIONS ACTS.

The question of how women fared in these new occupations is
largely a matter of the special provisions of the munitions acts.
The Treasury Agreement under which they first entered the engi
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neering trades was superseded in July, 1915, by the first Munitions
of War Act. Under this strikes and lockouts in munitions works
were illegal, a system of arbitration tribunals being established to
which all disagreements regarding wages and trade customs must
be referred for settlement. The Minister of Munitions was given
power to declare any establishment in which munition work was
carried on a controlled establishment, and to sanction for it rules
and regulations ordinarily prepared by the employer; after this
sanction, violation of the rules became an offense punishable by f i n e
inflicted by the munitions tribunals, also established by the act.
Still further, the minister might designate certain classes of estab­
lishments, and thereafter any worker on munitions in these estab­
lishments must procure from his employer a leaving certificate
before giving up his job. Unless he could show such a certificate,
it was unlawful for any other employer to hire him until after a
lapse of six weeks.
The wages question came to the front almost immediately. To
a large extent the women went into the factories at the rates for
women and girls prevailing before the War began. With the rise in
the cost of living, these rates soon became wholly inadequate.
Under the munitions act it was almost impossible for the women
to secure any improvement in their situation by their own efforts.
To strike or to threaten to strike was illegal, and the}7, could not
even give up their work, if they were dissatisfied, without facing
the penalty of six weeks of unemployment—a penalty which for
many of them was absolutely prohibitive.1 True, they had the
right, if they wished an increase of wages, to apply to the arbitration
tribunals, but this was a long and tedious process. One of their
leaders, writing nearly a year after the passage of the munitions act,
thus describes the method of procedure:
First of all, the workers formulate their claim; the union then makes the claim
on the employer; the employer ignores it. We write a firmer letter; the employer
then replies that he can not consider the claim. We refer it to the committee on
production, and that department writes to the employer, suggesting local conference.
The employer then sends an alteration of the claim—concedes a little, perhaps.
That comes back to us from the committee on production. We submit it to our
members. They refuse the alternative proposals. Finally it is referred by the
committee on production to the wages tribunal. When the case is called we are
summoned to give evidence before the tribunal. We have had to wait weeks, some­
times two or three months, for the decision. We had claims put in last October
that were heard by the wages tribunal in May, 1916; we had awards in June.2
1 A m unitions w orker m ight leave w ithout p en alty if her em ployer agreed to give a leaving certificate,
b u t n atu rally it was against th e em ployer’s in te re st to give one if th e w orker was a t all a satisfactory
employee; and i t is ad m itted th a t in th e early days th e leaving certificate was som etim es unju stly w ith­
held.
2 H ope for Society: Essays on Social R econstruction after th e W ar; W om en in In d u stry , b y Miss Mar­
garet Bondfieid, p . 131.


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155

The women were practically powerless; but the Government was
very unwilling to assume the responsibility of fixing wages for them.
It was an admitted fact that women’s wages in general had been
too low to permit the maintenance of any fair standard of living;
the relief committees established at the outbreak of the War found
that if they paid women employed in their workshops a fair living
wage they would be overwhelmed with women who had given up
regular employment in order to secure this better wage. Precisely
the same situation faced the Government; there was a real proba­
bility that if they fixed anything like the wage the union leaders
considered fair, the disparity between the wage of women on Gov­
ernment work and those otherwise employed might give rise to
serious industrial disturbances. Besides, the difficulty of adjusting
all the varying rates with due reference to local standards, precise
nature of the work, and all the special considerations which would
have to be taken into account for each factory would have been
enormous. After much deliberation the Government in July, 1916,
came out with the principle of the standard wage for women. A
pledge had been given that women engaged on the work of skilled
men should receive equal piece rates with the men. Other women
were divided according to whether they were doing what was known
as men’s work or women’s work, and for each class a standard rate
was fixed. The women had hoped for minimum rates, and were
much disappointed at the substitution of standard rates, but the
fixation of these rates was defended on the ground that this method
made for industrial peace and steadiness.
If the orders had fixed minimum rates, there would have been a tendency for
women to agitate that they should be increased on any and every pretext on the prin­
ciple that, having got so much by no effort of their own, they should be able to double
their emoluments by determined agitation. Moreover, many of the conditions under
which women are employed on munitions work must necessarily be of a temporary
nature and continue only for the war period. It is of advantage both to employers
and employed to divide the work done by women into two broad classes, for which
both parties know definitely the rate which will be paid.1

During 1916-17 a series of orders were issued, dealing with wo­
men’s wages and based on this general principle.2 These cover over
90 per cent of the women working in controlled establishments.
No data are at hand to show the number of women in the different
wage classes, and consequently it is difficult to say just what the
orders have meant as to the general level of women’s wages. One
member of the Ministry of Munitions, speaking in this country, said
that in a few exceptional cases women earned as much as $75 a week,
1
2

See article, “ W om en’s wages in m u n itio n factories in G reat B rita in ,” M uxthly R e v ie w , A ugust,
1917, p. 121.
For precise rates fixed for each class, see article referred to in preceding note.


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but that on the average their earnings would be about $10 a week.1
The Minister of Munitions himself gives a less favorable statement
of the situation. Speaking of the awards concerning wages, he says:
Some conception may be formed of the magnitude of the achievem ent as it affects
women’s wage when I say that before the War, the average wage for women employed
by time rate, doing 48 hours a week, was 12s. [$2.92]. At the present time, the lowest
rate for time work for adult women is 22s. [$5.35], and the average rate for women time
workers is 25s. [$6.08] a week.2

The women’s organizations are far from satisfied with the payment
accorded their members, and complain that the advance in wages
lags so far behind the advance in prices that the Government stand­
ard rates differ little in purchasing power from the minimum rates
fixed before the War for the sweated trades. The increase from
July, 1914, to June 30, 1917, in the cost of items ordinarily entering
into working class family expenditures was 75 per cent,3 so that the
purchasing value of the 22s. ($5.35) minimum quoted by the Minister
of Munitions was between 12s. ($2.92) and 13s. ($3.16) in prewar
prices, and the 25s. ($6.08) he gave as the average rate had a pur­
chasing value of a little over 14s. ($3.41) by the standards of 1914.
There are, however, two facts to be borne in mind concerning the
Government rates for women. First, the steadiness of the work and
the amount of overtime make the earnings higher than the rates
would indicate. Against this must be set the admitted fact that
overtime is undesirable for any workers, and especially so for women,
and that unless it is very carefully controlled and limited, it is
inevitably paid for later on by diminished physical capacity. For
the time, however, it adds materially to earnings. Second, the
rates are in general higher than those paid in uncontrolled estab­
lishments for the same kind of work. The women’s organizations
recognize this, and one of their demands has been that the Govern­
ment rates should be extended to all women working on Govern­
ment contracts, whether or not they are in controlled establishments.
HOURS.

Before the War England’s legislation in regard to the work of
women and children was in many respects advanced. Hours in
factory occupations were strictly limited, proper intervals for meals
were insisted upon, and night work was forbidden. The tremendous
need for output of munitions led to relaxations in all these respects.
Very soon after the outbreak of the War the Home Office began issuing
1 From ty p e w ritte n rep o rt of answ ers to questions b y Mr. G. H . B aillie of th e labor su pply d e p artm e n t
of th e B ritish M inistry of M unitions, a t m eeting of th e P hiladelphia Association for the Discussion of E m ­
ploym ent Problem s, Oct. 12,1917.
B ritish W orkshops a n d th e W ar; a speech delivered by th e R t. H on. C hristopher A ddison in th e H ouse
of Commons, Ju n e 28,1917.
The L abour Gazette, London, Ju ly , 1917, p. 237.

2
3


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157

special orders to individual firms permitting them to employ women
overtime or at night or both. According to statements made in
Parliament these orders were issued in great numbers, “ many thou­
sands” having been granted during the first seven months of the War.
The report for 1914 of the chief factory inspector gives a list of 3,141
firms affected by exemption orders between August 4, 1914, and
February 19, 1915 p as orders were at first issued only for short
periods, usually a month, fresh orders being given when needed,
these firms alone might account for “ many thousands” of such
exemptions. In 1915 a new arrangement was put into effect.
Orders applicable to an industry as a whole were prepared, and on
application an individual employer might be permitted to take
advantage of their provisions; if the Ministry felt that the urgency of
his work demanded it, a special order might be issued, allowing him
exemptions in excess of those embodied in the general order.
These orders were not responsible for all the overtime work which
went on. For a time an impression prevailed that the factory re­
strictions had been laid aside altogether, and certain employers either
worked overtime without securing permits, or else, having secured
a special order, exceeded the exemptions allowed by it. Instances
are given in which, when the factory inspectors brought suit against
such offenders, the magistrates refused to inflict any penalty, on the
ground that the public welfare would be injured by any interference
with production.2
In September, 1916, the Ministry of Munitions appointed a special
committee to look into the whole question of the health of munition
workers and to report as to what action was needed. This committee
issued a series of reports, dealing with hours, Sunday and night
work, women workers, welfare work, and so on. As to hours, the
committee handled the question carefully, not wishing to embarrass
the Government in its task of securing sufficient munitions, but
their condemnation of the existing state of affairs was emphatic.
They found night work and Sunday work and overlong hours. They
found three systems under which women were employed—three
shifts of 8 hours each, two shifts of 12 hours, and one shift of from
13 to 14 hours. They found methods of changing shifts at the end
of the week under which women were kept at work for 24 hours or
longer. They found women working 70, 80, or even more hours
1 A nnual R ep o rt of th e Chief In sp ecto r of Factories an d W orkshops for 1914, p„ 56 (Cd. 8051).
2 For instance, on A pr. 28,1915, th e Secretary for th e H om e D ep artm ent w as asked in P arliam ent

“ w hether his a tte n tio n h ad been draw n to th e legal prosecution of a firm of engineers engaged a t cartridge
m aking in A rm ley, L e e d s,in w hich it was shown th a t a girl un d er 18 years of age w orked from 6 a. m. on
F rid ay till 7 a. m. on Saturday, w hen she m et w ith an accident, w hilst an older wom an worked from 6 a. m.
on F rid ay till 1 1 a .m . on Saturday; w hether he is aw are th a t th e stipendiary m agistrate declined to convict
on th e ground th a t he m ight be lim iting th e o u tp u t of a m m u n itio n ?” (W om en’s Trade U nion Review,
Ju ly , 1915, p. 23.)

51591 °—IS------11

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weekly, and often having to spend an hour each way on the trip be­
tween home and factory. And they showed that both the workers’
health and the output of munitions suffered from these conditions.
The committee recommended various alterations in the amount
and kind of overtime allowed, and in September, 1916, the Home Office
issued orders restricting in general the working hours of women to 60
a week, and requiring a Sunday rest or its equivalent. The general
orders were not revoked, and under them special orders might still
be issued, but the office wished to limit such orders to cases of extreme
urgency. At the close of the year the factory inspectors reported a
considerable improvement in the situation.
There has been a notable decrease in the requests for long hours, which were common
in the early months of the War. The general tendency has been to restrict the weekly
hours of work to an amount very little, if at all, in excess of those allowed under the
factory act, and to arrange for more elasticity in the daily limits. * * * Several
employers have during 1916 expressed themselves strongly against a continuous night
shift for women. In general the experience of war emergency work, far from making
employers in love with extended hours, seems to be producing a contrary effect and
bringing about a sense of tne importance of so limiting the period of employment as
not to produce any feeling of exhaustion, or even of marked fatigue. * * * Exces­
sive overtime and Sunday labor have been checked and as nearly as possible abol­
ished, and night employment of girls under 18 has been greatly decreased.1

At the present time night work for women is still used to a con­
siderable extent. The authorities fully admit the undesirability of
the practice, but say that they do not see how to get on without it*
as soon as military exigencies permit they will gladly give it up!
There is complaint of excessive overtime in some branches of work,
but it is under regulation; the force of factory inspectors has been
increased, and magistrates no longer refuse to punish on proof of vio­
lation of the factory acts. The trend now seems toward the reestab­
lishment rather than to further relaxation of prewar standards.
Nevertheless, as late as December, 1917, one of the questions asked
in Parliament was whether, in view of the findings of the Health of
Munition Workers Committee, the Home Secretary “ will at once
withdraw tne general order which allows a shift of 14 hours of work
ioi male and female young persons and boys of 14. ” In response,
it was stated that the general order relating to munition works was
under review by the Home Office and the Ministry of Munitions, but
that no decision had yet been reached.2
G RIEVANCES CONNECTED W IT H TH E T R IB U N A L S A N D LEAVING C E R T IFIC A TE S.

Under the munitions act the owner of every controlled establish­
ment must post rules ^relating to order, discipline, timekeeping, and
efficiency” conspicuously in his establishment, and thereafter
8570)mlUa^

^ 1C ^ k ie f Inspector of Factories a n d W orkshops for th e Y e a r 1916, pp. 4, 7, 8 (Cd.

2 O ffic ia l R e p o r t of P a r l i a m e n t a r y D e b a t e s in t h e H o u s e of C o m m o n s , D e c . 3, 1917, p. 39,


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159

breaches of those rules became offenses to be punished by the muni­
tions tribunals. No arrangement was made for giving the employees
any voice in the making of these rules, but it was provided that
anyone violating them should not be punished ‘‘if the munitions
tribunal is satisfied that the rule is an unreasonable one, or that the
person had just cause for his failure or refusal to comply with it.”
The tribunals were composed of one person appointed by the
Minister of Munitions sitting with two others, one representing the
employers and one the employees. In practice the employees
believed that their representative was overridden, and that their
cases did not receive fair consideration. Even if the tribunals were
entirely fair in their operation, the system involved a loss of time
varying from half a day to a day for the workers accused, in addition
to the fine inflicted. The feeling of unfairness which the tribunals
often produced was aggravated by the fact that the employee was
not free to leave his work if dissatisfied with his treatment. If an
employer refused to give a leaving certificate, the employee might
bring the matter before the tribunal, but again the workers felt that
they did not receive fair treatment in such cases. This was particu­
larly so among women, as at first no provision was made for women
upon the tribunals or as advisers for women brought before them.
Yet a woman might have good reason for wishing to leave a particular
factory which she would hesitate to detail to a room full of men.
Some conspicuous cases of hardship due to this cause arose, and in the
amended munitions act passed in 1916 it was provided that when
women’s cases were heard one member of the tribunal must be a
woman.
Two reports were issued dealing with the working of these tribunals
during the first year of their operation. The following table gives,
first, the number of cases acted on between November 29, 1915, and
July 1 , 1916, inclusive, and, second, the total number from the
formation of the tribunals to the latter date.1
i Compiled from rep o rts issued b y th e M inistry of M unitions: R e tu rn of cases heard before m unitions
trib u n als from th e ir inception u p to an d including S atu rd ay , 27th N ovem ber, 1915, a nd R e tu rn of cases
heard before m un itio n s trib u n als from 29th N ovem ber, 1915, u p to a n d including S atu rd ay , 1st Ju ly , 1916
(Cd. 8143 an d Cd. 8360).


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CASES A C TED U P O N B Y T R IB U N A L S U P TO JU L Y 1, 1916.

ber
N um ber N um ber N um
con­
of eases. of adefend­
nts.
victed.

A m ount
of fines,.

CASES ACTED UPON BETWEEN NOV. 29, 1915, AND JULY 1, 1916.

A gainst w orkm en:
Strike prosecutions......................................................................
Breaches of ru le s ..............................................................................
Miscellaneous cases........................................................................
T o ta l..................................................................
A gainst employers:
Lockout prosecutions.......................................................................
Illegal e m p lo y m en t....................................................................
M iscellaneous........................................................................
T o tal..................................................................................

34
4,284
6

1,023
12,004
7

599
8,633
1

$3,806.76
39,498.44
9.73

4,324

13,034

9,233

43,314.93

115
15

115
15

71
11

2,442.50
70.56

130

130

82

2,513.06

5,138
216

16,706
224

11,656
138

54,198.49
3,927.87

TOTAL CASES FROM INCEPTION OF MUNITIONS TRIBUNALS UP
TO JULY 1, 1916.

A gainst em ployees....................................................................
A gainst em ployers........................................................................

The breaches of rules for which, during this period of less than a
year, the workers were penalized to the extent of £11,137 Is. 2d.
($54,198.49), included such offenses as losing time or staying away
on what the worker might consider entirely sufficient grounds, or
refusing to work at some especially dangerous occupation. Moreo ver,
the feeling of the employees against the tribunals was aggravated
by the fact that even those against whom the complaints were not
substantiated lost their wages for the time required for the hear­
ings. The latter does not seem to have been a trivial ground of
complaint, since the above table shows that during these eleven
months some 5,000 of the workers who were brought before the
tribunals were found not guilty.
No data are given to show what proportion of the workers included
in the above table were women. I t is quite possible that they ap­
peared only in small numbers, yet there are some indications that
because of their household duties the rules, and the penalties inflicted
for their infraction, bore with special hardship on women. Cases
were brought up for public inquiry in which women were fined for
a few hours’ absence from work, although it was established that the
absence was for the purpose of caring for a sick husband or little
children. Such cases might be exceptional, but they gave color to
the claim that the tribunals worked hardship. The Commission of
Inquiry into Industrial Unrest in 1917 found among the objections
urged against the tribunals in the West Midlands area the following:
(6) That fines are excessive, and especially harsh on women.
(8) That meetings are held in a law court, or even a police court, where there is
an objectionable criminal atmosphere.


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(0) That women particularly dislike it, and rather than face its publicity, will
submit to injustice.1

Tlie fundamental difficulty witli the whole system ]ay in the
leaving certificate. If a worker were free to leave a position when
she disliked it, or found the work too hard or the hours too long, she
might accept the liability to fines while she stayed with comparative
equanimity, but when she was bound to stay whether she wished to
or not, the matter took on a very different aspect. And in a large
number of cases she was obliged to stay. True, she had a right to
appeal to the tribunals to compel her employer to give her a leaving
certificate or to grant one themselves. Frequently, however, she
was unaware of this right, and even if she were aware of it and made
the appeal, it was by no means certain it would be granted. The
report on the cases heard before munitions tribunals, quoted above,
gives the number of applications made to the tribunals for leaving
certificates. From the beginning of August, 1915, when the first
appeal was made, to July 1, 1916, the tribunals received 15,210 such
applications. Of these 774 proved to be cases in which no leaving cer­
tificate was required,2 3,901 are classed as “ Withdrawn, etc.,” 6,528
were refused, and 4,007 were granted.3 ITow many of these applica­
tions were made by Women there is no means of knowing. I t will
be seen that more than half as many again were refused as were
granted, and in some cases the refusal, although no doubt prompted
by considerations of national welfare, must have seemed to the
applicant purely arbitrary and unjust. Thus a case is cited of a
munition worker who applied for permission to leave her employer,
who was paying her 12s. ($2.92) weekly, in order to undertake the
same kind of work for another employer who offered her £1 ($4.87)
a week, and whose application was refused.4 Naturally it would be
difficult for such an applicant to see anything but hardship and
injustice to herself in the decision of the tribunal.
The first improvement, from the women’s point of view, came
with the amendment of the munitions act in 1916, when it was pro­
vided that a woman must be a member of any tribunal before which
a woman was tried. I t was soon found that the woman member
got the woman worker’s side of the case more fully than the men
had been able to do, and that in many cases this made all the differ­
ence between a verdict which the worker felt was just and one which
left a rankling sense of unfairness. The women’s trade-union jour­
nals contain frequent references to the good work done by these
1 Commission of In q u iry in to In d u strial U nrest. R eport of the Commissioners for the W est Midlands
Area, p. 6 (Cd. 8665); B ui. 237., B u reau of L abor Statistics, p p . 92, 93.
2 There was some confusion as to th e scope of th e order concerning leaving certificates, and for a tim e
there was a n im pression among th e w orkers th a t th e y were required for all em ployed in m unition work.
3 R e tu rn of cases heard before m unitions trib u n als to J u ly 1,1916, p. 2 (Cd. 8360).
* T he W om an W orker, L ondon, Jan u ary , 1916.


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MONTHLY EE VIEW OF THE BUREAU OF LABOR STATISTICS.

Women members, and to the ways in which their understanding of
the feminine viewpoint prevented the giving of verdicts which,
while possibly justifiable on technical grounds, would work real
hardship and create much resentment.
In 1917 two causes combined to bring about several improve­
ments in the position of the women workers. There was an amount
of industrial unrest which threatened serious trouble if not allayed;
and the Government, having the munitions situation well in hand,
felt that concessions which hitherto it had not ventured to try
might now safely be made. In August, 1917, Order 880 was issued,
providing that thereafter proceedings before the munitions tribunals
against anyone accused of failing to comply with shop regulations
should be instituted only by the Minister of Munitions or the Ad­
miralty or a person acting on his or its behalf 7 This at once did away
with the feeling prevalent among workers that the tribunals were
often used by the foremen or employers to gratify personal spite or
animosity. I t was believed, too, that it would tend to reduce
greatly the number of prosecutions brought. Before proceedings
could be undertaken, an outside party would have to be convinced
that the offense of which the worker was accused was sufficiently
serious to justify bringing it before a tribunal, and this in itself
would sift out many of the trivial and unreasonable cases.
Not long after this a still greater improvement, the abolition, so far
as women were concerned, of the leaving certificate, was made.
The order, effective October 15, 1917, in its first form provided that
a worker who wished to leave employment on munitions to take up
some other form of war work, might do so without a certificate under
certain conditions. Before this became effective the Minister of
Munitions issued a special order providing that for women a leaving
certificate should not be required, even though they wished to leave
in order to engage in work ‘‘which is not work on or in connection
with munitions work.” 2 This did away with what the women
workers felt was the greatest of their grievances.
These two measures did much to improve the situation, but the
women still felt that they ought to have some direct representation
when matters concerning working women were under advisement.
In November this desire was met by the appointment of a woman’s
trade-union advisory committee, consisting of representatives of the
national unions which include women members, with Miss Macarthur as chairman. To this committee all questions respecting the
employment of women on munitions were to be referred, and while
their functions were to be only advisory, the Minister of Muni1 S ta tu to ry R ules an d O rders No. 880: T he M unitions T rib u n als A m endm ent (No. 2) R ules, 1917. D ated
Aug. 22,1917.
8 O rder No. 1050: The M unitions (A bolition of Leaving Certificates) Order, d a te d 5th October, 1917


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163

tions, at whose request the appointments were made, expressed a
cordial desire to work in close cooperation with their views. In
December this committee was reported as working to secure considera­
tion of the whole question of hours worked by women in munitions
factories, and an adjustment of the wages situation. In the latter
direction two changes were sought: The extension of the Govern­
ment scale to all women employed on work for the Government, and,
second, a consolidated order on women’s wages. The first was needed
because the Government orders regulating women’s wages applied
only to those working in controlled establishments, while women
employed in other establishments on precisely the same work for the
Government were left to make what terms they could with their
employers. As to the second object, it was felt that a revision of
the various orders respecting wages was needed, and that they should
be combined into one comprehensive and consistent whole:
The orders on women’s work were made one by one as fresh emergencies arose, and
in their present shape they form but a patchy and scrappy piece of legislation. To
take but one instance, the time wages of women on m en’s work can be graded from
6cl. [12 cents] an hour up to the fully skilled turner’s rate, according to the nature of
the wrork. For women on women’s work one rate is prescribed, with only the narrowest
of exceptions. Obviously this order is too inelastic and needs am endm ent.1

The women at this time were also putting forward a strong plea for
an advance of 10s. ($2.43) per week on the lowest rate fixed, with cor­
responding increases on those a little higher, on the ground that this
was necessary to meet the rise in the cost of living since the rates
had been fixed.
As yet no information is available as to the success of these efforts.
Whatever their outcome, however, the restrictions put upon the use
of the munitions tribunals and the abolition of the leaving certificate
have removed the chief complaint women had against their treat­
ment under the munitions acts, and the appointment of the women’s
advisory committee marks a great step forward for them.
EMPLOYMENT OP MALES AND FEMALES IN CERTAIN UNITED STATES
MUNITION PLANTS.

A table is presented herewith which should be of interest as show­
ing the number of employees in certain munition plants in the United
States, and the proportion of males and females employed at different
dates during the last few years. The per cent of increase or decrease
in the numbers of male and female employees as compared with each
preceding date is also shown.


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; T he W om an W orker, London, N ovem ber, 1917, p . 8.

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

E M PL O Y M E N T O F M ALES AN D F E M A L E S IN C E R T A IN M U N IT IO N P L A N T S O F T H E
U N IT E D ST A T E S , A T S P E C IF IE D D A T E S.
J.

Persons em ployed.

Males.

E stablishm ent.

Fem ales.

D ate.

No. 1....................................

P er cent of increase (+ )
or decrease (—) in
n um ber of employees
as com pared w ith
each preceding date.
Total.

N um ­
ber.

Per
cent.

N u m ­ Per
ber.
cent.

Males.

Fe­
males.

Total.

May
Jan.
Jan.
Feb.

13,1916
13,1917
12,1918
16,1918

6,952
6; 657
6,367
7,157

69.0
66.3
63.8
63.8

3,118
3,391
3,610
4,058

31.0
33.7
36.2
36.2

10 070
A 048 - 4.2 + 8.8
9,977 - 4.4 + 6.5
11,215 + 12.4 + 12.4

- 0.2
.7
+ 12.4

No. 2 .................................... Nov.
Mar.
Aug.
Oct.

18,1916
10,1917
18,1917
20,1917

9,924
9', 382
12,246
12,151

100.0
95.7
92.4
90.7

423
1,009
1,241

4.3
7.6
9.3

9,924
9,805 - 5.5
13,255 + 30.5 +138. 5
.8 + 23.0
13,392 -

- 1.2
+ 35.2
+ 1.0

No. 3 ....................................

Ju ly 15,1917
Jan. 12,1918

7,653
10;987

82.9
79.2

1,582
2,893

17.1
20.8

9 2^5
13^ 880 + 43.6 + 82.9

+ 50.3

No. 4....................................

Jan.
Jan.

1.1917
1,1918

458
341

77.6
64.1

132
191

22. 4
35.9

590
532 - 25.5 + 44.7

- 9.8

No. 5 ....................................

Ju ly
Ju ly
Ju ly
Sept.

1,1914
1,1915
1,1916
22,1917

53
51
59
44

57.6
60.0
59.6
55. 7

39
34
40
35

42.4
40.0
40.4
44.3

92
851- 3.8 - 12.8
99 + 15. 7 + 17.6
79 - 25.4 - 12.5

- 7.6
+ 16.5
- 29.2

Mar. 13,1915
Jan. 15,1916
Ju ly 1,1916
Nov. 31,1917

57
105
147
424

78.1
47.3
27.3
41.5

16
117
391
598

21. 9
52. 7
72.7
58. 5

222 + 84.2 +631.3

538 + 40.0 +234.2
1,022 + 188.4 + 53.1

+204.1
+142.3
+ 90.0

Dec. 19,1914
Doc. 18; 1915
Ju ly 1,1916
Nov. 24,1917

588
3,694
4,568
4,614

57.6
58.5
60.9

511
2,722
3,237
2,963

40. 5
42. 4
41.5
39.1

1 099
6,416 +528.2 + 432. 7
7,805 + 23.6 + 18.9
7,577 + 1.0 - 8.5

+483.8
+ 21.6
- 2.9

Jan. 6,1917
Sept. 8; 1017

818
192

94.2
80.0

50
48

5. 8
20.0

868
240 -

162
286
378
86

81.4
72.0
77.1
82.7

37
111
112
18

18.6
28.0
22. 9
17.3

199

No. 6 ....................................

No. 7....................................

No. 8 ...................

No. 9 .................................... Jan.
Ju ly
Jan.
Sept.

1,1916
1,1916
6,1917
15,1917

73

76.5 -

4.0

397 + 76.5 +200. 0
490 + 32.2 +
.9
104 - 77.3 - 83.9

-

72.4

+ 99.5
+ 23.4
- 78.8

S H O P U N IF O R M S F O R W O M E N M U N IT IO N W O R K E R S .

The practicability of protective clothing for women and girl work­
ers having been demonstrated in British industries,1 particularly in
munition factories, a similar experiment is being tried under the
direction of the War Department at the Frankford Arsenal where
the women workers are being clothed in uniforms characterized by
safety features which make them practicable for wear at work which
involves danger either from the operation of machinery or the hand­
ling of explosive powders. The style of the uniform, to be made of
khaki, was determined by a committee of women workers at the
Frankford Arsenal, and Mrs. Clara Tead, of the Women’s Division of
the Ordnance Office. The following description of the uniform is
taken from the Official Bulletin for April 10:
1 S ee a r t i c l e o n “ P r o t e c t i v e c l o th in g fo r w o m e n a n d g ir l w o r k e r s i n G r e a t B r i t a i n ” i n t h e A p r i l , 1918

issu e o f t h e M o n th ly R e v ie w (p p . 217 t o 219).


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165

I t consists of a blouse and specially designed overalls which are made full and
button around the ankles. In order that there may be no place in the uniform for
powder or flying dust to lodge, the blouse buttons over the overalls instead of under;
the overalls button forward instead of backward; the collar of the blouse buttons
tightly as does the flap of the overall pocket. Puttees may be worn with the overalls.
The cap which completes the costume is of lighter fabric than khaki and resembles
an aviator’s cap in shape.
As the Frankford Arsenal employs the largest number of women of any of the Gov­
ernment plants, the women at this arsenal will be the first to appear in it. As soon
as possible the uniform will be put into use in all Government munition plants.


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[12131

AGREEMENTS BETWEEN EMPLOYERS AND EM ­
PLOYEES.
TRADE AGREEMENTS IN THE STOVE INDUSTRY.1
BY BORIS EMMET, PH. D.
IN T R O D U C T IO N .

The conference agreements in the stove-molding industry represent
a growth extending over 26 years. The first agreement, which was
signed in 1891, recognized the advisability of dealing collectively with
the molders by means of conference committees based upon the principle
of conciliation, and specified the procedure to be followed in the ad­
justment of grievances which might arise. The employers, moreover,
promised not to lock out their employees while difficulties were being
adjusted. In return for these concessions the molders’ union agreed
to refrain from striking pending the peaceful adjustment of their
grievances. The matter of wages was not taken up until 1892. It
was then agreed that a rate of wages once established was to be in
operation for a full year, and that either party desiring a change was
to notify the other at least thirty days before the expiration of the
year. In the absence of such notice the wage rates for the coming
year were to remain the same.
The conferees of joint annual sessions of 1893 and 1896 made per­
sistent efforts to determine the methods to be followed in piece-rate
determination. The problem of discounts for losses caused by bad
work on account of “ dull iron”—an important issue in the molding
of stoves—was first taken up in 1896, then again in 1906, and finally
settled in 1910, in the manner described below. The problem of the
hours of labor of molders was first taken up in 1902. Discussions
bearing on this subj ect have taken place at almost every one of the j oint
sessions since then. The question of limitation of the output which
began to be discussed as early as 1898 was settled in 1902 when the
union placed itself on record as being opposed to any form of limitation
of output in any of the branches of the stove-molding craft. This
declaration was preceded by a statement on the part of the foundrymen to the effect that in the future the earnings of molders will exer­
cise no influence upon piece prices. The apprenticeship question
which for a long time constituted a grave point of contention between
1 For valuable suggestions given in connection w ith th e prep aratio n of th is report acknowledgment
is due to Mr. Jo h n P . Frey, editor of th e In tern atio n al H olders’ Journal.

166

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,

167

the foundrymen and their molders was finally settled in 1905 by the
adoption of clause 21 which established a ratio of one apprentice to
each five journeymen. This arrangement is in force at the present
time.
Three great problems have been solved since 1906. These prob­
lems dealt with: (1) The introduction of molding machines, with
particular reference to piece rates on machine work; (2) the admission
of the core makers into the jurisdiction of the trade agreements; and
(3) the establishment of a minimum daily wage for molders working
by the day. The meaning of these problems and detailed descrip­
tions of how they were solved are given elsewhere in this article.
C H A R A C T E R OR T H E A G R E E M E N T S .

The trade agreements in force in the stove-molding industry are
known in the trade as “ conference agreements.” The parties con­
cerned are the International Molders’ Union of North America and the
Stove Founders’ National Defense Association. The agreements are
signed for one year and are subject to change and modification by the
annual joint conferences of the parties. These conferences usually
consist of 12 persons, six representing each side. The delegations to
the annual conferences are elected at the conventions of their respec­
tive organizations, the administrative council or executive board of
each association having the power to fill vacancies or make changes.
The conferees of both sides come to the annual joint sessions with full
powers to act and to bind their constituents.
The annual joint conferences are legislative in character. They
determine policies which are to be applied to a trade as a whole and
do not endeavor to adjust difficulties which arise locally.
The primary agency for the adjustment of local grievances is a shop
committee elected by the molders for the purpose of dealing with the
firm regarding any controversy which might arise. Difficulties upon
the disposition of which the shop committee and firm cannot agree
are referred for adjudication to the national officers of the two
associations. These officers or their deputies then meet on the
premises where the difficulty arose for the purpose of adjusting the
disputed point, in accordance with the provisions and specifications
of the conference agreements. The joint action of the national
officers is final and binding upon both parties.
An appeal from the decisions of the national officers may be taken
to a special committee known as the conference committee, which is
composed of three members from each association. The conference
committee has, however, never played any important part in the
adjustment of difficulties. Only three appeals have been made to it
during 26 years of the operation of the conference agreements.

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The entire scheme of the conference agreements is based upon the
principle of conciliation and no outside party or arbitrator ever
participated in the sessions of the cooperating parties at which the
agreements were made.1 A few words must be said regarding the
procedure followed in the annual conferences. The usual method is
for each side to present a bill of particulars of its demands in the form
of resolutions. The resolutions thus presented then become the
subject of debate and are discussed in a parliamentary manner.
Each resolution is discussed, modified, and amended until it appears
to be satisfactory to a majority of the conferees.
Not all of the resolutions adopted are immediately incorporated as
integral parts of the conference agreements. This is so because very
frequently the resolutions represent mere interpretations of pro­
visions already in existence. Such interpretative resolutions are put
to a use similar to that of the ordinary by-laws of a constitution. This
manner of amendment explains the fact that all of the conference
agreements which were adopted during 26 years do not at the present
time occupy more than a few small printed pages the meaning of
which is intelligible to the average conferee who is either a molder or
foundryman, but in no case a lawyer. In this respect the conference
agreements in the stove industry differ radically from the so-called
protocols of peace of the garment trade—complicated agreements the
interpretation of which calls frequently for the services of attorneys.
The powers vested in the conferees by their respective organizations
are great and this fact accounts for a good many of the results
achieved. Irrespective, however, of then* power to act, the leaders
of the respective delegations always felt that in order to make the
agreements enforceable it was necessary to avoid the forcing of any
conditions which the rank and file of either side were at that time un­
prepared to adopt. Education was imperative because the rank and
file frequently had little knowledge of existing conditions in the trade
as a whole and seldom understood fine points of industrial diplomacy
or conciliation. Many a time “ things were on the verge of a smash”
because of certain demands on the part of the membership which the
conferees knew could not and would not be conceded by the opposing
party. This was the case in the matter of apprenticeship regulation
as described in detail in an early report on Conciliation in the Stove
Industry.2 The molclers’ representatives in this instance were com1 In this connection a tte n tio n is to be called to an inaccuracy in th e term inology of clause I of the
original agreem ent of 1891, which clause states th a t “ this m eeting adopts th e principle of a rbitration in the
settlem ent of d isputes.” T he records of th e early conferences show m ost conclusively th a t it was never
the intentio n of th e conferees to resort to arb itratio n as technically understood, th a t is, to th e invocation
of the assistance of a n outsider, or th e odd m an, in th e a d ju stm en t of disputed points. As a m a tte r of
fact a rbitratio n has never been resorted to during th e 26 years of th e operation of th e conference
agreem ents.
2 Conciliation in th e Stove In d u stry , b y John P . F rey and John R . Commons, Bui. 62, B ureau of L abor
U . S. D epartm en t of Commerce and Labor, p p. 162-176.


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169

polled to play a difficult part. They knew that the foundrymen
would never agree to the demand of the rank and file for an apprentice­
ship ratio of one to eight and yet the referendum of the members
insisted upon such a ratio. The most advisable thing for the union
conferees to do under such circumstances was to put off the con­
sideration of this issue until the membership was educated to the
point of understanding the real facts. This it took many years to
accomplish. To the credit of the foundiymen it must be said that
they understood perfectly the position in which the representatives
of the men were and waited patiently until the union rank and file
was educated by its representatives. Similar methods of dealing
with vital problems were followed frequently by the conferees of the
foundrymen. The representatives of the employers found it advisable
at times to get the confirmation of their rank and file as to the specific
manner of dealing with grave questions. The union delegates in such
instance exhibited a “ give and take” attitude and were willing to
postpone the settlement of some demands until some future time.
O R IG IN A N D E A R L Y D E V E L O P M E N T O F T H E A G R E E M E N T S .

An account of the workings of trade agreements in the stove
molding industry was published by the Bureau of Labor, United
States Department of Commerce and Labor, in. January, 1906.1
This account described the workings of the collective-bargaining
scheme in operation in this industry between the International
Molders’ Union of North America and the Stove Founders’ National
Defense Association from 1891 to about 1906. Following is an
attempt to describe the workings of the trade agreements in the
stove industry, known technically as the conference agreements,
since 1907.
An understanding of the origin and the early development of
the conference agreements is necessary to fully comprehend their
later development and present status.
Prior to 1891 the stove industry was the field of intensive struggles
between the molders, who had organized themselves into an inter­
national union as early as 1859, and the foundrymen, who were
organized in 1884 under the name of the Stove Founders’ National
Defense Association. The causes which led to this warfare were
numerous and covered a wide range of contentions. The question
of wages was naturally one of the most contested points. Differences
over the piece rates to be paid for molding were responsible for very
many of the strikes and lockouts which occurred. “ Discounts” for
bad work frequently caused trouble. Inasmuch as molders were
paid only for the good work turned out, the matter of “ discounts”
i Conciliation in th e Stove In d u stry , b y Jo h n P . Frey and Jo h n R . Commons, p a rt of B ui. 62.


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MONTHLY EE VIEW OF THE BUREAU OF LABOR STATISTICS.

for imperfect castings was always of vital interest to the workers.
In some instances an increase in wage rate granted was easily lost
because of a harsh system of discounts for imperfect work. The
other principal causes of contentions are discussed below.
The conference agreement of 1891 brought the principle of col­
lective bargaining into the stove industry. The new method of
bargaining eliminated strikes and lockouts by providing means for
the peaceful adjustment of any disputes which might arise. Between
1891 and 1906 the following questions were amicably adjusted by
the joint conferences of delegates representing the molders and
their employers: (1) Establishment of an apprenticeship ratio of
one apprentice to each five journeymen molders; (2) abolition
of the “ buck” or “ berkshire” system, which was a system forc­
ing a molder to employ unskilled assistants to work for him
on a sort of teamwork basis; this arrangement was similar to
what is known as “'inside teamwork” in the clothing trade and
was considered obnoxious from the union point of view because of
its tendency to result in a dilution of skill and in a breaking down of
the apprenticeship limitations; (3) establishment of what is known
in the trade as the “ gangway count,” a simple arrangement of having
each day’s work placed on a gangway running through the foundry,
for the purpose of counting the day’s output; (4) establishment of
the practice of having the firm furnish the molders with a “ price
book” or a book containing all the piece rates to which the molder
is entitled. The absence of the “ gangway count” and of the “ price
book” were always fought against by the men because the lack
of such provisions enabled unscrupulous employers “ to cheat the
molders out of the results of their labor.” The establishment of the
“ gangway count” and of the “ price book,” both of which innova­
tions were frequently objected to by some foundrymen, enabled the
molder to know exactly “ where he was at.” Abuses similar to those
which existed in the absence of the “ gangway count” and “ price
book” intruded themselves at times in the “ discounting” of imperfect
work. To protect themselves against abuses of the latter kind, the
molders demanded and were granted the privilege of inspecting all
the bad castings before they are broken up for remelting.
The above-enumerated concessions, with that of collective bargain­
ing, removed once for all many of the principal causes which were
responsible for the bitter strikes and lockouts of the former days.
The application of collective-bargaining principles brought valu­
able results also to the employers. The foundrymen benefited
greatly by the elimination of strikes, which fact made possible unin­
terrupted production. The trade agreements, and the strong dis­
ciplinary power of the union in enforcing them, made it possible for


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the foundrymen to know in advance the exact labor cost for the year
to come. This fact enabled them to shape their sales policies in as
profitable a manner as possible. In addition to that, the union put
itself on record as opposed to any limitation of output. This position
was taken in exchange for a declaration officially made by the foun­
dry men’s association to the effect that the molder’s earnings will
exercise no influence on the piece rates. The ban placed upon any
output limitation was of importance to the foundrymen because a
greater output made possible a reduction in the overhead costs of
manufacture.
The agreement regarding unlimited outputs shows clearly that
each side was beginning to have faith in the integrity of the other.
It took years, however, to establish the conference agreements on a
solid basis; that is, to educate both sides to the point where they
commenced to have faith in the integrity of the opposing party and
in the scheme. The old strife between the molders and the foundrymen was so bitter that neither of the sides would at first believe that
the establishment of peaceful relations was possible. The conference
agreements did not really achieve a permanently solid basis until
about 1905. In this connection it must be stated that from the very
beginning the officials of both associations endeavored to put thennew relations on a solid footing. This object was rather difficult
to achieve because the rank and file of both associations were im­
patient for results.
The tangible results of the annual conferences between 1901 and
1908, unsatisfactory in some respects, were, however, instrumental in
establishing the agreements on a solid basis. No increases in piece
rates were granted to the molders between 1901 and 1908. This fact
gave the leaders of the foundrymen an opportunity to show to their
members in a definite way the benefits of the conf erence agreements.
During the same period conditions developed which tended to
strengthen the hands of the officials of the molders’ union in a
similar manner; that is, by showing to their membership some valu­
able results. After all, and as indicated above, the piece rate paid
is not the only matter of importance to the molder. The question of
establishing the responsibility for unsatisfactory work was perhaps
of as great importance, and in this respect the union secured valuable
concessions.
R EC EN T D EV ELO PM EN T OF TH E AGREEM EN TS.

Since 1907 the discussions of the annual conferences of the stove
industry have revolved largely around the following problems, each
of which was satisfactorily adjusted by the conferees: (1) Wage rates
for piece and day workers; (2) discounts for imperfect work; (3)
the introduction of molding machines; (4) the extension of the juris
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diction of the conference agreements to the core makers, and (5) the
hours of labor of actual molding. The manner in which each of these
vital trade questions was adjusted is strikingly characteristic of the
actual workings of the conference agreements, and will therefore be
described in greater detail.
W a g es a n d d is c o u n ts .

The molding of stoves, ranges, and heaters has always been on a
piece-work basis, the molders being paid only for the perfect work
turned out. The original piece price of specific parts of stoves is
known in the trade as the “ board price,” a term taken from the fact
that the separate patterns are usually placed on a board for the pur­
pose of assisting the molder in turning out his molds. Curiously
enough the “ board prices” have always remained the same. Changes
in piece rates were expressed in terms of a percentage above or below
the original “ board price.” Thus the piece rate actually paid for
any year, or the net cash price, as it is sometimes called, represents
the original “ board price” plus or minus the so-called “ percentage”
specified in the agreement. The existence of a certain percentage
means that to every dollar of output in terms of “ board prices” thispercentage is added. The percentage of 85, which is now being paid,
means that for every dollar of “ board prices” $1.85 will be paid to
the molders.
The collective bargaining of the 20-year period ending with the
year 1918 almost doubled the piece rates paid to the molders.1
C h a n g e s i n 'piece ra te s s in c e 1 8 9 8 .

P er cent
over “ board
price.”

Period.

1898 to 1899.........................................
1900 to 1901.........................................
1902 to 1906........................................
1907 to 1910.........................................
1911 to 1912.........................................
1913 to 1916.........................................
1917.......................................................
1918.......................................................

10
15
20
25
30
35
60
85

A m ount for
one dollar
“ board
price.”
1.10
1.15
1.20
1.25
1.30
1.35
1.60
1.85

Recently a minimum daily wage was established in the stove
industry. On account of the nature of their work some stove molders
are paid by the day instead of by the piece. Such molders are
usually engaged in the making of patterns or in the molding of odd
jobs. At one of the joint conferences some years ago the conferees
representing the molders suggested the desirability of establishing a
i The following table shows th e changes in th e “ percentage” from 1898 to 1918. The points of departure
in th is tab le are th e piece prices of 1897 w hich were eq u iv alen t to th e old “ board prices” and subse­
quently became th e basis for adding or subtracting th e an n u al percentages.


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minimum daily wage for such workers. This suggestion came to a
head at the conference of 1916 at which a daily minimum of $4.25 was
agreed upon for day-working molders. This wage was based upon an
9-hour day. The mentioned minimum of $4.25 was increased to $5
by the annual conference held in December of 1917. The new rate is
to be in effect during the year 1918.
As stated, the question of discounts is of vital importance to the
workers. Under the wage system of the stove industry the molders’
actual earnings depended upon some factors other than the so-called
percentages, for the reason that molders were paid only for perfect
work. The problem of equitably allocating the responsibility for the
bad work has at times been almost as important to the molders as the
percentage. Additional percentages gained might easily have been
lost by discounts for imperfect castings, occasioned frequently by
conditions outside the control of the worker, such as “ dull iron”
and “ dirty iron.”
By “ dull iron” in the stove-molding trade is meant molten iron
which is not fluid enough to enable the turning out of a perfect
casting. “ Dull iron” is frequently due to defects in the “ heat,” a
process not within the control of the molders, and for which the
molder should not be held responsible. The problem of “ dull iron,”
however, is complicated by the fact that at times a “ dull iron”
condition is due to the molder’s delay in pouring the metal he has
in his ladle. A method, therefore, had to be established wherewith
a demarcation line of responsibility for “ dull iron” could be definitely
determined.
The question of allocating the responsibility for bad work on ac­
count of “ dull iron” first arose at the conference of 1891. No set­
tlement, however, was then reached. Definite action on the “ dull
iron” question was agreed upon at the annual conference of 1896
which specified that when it is shown that the aggregate loss on
account of “ dull iron” amounts to 4 per cent of the total value of the
molders’ work in any one heat it shall be deemed a bad heat and
payment shall be made for all work lost over 4 per cent. This
adjustment did not prove satisfactory to the molders. At the
annual conference of 1906 the union representatives asked for a
modification of the “ dull iron” clause of 1896. This demand be­
came the subject of discussion, as a result of which the “ dull iron”
clause was amended to the effect that “ when the aggregate loss from
this cause is less than 4 per cent * * * and 10 per cent of the
molders lose 10 per cent or more * * * then such men shall
be paid for such loss in excess of 4 per cent of their day’s work.” •
The final settlement of the “ dull-iron” problem proved to be of
great benefit to the molders and was considered by them as a con545910—18-

12


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cession almost as valuable as an increased percentage. This conces­
sion, although of great value to the molders, did not appear so radical
and undesirable to the foundrymen as would have been an increase
in percentage. After all, the “ dull-iron” concession gave the mold­
ers what they were legitimately entitled to.
“ Dirty iron/’ which makes the production of good castings rather
difficult, is due to the presence in the metal of excessive amounts of
slate cinder or other foreign substances. As in the case of the “ dull
iron” problem the bad castings caused by “ dirty iron” are frequently
due to the metallurgical quality of the iron, for which the molders
can not be held responsible. Often, however, bad castings suppos­
edly due to “ dirty iron” are in reality due to neglect on the part of
the molder, or his lack of care, in separating the slag, which is another
word for the foreign substances in the molten metal, from the metal
itself.
Unlike the “ dull iron” question, which was easily settled in 1906
because the foundrymen admitted the possible existence of a “ dull
iron” condition through no fault of the molder, the “ dirty iron”
problem was more difficult to solve. Foundrymen contended, and
with a good deal of correctness, that iron is always “ dirty” and that
it is the molder’s business carefully to separate the iron from the slag.
In a series of annual conferences, however, the conferees representing
the workers succeeded in convincing the foundrymen that even most
expert and careful molders are sometimes unable completely to sepa­
rate the slag from the iron and that in such instances it would be
unfair to hold the molder wholly responsible for the imperfect work.
The question of establishing an equitable method for “ discounting
imperfect work due to ‘dirty iron’” was partially solved when the
foundrymen wore convinced by the representatives of the molders
that imperfect work of’ this sort was frequently due to causes outside
of the control of even the most expert molder. The very nature of
the “ dirty iron” question, however, made it extremely difficult to
draw a definite demarcation line of responsibility applicable to all
instances. The difficulty was solved by the joint conference of 1910
by a provision which established the “ dirty iron” ’question as a
legitimate grievance to be adjusted locally by the shop committee
of the molders in consultation with the firm, and in instances of
inability to agree by the national officers of both associations.
M o ld in g m a c h in e s .
#

The molding machine question involved a substitution of machine
for hand work and had two aspects. These were: (1) Differences of
opinion as to the kind of labor which was to operate the molding
machines; that is, whether skilled molders, apprentices, or unskilled


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hands bo allowed to work on machines; and (2) the methods to be
followed in determining the piece rates on machine work.
The conferees representing the molders insisted upon having jour­
neymen operate the machines and upon the desirability of working
out some equitable method of piece-rate determination in order to
give to labor some of the benefits brought about by the introduction
of machinery. The union conferees endeavored, first of all, to estab­
lish the machine problem as a legitimate subject of discussion under
the jurisdiction of the agreements. In this they were ‘successful.
A resolution adopted at the conference of 1905 specified that “ the
application of machinery,be considered” in the making of piece rates.
The following annual conference agreed on the kind of labor to oper­
ate the molding machines. Under this agreement molding machines
were to be operated by journeyman molders or apprentices. In the
event of inability on the part of the management to secure the
services of journeymen or apprentices, the matter was to be sub­
mitted to the presidents of the two associations, who, upon investiga­
tion, were given the power to allow the hiring of additional appren­
tices over and above the established ratio.
The problem of piece-rate determination was discussed at many of
the annual conferences and finally solved at a special conference held
in Atlantic City in June, 1914.
The solution of the machine question was greatly accelerated by
the fact that one of the subcommittees appointed to study machine
piece-rate making succeeded in effecting an arrangement with one of
the association foundries—the Weir Stove Co., of Taunton, Mass.—for the pricing of the firm’s machine work. In connection with the
pricing work at the Taunton foundry, the committee collected a con­
siderable amount of data regarding the comparative earnings and
outputs of machine and hand molders. The firm and the committee
then agreed to take the average daily earnings of hand molders as the
basis for piece-rate making on machine work. The average earnings,
based upon what were considered typical earning periods, showed an
approximate daily earning capacity of $4.75. This amount was aug­
mented by 50 cents for the extra labor of handling the additional
molds, carrying the iron to the floor and pouring it, the cutting and
trimming up of the sand, the shifting of weights and sleeves, the
shaking out and wetting down the sand, and the taking out and
trimming of the castings—all of these representing an excess of labor
above that required on similar work when made by hand. The
result—$5.25—was then considered as the equivalent of the “ board
price,” to be augmented by the existing percentage. The addition
of the percentage made the daily wage for pricing machine work
about $6.


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Having established the basis upon which the piece-rate calcula­
tions for machine work were to be computed, the committee, by a
series of tests, arrived at what it considered a fair average output on
the machines. The average output divided by the basis of $5.25
gave the final piece price for machine work. Inasmuch as on the
$5.25 basis the machine molder was to do the molding as well as to
perform all the other supplementary labor pointed out above, it was
further provided that if any of these supplementary processes are
done for the molder by the firm, certain percentages are to be deducted
from the established piece price. Thus, for instance, 2 per cent of
the price was to be deducted if the firm carries the iron to the molder’s
floor, 3 per cent if it cuts and trims the sand, 4 if .the weights are
shifted for the molder, etc. These percentage deductions for work
done for the molder by the firm did not necessarily reduce the machine
operator’s net earning, for when some of the specified work was done
by the firm the molder was able to put up a larger number of molds.
The results arrived at the Weir establishment, which was located
in Taunton, Mass., subsequently became known as the “ Taunton
basis.” This basis, slightly modified, furnished the groundwork for
the final solution of the machine problem.
S t a t u s o f c o re m a k e rs.

In the early foundry the molder made his own cores, but with the
development of specialization there came into existence the core­
maker as a separate and distinct craftsman. By 1896 the craft was
fully developed and the International Coremakers’ Union organized.
Very soon thereafter lack of cooperation and jurisdictional disputes
began to appear between the iron molders’ union and the core­
makers’ union. The final result of these jurisdictional difficulties
was that the molders, who in the earlier days objected to the admis­
sion of coremakers into their union, began to talk of amalgamation
with the coreinakers’ organization. The outcome of this discussion
was an amalgamation of the two internationals in 1903.
With the admission of coremakers into the molders’ union, the ques­
tion of the status of coremakers under the conference agreements
arose. The foundrymen objected to the admission of the ooremakers
on the ground that “ coremaking had nothing whatever to do with
the agreements,” and that, as a matter of fact, no distinct occupation
of this kind existed in the industry at the time of signing the first
agreement in 1891. The union conferees, however, were persistent
in demanding the admission of the coremakers. The successive de­
feats of their coremaking proposal merely resulted in the advance­
ment of identical proposals at the following annual joint conferences.
The status of coreinakers was finally defined by the annual conference

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of 1916. It was then agreed to grant the union demand and to
extend the jurisdiction of the conference agreements to coremakers,
who were to be known thenceforth as “ coremaking molders.”
With the admission of the coremakers the question of setting piece
rates on coremaking work arose. For this reason the conference
which admitted the coremakers also appointed a special committee
to investigate methods for determining coremaking prices and to
establish basic rates.
H o u r s o f la b o r.

The question of the hours of labor has been the subject of discus­
sion since 1891. The conference of 1902 established a seven-hour
day for actual molding. At the conference held in 1910 the molders
asked for a nine-hour day as the limit for all work in foundries, on the
ground that a nine-hour day was prevailing in many other trades.
This proposal was not adopted. In lieu of it, however, it was agreed
that after April 1, 1911, “ the last ladle of iron will be given to the
molder within an hour and three-quarters after the seven hours of
actual molding.” In 1913 the union suggested that actual molding
be limited to six hours per day. This proposal failed of adoption.
At the present time the actual molding hours are six and one-half.
The reduction from seven to six and a half hours was agreed to by
the annual conference of 1910 and constituted a compromise between
the seven-hour molding day insisted upon by the foundrymen and a
new demand for a six-hour molding day made by the union.1
J U R IS D IC T IO N OF T H E A G R E E M E N T S.

When the first joint conference with the Stove Founders’ National
Defense Association was held in 1891, the workers in many of the
association shops were not fully organized. The initial conferences
therefore decided that complete nonunion establishments should
not come under its jurisdiction. After some discussion it was also
agreed that “ open” or partially organized shops should be subject
to the agreements only in instances where a majority of the molders
employed were affiliated with the union. This arrangement was fur­
ther modified in 1898 when it was provided that even in open shops
where union men were in the minority, the union molders were privi­
leged to submit their grievances for adjustment in the manner indi­
cated in the conference agreements. This understanding resulted in
bringing practically all the association stove foundries under the
provisions of the conference agreements. I t also had a tendency to
1 The actu al m olding hours do not, of course, rep resen t all th e hours w orked b y the m olders per day.
After com pleting th e specified hours of actu al m olding, th e m older has to finish his d a y ’s w ork b y pouring
out th e m etal in order to m ake th e castings, “ shaking o u t” th e castings a nd doing other w ork connected
w ith the finishing of th e d a y ’s o u tp u t. This u su ally takes from 1J to’2 hours.


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encourage nonunionists to join the union so that their grievances
might be adjusted.
At the conference of 1900 the molders’ representatives proposed
that all members of the foundrymen’s association recognize the
union rules and regulations as binding upon their foundries. This
proposal was rather novel for thus far the agreements had said noth­
ing about foundrymen being compelled to operate under full union
conditions. The chief arguments advanced in favor of instituting
this kind of recognition were two in number. In the first place,
it was asserted that all but 10 or 12 association members were
running “ practically” union shops; it was argued, in the second
place, that a compulsory union shop would tend to place ail foundrymen upon an equal basis. The union proposal failed .of adoption
because of the opposition of the foundrymen’s conferees. Seven
years later the foundrymen submitted a counter resolution to the
effect that no molder or coremaker be refused employment or dis­
charged from any foundry governed by the conference agreements
because of membership or nonmembership in the union. Like the
union proposal of some years before, this suggestion of the foundrymen failed to be adopted because of objections of the opposing dele­
gation.
From careful perusal the minutes of the joint conference as well
as of the annual reports of the union officials seem to indicate that, as
a matter of fact, the delegates of the molders did not exhibit their
customary tenacity of purpose in pressing the proposal for full union­
ization. This was due to the philosophy held by some of the leading
spirits of the molders’ union, a philosophy which placed little faith in
labor organizations the building up of which was contingent upon the
cooperation of employers. These union leaders felt that a more endur­
ing and better disciplined organization could be built up without the
assistance of the foundrymen. Judged by the developments of the
later years, this philosophy proved to be correct.
The problem of union recognition gradually solved itself. With
the establishment of a better understanding between the molders
and the foundrymen the latter did not care to contest the gradual
unionization of their plants. The mutual “ give and take” exhibited
at the joint conferences and the stability of the ensuing agreements
have finally resulted in a tacit understanding that while nonunionists
will not be prevented from securing employment, no obstacles will
be thrown in the way of their speedy unionization.
The Stove Founders’ National Defense Association has now a
membership of 73, of which 72 maintain full union conditions in their
shops. These firms employ about 10,000 molders. All of these
except apprentices belong to the union. The conference agreements


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regulate the ratio of apprenticeship, but not the apprentice’s pay.
When an apprentice finishes his four years of service he applies for
admission into the union and is usually accepted as a full-fledged
journeyman.1
CO N C LU SIO N .

The great successes of the conference agreements were made
possible by the fact that there has always been some sort of con­
tinuity in the personnel of the annual conferences. The delegations
of the annual conferences have always contained men who had been
representing their side for years, who knew the history of collective
bargaining in the trade, and were familiar with the character of their
opponents. The major part of the opposing delegations have known
each other for years and faced together almost unsolvable problems
which nevertheless were solved. They, therefore, developed con­
fidence in their ability to solve the most difficult problems and in
the integrity of their opponents.
The conference agreements are unique in the sense that not once
in the 26 years of their existence did there arise any question which
proved impossible of solution. Most delicate and vital problems,
such as the regulation of apprenticeship, introduction of laborsaving machinery, limitation of output, wages, etc., have been
amicably solved in a manner mutually satisfactory. The annual
conferences usually consist of twelve persons, six from each side.
The union delegation, as a rule, consists of two or three international
officials assisted by men from the “ sand heap” ; that is, workers
drawn from the foundry for the conference. As the “ sand heap”
delegates come directly from the rank and file, such a make-up of
the union delegation enables it more easily to direct the actions of
the union membership. The actual influence of the “ sand heap”
delegates consists principally in the confidence which they inspire
in the workers at the foundries because of their activity as watchers
of the proceedings. The real work is done by the officials of the
union who have developed an expert knowledge of the trade and
have become able conciliators who have the confidence of the em­
ployer’s conferees. In brief, the personal equation of the conferences
is one of the most determining factors in achieving results and can
hardly be overestimated.
1 I n addition to th e tra d e agreem ents w ith th e Stove Fo u n d ers’.N ational Defense A ssociation, th e In te r­
national Iron Molders’ U nion h as a t th e present tim e 91 agreem ents w ith as m any stove foundries which are
not affiliated w ith th e defense association. The conditions of p a y , labor, etc., im posed upon th e in d e ­
pendent foundries are eq uivalent to those in force in th e association shops. W henever a change is made
in th e conference agreem ents a dem and fo r a sim ilar change is im m ed iately m ade upon th e independent
foundrym en. The num ber of m olders em ployed in in d e p e n d en t stove foundries is ra th e r difficult to
estim ate in view of th e fact th a t some of th e in d ep en d en ts do n o t confine th e ir activities to the m aking of
stoves. T he latest estim ate of th e n u m b er of m olders coming u n d er th e tra d e agreem ents w ith the
independent foundries is about 5,000.


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NEW AGREEMENT FOR ADJUSTMENT OF RAILROAD LABOR DISPUTES.

Recognizing the extreme importance of the speedy and equitable
adjustment of any controversy that may arise between the railroads
now under Government control and the various brotherhoods of
employees, and in order that misunderstandings which tend to lessen
the efficiency of the service may be eliminated, the Director General
promulgated an order (No. 13), effective March 22, 1918, formally
adopting the basis for the adjustment of railroad labor disputes
arrived at in an understanding between regional directors for the
railroads and the chief officers of the respective employees’ organ­
izations. This understanding provides for the appointment of a
railway board of adjustment No. I,1 consisting of eight members,
to handle all controversies growing out of the interpretation or
application of the provisions of wage schedules or agreements which
are-not promptly adjusted by the officials and the employees of any
of the railroads operated by the Government. The signers are as
follows: R. II. Smith, C. H. Markham, and R. II. Aishton,- regional
directors for the railroads under Government control; W. S. Stone,
grand chief engineer, Brotherhood of Locomotive Engineers; A. B.
Garretson, president, Order of Railway Conductors; W. R. Lee,
president, Brotherhood of Railroad Trainmen; Timothy Shea, act­
ing president, Brotherhood of Locomotive Firemen and Enginemen.
The following is the full text of the agreement: 2
1. There shall be ^ once created a commission to be known as railway board of
adjustment No. 1, to consist of eight members; four to be selected by the said regional
directors and compensated b y the railroads, and one each by the chief executive
officer of each of the four organizations of employees hereinbefore named, and com­
pensated by such organizations.
2. This board of adjustment No. 1 shall meet in the city of Washington within
10 days after the selection of its members and elect a chairman and vice chairman,
who shall be members of the board; the chairman or vice chairman w ill preside at
meetings of the board, and both w ill be required to vote upon the adoption of all
decisions of the board.
3. The board shall meet regularly at stated times each month and continue in
session until all matters before it are considered.
4. Unless otherwise mutually agreed, all meetings of the board shall be held in
the city of Washington, provided that the board shall have authority to empower
two or more of its members to conduct hearings and pass upon controversies when
properly submitted at any place designated by the board; provided further, that
1 T he board of a d ju stm en t w as appointed and organized early in A pril. I t consists of four representa­
tives of th e railroad m anagem ent and four officers of th e brotherhoods, as follows: D r. C. P . Neill, manager,
Inform ation B ureau of Southeastern R ailw ays, chairm an; E . T . W hiter, a ssistant general m anager, P enn,
sylvania Lines W est; John G. W alber, secretary, B ureau of In fo rm atio n of E a ste rn R ailw ays; J. W .
Higgins, executive secretary, Association of W estern R ailw ays; L. E . Sheppard, vice president, O rder of
R ailw ay Conductors of America, vice chairm an; F . A. Burgess, assistan t chief B rotherhood of Locomotive
Engineers; A lb ert Phillips, vice president B rotherhood of Locom otive F irem en a nd E nginem en; W . N.
D oak, vice president B rotherhood of R ailro ad T rain m en .
2 Official Bulletin, Mar. 25, 1918.


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Federal Reserve Bank of St. Louis

[122S]

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,

181

such subdivision of the board w ill not be authorized to make final decision. All
decisions shall be made and approved by the entire board, as herein provided.
5. Should a vacancy occur in the board for any cause, such vacancies shall be
im mediately filled by the same appointive authority which made the original
selection.
6. All authority vested in the commission of eight to adjust disputes arising out
of the application of the eight-hour law is hereby transferred to the railway board of
adjustment No. 1 in the same manner as has heretofore been done by the commission
of eight. All decisions of a general character heretofore made by the commission
of eight are hereby confirmed and shall apply to all railroads under governmental
operation, unless exempted in said eight-hour law. Decisions which have been
rendered by the commission of eight, and which apply to individual railroads, shall
remain in effect until superseded by decisions of the railroad board of adjustment
No. 1, made in accordance with this understanding.
7. The board of adjustment No. 1 shall render decisions on all matters in dispute,
as provided in the preamble hereof, and when properly submitted to the board.
8. The broad question of wages and hours w ill be considered by the railroad wage
commission, but matters of controversies arising from interpretations of wage agree­
ments, not including matters passed upon by the railroad wage commission, shall be
decided by the railway board of adjustment No. 1 when properly presented to it.
9. Wages and hours, when fixed by the Director General, shall be incorporated
into existing agreements on the several railroads, and should differences arise between
the management and the employees of any of the railroads as to such incorporation,
such questions of difference shall be decided by the railway board of adjustment
No. 1, when properly presented, subject always to review by the Director General.
10. Personal grievances or controversies arising under interpretation of wage agree­
ments, and all other disputes arising between officials of a railroad and its employees,
covered by this understanding, w ill be handled in their usual manner by general
committees of the employees, up to and including the chief operating officer of the
railroad (or some one officially designated by him), when, if an agreement is not
reached, the chairman of the general committee of employees may refer the matter
to the chief executive officer of the organization concerned, and if the contention of
the em ployees’ committee is approved by such executive officer, then the chief
operating officer of the railroad and the chief executive officer of the organization
concerned shall refer the matter, with all supporting papers, to the director of the
division of labor of the United States railroad administration, who w ill in turn
present the case to the railway board of adjustment No. 1, which board shall promptly
hear and decide the case, giving due notice to the chief operating officer of the rail­
road interested and to the chief executive officer of the organization concerned of the
time set for hearing.
11. No matter w ill be considered by the railway board of adjustment No. 1 unless
officially referred to it in the manner herein prescribed.
12. In hearings before the railway board of adjustment No. 1, in matters properly
submitted for its consideration, the railroad shall be represented by such person or
persons as may be designated by the chief operating officer, and the employees shall
be represented by such person or persons as may be designated by the chief executive
officer of organization concerned.
13. All clerical and office expenses w ill be paid by the United States railroad
administration. The railroad directly concerned and the organization involved in
a hearing w ill respectively assume any expense incurred in presenting a case.
14. In each case an effort should be made to present a joint concrete statement of
facts as to any controversies, but the board is fully authorized to require information
in addition to the concrete statement of facts, and may call upon the chief operating


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Federal Reserve Bank of St. Louis

[1229]

182

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

officer of the railroad or the chief executive officer of the organization concerned for
additional evidence, either oral or written.
15. All decisions of the railway board of adjustment No. 1 shall be approved by a
majority vote of all members of the board.
16. After a matter has been considered by the board, and in the event a majority
vote can not be obtained, then any four members of the board may elect to refer the
matter upon which no decision has been reached to the Director General of Rail­
roads for a final decision.
17. The railway board of adjustment No. 1 shall keep a complete and accurate
record of all matters submitted for its consideration and of all decisions made by the
board.
18. A report of all cases decided, including the decision, w ill be filed with the
director, division of labor of the United States railroad administration; with the chief
operating officer of the railroad affected; the several regional directors; and with the
chief executive officers of the organizations concerned.
19. This understanding shall become effective upon its approval by the Director
General of Railroads and shall remain in full force and effect during the period of
the present war, and thereafter, unless a majority of the regional directors, on the
one hand, as representing the railroads, or a majority of the chief executive officers
of the organizations, on the other hand, as representing the employees, shall desire
to terminate the same, which can, in these circumstances, be done on 30 days’ formal
notice or shall be terminated by the Director General himself, at his discretion, on
30 days’ formal notice,


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Federal Reserve Bank of St. Louis

[1 2 3 0 ]

EMPLOYMENT AND UNEMPLOYMENT.
EMPLOYMENT

CONDITIONS IN SHIPYARDS OF
FLEET CORPORATION.

THE

EMERGENCY

A V ER A G E D A IL Y A T T E N D A N C E , A L L E M P L O Y E E S ,

In an effort to determine, at least approximately, tlie work-time
efficiency of tlie labor force in the shipyards, a weekly report giving
the daily attendance of all employees is required from every ship­
building company. This report is made to the Industrial Service
Department of the Division of General Service of the Emergency
Fleet Corporation.
The average daily attendance for each week is calculated by add­
ing the attendance for all the days of the week, including Sunday,
and dividing by six, regardless of whether or not the company has
a Sunday shift. The ratio of this average daily attendance to the
total number on the pay roll, expressed as a percentage of the pay
roll, gives an approximately accurate notion of the steadiness of the
working force. These figures are only closely approximate, how­
ever, for the reason that an emplo3me may be in attendance on a
given day and yet not work the whole day. For one reason or an­
other he may work only a half day or even less. These part days
of idleness are not deducted in the following daily attendance tables.
On the other hand, however, a great deal of overtime is common
in the yards which would tend to effect these parts of days to a
considerable extent.
The general averages of daily attendance for the week ending
January 5 are adversely affected by the New Year holiday which
fell in that week and the same is true, but to a less extent, of the
weeks ending February 16 and 23 on account of the inclusion therein
of the holidays, not universally observed, falling on February 12
(Lincoln’s Birthday) and February 22 (Washington’s Birthday).
There is a large variety of causes why daily attendance is irregular.
In the winter season unfavorable weather in the northern yards,
particularly on the Atlantic coast and Great Lakes, was perhaps,
the chief reason. Other prominent causes have been lack of material,
poor housing and transportation facilities, maladjustment of wages
as between yards in the same district and immediately adjacent
districts, etc. Other causes of absences universally operative in all
industries include sickness, injuries, and voluntary absences for
various other reasons.

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Federal Reserve Bank of St. Louis

[1231]

183

184

MONTHLY EEVIEW OF THE BUBEAU OF LABOR STATISTICS.

In Table 1 the average percentage of the total number on the pay
roll in daily attendance is compared for January and February for
every district and with distinction of type of construction. The
statistics show a quite general improvement (higher percentages)
in February as compared with January. For 67 wood-ship building
companies combined, the percentage of daily attendance was 84.2
during January and 85.8 during February. For 60 steel-ship building
companies combined, the percentage of daily attendance was 78.6
during January and 82.1 during February, For the 127 shipbuilding
companies (wood and steel) making reports complete enough to
warrant tabulation, the average daily attendance percentage for
January was 79.3 and for February 82.5.
For supervisory and general administrative purposes the ship­
yards of the United States in which vessels (contract and requisi­
tioned) are being built for the Emergency Fleet Corporation are
grouped in geographical divisions designated as districts.
District 1. Maine, New Hampshire and Massachusetts.
District 2. Rhode Island, Connecticut, New York, and part of New
Jersey and Pennsylvania.
District 3. Delaware, Maryland, and Virginia.
District 4. The Carolinas, Georgia, and part of Florida.
District 5. Southwestern Florida, Alabama, Mississippi, and the
southeastern coast of Louisiana.
District 6. Southwestern coast of Louisiana and Texas.
District 7. California and part of Oregon.
District 8. Washington, except along the Columbia River.
District 9. The Great Lakes.
District 10. The yards in and near Philadelphia, including Chester,
Pa., and Camden and Gloucester, N. J.
District 11. Parts of Oregon and Washington, mainly along the
Columbia River, but including Tillamook and Portland.
Fabricated1 yards, including the Submarine Boat Corporation,
Newark, N. J., the American International Corporation at Hog
Island, Philadelphia, and the Merchant Shipbuilding Corporation at
Bristol, Pa.
Table 1, showing the average daily attendance as compared with
number of all employees on pay rolls of the establishments in the
various districts, follows:
1
B y fabricated is m eant the m ethod of construction. Standardized parts are fabricated in various
auxiliary p lan ts and these are assembled in th e fabricating y a rd s. Assem bling w ould more nearly describe
the m ethod of construction.


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Federal Reserve Bank of St. Louis

[1232]

MONTHLY EEVIEW OF THE BUREAU OF LABOR STATISTICS.

185

T able 1.—A V E R A G E D A IL Y A T T E N D A N C E IN R E L A T IO N TO TO T A L N U M B E R ON
PA Y R O L L (A L L E M P L O Y E E S ), JA N U A R Y A N D F E B R U A R Y , 1918.
Jan u ary .

D istric t.1

T ype of
construction.

F ebruary.

N um ­
b er of
Average daily
atten d an ce.
com­
p an ­
Total
ies
re ­ n u m b er
P er cent
on
p o rt­
of
ing. pay roll. N um ber. n u m b er
on
p ay roll.

No. 1 . . . . . . . . . . . . . . .

W ood...............
S teel............. ..

3

T o tal__
Nc. 2..........................

W ood...............
Steel.................
T o tal__

No. 3..........................

W ood...............
Steel.................

5

T o ta l....

10

No. 4........... .............. W ood...............
S teel.................

8
2

6,698
70, 837

5,896
46,756

10

77,535

52,652

7
7

11,525
40' 650

9,176
30' 754

14

52,175

39,930

54", 452

3,500
37,685

60,158

41,185

12,832
2; 729

10,955
2'566

88.0
66.0

A verage daily
attendance.
Total
n u m b er
on
pay roll. N um ber.

P e r cent
of
num ber
on
p ay roll.

6,222
63' 892

5,219
42,803

83.9
67.0

67.9

70,114

48,022

68.5

82.4
75.7

14,424
41,253

11,139
31,081

77.2
75.3

76.5

55,677

42, 220

75. 8

61.3
69.2

5,236
79,318

3,696
62,070

70.6
78.3

68.5

84,554

65,766

77.8

85.4
94.0

14, 703
2,713

13,282
2', 454

90.3
90.5

T o tal__

10

15,561

13,521

86.9

17,416

15, 736

90.4

No. 5..........................

W ood...............
S teel.................

0
2

14,107
2,891

10,975
2,389

77.6
82.6

12,938
3; 242

10,350
3,018

80.0
93.1

T o tal__

8

16,998

13,364

78.6

16,180

13,368

82.6

No. 6....... .................

W ood...............
Steel 2...............

9

20,149

14,914

74. 0

19, 417

16,086

82.8

T o tal__

9

20,149

14,914

74.0

19, 417

16,086

82.8

No. 7..........................

W ood...............
S teel.................

4
7

117,940

5,443
HO; 124

91.6
93.4

5,931
107, 581

5,324
94,894

89.8
88.2

h

123,885

115,567

93.3

113,512

100, 218

88.3

No. 8............. .

W ood...............
S teel.................

il
9

18,917
1 3 l'133

17,049
121,181

90.1
92. 4

19, 541
111,279

17,449
99, 905

89.3
89.8

T o tal__

20

1.50,050

138,230

92.1

130,820

117,354

89.7

No. 9..........................

W ood...............
S teel.................

1
16

858
69,610

698
54,467

81. 4
78.2

604
70,692

448
57,947

74.2
82.0

T o tal__

T o tal__

17

70, 468

55,165

78.3

71,296

58,395

81.9

No. 10....... ................ W ood 3.............
S teel.................

6

86,653

69, 782

80.5

102,495

88,335

86.2

T o tal__

6

86,653

69, 782

80.5

102,495

88,335

86.2

W ood...............
Steel 2...............

9

30,872

28, 753

92. 7

30,956

28,574

92.3
92.3

No. 11........................

T o tal__

9

30, 872

2S, 753

92. 7

30,956

28,574

F abricated y a rd s... S te e l.................

3

226,703

156,114

68.9

164, 657

130,537

79.3

G rand to ta l.............. W ood................
S teel..................

67
60

127, 609
803', 598

107,539
631', 818

84.2
78.6

129,972
747,122

111,567
613,044

85.8
82.1

T o ta l__

127

931,207

739,357

79.3

877,094

724,611

82.5

1 For designation of districts see p. 184.
JNo steel-ship building com panies in this district.
¡»No wood-ship building companies in this district.


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Federal Reserve Bank of St. Louis

[1233]

186

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

Table 1 requires no further extended comment as the figures are
self-explanatory. I t is interesting, however, to note that in dis­
tricts 7, 8, and 11, representing the Pacific coast, the daily attend­
ance percentage was somewhat higher in January than in February.
This was also true of the wood-ship building companies in district 1,
of all companies combined in district 2, of the steel-ship building
companies in district 4, and of the wood-ship building companies in
district 9, the Great Lakes district. In the fabricated (steel) yards
the great majority of the employees were and still are engaged in
yard and plant construction work. The labor force of these companies
in January and February was, therefore, more largely of a casual
type than was generally true of any district. In these three companies
combined, however, there was a notable increase in the average daily
attendance percentage, or from 68.9 in January to 79.3 in February.
In Table 2 are presented the weekly percentages of average daily
attendance as measured against the total pay roll. The variations
have fluctuated for the 127 companies combined from 71.9 per cent
of the pay roll for the week ended January 5 to 84.3 per cent for the
week ended March 2. I t so happens that the aggregates for both
the wood-ship building and steel-ship building companies show the
most favorable (highest) percentages of total pay roll in daily
attendance during the last week of the nine weeks’ period under
review. This indication of an improvement in attendance is con­
firmed by the average improvement for the month of February as
compared with January and it is borne out also in a general way
by the percentages in detail for the eleven districts and for the
combined fabricated yards. The Pacific coast, districts 7, 8, and
11, is the notable exception, but the attendance there has been
quite good, comparatively, in the winter months, largely because of
the more favorable weather conditions there as compared with the
Atlantic coast and Great Lakes.


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Federal Reserve Bank of St. Louis

[1234]

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

187

T a b l e 3 . — A V E R A G E D A IL Y P E R C E N T A G E O F A T T E N D A N C E IN R E L A T IO N TO NUM ­

B E R ON P A Y R O L L (A L L E M P L O Y E E S ) F O R EA C H W E E K IN JA N U A R Y A N D F E B ­
R U A R Y , 1918.

D istrict.1

No. 1

No. 2

T ype of
construction.

Percentage of attendance for week ending—

N um ber
of com­
panies
reporting. Jan.
5.

Jan.
12.

Jan.
19.

Jan.
26.

Feb.
2.

Feb.
9.

Feb.
16.

Feb.
23.

Mar.
2.

..................... W ood...............
S teel..................

7
3

83.4
53.1

83.9
69.8

87.4 94.3
68.6- 69.0

89.7
68.5

80.4
58.8

86.5
72.0

85.4
65.2

83.0
71.6

T o ta l.. .

10

55.5

70.5

69.6

71.2

70.4

60.6

73.3

67.0

72.7

60.5
54. 2

73.3
75.9

81.9
82.2

88.7
80.8

84.5
76.9

76.7
71.5

77.0
75.6

76.1
75.3

78.9
77.9

..................... W ood...............
Steel.................

7
7

T o ta l...

14

55.7

75.3

82.2

82.6

78.8

72.9

75.9

78.0

78.2

No. 3 ......................... W ood...............
Steel.................

5
5

62. 4
53. 8

66.5
65. 5

66.7
78.9

57.5
74.4

54.7
72.2

53.9
76.9

72.4
78.5

79.1
75.0

75.8
82.4

T o t a l.. .

10

54.3

65. 6

77.5

72.6

70.5

75.6

78.0

75.2

82.0

No. 4

. . . . „.......... W ood...............
Steel.................

8
2

77.8
93.1

89.0
98.0

90. 3
89.8

78. 2
96.1

89.4
93.2

91.7
93.3

91.5
90.4

87.7
88.0

90.7
90.3

T o ta l. . .

10

81.0

90.6

90.2

81.3

90.0

91.9

91.3

87.8

90.6

No. 5

........ W ood...............
Steel..................

2

79.0
77.7

8-1.4
89.7

80.8
76.2

75.4
79.9

69.8
88.5

77.2
96.9

81.4
91.4

79.2
90.5

81.9
94.1

T o ta l. . .

8

78.8

85.2

80.1

76.2

73.2

80.8

83.4

81.5

84.5

W ood...............
Steel2...............

9

79.1

77.5

64.0

67.7

81.7

81.8

84.0

77.0

90.1

T o ta l. . .

9

79.1

77.5

64.0

67.7

81.7

81.8

84.0

77.0

90.1

No. 7 ........................... W ood...............
Steel..................

4
7

79.7
86.6

94. 8
95.8

93. 1
95. 6

94. 4
92.8

93.4
95. 4

92.2
92.3

90.5
93.4

84.7
74.3

91.2
93.6

No. fi

.................

T o ta l.. .

11

86.4

95.7

95.4

92.9

95.3

92.3

93.3

74.8

93.5

No. 8 ........................... W ood...............
Steel.................

11
9

86. 4
92. 6

91. 8
92.2

89. 7
94.4

95.1
93.0

86.5
90.0

92. 0
90.4

87.7
90.8

89.6
88.8

88. 1
89.3

T o ta l. . .

20

91.8

92. 1

93.8

93.3

89.6

90.7

90.4

88.9

89.1

1. 70.3

86.9
78.9

91.3
83.6

80.0
78.5

72. 7
81.5

79. 1
81.8

57. 8
79.9

90.9
84.8

79.0

83.7

78.5

81.4

81.7

79.8

84.8

No. 9 ........................... W ood...............
Steel_______

16

74.4

78. 3
74.4

T o ta l...

17

74.4

74,5

W o o d 3.............
S teel.................

No. 10.........................

6

61.4

80.6

83.2

85.2

87.3

83.7

88.5

85.0

87.3

T o ta l. . .

6

61.4

80.6

83.2

85. 2

87.3

83.7

88.5

85.0

87.3

No. 11......................... W ood...............
S te e l2...............

9

82.1

94.7

97. 5

95.9

92.1

86.6

93.6

95.6

93.0

T o ta l. . .

9

82.1

94.7

97.5

95.9

92.1

86.6

93.6

95.6

93.0

Fabricated y a r d s .. . Steel.................

3

66.5

62.5

73.4

69.5

72.5

73. 5

81.5

7S. 4

83.5

G rand to ta l............... W ood...............
Steel.................

67
60

78.7
70.9

85. 9
76.7

85.0
82.2

84.9
79.0

84.6
78.5

83.9
77.7

86,5
82.8

85.2
79.6

87.6
83.7

T o ta l. . .

127

71.9

77.9

82.5

79.9

79.5

78.7

83.5

80.6

84.3

1 F o r designation of d istricts, see p. 184.
2 No steel-ship building companies in th is district.
8 No wood-ship building companies in th is district.


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Federal Reserve Bank of St. Louis

[1235]

188

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
LABOR. T U R N O V E R AMONG S H IP B U IL D IN G E M P L O Y E E S .

Briefly stated, the method of calculating labor turnover percentage
is as follows:
For January, when full reports were available, five weeks have been
taken and for February four weeks. To calculate the labor turnover
percentage for a five-weeks period, the numbers of shipbuilding
employees on the pay roll for each of the five weeks were added and
the sum was divided by five to get the average number on the pay
roll for January. Similarly, for February the pay-roll figures for four
wTeeks were added and the sum divided by four to get the average
number on the pay roll. The average number of shipbuilding em­
ployees on the pay roll divided into the number of shipbuilding
employees replaced during a given'period gives the turnover percent­
age for the period. To reduce the monthly turnover percentage to
a yearty basis for purposes of uniform comparison the monthly per­
centages are multiplied by the factor 10.4 (that is, 52 divided by 5)
when five weeks are included in the month, and by 13 (that is, 52
divided by 4) when four weeks are included in the month.
On an increasing pay roll, the number of men replaced wTould be
represented by the number lost from the pay roll; on a decreasing
pay roll, the number of men replaced would be represented by the
total number hired during the period under observation.
This is the method that has been followed in the preparation of
Table 3, which shows the comparative turnover percentages of ship­
building employees for 116 companies summarized by districts and
with distinction of wood and steel types of construction.
Considering the grand totals, the 63 wood-ship building companies
combined show a turnover percentage for shipbuilding employees,
yearly basis, of 178 in January and 177 in February—practically the
same for both months. The 53 steel-ship building companies com­
bined show a labor turnover percentage of shipbuilding employees of
202 in January, on a yearly basis, as against 207 in February. In
other words, the turnover was somewhat lower for the wrood-ship
builders than for the steel-ship builders and in neither case was there
much change in February as compared with January when only the
aggregate' totals are considered.
The table in detail show's many variations. In January the turn­
over percentage varied from 68 for the two small steel-ship building
companies in the fourth district to 287 for the three fabricated yards
combined and 257 for the 6 wood-type yards combined in the fifth
district. In February the variations in the turnover percentages
were of equally wide range. When the analysis is carried further
and the turnover percentages are calculated for the several companies
individually the differences and variations are still more striking and
are of wider range.

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T a b l e 3 —Y E A R L Y

D is tric t.1

No. 1

189

L A B O R T U R N O V E R F O R S H IP B U IL D IN G E M P L O Y E E S , B A S E D O N
J A N U A R Y A N D O N F E B R U A R Y , 1918.

T ype of con­
struction.

Jan u ary .
N um ­
ber of
com­
pa­
nies Average
num ber N um ber
re­
port­ payonroll. replaced.
ing.

Per cent
of tu rn ­
over
(yearly
basis).

F ebruary.

Average
num ber N um ber
on
replaced.
pay roll.

..................... W ood...............
S teel..................

8
3

1,534
13,126

374
1,709

254
135

1,243
14;732

155
1,655

P er cent
of tu rn ­
over
(yearly
basis).
163
146

T o ta l. . .

11

14,660

2,083

148

15,975

1,810

147

No. 2........................... W ood...............
S teel.................

5
4

1,138
6,210

172
2,116

157
355

2,712
7; 153

505
1,241

242
225

T o ta l. . .

9

7,348

2,288

323

9,865

1,746

229

No. 3........................... W ood...............
S teel.................

5
6

769
17,626

142
3,209

192
189

873
21,029

128
2,893

191
180

T o tal__

11

18,395

3,351

189

21,902

3,021

180

No. 4 .................... .... W ood...............
S teel.................

6
2

1,841
511

173
33

98
68

2,642
'556

208
41

103
96

T o tal__

8

2,352

206

92

3,198

249

101

W ood...............
S teel.................

6
2

1,588
356

393
31

257
90

2,301
'419

419
76

241
235

T o ta l. . .

8

1,944

424

227

2, 720

495

237

No. 6.......................... W ood...............

9

3,433

760

230

4,615

810

229

T o tal__

9

3,433

760

230

4,615

810

229

No. 7 . . . ..................... W ood...............
S teel.................

4
7

1,016
19,154

151
4,490

155
243

1,351
23; 035

184
5,442

177
307

No. 5.....................

T o tal__
No. 8 .......................

W ood...............
S teel.................

u

20,170

4,641

239

24,386

5,626

300

8
7

2,873
25,078

517
4,336

187
180

• 8 , 433
29,280

603
4,047

228
179

15>

27,951

4,853

181

32,713

4,650

185

No. 9............. »........... W ood...............
S teel.................

1
14

171
12, 734

19
2,620

115
214

151
13,762

4
2,097

34
198

T o tal__

15

12,905

2,639

212

13,913

2,101

196

W ood 3 ............
S teel.................

T o t a l.. .

No. 10 .....................

5

12,943

2,214

178

14,231

2,188

200

T o t a l.. .

5

12,943

2,214

178

14,231

2,188

200

No. 11......................... W ood...............
S te e l2...............

11

6,275

842

139

7,552

618

107

T o t a l.. .

11

6,275

842

139

7,552

618

107

Fabricated yards .. S teel..................

3

1,202

332

287

1,898

300

205

W ood.........
S teel..................

63
53

20,638
108' 940

3,543
21,090

178
202

26,673
126', 095

3,634
19,980

177
207

T o tal__

no

129,578

24,633

198

152,768

23,814

202

Grand to ta l. . . . . . . .

!

1 F o r d e s ig n a tio n o f d i s t r i c t s , se e p . 184.
2 N o s te e l- s h ip b u i l d i n g c o m p a n ie s i n t h i s d i s t r i c t .
3 N o w o o d - s h ip b u il d in g c o m p a n ie s i n t h i s d i s t r i c t .

A large labor turnover always represents heavy economic loss,
through reduction of efficiency, loss of work-time, other expense and
waste involved in the replacement of men, and the consequent
54591°—18----- 13

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

slowing down of production. Like daily attendance, labor turnover
is due to many causes most of which operate more intensively on
casual than upon skilled labor. A high labor turnover, however,
among skilled workmen entails heavier losses upon production than
an equal turnover among the unskilled and, perhaps, almost in direct
proportion to the relative skill of the labor. It is important, there­
fore, that the turnover of shipbuilding employees be reduced to the
lowest percentage possible and that every effort be made by employers,
employees, and governmental agencies to bring this about.
During the recent winter a large part of the labor turnover, par­
ticularly on the Atlantic coast and Great Lakes, was due to the
severe weather conditions which, in many instances, made it im­
possible for men to work in the open on building operations. Lack
of proper and adequate housing and transportation facilities in manv
of the shipbuilding centers has also contributed largely to bring
about the relatively high labor turnover still existent in several of the
shipbuilding yards. Maladjustment of wages, too, has in several
instances favored the so-called “ scamping” of labor. This latter
factor has induced a comparatively large number of men to quit
work in one yard and move to another to accept higher wages. It
has also affected daily attendance by encouraging certain of the men
to take a day or two off to seek a job elsewhere at higher wages or
under alleged or supposedly better conditions in other respects, such
as hours of work, better work and living conditions, etc. Fortu­
nately, the Labor Adjustment Board has recently handed down its
decision in reference to wages, hours of labor, and certain other
conditions, making these uniform and standardized, so far as possible,
for the North Atlantic and Gulf coasts.1
The necessary dilution of shipbuilding labor has operated also to
some extent to increase the labor turnover. This has inevitably
resulted in the recruiting of a considerable proportion of untrained,
inefficient, and discontented laborers. One of the promising reme­
dies for this temporary condition is the instruction and training of
the “green” labor in the yards. This training work is rapidly improv­
ing as more and more of the experienced foremen are taught just
how best to impart the necessary instruction to the men under
their supervision. The schools located at Newport News and at
Philadelphia aim to do just this. The recently opened six weeks’
intensive course in employment management at the University of
Rochester is designed to give special training in scientific employ­
ment methods to carefully selected men so that the employment de­
partments of factories and plants, including shipyards, engaged on
Government war contracts may be able to deal more efficiently with


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1See p p.

130 to 142.

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MONTHLY REVIEW OP THE BUREAU OF LABOR STATISTICS.

191

all the problems with which such departments are confronted. One
of the primary aims is to teach employment managers how to select
men and assign them to the jobs for which they are best fitted. The
more thoroughly employment managers are trained in this direction,
the less likely that labor turnover will be traceable to improper and
unintelligent methods of employment. A similar course is planned
for Harvard and other universities. All of these really constructive
efforts to improve the efficiency and contentment of labor operate
also to reduce labor turnover.
The local housing and transportation difficulties are being solved
as rapidly as is humanly possible in view of the size of the problems
involved. There is good reason to hope that in a very few months
most of these particular handicaps will be removed.
Not a small part of the labor turnover during the winter months
was due to lack of material in the yards for men to fabricate into
ships. The shortage of material was in some instances so serious
and the delays in delivery so long that employees were let go and had
to be replaced when the material finally arrived. This lack of
material was in turn often due to a variety of reasons, the principal
one being the unusually severe weather conditions, coal shortage, and
the badly handicapped railway facilities. These obstacles have now
been either entirely removed or the earlier conditions have recently
been greatly improved.
In conclusion it may be said that the labor force in the American
shipyards, as measured by percentages of average daily attendance
and turnover, is certain to become increasingly powerful, efficient,
and productive. The constructive program for bringing this about is
well under way and there is every reason to believe that in this crisis
American labor will do its full and big part and will see to it that the
“ bridge of ships” is speedily built and kept in good repair.
HOW THE UNITED STATES EMPLOYMENT SERVICE IS MOBILIZING
WORKERS.
B Y C. F . STO D D A RD .

Getting the job and the man together is the chief function of the
United States Employment Service, recently established in the De­
partment of Labor under the direction of John B. Densmore, formerly
solicitor of the department, as director general. State, municipal,
and county employment offices have been operated in many States
during recent years to take care of demands more or less local, but in
the present war emergency, when industries are calling for more
labor than can be supplied locally, it is imperative that employment
activities on a huge scale should be brought under one coordinating
authority in order that the needs of industry may be adequately

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

192

served and the prosecution of the War forwarded with all possible
speed and efficiency. To work in harmony with existing agencies in
the various States and to exercise directing authority, as well as to
afford a medium through which all demands for labor and requests
for positions may be cleared, is the purpose for which the United
States Employment Service was organized.1
Under its mobilizing and distributing plan the State services are
becoming component parts of a national system of labor exchanges,
known as the Federal Employment Service under the central super­
vision of the Department of Labor, but State services joining the
federated system do not lose their identity. In the States thus co­
operating, employment directors, subject to general supervision by
the Director General, through the district superintendents, have been
appointed, being generally designated upon recommendation of the
council of national defense of each State and after approval by organ­
ized capital and labor. In many States the operations of the combined
State and United States employment services are directed by aFederal
director of employment, appointed by the Department of Labor, with
an assistant in management known as the associate director of em­
ployment, who is also designated upon the recommendation of the
council of national defense of the State. The Federal employment
directors in each State, so far as appointed April 30, are as follows:
F E D E R A L S T A T E D IR E C T O R S O F E M P L O Y M E N T .
State.

Nam e.

A la b a m a ....................................
A rizona........................................
A rkansas.....................................
Colorado. . .
C onnecticut
D elaw are.....................................
G eorgia............
Id a h o
. .
Illinois___
In d ia n a __
Io w a..............................................
K e n tu ck y .............
M aine.........................................
M ary lan d ....................................
M assachusetts............................
M ich ig an ....................................
M issouri. .
M ontana......................................
N ebraska............
New H a m p sh ire . . .
New Jersey.................................
New M exico...............................
New Y o rk .........
N orth D a k o ta ..__
O hio.
O k la h o m a .. . .
South C arolina.............
Tennessee........
T exas__
U ta h __
V irginia..
W est V irginia............................
W isconsin................................

Geo. N. T e rr a n t.................................................
Thom as J. Croaff................................................
R . R . K e atin g ......................................................
R ead y K en elian ..................................................
C. E . D a v en p o rt..................................................
A. G. B a n k lia rt...................................................
H . M. S tan ley .......................................................
M. J. K e rr.............................................................
M ark L. Crawford...............................................
W . C. DeM iller....................................................
H . J. M etcalf.........................................................
F. L. McVey.........................................................
Chas. S. H ic h b o rn ..............................................
John K . S h aw ......................................................
W . A. G asto n .......................................................
Jas. T. L y n n .......................................................
W . W . B ro w n ......................................................
Scott L e a v itt........................................................
R o b ert Cow ell................................. : ..................
E . K . S aw y er.......................................................
L. T. B ry a n t........... ......................... .................
A lvin N . W h ite .................................... ...............
P . A. D onohue.....................................................
Bindley H . P a tte n ..............................................
F. C. C ro x to n .......................................................
C. E . C onnally.....................................................
H . L. T ilg h m an ...................................................
J. T. W a re ................................ ............................
H . W . Lew is.........................................................
P . L. M oran..........................................................
J. B . D o h e rty ......................................................
L. B . S p a u n ..........................................................
E sw ald P e tte t......................................................

1 An
R

A ddress.
B irm ingham .
Phoenix.
L ittle Rock.
D enver.
H artford.
W ilm ington.
A tlan ta.
S t. A nthony.
Chicago.
Indianapolis.
Des Moines.
Lexington.
A ugusta.
B altim ore
B oston.
D etroit.
Jefferson C ity.
G reat F alls. "
O m aha.
F ranklin.
Trenton.
Silver C ity.
New Y ork.
B ism arck.
Colum bus.
O klahom a.
Columbia.
M emphis.
S m ith ville.
S alt Lake C ity.
R ichm ond.
C harleston.
M adison.

a c c o u n t of t h e o r g a n i z a ti o n , i n c l u d i n g t h e p e r s o n n e l , o f t h e s e r v ic e w a s g iv e n i n t h e
f o r M a r c h , 1918, p p . 76 t o 78.

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

193

Branch offices, each in charge of an employment agent, called an
examiner in charge, are being established in each State, the number
on April 30 being about 300. Through an extensive field service each
community is kept in constant touch with the chief office of the Em­
ployment Service in the centers of population. Daily and weekly
reports from the field, noted hereafter, keep the main office at Wash­
ington in intimate authoritative touch with the labor situation in
each locality.
In addition to the Federal directors already mentioned, Govern­
ment supervision is further accomplished by a division of the country
into 13 employment districts, each in charge of a district employment
superintendent. Primarily the purpose of this plan is to permit the
more rapid and wholesale transfers of surplus labor from one section
to another that has a shortage. Each district office receives reports
from all the public employment offices within the district, keeps in
intimate touch with employment conditions, supervises the work of
State directors of employment in the States comprising the district,
and supervises and carries on the fiscal operations of the service.
Clearances of labor between local offices within a State are conducted
through the State office, in which the State employment director
makes his headquarters, and clearances between States within a
district are under the supervision of the district office. Clearances
between districts are made through the main office at Washington,
where a clearance section has been established under the direction
of I. W. Litchfield, of Boston, associate director of the Public Service
Reserve. The 13 districts and the superintendents who had been
designated at April 30 are as follows:
District 1.—Maine, New Hampshire, Vermont, Massachusetts, and
Rhode Island. II. A. Stevens, Boston.
District 2.—New York, Connecticut, and New Jersey. John R.
O’Leary, New York.
District 3 — Pennsylvania and Delaware. John C. Saylor, Wil­
mington, Del.
District J.—Ohio and West Virginia. James A. Reynolds, Cleve­
land.
District 5.—Maryland, Virginia, District of Columbia, North
Carolina, and South Carolina. Ralph Izard, Richmond, Va.
District 6.—Georgia, Florida, Alabama, Mississippi, and Louisi­
ana. Cliff Williams, Birmingham, Ala.
District 7.—Indiana, Illinois, Michigan, Wisconsin, and Iowa.
P. L. Prentis, Chicago.
District 8.—Kentucky, Tennessee, Missouri, and Arkansas. C. C.
Cavanaugh, Little Rock, Ark.
District 9.—Minnesota, North Dakota, South Dakota, and Montana.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

District 10.— Nebraska, Kansas, Oklahoma, Colorado, and Wyo­
ming. A. L. Barkman, Kansas City, Kans.
District 11.—Texas and New Mexico. H. A. Lewis, Smithfield,
Tex.
District 12.—Arizona, Utah, Nevada, and California. William T.
Boyce, San Francisco.
District 13.—Washington, Oregon, and Idaho. Henry White,
Seattle.
FORMS A N D RECORDS USED.

During the fiscal year 1916-17 the United States Employment Service
directed approximately 458,000 persons to employment, and it is now
directing an average of 100,000 persons monthly. More than 30,000
employers are now calling upon the Employment Service each
month. The War Department and the United States Shipping
Board are utilizing the Employment Service in furnishing labor to
industries in which they are directly interested.
When applications for work or requests for workers are received,
the local agent notes on cards prepared for filing the information
necessary to enable him to render the expected service. From the
employer he obtains data indicated by the following card, on the
reverse side of which he keeps a record of the help sent, under the
captions “ Persons se n t/’ “ Nationality,” “ Date sent,” and “ Result” :
D E P A R T M E N T OF LABOR
V. S. EMPLOYMENT SERVICE

EMPLOYER’S ORDER
N um ber

N am e

D ate

A ddress

Telephone No.

O ccupation

N um ber w anted

Wages

(S tate exact n a tu re of w ork to he done.)
H ours

N ationality

Sex

j Age lim it

Probable d u ra tio n of w ork
Color

J M arried or single

A pply to
A ny strike or lockout existing or th reaten ed ?

The prospective employee furnishes data which is placed on the
following card, on the reverse side of which is a space for a record
of the positions offered, including the name of the employer, occupa­
tion to which sent, date sent, and the result:


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

195

Nam e

Telephone No.

A ddress

W illing to w ork ou t of tow n?

J D ate

occu p atio n

Wages w an ted

N um ber of dependents

Also w illing to w ork as—

Wages w anted

M arried
Single
W idowed
C itizen of U .S .

Age

j Race

B irthplace

L ast three em ployers

A ddress

K in d of w ork

Speak English
R ead English
W rite English
H ow long in U. S.?
Renew als

%

■*

R em arks:

D EPA R T M E N T OF LA BO R

ü . S. E mployment Service

A P P L IC A T IO N FO R W O R K -M a le s

Each applicant is handed a card of introduction to his prospective
employer, the bottom half of this card to be filled in by the employer
and returned to the agency sending the worker. The card, in the
form of a post card for mailing without postage, is as follows:
THIS CARD TO BE PRESENTED TO EMPLOYER
(No postage required.)
...........................................................................E m p l o y m e n t

O ffice.

......................................................................................., 191

T o ............................................................................
This will introduce ........................................................................................... as an applicant
for the position o f ........................................................................................................... ... .......................
(W ages.)

rr
. ..
. ,
. ¡Employer ) Deducted from w a g es ........... Directed bu ______
I ransportation to be paid byl
t
y
[Employee j R efu n ded ......................................................................
-

:

EMPLOYER, PLEASE FILL OUT SPACE BELOW AND RETURN CARD BY MAIL.

I h a ve .................... hired ......................................................................................................... fo r the
position o f ..................................................................................... and he went to work ............. , 191
N a m e of e m p l o y e r ............... ................................................... ..........................
A d d ress .............................................. ............................................................
TH E U N IT E D ST A T E S P U B L IC SERVICE R ESE R V E .

An important division of the United States Employment Service
is the Public Service Reserve 1 organized in every State and county
for the purpose of enrolling and classifying the man power of the
Nation that is not engaged in military service and is adapted to war
industrial work. It enrolls and registers men in every line of pro1 A n a c c o u n t o f t h e w o r k o f t h e U n i t e d S t a t e s P u b l i c S e r v ic e R e s e r v e w a s g iv e n i n t h e M o n t h l y R
fo r S e p te m b e r , 1917, p p . 77 t o 79.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

fessional and industrial activity who might be called upon in some
branch of war work. Between 16,000 and 18,000 technical men
have been enrolled. Several thousand lawyers have been registered
for war work. The reserve is indorsed by the American Federation
of Labor and a large proportion of the national unions have expressed
individual approval. It has supplied men of unusual qualifications
to manufacturers with war contracts and has furnished men for
nearly every Government department, bureau, and war committee.
It has directed special workers to the Navy Department, the United
States Shipping Board, the Ordnance Office, and other War Depart­
ment divisions, for aircraft production, and other work. Public
Service Reserve directors have been appointed in each State, the
names and addresses of these directors appearing on pages 204 and
205.
SH IP Y A R D W OR K ER S S U P P L IE D .

The United States Public Service Reserve has enrolled more than
265,000 shipyard volunteers, and from this supply will be drawn,
through the Employment Service offices, workers to fill special
requirements after the needs of the yards have exhausted the appli­
cants for shipbuilding employment at the various branches of the
Employment Service. Shipbuilders generally have been notified by
the Employment Service that it is prepared to fill all their labor
needs, and they have been requested to obtain their workers exclu­
sively through the service. Many have agreed to do so. Com­
pliance by the yards with this request and the cessation of their inde­
pendent efforts to recruit labor will mean the elimination of the
present general confusion in industry caused by the unintentional
“ stealing” of men by one yard from another, the unnecessary and
premature withdrawal of workers from other industries, and the
piling up of idle laborpn the shipbuilding centers. It is imperative
that employers make their calls specific, noting the particular posi­
tions for which men are needed, in order that requirements may be
filled from among men who apply at Employment Service offices, the
purpose being to delay as long as possible the necessity of drawing
upon the Public Service Reserve’s list of shipyard volunteers. The
form of blank which shipyard employers are requested to file with
the Employment Service is shown on page 202.
E M PL O Y M E N T S E R V IC E S U P P L IE S FA R M LA B O R .

Hardly less important than the construction of ships is the pro­
duction of food. The ranks of available experienced farm labor have
been thinned by the call of the selective draft and farmers have
wondered from what source they could draw to assist them in culti­
vating and harvesting the crops so much needed in the present crisis

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197

This has afforded opportunity for the United States Employment
Service to demonstrate again its effectiveness in mobilizing labor
and distributing it where needed. The Public Service Reserve, in an
intensive campaign, is enrolling men for war emergency farm service­
men who are ready to give from one to two days a week to work on
farms in their neighborhood, or a month or more wherever they might
be needed. The purpose of this is to supplement the numbers who
may be able to give all of their time during the farming season, and
the enrollment will be drawn upon only as needed to meet the demand.
In order to avoid duplication of effort the reserve directors are con­
sulting with their respective State farm-help specialists, and local
reserve agents are cooperating with the 2,300 county agricultural
agents and seeking their expert advice. The State directors, through
each local agent, are also investigating the agricultural housing
problem to ascertain whether the farmers have adequate housing
facilities and proper living conditions for the labor they are needing.
In addition to the farm workers thus enrolled the United States
Boys’ Working Reserve 1 has mobilized about 250,000 boys between
the ages of 16 and 21 for work on farms this summer. Over 150,000
boys were thus utilized last year, and as a result of favorable ex­
perience many farmers have indicated that they will accept boy
workers this year. In some States the boys were released early from
school, and the New York State Food Commission appropriated
$50,000 to further the boy-on-the-farm movement in that State.
Pennsylvania has also appropriated $50,000 and Connecticut $25,000
for the same purpose. Approximately 15,000 farmers in one State
(Indiana) have requested bo}^s to help them this season. Maine,
which last year employed 700 boys, this year will use many times
that number.
As an initial step in the efforts of the Employment Service to be
of greatest possible help to farmers, arrangements were made early
in March with the Post Office Department to designate every third
and fourth class postmaster and every rural carrier, approximately
98,000 in number at 55,000 offices, as farm-labor agents for the
United States Employment Service. In this way every farming
community has been given the advantage of employment service
under Federal supervision, and through these agents the farmers
have been made acquainted with the opportunities thus afforded of
getting such help as they may need during the coming season. It is
recognized that the success of this scheme depends largely upon the
farmer himself, who must notify the local postmaster of his require­
ments in time, and be definite as to wages, character of work to be
i A n account of th e organization of th e U nited States B oys’ W orking Reserve was given in th e Monthly
R

e v ie w

for June, 1917, p p . 991-993.


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Federal Reserve Bank of St. Louis

For list of S tate directors, corrected to A pr. 20, 1918, see p . 204.

[1245]

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

performed, length of employment, and living conditions. The
United States Employment Service and its cooperating State services
are adequately equipped to give him assistance, but they can not
supply labor until his needs are known.
Every farmer desiring to make application for farm help is requested
to fill in the following blank which he may obtain from the local
postmaster or the rural carrier by whom he is served:
FOR, USE IN MAKING APPLICATION FOR FARM HELP

U. S. DEPARTMENT OF LABOR.
U. S. EMPLOYMENT SERVICE.
WASHINGTON.
READ CAREFULLY NOTATIONS ON BACK HEREOF BEFORE FILLING THIS BLANK.
Write name and address plainly.
Date.................................................................
1. Employer: ......................................... Post office,...................................................
(Name.)
County o f .................................................... State of.....................................................
Telegraph office, .......................................... Railroad station,...............................
2. References: .................................................................................................................
3. Number of men you wish to h ire :.................................................................... ........
4. (a) Nature of duties: ............................................................................................ .
(State whether truck farm, stock farm, or dairy.)
(b) State number of cows each man must m ilk :............................................... ..
5. (a) Nationalities acceptable:............................................................................ ........
(State whether or not knowledge of English is necessary.)
(6) Will English-speaking men of any other nationality be acceptable?......... .........
(c) Do you desire experienced help or “ green hands”? ......................................... .
6. (a) Married or single men preferred: .............................. ...........................................
( b) Do you require that married men be accompanied by wives?.............................
(c) Will children be objectionable?..............................................................
7. (a) Will you advance transportation from points within the United S tates?...........
(b) If so, will amount be deducted later from employee’s wages?...........................
(c) Will you refund the money so deducted after a period of service, and, if so,
under what conditions?.....................................................................................
8. (a) What money wage]green hand? $..................... 8......................... per month;
will you pay mar-1
(Winter.)
(Summer.)
ried man.......... Jexperienced hand? $................... $......................per month;
(Winter.)
(Summer.)
and will house (furnished or unfurnished), garden patch, fuel, milk, etc.,
he provided free in addition to wages?.............................................................
(b) Would services of wife be required, and if so, her duties and compensation
therefor?............................................................................................. ................
(c) What wages will]green hand? $....................... 8 .......................... per month;
you pay single!
(Winter.)
(Summer.)
................. $..................... per month;
man.................. j experienced hand?
(Winter.)
(Summer.)
and will board, lodging, washing, etc., he furnished free in addition to
wages? .................
(Yes or no.)
(d ) Winter p a y ....................t o ...................... Summer p a y ................ to...............
(Date.)
(Date.)
(Date.)
(Date.)


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Federal Reserve Bank of St. Louis

[1246]

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

199

[ R e v e r s e s id e .]

9. W hen will services of th is h e lp be re q u ire d ? .................................................................
( S t a t e d a y a n d m o n t h w h e n y o u d e s ir e h e l p t o a r r i v e .)

10. H ours of labor: ................................................................................ ......................... ........... ..
11. W ill em ploym ent be p e rm a n e n t? ........................................................................................
12. Size of farm or p la c e ,.......... U nder c u ltiv a tio n ,.......... No. of m en on place, . . . .
( A c r e s .)

( A c r e s .)

13. Do you em ploy ex tra hands for any p a rt of th e year; if so, how m any; for w hat
kind of work; a t w hat p ay ; when, and for how long a period of tim e?
14. R em arks: ...................................................................................................................................
I t is agreed th a t th e undersigned will keep th e Service inform ed as to need of men
applied for above, and advise bv telegraph (at em ployer’s expense) in case said help
is secured through other sources; th is in order th a t m en m ay not be directed an d find
position filled upon arrival.
{Sign here.] ..................................................................
(N

o t e

. —A dditional

sheets m ay be used if necessary.)

R E A D C A R EFU L LY B E F O R E F IL L IN G O U T B L A N K .

6®“ N . B .—The p arty filling out this blank may return same to th e postm aster or trans­
m it same through th e rural m ail carrier or through th e officer in charge of any branch
post office, w hereupon i t will be forwarded to destination free of charge for postage.
If transm itted otherwise th e usual postage will be required.
In addition to answering carefully all th e questions on this blank, your especial
atten tio n is called to th e following:
Q u e s t i o n 4 . N a t u r e o f d u t i e s . — Define w hether a “ farm er” or a “ farm laborer”
is w anted. A “ farm er” will be understood to m ean one who is com petent to take
charge of and operate a farm w ithout supervision. A “ farm laborer” will be under­
stood to m ean one who has had some experience, b u t is to work under th e im m ediate
direction and supervision of th e employer. If a “ green h a n d ” (one who has had no
experience a t farm work, b u t willing to learn) will be accepted as a farm laborer, i t
should be so stated. Also m ake i t clear w hether you operate a “ dairy farm ,” “ stock
farm ,” “ truck farm ,” etc. If im m igrant help is acceptable, so state. “ E x p erien ced ”
are those w ith experience in native iand, or in the U nited States; “ green,” those w ith
no farming experience.
Q u e s t i o n 5. N a t i o n a l i t i e s p r e f e r r e d . —As m uch scope as possible should be
allowed in th e m atter of nationalities w hich would be acceptable to you. Always
state w hether or not a knowledge of English is necessary.
Q u e s t i o n 6. M a r r i e d o r s i n g l e m e n p r e f e r r e d .— If your preference be for a man
and wife, state w hether or not a single m an will answer, provided we are unable to
supply th e m arried couples. This is asked because a t tim es there is a scarcity of
th e latter.
Q

7 . W il l y o u a d v a n c e t r a
? —T he necessity for this question

u e s t io n

n s p o r t a t io n

fro m

p o in t s

U

w it h in

n it e d

is due to th e fact th a t m any good m en apply
at our branch offices who would w illingly go to distant points, b u t are unable to do so
w ithout aid from th e prospective employer. Such advance would, of course, be made
through a representative of th is division, who would see th a t th e employee was properly
tick eted and th en m ail his baggage check direct to th e em ployer interested, w hich
1 would serve somewhat as a precaution against an employee going astray.
I t m ust be distinctly understood, however, th a t th e responsibility of th e service
and its representative ends w hen th e said employee has been placed upon th e train or
boat. No guaranty is given or im plied th a t he will actually arrive a t his destination.
(See circular on th is subject.)
Q u e s t i o n 8 . W a g e s . —This question m ust not be left unanswered, because of the
fact th a t an employee w ants to know as to th e wages he is to receive before accepting
an offer, and this point should b e definitely stated. If wages are stated at so m uch
per day, i t should be made clear w hether employee is paid for every day in th e month
or only for such days as work can be performed. Also approxim ate pay received per
week or m onth in such case.
All comm unications relative hereto should bo addressed:
S

t a t e s

U . S. E

m plo y m en t

D

S

e r v ic e

e pa r tm en t

W

o f

,
L

a b o r

a s h in g t o n

gf^“ This service is public and no charge is m ade to em ployer or employee.
[1247]

https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

,

,

D. C.

2;00

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

For the information of the local office, this and other information
is recorded on the following card which is kept on file, the reverse
side of the card being provided with space for noting help sent,
showing the name of the applicant, his address, the date sent, and the
result:
APPLICATION FOR FARM HELP
U . S. D E P T . O F L A B O R
U. S. EMPLOYMENT SERVICE

Nam e of farm er

D ate

P . 0 . address

Telephone exchange and num ber

K ind of farm (general, stock, dairy, fruit,
or truck)

C ounty

Age lim it of help w anted

N um ber K ind of work
D ate
L ength of tim e
Probable
w anted
w anted
w anted
wages
Experienced
Inexperienced m en, w ith
fam ilies
Experienced
Inexperienced single men
Experienced
Inexperienced older boys
Experienced
Inexperienced female w orkers
Experienced
i
Inexperienced d a y w orkers
If you can use colored help, give n u m b er ; if foreigners, give n u m b er and n a tio n a lity preferred
Colored
Foreigners
N um ber of “ help w a n te d ” required to m ilk_______________ N um ber of cows m ilked
S ta te w h a t is furnished (board, house, garden, etc.)
F or single help____________________________
F or m arried help
F u ll directions for reaching farm from nearest city, tow n, or village
T ransportatio n expense

The postmaster or rural carrier is also prepared to assist the farm
worker in obtaining employment by furnishing him with the follow­
ing blank to be fdled in and filed with the postmaster:
FARM WORKERS’ APPLICATION FOR EMPLOYMENT

U. S. D EPA R TM EN T OF LABOR
U. S. EMPLOYMENT SERVICE
WASHINGTON

D a te ............................................................................
N am e.............................................................. Post O ffic e .............................................................
A ge.................. H e ig h t.................... W eight.................... R,ace.....................................................
Where horn (name of c o u n tr y )....................................................................................................
If of FO R E IG N B IR T H , how m any years have you been in th e U n ited States?
.......................................... Are you a citizen of th e U nited S tates?.........................................
If m arried, nam e of wife and ch ild re n .......................................................................................
Will fam ily accom pany y o u ?................ If so, is wife able and willing to accept em ploy(“ Yes” or “ N o.” )

m ent as dom estic?............. .................................................................................................. . . .


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Federal Reserve Bank of St. Louis

[1248]

* MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.

201

W hat languages do you sp eak ?......................................................... .................................. .
Name and address of last em ployer.............................................................................
Cause of loss of position...............................................................................
How long em ployed by last em ployer......................................................... ............................
X| now em plpyed, state reason for desiring change . ....................................................
in what States-will you accept employment?............................ . . . . b......................I.
- Wages ex p ected ...................................................................................................................... i . . . .
Are you strong and r o b u s t..................
(“ Yes” or “ No.” )

State kind of farming you have done, where service was perform ed, and w hether or

not you can milk. ..................................... ....................................................................
(Sign h e re ).............................................................................

Supplementing the scheme just outlined, the Secretary of Labor
on March 18, 1918, addressed a letter to the editors of 736 daily
newspapers in cities of over 20,000 population, many of which have
no public employment office, asking each to establish a cooperative
farm-labor agency under the Federal Employment Service, to desig­
nate a member of his staff as labor agent, to agree to give publicity
to local farm-labor demands, and to report weekly to the United
States Employment Service. Compliance with this call for patriotic
service by-84 newspapers 1 indicates an early completion of a chain
of regular and war-emergency farm-labor employment offices cover­
ing the entire country. The regular branches of the United States
Employment Service, cooperating State and municipal employment
offices, subagencies connected with chambers of commerce and boards
of trade, and newspapers are serving the cities and larger towns, while
the third and fourth class postmasters and the rural carriers and
county agents and farm-help specialists of the Department of Agri­
culture are covering the smaller towns, villages, and rural districts.
R E P O R T S R E Q U IR E D B Y T H E E M P L O Y M E N T S E R V IC E .

The United States Public Service Reserve is making a month-tomonth survey of actual labor conditions in the war industries in order
that the full strength of American labor may be applied to war pur­
poses. These monthly labor-status reports keep the Empk^nnent
Service informed as to the extent to which each manufacturer of war
material is doing war work, his present and anticipated labor needs,
expected releases of labor, and housing conditions. Immediately
upon receipt of a report showing shortage or future needs of labor,
the Employment Service office nearest the plant reporting is sent a
statement, indicating in detail the number of men and women work­
ers required. The Employment Service utilizes all the available
unemployed labor to fill the plant’s requirements, and where neces­
sary members of the Public Service Reserve are transferred to the
more essential industries. By this means shortages of labor in war
plants are kept at a minimum. These reports act as a labor baromi U p to A pril 23 tills num ber of papers h a d replied favorably to the Secretary’s letter. The D aily News
of Geneva, N. Y ., was th e first new spaper to reply and has accordingly been given serial No. 1.


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Federal Reserve Bank of St. Louis

[1249]

202

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

eter, enabling the Department of Labor not only to prevent a
serious shortage of labor in an essential industry, but also to meet
promptly the new demands for labor which follow the rapid expansion
of production. The following blank is used in this connection:
U . S. D EPA R TM EN T OF LABOR
U. g. EMPLOYMENT SERVICE
Please send tw o copies of th is re q u e st every
T h u rsd ay to U. S. E m p lo y m en t Service, W ashing­
ton, D. C., a n d a th ird copy to IT. S. E m p lo y m en t
Service a t

, 1918.

............................................................................... Firm. ,
............................................................................... Office address.
............................................................................... Yard address.
(Give street, number, city, and State.)
Any strike in progress or pending? ...................................... ........................................
What are conditions as to housing in vicinity of your plant?
Rent, houses o f---- — rooms, per month, $--------to $---------.
Board and room from $—----- to $--------per week.
Board only................ —---- t o ----------per week.
Double rooms............
to --------per week.
Single rooms..............
to --------per week.
Working H ours: ......... hours per d a y ,...........per week. Plant now running . „___
hours per d a y ,......... hours per w e e k ............ hours on Saturday.
Overtime : Time beyond......... hours paid for at rate o f ............
P iecework: If any workmen paid on piecework rates, state result compared with
hour rates in their pay envelopes...........
Night R ates: ......... hours worked; pay figured a s ........... hours, computing night
rates in.
Number of employees on pay roll on day of re p o rt........... Number quit or laid off
during w eek ........... Number hired during w eek ___...
Will you release any considerable number of employees soon? .......... How many?
......... When? ‘...........
Men needed.
O ccupation.
(Specify k in d of w ork.)

R ates of pay.

Later.

•

• D ay.

N ight.

Now.
W hen.

No.

H our.

W eek.

H our.

W eek.

The Employment Service is also requiring each branch office to
report daily on local employment conditions in specified trades.
Weekly reports are also filed by each branch office, these reports noting
the number and character of applications for workers and for jobs,
the number directed to employment, and the number actually placed.
The blank used is as follows:


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Federal Reserve Bank of St. Louis

[1250]

MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.

203

WEEKLY REPORT
’

U. S. DEPARTMENT OF LABOR
U. S. EMPLOYMENT SERVICE

Office a t...........................................................
Week ending.................... - ............, 19----Make out 4 copies at close of business each Saturday; send 1 copy to field director,
Washington; 1 to district officer; 1 to State director; 1, file.
O ccupation.

Orders.

Specific. •

General.

W orkers
w anted.

N um ber.

A pplica­
tions.

Sent.

R eported
placed.

T o ta l.....................
REPORT ALL LABOR EXCEPT FARM LABOR ON THIS BLANK.

Other reports required to be filed daily are sent on the following
blanks:
U. S. DEPARTMENT OF LABOR
U. S. EMPLOYMENT SERVICE

REPORT OF APPLICANTS NOT PLACED AND WILLING TO LEAVE THE CITY.

C ity.................................................................
D ate................................................................

N am e of ap­ Principal occu­
pation.
plicant.

O ther expe­
rience.

Superintendent.

Single,
m ar­
ried, Age.
or w id­
owed.

Sex.

Color.

M ini­
m um
wage
de­
manded.

Lim it
ppli­
Do you acant
recom­ can pay
m end
a ppli­ trafor
n s­
cant? p o rta
­
tion.

U. S. DEPARTMENT OF LABOR
U. S. EMPLOYMENT SERVICE
REPORT OF ORDERS FOR HELP UNFILLED AND IM POSSIBLE TO FILL LOCALLY

C ity.................................................................
D ate................................................................

K in d of work.

Superintendent.

N u m ­ Proba­
Age D ura­
ble
ber
Hours. Sex. Color. lim it. tio n of
job.
w anted. wages.


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Federal Reserve Bank of St. Louis

L atest
date
for
Riling
order.

A m ount
em ­
ployer Proba­
w ill pro­ ble cost
of
vide for
tra n s­
board.
p o rta­
tion.

__ ^
r12511

2G4

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
PL A C E M E N T O F W O M EN ON T H E FA R M S.

The women’s division of the United States Employment Service,
together with the Department of Agriculture and the women’s com­
mittee of the Council of National Defense, is engaged in working out
the question of supplying women for farm work during the war
emergency. The Department of Agriculture is ascertaining through
its 2,300 county agents in what State and for what work farmers want
women, and is securing through its extension service a list of women
who might be available as leaders if training camps for women farm
helpers were established. The Employment Service, through its
women’s division and with the aid of the farm-labor division, is
registering women for farm work and will place them on farms. The
women’s committee of the Council of National Defense is taking up
the question of training camps for women, the necessary educational
and “ recruiting” propaganda, and welfare work for women on farms.
The women’s division of the Employment Service is receiving weekly
reports from the branch offices by which it is informed of the demands
for women in various lines of employment in all parts of the country.
Reports from the county agents of the Department of Agriculture
indicate that a number of States will experiment with woman labor
this year on farms, but no general movement to put women on farms
is contemplated for the present at least, as farmers will first use the
men and boys available.
FEDERAL

STATE

D IR E C T O R S

O F T H E P U B L IC S E R V IC E R E S E R V E A N D T H E
W O R K IN G R E S E R V E .

BO YS’

The following is a list of the directors of the United States Public
Service Reserve and the United States Roys’ Working Reserve, to­
gether with their addresses, corrected to April 20, 1918:
F E D E R A L S T A T E D IR E C T O R S OF T H E U N IT E D S T A T E S PU B L IC SE R V IC E R E S E R V E
AN D O F T H E U N IT E D S T A T E S B O Y S’ W O R K IN G R E S E R V E .
Public Service Reserve.

B oys’ W orking Reserve.

State.

A labam a............
A lask a...............
A rizona.............
A rkansas...........
California..........
Colorado............
C onnecticut___
D elaw are...........
D istrict of Co­
lum bia.
F lorida...............
Georgia..............
H aw aii...............
Id a h o .................
Illinois...............
In d ia n a ..............
Iow a...................
K ansas...............
K en tu ck y ..........
L ouisiana..........

Name.

A ddress.

R ay R ush to n .......................
R . E. R o b ertso n.................
Thom as I. Croaff.................
W . G. Sprague.....................
A rth u r P. W ill.....................
W m . N . W . B layney.........
Leo A. K ö rp er.....................
Charles W arn er...................
(9

M ontgom ery. .
Ju n ea u .............
Phoenix.........
T ittle R ock.
Sacram ento..
D enver.............
H a rtfo rd . . . .
W ilm ington. .
(9

R obert G am ble..................
James D. W eav er...............

Nam e.

Address.

W . Nash R e a d .................

Montgomery.

Lindley B. Orme.
W . J. Jernigan.
B. H . C ro ch eron.__
Joseph S. Jaffa.
Chas. L. K irschner..........
Joseph A rm strong...............
R obt. C. H o w ard ................

Phoenix.
L ittle Pock,
Berkeley.
Denver.
New H aven.
W ilm ington.
W ashington.

Jacksonville
W . F. McCanless
D awson............ Joseph T. D erry.................
W . R . F a rrin g to n .............
O. G. E. M arkhus.............
Boise............... H arv ey A llred ................
Chas. A . M unroe........
B. D. B u tle r.................
Chicago. . . .
N . E . S q u ib b ....................... In d ian ap o lis. . Isaac D. S traus....................
H . J. Metcalf........................ Des M oines. . . R . K . Bliss............................
A. A. K n ap p __
T o p ek a............ W . L. P o rter.........................
F. L. McVey......................... L exington....... Philo C. D ix .........................
F . A. Grippen....................... New O rleans.. F . A. C rippen.......................

Jacksonville.
A tlanta.
H onolulu.
Boise.
Chicago.
Indianapolis.
Ames.
Topeka.
Louisville.
New Orleans.

1 No director appointed; th e w ork is supervised b y th e central office of th e R eserve a t W ashington.


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Federal Reserve Bank of St. Louis

[1252]

MONTHLY REVIEW OE THE EUEEAU OF LABOR STATISTICS.

205

F E D E R A L S T A T E D IR E C T O R S O F T H E U N IT E D ST A T E S PU B L IC SE R V IC E R E S E R V E
A N D O F T I IE U N IT E D ST A T E S B O Y S’ W O R K IN G R E S E R V E —C oncluded.
Public Service Reserve.

B oys’ W orking Reserve.

State.

Maino,
Mpry! and
M assachusetts..
M ichigan..........
Minnesota,
Mississippi
Missouri
M ontana
'Nebraska.
Nevada,
New
H am p ­
shire.
New Jerse y ___
New M exico .. .
New Y ork
N orth Carolina.
N orth D a k o ta..
Obio
O klahoma
Oregon...............
P e n n s y lv a n ia ..
R hode Is la n d . .
South Carolina.
South D a k o ta ..
Tennessee
Texas
U tah
V er m on f.
Virginia.
W ashington___
W est V irgin ia..
W isconsin.........
W yom ing

Nam e.

A ddress.

Nam e.

Address.

C. S. H ic h b o rn ...................
John K . Shaw __
W m . A . G aston...................
Jam es T. L y n n ....................
D. R . Cotton ..
S J. Owen
C. C. Carson
Scott L e a v itt__
G. F . N o rm an ......................
C. X . K n ig h t........................
C E Carr"

A ugusta...........
B altim ore........
B oston..............
D etro it.............
St. P a u l...........
New A lb a n y ..
Jefferson C ity .
G reat R ails__
L in co ln............
R eno.................
Concord...........

J. C. S m ith............................
John Redw ood.....................
Stephen R . D ow .................
C. A. Parcells.......................
D. D . Lescohier...................
W . C. T ro tte r.......................
U . W . L am k in .....................
L . R . Fo o te...........................
L. W . T reste r.......................
B rew ster A dam s.................
G. H . W h itcher...................

A ugusta.
Baltimore.
Boston.
D etroit.
Minneapolis.
W inona.
Jefferson City.
Helena.
Omaha.
Reno.
Concord.

L . T , "Bryant
J. TTt W anner
W . A. Orr
T L Bland
J. P . H ard y .
F . C. C roxton__
II. C. T yrrell.........................
F T. G riffith__
J C Frazee
F . A. B urlingam e__
TT Tv. Tilnhm an ..
Charles MeCaffrce__
Sam uel L . K ing...................
H . W . Lew is.........................
P . J. M oran...........................
R, W . Sim onds........
II P . C arter............
R obert Moran __
S. B. M ontgom ery..............
A H . Melville
F d w . P . T a y lo r.. .

T ren to n...........
Santa F e..........
A lb a n y ............
Rocky M ount.
F arg o...............
C olum bus.. .
T u lsa ................
P o rtla n d ..........
P h ilad elp h ia..
Providence___
C olum bia........
Pierre...............
N ashville........
Sm ith v ille ___
Salt Lake City
M ontpelier___
A lexandria___
S eattle.............
C harleston---M adison...........
C heyenne........

W . A. O’L eary.....................
J. H . W agner.......................
H . D. Sayer...........................
J. M. John son .......................
E . F . Chandler.....................
C. H . M ayhugh....................
A . L . F a rm e r.......................
J. W . B rew er........................
J. C. F razee...........................
E . A. Burlingam e................
S. H . E d m u nds....................
W . A. O strander.................
A lb ert W illiams, jr .............
H . L . H oisington.................
J. W . W atson .......................
C. C. B arn es..........................
H . P . C arter.........................
R obert M oran.......................
H . G. Y oung.........................
J. B. B o rd en .........................
E dw . P . T ay lo r...................

T renton.
Santa Fe.
New Y ork.
W est Raleigh.
U niversitv.
Columbus’.
Tulsa.
Portland.
P hiladelphia.
Providence.
Sum ter.
Brookings.
N ashville.
Dallas.
Logan.
Northfield.
A lexandria.
Seattle.
Charleston.
Madison.
Cheyenne.

WORK OF PUBLIC EMPLOYMENT OFFICES IN THE UNITED STATES AND
OF PROVINCIAL EMPLOYMENT OFFICES IN CANADA.

Data are presented in the following table showing the operations
of the public employment offices for the month of March, 1918, and
in cases where figures are available, for the corresponding month in
1917. Figures are given from 147 public employment offices in 36
States and the District of Columbia—Federal employment offices
in 28 States and the District of Columbia, Federal-State employment
offices in 8 States, a Federal-State-county-municipal employment
office in 1 State, a Federal-municipal employment office in 1 State,
State employment offices in 14 States, State-municipal employment
offices in 2 States, and municipal employment offices in 6 States.
Figures from 2 Canadian employment offices are also given.

54501°—IS­

TI


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Federal Reserve Bank of St. Louis

11253]

206

MONTHLY REVIEW OF THE BUREAU OE LABOR STATISTICi
O P E R A T IO N S O F PU B L IC E M P L O Y M E N T O F F IC E S , M AR C H , 1917 A N D 1918.
U N IT E D S T A T E S .

S tate, c ity , an d k in d
of office.

A pplica­
tio n s from
em ployers.

Persons appfyin 1 for
w ork.

Persons
asked for
b y em ­
ployers.

N ew regis­
tratio n s.

Persons re­
ferred to
positions.

Renew als.

Mar., Mar., M ar., Mar., M ar., M ar., Mar., Mar., Mar.,
1917. 1918. 1917. 1918. 1917. 1918. 1917. 1918. 1917.

Mar.,
1918.

Positions
fiiled.

Mar.,
1917.

Mar.,
1918.

A labama.
Mobile (F ed eral)............

33

(*>.

397

C1)

24

2 87

13S
3,579 ..........
..........

21
860

C1)

0)

70

P)

(9

53

Arkansas.
6
178

H elena (F ed eral)...........
L ittle R ock (F ed e ra l)..

.

T o ta l......................

(i)
0)
i

.

(i)
1,80$

(!)
1,032

1,068

i nas?

California.
531
Fresno (S ta te )................
Los Angeles (Statem unicip al)................... 3,614 4,059 6,320
855 1,664 1,047
O akland (S tate).............
340
Sacram ento (S tate).......
309
527
San Francisco (S ta te ).. 1,623 2,850 2,917

1,001

611
0)
461
158
991

(1)
0)
0)
0)

......

T o ta l.. .

766

P)

6,415 2,482 2,613
2,937
502 1,153
1,218
407
771
5,950 1,961 2,353

5,737
1,008
457
2,765

5,722
2,385
1,099
5,593

5,003
769
385
1,930

9,967 15,761

8,117

522
345
392
304
547

508
6
223
206
343

522
292
392
304
547

2,110

1,286

2,057

823
0)

607
747
654
256
108

709
829
701
146
289

823

2,372

9 »174.

4,896
1,931
900
3,815

Colorado.
Colorado
S p r in g s
(S ta te )............. .............
D enver (F ed e ra l)...........
D enver No. 1 ( S ta te )...
D enver No. 2 (S ta te ) ...
Pueblo (S ta te )................

544
10
293
367
351

560
30
560
559
600

544
8
293
367
351

560
355
560
559
600

2 592
2 96
2 354
2 305
2 4Q2

2 576
2 900
2 742
2 372
2 5S3

(B
(L
0)
0)
P)

rn
(!)
0)
(!)
C1)

0)

25

0)
(')
0)

T o ta l......................

25

Connecticut.
B ridgeport (FederalS tate).............................
H artford (S ta te )............
New H av en (S ta te )___
N orw ich (S ta te ).............
W aterb ary (S ta te )........

765
0)
C1)
(*)
(])

(•)
c>
(M
<‘ >
C>

677
903 2 837 2 920 0 )
938 1,029 2 1,106 21,182 P )
773
795 2 1,233 2 .854 P )
275
160 2 310 2 299 P)
165
SIS -222 2 355 P>

P)

C1}

!

..........1 ........

T o ta l......................

0)
0)
0)

P)

0)
(!)
(>)
(')

P)
P)

0)

(l)

Delaware.
39

10

63 1,500

144 *1,002

P>

«

171

975

145

900

114

133

567 2,348

2 724 1,730

(">

C1)

510

2,196

491

2,097

1

15
6
4

50 1,150

2 22 2 838
........
2
2 305

P)

0)

2

613
1
305

2

346
1
260

2

919

2

fi07

W ilm ington (F ed e ra l)..
District of Columbia.
W ashington (F ederal)3.
Florida.
Jacksonville (F ed eral)..
Pensacola (F ed e ra l)___
T am pa (F e d e ra l)..’ ___

0)

(I)
P)

T o ta l......................

...

Georgia.
A tla n ta (Federal-State)

93 .......... 1,074

Idaho.
Moscow (F ed e ra l)..........
i N ot reported.

3

34

j

" j

4

357

2 800

627

I
22

2 N u m b er applying for w ork.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

627

P)

[1 2 5 4 ]

2 32

0)

P)

i

?.9
1

i

s 1918 figures for m en’s division only.

32

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

207

O P E R A T IO N S O F P U B L IC E M P L O Y M E N T O F F IC E S , M A R C H , 1917 A N D 1918—C ontinued.
U N IT E D ST A T E S—C ontinued.

S tate, city, a n d k in d
of office.

Persons applying for
w ork.

Persons
asked for
b y em ­
ployers.

A pplica­
tions from
employers.

New regis­
tratio n s.

Persons re ­
ferred to
positions.

Positions
filled.

R enew als.

Mar., Mar., Mar., Mar., Mar., Mar., Mar., Mar., Mar.,
1917. 1918. 1917. 1918. 1917. 1918. 1917. 1918." 1917.

Mar.,
1917.

Mar.,
1918.

Mar.,
1918.

Illinois.
Bloom ington (Federal-

137
1 112
93
103
(2)
3,024 11,651
759 3,050 3,987 14,31993,297 ‘13,708 (*')
(2)
Chicago (F ed e ra l)..........
Chicago (S ta te ).............. 4,977 4,461 11,161 13,856 10,707 8,605 2,068 6 ,99S 12,119 14,031
D anville ( F e d e r a l 392
i 390
......
323
323
(2)
107
25
22
15-4
(2)
632
590
870 1,051
951 1,277
299
465
447
789
E a st St. Louis (S tate)..
193
104
720 1,037
874 1,197
808
940 1,106 1,386
Peoria (S tate).................
237
219
659
838
973
717
781 1,226 1,199
873
Rockford (S ta te )...........
R ock
Island-M oiine
791 3,877
299 1,174
504 2,25-4
466 1,100
3S9 1,189
(S ta te )...........................
519
210
316
638
877
447
963
286
478
719
Springfield (S ta te ).........
T otal

1

..........| .......... !..........

92
2,905 10,361
9,003 11,699

820
866
788

305
19
1,021
1,196
910

87
430

2,092
763

IS, 707 32,475 14,899 23,458

Indiana.
357
462
112
7 (B
107
E vansville (S ta te ).........
511
829 1603 i 1,040
264
142
Indianapolis (F ed eral).
1,212
1,191
867
959
1.191
1,
043
In d ianapo lis!S tate)___
418
311
133
177
358
206
S outh B end (S ta te )___
Total

2
(2)
211
34

(2)
(2)
84
66

. . . . i ..........

417
493
1,161
340

397
821
1,031
250

328
456
1,078
300

371
665
960
231

2,411

2,499

2,160

2,227

125

397
61
76

52

186
55
60

125

813

52

461

121

56

100

45

234

103

234

103

Iowa.
154
Dcs Momes (FederalS ta te ).............................

76

261
72
100

578
136

735
202

i 415
105

1469
1 8S
i 212

159

279

(2)
26

(?)
(2)
(2)

1
Kansas.
Topeka (Federal-State)

94

48

130

61

119

73

234

122

234

103

i 315

i 130

4

2

Kentucky.
Louisville (S ta te )..........

(2)

00

Maine.
2

250

37

447

159 6,259

» 300 16,561

(2)

00

Massachusetts.
i 52 111,380
414
16 3,372
6
B oston (F ed eral)...........
B oston (S ta te )................ 1,949 1,898 2,189 2,341 11,125 11, 466
793 1,251 1,195 i 347 i 370
925
Springfield (S ta te )........
937 1,208 1,357 i 495 i 583
983
W orcester (S ta te )..........

(2)
(2)
(2)
(2)

00
00
(O
( 2)

K

00

(2)

Maryland.
B altim ore (F ed eral)___

111

5,571

203

3,636

6 3,272
«3,116 3 3,415
s 1,255 s 1,237
a 1,268 3 1,378

6
1,351
847
700

2,568
1,493
813
736

2,90-4

5,610

74
74
473
75
(2)
69
35
69
(2)
318
891
318
(*)
(*)
132 3,956 4,734 3,956
(*)
650
504
114
650
(2)
684
684 1,5221
295
(*)
3 N um ber of offers of positions.

475
91
805
4,734
¿»04
1,456

203

5,645
Michigan.
B attle Creek (S ta te )—
B ay City (S ta te )...........
D etroit (F e d e ra l)...........
D etroit (S ta te )...............
FI inf,
...................
G rand R ap id s (S ta te )..
1 N u m b er applying

189
475 i 85
400
100
47
235 i 122
22
93
200
49
1,003
1318
361
il,1
36
93
S3
836 1,422 4,196 4,754 (*) 4,622
504
i
650
292
431
650
727 1,545 i 722 1,293
539
425
for work.
2 N a t rep arte d.


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Federal Reserve Bank of St. Louis

[1255]

9,302

208

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,

O P E R A T IO N S OF P U B L IC E M P L O Y M E N T O F F IC E S , M A R C H , 1917 A N D 1918—C ontinued.
U N IT E D ST A T E S—C ontinued.

S tate, city, an d k in d
of office.

A pplica­
tions from
em ployers.

Persons applying for
w ork.

Persons
asked for
b y em ­
ployers.

New regis­
tratio n s.

R enew als.

Persons re­
ferred to
positions.

Mar., Mar., Mar., Mar., Mar., Mar., Mar., M ar., Mar.,
1917. 1918. 1917. 1918.' 1917. 1918. 1917. 1918. 1917.

Positions
filled.

Mar.,
1918.

M ar.,
1917.

Mar.,
1918.

Michigan—C ontinued.
Jackson (S ta te )..............
Kalam azoo (S ta te )........
L ansing (S ta te ).............
M uskegon (S ta te )..........
Saginaw (S ta te ).............
T o ta l......................

362
428
52
54
121

370
21C
108
26
79

767
54c
19C
155
579

737 1765
468 1428
701
i 68
401 i 138
362 i 497

458
587
627
171
462

G)
G)
G)
G)

C)

198
60
108
48
103

1

754
428
59
132
466

635
431
627
188
362

749
428
59
127
466

583
252
627
166
362

7 590 10 460

7,580 10,055

G)

G)

1,794

G)
G)

G)
88
1,762
729

1,168
26
1,501
878

S67
82
1,503
710

2 579

3,573

3,162

Minnesota.
D u lu th (S tate)............. .
M inneapolis (F ed e ra l)..
M inneapolis (S ta te )___
St. P a u l ( S ta te ) ............

G)
67

(O
G)

(2)
54
1,667
(2)

(2)
79
g>

(2)

g)

G)

195 i 204
2,024 G)
1,137 (2)

G)

1 297

G)
G)

G)

G)
G)
G)

G)

G)

T o ta l......................

26

26

Mississippi.
G ulfport (F ed e ra l)........

3

3

16

238

157

1151

G)

G)

G)

984 1,580 1,737 3,614
939 i4,00C
9
9
1 16
1,033 1,072 1,865 19541 1,120

G)

G)
G)
G)

1,598

3,205
16

1,403

G)

954

1,120

949

585

C)

C)

80

53

G)

Missouri.
K ansas C ity (FederalS ta te )............................
St. Charles (F e d e ra l)...
St. Joseph (S ta te )..........
St.
Louis (FederalS ta te )......................... .

(2)

467 1,086 3,465

503 1 1,753

T o ta l......................
Montana.
B u tte (m u n icip al).........
H elena (F ed e ra l).. . . . . .

G)

(2)

1

360

712 1 550
50

1870
11

G)

G)
G)

T o ta l......................
Nebraska.
Lincoln (Federal-State)
O m aha (Federal-Statecounty-m u n icip al). . .

228

308

297

537

1,499

2,889

5,350

G)

G)

1
1

305

567

G)
305

567

297

288

1,113

1,331

989

1,216

1,113

1,628

989

1,504

G)
G)
G)

364
8,100
543

G)
G)
G)

309
6,848
318

G)

9,007

C)

7,475

142
265
688 1,126

786
1,907
1.874
2,271

958
809
2,469
4,050

405
1,357
1,391
1,401

541
568
1,607
3,424

2,876 2,488 3,166 2,703 2,351 1,897 2,388 1,938
1,739 2,045 2,381 3,007
917 1,409
633
694
1,369 1,307 1,899 1,867
891
320
341
823

3,963
1,942
1,636

3,224
2.318
1,489

2,. 665
1,037
1,091

2,086
1,213
1,003

G)

0)
(0
(2)

73
3,796
317

(O
O)
(2)

922
9,243
775

1 844 G)
G)
G) 112,122 G)
274 G)
G)

G)
G)
G)

T o ta l......................
New York.
A lbany (S ta te )...............
Buffalo ( F e d e ra l)___ __
Buffalo (S ta te )...............
New Y ork C ity (S ta te ).
New Y ork C ity (municiP a l)................................
R ochester (S ta te )..........
Syracuse (S ta te )............

1,619
5 960

G)
G)

T o ta l......................
New Jersey.
Jersey C ity (FederalS ta te )................... ........
N ew ark (F ederal-S tate)
Orange (F ederal-S tate).

581
3 133

G)

597 1,073 1,122 2,268 1 1,209 11,46S

2,719
14
1,118

689
596
743
996
480
531
101
1,220
790
997 1,292 1,128
1,276 1,4.53 1,801 2, 749 1,332 1,478
1,528 2,933 2,001 4,522 1,256 1,978

T o ta l.....................

319

G)

14 379 15,317

1 N um ber applying for w ork.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

340

G)

2 N ot reported.

[1256]

9,347 10,442

MONTHLY BEVIEW OF THE BUEEAU OF LABOR STATISTICS.

200

O P E R A T IO N S O F P U B L IC E M P L O Y M E N T O F F IC E S . M ARCH , 1917 AN D 1918—C ontinued.
U N IT E D ST A T E S—C ontinued.

State, city, a n d k in d
of office.

A pplica­
tions from
employers.

Persons applying for
w ork.

Persons
asked for
b y em ­
ployers.

New regis­
tratio n s.

Persons re­
ferred to
positions.

Positions
filled.

R enew als.

Mar., Mar., Mar., Mar., Mar., Mar., Mar., Mar., Mar.,
1917. 1918. 1917. 1918.' 1917. 1918. 1917. 1918. 1917.

Mar.,
1918.

Mar.,
1917.

M ar.,
1918.

Ohio.
A kron (State-m unicip a l)................................
A thens (State-m unicip a l).... ............................
Canton (State-m unicip a l)................................
C lullicothe (S tate-m un ic ip a l).........................
C incinnati (S tate-m un ic ip a ll.........................
Cleveland (F ed e ra l)___
C leveland (S tate-m un ic ip a l)........................
C olum bus (S tate-m un ic iu a l)........................
D ay to n (S tate-m unicip a l) ................................
H a m ilto n (S tate-m un ic ip a l).........................
L im a (S tate-m unicipal)
Mansfield (S tate-m un ic ip a l).........................
M arietta (State-m unicip a l) ................................
M arion (S tate-m unicip a l) ................................
P o rtsm o u th (State-m un ic ip a l)............
Sandusky (State-m unicipal ) .........................
Springfield (State-m u-

0)

G)

74

906

967 1,861 2,332
26

(!)
0)

626
585

461
402

1,927

243
306

1,657

1,840

51

37

564
523

375
445
1,994
177

G)

7,815 8,546 3,135 2,682 9,222 8, 722

6,872

7,652

5,520

6,362

G)

C)

2,492 3,914

64C 1,020 2,412 3,594

2,209

3,580

1,950

2,836

0)

1,314 2,834

634 1,620 1,244 1,801

1,082

2,458

960

2,202

(1)

0)

313
539

174
319

52
261

222
380

190
330

G)

1,963

861

628

1,381

1,304

151

157

262

216

376

251

4S2

487

694

522

214

148

354

0)

588

G)
0)

903

650

172

G)

372

189

86

C)

634

408

424

497

300

(1)

754
401

419
337

415
138

648
331

407
279

C)
C1)

pal Ì
G)

2,462
380

1,366
19

G)

(<)

1,990
64

2,227

2,004 2,530 1,749 1,494 3,151 2,890
(0
153
72 1,596
2 SS 2 680 G)
G)

Steubenville (State-m u-

Y oungstow n (State-m un ic ip a l).........................
Zanesville (State-m u-

2,409 2,754

G)
48

nicip al Ì

Tiffing State-m unicipal)
Toledo (S tate-m unicip a l) ................................
W ashington
Courthouse (State-m unici-

0)

(>)

2,857 3,779 1,098 1,616 3,087 3,754

G)

226

0)

1,309 2,113

G)

264

791

113

60

962

925 1,625

256

178

2,544

3,605

1,273

1,840

2,122

2,987

1,094

1,643

104

138

211

294

17,961 30,885 14,6S8 25,396

Total
Oklahoma.
E n id (S ta te )...................
Muskogee (S tate)...........
O klahom a (S ta te )..........
T ulsa (S tate)...................

G)

(')
0)
G)

125
146
444
370
518
336
663 1,113

200 2 157 2 164
430 2 308 2 428
751 2 480 2 587
909 1,057 2 824

T o tal...........

G)
G)
G)
G)

G)
G)
G)
G)

109
299
476
1,060

157
426
570
677

286
434
1,060

140
317
486
611

1,944

1,830

1,891

1,554

1,449

5,649

1.377
1,178

5,449
5,457

1,449

5,649

2,555 10,906

111

Oregon.
1 972 1,379 7,146 21,631 5,870
114
270
‘ 851 2,323 1,308 7,766

1 1 2fi

P ortland (m u n icip al). .
T o tal__

i N ot reported.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

2 N u m b er applying for w ork.

[1257]

210

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

O P E R A T IO N S O F P U B L IC E M P L O Y M E N T O F F IC E S , M ARCH , 1917 A N D 1918—C ontinued.
U N IT E D ST A T E S—Continued.

S tate, city , and k in d
of office.

A pplica­
tions from
em ployers.

Persons ap p ly in g for
w ork.

Persons
ask ed for
b y em ­
ployers.

N ew regis­
trations.

Persons re­
ferred to
positions.

Positions
filled.

R enew als.

Mar., M ar., M ar., M ar., M ar., M ar., M ar., M ar., M ar.,
1917. 1918. 1917. 1918. 1917. 1918. 1917. 1918. 1917.

Mar.,
1918.

Mar.,
1917.

Mar.,
1918.

Pennsylvania.
A ltoona (S ta te )..............
E rie (S ta te ).....................
H a rrisb u rg (S ta te )........
Jo h nstow n ( S t a t e ) .. .. . .
N ew Castle (S ta te )........
N ew K ensington (S tate)
P hiladelph ia (F ed eral).
P hiladelph ia (S ta te )—
P ittsb u rg h (F e d e ra l)...
P ittsb u rg h (S ta te )........
Scranton (S ta te )............
W illiam sport ( S ta t e ) ...
Y ork (S ta te )...................

374
129
74
485
634
G)
47
155
C1)
42
59
298
198
466
1,283 1,228
G)
33
220
746
454 1,428
G)
29
73
93
G)

T o ta l.................. ..

_____

2,162
93 1,395
418
973
2,302
231
686
236
9£
93
2 65
74
231
2 223
5,773 2 608 222.296
8,693
825 11,168
4,982 2 777 2 849
8 ,30S
679 2,426
126
255
3,316
181
'431
235
_____

33
135
14
G)
696
G)

188

39
78
190
7
(i)
(!)
G)
380
0)
293
1
2

5

91
360
92

925
409
847
122

59

868
297

820
114
59

211

597 20,777
1,209 8,301
794
439
732 2,337
105
77
300
3,520 35,264

____

82
323
75

211

526 20,681
8,045
354
752
670 2,205

1,002

59

217
3,032 34,463

Rhode Island.
Providence (F e d e ra l)..
Providence (S ta te )........

164

46
158

177

1,580
'180

119

21,177
'217

143

(!)
26

T o tal......................
South Carolina.
C harleston (F ed e ra l). . .

2

11

Tennessee.
M em phis (F ed eral).......

24

88

Texas.
D allas (m u n icip a l)........
G alveston (F ed eral)___

252
4

170
26

7

438

414 26,114
477
7

2 37

15
238

26
152
157

18

160

2 239 22,321

0)

(l)

205

2,168

20

2,150

22
0)

10
0)

500
13

29S
217

437
13

292
14

513

545

450

G)
G)
G)

70
446

561
261

G)

516

S30

257 3 307
353 2 31

* 383
2 283

106

2 15
2 91 2 916
192 2 446 2 285

C1)
0)

780■


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Federal Reserve Bank of St. Louis

136

15
181

c
301
123

G)

38

18

38

18

(!)
C)

G)

332
G)

224
41

299
261

203
235

G)
G)
G)

660
208
169
2,004

803
6,030
'345
1,925

594
198
168
1,921

777
5,208
318
1,891

G)
G)

1.271
225

1,533
217
50

1,257
138

1,458
205
49

4,907 11,186

4,874

0)
0)
0)

(!)
(!)

G)
G)

5

OP

G)

s Includes 172 tra n sie n ts.

[1258]

8

( 1)

..........i.........j

2 N u m b er a p p ly in g for w ork.

606

160

T o tal......................

i N ot reported.

177

18

Washington.
A berdeen (F ed e ra l)___
9
5
38
18 2152 2 33
B ellingham (F ederalm u n ic ip a l)...................
224
133
418
243
306 2.318
E v e re tt (m unicipal)__ (')
272 C1)
0)
0)
U)
N o rth Y a k im a (F ede ra l)...............................
451
494
689
909 2 875 2 904
Seattle (F e d e ra l)...........
185
408
322 10,859 2 1,427 26,500
Spokane (F e d e ra l)........
124
226
186
369 2 309 2 921
Spokane (m u n ic ip a l)... 1,760 1,241 2,150 1,972
25 0 )
Tacom a (Federal-m un ic ip a l).........................
603
681 1,352 1,737 21,443 2 4,050
W alla W alla (F ed e ra l).
175
370
250
455 2 447 2 310
W enatchee (F e d e ra l)...
10S
2 52

G rand to ta l..........

180

1,022

G)

T o tal......................

Wyoming.
Cheyenne (F ed e ra l)___

177

G)
0)

20 14,973

369

842
ISO

2 246

T o tal......................
Virginia.
A lexandria (F e d e ra l)..
N orfolk (F ed e ra l)..........
R ichm ond (m unicipal).

G)

158

57

95,396 210,134 85,550 188,038
4 Includes 341 transients.

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

211

O P E R A T IO N S O F P U B L IC E M P L O Y M E N T O F F IC E S , M A R C H , 1917 A N D 1918—Concluded.
CA NADA.

S ta te , city , a n d k in d
of office.

A pplica­
tio n s from
em ployers.

Persons
asked for
b y em­
ployers.

Persons a p p ly in g for
w ork.
N ew regis­
trations.

R enew als.

Persons re­
ferred to
positions.

M ar., M ar., M ar., M ar., M ar., M ar., M ar., M ar., Mar.,
1917. 1918. 1917. 1918. 1917. 1918. 1917. 1918. 1917.

Positions
filled.

Mar.,
1917.

Mar.,
1918.

Mar.,
1918.

Quebec.
M ontreal (p ro v in cial)..
Quebec (provincial)___

36S
0)

133
17

614
31

358
434
61 2 111

347
2 64

0)
(*)

(')
0)

T o ta l......................
1 N ot rep o rted .

469
(*)

407
39

390
24

345
30

469

446

414

375

2 N u m b er ap p ly in g for w ork.

EMPLOYMENT IN SELECTED INDUSTRIES IN MARCH, 1918.

The Bureau of Labor Statistics received and tabulated reports
concerning the volume of employment in March, 1918, from repre­
sentative manufacturing establishments in 13 industries. Compar­
ing the figures for March, 1918, with those from identical establish­
ments for March, 1917, it appears that in five industries there was
an increase in the number of people employed and in eight a decrease.
Cigar manufacturing shows an increase of 5.3 per cent, while silk,
leather manufacturing, and automobile manufacturing show de­
creases of 9.9 per cent, 8.8 per cent, and 8.6 per cent, respectively.
Eleven industries show an increase in the total amount of the
¡lay roll for March, 1918, as compared with March, 1917. The
greatest increase indicated—28 per cent—was in woolen. Six of
the 13 industries show an increase of over 20 per cent.
C O M PA R ISO N O F E M P L O Y M E N T IN ID E N T IC A L E S T A B L IS H M E N T S IN M ARCH, 1917,
A N D M ARCH , 1918.

In d u stry .

Boots an d shoes.......................
C otton m an u factu rin g...........
C otton finishing.......................
H osiery a n d u n d e rw e ar........
W oolen.......................................
S ilk..............................................
Men’s ready-m ade c lo th in g ..
Iro n a n d ste e l.........................
Car building an d re p a irin g ..
Cigar m a n u fa c tu rin g ..............
A utom obile m an ufacturingL eather m an u factu rin g .........
P a p e r m ak in g ..........................


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

E sta b ­
lish­
N u m b er on p ay
m ents
roil in M arch—
report­ Period of
ing for p a y roll.
M arch
both
1917
1918
years.

Per
cent
of in ­
crease
(+ )
or de­
crease
(-)•

1 w eek .. 63,517
. ..d o ----- 56,206
... .d o ----- 15,244
. . .d o ___
31,473
.. . d o . . . .
49,891
2 weeks. 16,443
1 w eek . . 24,226
1 m o n th . 207,130
. . .d o ----- 30,226
1 w eek .. 18, 905
.. .d o ----- 137, 093
. . . d o . . . . 17,861
. . . d o . . . . 27,493

- 5 .1
-2 .5
- 1 .1
-1 .7
+ 1.5
-9 .9
+ 1.4
+ 1 .1
- .3
+ 5 .3
-8 .6
-8 .8
+ .2

70
55
18
60
50
41
35
108
31
58
50
36
50

[1259]

60,296
54,796
15,084
30,935
50,653
14,812
24,564
209, 404
30,150
19, 909
125,277
16,295
27,542

1917

1918

Per
cent
of in ­
crease
(+ )
or de­
crease
(-).

915,519
610,500
208,832
326,562
666,476
386,985
371,241
9,021,952
1,062,792
232,477
3,073,893
266,744
401,099

1,004,423
743,759
214,357
398,659
852,858
385,584
442,757
11,154,095
1,279,783
269,190
2,981,051
288,957
510,391

+ 9.7
+ 21.8
+ 17.0
+ 22.1
+28.0
- .4
+ 19.3
+ 23.6
+ 20.4
+ 15.8
- 3.0
+ 8.3
+ 27.2

A m ount of p a y roll in
M arch—

212

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

The table below shows the number of persons actually working
on the last full day of the reported pay period in March, 1917, and
March, 1918, in identical establishments. The number of establish­
ments reporting on this question is small, and this fact should be
taken into consideration when studying these figures.
C O M PA R ISO N O F E M P L O Y M E N T IN ID E N T IC A L E S T A B L IS H M E N T S ON LA ST F U L L
D A Y ’S O P E R A T IO N IN M ARCH, 1917, A N D M ARCH , 1918.

In d u stry .

Boots a nd shoes...................
Cotton m a n u fa c tu rin g ........
C otton finishing...................
H osiery a n d u n d erw ear___
W oolen...................................
S ilk ..........................................
Men’s ready-m ade clothing
Iron an d s te e l................
Car building a n d repairing.
Cigar m a n u factu rin g ...........
A utom obile m an u factu rin g
Leather m an u fa c tu rin g ___
P aper m a k in g .......................

E sta b ­
lishm ents
reporting
for March,
b o th years.

22
36
13
19
40
24
4
83
29
16
29
19
15

Period of
p a y roll.

1 w eek___
. .. d o ...........
. .. d o ...........
. ..d o ...........
.. .d o ...........
2 w eeks. . .
1 w eek___
| m o n th ...
. . . d o ...........
1 w eek___
. . .d o ...........
. . .d o ...........
. .. d o ...........

N u m ber actu ally w ork­
ing on la st full d a y
P er cent
of reported p a y pe­
of increase
riod in M arch.
( + ) or de­
crease (—).
1917
1918
12,922
28,263
10,497
13,042
37,913
10,996
3,276
159,575
26,832
4,941
83,678
11,269
9,289

11,931
27.437
10,456
12,727
39,396
9,823
3.995
161,951
26,351
4,850
74,889
11,084
9,637

-7 .7
- 2.9
- .4
-2 .4
+ 3.9
-1 0 . 7
+ 21.9
+ 1.5
-1 .8
- 1.9
-1 0 . 5
- 1. 7
+ 3.7

The next table shows that in 10 of the 13 industries there were
more persons on the pay roil in March, 1918, than in February, 1918.
Cotton, woolen, and automobile manufacturing show the largest in­
creases—4.6 per cent, 4.3 per cent, and 4 per cent, respectively.
Decreases are shown in 3 industries. Men’s ready-made clothing
shows the largest decrease—3.7 per cent.
Each of the 13 industries reporting show marked increases in the
total amount of the pay roll when comparing March with February,
1918. This is not due so much to increases in wage rates as to
the increased activity in many plants, which have not run their full
capacity during the past few months, owing to a shortage of coal,
railroad congestion, unfavorable weather conditions, and, in a few
instances, labor disturbances. Woolen, hosiery and underwear, and
cotton manufacturing show the largest increases—23.6 per cent, 17.8
per cent, and 15.7 per cent, respectively, while the increases in the
other industries range from 2.4 per cent to 14.8 per cent.


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Federal Reserve Bank of St. Louis

[1260 ]

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

213

C O M PA R ISO N O F E M P L O Y M E N T IN ID E N T IC A L E S T A B L IS H M E N T S IN F E B R U A R Y ,
1918, A N D M ARCH, 1918.

In d u stry .

Boots a n d shoes.......................
Cotton m an u factu rin g...........
C otton finishing......................
H osiery a n d u n d erw ear........
W oolen......................................
S ilk .............................................
Men’s ready-m ade c lo th in g -.
Iron a n d ste e l...........................
Car building a n d re p a irin g ..
Cigar m an u fa c tu rin g ..............
A utom obile m an u fa c tu rin g ..
L eather m a n u factu rin g.........
P aper m a k in g ..........................

E sta b ­
lish­
m ents
report­
ing for
Feb­
ru a ry
and
March.
71
55
18
57
50
39
35
107
30
56
49
36
49

N u m b er on p a y
roll in —
Period
of p ay
roil.

F eb ru ­
ary,
1918.

M arch,
1918.

1 w e e k .. 60,767
. . .d o ___ 51.981
. . .d o ___ 14,721
.. .d o ___ 29.105
.. .d o ___ 48,578
2 w eeks. 13,572
1 w eek . . 25,534
4 m o n th . 204,972
. . .d o ----- 29,966
1 w eek . . 18,996
. . .d o ___ 118,255
.. .d o ___ 16,199
. . .d o ___ 25,715

60,980
54,394
15,084
29,495
50,653
13,685
24,581
208,544
29,778
19,557
122, 998
15,790
26,625

A m ount of p ay
Per
roll in —
cent
of in­
crease
(+ )
March,
or de­ F ebruary,
1918.
1918.
crease
(-)•
+ 0 .4
+ 4 .6
+2. 5
+ 1 .3
+ 4 .3
+ .8
-3 .7
+ 1.7
- .6
+ 3 .0
+ 4 .0
-2 .5
+ 3 .5

$933,308
639,660
222,404
324,424
689,834
304,072
432,465
10,123,423
1,160,831
245,837
2,642,126
262,720
430,921

$1,016,947
740,215
244,357
382,099
852,858
348,561
442,757
11,007,962
1,263,215
265,174
2,933,676
281,826
494,910

Per
cent
of in­
crease
(+ )
or de­
crease
(-)•
+ 9.0
+15.7
+ 9.9
+ 17.8
+23.0
+14.6
+ 2.4
+ 8.7
+ 8.8
+ 7.9
+11.0
+ 7.3
+ 14.8

A comparatively small number of establishments reported as to
the number of persons working on the last full day of the reported
pay periods. The following table gives in comparable form the
figures for February and March, 1918. The small number of estab­
lishments represented should be noted when using these figures.
C O M PA R ISO N O F E M P L O Y M E N T IN ID E N T IC A L E S T A B L IS H M E N T S ON LA ST F U L L
D A Y ’S O P E R A T IO N IN F E B R U A R Y , 1918, A N D M ARCH, 1918.

In d u stry .

Boots a n d shoes.....................
Cotton m a n u fa c tu rin g ........
C otton fin ish in g.....................
H osiery a n d u n d erw ear___
W oolen.....................................
S ilk ............................................
Men’s ready-m ade clothing.
Iron an d ste e l.........................
Car building a n d rep airin g .
Cigar m an u fa c tu rin g ............
A utom obile m anufacturing
L eather m an u fa c tu rin g ___
P aper m a k in g .......................

E stab lish ­
m ents
reporting
for Feb­
ru a ry an d
March.

23
34
13
19
39
24
5
84
29
19
29
18
15

Period of
p a y roll.

N u m b er a c tu a lly
w orking on la st full
d a y of re ported p ay
period in
F ebruary,
1918.

1 w eek___
.. .d o ..........
. .. d o ...........
. . .d o ...........
. . . d o ..........
2 w eeks. . .
1 w eek___
J m o n th ..
.. .d o ...........
1 w eek___
: . . d o ...........
.. .d o ...........
. . . d o ...........

12,791
24,326
10,366
11,672
35,617
9,099
4,173
161,584
27,169
4,792
71,523
10,920
9,879

March,
1918.
12,675
26,705
10,456
11,720
36,843
9,187
4,012
166,236
26,351
4,862
73,231
10,557
9,637

Per cent
of increase
( + ) or de­
crease ( —).

-0 .9
+ 9 .8
+ .9
+ .4
+ 3.4
+ 1 .0
-3 .9
+ 2 .9
-3 .0
+ 1.5
+ 2.4
- 3 .3
-2 .5

C H A N G E IN W A G E R A T E S .

In all of the 13 industries there were establishments reporting in­
creases in the wage rates and in one—iron and steel—a decrease
between the February and March, 1918, reports. A number of estab­
lishments gave no definite answer to the inquiry relative to wagerate changes, but in such cases it is probably safe to assume that few
if any changes were made.

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Federal Reserve Bank of St. Louis

[ 1261 ]

214

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

Boots and shoes: Two establishments reported an increase of 10
per cent—one to 66 § per cent of the employees, and the second to
cutters with no information as to the number affected. One plant
reported an increase but gave no further data. Two plants made a
few special increases, while two other plants granted minor increases.
Cotton manufacturing: One establishment reported an increase
of about 20 per cent to the entire force. Four plants granted an
increase of 10 per cent to all the employees; one, a general average
increase of 10 per cent; and another reported a bonus of 10 per cent.
One plant gave an increase of 8 per cent but did not state the number
affected. A general increase of 6 per cent throughout the mill was
granted in one plant. Two-thirds of the force in one establishment
received an increase of 5 per cent. One establishment reported an
increase to the entire force but did not state the amount of increase.
Cotton finishing: One plant reported an increase of 15 per cent but
gave no data concerning the number of the force affected.
Hosiery and underwear: One firm granted a bonus of 16 per cent.
Three establishments gave a 5 per cent increase, this affecting the
entire force except the foremen and office force in one, while two did
not state the proportion of the force affected.
Woolen: One plant reported an increase of 10 per cent affecting
all the employees.
Silk: A 12 per cent increase to weavers, or slightly more than 33
per cent of the force, was granted in one plant. Two establishments
reported an increase of 10 per cent, affecting 90 per cent of the force
in one plant, while the other gave no statement as to the number
affected. Another plant gave a bonus of 10 per cent to full-time
workers. One establishment reported increases ranging from 5f
per cent to 14| per cent to approximately 69 per cent of the force.
Half the force in one plant was granted an increase of about 10 per
cent, and the other half received an increase of approximately 5 per
cent. The entire force in one plant was increased from 7 to 10 per
cent. Two plants granted an increase of 7\ per cent, affecting the
entire force in one, but the other did not state whether or not it was
general. One establishment reported an increase of 2 cents per hour
to practically the entire force.
Men’s ready-made clothing: Two establishments reported an
increase—one, 20 per cent to about 29 per cent of the employees;
while the other failed to state the amount of increase and the propor­
tion of employees affected.
Iron and steel: Increases in wage rates were reported by 6 plants
and a decrease by one plant. Two establishments granted increases
of 7 per cent to men belonging to the Amalgamated Association of
Iron, Steel and Tin Workers, which equaled about 40 per cent of the
employees in one plant and 25 per cent in the other. One plant

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Federal Reserve Bank of St. Louis

[ 1262]

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

215

\
reported increases of from 5 to 15 per cent but made no further state
ment. Half the force in one plant received an increase of 5 per cent,
while 45 per cent of another establishment received a 24 per cent
increase. A decrease of 2 per cent, affecting 40 per cent of the force,
was reported by one plant.
Car building and repairing: One plant gave a 15 per cent increase,’
but did not state the number affected, and a second establishment
stated that 75 per cent of the force received an increase of 8 per cent.
Cigar manufacturing: Only one increase—8 per cent to 60 per cent
of the force—was reported.
Automobile manufacturing: An increase of 10 per cent was granted
to 8 per cent of the force in one plant. One establishment reported
an increase of from 2 to 4 cents per hour to about 30 per cent of the
employees; one, an increase in the productive average hourly rate
of 0.0109 cents; and another reported an increase but gave no data
as to the amount or number affected.
Leather manufacturing: One plant granted an increase of 10 per
cent to about 10 per cent of the employees. Another reported an
increase of 9 per cent affecting 12 per cent of the force. Fifty per
cent of the force in one establishment was advanced 81 per week.
One plant reported an increase of 7-f per cent to about two-thirds
of its employees.
Paper manufacturing: An increase of 20 per cent was reported by
one plant but no statement was made as to the number affected.
Three plants reported an increase of 10 per cent—one, to 90 per cent
of the force; another, to approximately23 percent of the employees;
and the third, to about 90 per cent of the employees, with smaller
increases to the remaining 10 per cent of the employees. One estab­
lishment granted an increase of approximately 3 per cent to the entire
pay roll and another reported an increase of
cents an hour to all
of the employees.
EMPLOYMENT IN MASSACHUSETTS, OCTOBER TO DECEMBER, 1917.

Massachusetts industries experienced some decrease in the demand
for labor at the close of December, 1917, as compared with the
demand at the close of September, 1917, according to the Fortieth
Quarterly Report on Employment recently issued by the State
Bureau of Statistics.1 This decrease, it is explained, was due prin­
cipally to less activity in the building trades because of weather
conditions and to a closing down of some establishments because of a
lack of fuel or raw materials used in manufacture. However, the
report notes an increased activity in the industries directly affected
1 M assachusetts. B ureau of Statistics. L abor D ivision. F o rtie th q u a rte rly report on em ploym ent in
M assachusetts, q u arter ending Dec. 31,1917. B oston, 1918. 16 pp.


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Federal Reserve Bank of St. Louis

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216

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

by Government demands, such as shipbuilding, manufacture of
military equipment and munitions, and transportation. A certain
amount of unemployment is ascribed to a shifting about of a large
element of the industrial population, as shown by the ‘‘abnormally
high rate” of labor turnover in some industries, particularly ship­
building and railroad work. In the latter instance, it is stated, over
1,000,000 new men were hired to fill about one-third as many
positions, which is “ about double the normal turnover.”
Records on file with the Bureau of Statistics show that during the
quarter ending December 31, 1917, there were 98 industrial contro­
versies (97 strikes and 1 lockout). Some of the more important, as
measured by duration and number of men affected, occurred in
industries having Government contracts. The report mentions
several of these strikes, but the figures presented are insufficient to
render them readily tabulatable.
Based on reports received from 1,093 labor organizations with a
membership of 201,404 it appears that for the quarter ending
December 31, 1917, 14,900 members, or 7.4 per cent, were unem­
ployed, of which number 7,131, or 3.5 per cent of all members, were
unemployed on account of lack of work or of materials. In the
corresponding quarter of 1916, 6 per cent of 171,877 members were
unemployed, 2.7 per cent being unemployed because of lack of work
or of materials. This indicates a decreased demand for workers as
compared with the last quarter of 1916; it also indicates, as stated
at the outset, a decreased demand as compared with the preceding
quarter of 1917. The following table shows the extent of unem­
ployment of organized wage earners, by trades, for the quarter
ending December 31, 1917, as compared with the corresponding
quarter of 1916 and the three preceding quarters of 1917:
E X T E N T O F U N E M P L O Y M E N T IN P R IN C IP A L IN D U S T R IE S A N D T R A D E S IN EA C H
Q U A R T E R O F 1917 A N D T H E LA ST Q U A R T E R O F 1916.
Q u arter ending Dec. 31, 1917.

In d u s try an d trade.

N u m b er rep o rt­ U nem ployed.
ing.
M em­
b er­
ship.

M em­
bers.

P er
cent.

37, 511
39, 679
17, 462
30, 770
14, 612
5,694
55, 676

6.933
1, 761
550
1,044
524
171
3,917

18.5
4.4
3.1
3.4
3.6
3.0
7.0

11.0
2.9
3.5
2.7
3.4
4.2
8.4

16.0
6.6
4.5
3.8
3.5
4.8
6.7

5.8
24.3
4.2
2.2
3.4
4.2
3.9

6.2
12.5
3.8
2.2
2.3
3.1
3.9

1,093 201,404

14,900

7.4

6.0

7.3

8.4

5.6

U nions.

B uilding tra d e s ........................................
Boot a n d shoe in d u s tr y .........................
Te xtile i ndus t r y ......................................
T ransportatio n (steam a n d e le c tric )..
Iron and steel m an u factu rin g ............. .
P rin tin g an d allied tra d e s .....................
All other in d u strie s a n d tra d e s ............
T otal................................................


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

P er cent reported as unem ­
ployed, q u a rte r ending—

319
95
52
121
82
46
378

[1264]

Dec. 30, Mar. 31, June 30, Sept .29,
1916.
1917.
1917.
1917.

MONTHLY EEVIEW OF THE BUREAU OF LABOR STATISTICS.

217

The activities of the three public employment offices of the State
(located at Boston, Springfield, and Worcester) for the last quarters,
respectively, of 1916 and 1917, are presented in the following table:
SU M M ARY O F B U SIN E S S D O N E B Y M ASSA C H U SETTS P U B L IC E M P L O Y M E N T O F F I­
CES D U R IN G F O U R T H Q U A R T E R O F 1916 A N D O F 1917.
Persons applied for.
Q uarter
e n ding
Dec. 31—

1916............
1917............

Males.

8,237
7,418

Fem ales.

5,857
5,137

Oilers of positions.

Males.

11,221
10,834

Fem ales.

Positions reported filled.

Males.

6,901
6,215

4,631
4,783

Fem ales.

4,477
4,095

Total.

atio to
R atio to Rpersons
positions applied
offered.
for.

9,108
8,878

50.3
52.1

64.6
70.7

EMPLOYMENT IN NEW YORK IN MARCH,' 1918.

The Bureau of Employment of the New York State Industrial
Commission, on April 1, 1918, issued the following statement of the
placement work done in the five zones of New York State:
All the activities of the different offices of the State bureau of employment in­
creased very largely during the month of March over the month previous. It will
be noted in the table appended to this that there has been a large increase in the
number of registrations and renewals. This is particularly true of the registrations of
male workers. The increase in female workers is 300, and in male workers 1,600,
indicating the large proportion of male workers seeking positions.
The increase in farm-hand placements is especially noticeable. Nearly five times
as many were placed in March as in February. The State bureau of employment is now
in a position to be of great help to the farmers of the State. The New York State Food
Commission has collected 32 farm-labor specialists and placed them directly under
the supervision of the State bureau of employment. It is the duty of these farmlabor specialists to search out in each of the industrial communities of the State such
men as have heretofore done farm work and are now available as farm help. These
farm-labor specialists have been placed in the cities of New York, Buffalo, Rochester,
Syracuse, Albany, Binghamton, Elmira, Utica, Geneva, Jamestown, Corning,
Batavia, Oswego, Auburn, Olean, Middletown, Watertown, Plattsburg, Troy, Schenec­
tady, Kingston, Poughkeepsie, and Oneonta. In addition to these farm-labor spec­
ialists, the United States Department of Agriculture is furnishing over 50 men who
are to be selected by the County Farm Bureau Association as assistants to the farmbureau managers located in 55 counties of the State. It w ill be the duty of these
assistant farm bureau agents to devote them selves to the placing of farm labor during
the coming season. A plan of cooperation between the county farm bureaus and the
State bureau of employment has been worked out, whereby the assistant farm bureau
managers are to work in direct cooperation with the farm-labor specialists. The
State has been divided into five zones, the headquarters of these zones being respec­
tively in Buffalo, Rochester, Syracuse, Albany and New York City. Farm-labor
specialists will be located in the State public employment offices in each of these
cities, and each office w ill be the clearing house for its zone. In this way, direct
connection w ill obtain between the farmers and such available farm-hand supply as
can be found throughout the State. A direct chain of organization is effected, com­
mencing Avith the superintendents of the different employment offices of the State
bureau of employment. Each superintendent is responsible for his own zone, the


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Federal Reserve Bank of St. Louis

[1265]

218

M ONTHLY

r e v ie w

op

th e

bureau

op

labor

s t a t is t ic s

.

chain of connection continuing on through the farm-labor specialists and the assistant
county farm bureau managers direct to the farmer needing help.
I t is hoped that later in the season additional help can be given to the farmers by
adding a number of women and boys to the available farm labor supply. To the end
th at the farmer be given as much aid as possible, very careful selection will be made
of the women chosen to be sent out. In the main, these women will work in units
(camps) and the work will principally be carried on in the intensive agricultural
districts, such as the fruit, berry and vegetable producing sections. The use of woman
labor on the farm is not an experiment, because it was successfully carried out in
several portions of the State last season. Its success is going to depend largely on the
careful selection of the women.
Boys between the ages of IG and 21 are now being enlisted for farm work, and they
will be sent out to camps and also to individual farmers. In both cases, some sort of
supervision will be provided. I t is hoped that this supervision will principally come
from school teachers, who will go with the boys from the large industrial centers, par­
ticularly New York City. The department of education has laid down the rules
under which boys will be allowed to leave school before the end of the school year.
A very large number of boys who have been out of school for some time are included
in this enrollment and they will be given the same supervision as the boys coming
from school.
O P E R A T IO N S OE N E W Y O R K ST A T E E M P L O Y M E N T O F F IC E S , M ARCH, 1918.

Persons asked for
b y employers.

Persons applying
for work—regis­
trations and re­
newals.

Persons referred to
positions.

Persons reported as
placed.

Fe­ Total. Males. Fe­
Fe­
Fe­
Males. males.
males. Total. Males. males. Total. Males. m ales Total.
G reater N ow Y o rk .
Syracuse.................
R ochester...............
B uffalo....................
A lb a n y ....................

2,485
1,214
1,877
1,752
617

2,037
653
1,130
907
379

4,522
1,867
3,007
2,749
996

1,794 1,310
803
361
1,479
624
1,377
366
632
218

3,104
1,164
2,103
1,743
850

2,332
958
1,542
1,564
636

1,718
531
776
905
322

4,050 1,021 1,30-}
637
1,489
366
2,318
679
534
2; 469
861
746
'958
379
162

2,324
1,003
1,213
1,607
541

T o ta l............
7,945 5,196 13,141 6,085 2,879 8,964 7,032 4,252 11,284 3,577 3,111 6,688
Total.M arch,
1917............ 5,113 3,778 8,891 5,135 1,864 6,999 5,229 3,281 8,510 3,067 2,258 5,325
Clearing house for
G reater N e w
Y o rk ..................... 2,350
600 2,950
2,001
687 2,688 1,297
275
Total, from opening to A pr. 1,
1918:
C ities................ 157,367 105,199 262,566 182,420 75,535 257,955 159,822 101,241 261,063 95,201 66,656 161,857
Clearing house
for G reater
N ew Y o r k .. 7,667 4,511 12,17S
6,967 4,115 11,082 3,072 1,255 4,327
P E R S O N S A SK E D F O R B Y E M P L O Y E R S A N D PL A C E S F IL L E D B Y N E W Y O R K ST A T E
E M P L O Y M E N T O F F IC E S , C L A S S IF IE D B Y O C C U PA T IO N A L G R O U PS.
Persons asked for by
employers.

Clear­
ing
Fe­
F e­
Males.1 males.1
T otal.1 Males.1 males.1
T otal.1 house.

O ccupational group.

A gricultural n ro d u c ts........................
B uilding a n d con stru ctio n.................
Dom estic a n d hotel serv ice.'........
M anufacturing p u rsu its.......................
T rade and tra n sp o rta tio n .................
T o tal..........................................


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Federal Reserve Bank of St. Louis

Persons reported as
placed.

1,083
2,509
1,124
2,234
995

3,566
1,446
175

1,092
2,509
4,690
3,680
1,170

539
1,278
632
751
377

2,559
501
45

545
1,278
3,191
1,252
422

1,088
157
319
8

7,945

5,196

13,141

3,577

3, 111

6,688

1,572

9

1Exclusive of clearing-house figures.

[1266 ]

6

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 .

219

E M P L O Y M E N T IN O H IO IN M A R C H , 1918.

The following table, issued by the Ohio branch of the Council of
National Defense, shows the work of the labor exchanges of Ohio
during March, 1918:
O P E R A T IO N S O F F R E E L A B O R E X C H A N G E S O F O H IO , M O N T H E N ÎH N G M AR. 30, 1918.
Persons ap p ly in g for
w ork.

C ity.

P er­
sons
asked
for by
New
­
em ­
regis­ neIte
T otal. ployers.
wals.
trations

Males.
A kron..........................................................................
A t liens.......................................................................
C anton _....................................................................
Chillieothe..................................................................
C incinnati..................................................................
Cleveland............................................................_.....
C olum bus........................................................... .
D a y to n .......................................................................
H am ilton .................... ..............................................
L im a ............................................................................
M ansfield...................................... _..........................
M arietta......................................................................
M arion........................................................................
P o rtsm o u th ...............................................................
S a n d u s k y ....... ..........................................................
Springfield.................................................................
Steubenville............. ................................................
Tiffin...........................................................................
Toledo.........................................................................
W ashington C. H .....................................................
Y oungstow n..............................................................
Zanesville..................................................................

Per­
P er­
sons re­ sons re­
ferred ported
to po­
as
sitions. placed.

375
394
329
1,404
107
888
213

1,432
67
540
470
1,647
4,040
2,281
2,453
290
523
1,825
'268
519
787
323
580
591
383
3,018
200
1,543
ISO

1,241
50
501
430
1, 744
3,688
2,080
2,153
203
364

594
116
174
120
64
390
255
129
3,207
55
1,067
114

2,055
SO
622
553
3,229
6,482
2,833
2,949
206
550
i,3 :e
234
515
731
229
765
650
458
4,611
162
1,955
327

202
419
614
186
451
510
320
3,064
130
1,298
212

981
37
326
366
1,371
3,146
1,498
1,95-1
171
318
1,191
16-1
359
451
131
282
365
271
2,537
97
1,119
149

T o ta l................................................................ 13,003

18,559

31,562

23,660

21,125

17,281

1,244
3
82

1,322
7
86
115
883

859
49
79
620
3 216
1,338
'248
16
12
110
52
48
71
17
18
122
8
450
7
533
62

782
25
414
319
1,225
1,824
779
1,455
168
295
772
118
341
611

1,273
55
208
234
2,004
4,658
2,054
1,494
38

P er­
sons re­
ferred
to a n ­
other
office.

6
11
19
41

1
2
334
1
5
14
50
3
4
20
511

Females.
A k ro n ..........................................................................
Alberts.................................................._....................
C an to n ........................................................................
Cirillico th e .........
C incinnati..................................................................
C leveland...................................................................
C olum bus..................................................................
D ayton................................................................ .......
H am ilton....................................................................
L im a............................................................................
M ansfield...................................................................
M a rie tta ....................................................................
M arion........................................................................
P o rtsm o u th ...............................................................
S a n d u sk y ..................................................................
Springfield.................................................................
Steubenville..............................................................
Tiffin_____ _______ ________ ________ _______
Toledo.........................................................................
W ashington C. I I .....................................................
Y oungstow n..............................................................
Zanesville...................................................................

185
1
47
S3
269
858
241
165
6
24
89
33
35
39
24
33
25
8
212
6
74
43

1,059
2
35
72
886
4,064
1,540
307
14
6
34
41
77
52
22
34
159
9
547
5
558
64

4 155
4 922
1,781
J472
20
30
123
74
112
91
46
67
184
17
759
11
632
107

L 633
'3S1
23
16
138
86
69
116
49
54
163
18
761
26
570
84

986
1
63
as
718
3 96 f
1'590
395
19
16
116
69
63
80
28
46
138
11
541
8
542
82

T otal.................................................................

2,509

9,587

12,087

11,106

9,389

7,935

967
26
461
402
1,494
2,682
1,020
1,620
174
319
861

2,332
57
243
306
2,890
8,722
3,594
1, 801
52
261
628

3,299
83
704
70S
4,381
11,404
4, 614
3,421
'226
589
1,489

2,754
74
626
585
2,530
8,546
914
2, 834
313
539
1,963

2,227
51
584
521
2,482
7,652
S'. 580
2,458
222
380
1,381

1,840
37

6

445
1,994
6,362
2 ,836
2,202
190
330
1,30-1

11
19

Total.
A k ro n ..........................................................................
A th e n s.......................................................................
C an to n ........................................................................
Chillieothe..................................................................
C incinnati..................................................................
C leveland...................................................................
C olum bus...................................................................
D ay to n ....................................................................... !
H am ilto n .................................................................
L im a...... .....................................................................
M an sfie ld .... ........... ..............................................


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Federal Reserve Bank of St. Louis

[1267]

41

220

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 .

O P E R A T IO N S O F F R E E L A B O R E X C H A N G E S O F O H IO , M O N T H E N D IN G M AR 30
1918—Concluded.
Persons a p p ly in g for
w ork.

City.

Per­
sons
asked
New
for by
R e­
regis­
T otal.
em ­
tratio n s newals.
ployers.

Per­
Per­
sons re­ sons re­
ferred ported
to po­
as
sitions. placed.

Per­
sons re­
ferred
to an­
other
office.

Total—Concluded.
M arietta............................................
M arion..............................................
P o rtsm o u th .....................................
S an d u sk y .........................................
Springfield.......................................
Steubenville....................................
Tiffin.................................................
Toledo...............................................
W ashington C. H ..........................
Y oungstow n....................................
Zanesville........................................

151
376
650
189
408
419
337
1,616
113
962
256

157
251
172
86
424
415
138
3,754
60
1,625
178

308
627
822
275
832
834
475
5,370
173
2,587
434

354
588
903
372
634
754
401
3,779
226
2.113
264

262
482
694
214
497
618
331
3,605
138
1,840
294

216
407
522
148
300
487
279
2,987
104
1,643
211

1
2
334

T o ta l......................................

15,503

28,146

43,649

35,066

30,505

25,219

o il

1
5
14
50
3
4
20

LABOR DISTRIBUTION OFFICES IN GERMANY.1

In order to meet the shortage of labor in time of high pressure,
especially of skilled labor in transportation and communication,
recourse has lately been had in Germany to a new method, viz, the
establishment of special labor and distribution offices (Arbeiterausgleichstelleri). Such an office, established as a limited liability
company, was formed in October, 1917, for the Leipzig district by the
Leipzig office of the War Office (Kriegsamt) in agreement with the
local commercial and industrial circles. The authorized capital of
the company amounts to 22,000 marks ($5,236).
The machinery of the office is as follows:
The company secures for itself a labor nucleus, consisting of 20
hands, among them being some women, whose services are always
available, who are paid wages by the company on the customary
or agreed-upon scale, and are sent out to work as individual firms,
authorities, etc., need them. The employer for the time being pays
the company for them, according to the labor supplied, a sum
equal to that of the wages and a supplementary sum to cover
the administrative expenses of the company. This means that the
company, not the individual owner of the establishment to whom
the workmen are temporarily assigned, is the actual employer.
The company is formed on true business lines, owing to the capital
required and the risks involved. Direct connections with the
municipal labor exchange have been established, and the whole
business of the office is carried on in the premises of the exchange
by officials specially appointed for the purpose. That the Kriegsamt
keeps a watchful eye on the wages to be paid must not be regarded
in any way adequate, says the Correspondenzblatt. This is also
1 Correspondenzblatt d er Generalkom mission der G ewerkschaften D eutschlands.


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Federal Reserve Bank of St. Louis

11268]

Berlin, Dec. 22, 1917.

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 .

221

the opinion of the municipal labor exchange, which has unanimously
proposed that a representative of labor should be appointed to cooper­
ate in this work.
U N E M P L O Y M E N T L E G IS L A T IO N IN S W E D E N .

Following is a translation of the Swedish law of May 19, 1916,
which grants assistance to persons unemployed and without resources,
and provides for contributions by the State for that purpose : 1
A r t i c l e 1 . When a commune or a landsting (provincial representative body)
grants municipal aid to persons without employment, in conformity with the provisions
of existing law, it shall be entitled to a contribution from the State, subject to the
following provisions: The State contributions are limited to Swedish citizens, or their
families, of good morals, domiciled in Sweden, who (1) have completed their fifteenth
year; (2) who are unemployed; (3) who within the preceding six months have not been
in receipt of public assistance, unless such assistance was given only occasionally
or in case of sickness of themselves or of members of the family, and unless they had
made every effort to provide suitably for the family, but, by reason of particularly
grave circumstances, were forced to accept public aid to provide for the indispensable
requirements of the family; (4) who have applied to public labor exchanges for employ­
ment, but without result; (5) who by reason of stoppage of work, not due to their own
act, lasting at least 6 days after the application for assistance, are in need of such
assistance. Assistance shall not be given for the period before the date of application
for aid.
A r t . 2 . The application may be addressed to the committee on assistance, as pro­
vided by law, in the commune in which the applicant resides, or, in default of such
committee, to the communal authority. The application shall be accompanied by a
certificate of the priest and a statement showing the occupation of the applicant,
his last working place, length of service, and name of employer. This statement may
be made out by the employer, the association of which the applicant is a member,
or two other persons. When the applicant is not domiciled in the commune, and
therefore can not receive the allowance mentioned below in articles 7 and 8, the
competent committee or the communal authority may transmit his application to the
commune of his birth.
A r t . 3 . Upon receipt of an application the committee or communal authority shall
endeavor to procure work for the unemployed person. Failing in this and upon estab­
lishing the degree of need of the applicant the committee shall notify him relative to
the action taken and if assistance is granted, its amount, date on which it begins, and
manner of payment.
In determining the amount of assistance to be granted no account shall be taken of
the value of personal property, tools, or revenues from saving funds or dwelling, be­
longing to the applicant.
An allowance made by the employer or from any unemployment fund shall not be a
bar to the allowance provided for by this law, but in no case, however, shall the aggre­
gate of these allowances exceed two-thirds of the usual wage paid in the locality to a
laborer of the same ability and working in the same occupation.
A r t . 4 . The allowance is distributed by the committee and the communal authori­
ties. It may be paid either in cash or in kind, wholly or partly, in articles of food,
tools, or clothing.

i In s titu t In tern atio n al ¿ ’A griculture.
1913, p. 1227.
5 4 5 9 1 ° — 18-

15


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Federal Reserve Bank of St. Louis

A nnuaire In tern atio n al de Législation d ’Agricole. V ISm®année,

11269]

222

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 .

A r t . 5. When a person in receipt of an allowance is reemployed, the allowance
shall cease. When employment ends the competent authority shall decide upon the
date on which allowance shall again begin, and its amount.
A r t . 6. When a person in receipt of an allowance leads an intemperate life, or is
addicted to drink, the committee or communal authority may decide to suspend the
allowance.
The beneficiary must register with the local employment bureau, accept work
which may be secured for him, and report all employment subsequently secured,
and the date of leaving the locality in which he is employed.
When so ordered by the committee or communal authority, he must diligently
attend courses -which may be opened for the instruction of unemployed persons.
Upon refusal to conform to these provisions further allowance may be withdrawn.
In all cases above mentioned, the allowance may be entirely or partially suspended,
either for a stated time or permanently.
A r t . 7. Allowance may be made, as a general rule, only to the applicant in the com­
mune of his birth, but it may also be made to another member of his family, provided
the latter has an established residence in the commune and can be more easily aided
there than in the commune of the applicant’s birth.
In case an allowance is refused, travel allowance may be granted to cover expense
of return to birthplace, one-half of which will be paid by the State.
A

rt.

8 . (*)

The amount contributed for each person by the State shall be equal to the
amount accorded from the communal or landsting funds, but in no case shall the daily
allowance exceed 75 ore (18.8 cents) for husband and wife together; 50 ore (12.5 cents)
for one person alone over 18 years of age; 30 ore (7.5 cents) for one person alone over 15
and under 18 years of age; and 15 ore (3.8 cents) for each child under 15 years of age.
Only in exceptional cases will State aid be allowed an unemployed person having
no family under his charge.
When a person having a family under his charge is employed in a commune other
than his home, and his wages are not sufficient to support his fam ily living in his home
commune, an allowance not exceeding 50 ore (12.5 cents) per day or 75 ore (18.S cents)
per day when there are children may be made in exceptional cases to his family from
the State fund.
A

rt.

9.

1 N ot given in A nnuaire In tern atio n al de Legislation d ’AgricoIe.


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Federal Reserve Bank of St. Louis

[1270]

LABOR ORGANIZATIONS,
TRADE-UNIONS IN DENMARK.

At the close of 1918 the trade-unions of Denmark had an enrolled
membership of over 189,000, organized in over 1,930 unions. There
has been a gradual increase in membership since 1914, accompanied
by a slight decline in the amounts paid in trade-union benefits—un­
employment and travel benefits, and sick and accident benefits. In
1918 the benefits paid by federations affiliated to the general national
federation (De Samvirkende Fagforbund) were distributed as follows:
84.8 per cent as unemployment and travel benefits, and 15.2 per cent
as sickness and accident benefits.
M E M B E R S H IP A N D E X P E N D IT U R E S O F T R A D E -U N IO N S IN D E N M A R K , 1914 TO 1916.
[S tatistisk aarbog, 1917.

Copenhagen, 1917, p. 160.]

N um ­
ber
of
organ­
izations
in
1916.

F ederations a n d unions.

E xpenditures for travel,
unem ploym ent, sick­
ness and accident
benefits.

M embership.

1916

1915

1914

1916

1915

1914

General Federation of Trade- Unions (De
Samvirkende Fagforbund).
M unicipal em ployees’ federation (Arbejderforbund, K o m m u n a lt).......................................
W om en’s m unicipal em ployees’ federation
( A rbejderforbund, K om m unalt, K vindeligt)
D anish federation of d a y laborers (Arbejdsm andsforbund, D a n sk )......................................
B akers’ a n d confectioners’ federation (Bageriog K onditorarbejderforbund)..........................
B arbers’, hairdressers’ an d wig m akers’ feder­
a tio n (B arber-, Fris0r-og Parykm agerforb u n d e t)..................................................................
B ookbinders’ federation (Bogbinderforbundet
i D a n m ark )...........................................................
Coopers’ federation (B 0dkerforbundet i D an­
m ark) ......................................................................
E lectrical w orkers’ federation (E lektrikerforb u n d , D a n sk ).......................................................
H olders’ federation (Form erforbund, D a n sk )..
H orticultu ral w orkers’ federation (G artnerforbund, D a n sk )..................................................
Glass w orkers’ federation (Glasarbejderforbund, D a n sk ).......................................................
Gold a nd silversm iths’ an d electroplaters’
federation <Quid-, s01v-og elektropletarbejaernes fo rb u n d )...................................................
B rass w orkers’ a n d m etal w orkers’ federation
(C-0rtlcr-og m etalarbejderforbund i D an­
m a rk )......................................................................
H a tte rs’ federation (H attearbejderforbundet
i D a n m ark )...........................................................
Carriage m akers’ federation (K aretm agerforbund, D a n sk ).......................................................
W ater ten d ers’ and firem en’s federation
(Kedel-og m askinpasser fo rb u n d )...................
Ceramic w orkers’ federation (K eram isk for­
b u n d )......................................................................
Lithographers’ federation (L ithografisk for­
b u n d )......................................................................
P a in te rs’ federation (M alerforbundet i D an­
m a rk ).....................................................................


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

12

5,173

4,785

4,366

8155

$2,289

28

3,900

3,698

2,838

7,182

5,645

3,083

240

50,923

43,847

40,156 221,890 228,225

194,603

43

3,020

2,812

2,512

15,718

16,382

$1,789

75

1,050

800

478

459

1,094

273

9

2,005

1.247

1,340

1,853

5,398

10,185

23

792

774

723

6,929

4,666

8,552

21
48

1,750
1,600

1,596
1,475

1,472
1.475

4,9.50
8,002

5,977
9,089

3,090
16,040

C

425

313

02

(!)

c

461

453

380

5,311

2,540

4,223

14

735

615

513

140

523

1,021

(i)

(i)

G

421

387

(l)

321

0)

( )

3

417

387

(i)

1,110

(>)

(i)

28

910

914

873

1,007

3,089

4,539

48

1,774

1,693

1.517

3,618

3,520

3,230

3

922

805

765

75

24

8

495

406

440

997

1,440

2,208

63

4,635

4,401

4,530

41,814

3S,498

35,223
223

1 N ot reported.
[1 2 7 1 ]

(i)

224

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 .

M E M B E R S H IP A N D E X P E N D IT U R E S O F T R A D E -U N IO N S IN D E N M A R K , 1914 TO 1916—

Concluded.

Fed eratio n s a n d unions.

N um ­
ber
of
organ­
izations
in
1916.

E x p enditures for travel,
unem ploym ent, sick­
ness a n d accident
benefits.

M embership.

1916

1915

1914

1916

1915

1914

General Federation of Trade-Unions (D e S a m virkende Faaforbund)—Concluded.
Millers’ and m ill w orkers’ federation (M01leriarbejderforbund, D a n sk ).............................
P aper m akers’ federation (Papirindustriarbejdernes fo rb u n d ).............................................. .
Saddle m akers’ a n d upholsterers’ federation
(Sadelmager- og tapetsererforbund, Skandin av isk )......... . ....................................................
Shipw rights’ federation (Skibst0m rerforbund,
D an sk )....................................................................
Boot and shoe w orkers’ federation (Skot0jsarbejderforbund, D a n sk ).................................
Tailors’ federation (Skraederforbund, D ansk).
Slaughter-house w orkers’ federation (Slagteriarbejderforbund, D a n sk )..................................
B lacksm iths’ a n d m achinists’ federation
(Smcde-og m askinarbejderforbund, D ansk).
Cabinetw orkers’ federation(Snedkerforbundet
i D an m ark )............................................................
Stonem akcrs’ federation (Stenarbejderforbund, D an sk ).......................................................
Candy, chocolate an d biscuit m akers’ federa­
tio n (S ukkervare, chocolade-og biskuitarbejderforbund)........................... .........................
Textile w orkers’ federation (Tekstilarbejderforbund, D a n sk ).................................................
Tobacco w orkers’ federation (Tobaksarbejderforbund i D an m ark )...........................................
W oodworkers’ federation (Trseindustriarbejderforbundet i D a n m ark )..................................
Typographical federation (Typogralforbund,
D an sk )....................................'...............................
O ther organizations 2..............................................
T o tal................................................................

24

630

550

550

$927

$851

$1,165

9

1,234

1,129

1,130

597

603

453
7,457

43

1,441

1,250

1,186

5,734

3,356

20

466

418

400

430

3

49
73

3,570
6,560

3,189
5,429

2,930
4,415

3,092
6,546

6,904
11,104

8,199
12,487

64

3,809

3,675

3,514

20,932

23,649

9,771

60

10,034

14,421

13,323

35,412

32,746

46,304

78

8,050

7,000

6,900

18,485

61,117

70,065

19

494

474

480

308

134

G)

5

770

624

565

916

899

1,085

35

7,745

6,695

5,434

4,929

5,720

19,0S2
24,462

23

6,950

6,442

5,920

11,008

8,381

65

3,141

2,750

2,427

4,861

7,558

9,106

55
162

4,348
3,872

4.110
4,152

3,907
4,070

47,179
4,417

53,694
13,766

55,015
IS ,937

1,468 150,522 133,776 121,529 487,584 559,173

590,793

Unions not affiliated with the General
Federation.
D ay laborers’ federation of G entofte and
L yngby (Arbejdsmsendenes forbund for
Gentofte og L y n g b y )..........................................
T inners’ federation (B likkenslagerbundet i
D a n m ark )..............................................................
B rew ery a n d distillery w orkers’ federation
(Brygg-og 1)r sender iar be jder for b u n d ) ............
D ruggists’ union (Farm aceutforening, D ansk).
Clerks’ a n d office a ssistan ts’ federation (H andels-og kontorm edhjaelp forbund)...................
Maid serv an ts’ federation (H usassistentcrnes
forbund).................................................................
R ailroad w orkers’ federation (Jernbaneforb und, D a n sk ).......................................................
W aiters’ federation (K elnerforbund, D a n sk )..
A gricultural w orkers’ federation (L andarbejd erforbu n d et).......................................................
Masons’ federation (M urerforbundet i D an ­
m ark) ....................................................................
Tobacco (chewing) w orkers’ federation
( Skraatobaksarbeidernesforbund)...................
M arine firem en’s federation (S0fyrb0dernes
forbund).................................................................
C arpenters’federation(T 0m rerforbund, D ansk)
Storage an d w arehouse w orkers’ unio n of 1890
(Lager-og pakhusarbej derfagforoning af 1890).
Masons’ helpers union of Copenhagen (M urararbejdam andsfagforening i K 0 b en h av n )___
Longshorem en’s u nion (Skibsvterftsarbejdernes fagforening)..............................................
O ther organizations2..............................................
1 N ot reported.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

1

670

800

G)

0)

5,853

27

1,211

1,160

1,100

0)

9,261

9,272

44
G)

4,094
830

3,971
800

3,914
G)

0)
C1)

2,713
G)

2,546
G)
G)

77

5,469

4,630

4,230

(1)

2,424

18

785

520

476

G)

5

18
12

7,310
1,473

5,998
1,344

5,830
1,153

G)
(l)

3,251
5,573

53

1,600

1,160

1,600

C1)

G)

98

6,638

6,401

5,805

G)

101,811

G)

1,806
4,415

G)
64,490

17

759

702

612

G)

778

0)
100

C1)
5,253

2,200
4,897

1,200
4,421

0)

1,183

G)

G)

717

652

G)

973

931

1,011

14,212

0)

C)
1

985

850

850

G)

1

1,400
G)

0)
4,289

0)
2,791

G)

G)

G)

G)

2,119

2 Includes all federations h aving less th a n 400 m em bers each in 1910.
[1 2 7 2 ]

1,005
G)

G)

G).

364

M O N T H L Y R E V IE W OE T H E B U R E A U O F LABOR S T A T IS T IC S .

225

SW ISS TRADE-UNIONS IN Ï.916.1

The Swiss ‘‘Gewcrkschaftliche Rundschau” recently published an
extensive report on the activities and situation of the Swiss tradeunions during the year 1916. The numerous statistical data given
in this report show that in Switzerland, like in all other European
countries, the trade-union movement suffered a considerable set­
back during the first year of the War but that in 1916 the move­
ment again gained in strength and recovered it's membership losses.
The membership, which in the 21 central federations at the end of
1914 was 74,675 (of which 7,451 were female members), had risen at
the end of 1916 to 88,648 (of which 10,876 were female members).
These figures represent an increase in membership of 13 per cent.
During the same period the receipts of the trade-unions increased by
60 per cent and the disbursements by 50 per cent. The largest
increases of membership are reported by the metal workers’ and
watchmakers’ federation (21,682, among which were 4,600 female
members); the federation of transportation and-mercantile workers
(3,710), the woodworkers (2,155), and the printing trade workers
(1,076).
The total receipts for the year 1916 amounted to 2,164,078 francs
($417,667.05) and the capital at the end of that year was 3,589,061.48
francs ($692,688.87). In the total receipts contributions partici­
pated with 1,038,027.35 francs ($200,339.28), initiation fees with
8,202 francs ($1,582.99), sick fund premiums with 660,710 francs
($127,517.03), unemployment insurance premiums with 35,322.30
francs ($6,817.20), and subsidies to the unemployment and sick funds
with 67,904.48 francs ($13,105.56). The decrease in receipts during
1915, which was equivalent to 38 per cent, has been largely made
up in 1916.
The total expenditures of the federations in 1916 amounted to
1,716,971.17 francs ($331,375.44). The principal items of the ex­
penditures were: Sickness benefits, 557,398.85 francs ($107,577.98);
strike benefits, 147,243.90 francs ($28,418.07) ; unemployment bene­
fits, 158,060.20 francs ($30,505.62); death benefits and invalidity
pensions, 163,467.95 francs ($31,549.31); central administration,
304,463.16 francs ($58,761.39); and publication of the organ of the
central federation, 148,091.23 francs ($28,581.61). Of unemploy­
ment benefits the printing trades’ workers received the largest
amount—84,450 francs ($16,298.85) ; the textile workers with
23,911 francs ($4,614.82), the woodworkers with 11,639 francs
($2,246.33), and the metal workers with 11,437 francs ($2,207.34)
come next in the order named. The largest amount of strike bene­
fits, 77,381 francs ($14,934.53), was received by the printing trade
1 In tern atio n ale K orrespondenz.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

A usgabe W . Vol. 4, No. 63. B erlin, Jan . 4,1918.

[1273]

226

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 .

workers, the metal workers coming next with 27,019 francs
($5,214.67). I t is to be noted that many federations did not make
contributions to the international organizations.
With respect to wage movements the year 1916 was a record year,
as may be seen from the following table:
W A G E M O V EM EN TS IN S W IT Z E R L A N D , 1911, 1914,1916.

N um ber of wage m ovem ents.................................................................................
N um ber of workers affected..................................... .............................................
N um ber of organized w orkers affected...............................................................
N um ber of w orkers w ho o btained wage increases...................................... .
Total wave increases per week ........ ................ ....................................................
W eekly wage increase per w orker............. ..........................................................

1911

1914

360
39,793
27,429

186
19,249
12,350

[

1916
814
144,759
69,678
117,955
$61,783.74
.52

In 52 cases affecting 10,091 workers shorter hours of labor were
obtained. These figured on an average
hours per worker and
week, or a total of 24,996 hours per week for all workers affected.
Of the 814 wage movements, 34 led to strikes by which 3,329
workers were affected. Most of these strikes were of brief duration
and terminated favorably for the strikers.


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Federal Reserve Bank of St. Louis

[1274]

WORKMEN’S COMPENSATION AND SOCIAL
INSURANCE.
HEALTH INSURANCE BILL IN THE NEW YORK LEGISLATURE.

The subject of health insurance seems to have attained a position
of prominence among the social and labor problems of the day, if
the fact that nine State legislatures in 1917 provided for commissions
to make investigations and report legislation thereon may be regarded
as significant. One is reminded of the early days of the movement
for workmen’s compensation laws, when State after State took a
corresponding step, investigation being followed by legislation in
almost every instance. A few health insurance commissions had
been provided for earlier, and bills were introduced in some States
before last year, but thus far no enactment of law has resulted. The
results of the educative processes that have been carried on by the
friends of such a measure are becoming evident, however, one of the
most interesting being a series of reports by the New York State
Federation of Labor indorsing and explaining the bill now before the
New York Legislature providing for a compulsory system of health
insurance for employees and dependent members of their families.
This measure was drafted by a special committee on health appointed
at the convention of the State Federation of Labor in 1916, and is
the result of more than a year’s work by this committee.
Funds maintained by contributions made in equal proportions by
employers and employees are provided for, the State bearing only the
administrative expenses. The funds are of three classes—local, trade,
and establishment—local and trade funds being corporations, con­
trolled by boards of directors, while establishment funds are, as their
name indicates, funds connected only with the individual establish­
ments and supported by the employer and employees interested.
Each fund is to contribute to a guaranty deposit, to be in the cus­
tody of the State treasurer, and to be available, in the discretion of
the industrial commission, in cases of epidemic, catastrophe, or other
unusual conditions.
Contributions to the funds are to be of an amount sufficient to
cover the benefits contemplated by the act, and are to be made by
the employer direct for himself and on behalf of his workmen, pay­
ments of the latter class being deducted from the wage payments.
No employee whose wages do not exceed $5 per week shall be required
to make any contributions, the employer in such cases bearing the

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Federal Reserve Bank of St. Louis

[12751

227

228

M O N T H L Y R E V IE W O F T H E B U E E A U O F LA BO R S T A T IS T IC S .

whole expense. If payments are more than $5 but less than $9, the
employer pays three-fourths of the expense and the employee onefourth, while employees receiving $9 or more bear half the expense
of the benefits.
Benefits consist of medical, surgical, and nursing attendance and
treatment and supplies for the insured workmen and the dependent
members of his family, including hospital or sanatorium treatment
where necessary; dental treatment for insured persons in so far as
necessary extraction and filling of teeth are concerned, with additional
work if the funds are sufficient; a cash sickness benefit to insured per­
sons, and a cash benefit to dependent members of an insured person's
family while he is in the hospital or sanatorium; medical, surgical,
and obstetrical aid and cash maternity benefits for insured women, and
medical, surgical, and obstetrical aid for the wives of insured work­
men; and a funeral benefit for insured persons, similar benefits being
allowed for members of the family if the resources of the fund warrant
them. Medical, surgical, and nursing care are limited to 26 weeks
of disability in any one year, and may not be furnished for a longer
period on account of the same case of disability. Cash benefits begin
with the fourth day of disability, weekly payments being paid equal
to two-thirds of the insured person’s earnings, but not more them $8
per week nor less than $5, unless such earnings are under $5 per week,
when the cash benefit is to equal the full weekly earnings. Such
benefits are limited to 26 weekly payments in any one year, or for the
same case of disability, but this may be extended to not more than
52 weeks if the fund is found to be adequate. Maternity benefits
cover a period of 8 weeks, and are at the same rate as the regular
sickness benefit; these are to be paid only on certification by the med­
ical officer that the beneficiary is not engaged in gainful employment
during the period of payment. Funeral benefits are limited to $100.
Administration is to be by the industrial commission of the State,
which is to divide the State into districts, supervise the establish­
ment of trade funds, approve the commencement of business by any
fund on a showing of its readiness therefor and a submission of an
appropriate constitution for the guidance of the directors of such
fund. Local and trade funds will be supervised by boards of not more
than 7 members, each board to consist of an equal number of directors
chosen by employer members and employee members, and one direc­
tor additional chosen by a majority vote of these representatives. The
board of directors appoints a11 officers and employees of the fund
and fixes their salaries, makes rides and regulations for carrying out
the purposes of the fund, and makes contracts with legally qualified
physicians, surgeons, dentists, nurses, hospitals, etc., for services in
connection with the activities of the fund.


https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis

[1276]

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 .

229

Every employee, by which is meant any person in the service of
another under any contract of hire, express or implied, oral or written,
is to be a member of the trade fund of the industry or trade in which
he is employed if such is in existence in his district, and if not he will
be a member of the local fund of the district. Membership is auto­
matic, and without regard to the physical condition of the workman;
but the foregoing provisions do not apply to members of establish­
ment funds. Persons employed for brief periods are members, each
employer making his proper deductions and contributions, but the
problem of the casual employee is not solved by the act, ‘ ‘employees
whose employment is not in the usual course of the trade, business,
profession, or occupation of the employer, ” being excepted. Provision
is made for periods of unemployment by giving a sort of paid-up in­
surance for a period of one week for each four weeks of contribution,
after which the workman may continue his insurance by paying the
full cost, i. e., a contribution equal to the contribution of an em­
ployer and the employee. The industry or trade hazard may be made
a basis of graded contributions, and if an establishment is found to
be abnormally productive of cases of sickness, an additional con­
tribution may be required from the employer without right of de­
duction from the earnings of his employees; on the other hand, if the
sickness hazard of any establishment is below the normal, the em­
ployer may have the benefit of a reduced contribution on his part.
No person can receive benefits until after three months’ payments
have been made, though having once become a member it is possible
to maintain a continuous membership by voluntary contributions or
by the action of trade-unions caring for their members during times
of unemployment.
The bill is admittedly the result of an effort on the part of organ­
ized labor to draft a measure which would “ be advantageous to the
cause of the wage earners.” On the other hand, the committee was
positive in its rejection of suggestions by a number of members of the
conference that the State should bear other than the administrative
costs, or that the employer should be required to pay a larger propor­
tion or even all of the benefit costs. An earlier bill was objectionable
to organized labor in its proposal to make fraternal organizations, of
which a considerable number of wage earners are members, a part of
the administration of a sickness insurance system. This bill also
contained a provision limiting the aggregate benefits payable from the
State fund and any fraternal or union fund to an amount not exceed­
ing the wages of the beneficiary. The present measure proposes a
smaller benefit from the State fund, but leaves the employee free to
carry as much fraternal or union benefit insurance as he desires, and
receive the allowances from every source in full, whether it exceeds his
wages or not. This plan commended itself especially to union labor

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by reason of the fact that the contributions to the State fund for a
smaller benefit would be less burdensome, and thus less likely to inter­
fere with the maintenance of trade-union funds. Emphasis is placed
on the medical benefit provided by the proposed law, since few tradeunions in the State furnish such benefits, and it is believed that
the preventive results of a thorough medical service will go far
toward reducing the amount of wages lost through sickness. The
keeping of a roster of physicians from which a selection may be made
instead of the employment of a single physician or physicians by the
employer was also stressed, as avoiding one of the unsatisfactory
features of the compensation law of the State.
In connection with this indorsement of the principle of compul­
sory health insurance by the New York State Federation of Labor,
it is of interest to notice a circular letter of March 2, 1918, from the
president of the California Federation of Labor in which the same
attitude is expressed. An opponent of the movement in California
had made the statement that the American Federation of Labor is
opposed to health insurance. As to this the letter says in part, “ The
American Federation of Labor is a democratic organization. We
have taken no action as yet, as an organization, in the matter of
health insurance. In eleven States organized labor has gone on
record for it, the New York Federation of Labor recently passing it
without one dissenting vote. Organized labor is on record here in
California for health insurance, because we believe that it offers the
same protection against the risks of illness that industrial accident
insurance now gives against the hazards of industrial injury.”
OPERATION OF W ASHINGTON’S NEW MEDICAL SYSTEM.

A notable experiment in the field of medical administration under
workmen’s compensation laws was made in the State of Washington
last year. This State, which had previously not required employers
to furnish any medical service whatever, amended its law so
as to provide for practically unlimited medical and hospital service,
one-half of the cost of which was to be borne by the employees. The
distinctive feature of the Washington law, however, was its provision
for medical administration through local medical aid boards under the
supervision of a State board. This medical provision went into
effect July 1, 1917. A review of the first three months’ experience
lias just been issued as part of the sixth annual report of the State
industrial insurance department.1
Briefly, the law provides for a State medical aid board composed
of the medical adviser of the industrial insurance department and
1 Sixth an n u al report of th e in d u stria l insurance d ep artm en t for th e 12 m onths ending Sept, 30,1917.
O lym pia, W ash., 1918, p p. 52-56.


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one representative each of the employers and employees. The board
is authorized to divide the industries of the State into five classes ac­
cording to hazard. Employers subject to the act are assessed from
one to three cents for every working day for each employee, and con­
tributions to the State medical fund are required once a month.
Deductions from the employee’s wages are authorized by the law.
The State board is also authorized to promulgate rules, issue a maxi­
mum medical fee bill, approve physicians’ and hospital bills, and ap­
prove contracts between employers and employees as to hospital
benefit funds. In case such a hospital fund is maintained by an
industrial establishment the employer and employees must each bear
one-half of the cost, and in addition the employer must contribute
10 per cent of his share to the State medical fund, of which the em­
ployees are again required to pay one-lialf. The immediate adminis­
tration of the medical service, however, is under the supervision of
the local medical aid boards. Each of these boards, composed of
one representative each of the employer and employees, must pro­
vide care and treatment for the injured, report the beginning and
termination of disability and the cause of the injury, and also certify
the medical bills. In case of disagreement the local board shall
appeal to the State medical board.
The State board was immediately confronted with several prob­
lems, some of which involved interpretation of the law while others
were concerned with administrative difficulties. The first question
which presented itself to the board was the classification of industries.
No statistics covering the cost of medical treatment were available
and the board consequently was compelled to make its classification
on the basis of compensation costs, on the assumption that there will
be a definite ratio between the average compensation paid per claim
per industry and the average cost of medical treatment. Subdivision
of the five classes, however, is not permitted, according to the opinion
of the attorney general. Under the law as it stands, the careless
employer can not be penalized by being placed in a higher group.
The other establishments in this class must, in a measure, pay for his
accidents unless they maintain so high a standard of accident preven­
tion as to overcome the natural hazard of the industry and justify
the board in giving them a lower rate by placing them in the next
lowest class.
The contract hospital system presents another problem. Under
the law an employer who has obtained the consent of a majority of his
workmen may enter into a written contract for their medical treat­
ment, such contract to be submitted to the medical aid board for
approval, and to remain in effect for the period of time stipulated
therein, but not over three years. The board is authorized to disap-


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prove a contract only in case the medical treatment provided does not
meet the requirements contemplated by the act. Under the law the
employees are required to pay one-half of the medical cost, but the
attorney general has held that this provision does not prohibit the
employer from requiring employees to contribute a flat amount each
month. Several defects of the contract system are pointed out.
One is that the medical aid board is prevented from obtaining the
necessary statistics to make a proper reclassification. This reclassi­
fication then can apply only to firms not under contract. Complaint,
too, has been made that employers obtain their employees’ consent
by means of fraud. One such instance came to the notice of the
board but the attorney general again ruled that the board had no
power to cancel the contract, remedy for this situation lying in the
courts. One clause of the law provides that the acceptance of
employment by any workman is tantamount to an acceptance of
any existing contract under the law to which the employer is a party.
A situation is conceivable—in fact, has arisen—in which a large
majority of the present employees were not a party to the original
contract. They are therefore bound by the contract although a
majority may not favor the contract system.
One of the most difficult problems the State board was called upon
to solve is the local medical aid board situation. The framers of the
law evidently intended that there should be a local board at each
plant. Such local boards were workable in the larger plants but
were utterly impracticable in the case of the smaller employers.
The board, therefore, divided the State into districts and established
a local board in each locality where a physician resides. The larger
cities were divided on an industrial basis, six such districts being
established in Seattle and five each in Tacoma and Spokane. The
State board experienced great difficulty in having the local boards
appointed. The employers as a rule refused to serve on the boards
because they could not spare the time from their business and since
the law allows only $3 a day the workmen did not want to give up
good-paying jobs to attend to local board work.
Under the law the injured employees, except in the case of contract
hospitals, are permitted to select their own physicians. This has
given rise to another difficulty. A workman sustaining a minor
injury will usually fail to notify the local board or his employer of his
accident. He merely visits a physician to have the wound dressed,
and then either returns to work or goes to another locality to look for
employment. Consequently the local board first hears of the case
when the physician’s bill is presented for certification. This means
that the board is required to look up the man and investigate the
case before it can take action on the bill and that the industrial insur
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ance commission lias trouble in securing a report from the employer
verifying the case. In an attempt to correct this the medical board
has requested the physicians throughout the State to advise an injured
man to report the case to the local aid board at once. This has
relieved the situation to some extent, though considerable difficulty
is still experienced. The doctors also complain that they are unable
to find the local board members because they are generally employed
in some other occupation and are not easily reached.
There are in force at present 1,155 approved hospital contracts
covering approximately 76,000 employees.
REPORT OF WORKMEN’S COMPENSATION BOARD OF NOVA SCOTIA.1

The Nova Scotia compensation law of 1915 came into effect by a
proclamation of the governor in council on January 1, 1917, follow­
ing a three months’ period of organization. This act superseded an
earlier law which had been in operation for about six years. It is
compulsory as to an enumerated list of important industries, while
those not enumerated may be included on the request of the em­
ployer. The board listed over 4,000 industries, many of which were
found not to fall within the designated classes, while others were
either of such a temporary character, or employed such a small
number of workmen, that they were excluded by action of the board.
Where a numerical basis was used, the nature of the industry was
also considered, so that the exclusion number as a rule ranged from
one to five employees; this exclusion, however, was without preju­
dice to the right of the employer to apply for inclusion under the act.
A central fund is contemplated by the law, discretion being given
the board to adopt either a current cost plan or a capitalized reserve
plan. The latter plan was adopted, the premiums collected for each
year being of an amount sufficient not only to cover the actual dis­
bursements for the year, but also to provide a reserve for future pay­
ments for accidents occurring in that year. An accumulation for
disaster reserves and the cost of administration are also to be pro­
vided for by the annual assessments. The board reports some
nervousness at first on the part of employers as to what the rates
would be but the rates established were said to be generafiy satisfac­
tory, and were received “ as a relief from the uncertainty and fear
which previously existed.”
Nine classes of industries were made, and separate income and ex­
penditure accounts are maintained for each. On the basis of income,
the most important of these classes is that of coal mining (class 1),
this class contributing 47 per cent of the total assessments for the
1 R e p o r t of W o r k m e n ’s C o m p e n s a t i o n B o a r d , 1917.


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MONTHLY EE VIEW OF THE BUREAU OF LABOR STATISTICS.

year. The next class in importance is class 5, iron and steel, including
manufacture and work; this class contributed 24 per cent of the assess­
ments. Next are class 9, transportation, not including shipping and
navigation, which contributed 10 per cent, and class 3, lumber and
woodworking, which contributed 4.8 per cent. Expenditures of
class 1 amounted to 49 per cent of the total, and of class 5 to 23 per
cent, these corresponding closely to the percentages of income. In
class 9, however, the expenditures were but 5 per cent of the total
expenditures, as against 10 per cent of the income, while in class 3
the expenditures were 8.3 per cent of the total, as against an income
of 4.8 per cent. The result of this discrepancy between income and
expenditures in class 3 is a deficit in the provisional balance amount­
ing to $22,855. A deficit of $10,275 appears also in class 7, building
and construction, and of $8,152 in class 6, manufacturing and oper­
ating not otherwise specified; but taking all classes there is a balance
of $68,011.
It is interesting to note that the assessments in class 1, coal min­
ing, were adequate to meet a catastrophe which occurred some seven
months after the law went into effect, resulting in the death of 65
workmen, and entailing a burden upon the fund of this class of
approximately $120,000. Despite this, the fund shows a provisional
balance somewhat in excess of $18,000. The year 1918 opens with
an added burden due to a still greater calamity in the way of a coal
mine disaster producing 88 fatalities, though this of course does not
figure in the balances for the year. The most serious catastrophe of
all, the great Halifax Harbor explosion, will not devolve upon the
compensation fund, being taken care of by the relief commission ap­
pointed by the Dominion Government; the losses due to this ex­
plosion amount, on a compensation basis, to about $850,000, accord­
ing to this report.
The total assessment income for the year amounted to $812,367,
and the total expenditures, including reserves, to $754,055. Adminis­
tration expenses met from the fund amounted to $22,872, or 2.8
per cent of the total assessments. However, the Government con­
tributed $5,034 to the administration expenses, which would bring
the total cost of administration up to 3.4 per cent of the assessment
income.
No general provision is made for medical and surgical aid, but the
board is authorized to arrange for special surgical operations or special
medical treatment in cases where it appears that such service will
conserve the accident fund. This discretion was exercised in a single
case, the instance being that of a coal miner whose eye was struck by
a piece of coal, a corneal ulcer resulting, causing total blindness of the
injured eye. A similar accident had happened to the other eye some


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20 years previously, so that the man was entirely blind'. Consulta­
tion with a specialist led to an operation with the idea of making arti­
ficial pupils, the result being that the workman reports himself able
to see as well as ever and has resumed his employment at full wages.
The expenses of this operation are given as $201.90, which, with the
compensation paid, amounts to less than $500; the capitalized value
of a permanent benefit for total incapacity, such as would have been
required if the operation had not been performed, is given at $4,800,
so that as the result of the operation the workman has become an
efficient member of society with his self-respect retained, while the
fund is saved $4,300, a striking illustration of the importance of thor­
ough, efficient, and liberal provision in this field.

STATE INSURANCE IN QUEENSLAND.

A system of state life insurance was organized in Queensland by
the insurance act, 1916. It has been effective since February 1, 1917.
It is administered bv the State Insurance Office, which also has taken
over the administration of the accident insurance of the State estab­
lished under the workmen’s compensation act, 1916, and a fire and a
miscellaneous accident insurance business.
The treasurer of the State of Queensland submitted the following
report of the business of the office to the legislative assembly : 1
Number.
Income (received and due):
Workers’ compensation policies issued... .. 36,687
Fire policies issued..................................... .. 5.184
74
Miscellaneous accident policies issued. . .

Premiums.

£188, 551 ($917, 583.44)
8,164 ( 39, 730.11)
361 ( 1, 756. 81)

Total policies issued........................ .. 41,945
License fees, interest, e tc..........................
Total income.....................................
Outgo (paid and provided for) :
(a) Claims—
Workmen’s compensation...................... ..
Fire.-..........................................................
Miscellaneous accident...........................
Total claim s...................................... ..
Expenses—
Workers’ compensation departm ent. ..
Fire, including taxation.........................
Miscellaneous accident...........................
Section 27.................................................

197, 076 ( 959, 070. 35)
5,493 ( 26, 731. 68)
202, 569 ( 985, 802. 04)

7, 849
3
3

116, 091 ( 564, 956. 85)
744 ( 3, 620. 68)
71 (
345.52)

7, 855

116, 908 ( 568, 923. 05)

(b )

Total outgo........................................

. ..

...

23, 680
3,251
147
1, 020

( 115, 238. 72)
( 15, 820.99)
(
715.38)
(
4, 963. 83)

145, 004 ( 705, 661.97)

i P a r l i a m e n t a r y d e b a te s , Q u e e n s la n d , 3 d s e s s ., 2 0 th P a r l i a m e n t , 1917, p . 1400.


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The expenses have been properly apportioned between the various departments,
and reserves have been established for outstanding claims and liabilities.
£4,335 ($21,090.28), the balance of the fire and miscellaneous accident accounts,
has been reserved to cover outstanding liabilities in these departments.
£52,153 ($253,802.57), the balance of the workers’ compensation account, which
represents the net profit in this departm ent for the year, after providing for all liabili­
ties, has been dealt w ith as under:
P ounds
Sterling.

Balance of preliminary expenses written off.................................
5, 584 ($27,174. 54)
Transferred to general reserve........................................................... 20, 000 ( 97, 330. 00)
Bonus to policy holders..................................................................... 18,717 ( 91,086.28)
Carried forward....................................................................................
7, 852 ( 38, 211. 76)
The office has invested the sum of £50,000 ($243,325) in A \ per cent Government
debentures, which were purchased at par.
The sum of £18,717 ($91,086.28), which was paid in bonuses, was distributed on the
basis of 10 per cent on ordinary and 50 per cent on household workers’ compensation
policies this year, an amount which it is hoped to increase next year.
I t must not be overlooked also that, in addition to the actual profits earned and
distributed by the office, the statutory reductions in fire and accident rates imposed
upon insurance companies by the insurance act of 1916 have saved at least another
£50,000 ($243,325) per annum to the insuring public.
I t is satisfactory to note that the office is receiving the support of all sections of the
public in the fire and miscellaneous accident departments, in which a very conserva­
tive underwriting policy is being followed, the benefit of which policyholders should
receive in the way of substantial cash bonuses in the near future.


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INDUSTRIAL PO ISO NS AND DISEASES.
CAUSATION AND PREVENTION OP TRINITROTOLUENE (TNT) POISONING.
BY ALICE H A M ILTO N , M. D .

In the following pages I have tried to give a summary in non­
technical language of a pamphlet just published in London by the
Medical Research Committee of the National Health Insurance.1
Dr. Benjamin Moore with two assistants, T. A. Webster and Dr. G. A.
Wyon, undertook on behalf of this committee a thorough research
into the causation and prevention of trinitrotoluene poisoning, by
means of animal and human experiments and through close observa­
tion of actual factory procedure and of the health of men and women
exposed in different ways to TNT. The result is a mass of informa­
tion which will be of great interest and value to physicians and to
men in charge of munition plants in the United States.
As an indication of the changes in methods of protection against
poisoning which this investigation calls for, the following conclu­
sions may be cited:
1. TNT is absorbed through the skin, and that is the only channel
of absorption which is of any practical importance.
2. Consequently elaborate systems of exhaust ventilation to
carry off fumes are not necessary, for there is no case on record of
poisoning from TNT fumes alone. The wearing of respirators is not
advised, since the amount of dust that can be breathed in is too small
to be harmful. Dust is dangerous only as it falls on the skin or
clothes or on surfaces that must be handled.
3. When TNT is swallowed deliberately by experimenters, the
effect is as slight as when the same amount is inhaled.
4. TNT readily makes its way through the skin and is absorbed,
setting up in susceptible persons a slowly increasing intoxication.
5. Therefore the prevention of TNT poisoning depends on two
factors—first, strict cleanliness of the factory premises, so that there
will be as little actual contact with TNT as possible, and second,
close watch of workers to eliminate that minority which has a low
resistance to TNT. Since, however, it is impossible entirely to
protect the skin from contact with TNT in manufacturing and in
shell-filling operations, the importance of the second factor becomes
1 G r e a t B r i t a i n . N a t i o n a l H e a l t h I n s u r a n c e , M e d ic a l R e s e a r c h C o m m itt e e . T h e c a u s a t io n a n d p r e ­
v e n t i o n o f t r i n i t r o t o l u e n e ( T N T ) p o is o n in g . S p e c ia l R e p o r t S e rie s N o . 11. L o n d o n , 1917, 86 p p .

54591°—18----- 16

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

evident. In spite of the best efforts to do away with ail skin con­
tamination there will be inevitably some contact with the poison, and
though the majority of workers will be able to tolerate the small
amount they absorb, a certain minority will be unable to resist its
effects, and it is this group of workmen that must be discovered and
removed before actual injury has taken place.
In a word, the prevention .of TNT poisoning depends on cleanli­
ness of the work place and ever-watchful medical supervision.
INTR O D U C TIO N .

The explosive TNT was well known before the war, but was sup­
posed to be innocuous; indeed, the particular advantages claimed
for it were its high stability, so that it could be relied upon not to
explode till intentionally detonated, arid its low toxicity. Both prop­
erties are possessed by TNT, but not to the degree supposed, and, as a
result of too great a reliance upon them, there have been disastrous
explosions and fatal forms of poisoning in connection with the manu­
facture and use of this substance during the War. The work of
Dr. Moore and his assistants was undertaken in August, 1915, at the
request of the medical inspectors of factories, for they had discovered
serious symptoms leading to toxic jaundice among workers with
TNT, and the rapidly increasing use of this explosive made the
situation one of grave anxiety.
In the absence of specific knowledge of this poison the health au­
thorities could only reason from other similar poisons and conse­
quently the Home Office had recommended precautions against the
inhalation of dust and fumes and against skin absorption. It is cer­
tain that these precautions did much to keep down the number of
fatal cases of poisoning, but it was most desirable to ascertain the
actual mode of entrance of the poison in order to know which safe­
guards were necessary and which nonessential. This work was under­
taken by Dr. Moore and continued through 1915, 1916, and 1917.
The first recorded death from TNT occurred in the manufacture of
the explosive, in February, 1915, the second in a shell-loading factory
in August of that year. Then the cases increased rapidly, reaching
their height in the autumn of 1916, but after that the effect of pro­
tective measures began to show and in spite of a great increase in the
numbers of workers exposed the number of cases fell decidedly. In
July and August, 1917, there were only 17 cases with 7 deaths, as com­
pared with 53 cases and 13 deaths in the same months of the preced­
ing year.
As is the case with other nitrocompounds, an immediate and ob­
vious result of TNT absorption is a chemical change in the red col­
oring matter of the blood corpuscles and a consequent damage to the
oxygen-carrying functions of the blood. This shows itself in a darker

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color of the blood and in pallor or duskiness of the skin with blueness
of the lips—--“ cyanosis..” The failure of oxygen transport and the
consequent oxygen famine is shown by breathlessness and air hunger
on exertion. If the fresh entry of poison bo prevented, what has en­
tered is eliminated and the red blood corpuscles are rapidly restored,
the process being greatly aided by abundant fresh air. Tins explains
the beneficial results of several successive holidays for TNT workers.
Cyanosis is an abnormal condition but by itself it does not kill.
The fatal results of TNT poisoning have been due to a destruction of
liver substance, the so-called toxic jaundice,” and more rarely to a
profound anemia, “ aplastic anemia” in which, the blood-forming
organs fail to produce new red corpuscles. At present both forms are
incurable and rapidly fatal diseases when once established, and there­
fore the question of their early detection has been one of the chief
practical problems of industrial medicine during the War.
C O N S T I T U T I O N A N D F E .Q P E S .T I E S O F T R I N I T R O T O L U E N E .

The material known as TNT is mainly composed of one of the three
isomeric trinitrotoluenes, that one called symmetrical because the
three N 02 groups are symmetrically arranged on the toluene nucleus.
The commercial variety contains also insignificant quantities of the
other two isomers and a variable percentage of mono and di nitrotoluenes, together with small amounts of nitrated methanes and other
substances. The pure product is a hard crystalline powder, almost
odorless, melting at 8*2° C. at which temperature it sublimes slowly.
At atmospheric temperatures its vapor pressure is low and, as will be
shown below, practically none is present in factory air as vapor.
The question has often been discussed whether all the manifesta­
tions of TNT sickness are due to absorption of pure TNT or are due to
one or more of the impurities commonly present. Some have sug­
gested that trinitrotoluene causes the cyanosis and the minor form
of poisoning, but that toxic jaundice may be caused by some im­
purity and aplastic anemia by still another.
Though it is very difficult to prove that all these effects are due to
trinitrotoluene and to it alone, yet it can be said as a result of exper­
iments on animals and on men with the pure body and with the im­
purities that all these effects can be set up by the pure substance
and that probably all are closely connected in their mode of causation.
Pure TNT causes cyanosis and workers exposed to it alone have also
developed toxic jaundice and died, while there is no evidence that
workers with crude TNT have been any more severely affected than
workers with the purer qualities. Samples of the various impurities
found in crude TNT were placed at the disposal of Dr. Moore and
tested, but none of them showed a higher degree of toxicity than
trinitrotoluene itself. A very poisonous compound, ietranitrome
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thane, is present in the crude product, hut only in minute quantities,
about 0.12 per cent, and even this is in great part removed before TNT
reaches the shell-loading factories.
CH A N N ELS OF ABSO R PTIO N .

Fume inhalation.—The preventive measures at first adopted were
directed against the inhalation of fumes and dust, the breathing of
operatives was incommoded by the use of respirators even in places
where the air was almost guiltless of dust, and time, labor, and money
were expended on elaborate systems of fan ventilation in factories
situated in open country where the natural ventilation was excellent.
In the effort to test the fume theory of poisoning, different kinds
of animals were exposed for days to the strongest fumes of heated
crude TNT but showed no effects. The experiments were repeated
inside the factory, cages being suspended over melting pans in a posi­
tion where exposure to fumes was worse than that endured by any
workman, but even after months of such treatment the animals con­
tinued fat and healthy.
Kittens were the only animals that devel­
oped cyanosis after excessive exposure, cats being especially suscep­
tible to TNT.
Swallowing dust or inhaling dust.—The reason for the earlier belief
that fume rather than dust was the causative agent in TNT poisoning
was that the earlier cases appeared exclusively among workers with
hot molten TNT and not among those who were exposed to dust in
large quantity. A few months later, however, there occurred the
death of a worker filling “ exploder hags” with pure dry TNT, who
had never been near molten TNT. In consequence of this a new
series of experiments was instituted to test the influence of dust when
inhaled and when swallowed.
A sample of these laboratory experiments, selected from many, will
suffice. Two rabbits were each given 100 milligrams of TNT with
their food daily except Sundays, from October 15 till December 31,
1915, and both not only survived but put on weight. Only when
such doses as 500 milligrams, enormously disproportionate to any­
thing which an operative could swallow at work, were given by the
mouth was it possible to kill the animal, and then only after three
or four rapidly repeated doses.
The investigators then administered to themselves doses of TNT,
taking 10 or 15 milligrams daily—amounts about equaling those
which air analysis had shown might be taken up from the factory
air. Chemical test of the urine showed the presence of TNT in the
system, but also showed that it was usually entirely eliminated within
12 hours.
A number of analyses were made of air collected from various
parts of several factories and the amount of TNT estimated, taking

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as a basis the air breathed in by an adult during a lOJ-hour shift;
For instance, a factory was selected in which girls were pressing
amatol blocks and in which a fatal case of TNT poisoning had
recently occurred. The inlet for the air drawn for examination was
placed within a foot of the head of a girl serving beside the box of
powder. I t was found that the maximum amount of TNT absorb­
able from the air would be 14 milligrams. In a second experiment
in another part of the same factory 12 milligrams was the maximum
amount, and in a third only a little over 8, the average being 11
milligrams. These observations showed quite conclusively that the
amount of TNT entering the system through inhalation is almost
negligible. However, it seemed best to extend the investigation so
as to be certain that no risk could be run by dispensing entirely with
respirators, and for this purpose six girls were induced to wear elabo­
rate Siebe-Gorman respirators, furnished with a long wide rubber
tube to bring in air from outside the workshop. The tests made of
the urine of these girls showed no decrease in the amount of altered
TNT being excreted, although they were wearing the most complete
respiratory protection that could be suggested.
Absorption through tjie skin.—The above experiments having shown
of how small importance is absorption from the air by swallowing or
breathing, the investigators determined to make experiments in skin
absorption upon themselves, exposing only the hands or the feet to
the poison. They protected themselves from all other contact with
TNT, they proved by the urinary test that their systems were free from
the poison, and then they rubbed TNT into the palms of the hands
or dusted it into the socks. Dr. Moore produced in himself all the
symptoms of a minor attack of TNT illness, with a marked frontal
headache, nausea, intermittent abdominal pain, and a feeling of
malaise and drowsiness which persisted about two days. It was two
weeks before his urine was free from TNT and then he repeated the
experiment with the same results. The other two obtained distinct
reactions in the urine but slighter than did Dr. Moore, and they
suffered no symptoms.
Several experiences in the factories pointed also strongly to the
importance of skin absorption of TNT. For instance, two cases of
toxic jaundice occurred in women who merely handled dust-covered
material, such as shells or waxed blocks, but were not exposed to
dust or fume in the air. Another case occurred in the pressing of
TNT pellets from pure dry TNT, and a visit showed that the work
was carried on in small isolated sheds under almost open-air condi­
tions and that there was no molten TNT near. But the hands of the
workers were deeply stained and oily and a test for the presence of
TNT in the urine was positive.


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The investigators then endeavored to see if by completely protect­
ing the hands they could prevent the absorption of TNT, but it
proved to be almost impossible to keep the hands of factory operatives
entirely free from contact with TNT. Only in the case of one girl of
unusual intelligence and enthusiasm did they manage to keep the
hands chemically clean for over a week. This necessitated having
her come to the laboratory at the beginning and end of each working
period, so that her hands could be tested with alkaline alcohol1 to
make certain that no TNT had penetrated to the skin. Then rubber
gloves were put on and bandaged so that no powder could fall in
between the glove and hand. The bandage reached from wrist to
elbow and protected wrist and forearm, while an ordinary pair of
cotton gloves was worn over the rubber gloves to protect them from
injury. For nearly a fortnight they were able to keep her hands con­
tinually clean, as shown by the alkaline alcohol test. This girl had
already been under observation, being one of those who wore the
Siebe-Gorman respirator in the former experiment. During the period
when she was wearing the respirator and her hands were unprotected
her urinary reaction had varied between 2 and 4, which is about the
shop average. On the days when her hands were chemically clean
the urine showed only slight traces of TNT or none at all.
The difficulty encountered in keeping the hands of operatives
chemically clean from TNT induced the experimenters to try the
effect of actual factory work on themselves. Accordingly Dr. Moore
and a voluntary coworker, Miss M. G. Francis, worked for a week on
one of the same machines as used by the factory employees and under
similar conditions in the same shop. All protection to mouth and
nose was dispensed with, but the hands were thoroughly protected by
leather gloves next the skin and rubber gloves outside of these, and
at the termination of each working period a negative result was
obtained on testing the skin of the hands with alkaline alcohol.
On two of the days of the experiment there was a high wind which
blew TNT powder into the air and caused the two experimenters to
suffer severely from sneezing and running from nose and eyes, yet at
the end of the day’s shift neither of them showed more than a'slight
urinary reaction, and this only for a few hours, while the usual
employees working alongside had on the average at least five times
the intensity of reaction in the urine, although wearing respirators, as
was the rule at that time. Their hands, however, were heavily laden
with TNT, as could easily be seen when they took off their gloves,
while those of the two experimental workers were clean.
S u m m a r y . —Dr. Moore sums up as follows the results of his
researches into channels of absorption of TNT.
i A lk a l in e a lc o h o l p r o d u c e s w i t h T N T a b r i g h t p i n k c o lo r.


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The analysis of the air of one of the chief workshops where most of
the cases of toxic jaundice and fatalities have occurred shows very
little TNT dust or fume, so that in the investigators' opinion this
can not be an important factor.
I t has been shown that because too little stress has been laid on the
danger of skin absorption, not enough effort is being made to keep
all processes clean. As a result persons engaged in cleaning soiled
shells with oily rags are often cyanosed and there have been several
cases of toxic jaundice among them.
Chipping off and rubbing with oil does not completely remove TNT
from the outside of the shells and these go on to the so-called ‘‘clean
shell store” covered with a film of oily TNT. As a result cyanosis
and jaundice have appeared among the operatives in this department
and among those who load filled sheds onto railway trucks.
Comparative statistics show that those employees who work close
to molten TNT have as good a record as to health and attendance as
do other workers much more remote from fumes.
Only a minute trace of TNT appeared in the urine of the investi­
gators after remaining for an entire shift close to the point where the
molten amatol was poured, and an analysis of the air yielded only 6
milligrams as the amount that could be breathed by a worker during
one shift.
Analyses of the records of fatal and nonfatal cases show that a
large proportion were shell cleaners and truckers who were exposed
to skin contact but only slightly exposed to dust or fume inhalation.
The factory in which these observations were made had at that
time the highest incidence both of minor TNT illness and of notified
cases of toxic jaundice and deaths from toxic jaundice. It has since
become one of the healthiest in the country and the change is attrib­
uted to two factors—all the processes are carried out with greater
cleanliness, and a medical officer patrols the workshop in order to
detect cases of poisoning in the early stages.
D E T E C T IO N O F T N T PO IS O N IN G .

T. A. Webster, one of Dr. Moore’s coworkers, devised a test for the
presence of modified TNT in the urine, a test which has proved of
the utmost value not only for the protection of individuals threatened
with TNT poisoning, but also in aiding research into the channels
of absorption of TNT. The experiments given above were all checked
up by the application of this test to the urine. The test depends
upon the fact that the modified TNT which has passed through the
system is not removed from the urine by ether as is unmodified TNT,
but if the urine be first mixed with an equal volume of 20 per cent
sulphuric acid solution and then shaken out with ether, the ether
separated and washed free of acid with water, the pink color charac
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teristic both of TNT and of the modified form will appear when
alkaline alcohol is added. No accurate way of making the test
quantitative is known at present, but each observer must establish for
himself a standard for judging various degrees of intensity.
The urines of practically all workers in TNT contain this substance,
but in some there is only a minute trace, in others an intense reaction.
There may be a high reaction where there is no sign of TNT poisoning,
and, on the other hand, there may be poisoning with only a moderate
reaction.
The substance is not TNT, but is formed from it by the reduction
of one of the nitro groups giving dinitro-hydroxylamino toluene. It
has been isolated from the urine of rabbits and a monkey to whom
TNT had been administered, and also from human urine after the
oral administration of TNT, and from the urine of workers in TNT
factories.
The action of TNT on the blood is the same as that of a large class
of bodies, including the organic nitro and amino compounds, which
possess the common characteristic of acting primarily on the blood,
changing the hemoglobin to a varying degree into a mixture of
NO-hemoglobin and methemoglobin. Since these can not function
as oxygen carriers, it follows that when more than a certain propor­
tion of hemoglobin has been altered by the action of the poison
oxygen starvation appears, the symptoms increasing when any exer­
tion is attempted. This is the stage of minor TNT illness and the
symptoms complained of are very similar to those of mountain sick­
ness, such as breathlessness, tightening in throat and chest, difficulty
in breathing, dizziness, drowziness, nausea, abdominal pains, appe­
tite at first stimulated, then lost.
The changes in appearance observed before any jaundice occurs
are also due to the changes in the blood. A drop of blood obtained
by pricking shows a venous blue color, which does not soon turn to
scarlet when absorbed by blotting paper—a quite characteristic
effect which may be useful for diagnostic purposes. There is a normal
number of red blood cells and a normal amount of hemoglobin, but
evidence of destruction and regeneration of red blood cells is shown
by the dark color of the urine during an attack of poisoning and by
bile-stained serum.
A rare form in TNT poisoning is aplastic anemia in which without
any change in the appearance of the red blood corpuscles there is a
profound loss, the number of red cells falling in one case to 1,200,000
per cubic millimeter, and the hemoglobin percentage to 30. The
appearance in such cases is that of pernicious anemia, but the exami­
nation of the blood elements and of the organs shows that it is a
failure of function of the blood-forming tissues only, as a result of
TNT absorption.

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The general appearance of a person suffering from an early stage of
TNT sickness is relied upon by experienced physicians to give warn­
ing of a condition requiring attention. There is a pale face, lacking
in expression, lips that can scarcely be described as cyanosed, but of
an ashen blue color and the same color is seen on the gums. There
may be a faint trace of yellow in the whites of the eyes, but the rest
of the skin shows no jaundice. When these are observed the physi­
cian should question the worker and he is then likely to be told of
abdominal pains, dizziness, sleepiness, breathlessness, headache or
nausea, and dark-colored urine, but this history may or may not be
given, according to whether the worker feels like resting or keeping on
with work. The physician must really depend upon the evidence
of his own eyes and this can be done well only by those who have
experience, not by a visiting physician who sees the workers once a
week or once a fortnight. The excitement of going to see the doctor
is often enough to disguise the symptoms and it is much better to
have the foreman or welfare worker draw attention quietly to those
that are suspected. Dr. Moore is emphatic in his belief that medical
supervision of such factories as these can be satisfactory only when the
physician “ patrols” the plant at frequent intervals, familiarizing
himself with the workers as they appear normally and thus being
able to detect those slight changes which show to the experienced eye
the beginning of ill health.
T O X IC JA U N D IC E .

Much of the report deals with that serious form of poisoning
known as toxic jaundice. Dr. Moore regards both jaundice and
fatal anemia as secondary results of the same action of the poison as
that which causes the symptoms of cyanosis. His reasoning is based
upon experimental evidence and upon a close study of the histories
of actual cases. It is unnecessary to go into this controversy here,
and it would not be possible to do justice to it in a short review like
this. Those who are interested in the question are referred to the
complete pamphlet. The important matter from the point of view
of prevention is that cyanosis and its accompanying pallor form the
best danger signal we possess that liver and bone marrow are in the
firing zone and so long as there is in the country a sufficient supply
of people insusceptible to TNT, susceptible individuals ought to be
removed. It is accordingly unsafe to wait for jaundice as the danger
signal. The safe way is to look upon cyanosis as the signal, whether
or not we believe that the jaundice is due to a direct effect on the liver
or is a later stage of the condition giving rise to the cyanosis.
The action of TNT in forming methemoglobin has as its sequence
increased blood destruction, and the products of destruction must be
disposed of by the liver and kidneys, while the blood must be regener
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ated by the red marrow. For instance, if four times the normal
amount of hemoglobin is katabolised by the liver cells, four times the
normal amount of bile pigments will be formed, but if the liver cells
can excrete into the bile this increased amount there will be no jaun­
dice and the only effect noticed will be increased biliary pigments
in the feces and probably a darkening of the urine. But the liver
cells will be working at four times their normal rate. The iron of
the hemoglobin may be stored in the liver or sent out at fourfold
rate to the red bone marrow to supply the increased demand of new
blood corpuscles for iron. This means that the red marrow also has
to work at fourfold the normal rate. Now, if the liver fails under
this strain there will be jaundice; if the bone marrow fails, aplastic
anemia. There may also be a partial breakdown of both liver and
red marrow with both anemia and jaundice, or one may succeed the
other. A secondary effect is the stimulation of the kidney to excrete
through the urine the bile pigments which the liver is unable to get
rid of. If this is incomplete the blood serum becomes loaded with
bile pigment and the concentration may increase until plasma and all
serous fluids become bile stained, and then jaundice is established.
In the great majority of TNT workers a compensatory balance is
established, there is no critical breakdown in liver or red marrow or
kidney, but any individual who absorbs freely is always in danger.
Some intercurrent illness or indiscretion may just tip over the balance
and establish a condition which will run down hill of itself when once
set going. Such a person ought obviously to be removed and this
weeding out of the susceptible should be kept up till the workshops
are filled only with those individuals who do not yield to the poison.
Dr. Moore gives a striking instance of the disastrous result which
may follow neglect to take seriously what seems to be a case of minor
TNT sickness. At one of his visits to a factory the welfare super­
visor called his attention to a girl who had typical blue lips and a
marked pallor but no yellow in the eyes. On questioning she admit­
ted her appetite was poor, that she had a little nausea, but had
never vomited, that she had slight abdominal pains, but not enough
to make her stop working. She was told that she had a mild attack
and should take some time off, whereupon she began to weep and said
she was the only support of an old and infirm father. This conversa­
tion occurred on a Monday and it so chanced that there was to be
a four days’ munition workers’ holiday beginning on Wednesday
evening. She begged to be allowed to continue at work for the next
two days and this was agreed to, provided she would not start work
again after the holiday unless she was better. On Wednesday,
however, her eyes showed a decided yellow and when she presented
herself on Monday morning after the holiday she had a general


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jaundice. She was immediately sent into the hospital and at first
did not seem very ill in spite of the deep jaundice, indeed she was
quite bright and cheerful, but a few days later she grew much worse,
became delirious, then comatose, and died. At the post-mortem
examination the usual changes of toxic jaundice due to TNT poison­
ing were found. A clearer case than this of cyanosis and minor
TNT illness passing on into toxic jaundice and death could not be
found.
P R E V E N T IO N O F PO ISO N IN G .

Ventilation.—In each factory dust-extraction experiments should
be made and it will generally be found that many proposed schemes
of forced ventilation need not be carried out. The vast majority
of TNT workshops are clean, airy, naturally well ventilated, onestory buildings in which analyses show a negligible quantity of
TNT dust.
Prevention of shin absorption.—The knowledge that the main
absorption occurs through the skin of the hands indicates three lines
of action, namely: (1) Keeping clean all that the hands can touch;
(2) protecting the hands; (3) detecting those hands which are
permeable and keeping their owners away from TNT work.
The provision of machinery to take the place of human labor in
shell loading is a matter of the greatest urgency, both because the
individual worker will be protected from direct contact with the
poison and because the number employed will be smaller. For those
who must come in contact with it, protective clothing, gloves, and
boots must be provided. The most important of these is the hand
covering. These investigators spent much time in designing gloves
and glove attachments of various kinds and materials but all broke
down in practice. They could protect themselves and a few workers
under experiment, but no attempt to drill a band of workers to carry
out the same excessive precautions all the time succeeded. Once the
TNT gets underneath the gloves as it does with all workshop gloves
hitherto tested, the glove is worse than useless, for it holds the powder
in closer contact with the skin, induces perspiration, and makes the
skin soft and permeable, so that except for very rough work which
hurts the skin of girls’ hands, bare hands are preferable to gloved ones
and in the few cases where gloves must bo worn they should be loose,
thick, leather ones.
The other portions of workshop clothing ought to be designed to
protect the skin and the “ bloomer su it” has become very popular
for woman munition workers and is much to be preferred to any
form of skirt. The legs of the bloomers should end over long Wel­
lington boots. Low shoes should not be allowed, for when worn
the skin of the girls’ feet becomes decidedly yellow. This is a quite
unnecessary area of absorption to add to hands and face. The

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work clothing of TNT workers must be kept apart from their home
clothing.
Many experiments were made with solvents for TNT and protective
varnishes for the skin. Acetone, which is the best solvent, was barred
out by its present scarcity, but a mixture of xylenes proved to be a
good solvent and a group of 24 girls were instructed to wash their
hands in it each day on leaving work. The results proved disappoint­
ing, the color of the hands was lighter, but the urinary reaction
seemed to run on its usual course. It may be that the solvent made
the layers of epidermis more permeable and thus increased absorp­
tion. It did actually remove all TNT from the outer layers of the
skin as shown by the failure of the alkaline alcohol test.
In spite of this failure, however, Dr. Moore recommends' that all
workers seriously ill with TNT should when they leave work have
the skin thoroughly cleansed, if possible with acetone, for only in
that way can continued absorption of the poison be prevented.
They turned their attention next to protective varnishes which
could be applied to the skin before starting work and removed at
the end of the day. Solutions of acetate of cellulose and collodion
such as are used in the various liquid court plasters on the market
proved useless, because they would peel off, but finally a water
soluble “ casein varnish” free from fats and oils was found to give
excellent results. The improvement was visible to the girls them­
selves. Girls were selected who showed the stain on face and hands
most deeply and under the use of the varnish the stain almost dis­
appeared in two or three weeks. This preparation also protects
against tetryl stain. I t is not unsightly in use, as it sinks into the
skin and disappears. It has at present one defect, that when kept
it tends to thicken and then sometimes lathers and does not become
invisible on the skin. When this occurs some of the girls object to
using it. In time improvements may be devised which will make
it resist hot weather better and not be removed by perspiration,
but experience has already shown that for dusty TNT employment
protection of the skin of face and hands by a varnish is feasible and
that when the skin is thus protected there is a great fall in the
amount of TNT absorbed as shown by urinary tests.
Early detection and removal of specially susceptible persons.—There
has been some controversy as to whether the same person should be
allowed to remain for many months on TNT work even if no symptoms
of poisoning are observed. Dr. Moore believes that anyone who has
worked for a year or more without symptoms has shown himself
insusceptible and should be kept at work as a most valuable asset to
the factory. On the other hand, a person who has been ill more
than once during a working period of five or six months should be


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watched most carefully and laid off at once on the appearance of
any considerable cyanosis. In fact he would prefer to remove such
susceptibles altogether. He attributes most of the improvement in
the healthiness of TNT factories in Great Britain to the coopera­
tion of management and medical staff in this process of weeding out.
A prophylactic measure which has received a very widespread
application is that known as alternation of labor. Dr. Moore used
to be a hearty supporter of this policy but has changed his views,
not because he does not still believe that it is good for the individual
worker to have a fortnight of safe work alternate with a fortnight of
TNT work, but because there are objections to it from the point of
view of the workers as a whole, because there are considerations of
output involved, and finally because there are other means by which
the end can be achieved with equal certainty and at much less cost.
• For alternation of employment, double the number of workers must
be employed to work on dangerous material and since the output is
not nearly so good under alternation as under continuous employment,
the total number of exposures to TNT poisoning is more than double
and therefore the difficulty of weeding out the oversusceptible is
more than double. Again, the risk of exposure to each individual
is by no means reduced to half, for tests made show that the girls
working during a fortnight on alternative work do not show the
clearance in the urine that is shown by four days of complete holiday.
Evidently even while they are ‘‘off TNT ’’ they still come in contact
with it either through soiled clothing or through soiled woodwork,
boxes, trucks, or shells.
Another objection is that this alternation prevents the rapid
training of workers in speedier and more skillful methods. The
speedier the rate of working, the smaller the number of hands required,
the less dust produced, the less molten TNT spilled about, and the
less danger of poisoning for everyone. In place of alternation
Dr. Moore would put increased medical care for the smaller number
of workers and permanent weeding out of the susceptible.
T R E A T M E N T O F CA SES.

It ought to be very rare in the future that cases pass unnoticed
through cyanosis into toxic jaundice. When this has occurred, as
well as in all cases of severe cyanosis, the first essential is a complete
removal from all contact with TNT. I t is not sufficient simply to
instruct the patient and send him home, for these people have little
realization of the seriousness of their illness, indeed even after jaun­
dice has appeared they may feel cheerful and well. They carry home
TNT on hair, hands, and clothing and in the course of time their
furniture and bedding have become contaminated. Such cases,


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therefore, ought as a rule not to be treated at home but in a hospital
by a physician experienced in TNT cases.
It ought to be emphasized particularly that this is true of the first
few days of incipient jaundice, for at this stage the case looks less
serious than it does later when the jaundice deepens, and the physi­
cian may be inclined to wait 0 few days and see how the case develops
with home treatment and visits to the consulting room, but these
days are the all-important ones, far more so than those after jaundice
has become deep, for then the physician can but watch and wait and
is powerless to give much help. The very first appearance of jaundice
shows that compensation is failing and a fight is going on between
degeneration and regeneration in the liver cells, with degeneration
slowly gaining and no longer enough sound tissue left to carry on
the normal functions. If the attack by the poison is prolonged a
little more the fight will be decided against the patient. This is the
point at which prompt action taken by the physician in completely
cutting off contact with the poison makes all the difference.
The patient should be removed at once from the factory to a
hospital, all clothing which has been in contact with his body removed,
he should be given a warm bath, dried, and wherever the skin has
been exposed it should be thoroughly cleaned from all traces of
TNT by scrubbing with pledgets of absorbent cotton soaked in acetone
or ether until no pink color shows with alkaline alcohol. Special
attention should be paid to the palms of the hands. The nails should
be cut short and carefully manicured and the roots of the hair cleaned,
especially on the scalp. The patient should then be put to bed in a
well-aired room and given a purgative. The bowels must be moved
as soon as possible and kept open. The urinary secretion and per­
spiration ought then to be stimulated by a simple saline mixture
and this should be kept up for two or three days until Webster’s
reaction is no longer obtained in the urine and the test remains
negative, even after the saline is discontinued.
Fresh vegetable food and fruit are desirable and alkalies should
be given, as there is a certain amount of acidosis in some cases.
In slighter cases of cyanosis the patient need not be kept in bed,
but an open-air treatment should be given either reclining in the
fresh air or with moderate exercise, not enough to bring on breathless­
ness. In a few days these cases clear up as the methemoglobin
breaks up. If, however, the patient be then allowed back on TNT
work, he must be carefully watched and if the symptoms recur he
must be given a permanent discharge.
According to the report, no person who has ever had toxic jaundice
is under any circumstances allowed to go back to TNT employment
or to any sort of work in the same factory with TNT workers.


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R E S O L U T IO N S O F T H E N E W Y O R K A CA DEM Y O F M E D IC IN E O N O CCU ­
P A T IO N A L D IS E A S E S .

At a meeting of the New York Academy of Medicine, March 7, 1918,
resolutions offered by the public health committee in regard to the
industrial disease problem were adopted, as follows:
1. That the matter of the need of instruction in the recognition, treatm ent and pre­
vention of occupational diseases should be brought to the attention of the authorities
of the medical schools of New York City, w ith a request th at a special course be given
through at least one term, -with particular reference to th e numerous poisonous sub­
stances used in war industries and their deleterious effects.
2. T hat special clinics be organized under the auspices of the medical schools in
order that occupational diseases may be studied and treated under competent guidance
and supervision.
3. That consideration be given to the desirability of the establishment of special
clinics, under the auspices of teaching institutions and health agencies, in the neigh­
boring towns of New York City, where large manufacturing and munition plants are
located, with a view' of facilitating the utilization by the men and women employed
in these factories, of the thus established medical opportunities.
4. That the representatives of the large hospitals and dispensaries be impressed
with the importance of recording accurately the details of occupation of all patients
entering the institutions and collecting data regarding them, and the need of providing
adequate facilities for their treatment.
5. T hat the importance of early recognition of occupational poisons be brought to
the attention of medical practitioners of this city, and th at they be urged to report
such cases promptly to the city department of health in order th at better follow-up
supervision may be provided.
6. That the medical press be requested to give more space to the discussion of
occupational diseases than they have hitherto.
7. That proper educational facilities be established by the State industrial com­
mission and the New York City department of health in order th at the large number
of men and women working in hazardous trades should understand the nature of the
hazards and know how to avoid them and to seek early medical advice when the first
symptoms of poisoning appear.
8. That the excellent wmrk done by the division of industrial hygiene of the bureau
of preventable diseases of the New York City Health Department be encouraged and
means provided for its extension.
9. T hat the manufacturers be impressed with the importance of safeguarding the
health of employees through adequate medical supervision, efficient factory sanitation
and the prevention of occupational diseases.
10. That the Federal Government, in the interest of the conservation of the health
and efficiency of the workers be requested to cooperate in the effective supervision
over the conditions prevailing in factories producing munitions of war and other
allied products, through the corps of experts associated with the United States Public
Health Service.

The following resolutions relating to associated out-patient clinics
were adopted March 20, 1918:
Whereas, there exists a great deal of *‘occupational disease, ” and
Whereas, cases of occupational disease are oftentimes not properly diagnosed in the
out-patient clinics, and
Whereas it is the duty of the clinics to help in providing the sick with competent
medical advice: Therefore,
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B e i t reso lved , That in the interest of the sick and the industrial efficiency of the
workers, the attention of the boards of trustees of dispensaries situated in the industrial
sections of the city, be called to the need of the early recognition of occupational
disease, and that in order to facilitate the work of the physicians in this task, detailed
records should be taken as to the occupation of all patients;
That adequate facilities be provided for the treatm ent of occupational diseases and
industrial poisonings; and
That an interest in the study of occupational diseases should be stimulated among
the physicians connected with the dispensaries.

D A N G E R S IN T H E M A N U FA C T U R E A ND IN D U S T R IA L U S E S O F W O O D
A LC O H O L.

The New York State Industrial Commission has caused to be
issued an illustrated pamphlet, prepared by the division of industrial
hygiene of the State department of labor, setting forth the dangers
encountered in the manufacture and industrial uses of wood alcohol.1
The investigation and the publication of the results thereof were
prompted by a belief that little information has been made available
in popular form for those who are obliged to work with material
containing wood alcohol, and in order that workers may fully realize
the dangers from inhaling its vapors or when the liquid comes in
contact with the skin. “ Complete knowledge of its deleterious
effects upon the health must be given to every person handling it,
as well as full protection. This is the only guarantee against skin
inflammation, blindness, and death.” Based on the investigation
pursued in this connection, recommendations for the necessary
precautions to avert evil effects are made, and if the improvements
suggested are carried out “ employers will not only protect the health
of their employees, but will also conserve much of the product which
is now being wasted. Nor will the adoption of the simple rules
recommended involve great expense.”
Wood alcohol is described as the most dangerous and most prevalent
industrial poison of the alcohols used in the various trades. Con­
tinuing, the report says:
I t produces toxic effects whether taken internally, inhaled through the lungs, or
when coming directly in contact with the skin. Impairment of vision, complete loss
of eyesight, and even death result from drinking as well as from inhaling wood alcohol.
People working in places where large quantities of wood alcohol were used constantly
have died from inhaling the fumes. So dangerous is this poison th at in some cases
death occurred when persons were subjected only a day or two to the fumes of wood
alcohol. Direct action of wood alcohol upon the skin when used externally, although
not quite as disastrous, has its serious consequences. I t produces inflammation of
the skin, and in extreme cases death of the affected organ.

1

New Y ork. D epartm ent of labor. Division of in d u stria l hygiene. D angers in the m anufacture and
in dustrial uses of wood alcohol. Special b u lletin issued u n d er th e direction of th e in d u stria l commission.
No. 86, December, 1917. [A lbany, 1917.] 17 pp. Illustrated.


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It appears that there are 28 establishments in New York State
engaged in the production of this extremely dangerous poison; 400
men are employed. In the process of distillation gases and vapors
escape, being a source of danger to the plant or causing irritation to
the eyes of the workmen, as well as constituting a loss of product.
The report thus briefly describes the manufacture of wood alcohol:
To secure the destructive distillation of wood it is placed in oval or cylindrical iron
or steel retorts or ovens and subjected to heat. The retorts are set in brickwork and
each retort is provided with a heavy cast-iron, tightly-fitting door. A stack leads
from each furnace to the outer air, and an outlet or delivery pipe leads from each
retort to a condenser into which the vapor containing wood alcohol and other sub­
stances is conducted. The cord wood, from which the alcohol is made, is carefully
stacked in the retort until the chamber is completely filled.* * * Coal is used for
fuel to heat the retorts. "When sufficient heat is applied destructive distillation of
the wood takes place. The gaseous products pass over, most of them condensing in
their progress. What is known as the permanent gas, however, passes along and is
utilized for fuel beneath boilers or furnaces. * * *
In the course of manufacture the condensed liquid is neutralized with lime, thereby
becoming converted into acetate of lime. The acetate of lime is then dried in kilns.
They are usually located on the top of retorts so that the radiant heat from the retorts
can be utilized for the drying process. The acetate of lime must be spread out by
hand shoveling. Employees doing this work, are exposed to a temperature ranging
from 90° to 100° during the summer. The temperature of the floor upon which the
workmen stand is even higher. * * *
Tar is one of the by-products in the manufacture of wood alcohol. The lime and
alcohol stills, condensers, mixing tubs, and vats for separating the tar from the liquid
are invariably located in the still house. Condensers were found that discharged
noncondensed gases into the workroom. These gases are injurious to health and
should be carried outside the workroom. * * *
I t is very important to prevent large quantities of gas from entering the still house.
During winter months, when every aperture is closed in order to keep the still house
fairly warm, the escape of gases and vapors from mixing vats and other sources causes
amblyopia, or temporary blindness, to workers engaged in these still houses.

The report enumerates a number of industries in which wood
alcohol is extensively used particularly as a solvent for gums, dyes,
and resins, and as a basic material for the manufacture of various
dyes used in the manufacture of leather. I t is used in many indus­
tries where shellac is used, notably in hat making, dyeing and stiffen­
ing of artificial flowers, making picture frames, applying varnish to
the interior of beer vats, shellacking knots in boards, varnishing
furniture, pianos, pencils, toys, and wooden patterns.
Investigation was made of such industries known to be using wood
alcohol, and the physical defects of some of the workers were noted.
In some factories it was found that the use of wood alcohol has been
lessened and in others its place has been taken largely by denatured
alcohol, that is, grain alcohol to which wood alcohol or other sub­
stances have been added, but which is in most respects as harmful
to health as wood alcohol. In the manufacture of artificial flowers
54591°— 18----- 17

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the physical defects of 20 workers were noted, consisting of derma­
titis, or skin inflammation, anemia, nearsightedness, and conjunc­
tivitis, or inflammation of the delicate membrane which lines the lids
and covers the eyeball. The history of a number of cases is given.
It is suggested that the present State labor laws are inadequate
to meet existing conditions connected with the use of wood alcohol,
and the industrial commission proposes the following rules which it
believes would practically eliminate the dangers described:
1. In any factory where the amount of wood alcohol exists in the atmosphere to the
extent of 1 part per 10,000 volumes of air, means of ventilation shall be provided to
remove same as far as possible.
2. All jugs, bottles, cans, barrels or other receptacles in which wood alcohol is
stored shall be properly labeled "Wood alcohol—poison.” (Skull and crossbones.)
3. In processes where wood alcohol is used by employees, which requires that the
hands of the operators come in direct contact with this material, impervious gloves
shall be furnished by the proprietors of such factories, who shall see to it th at they are
kept in good condition.
4. Whenever it is necessary to enter an inclosure, tank, or still in which vapors of
wood alcohol are present, a gas helmet or other device shall be provided by the
proprietor and worn by the person obliged to enter such inclosure, tank, or still. Fresh
air, free from contamination, shall be supplied through a hose within the helmet. All
vats, pans, cans, or other receptacles containing wood alcohol shall be provided with
tight covers.
5. Whenever wood alcohol is used or manufactured in the process as an incident of
the business carried on, a painted sign shall be kept posted in all such workrooms,
calling attention to the dangerous nature of wood alcohol. * * *
6. A runboard or walk should be provided in each kiln for the use of employees on
which to stand while spreading the acetate of lime being dried, thus enabling them to
occasionally step from the highly heated material.

REGULATIONS CONCERNING DANGEROUS OR OBJECTIONABLE ESTAB­
LISHMENTS IN FRANCE.1

Factories, workshops, foundries, warehouses, work yards, and all
industrial or commercial establishments considered dangerous or
objectionable, whether to the safety or salubrity of the neighborhood,
to the public health, or to agricultural operations, are subject to the
supervision of public authority under the following provisions:
These establishments are divided into three classes, according to
the degree of the danger or objectionable features inherent in their
operation.
Establishments of the first class must be located outside of popu­
lated districts; the second class includes those in which this measure
need not be so rigidly enforced, hut for which such measures must be
taken as will render them safe and unobjectionable; the third class
includes all establishments but slightly dangerous or objectionable to
i Journal Officiel de la R épublique Française, Dec. 21, 1917, p. 10443.


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Law of Dec. 19, 1917.

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

255

the neighborhood, or public health, but are subject to the general
provisions taken to assure public comfort and health in the neighbor­
hood where located.
Establishments of the first and second classes may begin operation
only when, upon the request of the owners or interested persons, the
prefect has authorized them to do so. The third class, before opening,
shall file a written declaration of intentions with the prefect.
The classification shall be determined by a decree issued under the
authority of the State council. The minister of commerce and
industry shall determine the regulations and conditions imposed by
this law relative to the form of request for authority to begin opera­
tions, and relative to information and plans required to be sub­
mitted in support of the application. After a request has been
submitted in the case of the first and second class establishments, a
committee is designated to investigate the nature of the industry
proposed, its degree of danger to public health, or its objectionable
features, etc. Notice of such proposed investigation is posted in the
territory where the establishment is to be located. The investigation
is open for one month, at least.
If the operation is authorized the permit shall specify the condi­
tions under which operations shall be conducted and which are
deemed necessary for protection of the interests above mentioned.
Supplementary orders imposing further measures of safety may be
issued.
The plans submitted are examined by the labor inspection service,
and if found not to conform to legal provisions and regulations con­
cerning the health and safety of employees the prefect shall arrest
the delivery of the permit until such time as satisfactory modifica­
tions have been made.
In all permits issued the rights of third parties are reserved, who
may enter complaint before municipal authorities (conseil de prefec­
ture), provided they have not renounced their right to do so, or
unless they acquired ownership of the lands after the decrees were
issued.
When the application is for a new industry, or new processes, or in
localities which may be utilized for dwellings, permits may be issued
for a limited period only, subject to renewal.
Permits are forfeited unless the establishments begin operation
within a specified time.
Establishments of the third class are subject to such general rules
and regulations as may be issued or modified from time to time by the
prefect of each department. The general rules may be modified to
meet the special conditions found in a particular establishment.
Establishments of this class in operation before the passage of this


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law are not required to apply for permits, but are subject to the
general rules and regulations.
The inspection service is under the supervision of the prefect, who
acts concurrently with the inspectors of dangerous establishments.
In departments where the number and importance of these estab­
lishments require such service, or when two or more departments
shall unite to form an inspection district, each department bearing
its share of the expense, the prefect may name inspectors.
Every inspector is sworn not to divulge or to use, directly or
indirectly, even after the establishment ceases operation, any secret
of manufacture or process of operation.
Establishments are open to the inspection service at all hours
during operation.
Notice must be filed with the public authorities in case of change
in ownership, any additional lines of work classed as dangerous
undertaken, transfer to another locality, any change in the condi­
tion of lands occupied, extension of operations; and under certain
of these changes an application for a new permit is required.
Authorized establishments ceasing operations for at least two con­
secutive years, establishments in operation at the time of the passage
of this law ceasing operation for at least one year, and those destroyed
by fire, explosion, or other accident due to its technical process of
operation must secure new permits before resuming operations.


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INDUSTRIAL ACCIDENTS.
CONFERENCE OF SAFETY ENGINEERS OF UNITED STATES GOVERN­
MENT ESTABLISHMENTS.

A conference of the safety engineers of the United States navy
yards, arsenals, and other Government establishments was held at
the Norfolk Navy Yard March 14 and 15, 1918. This was the third
of a series of conferences of Government safety engineers called
together for the better organization and standardization of methods
for accident prevention in Government plants, including not only
direct safe-guarding, but also construction, safe practices, and safety
education generally.
The appointment of safety engineers in Government establishments,
which, within a year, has extended to 20 different plants, is the
result of a safety survey of the Government navy yards and arsenals
made by the Federal Employees’ Compensation Commission soon
after its appointment in 1917. The survey was made in order that
the commission might have knowledge of the conditions under which
the work in Government establishments is carried on, of the hazards
of the work, and of the possibilities of accident prevention by the
development of methods which have proved so successful in recent
years in industrial establishments. The officials in charge of the
various establishments cooperated most heartily in the survey.
Most of them were fully alive to the practical usefulness of accidentprevention work in an emergency like the present, when avoidable
accidents might readily result in the loss of highly skilled men whose
services could not be replaced.
The conference was chiefly devoted to the discussion of safety
standards to be adopted for immediate use in the Government plants.
Standards were adopted covering the following items:
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.

Building construction.
Power plants and prime movers.
Power transmission apparatus.
Remote control apparatus.
Elevators.
Cranes.
Fire appliances and equipment.
Lighting.
Wash, toilet, and locker rooms.
Eye protectors.
Safety specifications to accompany proposals.
Inspection reports.
Unsafe practices.
Plant rules and regulations.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

As a result of the earlier conferences and of the work of committees
appointed a t those conferences, drafts of tentative standards had
been placed before the conference for discussion. Prelim inary to
the conference, a special com m ittee of three engineers had been
assigned the task of reviewing the entire body of tentative rules and
standards, in cooperation w ith members of the staff of the Bureau of
Standards and a representative of the U nited States Bureau of Labor
Statistics. As a result, the conference was able to reach an agree­
m ent on practically all points w ith the m inimum am ount of dis­
cussion.
I t is planned th a t the standards worked out in the conference shall
be issued by the Bureau of Standards w ith adequate illustrations to
form one of the bureau’s series of standard manuals, which began w ith
the publication of its “ N ational Electrical Safety Code.” Some of
the standards, especially those relating to construction and to safety
specifications for new equipm ent, have already been adopted and
p u t into effect a t some of the plants.
In addition to the consideration of standards, the conference also
discussed a t some length m ethods of education for accident pre­
vention, organization of safety committees, and the recording and
reporting of accidents. Form s were adopted for current records of
accidents and for m onthly reports.
The conference was attended by safety engineers representing the
navy yards, arsenals, and other Governm ent establishm ents. Repre­
sentatives of the U nited States Em ployees’ Compensation Commis­
sion, the Bureau of Standards, the Bureau of Labor Statistics, and
the Shipping Board were also present. The conference was in charge
of Mr. A. H. Young, director of the American Museum of Safety, who
has been serving as chief safety adviser to the Em ployees’ Com­
pensation Commission in its efforts to secure the adoption in Gov­
ernm ent establishm ents of the m ost efficient accident prevention
methods.
HAZARDS OF BLAST-FURNACE OPERATION.1

The United States Bureau of Mines has recently issued a report on
the “ Occupational hazards at blast-furnace plants and accident
prevention,” by Frederick H. Willcox, metallurgical engineer of the
bureau. The study is based on records of accidents at blast furnaces
in Pennsylvania in the year 1915, and was prepared under a coopera­
tive agreement with the Pennsylvania Department of Labor and
Industry.
1 O ccupational H azard a t B last-furnace P la n ts and A ccident P rev en tio n , b y Frederick H . W illcox.
B ulletin 140, U. S. B ureau of Mines. W ashington, 1917, 155 pp.


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259

This report contains the most detailed and careful study yet made
of the experience of a highly hazardous department of the iron and
steel industry. The author has the advantage of engineering knowl­
edge and of blast-furnace experience and has accordingly discussed
his material in a way to afford immediate and practical help to the
furnace manager who desires to deal with his safety problems intel­
ligently.
Several sections in the beginning of the report are devoted to the
development of the blast-furnace plant. It is there pointed out very
clearly that the exigencies of production in themselves forced atten­
tion to strength of construction, modification of design, and modified
practice, and that these things, while designed to increase pro­
duction, introduced factors of safety of the utmost importance.
The changed character of blast-furnace labor is noted. There can
be no doubt that the inexperienced immigrant has been a factor in
high accident rates, but the experience of the blast furnaces as here
outlined emphasizes the fact that the presence of the inexperienced
man is no excuse for a continuing high accident rate. When the
management does its duty with any sort of efficiency by instructing
the men in proper methods of work and providing proper tools and
apparatus the rates drop at once.
Following the general discussion of the first several sections of the
report there is a review of the blast-furnace accidents in Pennsyl­
vania during 1915. The m ethod pursued is to give a descriptive
statem ent regarding a selected group of accidents from a given
locality in the plant, and to follow this by comment and suggestion
regarding m ethods of prevention. For example, under the general
heading “ The furnace fro n t” are subheads such as “ Cinder notch,”
“ Tapping hole,” etc. U nder “ Tapping hole” accidents are described
such as—
(1) Keeper was loading gun before cast, shoveling in clay while the helper operated
the valve. Clay plugged in the bottom of the funnel and keeper put in hand to push
clay down. Plunger came back and cut off end of middle finger; or
(2) The casting crew were drilling open the tapping hole when the iron rushed out
and splashed up, striking a helper’s face and eyelids.

The use of such descriptions makes it possible to point out the
specific things which were done or should have been done in view of
such an occurrence.
This method of presentation has the great advantage of definiteness
of treatment. I t has also the weakness that the necessary volume of
descriptive statements makes it difficult to discover the information
which may be desired in a given case for which it is desired to provide
a remedy.


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In summarizing his description of blast-furnace accidents, the
author notes th a t “ falls, together w ith railroad equipm ent and
asphyxiation, account for m ost of the fatal injuries.” This rem ark
emphasizes in an interesting m anner the results of “ engineer in orevision whereby the hazard of hot m etal, which in earlier days
stood out far beyond all others, has been reduced and as a death
hazard brought alm ost to the vanishing point.
Regarding the tabulated data it is to be regretted th a t it was not
possible to determine the am ount of em ploym ent in the Pennsyl­
vania blast furnaces in 1915 and thus to have been able to compute
true accident rates.
i n discussing responsibility for accidents the author says “ the
classification of accidents according to responsibility is unsatis­
factory.” I t m ight be added th a t any attem p t to present the m atte r
by means of a percentage tabulation is so involved in possible error
as to be undesirable. To illustrate, suppose the percentages assigned
to the worker and to the employer are steadily decreasing. A
necessary correlative of this change will be an increase in the per­
centage attributable to industrial hazard. I t will be an extraordi­
narily well informed person who will not interpret this increased
percentage as representing increasing hazard, when in fact the
hazard m ay be stationary or even growing less. In any fluctuating
interrelated group such chances of wrong interpretation will inevitably
occur.
J
The list of safeguards is excellent and its careful study would repay
any safety m an concerned with blast furnaces. A careful checking
up fails to disclose any m aterial omission, while no other published
m aterial contains, so far as can be determ ined, all th a t is found here.
The sections on the relation of prevention work to the employee
present a sane and workable program . Especially good is the outline
of follow-up work for the guidance of blast-furnace safety committees.
This volume will doubtless become and rem ain for some tim e the
working m anual of the safety m an in blast-furnace work.

ACCIDENTS AT METALLURGICAL WORKS IN THE UNITED STATES
1916.

The third report of the U nited States Bureau of Mines on accidents
a t metallurgical works, recently issued as Technical paper 201/ shows
a reduction in fatal accidents a t both sm elters and ore-dressing
plants, b u t an increase in the num ber of nonfatal injuries. This
latte r is due, it is explained, n o t so m uch to an increasing hazard as
a t m etallurgical w orks in th e U n ited S tates d u rin g th e calendar year 1916
A lbert H . F ay , U. S. B u reau of Mines, T echnical paper 201. W ashington, 1918. 18 pp.


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MONTHLY BEVIEW OE THE BUKEAU OE LABOR STATISTICS.

261

to the more complete returns received. One hundred and fifty
plants, including copper, lead, zinc, and quicksilver smelters, as well
as refineries, made returns; the iron blast furnaces are not included
in the report. The total number of men reported employed was
66,194 as compared with 49,891 in 1915, and 43,007 in 1914.
The number of fatalities reported was 33 by ore-dressing plants, 36
by smelters, and 14 by auxiliary works, including shops, yards, etc.
The number of nonfatal injuries reported by ore-dressing plants was
3,184, by smelters, 9,656, and by auxiliary works, 2,240. Classified
on a 14-day basis, to accord with many of the State workmen’s com­
pensation laws, the report makes the following showing:
1. F atal...................................................................................................
83
2. Serious (time lost, more than 14 days):
(a) Permanent disability—
Total.................................................................................
17
Partial...............................................................................
200
( b) Others........................................................................................ 3,443
3. Slight (time lost, 1 to 14 days, inclusive).................................... 11, 420
Total............................................................................................. 15,163

The following table shows the actual number of men employed, the
number of 300-day workers, and the fatality and injury rates at
metallurgical works in 1914, 1915, and 1916, the three years covered
by the reports of the Bureau of Mines on this subject:
SUM M ARY O F L A B O R A N D A C C ID E N TS A T M E T A L L U R G IC A L W O R K S IN T H E U N IT E D
S T A T E S , 1914, 1915, A N D 1916.
Em ployees.

In d u s try and year.

D ay ’s work
performed.

Ore-dressing plan ts:
1914...............................
4,567,529
1915............................... 5,732,184
19161............................
7,041,083
Sm elting p la n ts :2
1914............................... 9,700,769
1915............................... 10,878,486
1916 i ............................. 14,809,046

Killed.

On
Actual. 300-day Actual.
basis.

Per
1,000
em­
ployees.

Injured.
Per
1,000
300-day Actual.
w ork­
ers.

Per
1,000
em ­
ployees.

Per
1,000
300-day
w ork­
ers.

15,128
18,564
22,365

15,225
19,107
23,470

23
30
33

1.52
1.62
1.48

1.51
1.57
1.41

1,434
2,095
3,184

94.79
112.85
142.37

94.19
109.65
135.66

27,879
31,327
43,829

32,336
36,262
49,363

33
38
36

1.18
1.21
.82

1.02
1.05
.73

5,673
5,718
9,656

203.49
182.53
220.31

175.44
157.69
195.61

1N ot including auxiliary works, as shops, yards, etc.
2N ot including iron a n d steel.

Tables giving causes of accidents indicate that at the ore-dressing
plants machinery was responsible for 33 per cent of all fatalities and
18 per cent of all injuries; that 6 per cent of the fatalities were due
to falls of persons, whereas at smelters the fatalities due to this cause
represented 25 per cent of the total; and that fatalities due to flying
or falling objects represented 11 per cent at smelters and 3 per cent

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at ore-dressing plants. It also appears that haulage systems caused
17 per cent of the fatalities at smelting plants and 21 per cent at
ore-dressing plants; that 6 per cent of the nonfatal injuries at oredressing plants were due to haulage, whereas at smelters 10 per cent
were due to this cause; and that at smelting plants burns from hot
metal, slag, etc., claimed 11 per cent of the fatalities and 25 percent
of the nonfatal injuries.
ACCIDENTS IN M INES AND QUARRIES IN OHIO, 1916.

Statistics of mines and quarries in Ohio for the year ending Decem­
ber 31, 1916, are presented in a pamphlet recently issued by the divi­
sion of investigation and statistics (Report No. 31) of the industrial
commission.1 There are five sections, the first dealing with coal mines
and showing production, number of employees, days of operation,
average wages, total annual wage and salary payments, and accidents;
and the other four sections dealing with fire-clay mines, gypsum mines,
limestone quarries, and sandstone quarries, the data covering pro­
duction, number of employees, days of operation, classified weekly
wages, total annual wage and salary payments, and hours of labor
per week.
Although 108 fatal accidents were reported to the inspector of
mines during 1916, the report tabulates only those for which awards
were made under the workmen’s compensation, law, numbering 86.
Of this number 8 were for deaths which occurred in 1915. The total
amount awarded in these 86 cases for death benefits, medical and
hospital, and funeral expenses, was $173,384.96,2 or an average of
$2,016.10 each. Sixty per cent of the fatal accidents were caused be
falls of stone, slate, or coal. Ninety-eight accidents resulting in per­
manent partial disabilities, and 3,462 accidents resulting in tempo­
rary disabilities are enumerated, the total expenditures for all fatal
and nonfatal accidents aggregating $382,620.96, distributed as fol­
lows: For death benefits, $159,669; for compensation, $166,618; for
medical and hospital expenses, $44,915 ;3 and for funeral expenses,
$11,418.96. This, of course, does not take into consideration the time
lost on account of these accidents, which the report estimates to be
equivalent to the entire time of 2,991 men for one year.
The 98 awards for accidents resulting in permanent partial dis­
abilities represented an expenditure of $50,238.2 Compensation and
1 Ohio In d u stria l Commission. D ep artm en t of investigation an d statistics. R ep o rt No. 31. Statistics
of mines a n d quarries in Ohio, 1916. C olum bus, 1918. 84 pp.
2 Exclusive of m edical and hospital expenses p aid b y firms carrying self insurance u n d e r th e S tate plan.
3 Exclusive of a n y additional expenditures for m edical a n d h ospital a tte n tio n b y em ployers w ho carry
self insurance u n d e r sec. 22 of th e w orkm en’s com pensation act and w ho are required to furnish medica
a nd hospital care w ith o u t cost to th e injured person.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

263

medical and hospital bills amounting to 1156,69g 1 were paid in
2,793 cases of temporary disability lasting more than 7 days, while
in 669 cases of temporary disability lasting less than 7 days the
total medical and hospital expense was $2,308. Under the law no
compensation may be awarded in cases of disability lasting 7 days or
less. Of 3,462 temporary disability accidents 80.7 per cent resulted
in disabilities of more than one week, and 1,106, or 32 per cent,
resulted in disabilities of more than 5 weeks.
The following table gives a summary of all coal-mine accidents
for which awards were made by the industrial commission during
1916:
N U M B E R A N D A M O U N T O F A W A R D S A N D TO N S M IN E D P E R A W A R D U N D E R T H E
O H IO W O R K M E N ’S C O M PE N SA TIO N LA W D U R IN G T H E Y E A R 1916.
P a y m e n ts m ade.1
R esu lt of in jury.

N um ber of
awards.

Tons m ined
p er aw ard.2
A m ount.

F a ta l..............................................................................
P erm an en t p a rtia l d isab ility ..................................
T em porary ¡U sability........ .................................
T o ta l................................................

Average.

86
98
3,462

401,472
352,312
9,973

$173,384.96
50,238.00
3 158,998.00

$2,016.10
512.63
45.93

. 3,646

9,470

382,620.96

104.94

1 E xclusive of m edical an d hospital expenses paid b y firms carrying self-insurance u nder th e S tate plan.
2 Based on a to ta l production of 34,526,552 sh o rt tons.
3 Of th is am ount, $2,308 was sp en t for m edical a n d h ospital service in 669 cases lasting 7 days or less and
therefore n o t en titled to compensation.

The report makes no mention of accidents in fire-clay mines,
gypsum mines, limestone quarries, and sandstone quarries.


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BIRTH RATES AND MORTALITY STATISTICS.
VITAL AND SICKNESS STATISTICS FOR GERMANY AND AUSTRIA DURING
THE WAR.
GERMANY.

The question of the birth rate and infant mortality in Germany
during the War has been treated very thoroughly in three publica­
tions by Dr. Rott, senior physician and superintendent of the AugusteYictoria Home for the combating of infantile mortality.1 The Soziale
Praxis (Dec. 6, 1917) thus summarizes these three publications.
In the first of these publications Dr. Rott proves, with the help of
extensive and clear statistical matter, that the increased infantile mor­
tality in town and country during the first year of the War was followed
by a considerable decrease in 1915, while at the same time there was a
decline in the birth rate. Dr. Rott endeavors by detailed inquiry to
ascertain what reasons exist for the variation and decline of infantile
mortality, and whether and to what extent the decline of infant mor­
tality is connected with and is attributable to the decline in the birth
rate. He comes to the conclusion that the increased mortality in
1914 was to be ascribed to the hot summer, bad economic conditions,
and want of employment. On the other hand, the decrease in the
number of children born alive seems to have been not without in­
fluence on the number of infant deaths. The systematic relief
afforded by the imperial maternity and nursing allowance has brought
about the decline of the mortality figures.
In the three periods in 1915 which have been compared by Dr.
Rott the number of children born alive in 18 towns declined by
31,008, or 23.8 per cent, and this decline was accompanied by a
decline of 34.9 per cent in infant mortality. Dr. R ott’s views as to
the extension of social welfare work in peace time are for the most
part met by proposals well known.
In the second publication he pays special attention to the public
institutions for the care of infants and young children, and emphasizes
the necessity of providing nursing rooms in factories, creches, and
day nurseries, which are becoming more and more necessary, owing
to the increase in the number of gainfully engaged women. As a
1 G eburtenhäufigkeit, Säuglingssterblichkeit u n d Säuglingsschutz, b y D r. R o tt. B erlin, 1917. (A n
essay on th e b irth rate, infantile m o rtality , and th e protection of infants during th e first tw o years of the
war.)
F rauenarb eit u n d K inderschutz. B erlin, 1917. (W om en’s labor and the protection of children.)
Die M itw irkung der K rankenkassen bei der M utter—Säuglings- u n d K leinkinder-fürsorge. R eprinted
from th e “ O rtskrankenkasse.” D resden, 1917. Vol. 1. (A treatise on th e cooperation of the sick funds
in the care of m others, infants, and young children.)

264

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

265

further condition for the public care of infants Dr. Rott advocates
registry offices for nurseries and public control by trained persons of
day nurseries.
In the third publication he dwells expressly on the future cooper­
ation of the sick funds of the workmen’s insurance system in the
great aim of improving the national hygiene.
The Kommunale Praxis 1 gives the following figures and other
particulars relating to the movement of the population between
1913 and 1916 in Berlin—Friedenau, one of the constituent suburbs
of Greater Berlin, which is inhabitated largely by officials, merchants,
small shopkeepers, etc. On December 31, 1913, the population
numbered 44,869, and on December 31, 1916, it was 44,809, showing
a decline during this period of 0.13 per cent. There was a regular
decrease from year to year in the number of males, amounting in
the end to 693, while the number of households increased by 1,402.
There was an excess of births over deaths in 1914 of 280, but in 1915
the deaths were more numerous by 84, and in 1916 by 183. The
influence of the War showed itself most strongly in the statistics
relating to occupations; thus, the number of officers increased by
15.4 per cent, while that of domestic servants, who were formerly the
most numerous class of the population, declined by 23.7 per cent;
women largely took the place of men as teachers.
Even more significant as to the influence of the War are the
figures for illnesses with a fatal termination. Thus under this
heading ‘'Congenital debility” appears in 1913 eighteen times, in
1914 seventeen times, and in 1915 twenty-six times. Deaths due to
tuberculosis rose from 16 in 1913 to 21 in 1916. Those due to organic
diseases of the heart numbered 14 in 1914, 38 in 1915, and 34 in
1916; while arteriosclerosis was responsible for 29 deaths in 1913,
30 in 1914, 89 in 1915, and 75 in 1916. Old people most readily fall
victims to the hardships accompanying war. Nervous troubles also
show an increase, which is evidently to be attributed to the War,
from 0 in 1913-14 to 7 in 1915, and 8 in 1916. Equally unmistakable
is the influence of the War in fatal cases of stomachial and intestinal
catarrh (dysentery) and other affections of the stomach and intestines.
The number of these rose from 0 to 2 in 1914, 19 in 1915, and 24 in
1916. It is to be noted that the highest figures are recorded not for
1916 but for 1915. The same is the case also with the fatal diseases
which developed from violent injuries, which number 253 in 1915
and only 182 in 1916. (These figures do not include all the men
from the army who died in the Friedenau military hospital, but only
those who were finally reported to the police authorities in Friedenau.)
The total number of deaths rose from 307 in 1913 to 318 in 1914 and


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i

Kommunale Praxis.

Berlin, Jan . 19,1918.

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

583 in 1915, and fell to 495 in 1916. The lower figures for 1916 lead
one to the conjecture that by this time the weaker had already been
eliminated by a process of natural selection.
The number of births fell from 725 in 1913 to 312 in 1916, or 57
per cent. The number of marriages fell in the same period 36.6 per
cent. At the same time infant mortality increased; the per cent of
children who died in their first year was 6.2 in 1913, 7.5 in 1914, 9 in
1915, and 9.4 in 1916.
In this connection the following figures, as published by the Handelsblad,1relating to the birth and death rates in various large German
cities, may be of interest. The statistics are for four weeks, the last
half of December, 1917, and the first half of January, 1918:
Berlin............................
Hamburg......................
Cologne.........................
Leipzig..........................
Dresden........................
Frankf or t-on- the-M ai a
Düsseldorf...................
Nuremberg...................
Chemnitz......................
Breslau.........................
S tettin...........................
Hanover........................

B irth
rate.

D eath
rate.

9. 2
7. 0
1 3 .4
6. 5
7. 9
8. 3
9. 4
10. 4
8. 1
14. 0
12. 5
10. 8

9. 5
18. 4
20. 7
15. 9
1 6 .4
9. 7
12. 4
14. 8
17. 9
22. 9
17. 2
17. 9

The preceding figures show that in all of these 12 cities the death
rate greatly exceeded the birth rate. In four of them the excess is
over 100 per cent, viz, in Hamburg 163 per cent, in Leipzig 145 per
cent, in Chemnitz 121 per cent, and in Dresden 108 per cent.
For the purpose of comparison the rates in some cities of Great
Britain and of neutral countries are given below. The British figures
are for the week ended January 5, 1918:
B irth

rate.
20. 4
24. 0
25. 4
22. 3
13. 2
2 5 .4
22. 3
21. 1
1 7 .4
19. 0
19. 8

London....... .
Birmingham
Liverpool. ..
Glasgow.......
E dinburgh..
D ublin.........
A msterdam..
Copenhagen.
Christiania .
Stockholm ..
Berne..........


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1 H andelsblad.

A m sterdam , Jan. 30, 1918.

[1 3 1 4 ]

Death
rate.
21. 3
14. 4
20. 5
15. 4
15. 5
18. 8
1 5 .0
13. 3
1 3 .9
12. 1
1 2 .0

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

267

A U ST R IA .

The Neue Freie Presse 1 states that general statistics of births,
deaths, and marriages in Austria have not been published since the
outbreak of the War, but from an examination of the municipal
returns in those Provinces which have not been ravaged by inva­
sion, Prof. H. Rauchberg (Prague) shows that while the death rate
remains much the same, the birth rate has so seriously diminished
that the number of deaths greatly exceeds the number of births.
The figures given for lower Austria and Bohemia are:
N U M B E R O F B IR T H S A N D D E A T H S IN L O W E R A U S T R IA A N D B O H E M IA , 1913 A N D 1916.
B irths.
Low er A ustria:
1913................................................................................................................
1916.......
............................................................................................
Bohem ia:
1913................................................................................................................
1916................................................................................................................

D eaths.

Difference.

73,103
43,950

60,010
66,225

-13,093
+22,275

175,965
87,401

127,221
122,276

-48,744
+34,875

The birth rate has fallen in lower Austria 39 per cent, in Bohemia
49.7 per cent, in Moravia 48.1 per cent. As the fall continued in
1917, the number of births in that year can hardly amount to half
the normal. Before the War the excess of births over deaths in
Austria was about 300,000 a year; now the position is reversed.
“ If this goes on, Austria must perish,” is the conclusion of Prof.
Rauchberg.
The Z eit2 reports that the number of cases of infectious diseases
among the civil population notified in Vienna fell in December, 1917,
to 1,475. The mortality during that month was greater than in the
first two years of the War. Altogether 3,455 persons died, as com­
pared with 3,267 in November, 1917, and 2,935 in December, 1916.
In a later issue the same daily states 3 that a conference of phy­
sicians in West Bohemia met recently to consider a report on famine
edema or “ war dropsy.” The cause of it is a watering of the blood
through insufficient nourishment, superinduced by overwork and cold.
In the Saxon Erzgebirge, where the daily ration actually contains 1,400
calories per capita, the disease does not occur. In Austria the food
cards represent 1,000 calories per capita per day, but these are not
always obtainable. In the Bohemian Erzgebirge, up to October,
1917, 25,000 cases of “war dropsy” were noted, of which 1,000 ended
fatally. The amount of food must be increased so as to supply 1,200
to 1,400 calories a day. A circular has been issued by the governor
of Bohemia directing the raising of the flour ration for persons suf­
fering from “ war dropsy” from 500 to 725 grams (1.1 to 1.6 pounds)
per week.
1 N eue Freie Presse.

V ienna, Feb. 2, 1918. 2 Die Zeit.


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[1 3 1 5 ]

V ienna, Feb. 2, 1918.

3 Idem , Feb. 12,1918.

HOUSING AND WELFARE WORK.
HOUSING AND THE LAND PROBLEM.
B Y L E IF U R . M A G N U S S O N .

The most important problem connected with the housing question
is the land problem, namely, how to increase the available supply of
building land, and how permanently to keep the price of it within the
means of the workingman.
Employers in this country have attempted to solve the problem by
moving their establishments from the congested urban centers to
outlying rural and semirural districts where land is available at more
moderate prices. As evidence of this movement of industry the
United States census of manufactures shows from census to census
an increasing proportion of the population, the number of establish­
ments, and the number of wage earners outside of the limits of cer­
tain metropolitan districts which are in reality single industrial areas.
Furthermore, a recent survey of company housing undertaken by
this bureau shows that company housing developments are either
new town developments or are located in the suburbs of larger cities,
indicating the extent to which industrial decentralization underlies
company housing. The primary reason pointed out by employers
for this movement away from the cities has been a desire for more
land as well as cheaper land, emphasized by them in such expressions
as “ lower taxes, lower rentals, and avoidance of congestion,” while
community benefits naturally flowing from more land and cheaper
land are expressed as a desire for more light and air and quieter sur­
roundings. 1
GROW TH OF SPEC U L A TIV E P R O F IT S IN COMPANY TOW NS.

Employers admittedly have not solved the land problem in
connection with their housing enterprises by merely migrating from
the city to the country districts. The study which the bureau made
of company housing shows among other things that there has been
only slight attempts on the part of employers as a whole to control
the uses to which land may be adapted by careful town planning,
that there has been little or no positive action taken to prevent
overcrowding, and that no method has been devised either wholly or
partly successful in controlling speculation in company towns.
Some employers, in fact, have encouraged the element of speculation
in offering their houses to the workman. Possibilities of the future
i F o r a sim ilar m ovem ent of G erm an in d u s try , see p. 72, above.

268

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

269

growth of the company town are pointed out, “ whether you buy to
hold for an increase, or to build a home to live in or to rent.” The
buyer is lured by “ $3 cash and $2 per week until paid, no interest,
no taxes for three years.” 1
While in general increased land values in company towns have not
been reflected in increased rents, such increases in land values have
naturally occurred in some company towns. An instance in point is
Morgan Park, Duluth, Minn., which has been developed by the United
States Steel Corporation. The land was originally virgin land, having
only an agricultural value. In 1906 the assessed value of 1,250 acres
within the area purchased by the steel corporation was $29,500, or
$23.60 per acre, according to the records of the office of the tax
assessor of the city of Duluth, Minn. As land is assessed by the city
at 40 per cent of its “ full and true” value, the value per acre at that
time was probably about $59. Of the approximate 190 acres in the
town site of Morgan Park, the 141 acres which had been improved by
the end of 1916 have been assessed at $720 per acre; and the addi­
tional 49 acres improved in 1917 have been assessed at $1,000 per
acre. This would make the average assessed value of the actual 189
acres for which the figures apply about $791 per acre, or a “ full and
true” value of $1,975 per acre at the present time. This is $375,250
for the whole tract of 190 acres comprising the town site. However,
it should be stated that thus far much of this value is the result of
improvements put in by the Morgan Park Co.
Private investigators have shown quite definitely in two company
towns—Gary, Ind., and Lackawanna, N. Y.—which were intensively
studied for that purpose the amount of “ unearned increments”
which have been created in those towns.2
In Gary, Ind., the price paid for land per acre averaged about $814.
The total and final cost, therefore, of the 9,000 acres bought there
by the United States Steel Corporation may roughly be stated at
$7,200,000. The area in Gary which was not bought by the corpora­
tion was 9,749 acres. A liberal estimate of $75 per acre in 1906 has
been placed upon this less desirable land. The total cost of the latter
is therefore $731,175. This would make the value of the total land
area of Gary approximately $8,000,000 at the time of the purchase by
the Steel Corporation in 1906. The value of this land in 1915, as
1 On th e other h an d , it is only fair to p o in t out th a t in th e large m ajority of eases speculation in land has
not as yet generally developed in com pany tow ns because of th e prevailing practice of employers to rent
and n o t to sell land an d houses to th eir w orkm en. R ents are generally low a nd have n o t been increased
for a period of years; in fact in some instances it w ould have been desirable to increase rentals a nd to im ­
prove the surroundings and general m aintenance of th e pro p erty w ith th e increased return.
2 The studies in question were m ade b y special investigators for th e New Y ork com m ittee interested in
conserving lan d values for com m unity purposes. One of these studies has been printed: The U nearned
Increm ent in G ary (In d .), b y R obert M urray H aig. (Pol. Science Q uart. N. Y . Colum bia U niversity
Press, March, 1917.)

5 4 5 9 1 ° — 18------18


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

ascertained from its assessed valuation, which is about 20 per cent
of its actual value, was about $40,020,725. The value of the steel
plant yards should be deducted as the steel company can not realize
any increase in the value of these. Thus the value of the town site
of Gary, Ind., in 1906 was $6,414,455 and its selling value in 1915,
$33,455,900, an increase of $27,031,445.
To arrive at the unearned increment, however, certain deductions
must necessarily be made for values which have been created or
added to the land since 1906. These include (1) expenses of layout
and administration by the Gary Land Co., (2) advance payment
of taxes on nonrevenue producing property, and (3) local improve-’
ments. Interest has not been deducted because the ground rents
have been assumed to represent a fair return upon the original
outlay; and another factor not considered is the effect of the
price level upon the increment. Some of the increase has been due
to a decline in the purchasing power of money, the wholesale price
index of the Bureau of Labor Statistics1 standing at 88 in 1906 and
100 in 1915, or an increase of 14 per cent. Considering all these
allowances, with the exceptions noted, a deduction of $5,225,713 is
made by the investigator from the apparent increase in value of
$27,031,445. “ The amount of the increment which might have
been conserved is thus found to be $21,805,732,” an amount which,
it is concluded, errs on the whole in the direction of reducing the
unearned increment.
At Lackawanna, N. Y., near Buffalo, where the Lackawanna2
Steel Co. created a new city on vacant land in 1899, the land was
worth not over $770,000, but the steel company had to pay $1,407,000
for the 1,438 acres which it purchased. The remaining 2,414 acres
(also within the city site) were estimated as worth $1,279,000.
The total value then was $2,686,000. If the plant land on which
no speculative value can be realized is excluded the value was
$1,983,000. Adding assessments for local improvements and other
real additions to its value, the total value in 1899 was $2,228,000.
Lackawanna is a city of over 14,000 population and the value of
the town site land is now estimated at $9,016,000, leaving a net
increment of $6,788,000, which has gone to private owners and
speculators.
Thus company controlled towns, no less than all other cities, have
suffered from the land speculator who withholds land from the
market until such time as an effective demand shall give him the
1 B ulletin No. 200, p. 13.
2 A M em orandum to th e Steel Corporation: A P la n for th e Conservation of F u tu re Increm ents of L and
V alues a t O jibw ay a n d for Conversion of th e Same in to A dditional R evenues for C om m unity Purposes.
For p rivate circulation. T he ch airm an of th is com m ittee is Law son P u rd y , head of th e d e p artm e n t of
taxes and assessm ents, N ew Y ork C ity, a n d its secretary is R ich ard S. C hilds, general m anager th e Bon
A m i Co., New Y ork C ity. T his m em o ran d u m has been used b y th e B ureau of L abor S tatistics by
special perm ission.


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MONTHLY BEVIEW OF THE BUBEAU OF LABOB STATISTICS.

271

price he asks; and the population of the company town again faces
the problem which it faced within the congested city—namely,
how to prevent or minimize the dissipation of land values to private
land owners, and how to secure the greatest amount of social return
in terms of health and recreation and better community surroundings.
PL A N S FOR T H E D IV E R SIO N OF LA ND V A LD E S FO R COMMUNITY PU R P O SE S.

In order to secure the ends in question it is necessary to devise
new methods which have not yet been tried out in housing enter­
prises except to a limited extent. These methods, however, involve
no new principles as will be noted from the description of them.
Improved company housing.*—Direotly, or indirectly through a
subsidiary or controlled company, the employer acquires land or
uses plant land, and constructs houses for his employees. He has
the advantage of securing land in outlying districts at its agricul­
tural value. Control of his labor, stabilizing it, and securing a
steady supply of labor, and not speculation are to be the objects
sought. There is also the advantage of wholesale operations. The
employer may rent or sell his houses. If the employer rents his
houses he may keep his rents moderately low or he may charge
average prevailing rentals and use his returns to improve his property
and secure certain social and community benefits to his employees.
If he sells, he may do so at cost, plus interest, and on favorable
terms, thereby attracting his employees. He may prevent easy
speculation by a system of selling for restricted usages, recognized as
cumbersome, however, and difficult of execution. Only by a sys­
tem of permanent ownership or control, adoption of the principle of
limited return, and application of rentals to community purposes
will he be able to divert the increases in community values to the
benefit of the community.
But company housing has this disadvantage, that it gives no con­
trol to, or places no responsibility upon, the members of the com­
munity. The bureau in its investigation discovered only one em­
ployer who proposed giving the employees a measure of control in
the housing undertaking. That employer suggested the placing of a
representative of the men on the board of trustees of the fund which
the company proposed to provide for the construction and sale of
houses to its men. But such representation obviously is not suffi­
ciently far-reaching to effect the objects under discussion here.
Perhaps in the long run the only way in which company develop­
ment can be successfully made to conserve all land values for the
community is by adoption of the method sketched by the committee
on new industrial towns, presented as a memorandum to the Steel
Corporation and suggested for its guidance in the development of its


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

new steel town of Ojibway, Canada.1 The plan is of such interest as
to make it seem worth while to present it in detail.
When the time comes for admitting the private builders and open­
ing the lots to acquisition and settlement, the Steel Corporation, it is
proposed, should organize the “ Ojibway Land Co./’ select its first
board of directors, turn over to it in convenient installments the title
to the land (not including plant land) and all the uncompleted con­
tracts for streets, sewers, etc., and accept in return the land com­
pany’s serial mortgage bonds, equivalent to the cost of the land and
improvements, up to date, plus a small profit, say 3 per cent, inas­
much as the purpose of the steel company is primarily to secure labor
and not to make a profit. The land company would then make up
its tentative rental price list for the lots and would make the following
ANNOUNCEM ENT.
No la n d w ill b e sold. T itle w ill re m a in in th e la n d co m p a n y a n d b e h a n d le d as a
c o m m u n ity in v e s tm e n t. W h en th e c ity is w ell e sta b lish e d , th e b oard of d irecto rs
of th e la n d co m p a n y w ill b e selected b y p o p u la r e lec tio n .
A n y resp o n sib le p erson m a y se le c t a n d b ecom e th e te n a n t of a n y lo t or lots in
O jibw ay n o t p re v io u sly ta k e n a n d a re n ta l w ill b e charged p ro p o rtio n a te to th e v a lu e
th ereo f a n d ro u g h ly e q u iv a le n t to w h a t o th e r persons a re k n ow n to b e w illin g to p a y .
R e n ta ls w ill b e re a d ju sta b le from tim e to tim e lik e ta x v a lu a tio n s, w ith d u e co n ­
sid e ra tio n of th e co m p letio n of local im p ro v e m e n ts, th e g row th of th e n eighborhood,
th e p o p u la tio n of th e c ity , e tc ., w ith th e in t e n t of ch arg in g w h a te v e r th e leaseholds
are w orth a n d of securin g for th e c o m m u n ity , as re p re se n te d b y th e la n d co m p an y ,
a p p ro x im a te ly a ll th e “ econom ic g ro u n d r e n t . ” T h e re a d ju stm e n ts of re n ta l w ill
b e m a d e u n ifo rm ly a n d sc ie n tific a lly on a frontage basis, a n d no le a s e h o ld e r’s re n t
w ill b e raised or d ecreased e x c e p t as p a rt of a g en eral re a d ju s tm e n t affectin g a ll th e
la n d in th e neighborhood th e v a lu e of w h ic h h as a lte re d , a n d a p p lic a b le im p a rtia lly
to h is n eighbors as w ell as to him self.
T hese g round leases w ill b e for five y ears on b u sin ess stre e ts a n d 15 y ears on resi­
d e n tia l streets, th e leaseholder, h is h e irs, or assigns h a v in g p e rp e tu a lly th e p referen ce
in renew als. B u ild in g s on su ch leaseholds w ill n o t “ fall i n ” or b ecom e th e p ro p e rty
of th e la n d co m p an y , as is th e u su a l p ro ced u re in la n d leases if th e le aseh o ld er d e ­
clin es to renew .
If th e leaseholder d eclin es to ren ew , th e la n d co m p a n y m a y allow him to re m a in
in possession u p o n p a y m e n t m o n th b y m o n th of th e n e w ly esta b lish e d g round re n ta l
u n til a new lessee is found w ho w ill ta k e o v er th e b u ild in g a n d p a y its fair m a rk e t
v a lu e or a 6 p e r c e n t re n ta l th e re o n , w h e re u p o n th e leaseh o ld er m u s t v a c a te .
If th e leaseh o ld er d e c lin e s to ren ew , a n d v acates, th e la n d c o m p a n y m a y offer th e
la n d a n d b u ild in g to g eth er for a five-year (or 15-year) lease a t n o t less th a n th e re g u la r
la n d re n t p lu s 6 p e r c e n t of th e fair m a rk e t v a lu e of th e b u ild in g (said v a lu e b ein g
su b je c t to a n a p p ro p ria te a n n u a l allow ance for d e p re c ia tio n ), th e ow ner m e a n w h ile
bein g free to find a te n a n t a t b e tte r te rm s if h e can before th e la n d co m p a n y finds one
a t th e fixed ra te . S u ch a te n a n t w ill b e p le d g e d to p a y th e la n d re n t to th e la n d
c o m p an y d ire c t a n d th e b u ild in g r e n t d ire c t to th e ow ner. T h e ow ner w ill b e free
1 A M em orandum to th e Steel Corporation: A P la n for th e Conservation of F u tu re In crem en ts of L and
Values a t Ojibway and for Conversion of th e Same in to A dd itio n al R evenues for C om m unity Purposes.
F or priv a te circulation.


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to dispossess th e te n a n t for n o n p a y m e n t of th e b u ild in g re n t, a n d th e te n a n t, alth o u g h
no t th e re a fte r o ccu p y in g th e prem ises, w ill s till h e lia b le to th e la n d c o m p a n y for
th e la n d re n t u n til th e lease ex p ires. T h e la n d c o m p an y w ill also b e free to dispossess
th e te n a n t for n o n p a y m e n t of la n d re n t a n d th e te n a n t w ill still b e lia b le to th e ow ner
of th e b u ild in g for th e b u ild in g re n t till th e lease expires.
W h ile th e p ro p e rty is w ith o u t a leaseholder, th e la n d c o m p an y w ill re c e iv e no
ground re n t a n d th e ow ner no in co m e from , or use of, th e b u ild in g , a n d th e y th u s
becom e p a rtn e rs in th e ir d esire to find a new te n a n t. T h e la n d c o m p an y also re ta in s
th e o p tio n of p u rc h a sin g th e b u ild in g of a leaseh o ld er w ho d ec lin e s to ren ew a t its
m a rk e t v a lu e as im p a rtia lly d e te rm in e d b y a fair ju ry of th re e arb itra to rs, a n d re n tin g
or resellin g it.
I t w ill th u s b e seen t h a t no m a n w ho b u ild s in th e c ity c a n h a v e a n y h o p e of profit
or fear of loss in th e changing of v a lu e t h a t th e lapse of tim e m a y b rin g to h is la n d .
H e w ill p a y a re n t g re a te r th a n o rd in a ry tax es, a re n t so m ew h at less, how ever, th a n
th e a m o u n t h e w ould otherw ise p a y in tax es, m ortgage in te re st, a n d in te re s t on h is
e q u ity c o m b in ed . H e w ill n o t h a v e to raise a n y p rin c ip a l to in v e s t in lan d .
H e b en efits fu rth e r b y th e fa c t th a t n o n e of h is g round re n t goes to b a n k s a n d p riv a te
ca p ita l, b u t all goes in to th e la n d c o m p a n y ’s tre a su ry to b e re e x p e n d e d for th e b e n e fit
of h im self a n d h is fellow tow nspeople.
T h e la n d co m p a n y w ill ta k e no profits a n d a ll th e in co m e w ill b e u sed in som e w ay
for th e b e n e fit of th e peo p le liv in g in th e la n d c o m p an y tra c t.
T h e rig h t is reserv ed of e n a c tin g new ru le s from tim e to tim e controlling th e use
of th e la n d in th e in te re s t of th e g en eral p u b lic w elfare a n d of th e p ro te c tio n of th e
lan d values.
T h e re rem ain s th e v ita l q u e stio n of how w e can m ak e i t safe for a te n a n t to e re c t
costly p e rm a n e n t b u ild in g s. O b v io u sly if th e c h a ra c te r of a n eighborhood changes
ra d ic a lly b y reason of th e grow th of th e c ity , a b u ild in g m a y becom e obsolete in th a t
location a n d an e n c u m b ra n c e , fit o nly to b e to rn dow n to m ak e w ay for a ty p e of
b u ild in g m ore su ite d to th e a lte re d d e m a n d s of th e neighborhood.
T h is difficulty w e m e e t b y careful c ity p la n n in g , a n d b u ild in g re g u la tio n w h ic h so
d im in ish es th is h a z a rd t h a t th e re w ill b e less danger of su ch p re m a tu re obsolescence
of b u ild in g s in th is c ity th a n th e re is u n d e r o rd in ary co n d itio n s elsew here.
W e re s tric t e v e ry s tre e t as to th e use of th e la n d for stores, factories, or residences,
resp e c tiv e ly , and as to th e h e ig h t of b u ild in g s, p e rc e n ta g e of th e lo t t h a t m a y be
covered, a n d m in im u m v a lu e of th e b u ild in g t h a t m a y b e e re c te d th e re o n . T h u s
th e m a n who b u ild s a hom e w ill know p o sitiv e ly t h a t no stores or factories can in v a d e
his neighborhood, no c h e a p e r houses can com e in to spoil h is stre e t, no m ansions w ill
com e in to in fla te h is re n ta l, no h ig h a p a rtm e n t w ill b e allow ed to c u t off h is lig h t.
T h e m a n w ho b u ild s a store can m ak e sure t h a t h e is or is n o t in th e p a th of re ta il
ex p an sio n , according to h is preferen ces a n d am b itio n s.
T h u s w e p la n to av o id congestion a n d th e scrap p in g of b u ild in g s before th e ir tim e .

The essential features of this method of procedure are: (1) No sale
of land; (2) title by occupancy only through a system of ground
leases; (3) periodical adjustment of values of leases to keep pace
with demand for favorable sites as population increases; (4) use of all
rentals for the maintenance of the property and community improve­
ment; (5) application of the principles of classification of land for
special uses and of building restrictions in order to maintain the
character of the different sections (business and residence) of the
community. All the principles here involved, it is pointed out, are
those familiar to real estate operators, except that perhaps of periodi
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cal valuation of leases. This principle, however, is now being sug­
gested in the water-power leasing bill before Congress, and would
seem to present no great difficulties of application.
The Massachusetts Homestead Commission in its first annual
report of 1914 described methods of housing work which would
embody the principles of limited dividend, wholesale operations, and
participation by the resident. A special committee was appointed
and this committee outlined four methods of procedure, each method
embodying one or more of these principles. The two methods
proposed by the committee which embody the principles of limited
dividend or collective participation by the resident or both may be
here described.
Improved housing company.—The limited dividend company, here
termed as noted, has been known in this country and elsewhere for
a number of years. It has been the practice to limit dividends to
5 per cent and to distribute any surplus for community development
after ordinary maintenance and depreciation have been provided
against. These companies are organized as ordinary stock companies
except in the matter of limiting dividends. Speculative profits are
eliminated. Houses are usually rented only; if sold, of course, the
speculative element is again introduced. The disadvantages of such
companies have usually been that tney have had to buy land already
at a high value with small prospects of sufficient rents to leave any
over for community development; neither investment nor speculative
capital has been forthcoming because of a limitation of dividends;
and the residents, unless they were stockholders, have had no voice
in the affairs of the company. There has been lacking interest and
responsibility on their part.
Copartnership homes company.—This form of organization is an
application of the financial features of the English Garden City
movement to America. The description of this form of organization
as given by the Massachusetts committee 1 is presented in full:
T h e o b je c t of th is co m p a n y w ould b e to prom ote th e c o o p erativ e ow nership of hom es
b y a m e th o d fav o rab le a lik e to re s id e n t a n d in v e sto r. S u ita b le la n d , accessib le to th e
c ity , w ould b e a c q u ire d , a n d su b s ta n tia l, sa n ita ry , a n d c o n v e n ie n t hom es w o u ld b e
b u ilt. T h e d is tric t w ould b e p la n n e d along a d v a n c e d g a rd e n su b u rb lin es, w ith
re stric tio n of th e n u m b e r of houses p e r acre a n d provision for a llo tm e n ts for g ardening,
c o m m u n ity p lay g ro u n d s, a n d o th e r social a c tiv itie s . E conom ies c o u ld b e effected
th ro u g h w holesale op eratio n s a n d th e e lim in a tio n of sp e c u la tiv e profit.
A p ro sp e c tiv e re s id e n t w ould b e a p p ro v e d a n d w o u ld ta k e u p a t le a s t tw o shares of
com m on stock. H e w ould p a y a reaso n ab le re n ta l a n d share all su rp lu s profits. D iv i­
d e n d s on re n t a n d com m on stock w o u ld b e c re d ite d in com m on stock u n til th e v a lu e
of 20 shares is re a c h e d , o u tsid e c a p ita l b e in g g ra d u a lly re tire d . T h e co st of re p a irs
w o u ld b e d e d u c te d from th e tw e lfth m o n th ’s r e n t a n d th e re m a in d e r re m itte d , th u s
fu rth e r encouraging care in th e use of p ro p e rty . T h e re s id e n t co u ld in v e s t h is savings
i

M assachusetts: F irst a n n u al report of th e H om estead Commission, 1914.


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in th e c o m p an y stock a t 5 p e r c e n t. O w nership b e in g com m on, n o t in d iv id u a l, h e is
secu red from loss if h e h as to m ove aw ay.
C ap ital is p ro v id e d a t a low ra te , d u e to w holesale operations, th e se c u rity of collec­
tiv e ow nership, a n d th e low ra te of d e p re c ia tio n re su ltin g from th e g re a t in c e n tiv e to
care for th e p ro p e rty .
C om m on stock m a y h e d raw n u p o n for arrears or rep airs d u e
to n eg lec t.
T h e d irecto rs w o u ld u ltim a te ly b e e le c te d b y com m on stockholders, b u t p referred
stock w ill b e re p re se n te d u n til com m on stock is a b o u t one-half p a id u p . Shares
should b e 500 com m on a n d 1,500 p referred , of $100 each. C om m on stock should b e
p a id n o t less th a n 10 p e r c e n t u p o n a llo tm e n t a n d in s ta llm e n ts of $1 p e r m o n th p e r
share. D iv id e n d s sh o u ld n o t ex ceed 5 p e r c e n t. P re fe rre d stock should b e p a id in
full, d iv id e n d s n o t to e x ceed 5 p e r c e n t, c u m u la tiv e . I t m ay b e re tire d a t p a r on a
y e a r’s n o tice. F irs t m ortgages a t 5 p e r c e n t w ill b e p la c e d on c o m p le te d houses u p
to 60 p e r c e n t of th e ir v a lu e . A reserve fu n d w ould b e esta b lish e d a fte r p referred
d iv id e n d s are p a id a t th e ra te of 1 p e r c e n t p e r a n n u m u n til i t e q u als th e v a lu e of th e
stock. W ith 2,000 shares su b scrib ed , 250 houses can b e b u ilt. T h e c o m m ittee should
secure optio n s a n d call a m eetin g w h en a b o u t one-fifth is su b scrib ed .

The Massachusetts committee points out the following advantages:
To th e re sid e n t: 1. H e gets a hom e a t a re n ta l n o t h ig h er a n d p ro b a b ly less th a n
elsew here, a n d is encouraged to ta k e care of i t b y h a v in g h is tw e lfth m o n th ’s re n t
re m itte d , less th e cost of repairs.
2. H e gets a house w ith a g ard en a n d p le n ty of fresh air, a house w ell b u il t a n d
sa n ita ry , w ith som e in d iv id u a lity , in w h ic h h e can ta k e p rid e . H e liv e s in a n e ig h ­
borhood w h ere all are e q u a lly desirous of k e e p in g u p th e p ro p e rty .
3. H e shares in th e econom ies effected th ro u g h w holesale b u y in g of la n d a n d m a ­
terials, b u ild in g houses in n u m b e rs, efficient m an ag e m en t, saving in legal expenses,
a n d th e e lim in a tio n of sp e c u la tiv e profit.
4. H e can in v e s t h is savings in th e c o m p an y a t 5 p e r c e n t.
5. T h e u n e a rn e d in c re m e n t goes to b e n e fit each re s id e n t m em b er, for w ith increase
in v alu es h e w ill g e t e ith e r a d iv id e n d on re n t or re n t below m a rk e t v a lu e .
6. H e secures p ra c tic a lly all th e su rp lu s profits a fte r fixed charges are p a id in th e
form of a d iv id e n d on h is re n t, w ith c re d it in com m on stock u n til h is to ta l holdings
e q u a l 20 shares, a fte r w h ic h th e y are p a id in cash.
7. H e liv es in a social atm o sp h ere , w ith n ew a n d v ita l in te re sts a n d co lle c tiv e frie n d ­
ships in th e c o m m u n ity . H e h as a m u tu a l in te re s t in com m on re c re a tio n fac ilitie s—
'p la y g ro u n d s, h alls, etc.
8. O w nership is com m on, n o t in d iv id u a l, th u s p ro v id in g se c u rity from th e risk of
loss if a re s id e n t has to leave, as h e h as no lia b ility b e y o n d th e shares h e holds, on w h ic h
h e m a y c o n tin u e to re c e iv e d iv id e n d s or w h ic h h e m ay dispose of [th e c o m p an y
ag reein g to p u rc h a se all shares].
9. C ap ital is p ro v id e d a t a ch e a p e r ra te th a n b y a n y o th e r sound system , d u e larg ely
to w holesale operations. O u tsid e c a p ita l is g ra d u a lly re tire d b y savings.
To th e in v esto r: 1. T h e c o m p an y b y co lle c tiv e ow nership a n d re s p o n sib ility offers
an e x c e p tio n a l se c u rity .
2. T h e g reater th e su rp lu s th e less th e risk , a n d i t is to th e in te re s t of th e resid en ts,
w ho re c e iv e su rp lu s profits, to ta k e care of th e p ro p e rty , th e re b y lessening d e p re c ia ­
tio n , to find te n a n ts for e m p ty houses, a n d to p a y re n t p u n c tu a lly . B ritis h a n d
c o n tin e n ta l e x p e rie n c e proves th a t th is in d iv id u a l in te re s t e q u als in v a lu e 1 p e r c e n t
p e r a n n u m on th e c a p ita l.
3. T h e com m on stock form s a fu n d on w h ic h th e c o m p an y c a n d raw if necessary for
te m p o ra ry arrears in re n t, or re p a irs d u e to n eg lec t, th u s e lim in a tin g su c h losses from
th e ite m s ch arged ag a in st preferred stock, w h ic h th e o u tsid e in v e sto r holds.


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The financial scheme as outlined is as follows:
1. T h e business of th e c o m p an y sh all b e c a rrie d on b y a bo ard of directors, u ltim a te ly
to b e ele c te d b y th e ho ld ers of com m on stock; b u t u n til th e com m on sto ck is a b o u t
one-half p a id in th e ho ld ers of p referred stock sh all b e e n title d to a n e q u ita b le re p re ­
se n ta tio n (see M em orandum ).
2. T h e au th o riz e d c a p ita l stock of th e c o m p an y sh all b e $200,000. T h e v a lu e of
e ach share shall b e $100. T h e re sh all b e 500 shares of com m on stock a n d 1,500 shares
of p referred stock.
3. C om m on stock sh all b e p a id for a t a ra te of n o t less th a n 10 p e r c e n t u p o n a llo t­
m e n t, a n d th e re m a in d e r in in s ta llm e n ts of n o t less th a n $1 p e r m o n th p e r share, u n til
fu lly p a id u p , a n d shall b e e n title d to d iv id e n d s n o t to ex ceed 5 p e r c e n t, p a y a b le
q u a rte rly , a fte r all o th e r obligations of th e co m p a n y are p a id . D iv id e n d s sh all b e
a p p lie d as p a y m e n ts on stock u n til th e e q u iv a le n t of 20 shares is fu lly p a id u p . N o t
m ore th a n 20 shares sh all b e h e ld b y a n y one person. S hares sh all b e tra n sfe ra b le ,
su b je c t to a p p ro v al b y th e d irecto rs of th e co m p an y .
4. P referred stock sh all b e p a id in full, n o t less th a n 10 p e r c e n t a t th e tim e of su b ­
scrip tio n , a n d 30 p e r c e n t each su cceed in g m o n th th e re a fte r, a n d sh all b e e n title d to
d iv id e n d s as s ta te d on th e certificates, b u t in no case ex ce e d in g 5 p e r c e n t c u m u la tiv e ,
p a y a b le q u a rte rly , o u t of n e t earnings. H o ld in g s a re n o t lim ite d a n d a re tran sferab le.
P referred stock m a y b e re tire d in a n y p a r t a t p a r on a y e a r’s n o tic e b y th e d irecto rs
of th e com pany.
5. F irs t m ortgages a t 5 p e r c e n t w ill b e p la c e d b y th e c o m p a n y as ra p id ly as houses
are c o m p leted , covering 60 p e r c e n t of th e v alu e.
6. A fte r all in te r e s t on m ortgages, e tc ., a n d d iv id e n d s on p re fe rre d sto ck are p a id
th e co m p an y s h a ll e sta b lish a reserv e fu n d a n d sh a ll p a y in to i t a t th e ra te of 1 p e r
c e n t of th e o u ts ta n d in g c a p ita l sto ck p e r a n n u m , u n ti l i t e q u a ls th e v a lu e of th e stock.
W ith th e to ta l issue of 2,000 sh a re s ta k e n u p a b o u t 250 houses ca n b e b u ilt. As
soon as su fficien t su b s c rip tio n s are re c e iv e d o p tio n s w ill b e se c u re d on su ita b le estates.
T h e first a n n u a l m e e tin g w ill b e c a lle d w ith in one m o n th from th e tim e t h a t $15,000
on stock is p a id in a n d a to ta l of $40,000 su b sc rib e d .
T h e c o m p an y w ill m ak e i t p ra c tic a b le for a fa m ily in m o d e ra te c irc u m sta n c e s to liv e
in a h e a lth fu l h o m e a n d in a ttr a c tiv e su rro u n d in g s a t th e le a s t cost a n d to m a in ta in
i t in p a r t th ro u g h th e use a n d sale of g a rd e n p ro d u c ts r a is e d on a d ja c e n t la n d . T h e
u n d e rsig n in g c o m m itte e sh o u ld in v ite su b s c rip tio n s to com m on or preferred stock.
A form for su b s c rip tio n s sh o u ld ac c o m p a n y th e pro sp ectu s.
T he b u sin ess of th e c o m p an y sh a ll b e carried on b y a b o ard of five directors, w ho
sh a ll be e le c te d a n n u a lly a t th e a n n u a l m e e tin g b y th e h o ld ers of com m on stock, each
h o ld e r b e in g e n title d to one v o te, p ro v id e d , how ever, t h a t no h o ld e r of com m on
stock sh a ll b e e n title d to a v o te u n ti l h e h a s fu lly p a id for one sh a re of com m on stock,
or a n e q u iv a le n t v a lu e on tw o or m ore sh ares; a n d p ro v id e d , fu rth e r, t h a t if a t an y
a n n u a l m e e tin g t h e to ta l a m o u n t p a id in on com m on sto ck b y com m on sto ckholders
e n title d to v o te is less th a n fiv e -th irtie th s of th e to ta l a m o u n t p a id in on p referred
stock, th e h o ld ers of p re fe rre d stock sh a ll be e n title d to e le c t one of th e five directors;
if su ch to ta l is less th a n fo u r-th irtie th s th e y sh a ll b e e n title d to e le c t tw o d irecto rs
a n d if less th a n th r e e -th irtie th s , th r e e d irecto rs; if less th a n tw o -th irtie th s, four d ire c ­
tors; a n d if less th a n o n e - th ir tie th , all five directo rs. I n su c h e le c tio n e ach h o ld e r of
p re fe rre d sto ck sh a ll b e e n title d to one v o te for e v e ry fu lly p a id sh are of p referred
stock t h a t h e h o ld s .”

Government control or ownership.—I t is quite evident that the
Government, municipal, State, or Federal, may either substitute
itself for any one of the controlling organs in the above forms of


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housing organization or it m ay superimpose itself over them as a
controlling or fostering in stitution; th a t is, i t m ay either carry on
housing work itself directly, or i t m ay merely assist or direct, lend
funds, supervise the controlling agencies and create the necessary
rules and regulations to secure any or all of the desired ends in rela­
tion to the b e tte r housing of the workingman. Finally, the Govern­
m ent itself m ay merely initiate the housing work and subsequently
tu rn its conduct over to a company or to the com m unity to continue
i t in the interests of the comm unity.

AGRICULTURAL CAMP HOUSING.
BY LEIFUR MAGNUSSON.

Lack of farm labor and the need of organizing to the best advan­
tage the existing supply for war emergency purposes have emphasized
employment conditions on farms, particularly housing conditions.
Especially is there great lack of practical information as to methods
of housing the labor supply so essential at the harvest seasons.
Persons actually in touch with the situation are convinced that
much of the trouble in holding labor on large farms and plantations
is due to a lack of proper housing for them, while those who have
adequately housed their tenants or seasonal labor are convinced of
the advantages gained.1 The California Commission of Immigration
and Housing has determined in connection with the riot which oc­
curred on the hop ranch near Wheatland in that State on August 3,
1913, “ that probably the most important contributory factor was the
poor housing and sanitary accommodations afforded the workers.” 2
Because of the larger individual farms, and because of their scat­
tered location and consequent isolation, the problem of transporting
farm labor from place to place and of holding a seasonal labor
supply has been aggravated in this country. Furthermore, there
has been developed no practice in village or community set­
tlements in relation to agriculture. The rural towns and vil­
lages of this country are mainly small trading centers for the
active farmers and residence centers for the retired farmers. The
villages of this country are not communities of actual farmers and
farm laborers who work from the village as a center as is frequently
the case in Europe. In the latter case housing is much simplified
as compared with the difficulties encountered under present condi­
tions of farming in the United States. I t is only in certain locali­
ties in the South that the farmer’s family lives in the city or town
1 Cf. W orld’s W ork, New Y ork, vol. 27, Dec., 1913, p p . 230-235.
2 A dvisory p a m p h le t on cam p san itatio n and housing, Commission of Im m igration a nd H ousing of
California [4th rev. ed.], p. 5. San Francisco, 1915.


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and maintains its farm as an adjunct to the city or town life.1 There
has, therefore, as a rule been very little coordination or dovetailing
of town and rural occupations. Hence, there has been necessary
an exceptionally large movement of migratory labor in this country
to supply the seasonal demands of agriculture.
Aside, principally, from what has been done by the State of Cali­
fornia, through its Commission on Immigration and Housing, and by
the Public Health Council of the State of New York, little considera­
tion has been given to the proper care and housing of this seasonal
migratory labor. Several States, it may be noted in passing, have
made investigations as to labor camp conditions, all of which in­
vestigations confirm the existence of deplorable conditions in such
camps2—lack of sanitation, poor food, or lack of variety in food;
frauds in commissary charges, scrip payment of wages, withholding of
wages due, and other similar practices. The problem of camp regu­
lation and inspection has been almost wholly neglected.
E SSE N T IA L N E E D S OF A LABOR CAMP.

Besides adequate wages and reasonably short hours of labor,
the points to be considered in securing proper conditions of labor in
labor camps are: (1) Clean and wholesome food served in sanitary
mess rooms; (2) decent individual sleeping places; (3) washing,
laundry, and bathing facilities; (4) medical aid; and (5) provision for
recreation.
Different circumstances will determine how to meet these essential
requirements of every properly conducted labor camp. Considera­
tion should be given to the racial type of labor to be employed and
housed; to differing climatic conditions; and to the character of the
country—i. e., topography—where the camp may happen to be
located. Thus, Greek and Italian labor may require different han­
dling from Negro labor. Camp construction in the North will differ
essentially from that in the South, and, furthermore, different types
of camps may be necessary in the same part of the country for differ­
ent seasons of the year. The topography of the country may make
it practicable to use a portable style of camp house if the character
of the work to be done is of such nature. Nearness of villages in the
locality may render possible some form of billeting of the labor sup­
plying the villages in the locality where, for instance, the harvesting is
being carried on. It may be possible under such circumstances to
make use of local transportation facilities to move the labor from the
1 Holmes, G. K ., M ovement from city a n d tow ns to farms (Y ear Book of th e D epartm ent of A griculture,
1914, p. 273). ■
2 A mong th e States w hich have m ade investigations are California, M innesota, Ohio, New Y ork, U tah,
a n d W isconsin. A som ew hat broad and com prehensive investigation of m igratory labor a nd labor cam p
conditions was m ade b y P . A. Speek for th e Commission on In d u strial Relations, 1913-1915. This report
is not available, how ever, in pub lish ed form.


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village to the surrounding country where the harvest work is going on.
This is the method of the Y. M. C. A. boys’ camps and is described
below. Furthermore, there is no reason why it should not be possible
for the farmer to make use of old or abandoned buildings, repairing
and remodeling them in such a way as to make them quite habitable,
as was done by the peach farmers in Nassau County, N. Y., during
the season of 1917.1
METHODS OF ORGANIZATION.

No problem in organization is present in the housing and caring
for the agricultural laborer on the small farm wher^ one or two hands
in addition to the family of the owner operate the farm. Under such
circumstances the farm help is accommodated as a part of the farm
operator’s family. Problems of organization arise when a large
supply of labor is needed, either continuously, as on the large plan­
tations of the South and Southwest and on the large ranches of the
Middle and Far West, or seasonally, as in connection with certain
crops in all localities.
The seasonal labor recruited in large groups may be organized in
any one of the following ways: (1) Under direction and control of the
employer or farm operator who may himself provide the necessary
accommodations, and supply thefood—inaword, care for and maintain
the camp and its necessary adjuncts; (2) contracting out to a lessee
who may enter into some form of agreement with the owner benefited
to supply all or part of the necessary equipment, and who acts as
manager on his own account; (3) philanthropic form of manage- ’
ment and operation through a military form of organization; (4)
billeting of laborers in villages and use of existing means, or pro­
vision of new means, of transportation to the place of work;2 (5)
cooperative organization and care of laborers by the village members
themselves acting through some constituted form of organization of
their own.
The types of houses or camp accommodations which may be pro­
vided under any one of the forms of organization adopted may be
of several kinds: (1) Portable camp structures; (2) tents; (3) bunk
houses of either permanent or temporary structure; (4) barracks; (5)
individual dwelling houses of various kinds; and (6) old or abandoned
buildings remodeled in any of these forms. The type of camp accom­
modations adopted will vary with the circumstances or purposes for
which they are desired. Thus, portable camps are most suitable
where it is necessary to move a labor gang about from place to place.
1 Cf. New Jersey S tate A gricultural College, E xten sio n B ulletin, December, 1917 (vol. 1, No. 18) New
B runsw ick, N . J.
2 A radius of 7 or 8 m iles m ay be w orked in th is fashion b y th e use of autom obile tru c k transportation.
(Convict labor cam ps for road w ork, b y J. E . Pennybacker. W ashington, 1916. U . S. D ep artm en t of
A griculture, B ulletin No. 414, p. 66.)


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Portable camps also have greater durability than tents and offer greater
protection from the weather.1 Tents are adaptable under the same
circumstances and also for summer use. Bunk houses in all cases are
somewhat permanent and substantial structures.2 Barracks may be
of various kinds, consisting either of long rows, divided into one
or two room partitions, or large commodious buildings in which
individual sleeping cots instead of bunks in tiers may be placed.
Dwelling houses of a permanent character are, of course, the most
desirable, but are usually adaptable only where labor is to be perma­
nently employed, as on large tenant farms.
SA N IT A R Y S T A N D A R D S FOR LABOR CAMPS.

Sanitary standards for labor camps and similar work places have
been worked out by various authorities. Perhaps the most exten­
sively quoted and used are those recommended by the California
Commission of Immigration and Housing.3 The United States Recla­
mation Service has followed these fairly closely for its construction
camps on the reclamation projects.4 The Public Health Council of
the State of New York has elaborated a sanitary code, one chapter of
which is devoted to camp sanitation,5and recently the divisional com­
mittee on village and public sanitation of the National Committee on
Welfare Work, which is a subcommittee of the committee on labor of
the advisory commission of the Council of National Defense, has out­
lined certain minimum standards to be followed in the laying out of sear sonal labor camps and other industrial housing developments in rural
and semirural districts.6 A member of the staff of the United States
Public Health Service has also covered the same field,7while the Chief
of the Division of Road Economics of the Office of Roads (Depart­
ment of Agriculture) has made an extensive study of convict-labor
camp organization and maintenance.8
More recently the State of Ohio has made an investigation and
proposed recommendations in relation to labor camps,9 and Wiscon1 For a discussion of th e m erits of different ty p e s of stru c tu re reference is m ade to J. E . P ennybacker’S
Convict labor for road w ork, U. S. D ep artm en t of A griculture, B u lletin No. 414, p. 127 e t seq.

2 For a description of a semipermanent, nonportable bunk-house camp, see Monthly R eview for
April, 1918, pp. 7 to 11.
’8 A dvisory p am p h let on cam p san itatio n a n d housing, Commission of Im m igration and H ousing of
California [4th rev. ed.], San Francisco, 1915. 56 pp.
4 U. S. R eclam ation Service. S anitary R egulations. (M anual of th e R eclam ation Service, W ashing- •
ton, 1917, vol. 1, p p . 116-122.)
6 The san itary code established b y th e P ublic H ealth Council of th e State of New Y ork, Chap. V. (In
36th annual rep o rt of th e S tate D ep artm en t of H ealth , 1915.)
6 R eport of th e C om m ittee on Village a n d P ublic Sanitation w ith Special Reference to H ousing.
W ashington, D. C., 1917. (U npublished, 54 ty p e w ritte n folios.)
7 Camp sanitation, b y W . F . D raper. (In U . S. Public H ealth Service, Miscellaneous P ublication No.
17. P revention of disease a n d care of th e sick. W ashington, 1917, pp. 58-63.)
3 Convict-labor road w ork, b y J. E . Pennybacker. W ashington, 1916. 218 pp. (U. S. D ep artm en t of
A griculture, B u lletin No. 414.)
9 P relim inary su rv ey of labor cam ps in Ohio, th e In d u strial Commission of Ohio. (B ulletin of the
In d u stria l Commission of Ohio, Colum bus, 1917, vol. 4, No. 11, 22 pp.)


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sin 1 and Pennsylvania provide for the inspection of labor camps.
While the rules and regulations drafted by these State departments
and other authorities are not made with reference to agricultural labor
camps, yet the problems of this latter type of camp do not differ
essentially from those of the other type of camps.
The principal requirements of good labor camp construction and
sanitation, as based upon the foregoing authorities, have been brought
together in the following paragraphs:
Camp location.—The principal essential of camp location is well
drained ground and accessibility to a drinkable water supply. Con­
sideration should be given to advantageous exposure to sunlight and
prevailing winds.
Camp layout.—Camp buildings, tents, and portable houses should be
arranged in rows so that the surroundings may be easily kept clean.
Kitchen, mess, and commissary houses should be at some distance—
50 to 100 feet—from the sleeping quarters. Stables and corrals
should be at least 600 feet from the kitchen and mess house and 500
feet from sleeping quarters. Toilets should be at least 75 feet from
sleeping quarters and 200 feet from mess and kitchen quarters;
minimum standards of 50 feet are suggested by some authorities.
Incinerators for kitchen garbage, if used, should be near the kitchen
and mess and 75 feet from sleeping quarters.
Water supply.—A plentiful supply of wholesome water should be
provided for drinking, cooking, and bathing purposes. (1) The sup­
ply should be free from organic contamination; (2) ground water
supplies from wells must be covered at the top to insure against
pollution; (3) wells should be located with reference to surface
drainage and old wells not properly located condemned and new ones
constructed; (4) If only contaminated or even questionable water is
available, it should be purified by filtration or boiling; (5) all privy
vaults should be at least 200 feet from the water supply and so
located that pollution of water is impossible; (6) there should be fre­
quent analysis; (7) if stored, water should be in tightly closed recep­
tacles and drawn off by faucet; (8) use of individual drinking cups
should be encouraged.
Sleeping quarters.—Floors should be kept in such repair as to be
sanitary, and, if of wood, should be elevated from the ground to
permit air circulation underneath. Roofs and sides should be water­
tight, and windows and doors provided with screens. All windows
should be so arranged as to open easily.
The California Commission of Immigration and Housing, the
United States Reclamation Service following, recommends 500 cubic
feet of air space for each person. Ohio recommends not less than
i L abor cam ps in W isconsin, In d u strial Commission of W isconsin, Madison, 1914, 48 pp.


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400 cubic feet. Not less than 200 cubic feet is proposed for each
child under 14 years of age. A floor area of at least 50 square feet
per person is recommended. These are the desirable standards
unless there exist some permanently open means of ventilation such
as a complete open side of a building or tent, open ends, or open top.
Bunks, if used, should preferably be of steel, and no triple tiers
should be permitted except under unusually favorable circumstances.
There should be 2-foot aisles between bunks, and bunks should be
not nearer than 1 foot from the floor.
Kitchen and mess houses.—Here the essential is careful screening
and closed communication between the two—kitchen and mess room.
Doors leading into the outer air should have screened vestibules.
The rooms should be well aired and lighted.
Sanitary disposal of waste.—For disposal of garbage every camp
should be provided with galvanized iron (or other metal) water-tight
cans, with tightly fitting lids to keep out flies and vermin. These
containers should be emptied at least twice a week. Waste recep­
tacles should be provided near the sleeping quarters.
All garbage should be disposed of either by burning, by burying,
or by feeding to hogs. It should not be fed to chickens as these will
not consume it all. If buried, shallow trenches are preferable to deep
pits. Burning, however, is generally the most approved method.
Toilets.—The only kind of privies which may be classed as sanitary
are those with either removable receptacles (tonneaux or box privies,
pail system, incinerating system, etc.), or stationary receptacles
from which the contents are removable. The use of privies built
over holes in the ground and repeatedly moved and the pits filled
are condemned. All toilets should be thoroughly screened and
fly proof and well ventilated. Separate toilets for the sexes should
be provided, placed at least 50 feet apart and conspicuously marked.
Cleanliness in the care of all toilets is to be insisted upon. Daily use
of crude oil, chloride of lime, or dry earth on the surface of the pit
is recommended. Paper should be provided in all toilets.
Toilet seats should be provided in the proportion of one to every
10 to 20 persons, and 40 persons in the case of shifting camps.
Bathing facilities.—There should be provision in or near sleeping
quarters for bathing, as tubs, shower or shelter built on a stream.
There should be one facility for each 20 persons. Showers are most
preferable, being cheaper to install and more sanitary. Waste water
from baths should be carefully drained away.
Soap and towels should be provided Without charge. Boiler
towels, if used, should be changed frequently; use of individual towels
is strongly recommended; paper towels are suitable.


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Maintenance and cleanliness.—Open manure piles should be elim­
inated; and stables and stalls near camps kept thoroughly cleaned.
All floors should be cleaned and sWept at least twice a week.
Kitchen and mess room should be swept daily. Dry sweeping
should be discouraged.
Cuspidors with water should be placed in all living quarters and
cleaned daily.
A special separate room attached to the bunk house should be pro­
vided for washing and drying clothes.
The washing of the laundiy of the laborers in the camps should
be directed by the person in charge of the camp, who should hire a
wash woman or man to be compensated by each laborer in proportion
to the washing done for him.
All persons engaged in preparing and handling food should be
medically examined with particular attention as to whether or not
they have suffered from typhoid or tuberculosis xythin recent years,
or whether they have some other communicable disease. Any per­
son afflicted with such a disease should be kept away from the
kitchen and mess house.
All perishable foods should be protected from putrefaction and
insects.
Each large camp should have one or more able-bodied men giving
their entire time to the care and maintenance of the camp.
Sick house.—In camps of 50 or more persons a fly-proof and mos­
quito-proof house should be provided to receive the sick.
Recreation room.—In camps of 50 or more a special room, kept
clean and well lighted, with tables and benches, should be provided for
recreation—reading and writing facilities and games. The employer
or farm operator should provide newspapers and books in this recrea­
tion room.
EX A M PLE S OF CAMP ORGANIZATION A N D CAMP CONSTRUCTION.

The farm cadet camps which were organized to assist in harvesting
the crop of the 1917 season may serve as an example of the military
form of camp organization. A description of the farm cadet camps
on Long Island has been given by the Secretary of the Nassau and
Suffolk Counties (L. I.) Y. M. C. A.1
Organization.—Each labor camp when filled to capacity consists of
49 cadets, 9 officers, and 2 cooks. Each squad of 7 cadets is under
the direction of a squad leader. Directing the 7 squad leaders are an
assistant director and a camp director. The camps have been or­
ganized on a military basis, each squad leader having the rank of
1 R ural Manhood, devoted to th e c o u n try work of th e Y . M. C. A. in village, tow n, or country.
Y ork, Intern atio n al C om m ittee of Y . M. C. A .’s, 1917, vol. 8, No. 7 (S eptem ber), p p . 288-292.


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corporal or sergeant, the director corresponding to the captain of the
company, and his assistants having the rank of lieutenant.
In addition to this permanent camp organization a movable labor
force has been organized and termed the flying squadron. This con­
sists of one squadron of picked cadets, selected each week from the
various camps on the basis of efficiency in farm labor. Each squad
has a leader, a director, and a cook. They are equipped with an auto­
mobile with a special body to carry the cadets, and a trailer, which is
provided with a built-in water tank, ice box, and facilities for carry­
ing tents and the personal equipment of the squadron. The purpose
of this squadron is to furnish emergency labor on farms too remote
from the permanent camp to permit daily transportation of the cadets.
The director of this flying squadron -spends a part of his time in any
particular district to determine the possible need of a permanent
camp in that locality and to obtain information concerning acreage,
crops, cattle, etc.
Equipment.—Each camp is equipped with seven 12 by 14-foot wall
tents with flies, each one of which provides the quarters for a squad.
Each tent has a wooden floor and built-in bunks. The headquarters
tent, for office ¡imposes and sleeping quarters for the director, is
14 by 16 feet. Here are kept all records, athletic equipment, library,
and telephone. A mess tent 18 by 60 feet provides not only a dining
room but an auditorium for lectures and entertainments, a reading
room, and the like. Another small tent is provided for sleeping
quarters for the cooks. A wood cook shack, 18 by 20 feet, equipped
with oil ranges and storage facilities for supplies, is thoroughly
screened and offers every necessity for providing wholesome food.
An outdoor incinerator which is burned out every day disposes of
the garbage. An ice-box, built after the style of a cyclone cellar,
holds perishable supplies. Tire latrines are modeled after the Army
plan and are burned out and inspected daily by the camp sanitary
officer. Shower baths are provided for the cadets’ use. The water
supply is carefully analyzed before the camp is located.
Commissary department— In order to secure an adequate amount of
the right kind of food at the minimum cost, a commissary department
is established with an experienced man in charge. Daily menus
are sent out from the central office to all of the camps. Supplies,
so far as possible, are bought at wholesale and distributed to the
various camps. In this way it has been possible to supply a menu
planned by an expert dietitian at the minimum cost.


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M ETHODS OF T H E FARM ERS OF N IAGARA COUNTY, N . Y .

During the season of 1917 there developed an extraordinary
demand for labor to harvest the peach crop of Niagara County, N. Y.1
The farmers early held a meeting and agreed upon a wage of $2 per
day and board for the peach harvest season. Through their own
county agent they procured their labor after notifying him definitely
how much labor they needed, and when and for how long they would
need it.
The boarding and lodging accommodations were simple. In some
cases a shed was fitted out as a bunk and boarding house. Frequently
boarding accommodations were provided in a separate tent or
another shed. Some of the bunks were fitted out with clean straw
on the floor, others with straw ticks, some with cots, still others with
beds. (As to the use of straw on the floors, there may be some doubt
as to its suitability from a sanitary point of view.)
In one case triple deck beds 2 were made by the farmer himself.
These had posts 2 by 3 inches by 8 feet, reaching from floor to ceiling;
the beds were 30 inches wide and 6 feet long, with boards 6 inches
wide on the sides. Heavy woven wire, such as is used for corn cribs,
served as springs, and on this the mattress was placed.
The building in which these beds were provided was 40 feet long
and 20 feet wide, and had plenty of windows for ventilation. It
accommodated 36 men on the second floor, and the lower floor was
used as a mess room and kitchen. It is estimated that such a build­
ing could be erected for less than $2,000.3
AN ORCHARD CAMP IN M ARYLAND.

The Tonoloway Orchard Co., of Hancock, Md., has given the bureau
a description of its method of housing and caring for its orchard
help. The company has 800 acres in apples, and provides camp
quarters for about 150 men, accommodated in two camps. The fol­
lowing description applies to one of the camps, the other being
similar in every way.
The camp consists of separate sleeping quarters, one for cold
weather and the other for warmer weather. The tents for warm
and moderate weather are forty in number. Each tent is occupied by
two persons. Each occupant is provided with an army cot and army
blanket. The bunk houses for colder weather are three in number,
each accommodating 15 to 25 men. These bunk houses are built
of frame, one story, 9 feet high, with outside dimensions 12 by 20
1 F arm labor (New Jersey S tate A gricultural College. E xtension B ulletin, N ew B runsw ick, N . J.,
December, 1917, vol. I, No. 18.)
2 T riple deck bunks, however, it m ay be noted, are no t recom m ended b y sanitarians.
8 F a rm labor. Op. cit. p. 31.

54591°—18-

-19


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feet. The bunks are of 2 by 4 feet pine, have heavy springs in the
frame, and have straw ticks.
A rest building, 16 feet wide by 20 feet long, and having a 9-foot ceil­
ing, is provided. The rest building contains a shower bath, two or
three tables, and benches. Certain daily papers and magazines are
provided.
The mess-room building is 50 feet long by 25 feet wide, with ceiling
of the first floor 10 feet high. The room has eight windows. It seats
75 men. The second story of the mess room is occupied by the camp
manager and his family, which includes cooks and waitresses.
The kitchen is 16 by 12 feet. Two doors connect the mess room
and the kitchen. The kitchen is equipped with hot and cold water
connections and a large hotel range for cooling. The kitchen has
three large windows.
The camp manager has entire charge of the camp, ordering pro­
visions, the care of sleeping quarters, etc.
TH E PO R T A B LE HOU SES OF T H E PE N N SY L V A N IA R A ILROAD CO.

The Pennsylvania Railroad Co., in securing labor to carry out its
large construction projects and ordinary railroad track work, has
brought several thousand men from the Southern States and installed
them in camps at different places in Philadelphia and other points
on the system. The company owns at the present time a large
variety of bunk houses, consisting of converted freight cars, aban­
doned houses, and the like. After experimenting with various
kinds of accommodations for its seasonal help, the company adopted
a portable type of building. These buildings are described by Mr.
A. E. Owen, former chairman camp committee, Pennsylvania Railroad.1
The buildings are constructed of the ordinary tongued-andgrooved white pine, and built in 10-foot sections. Each building
when complete is 20 feet wide, with sloping roofs, and approx­
imately 15 to 16 feet high from the floor to the ridgepole; the floors
are built on piers about 18 inches from the ground. The entire
exterior of the buildings is covered with a pebble-dash roofing paper.
By this method it is a simple matter to increase or decrease the size
of a building; it can be stored quite conveniently or may be moved
from one location to another without serious difficulty, which gives it
adaptability for emergency use.
In order to conform to the fire regulations these buildings are
lighted by electricity, and each building is equipped with the proper
number of fire extinguishers; screens for windows and doors are also
provided.
i B u n k houses, boarding houses, an d labor cam ps. (In H ousing Problem s in America: Proceedings of
th e Sixth N ational Conference on Housing, Chicago, Oct. 15,16, a n d 17,1917. N ew Y ork, N ational Housing
Association, 1917, pp. 102-105.)


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Federal Reserve Bank of St. Louis

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

287

A regular standard double-deck bunk is used in these dormitories,
and each bunk is supplied with two blankets, pillows, pillowcases, and
sheet. The blankets, mattresses, and pillows are frequently aired
and sprayed with an approved insecticide, pillowcases and sheets are
sent to the laundry, and floors are scrubbed at least twice a week with
disinfectant solution and mopped or swept at least once a day. The
cuspidors are cleaned daily and a disinfectant solution left in the
cuspidors. Wherever it is possible a separate locker, which contains
soap and individual towel, is provided for each man.
In each of these buildings stationary washstands are provided, hot
and cold water furnished, and, where camps are sufficiently large and
drainage available, shower baths are provided.
In the larger camps a separate building is used for a commissary
or store. This plan is gradually being carried out in the smaller
camps, it being understood that the commissary storerooms are fash­
ioned after the same general construction which is used in the bunk
house; the kitchens are equipped practically on the same plan as
hotels. Bills of fare have been introduced, with menus of a variety
of wholesome food. Good cooks are secured to prepare this food
properly, which is served by waiters, and a second helping is per­
mitted.
The camps are being enlarged to include recreation rooms, where
the men may gather and pass their time when not out on the- tracks.
There are various forms of amusements provided, but as yet standard
plans have not been drawn up, owing to the various nationalities
represented and the different forms of amusements required.
The medical department has also been enlarged to look after the
general sanitation of the camps as well as the health of the men.
HOUSING AFTER THE WAR IN SCOTLAND.

The Scotch royal commission on housing, the report of which
appeared late in 1917 and was reviewed in the December issue of
the M o n t h l y R e v i e w , declared, among other things, that the State
must assume full responsibility for housing after the War. Prefer­
ably the State should operate through the local authorities and
should place upon them the responsibility of seeing to the provision
of buildings.
At that time it was estimated that there would be a shortage after
the War exceeding 100,000 houses. A subsequent inquiry carried
out by the Local Government Board of Scotland, through the local
authorities, confirmed this estimate.
In connection with all housing schemes undertaken by the muni­
cipal authorities, a certain amount of loss, small or great, has always

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Federal Reserve Bank of St. Louis

[1 3 3 5 ]

288

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

fallen upon the taxpayers; and as building costs are at present 70
to 100 per cent higher than they were in prewar years—and doubt­
less will remain high for some years to come—the housing problem
is considered to be too difficult for either private enterprise or muni­
cipal authorities to solve. State assistance being acknowledged as
necessary, the Scottish Local Government Board, after consultation
with the cabinet and treasury, has made certain proposals for finan­
cial assistance to municipalities during the period immediately
following the War. The scheme proposed is outlined in a circular
issued March 18 of this year by the local government board for
Scotland.1 No new legislation is required to carry out this scheme; it
will be carried out under the housing of the working classes act, 1890.
Under the plan in question it is proposed that the municipality
shall meet the full cost of the housing scheme out of its own funds by
means of a loan. For a period of seven years the State Treasury,
it is recommended, shall pay 75 per cent of the estimated annual
deficit, which will undoubtedly rise in connection with the construc­
tion of these houses. At the end of that period, a valuation of the
property is to be made, and the State will then assume responsi­
bility for 75 per cent of any excess in the amount of the outstanding
capital charges over and above the value of the property.
Municipalities are to be responsible for the remaining 25 per cent
of the loss, if any. In exceptional cases, however, the State will
extend its assistance beyond the three-quarters of the estimated
losses.
All housing schemes to which the State renders financial assistance
must be approved by the Local Government Board, viz: Approval of
the site, of the location of the houses, of the cost of the land, of the
conditions on*which the land is acquired, of the layout of the site, of
the plans, specifications and estimates, of the rentals proposed to be
charged, and of the estimated annual maintenance expenditure on
the scheme.
While there is considerable latitude in regard to the types of
houses which local authorities may erect, it is provided that as far
as is reasonably possible not more than twelve houses shall be
placed on an acre of land, and that each house or dwelling shall
have not less than three rooms.
I t is a condition of any financial assistance given by the State
that the erection of the houses shall be commenced within two months
from the date of the approval of the loan by the Local Government
Board, and that the houses shall be completed by a specified date,
i Provision of housing for w orking classes after th e W ar. E d in b u rg h , 1918. 4 p p .
Planning, No. 1,1918.)
s A sim ilar p la n is proposed b y th e Local G overnm ent B oard of E ngland.


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Federal Reserve Bank of St. Louis

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(H ousingand Town

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

289

and that such number of houses as the Local Government Board
may determine shall be completed within 12 months from the date
of the announcement of the beginning of construction.
NEW MINISTRIES OF PUBLIC WELFARE AND PUBLIC HEALTH IN
AUSTRIA.
T H E M IN IST R Y FOR PU B L IC W E LFA R E.

According to the Soziale Praxis,1 the ministry for public welfare
(Ministerium fü r Soziale Fürsorge) recently created in Austria will be
divided into five main departments in charge of the following activi­
ties :
1. Child and juvenile welfare work.
2. Care of war invalids and of survivors of men fallen in the War.
3. Social insurance.
4. Industrial and protective labor legislation.
5. Housing.
As a general rule, all five departments are to be animated by the
idea that “ a constant harmonious cooperation of the Government
administration with autonomous bodies and with directorates of
public welfare institutions, societies, foundations, etc., is to be
effected.” The main object of the new ministry is to insure the
energetic care of the public welfare in general, as well as the improve­
ment of the condition of the working classes and of people of small
means.
As guiding principles for the individual departments, the following
points of view are worthy of notice:
For the care of children and young persons, other ministries shall,
as in the past, be regarded as competent—the newly established
ministry of public health for questions of hygiene, the ministry of
public worship for education and instruction, the ministry of justice
for questions relating to guardianship and criminal jurisdiction; but
nevertheless a kind of central office is to be formed within the min­
istry for public welfaie by means of a special children’s bureau
(Jugendamt) .
Stress is to be laid on the dual nature of the care of the disabled
soldiers and those bereaved by the War, i. e., to the fact that the
pensions to which they are entitled must be supplemented by social
measures. The question of soldiers’ homesteads is to be considered
in connection with the general housing problem.
As regards social insurance, the creation of old-age and invalidity
insurance after the German pattern is in contemplation and, again
following the German pattern, value is attached to the cooperation of
i Soziale Praxis u n d A rchiv für Volks w ohliahrt, vol. 27, No. 5.


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Federal Reserve Bank of St. Louis

[1 3 3 7 ]

Berlin, N ov. 1,1917.

290

MONTHLY EE VIEW OF THE BUREAU OF LABOR STATISTICS.

sick funds and of the carriers of the forthcoming old-age and invalidity
insurance in all efforts for combating epidemics and promoting public
hygiene.
In the same way the resources of the social insurance system are to
he made available in part for housing work. For alleviating the
scarcity of small dwellings after the War the Emperor Francis Joseph I
Jubilee Fund, created in 1908, is also to be employed.
The very important problem of industrial and protective labor
legislation, which has hitherto been dealt with by the socio-political
section of the ministry of commerce, is now to be handed over to the
new ministry for public welfare. In addition to the- very important
problem of protective labor legislation, special attention shall in the
future be given to the development of industrial labor legislation and
to the establishment of working and wage conditions consonant with
the spirit of the age. The new ministry is to take over from the
ministry of the interior all problems relating to employment and
unemployment and in connection therewith that of the protection
of emigrants.
T H E M IN IST R Y OF PU B L IC H E A LT H .

According to the Neue Freie Presse,1 the preliminary work in con­
nection with the creation in Austria of a ministry of public health had
progressed to such a point that on November 29, 1917, the actual pro­
posals of the Government were laid before the lower house. They
were referred to the committee on constitution, and it was expected
that immediately after the Christmas recess they would receive
parliamentary indorsement and that the new ministry would come
into being about the beginning of spring.
With the establishment of the ministry of public health, which is to
be housed in a building in the heart of Vienna, the care of the public
health in accordance with wishes entertained for years, and publicly
expressed, especially by the medical profession, will be given an
independent and responsible position corresponding to its importance
both for individuals and the community at large.
In the new ministry all activities which contribute to the public
health will be collected and centralized. .As its main task the min­
istry of public health will undertake the administration of all matters
concerned with the care of the public health for which hitherto the
ministry of the interior has been the competent authority. More­
over, a number of duties will be transferred from other departments
to the new ministry.
The sphere of activity of the new ministry will comprise the fol­
lowing matters in particular: Combating infectious diseases and
epidemics, especially tuberculosis, venereal diseases, and alcoholism;


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Federal Reserve Bank of St. Louis

1 N eue Freie Presse.

Vienna, Dee. 25, 1917.

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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

291

cooperation of hygiene with veterinary science in all matters touching
the preservation of the health of human beings ; the hygiene of towns
and communes, of buildings and dwellings; matters connected with
watering places and bathing resorts; hygienic conditions of trains and
ships; quality of the food supply; vocational and industrial hygiene;
first aid; treatment and care of invalids, e. g\, in hospitals, nursing
homes, lunatic asylums, homes for the fallen; the hygiene of prisons,
pharmaceutics and therapeutics; burials; hygienic care of disabled
soldiers; matters appertaining to charitable efforts; and statistics as
to hygiene.

/


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Federal Reserve Bank of St. Louis

[1839]

ARBITRATION AND CONCILIATION,
CONCILIATION WORK OF THE DEPARTMENT OF LABOR, MARCH 15
TO APRIL 14, 1918.

Under the organic act of the department, which gives the Secretary
of Labor the authority to mediate in labor disputes through the ap­
pointment, in his discretion, of commissioners of conciliation, the
Secretary exercised his good offices between March 15, 1918, and
April 14, 1918, in 91 labor disputes. The companies involved, the
number of employees affected, and the results secured, so far as
information is available, were as follows:
S T A T E M E N T S H O W IN G T H E N U M B E R O F L A B O R D IS P U T E S H A N D L E D B Y THE
D E P A R T M E N T O F L A B O R , T H R O U G H IT S C O M M ISSIO N ER S O F C O N C IL IA T IO N ,
MAR. 15 TO A P R . 14, 1918.
W orkm en aflected.
N am e.

R esult.
D irectly.

Strike, m olders, N iles-Bem ent-Pond Co., R idgeway, P a .
Strike, m achinists, A m erican Engineering Co., P hiladel­
phia.
Strike, m achinists, F a y e tte P lu m b Tool Co., W ellston, Mo
Controversy, Jeanesville Iro n W orks, H azleton, P a ...........
Strike, asbestos pipe coverers, shipyards, P h ilad e lp h ia ...,
C ontroversy, Public Service Corporation a n d electrical
w orkers, D e tro it, Mich.
C ontroversy, American Shipbuilding Co., Lorain, O hio...
Lockout, roofers, K en n eth W . Jacobs Co., Milwaukee, Wis.
Controversy, Chas. W eitz Sons a n d linem en, Des Moines,
Iowa.
Strike, A . B . Clippingers’ Sons, K ansas City, K a n s ...........
W alkout, Crown Cork & Seal Co. a n d p a tte rn m akers,
B altim ore, Md.
C ontroversy, Crown Cork & Seal Co. an d unskilled labor­
ers, B altim ore, Md.
Threatened strike, m iners, Lansford, P a ................................
Strike, bitum inous coal m iners, U n ited Big V ein Coal Co.,
M ount Savage, Md.
C ontroversy, T he Otis Steel Casting Co. a n d molders and
coremakers, Cleveland, Ohio.

37
250

Indirectly.
200
1,000

Do.
*
A djusted.
Do.
Services of commis­
sioner n o t required
a t this tim e.
A djusted.
Pending.
Do.

1,500
350
120
2,200

60
7
700

A djusted.
Do.
2,500

7,000
30

Strike, electrical workers, Mackle Construction Co., A t­
la n ta a n d F o rt M cPherson, Ga.
Strike, garm ent w orkers, S t. Louis, M o..................................
R ice-Stix & Co.
E ly-W alker Co.
E lder M anufacturing Co.
New E ra M anufacturing Co.
P a u l E . W olf Co.

292

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Federal Reserve Bank of St. Louis

[1340]

Do.
Do.
Do.

710

550

1,000

Men decided to re­
m ain
at
w ork.
General manager
refused
Govern­
m ent m ediation.
A djusted.
No controversy in
existence.
Pending.

150

1,600

A djusted.

Strike, B rooklyn E astern D istrict T e rm in al.........................
Controversy, Rochester Bridge Co., R ochester, I n d ...........
Threatened strike, iron m iners, Sloss-Sheffield Iro n &
Steel Co., Russellville, Ala.
C ontroversy, M etal Products Co. a n d m achinists, die
m akers, lath e hands, toolm akers, an d shaper hands,
Cleveland, Ohio.
Controversy, W heeling Can Co. a n d m achinists, W heel­
ing, W . V a.
Controversy, W heeling Mold & F o u n d ry Co., a n d
m achinists, W heeling, W . Va.

A djusted.
Pending.

16

Do.

7

1,000

3,100

4,000

,. A djusted
befor
com m issioner’s ar­
rival.
Pending.
Do.

MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.

293

S T A T E M E N T S H O W IN G T H E N U M B E R O F L A B O R D IS P U T E S H A N D L E D B Y T H E
D E P A R T M E N T O F L A B O R , T H R O U G H IT S C O M M ISSIO N ER S O F C O N C IL IA T IO N ,
MAR. 15 TO A P R . 14, 1918—C ontinued.
W orkm en affected.
R esult.

Nam e.
Indirectly.

D irectly.
C ontroversy, Prest-o-liteCo. a n d m achinists, Indianapolis,
In d .
T hreaten ed strik e, longshorem an. New Y o rk .......................
C ontroversy, Gibson Consolidated Copper Co. n ear Miami,
Ariz.
C ontroversy, Morris M achine Co., B aldw insville, N . Y —
C ontroversy, W estern U nion Telegraph Co. a n d oper­
ators, B irm ingham , Ala.
Strike, boiler m akers, five firm s, Indianapolis, I n d ............
Strike, S t. Louis Screw Co., St. Louis, M o.............................
C ontroversy, G rand T ru n k R . R . Co., P o rtland, M e..........
Strike, A tlas B all Co., Philadelphia, P a .................................
Strike, m olders, H a rt & Crouse F o u n d ry Co., U tica, N . Y . .
Lockout, H ill Creek Coal Co., R ichlands, V a ........................
Controversy, Carter-Seaboard. Coal Co., R ichlands, V a ----C ontroversy, F o rt P itt Bridge Co.; Canonsburg, P a ...........
C ontroversy, A shland Iro n & M ining Co., A shland, K y ...

S trike, H ead D rilling C o.,L os A ngeles,C al............................
Lockout, m olders, H aw keye F o u n d ry Co., W aterloo,
Iowa.
Controversy, E m ploying E lectrotypers’ Association and
employees, Chicago.
S trike, m olders, N ational T ran sit Co., Oil C ity, P a ...........
C on tro v ersy S an ta B arbara Telephone Co., Santa
B arbara, Cal.

6

200

A djusted.

30

100

Pending.
A djusted.

132
6

25
900

168

.............
50
1,100

2

400
130

5,000
426
160

85
401

115
39

120

79

210

A djusted.
A d ju s te d b e fo re
com m issioner’s ar­
rival.
Case h a ndled b y gov­
ernor a n d labor
com m issioner o i
N evada.
Pending.
Men accepted com­
p a n y ’s offer a nd
re tu rn e d to w ork
as p l a c e s w e r e
found for them .
Men re tu rn e d to
w ork pending ad­
ju s tm e n t of wage
scale.
Pending.
Do.

125

A djusted.
Do.

92

C ontroversy, B ond M achine Co., W ilm ington, D el............
S trike, gas-house w orkers, Providence Gas Co., P rovi­
dence, R . I.

126

66

5
300

S trik e ,iro n w orkers, Buffalo D ry Dock Co., Buffalo, N . Y .

800

700

C ontroversy, Lyons-A tlas Co. an d m achinists, In dianapo­
lis, Ind.
Strike, steel workers, Sim onds M anufacturing Co., Lockp o rt, N . Y .
T hreatened strike, w aiters, hotels, B altim ore, M d............. .


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Federal Reserve Bank of St. Louis

[1 3 4 1 ]

A djusted.
Pending.
A djusted.
Do.
Pending.
Do.
Do.
Do.
Mill closed dow n to
investigate cause
of off stan d ard of
iron; no discord be­
tw een
com pany
a n d m en; m en to
resum e w ork w hen
called.
A djusted.
Pending.
Do.

450

S trike, engineers, firem en, a n d sw itchm en, N evada Con­
solidated M ining Co., E ly , N ev.

C ontroversy, G eneral E lectric Co., E rie, P a .........................
C ontroversy, Plains Iro n W orks an d other co n tract shops,
D enver, Colo.
S trike, Globe Stove & R ange Co., Kokom o, I n d ................
S trike, freight handlers, P hiladelphia & R eading R . R .
Co., P o rt R ich m o n d , P h iladelphia.
S trike, m olders, W h itin g F o u n d ry & E q u ip m en t Co.,
H arvey, 111.
S trike, m ill m en, C rucible Steel Co., H arrison, N . J . . . . . .
Threatened strik e, cereal-mill workers, A m erican H om iny
Co., Terro H a u te, In d .
C ontroversy, T ren to n Sm elting & R efining Co., T renton,
N . J.
S trike, m etal polishers an d job platers, 13 shops, Los
Angeles, Cal.
S trike, lead burners, D u P o n t Pow der Co., W ilm ington,
Del.
S trike, M erchants Ship b u ild in g Corporation a n d ma­
chinists, B ristol, P a.
Strike, N ational In d ia R u b b er Co., B ristol, R . I ...............
Strike, tire builders, Goodyear Tire & R u b b er Co., A kron,

Do.
Pending.

U nable to adjust.

75
140
26

3,000
94

60

5

52

8

A djusted.
Do.
Pending.
Do.

12

Do.

90

Do.
A djusted.
P ending.

4,500
62
8

392

A djusted.

58

350

Pending.

200

Do.

294

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

ST A T E M E N T SH O W IN G T H E N U M B E R OE L A B O R D IS P U T E S H A N D L E D B Y T H E
D E P A R T M E N T O F L A B O R , T H R O U G H IT S C O M M ISSIO N ER S O F C O N C IL IA TIO N ,
MAR. 15 TO A P R . 14, 1918—C ontinued.
W orkm en affected.
N am e.

R e s u lt.
D irectly.

Indirectly.

Strike, carpenters, P ek in , 111.
Controversy, F o rt Des Moines Base H o sp ital an d linem en,
Des Moines, Iowa.
L ockout, carpenters, M emphis, T e n n .....................................
C ontroversy, G reat Lakes Engineering Co., A shtabula,
Ohio.
Strike, bo ttle w orkers, C. L . Flaccus Glass Co., T aren tu m ,
Pa.
Threatened strik e, p ain ters an d decorators, Los Angeles,
Cal.
Strike, M allinckrodt Chem ical Co., St. L ouis, M o................
Controversy, P elto n & Crane Co. an d m etal polishers,
D etroit, Mich.
Controversy, stockyards, W ichita, K a n s ................................
C ontroversy, E n terp rise Tool Co. a n d m achinists, tool
m akers, helpers, etc., Cleveland, Ohio.
Strike, building trad es on G overnm ent w ork, Norfolk, V a ..
Controversy, S teinle-T urret M achine Co., M adison, W is...
C ontroversy, G isholt M achine Co., M adison, W is ................
Controversy, R ichards M anufacturing Co. a n d m achinists,
M anitowoc, W is.
C ontroversy, A lu m in u m Goods Co., M anitow oc, W is........
C ontroversy, lau n d ry w orkers, W est E n d L au n d ry ,
Lange L a u n d ry , St. L ouis, Mo.
Controversy, electrical workers a n d contractors, W heel­
ing, W . Va.
Strike, K anaw ha Coal Co., K anaw ha Valley, W . V a..........
Controversy, garm ent w orkers, Chicago, 111...........................
C ontroversy, S. F . Bowser & Co., F o rt W ayne, I n d ............
Strike, A m erican P rin t W orks, F all R iv er, Mass.................
S trike, A rnold P rin t W orks, N o rth Adams, M ass...............
S trike, h od carriers a n d laborers, New Y o rk .........................
Strike, building trad es, L orain, O hio.......................................

Strike, A m erican Car & F o u n d ry Co., Chicago, 111..............
Controversy, p a tte rn m akers, P ittsb u rg h , P a .......................
Threatened strike, General Electric Co., P ittsfield, M ass..
Strike, sheet-m etal workers, S t. Louis M etal W are Co., St.
Louis, Mo.
Controversy, Cleveland W orm & Gear Co. and m achinists,
Cleveland, Ohio.
Strike, sheet-m etal w orkers, H a n d lan B u ck R ailw ays S up­
ply Co., S t. Louis.
Controversy, Jew ish bakers and em ployers, New Y o rk ___
C ontroversy, George A . Ohle & Co. and m achinists and
m achine shop w orkers, N ew ark, N . J.
Strike, m achinists, tin sm ith s, and iron w orkers, H ospital
Supply Co., New Y ork.
Strike, N ew born & Co., New Y opk...........................................
Controversy, Sm alley, G eneral Co. and" m achinists, B ay
C ity, Mich.
Controversy, A m erican-B ritish Co. and m achinists, Provi­
dence, R . I.
Strike, laborers an d tin house employees, Stan d ard T in
P la te Co., C anonsburg, P a.
C ontroversy, Schw arts W heel Co., P h ilad e lp h ia ..................
C ontroversy, Depere M anufactuiing Co., Madison, W is ...
C ontroversy, Sw ift & Co., S t. Joseph, M o...............................
L ockout, S m ith & D ru m Co., P h ilad e lp h ia ...........................
Controversy, M ahoning & Shenango R y . & L ig h t Co.,
Y oungstow n, Ohio.
Strike, U nited S tates M etals R efining Co., Chrome, N . J . .
Strike, A m erican Sm elting & Refining Co. and R arita n
Copper Co., P e rth A m boy, N . J.
Lockout, sheet-m etal w orkers, U nited S tates Aero Pro­
peller Co., M ilwaukee, Wis.


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Federal Reserve Bank of St. Louis

[1342]

A djusted t h r o u g h
O r d n a n c e D ivi­
sion, W ashington.
A djusted.
300
200

600

75

350

Pending.
Men continuing at
w ork pending ex­
pected increase in
wages.
Pending.

1,200

300

A djusted.
Pending.
A djusted.
Do.
Pending.

100

3
1,600

250

2

A djusted.
Pending.
A djusted.
Pending.

15

Do.
Do.

35

Do.

800
3
1,500

4,000

10,000

700

800

1,000

Do.
A djusted.
Do.
Pending.
Do.
Do.
P lum bers, s h e e t m etal w orkers, and
electricians signed
agreem ents; brick­
layers, carpenters,
a nd pa in te rs dead­
locked.
Commis­
sioner
w ithdrew
from case.
A djusted.
Pending.
A djusted.
Pending.
A djusted.
Pending.

2,500
45
120

Do.
A djusted.
Pending.
Do.
Do.
Do.
A djusted.
Pending.
Do.
Do.
A djusted.
Pending.
Do.
Do.

Do.

MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.

295

S T A T E M E N T S H O W IN G T H E N U M B E R O F L A B O R D IS P U T E S H A N D L E D B Y T H E
D E P A R T M E N T O F L A B O R , T H R O U G H IT S C O M M ISSIO N ER S O F C O N C IL IA T IO N ,
M AR,. 15 TO A P R . 14, 1918—Concluded.
W orkm en affected.
R esult.

Name.
D irectly.
Controversy, N orw alk hospital, N orw alk, Cal.......................
C ontroversy, typographical union, Denver, Colo.................
S trike, tra c k laborers, P hiladelphia & R eading R . R . Co.,
P o rt R ichm ond, Philadelphia.
T hreatened strik e, freight handlers, P hiladelphia & R ead­
ing R . R . Co., B road and Callowhill streets, P hiladel­
phia.
Strike, Southern Pacific shops, New Y o rk .............................
C ontroversy, S. P . M anufacturing Co., Cleveland, O h io ...
S trike, m olders, Menefee F o u n d ry Co., F o rt W ayne, In d . C ontroversy, H . C. Cragg M anufacturing Co., W ashington.
C ontroversy, te x tile w orkers, Sanford, M e.............................
C ontroversy, h a tte rs , D an b u ry , Conn..............................
C ontroversy, building trad es and contractors, M arsh A vi­
a tion T raining School, A lessandro, Cal.
Strike, A tlas B rass F o u n d ry Co., Cleveland, O hio..............
Strike, A m erican R ange & F o u n d ry Co., Cleveland, Ohio.
Threatened strike, dock truckers, Seattle, W a s h .................
Strike, Jo h n W ood p la n t, Conshohocken, P a ......... ..............
Controversy, stru c tu ra l iron workers on cantonm ent, Des
Moines, Iowa.
Strike, carriage, wagon, a n d autom obile workers, Chicago.
Strikes an d lockouts, B illings, M o n t........................................
S ym pathetic strike, W aco, T ex .................................................
Strike, Leslie & E llio tt Co., Paterson, N . J ......................
S trike, m achinists, M arine R epair Shops & Marine R ail­
w ays, Norfolk, Va.
Strike, M arshall F o u n d ry Co., Blacklick, P a ........................
Strike, molders, -F ran k Nealon Co. and others, P itts ­
burgh, Pa.
C ontroversy, stevedores. Norfolk, V a ......................................
Strike, P lu m Tool Co., S t. L ouis, M o...............................
Strike, g arm en t workers, several sh irt factories, St. Louis,
Mo.
Strike, Sam uel Cupples E nvelope Co., St. Louis, M o.........
Strike, O rnam ent, W ire & Iro n Co., St. Louis, M o .............
Strike, K roger Groceries and M eat Stores, St. L ouis, M o ..
Threatened strike, H ud so n and M an h attan T ubes, New
Y ork.
Strike, S outh N orw alk, Conn......................................... —
Controversy, M erchants & E v an s Co. and m achinists,
Philadelphia.
Controversy, electrical w orkers in Central and N orthern
California a n d L ig h t & Pow er and Street R ailroad cor­
porations.
Controversy, Thom as Iro n Co., n ear W harton, N . J ...........
Controversy, sheet-m etal workers, A eroplane Propeller
W orks, Chicago.
Controversy, H artford & New Y ork T ransportation Co.
and longshoremen, New Y ork.

Indirectly.
Pending.
Do.
A djusted.
135

1,200

" 250

500

Do.
Pending.
Do.
A djusted.
Pending.
Do.
Do.
A djusted.
Pending.
Do.
Do.
A djusted.
Pending.

800

500

Do.
Do.
Do.
Do.
Do.
A djusted.
Pending.
Do.
Do.
Do.
Do.
Do.
Do.
Do.
Do.
Do.
Do.
Do.
Do.
Do.

1 P hiladelphia division.

The following cases noted as pending in the March 15 statement
have been disposed of:
Strike, laundry workers, Kansas City, Mo. Adjusted.
Sympathetic strike of various trades at Kansas City, in which 15,000 were directly
involved and 60,000 indirectly involved. Adjusted.
Controversy, Wireless Specialty Co., Boston, Mass. Unable to adjust.
Strike, retail clerks, St. Louis. Adjusted.
Strike, shwe mounters, Detroit, Mich.; Michigan Stove Co-, Art Stove Co., Penin­
sular Stove Co., and Detroit Stove Works. Adjusted.
Controversy, Kroeschell Bros. Ice Machine Co. and machinists, Chicago. Adjusted.
Controversy, French Creek Foundry Co., Franklin, Pa. Adjusted.
Controversy, Franklin Foundry Co., Franklin, Pa. Adjusted.


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Federal Reserve Bank of St. Louis

[1343]

296

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

L ockout, flint-glass w orkers, E m p ire C u t Glass Co., F le m in g to n , N. J. A d ju ste d .
C ontroversy, M ississippi R iv e r & B o n n e T erre R . R ., B o n n e T erre, Mo. A d ju sted !
S trik e , T h u rlo w S te e l Co., P h ila d e lp h ia . A d ju ste d .
C ontroversy, w aiters, W ashington h o tels. T en a d ju s te d , one p en d in g .
S trik e, m a c h in ists a n d p ip e fitters, H e rc u le s P ow derC o., San Diego, Cal. A d justed.
C ontroversy, Los A ngeles & S a lt L ake R . R . Co., Los A ngeles, Cal. R e p o rt su b ­
m itte d to D ire c to r G eneral of R ailroads.
C ontroversy, H u n tin g to n L u m b e r & S u p p ly Co., H u n tin g to n , W . Y a. A d ju sted .
S trik e, silk -m ill w orkers, A llegany C ounty, M d. Q uestions in d is p u te s u b m itte d to
p re s id e n t of c o m p an y a n d p re s id e n t of U n ite d T e x tile W orkers of A m erica for a d ­
ju s tm e n t.
S trik e , sh e e t-m e ta l w orkers, T h e C lothel Co., B ay o n n e, N. J. A d ju sted .
C ontroversy, m a c h in ists, P e rth A m boy, N . J . A d ju sted .
L ockout, Ross G ear & Tool Co., L a fa y e tte , In d . A d ju ste d .
C ontroversy, T he W illy s-O v erlan d Co., T oledo, Ohio. A d ju ste d .
T h re a te n e d strik e , b la c k sm ith s a n d help ers, A m erican Car & F o u n d ry Co
m ington, D el. A d ju sted .

W il­

C ontroversy, T oledo M ach in e & Tool Co. a n d m a c h in ists, T oledo, O hio. A d ju ste d .
S trik e, tobacco w orkers, L ig g e tt & M yers Co., S t. L ouis, Mo. A d ju ste d .
C ontroversy, S ta n d a rd G auge & S te e l Co., B e a v e r F alls, P a . No co n tro v ersy in
e x isten ce.
S trik e , d ru g clerks, D en v er. A d ju sted .


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Federal Reserve Bank of St. Louis

[1344]

STRIKES AND LOCKOUTS.
STRIKES AND LOCKOUTS IN CANADA, 1901 TO 1916.

In a brief introductory summary, preceding numerous tables which
comprise the major portion of a recent report on strikes and lockouts
in Canada/ it is stated that in the period 1901 to 1916 there were
1,594 strikes involving 9,430 employers, 398,391 employees, and a
time loss estimated at 10,920,539 working days. Particular comment
is made upon the “ comparatively slight industrial disturbance in
Canada since the outbreak of the War.” It appears that there were
only 7 strikes in the period from August 1 to December 31, 1914, less
than 300 employees being affected; that in 1915 there were 43 strikes
affecting 9,140 employees and causing a time loss of 106,149 days,
“ the smallest amount of disturbance from the standpoints of number
of disputes, time loss, and percentage of the total population involved
ever recorded” ; that in 1916 the number of disputes increased to 75,
that year being third in the record as to minimum of trouble; that
in the 1911-1915 period the number of disputes (449) was lower than
in either of the two preceding quinquennial periods, the number of
employees affected (127,959) being slightly higher than during either
of the two preceding five-year periods, while the time loss of 4,969,739
days “ was much the heaviest of the three five-year periods.”
From the standpoint of number of disputes the report, which deals
particularly with the period 1911 to 1915, shows that industrial unrest
in that period was greatest in the building, metal and shipbuilding,
clothing, and transport trades in the order named, and “ it is note­
worthy that this order prevailed throughout the three quinquennial
periods.” The mining industry, however, seems to have been re­
sponsible for the greatest amount of time loss—51.7 per cent of the
total days. “ The mining industry has contributed a constantly in­
creasing share of the country’s industrial unrest.” Most of the 449
disputes occurring in this five-year period were due to questions of
wages and hours, about 70 per cent of the disputes and 63 per cent
of the time loss being due to this cause. As to the result of these
strikes, 139, or 30 per cent, terminated in favor of employees; 164,
or 36 per cent, in favor of employers; 79, or 17 per cent, were com­
promised; and in 67 cases the result was indefinite. In 196 (43.7
per cent) of the disputes settlement was effected by direct negotiation
between the parties or their representatives.
i C anada.

D e p a rtm e n t of L a b o r.


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Federal Reserve Bank of St. Louis

S tr ik e s a n d lo c k o u ts i n C a n a d a , 1901-1916.

[1345]

O t t a w a , 1918.

297

138 p p .

298

MONTHLY EEYIEW OF THE BUREAU OF LABOR STATISTICS.

As to settlement of disputes in the entire period, 1901 to 1915, in­
clusive, the proportions are substantially the same as inchoated for
the period 1911 to 1915, namely, 31 per cent in favor of employers,
34 per cent in favor of employees, and 14 per cent compromised.
The following table gives a summary of the data pertaining to in­
dustrial disputes occurring in the period 1901 to 1915, inclusive:
SU M M A RY O F D A TA P E R T A IN IN G TO IN D U S T R IA L D IS P U T E S IN CANADA, B Y IN D U S­
T R Y A N D B Y Q U IN Q U E N N IA L P E R IO D , 1901 TO 1915, IN CLU SIV E'.

Time loss.
In d u stry and period.

N um ber
of dis­
putes.

P er cent N um ber
of to ta l of estab­ N um ber of
disputes lishm ents employees
in each
con­
affected.
period.
cerned.

W orking
days.

P e r cent
of to ta l
in each
period.

Fishing:
1901-1905.............................................
1906-1910...........................................
1911-1915...............................................

6'
4
3

1.0
.8
.7

13
5
37

13,300
677
2,750

189,600
8,488
55,000

7.7
.3
i.i

T otal..................................................

13

.9

55

16,727

253,088

2.4

Lum bering:
1901-1905..............................
1906-1910......................................
1911-1915...............

13
15
7

2.3
2.9
1.6

13
22
35

2,640
2,921
2,825

9,490
61,587
141,570

.4
1.9
2.8

T o ta l.............................

35

2.3

70

8,386

212,647

2.0

Mining:
1901-1905...............
1906-1910..........................
1911-1915.........................

37
50
29

6.6
9.8
6.5

43
106
103

27,732
33,997
26,231

647,172
1,510,307
2,570,688

26.3
46.0
51.7

T o ta l.............................

116

7.6

252

87,960

4,728,167

44.1

B uilding:
1901-1905.........................
1906-1910...................
1911-1915...................

143
123
128

25.6
24.1
28.5

1,728
2,735
1,655

22,680
27,319
26,507

610,586
474,028
557,194

24.8
14.4
11.2

T o tal............................

394

25.9

6,118

76,506

1,641,808

15.3

Metal:
1901-1905...................
1906-1910...............
1911-1915.......................

95
75
103

17.0
14.7
22.9

188
369
298

10,580
8'337
13,763

208,953
218', 961
237,022

8.5
6. 7
4.8

T o tal..........................

273

18.0

855

32,680

664,936

6.2

W oodworking:
1901-1905............................
1906-1910..........................
1911-1915............................

33
14
6

5.9
2.7
1.3

82
39
50

3,055
1,303
690

60,813
14, 472
31,377

2.5
.4
.6

T o tal..............................

53

3.5

171

5,048

106,662

1.0

P rin tin g and publishing:
1901-1905..............................
1906-1910...........................
1911-1915......................................

18
10
4

3.2
2.0
.9

84
31
42

1,100
316
329

9,590
4,119
4,605

.4
.1
.1

32

2.1

157

1,745

18,314

.2

15
21
9

2.7
4.1
2.0

4,456
14,436
2,478

42,751
236,783
27,090

1.7
7.2
.5

45

3.0

14
24
9
47

21,370

306,624

2.9

T o ta l...................................
Textiles:
1901-1905..................................
1906-1910..............................
1911-1915............................
T o ta l................................................


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Federal Reserve Bank of St. Louis

[1 3 4 6 ]

MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.

299

SU M M A RY O F D A T A P E R T A IN IN G TO IN D U S T R IA L D IS P U T E S IN C A N A D A , B Y IN D U S ­
T R Y A N D B Y Q U IN Q U E N N IA L P E R IO D , 1901 TO 1915, IN C L U S IV E —Concluded.
Time loss.
N um ber
of dis­
putes.

In d u stry a n d period.

P er cent N um ber
of to ta l of estab­ N um ber of
disputes lishm ents employees
affected.
con­
in each
cerned.
period.

W orking
days.

P er cent
of to ta l
in each
period.

Clothing:
1901-1905...............................................
1906-1910...............................................
1911-1915......................................... .

51
56
51

9.1
11.0
11.4

200
106
156

8,968
6,076
21,454

196,797
105,531
587,739

8.0
3.2
11.8

T o tal..................................................

158

10.4

462

36,498

890,067

8.4

Food, liquors, and tobacco:
1901-1905...............................................
1906-1910...............................................
1911-1915...............................................

41
21
15

7.3
4.1
3.3

94
73
55

2,153
1,160
1,176

16,201
15,761
31,722

.7
.5
.6

T o tal..................................................

77

5.1

222

4,489

63,684

.6

Leather:
1901-1905...............................................
1900-1910...............................................
1911-1915...............................................

9
11
3

1.6
2.2
.7

14
34
4

324
548
80

3,596
13,434
2,570

.1
.4
.1

T o tal..................................................

23

1.5

52

952

19,600

.2

General tran sp o rt:
1901-1905................... ............................
1906-1910...............................................
1911-1915...............................................

43
54
39

7.7
10.6
8.7

83
112
145

18,970
21,622
12,553

411,778
573,396
212,139

16.7
17.5
4.3

T o tal..................................................

136

9.0

340

53,145

1,197,313

11.2

Miscellaneous:
1901-1905...............................................
1906-1910...............................................
1911-1915...............................................

22
17
32

3.9
3.3
7.1

45
49
158

3,296
1,477
2,019

36,053
24,255
35,073

1.5
.7
.7

T o tal..................................................

71

4.7

252

6,792

95,381

.9

U nskilled labor:
1901-1905...............................................
1906-1910.................................... i .....
1911-1915...............................................

33
40
20

5.9
7.8
4.5

31
42
33

3,842
5,990
15,104

18,619
19,402
475,950

•

.8
.6
9.6

T o tal..................................................

93

6.1

106

24,936

513,971

4.8

G rand to ta l......................................

1,519

100.0

9,159

377,234

10,712,262

100.0

A ll industries:
1901-1905...............................................
1906-1910...............................................
1911-1915...............................................

559
511
449

136.8
133.6
129.6

2,632
3,747
2,780

123,096
126,179
127,959

2,461,999
3,280,524
4,969,739

123.0
131.6
146.4

T o tal..................................................

1,519

100.0

9,159

377,234

10,712,262

100.0


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Federal Reserve Bank of St. Louis

i B ased on to ta l for 15-year period.

[1347]

IM M IGRATION.

IMMIGRATION IN JANUARY, 1918.

The number of immigrant aliens admitted into the United States
during the year 1917 was 152,960, as compared with 355,767 for
the year 1916, a decrease of 202,807, or 56.9 per cent. During 1917
the decrease from the preceding month for January, February, and
March was 19.9, 22.3, and 19.4 per cent, respectively. For April,
however, the number of immigrant aliens admitted showed an
increase of 32.3 per cent over the number admitted in March. As
compared with April, the figures of May showed a decrease of 48.9
per cent. The figures for June indicated an increase of 5.5 per cent
over those for May. During July only 9,367 immigrant aliens were
admitted. As compared with the figures for July, those for August
showed an increase of 7.3 per cent. In September the number fell
to 9,228, or 139 smaller than the number admitted in July. As
compared with August, the figures for September showed a decrease
of 8.2 per cent. In October there was an increase over the September
arrivals of 57, or 0.6 per cent. The admissions in November num­
bered only 6,446, a decrease of 30.6 per cent from the number ad­
mitted in October. In December there was an increase of 8.4 per
cent. In January, 1918, there was a decrease of 9 per cent as com­
pared with December, 1917.
IM M IG R A N T A L IE N S A D M IT T E D IN T O T H E U N IT E D S T A T E S IN S P E C IF IE D M O N T H S,
1913 TO 191^.
1918
M onth.

J a n u a ry ............................................
F e b ru a ry ..........................................
M arch..............................................
A p ril.................................................
M ay ...........................................
J u n e .......................................
J u ly ............................................... ..
A u g u st.............................................
S eptem ber.......................................
O ctober............................................
N ovem ber................. .....................
D ecem ber........................................

1913

46,441
59,156
96, 958
136, 371
137,262
176, 261
138,244
126,180
136, 247
134,440
104, 671
95,387

1914

44,708
46, 873
92, 621
119,885
107, 796
71, 728
60,377
37, 706
29,143
30,416
26, 298
20,944

1915

15,481
13, 873
19,263
24, 532
26, 069
22,598
21,504
21, 949
24, 513
25,450
24, 545
18, 901

1916

17,293
24,740
27,586
30,560
31, 021
30, 764
25, 035
29,975
36,398
37,056
34,437
30,902

N um ber.

P e r cent
increase
over
preceding
m onth.

6,356

i 9.0

1917

24, 745
19,238
15,512
20, 523
10,487
11,095
9,367
10, 047
9,228
9,285
6,446
6,987

i Decrease.

300

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Federal Reserve Bank of St. Louis

[1348]

l

MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

301

Classified by races or nationality, the number of immigrant
aliens admitted into the United States during specified periods and
in January, 1918, was as follows:
IM M IG R A N T A L IE N S A D M IT T E D IN T O T H E U N IT E D ST A T E S D U R IN G S P E C IF IE D
P E R IO D S AN D IN JA N U A R Y , 1918 B Y R A C E O R N A T IO N A L IT Y .»
Y ear en ding June 30—
Race or n ationality.
1915

1916

1917
7,971
1,221
327
1,134
1)843
305
3,428
94
5,393
69
32,246
5,900
24,405
9,682
25,919
17, 342
17,462
3, 796
35,154
8,925
194
479
434
16,438
10
3,109
10)194
'522
3,711
1)211
19,596
13,350
'244
15,019
2,587
'976
454
793
1,369
2)097

3,755
179
50
75
1,165
20
835
10
998
41
6,961
1,346
3,874
1,289
1,939
2,579
2,592
628
3,648
6,008
140
69
16
1,668
7
386
1,570
'117
815
30
5,763
2)840
24
4,171
1,255
'126
16
149
393
168

295,403

57,715

African (b lack )......................................................................
A rm e n ia n ...............................................................................
B ohem ian a n d M oravian...................................................
Bulgarian, Serbian, M ontenegrin....................................
Chinese....................................................................................
C roatian an d Slovenian.......................................................
C uban.
. .
......................................... ............
D alm atian, Bosnian, H erzegovinian..............................
D utch an d Flem ish ..............................................................
E a st In d ia n ............................................................................
E nglish.....................
.................................................
F in n ish ....................................................................................
F re n c h .....................................................................................
G erm an ...................................................................................
G reek.......................................................................................
H e b re w ...................................................................................
Irish ..........................................................................................
Ita lia n (n o rth ).......................................................................
Ita lia n (so u th ).......................................................................
Jap an ese..................................................................................
K o rean ................................................. .................................
L ith u a n ia n .............................................................................
M agyar.................
.............................................
M exican...................................................................................
Pacific Isla n d er.....................................................................
P o lish ......................................................................................
......................................
P o rtu g u ese.........................
R ou m an ian ............................................................................
R u ss ia n ................................................. ................................
R u th e n ian (R u ssn ia k )........................................................
S candin av ian ....................................
............................
Scotch......................................................................................
Slovak......................................................................................
S p a n ish ....................................................................................
Spani sh-A m erican................................................................
S y ria n ......................................................................................
T u rk ish ...................................................................................
W elsh........................................................................................
W est In d ia n (except C u b a n ).............................................
O ther peo p les__ ..........................................

82
38, 662
3,472
12,636
20, 729
15', 187
26,497
23, 503
10, 660
46,557
8,609
146
2,638
3) 604
10,993
6
9, 065
4,376
1,200
4', 459
2,933
24) 263
14) 310
2, 069
5) 705
1,667
1,767
'273
1,390
'823
1,877

4,576
964
642
3,146
2,239
791
3,442
114
6,443
80
36,168
5, 649
19,518
11,555
26,792
15,108
20,636
4,905
33, 909
8) 711
' 154
599
981
17,198
5
4,502
12,208
953
4, 858
1,365
19,172
13) 515
577
9, 259
1,881
676
216
983
948
3,388

T o tal...............................................................................

326, 700

298,826

5,660
932
1,651
3,506
2,469
1,942
3,402
305

July.
1917, to January,
January,
1918.
1918.

1 The to ta l n u m b e r of d ep artu res of em igrant aliens in J a n u a ry , 1918, was 6,661.

54591°—18----- 20


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187
28
3
7
119
29
144
5
979
83
418
223
156
405
350
62
428
1,112
15
4

.

28
1
72
32
17
101
3
388
353
1
447
74
15
2
30
19
16
6, 356

PUBLICATIONS RELATING TO LABOR.
O FFIC IA L — U N IT E D S T A T E S .

Massachusetts.—Bureau o f Statistics.

Labor division. Fortieth quarterly report on
employment in Massachusetts, quarter ending December 31, 1917. Boston, 1918.
16 p p .

This report is noted on pages 215 to 217 of this issue of the Monthly R eview .
•------------- P ublic document No. 36.
manufactures fo r the year 1916.

Thirty-first annual report on the statistics of
B oston, 1918. 131 p p .

Establishments covered number 9,829. By industry the greatest increase in
wages paid and in the number of wage earners was in the manufacture of foundry and
machine-shop products, namely, 58 per cent and 43.9 per cent, respectively.
The average number of wage earners employed each month is given as 682,621 (an
increase of 14.5 per cent over 1915), the number registered on December 16, 1916,
being 719,198, or approximately 10 per cent increase over the corresponding date in
1915. Classified weekly wages were obtained for 771,205 wage earners, and the follow­
ing table indicates the general upward trend of wages in 1916 as compared with 1915:
P E R C E N T O F W A G E E A R N E R S IN EA C H S P E C IF IE D W A G E G R O U P , 1916 AS CO M PA R ED
W IT H 1915.
1915
P e r cen t receiving—

Item .
N um ber.

U nder
$8.
A dult m ales................................
A d u lt fem ales...................
Y oung persons u n d er 18.................

•-----

1916

H o m e s te a d C o m m is s io n .

465, 655
190, 077
47,471

6.4
34.5
79.3

$8to
$15.

54.7
61.0
20.4

P er cent receiving—
N um ber.

$15 and
over.
38.9
4.5
.3

U nder
$8.
514,202
203,136
53,867

2.0

19.2
59.7

$8to
$15.

46.7
72.7
39.6

$15 and
over.
51.3

8.1
.7

P r o c e e d in g s o f the f i f t h a n n u a l c ity a n d to w n p l a n n i n g

conference o f Massachusetts plan n in g boards.
[Boston.] 36 p p .

B u lletin N o. 8, November, 1917.

The principal topics considered at this conference were: City and town planning
urgent in war tim e; districting or zoning for height, size, etc.; assessments of better­
ments; establishing building lines; adopting building codes; excess condemnation.
Michigan.— The housing code o f Michigan. A ct N o. 167, P ublic A cts o f 1917.
[Lansing, 1917.]

31pp.

N ew Y ork.—Departm ent o f Labor.

D ivision o f industrial hygiene. Dangers in the
manufacture and industrial uses o f wood alcohol. Special bulletin issued under the
direction o f the industrial commission. N o. 86, December, 1917. [A lbany, 1917.]
17 p p . Illustrated.

This bulletin is noted on pages 252 to 254 of this issue of the Monthly R eview .
Ohio.— Industrial Commission. D epartm ent o f investigation and statistics. Report
N o. 31.

Statistics o f mines and quarries in Ohio, 1916.

Columbus, 1918.

84 p p .

According to this report, the production of coal in 1916 (34,526,552 short tons) was
52.6 per cent greater than in 1915, and 21.2 per cent greater than the average produc302


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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 .

tion for the preceding five-year period. The number of workers reported as engaged
in mining in 1916 was 41,632 (not including 245 engaged in stripping coal), of whom
3,511 were employed in pick mines and 38,121 were employed in machine mines.
Pick miners worked an average of 182 days each, and the loaders in machine mines
averaged 197 days each, the average for each being somewhat greater than in 1915.
The average production per pick miner in 1916 was 659 tons as compared with 591
tons in 1915, and the average per loader (including drillers and shooters) increased
from 841 tons in 1915 to 1,359 tons in 1916. The average daily wages paid to miners
ranged from $1.38 paid to 728 trappers, to $4.42 paid to 3,161 machine runners and
helpers. The average wages of 23,266 loaders (including drillers and shooters) was
$3.26 per day. The report gives the total wage and salary payment for the 789 mines
reporting on this point for the year 1916 as $27,810,534, of which $27,478,784, or 98.9
per cent, was paid to wage earners.
Statistics on accidents are noted in a special article on pages 262 and 263 of this issue
of the M o n t h l y R e v i e w .
R h o d e I s l a n d . — T w e n ty - th ir d a n n u a l r e p o r t o f the fa c to r y in s p e c to r , m a d e to the g e n e r a l
a s s e m b ly a t its J a n u a r y se ss io n , 1 9 1 7 .

G re e n fie ld , T . M o re y & S o n [1917].

Covers the year ending December 31, 1916, during which 7,027 inspections were
made of factories employing 182,793 persons, of whom 6,839 were children under 16
years of age. There are 2,823 accidents noted, 26 being fatal. Four of the fatal and
940 of the nonfatal accidents were caused by machinery in establishments coming
under the supervision of the factory inspector. Of these 944 accidents, 564, or 59.7
per cent, resulted in cut, bruised, or jammed fingers. The report includes the names
of establishments, by towns, showing the nature of the business, the number em­
ployed, and the sanitary conditions in each case.
W

. — I n d u s t r i a l I n s u r a n c e D e p a r tm e n t.
S i x t h a n n u a l re p o r t f o r the 12 m o n th s
S e p t. 30, 1917.
T h e W o r k m e n ’s C o m p e n s a tio n A c t.
O ly m p ia , 1918.

a s h in g t o n

e n d in g
77 p p .

That portion of this report giving the operation of the State’s new medical system
is noted on pages 2 3 0 to 2 3 3 of this issue of the M o n t h l y R e v i e w .
U

S t a t e s .— D e p a r tm e n t o f the In te r io r .
B u r e a u o f M in e s . A c c id e n ts a t m e ta l­
lu r g ic a l w o r k s i n th e U n ite d S ta te s d u r in g th e c a le n d a r y e a r 1 9 1 6 . C o m p ile d by
A lb e r t I I . F a y . T e c h n ic a l p a p e r 2 0 1 .
W a s h in g to n , 1 9 1 8 . 18 p p .

n it e d

This report is noted on pages 260 to 262 of this issue of the M o n t h l y R
----- —— B u r e a u o f M in e s . B u l l e t i n 1 4 0 . O c c u p a tio n a l h a za r d a t

e v ie w

.

b la s t-fu r n a c e
p l a n t s a n d a c c id e n t p r e v e n tio n , b a se d o n records o f a c c id e n ts a t b la s t f u r n a c e s i n
P e n n s y l v a n i a i n 1 9 1 5 . B y F re d e ric k I I . W illc o x .
W a s h in g to n , 1 9 1 7 . 155 p p .
I llu s tr a te d .

See pages 258 to 260 of this issue of the
of this report.
----- D e p a r tm e n t o f L a b o r . B u r e a u o f

M

o n th ly

R

e v ie w

for

an

extended digest

I n d u s t r i a l H o u s in g a n d T r a n s p o r ta tio n .
S ta n d a r d s r e c o m m e n d e d f o r p e r m a n e n t i n d u s tr ia l h o u s in g d e v e lo p m e n ts , M a rc h , 1 9 1 8 .
W a s h in g to n , 1 9 1 8 . 1 5 p p .

These standards for permanent buildings to be constructed for the housing of indus­
trial war workers were adopted by the bureau in consultation with a group of housing
experts and others interested in housing. The standards relate to the arrangement
and construction of the different types of houses which may be erected for war work­
ers. The different types of houses considered as acceptable are the following: (1)
Single-family house; (2) two-family house (i. e., two-flat and not the semidetached
house, which latter is termed a single-family house, semidetached); (3) single-family
house with rooms for lodgers or boarders; (4) lodging house for men; (5) hotel for men;
(6) lodging house for women; (7) hotel for women; (8) tenement house; (9) boarding
house.


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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.

304

1‘These standards are not intended as inflexible requirements, but any plans which
fail to conform to them are not likely to be accepted unless supported by very strong
reasons. Local building codes, housing laws, and similar ordinances are to be fol­
lowed except where they permit of lower standards than herein set forth.”
U

S t a t e s . — D e p a r tm e n t o f L a b o r .
B u r e a u o f I m m i g r a t i o n . U n ite d S ta te s I m m i ­
g r a tio n S e r v ic e B u l l e t i n , p u b lis h e d m o n t h l y u n d e r d ir e c tio n o f the C o m m is s io n e r
G e n e ra l o f I m m ig r a tio n .
W a s h in g to n , 1 9 1 8 .
V o l. 1 , N o . 1 .

n it e d

Replaces former monthly statistical bulletin. Contains immigration statistics, deci­
sions affecting the enforcement of the immigration and Chinese-exclusion laws and
personal notes of the service.
----- P u b li c H e a lth S e r v ic e . I n d u s t r i a l e ffic ie n c y ; th e b e a r in g s o f p h y s io lo g ic a l sc ien ce
th e re o n ; a re v ie w o f re cen t w o r k .
B y F re d e ric S . L e e , P h . D .
R e p r in t N o . 448
f r o m th e P u b li c H e a lth R e p o r ts , J a n . 1 1 , 1 9 1 8 ( p p . 2 9 - 3 5 ).
W a s h in g to n , 1 918.
7 pp.
•

--------- M itig a tio n

o f the h e a t h a za r d i n in d u s tr ie s , b y J . A . W a tk in s .
R e p r in t N o .
441 f r o m th e P u b li c H e a lth R e p o r ts , D e c . 1 4 , 1 917 ( p p . 2 1 1 1 -2 1 2 1 ).
W a s h in g to n ,
1 9 18 . 1 0 p p .

A statement of the subtopics indicates the scope of this paper, which was read before
the Section on Industrial Hygiene of the American Public Health Association, Wash­
ington, D. C . , October 19, 1917: Physiological considerations, including heat produc­
tion, heat loss, and effects of high temperature and hum idity on the body; symptoms
produced by exposure to heat, including acute symptoms, chronic symptoms, and
effect of radiant heat; mitigation of heat hazard, including removal of source of heat,
protection of workers, to increase rate of heat loss, relation of hum idity to heat loss,
air motion, water drinking, bathing, reduction of the amount of heat produced by
the body, and influence of diet.
• --------- M o r b id ity s ta tis tic s o f w a r in d u s tr ie s need ed . B y B . S . W a r r e n a n d E d g a r
S y d e n s tr ic k e r . R e p r i n t N o . 4 5 2 f r o m th e P u b li c H e a lth R e p o r ts , F e b r u a r y 1 , 1 918
( p p . 1 2 7 - 1 3 2 ).
W a s h in g to n , 1 9 1 8 . 6 p p .

Since “ morbidity statistics, as an index of a population’s health, are regarded
without question as one of the most needed instruments and one of the most desired
goals of preventive medicine,” and “ efficiency in the prevention of diseases among
industrial workers was never more clearly indispensable than now,” the authors of
this pamphlet make a strong plea for “ a dependable current index of the health of
the workers, such as a properly administered system of morbidity statistics will
afford.” The minimum requirements for useful statistics of morbidity, it is sug­
gested, should be (1) exposure, in years or in months, of the workers who should be
classifiable according to sex, age, and occupation; and (2) cases of sickness (at least
those causing disability), including (a ) sex, age, and occupation of persons affected,
and (b ) cause of sickness with tim e of onset, length of disability, and nature of ter­
mination. A number of reasons are given why it would be practicable to secure
statistics measuring up to these requirements.
.—--------- T h e lig h tin g o f i n d u s t r i a l e s ta b lis h m e n ts . T h e n e e d f o r s u p e r v is io n , w ith a
s u g g e ste d s y s te m o f m a in te n a n c e r a tin g f o r a r tific ia l lig h tin g e q u ip m e n t. B y D a v is H .
T u c k . R e p r i n t N o . 4 2 9 f r o m the P u b li c H e a lth R e p o r ts , O ctober 1 9 ,1 9 1 7 ( p p . 1 7 6 1 1 7 6 4 ).
W a s h in g to n , 1 9 1 7 . 3 p p .

Shows how to measure efficiency of maintenance of an establishment’s artificial
lighting equipment, and emphasizes the desirability of keeping all lighting units
clean and in good repair. “ By adopting such practices a large economic waste could
be avoided and losses due to decreased production, inferior products, accidents,
and defective eyesight minimized.”


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305

O F F IC IA L — F O R E IG N C O U N T R IE S .
. — C a m a ra de D ip u ta d o s de la N a c ió n .
P r o y e c to de C ó d ig o de S e g u r o
N a c io n a l c o n E x p o s i c i ó n de M o tiv o s y P r o y e c to de L e y B a s ic a . B u e n o s A ir e s ,
1917. 539 p p .

A

r g e n t in a

This volume contains the text of a proposed law authorizing a commission to pre­
pare a code of national insurance, including maternity, sickness, old-age, unemploy­
ment, widows ’ and orphans ’, and accident insurance, and the report of a committee
to which the proposed law was referred. One chapter is devoted to a discussion of
the present stage of development of mutual aid associations. These have attained
considerable importance, especially among Italian and French residents. Accord­
ing to data collected by the census of 1914, there were 1,203 associations for mutual
aid or insurance, having a registered membership of 507,637. Of these members
but 65,188 were citizens of Argentina. An extended discussion of the situation
relative to social insurance is found under the title “ Our popular system of social
insurance” (Nuestra Previsión Popular).
. — B u r e a u o f C e n s u s a n d S ta tis tic s .
O ffic ia l y e a r b o o k , c o n ta in in g a u th o r ita ­
tiv e s ta tis tic s f o r th e p e r io d 1 9 0 1 -1 9 1 6 , a n d corrected s ta tis tic s f o r the p e r io d 1 7 8 8 to
1 9 0 0 . N o . 1 0 -1 9 1 7 .
M e lb o u r n e , 1 9 1 7 . x l, 1 1 9 8 p p .

A

u s t r a l ia

——

[D e p a r tm e n t o f th e T r e a s u r y .] W a r p e n s io n s .
J u n e 30, 1917.
M e lb o u r n e , J a n u a r y 2 2 , 1 9 1 8 .

S t a t e m e n t f o r the 12 m o n th s e n d e d
4 pp.

Shows a total of 41,348 pensions claimed during the year ending June 30, 1917,
with 45,191 pensions current at that date. Of this latter number, 15,916 were payable
to incapacitated members of the forces, and 29,275 to dependents. The total expendi­
ture for pensions was £1,212,631 17s. 6d. ($5,901,273), not counting the expenditure
in New Zealand, which is not reported. The average fortnightly rate of war pensions
at the date mentioned was approximately £1 9s. 4d. ($7.14) for all pensions.
Ca

n a d a

.— D e p a r tm e n t o f L a b o r .

1918.

S tr ik e s a n d lo c k o u ts i n C a n a d a , 1 9 0 1 -1 9 1 6 .

This report is noted on pages 297 to 299 of this issue of the
Ca

n a d a

(N

1918.

ova

Sc

o t ia

) . — W o r k m e n 's C o m p e n s a tio n B o a r d .

e n m a r k

of

o n th ly

R

e v ie w

.

H a lifa x ,

15 p p .
.— D a n m a rks

d e p a r te m e n t.

F

M

R e p o r t, 1 9 17.

This report is noted on pages 233 to 235 of this issue of the
D

O tta w a ,

138 p p .

s ta tis tik . S t a t i s t i k a a rb o g ,
C openhagen, 1917. 256 p p .

1917.

M

o n th ly

U tg iv e t

R

a f det

e v ie w

.

s ta tis tis k e

Statistics of trade-unions taken from this report are presented on pages 223 and 224
this issue of the M o n t h l y R e v i e w .
. —[A s s e m b lé e . S é n a t .
C o m m is s io n de l ’a rm é e .]
R a p p o r t f a i t a u n o m de la
C o m m is s io n de l ’a rm é e , chargée d ’e x a m in e r la p r o p o s itio n de lo i, a d o p té e p a r la
C h a m b re d es D é p u té s , te n d a n t à V o b lig a tio n de la r é é d u c a tio n p r o fe s s io n n e lle des
blessés e t des m u t i l é s de la g u e rre a p p e lé s à b é n é fic ie r de la lo i s u r les p e n s io n s m i l i ­
ta ire s , b y P a u l S t r a u s s , S é n a te u r . P a r is , 1 9 1 6 . 7 8 p p . ( N o . 2 6 1 . S é n a t .
A n n é e 1 9 1 6 . S e s s io n o r d in a ir e . A n n e x a u p ro c e s-v e r b a l de la sé a n ce d u 4 j u i l l e t ,
1 9 1 6 .)

r a n c e

This report discusses steps taken in 1914, 1915, and 1916 for founding and pro­
moting schools of vocational reeducation for the disabled in the War, and gives an
outline of their systems of organization as w ell as a list of the reeducation centers,
including the number of men which can be accommodated and the general courses
of training offered in each. It urges agricultural reeducation as a national necessity,
and describes the work of the military health service and the em ployment service
of the Ministry of War in relation to disabled soldiers. One chapter is devoted to
an account of the creation of the National Office of Disabled and Retired Soldiers,
with its three branches and their various functions. Special training of the blind
and deaf and the employment of the disabled are also considered. The report closes
with a comparison of the tex t of the bill as passed by the Chamber of Deputies with


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that proposed by the Commission of the Senate, with comment upon the changes
made.
F

. — Bureau d ’études de l ’inform ation diplom atique.
L ’effort économique de la
France pendant deux ans et demi de guerre. Paris, Berger-Levrault, 1917. 142 p p .

r a n c e

These studies, illustrated by statistical tables, deal with several phases of French
economic effort during the first two and one-half years of the War. In the first study
the general financial situation at the outbreak of hostilities is discussed and the
measures taken to m eet the great and sudden demands upon the treasury are enum­
erated. Through private and official initiative, France has been able not only to
solve the agricultural problems of lack of labor and need of increased food production,
but also to increase her equipment and to prepare for the future. The part of the
French railways in the transportation of troops and war material, of merchandise and
of food for the civil population constitutes the third study, while organized relief
for refugees in France, including an account of the principles governing the adminis­
tration of this assistance and the employment of the refugees forms the fourth.
The fifth, and last study, the industrial effort of France during the War, considers the
effect of the War upon the general industrial situation, including labor, unem ploy­
ment, and production.
G

B r i t a i n . —Home Office and Board o f Trade.
Collection o f pam phlets on the
substitution o f women in industry fo r enlisted men. Pam phlets N os. 1 to 27.
[London, 1917. ]

r ea t

The following trades are dealt with in these pamphlets: China and earthenware;
pottery (coarse ware) and brick; india-rubber works; color, paint, and varnish; wool
industry; paper making; cotton; hosiery manufacturing and finishing trade; wood­
working; leather tanning and currying; soap and candle; glove; heavy clothing; to­
bacco manufacture; flour milling; boot and shoe manufacture; chemical industries;
sugar refineries; silver and electroplate; oilseed and feeding-cake industry; glass
bottle and flint glass; gasworks; leather (case and fancy leather); municipal services;
light clothing; brush; printing, bleaching, and dyeing (cotton).
—— fLocal Government Board.] Seventy-ninth annual report o f the registrar general
o f births, deaths, and marriages in E ngland and Wales.
xcii, 492 p p . Price, 5s. net.

—— Manuals o f emergency legislation.
and revised to January 31, 1918.
1918. xi, 88 p p . Price, 6d. n et .

(1916.)

London, 1918,

Defense o f the R ealm R egulations, consolidated
E dited by Alexander P u llin g , C. B . London,

■
----- M inistry o f Pensions.

The first home o f recovery fo r our nerve-shattered sailors and
soldiers. A description o f the work that is being done at Golders Green, London,
N W 4■ [London, 1917.] 14 p p . Illustrated.

This pamphlet tells how discharged sailors and soldiers suffering from chronic
nervous troubles caused by war strain are restored to health and to efficiency in a
home established by the Government, in cooperation with the British Red Cross
Society, as the first model institution of its kind.
• ---------- Instructions and notes on the treatment and training o f disabled men.
1917.

63 p p .

London,

Price, 3d. net.

• --- M inistry o f Reconstruction. A list o f commissions and committees set u p to deal
with questions which w ill arise at the close o f the War. London, 1918. 34 p p .
Price, 4d. net.

These commissions are presented under 15 groupings, as follows: Trade develop­
ment; finance; raw materials; coal and power; intelligence; scientific and industrial
research; demobilization and disposal of stores; labor and employment; agriculture
and forestry; public administration; housing; education; aliens; legal; miscellaneous.
>----- N ational Health Insurance. Medical Research Committee. The causation and pre­
vention o f trinitrotoluene ( T N T ) poisoning. Special report series N o. 11. London,
1917.

85 p p .

Price, Is. net.

This report is noted on pages 237 to 250 of this issue of the


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I

307

. — R e g is tr a r G e n e r a l.
F if t y - t h i r d d e ta ile d a n n u a l r e p o r t o f the re g istra r g e n e ra l
f o r I r e la n d , c o n ta in in g a g e n e r a l a b str a c t o f the n u m b e r s o f m a r r ia g e s , b ir th s , a n d
dea th s re g iste re d i n I r e la n d d u r in g th e y e a r 1 9 1 6 . D u b l i n , 1 9 1 7 . 59 p p . P r ic e ,
9 d . n e t.

r e l a n d

N

. — Directie van den Arbeid.
Verslag over het haventoezicht uitgeoeffend
in 1 9 1 6 . Uitgegeven door het Departement van Landbouw, Nijverheid en Handel.
Leiden, 1 9 1 7 . 115 p p . 3 charts.

e t h e r l a n d s

A report of the conditions of labor in the longshoremen’s trade in Holland. There
are presented data as to accidents, hours of labor and Sunday work, conditions growing
out of the War, and a special chapter on the age distribution of longshoremen. A
special law has been in force in the Netherlands since November 1, 1916, for the pro­
tection of this class of workmen.
S

. — L iv s m e d e ls fo r b r u k n in g e n i n o m m in d r e b e m ed la d e h u s h â ll A re n 1 9 1 4 och 1 916
a v K . S o c ia ls ty r e ls e n . S to c k h o lm , 1 9 1 7 . 77 p p .

w e d e n

For a digest of this study of the changes in the character of food consumption in
Sweden, see pages 109 to 112 of this issue of the M o n t h l y R e v i e w .
UNOFFICIAL.
, John B.
L a b o r lares i n the cru cib le: M e a su re s n e c essa ry f o r e ffe c tiv e n e s s
d u r in g a n d a fte r th e W a r. R e p r in te d f r o m the S u r v e y f o r F e b r u a r y 1 6 , 1 9 1 8 . 8 p p .

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L e d r o it p e n d a n t la g uerre: g u id e j u r i d i q u e
e t p r a tiq u e p o u r les f a m i l l e s des v ic tim e s de la g u erre et le u r s c o n s e ils. P a r is , M a rc h a i
et G o d d e, 1 9 1 6 . 2 1 6 p p .

po u r

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A practical guide to war-time legislation, for the families of victims of the War and
their counsel, prepared by the juridical section of the National French Alliance for
the purpose of simplifying the tasks of advocates, solicitors, notaries, teachers, presi­
dents of industries, secretaries of mayors, and others called upon to give advice to
families of men killed in the War.
, G e o r g e D ., in
c o l l a b o r a t io n
w it h
R e g in a l d T r a u t s c h o l d .
The
T a y lo r s y s te m i n F r a n k l i n m a n a g e m e n t: A p p l i c a t i o n a n d r e s u lts .
N ew Y o rk, The
E n g in e e r in g M a g a z in e C o ., 1 9 1 7 . 2 4 5 p p .
I n d u s t r i a l M a n a g e m e n t L ib r a r y .

B

a bco ck

B

a il e y

, W

il l ia m

C o ., 1 9 1 7 .

B .,

a n d

153 p p .

C

u m m in g s

, J

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.

S ta tis tic s .

C h ica g o , A . C. M c C lu r g &

B ib lio g r a p h y .

This book has been prepared for the use of those who desire some knowledge of the
fundamentals of statistics, and for those who find it necessary to gather primary sta­
tistical facts, plan tables, tabulate the raw material, and present it to the public i n such shape that it can be use