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f —
ü . B. DEPARTMENT OF LABOR
BUREAU OF LABOR STATISTICS
MONTHLY REVIEW
O f THE
U. S. BUREAU OP LABOR STATISTICS
VOLUME I— NOVEMBER, 1915—NUMBER 5
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Federal Reserve Bank of St. Louis
WASHINGTON
GOVERNMENT PRINTING OFFICE
1915
SERIES OF BULLETINS PUBLISHED BY THE BUREAU OF LABOR STATISTICS.
T h e p u b lic a tio n o f th e A n n u a l a n d S p e c ia l R e p o r ts a n d o f th e b im o n th ly B u lle tin h as
b een d is c o n tin u e d , a n d sin c e J u ly , 1912, a B u lle tin h a s been p u b lis h e d a t irregu lar in te r v a ls.
E ach n u m b e r c o n ta in s m a tte r d e v o te d to o n e o f a serie s o f g e n e ra l s u b je c ts . T h ese B u lle
tin s are n u m b e r e d c o n s e c u tiv e ly in ea ch serie s a n d a lso c a rry a c o n s e c u tiv e w h ole n u m b e r ,
beg in n in g w ith N o. 101. A lis t o f th e serie s, to g e th e r w ith th e in d iv id u a l B u lle tin s fa llin g
u n d er ea ch , is g iv e n below . A lis t o f th e R e p o r ts a n d B u lle tin s o f th e B u rea u is su e d p r io r
to J u ly 1, 1912, w ill be fu rn ish e d o n a p p lic a tio n .
Wholesale Prices.
No. 1. W holesale prices, 1890 to 1912. (B ui. No. 114.)
No. 2. Wholesale Prices, 1890 to 1913. (B ui. No. 149.)
No. 3. In d ex num bers of wholesale prices in th e U nited States and foreign countries.
No. 4. Wholesale prices, 1890 to 1914. (B ui. No. 181.) [In press.]
(B ui. No. 173.)
Retail Prices and Cost of Living.
No. 1. R etail prices, 1890 to 1911: P a r t i . (B ui. No. 105: P a r t i .)
R etail prices, 1890 to 1911: P a rt I I —General tables. (B ui. No. 105: P a rt II.)
No. 2. R etail prices, 1890 to June, 1912: P a rt I. (B ui. No. 106: P a rt I.)
R etail prices, 1890 to June, 1912: P a rt I I —General tables. (B ui. No. 106: P a rt II.)
No. 3. R etail prices, 1890 to A ugust, 1912. (Bu'l. No. 108.)
No. 4. R etail prices, 1890 to October, 1912. (B ui. No. 110.)
No. 5. R etail prices, 1890 to December, 1912. (B ui. No. 113.)
No. 6. R etail prices, 1890 to February, 1913. (B ui. No. 115.)
No. 7. Sugar prices, from refiner to consumer. (B ui. No. 121.)
No. 8. R etail prices, 1890 to A pril, 1913. (B ui. No. 125.)
No. 9. W heat and flour prices, from farmer to consumer, (B ui. No. 130.)
No. 10. R etail prices, 1890 to June, 1313, (B ui. No. 132.)
No. 11. R etail prices, 1830 to August, 1313. (B ui. No. 136.)
No. 12. R etail prices, 1890 to October, 1913. (B ui. No. 138.)
No. 13. R etail prices, 1890 to December, 1913. (B ui. No. 140.)
No. 14. R etail prices, 1907 to December, 1914. (.Bui. No. 156.)
No. 15. B u tter prices, from producer to consumer. (B ui. No. 164.)
No. 16. R etail prices, 1907 to Ju n e, 1915. (B ui. No. 184.) [In press.)
W ages and Hours of Labor.
No. 1. Wages and hours of labor in th e cotton, woolen, and silk industries, 1890 to 1912. (B ui. No. 128.)
No. 2. Wages and hours of labor In the lum ber, millwork, and furniture industries, 1890 to 1912. (B ui.
No. 129.)
No. 3. U nion scale of wages and hours of labor, 1907 to 1912. (B ui. No. 131.)
No. 4. Wages and hours of labor in th e boot and shoe and hosiery and k n it goods industries, 1890 to
1912. (B ui. No. 134.)
No.
5.Wages and hours of labor in th e cigar and clothing industries, 1911 and 1912. (B ui. No. 133.)
No.
6.Wages and horns of labor in the building and repairing of steam railroad cars, 1890 to 1912.
(B ui. No. 137.)
No. 7. U nion scale of wages and hours of labor, May 15,1913. (B ui. No. 143.)
No. 8. Wages and regularity of em ploym ent in th e dress and w aist industry of New Y ork City. (Bui.
No. 148.)
No. 9-Wages and regularity of em ploym ent in th e cloak, suit, and skirt industry. (B ui. No. 147.)
No. 10.Wages and hours of labor in th e cotton, woolen, and silk industries, 1807 to 1913. (B ui. No.
150.)
No. 11. Wages and hours of labor in th e Iron and steel industry in th e U nited States, 1907 to 1912.
(B ui. No. 151.)
No. 12. Wages and hours of labor in th e lum ber, millwork, and furniture Industries, 1907 to 1913.
(B ui. No. 153.)
No. 13. Wages and hours of 'labor in th e boot and shoe and hosiery' a nd u n d e n t ear industries, 1907 to
1913. (B.ul. No. 154.)
No. 14. Wages and hours of labor In th e clothing a n d cigar industries, 1911 to 1913. (B ui. No. 161.)
No. 15. Wages and hours of Labor in th e building and repairing of steam railroad cars, 190? to 1913.
(B ui. No. 183.)
No. 16. Wages and hours of labor in th e iron and steel industry In the U nited States, 1907 to 1913,
(B ui. No. 168.)
No. 17. U nion scale of wages and hours of labor, May 1,1914. (B ui. No. 171.)
No. 18. Wages and hours of labor in th e hosiery a n d underw ear industry, 1907 to 1914. (B ui. No. 177.)
No. 19. Wages and hours of labor in th e boot and shoe in d u stry , 1907 to 1914. (B ui. No. 178.)
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[See also third page of cover.
( C o n tin u e d fr o m second, p a g e o f cover.)
Women In Industry.
No. 1. Hours, earnings, a n d d u ratio n of em ploym ent of wage-earning women in selected industries in
th e D istrict of Columbia. (B ui. No. 110.)
No. 2. W orking hours of women in th e pea canneries of W isconsin. (B ui. No. 119.)
No. 3. E m ploym ent of w omen in pow er laundries in Milwaukee. (B ui. No. 122.)
No. 4. Hours, earnings, an d conditions of labor of women in In d ian a m ercantile establishm ents a nd
garm ent factories. (B ui, No. 160.)
No. 5. Sum m ary of th e report on condition of w om an and child wage earners in the U nited States.
(B ui. No. 175.)
No. 6. Effect of m inim um -w age determ inations in Oregon. (Bui. No. 176.)
No, 7. Women in th e boot a n d shoe in d u stry in Massachusetts. (B ui. No. 180.) [In press.)
Workmen’s Insurance and Compensation (including laws relating thereto).
No. 1. Care of tuberculous wage earners in G erm any. (B ui. No. 101.)
No. 2. B ritish N ational Insurance Act, 1911. (B ui. No. 102.)
No. 3. Sickness a n d accident insurance law of Sw itzerland. (B ui. No. 103.)
No. 4. Law relating to insurance of salaried employees in Germ any. (B ui. No. 107.)
No. 5. W orkm en’s compensation laws of th e U n ited States and foreign countries. (B ui. No. 126.)
No. 6. Compensation for accidents to employees of th e U n ited States. (B ui. No. 155.)
Industrial Accident and Hygiene.
No. 1. Lead poisoning in potteries, tile works, a n d porcelain enameled sanitary w are factories. (Bui.
No. 104.)
No. 2. Hygiene of th e p ain ters’ trade. (B ui. No. 120.)
No. 3. Dangers to workers from du sts a n d fumes, a n d m ethods of protection. (B ui. Nf>. 127.)
No. 4. Lead poisoning in th e sm elting a n d refining of lead. (B ui. No. 141.)
No. 5. In d u strial accident statistics. (B ui. No. 157.)
No. 6. Lead poisoning in th e m anufacture of storage batteries. (B ui. No. 165.)
No. 7. In d u strial poisons used in th e rubber in d u stry . (B ui. No. 179.)
Conciliation a n d Arbitration (including strikes and lockouts).
No. 1. Conciliation and a rbitratio n in th e building trades of Greater New Y ork. (B ui. No. 124.)
No. 2. R ep o rt of th e in d u strial council of th e B ritish B oard of T rade on its in q uiry into industrial
agreem ents. (B ui. No. 133.)
No. 3. M ichigan copper d istrict strike. (B ui. No. 139.)
No. 4. In d u strial court of th e cloak, suit, and sk irt in d u stry of New Y ork C ity. (B ui. No. 144.)
No. 5. Conciliation, arbitration, and san itatio n in th e dress and w aist industry of New Y ork City.
(Bui. No. 145.)
Labor Laws of the United States (including decisions o f courts relating to labor).
No. 1. L abor legislation of 1CX2. (B ui. No. H i.)
No. 2. Decisions of courts a n d opinions affecting labor, 1912. (B ui. No. 112.) _
No. 3. L abor laws of th e U n ited States, w ith decisions of courts relating thereto. (B ui. No. 148.)
No. 4. Decisions of courts a n d opinions affecting labor, 1913. (B ui. No. 152.)
No. 5. Labor legislation of 1914. (B ui. No. 166.)
No. 6. Decisions of courts affecting labor, 1914. (B ui. No. 169.)
Foreign Labor Laws.
No. 1. A d m inistration of labor laws and factory inspection in certain European countries.
No. 112.)
(Bui.
M iscellaneous Series.
No. 1. Statistics of unem ploym ent and th e work of em ploym ent offices in th e U nited States. (B ui.
No. 109.)
No. 2. P rohibition of nightw ork of young persons. (B ui. No. 117.)
No. 3. Ten-hour m axim um working day for women a n d young persons. (B ui. No. 118.)
No. 4. Em ployers’ welfare work. (B ui. No. 123.)
No. 5. G overnm ent a id to hom e owning and housing of working people in foreign countries. (Bui.
No. 158.)
No. 6. Short-unit courses for wage earners, a n d a factory school experim ent. (B ui. No. 159.)
No. 7. V ocational education survey of R ichm ond, Va. (B ui. No. 162.) [In press.)
No. S. M inimum-wage legislation in th e U n ited States an d foreign countries. (B ui. No. 167.)
No. 9. Foreign food prices as affected by th e w ar. (B ui. No. 170.)
No. 10. U nem ploym ent in New Y ork City, N . Y . (B u i. No. 172.)
No. 11. S u b j e c t i n d e x of the p u b l ic a ti o n s of th e U n ite d States B ureau of Labor Statistics up to May l,
1915. (B ui. No. 174.)
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W A SH IN G TO N
G O V ER N M EN T PR IN T IN G O FFICE
1915
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CONTENTS.
Page.
Unemployment in certain cities in the United States......................................
5-7
Occupational disease clinic of New York City Health Department, by Alice
Hamilton, M. D ................................................................................................... 7-19
Federal employment work of the Department of Labor...................................... 19-22
Conciliation work of the Department of Labor, September 16 to October 18,1915.
23
Immigration............................................................................................................ 24-26
Annual meeting of National Association of Accident Boards and Commissions.. 27-37
Report of committee on statistics and compensation insurance cost........... 28-37
Proposed prohibition of lead paints in Great Britain........................................... 38-40
Unemployment legislation in 1915........................................................................ 40-42
Minimum wage for women in retail stores in Massachusetts................................ 42-44
Minimum-wage law of Kansas............................................................................... 44, 45
Bulletin of the New York State Industrial Commission...................................... 46, 47
Report of the Commission on Industrial Relations............................................ 48-76
Statistics of wages of railway employees in the United States............................ 77-80
Industrial arbitration in Norway........................................................................... 81-83
Compulsory cartel or monopoly in the German coal-mining industry................ 83-85
Official reports relating to labor........................................................................... 86-100
United States................................................................................................... 86-92
Foreign countries..........................................................
92-100
Periodical publications of foreign labor departments and bureaus.................. 100-104
Bureaus of labor, industrial commissions, etc., and their chief officials.......... 104,105
State bureaus charged with enforcement of factory-inspection laws and chief
inspection officials............................................................................................ 106,107
Minimum-wage boards............................................................................- ........ - 107,108
Workmen’s compensation and insurance commissions..................................... 108-111
Bureaus of labor in foreign countries................................................................. Ill, 112
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3
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Federal Reserve Bank of St. Louis
MONTHLY REVIEW
OF THE
U. S. BUREAU OF LABOR STATISTICS
WASHINGTON
N OVEM BER, 1015
UNEMPLOYMENT IN CERTAIN CITIES IN THE UNITED
STATES.
Statistics of unemployment in 12 cities in the Rocky Mountain
and Pacific Coast States during Jtme or July, 1915, are just available
as the result of a study made for the Bureau of Labor Statistics by
the Metropolitan Life Insurance Co. The canvass was made during
June and July, 1915.
This is the third report on unemployment in the United States
published by the bureau. The first of these investigations was
made in New York City in February, 1915, and published in Bulletin
172 of the Bureau of Labor Statistics. The second was made in 15
cities outside of Greater New York in March and April, 1915, and
given to the press on May 31. The results of the survey in New York
City, made in January, 1915, by the Metropolitan Life Insurance
Co., tallied so closely with the results obtained from an independent
study by the Bureau of Labor Statistics that this company was
employed by the Commissioner of Labor Statistics to make similar
investigations in other cities. The families holding industrial poli
cies were visited by agents of the company and the number of partly
and wholly unemployed was ascertained. The data secured furnish
the basis for the statistics of unemployment in these cities outside of
Greater New York.
The survey just completed covered 36,537 families, in which were
found 49,333 wage earners. Of this number 6,373, or 12.9 per cent
of all wage earners in families visited, were wholly unemployed, and
in addition 9,971, or 20.2 per cent, were reported as part-time work
ers. The highest percentage of unemployment was found in Port
land, Oreg., where 20 per cent of the wage earners were out of work,
and 17.3 per cent were working part time only. The lowest per
centage of unemployment was found in Ogden, Utah, where only
4.5 per cent were unemployed, and 14.3 per cent working part time
only.
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5
6
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
The cities showing the largest percentages of part-time workers
were: San Diego, 29.2 per cent; Oakland, 26.9 per cent; San Fran
cisco, 25.4 per cent; Los Angeles, 24.1 per cent; and Sacramento,
23.7 per cent. The average for all 12 cities combined was 20.2 per
cent. The leading facts in regard to the individual cities are shown
in the following table:
U N E M P L O Y M E N T IN 12 C IT IE S , AS SH O W N B Y IN V E S T IG A T IO N M ADE D U R IN G JU N E
A N D JU L Y , 1915.
Cities.
N um ber
of fami
lies can
vassed.
P art-tim e wage
N um ber
Unemployed.
earners.
of wage
earners
in fami
N um ber. P er cent. N um ber. P er cent.
lies.
B u tte , M ont........................................................
Los Angeles, C al...............................................
O akland, Cal.......................................................
Ogden, U ta h .......................................................
P ortlan d , Oreg...................................................
Sacram ento, Cal.................................................
Salt Lake C ity, U ta h .......................................
San Diego, C al...................................................
San Francisco, C a l...........................................
Seattle, W ash .....................................................
Spokane, W ash ..................................................
Tacom a, W ash...................................................
3, 557
5,621
2,927
581
1,783
1,288
1,052
1,466
5,320
10,112
1,012
1,818
4,229
7,227
4,256
887
2,347
1,856
1,664
1,828
7,749
13,473
1,259
2,558
■ 298
822
510
40
469
170
173
305
1,206
1,713
210
457
7.0
11.4.
12.0
4.5
20.0
9.2
10.4
16.7
15.6
12.7
16.7
17.9
536
1,744
1,144
127
406
439
295
533
1,971
1,992
257
527
12.7
24.1
26.9
14.3
17.3
23.7
17.7
29.2
25.4
14.8
20.4
20.6
T o tal..........................................................
36,537
49,333
6,373
12.9
9,971
20.2
It is interesting to note that the unemployment found in these 12
cities at the time the canvass was made was slightly in excess of the
unemployment found in 15 cities outside of Greater New York in the
East and Middle West in an investigation made during March and
the first part of April, and published in May, 1915, this earlier survey
covering 399,881 families having 644,358 wage earners. Of the wage
earners in these families 73,800, or 11.5 per cent, were wholly unem
ployed, and in addition 106,652, or 16.6 per cent, were reported as
having only part-time employment. The highest percentage of
unemployment was found in Duluth, where 20.3 per cent of the
wage earners were out of work and 17.8 per cent were working part
time only. The lowest percentage of unemployment was found in
Bridgeport, where only 4.3 per cent were unemployed, but 19.9 per
cent of all wage workers were reported as working only part time.
The cities showing the largest percentages of part-time workers
were: Wilkes-Barre, 32.3 per cent; Pittsburgh, 29 per cent; Mil
waukee, 28.9 per cent; Bridgeport, 19.9 per cent; Philadelphia, 19.6
per cent; Duluth, 17.8 per cent; Toledo, 17.5 per cent; and Boston,
17.3 per cent. The percentage for all 15 cities combined was 16.6
per cent. The details for the individual cities are shown in the table
immediately following:
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7
MONTHLY REVIEW OE THE BUREAU OE LABOR STATISTICS.
U N E M P L O Y M E N T IN 15 C IT IE S AS SH O W N B Y IN V E S T IG A T IO N D U R IN G M ARCH A N D
A P R IL , 1915.
P art-tim e wage
m b er
U nem ployed.
N u m b er Nofuwage
earners.
of fami earners
lies can in fami
vassed.
N um ber. P e r cent. N um ber. P er cent.
lies.
Cities.
Boston
■Rrirl gpport
P fl ipp.pp
ripvp.himl
Pnlnt.h
TCnrisn.s City
...................................................
M il w r it Icee
M in n e a p o lis
....................................................................
...................................................
...............................................................
...............................................
.............................................
.............................................................
........................................................
Philadelphia.
...............................................................
P ittsburg h
.................................................................
P t Tjonis
.................................................................
Ppringfiftlfl M o
........................................................
Rt Pani
....................................................................
T n lp .fjo
.........................................................................
W ilk o s -P n rrp
..........................................................
Total
.....................................................
46,649
8,144
96,579
16,851
1,383
14,890
8,813
2,206
79,058
36,544
65,979
1,584
2,515
7,233
11,453
77,419
12,533
157,616
24,934
2,089
22,512
13,112
3,449
137,244
53,336
104,499
2,284
4,135
10,312
18,884
7,863
537
20,952
2,348
425
2,815
1,030
476
14,147
5,942
14,219
162
582
1,102
1,200
10.2
4.3
13.3
9.4
20.3
12.5
7.9
13.8
10.3
11.1
13.6
7.1
14.1
10.7
6.4
13,426
2,493
16,575
3,060
371
1,979
3,788
183
26,907
15,474
14,317
32
142
1,801
6,104
399,881
644,358
73,800
11.5
106,652
17.3
19.9
10.5
12.3
17.8
8.8
28.9
5.3
19.6
29.0
13.7
1.4
3.4
17.5
32.3
16.6
—
For comparison with these results, the unemployment in New
York City, as ascertained in the investigation of the bureau during
February, 1915, is given as follows:
Number oi families scheduled.......................................
Number of families having unemployed wage earners.
Per cent of families having unemployed wage earners.
Number of persons in families.......................................
Number of wage earners in families..............................
Number of unemployed wage earners...........................
Per cent of unemployed wage earners..........................
54,849
11,723
21.4
229,428
95,443
15,417
16.2
The figures as shown by the bureau’s own investigation differ but
slightly from the survey in January, 1915, made by the Metropolitan
Life Insurance Co. in the families of persons holding industrial poli
cies. The company’s survey covered 155,960 families, in 37,064 of
which unemployment was reported. These families contained
252,912 wage earners, and 45,421, or 18 per cent, were reported as
unemployed.
OCCUPATIONAL DISEASE CLINIC OF NEW YORK CITY
HEALTH DEPARTMENT.
BY ALICE HAMILTON, M. D.
We know very little about the effect of different occupations on
the health of the workers. In general, of course, we know that
certain substances are poisonous and therefore dangerous to handle,
that exposure to great heat or to extremely humid air must be weak
ening, that great exertion kept up too long results in chronic fatigue,
that if irritating dusts are breathed in for a long time the lungs are
injured and pulmonary tuberculosis is likely to follow, but we do not
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8
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
know how far these factors actually affect men and women in the
different industries. Yet it is most important that we should know.
Think what an advance could be made in the protection of working
people if we had detailed information as to the strain of each occupa
tion on the human system.
The only way to gather such information is to carry out intensive
studies, on a large scale, of people in different occupations, dealing
with hundreds, or better, thousands, for conclusions based on small
numbers are always open to criticism. There is no dearth of mate
rial for these studies; any one of our large cities could undertake an
examination of such trades on a large scale. It is natural that the
largest city, New York, should be the first to do this, and fortunate
that she is doing it in such a way as to encourage other cities to
follow suit, for the expense involved in the system she has adopted
is not great.
About six months ago Dr. Goldwater, commissioner of health of
New York City, authorized the opening of a clinic for occupational
diseases, placing it under the department of communicable diseases
as a division of industrial hygiene, with Dr. Louis I. Harris in direct
control. There was no appropriation for this new department, but
Dr. Harris has without any appropriation managed to organize a
clinic in which 150 or 175 persons are examined every day by 17 to
20 physicians. He utilized a large loft in a building owned bv the
department of health and “ begged, borrowed, or stole” furniture
from the other offices or wherever it could be found. Naturally,
the laboratories of the department are at his service for chemical
and microscopic tests. Eight of the physicians are civil service
appointees of the department of health and nine are volunteers who
give their time, three hours a day, partly for the sake of the experi
ence, partly in hope of being taken on regularly as soon as there is
an appropriation. These physicians can do all the necessary work,
but a very valuable addition to the clinic has been made possible
through a grant by Mrs. E. H. Harriman, who pays for the services
of four physicians to carry out more thorough examinations on a
smaller group.
After the clinic was organized the question was how to get the
people for examination, for the department has no authority to require
workpeople to be examined. However, under section 146 of the
Revised Sanitary Code, the bureau of food inspection is empowered
to insist upon an examination of any person employed in places where
food or drink is handled in order to determine whether he has any
communicable disease and to withhold the permit to work in such
places if examination is refused. This places at the discretion of
the food-inspection department about 5,000 peddlers, 15,000 bakers,
90,000 cooks and waiters, as well as an, as yet, unascertained number
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MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.
9
of candy makers, milk dealers, butchers, and so on. The examina
tion is made primarily to detect communicable disease, but it is
possible to make a thorough search also for signs of occupational
disease.
The division of industrial hygiene took up bakers first and is now
in the course of examining cooks and waiters. But these trades,
though they involve a menace to the health of others through possi
ble communicable disease in the workers, are not nearly as dangerous
to the workers themselves as are many others in which no such
menace exists. Some way had to be found for the department to
induce the workers in dangerous trades to submit to examination,
for it had no authority over them. Dr. Harris selected a group of
industries which involve exposure to a very irritating dust and in
some processes to mercurial poisoning. These are the furriers and
hatters. Where the trade was organized he worked through the
unions; where it was unorganized he sent inspectors into the factories
and by using tact and persuasion got employers and employees to
cooperate with him. In this way he succeeded in inducing 886
workmen in these industries to come to the clinic for examination.
In every instance an examination of the work place, whether restau
rant or factory, dovetails into the examination of the working force.
I visited the clinic toward the end of September, and the impres
sion I gained was of a high degree of organization for effective work,
resulting in a minimum of delay and fatigue to the men who are to
be examined. I went over there from the department of health
building and took with me a Greek waiter who was bewildered and
could not find his way. There was a line of waiting men standing
all the way down the block and around the comer, and as I sent my
Greek to the end of the line I thought, from my experience of the
usual dispensary, that the poor fellow would have to stand in line all
morning and then come back again the next day. But when I left
at noon the men had all filed in, been examined, and departed.
There is the usual appearance of a well-equipped clinic, fresh
clean rooms, white enameled furniture, white garbed nurses and doc
tors, and an atmosphere of businesslike speed, but also of courtesy
and consideration. The men gathered there were cooks and wait
ers; there were also about 30 women in a separate waiting room.
These women are examined by women physicians. Food inspectors
had been to hotels and restaurants, and in the course of their inspec
tion had given out cards to 125 or 150 of the employees with instruc
tions to report to the clinic on this particular day. Each man pre
sented his card to one of the three department nurses, who wrote
down on a history card the necessary facts concerning him, and sent
him on to the examining room. Here a physician entered on the
card the record of his past history and the facts concerning his present
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Federal Reserve Bank of St. Louis
10
MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.
and liis former occupations. Then he stripped to the waist and the
physician examined him for disease of the skin or mucous membranes
or organs, and noted the results on his history card. For an ordinary
case this is all, the man receives his certificate, and the card goes on
file. But if there is any indication of disease, especially a communi
cable disease, he is sent to one of the four doctors who make more
intensive examinations. In the case of men handling food, what is
looked for especially is tuberculosis, venereal disease, and typhoid
fever, because any of these may make him a source of danger to other
people. If tuberculosis is suspected, the certificate is held up till
the sputum has been examined. If it is syphilis that is suspected,
several spoonfuls of blood must be drawn from the vein of the arm
in order to make the appropriate test. This is done so rapidly and
skillfully that it causes little pain. At one time when I was a labo
ratory worker I needed normal blood for experimental purposes and
was bled from the vein of the arm once a week for many weeks, and
I can testify that it hurts very little.
The reason why typhoid fever is looked for in the histories of these
men is that of late years it has been discovered that one of the most
important sources of typhoid epidemics is the so-called t}Tphoid
carrier, a person who has once had typhoid fever or acquired typhoid
infection through contact with a typhoid patient and who, for some
cause as yet unknown, never gets rid of the bacilli as people normally
do, but goes on harboring them in his body and discharging them
through urine and feces. Such people ought never to be allowed to
handle food for others. Now there is a blood test, the Widal test,
which is used to determine typhoid fever in doubtful cases, and very
often typhoid carriers respond to this test in the same way as do
typhoid patients. When, therefore, any cook or waiter says that he
has once had typhoid or has been in contact with a typhoid case, a
few drops of blood are taken from the tip of the finger or the lobe of
the ear, and the test is made.
In the case of trades that have nothing to do with the handling
of food, there are other important factors. For instance, mercurial
poisoning was looked for in the examination of hatters and hatters’
furriers, because in certain processes these men are exposed to mer
cury nitrate, which is used in the preparation of the fur for felting.
In the study of painters, which has just begun, and which will be in
full swing as soon as the slack season for painters sets in, a whole
list of poisons will have to be considered; all sorts of lead compounds,
turpentine, benzine and naphtha, benzol, amyl acetate—known as
banana oil—acetone, tar, wood alcohol, carbon bisulphide. The
examination, therefore, has to be modified a little for each trade,
but the general outlines are the same for all.
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11
Even if there are no special indications requiring a more thorough
examination, a certain number of men are selected at random for
such an examination because of the value of this intensive study of
the industry. The four physicians who do nothing but this com
plete about 10 examinations each in the course of the morning, the
laboratory tests being done in the department laboratories. This
means that each day from 40 to 50 detailed records go on file, and
it is easy to see what very valuable material these make for a sta
tistical study of the health of working people and the occupational
factors influencing it.
Suppose a cook or a waiter is suspected of tuberculosis or syphilis.
He can not be given his certificate until the matter is cleared up, but
he is given a card of identification and told to return in a week for
the laboratory report of his blood or sputum. If the report states
that he has syphilis in a communicable stage, he can not receive a
certificate; he must be treated by a private physician or in a dis
pensary till that stage is passed. If the disease is not in a communi
cable stage, he is told that he must undergo treatment, and on this
condition is given his certificate, and the bureau of food inspection
is notified to keep track of him and see that he is following directions.
If he has tuberculosis, it must be decided in the same way. Cases
of so-called open tuberculosis which can communicate the disease to
others are refused a certificate. They must either go to the municipal
sanatorium or have treatment at home. In many cases it is not
enough simply to give advice to the man; he needs more than that,
and a department nurse is sent to visit the home and see what can
be done to improve conditions and to carry out the needed treat
ment. The certificate, when granted, is the property of the cook or
waiter, but each year the examination must be repeated and a new
certificate issued.
The division of industrial hygiene has made several exploratory sur
veys of various industries to determine which most need investigation.
Ninety rag pickers were examined, selection being made of those hand
ling the very dusty rags that come from clothing factories, but the re
sults were so largely negative that the investigation was dropped.
From time to time communications come to the division telling of
unhygienic conditions in certain factories, or reporting some handler
of food who is supposed to have a communicable disease. These
reports are always followed up, even when, as is very often the case,
no name is signed to them. Many employees do not dare to send
any but an anonymous complaint, and if the rule is to ignore these,
a very important source of information is lost. The division also
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Federal Reserve Bank of St. Louis
12
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
follows up all death certificates in which occupation seems to have
had some bearing on the disease, investigates the history of the case
and the conditions under which the deceased was employed.
Obviously, even a clinic as well equipped as this can not undertake
to cover all the thousands of bakers, cooks, waiters, peddlers, and so on
in the city of New York if the work is to he completed within a short
time. Dr. Harris has, therefore, worked out a method of coopera
tion with the largest employers, by which the latter undertake to
arrange for the examination of their own employees at the hands of
private physicians working under the supervision of the department
of health. The examinations of these physicians are carefully con
trolled. They must first apply for authorization to do the work in
each establishment. They must use cards furnished by the division
of industrial hygiene and send the cards back to the division, which
then issues the license. If it is found that a certain physician’s
record shows a lower standard of medical work than that of the
department of health, he is not allowed to continue as examiner.
The best way to determine this is to see whether he finds as high an
average of cases of communicable disease as do the physicians of
the department.
Tliis system will probably work very satisfactorily in protecting
the public from infection by diseased handlers of food, but it is a
question whether it will work as well in the detection of occupational
disease. In the former case it is simply a matter of removing an
employee because of an illness which is usually not traceable to his
work and therefore not a reflection on his employer, but in the latter
case this is not so and the average company doctor is reluctant to
report a large number of cases of tuberculosis or lead poisoning or
mercurial poisoning in the factory of the man who is paying his salary.
It is also true that there is a growing opposition among workingmen
to physical examinations when they are carried out by physicians in
the pay of the employer. The men often believe that these exami
nations are made only in the interest of the employer to weed out
possible risks andhnake insurance rates lower, or even that they serve
as an excuse to get rid of aggressive trade-unionists. There is very
great advantage in-having all such work done by physicians who can
not be suspected of partiality or interested motives, and one can not
help hoping that New York City will so enlarge the division of indus
trial hygiene as to make this possible.
Dr. Harris sees many possibilities for the future development of
the work. He hopes to reach the point when the knowledge accu
mulated in this clinic may be applied in city work, and all contract
work done for the city—subway digging, painting, and so on—be
supervised so as to eliminate as much as possible the dangers to
health attendant on such occupations. He believes also that the
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Federal Reserve Bank of St. Louis
MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.
13
department of health should make certain experiments for the bene
fit of the public, such, for instance, as the use of leadless paints.
Paris long since decreed that no lead paint be used on Government
buildings. The division of industrial hygiene proposes to test various
lead paints and leadless paints on buildings belonging to the depart
ment of health, and if the tests prove that leadless paints can he used,
to try to make their use mandatory on all municipal work.
There are cities smaller than New York that are much more in need
of such a clinic as this than is New York, cities in which there are
great numbers of men exposed to poisoning from lead, from carbon
monoxide, from arsenic and other chemicals, and also to great heat
and exertion or cold or excessive humidity. Perhaps the example
of New York may stimulate these cities to add this important branch
to their municipal health department.
Copies of the forms used in the work of the clinic are given below:
E X A M I N A T IO N
OF B A K E R S.
No.
N am e....................................................... Age.................. M. F .................. S. M. W.
A ddress............................................................... Borough............... N a tiv ity .........
W here e m p lo y e d ................................................................. How long.............................
Previous o c cu p a tio n ........................................................... How long.............................
Present condition.......................... L u n g s ..................... H eart....................................
S k in ........................................... M outh..........................................
Blood (if lues is p resen t)...................................................................
U nder treatm en t (if sick).................................................................
H ealth certificate
....................................................................................................
D ate....................................................................
Dr.
D E PA R TM EN T O F H E A L T H , CITY OF N E W Y O R K , P R E V E N T A B L E DISEA SES.
(Over.)
[O n th e reverse side: “ D etailed description of defects.”]
E X A M I N A T IO N O F P E D D L E R S .
No.
N am e....................................................... Age.................
M. F ................. S. M. W.
A d d ress............................................................... Borough............... N a tiv ity ..............
Previous o ccu p atio n ........................................................... How long.............................
Present c o n d itio n ......................... L u n g s ..................... H e a rt....................................
Blood (if lues is p resen t)..................................................................
U nder treatm en t (if sick )................................... .............................
W ares to be peddled................................................................................................................
.
[A pproved...................................................................................................................
License]
,
[Not approved.............................................................................................................
D a te ............................................................................. D r .....................................................
D E PA R TM EN T OF H E A L T H , CITY OF N E W Y O R K , PR E V E N T A B L E DISEA SES.
(Over.)
[On the reverse side: “ D etailed description of defects.” ]
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Federal Reserve Bank of St. Louis
14
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
E X A M IN A T IO N
O P FO OD H A N D L E R S .
No.
N am e..................................................................... A ge.................... M. F .............. S. M. W.
A ddress.........................................................................Borough..............N a tiv ity ...............
W here em ployed...................................................................... H ow long..............................
Present condition....................................................Color oi eyes............... ..........................
S k in .............................M outh..................................Color oi h a ir.............. W eight.............
Blood (if lues is p resen t)........................................... H e ig h t................. ..............................
U nder treatm en t (if sick )............................General appearance.....................................
L u n g s..........................................................................................................................................
H as applicant ever h a d ty p h o id fever or been exposed to i t .......................................
D a te .............................................................................. D r........................................................
s
D epartm ent
B orough
op
op
H e a l t h o p t h e Cit y
Ma n h a tta n , Cen t r e
op N ew Y o r k ,
and W a lk er St r e e t s,
New Y o rk , ----------191—
D ea r D octor;
I N S T R U C T IO N S
W H IC H
M UST
BE
O B S E R V E D IN
CO OK S.
THE
E X A M IN A T IO N
OP
W A IT E R S
AND
This supersedes all previous instructions issued on the subject.
The commissioner of health has empowered the division of industrial hygiene to
authorize private physicians to examine cooks and waiters employed in kitchens
and dining rooms of restaurants and hotels, leaving it entirely to the chief of the
division of industrial hygiene to issue such authorization at his discretion.
The division of industrial hygiene reserves the right to exercise supervision over
all such examinations in order to insure harmony of methods and to maintain those
standards which obtain at the occupational clinic at 49 Lafayette Street.
Physicians will receive authorization only upon written application to the chief
of the division of industrial hygiene and should state the places or hotels or restau
rants whose employees the private physician desires to examine. He must also
state the number of such employees. If subsequently the physician is engaged to
examine employees of other hotels and restaurants he must make another application
in writing to authorize him to examine the new group. This is necessary in order
that the division of industrial hygiene may be in close touch with the work and
know the extent of the activities in this field of each private physician who is author
ized to carry on private examinations.
If the application of the private physician is approved, he will be so informed
by letter, and he will then be expected to observe those instructions which follow,
and to employ only those blanks which are issued by the Department of Health.
The physician in filling out the blank will be expected to answer under the items
“ Lungs," “ Skin," “ Blood,” etc., whether the patient shows negative findings,
using the word “ Negative," and if positive, he will be expected to state specifically
the nature of the abnormal condition found. The line “ Health certificate issued
refused" is filled in by the chief of the division, who exercises discretion whether
or not a certificate shall be issued or refused. The doctor will be expected to write
the following sentence on each card: “ Free from communicable disease," or “ Not
free from communicable disease," as the case maybe. The line marked “ Under
treatment (if sick)” is intended to show whether the patient is under a private phy
sician’s care for the treatment of any infectious disease. This item of information
will be of service in deciding whether or not a certificate shall be issued.
The date of examination and the name of the physician must appear on each card.
Only one card is made out for each applicant, and that card should be promptly for
warded to the chief of the division of industrial hygiene, who will issue the certificate
if the cards are found to be satisfactory.
No certificate given to an employee by a private physician will be accepted as
official.
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Federal Reserve Bank of St. Louis
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
15
On each card kindly state whether the patient has a positive or negative history
of typhoid fever or exposure, using the following phrase:
Typhoid history or contact................................................... Positive.
Or, Typhoid history or contact.............................................Negative.
N o t e . —The dep artm en t of h ealth has, in th e p ast, exam ined bakers a t its own occupational c lin ic , and this
new rule about w aiters and cooks does n o t apply to bakers, who, as before, w ill be exam ined a t th e clinic.
At the occupational clinic every applicant for a certificate is stripped to the waist,
and the skin, hair, lungs, and visible mucous membranes are carefully examined for
evidence of acute infectious diseases, notably tuberculosis, syphilis, gonorrhea,
typhoid fever, or any other acute infectious disease. Wherever the history of physical
examination arouses suspicion of the possible existence of syphilis, tuberculosis, or
typhoid fever, the Wassermann test, sputum examination of Widal test, respectively,
will he required. Emphatic attention is called to the necessity of making a Widal
test on food handlers. This should he done where there is the slightest suspicion of
exposure to or contact with typhoid fever cases at any time, or where the applicant
gives a history of having had typhoid at any time during his life.
This work will undoubtedly be extended as fast as our laboratory facilities will
permit, so as to be universally applied. I t is felt to be the only way in which to detect
typhoid carriers.
The authorization of private physicians to share in this public work is a radical de
parture and places upon them a very large responsibility to safeguard the community
from infected kitchen and dining-room employees. The results of the private physi
cians’ work will be carefully checked up by those obtained at the occupational clinic,
and any discrepancies of standards on the part of any individuals, which discrepancies
endanger the community welfare, will necessitate a withdrawal of the privilege of
carrying on this public work.
The examination of waiters and cooks will be made annually.
Where there is an element of doubt as to the physical condition of a waiter or cook,
in so far as it relates to the presence of an acute infectious disease or as to the presence
of syphilis or of evidence of the applicant’s being a typhoid carrier, such cases should
be referred to the chief of the division of industrial hygiene, who will have final re
sponsibility for the issuance of health certificates.
Sincerely,
Chief Division o f Industrial Hygiene.
R E A D T H IS C A R E F U L L Y — P R E S E R V E
IT F O R R E F E R E N C E .
If cards are not satisfactorily made out, they will be returned to the examining
physician with the indication of the corrections that are desired. If the instructions
here given are not followed by physicians, it will be manifestly impossible to sanction
their examinations.
IN D U S T R IA L C E R T IF IC A T E .
This certifies th a t.....................................................................................................................
of................................................................................. Str., Borough........................................
Em ployed a t (nam e of factory).............................................................................................
Street...........................................................................................................................................
W as exam ined o n ............................................................................................................191..
B y ................................................................................................................................................
Title.
DEPA R TM EN T OF H EA LTH , CITY OF N E W Y O R K , P R E V E N T A B L E DISEA SES.
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Federal Reserve Bank of St. Louis
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
O C C U PA T IO N A L H IS T O R Y
C om plaint
No.
N am e........
........................................
A d d ress...
........................................
IN D U S T R Y
A ge..........
M.
F.
S.M.W.
F act. No.
O C C U P A T IO N
H O W LONG
1 Presen t......................................................................................
Prev io u s...................................................................................
2 D escription of work
M aterials handled
H rs. of work
3 Exposed to—
(a) E x trem e h eat or cold
Moisture
Chemicals
Irrita tin g fumes
Acids
D u st
Filings
O ther infectious conditions
Portal of en try
(b) Strains: M uscular
Postural
Nervous
E ye
Ear
Gen’l physical
4 Present history: Special or gen’l com plaint
Alcohol
Syphilis
Chewing{ Imbacco
Protective agents: Milk
Masks
Respirators
Clothing or gloves
W ashing
L u n ch eaten where
W ashing, etc.
V entilation
Previous history: Cough
E xpectoration (blood?)
N ig h t sweats
Loss of w eight or strength
Pains in chest
Pneum onia?
Pleurisy?
A sthm a, bronchitis?
F am ily history of tuberculosis
Backache, etc.
C onstipation
6 Previous occupational disease?
Fellow w orkers affected
7 Home conditions: C haracter of home
W ork a t hom e
Causes for w orry
D istance from factory
T ran sit facilities
Bedrooms
W indows
H rs. in bed
No. in bedroom
Food: K in d
Alcohol
Disease in family
A m t.
Tea
Coffee
R ecreation
Intelligence
D EPA R TM EN T OF H E A L T H , CITY OF N E AY Y O K E , P R E V E N T A B L E DISEASES
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Federal Reserve Bank of St. Louis
MONTHLY REVIEW OF THE BUREAU OP LABOR STATISTICS,
[Reverse of ‘'O ccupational h isto ry ” card.]
E xam ined b y ........................................ (D ate) .....................
Borough
Address
PH Y SIC A L E X A M IN A T IO N
D EFECTS
General appearance:
D evelopm ent: Good. F air. Poor.
H ’t
N ourishm ent:
W ’t
Facies:
Mucous m em branes: Lips
Gums
Eyes
Fingers: Cyanosis
Clubbed
Deformed
Skin: Color
E ru p tio n
Ulcers
Eyes: Pupils
Teeth
Fun d u s
0 . D.
0 . S.
Tongue
Nose
T h ro at
A. D.
A. S.
v
^ ars
Lungs
Spu tu m
E xpansion
H eart: Size
M urm urs
Blood pressure
Pulse: R ate
R egularity
A rtery w all
Nerves: Reflexes
T w itching
F IR M
M uscular strength: R t.
Trem ors
L t.
A bdom en
E x trem ities
Varicose veins
Glands
F la t foot
O rthopedic
Blood: Hgb.
Diff. red and w hite cells
W asserm ann
U rine
A lbum en
IN D U S T R Y
D IA G N O SIS
R em arks and suggestions:
11408°—15------2
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Casts
Sugar
Lead, etc.
18
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
FA C TO R Y S U R V E Y
IN D U S T R Y
BOROUGH
AD DRESS
F IR M
Chief processes
M aterials handled
1 General sanitary conditions: C haracter of building
of workrooms
of stairs
/S ystem of v entilation
Size of rooms
E levators available
/A dequate?
N
atural
A
dequate?
Cleanliness—D ry sw p’g.
Overcrowding
L ig h tin g ^
Artificial
D ust present
K ind
Spitting
H eating
V apors, fumes, gases present
Towels
Toilets
W ashing facilities
(D rinking cups
L unch rooms
L unch period
Average hours of la b o r
R est rooms
2 M achinery a n d appliances: Modern
Safety Devices (E n u m .)
W hen
H an d , foot or m otor driven
3 Strains: Speeding u p
O vertim e
A u tom atic m ovem ents (muscle group involved)
E y e s tra in
Noises
N ervous strain
Piecework
Postural
4 W orkers: T ype
Special or trad e hab its
W illingness to observe precautions
Stim ulants
General nutrition
5 Em ployer: A ttitu d e tow ard workers
R etention of help
Welfare efforts
H ealth placards
Medical supervision supplied (kind)
W orkers w arned of hazards
D EPA R TM EN T OF H E A L T H , CITY OF N E W Y O R K , PR EV E N T A B L E DISEASES
[Reverse of
“
F a c to ry su rv ey
A ssent to physical exam inations
6 Census: Men"employed
W omen employed
Total office force
7 D epartm ents a n d hazards in each:
1
2
3
”
card.]
W hen
Y ouths (16 to 20)
Minors (16 to 20)
W here
Boys (14 to 16)
Girls (14 to 16)
4
5
6
8 D escription of all defects:
9 Suggestion, com m ents, recommendations:
D ate
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Inspector
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Diseases to be reported on this
card w hen occupation is a
factor
Tuberculosis
Pneum onia
A sthm a
B ronchitis
C irculatory diseases; i. e.,
A rteriosclerosis
A poplexy
E ndocarditis
M yocarditis
N ep h ritis
Skin diseases
N ervous diseases
O rthopedic defects
Especially is it required to
report poisoning b y
Lead
A n th rax
Arsenic
Caisson disea.se
M ercury
B isulphide of
Phosphorus
carbon
Bronze
D initrobenzine
W ood alco W ood n a p h th a
N a tu ra l gas
hol
A nilin
Carbon m onox
Brass
ide
Acids
Gases (illum inating a n d others)
19
R E P O R T O F O C C U P A T IO N A L D I S E A S E
N am e
A ddress
B y w hom em ployed
A ddress of factory
Diagnosis
R em arks
R eported b y ___
Sex—M: P.
Borough
O ccupation
___M.D.
.A ddress
. Borough
I m p o r t a n t . —Inform ation obtained w ill
be used p rim arily for statistical purposes.
A ll com m unications received w ill be kept
stric tly confidential. No p a tie n t w ill be
visited a t his hom e or place of business
w ith o u t th e consent of th e physician.
K in d ly inquire, in th e diseases enum erated
on th is card, w hether occupation is a factor.
D EPA R TM EN T OF H E A L T H , CITY OF N E W
Y O R K , PR E V E N T A B L E D ISEA S ES .
FEDERAL EMPLOYMENT WORK OF THE DEPARTMENT OF
LABOR.1
Reports furnished by the division of information of the depart
ment show that, in August, 1,279 applications for help were received.
The number of positions open was 7,931. In September the cor
responding figures were 1,204 and 4,551, respectively.
The list of branch employment offices reported varies from month
to month; only those which report having received applications or
assisted in securing employment are included in the list reported for
the month.
The Division of Information reports some difficulty in finding men
to fill the reported vacant positions.
The table following shows number of applications for positions,
and number of places filled, with the number of applications for
positions per 100 places filled, February to September, 1915.
!See M o n th ly R e v ie w for J u ly (pp. 8-13) and October (p. 14), 1915.
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Federal Reserve Bank of St. Louis
20
MONTHLY REVIEW OF THE BUREAH OF LABOR STATISTICS.
TO T A L A P P L IC A T IO N S M ADE TO T H E D IV IS IO N O F IN F O R M A T IO N O F T H E B U R E A U
O F IM M IG R A T IO N , PL A C E S F IL L E D , A N D N U M B E R O F A P P L IC A T IO N S P E R 100 PL A C E S
F IL L E D , F E B R U A R Y TO S E P T E M B E R , 1915.
A pplicants
for
position.
Month.
February
March
A pril
May
Tunc,
............................................... - .................................................
......................................................................................................
..........................................- ......................................................
................................................. ..................................................
...........................................................................................
A ugust
..................................................................................................
Pfvptfvmber ........................................................................................................
Total
..................................................................................................
N um ber of
applica
tions per
100 places
filled.
Places
filled.
19,474
17,780
12,587
12,132
14,448
18,061
17,827
13,334
307
849
1,536
3,565
4,682
6,035
6,757
5,405
6,343.3
2,094.2
819.5
340.3
308.5
299.3
263.8
246.7
125,643
29,136
431.2
The table following shows the results of the activities of the divi
sion for the months of August and September, by distributing offices,
totals in the various zones, and totals for the entire service:
SUM M ARY O F A C T IV IT IE S F O R T H E M O N TH S O F A U G U ST AN D S E P T E M B E R , 1915.
AUGUST.
O pportunities received.
Zones.
A pplica
tions for
help.
N um ber
of persons
applied
for.
A pplications for em ploym ent.
A pplica
tions
received.
N um ber
N um ber
referred
actually
to em ploy em
ployed.
m ent.
113
No. 1. Boston, M ass............... .................
Providence (sub-branch), R . I.
Portland (sub-branch), M e___
Total.
159
5
No. 2. New Y ork, N. Y ....................
Buffalo (sub-branch), N . Y .
T o tal...............................
No. 3. Philadelphia, P a ......................
P ittsb u rg h (sub-branch), P a.
820
1,769
55
369
826
1,824
375
231
355
388
142
114
35
6
53
T o ta l___
No. 4. B altim ore, M d.
157
No. 5. Norfolk, V a ___
17
No.
Jacksonville, F la .................................
B irm ingham (sub-branch), A la ---Mobile (sub-branch), A la .................
S avannah (sub-branch). G a............
Charleston (sub-branch), S. C.........
T o tal.
40
No. 7. N ew Orleans, L a ................
Gulfport (sub-branch), Miss.
M emphis, T e n n .....................
8
238
286
T otal.
No.
Galveston, T e x . . . .....................
E l Paso (sub-branch), T e x __
A lbuquerque (sub-branch),
M ex...........................................
Total.
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336
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
21
SU M M A RY O F A C T IV IT IE S F O R T H E M O N T H S O F A U G U ST A N D S E P T E M B E R , 1915—Con.
AUGUST—Concluded.
O pportunities received.
Zones.
A pplica
tions for
help.
N um ber
of persons
applied
for.
A pplications for em ploym ent.
A pplica
tions
received.
N um ber
N um ber
referred
actually
to em ploy employed.
m ent.
No. 9. Cleveland, O h io ...................................
5
104
89
26
7
No. 10. Chicago, 111............................................
D etroit (sub-branch), M ich.............
Sault Ste. Marie (sub-branch),
M ich...................................................
Indianapolis (sub-branch), I n d ___
60
21
2,829
258
5,001
1,022
2,868
124
2,860
115
12
6
66
30
94
57
79
42
73
30
T o tal............................................
99
3,183
6,174
3,113
3,078
No. 11. Minneapolis, M inn..............................
54
79
538
55
55
No. 12. St. Louis, Mo.......................................
K ansas City (sub-branch), Mo........
9
21
13
52
79
403
n
40
11
40
T o tal...........................................
30
65
482
51
51
No. 13. D enver, Colo........................................
Salt Lake C ity (su b -b ran ch ),U tah .
22
22
37
2
10
3
T o tal..........................................
22
22
39
10
3
No. 14. H elena, M ont.......................................
Moscow (sub-branch), Id a h o ...........
1
32
1
32
8
32
1
32
32
T o tal............................................
33
33
40
33
32
No. 15. Seattle, W ash .......................................
A berdeen (sub-branch), W ash........
B ellingham (sub-branch), W a s h ...
Colfax (sub-branch), W a sh ..............
Custer (sub-branch), W a sh ..............
E v e re tt (sub-branch), W ash ............
N o rth Y akim a (sub-branch), W ash.
Spokane, (sub-branch), W a s h .. . . .
Tacoma (sub-branch), W ash...........
W alla W alla (sub-branch). W a s h ..
W enatchee (sub-branch), W a s h .. .
25
10
9
53
2
3
355
31
2
29
6
45
56
22
70
3
12
960
210
2
51
9
1,413
256
54
313
3
103
1,425
387
91
135
38
43
56
9
66
3
12
960
213
2
49
7
43
56
9
66
3
9
956
209
2
49
7
T o tal............................................
525
1,440
4,218
1,420
1,409
No. 16. P o rtlan d , O reg....................................
38
885
1,358
1,618
1,286
No. 17. San Francisco, Cal..............................
Sacram ento (sub-branch), C al........
126
241
837
13
114
92
T o tal............................................
128
241
850
114
92
N o. 18. Los Angeles, Cal..................................
San Diego (sub-branch), C al...........
87
216
445
405
149
116
T o tal...........................................
87
216
850
149
116
T otal for all zones....................
1,279
7,931
17,827
7,321
6,757
5
58
22
1
1
1
1
SEPTEMBER.
No. 1. B o sto n ..................................................
Providence (sub-branch), R . I ........
P o rtlan d (sub-branch), M e..............
T o tal............................................
6
59
22
1
1
No. 2. N ew Y ork, N . Y .........................
Buffalo (sxib-branch), N . Y ..............
188
5
1,172
67
1,071
151
312
37
260
37
T o tal............................................
193
1,239
1,222
349
297
No. 3. Philadelphia, P a .................................
P ittsb u rg h (sub-branch), P a ...........
44
6
151
300
415
143
203
14
157
10
T o tal............................................
50
451
558
217
167
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Federal Reserve Bank of St. Louis
22
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS,
SUM M A RY O F A C T IV IT IE S F O R T H E M O N T H S O F A U G U ST A N D S E P T E M B E R , 1915—Con.
SEPTEM BER—Concluded.
O pportunities received.
A pplications for em ploym ent.
N um ber
N um ber
referred
actually
to em ploy employed.
m ent.
A p p li
cations for
help.
N u m b er
of persons
applied
for.
No. 4. B altim ore, Md.
22
146
165
175
175
No. 5. N orfolk, V a. . .
8
40
55
20
16
No. 6. Jacksonville, F la ...............................
Charleston (sub-branch), S. C.......
S avannah (sub-branch), Ga...........
B irm ingham (sub-branch), A la ...
Mobile (sub-branch), A la...............
2
4
2
114
1
102
1
102
1
2
2
2
25
166
10
8
15
1
1
9
120
224
104
104
12
5
9
154
26
2
26 1.....................
Zones.
T o tal.
No. 7. N ew Orleans, E a .......................
G ulfport (sub-branch), M iss..
M em phis (sub-branch), T enn.
T o ta l..................................
No. 8. G alveston, T e x ........................
E l Paso (sub-branch), T e x ..
A lb u q u erq u e (sub-branch), N . Mex
T o tal..........
A pplica
tions
received.
2
12
168
4
62
40
6
4
3
2
4
62
50
5
1
6
8
73
8
1
No. 10. Chicago, 111.........................................
D etro it (sub-branch), M ich ............
Sault Ste. Marie (sub-branch),
M ich..................................................
50
39
54
73
3,953
458
2.414
58
2,411
53
6
19
69
33
28
T o tal..............
95
146
4,480
2,505
2,492
No. 11. M inneapolis, Minn.
37
48
37
17
No. 12, St. Louis, Mo................................
K ansas City (sub-branch), Mo.
11
27
24
no
59
284
6
79
6
72
T o ta l...
41
134
343
85
78
No. 13. D enver, Colo.
13
20
30
15
10
4
2
70
2
11
2
18
16
2
6
72
13
34
2
81
169
65
4
167
65
4
33
28
1,157
68
47
35
53
1,006
165
39
8
61
1,893
119
101
93
172
2
1,156
43
46
30
38
2
1,155
37
46
28
38
T o ta l........
451
1,520
3,657
1,553
1,542
N o. 16. P o rtlan d , Oreg.
43
149
419
302
286
131
231
718
.8
167
148
T o tal.............................
131
231
726
167
148
N o. 18. Los Angeles, Cal...................
San Diego (sub-branch), Ca
Tucson (sub-branch), Ariz.
2
85
3
91
317
772
3
6
3
66
No. 9. C leveland, O hio.
No. 14, H elena, M o n t...........................
Moscow (sub-branch), Idaho.
Total.
N o. 15. Seattle, W a sh ...................................
A berdeen (sub-branch). W a s h ...
B ellingham (sub-branch), W ash.
C uster (sub-branch), W a s h ..........
E v e re tt (sub-branch), W ash.......
N o rth Y akim a (sub-branch ),W ash.
Spokane (sub-branch), W a sh ........
Tacoma, (sub-branch), W ash.........
W alla W alla (sub-branch), W ash.
W enatchee (sub-branch), W ash ...
No. 17. San Francisco, Cal......................
Sacram ento (sub-branch), C a l.
28
13
4
1
320
19
5
65
5
9
82
T o ta l............................
87
94
1,092
88
69
T o tal for all zones__
1,204
4,551
13,334
5, 671
5,-405
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
23
CONCILIATION WORK OF THE DEPARTMENT OF LABOR,
SEPTEMBER 16 TO OCTOBER 18, 1915.
On the authority contained in the organic act of the department
to mediate in labor disputes and to appoint commissioners of con
ciliation in his discretion, the Secretary of Labor, through the com
missioners of conciliation, exercised his good offices in 19 labor
disputes between September 16 and October 18, 1915. The employees
involved in these controversies, the numbers affected, and the results
secured, so far as available, are shown in the following statement:
N U M B E R O P 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 . S E P T . 16 TO OCT. 18. 1915.
W orkm en affected.
Name.
D irectly.
C ontroversy, dyers a n d mercerizers, H ardw ick & Magee
C arpet Mills, Philadelphia.
C ontroversy, p a tte rn m akers, Fore R iv er Ship & E ngine Co .
Strike, Buffalo D ye W orks, P h ilad e lp h ia..................................
C ontroversy, In tern atio n al Silver P la te C o...............................
Strike, boilerm akers, B altim ore & O hioR . R ., N ew ark, O hio.
Strike, iron m olders, R ice, B arton, Fales F o u n d ry Co.,
W orcester, Mass.
C olum bia R ailw ay, Gas & E lectric Co., Columbia, S. C ........
S trike, A m erican G raphophone Co., B ridgeport, C onn..........
S trike, B row n & Sharpe Co., Pro v id en ce...................................
Strike, w ireless operators, San F rancisco...................................
S trike, m achinists an d boiler m akers, Lehigh & New E n g
land R y ., P e n A rgyl, Pa.
Strike, p a tte rn m akers, job shops, P ittsb u rg h ..........................
M achinists’ strike, C in cin n ati........................................................
L abor d isp u te a t R a y an d Clifton, A riz......................................
S trike, m achinists, Ile n d y M achine Co., T orrington, C o n n ..
C ontroversy, m achinists,W ashington Steel & O rdnance Co.,
Giesboro P o in t, D. C.
Strike, p a tte rn m akers, B uilders Iro n Co., Providence, and
P o tte r & Johnston, P aw tu ck et.
C ontroversy, M ichigan C entral R . R . Co. a n d its c lerk s........
Strike, freight handlers, Pen n sy lv an ia R . R .............................
R esult.
Indi
rectly.
73
1,100
A m icable adjustm ent.
37
2,600
50
60
63
3,500
Pending.
Do.
Do.
Do.
1,600
5,000
20
71
900
(9 ( 2)
800
107
100
A m icable adjustm ent.
Pending.
Do.
A m icable adjustm ent.
Pending.
Do.
Do.
Amicable adjustm ent.
Pending.
Do.
800
1,000
Do.
A m icable adjustm ent.
1 Mr. B arto n , representing th e Rice, B arton, Fales F o u n d ry Co., reported to th e commissioner upon
his arriv al a t W orcester th a t 60 molders w e n t on strike J une 6 b u t th a t he filled their places a nd does
not kno w of any strik e now in existence. The commissioner reports th e p la n t running full tim e and
filling orders pro m p tly .
2 The commissioner of conciliation is a t p resent engaged in preparing some additional d ata. W hen this
addition al inform ation is o btained th e case w ill doubtless be finally disposed of.
IMMIGRATION.
The Immigration Bulletin, issued by the Bureau of Immigration,
United States Department of Labor, for August, 1915, contains a
table showing the number of permanent immigrants admitted each
year, beginning with 1820. The total number of such immigrants is
32,354,124, and of this number 9,422,141, or 29.1 per cent of the entire
permanent immigration since 1820, have arrived within the last 10
years.
The data furnished by the Bureau of Immigration for July and
August continue to show the marked falling off in arriving immigrant
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Federal Reserve Bank of St. Louis
24
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
aliens, as noticed in previous issues of the M o n t h l y R e v ie w ,1 and a
striking increase in the number of emigrant aliens departing from the
United States. The table which follows shows this movement by
races, while preliminary figures furnished by the bureau show that
the number of aliens arriving at all ports during August and Septem
ber was 61,311. Compared with similar data for the same months
of 1913 (311,774) and same months of 1914 (102,625), a decrease of
80.3 and 40.3 per cent, respectively, is noticed.
IM M IG R A N T A L IE N S A D M IT T E D T O , A N D E M IG R A N T A L IE N S D E P A R T IN G F R O M , T H E
U N IT E D ST A T E S D U R IN G JU L Y AN D A U G U ST, 1914 AN D 1915.
A d m itted .
Races.
A ugust.
Ju ly .
1914
D eparting.
July.
A ugust.
1915
1914
1915
1914
1915
1914
1,003
A frican (black).........................................
A rm enian...................................................
226
592
B ohem ian a n d M oravian.......................
627
B ulgarian, Serbian, M ontenegrin........
228
C hinese.......................................................
669
C roatian a n d Slovenian.........................
722
C u b an .........................................................
78
D alm atian , B osnian, H erzegovinian..
737
D u tc h a n d F le m ish ................................
16
E a s t In d ia n ...............................................
E n g lish ....................................................... 3,427
622
F in n ish .......................................................
1,060
F ren c h ........................................................
G erm an....................................................... 5, 271
2,551
G reek..........................................................
H ebrew ....................................................... 12,182
1,481
Ir is h ............................................................
1,482
Ita lia n (N o rth ).........................................
6,684
Ita lia n (S o u th ).........................................
793
Japanese.....................................................
26
K orean........................................................
1,634
L ith u a n ia n ................................................
2,158
M agyar.......................................................
820
M exican......................................................
1
Pacific Islander
................................
Polish.......................................................... 5,092
489
P ortuguese.................................................
634
R o u m a n ian ...............................................
R ussian ....................................................... 1,383
R u th e n ia n (R ussniak)
..................... 1,591
S candin av ian ............................................ 1,840
S cotch......................................................... 1,163
S lovak ......................................................... 1,320
611
S panish .......................................................
118
Spanish-A m erican...................................
492
S y ria n .........................................................
61
T u rk ish ............. .........................................
156
W elsh..........................................................
125
W est In d ia n (except C u b an )...............
212
O ther peoples...........................................
N ot specified.............................................
486
30
54
419
357
54
454
12
548
11
2,787
341
834
798
2,314
1,357
1,530
423
1,913
903
11
35
64
1,121
2
350
758
41
330
160
1,027
937
42
420
143
40
20
96
84
198
724
140
263
464
163
422
516
124
762
9
3, 707
391
1,069
2, 720
1,923
5,863
1,779
856
4,041
707
26
526
705
1,100
1
1,706
181
190
675
395
2,409
1,269
394
457
145
383
45
193
100
163
327
72
65
301
246
84
493
17
568
6
2,925
362
1,050
931
2,180
1,425
1,701
346
1,316
899
13
65
88
1,098
197
82
94
313
174
1,361
119
44
228
5
1,356
256
375
991
859
671
621
832
5,841
69
1
498
1,137
52
3
3,949
180
338
2,093
482
676
458
804
371
78
180
55
28
71
59
2,600
210
58
4
50
157
4
109
1
39
4
578
48
48
30
185
12
141
457
4,649
69
6
4
6
26
94
124
92
263
128
886
58
59
350
11
1,100
147
1,845
926
907
530
380
1,267
10,539
77
9
385
757
74
1
2,693
106
321
1,524
315
508
310
530
317
52
111
81
35
41
29
2,325
T o tal................................................. 60,377
P er cen t decline^ 191.5__
21, 504
64. 4
37,706
21,949
41. 8
28,601
9,861
65.5
357
522
63
382
201
1,652
1,069
22
505
156
70
11
71
78
212
76
70
5
606
229
168
6
179
42
22
1
7
44
30
1,481
30,307
1915
139
45
8
86
197
4
162
98
13
963
53
289
112
820
32
218
472
21,636
90
5
13
35
45
86
406
25
727
381
290
6
399
55
18
9
16
55
78
1,207
29,293
3.3
1 A ugust and O ctober, 1915.
The daily bulletin of October 22 of the Immigration Bureau gives
preliminary figures as to the arrivals of aliens at all ports of the
United States during the period August 1 to October 21, compara
tive as follows: 1913, 406,162; 1914, 132,386; 1915, 85,749. This
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Federal Reserve Bank of St. Louis
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
25
is a decline in 1914 from 1913 for the period in question of 67.4 per
cent, and in 1915 of 35.2 per cent from 1914, and of 78.9 per cent
from 1913.
The bureau also publishes a table which shows immigration by
races for a period of 10 years, 1906 to 1915. This table, reproduced
below, records permanent immigration only. In recent years there
have been many temporary and nonimmigrant arrivals which, i f
added, would increase the totals since 1907 by approximately 20
per cent.
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Federal Reserve Bank of St. Louis
IM M IG R A T IO N , B Y RA CES, F O R EA C H Y E A R , 1906 TO 1915.
Years ended June 30—
1906
1907
1908
African (black).........................................
A rm enian...................................................
Bohem ian and M oravian......................
Bulgarian, Servian, M ontenegrin........
Chinese.......................................................
Croatian and Slovenian.........................
C uban.........................................................
D alm atian, Bosnian, H erzegovinian..
D utch and F lem ish................................
E a st In d ian ...............................................
E n g lish ......................................................
F u rn ish ......................................................
F ren ch ........................................................
G erm an......................................................
G reek..........................................................
H ebrew ................... ...................................
Ir is h ............................................................
Italian (n o rth )..........................................
Italian (so u th )................... ......................
J apanese....................................................
K o rean .......................................................
L ith u a n ia n ...................................... ........
M agyar.......................................................
M exican.....................................................
Pacific Islan d er........................................
Polish..........................................................
Portuguese................................................
R oum anian...............................................
R ussian......................................................
R uthenian (R u ssn iak )...........................
Scandinavian............................................
Scotch........................................................
Slovak........................................................
Spanish......................................................
Spanish-A m erican...................................
S y rian ........................................................
T urkish......................................................
W elsh..........................................................
W est In d ian (excent C u b an )...............
O ther peoples...........................................
3,786
' 1,895
12,958
11,548
1,485
44,272
5,591
4,568
9,735
271
45,079
14.136
10,379
86,813
23,127
153,748
40,959
46,286
240,528
14,243
127
14,257
44,261
141
13
95,835
8,729
11,425
5,814
16,257
58,141
16,463
38,221
5,332
1,585
5,824
2,033
2,367
1,476
1,027
5,235
2,644
13,554
27,174
770
47,826
5,475
7,393
12,467
1,072
51,126
14,860
9,392
92,936
46,283
149,182
38,706
51,564
242,497
30,824
39
25,884
60,071
91
3
138,033
9,648
19,200
16,807
24,081
53,425
20,516
42,041
9,495
1,060
5,880
1,902
2, 754
1,381
2,058
4,626
3.299
10,164
18,246
1,263
20,472
3,323
3,747
9 526
1,710
49,056
6.746
12,881
73,038
28,808
103,387
36,427
24,700
110,547
16,418
26
13.720
24,378
5,682
2
68,105
6,809
9,629
17,111
12,361
32,789
17,014
16,170
6,636
1,063
5,520
2,327
2,504
1,110
1,530
4,307
3,108
6 ,8o0
0,214
1,841
20,181
3,380
1,888
8,114
337
39,021
11,687
19,423
58,534
20,262
57,551
' 31,185
25,150
165,248
3,275
11
15,254
23, 704
15,591
T o ta l............................. ................
1,100,735
1,285,349
782,870
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Federal Reserve Bank of St. Louis
1909
1910
1911
1912
1913
1914
77,565
4,606
8,041
10,038
15,808
34,996
16,446
22,586
4,939
S90
3,668
820
1,699
1,024
1,537
4,966
5,508
8,462
15,130
1,770
39,562
3,331
4,911
13,012
1,782
53,498
15,736
21,107
71,380
39,135
84,260
38,382
30, 780
192,673
2,798
19
22,714
27,302
17,760
61
128,348
7,657
14,199
17,294
27,907
52,037
24,612
32,416
5,837
900
6,317
1,283
2,244
1,150
3,330
6,721
3,092
9,223
10,222
1,307
18.982
3,914
4,400
13,862
517
57,258
9,779
18,132
66,471
37,021
91,223
40,246
30,312
159,638
4,575
8
17,027
19,996
18,784
12
71,446
7,469
5,311
18,721
17,724
45,859
25,625
21,415
8,068
1,153
5,444
918
2,248
1,141
3,323
6,759
5,222
8,439
10,657
1,608
24,366
3,155
3,672
10,935
165
49,689
6,641
18,382
65,343
31,566
80,595
33.922
26,443
135,830
6,172
33
14,078
23,599
22,001
3
85,163
9,403
8,329
22,558
21,965
31,601
20,293
25,281
9,070
1,342
5,525
1,336
2,239
1,132
3,660
6,634
9,353
11,091
9,087
2.022
42, 499
3,099
4,520
14,507
188
55,522
12,756
20,652
80,865
38.644
101,330
37.023
42,534
231,613
8,302
64
24,647
30,610
10,954
11
174,365
13,566
13,451
51,472
30,588
38,737
21,293
27,234
9,042
1,363
9,210
2,015
2,820
1,171
3,038
8,447
7,785
9,928
15,084
2,354
37,284
3,539
5,149
12,566
172
51,746
12,805
IS, 166
79,871
45,881
138,051
33,898
44,802
251,612
8,941
152
21,584
44,538
13,089
1
122,657
9,647
24,070
44,957
36,727
36,053
18,997
25,819
11,064
1,544
9,023
2,693
2,558
1,396
3,830
751,786
1,041,570
878,587
S38,172
1,197,892
1,218,480
1915
.
Ju ly
and A ugust,
A ugust, 1915.
1915.
5,660
932
1,651
3,506
2,469
1,942
3,402
305
6,675
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
813
102
119
720
603
138
947
29
1,116
17
5,712
703
1,884
1,729
4,494
2, 782
3,231
769
3,229
1,802
24
100
152
2,219
9
707
1,280
104
712
361
2,679
2,006
64
925
299
110
31
167
162
410
327
72
65
301
246
84
493
17
568
6
2,925
362
1,050
931
2, ISO
1,425
1,701
346
1,316
899
13
65
88
1,098
326,700
43,453
21,949
■
357
522
63
382
201
1,652
1,069
22
505
156
70
11
71
78
212
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Races.
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 .
27
ANNUAL MEETING OF NATIONAL ASSOCIATION OF INDUS
TRIAL ACCIDENT BOARDS AND COMMISSIONS.
The annual meeting of the National Association of Industrial
Accident Boards and Commissions was held in Seattle September 30
to October 2, 1915. This association was organized “ to bring into
closer relation with one another the various boards and commissions
administering compensation laws of the United States, and to effect
so far as possible uniformity of legislation and administration of such
laws and to encourage and give effect to all measures looking toward
the prevention of accidents and the safeguarding of plants and
machinery. ”
Attendance at the meeting included representatives of 12 States
and the Province of Ontario. A large part of the time of the meeting
was devoted to the discussion of medical topics connected with the
administration of workmen’s compensation laws. Two sessions were
devoted to the discussion of accident prevention.
An important part of the program was the presentation of the
report of a committee on statistics and compensation insurance cost,
appointed at the Chicago meeting of January 12 and 13, 1915. The
committee’s report included a now classification of industries for the
purpose of workmen’s compensation insurance. The report was
adopted unanimously, and is reproduced at the end of this article.
The purpose of the committee was to work out a classification suitable
for use in any of the States and thus promote the movement toward
uniformity in statistical reports dealing with industrial accidents and
workmen’s compensation.
The meeting unanimously voted to adopt the definition of a tabulatable accident as formulated and adopted at the conference on
standardization of accident reports and tabulations held in Chicago
October 12 and 13, 1914. This definition is as follows: “'All accidents
causing death, permanent disability, or loss of time other than the
balance of the day, turn, or shift on which the accident occurred,
shall be classified as tabulatable accidents, and the report of all such
accidents to some State or national authority shall be required.”
The association elected as officers for the coming year, president,
Floyd L. Daggett, chairman, Washington Industrial Insurance Com
mission; vice president, Wallace D. Yaple, chairman, Ohio Industrial
Commission; secretary-treasurer, L. A. Tarrell, chief examiner, Wis
consin Industrial Commission. Columbus, Ohio, was selected as the
next meeting place, the meeting to be held some time in April,1916.
The name of the association was changed from National to Interna
tional in order to admit Canadian Provinces.
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M O N T H L Y R E V IE W O F T H E B U R E A U O F LABOR S T A T IS T IC S .
Following is a list of those in attendance at the meeting:
W ill J. French, commissioner, California In d u stria l A ccident Commission.
Wm. Leslie, secretary-actuary, California Compensation Insurance F und.
W. Y. Conley, secretary, Illinois In d u stria l Board.
R obert E adie, m em ber, Illinois In d u stria l Board.
John E . K innane, president, chairm an, Michigan In d u stria l A ccident Board.
R obert K. Orr, manager, M ichigan A ccident F und.
Dr. R aphael Lewy, chief m edical exam iner, New York In d u stria l Board.
M. L. Shipm an, N orth Carolina, Commissioner of Labor and Printing.
W allace D. Y aple, chairm an, Ohio In d u stria l Com m issio n ,
Carle Abrams, commissioner, Oregon In d u stria l A ccident Commission.
H arvey B eckw ith, commissioner, Oregon In d u stria l A ccident Commission.
Wm. A. Marshall, chairm an, Oregon In d u stria l A ccident Commission.
Dr. Frederick H . Thompson, chief m edical adviser, Oregon In d u stria l A ccident
Commission.
R obert W. Simonds, chairm an, V erm ont In d u stria l A ccident Board.
A. G. Anderson, auditor, Spokane D istrict, W ashington In d u strial Insurance
Commission.
T. H . Boyd, chief adjuster, W ashington In d u stria l Insurance Commission.
A. S. Brown, auditor in charge, S eattle D istrict, W ashington In d u strial Insurance
Commission.
Floyd L. Daggett, chairm an, W ashington In d u stria l Insurance Commission.
A. B. E rnst, commissioner, W ashington In d u stria l Insurance Commission.
P. G ilbert, secretary, W ashington In d u stria l Insurance Com m ission
R. J. Hoage, statistician, W ashington In d u strial Insurance Commission.
F . I. M attingly, auditor, Tacoma D istrict, W ashington In d u strial Insurance Com
mission.
Dr. J. W. Mowell, chief m edical adviser, W ashington In d u strial Insurance Com
mission.
Clarence Parker, commissioner, W ashington In d u strial Insurance Commission.
Dr. J. H . McCulloch, chief m edical exam iner to W est Virginia commissioner.
Lee O tt, commissioner, W est Virginia com pensation.
L. A. Tarrell, chief exam iner, W isconsin In d u strial Commission.
F . M. Wilcox, m em ber, W isconsin In d u strial Commission.
H erm an B. Gates, W yoming, treasurer, ex-officio com pensation commissioner.
H ugh S. H anna, special agent, U nited States B ureau of Labor Statistics.
George A. Kingston, commissioner, Ontario W orkm en’s Compensation Board.
REPORT OF THE COMMITTEE ON STATISTICS AND COMPENSATION
INSURANCE COST AND UNIFORM CLASSIFICATION OF INDUSTRIES.
P A R T I.
S e p te m b e r 25, 1915.
The committee on statistics and compensation insurance cost begs
to submit the following report:
At a meeting of the National Association of Industrial Accident
Boards and Commissions held at Chicago on January 12 and 13, 1915,
the committee on statistics and compensation insurance cost was
created, and the following were elected members:
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29
E . H . Downey, chairm an, chief statistician, Wisconsin In d u strial Commission,
Madison, Wis.
R obert K. Orr, secretary, manager State A ccident F u n d , Lansing, Mich.
Royal Meeker, Commissioner of Labor S tatistics, W ashington, D. C.
W. N. Magoun, chief of W orkm en’s Compensation B ureau, M assachusetts Insurance
D epartm ent, 508 P em berton B uilding, Boston, Mass.
H . E. R yan, associate actuary, New York Insurance D epartm ent, 165 Broadway,
New York City.
Floyd L. Daggett, chairm an, In d u strial Insurance Commission, O lym pia, Wash.
Fred C. Croxton, chief statistician, In d u stria l Commission, Columbus, Ohio.
At the same meeting the following vote was passed:
“ That it is the sense of this meeting that the committee on statis
tics and compensation insurance cost prepare as expeditiously as
possible the following reports:
(1) Uniform tables for the establishment of compensation costs.
(2) Uniform classification of industries.
(3) Uniform classification of causes of injuries.
(4) Uniform classification of nature of injuries.
That the committee is directed without further authority to send a
copy of this report to each member of this organization, and make
final report at the regular meeting in September, 1915.”
The committee felt that a far more satisfactory result would be
accomplished in the time at its disposal, prior to the annual meeting,
if it investigated one of the above subjects and presented a complete
report thereof, than would be attained by a preliminary survey of all
four subjects with no definite conclusions in respect to any. The
committee therefore has devoted its entire attention to the uniform
classification of industries, believing this to be the most important
subject assigned to it.
THE UNIFORM CLASSIFICATION OF INDUSTRIES.
In all tabulations of industrial accident statistics the most impor
tant factor is the classification of industries, as to this all other items
relate. For example, the number of accidents of a certain nature,
such as the loss of an arm, must be assigned to the industries in which
such accidents occur, and similarly the number of accidents attribu
table to a specific cause, such as the lack of a proper safeguard, must
be distributed by industries.
Uniformity in the classification of industries is therefore of first
importance and is absolutely essential if the data prepared by the
various States are to be comparable.
The task undertaken by the committee on statistics and compen
sation insurance cost is to prepare a logical arrangement of all the
various industries of the United States according to the “ nature of
the business.”
Dr. Royal Meeker, United States Commissioner of Labor Statistics,
in 1914 appointed a committee which prepared a series of primary
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M O N T H L Y E E Y IE W OE T H E B U R E A U OF LABOR S T A T IS T IC S .
and secondary headings for the standard classification of industries.
This committee consisted of—
E. H . Downey, chairm an, chief statistician, W isconsin In d u strial Commission.
F. C. Croxton, chief statistician, Ohio In d u strial Commission.
L. W. H atch, chief statistician, In d u strial Commission of New York.
W. N. Magoun, head of th e W orkm en’s Compensation Bureau, Massachusetts
Insurance D epartm ent.
Dr. A. M. Edwards, B ureau of th e Census, Washington, D. C.
C. E. Scattergood, chairm an of th e statistical com m ittee, W orkm en’s Compensation
Service Bureau, New York.
W. J. Meyers, statistician, In terstate Commerce Commission, Washington, D. C.
(For an account of its proceedings see Bulletin of the United States
Bureau of Labor Statistics, No. 157, March, 1915.)
COMMITTEE MEETINGS.
The committee on statistics and compensation insurance cost met
at Chicago on January 13, 1915, following the meeting of the asso
ciation and discussed the scope of its work. It decided to adopt the
primary and secondary headings prepared by the committee ap
pointed by Dr. Meeker above mentioned.
The chairman of the committee called a meeting at Columbus, Ohio,
on July 21, 1915. The purpose of this meeting was to consider the
work so far accomplished by the committee and its individual mem
bers and to advance the work sufficiently so that a definite report
might be made to the association at its annual meeting.
The committee held three full days’ sessions at Columbus at the
offices of the Ohio Industrial Commission—on Wednesday, July 21,
Thursday, July 22, and Friday, July 23, the attendance at this
meeting being as follows:
Members of the committee:
E. H . Downey, chairm an, chief statistician, W isconsin In d u strial Commission.
H. E. R yan, associate actuary. New York Insurance D epartm ent.
F. C. Croxton, chief statistician, Ohio In d u strial Commission.
C. H . Verrill, representing Dr. R oyal Meeker, U nited States Commissioner of Labor
Statistics.
W. N. Magoun, head of W orkm en’s Compensation Bureau, M assachusetts Insurance
D epartm ent.
B y invitation:
I. M. R ubinow , president, Casualty A ctuarial and S tatistical Society of America.
L. W. H atch, chief statistician , In d u strial Commission of New York.
THE TABLE OF CLASSIFICATION GROUPINGS.
The committee after very careful consideration adopted a grouping
of industries covering all of the classifications used by insurance com
panies for writing workmen’s compensation risks in this country.
In order that statistics pertaining to industrial accidents may be
comparable, it is obviously essential that they shall be on the same
basis. The accident data now being rapidly accumulated by indus
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M O N T H L Y R E V IE W O F T H E B U R E A U O F LABOR S T A T IS T IC S .
31
trial accident boards and commissions is of great value. The light
which statistical data throws upon the subject of accident prevention
is of primary importance. Accident statistics are also of tremendous
importance in the part which they play in pointing out the relative
hazard of industries, and as a corollary thereof the rate of insurance
which the respective lines of industry should properly be called upon
to pay.
At the present time workmen’s compensation insurance rates are
provided by the insurance companies for some 1,500 different classifi
cations. For the various industrial accident boards and commissions
to keep and publish their accident data in the detail indicated by so
many classifications is well-nigh impossible, and would result in too
minute a refinement for practical purposes. If, however, a logical
table of industries can be prepared in such a manner that the 1,500
insurance classifications can be arranged under a reasonable number
of headings, then the value of the industrial accident statistics will be
greatly enhanced, and their usefulness extended. Industrial accident
board statistics and insurance statistics will "dovetail,” and all doubt
as to just what is intended to he covered under a given designation
will be removed. This is one of the chief objects which your com
mittee has attempted to accomplish.
The table of classification groupings is drawn up in accordance with
the following arrangement:
Divisions.
Schedules.
Groups.
Classifications.
D iv is io n s .—There are seven principal divisions or primary headings
corresponding to those adopted by the committee appointed by
Dr. Meeker already referred to. These divisions are—
(A) Agriculture.
(B) Mining and quarrying.
(C) Manufacturing.
(D) Construction.
(E) Transportation and public utilities.
(F) Trade.
(G) Service.
S c h e d u le s .—The seven divisions are divided into schedules corre
sponding to the secondary headings of the committee appointed by
Dr. Meeker. Those secondary headings explain the details into which
the primary headings are separated. For example, the primary head
ing "Manufacturing” is divided into 18 schedules such as lumber
and wood, leather, textiles, chemicals, paper, etc.
G ro u p s .—The group headings, of which there are between 250 and
300, are the most important in the series and show a refinement of
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M O N T H L Y R E V IE W O F T H E B U R E A U OF LABOR S T A T IS T IC S .
the secondary headings. Each group heading is intended to be
significant of the industries covered under it, and it is the belief of
the committee that these tertiary or group headings will prove accep
table to the various industrial accident boards and commissions for
general use in tabulating their accident data.
C lassifications.- —The final subdivision consists of the classifications
of industries appearing in the manuals used by insurance companies
in connection with their writing of workmen's compensation insur
ance without alteration. These final subdivisions are of little value
to industrial accident boards and commissions except to the extent
that they act as an index to show what industries are intended to be
covered by the respective groups.
GENERAL INTEREST IN THE SUBJECT OF CLASSIFICATION GROUPINGS.
That the United States Government is vitally interested in the
establishment of a uniform set of classification groupings is well evi
denced by the fact that Dr. Royal Meeker, the United States Com
missioner of Labor Statistics, first called a meeting together to con
sider the subject of uniformity in industrial accident statistics as long
ago as February, 1914. Dr. Meeker is a member of this committee
and is greatly interested in its work.
The adoption of a uniform classification of industries throughout
this country would mean of course that publications of the Federal
Government pertaining to industrial accident statistics of the vari
ous States would be on the same identical basis, and therefore of far
greater value than they could otherwise possibly be.
The insurance companies writing workmen’s compensation insursurance are also deeply interested in this subject. The Workmen’s
Compensation Service Bureau of New York has just prepared a
‘'Classifications code” along lines similar to the report of this com
mittee. The Massachusetts Rating and Inspection Bureau recently
formed has already taken up the subject, as has the Casualty Actu
arial and Statistical Society of America. The object of this society,
according to its constitution, "Shall be the promotion of actuarial
and statistical science as applied to the problems of casualty and
social insurance by means of personal intercourse, the presentation
and discussion of appropriate papers, the collection of a library, and
such other means as may be found desirable. The society shall take
no partisan attitude, by resolution or otherwise, upon any question
relating to casualty or social insurance.”
The desirability of the use of one standard set of classification
groupings by all interested officials and organizations is so apparent
that it is not surprising that a conference for the purpose of har
monizing existing groupings appeared to be essential.
Under the auspices of the Casualty Actuarial and Statistical So
ciety of America, therefore, a committee of three met in New York
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M O N T H L Y R E V IE W O F T H E B U R E A U O F LABOR S T A T IS T IC S .
33
City on Tuesday, September 14, Wednesday, September 15, and
Thursday, September 16, 1915. This committee consisted of—
Leonard W. H atch, chief statistician, In d u strial Commission of New York; author
ized to represent th e com m ittee on S tatistics and Compensation Insurance Cost
of th e N ational Association of In d u strial A ccident Boards and Commissions.
I . M. R ubinow , chief statistician, Ocean A ccident an d G uarantee Corporation
(L td.), authorized to represent th e W orkm en’s Compensation Service B ureau of
New York.
W. N. Magoun, head of th e w orkm en’s com pensation bureau, M assachusetts Insur
ance D epartm ent, authorized to represent th e M assachusetts R ating and
Inspection B ureau.
This conference committee, in order to avail itself of the valuable
advice and assistance of safety engineers familiar with industrial
plants and processes, in the consideration of classification group
ings, secured the presence at its conference of the following experts:
W illiam Newell, safety engineer, State F u n d , New York.
G rant Earl, chief inspector, W orkm en’s Compensation Service Bureau of New
York.
W illiam B. Shoe, chief safety engineer, Ocean A ccident and G uarantee Corpor
ation (L td.).
Davis S. Beyer, head of th e A ccident P revention D epartm ent, Massachusetts
Em ployees Insurance Association.
The conference committee spent three entire days in considering
the classification groupings. The classifications code of the Work
men’s Compensation Service Bureau was altered in some particu
lars, and the classification groupings as adopted by this committee
at Columbus were somewhat modified, and certain suggestions made
by the Massachusetts Rating and Inspection Bureau were incor
porated. The final result was an agreement by the conference com
mittee on a complete table of classification groupings acceptable to
the representative of each organization present. This table your
committee approves and presents herewith as Part II of this report.
The list of classification groupings we confidently believe is the best
list of the kind yet produced. As experience develops it will un
doubtedly need to be modified and may be improved from time to
time. For the present it represents a very earnest effort on the part
of this committee, and it also has the indorsement of an independent
conference committee of statisticians, who have had the advice and
counsel of safety engineers.
The general adoption of the table of classification groupings is
strongly recommended by this committee in the belief that it repre
sents a step toward securing uniformity in industrial accident sta
tistics, the importance of which can not be overestimated.
Very respectfully submitted for the committee on statistics and
compensation insurance cost.
11408°—15------3
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M O N T H L Y R E V IE W O F T H E B U R E A U O F LABOR S T A T IS T IC S .
P A R T II.
CLASSIFICATION GROUPINGS.—SUMMARY OF DIVISIONS, SCHEDULES, AND GROUPS.
D ivision A.—Agriculture.
S c h e d u l e 1 . —General farming.
Group 1. (U ndivided.)
S c h e d u l e 2 . —Dairy farming.
Group 2. (U ndivided.)
Schedule
3.—Stock farming.
Group 3. (U ndivided.)
Schedule
4.—Garden and truck farm ing.
Group 4. (U ndivided.)
S c h e d u l e 2 . — Clay
S c h e d u l e 3 .—Glass products.
Group 31. Glass, plate or window.
Group 32. Glass, not plate or window.
Group 33. Mirrors, signs, and ornam ental
glass.
Group 34. O ptical goods.
Schedule
5.—Operating agricultural
machinery (not by farmer).
Schedule
Group 5. Cotton ginning and pressing.
Group 6. F arm m achines (n. o. c.).
Group
Group
Group
Group
Group
35.
36.
37.
38.
39.
Division B.—Mining and quarrying.
S c h e d u l e 1 .—
Group
Group
Group
Group
Group
Group
Group
Group
Group
7.
8.
9.
10.
11.
12.
13.
14.
15.
Coal mines, anthracite.
Coal mines, bitum inous.
Precious-m etal mines.
Iron mines.
Copper mines.
O ther base-m etal mines.
M ineral mines.
Oil and gas well operating.
O ther m ineral-w ell operating.
S c h e d u l e 2 .—
Group
Group
Group
Group
16.
17.
18.
19.
Mining.
Q uarrying.
Building-stone quarries.
Q uarrying and stone crushing.
C em ent rock.
Sand and clay digging.
D ivision C.—Manufacturing.
S c h e d u l e 1 . —Stone
Group
Group
Group
Group
Group
20.
21.
22.
23.
24.
products.
Stone crushing; no quarrying.
Stone cutting.
Stone grinding.
C arborundum .
Cem ent and plaster; no quar
rying.
Group 25. Lime.
Group 26. Plaster and artificial stone
products.
Group 27. Stone products (n. o. c.).
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Federal Reserve Bank of St. Louis
products.
Group 28. B rick and tile, including
underground mining.
Group 29. B rick and tile ; no u n d er
ground m ining.
Group 30. Potteries.
Schedu le
Group
Group
Group
Group
40.
41.
42.
43.
4.—Ore reduction and smelting.
Ore reduction.
Gold and silver sm elting.
Iron sm elting.
Copper sm elting and refining.
O ther m etals sm elting and
refining.
5.—Rolling mills and steel
works.
Steel making.
R olling and tu b e mills.
S tructural iron and steel.
Wire.
S c h e d u l e 6 . — Metal
Group
Group
Group
Group
44.
45.
46.
47.
Group 48.
Group 49.
Group 50.
Group 51.
Group 52.
Group 53.
Group 54.
Group 55.
Group 56.
Group 57.
Group
Group
Group
Group
Group
Group
Group
58.
59.
60.
61.
62.
63.
64.
products.
Foundries.
Lead.
Forging.
A rchitectural and ornam ental
ironwork.
Safes.
Sheet-m etal ware.
Sheet-m etal work.
Stam ping.
H ardware.
E yelets, pins, etc.
C utlery and h an d tools.
Sm all arms.
Stoves, heaters, etc.
Plum bing, gas, and electric
fixtures.
W ire products.
Beds and springs.
Copper and brass goods (n. o.c.).
Jew elry, watches, etc.
P latin g and galvanizing.
C utting and welding.
M etalgoods(n.o.c.)(undivided).
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 .
S c h e d u l e 7 . — Machinery
and instruments.
Boilers and tanks.
Engines.
A gricultural m achinery.
T extile m achinery.
M achinery (n. o. c.).
F in e machines.
M achine shops (n. o. c.).
E lectric apparatus and a p p li
ances.
• Group 73. Instrum ents, professional or
scientific.
Group
Group
Group
Group
Group
Group
Group
Group
65.
66.
67.
68.
69.
70.
71.
72.
S c h e d u l e 8 .— Vehicles.
Group
Group
Group
Group
Group
Group
74.
75.
76.
77.
78.
79.
Bailroad cars.
Carriages and wagons.
Automobiles.
Motorcycles.
Bicycles.
Aeroplanes.
S c h e d u l e 9 . —Lumber a n d w ood
.
Logging.
Sawmills.
P laning mills.
Cooperage.
Boxes.
C arpentry.
T urning.
Furniture.
U pholstering.
R attan and willow ware.
V eneer goods.
Brooms an d brushes.
H ousehold utensils.
M usical instrum ents.
Canes, etc.
Wood preserving and fireproof
ing.
Group
Group
Group
Group
G roup
Group
Group
Group
Group
Group
Group
Group
Group
Group
Group
Group
80.
81.
82.
83.
84.
85.
86.
87.
88.
89.
90.
91.
92.
93.
94.
95.
Group
Group
Group
Group
Group
Group
Group
G roup
96. T anning and dressing.
97. Fur.
98. Em bossing leather.
99. Shoe stock.
100. Boots and shoes.
101. Gloves.
102. H arness, bags, and belting.
103. L eather goods (n. o. c.).
S c h e d u l e 10.-—Leather.
S c h e d u l e 11.—Rubber and composition
goods.
Group 104. G utta percha.
Group 105. R u b b er reclaim ing.
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Federal Reserve Bank of St. Louis
Group
Group
Group
Group
Group
Group
Group
Group
106.
107.
108.
109.
110.
111.
112.
113.
35
R u b b er tires.
Soft-rubber goods.
H ard-rubber goods.
Celluloid.
Celluloid goods.
Insulation.
Bone and ivory.
P rin te rs’ rollers.
S c h e d u l e 12.— Chemicals and allied
products.
Group
Group
Group
Group
Group
Group
Group
Group
Group
Group
Group
Group
Group
Group
Group
114.
115.
116.
117.
118.
119.
120.
121.
122.
123.
124.
125.
126.
127.
128.
Group
Group
Group
Group
Group
129.
130.
131.
132.
133.
Chemicals.
B aking powder and yeast.
Glue.
In k , blacking, and polish.
Dyes, paints, and colors.
Drugs and m edicines.
P harm aceutical supplies.
E xtracts.
Fertilizers.
Explosives.
Gases.
F ats and oils (anim al).
Oils, cottonseed.
Oils (vegetable), all other.
P etroleum and allied prod
ucts.
Coke and charcoal.
T u rp en tin e and rosin.
Soap.
Starch and glucose.
Matches.
S c h e d u l e 13
Group
Group
Group
Group
Group
G roup
S
134.
135.
136.
137.
138.
139.
chedule
—Paper and paper products.
P u lp mills.
Paper.
Stationery.
Boxes.
F ib er goods.
P aper products (n. o. c.).
14.—Printing and publishing.
Group 140. (U ndivided.)
Schedule
Group
Group
Group
Group
Group
Group
Group
141.
142.
143.
144.
145.
146.
147.
15.— Textiles.
Wool preparation.
Woolen goods.
Cotton goods.
Silk.
L inen.
Carpets and rugs.
O ilcloth and linoleum .
36
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 .
Group 148. B atting,
w adding,
and
shoddy.
Group 149. Cordage.
Group 150. B urlap and jute.
Group 151. K n it goods.
Group 152. Lace, em broidery, and w-eb
bing.
Group 153. Finishing textiles.
Schedule
16.— Clothing and furnishings.
Group
Group
Group
Group
Group
Group
Clothing.
Shirts, collars, etc.
F urnishing goods.
H eadw ear.
Miscellaneous needlework.
Laundering, cleaning, and
dyeing.
154.
155.
156.
157.
158.
159.
Schedule
Group
Group
Group
Group
Group
Group
Group
Group
160.
161.
162.
163.
164.
165.
166.
167.
Group
Group
Group
Group
Group
Group
Group
Group
168.
169.
170.
171.
172.
173.
174.
175.
Division D .—Construction.
Schedule
Group 188. Raising and wrecking.
Group 189. Blasting.
Schedule
Group
Group
Group
Group
Group
Group
18.— Miscellaneous manufac
tured -products (■not otherwise classified).
Schedule
Group 176. Lead pencils and crayons.
Group 177. A dvertising and a rt novelties.
Group 178. Photographic
and
pyrograpliic goods.
Group 179. Sporting and m ilitary goods.
Group 180. Buffing wheels, washers, and
steam packing.
Group 181. B utchers’ and dairy supplies.
Group 182. Soda w ater apparatus.
Group 183. A rtificial limbs.
Group 184. P ain tin g (shop).
Group 185. Photography.
Group 186. Diamond cutting.
Group 187. Taxiderm ists.
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Federal Reserve Bank of St. Louis
Grading, excavating, and
foundations.
2 .—
190.
191.
192.
193.
194.
195.
Surveying.
Clearing and grading.
E xcav atin g and p ile driving. *
Drilling.
Tunnels and subways.
D itch digging, w ith p ipe lay
ing.
Group 196. Canals.
Group 197. Masonry.
17.—Foods, beverages, and
tobacco.
Flour and grist m ill products.
Baking.
Coffee and spices.
B eet sugar refining.
Sugar refining, cane.
Confectionery.
D airy products.
Slaughter
and
packing
houses.
Canning and preserving.
M alting and brewing.
B ottling; under pressure.
B ottling; not u n d er pressure.
Distilleries.
Ferm ented liquors.
Tobacco.
Ice.
1.— Wrecking and moving.
Schedule
Group
Group
Group
Group
Group
Group
Group
198.
199.
200.
201.
202.
203.
204.
Group 205.
Group 206.
Group 207.
Group 20S.
Group 209.
Group 210.
Group 211.
Group 212.
3 .—
Erecting.
S tru ctu ral iron erecting.
M etal construction (outside).
Concrete construction.
Signs, awnings, etc.
Fence construction.
C arpentry (outside).
B uilding c o n s t r u c t i o n
(n. o. c.).
Painting, plastering, and dec
orating (outside).
Roofing.
Dams, breakw aters, etc.
Railroad construction (all
kinds).
Boat and ship building (wood).
Boat and ship b uilding (steel
or iron).
Y achts and rowboats.
Boat and ship repairing and
rigging.
S c h e d u l e 4 .—
Finishing, equipping, and
installing.
Group 213. Metal construction (w ithin
buildings).
Group 214. E levator erection, passenger
or freight.
Group 215. M etal appliances; installing
w ith in buildings.
Group 216. M illwrighting.
Group 217. P lum bing and heating.
Group 218. E lectrical equipm ent.
Group 219. Marble, tile, and plaster
blocks (w ithin buildings).
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 .
Group 220. C arpentry w o r k ( w i t h i n
buildings).
Group 221. Plastering, painting, and dec
orating (w ithin buildings).
Group 222. Paving (outside).
Division E.—Transportation and public utilities.
Schedule
1 .—Steam railroads.
Group 252. Steam heating or power com
panies.
Group 253.—Garbage works and sewage
disposal plants.
Group 254. P neum atic tube companies;
operation.
Group 255. Irrigation works.
Group 256. Crematories.
S c h e d u l e 7 . —Pipe
Group 223. (U ndivided.)
2 . —Electric
Schedule
Schedule
3 . — Cartage
S c h e d u l e 4 .—
Stochgards.
Group 238. (U ndivided.)
Schedule
Group
Group
Group
Group
5 .—
239.
240.
241.
242.
S c h e d u l e 6 . —Public
utilities (not trans
portation).
247.
248.
249.
250.
251.
E lectric light and power.
Telephone and telegraph.
N atural gas.
Gas works.
W aterworks.
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Federal Reserve Bank of St. Louis
Offices.
1 .—
Group 257. (U ndivided.)
Sch ed u le
2.— Stores.
Group 258. (U ndivided.)
Yards.
S c h e d u l e 3 .—
Group 259. (U ndivided.)
S c h e d u l e 4 . —Salesmen
and agents— out
side.
Group 260. (U ndivided.)
Division G.—-Service.
Schedu le I .—
Domestic.
Group 261. Care, custody, and m ainte
nance of buildings.
Group 262. Care of grounds.
Group 263. Hotels, restaurants, and clubs.
Transportation by water.
Vessels.
Sailing vessels.
Fisheries.
Barges, lighters, and canal
boats.
Group 243. Stevedoring.
Group 244. W eighing and tallying.
Group 245. Marine wrecking.
Group
Group
Group
Group
Group
Sch ed u le
and storage.
Group 226. Drivers and stablem en.
Group 227. Chauffeurs.
Group 228. Express companies—opera
tion.
Group 229. Storage and warehousing.
Group 230. Ice harvesting.
Group 231. Grain elevators.
Group 232. Refrigerator cars.
Group 233. Oil distributing.
Group 234. Garages.
Group 235. Gasoline supply stations.
Group 236. Riggers and safe movers.
Group 237. Horseshoeing.
lines.
Division F.—Trade.
railroads.
Group 224. Street railroads.
Group 225. E levated railroads and sub
ways.
37
S c h e d u l e 2 .—
Personal.
Group 264. Theaters.
Group 265. Amusem ents, indoor (other
th a n theaters).
Group 266. Am usem ents, outdoor.
Group 267. In d iv id u a l service.
Schedule
Group
Group
Group
Group
Group
268.
269.
270.
271.
272.
3.—Professional.
Inspectors and appraisers.
Institutions.
Teachers and instructors.
U ndertakers.
Motion pictures.
S c h e d u l e 4 . — Municipal
Group 273. (U ndivided.)
and public.
38
M O N T H L Y B E V IE W O F T H E B U E E A U OF LA B O E S T A T IS T IC S .
PïtOFOSED PROHIBITION OF LEAD PAINTS IN GREAT BRITAIN.1
The enactment of a law prohibiting the importation, sale, or use
of any paint material containing more than 5 per cent of its dry
weight of a soluble lead compound is the principal recommendation
of the British departmental committee appointed to investigate
the danger of the use of paints containing lead to the health of
persons engaged in painting buildings. The committee was appointed
January 20, 1911, and after extensive investigations issued its report
on May 5, 1915- This report, however, bears the date of November,
1914.
Besides the chairman, the committee consisted of two members
of Parliament, the medical inspector of factories, and two represent
atives each of employing painters and of working painters. The
appointment of this committee was prompted by the numerous cases
of lead poisoning among painters and the belief that many of them
could be prevented by the same careful regulation or restriction which
has proved effective in preventing lead poisoning in factories.
The committee’s report is based upon the evidence of 118 witnesses,
of whom 93 were selected by the committee as representatives of
employers, painters, paint and paint material manufacturers, con
sultants to paint makers, chemists, architects, physicians, and others
with special knowledge of ship and bridge painting and lead poison
ing. The remaining 25 witnesses were brought forward by the whitelead corroders’ section of the London Chamber of Commerce, and
included a certain number from France, Germany, Austria, Belgium,
Holland, and Switzerland. The report is printed in a volume of 134
pages, summarizing and analyzing the evidence and presenting the
recommendations of the committee. A second volume giving the
testimony of the witnesses in full is yet to be issued.
The committee recognized that in connection with such a restriction
as it recommends it would be necessary to exempt specifically certain
classes of colors, such as those used by artists, and that it would be
desirable to authorize the granting of exemptions applicable only to
special branches of the painting industry, where it could be shown
to the satisfaction of the home secretary that the use of lead paints
containing more than 5 per cent of soluble lead can not as yet be
dispensed with. In such cases it is considered desirable that the
home secretary be given power to enforce adequate preventive
measures, namely, abolition of dry rubbing down, provision for over
alls, lunch rooms, cloak rooms, elevators, medical examinations, and
the like, all of which should be made compulsory and should be
enforced by adequate inspection. The supplying of lead materials
1 G reat B ritain . H om e D ep artm en t. R ep o rt of th e d ep artm en tal com m ittee appointed to investigate
th e danger a tte n d a n t on th e use of p ain ts containing lead in th e p ain ting of buildings. N ovem ber, 1914,
134 pp. (Cd. 7882).
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Federal Reserve Bank of St. Louis
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 .
39
to any user granted such exemption could be controlled by permitting
paint manufacturers to supply the materials in question only on
condition that they submit in writing to the proper Government
department the name and address of the customer.
To give adequate time for paint makers and others to arrange for
supplies of nonpoisonous materials and also to facilitate the intro
duction of modifications in painting methods, where special work
necessitates such changes, the committee recommends that the
restriction of the amount of lead in paints to not more than 5 per
cent of soluble lead should not be enforced until three years after
the publication of its report.
Attention is directed to the possible dangers to health arising from
the vapors of linseed oil and turpentine or turpentine substitutes
used in all paints whether compounded with lead or leadless pigments,
and to the consequent importance of investigating their possible effect
on health which the evidence before the committee indicated might
be serious enough to require action on the part of the home office.
The committee is of the opinion that any bill proposes to give effect
its recommendations should empower the home secretary to make
regulations, if he finds it necessary, similar to those which he is now
authorized by law to establish in factories and workshops.
The committee found that serious efforts had been made to deal
with the evil of lead poisoning among house painters in France,
Austria, Germany, Holland, Belgium, and Switzerland, and suggests
that Great Britain should not be behind other countries in such a
matter. Two methods of dealing with the evil suggested themselves:
Either (1) the industry must be governed by a strict code of regula
tions, or (2) the use of lead must be prohibited altogether, or at any
rate restricted within very narrow limits.
The proposal to deal with the situation by regulation the com
mittee regards as impossible, for four principal reasons: (1) The
inadequacy of regulations to cope with the evil; (2) the difficulty of
prohibiting dry rubbing down, the most frequent cause of lead
poisoning; (3) the cost and difficulty of complying with various
precautionary measures; and (4) the insuperable difficulty of enforc
ing regulations by adequate inspection.
The second method for the prevention of lead poisoning, by the
prohibition of the use of lead or its restriction within very narrow
limits, was favored by a majority of employers who appeared before
the committee.
The committee found from the evidence before it that not only
are leadless paints suitable for interior work but that they had been
used successfully on exterior surfaces. The leadless paints claimed
to be of sufficient durability for exterior use were found already
obtainable in considerable numbers, with every indication that legis
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Federal Reserve Bank of St. Louis
40
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 .
lation affecting the amount of lead permissible in paints would give
a great impetus to the manufacture of the nonpoisonous substitutes.
The white-lead industry in Great Britain in 1910 produced 58,000
tons, 85 per cent of which was for home consumption. It employed
approximately 2,500 persons with annual wages of $750,000. The
capital invested amounted to $6,500,000. In lead mining approxi
mately 2,700 persons were employed, with annual wage payments
only slightly less than in the white-lead industry. It was estimated
that the prohibition of the use of white lead according to the com
mittee’s recommendations would limit the demand for this material
to 23,000 tons and would also reduce the demand for pig lead by
about 25 per cent.
Among the persons employed as house painters in England and
Wales, about 30 deaths from lead poisoning are reported each year.
As to the number of nonfatal cases there are no complete statistics,
since house painters do not come under the factory acts and reports
of cases are entirely voluntary. However, the number of nonfatal
cases is estimated at about 750 per annum.
In Great Britain the production of zinc oxide, the principal sub
stitute for white lead in outdoor painting, is small, but the com
mittee is of the opinion that a larger call for zinc paints would lead
to the establishment of zinc-oxide works on a scale sufficient to
meet all demands.
The recommendations of the committee are signed by seven of its
eight members, one, a representative of the association of master
painters, submitting a minority report. This minority report vig
orously challenges the conclusions and recommendations of the other
members of the committee and urges that regulation should at least
be given a thorough trial before prohibiting the use of so valuable a
paint material as white lead. This recommendation is based upon
the claim that the center of danger in all industries is the dust pro
duced, and that in painting the dust-producing processes harmful to
the health of the workers rest on the dry rubbing of lead paint.
Therefore, it is suggested that the rational course is to prohibit under
heavy penalties the practice of dry rubbing down, and thus remove
the great source of danger from poisoning by lead dust.
UNEMPLOYMENT LEGISLATION IN 1915.
The matter of unemployment received attention in a few States
during the legislative sessions of the current year, resulting in the
adoption of measures for relief of more or less extensive nature.
Little precedent exists in this country for enactments in this field,
for which reason the action taken may be regarded as experimental,
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Federal Reserve Bank of St. Louis
M O N T H L Y R E V IE W OE T H E B U R E A U O F L A B O R S T A T IS T IC S .
41
while one law in particular—that of Idaho—may be regarded as
presenting decidedly novel features.
The question of unemployment was considered by the California
Legislature of sufficient magnitude to require Federal action, and it
adopted a resolution requesting an investigation by the Congress of
the United States and the adoption of such remedial measures as
might be thought necessary and proper.
The Legislature of Illinois provided for a State commission on the
subject, while in Idaho a memorial was adopted by the legislature
referring to the fact that the State law prohibits the employment of
alien labor upon public works, and submitting to Congress the
proposition that a similar rule should control in favor of citizen labor
on Federal undertakings within the State.
The formation of associations of certain employees on steam and
electric railways for the purpose of providing a cooperative fund
from which unemployment benefits should be paid was provided for
by a Michigan statute.
Of a more direct nature are resolves of the Legislature of Massa
chusetts authorizing the employment of needy persons by the
Metropolitan Park Commission in labor on parkways, boulevards,
parks, and reservations, also by the State forester; while in New
Jersey the common council or other body in charge of departments
of municipalities employing unskilled labor are authorized to select
“ from the needy poor of such city or other municipality” residents
for the purpose of such public work as may be assigned to them.
The most elaborate provision is that of the Idaho statute, which
the press lias called a “ right to work” law, wffiich authorizes and
requires county commissioners to provide emergency employment for
any person who is a citizen of the United States and has been for an
uninterrupted period of not less than six months a resident of the
State of Idaho. The vTork is to be done on public highways or such
other work as may be determined upon. Applicants must be resi
dents of the county for more than 90 days preceding the application,
must show that they are unable to secure other employment, and
that they do not possess property of a total value of more than $1,000.
A statement of the number of dependents, if any, must be given; also
as to the amount of any emergency employment had during the 12
months last past. One applying for work must also agree to do with
reasonable diligence and efficiency the work assigned, and a failure
or refusal to perform such work is regarded as an offense for which he
may be suspended for a period of one week in the first instance and
for a second offense be disqualified for receiving the benefit of emer
gency employment for a period of one year. No person may receive
more than 60 days’ employment within a year, and each applicant
must be identified and vouched for by some freeholder in the county
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Federal Reserve Bank of St. Louis
42
M O N T H L Y R E V IE W OF T H E B U R E A U OF LABO R S T A T IS T IC S .
where the application is made. Payments are made on vouchers
issued by the auditor of the county and a record kept of names and
amounts, and on a certificate to the State auditor of the total sum
expended in this behalf 50 per cent of this sum shall be remitted to
the county by deducting it from the sum of the general taxes col
lected by the State.
MINIMUM WAGE FOE WOMEN IN RETAIL STORES IN
MASSACHUSETTS.
The Massachusetts Minimum Wage Commission under date of
September 15, 1915, published a decree fixing a minimum wage for
female employees in retail stores, to be effective January 1, 1916.
The decree is based upon the recommendations of the Retail Store
Wage Board, which was appointed by the commission to investigate
conditions and to make recommendations. The wage board con
sisted of six representatives of employers, six representatives of
employees, and three representatives of the public.
The statement and decree of the Minimum Wage Commission are
printed substantially in full below:
A report made to this commission by the Retail Store Wage Board
recommends a minimum wage suitable for female employees of ordi
nary ability in retail stores and also suitable minimum wages for
learners and apprentices, as follows:
A
ug ust
5, 1915.
The R etail Store Wage Board has th e following to report as th e result of its study
and deliberations:
In view of th e present unsatisfactory condition of business in th is country, th e board
has agreed upon th e following schedule of wages for fem ale workers in th e retail stores
of Massachusetts:
1. The m inim um wage to be p aid to any fem ale employee who after reaching th e
age of 18 years has had one y ear’s experience in a retail store shall be $8.50
a week.
*
2. The wage for inexperienced fem ale workers who are 18 years of age or older
shall not be less th a n $7 a week.
3. Minors betw een 17 and 18 years of age shall be paid n o t less th an $6 a week.
4. T he wage for minors u n d er 17 years of age shall b e n o t less th an $5 a week.
This wage scale shall ap p ly to all establishm ents doing a reta il business in th e
Comm onwealth of M assachusetts and to each and every kind of em ploym ent therein.
These rates are for full-tim e work, b y w hich is m eant th e full n u m b er of hours per
week required b y employers and p erm itted b y th e laws of th e Commonwealth.
E x tra or p a rt tim e workers shall receive a t least th e same scale of pay pro rata for
th e tim e actually em ployed.
If com pensation is determ ined or supplem ented b y commissions on sales, bonus,
prem ium , or other m ethod, th ere m ust b e a g uaranty and p ay m en t of th e full weekly
rate in every case.
'I t has not seem ed necessary to th e board to d eterm ine in ex act term s and in d etail
th e necessary cost of living, b u t it considers i t to b e a t least as m uch as and probably
som ewhat above th e m inim um herein set forth. T he board feels th a t th e schedule
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Federal Reserve Bank of St. Louis
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 LABOR S T A T IS T IC S .
43
of wages adopted is as high as th e retail stores of th e State will be able to pay u n til
industrial and business conditions shall have shown a m arked im provem ent. More
over, i t should be noted th a t these rates will m ean a very large increase in earnings
for m any of th e employees, especially for th e minors and inexperienced, and a cor
respondingly increased bu rd en of expense for th e employers, w hich th ey can n o t
easily or im m ediately shift to th eir customers or offset b y economies in other operating
expenses or b y means of th e increased efficiency of th e workers. W hen th is ad ju st
m ent to th e higher wage scale has been accom plished, however, and when th e b u si
ness is in a more prosperous condition, th e rates herein m ay and perhaps ought to be
advanced to a som ewhat higher level.
I t is recom m ended th a t these rates be p u t in operation on or a b o u t Jan u ary 1, 1916.
In accordance with the provisions of law,1 the Minimum Wage
Commission has made an inquiry into the wages paid to the female
employees in the retail stores in Massachusetts and found that more
than one-third of the number studied earned less than $6 a week.
(See bulletin No. 6, Minimum Wage Commission.) The commission
therefore established the Retail Store Wage Board, and instructed
it, as required by section 5, chapter 706, as amended, to consider
(1) the needs of the employees, (2) the financial condition of the
industry, and (3) the probable effects thereon of any increase in the
minimum wages paid, and thereafter to endeavor to determine the
minimum wage suitable for a female employee of ordinary ability
in the industry, and also suitable minimum wages for learners and
apprentices and for minors below the age of 18 years. The board
stated it to be its opinion, after consideration of the needs of the
employees, as required by law, that the necessary cost of living is
“ as much as and probably somewhat above” the minimum ($8.50)
set forth in the schedule of wages which it recommends.
It is further set forth, in consideration of the present financial
condition of the industry, “ that the schedule of wages adopted is as
high as the retail stores of the State will be able to pay until industrial
and business conditions shall have shown a marked improvement.”
The Minimum Wage Commission, having tentatively approved
the recommendations of the majority of the board, as provided by
section 6 of chapter 706, acts of 1912, as amended, and after due
notice to employers paying less than the recommended minimum
wage, held public hearings on these recommendations on August
23 and 26, 1915.
At these hearings no evidence was submitted which showed that
the financial condition of the retail stores will not permit paying
the recommended rates. The commission, therefore, confirms the
recommendations, and orders that the following decree be entered,
as provided by section 6, chapter 706, acts of 1912, as amended:
DECREE.
T he M inim um Wage Commission of th e Commonwealth of Massachusetts, having
before it th e report of th e R etail Store Wage Board, after p ublic hearings thereupon
held A ugust 23 and A ugust 26, 1915, and for reasons set forth in its statem en t of
even date, in accordance w ith S tat. 1912, ch. 706, par. 6, as am ended, m akes th e
following decree:
1. No experienced fem ale employee of ordinary a b ility shall be em ployed in retail
stores in M assachusetts a t a rate of wages less th an $8.50 a week.
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1 S iat. 1912, ch. 706, par. 3.
44
MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.
2. No female employee of ordinary ab ility shall be deem ed inexperienced who has
been employed in a retail store or stores for one year or more, after reaching th e
age of 18 years.
3. A female employee shall be deem ed to have been em ployed in th e in d u stry for
a year if her absences from her place or places of em ploym ent during 12 m onths,
w hether consecutive or nonconsecutive, have not been of unreasonable duration.
4. T he wages of learners and apprentices m ay be less th a n th e m inim um prescribed
for experienced employees, provided:
(a) T hat no female employee of ordinary a b ility who has reached the
age of 18 years shall be em ployed a t a rate of wages less th a n $7
a week.
( b) T hat no female employee of ordinary a b ility who has reached th e
age of 17 years shall be em ployed a t a rate of wages less th a n $6
a week.
(c) T hat no other female employee of ordinary a b ility shall be p aid at
a rate of wages less th a n $5 a week.
5. A female employee of less th a n ordinary a b ility m ay be p aid less th a n th e p re
scribed m inim um wage provided th a t th e conditions of section 9, chapter 706,
acts of 1912, are com plied w ith.
6. These recom m endations shall take effect on January 1, 1916, on w hich date all
female employees of ordinary ab ility who have been em ployed in th e in d u stry
for one year or more after reaching th e age of 18 shall be deem ed to have served
an apprenticeship of one year, and all others shall be deem ed to have begun
th eir apprenticeship, and to be en titled to th e rates as specified above.
In order to facilitate th e enforcement of this order th e commission recom m ends th a t
a female employee on leaving h er em ploym ent in any establishm ent receive a card
showing th e tim e she has worked in th a t establishm ent.
MINIMUM WAGE LAW OF KANSAS.
In an article on ‘‘Minimum-Wage Legislation, 1915,” in the August
issue of the M o n t h l y R e v ie w , it was stated that so far as was known
at the time of that publication the legislature of the State of Arkansas
was the only one that had enacted legislation on this subject during
the year. It was subsequently learned that the legislature of Kansas
passed a law at its 1915 session providing for the establishment of
an industrial welfare commission with the duty of establishing stand
ards of wages, hours, and conditions of labor for women, learners and
apprentices, and minors employed within the State, thus making 11
States having some form of minimum-wage law. The term “minors”
as used in this act includes persons of both sexes under the age of
18 years, while the term “ women” applies to females above that age.
The commission consists of the commissioner of labor and two
persons appointed by the governor, one of whom must be a wo
man. The commission may act on its own initiative or upon the
request of not less than 25 persons engaged in any occupation in
which are employed persons of the classes coming within the purview
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M O N T H L Y R E V IE W OE T H E B U R E A U OE LABOR S T A T IS T IC S .
45
of the act. Authority is given to make such examination of the pay
rolls and wage records and to call such witnesses as the commission
may deem necessary; public hearings may also be had. If, after such
investigation, the commission concludes that wages, hours, and sani
tary or other conditions in the occupation are prejudicial to the
health or welfare of any substantial number of persons embraced in
the act, it may establish a board to take the matters complained of
under advisement. This board is to consist of not less than three
representatives of employers, three of employees, and one or more
representatives of the public appointed by the commission. The
commission makes rules and regulations for the selection of the
various members and the modes of procedure of the board, and also
has exclusive jurisdiction over all questions arising as to the validity
of the procedure and of the determinations of the board. Members
of the board are paid as jurors in the district courts, and witnesses
are paid as witnesses in like courts.
The boards may recommend what they regard as a reasonable
minimum wage to meet the necessary cost of living for a woman
worker of ordinary ability, and also the number of hours and sanitary
conditions necessary; also for learners and apprentices and for minors.
Time and piece rates may be fixed, and also different rates and stand
ards for different localities in the State if circumstances seem to
warrant. The commission has authority to review and approve or
disapprove all findings. If a determination is approved, a public
hearing is to be given after four successive weeks of publication of
notice, after which the order may be issued to become effective in
60 days. Cases may be reopened on request of either party in interest,
and special licenses may be issued for persons who are physically de
fective, or crippled, or of less than ordinary ability, or for learners,
apprentices, and minors where only a minimum time wage has been
established. A less number of hours than the standard may also be
fixed for such persons.
Any person in interest dissatisfied with any order or ruling of the
commission may, within 30 days of the making thereof, commence an
action in court on the ground that such order or ruling is unauthorized
by law, confiscatory, or unreasonable. Such cases are to have
precedence over other civil cases and are tried as other cases at law,
the burden of proof being on the person bringing the action. Penal
ties are provided for violations of the act, and for the discharge of or
other discrimination against any employee who joins in requesting an
investigation or who gives testimonies at any hearing. Failure to
comply with the act is punishable as a misdemeanor, the fine pre
scribed being not less than $25 nor more than $100 in each case.
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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 .
BULLETIN OF THE NEW YORK STATE INDUSTRIAL
COMMISSION.
Beginning with October of this year the New York State Industrial
Commission proposes to issue monthly a bulletin concerning the
activities of the various bureaus and divisions subject to its adminis
tration. The bulletin will be issued from the bureau of statistics
and information of the department of labor.
I t will be the aim of the bulletin to present concisely and in terms
understandable to the average citizen, the various activities of the
bureaus and divisions under the direction of the State Industrial
Commission—and these interest every man, woman, and child of the
ten million inhabitants of the Empire State.
While from time to time, pamphlet bulletins dealing with matters
directly interesting to those of a statistical turn of mind, have been
issued by one or another of these bureaus, no publication has been
issued covering all the activities of all the bureaus. It will be the
mission of the bulletin to supply this deficiency. Besides, the rulings,
decisions, and other official data which the commission should supply
to the public will also appear in the bulletin.
The bulletin is issued in quarto form with double columns. The
first number contains a directory of the commission and the industrial
council, accounts of the activities of the bureau of compensation,
bureau of statistics, bureau of inspection, legal bureau, the bureau of
mediation and arbitration, employment bureau, bureau of industries
and immigration, bureau of legal code, together with a statement
concerning the State fund for workmen’s compensation, a summary
of the movement of the labor market, and a summary of the work of
the commission.
The following statement concerning the industrial commission of
New York State is reproduced from page 10 of the first issue of the
bulletin:
The industrial commission is the administrative head of the depart
ment of labor of New York State. As a matter of fact, it is the labor
department, but the labor department is a constitutional entity,
and so the title had to be retained in the law creating the industrial
commission.
The New York State Industrial Commission administers a consoli
dation and reorganization of the State labor department, with its
various bureaus and ramifications; the workmen’s compensation
commission and the administration of the State fund, and the New
Y ork State employment bureau. These departments and bureaus
are subdivided into:
Bureau of inspection, covering inspection of factories, mercantile
establishments, and other places where labor is employed, as to fire
prevention, fire hazards, safety of life and limb, sanitary conditions.
This is subdivided into divisions of factory inspection, mercantile
inspection, homework inspection, industrial hygiene, section of
medical inspection, and supervising inspection districts.
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Bureau of statistics and information, subdivided into divisions of
general labor statistics, industrial directory, industrial accidents and
diseases, special investigations, and printing and publication.
Bureau of State employment, designed to bring employers and
unemployed together for mutual benefit. This bureau has branch
offices in all the important labor centers of the State.
Bureau of mediation and arbitration, designed to afford a ready
means of adjustment of disputes regarding industrial relations.
Bureau ot workmen’s compensation, which administers the work
men’s compensation law and the State insurance fund. This was
formerly a State department in itself.
Bureau of industries and immigration, which is clothed with power
to make full inquiry, examination, and investigation into the condi
tion, welfare, and industrial opportunities of all aliens arriving and
being within the State.
Moreover, the New York State Industrial Commission succeeds
to the powers and duties of the industrial board in formulating an
industrial code as well as framing rules and regulations for the conduct
of employers and employees which have full force and effect of laws
when the legislature is not in session; and also to many of the powers
and duties of the abolished State fire marshal’s office.
I t can be readily seen that the industrial commission is a body
clothed with great powers and invested with tremendous responsi
bilities which affect well-nigh every one of the nearly ten million
inhabitants of New York State.
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M O N T H L Y R E V IE W OF T H E B U R E A U OF LABOR S T A T IS T IC S .
REPORT OF THE COMMISSION ON INDUSTRIAL RELATIONS.
Under authority granted by act of Congress of August 23, 1912,
creating and defining the duties of the Commission on Industrial
Relations, the President appointed as commissioners Messrs. Frank
P. Walsh, of Missouri, chairman; John R. Commons, of Wisconsin;
F. A. Delano, of Illinois; Harris Weinstock, of California; S. Thurs
ton Ballard, of Kentucky; John B. Lennon, of Illinois; James O’Con
nell, of the District of Columbia; Austin B. Garretson, of Iowa; and
Mrs. Florence J. Harriman, of New York. The general public was
represented by Commissioners Walsh, Commons, and Harriman; the
employers by Commissioners Weinstock, Delano, and Ballard; and
organized labor by Commissioners Lennon, O’Connell, and Garretson. On March 17, 1915, owing to the resignation of Mr. Delano, the
President appointed Mr. IL H. Aishton, of Illinois, in his stead.
The findings, conclusions, and recommendations of the commission
are contained in a report of 448 pages issued under date of August
23, 1915. Two hundred and forty-five pages of this report were pre
pared by Basil M. Manly, director of research and investigation for
the commission, and include conclusions and recommendations based
upon both the vast amount of testimony heard in widely separated
parts of the country and the individual reports of a staff of 21 inves
tigators detailed by the commission to make special studies of specific
questions bearing upon industrial conditions. To this portion of the
report Commissioners Walsh, Lennon, O’Connell, and Garretson sub
scribe their names, although each dissents from specific recommenda
tions contained therein. Commissioners Commons, Harriman, Wein
stock, Ballard, and Aishton submit a separate report, including recom
mendations, and here again specific recommendations are dissented
from by three of the signers—Messrs. Weinstock, Ballard, and Aishton—
who present a report embodying their objections and reasons there
for.1 Supplemental statements are presented by Commissioners
Walsh,2 Garretson,3 Lennon and O’Connell,4 and Ballard.5 A some
what extended report on vocational education,6 by Commissioner
Lennon, is included, which is approved by five of the commission,
Commissioners Harriman, Aishton, Weinstock, and Commons with
holding their signatures.
In the act of Congress creating the commission, section 4 named
11 questions into which inquiry was specifically directed. The sec
tion is as follows:
1 R eport, p. 407.
2 R eport, p. 297. Concurred in b y Commissioners Lennon and O’Connell. R eport, p. 289.
3 R eport, p. 291. Concurred in as to certain particulars b y Commissioners Lennon and O’ Connell,
R eport, p . 289.
4 R eport, p. 279. Concurred in as to certain particulars b y Commissioner Garretson. R eport, p. 291.
3 R eport, p. 443.
6 R eport, p. 265.
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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 .
49
T hat th e commission shall in q u ire into th e general condition of labor in th e p rin
cipal industries of th e U nited States, including agriculture, and especially in those
w hich are carried on in corporate forms; into existing relations betw een employers
and employees; into th e effect of in d u strial conditions on public welfare, and into
th e rights and powers of th e com m unity to deal th erew ith ; into th e conditions of
sanitation and safety of employees and th e provisions for protecting th e life, lim b,
and h ealth of th e employees; into th e grow th of associations of employers and of
wage earners and th e effect of such associations upon th e relations betw een employers
and employees; into th e e x te n t and results of m ethods of collective bargaining; into
any m ethods w hich have been tried in any S tate or in foreign countries for m ain tain
ing m utually satisfactory relations betw een employees and em ployers; into m ethods
for avoiding or adjusting labor disputes through peaceful and conciliatory m ediation
and negotiations; into th e scope, m ethods, and resources of existing bureaus of labor
and in to possible ways of increasing th e ir usefulness; into th e question of smuggling
or other illegal en try of A siatics into th e U n ited States or its insular possessions, and
of th e m ethods by w hich such A siatics have gained and are gaining such admission,
and shall report to Congress as speedily as possible w ith such recom m endation as said
commission m ay th in k proper to p re v e n t such smuggling and illegal en try . The
commission shall seek to discover th e underlying causes of dissatisfaction in th e indus
trial situation and report its conclusions thereon.
Of these subjects three, namely, general labor conditions, industrial
relations, and the causes of industrial unrest, were fundamental in
character and of broad scope, while eight were specific and dealt more
largely with matters of detail.
R EPO R T OF C O M M ISSIO N E R S W ALSH, LEN N ON , O ’CONNELL, AND
GARRETSON.
In the report of the director of research, which is submitted as
the report of Commissioners Walsh, Lennon, O’Connell, and Gar
re tson, the three general subjects are discussed in some detail,
with no specific recommendations except as to industrial unrest.
Four sources of industrial unrest are mentioned, presenting evils
for the elimination of which definite recommendations are made.
SOURCES OF INDUSTRIAL UNREST.
Unjust distribution of wealth and income.
As a remedy for the unequal distribution of wealth and income
the report urges—
The enactm ent of an inheritan ce ta x so graded th a t w hile m aking generous pro
vision for th e support of dependents and th e education of m inor children, i t shall
leave no large accum ulation of w ealth to pass in to hands w hich h ad no share in its
production. I t is suggested th a t a lim it of $1,000,000 dollars be fixed on as th e am ount
th a t shall pass to th e heirs. T he revenue from th is ta x should be reserved b y the
F ederal G overnm ent for three prin cip al purposes:
1.
T he extension of education. 2. T he developm ent of other im p o rtan t social
services w hich should properly be performed b y th e N ation. 3. D evelopm ent in
cooperation w ith States and m unicip alities of great constructive works, such as road
building, irrigation, and reforestation, w hich would m aterially increase th e efficiency
and welfare of th e entire N ation.
11408°—15-----4
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M O N T H L Y R E V IE W O F T H E B U R E A U O F LABOR S T A T IS T IC S .
Unemployment and dénia? of opportunity to earn a living.
I t is predicted that the unemployment situation will not he appre
ciably relieved until great advances have been made in the removal
of two prime causes—unjust distribution of wealth and monopo
lization of land and natural resources. With respect to the land
question the following suggestions are submitted:
1. Vigorous and unrelenting prosecution to regain all land, w ater power, and m in
eral rights secured from th e G overnm ent b y fraud.
2. A general revision of our land laws, so as to apply to all future land grants th e
doctrine of “ superior use,” as in th e case of w ater rights in California, and provision
for forfeiture in case of actu al nonuse. In its sim plest form th e doctrine of “ superior
u s e ” im plies m erely th a t a t th e tim e of m aking th e lease th e purpose for w hich th e
land w ill be used m ust be tak en into consideration, and th e use w h ich is of greatest
social value shall be given preference.
3. The forcing of all unused land into use b y m aking th e ta x on nonproductive
th e same as on productive land of th e same k in d and exem pting all im provem ents.
Denial o f justice.
Much of the testimony presented to the commission evidenced
the fact that there exists among workers an almost universal con
viction that they, both as individuals and as a class, suffer from
unjust legislation, and that the very instruments of democracy
are often used to oppress them and to place obstacles in the way
of their movement toward economic, industrial, and political
freedom and justice. It is therefore recommended—
1. T h at Congress should forthw ith in itia te an am endm ent to th e Constitution
providing in specific term s for th e protection of th e personal rights of every person
in th e U nited States from encroachm ent b y ' th e Federal and S tate Governments
and b y priv ate individuals, associations, and corporations. The p rincipal rights
w hich should be th u s specifically protected by th e power of th e F ederal Govern
m ent are th e privilege of th e w rit of hab ea s c o r p u s , th e rig h t to ju ry trial, free speech,
peaceful assemblage, to keep and bear arms, to be free from unreasonable searches
and seizures, to speedy p ublic trial, to freedom from excessive bail, and from cruel
and unusual punishm ents.
2. T hat Congress im m ediately enact b y sta tu te or, if deem ed necessary, in itia te
a constitutional am endm ent specifically p rohibiting th e courts from declaring legis
lative acts unconstitutional.
3. T h at Congress enact th a t in all Federal cases w here th e tria l is b y ju ry all q u ali
fied voters in th e d istrict shall be in cluded in th e list from w hich jurors are selected
and th a t th ey shall be draw n b y th e use of a w heel or other device designed to promote
absolute im p artiality .
4. T h at Congress should drastically regulate or p ro h ib it p riv ate detec tiv e agencies
doing business in more th a n one State, em ployed b y a com pany doing an in terstate
business, or using th e m ails in connection w ith th e ir business. Such regulation,
if it is feasible, should in clu d e p articularly th e lim itation of th e ir activ ities to th e
b o n a fid e functions of d etecting crim e, and adequate provision should be m ade for
th e rigid supervision of th eir organization and personnel.
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Denial o f the right o f organization.
Believing that the fundamental question for the Nation to decide
is whether the workers shall have an effective means of adjusting their
grievances, improving their condition, and securing their liberty
through negotiation with their employers, or whether they shall be
driven by necessity and oppression to the extreme of revolt, the
following is recommended:
1. Incorporation among th e rights guaranteed b y th e C onstitution of th e unlim ited
right of individuals to form associations, not for th e sake of profit, b u t for th e advance
m ent of th eir individual and collective interests.1
2. E nactm ent of statutes specifically protecting this right and prohibiting th e
discharge of any person because of his m em bership in a labor organization.
3. E nactm ent of a statu te providing th a t action on th e p a rt of an association of
individuals not organized for profit shall not be held to be unlaw ful w here such
action would not be unlaw ful in th e case of an in d iv id u al.
4. T h at th e Federal T rade Commission be specifically empowered and directed by
Congress in determ ining u nfair methods of com petition to tak e into account and
specially investigate th e unfair treatm en t of labor in all respects, w ith particular
reference to th e following points:
a. R efusal to perm it employees to become m em bers of labor organizations.
b. R efusal to m eet or confer w ith th e authorized representatives of employees.
5. T h a t th e D epartm ent of Labor, through th e Secretary of Labor or any other
authorized official, be empowered and directed to present to th e Federal T rade Com
mission, and to prosecute before th a t body, all cases of unfair com petition arising out
of th e treatm en t of labor w hich m ay come to his attention.
6. T h at such cases, affecting, as th ey do, th e lives of citizens in th e hum blest cir
cum stances, as well as th e profits of com petitors and th e peace of th e com m unity, be
directed b y Congress to have precedence over all other cases before th e Federal T rade
Commission.
With reference to specific questions propounded by Congress the
following conclusions and recommendations are given:
INDUSTRIAL CONDITIONS OF ADULT W ORKMEN IN GENERAL INDUSTRIES.
W ages.
Concluding that every able-bodied workman should as a minimum
be compensated by sufficient income to support in comfort himself,
a wife, and at least three minor children, and in addition to provide
for sickness, old age, and disability, that a just standard of wages in
any industry or occupation can best be secured by the method of
collective bargaining between employers and employees, it is
recommended:
1.
In order th a t th e public m ay be k e p t fully informed w ith regard to labor condi
tions, and th a t a proper basis of facts should exist for negotiation and arbitration, th e
F ederal G overnm ent should en act th e necessary legislation to provide for th e collec
tion, through th e B ureau of Labor Statistics, or otherwise, of th e full and exact facts
regarding wages, hours of labor, and e x te n t of unem ploym ent for every industry.
E very employer should be required b y law to file w ith th e proper authority a sworn
statem ent of these facts according to a prescribed form. These statistics should be
1 See also supplem ental statem e n t of Commissioners Lennon an d O ’Connell.
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R eport, pp. 285, 286.
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 B O R S T A T IS T IC S .
published annually, and th e full d ata regarding any in d u stry or p lan t should be
accessible to any m ediator or any other responsible citizen.
2.
Uniform statutes should be passed b y th e legislatures of all States requiring th a t
wages be paid a t least sem im onthly and in cash, except where b y joint agreem ent
other m ethods are agreed upon.
Hours o f labor.
Based upon the conclusion that the physical well-being, mental
development, and recreational needs of every class of population
demand that under normal circumstances the working day should not
exceed eight hours; that the reduction of working hours is in the
interest not only of the worker and the community generally, but
of the employer, the recommendation is made—1.
T h at in th e so-called continuous occupations, other th an th e m ovem ent of trains,
requiring work during b o th th e day and th e nig h t for six or seven days per week, the
State and Federal G overnm ents should d irectly intervene, so th a t th e working hours
should not exceed eight per day nor extend to more than six days per week.
Safety and sanitation.
It is admitted that great progress has been made during recent
years in promoting safety and sanitation and in safeguarding the
workers from industrial accidents, and that this progress has pro
ceeded most rapidly and satisfactorily since the enactment of work
men’s compensation laws, which render unsafe working conditions
expensive to the employer. Realizing that future progress in sani
tation demands attention not only to cleanliness and ventilation,
but to occupational diseases, and that the most direct incentive for
the promotion of sanitation would be the adoption of a proper
system of sickness insurance, the following is recommended:
1. The creation of a bureau of in dustrial safety (except th at th e section providing
a museum of safety is not indorsed). Proper steps should be taken to provide for
the coordination of th e work of all Federal bureaus whose work is concerned w ith
industrial safety.
2. The appropriations of th e P ublic H ealth Service for th e investigation and pro
motion of industrial sanitation should be increased.
Housing.
The investigation of the commission developed the fact that the
houses and tenements which are available to workers are insanitary
and overcrowded, that rents are high, and that tenement house acts,
health ordinances, and building regulations of municipalities are not
sufficient to cure the evils of the housing situation. The following
recommendations are therefore submitted:
1.
The Federal and S tate G overnm ents should in stitu te investigations directed, not
so m uch to ascertaining existing housing conditions, as to form ulating constructive
m ethods b y w hich direct support and encouragem ent to th e prom otion of im proved
housing can be given. A ctual experim ent in th e prom otion of housing should proceed
as rapidly as proper plans can be drafted.
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M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
53
2. Special attention, should be given to taxation, in order th a t land should as far
as possible be forced in to use and th e burden of taxation be rem oved from home
owners.
3. The m unicipalities should be relieved from all State restrictions w hich now
p rev en t them from undertaking th e operation of adequate housing schemes and from
engaging in other necessary m unicipal enterprises.
W OMEN AND CHILDREN IN INDUSTRY.
The commission found that as a result of their unprotected condi
tion, "women and children are exploited in industry, trade, domestic
service, and agriculture to an extent which threatens their health
and welfare and menaces the well-being of future generations; and
that because of this competition the wages and salary standards of
men have suffered. The testimony disclosed the fact that the ex
clusion oi children from factories has resulted in increasing rather
than decreasing profits. Two primary causes are given for the in
creasing employment of women: (1) Low wages of men, making the
earnings of women necessary, and (2) their willingness to accept
lower wages and the fact that they are less likely to protest against
conditions. To correct these and other evils six recommendations
are submitted:
1. The recognition b oth by public opinion and in such legislation as m ay be enacted
of the principle th a t women should receive th e same compensation as m en for the
same service.
2. U n til this principle is recognized, and women are accorded equal political rights,
the extension of State protection of women, through legislation regulating workingconditions, hours of service, and m inim um wages, is highly desirable.
3. The increased organization of working women for self-protection and th e im
provem ent of their indu strial conditions.
4. The inclusion of all women working for wages, w hether in industry, trade;
domestic service, or agriculture, un d er future legislation regulating their wages,
hours, or working conditions.
5. The extension of th e p rin cip le.o f State protection of children and th e rapid
increase of facilities for th eir education as outlined elsewhere.
6. The enactm ent b y Congress of legislation em bodying th e principles contained
in the so-called Palm er-Owen bill, w hich was before Congress a t th e last session.
INDUSTRIAL RELATIONS AND CONDITIONS ON PUBLIC UTILITIES.
General.
Finding that the scope of the Newlands Act, which applies only to
employees engaged in the operation of interstate railroads, is too
narrow, the following recommendations are made:
1. The extension of th e N eivlands A ct to cover not only all classes of railroad
employees, b u t all employees of public-service corporations w hich are engaged in
interstate com m erce.1
2. T he functions of th e Board of M ediation and Conciliation u n d er th e N ewlands
A ct should be extended to provide for th e creation of boards of investigation, to be
formed only by consent of b o th parties and to m ake a report of facts and recom m enda
tions w hich will not be b in d in g upon eith er side.
1 See su p p lem en tal statem e n t of Commissioners Lennon a n d O’Connell.
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R ep o rt, p. 285.
54
M O N T H L Y E E V IE W O F T H E B U B EA T J O F L A B O E S T A T IS T IC S .
3.
The Board of M ediation and Conciliation should be authorized b y Congress to
create an advisory council, composed of equal num bers of em ployers and employees,
for th e purpose of creating a panel of nam es from w hich im partial arbitrators m ay be
chosen b y th e Board of M ediation and Conciliation.
Taking up specific public utilities, the conditions of telegraph and
telephone operators, Pullman car conductors and porters, and
employees on railroads and in railroad camps were considered to
be far from satisfactory, prompting the following recommendations:
Telegraph.
1. The property of th e telegraph companies, or such p art of th e ir eq u ip m en t as may
be necessary for th e efficient operation of a national telegraph system , should be pur
chased by th e Federal G overnm ent after proper valuation and placed u n d er th e genera]
jurisdiction of th e P ost Office D epartm ent for operation. In transferring th e service
to th e Federal G overnm ent all employees, including officials and other persons
necessary for successful operation should be retained, and those whom th e elim ination
of th e duplicate service of th e two companies renders unnecessary for th e national
system should be absorbed into other branches of th e Federal service as far as p racti
cable.
2. A t th e tim e of th e transfer to th e Federal service a special commission should be
appointed to revise th e salary ratings and other working conditions and place th em
upon a proper basis.
Telephone.
1. T he purchase b y th e Federal G overnm ent, after proper valuation, of th e prop
erty of th e interstate and local telephone companies, or such p art of th e ir eq uipm ent
as m ay be necessary for th e efficient operation of a national telephone system.
2. The transfer of all employees, including officials, necessary for th e efficient
operation of th e national telephone system , to th e F ederal service as far as possible,
and th e absorption as far as practicable of all employees who are not necessary for the
telephone system into oth er branches of th e F ederal service.
3. W hen such employees are transferred to th e Federal service, th e creation of a
special commission to establish salary ratings and other working conditions on a proper
basis.
4. In th e m eantim e provision should be m ade b y Congress for th e creation of a m ini
mum-wage board to fix m inim um -w age standards for women employees who are
engaged in th e transm ission of messages in in terstate commerce. The board should
be authorized to differentiate betw een localities in fixing m inim a, if on due considera
tion such differential rates should be deem ed advisable.
5. The creation of minim um -wage boards in th e several States to fix m inim um wages
for all women employees engaged in service w ith in th e State.
The Pullman Co.
1. The enactm ent b y Congress of a sta tu te prohibiting th e tip p in g of an y employee
of a public-service corporation engaged in interstate commerce, and providing a proper
fine for both th e giver and th e recip ien t of th e tip.
2. The am endm ent of th e existing law regulating th e hours of service of train
employees, to include th e employees engaged in th e P u llm an service.
3. The extension of th e Newlands A ct as already suggested to cover th e P u llm an Co.
Railroads.
Although the investigations of the commission with regard to
railroads were too limited to permit of general findings or recom
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M O N T H L Y R E V IE W OE T H E B U R E A U O F LABO R S T A T IS T IC S .
55
mendations, the position was taken that enough evidence was received
to justify the following recommendations:
1. Thorough investigation b y th e P ublic H ealth Service of railroad construction
camps as well as other labor camps, and th e preparation of definite plans for such
camps and a standard code of sanitary regulations.
2. The enactm ent by Congress of a statu te expressly prohibiting corporations
engaged in in terstate commerce from inducing or compelling th e ir employees to sign
releases of liab ility for accidents.
3. Congress should en act a sta tu te prohibiting in terstate employers from requiring
th eir employees to contribute to benefit funds, and providing for th e p articipation of
employees engaged in interstate commerce in th e m anagem ent of all benefit funds
and other funds to w hich th ey contribute.
4. The regulation b y F ederal sta tu te of th e em ploym ent of police on interstate
railroads. T he statu te should not only provide for th e organization, personnel, and
powers of such police, b u t should definitely provide th a t during labor disputes such
police should be subject to th e proper civil authorities and p aid out of th e P ublic
Treasury. The statu te should also provide th a t such corporations should be perm itted
to have firearms only under license, requiring th a t a definite record be m aintained
showing th e character of each firearm and to whom it is issued.
5. The assum ption by th e States of full responsibility and definite provision not
only for protecting th e property of railroads b u t for preventing trespass upon th eir
property.
INDUSTRIAL CONDITIONS IN ISOLATED COMMUNITIES.
The commission found that many industrial communities present
every aspect of a state of feudalism, this condition being most fre
quently found in mining camps, lumber camps, and large plantations.
To correct this evil four recommendations are submitted:
1. The enactm ent of appropriate S tate legislation providing th a t where com m unities
develop, even upon priv ately owned land, th e powers of th e civil G overnm ent shall
not be interfered w ith, nor shall th e rights of access to th e residence of any person be
restricted, nor shall th e rights of persons to come and go unm olested, to speak freely,
and to assemble peacefully be interfered w ith or considered to stand upon a different
basis from th e rights of persons in other com m unities.1
2. In th e case of public lands containing tim ber or minerals, w hich are now or may
hereafter come into th e possession of th e Federal G overnment, it should be provided
b y statu te th a t neither th e lands nor th e m ineral rights should under any circumstances
be sold, b u t should be used only upon lease for a lim ited term , such lease to contain
as a p a rt of the contract th e conditions w ith regard to th e rights of in h ab itan ts as recited
above, and such lease to be forfeitable w ithout recourse in case of th e infraction of said
conditions.
3. T he Post Office D epartm ent should be directed to report to Congress all com
m unities in w hich th e post office is in any com pany’s store or other building operated
b y an employer or in w hich th e postm aster is a private employer or th e agent of an
employer. The report should show th e facts separately for those com m unities in
w hich th e employer or corporation operates an in d u stry upon w hich any large num ber
of in h ab itan ts are dependent.
4. Congress and th e S tate legislatures should enact statutes providing th a t any
attem p t on th e p a rt of an employer to influence his employees, either directly or
indirectly, in connection w ith any Federal election either for or against any particular
1 D issented from by Commissioner W alsh.
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R eport, p. 303.
56
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 .
candidate shall constitute intim idation, and further specifying th a t it shall constitute
intim idation for any employer to give notice to his workmen th a t in th e event of the
election of any p articu lar can d id ate th e establishm ent will not be operated.
THE
C O N C E N T R A T IO N
OF
W EALTH
AND
IN F L U E N C E .
Based on the evidence collected, the statement is made that the
lives of millions of wage earners are subject to the dictation of a
relatively small number of men, justifying a grave criticism of the
labor conditions of corporation-controlled industries. The ultimate
possibilities of so-called “ foundations” created for unlimited general
purposes and endowed with enormous resources are considered so
grave a menace, not only as regards their own activities and influence
but also the benumbing effect which they have on private citizens
and public bodies, that, if they could be clearly differentiated from
other forms of voluntary altruistic effort, it would be desirable to
recommend their abolition. The impossibility of so differentiating
them is admitted. As the basis for effective action to correct the
above conditions the following recommendations are submitted:
1. T he enactm ent by Congress of a statu te providing th a t all incorporated nonprofit-m aking bodies whose present charters empower th em to perform more th an a
single specific function and whose funds exceed ?1,000,000 shall be required to secure
a F ederal charter. The Federal charter should contain th e following provisions:
a . D efinite lim itatio n of th e funds to be h eld b y an y organization, at least not to
exceed th e largest am ount held b y any at th e tim e of th e passage of th e act.
b. D efinite and exact specifications of th e powers and functions w hich th e organiza
tion is em powered to exercise, w ith provision for heavy penalties if its corporate
powers are exceeded.
c. Specific provision against th e accum ulation of funds by th e com pounding of
unexpended incom e and against th e expenditure in any one year of more th a n 10
per cent of th e principal.
d . R igid inspection of th e finances as regards b oth investm ent and expenditure of
funds.
e. Complete p u b licity through open reports to th e proper G overnm ent officials.
/ . Provision th a t no line of work w hich is not specifically and directly m entioned
in th e articles of incorporation shall be entered upon w ith o u t th e unanim ous con
sent and approval of th e board of trustees nor unless Congress is d irectly informed of
such in ten tio n through com m unication to th e Clerk of th e House and th e Clerk of the
Senate, w hich shall be d uly published in th e Congressional Record, nor u n til six
m onths after such in ten tio n has been declared.
2. Provision by Congress for th e thorough investigation, by a special com m ittee or
commission, of all endowed institutions, both secular and religious, whose property
holdings or income exceeds a m oderate am ount. The com m ittee or commission
should be given full power to compel th e production of books and papers and th e at
tendance and testim ony of witnesses. I t should be authorized and directed to inves
tigate not only th e finances of such in stitu tio n s b u t all th eir activities and affiliations.
3. As th e only effective m eans of counteracting th e influence of th e foundations,
as long as th ey are perm itted to exist, consist in th e activities of governm ental
agencies along sim ilar lines, th e appropriation of th e F ederal governm ent for educa
tion and social service should be correspondingly increased.1
1 A specific recom m endation as to th e Rockefeller Foundation was adopted b y Commissioners W alsh,
Lonnon, and O’Connell. See R eport, p. 2C1; also p. 70 of th is digest.
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M O N T H L Y R E V IE W O F T H E B U R E A U OF LABOR S T A T IS T IC S .
THE
LAND
Q U E S T IO N
AMD
THE
C O N D IT IO N
OF
A G R IC U L T U R A L
57
LABOR.
The investigation of agricultural conditions, including the prob
lems of farm labor, agricultural corporations, and the rapid increase
in land tenancy and their bearing on industrial unrest, was confined
practically to the Southwest because in that region these systems
have become most fully developed and their results are most easily
studied. To improve the conditions of farm labor and to stop the
increase in farm tenancy by aiding farm owners the following action
is recommended:
1. The developm ent through legislation of a system of long-time leases, providing
th a t th e te n a n t shall be com pensated for all im provem ents made upon th e pro p erty
and also providing for cropping system s w hich w ill m aintain th e fertility of th e soil.
2. T he establishm ent of N ational and S tate farm bureaus for th e following purposes:
a. To a c t as an agent betw een landlords and ten an ts in th e distrib u tio n of te n a n t
labor.
b. To act as an agent betw een landlords and ten an ts in th e preparation of equitable
contracts.
c. To a c t as an inform ation agency to assist home-seeking farmers.
d . To assist in th e d istrib u tio n of seasonal labor.
3. T he developm ent of b e tte r cred it facilities through th e assistance of th e Govern
m en t and cooperative organization of farmers and ten an ts. No single measure can be
recom m ended; th e results m ust be achieved through th e developm ent of a sound
rural credit system , th e developm ent of lan d banks, mortgage associations and credit
unions. Foreign experience shows th a t through these means th e rate of in terest can
be greatly reduced and th e secu rity of b o th th e borrower and th e lender can be
increased.
4. The general introdu ctio n of m odernized rural schools and com pulsory education
of children. The functions of th e school system should ex ten d beyond education to
the social service of th e en tire rural com m unity, assisting in th e organization of farmers
and ten an ts for cooperative purposes, and prom oting oth er measures looking to th e
com m unity’s welfare.
5. The revision of th e ta x atio n system so as to ex em p t from tax atio n all im prove
m ents and tax unused land a t its full ren tal value.
JU D IC IA L
SETTLEM EN T
OF
LABOR
C L A IM S
AND
C O M P L A IN T S .
Discussing the difficulties that confront wage earners in collecting
labor claims and securing redress for minor grievances, the report
recommends—
1. The establishm ent eith er by th e States or by m unicipalities of in d u strial courts
sim ilar to those w hich have proved to be successful in E uropean countries.1
2. The commissioners of labor or th e in d u strial commissions of th e several States
should be authorized and directed, where such powers do n o t now exist, to receive
th e legal com plaints of all classes of workmen, and where th e y are found to have proper
basis, to prosecute such claim s vigorously, w ith a view to securing eith er a voluntary
settlem ent or th e award of adequate recom pense b y th e proper trib u n a l. T he com
missioners of labor or th e in d u strial commission should be given adequate legal assist
ance to enable th em to prosecute such claims prom ptly and vigorously.
3. T he States and m unicipalities should consider th e d esirability of creating an
office sim ilar to th a t of th e public defender in Los Angeles to act in civil claims of
sm all size.
i T he organization and m ethod of procedure of such courts is described in d etail in B ulletin No. 98 of th e
U nited States B ureau of Labor Statistics, p. 273.
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M O N T H L Y E E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
T H E LAW RELATING TO TEADES-TJNIONS AND INDU STRIA L D ISPU TES.
Concluding that the general effect of the decisions of American
courts has been to restrict the activities of labor organizations and
deprive them of their most effective weapons, the boycott and the
power of picketing, while on the other hand the weapons of the
employer, namely, the power of arbitrary discharge, of blacklisting,
and of bringing in strikebreakers, have been maintained and legisla
tive attempts to restrict the employers’ powers have generally been
declared unconstitutional by the courts; and that an additional
weapon has been placed in the hands of the employers by many
courts in the form of sweeping injunctions, which render punishable
acts which would otherwise be legal, and also result in effect in
depriving the workers of the right to jury trial, the recommendation
is made—
1.
T h at Congress and th e States en act legislation em bodying th e principles con
tained in th e B ritish Trades D isputes A ct of 1906.1
THE POLICING OF INDUSTRY.
The investigation on this subject was extensive, leading to the
conclusion that “ the problem of policing industry is generally con
ceived to lie in the suppression of violence and the protection of life
and property, but in reality consists in the more fundamental prob
lem of protecting the rights of employers and employees as well as
preserving the peace.” After discussing the origin of industrial
violence, the State constabulary as a method of policing industry,
and the attitude of the police toward public speaking, the following
recommendations are made:
1. T he enactm ent b y Congress of a statu te prohibiting, un d er severe penalties, th e
transportation of m en from S tate to S tate eith er un d er arms or for th e purpose of arming
them as guards or as agents eith er of em ployers or of employees.
2. The enactm ent b y Congress of a statu te prohibiting th e shipm ent in interstate
comm erce of cannon, G atling guns, and other guns of sim ilar character, w hich are
not capable of personal use, w hen consigned to anyone except m ilitary agencies of
th e State or Federal Governments.
3. The regulation or prohibition of priv ate detectiv e agencies and private em ploy
m ent agencies as hereinbefore suggested.
4. The strict enforcem ent in all p ublic and private em ploym ent offices of th e rules
requiring full notice of th e existence of a strike.
5. The com plete assum ption b y th e States and m unicipalities of th e responsibility
for policing, and th e prohibition of th e m aintenance of a n y p riv ate police (except a
lim ited num ber of w atchm en w ithout police power except on premises).
6. The definition b y statute, b y th e States, of th e conditions u n d er w hich sheriffs
m ay deputize, Buch regulations to include provisions th a t a d ep u ty m ust be a bona
fide resident of th e State; th a t a sworn statem en t of th e com plete activities of each
i T h e te x t of th is act is given in full in B ulletin No. 74 of th e U nited States B ureau of L abor Statistics,
p. 168. This recom m endation is also contained in th e report of Commissioners Commons and H arrim an.
R eport, p. 377.
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MONTHLY EE VIEW OF THE BUREAU OF LABOR STATISTICS.
59
d ep u ty covering a period of 10 years im m ediately preceding his deputization shall
be filed w ith th e Secretary of State; th a t no person who shall have been convicted
of any m isdem eanor or who shall have been im prisoned in any State shall be deputized;
and th a t no d ep u ty shall receive any money or any other th in g of value from any
person connected w ith an ind u strial dispute during his period of service or in con
nection therew ith.
7. The enactm ent of statutes, b y th e States, providing a uniform code governing
th e m ilitia and em bodying th e following principles:
a. A proclam ation of m artial law or a state of war, insurrection, or rebellion, b y th e
governor of a State, as th e result of an in dustrial dispute, shall have no effect upon
th e continuance of th e constitutional guaranties of th e S tate and F ederal constitutions,
nor upon th e law and statutes, nor upon th e jurisdiction of th e courts, nor upon other
civil authorities.
b. The w rit of habeas corpus or other process of th e courts can not be suspended,
interfered w ith, nor disregarded b y th e m ilitary. I t is p art of th e d u ty of th e m ilita ry ,
to assist in enforcing th e process and decrees of th e civil courts.
c. T he ordinary courts shall have exclusive jurisdiction for th e pu n ish m en t of crime,
and in all cases w here th e same act constitutes an in d ictab le offense under b o th m ili
tary and crim inal law, courts-m artial shall have no jurisdiction nor au th o rity to try
officers or soldiers accused thereof, b u t th e offender shall be tu rn ed over to th e civil
m agistrate for trial.
d. The m ilitary m ay not hold, d etain, nor im prison persons arrested b y th em any
longer th an is necessary to h and them over to th e civil authorities. No person arrested
by th e m ilitia shall be detained after noon of th e following day w ithout being brought
before a com m itting m agistrate.
e. The m ilitary m ay not forcibly enter nor search a p riv ate house in order to seize
arms or other property concealed therein w ithout a search w arrant.
f . The m ilitary shall have no authority to establish a censorship over th e press nor
to interfere w ith th e publication of newspapers, pam phlets, handbills, or th e exercise
of th e right of free speech, except under process of th e courts.
g . The m ilitary shall not lim it, restrict, nor interfere w ith th e freedom of m ovem ent
of peaceable citizens or th e rights of public meeting, assemblage, or parades in streets
and p ublic highways or elsewhere except u n d er due process of law.
h . E very m ilitary officer u n d er whose orders a civilian is arrested shall w ithin
24 hours thereafter report in w riting to th e com m anding officer th e nam e of th e pris
oner, th e offense w ith which he is charged, and w hat disposition has been m ade of
him . Failing, he shall be liable to such p u nishm ent as a court-m artial m ay direct.
i . In tim es of in d u strial disputes no private guards, detectives, nor employees of
either of the contending parties shall be enlisted or employed as members of the m ilitia,
and all persons found b y th e com m anding officer to be in th e em ploym ent of either
p arty to a dispute or actuated b y anim osity or personal ill will toward eith er of th e
contending parties shall be forthw ith released from activ e service.
j. The governor m ay, in tim es of disturbance, by proclam ation forbid th e sale or
transportation of firearms, am m unition, and intoxicating liquors, and m ay require all
firearms and other weapons to be deposited w ith th e m ilitary a t certain places, receipts
being given therefor. Proper search w arrants m ay be issued to discover concealed
weapons.
8. T h at th e States and m unicipalities should provide by law for the fullest tise of
schools and other public buildings for public meetings and lectures and for other
sim ilar purposes.
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60
MONTHLY EEVIEW OF THE BUREAU OF LABOR STATISTICS.
THE CONDITIONS AND PROBLEMS OF MIGRATORY LABORERS.
There are large numbers of migratory laborers, many of whom find
difficulty in obtaining employment during several months in the
year. To improve their condition the following recommendations
are offered:
1. T he In terstate Commerce Commission should be directed b y Congress to inves
tigate and report the most feasible plan of providing for th e transportation of workers
a t th e lowest reasonable rates and, a t th e same tim e, measures necessary to elim inate
th e stealing of rides on railw ays.
If special transportation rates for workers are provided, tick ets m ay be issued only
to those who secure em ploym ent through p ublic em ploym ent exchanges.
2. T he establishm ent b y States, m unicipalities, and, through th e D epartm ent of
Labor, the F ederal G overnm ent, of san itary w orkingm en’s hotels in w hich th e prices
for accom m odation shall be adjusted to th e cost of operation. If such w orkingm en’s
hotels are established, th e Post Office D epartm ent should establish branch postal
savings banks in connection therew ith.
3. T he establishm ent by th e m unicipal, State, and F ederal G overnments of colonies
or farms for “ dow n-and-outs” in order to reh ab ilitate th em b y means of proper food,
regular hab its of living, and regular work th a t will tra in th em for lives of usefulness.
Such colonies should provide for hospital treatm en t of cases w hich require it.
UNEMPLOYMENT.
The extent and character of unemployment, and existing condi
tions and agencies for employment are presented at length in the
form of conclusions developed from the extensive investigation of
this subject. Specific recommendations relating to the organiza
tion of the labor market and the regularization of employment are
as follows:
1. The enactm ent of appropriate legislation modifying th e title of th e B ureau of
Im m igration to “ B ureau of Im m igration and E m p lo y m en t” and providing th e
statutory authority and appropriations necessary for—;
a . T he establishm ent of a national em ploym ent system, u n d er th e D epartm ent of
Labor, w ith a staff of w ell-paid and specially qualified officials in th e m ain offices at
least.
b. T he licensing, regulation, and supervision of all private em ploym ent agencies
doing an in terstate business.
c. T he investigation and preparation of plans for th e regularization of em ploym ent,
th e decasualization of labor, th e u tilization of p ublic work to fill in periods of business
depression, insurance against unem ploym ent in such trades and industries as may
seem desirable, and other measures designed to promote regularity and steadiness of
em ploym ent.
2. T he im m ediate creation of a special board m ade up of th e properly qualified
officials from th e D epartm ents of A griculture, Commerce, Interior, and Labor, and
from th e Board of Army E ngineers to prepare plans for performing th e largest possible
am ount of public work during th e w inter, and to devise a program for th e future for
performing during periods of depression such p u b lic work as road building, construc
tion of public buildings, reforestation, irrigation, and drainage of swamps. The
success attending th e construction of th e Panam a Canal in d icates th e enormous
national construction works w hich m ight be done to th e advantage of th e entire
nation during such periods of depression. Sim ilar boards or commissions should be
established in the various States and m unicipalities.
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MONTHLY REVIEW OE THE BUREAU OF LABOR STATISTICS.
O R G A N IZ A T IO N , M E T H O D S ,
AND
P O L IC IE S
OF
61
T R A D E -U N IO N S .
As the result of investigations on this subject conducted under
the direction of one of its staff of special investigators the commis
sion arrived at several definite conclusions but submitted no recom
mendations. It was found that the number of trade-unions relative
to the working population is steadily increasing, that approximately
25 per cent of the workers 21 years of age and over are trade-unionists,
and that wages in well-organized trades have kept pace with the rising
cost of living while hours of labor have been steadily reduced until
at present 8 hours constitute the normal workday for at least onehalf of American trade-unionists. To prevent unjustifiable dis
charges and petty tyrannies which result in distrust and enmity
among employees, the organization of the workers and the establish
ment of a system of trade boards is the remedy suggested. That
the conditions of the members of trade-unions have been greatly
improved by means of mutual insurance systems is asserted, and the
extension of such systems is believed to be desirable. The theory
of government which the American trade-unions have adopted is
the centralization of power in the national trade-union, and it is stated
that “ the successful carrying out of this plan of organization will
eliminate the chief defects in trade-union government.” The opinion
is expressed that the control by the national unions of strikes and of
the system of mutual insurance which obtains in some unions should
be established in all other unions. A decrease in the extent and
frequency of unwarranted sympathetic strikes is noted. The policy
of a few trade-unions of excluding qualified persons from membership
by high initiation fees and other devices, is declared by the report
to be antisocial and monopolistic and “ should be given up by those
unions which practice it.” The further conclusion is drawn that
some of the rules adopted by certain trade-unions restricting the
productivity of the worker can be justified, but that some of them
can not be defended and should be abandoned. As to jurisdictional
disputes, which are said to be the occasion of frequent and costly
strikes, particularly in the building trades, the suggestion is made
that the American Federation of Labor and national unions renew
their efforts to prevent such disputes. Finally, the practice in some
trade-unions of placing authority to call strikes and levy boycotts
in the hands of one person without adequate provision for supervision
is stated to be the essential condition for trade-union graft.
ORGANIZATION, M ETHODS, AND POLICIES OF EMPLOYERS’ ASSOCIATIONS.
In this connection but one recommendation is submitted:
The formation of strong and stable associations of employers for th e purpose of
negotiating joint agreem ents and otherwise determ ining, upon a dem ocratic and
equitable basis, the fundam ental problems of th e trade.
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JOINT AGREEMENTS.
Believing that the condition of employment can be most satis
factorily fixed by joint agreements between associations of employers
and trade-unions, the following recommendation is made:
T he extension of jo in t agreem ents as regards not only th e field of in d u stry w hich
th ey m ay cover, and th e class of labor included, b u t th e subjects w hich are taken up
for negotiation and settlem ent. G reater responsibility for th e character, skill, and
conduct of th eir m em bers should accom pany th e greater participation of trade-unions
in the governing of in d u stry .
AGENCIES OF MEDIATION, INVESTIGATION, AND ARBITRATION .1
A detailed plan for a permanent national mediation commission,
to be appointed by the President, in disputes involving interstate
commerce, is outlined and urged upon Congress. This plan is based
on the following general principles which have been established as the
result of the very extensive investigation conducted by the commission:
1. T he m ediation commission should be in d ep en d en t of, and definitely divorced
from, every other d ep artm en t of th e State or Federal G overnm ent. Its only power
grows out of its im partiality , and this can not be secured if it is subordinate to any other
body whose sym pathies either w ith labor or w ith capital can be questioned.
2. M ediation should be in tru sted to a person as far as possible distinct from those
who act as arbitrators or ap p o in t arbitrators.
3. T he office of m ediator should be placed beyond th e suspicion th a t th e office is
being used as a rew ard for p a rty services.
4. T he m ediator should appoint his own subordinates.
5. I t is desirable in th e ev en t of th e failure of m ediation b y an official m ediator
th a t th e parties should be asked to consent to th e appointm ent of a board of m ediation
and investigation consisting of three persons, one selected b y each p arty and the
th ird b y these two. Such a board, it appears, would be able to secure an agreem ent
in m any cases where th e m ediator fails. These boards should have power to summon
w itnesses and compel th e production of papers. In th e ev en t th a t th e board could
not secure an agreem ent during th e investigation, i t should be empowered to make
•a public report stating th e term s on w hich in its judgm ent the parties should settle.
6. In those cases in w hich th e parties are unable to agree on th e th ird m em ber of
th e board of m ediation and investigation, he should be appointed in th e State systems
b y the State board of arbitration, and in th e national systems b y th e mediators, from
a list prepared in advance b y an advisory board, consisting of 10 representatives of
em ployers’ associations and 10 representatives of trade-unions.
7. N ational boards of m ediation and investigation are to be formed only in disputes
involving interstate commerce and in those cases in w hich th e legislature or th e execu
tiv e of a State had requested th e in terv en tio n of th e Federal Governm ent.
8. T he Secretary of Labor, or in th e States the official, bureau, or commission
w hich is created for th e protection of th e workers, should be empowered to appear
before th e board of m ediation and investigation, w hen it is holding pu b lic hearings,
either a t th e request of th e board as am icus curise in th e ascertainm ent of facts regard
ing labor conditions, or, if appealed to, as th e spokesman for th e employees in the
presentation of their case.
1 This plan is dissented from by Commissioners Lennon a n d O’Connell, R eport, p. 279; G arretson,
R ep o rt, p. 291; W alsh, R ep o rt, p. 302.
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INDUSTRIAL CONDITIONS AND T H E PUBLIC H EA L TH —SICKNESS INSURANCE.
A Federal system of sickness insurance is recommended, constructed
along the lines here briefly summarized:
1. M e m b e r s h ip . T he m em bership shall comprise all employees of persons,' firms,
companies, and corporations engaged in in terstate commerce, or whose products are
transported in interstate commerce, or w hich m ay do business in two or more States.
The employees of intrastate establishm ents to be p erm itted to be insured if th ey so
elect, under regulations to be prescribed b y th e commission.
2. F u n d . The fund to be created b y joint contributions b y employees, employers,
and th e Governm ent, th e last nam ed sufficient for expenses of adm inistration. Such
contributions should probably be in th e proportion of 50 per cent from workers, 40
per cent from employers, and 10 per cent from th e G overnm ent. In d iv id u als or
groups desiring larger benefits m ay arrange to make larger paym ents, and th e rate
in any trade, industry, or locality m ay be reduced where conditions so im prove as to
m ake a lower rate adequate. T he contributions are to be secured through taxing
each interstate employer a certain am ount w eekly for each employee, the p art contrib
u ted b y workers to be deducted from th eir wages, thus using th e regular revenue
m achinery of the Governm ent.
3. B e n e fits . Benefits to be available for a lim ited period in th e form of cash and
m edical benefits during sickness, nonindustrial accidents, and childbearing; d eath
benefits to be of lim ited size and p ayable on presentation of proper evidence.
4. A d m i n is t r a t i o n . The adm inistration of th e insurance funds is to be carried
out b y a national sickness insurance commission. The national commission should
be composed by presidential appointm ent, w ith Senate confirmation, of a director
(who would be chairm an), representatives of employers and representatives of
employees in equal ratio, and, as ex officio nonvoting members, th e F ederal Com
missioner of Labor Statistics and th e Surgeon General of th e P u b lic H ealth Service.
The commission should be empowered to supervise all funds and determ ine th e ir
character and lim its of jurisdiction; prom ulgate all regulations necessary to enforce
th e act; establish and m ain tain hospitals; m ain tain staffs of m edical exam iners,
specialists, dentists, and visiting nurses; provide for m edicines and appliances; m ake
contracts w ith local physicians; cooperate w ith local funds and h ealth authorities
in disease prevention; and provide for collecting actuarial data.
Correlation of th e insurance system w ith th e m edical profession, th e lack of w hich
has been a serious defect in German and B ritish systems, is absolutely necessary.
Contracts w ith physicians should allow to each a per capita paym ent for th e insured
persons under his care, th e right of selection of physician to be retain ed b y th e insured.
For th e signing of certificates entitlin g th e insured to benefits and for treating the
insured in hospitals, th e Surgeon General should detail physicians from th e P u b lic
H ealth Service, th eir entire tim e to be given to these and other duties (consulting
w ith local physicians, enforcing Federal laws and regulations, and cooperating w ith
local authorities).
EDUCATION IN RELATION TO INDUSTRY.
The findings and conclusions on this subject are presented in a
separate report1 prepared by Commissioner Lennon and receiving
the indorsement of Commissioners Walsh, O’Connell, Garretson,
and Ballard. In brief the recommendations include—
1.
The establishm ent of vocational schools for all children in school over 14 years
of age, as well as compulsory continuation and nig h t vocational schools, w ith such
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1 R eport, p p. 265-27S.
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MONTHLY KEVIEW OF THE BUREAU OF LABOR STATISTICS.
academ ic work as m ay be advisable for all persons over 14 years of age in industry
and agriculture.
2. The passage of a law b y Congress em bodying th e recom m endations of th e special
commission on national aid to vocational education.
3. The authorization b y Congress of th e creation of a Federal board to adm inister
funds appropriated b y Congress to th e several States for vocational education, the
board to consist of three members, one educator, one representative of organized
labor, and one representative of organizations of em ployers, to be appointed b y the
President, w ith th e consent of th e Senate, to serve for a term of six years, th e first
appointm ents to be for two, four, and six years, w ith salaries of $8,000 each per annum ;
th e Federal board so constituted to establish rules and standards for expenditure
of G overnm ent funds aw arded to th e several States.
The Federal board shall require of each State asking for G overnm ent funds the
adoption of th e following standards before any awards can be m ade or funds be appro
priated by th e board:
1. Compulsory daytim e continuation schools for all children in in d u stry betw een
th e ages of 14 and 18 years for not less th an five hours per w eek at th e expense of th e ir
employers.
2. N ight schools for all persons over 18 years of age who are desirous of further
educational opportunities, eith er cu ltu ral or vocational.
3. Standards of efficiency for teachers.
4. Joint State control in adm inistration of vocational education b y pu b lic school
authorities, organized labor, and organized employers, w ith equal representation.
5. The Federal board to establish some model schools for in d u strial training in
agriculture and vocations as exam ples to th e several States.
SCIENTIFIC M ANAGEMENT.
Admitting that scientific management as a system presents cer
tain possible benefits to labor and to society, the report proceeds
to give a rather extended statement of its diversities and defects
and concludes:
Scientific m anagem ent at it.s best has succeeded in creating an organic whole of
th e several departm ents of an in stitu tio n , establishing a coordination of th e ir func
tions w hich has previously been im possible, and in th is respect it has conferred great
benefits on industry. As regards its social consequences, n eith er organized nor unor
ganized labor finds in scientific m anagem ent any adequate protection to its standards
of living, any progressive m eans for in d u strial education, an y o p portunity for industrial
democracy by w hich labor m ay create for itself a progressively efficient share in
m anagem ent.
PKISON LABOR.
Two recommendations are submitted:
1. The abolition as far as possible of indoor m anufacture and th e substitu tio n of
such outdoor work as th a t upon State farms and State roads, providing th a t where
prisoners are em ployed th e y should be com pensated and th a t th e products w hich
th ey m anufacture should not be sold in com petition w ith th e products of free labor.
2. The enactm ent b y Congress of a b ill providing th a t all convict-m ade goods
w hen transported into any State or T erritory of th e U n ited States shall be subject
to th e operation of th e laws of such State or T erritory to th e same e x ten t and in th e
same m anner as though such goods h ad been produced th erein .
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IMMIGRATION.
Discussing immigration the report urges restriction based upon the
general provisions of the so-called Burnett-Dillingham bill. It rec
ommends :
1. The enactm ent of legislation providing for th e restriction of im m igration based
upon th e general provisions contained in th e so-called B urnett-D illingham bill,
which has received th e approval of two successive Congresses. W ith a full realiza
tion of th e m any theoretical objections w hich have been urged against th e literacy
test, th e concensus of evidence is so strong th a t its practical workings would be to
restrict im migration to those who are lik ely to make th e most desirable citizens, to
regulate im migration in some degree in proportion to th e actual needs of American
industry, and finally to prom ote education in Europe, th a t i t seems necessary at
least to urge th a t th is plan be given a practical te st.1
2. The enactm ent of legislation providing th a t w ith in six m onths from th e tim e
of entry all im m igrants shall be required, under p en alty of deportation, either to
declare th eir intention to become citizens b y taking out th eir first papers or to definitely
register them selves w ith th e proper au th o rity as alien tourists, and fu rth er providing
th a t all im m igrants who have failed to take out th e ir first papers a t th e end of two
years shall be deported, as shall all who fail to take out th eir second papers w hen th ey
become eligible, deportation in each case to act as a bar to fu tu re entry.
3. The provision b y th e States and m unicipalities, w ith th e assistance of th e F ed
eral G overnm ent if necessary, for th e education of all a d u lt persons who are unable
to speak, read, or w rite th e English language. In order to accom plish th is i t m ay be
.necessary to provide th a t em ployers shall grant certain definite periods of leisure for
such instruction.
LABOR CONDITIONS IN AMERICAN COLONIAL PO SSESSIO N S.
The investigations of the commission were confined to conditions
in Porto Eico, and the following general recommendation is offered:
T hat provision be m ade b y Congress for early and thorough investigation of th e
industrial and social conditions in Porto Rico and all other American colonies.
CHINESE EXCLUSION.
The act creating the commission directed it to inquire “ into the
question of smuggling or other illegal entry of Asiatics into the United
States or its insular possessions.” The constructive suggestions and
recommendations submitted on the subject of Chinese exclusion are
based upon the findings of two special investigators, and are approved
by the entire commission with reservations as to agencies of admin
istration.
Changes in the law.
The following changes should be made in th e law in th e in terest of adm inistrative
efficiency:
1. T hat th e m any laws relating to th e exclusion of Chinese be codified into a
com prehensive statute.
2. T h at Chinese alleged to have entered th e U nited States surreptitiously shall be
tried b y adm inistrative process, i. e., on Secretary of Labor’s w arrant—in all cases
irrespective of tim e of e n try or defense of citizenship. A t th e present tim e only
1 D issented from b y Commissioner W alsh.
11408°—15-----5
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Chinese alleged to have entered w ith in th ree years m ay be tried on Secretary’s w ar
rant.
3. T hat im m igration officers be specifically given th e power of arrest or taking into
custody.
4. T hat im m igration officers be given th e rig h t to adm inister binding oaths in all
cases arising u nder th e im m igration law.
5. T hat im m igration officials be given th e power to compel attendance of witnesses
and th e production of docum entary or other evidence in all cases providing for p u n
ishm ent for contem pt.
6. T hat th e attacking of an im m igration official or interference w ith him in the
performance of his duties, or any m altreatm en t of him growing out of th e performance
of his duties, should be m ade a penal offense.
7. T hat the place of deportation to w hich contraband Chinam en shall be sent m ay
be, in th e discretion of th e Secretary of Labor, th e country w hence he came, or the
country of his citizenship, or th e trans-A tlantic or trans-Pacific p ort from w hich he
em barked for th is continent.
8. T hat there be a clearer and more definite legislative definition of th e exem pt
and th e adm itted classes.
9. T hat there be a clearer definition of legislative policy as to th e status un d er the
im m igration and Chinese exclusion law of Chinam en ad m itted as exem pts and sub
sequently assuming a nonexem pt status.
10. T hat the pecuniary and fam ily conditions for th e re tu rn of Chinese laborers in
the U nited States to China be repealed.
11. T hat th e recom m endation of a new registration because i t is needed to enforce
the present law be rejected. This m ust not be understood to m ean a rejection of a
new registration law as a p art of legislative policy, b u t solely w hen it is urged for
adm inistrative reasons.
12. T hat masters of vessels be responsible for every Chinese m em ber of th e ir crew
who was on board th e vessel w hen i t enters and is not on board w hen i t is ready for
clearance.
United States commissioners.
1. T hat th e jurisdiction of U n ited States commissioners in Chinese exclusion cases
be abolished, or, w hat is less desirable—
2. T hat th e following changes in th e system be made: U n ited States commissioners
should receive adequate com pensation for th e service rendered. U n ited States com
missioners should be made courts of record and stenographic and other expenses pro
vided for. The G overnm ent should be given rig h t of appeal in Chinese cases.
The judicial system.
1. T hat th e handling of cases of contraband Chinam en should be b y adm inistra
tiv e rath er th an b y judicial procedure.
2. T h at th e present ad m in istrativ e procedure be continued p ractically w ithout
modification, except for th e im proved handling of appeals as recom m ended elsewhere
in these suggestions.
3. T h at w rits of habeas corpus should be issued only on th e basis of a prim a facie
case.
4. T hat in crim inal cases (smuggling) full sentences should be im posed instead of
light sentences as a t present.
5. T hat, if advisable, th e cases of contraband Chinam en m ight be held under th e
board of special in q u iry procedure provided for in cases of im m igrants not passed upon
prim ary inspection for admission. The adoption of th is suggestion would necessitate
the em ploym ent of a considerable num ber of additio n al m en—and for th is reason ought
not to be adopted im m ediately.
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General administration.
1. D efinitely w ithdraw th e order of 1905.
2. B y conference w ith Treasury D epartm ent provide for more careful sealing and
supervision of sealed freight cars crossing th e border—•
a . B y placing seal num ber and place of each car on th e manifest.
b . B y taking num ber a n d place of each seal of each car in d ep en d en tly , and testing
seal.
c. B y comparing local record w ith m anifest im m ediately.
d . B y exam ination of contents of each car where th ere is th e least discrepancy or
suspicion.
The selection of inspectors.
1. T hat th e position of Chinese inspector be revived.
2. T h at th e selection of Chinese inspectors by civil-service exam ination for general
im m igrant inspectors be continued.
3. T hat th e present exam ination be changed in scope as follows:
a. T hat all papers now required be om itted except “ practical questions.”
b. T hat greater credit—larger proportion of exam ination—be given for practical
experience in handling th e public.
c. T hat new exam ination in report w riting be given to include a practical test in
condensation—m aterial to relate to im m igration, form ulation of a report on a given
statem ent of fact, letter writing.
d. T hat th e exam ination include a test on Canadian im m igration laws.
e. T hat i t include a test of knowledge of our N ational G overnm ent, p articu larly of
those departm ents th a t are related to th e work of im m igration—Treasury D epartm ent,
Congress, th e judicial system, D epartm ent of State.
/ . T hat, if possible, an oral exam ination be included.
g. T hat th e exam ination include somewhere questions on th e relation of im m igra
tion and em igration to a natio n al policy, on im m igration as an in te rn a l policy, and a
general history of im migration.
4. T h at th e exam ination have specific reference in its questions to im m igration
work and not be mere general tests.
5. T h at Chinese inspectors be selected from th e more experienced im m igrant
inspectors who show an inclin atio n and a b ility in th e special requirem ents of this end
of the service.
6. T hat th e probationary period of an im m igrant inspector be one year.
Chinese interpreters.
1. T hat in th e selection of interpreters th e present exam ination be continued,
except th a t in testing ab ility to translate or in te rp re t actual cases be tak en in course
of routine work rather th a n th e present moot exam ination.
2. T h at in securing candidates for positions as interpreters th e Im m igration Service
should look to th e large num ber of Chinese stu d en ts in our universities, p articu larly
those who are here a t th e expense of th e U nited States G overnm ent (the Boxer indem
n ity money.)
3. T hat th e position of Chinese in terp re ter be graded into two grades at least, as
follows:
a. Those who can in terp re t th e spoken Chinese of one or more dialects.
b. Those who can, in addition, read th e w ritten language.
4. T h at th e salary program outlined for inspectors be adapted to th e interpreters.
5. T hat a conference be arranged by th e various departm ents of G overnm ent who
use interpreters of Chinese to work out some p lan of securing honest, capable in te r
preters—perhaps in cooperation w ith th e universities.
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
A staff organization at Washington.
1. T hat there be established a t W ashington a staff organization including at least—
A nother A ssistant Secretary of Labor to handle Chinese appeal cases, etc.
b. A central law organization providing for th e continuous study of the legal aspects
of im m igration.
c. A central Chinese smuggling bureau reinforcing district adm inistration in its
attem p t tc deal w ith smuggling gangs and other organized smuggling.
d. A central agency of training and inspection, providing for th e continuous super
vision and training of th e m en in th e service.
e. A central clearing house of inform ation and records.
2. T hat it h e specifically m ade a function of th e division of supervision and training
to keep district officers inform ed as to—
а. Significant court decisions in all districts.
б. Significant discoveries of district offices, e. g., th e Japanese (Korean) passport
case.
c. E ffective m ethods of handling p articular situations, e. g., of commissioner who
refuses to give full credence to prelim inary hearings before im m igrant inspectors by
bringing contraband Chinam en im m ediately before commissioner.
d. Chinese refused papers in any place.
3. T hat this organization should keep field officers inform ed as to forward steps and
other significant developm ents.
a.
Salary plan.
1. T hat th e service be regarded for salary purposes as a u n it rath er th an as 23
in dividual units.
2. T h at the adm inistrative officers work out a detailed plan of graded salary
increases.
3. T h at there be an annual increase in salary of a definite am ount for a definite
num ber of years of service upon certification of m eritorious service during th e preced
ing year. On th e basis of an in itial salary of $1,380, i t seems to us th ere ought to be
an annual increase of a t least $36 per year for 15 years, m aking a m axim um salary of
$1,920. The specific am ounts nam ed are offered as suggestions.
4. T hat positions in th e service ought to be graded and correspondingly higher
in itial salaries provided for th e higher grades. The system, of annual increases, per
haps of th e same am ount, ought to be provided here. A larger increase for a less n u m
ber of years m ight be advisable. I t should be provided in this connection th a t a man
prom oted from a lower to a higher position, if he is receiving a higher salary th an th e
in itial salary of the higher position, should receive th e n e x t higher salary to th e salary he
is receiving in th e lower position. A person standing in a little house w atching those
who come across an intern atio n al bridge in Suspension Falls, another doing prim ary
inspection work on board of in q u iry work a t E llis Island, another working “ under
cover” among th e thugs cf Buffalo and being beaten into in sensibility, another doing
train inspection work, would receive no pay because of difference of duties. I t is
subm itted th a t some recognition of th is difference in duties ought to find expression in
the salary schedule.
5. Superior service should be rew arded b o th b y formal com m endation and by
salary increases. Two provisions m ight be included:
a. The rew ard for a single b rillia n t piece of work, such as working under cover w ith
smugglers, risking one’s life, and landing th e gang in jail.
b. The provision of a higher annual increase for m en giving continuous superior
service.
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Redistricting.
1. T h at there be a redistricting of th e U nited States for im m igration purposes w ith
more regard to geographical facts and to th e efficiency of th e service.
2. T hat d istrict offices take a periodic census in cooperation w ith th e S tate or
N ational census, or both, or, if necessary, in d ep en d e n t of each. (This would h elp local
offices to really see th eir problems. I t would acq u ain t them w ith th e ir constituency.)
3. T hat this census be k e p t up to date and supplem ented b y cooperation w ith
m unicipal and State boards of h ealth and bureaus of v ita l statistics b y recording cur
rently (a) Chinese births, (b) Chinese deaths, and (c) Chinese marriages.
4. T hat this census be k ep t up to date and supplem ented b y m aking p a rt of th e
record all the exam inations of Chinese in connection w ith routine and other in vesti
gations. A system of cross reference cards should b e on file in W ashington. I t should
be k e p t up to date and supplem ented b y listing rem ovals and advising as far as possible
the d istrict to w hich th e Chinam an moved.
5. T hat th e force should be increased and th e whole group of inspectors b e organized
for regular field work. This should tak e th e place of any system of national arrest
crews.
6. T hat th e system of rewards of conductors, trainm en, and policem en who supply
inform ation leading to arrests of contraband Chinese or smugglers, w hich seems n o t in
abeyance, be revived and be provided for in an emergency fund for each district.
(Approval of W ashington, perhaps, should be required in each case.)
7. T hat a business and occupation census of each d istrict accom pany th e census of
persons.
8. T hat th e force of im m igrant inspectors assigned to Chinese work be increased.
9. T h at th e equipm en t to b e used in th e work of adm inistering th e Chinese exclu
sion law b e adequate to cope w ith th e smugglers.
ADDITIONAL
RECOMMENDATIONS OF COMMISSIONERS
LENNON, O’CONNELL, AND GARRETSON.
WALSH
Supplementing the recommendations contained in the report of the
director of research which, as already stated, received the indorse
ment of Commissioners Walsh, Lennon, O’Connell, and Garretson,
the following recommendations are presented by these commissioners:
1. We find th a t th e lim itation of th e right of suffrage to m en has been a most serious
handicap to women in in d u stry in th e ir long and splendid struggle to secure compensa
tion for th e ir labor, hum ane working conditions, and protective laws.
2. We recom m end th a t priv ate ownership of coal m ines be abolished; and th a t th e
N ational and State Governm ents tak e over th e same, un d er ju st term s and conditions,
and th a t all coal lands shall thereafter be leased upon such term s th a t th e m ines m ay
be cooperatively conducted b y th e actual workers therein.
3. All religions, th e fam ily life, th e physical well-being of th e worker, th e in tegrity
of th e State, and th e comfort and happiness of m ankind, require th a t no hum an being
shall be p erm itted to work more th a n six days in each week. This commission refused
to recognize any claim of so-called business expediency or alleged domestic or p ublic
necessity, w hich ignores th is elem ental and righteous dem and. We therefore suggest
th a t stringent laws be passed b y State and N ation m aking it an offense punishable by
fine and im prisonm ent to p erm it an y person to work more th an six days in each week.
4. We recom m end th a t th e hours of labor of women engaged in domestic service be
lim ited to eight per day, th a t no such person be perm itted to work over six days in
each week, th a t a m inim um wage be fixed for th is class of employees w hich w ill insure
them a comfortable life w ithout being required to live in th e homes of persons em
ploying them , w here th e y m ay be subjected to objectionable or uncom fortable liv-
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ing conditions, and th a t all of th e im provem ents and safeguards recom m ended for
adoption in this report, as applying to women in other lines of industry, shall apply
w ith equal force and effect to women engaged in domestic service.
5. We recom m end th a t p riv ate ownership of p ublic u tilities he abolished and th a t
th e States and m unicipalities tak e over th e same un d er just term s and conditions, so
th a t th e y m ay be operated b y th e States or m u n icip alities.1
6. We recom m end th a t appropriate legislation be passed b y Congress p u ttin g an end
to th e activities of this (Rockefeller) foundation, w herever th e F ederal law can be
m ade effective, and th a t th e charter granted by th e State be revoked, and th a t if the
founders have parted w ith th e title to th e m oney, as th e y claim th e y have, and under
th e law th e same would rev ert to th e State, it be tak en over and used b y th e State for
th e creation and m aintenance of p u b lic works th a t w ill m inim ize th e deplorable evil
of unem ploym ent, for th e establishm ent of em ploym ent agencies and th e distribution
of labor, for th e creation of sickness and accident funds for workers, and for other legiti
m ate purposes of a social n ature, directly beneficial to th e laborers who really contrib
u ted th e funds.2
REPORT OF COMMISSIONERS COMMONS AND HARRIMAN,3 AND,
IN PART, OF COMMISSIONERS WEINSTOCK, BALLARD, AND AISHTON.
With the statement that the greatest cause of industrial unrest
is the breakdown in the administration of labor laws and the dis
trust of our municipal, State, and National Governments on the part
of a large portion of our people, the report signed by Commissioners
Commons and Harriman, and concurred in with some exceptions by
Commissioners Weinstock, Ballard, and Aishton, proceeds to recom
mend the creation of a Federal fund for social welfare to be main
tained by an inheritance tax on large fortunes and administered by
a commission on industrial relations aided by an advisory council
composed of employers and employees. Specifically the recommen
dations are:
1. I n d u s t r i a l C o m m is s io n s . State and Federal in dustrial commissions to be created
for th e adm inistration of all labor laws. All bureaus or divisions dealing w ith condi
tions of labor, including in d u strial safety and sanitation, w orkm en’s compensation,
em ploym ent offices, ch ild labor, in d u strial education, statistics, im m igration, and so
on, to be placed under th e direction of th e commission. E ach commission to consist
of three commissioners to be appointed by th e governor or President, as th e case m ay
be, w ith th e advice of th e advisory representative council (see par. 2). The term of
each commissioner to be six years, except th a t th e term s of th e commissioners first
appointed shall be so arranged th a t no two shall expire a t th e same tim e. The Federal
D epartm ent of Labor to be retain ed for educational and political purposes and a similar
departm ent m ight be created in large in d u strial States, such as New York and P en n
sylvania.
2. A d v i s o r y r e p r e s e n ta tiv e c o u n c il. A n advisory representative council, consisting
of th e Secretary of Commerce and th e Secretary of Labor, and of, say, 10 employers
(including farmers) and 10 representatives of labor unions (including women). The
representatives on th e council to be selected from lists, n o t in cluding lawyers, sub1 This recom m endation is approved also b y Commissioner W einstock.
2 This p articu lar recom m endation did n o t receive th e approval of Commissioner Garretson.
3 R eport, p. 307. D issented from b y Commissioner W alsh. R eport, p. 303. D issenting report con
curred in b y Commissioners L ennon a n d O’Connell. R eport, p. 289.
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S T A T IS T IC S .
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m itted by recognized em ployers’ associations in th e S tate or in th e N ation, as th e
case m ay be; such, for exam ple, as S tate associations of m anufacturers, th e N ational
Metal Trades Association, th e N ational F ounders’ Association, associations of coal
operators, of railroad presidents, of brewers, of farm ers’ organizations, etc. The
representatives of employees to be selected from lists su b m itted by th e A merican
Federation of Labor, th e railroad brotherhoods, th e W omen’s T rade U nion League,
and in d ep en d en t organizations. In all cases eith er th e associations e n title d to rep
resentation should be nam ed in th e law or provision should be m ade w hereby th e
governor or P resident, upon investigation, shall nam e organizations w hich are con
sidered representative b y organized em ployers and organized employees them selves,
and perm it them to nam e th eir representatives. Sim ilar provision in case an organ
ization ceases to exist or to be representative. A ny organization e n title d to recall its
representative on notice. The representative council to be appointed b y th e gov
ernor or th e P resident before th e ap p o in tm en t of th e commission, and th e governor
or P resident to call i t together and to consult w ith i t regarding th e names proposed to
be nom inated for commissioners. The in d u strial commission to in v ite also a lim ited
num ber, say 10, of indiv id u als or representatives of organizations including persons
especially interested in unorganized labor, and representatives of such organizations
as th e In ternational Association for Labor Legislation, th e N ational Child Labor
Comm ittee, and th e Consumers’ League, and in d iv id u al em ployers and employees,
as m ay be advisable for th eir assistance, to be m em bers of th e advisory council. The
council to take no vote on any subject except procedure, and to have no veto on any
act of th e industrial commission. N om inal com pensation or no com pensation to
mem bers, w ith necessary expenses. T he representative council to effect its own
organization and call m eetings perhaps q u arterly and on call, to keep and publish
records of its proceedings. The in d u strial commission to be required to subm it all
proposed rules, regulations and publications to th e rep resentative council, allowing
sufficient tim e for exam ination and discussion, and to p u b lish any protest or criticism
filed b y any m em ber of th e council, along w ith th e commission’s own publication.
3. C iv il se rvice. T he commission to ap p o in t a secretary, bureau chiefs or chiefs of
divisions, and such other employees as m ay be necessary, all of th em to be under
civil-service rules. Provision to be m ade for th e advisory representative council or a
com m ittee nam ed b y it , representing b o th em ployers and employees, to assist th e
civil-service commission in conducting exam inations, ex cept for clerical positions,
and m aking i t m andatory on th e civil-service commission to ap p o in t these repre
sentatives on its exam ining boards. Members of advisory council w hile serving on
such boards to receive ex tra com pensation. If th ere is no civil-service commission
in th e State, th e n th e advisory council shall cooperate w ith th e in d u strial commission
in th e exam inations. T he commission afterw ards to m ake its appointm ents from
th e eligible list of those who pass th e exam inations. A graded system of salaries and
promotions to be adopted, b y w hich th e m em bers of th e staff m ay rise to th e position
of heads of bureaus or divisions, w here th e y would receive salaries eq uivalent, if
necessary, to those received b y th e commissioners. A ny proposed rem oval of sub
ordinates to be brought before th e advisory cou n cil before action.
4. I n v e s tig a tio n s . T he in d u stria l commission to m ake and p u b lish investigations
and recom m endations on all subjects whose adm in istratio n is in tru ste d to them .
Investigations and recom m endations on other subjects to be m ade only on th e re
quest of th e legislature, Congress, or th e court. (Pars. 12,13.) Since i t is provided
(par. 14) th a t th e Federal an d S tate commissions shall cooperate in th e m ediation of
labor disputes, th e Federal commission should be th e agency to w hich th e States
should look for continuous investigations and publications, for th e en tire country,
of wages, hours of labor, cost of living, jo in t trade agreem ents and all subjects involved
in labor disputes, b u t th e nam es of establishm ents or in d iv id u als should be k ep t
confidential. I t should publish, a t least annually, a report on all strikes, lockouts,
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boycotts, blacklists th a t have term inated during th e year, b u t should not m ake
such investigations during an in d u strial d ispute unless consented to b y b o th par
ties in th e m anner elsewhere provided. (Par. 14.) In m aking such reports it
should give all m aterial facts, in cluding dem ands, negotiations, picketing, strike
breakers, conciliation, th e acts of S tate or F ed eral au thorities, as w ell as joint agree
m ents reached w ith or w ith o u t cessation of business. In preparing these reports
th e commission should n o t call upon any m ediator, b u t should, if necessary, use its
powers of compulsory testim ony.
In order to assist State minim um -wage commissions in th e most difficult p a rt of
th eir work th e Federal commission should also investigate and report upon interstate
com petition and th e effect of m inim um -wage laws. Such investigations are of assist
ance also in determ ining other questions. S tate commissions should m ake reports
on safety, com pensation for accidents, m inim um -wage investigations, em ploym ent
offices, child labor, etc.
No publication of any investigations to be m ade or any rules (par. 5) to be
issued w ithout previously su b m ittin g them to all m em bers of th e representative
advisory council, w ith oppo rtu n ity for criticism , th e la tte r to be published b y th e
commission w ith its own report. All forms, schedules, and instructions for in v esti
gators likewise to be sub m itted to th e advisory council.
5. R u le s a n d r e g u la tio n s . T he commission to m ake rules and regulations for carrying
into effect th e provisions of th e labor laws w hich i t enforces. This m ay be done by
providing, in th e in d u strial commission law or otherwise, for certain brief standards
as m ay be determ ined b y th e legislature, for exam ple, th a t all places of em ploym ent
shall be safe and sanitary as th e natu re of th e in d u stry w ill reasonably perm it; th a t
no person shall be allowed to work for such hours of labor or a t such tim es as are d an
gerous to his or her life, health , safety, or welfare; th a t em ploym ent offices shall give
correct inform ation, shall n o t sp lit fees, and so on. Or, less preferably, th e existing
labor laws m ay be retained or new ones enacted in m in u te d etail, and th e industrial
commission m ay be given power m erely to m ake such additio n al rules and regulations
or variations from th e laws as are necessary to give them full effect. R ules to be sub
m itted to th e advisory council before issuing.
6. R e v ie w b y c o m m is s io n . A ny person in terested to be e n title d to p e titio n the
commission for a hearing on th e legality or reasonableness of an y rule or regulation,
or any order directing com pliance w ith an y provisions of law or other rule or regu
lation or for a special order ap p licable to a single establishm ent. The commission
m ay change its rule or regulation before final decision b y a court on its legality.
7. C o u r t re v ie w . A ny person in in terest to be e n title d to bring a special action
in court to te st th e legality and reasonableness of an y provision of th e labor laws,
of any rules and regulations m ade thereunder, or of any order directing compliance
therew ith. (I t is probably advisable, in th e case of State commissions, to lim it the
jurisdiction of such cases to a court sitting a t th e S tate capitol.) Actions involving
rules and regulations and orders not to be brought u n til final determ ination of the
petitions for review (par. 6) b y th e commission. Provision also to be m ade for
suspending prosecutions pending determ ination of petitions or actions for review
in court. M atters of fact w hich h ad n o t been before th e commission to be referred
back to th e commission and o pportunity given for th e commission to change its rules
or regulations before final decision b y th e court. R ules and regulations of th e com
mission to be m ade prim a facie reasonable in all court proceedings.
8. T e s tim o n y . The commission to have th e in cid en tal powers such as those of
subpoenaing and exam ining witnesses an d adm inistering oaths, and so on, neces
sary for th e full performance of duties im posed upon it. Those powers, however,
to be strictly lim ited to those branches in w hich th e commission, on th e basis of expe
rience or the constitutional rules regarding evidence, finds them indispensable. In
all other work th e commission to have no powers of compulsory exam ination, and
so on.
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9. Continuous industry , employment, and insurance. In all industries or occupa
tions operating continuously day and n ig h t and seven days a week th e legislatures
or Congress should enact laws requiring three shifts of eight hours each an d one day
of rest in seven, or th e ir eq uivalent, adm inistered under rules of an in d u stria l com
mission laid down for each in d u stry or estab lish m en t as m ay be required.
10. Police and military. T h at such detectiv e agencies as m ay operate in more th a n
one State, or be em ployed b y in d u strial corporations engaged in in te rsta te com
merce, or w hich m ay use th e mails, shall be com pelled to tak e out a Federal license,
under th e industrial commission, w ith regulations th a t w ill insure th e character of
their employees and th e lim itatio n of th e ir activ ities to th e bona fide business of
detecting crime. Sim ilar license and regulation for all p riv ate em ploym ent offices
engaged in in terstate business.
T hat all enterprises shall be forbidden th e right to em ploy p riv ate arm ed guards,
except as w atchm en on th e premises, or to have such w atchm en d ep u tized as police,
except where such is found necessary b y th e S tate or F ederal in d u strial commission.
T hat rules adapted to th e differences required b y various industries should be m ade
by the industrial commission, in order to carry these laws in to effect.
T hat such enterprises shall exercise th e ir right to call upon th e constituted author
ities to furnish them w ith th e necessary protection to th e ir property, an d to th e lives
of their workers, against th e th reaten ed a ttack of rioters or strikers; and th a t it shall
be incum bent upon th e constituted authorities to furnish such protection in th e
way of police or d ep u ty sheriffs, and th a t a failure on th e ir p a rt to do th is shall lay
th e political subdivision in w hich such damage to life or pro p erty m ay tak e place
liable to damages. T h at all in d iv id u als denied of th e ir constitutional rights of
habeas corpus, free access to p ublic highways, free speech, etc., shall have sim ilar
power of action in damages against th e political division in w hich such denial takes
place. T hat all highw ays now claim ed as priv ate pro p erty shall be m ade public.
T h at th e m ilitia of th e several States being subject to regulation b y Congress, care
fully draw n rules for their personal organization and conduct in th e field shall be
draw n u p b y th e W ar D epartm ent after conference w ith th e in d u strial commission
and advisory council, and th a t all parties arrested b y th e m ilitia during th e tim e
of troubles shall be tu rn ed over for trial to th e civil authorities. Sim ilar rules should
be draw n up b y State authorities w ith th e cooperation of th e State in d u strial com
mission and its advisory council for th e regulation of th e State constabulary. T he
W ar D epartm ent w ith th e aid of th e in d u strial commission and advisory council
should investigate and recom m end legislation regarding th e sh ip m en t of arm s an d
guards in interstate commerce.
11. Legal aid. State commissions (and perhaps th e F ederal commission) should
render aid and assistance to deserving workmen in th e ad ju stm en t of disputes other
th an collective disputes, and th e recovery of claim s arising out of th eir relations
w ith th eir em ployers, and generally tak e such action as m ay be necessary for th e
protection of employees from fraud, extortion, exploitation, and other im proper
practices. For this purpose th e commission to be authorized to assign m em bers of
its staff to appear in justice and other courts w hich adjudicate such claims, an d to
create local advisory com m ittees of em ployers and employees to pass upon all such
claims in cooperation w ith th e d ep u ty of th e commission and in advance of co u rt
procedure.
12. Legislation. The in dustrial commission, upon request of th e legislature or
Congress, or th e com m ittee on relations betw een cap ital and labor, to investigate
a subject and draft bills. The commission to m ake recom m endations regarding
legislation affecting subjects un d er its jurisdiction.
13. Supreme courts. A t th e request of th e Suprem e Court (S tate or Federal) th e
industrial commission shall investigate and report upon any questions of fact referred
to it b y th e court and bearing upon th e constitutionality or reasonableness of a n y
Federal or S ta te .sta tu te or adm inistrative rule on th e relations of em ployer a n d
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employee. A m endm ent of th e ju d icatu re a c t so as to perm it a State to appeal
from its own suprem e court to th e Federal Suprem e Court on a decision against a
State based on conflict w ith th e Federal C onstitution.
14. M e d ia tio n a n d m i n i m u m w a g e .1 T he in d u strial commission (State or Federal) shall
appoint, rem ove, and fix th e com pensation of a chief m ediator of in d u stria l disputes.
The chief m ediator to hold his position u n til rem oved b y th e ind u strial commission,
and to appoint such assistants as m ay be needed, and to fix th e ir com pensation w ith
th e approval of th e in d u strial commission. H e should appo in t tem porary m ediators
for special cases, w itho u t requiring th em to give up th e ir p riv ate business or offices.
The chief m ediator and all assistant m ediators to he selected from an eligible list
prepared b y th e Civil Service Commission on a nonassembled exam ination, w ith th e
assistance of th e in d u strial commission and th e advisory council.
The chief m ediator and his staff to have no powers w hatever of compulsory testim ony
and to be prohibited from arb itratin g any dispute, from m aking any pub lic recom m en
dation, or from revealing in any w ay, d irectly or in d irectly , any inform ation w hich
they m ay have secured from any parties relativ e to an in d u strial dispute. Any
violation to be sufficient ground for im m ediate rem oval b y th e in d u strial commission.
The powers of m ediators to be those solely of voluntary m ediation or conciliation, b u t
th e chief m ediator shall offer his services in confidence to both sides of a d ispute w hich,
in his judgm ent, is of pu b lic im portance.
T he chief m ediator and his staff to be wholly in d ep en d e n t of th e in d u strial com
mission, except as to ap pointm ent and rem oval, to th e ex te n t th a t th ey be prohibited
from reporting any facts or recom m endations w hatever to th e in d u strial commission
or any other authority, relative to th e m erits of any in dustrial dispute.
In case th e m ediator is u nable to secure an agreem ent through conciliation, he shall
recom m end arbitration to b oth parties, and if b oth consent to ab id e b y th e decision of
arbitrators he shall proceed to assist them in selecting a board of arbitration in any
way, and consisting of any num ber of mem bers, th a t b oth sides m ay agree upon. If
agreem ent is not reached w ith in a specified tim e on th e th ird party to th e board of
m ediation, th e chief m ediator shall appoint th e same.
I n case both parties do not consent to arbitration th e m ediator shall recom m end the
appointm ent of a board of m ediation and investigation, w hich shall have power to
m ake public its findings and recom m endations, b u t such recom m endations shall not
be binding on any person. If b oth parties shall consent to such a board th e m ediator
shall assist them in creating th e same, and shall appo in t th e th ird m em ber if th e
parties can not agree on th e same w ith in a specified num ber of days.
In case both parties accept eith er a board of arb itratio n or a board of m ediation and
investigation, such board, as th e case m ay be, shall have power of com pelling te sti
m ony. T he Newlands A ct and th e D epartm ent of Labor A ct should be so am ended
th a t all m ediation and conciliation, w hether on railw ays or in other industries,
shall be consolidated u n d er th e m ediator of th e Federal in d u strial commission. The
Federal commission should cooperate w ith S tate mediators.
In case of women and children, m inim um-wage boards should be created by th e
State industrial commissions.
15. T ra d e d is p u te s . Congress and th e S tate legislatures to enact laws sim ilar to th e
B ritish Trades D isputes A ct of 1906,2 relieving em ployers’ associations and labor
unions, as w ell as their mem bers, officers, or agents, w hen acting in th e ir behalf, of
crim inal suits, damage suits, and injunctions on account solely of com bination or con
spiracy connected w ith a labor dispute, w hen th e a ct would be law ful if done b y one
person. Such laws w ould perm it th e use b y eith er side w ith o u t legal p en alty of its
1 T his recom m endation is intended to provide for strictly v o lu n tary m ethods of m ediation an d conciliar
tion. Commissioners W einstock, B allard, and A ishton, w ho signed th is report, dissent from th is pro
vision, believing th a t there are tim es w hen com pulsion in labor disputes is thoroughly justified. See
R eport, pp. 409, 410.
.
2 For te x t of th is act see B u lletin No. 74 of th e U. S. B ureau of L abor Statistics, p. 168.
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weapons of closed union shop and closed nonunion shop, of strike and lockout, b o y
c o tt1 and blacklist, peaceful p icketing and strike breaking, peaceful inducem ent to
break a contract to work or to break off allegiance w ith a union, in pursuance of an
effort to w in a labor dispute. The law would not p rev en t prosecutions for conspiracy
w here th e act if done by one person would be a crime.
16. Foundations. A ny proposed legislation on this subject should be preceded b y a
complete investigation of all foundations and endowments, else th e law would have
effects not contem plated b y th e legislature or Congress. Such an investigation would
include all endowed charities, endow m ents of religious organizations and universities
and colleges. The investigation should be complete, covering all aspects of th e
question, and bringing out both th e advantages and th e disadvantages of such founda
tions and endowm ents.
17. Subsidies. T he Federal commission to have charge of all subsidies granted to
th e States for th e prom otion of ind u strial education, safety, em ploym ent offices, and
other m atters, as Congress m ay determ ine. The commission to m eet th e expenses of
State officials w hen called together for conferences on standards of uniform ity. Sub
sidies to be granted on condition th a t th e standards are m aintained.
18. Federal fu n d for social welfare. A Federal in h eritan ce ta x on all estates above
$25,000, beginning at 1 per cen t on th e excess above $25,000 and rising to 15 per cent
on th e excess above $1,000,000 for th e class of d irect heirs, such as wife, children, and
parents. H igher rates for more rem ote relatives and strangers. The Federal in h e rit
ance tax to be a supertax, added upon th e existing rates assessed b y th e States.
Provision, however, to be m ade, th a t any State w hich repeals all in heritance-tax laws,
or refrains from enacting them , shall receive from th e F ederal G overnm ent, say 50
cents per capita of its population per year. The adm inistration and collection of this
tax to be placed in charge of present assessors and collectors of incom e taxes, who
already collect incom e taxes on estates in th e hands of executors. R evenues derived
from inheritance taxes to be placed in tru st w ith th e Federal Reserve Board for in v est
m ent in securities approved by Congress. T he fund to be know n as “ Federal F u n d
for Social W elfare.” E xpen d itu res of incom e derived from such securities to be made
under th e direction of th e F ederal In d u strial Commission for such purposes of indus
trial and social welfare as Congress m ay authorize. Should th e incom e from in v est
m ents not be adequate to m eet th e authorized expenditures, further investm ents to
be w ithheld and th e principal to be expended. R evenues derived from activities
of th e commission, such as head ta x on im m igrants, etc., to belong to th e fund.
Also unexpended balance to be h eld in th e fund for disposition b y Congress.
19. Immigration ,2 We are convinced th a t v ery substantial restrictions on im m igra
tion, in addition to th e present restrictions, should be adopted, and th a t com prehensive
measures should be taken to teach th e E nglish language and otherwise “ A m ericanize ”
the im m igrants. * * * Since im m igration is one of th e principal issues betw een
capital and labor, its adm inistration should be tu rn ed over to th e proposed Federal
industrial commission, w here capital and labor w ill have an equal voice. T his would
place all adm inistrative positions in th e service, u p to and including th e commissioner
general, under th e civil-service rules proposed in paragraph 3.
20. Farmers and farm laborers.3 We recom m end to Congress and th e various States
th a t steps shall be tak en to lighten th e burdens of th e small farmer, and m ake it more
possible to encourage th e ten an t, farm laborer, and city dweller, to become land pro
prietors.
1 In discussing th is recom m endation th e rep o rt favors th e legalization of th e secondary boycott. Com
missioners W einstock, B allard, and A ishton, w ho signed th is report, dissent from this provision. R eport,
p. 407.
2 D issented from b y Commissioner W einstock, who says, “ I am of th e opinion th a t we have a b u n d an t
im m igration laws already on our s tatu te books w hich if enforced w ill keep out of th e country unfit im m i
grants.” R eport, p. 404.
3 Based upon th e increasing am o u n t of absentee landlordism and farm tenancy revealed by th e investi
gation. See discussions, R eport, pp. 14-16, 127-131, 399.
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We recom mend th a t Congress and th e various States pass rural credit acts th a t will
give to th e small A m erican farmer th e same privileges and benefits th a t for so long a
tim e have been enjoyed b y th e small farmers in Germ any and other E uropean coun
tries, w hich, following G ermany, have adopted rural credit systems. We recom m end
serious consideration to adapting th e Irish land b ill and th e A ustralian system of State
colonization to our A m erican conditions. * * * We believe it not only desirable
b u t practicable for th e Federal G overnm ent, through its D epartm ent of A griculture,
to secure large bodies of land a t appraised actual values, th a t have been thoroughly
tested b y experts for th eir quality , issuing bonds for th e p ay m en t for same, if need be,
and to cut them u p into small parcels, m aking th e necessary im provem ents, and selling
them to qualified colonists w ith sm all first paym ents, m aking th e balance payable in
say 30 years on the am ortization plan, th e deferred paym ents bearing only th e same
rate of interest th a t th e Go . ernm ent itself is called upon to pay, plus a sm all addition
to cover th e cost of Gcr ernm ent adm inistration. We believe, in this way, th e most
effective check can be created on th e one hand to m inim ize farm tenancy, and on th e
other hand to m ake it possible for th e farm laborer and th e farm te n a n t to become land
proprietors. We believe th a t this, if carried out wisely and intellig en tly , w ill have a
large share in m inim izing in dustrial unrest and in adding to th e w ealth of th e Nation,
both m aterially and in th e q u ality of its citizenship.
21.
C o r p o r a tio n c o n tr o l. We are not in favor of p ublic ownership as solely a m atter of
im pro ing labor conditions, and before such can be recom m ended th ere should be a
more com plete investigation and regulation and a clearing u p of th e values th a t will
be paid and th e adm inistrative control th a t w ill follow. More im m ediate and neces
sary is a series of laws th a t w ill tak e th e control of politics out of th e hands of corpora
tions and place i t in th e hands of th e people. Several of our previous recom m enda
tions are in tended to accom plish th is purpose in so far as labor and capital are con
cerned, b u t we should add effective corrupt practices acts, designed to protect th e
secret ballot, to lim it th e am ount of money and n um ber of paid electioneers in elec
tions, to p revent intim idation, and so on, as far as elections are m enaced b y political
m achines and w ealth. D irect prim aries for th e nom ination of candidates protected
b y corrupt practices acts. C onstitutional and legislative in itia tiv e for S tate and
Federal Governm ents. * * * The recall of elected officials, including executives
and judges of th e lower courts, b u t not judges of th e suprem e coarts or m em bers of th e
legislature. Proportional representation, as adopted in Belgium, South Africa,
A ustralia, and the Irish Parliam ent, b y w hich all parties or factions would be able to
elect th eir own representative in th e legislatures or Congress in proportion to their
num bers and w ithout making deals w ith other parties.
REPORT OF COMMISSIONERS WEINSTOCK, BALLARD, AND AISHTON.
This report dissents from two recommendations contained in the
report of Commissioners Commons and Harriman, to which reference
has' been made in footnotes. Additional causes for industrial unrest
are presented, and the report concludes with some discussion of
certain prime objections that employers have to recognizing and
dealing with organized labor. These objections are based on the
fear of (1) sympathetic strikes, (2) jurisdictional disputes, (3) laborunion politics, (4) contract breaking, (5) restriction of output, (6)
prohibition of the use of nonunion-made tools and materials, (7)
closed shop, (8) contests for supremacy between rival unions, (9b acts
of violence against nonunion workers and the properties of employers,
and (10) apprenticeship rules.
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STATISTICS OF WAGES OF RAILWAY EMPLOYEES IN THE
UNITED STATES.
The annual reports of the Interstate Commerce Commission on
statistics of railways have each year for some time past called atten
tion to the inadequacy of the statements in its annual reports per
taining to average daily compensation of railway employees. It is
noted, for instance, that the extent to which overtime work, paid for
at rates higher than the customary rates, affects the daily average
compensation as reported is not clearly brought out by the returns
submitted by carriers. The problem has been to find some practi
cable method of converting compensation paid into terms of a daily
wage. Furthermore, the general belief has been that the classes of
occupational groups of railway employees as shown in the statistical
reports of the commission were not sufficiently detailed to be of value
for those purposes for which wage statistics are generally employed.
Thus the reports of the carriers do not show wages separately for the
large body of employees in passenger and freight service. To
remedy these and other defects to which attention was called in its
existing schedules the commission recently revised the form of
report which carriers are required to make concerning the number
and compensation of their employees. A new form of report and
rules governing the classification of steam railway employees was
drafted early in 1914, and was made effective by order of the com
mission on July 1, 1915.1 Its next report on the statistics of railways
in the United States for the fiscal year ending June 30, 1915, will con
tain the first report of the carriers under this new schedule.
The classification of employees as adopted was drafted in a pre
liminary way by a committee of the carriers after a conference of
railway accountants, the railroad brotherhoods, and other labor
organizations, the statisticians of the commission, and of the
Department of Labor, and was then revised and slightly changed to
meet the requirements of the commission.
The new schedule makes some important changes over the former
one in use in four principal respects: (1) The number of occupations
or occupational groups is increased from 18 to 68; (2) the number of
hours instead of the number of days worked by each class of employees
during the year is to be reported; (3) the number of employees is to be
determined quarterly instead of annually as of June 30 as formerly;
(4) certain more important groups of employees are classified
according to the branch of traffic (passenger or freight) in which they
are engaged.
1 In te rsta te Commerce Commission. R ules governing th e classification of steam railw ay employees and
th e ir com pensation. Effective on Ju ly 1,1915. W ashington, 1915. 13 pp.
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The number of employees is to be reported as of the middle of each
of the months of July, October, January, and April. The 16th day
of the month is considered the middle of the month, but should this
date fall on Sunday, the last preceding business day is adopted. An
employee is defined to include every person subject to the continuing
authority of the carrier to supervise and direct the manner of rendi
tion of his service. Every employee in service on the day specified,
even though for only a part of a day, is to be included in the count.
Employees temporarily absent from duty but not suspended for
service are to be included in the count if receiving any pay, while if
absent with leave but receiving no pay, they are to be excluded from
the count. Employees suspended from service and pensioners ren
dering no service are to be excluded. Employees are to be classified
in accordance with their most important duty. The average number
of employees is to be derived from the numbers determined by the
quarterly counts.
The actual number of hours on duty during the year is to be ascer
tained and recorded for every class of employees required to be on duty
at regular times and not released from duty; time allowed for meals,
half holidays, or absence of other kind is to be excluded, while time
actually spent in work or while subject to orders and not released
from duty must be included, and the requirement applies to enginemen and trainmen paid on the basis of trips, miles run, etc., and shop
employees paid piece rates, as well as to employees paid on the basis
of hourly, daily, weekly, or other time rates. Special rules are drafted
for the proper inclusion and reporting of joint employees, i. e., em
ployees of two or more carriers.
Among the new subdivisions of the classification of employees is
that making distinction between “ general officers” and “ division
officers” on the basis of the amount of annual compensation. A
similar distinction is made for clerks, the first subclass including all
paid at the rate of $900 per annum or upward and the second sub
class those below that limit. Those whose time of employment con
tinues to be reported by the day instead of by the hour are general
and division officers, messengers, and attendants, assistant engineers
and draftsmen, general foremen in the maintenance and equipment
departments, traveling agents and solicitors, station agents who do
not perform telegraphic service, yardmasters, station masters and
assistants, and policemen and watchmen.
Those employees whose services are classified according as they are
rendered for the freight or passenger department are engineers and
motor-men, firemen and helpers, conductors, brakemen and flagmen,
and baggagemen.
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79
For enginemen and trainmen paid on mileage basis there is to be
reported the number of hours on duty, the number of miles actually
run, and the total compensation.
In this classification of employees naturally those occupations
which are particularly peculiar to the transportation service are
clearly delimited, as are also some of the more skilled occupations
such as those of machinists, boiler makers, blacksmiths, masons and
bricklayers, structural-iron workers, carpenters, painters and uphol
sterers, and electricians, which may be found among other industry
groups and which are not specially peculiar to transportation.
In class 24, “ other skilled laborers/’ are included journeymen me
chanics and other skilled employees in the maintenance of way and
structures, maintenance of equipment, and construction departments
such as steel-car builders, truck builders, molders, coremakers, tinners,
tank builders, tender repairmen, flue welders and caulkers, plasterers,
sealers, coppersmiths, machine hands (wood and metal), staybolt
inspectors, sheet-iron workers, crane engineers, derrick engineers,
plumbers, pipe fitters, casting inspectors, millwrights, tool inspectors,
wreck masters, and inspectors of work; also stationary engineers,
engine inspectors, and other skilled employees not provided for else
where.
In group 27, “ other unskilled laborers,” are included (if not elsewhere
reported) unskilled employees in the maintenance of way and struc
tures and the maintenance of equipment departments, such as
laborers at shops, storehouse attendants, elevator and crane operators,
hammer men, teamsters and drivers, cupola men, melters, wheel
breakers, pumpers, car cleaners, oilers, car washers and scrubbers,
car spongers, grinders, supply-car conductors, laborers, firemen,
stokers, etc., of steam shovels, dredge ditchers, and hoisting or other
stationary engines.
Under group 41, “ station-service employees,” are included weighmasters and weigh men, warehousemen, freight truckers, freight check
ers, freight callers, freight tallymen, carders, sealers, station helpers,
freight handlers, freight-house foremen, coopers, mail carriers,
mechanicians, operators of coal and ore docks, telpherage or crane
operators, stevedores, longshoremen, station porters, janitors,
matrons and ushers, train callers and gatemen, baggage-room attend
ants, parcel-room attendants, station lamp men, and all other stationservice employees, except those provided for in other classes.
In the miscellaneous catch-all group, “ all other employees,” are
included dining-car employees, sleeping-car employees, restaurant
employees, cab-service employees, etc.
As it would make this article too extended it is not possible to
indicate completely the nature of the duties of the employees included
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in the different groups of the schedule, and therefore only a list of
the occupations adopted under the new schedule of the commission
is here given:
1. G eneral officers, $3,000 per annum and
upw ard.
2. G eneral officers, below $3,000 per
annum .
3. Division officers, $3,000 per annum
and upw ard.
4. Division officers, below $3,000 per
annum .
5. Clerks, $900 per annum (except No.
37).
6. Clerks, below $900 p er an n u m (except
No. 37).
7. Messengers and attendants.
8. A ssistant engineers and draftsm en.
9. M aintenance of ways an d stru ctu res’
foremen (excluding Nos. 10 and
28).
10. Section foremen.
11. G eneral foremen, m aintenance and
eq u ip m en t departm ent.
12. Gang and other foremen, m aintenance
and equipm ent d epartm ent.
13. M achinists.
14. Boiler makers.
15. B lacksm iths.
16. Masons and bricklayers.
17. Structural-iron workers.
18. Carpenters.
19. P ainters and upholsterers.
20. E lectricians.
21. Air-brake m en.
22. Car inspectors.
23. Car repairers.
24. O ther skilled labor.
25. M echanics’ helpers and apprentices.
26. Section m en.
27. O ther unskilled labor.
28. Forem en of construction gangs and
work trains.
29. O ther m en in construction gangs an d
work trains.
30. Traveling agents and solicitors.
31. Em ployees in outside agencies.
32. O ther traffic employees.
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33. T rain dispatchers and directors.
34. Telegraphers, telephoners, and block
operators.
35. Telegraphers and telephoners h an d
ling interlockers.
36. Leverm en (nontelegraphers).
37. Telegrapher clerks.
38. Agent telegraphers.
39. Station agents (nontelegraphers).
40. S tation masters and assistants.
41. Station service (except Nos. 5, 6, 37,
38, 39, and 40).
42. Y ardmasters.
43. Y ardm asters’ assistants (not yard
clerks).
44. Y ard engineers and motor-men.
45. Y ard firemen an d helpers.
46. Y ard conductors or foremen.
47. Y ard brakem en, sw itchm en, or h elp
ers.
48. Y ard sw itch tenders.
49. O ther y ard em ployees.
50. Hostlers.
51. Engine-house w atchm en and laborers.
52. Road freight engineers and motormen.
53. Road freight firem en and helpers.
54. Road freight conductors.
55. Road freight brakem en and flagmen.
56. Road passenger engineers and motorm en.
57. Road passenger firemen and helpers.
58. Road passenger conductors.
59. Road passenger baggagemen.
60. Road passenger brakem en and flag
m en.
61. O ther road trainm en.
62. Crossing flagmen and gatem en.
63. Drawbridge operators.
64. Floating-equipm ent em ployees.
65. Express-service employees.
66. Policem en and w atchm en.
67. All other transportation employees.
68. All other employees.
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81
INDUSTRIAL ARBITRATION IN NORWAY.
There is to be noted as of special interest the recent enactment,
August 6, 1915, of an arbitration law in Norway, which recognizes
the principal of compulsory investigation and enforced delay in
striking, which forms the essential feature of the Canadian industrial
disputes act of 1907. As originally drafted the Norwegian law was
a pure compulsory arbitration law, but opposition against it from
the time of its proposal in 1910 compelled the omission of that par
ticular feature of the act. The summary of the law which here
follows has been taken from the S o c ia la M e d d ela n d en (1915, No. 8)
of the Swedish labor office, as no copy of the act is as yet available
in this country.
For its purposes the law provides for the registration of tradeunions and employers’ associations and the legal recognition of the
collective agreement; conciliation is a prominent feature of the act.
In order to incorporate, a trade-union must have at least 25 members.
Collective agreements are required to be in writing and remain
effective for three years unless otherwise provided; and three
months’ notice is required before their lawful termination. I t is
specifically provided that an individual contract of hire can not
waive the provisions of the collective agreement.
Resort may not be had to a strike for determining the application
or intent of a collective agreement, nor may it be resorted to under
any circumstances unless conciliation proceedings be first attempted;
and as long as the right to strike is in abeyance, it is not lawful to
make changes in the conditions of work or wages of the employees,
a provision inserted to prevent a so-called masked lockout.
The labor court established under the act is the only tribunal before
which the questions rising from an unlawful strike may be tried;
but the parties themselves are left free to settle their disputes out of
court by voluntary arbitration. The organization as such, and not
an individual representative of it, is alone recognized before the court.
The court has its seat at Christiania and consists of a chairman and
four associates, appointed by the Crown, for a period of three years.
For the associates two alternates, or substitutes, are appointed.
The chairman is appointed for each special case requiring the services
of the court. The members of the court must be at least 30 years of
age and be citizens of the country; me chairman must in addition
have the qualifications of a judge of the supreme court. Associates
are nominated two from the members of the trade-union and two
by the employers’ associations; but the right to nominate such
candidates belongs only to an organization consisting of at least
10,000 workmen, or to one to which belong at least 100 employers
who employ altogether at least 10,000 workmen. Tire members of
11408°—15------6
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MONTHLY REVIEW OE THE BUREAU OE LABOR STATISTICS.
the directing board, or similar body of the labor organization or of
the employers’ association, may not be nominated as associates
on the bench.
Appeals from the court lie to the supreme court generally only on
questions of law and of the jurisdiction of the court; on other matters
no appeal may be taken.
As conciliation is provided for in the law, the country is divided
into so-called conciliation districts, at the head of each of which is
appointed a conciliation board consisting of a resident district
chairman and of a number of associates, two of whom are appointed
on the occasion of any dispute. The principal of recognizing the
two parties to a dispute in the membership of the board is observed.
At the head of the mediation service of the state is a national con
ciliator who is the representative head of the district boards and may
act on the occasion of disputes which involve the entire country, or
in such disputes as may be referred to him. Any district conciliator
may likewise act in disputes outside of his district, if invited to do so
by either of the parties to a dispute. This feature of the law would
seem to lend some degree of adaptability to it and to recognize the
very large personal element which enters into the settlement of
disputes by mediation. The mediation proceedings may be had either
before the whole board, or the individual conciliator, and are held in
secret. Professional advocates or solicitors are not permitted to
appear in the proceedings without the consent of the conciliators.
The result of the proceedings are to be cast in the form of a collective
agreement, signed by the parties thereto, and enforced as any other
agreement.
It is obligatory to report every actual or threatened cessation of
work to the conciliators. Neither a strike nor a lockout may be
engaged in before at least four days have passed after notice of its
threatened occurrence has been made to a conciliator; and if the
conciliator is of the opinion that the cessation of work will be a
detriment to the public interest, he may forbid its occurrence pending
conciliation. Ten days are allowed for mediation proceedings, after
which it may become lawful to strike under certain conditions if no
agreement is reached. The conciliator may ask for new mediation
proceedings within at least a month after the termination of the
preceding ones, provided the dispute in question has not been settled
before that time.
Fines ranging from 5 crowns ($1.34) up to as high as 25,000 crowns
($6,700) may be assessed against an employer or workman who take
part in or assists in an unlawful labor dispute; these penalties apply
also to a member of the directing board or officer of the employers’
association, or of the trade-union who lends support to any such
unlawful dispute, or who may collect and pay out contributionAor
the support of such act. Breaches of the act of this character are
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tried before the ordinary tribunals of the land, and the organization
responsible for the breach becomes liable for the penalty, unless it
may be shown that the organization itself was opposed to the act
constituting the breach of the law.
The use of the process of the court and that of the conciliation board
is as a rule free of cost, although the court may in certain special
instances levy equally on both parties the cost of the procedure.
COMPULSORY CARTEL OR MONOPOLY IN THE GERMAN
COAL MINING INDUSTRY.
It has been the policy of the German Government to sanction, or at
least to permit, the free development of combinations among manu
facturers and industrial owners. The development of selling organ
izations among German coal miners took place as early as 1877, and
more particularly in the Rhenish-Westphalian coal industry, such a
cartel, or combination, was organized in 1893. These cartels, it may
be noted, are incorporated companies and act as the selling agents
of the producing mine owners. Besides acting as selling agents,
the syndicates have the power of regulating output and fixing prices.
The amount of stock of such a syndicate is usually nominal and the
expenses of its operation are not taken out of its business, but are
usually supplied by assessments upon the mine owners who consti
tute its membership.
The present agreement in the coal industry, based on the volun
tary consent of the mine owners, will expire December 31, 1915,
although under it they may sell competitively after October 1. If
no disagreements had occurred between the mine owners forming
the syndicate, it is very probable that a new one would have been
organized in the course of the early part of this year. But as a dis
agreement had arisen between the miñe owners constituting the
syndicate with no probability for the formation of a new one, the
German Government determined on July 12 of this year to compel
by legal enactment the formation, or rather the renewal of the
existing syndicate in the coal industry. The Government, in deter
mining to take this step, is said to have had regard to the effect which
a disorganization of prices of coal would have had upon the industry
as a whole in the matter of securing continuity of output and in
maintaining a uniform level of wages and continuity of employment,
as well as regard to the effect upon the consumer.
The action of the Government in compelling the mine owners to
organize a new syndicate was taken upon the authorization of the
law of August 4, 1915, which gave the Federal council of the Empire
power to enact such economic measures as it might deem necessary
to meet the crisis of the war. The action of the Government, how
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MONTHLY EEVIEW OF THE BUREAU OF LABOR STATISTICS.
ever, seems now to have been forestalled by the mine owners, who,
according to recent reports,1 came to an agreement in September of
this year and formed a selling syndicate for the Rhenish-Westphalian
coal district, having renewed their agreement until March 31, 1917.
This is, however, only a temporary, or as they prefer to call it, a
transitional syndicate (U berg a n g ssyn d iJca t ), the period of its duration
being considerably shorter than that of the existing agreement; nor
is the membership of this new syndicate quite identical with that of
the former one. Furthermore, the character of its organization is
very considerably modified by the provisions of the decree of the
Federal council, just mentioned, regarding a compulsory syndicate.
Thus, under the decree, the new syndicate must include a sufficient
number of operators to control at least 97 per cent of the entire coal
output of the district, and in order to represent that proportion
within its organization, the new syndicate was forced to include the
State-owned mine; and to gain the membership of the State-owned
mine, it was obliged to give more consideration to the wishes of the
directors of these than it had given formerly. Moreover, under the
decree the new syndicate is subject to the supervisory authority of
the higher State officials, in order that the public interests may be
properly safeguarded. The Prussian minister of commerce has the
right of final decision in determining prices for the sale of the coal of
the syndicate whenever a minority of at least 30 per cent of the
voting members of the syndicate demand a reduction of the prices
fixed. A Government official is also placed upon its directing board.
In other words, the new coal syndicate is subject to Government
inspection and control both in its management and in the fixing of
prices.
The provisions of the Federal decree of July 12, 1915, which were
intended to create a compulsory association of coal-mine owners,
and to which the voluntary agreement above noted becomes subject,
may be examined in detail. The decree covers the whole Empire
and provides for the formation of cartels in specified coal-mining
districts to regulate the sale and output of the product. The power
to form such association is vested in the Central State Authorities
who pass upon the by-laws for any proposed associations.
The authority of the State under the new decree extends to passing
upon the provisions of its by-laws, which must show, among other
things, the name and seat of the association, the time for the begin
ning of its operations, the time of its general meeting and the subjects
which may be discussed at them, the composition, election, term of
office, and powers of the board of directors, the form of .its resolutions,
etc.; the amount of capital stock of the association, the regulation of
the sale of its product through the association and the determination
1 Soziale P rax is, B erlin, 1915, vol. 24, No. 52 (S ept. 23), p. 1224.
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of the prices and conditions of delivery; the form of the financial
report and its examination, the supervision of the membership
and their establishments, and the determination of fines for contra
ventions of the by-laws.
The share of the members of the association in the output and sale
of the product is determined by the administrative organs of the
syndicate, but appeals, against the determination may be made to a
committee composed of a chairman appointed by the central State
authorities and of members, half of whom are to be elected by the
general meeting of the association and the other half to be appointed
by the central State authorities.
The prices for the sale of the coal product are fixed by the general
meeting of the association, but subject to the approval of the central
State authorities, who may, in their discretion, reduce them; and
proposals for an increase of these prices require the assent of more
than 70 per cent of all votes, while, if proposals for the reduction of the
determined prices are voted down over a minority of at least 30 per
cent of all votes, the central State authorities have the right to
determine whether a reduction of prices shall take place.
The authority of the State, furthermore, extends to the right to
send a representative to the meetings of the different administrative
organs of the association of any district who may participate in the
meeting in an advisory capacity. The justness of the objections of
this State representative is passed upon by the central State authori
ties, and the execution of the resolutions to which his objection extend
must be extended until such action by the State authorities. But
more particularly if his objections to the act of the governing body of
the association have been on the ground of their violation of public
interests, the State authorities before ruling upon such objection
must consult an advisory council consisting of representatives of the
mine owners and persons engaged in industry and agriculture and of
representatives from the municipalities of the district and of the
local administration of railroads.
Under the decree in question heavy penalties are imposed upon mine
owners who may refuse to turn over their mine products to the district
association of which they should become members, fines ranging as
high as 100,000 marks ($23,800) being assessable in addition to
other fines levied by the association itself in accordance with its
by-laws; and any repeated contravention of the law may in addition be
punishable by imprisonment up to six months.
This decree became applicable from the day of its promulgation
July 12, 1915, and remained subject to abrogation by the Federal
council; but as already noted, it became applicable only in a limited
sense to the Rhenish-Westphalian district, which it is said produces
about 50 per cent of the coal supply of Germany. The decree, how
ever, remains applicable as to the mine owners of other districts.
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Federal Reserve Bank of St. Louis
OFFICIAL REPORTS RELATING TO LABOR.
U N IT E D S T A T E S .
M a rylan d .— Ten-Hour Law Bureau.
timore, 1914-] %8 pp.
First Report, May, 1912, to January, 1914.
[Bal
Second Report, January, 1914, to January, 1915. [Baltimore, 1915.] 41 PPT he so-called 10-hour law prohibiting th e em ploym ent of women in any m anufac
turing, m echanical, m ercantile, printing, baking, or laundering establishm ent more
than 10 hours in any one day, nor more th an 60 hours in any one week, was enacted by
th e legislature in 1912. T he first report includes operations from May 1, 1912, to th e
end of th e year 1913, and th e second one cov.ers th e calendar y ear 1914. D uring th e
first year of its operation th e inspector reported some of th e obstacles m et w ith in th e
enforcem ent of th e law, p rom inent among w hich were th e failure of em ployers to post
the law indicating th e tim e of beginning and stopping work in th e ir establishm ent;
th e practice of women em ployed in establishm ents working a shorter tim e th a n th e
legal requirem ents, going to other places of work for a few hours in th e evening and on
Saturday afternoons; and th e difficulty of enforcing th e exem ptions in th e law.
In th e interpretatio n of th e law for its proper enforcem ent th e attorney general held
th a t stenographers working in establishm ents enum erated in th e law were subject to
its requirem ents as to th e num ber of hours em ployed ; and th a t m ercantile establish
m ents in th e city of Baltim ore w hich perm itted women dem onstrators to work therein
in violation of th e legal hours should b e h eld liable regardless of th e question as to who
pays th eir salary. I t was h eld th a t th e word “ m echanical ” was sufficiently broad in
its signification to include th e sw itchboards of th e telephone com pany, so as to cover
the em ploym ent of women in th e service of telephone companies beyond th e legal
lim it.
From May 1, 1912, up to Jan u ary 1, 1914, 42 establishm ents in B altim ore were
reported as having violated some provision of th e law, and 44 in th e outside counties,
w hile during th e second year of th e enforcem ent of th e law 22 establishm ents in
B altim ore city were found having violated th e law, and 8 establishm ents in th e
counties. Involved in violations reported for th e calendar year 1914 were 72 women
em ployed in B altim ore and 24 in th e counties. T he establishm ents in B altim ore
w hich were affected em ployed during th e same year 1,537 women, w hile those in
th e counties em ployed 83. T he total num ber of violations or charges filed against
establishm ents in Baltim ore in 1914 was 32, 16 of w hich were su b m itted to th e grand
jury and 13 taken before a m agistrate; in two instances fines were assessed. Of 11
charges for violation filed against establishm ents in th e counties during th e year 2
were placed before th e grand ju ry and 7 before a m agistrate; of th e 11 charges, fines
were assessed in 3 instances.
T he cost of th e enforcem ent of th e law from May 1, 1912, to Jan u ary 1, 1914, was
$6,923.88, and during th e calendar year 1914 it was $4,747.55.
M a s s a c h u s e t t s .—Homestead Commission. Second Annual Report, 1914- Boston, 1915.
1 4 4 pp.
(Public Document No. 103.)
T he M assachusetts H om estead Commission was created b y a resolve of th e legislature
of 1911, and its first report, w hich appeared in 1913, consisted very largely of an appen
dix of 250 pages, w hich related to th e activities of 27 foreign G overnm ents, w hich had
m ade special efforts to increase th e su p p ly of wholesome homes for th e ir laboring
people. T he second annual report here listed contains a sum m ary of th e m aterial
86
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MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
87
in th e first report, and an account of th e practical work of th e commission in organizing
town planning and aiding in th e establishm ent of an im proved housing com pany in
Bellerica, Mass.
In review ing th e work of w hat foreign countries have done in securing b e tte r accom
m odations for workpeople th e commission uses these words: ‘‘T he U nited States seems
to b e alone, among all th e countries w ith an advanced form of civilization, in doing
nothing directly to aid th e laboring fam ily desirous of acquiring its own hom e” (p. 8).
T his work of suggesting and organizing some “ plan w hereby, w ith th e assistance of th e
Commonwealth, hom esteads, or sm all houses or plats of grounds may be acquired by
mechanics, factory employees, laborers, and others in suburbs of cities or tow ns,” to
use th e words of th e resolve creating th e commission, has constituted th e m ain efforts
of th e commission during th e past year, and u n d er an extension of further power in
1913 th e commission has attem p ted to prom ote th e formation of organizations in tended
to increase th e supply of wholesome homes for th e people.
The establishm ent of th e Boston & Maine R epair Shops a t an expense of $3,000,000
in Bellerica, Mass., gave th e commission th e desired opportunity. H ere were to be
housed some 1,200 workmen, a n um ber w hich was expected u ltim ately to increase
to 2,000 or 3,000, w hile other m anufacturers m ight be expected to locate in th e v icin ity
to utilize th is supply of labor. To m eet th is problem of dem and for housing there
was incorporated th e B ellerica Garden Suburb Co. on June 30, 1914. D ividends are
lim ited to 5 per cent. The com pany took over a 54-acre tract in th e vicin ity , 21 miles
from Boston and w ithin a 5-cent car fare of Lowell, adjoining th e present village
center w here schools and other p ublic buildings m ade im m ediate developm ent pos
sible. Houses are to be available for re n t or sale and as lodging or boarding houses,
etc. Provision is made for com m unity buildings, p lay grounds, and in d iv id u al
garden plots. Of a proposed capital of $50,000, $16,540 had been subscribed in August
of this year. B y October 1 th e roads on 30 acres had been graded and th e first three
houses were begun, and in D ecember 19 fam ilies were living on th e estate.
“ This m arked th e first conclusive stage in bringing into existence in th is country
im proved cooperative m ethods of housing for workingmen th a t have proved successful
in England, for nowhere else in th e U nited States, so far as is known, have th e five
essential elem ents—site planning, lim ited num ber of houses per acre, wholesale opera
tions, lim ited dividend, and participation b y th e residents—been com bined in an
undertaking designed to m eet th e needs of th e workmen earning $12 to $20 per week ”
(p. 29).
Among other work of th e commission has been th e holding of city planning confer
ences throughout th e State, one in November, 1913, and another in December, 1914.
The program and addresses of th e last-nam ed conference are contained in th is second
report. There is also a report of w hat in d iv id u al cities have done throughout th e
State in th e w ay of town planning.
The legislative recom m endations of th e commission propose th e extension of greater
power to local planning boards, th e giving of legal sanction to city planning confer
ences, providing for th e representation of th e State board of h ealth upon th e commis
sion, and th e teaching of agriculture to fam ilies in th e crowded tenem ents as a means
of getting th em interested in co u n try problems, th ereb y encouraging th e ir migration
to th e country. The commission has u n d er consideration also th e m atter of equitable
assessments of betterm ents, building restrictions in residential districts, cooperative
banking, and th e problem of how priv ate capital m ay be interested and safely invested
in im proved housing facilities.
N e w Y ork . —Department of Labor.
Labor Laws of 1 9 1 5 .
New York Labor Bulletin No. 72.
Albany, 1 9 1 5 . 6 7 p p .
New York
Contains introductory sum m ary of th e labor laws and other statutes relating to labor
enacted b y th e legislature of 1915, followed b y a te x t of th e laws arranged in chrono
logical order of enactm ent.
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88
MONTHLY EEYIEW OF THE BUKEATJ OF LABOR STATISTICS.
Department of Labor. New York Labor Bulletin No. 73. Ldleness of O r g a n iz e d
Wage Earners in the First H a lf of 1915. Albany, 1915. 14 pp.
Statistics of unem ploym ent based upon m onthly reports received from 232 labor
organizations representing 34 separate localities, 98 d istin ct trades, and approxim ately
25 per cent of th e total trade-union m em bers in th e State. The basis is practically
th e same as em ployed in b u lletin No. 69. (See vol. 1, No. 2, p. 4 1 of this R e v i e w .)
Percentage of unem ploym ent is shown for th e first half of each of th e years 1904 to
1915 b y three causes: (1) Labor disputes, (2) disability, and (3) conditions of trade,
and b y 13 industrial groups. A special table is shown for New York City, showing
num ber idle b y industries January to June, 1915. The rate of unem ploym ent was
higher for each of th e first five m onths th an in th e corresponding m onths of 1914.
The rate in June was th e same in each year. The rate of unem ploym ent due to labordisputes was lower th a n th a t of any corresponding period since record has been kept.
T hat due to disability shows very little variation, w hile p ractically all reported id le
ness is due to lack of work, i. e., conditions of trade.
The mean idleness for th e period was 3.4 points higher th an in 1914, and higher th an
in any other year since these records have been k e p t excepting th a t of 1906.
Department of Labor. New York Labor Bulletin No. 74. Statistics of Trade- Unions
in 1914■ Albany, 1915. 146 pp.
For th e first tim e since 1908 there was a falling off in trade-union m em bership.
However, the m em bership was still 69,000 in excess of th a t reported for Septem ber
30, 1913, and w ith this exception larger th a n in an y other y ear in w hich records have
been kept. D uring th e y ear 182 new organizations were formed and 208 organiza
tions lapsed.
The decrease was d istrib u ted among 10 of th e 13 in d u strial groups, w hile in 3 there
were slight gains. The greatest decrease of m em bership is shown in th e clothing and
tex tile trades (29,903); in th e restaurant, trad e, etc. (16,468); and in transportation
(14,644). Trade-unions in New York C ity lost 59,795 in m em bership, and th e re
m ainder of th e S tate lost 9,629.
The num ber of trade-unionists in New York C ity represented 72.5 p er cen t of all
trade-unionists in the State, and in th a t c ity and eig h t first and second class cities
com bined th e corresponding p er c en t was 89, leaving 11 p er cen t of m em bership out
side of the nine cities. The population of New York C ity m ade up 52.3 p er cen t of
the total for the State.
N U M B E R O F T R A D E -U N IO N IS T S IN T H E S T A T E O F N E W Y O R K , B Y IN D U S T R IA L
G R O U P S, 1894, 1904, 1909-1914.1
Year.
In d u strial group.
1894
1909
1910
1911
1912
1913
1914
49,131 119,597 113,331 120,588 129,954 130,006 138,738
18,773 72, 257 62,375 69,060 79,309 86,120 93,995
39,162 36,090 44,537 119,911 117,228 130,206 226,528
8,309 36,971 27,545 36,623 34.037 28,962 37,452
11,059 25,348 25,375 26,889 29.038 29,977 30, 730
9,369 10, 222 11, 939 11,602 14,762
5,169 12,771
5,340 15,394 16,370 18,575 18,240 17, 752 17,995
5,688 13,614 18,528 20,479 26, 791 25,997 26,607
8,722 12,354 10,531 10, 289 10,489 10,200 10,217
9,064 10,024 22,099 28, 705
9,822
1,771 15,255
1,964
9,538 16,157 17,534 16,669 15,696 18,304
975 12, 702 11,946 12,277 11,637 10,538 11,655
9,560
8,959
7,517
9,785
6,843 10,413
1,134
133,229
79,351
196,625
34,666
32,000
13,965
15,570
26,939
10,030
12,237
19,114
11,272
8,826
............................................ 157,197 391,676 372,729 481,924 504,314 526,672 665,248
595,824
RnildinHj stone w orking, e tc ................
T ransp o rtatio n.........................................
n o th in a and te x tile s..............................
Metals, m achinery, sh ip b u ild in g .........
P rin tin g , bookbinding, e tc ...................
W oodworking and fu rn itu re.................
Food and liquors......................................
Theaters and m u sic................................
Tobacco
........................................
R estaurants, trad e, e tc ...........................
p u blic e m p lo y m en t................................
Rtationary-enaine te n d in g ....................
Miseellaneous............................................
Total
1904
i T he figures for industries in th e earlier years in th is table do n o t in all cases agree w ith those given in
the an n u al reports for th e respective years, owing to changes m ade to correspond to th e revised classifiation of trades now used b y th e bureau.
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89
O h io .—Industrial Commission.
Department of Investigation and. Statistics. Report
No. 14■ Cost of Living of Working Women in Ohio. Columbus, 1915. 255 pp.
Tliis report presents th e results of th e stu d y of th e cost of living of a d u lt working
women in Ohio, and will be sum m arized q u ite fully in a future nu m b er of th e
M o n thly R e v ie w .
P e n n sy lv a n ia .—Department of Labor and Industry.
First Annual Report of the Com
missioner of Labor and Industry, Part II. Harrisburg, 1915. 416 pp.
A digest of P a rt I of th is report of th e commissioner of labor and in d u stry appeared
in No. 2 (p. 4 5 ) of th e M o n t h l y R e v i e w .
The departm ent was created Ju n e 2, 1913, and th is report covers th e tim e elapsed
since th a t date, more p articu larly during 1914. P a rt I in clu d ed in d u strial produc
tion, im migration, and unem ploym ent, w hile P a rt I I is devoted to accidents, factory
inspection, hygiene and engineering, industrial-board standards, m ediation an d
arbitration, and legal procedure.
The lack of safety and sanitary standards for th e guidance of th e inspection force
led to the formation of com m ittees for each d istin ct phase of in d u stry or classification
of m achinery composed of officers of rep resentative establishm ents, skilled m echanics,
and m anufacturers for th e purpose of establishing such standards. Moreover, special
safety m en have been appointed in m any of th e large industries, whose special d u ty
it is to receive suggestions from th e d ep artm en t and p u t them into effect in th e ir
respective plants.
In addition to th e investigations in clu d ed in P a rt 1 of th e report, inquiries have
been m ade covering th e tobacco in d u stry and bakeries w hich have resulted in im
proved conditions and th e abolition of in san itary practices.
Among th e recom m endations for legal enactm ent are in clu d ed (1) granting of dis
cretionary authority to prosecute offenders of th e safety regulations, etc.; (2) em
powering the industrial board to m ake rules and regulations to cover specific details,
carrying out the law, w hich should be drafted in general term s; (3) prohibition of nig h t
work for children betw een 14 and 16 years of age and regulating th e ir hours of labor;
(4) exclusion of children from street trades; (5) physical exam ination of all children
seeking em ploym ent; (6) m aking th e m aintenance of continuation schools compulsory
in all principal industrial centers.
The total num ber of in d u strial accidents reported for th e year is 49,390, of w hich
1,695 resulted fatally and 3,122 were serious, 3,014 occurred in coal m ining, 8,250 on
steam railroads and street railw ay service.
The following item s are reported: Total n um ber of employees, 1,086,508; accidents
in industrial establishm ents proper, 38,126; fatal accidents, 379; serious, 3,122;
days lost through accidents, 426,824; wage loss, $1,048,504; average daily wages of
injured persons, $2.33; average duration of disability, 11.2 days. D istrib u tio n d etail
tables are shown for industry, cause, duration, in ju ry received, m onths an d hours
of occurrence, age, nationality, sex, etc.
Inspection service.-—B ranch offices have been established in P h ilad elp h ia an d
P ittsburgh. The bureau m ade 50,015 inspections of establishm ents during th e year.
There were found 30,411 m inors betw een 14 an d 16 years of age em ployed, 420 children
were dismissed because no certificate was held, 17 for illiteracy, and 23 as being u n d er
age. Instructions have issued and com pliance secured as follows: G uards for m achin
ery and dangerous places in 2,617 cases; im proved elevators, 79 cases; fire escapes,
243 cases; equipm ent, etc., reducing hazard, 336 cases; im proved toilets, 412 cases;
dressing rooms, 188 cases; and im provem ents in heating, lighting, an d v en tilatio n in
2,024 cases. There were 469 cases prosecuted, an d 19,313 boiler inspections. (Forms
of inspection blanks, instructions to managers, an d reports are given.)
Industrial hygiene.-—This division organized and ex h ib ited in several in d u strial
centers models of safety devices and inspected establishm ents engaged in working up
tobacco, as a resu lt of w hich m inors under 16 are now p rohibited from working in th e
latter.
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90
MONTHLY REVIEW OF THE BUREAU OF LABOR STATISTICS.
Mediation and arbitration.-—More th a n 40 disputes received th e atten tio n of the
bureau. A description of each d ispute in which th e bureau has offered its services
is given, together w ith th e resu lt of such offer.
Standard safety regulations, operative February 1, 1915, for power-transm ission
m achinery, standard railings and toe boards, stationary steam engines, m achine tools,
forging and stam ping and shearing m achinery guards, polishing an d grinding m achin
ery, compressed-air apparatus, woodworking m achinery, bakeshops, fire prevention,
canneries, etc., are given in full.
U n ited S ta te s .—Bureau of Mines.
Abstract of Current Decisions on Mines and
Mining. October, 191 4 , to A pril, 1 9 1 5 . Washington, 1 9 1 5 . xvi, 138 pp. (Bulletin
No. 1 0 1 . Law Serial 5 .)
This is th e fourth b u lle tin issued on th is subject b y th e Federal B ureau of Mines.
Previous b u lletin s are num bered 61, 79, an d 90. The volum e consists of a digest of
decisions of Federal and State courts of last resort on questions relating to th e m ining
industry, including ownership and possession, sale, em in en t domain, definitions of
m ining terms, corporate actions, claims, patents, liens, tax atio n of m ining property,
and statutes relating to m ining operations, involving th e responsibility of th e operator
to th e employee in m aintaining health fu l and safe conditions of work, com parative
negligence, etc.
B u r e a u o f M in e s . R u le s a n d R e g u la tio n s f o r
x v i, 296 p p .
( I t s B u l l e t i n N o . 7 5 .)
M e ta l
M in e s .
W a s h in g to n ,
1915.
These rules and regulations for m etal m ines are th e resu lt of a report of th e com m ittee
originally appointed a t a m eeting of th e American M ining Congress a t Denver, Colo.,
in November, 1906. The object of th e preparation of these regulations was th a t th ey
m ight serve as th e model of a modern law governing quarrying and m etalliferous m ining
which could be recom m ended to th e several States for adoption, w ith th e hope th a t th e
enactm ent of such a law m ight ten d to lower th e num ber of fatal and serious accidents.
A prelim inary draft for a law was prepared in 1909 and su b m itted to th e A m erican Mining
Congress a t its m eeting of th a t year. I t was p rin ted in a lim ited edition and circulated,
some copies being p u t into th e hands of m ine su p erin ten d en ts generally, in order to
obtain suggestions. In 1909 th e Am erican In stitu te of Mining Engineers and th e
Mining and M etallurgical Society of America becam e interested in th e work and in
v ited th e com m ittee to serve also as a com m ittee of th eir respective organizations. On
Septem ber 1, 1910, th e com m ittee subm itted a join t report to th e three organizations,
together w ith a second prelim inary draft for a law. In 1913 th e Colorado Scientific
Society appointed a com m ittee for a sim ilar purpose, whose report and recom m enda
tions the com m ittee of th e three m ining organizations already m entioned m ade use of.
In April, 1911, the D irector of th e B ureau of Mines in v ite d th e com m ittee to serve as a
com m ittee of th a t bureau, th e bureau u n dertaking to provide th e necessary clerical
assistance and to atten d to th e final draft and publication of th e report.
The existing laws of th e various States and m any foreign countries were studied
and experts in various professions and industries were consulted.
“ In our treatm ent of th e m atter from th e legal standpoint, in w hich we have had
the advice of good lawyers, we have refused co clothe th e inspector of m ines w ith the
optional powers th a t are given to him under th e laws of m any of th e B ritish colonies,
and, also, we have refused to convey to him th e sweeping power th a t is given to h ealth
inspectors in some of our own States. * * * In our draft of a law we have formu
lated precise rules and requirem ents, to w hich operators, superintendents, foremen,
miners, and everyone concerned m ust conform. T he perm issible speed in hoisting,
the conditions under w hich ladderw ays m ust be installed, and th e requirem ents
regarding th e storage of explosives, for exam ple, are specifically stated. T he in
spector m ay neither grant any exem ption nor enforce any extra precautions b y exer
cise of Iris judgm ent. L ittle is left to his judgm ent. I t proved im practicable to
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M O N T H L Y R E V IE W O P T H E B U R E A U O F LABOR S T A T IS T IC S .
91
exclude th e inspector from th e exercise of discretionary power in all cases, b u t in th e
m ain his duty, as we have prescribed it, is m erelv to enforce th e law as he finds i t ”
(P- io).
B u r e a u o f M in e s . S a fe ty i n S t o n e Q u a r r y in g .
tra te d . ( T e c h n ic a l P a p e r 1 1 1 .)
W a s h in g to n , 1 9 1 5 .
48 p p .
I llu s
A report based on an investigation of safety conditions in stone quarrying. I t
directs attention to the chief causes of accidents and suggests prev en tiv e measures and
devices for decreasing th e ir occurrence. I t also describes first-aid methods, including
the Schaefer and Silvester m ethods (illustrated) of artificial respiration, and includes
a list of typical quarry accidents.
C o m m is s io n o n I n d u s t r i a l R e la tio n s . F i n a l R e p o r t o f the C o m m is s io n o n I n d u s t r i a l
R e la tio n s .
W a s h in g to n , 1 9 1 5 . x v , 4 4 8 p p .
The final report of th e commission, created by th e a ct of A ugust 23, 1912, was trans
m itted under date of A ugust 23, 1915, from Chicago, 111. This final report contains
one report prepared b y th e director of research as a sum m ary of th e special investiga
tions m ade under his direction, and of th e hearings of th e commission, w hich is signed
b y four m em bers of th e commission, and another signed b y five m em bers of th e com
mission. In addition are also supplem ental reports and statem ents b y in dividual
m em bers of the commission on some phase of th e ir work. A sum m ary of th e recom
m endations of th e commission is found elsewhere in this num ber of th e M o n t h l y
R e v i e w (pp. 4 8 to 7 6 ) .
C o m m is s io n o n I n d u s t r i a l R e la tio n s .
1 9 1 5 . 189 p p .
R e p o r t o n the C o lo ra d o S t r i k e .
W a s h in g to n ,
This report on the Colorado strike was prepared b y one of th e special investigators
of the commission. I t contains a statem ent of th e causes of th e strike, th e history of
the conference asked for by th e m en b u t refused by the operators, th e history of the
violence and policing in connection w ith th e strike, th e relations of th e Colorado
M ilitia to th e strike, and th e question of th e ultim ate responsibility of th e situation
in Colorado following th e strike.
C o m m is s io n o n I n d u s t r i a l R e la tio n s .
T h e N a t i o n a l E r e c to r s ' A s s o c ia tio n a n d the
I n t e r n a t i o n a l A s s o c ia tio n o f B r id g e a n d S t r u c tu r a l I r o n W o rk e rs.
W a s h in g to n ,
1 9 1 5 . 192 p p .
This report, b y one of th e special investigators of th e commission, consists of the
history of the relations of th e N ational E recto rs’ Association and th e N ational Asso
ciation of Bridge and Structural Iron Workers. I t m ay be said to be a study of the
history of a typical case of th e use of violence in the relations of employers and
employees.
Of th e 27 supplem entary reports filed by investigators of th e commission, only two
were printed, nam ely, those im m ediately following.
I n te r s ta te C o m m e rc e C o m m is s io n .
T w e n ty - s ix th A n n u a l R e p o r t o n th e S t a t i s t i c s o f
R a ilw a y s i n th e U n ite d S ta te s f o r the y e a r e n d e d J u n e 3 0 , 1 9 1 3 . P r e p a r e d by the
D i v i s io n o f S ta t i s t i c s .
W a s h in g to n , 1 9 1 4 . 751 p p .
T e x t o f th e T w e n ty - s e v e n th A n n u a l R e p o r t o n th e S t a tis tic s o f R a ilw a y s i n the U n ite d
S ta te s f o r the y e a r e n d e d J u n e 3 0 , 1914■
W a s h in g to n , 1 9 1 5 . 67 p p .
These reports present m ainly th e financial operations of carriers in th e U nited States
and statistics of railw ay operation, w hile only a very small p a rt is devoted to th e
statistics of employees on railways. E xcluding sw itching and term inal companies and
about 700 miles in Alaska and H aw aii, there were reported some 252,000 m iles of rail
ways in th e U nited States in 1914, as compared w ith approxim ately 250,000 in 1913.
On Ju n e 30, 1914, this mileage was d istrib u ted in round num bers as follows: Railroads
in th e eastern district, 61,000; southern d istrict, 51,000; and w estern d istrict, 140,000.
Statem ents regarding railw ay employees show th e num ber of employees for each
district, class of road, and for all operating roads, com parative for 10 years, d istrib u ted
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92
M O N T H L Y R E V IE W OE T H E B U R E A U OE LABOR S T A T IS T IC S .
among 1 8 occupational classes (see pp. 7 7 - 8 0 of th is num ber of th e R e v i e w ) ; also th e
distribution b y class of work, such as w hether engaged in m aintenance of ways and
structures, m aintenance of equipm ent, traffic, transportation, general, outside opera
tions, and unclassified, according to average daily com pensation and total com pensation
paid. I t is to be noted th a t these statistics do not show actual wages paid. Average
daily compensation is not derived from or related to th e n um ber of m en reported em
ployed, b u t is based upon th e actual num ber of hours of work reported b y th e carriers
during the course of a year; th a t is, average d aily com pensation is derived from the
two factors—-number of hours worked and total com pensation paid.
For the larger operating roads (Class I and Class II ) th e num ber of employees of all
classes, not including officers, was 1,680,250 in 19Î4, as compared w ith 1,800,135 in
1913, 1,685,569 in 1912, and 1,639,345 in 1911. In 1904 th e am ount of compensation
paid to railw ay employees, including general officers, was $817,598,810, as compared
w ith $1,381,117,292 in 1914.
The following table shows th e average daily compensation of all railw ay employees
for each of the years 1908 to 1914:
AVERAGE
D A IL Y
C O M PE N SA TIO N O F R A IL W A Y E M P L O Y E E S
E N D E D JU N E 30, 1908 TO 1914.
Class I an d Class I I roads.
FO R
THE
Y EARS
All operating roads.
Class of employees.
1911
General officers......................... $14.82
O ther officers............................
6.36
General office clerics................
2. 49
Station ag en ts..........................
2.19
O ther statio n m e n ...................
1.89
E nginem en................................
4.81
F irem en ......................................
2.95
C onductors................................
4.18
O ther tra in m e n ........................
2.89
M achinists..........................: . . .
3.14
Carpenters..................................
2.54
O ther shopm en.........................
2. 24
Section forem en.......................
2.07
O ther tra c k m e n .......................
1.50
Sw itch tenders, crossing
tenders, an d w atchm en__
1.74
Telegraph operators a n d disp atch ers..................................
2.44
Em ployees—account floating e q u ip m en t......................
2.34
A ll other employees and
laborers...................................
2.08
1912
1913
1914
1908
1909
1910
1911
$14.82
6.42
2.50
2.22
1.89
5.02
3.03
4.30
2.97
3.21
2.55
2.24
2.09
1.50
$15.67
6.44
2.51
2.28
1.96
5.20
3.13
4.39
3.04
3.26
2.63
2.31
2.14
1.58
$16.06
6.48
2.54
2.33
1.98
5.24
3.22
4.47
3.09
3.27
2.66
2.36
2.20
1.59
$13.11
6.27
2.33
2.09
1.82
4.45
2.64
3.81
2.60
2.95
2.40
2.12
1.95
1.45
$12.67
6.40
2.31
2.08
1.82
4.44
2.67
3.81
2.59
2.98
2.43
2.13
1.96
1.38
$13.27
6.22
2.40
2.12
1.84
4.55
2. 74
3.91
2.69
3.08
2.51
2.18
1.99
1.47
$12.99
6.27
2.49
2.17
1.89
4.79
2.94
4.16
2.88
3.14
2.54
2. 24
2.07
1.50
$13.13
6.32
2.50
2.20
1.89
5.00
3.02
4.29
2.96
3.21
2.55
2.24
.2.09
1.50
1.70
1.70
1.71
1.78
1.73
1.69
1.74
1.70
2.47
2.52
2.56
2.30
2.30
2.33
2.44
2.47
2.37
2.37
2.35
2.38
2.31
2.22
2.34
2.37
2.10
2.15
2.20
1.97
1.98
2.01
2.08
2.10
1912
FOREIGN COUNTRIES.
C hile. — O fic in a C e n tr a l de E s ta d ís tic a .
C h ile 1 9 1 4 -1 5 .
2 v o ls .
A n u a r i o E s ta d ís tic o . 1 9 1 3 , 1 9 1 4 .
19 1 3 : P t s . 2 , 3 , 5 , 6, 7, 8 , 1 0 ; 1 9 1 4 p t . 2 .
S a n t i a g o de
The issues of the statistical yearbook of Chile for each year appear in th e form of
10 separately bound parts, and a t irregular intervals. E ach p a rt is devoted to a definite
subject, as follows: (1) D em ography; (2) p ublic h ealth and hygiene and charity ; (3)
political organization an d ad m inistration; (4) justice, police, and crim e; (5) public
in stru ctio n ; (6) finance; (7) m ines and m in in g ; (8) in d u stry ; (9) trade and transpor
tatio n ; (10) agriculture. The heading of each of these separate parts is more or
less self-explanatory, b u t it m ay be noted th a t p a rt 8 devoted to statistics of industry
classifies th e industries b y Provinces, giving data as to th e nu m b er of establishm ents,
num ber of employees (classified b y sex an d n atio n ality ), horsepower used, an d th e
value of o utput.
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M O N T H L Y R E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
Finland.— I n d u s tr is ty r e ls e n .
1 9 1 3 . H e ls in g fo r s , 1 9 1 5 .
62 H a f t e t ) .
93
Y r k e s in s p e k to r n e r n a s i F i n l a n d À r s b e r à tte ls e r f o r A r
274 p p .
(M e d d e la n d e n fr a n I n d u s tr is ty r e ls e n i F i n l a n d ,
For th e purposes of in d u strial inspection u n d er th e act of 1889 F in lan d is divided
in to five districts w ith a male inspector for each; th ere are in addition two women
inspectors who divide th e work of inspection un d er th e woman and child labor law
betw een two districts comprising th e en tire area covered b y th e male inspectors. This
report of th e inspection service for th e year 1913 classifies all data according as th e
establishm ents are subject to or exem pt from th e accident insurance law and accord
ing as women and children are or are n o t em ployed in them .
D uring th e year 12,924 establishm ents were subject to inspection, b u t only 4,304
inspections or visits were made in 3,784, or 29.3 per cen t of th e total establishm ents.
The num ber of employees—th e report does n o t state th e m ethod of arriving a t th e
num ber—was 136,005 in establishm ents subject to accident insurance, and 22,827 in
those not so subject, or a total of 158,032. These employees were d istrib u ted in th e
proportion of 1.3 per cen t 12 to 14 years of age, 7.2 per cen t 15 to 17 years, and 91.5
per cen t 18 years of age an d over. T he n um ber of establishm ents in w hich women
and children were em ployed p redom inantly was 3,648, of w hich num ber 1,064
were inspected in th e course of 1,148 visits.
The table w hich follows shows th e total n um ber of establishm ents, th e num ber of
employees, and th e num ber of inspected establishm ents, and inspections m ade for
each of th e years 1911 to 1913. T here were reported 86 infractions of th e factory
law of 1889, w hich resulted in prosecutions, b u t th e num ber of com plaints lodged
under th e act num bered 640.
E S T A B L IS H M E N T S A N D E M P L O Y E E S SU B JE C T TO IN S P E C T IO N IN F IN L A N D , 1911-1913.
E stab lish m en ts subject to inspection b y male
inspectors.
Year.
N um ber.
1911..
1912..
1913..
9,154
9,808
12,924
N um ber of
employees.
121,326
138,842
158,032
N um ber of
establish N u m b er of
m ents
inspections.
inspected.
2,903
3,282
3,784
3,093
3,622
4,304
E stablishm ents subject to inspection b y female
inspectors.
N um ber.
N um ber of
employees.
3,224
3,473
3,648
31,270
35,847
42,602
N um ber of
establish N um ber of
m ents
inspections.
inspected.
1,088
1,116
1,064
1,074
1,246
1,148
T here were reported in th e course of th e year 3,301 in d u strial accidents based upon
an exposure of 136,005 workmen subject to accident insurance, or a rate of 24 per 1,000
workmen; b u t no statem ent is m ade as to how th e n um ber of workmen is arrived at,
w hether an average or an actual count a t some p articu lar po in t or tim e, or theoretical
full-tim e workmen; nor is th e term “ a c c id e n t” defined in th e report. The highest
accident rate was in th e transportation ind u stry , or 97 per 1,000 workmen em ployed,
b u t th e d ata were not com plete as based upon returns from 3 inspection districts; th e
n ex t highest rate of 53 per 1,000 was in d icated for miscellaneous industries not other
wise specified; th e th ird in order, 32 p er 1,000, prevailed in th e m achine in d u stry ;
31 in th e woodworking in d u stry ; 27 in th e paper in d u stry ; and 25 in m ining
and quarrying, iron and steel work, and th e chem ical ind u stry . The lowest rate,
or 2 per 1,000, was indicated for th e prin tin g and publishing ind u stry . D ata com piled
regarding th e causes of accidents showed th a t in order of th e ir im portance 14.3 per cent
were caused b y circular saws; 13.4 per cen t were caused b y torsions, strokes, jam m ing,
or squeezing betw een objects; 11 per cen t by throw ing or falling of objects; 10.1 per
cent in th e process of loading and unloading, etc.; 8.1 per cent b y falls; 6 per cent by
punctures; 3.6 per cent b y h and tools; 3.3 per cent by fire, m olten m etals, etc.
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94
M O N T H L Y R E V IE W O F T H E B U R E A U OF L A B O R S T A T IS T IC S .
Germany.—K n a p p s c h a fts - B e r u fs g e n o s s e n s c h a ft. D r e is s ig s te r B e r ic h t. B e r l i n , 1 9 1 4 . 69
V P- _
Contains report on th e results of accid en t insurance for th e m ining in d u stry in Ger
m any for th e year 1914. A presentation of th e m aterial contained in th e report will be
m ake in a subsequent issue of th e M o n t h l y R e v i e w .
R e ic h s v e r s ic h e r u n g s a m t.
Ja h re sb e ric h te der g e w e rb lic h e n B e r u fs g e n o s s e n s c h a fte n ü b e r
U n fa llv e r h ü tu n g f ü r 1 9 1 3 .
V I I . J a h r g a n g . B e r l i n , 1914- 687 p p . ( A m tlic h e
N a c h r ic h te n des R e ic h s v e r s ic h e r u n g s a m ts , 1914■ 1■ B e i h e f t.)
This volum e contains th e reports of th e in d iv id u a l trade accident insurance asso
ciations of G erm any as to th e ir a ctiv ity in accident p rev en tio n . E ach report is divided
into th e following four p a rts: (1) G eneral review of th e work of th e tech n ical inspection
officials of th e association; (2) inspection of establishm ents—(a) enforcem ent of th e
regulations for th e prevention of accidents, ( b ) proposals for changes in these regula
tions, (c) em ploym ent of ju v en ile an d fem ale workers, (d ) a ttitu d e of th e employers,
(e) a ttitu d e of employees, (/) new protective appliances, (g ) hygiene of insured p er
sons; (3) accidents; (4) miscellaneous. N early all th e reports contain illustrations
of im proved m achinery and new protective appliances.
The te x t part of th e volum e is followed b y tables of d ata relativ e to th e establishm ents
subject to th e accident insurance law and inspected b y officers of th e accident trade
associations. These tables show for each d istric t and inspector separately, w ithout
any sum m ary table, th e num ber of establishm ents and employed workmen, num ber
of establishm ents inspected and of th e workmen em ployed in them , num ber of inspec
tions, wage lists, insured persons in receipt of accident pensions exam ined, and th e
num ber of investigations of accidents. A separate tab le shows th e n um ber and nature
of th e penalties w hich th e courts inflicted on employers and insured persons for viola
tions of th e provisions of th e insurance code as reported b y th e inspectors of th e trade
accident insurance associations.
S ta tis tic h e s A m t . S ta tis tis c h e s J a h r b u c h f ü r d a s D e u ts c h e R e ic h . 3 6 .
B e r l i n , 1 9 1 5 . 4 8 0 ,1 1 4 p p .
C h a rts.
Jahrgang.
1915.
This volum e constitutes th e th irty -six th volum e of th e statistical yearbook for th e
Germ an E m pire and contains in sum m arized form inform ation presented in th e larger
statistical series published b y th e German statistical office. The volum e is classified
under 23 principal heads an d contains, in addition to an ap pendix, a sum m ary of th e
more im portant statistical data for foreign countries, also an alp h ab etical subject index,
together w ith some graphic charts. Of p articu lar in terest to labor are those sections
relating to th e labor m arket, em ployers’ associations and trade-unions, digests of th e
larger in d u strial censuses, conditions in transportation, prices, and social insurance.
Great B ritain .— B o a r d o f T ra d e .
G e n e r a l R e p o r t u p o n A c c id e n ts o n R a ilw a y s o f the
U n ite d K i n g d o m d u r in g the y e a r 1914- L o n d o n , 1 9 1 5 . 17 p p .
A ccidents occurring on th e railw ays of th e U nited K ingdom are reported under
three principal heads: (1) T rain accidents; (2) those caused b y th e m ovem ent of
trains, and railw ay vehicles, exclusive of train accidents; and (3) those occurring on
railw ay prem ises other th an those above m entioned. E ach of these heads is sub
divided in to three secondary groups; passengers, employees of railw ay companies or
of contractors, and other persons. The to tal operated track m ileage was 55,662,
including 14,927 m iles of sidings.
T rain accidents, collisions, derailm ents, failure of engines or rolling stock, etc., were
responsible for th e death of 8, and in ju ry to 115 employees of railw ay companies or of
contractors. A ccidents connected w ith th e m ovem ent of train s caused 417 deaths
and in ju red 4,950 employees, and other causes were responsible for 52 deaths and
22,153 injuries. No accident rates are shown.
In d ia .— C o m m e rc e a n d I n d u s t r y D e p a r tm e n t. E a s t I n d i a ( I n d e n tu r e d L a b o r ) . R e p o r t
to the G o v e r n m e n t o f I n d i a o n the C o n d itio n s o f I n d i a n I m m i g r a n t s i n F o u r B r i t i s h
C o lo n ie s a n d S u r i n a m . L o n d o n (p r i n t e d i n I n d i a ) , 1 9 1 5 . 2 v o ls .
P a rt I of this report of an investigation b y th e G overnm ent concerning th e condition
of In d ian im m igrants relates to T rinidad and B ritish G uiana, and P a rt I I to conditions
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Federal Reserve Bank of St. Louis
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 .
95
in Surinam , Jam aica, and F iji. The officers in charge of th e investigation visited a
large num ber of th e estates em ploying b oth in d e n tu re d and free labor in each colony,
and based th eir report upon p*ersonal observation an d upon d ata secured from original
official sources.
T he subjects reported upon for each colony are: Housing and sanitary conditions,
m edical treatm ent, v ita l statistics, hours, wages, adm inistration of justice and legal
restrictions, adm inistration of th e im m igration office, repatriations, contracts, tre a t
m ent accorded Indian s after expiration of period of in d e n tu re who wish to settle in th e
colony, educational facilities, an d in d e n tu re of In d ia n women.
T he report recom m ends (1) th e exclusion of u nsuitable im m igrants and an increase
in th e perm issible proportion of fem ale to male im m igrants from 40 to 50 per cent, and
th e abolition of th e m inim um age lim it; (2) th e repeal of u n d u ly rigorous or restrictive
provisions of existing laws; (3) granting of greater discretion to th e im m igrant d ep art
m ent of each colony in th e control of its employees in enforcing th e penal provisions of
th e law; (4) giving power to th e im m igrant d ep artm en t in each colony to adjudicate
cases involving em ployers and laborers; (5) granting th e in d en tu red laborer th e rig h t
to com m ute his in den tu re b y p ay m en t of a graduated in d e n tu re fee a t an y tim e,
although continuing th e lim itation as to th e proportion of laborers on an in d iv id u al
plantation; (6) providing facilities for in d en tu red laborers to obtain land on more
satisfactory term s of tenure; (7) requiring th e registration of marriages, and (8) provid
ing greater facilities for prim ary education of In d ian children.
F in a n c ia l D e p a r tm e n t.
1 9 1 4 . 5 v o ls .
R e p o r t o n the E n q u i r y i n t o the R is e o f P r ic e s i n I n d i a . C a lc u tta ,
T his volum inous and com prehensive report in five folio volum es constitutes th e result
of an in q u iry ordered b y th e In d ian G overnm ent in 1910. The object of th e investiga
tion was to ascertain (1) th e actual rise in prices in In d ia in th e past 15 years, and how
such increase has affected different comm odities and localities; (2) cause of such
increase in prices, if a n y ^ a n d to w hat e x te n t it has been due to “ world factors” and
to local conditions; (3) w hether th e rise has been p erm anent or tem porary; and (4)
th e probable economic effect upon th e country as a whole, an d on different sections.
T he report was com pleted in 1914, and th e general results cast in th e form of an in d ex
num ber.
The following table shows th e general average of rupee and gold wholesale prices
of 140 articles during th e years 1890 to 1912, th e basic period w ith w hich all other
years are compared being th e years 1890 to 1894. T h at is, th e price for each year is
shown b y a percentage of th e average annual price for all groups of articles for th e
years 1890 to 1894. In com puting th e general in d ex num ber for th e comm odities the
m edium instead of th e arithm etic average was em ployed, except w here only a few
price quotations were available. The in d ex num ber is an unw eighted one.
G E N E R A L A V E R A G E OF R U P E E AN D GOLD W H O L E S A L E P R IC E S OF 140 COMM ODI
T IE S F O R EA C H S P E C IF IE D Y E A R FR O M 1890 TO 1912.
Years.
1890
1891
1892
1893
1894
1895
1893
1897
1898
1899
1900
1901...........................................
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Federal Reserve Bank of St. Louis
General
average
of rupee
prices.
97
98
103
102
100
101
106
121
106
104
122
116
General
average
of gold
prices.
113
106
100
96
85
89
99
120
109
108
126
120
Years.
1902........................................
1903........................................
1904........................................
1905........................................
1906........................................
1907........................................
1908........................................
1909........................................
1910........................................
1911........................................
1912........................................
General
average
of rupee
prices.
in
107
106
116
129
133
143
133
132
134
141
General
average
of gold
prices.
115
111
110
120
134
138
147
138
137
139
117
96
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 .
Among the special subjects contained in the ap pendix to volum e 1 are the follow
ing: Special features of economic cycles; collection and com pilation of statistics
of prices; construction of ind ex num bers; the com pilation of agricultural statistics;
statistics of rainfall; sum mary of the injurious effects of shortage, excess, or uneven
distribution of rainfall on cro p s;' the collection, classification, and com pilation of
statistics of wages; statistics of trade; statistics of rates of freight; population sta
tistics; statistics of rent; a brief history of the In d ia n currency system and an estim ate
of rupees in circulation. Volume 5 of the report consists entirely of graphic charts,
while volumes 2, 3, and 4 contain statistics of prices, wholesale and retail, statistics
of wages, population, agriculture, rainfall, rents, com m unications, trades, and mis
cellaneous statistics on w hich the general report of volum e 1 is based.
H igh prices in In d ia are explained as due to a com parative shortage throughout the
period under review in the production of foodstuffs, the increased dem and for food
products and for raw m aterials from In d ia, th e developm ent of com m unication,
decrease in th e cost of transportation, and th e growth of banking and m onetary facili
ties. U nder th e head of “ world-wide causes” there is noted th e increased supply
of gold, the developm ent of credit, th e destruction of w ealth in recen t wars, and
expenditures for arm am ent. The world causes have been on the whole the dom inant
feature in the upw ard m ovem ent of In d ia n prices, according to this report.
As indicated by th e enum eration of the contents of these volumes, there is an
extended discussion and presentation of d ata p ertaining to th e production of wealth
in general, the m ovem ent of commerce, th e extension of agriculture, increase of popu
lation, and of other features involved in price changes. Considerable wage data
from In d ia are also presented.
S t a tis tic a l D e p a r tm e n t.
v i, 226 p p .
P r ic e s a n d w a g e s i n I n d i a .
T h ir ty - fir s t is s u e .
C a lc u tta , 1915.
This volum e is the th irty-first of a series started in 1878, and includes statistics for
the year 1913, and in some instances for January, 1914. The volum e is divided into
three parts: (1) wholesale prices; (2) reta il prices; (3) wages. For the first tim e an attem p t
has been m ade to sum m arize in convenient form th e m ovem ent of prices for th e year
under review and in preceding years. T he introductory note states th a t th e volum e
will be followed by another, w hich is in press, relating to prices and freights in In d ia
since the outbreak of the war. The wholesale prices presented are com piled from re
ports of cham bers of commerce, and from re turns filed by selected m arkets in each Prov
ince. Prices based on returns from 120 m arkets are quoted on 48 articles. Average
annual prices are shown for 24 articles, representing returns from 87 m arkets for the
period of 1897-1913. Also wholesale prices of 8 articles a t Calcutta, based on the
prices in effect in March, 1873, are presented in th e form of in d ex num bers for January
and Ju ly of each year from 1889 to 1914.1 Prices of staple articles of im port in 1873
and from 1889 to 1914 a t C alcutta and Bombay are shown and also reduced to index
num bers, w ith 1873 as th e base. A sim ilar p a ir of tables is shown w ith prices of a rti
cles of export. A nnual average contract prices p aid by the supply and transport corps
of the arm y are presented for 16 articles of consum ption. Some comparisons in prices
are m ade w ith those in London and in G reat B ritain.
R etail prices are covered in four statistical statem ents: (1) Sum m ary tab le of prices
of food grains and salt, 1913, and 1912; (2) average annual prices of 10 food grains and
salt, 1873, 1889 to 1913; (3) average annual prices of certain food grains at selected
stations, 1873, 1889 to 1913; (4) in d ex prices of articles enum erated in statem ent 3,
1873 being tak en as th e base.
Wage data are presented in five statistical statem ents: (1) Average m onthly wages
of skilled and unskilled labor a t close, of years 1873 and 1904 to date; (2) average
m onthly wages of skilled and unskilled labor in selected districts and stations, 1873,
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1 July, 1914, is om itted.
M O N T H L Y R E V IE W OE T H E B U R E A U OE LA BO R S T A T IS T IC S .
97
1889 to date; (3) variation in wage rates tab u lated in statem en t 2, rates for th e second
half of 1873 being tak en as 100; (4) rates of wages p aid in certain State and railway
establishm ents; (5) rates of wages paid in selected private in dustrial establishm ents.
In six appendixes are found statem ents showing (1) th e quin q u en ial average price'
of rice, w heat, cotton, and ju te in In d ia, w ith in d ex num bers; (2) a list of articles for
w hich wholesale prices are reported, and th e num ber of m arkets from w hich reported;
(3) a sum m ary of th e variations in prices of food grains and salt in each 5-year period,
1861-1865; (4) a sum m ary of th e report of th e Governm ent of In d ia on th e in q u iry due
to th e rise of prices w hich was published in A pril, 1914 (see p .—); (5) th e total area
under cultivation, am ount of export and seasonal conditions of p rincipal crops in
In d ia in each Province since 1897-8; and (6) In d ia n w eights and measures w ith
B ritish and m etrical equivalents used in th e report.
The report states th a t th e m arked upw ard tendency in th e wholesale prices of In d ian
products continued in 1913, th e increase over 1912, based on 24 articles, being 2 per
cent. For food grains this increase was 5 per cent. R etail prices of food grains in 1913
showed an average fluctuation for th e whole country of 3 per cen t over prices in 1912.
R egarding wages th e report states th a t “ th e incom e of wage earners has generally
increased considerably faster th a n th e ir cost of living, w hich has resulted in a sub
stantial im provem ent in th e m aterial condition of agricultural and general laborers
and artisans who form th e m ajority of th e wage-earning class” (p. v.)
Italy.
M in is te r o d i A g r i c o l t u m , I n d u s t r i a e C o m m e r d o . D ir e z io n e G e n e ra le d e l C redito
e d e lla P r e v id e n z a , A n n u a l i d e l C red ito e d e lla P r e v id e n z a . R o m e , 1 9 1 5 . S e r ie I I .
V o l. 5 ( I x v , 6 5 7 p p . ) ; V o l. 7 , 721 p p .
Volume 5 consists of a com pilation of laws regulating savings banks in European
countries, and in M assachusetts, New Y ork, and Texas; laws governing th e Postal
Savings B ank in th e U n ited States, and a historical review of th e organization and
legislation relative to savings banks in 13 other countries.
Volume 7 reports th e proceedings of th e council of savings and social insurance in
its session of 1914, and reproduces th e by-laws of some of th e im p o rtan t savings funds
and m utual aid associations, together w ith prem ium rate and benefit paym ent tables.
Japan. I m p e r i a l C a b in e t S ta t i s t i c a l B u r e a u . D ia g r a m s a n d N u m e r ic a l T a b le s S h o w in g
G r o w th o f P o p u l a t i o n a n d V ita l S ta tis tic s o f the J a p a n e s e E m p i r e .
M a rc h , 1 9 1 5 .
The volum e consists of 10 graphic charts and 41 tables, all presenting d ata relative
to the population and v ita l and occupational statistics of th e E m pire prepared for th e
San Francisco E xposition, 1915.
D e p a r tm e n t o f A g r ic u ltu r e a n d
1915. 837 pages.
M aps. •
C o m m e rc e .
T h ir tie th
S ta t i s t i c a l
R e p o r t.
Tokyo
Forms for all practical purposes a statistical yearbook of Japan. T he figures given
are chiefly for 1913, b u t in general com parative data are given for a period of 10 years,
1904-1913. T he titles include: A griculture, commerce, industries, fisheries, min ing^
forests, and miscellaneous, w ith separate reports for Korea, Formosa, Karafuto, and
K w antung.
U nder th e title “ Comm erce” ind ex prices of a considerable num ber of staples,
based on prices of 1900, are given. Comparative tables show th e following d ata for
each year 1904-1913: N um ber of factories, paid-up capital, horsepower employed,
fuel consumed, average num ber of persons employed daily, daily wages, days worked
per year, working hours, raw m aterial used, am ount of production, price per unit,
and im portation and exportation of finished m aterial, etc. In factories operated by
th e G overnm ent the following data are given: Age, num ber employed, wages, hours
of labor, and working days per year. W age-index num ber for industrial, agricul
tural, and other occupations for 1900-1913, and lowest, highest, and prevailing wages
for 1913 are given. Statistical d ata are given relative to: A ccidents in mines, coopera
tive societies, and am ounts expended by local governm ents for encouragem ent of
agricultural and industrial developm ent, etc.
11408°—15----- 7
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M O N T H L Y R E V IE W O F T H E B U R E A U OF LA BO R S T A T IS T IC S .
Netherlands.— C e n tr a a l B u r e a u v o o r de S ta t i s t i e k .
H a g u e [1915], 4 0 p p .
C e n tra le C o m m is s ie v o o r de S ta t i s t i e k .
[1915], 1 3 9 p p .
V e rsla g o ver h e t ja a r , 1914■
V e rsla g o v e r h e t ja a r ,
1914.
The
The
H ague
The first publication noted above constitutes th e adm inistrative report of th e D utch
statistical office and describes th e progress of its work during th e current year 1914.
Among other statistics it compiles and publishes statistics relating to labor conditions,
strikes and lockouts, prices, b oth wholesale and retail, labor exchanges, wages and
hours of labor, and other special m atters of th a t kind. T he bureau, in addition to its
reports of special investigations, publishes a yearbook and a m onthly periodical.
T he second publication is th e adm inistrative report of th e advisory commission on
statistics, created b y a royal decree January 9, 1899 (Statsblad, 1899, No. 43). The
purpose of th e commission is to advise th e bureau of statistics, to prepare and suggest
subjects for investigation, and to issue orders in connection therew ith.
Ontario.— D e p a r tm e n t o f A g r ic u ltu r e . F a c to r y I n s p e c tio n B r a n c h . T w e n ty - s e v e n th
A n n u a l R e p o r t, 1 9 1 4 • T o r o n to , 1 9 1 5 . 12 p p .
T he inspection service consists of a chief inspector and 10 d istrict inspectors. D ur
ing the year 10,059 inspections were made, of w hich 2,434 were reinspections. The
establishm ents visited furnished em ploym ent for 229,480 persons, of whom 94 were
under 14 years of age. B irth certificates were dem anded in 102 cases of questionable
age, b u t none was found below th e legal age lim it. Many m ills were idle, and a great
m any hands were laid off; business was reported as very slack. Prosecutions were
entered in 15 cases and convictions h ad in each instance.
D uring th e year ending October 31, 1914, th ere were reported 1,270 accidents, of
w hich 52 were fatal, as com pared w ith 1,459 accidents (including 54 fatal cases) for
10 m onths ending October 31, 1913.
Fire-escape regulations were drafted and enacted b y th e legislature in Septem ber,
1914; th e num ber and character of stairs, brackets, and drop ladders is given in detail.
Sanitation and safety of establishm ents, protective devices, heating, ventilation,
etc., are discussed in th e report in general terms.
Portugal.— M in is te r io d a s F in a n ç a s , D ire cçâ o G éra i da E s ta tis tic a . A n n u a r i o E s ta tis tic o de P o r tu g a l.
1908, 1909, 1910.
L is b o n , 1914■
433 p p .
This volum e constitutes th e first issue of th e so-called S tatistical Y ear Book of
Portugal and contains data for th e years 1908, 1909, and 1910. I t contains m aterial
concerning th e territorial area, clim ate of th e country, demography, eleemosynary
and other charitable institutions, v ita l statistics, emigration, public instruction, w el
fare institutions, and financial statistics.
Queensland.— G o v e r n m e n t S t a t i s t i c i a n . A . B . C . o f Q u e e n s la n d S ta tis tic s , 1 9 1 5 .
B r is b a n e , 1 9 1 5 .
42 p p .
Com parative statistics of population, agriculture, migration, finance, crown lands,
mining, postal and telegraph service, average price of commodities, m anufactures,
railways and shipping, commerce, and v ital statistics, 1905-1914.
South Africa.— D ire c to r o f C e n s u s . S ta t i s t i c a l Y e a rb o o k o f the U n io n o f S o u t h A fr ic a
c o n ta in in g s ta tis tic s f o r the y e a r 1 9 1 2 -1 3 .
N o . 1.
1913.
----------— S t a tis tic a l Y e a rb o o k o f the U n io n o f S o u t h A fr ic a .
to ria , 1 9 1 5 .
P r e to r ia , 1 9 1 4 . 3 8 3 p p .
N o . 2 . 1 9 1 3 -1 4 . P r e
333 p p .
T he first num ber of the statistical yearbook is in the form of an octavo, w hile the
second volum e appears in the form of a folio, necessitated by the fact th a t the titles
and side heads of all statistical tables are p rin ted in both English and D utch, the
official languages of the U nion. These volum es contain th e usual statistical data
found in yearbooks. W hile th e first volum e contains little relative to labor save the
statistics com piled from the census concerning th e m anufacturing industries of the
U nion, the second issue of th e yearbook incorporates additional m aterial from the
report of the economic commission of 1914 concerning trade-unions, labor disputes,
em ploym ent exchanges, cost of living, working class rents, wages, im migration, and
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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 .
99
industry and trade, which last-nam ed group shows, among other things, the num
ber of m ines and quarries, the num ber of persons employed, and accidents and
accident rates in mines. In d ex num bers of retail prices and rents are shown.
----- R a il w a y C o m m is s io n o f I n q u i r y .
R e p o r t.
N o vem b er,
1914.
P r e to r ia ,
1 914.
173 p p .
This commission was appointed in October, 1913, to inquire into the grievances of
railw ay m en and to report upon the feasibility of im m ediate changes in conditions
surrounding the em ploym ent of railw ay m en and harbor labor. In the investigation
52 m eetings were held, 520 witnesses were exam ined, and several shops and running
sheds visited. The witnesses represented 363 interested groups; 32 of th e witnesses
represented the railw ay departm ent, and the balance, w ith few exceptions, repre
sented employees.
The m ajority report, signed by two of the three commissioners, is of the opinion
th a t it has not been proved th a t a shortening of th e hours of labor would lead to the
em ploym ent of those out of work w ithout an increase of expense to the adm inistra
tion, b u t i t recom mends im m ediate in troduction of an eight-hour day for those engaged
generally in continuous and arduous work, and th a t in case of the train crews over
tim e should be reduced and 24 hours rest given, if practicable, each week. W ith
regard to wages, the m ajority recom mend th a t the question of a m inim um wage be
considered w hen d ata concerning the cost of living have been collected. E x cep t in
the case of w hite laborers, there is recom m ended a m inim um wage of 7s. ($1.70) exclu
sive of allowances, except w here th e allowance granted is 4s. (97 cents), w hen the
total m inim um should be 10s. ($2.43); a beginning wage of w hite laborers of 4s. 6fd.
($1.19) is recom m ended, w ith a possible increase to 5s. ($1.22). The m ajority does
not recom m end the abolition of piecework, b u t suggests alterations in the organiza
tion of th a t kind of work so as to allow a profit of 15 p er cen t to th e worker. As to
apprentices, the commission recom m ends th a t they be allowed one hour for three
days of the w eek for training in th eir trade; th a t an especially appointed official be
selected to look after th e ir welfare, and th a t one apprentice be perm itted for each
five workmen. T he pay of th e salaried staff is considered reasonable, b u t recom
m endations w ith a view to facilitating prom otions are made.
T he representative of th e railw ay m en signed a m inority report recom m ending
im m ediate adoption of th e eight-hour day, th e pay m en t of a m inim um wage of at
least 8s. ($1.95) per day to all E uropean labor, th e abolition of piecework, increase
of pay of the salaried staff, repeal of all laws prohibiting com binations and strikes
among workmen, and th e elim ination of overtim e.
South Australia.— S t a tis tic a l D e p a r tm e n t.
S u m m a r y R e tu r n s o f M a n u fa c to r ie s a n d
W o rk s f o r the Y e a r 1 9 1 4 , a n d the P e r io d 1 9 1 0 -1 9 1 4 , a n d R e p o r t th ereo n . A d e la id e ,
1 9 1 5 . 6 p p . ( B u l l e t i n N o . 4 o f 1 9 1 5 .)
This report is prepared b y th e G overnm ent statistician and gives sum mary data for
all factories, workshops, or m ills employing 4 or more persons, and of those employing
m achinery operated by power regardless of th e num ber of persons employed, for th e
year 1914. The report may be said to be nearly analogous to th e census of m anufac
tures in th e U nited States.
A comparison for th e five-year period 1910-1914 shows th a t th e total num ber of facto
ries and workshops increased 3.5 per cent; th e num ber using m achinery 9.7 per cent;
the num ber of persons em ployed decreased one-half of 1 per cent; th e am ount of horse
power em ployed in m anufacturing increased 47.3 per cent. The total am ount paid in
salaries and wages increased 26.8 per cent; th e average annually earned b y each em
ployee showed an increase of 27.5 per cent, th e average for 1914 being £115 6s. Id .
($561.13) as compared w ith £90 8s. lOd. ($440.13) for 1910. The expenditure on account
of m aterial consumed in m anufacturing increased 18.5 per cent. The capital invested
in building plan t and m achinery increased during th e period 29.7 per cent, w hile the
gross wholesale value on th e premises of th e o u tp u t of th e various establishm ents in
creased 18.2 per cent.
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M O N T H L Y R E V IE W O P T H E B U R E A U O P LABOR S T A T IS T IC S .
Uruguay—D ir e c c ió n G e n e ra l de E s ta d ís tic a . A n u a r i o E s ta d is tíc o de la R e p ú b lic a O r ie n ta l
del U r u g u a y . L ib r o X X I I I , A n o s 1911 y 1 9 1 2 .
M o n te v id e o , 1 9 1 5 . x i v . 736 p p .
Contains m aterial usually found in yearbooks and presents it in d etail for each
governm ental district, State, and im portant city generally for a period of two years.
Of special interest to labor are those d ata relating to im migration, accidents (classified
by occupations, age, and locality), and strikes and lockouts.
Venezuela.— M in is te r io de F o m e n to . D ir e c c ió n G e n e r a l de E s ta d ís tic a . A n u a r i o E s t a
d ís tic o d e V e n e z u e la , 1 9 1 2 .
C a ra ca s, 1 9 1 5 .
x x i, 483 p p .
15 ch a rts.
This yearbook is th e fifth of th e series issued by Venezuela, and contains data for
1912 and 1913, w ith such comparable data as are available.
The m aterial is classified under th e titles following: Climatology, territory and popula
tion, instruction, religion, v ita l statistics, public aid, association, etc., judicial statis
tics, crimes, penal institutions, industry and commerce, w ith appendixes relative
to State lands, natural products, registered trade-m arks, and m ineral land concessions
in force.
Victoria.— G o v e r n m e n t S t a t i s t . V ic to r ia n Y e a r b o o k , 1 9 1 3 -1 4 , T h ir ty - fo u r th is s u e .
M e lb o u r n e , 891 p p .
Following the m ethod of presentation for former issues of th e yearbook, this num ber
contains information concerning th e political and social institutions of Victoria, its
finance, population, com m unication, and transportation, m unicipal statistics, vital
statistics, production and w ealth, law and crime, and social conditions. A short
summary is given of th e m ain provisions of th e workers’ compensation act, passed in
1914. In the section dealing w ith th e m anufacturing industries are found data relating
to the num ber of factories in th e State, th e num ber of persons employed therein,
salaries and wages paid, and th e value of th e product m anufactured. Factories are
classified according to th e num ber of persons employed, sex of employees, th e num ber
of children employed, m aterial produced, and value of output. R ates of wages as
reflected in th e determ inations of th e wage boards are shown for different occupations.
Inform ation is also included concerning th e operation of th e land laws, and of th e laws
granting State loans to farmers and workers for th e acquisition of land for homes for
themselves.
PERIODICAL PUBLICATIONS OF FOREIGN LABOR DEPART
MENTS AND BUREAUS.
I n the pages following the various periodical publications issued
by foreign departments and bureaus of labor are listed and the table
of contents given. This list usually includes all the periodical
publications received during the four weeks preceding the 15th of
each month. Some countries, it will be noted, are not represented
by any publication, while those of other countries have been somewhat
irregular in their appearance since the beginning of the European war.
Canada.— T h e L a b o r G a ze tte is s u e d b y th e D e p a r tm e n t o f L a b o r by order o f P a r lia m e n t,
O tta w a .
S e p te m b e r , 1 9 1 5 —
Notes on current m atters of in d u strial interest. In d u strial and
labor conditions during August, 1915: G eneral sum m ary; R eports of local corre
spondents; R eports of women correspondents. T he In d u strial D isputes Investiga
tion A ct, 1907: Proceedings during August, 1915; T ex t of draft of am ended b ill under
consideration of M inister of Labor; R eports of board in d ispute betw een Toronto hydro
electric commission and electrical workers; C ontract work d ispute a t B ellevue mine;
A lberta; Prices—W holesale and retail, Canada, August, 1915; F air wages schedules
in G overnm ent contracts, August, 1915; T rade disputes, August, 1915; In dustrial
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M O N T H L Y R E V IE W O P T H E B U R E A U O P LABOR S T A T IS T IC S .
101
accidents, August, 1915; Im m igration and colonization; B uilding perm its, August,
1915; R ecent industrial agreem ents; Notes on official reports; R ecent legal decisions
affecting labor.
D enm ark.
gen],
S t a tis tis k e E fte r r e tn in g e r u d g iv e t a f d et S t a tis tis k e D e p a r te m e n t
[Copenha
A u g u s t 2 8 , 1 9 1 5 ( N o . 1 9 ) .— Labor disputes in 1914; R etail prices, August, 1915;
Liquor shops and saloons, 1914; U nem ploym ent, June, 1915; Census of doctors, den
tists, and veterinaries, 1915.
S e p te m b e r 1 5 , 1 9 1 5 ( N o . 2 0 ) . —Crops on h and u n d er cultivation, 1915; Im ports of
grain and feeding stuffs, A ugust 1, 1914, to Ju ly 31, 1915; Persons engaged in h a n d
working and m anufacturing establishm ents; Statistics of dairying; In d ex num ber of
th e Economist.
F in lan d .— A r b e ts s ta tis tis k T id s k r ift u tg i f v e n a f I n d u s tr is ty r e ls e n . H e ls in g fo r s .
N o . 4 , 1 9 1 5 — Factory inspection in F in lan d , 1913; Sickness among workers of th e
Finlayson & Co. cotton m ill, 1911-12; Conditions in th e hand-w orking trades in
F inland, 1913; B enefit funds for working m en, 1913; Reports of th e labor exchanges,
first quarter, 1915; Prices of various leather products; Prices of food commodities;
Reports from foreign countries.
Germany.—R e ic h ’s a r b e its b la tt.
H e r a u sg e g e b e n
A b te il u n g f ü r A r b e ite r s ta tis tik . B e r lin .
vom
K a is e r lic h e n
S ta tis tis c h e n
A m te .
A u g u s t , 1 9 1 5 — Labor m arket in Germany, Ju ly , 1915; Decrees of federal States
m aking it obligatory for free em ploym ent offices to make reports for publication in
the Labor Market B ulletin (Arbeitsm arkt-Anzeiger) ; Labor m arket in B erlin, Ju ly ,
1915; Labor m arket in foreign countries (Sw itzerland, B ritish Colonies); E m ploym ent
offices and unem ploym ent; U nem ploym ent in A ustria, D ecember, 1914, to March,
1915; U nem ploym ent in New York State; H ousing and th e war; Legislation: Decree
of Ju ly 23, 1915, for th e prevention of excessive prices; Decree of Ju ly 22, 1915, as to
welfare work during th e war; Social insurance: German social insurance during th e
w ar, continued ; A ctivity of th e industrial and comm ercial courts ; Labor m arket
statistics.
S e p te m b e r , 1 9 1 5 — Labor m arket in G ermany; Labor m arket in foreign countries
(Great B ritain, N etherlands, France, Sw itzerland, and B ritish Colonies); E m ploy
m ent offices and unem ploym ent: U nem ploym ent in German trade unions, August,
1915; U nem ploym ent in foreign countries (Sweden, U nited States); Economic con
ditions during th e war: Cooperative stores during th e war. Labor disputes: Strikes
and lockouts in Germany, second quarter, 1915. Labor conditions: Wage statistics of
the local sick funds of Leipzig, Lubeck, and Strassburg in Alsace. Social insurance:
Statistics of decisions relating to accident, in v alid ity , and survivors’ insurance. Leg
islation: Decree of August 22, 1915, am ending th e decree against excessive prices of
Ju ly 23, 1915; Decree of A ugust 12, 1915, lim iting th e hours of labor in te x tile estab
lishm ents; Decree of August 26, 1915, relating to insurance of salaried employees.
Decisions of industrial courts. S tatistical tables of th e labor m arket.
Great B ritain .— T h e B o a r d o f T ra d e L a b o r G a zette. L o n d o n .
A u g u s t , 1 9 1 5 . E m ploym ent chart. The labor m arket in Ju ly . Special articles on
E m ploym ent in G ermany in Ju n e; R etail food prices in th e U nited Kingdom; R etail
food prices in B erlin in June; R etail food prices in V ienna in June; R etail food prices
in Ita ly in May; Rise in th e cost of living in C hristiania; New measures in Germany
against excessive food prices; Compulsory associations in th e German coal-mining
industry. Conciliation and arb itratio n cases. Reports on em ploym ent in th e p rin
cipal industries. Labor in th e dominions. Board of T rade labor exchanges. S tatis
tical tables: Prices of wheat, flour, and bread; T rade disputes; Changes in rates of
wages; Sliding scale changes in wages; Pauperism ; Diseases of occupations; F atal
industrial accidents; U nem ploym ent insurance; Foreign trad e; Distress committees;
Passenger m ovem ent to and from th e U nited Kingdom; Im m igration to and emigration
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M O N T H L Y R E V IE W OE T H E B U R E A U OF L A B O R S T A T IS T IC S .
from th e U nited States in May; Em ergency grants to trad e unions. Legal cases, official
notices, etc.
S e p te m b e r , 1 9 1 5 — E m ploym ent chart. The labor m arket in August. Special a rti
cles on E m ploym ent in G erm any; R etail food prices in th e U nited Kingdom; R etail
food prices in B erlin; R etail food prices in V ienna; Rise in th e cost of living in Copen
hagen; Road board; In d u stria l cooperative societies in th e U nited Kingdom in 1914;
Coal o u tp u t in th e U nited Kingdom; M em bership of tra d e unions in 1914; Agricul
tural returns for th e U nited Kingdom; M onthly R eview of th e U nited States Bureau of
Labor Statistics. Conciliation and a rb itra tio n cases. R eports on em ploym ent in the
principal industries. Labor in th e dominions. Labor in foreign countries. Board of
T rade labor exchanges. S tatistical tables: T rade disputes; Changes in rates of wages;
Prices of w heat, flour, and bread; Diseases of occupations; F a ta l industrial accidents;
U nem ploym ent insurance; Distress com m ittees; Pauperism ; Foreign trad e; Coopera
tive wholesale societies; Passenger m ovem ent to and from th e U nited Kingdom;
Im m igration to th e U nited States in June. Official notices, etc.
Italy .— B o ll e t t i n o delV U fficio d el L a v o r o , M in is te r o d i A g r ic o ltu r a , I n d u s t r i a e C o m m e r c io . R o m e . { M o n th ly .)
A p r i l , 1 9 1 5 . —Operations of th e
em ploym ent agencies. Labor disputes: Strike of
the m arble rough finishers and general lockout in th e m arble in d u stry in Carrara,
and other strikes, b y industries. Statistics of workmen em ployed on public works in
October, N ovember, and December, 1914. R etail prices of farm products and foods
generally consum ed by w orkm en’s families, March, 1915. M unicipal price regulation
of foodstuffs. H ygiene of m iners and workmen in th e iron and steel industry. Work
m en’s housing in Italy , 1914. Labor legislation: Swiss factory law of Ju n e 18, 1914;
Portugal: T hree laws of Jan u ary 22, 1915, regulating th e hours of labor of commercial
employees, workmen in in d u strial establishm ents, and of minors and women employed
in in d u strial establishm ents. C ontract of h ire and working conditions of farm laborers
in Sw itzerland. Working conditions and wages of workmen in th e German clothing
and underw ear industry, 1912. Decisions of courts affecting labor.
-------------{ S e m i m o n t h l y .)
A u g u s t 1, 1 9 1 5 . —Investigations and provisions relativ e to unem ploym ent; Labor
m arket, b y localities and industries; Labor disputes; R etail prices, June, 1915; E m
ployers’ and employees’ associations; Congresses and conventions; M aternity fund
(m inisterial decree relating to appoin tm en t of representatives of employers and
employees to th e adm in istrativ e com m ittee of th e fund); A ctivities of th e Office.
Legislation relating to labor (extension of w aiting tim e for th e application of th e
Berne convention relating to prohibition of th e use of w hite phosphorus in th e m atch
industry).
A u g u s t 1 6 , 1 9 1 5 . —Investigations and provisions relative to unem ploym ent; Labor
m arket, b y localities and industries; Labor disputes; Em ployers’ and employees’
associations; Congresses and conventions; A ctivities of th e Office; Legislation relating
to labor (war measures); Social insurance.
S e p te m b e r 1 , 1 9 1 5 . —Investigations and provisions relative to unem ploym ent; Labor
m arket, b y localities and industries; Labor disputes; Em ployers’ and employees’ asso
ciations; Congresses and conventions; A ctivities of th e Office; Legislation relating to
labor (war measures); E m igration (Ita lia n em igration during 1914); Housing of work
men, first quarter, 1915; A pplication of labor laws (employees in th e public transpor
tation service). Decision of courts; Publications of th e Office.
S e p te m b e r 1 6 , 1 9 1 5 . —Investigations and provisions relativ e to unem ploym ent;
Labor m arket, b y locality; Labor disputes; E m ployers’ and em ployees’ associations;
Congresses and conventions. Social insurance: Insurance of agricultural workmen
against w ar risks. R etail prices, Ju ly , 1915; E m ploym ent on p ublic works, statistics
for the th ird and fourth q u arter of 1914; A ctivities of th e Labor Office; Legislation
and decisions of courts relating to labor. H ygiene: M ortality from tuberculosis in
Milan, 1903-1912. P revention of lead poisoning of pain ters in England.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
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 .
103
Netherlands.— M a a n d s c h r ift v a n h e t C e n tr a a l B u r e a u v o o r de S t a t i s t i c k . [ T h e H a g u e .]
A u g u s t 3 1 , 1 9 1 5 ( V o l . 10 , N o . 8 ) . —R eview of th e labor m arket, Ju ly 1915, and for
August, 1915 (harbors and fishing); Labor-m arket conditions in th e b riq u ette in d u stry
during the first p art of the season up to Ju ly 15, 1915 ; E m ploym ent of in tern ed soldiers
in the industries of The N etherlands (conditions up to the close of August). E m
ploym ent office reports for 1915; U nem ploym ent and unem ploym ent insurance,
July, 1915; U nem ploym ent in the b u ild in g trades, second quarter, 1915; Strikes and
lockouts, July, 1915; W holesale and retail prices. M iscellaneous reports of social
and economic im port (population, housing, b u ild in g inspection, pensions, in d u s
trial accidents, postal savings banks, war measures, trade union activities, factory
inspection, 1913, em igration, 1914, etc.). Foreign countries and the war (G reat
B ritain, Ireland, A ustria, Sweden, B elgium ). Foreign countries: Labor m arket;
E m ploym ent offices; Strikes and lockouts; Wholesale and retail prices, etc. S tatis
tical tables: Labor m arket (building, m ines, harbor work); E m ploym ent exchanges,
Ju ly , 1915; B uilding and housing inspection, Ju ly , 1915; Factory licenses, Ju ly , 1915;
State revenues, July, 1915. Laws and official docum ents concerning railroad em
ployees, etc.
New South W ales.—I n d u s t r i a l G a ze tte is s u e d b y the D e p a r tm e n t o f L a b o r a n d I n d u s t r y .
Sydney.
J u l y , 1 9 1 5 . —Introductory
m atter. The in d u strial situation, June, 1915: In d u s
trial arbitration and th e war; Questions of th e cost of living and the m inim um wage;
Em ergency legislation; D islocations in industries; E m ploym ent and U nem ploym ent.
The statu te law of ind u strial im port in the S tate of New South Wales; Awards con
tinued by and m ade u n d er the In d u strial A rbitration Act, 1912; Factories and Shops
Act, 1912; E arly closing acts; Records of conciliation com m ittees; Ju d icial and quasi
judicial proceedings. D epartm ental records, June, 1915: Chief inspector of factories
office; Gas exam iner’s office; In d u strial registrar’s office; Investigation office; Labor
Exchanges. Records of in d u strial boards; Awards gazetted from Ju n e 10 to Ju ly 14,
1915; In d u strial A greements filed from Ju n e 10 to Ju ly 14, 1915; A bridgm ent of
records; Com pendium of titles to awards published in th is p art; T able of in d u strial
agreem ents published in th is part. Labor exchange su p p lem en t No. 4.
New Zealand.— J o u r n a l o f th e D e p a r tm e n t o f L a b o r . W e llin g to n .
A u g u s t , 1 9 1 5 . —Labor. Conditions of em ploym ent and trade. W omen’s em ploy
m ent branches (reports). U nion reports. R ecent legal decisions. In d u strial union
levies. Master and servant. R ecent legal decisions affecting labor in Great B ritain.
S tatistical: Persons assisted to em ploym ent during Ju ly , 1915; Cooperative works in
New Zealand; A ccidents in factories reported up to Ju ly 27, 1915; A ccidents reported
under th e scaffolding inspection act; A dditional unions registered un d er th e in dustrial
conciliation and arb itra tio n act, 1908; A dditional unions canceled un d er th e in d u s
trial conciliation and arb itratio n act, 1908; C urrent retail prices, Ju ly 15, 1915; R etail
prices, Ju n e quarter, 1915; and W ar increases. Special articles on em ploym ent in
G ermany in M arch; R etail food prices in B erlin in M arch; D isabled sailors and soldiers.
Spain.—B o le ti n d el I n s t i t u t o de R e fo r m a s S o c ia le s . P u b lic a c ió n M e n s u a l. M a d r id .
A u g u s t , 1915.- —R eport of th e S ecretary’s office and of th e special divisions. Strikes,
Ju ly , 1915. R etail prices October, 1914, to M arch, 1915, inclusive. Conventions and
congresses. Proposed legislation.
Sweden.—S o c ia la M e d d e la n d e n U tg iv n a a v K . S o c ia ls ty r e ls e n . S to c k h o lm .
N o . 8 , 1 9 1 5 . —State an d m unicipal measures pending th e w ar: R eports of th e state
unem ploym ent commission; A id to unem ployed tobacco workers; O rganization of
local unem ploym ent aid ; S tate war insurance bureau. T he labor m arket, second
quarter, 1915; U nem ploym ent among trade union members, A pril 1, May 1, Ju n e 1,
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
104
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 .
1915; Form of statistics of consum ption of alcohol; A gricultural credit for peasant
proprietors; Norwegian trad e disputes law ; Cooperative stores m ovem ent, 1914;
Strikes and lockouts in Sweden, first an d second quarters, 1915; R eports of th e factory
inspectors, A pril-June, 1915; R eports of th e factory inspectors on fatal industrial
accidents. Brief notices: Labor disputes in D enm ark, 1913, N etherlands, 1913-14;
R eport of th e State insurance in stitu te, Ja n u a ry -Ju ly , 1915; A m ended Norwegian sick
ness insurance law; R ecent reports of th e labor m arket (E ngland, F in lan d , G ermany);
Travel aid to the unem ployed; P u b lic em ploym ent exchanges in F in lan d , 1914;
M unicipal poor relief, 1913; R etail prices in E ngland, Ju n e, 1915; D eaths from tu b e r
culosis in Sweden, 1906-1910. P u b lic em ploym ent bureaus in Sweden, Ju ly , 1915;
R eview of retail prices of food commodities, Ju ly , 1915; R etail food prices in Sweden,
1904 to July, 1915; R etail prices b y localities, Ju ly , 1915; Prices of farm anim als in
Sweden, 1904 to July, 1915; Fish prices in Stockholm , Ju ly , 1914, to Ju ly , 1915;
R eports from th e royal pension bureau.
BUREAUS OF LABOR, INDUSTRIAL COMMISSIONS, ETC., AND THEIR
CHIEF OFFICIALS.
N am e and title of chief official.
State.
Location of bureau.
Name of bureau.
Name.
Title.
Commissioner.
B ureau of L abor Sta R oyal Meeker.
tistics.
/.T. C. C lary .............. ___ do......................
Bureau
of
labor
and
A rkansas.......
\M . J. M cM ahon.. . D eputy commis
statistics.
sioner.
Bureau of labor sta John P. M cLaugh Commissioner.......
California
lin.
tistics.
___do............................ . Axel Sw anson....... D eputy commis
Colorado.
sioner.
D epartm ent of labor W m . S. H y d e........ Commissioner___
Connecticut.
and factory inspec
tion.
/D ep artm en t of com- H . M. Stanley........ ___ do.......................
Georgia
J. T. D erry............. A ssistant commis
\ merce an d labor.
sioner.
D epartm ent of im m i R alp h A. K earns.. A cting commis
H aw aii.............
sioner.
gration, labor, and
statistics.
Commissioner.
Bureau of im m igra S. J. R ich.
Id a h o ...............
tio n , labor, and sta
tistics.
Secretary.........
Bureau of labor sta L. D. M cCoy...
Illinois.............
tistics.
Chief.................
B ureau of statistics___ T. W . B rolley..
In d ia n a ............
Commissioner.
B ureau of labor sta A. L. U ric k ___
Iow a.................
tistics.
___ do ...............
D epartm ent of labor P. J. M cB ride..
K ansas.............
and in d u stry .
........do ...............
D epartm ent of agricul J. W . N ewm an.
K e ntuck y........
tu re, labor, a n d sta
tistics.
Bureau of labor and in W m . M cG ilv ray .. ___ do ........
L ouisian a........
dustrial statistics.
D epartm ent of labor Roscoe A. E d d y . . ___ do ........
M aine...............
and in d u stry .
M arylan d........
Bureau of statistics F ran k A. W h ite .. Chief..........
and inform ation.
B ureau of statistic s__ C. F . G e tte m y ___ D irector...
M assachusetts.
Alfred W .D onovan C h airm an
Mrs. M ary H. Dewey
/State board of labor and John F . ‘Tobin
\ industries(5 members)
James A. Donovan
Dr.A lfred H. Quessy
E d w in M u lread y .. Commissioner of
Labor.
V .C u n n in g h am .. Comm issioner........
M ichigan................... D ep artm en t of la b o r .. /J.
\F red A. Z ierley n .. D eputy commis
sioner.
M innesota................. D ep artm en t of labor W . F . H o u k .......... C o m m issio n er___
an d industries.
U nited States
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
{
I
W ashington, D. C.
L ittle Rock.
Do.
948 M arket Street,
San Francisco.
Denver.
Hartford.
A tlanta.
Do.
Honolulu.
Boise.
Sprin g field .
Indianapolis.
Des Moines.
Topeka.
Frankfort.
N ew Orleans.
A ugusta.
B altim ore.
Boston.
721A New A lbion
B uilding, No. 1
Beacon
Street,
B o s to n .
Lansing.
Do.
St. Paul.
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 .
105
B u r e a u s o f la b o r, i n d u s t r i a l c o m m is s io n s , e tc ., a n d th e ir c h ie f o ffic ia ls —Concluded.
N am e and title of chief official.
State.
N am e of bureau.
Location of bureau.
Name.
M issouri.
/B u reau of labor staI tistics.
N e v a d a ...
D epartm ent of labor
and in d u stry .
B ureau of labor an d in
d u strial statistics.
B ureau of la b o r............
New H am p sh ire.
N ew Jersey..........
.d o .
D ep artm en t of lab o r.
M ontana..
N ebraska.
J. T. F itz p a tric k .. Commissioner___
D eputy commis
H . P . R eed s........
sioner.
John L. B ra d le y .. ........d o ....................
A. T. Edm onston. Supervisor of sta
tistics.
W . J. Swindle- Commissioner___
h u rst.
Chas. W . P o o l........ D ep u ty commis
sioner.
W . E . W allac e ... L a b o r commis
sioner.
J. S. B. D avie__
Commissioner___
/L ew is T . B ry an t. ___ d o ,....................
(John I. H o lt........ A ssistant commis
sioner.
John M itchell........ C h airm an.............
Jas. M. L y n ch.......
W m .H .H . Rogers..
Louis W ia rd .........
E d w ard P . Lyons.
H enry D. S a y e r... S ecretary.........
M. L. Ship m an __ Commissioner.
N ew Y ork .
/S ta te in d u strial com1 mission.
N orth Carolina.
D epartm ent of labor
a n d p rinting.
D epartm ent of agricul R . F . F li n t............
tu re a n d labor.
W allace D. Yaple.
/In d u s tria l commission H erbert L. E lio t...
\ (3 commissioners).
T. J. D uffy.............
George L. Stough
ton.
D epartm ent of la b o r .. W . G. A shton.......
B ureau of labor statis O. P . H off..............
tics and inspection of
factories and work
shops.
D epartm ent of labor John P . Jackson.
and in d u stry .
John P. Jackson..
N orth D ak o ta..
O hio.
O klahom a.
Oregon.......
P ennsylvania.
' I n d u s t r i a l board
L (5 m embers).
Title.
.d o .
C h airm an..........
Vice ch airm an .
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
Do.
Do.
Helena.
Lincoln.
Carson City.
Concord.
Trenton.
Do.
A lbany.
A ddress of board,
381 F o u rth Ave
nue, N ew Y ork
City.
Raleigh.
Bism arck.
S ecretary.
Columbus.
Do.
Do.
Do.
Commissioner.
. . . d o ..............
Oklahoma.
Salem.
Commissioner.
H arrisburg.
Commissioner of
labor a nd indus
try .
Mrs. Sam uel Sem
ple.
James C. C ronin...
Geo. S. C om stock..
Maj. J ohn P . W ood.
Philippine Islands. B ureau of la b o r............ M anuel T in io ........ D irector...........
Porto R ico............... ___ do.............................. F . C. R o b erts........ Chief.................
R hode Isla n d .......... B ureau of industrial G. H . W eb b ........... Commissioner.
statistics.
D epartm ent of agricul E . J. W atson.
South Carolina.
___ do...............
ture, commerce, and
industries.
B ureau of labor sta C. W . W oodm an.
T exas.................
.do.
tistics.
U ta h ...................
B ureau of im m igra H . T. H aines.......
.do.
tion, labor, and sta
tistics.
Virginia.
B ureau of labor and in J. B. D o h erty .......
.do.
dustrial statistics.
W ashingto n ...
B ureau of lab o r............ E dw . W . O lson... ___do........
W est Virginia.
___ do.............................. Jack H . N ightin ___do........
gale.
J. D. B eck............. C hairm an.
Fred
M. W ilco x ...
/In d u s tria l commission George
W isconsin.
P . H am \ (3 commissioners).
brecht.
P . J. W atrous........ Secretary.
Do.
Jefferson City.
Do.
Address of board,
H arrisburg.
Manila.
San Juan.
Providence.
Columbia.
A ustin.
S alt L ake City.
R ichm ond.
O lympia.
Charleston.
Madison.
Do.
Do.
Do.
106
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 .
STATE BUREAUS CHARGED WITH ENFORCEMENT OF FACTORY INSPEC
TION LAWS, AND CHIEF INSPECTION OFFICIALS.
N am e a n d title of chief official.
Location of bureau.
Name of bureau.
State.
Name.
A labam a...................
A rkansas................... B ureau of labor and
statistics.
D epartm ent of h e a lth .
Do
Bureau of labor statistics.
D o....................... In d u strial a c c i d e n t
board.
C alifornia.................
Colorado
B ureau of labor sta
tistics.
Connecticut.
D epartm ent of labor
a n d factory inspec
tion.
W . H .O ates,M .D .. Inspector of jails, Box 282, M o n t
gomery.
almshouses, cot
ton mills, or fac
tories.
J. C. C lary .............. Commissioner........ L ittle Rock.
Commissioner of
health.
John P . McLaugh- Commissioner........ 948 M arket Street,
San Francisco.
lin.
A. J. P illsb u ry ___ C hairm an ............... U nderw ood B uild
ing, 525 M arket
Street, San F ran
cisco.
Denver.
D
eputy
commis
Alex. Sw anson___
sioner of labor
and chief factory
inspector.
F
actory
insp ecto r. H artford.
J. J. M cP artlan d ..
W m . G ibbons.......
D elaw are................................................................
F lo rid a ...................... Office of S tate labor in
spector.
Illinois.
Indiana
Iow a...
D epartm ent of factory
inspection.
In d u strial b o a rd ..........
Title.
Miss M ary S. Ma
lone.
Dr. W m . R . Messick.
J. C. P r iv e tt..........
Child labor in
spector.
Inspector for 10hour law.
Inspector of can
neries.
S tate labor inspec
tor.
Room 6, B aldw in
B uilding, Jack
sonville.
608 South Dearborn
Oscar F .N e lso n .. Chief.
Street, Chicago.
E dgar A. Perk in s. Chief inspector___ Room 120, State
Capitol, Indian
apolis.
Commissioner........ Des Moines.
A. L. U ric k ...
Kansas.
Bureau of labor statistics.
D epartm ent of labor
and in dustry.
K entucky.
B ureau of agriculture,
labor, and statistic s..
L ouisian a........
B ureau of statistic s of
labor.
M aine...............
D epartm en t of lab o r
and in d u stry .
M aryland........
B ureau of statistics
and inform ation.
W om en’s 10-hour b u Miss Sarah F . M ar Chief inspector___
reau.
tin.
W . Dono- C hairm an...............
S tate bo ard of lab o r I[Alfred
van.
and industries.
[E dw in M ulready.. Commissioner of
labor.
D ep artm en t of la b o r .. J. V . C unningham . Commissioner of
labor and chief
factory inspector
D ep artm en t of labor W . F . H o u k .......... C o m m i s s i o n e r ;
and industries.
chief inspector.
D epartm ent of factory A. S. Jo h n sto n ___ Chief inspector___
inspection.
B ureau of labor and in Chas. W . Pool........ D eputy commis
du strial statistics.
sioner of labor
and factory in
spector.
B ureau of labor
L abor
commis
W. E. Wallace.
sioner.
D o .............
M assachusetts.
M ichigan.........
M innesota.......
M issouri..........
N eb rask a........
N e v ad a ............
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
Ford B u i l d i n g .
W ilm ington.
507
W ashington
Street, W ilm ing
ton.
R ehoboth Beach.
Commissioner of Topeka.
labor and indus
try and ex officio
State factory in
spector.
/ J. W . N e w m a n ... Commissioner........ Frankfort.
\H a rry M. L eslie... L abor in sp ec to r... 307 K entucky Title
B uilding, Louis
ville.
W m . M cG ilv ray .. Commissioner........ New Orleans.
Mrs. M artha D. Factories inspector R oom 11, City H all,
New Orleans.
Gould.
of Orleans P a r
ish.
Roscoe A. E d d y . . Commissioner of A ugusta.
labor a nd State
factory inspector
F ra n k A. W h ite ... Chief........................ B altim ore.
P . J. McBride,
{
E q u itab le B uild
ing, Baltim ore.
1721A New Albion
1 B uilding, No. 1,
j B eacon Street,
B oston.
Lansing.
St. Paul.
F u llerton B uild
ing, St. Louis.
Lincoln.
Carson City.
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 .
107
S t a t e b u r e a u s c h a rg e d w i t h e n fo r c e m e n t o f fa c t o r y i n s p e c t io n la w s , a n d c h ie f i n s p e c tio n
o ffic ia ls —Concluded.
N a m e a n d title of chief official.
State.
Name of bureau.
Location of bureau.
d itle .
N a m e.
New H am p sh ire__
B ureau of lab o r............ J . S. B . D a v ie ........ L a b o r
D o....................... B oard of h e a lth ............ Irv in g A . W a tso n ,
New Jerse y .............. D ep artm en t of labor ..
New Y o rk ................ S tate in d u stria l com
mission.
O hio........................... In d u strial commission.
O klahom a................. D ep artm en t of la b o r...
Oregon....................... B ureau of labor statis
tics and inspection of
factories and work
shops.
D o ....................... Child labor commis
sioner.
P e n n sy lv an ia .......... B ureau of inspection,
d ep artm en t of labor
and in d u stry .
R hode Is la n d .......... Office of factory inspec
tors.
South C arolina........
Tennessee.................
D o.......................
T exas.........................
U ta h ...........................
V erm o n t...................
V irginia.....................
W ashington.............
D epartm ent of agricul
tu re, commerce, and
industries.
D epartm ent of w ork
shop an d factory in
spection .
S tate board of health ..
B ureau of labor statis
tics.
Bureau of im m igration,
labor, and statistics.
Office of factory inspec
tor.
B ureau of labor and in
d u strial statistics.
B ureau of la b o r............
co m m ission er a n d fac ¡•Concord.
to ry in sp ec to r.
S e c re ta ry ..................
M. D.
L e w is T . B r y a n t . . C o m m issio n er........
J o h n M itc h e ll........ C h a irm a n 1..............
fW allace D . Y a p le .
\T . P . K e a rn s ..........
C h a irm a n ................
Chief d e p u ty , d iv is io n of w o rk
s h o p s, facto ries,
and p u b lic
b u ild in g s.
C. L . D a u g h e r ty ... C o m m issio n er........
O. P . H o ff............... C om m issio n er of
la b o r a n d factory
in sp ec to r.
H . G . K u n d r e t .. ..
Trenton.
A lb a n y .
Columbus.
G uthrie.
Salem.
C h a irm a n ................
[Jo h n P ric e Jack so n C o m m issio n er........ jlla rrisb u rg .
(L ew R . P a l m e r . .. Chief in s p e c to r ___
J . E lle ry H u d s o n .. ........ d o ........................ R oom 306,
E . J . W a ts o n ..........
C o m m issio n er........
H ouse,
dence.
Columbia.
W . L . M itc h e ll___
C hief in s p e c to r___
N ashville.
C. W . W o o d m a n ...
C o m m issio n er........
A ustin.
State
P rovi
H . T . H a in e s .......... ........ d o ........................
Salt L ake City.
A lla n C alh o u n ........
F a c to ry in s p e c to r
M iddleburg.
J . B . D o h e rty ........
C o m m issio n er........
R ichm ond.
E d w a r d W . O ls o n . C om m issio n er of Olym pia.
la b o r.
W est V irginia.......... ....... do .............................. J a c k H . N ig h tin - C o m m issio n er........ W heeling.
gale.
W isconsin................. In d u strial commission. f j. D . B e c k .............. C h a irm a n __
\C . W . P ric e .............. A ss is ta n t to com j-Madison.
m issio n .
i T he first d e p u ty commissioner of labor is inspector general of th e State. T he S tate is divided into 2
factory inspection d istricts w ith a chief factory inspector under th e commissioner of labor in charge of each.
MINIMUM WAGE BOARDS.
Arkansas.—M inim um Wage Commission (3 m em bers):
J. C. Clary.
Miss E v a R eichardt.
Miss Mary H . McCabe.
California.—In d u stria l W elfare Commission (5 m em bers):
Hon. F rank J. M urasky, judge of superior court, chairm an.
Mrs. K atherine P hilips Edson.
A. B. C. Dohrm ann.
A. Bonnheim .
W alter G. M atthewson.
H . A. Scheel, secretary.
Address of commission: San Francisco.
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Federal Reserve Bank of St. Louis
108
M O N T H L Y R E V IE W OE T H E B U R E A U O F LABO R S T A T IS T IC S .
Colorado.—State Wage Board (3 m em bers):
W. H . K istler, president.
Mrs. M artha Slothower.
Mary C. Porter.
Address of board: Capitol B uilding, Denver.
K ansas.—M inim um Wage Commission (3 m em bers):
P. J. McBride, chairm an.
John Craddock.
Mrs. G enevieve M. C halkley.
M assachusetts.—M inim um Wage Commission (3 commissioners):
Rev. R obert Bisbee, chairm an.
A rthur N. Holcombe.
Mabel Gillespie.
E. N athalie M atthews, secretary.
Address of commission: Rooms 720-721, New Albion B uilding, 1 Beacon Street
Boston.
M innesota.—M inim um Wage Commission (3 mem bers) :
W. F. H ouk, commissioner of labor, chairm an.
A. H. L indeke.
E liza P. Evans, secretary.
Address of commission: St. P aul.
N ebraska.—M inim um Wage Commission:
Not y et appointed.
Oregon.—Industrial W elfare Commission (3 mem bers) :
E dw in V. O’H ara, chairm an.
B ertha Moores.
Amedee M. Sm ith.
Miss Caroline J. Gleason, secretary.
Address of commission: 610 Commercial Block, P ortland.
U tah.—No board. Commissioner of im m igration, labor, and statistics charged with
enforcement of law.
W ashington.—Industrial W elfare Commission (5 m em bers):
Edw . W. Olson, commissioner of labor, chairm an.
Mrs. Jackson Silbaugh, secretary.
M. H. Marvin.
Mrs. Florence H . Swanson.
Mrs. W. H. U dall.
Address of commission: O lym pia.
W isconsin.—Industrial Commission (3 commissioners):
J. D. Beck, chairm an.
Fred M. Wilcox.
George P. Ilam brech t.
P. J. Watrous, secretary.
Address of commission : Madison.
WORKMEN’S COMPENSATION AND INSURANCE COMMISSIONS.
California.—In d u strial A ccident Commission (3 commissioners):
A. J. Pillsbury, chairm an.
W ill J. French.
H arris W einstock.
H . L. W hite, secretary.
Address of commission: Underwood B uilding, 525 M arket Street, San Francisco.
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Federal Reserve Bank of St. Louis
M O N T H L Y E E V IE W O F T H E B U R E A U O F L A B O R S T A T IS T IC S .
Colorado.—In d u strial Commission:
Gov. George A. Carlson, chairm an.
E. . E . M cLaughlin.
W*. C. Williams.
F. P. Lennon.
John E. Ram er, secretary of state, secretary ex officio.
Connecticut.—W orkm en’s Compensation Commission (5 commissioners):
Geo. E . Beers, chairm an, New H aven.
Edw ard T. Buckingham , secretary, Bridgeport.
George B. Chandler, 209 Pearl Street, H artford.
Dr. Jam es J. Donohue, W illim antic.
Frederic M. Williams, chairm an, W aterbury.
Illinois.—Industrial Board (3 m em bers):
J. B. Vaughn, chairm an.
P. J. Angsten.
R obert Eadie.
W. V. Conley, secretary.
Address of board: 1003-1004 City H all Square Building, Chicago.
Indiana.—Industrial B oard:
E . H . Perkins.
Chas. R. Hughes.
Samuel R. Artm an.
H . S. Landers, secretary.
Iowa.—-Iowa Industrial Commission:
W arren Garst, commissioner.
Address: Des Moines.
Maine.—Industrial A ccident Board:
E ben F. Littlefield, chairm an.
E . J. Carter.
R. G. E ddy.
Maryland.—Industrial A ccident Commission:
John B. H anna, chairm an.
Charles D. Wagaman.
Jambs Higgins.
Howard C. H ill, secretary.
Address: Baltim ore.
Massachusetts.—Industrial A ccident Board (5 mem bers):
F rank J. Donahue, chairm an.
D udley M. H olman.
D avid T. Dickinson.
Thomas F. Boyle.
Joseph A. Parks
R obert E . Granfield, secretary and executive officer.
Address of board: New Albion B uilding, 1 Beacon Street, Boston.
Michigan.—Industrial A ccident Board (3 m em bers):
John E . K innane, chairm an.
J. A. K ennedy.
Thos. B. Gloster.
G ilbert N. Dickson, secretary.
Address of board: O akland B uilding, Lansing.
Montana.—Industrial A ccident Board:
A. E . Spriggs, chairman.
W illiam K eating.
W. J. Sw indlehurst.
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Federal Reserve Bank of St. Louis
109
110
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 LABOR S T A T IS T IC S .
Nevada.—Industrial Commission (3 mem bers):
John J. M ullin, chairman.
H. A. Lemmon.
W illiam E. Wallace.
Address of commission : Carson City.
New Jersey.—Em ployers’ L iab ility Commission (6 m em bers):
Wm. B. Dickson, president.
Samuel Botterill.
J. Wm. Clark.
John T. Cosgrove.
W alter E . Edge.
Edw ard K. Mills.
Wm. E . Stubbs, secretary.
Address of commission: Trenton.
New York.—State In d u strial Commission:
John M itchell, chairm an.
Jas. M. Lynch.
Wm. H. H . Rogers.
Louis W iard.
Edw ard P. Lyons.
H enry D. Sayer, secretary.
Address of commission: Capitol B uilding, A lbany.
O hio.—Industrial Commission (3 commissioners):
W allace D. Y aple, chairm an.
H erbert L. E liot, vice chairm an.
T. J. Duffy.
George L. Stoughton, secretary.
Address of commission: Columbus.
Oklahoma.—Industrial Commission :
A. A. McDonald, chairm an.
W. C. Jackson.
W. L. Blessing.
Oregon.—State Indu strial A ccident Commission (3 commissioners):
Wm. A. Marshall, chairman.
H arvey Beckwith.
C. D. Babcock.
F. W. H insdale, secretary.
Address of commission: Salem:
Pennsylvania.—W orkm en’s Compensation Board:
H arry Mackey, chairm an.
J. W. Leech.
John A. Scott.
Texas.—Industrial A ccident Board (3 members) :
T. H . McGregor, chairm an.
H enderson Fowles.
J. H. Fricke.
W. R. Long, secretary.
Address of board: A ustin.
Vermont.—Industrial A ccident Board:
R obert W. Simonds, chairm an.
Sanford Daniels.
Fred T. Pease.
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Federal Reserve Bank of St. Louis
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 B O E S T A T IS T IC S .
I l l
W ashington.—Industrial Insurance Commission (3 commissioners):
Floyd L. Daggett, chairm an.
Clarence Parker.
Ambrose B. E rnst.
P. G ilbert, secretary.
Address of commission: Olym pia.
W est V irginia.—Compensation Commissioner:
Lee O tt, commissioner.
C. L. Topping, secretary.
W isconsin.—In d u strial Commission (3 commissioners):
J. D. Beck, chairm an.
Fred M. Wilcox.
George P. H am brecht.
P. J. W atrous, secretary.
Address of commission: Madison.
BUREAUS OF LABOR IN FOREIGN COUNTRIES.
Country.
N am e of bureau.
A rgentin a___ D epartam ento
del T rabajo.
A ustralia.
New South
W ales.
Q ueensland.
A ustria............
B elgium ..........
C anada............
O n ta rio ___
C hile................
D enm ark........
F in la n d ..........
F ran ce............
N acional
L a b o r an d In d u strial
B r a n c h (B ureau of
Census a n d Statistics,
D ep artm en t of H om e
Affairs).
D ep artm en t of L abor a n d
In d u stry .
Chief official.
Location of
bureau.
N e th erla n d s.. D irectie v an den Arbeid
(Departem ent van
L andbouw , N ijverheid
en H andel).
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
• Frequency
of issue.
P resid e n te .. B u e n o s
Aims.
Common
w ealth
S t a tistician.
Boletín del De- M onthly.
partam ent o
n a c i o n a l del
Trabajo.
M elbourne.. L a b o u r B u lle tin .. Q uarterly.
M inister of Sydney.
L abor and
In d u stry .
D epartm ent of L ab o r.......... D irector....... Brisbane.
K . K . A rbeitsstatistisehes V orstand . . . V ien n a...
A m t im H andelsm inis
terium .
Office d u Travail (M inis D i r e c t e u r Brussels.
General.
tère de l ’In d u strie et du
T ravail).
D ep artm en t of L a b o r......... M inister of O ttaw a.
Labor.
B ureau of L abor (D epart S e c re ta ry .. . Toronto.
m ent of Public W orks).
Oficina de E stad istica del Jefe................ Santiago___
Trabajo.
D irecktoratet for arbej ds, D ire k to r___ Copenhagen.
og fabriktilsynet.
In dustristyrelsen (Kejser- ........d o ........... H elsingfors..
liga Senaten).
Office d u Travail (Minis D ire c te u r... P a ris .............
tère d u T ravail et de la
Prévoyance Sociale).
G erm any........ A bteilung fur A rbeitersta
tistik , K aiserliches Sta
tistisches A m t (Minis
teriu m des Innern).
G reat B rita in . D ep artm en t of L abor Sta
tistics (B oard of Trade).
Greece............. D ivision of L abor and
Social W elfare (D epart
m e n t of I n d u s t r y )
(T m em a Ergasias K ai
Koinonkes Pronoias—
Upourgeio tes E th n ik es
Oikonomias).
I ta ly ................ Ufficio del Lavoro (Ministero d i A gricoltura, In
d u stria e Commercio).
M exico............ D epartam ento del Trabajo
Title of p ubli
cation .
P rä s id e n t. . .
Berlin.
D irecto r....... L ondon
New South W ales
In dustrial Ga
zette.
M onthly.
Soziale R undschau
Do.
■Revue d u T r a v a il.
Do.
Labour G a z e tte ...
Do.
B oletín de la Ofi
cina del Trabajo.
Do.
A r b e ts s ta tis tis k
T idskrift.
B ulletin d u Minis
tère d u Travail
et de la Prévoy
ance Sociale.
R eichsarbeitsblatt
B im onthly.
B oard of Trade
Labour Gazette.
Do.
M onthly.
Do.
Athens.
D irettore
Generale.
Directeur
Generaal.
R om e............ B o l l e t t i n o
dell’ Ufficio del
Lavoro.
Mexico C ity. B oletín del D e
partam ento del
Trabajo.
The Hague.
Monthly,
s e m im o n th ly .
M onthly.
Do.
112
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 .
B u r e a u s o f la b o r i n f o r e ig n c o u n tr ie s —Concluded.
Name of bureau.
C ountry.
Chief official.
Location of
bureau.
W ellington.. Journal of the M onthly.
D epartm ent of
Labour.
C h ristia n ia.. Sociale Meddelelser B im onthly.
New Zealand
Department of Labor.
M inister of
Labor.
N orw ay ........
Socialavdelingen
(Dep artem en tet for Sociale
Saker, H andel, In d u stri
og fiskeri).
D irek to r___
P e ru ..............
Porto R ic o ..
Portu g al.......
R o u m a n ia..
S erv ia..........
(])
............................
Negociado del T rabajo........ Jefe.
Repartk;ao do trabalho in
d u strial (Direccao geral
do eomrécio e indùstria)
M inistério do fomento.
( 2)
............................
Section for I n d u s t r y ,
Trade, and Social Legis
lation (M inistry of Po
litical Econom y) (Minista r N arodne Privrede).
South A frica.. ( 3) ............................
Spain............. . In s titu to de Reformas
Sociales.
D o .......... .
Sw eden..........
Sw itzerland. .
U ru g u a y ------
In te rn a tio n a l.
San Ju an
L isb o n ...
T itle of p u b li
cation.
Frequency
of issue.
B o letín .................... Irregular.
B oletim do Tra
Do.
balho Industrial.
Sofia.
S e c r e tario
General.
M ad rid .
B oletín del In s ti
tu to de Refor
m as Sociales.
Direccion General de Com Director.
........d o . .
B oletín Oficial de
mercio, In d u stria y
Commercio, In
Trabajo.
dustria y T ra
bajo.
K . K . Socialstyrelsen......... D irek to r___ Stockholm .. Sociala Meddelanden.
Secretariat O uvrier Suisse Secretaire. . . Z u rich ..........
(semiofficial).
Oficina del T r a b a j o
M ontevideo. B oletín de la Ofi
(Ministero de Industrias,
cina del Trabajo.
Trabajo e Instrucción
Publica).
In tern atio n al L abor Office. Director.
Basel, Sw it B u lle tin ..................
zerland.
M onthly.
Do.
Do.
Q uarterly.
Irregular.
1 Special labor division in the police d ep artm en t created in 1913, b u t its scope of investigation, etc., lim ited
to th e cities of L im a and Callao.
2 A general m in istry of commerce and in d u stry .
3 O nly a p u b lic em ploym ent office (labor dep artm en t) in th e m in istry of mines a nd indu stry .
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