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DEPARTMENT OF COMMERCE AND LABOR BUREAU OF LABOR CHAS. P. NEILL, Commissioner STATISTICS OF UNEMPLOYMENT AND THE WORK OF EMPLOYMENT OFFICES BULLETIN OF THE UNITED STATES BUREAU OF LABOR WHOLE NUMBER 109 MISCELLANEOUS SERIES No. 1 OCTOBER 15, 1912 WASHINGTON GOVERNMENT PRINTING OFFICE 1913 CONTENTS. Page. Introduction......................................... ............................................................ 5, 6 Statistics of unemployment...................... ...... ................................................. 6-34 United States census.................................................................................. 6-11 Report on cost of living by the United States Bureau of Labor................. 11-13 Unemployment of organized labor in New York....................................... 13-23 Unemployment of organized labor in Massachusetts.................................. 23-25 Statistics from the American Federationist................................................ 25,26 Census of unemployed in Rhode Island in 1908......................................... 26, 27 Unemployment in coal mines, as shown by reports of United States Geo logical Survey.......................................................................................... 27-29 Comparison of statistical data.................................................................... 29-34 Distribution of labor........................................................................................ 34-140 Free public employment offices.................................................................35,36 Private employment offices......................................................................... 36,37 Other agencies............................................................................................ 37-39 Indiana...................................................................................................... 39-46 State free employment office............................................................... 39-42 Private employment offices................................................................ 42-44 Free employment bureau of employers’ association............................44,45 Other agencies for the distribution of labor......................................... 45,46 Illinois........................................................................................................46-61 State free employment offices............................................................. 46-53 Private employment offices.................................................................53-58 Other agencies for the distribution of labor......................................... 58-61 Massachusetts.............................................................................................. 62-78 State free employment offices............................................................. 62-72 Labor supply and demand as indicated by reports of free employment offices............................................................................................... 72-74 Private employment offices................................................................. 74-77 Other agencies in Boston.................................................................... 77,78 Michigan..................................................................................................... 78-91 State free employment offices............................................................. 78-86 Employers’ association of Detroit........................................................ 86,87 Private employment offices in Detroit................................................ 88 Young Men’s Christian Association employment office........................ 89, 90 Other agencies in Detroit engaged in the distribution of labor............ 90,91 Minnesota................................................................................................. 91-101 State free employment offices............................. '...............................91-98 Private employment offices in Minneapolis....................................... 98-100 Other agencies in Minneapolis engaged in the distribution of labor. 100,101 New Y ork ............................................................................................... 101-117 State free employment office............................................................... 101 Private employment offices............................................................. 101-107 Division of Information of the Federal Bureau of Immigration and Naturalization.............................................................................. 108,109 Bureau of information and statistics of the New York Department of Agriculture....................................................................................... 110 National Employment Exchange..................................................... 110-113 3 4 CONTENTS. Distribution of labor—Concluded. New York—Concluded. Page. Employment bureaus of the Young Men’s Christian Association___113-115 Other philanthropic agencies............................................................ 115-117 Other agencies for distributing immigrants.................................. .. 117 Rhode Island.......................................................................................... 118-120 State free employment office............................................................118-120 120 Other employment agencies............................................................. Other States having free public employment offices............................... 121-140 California.......................................................................................... 121,122 Colorado............................................................................................ 122,123 Connecticut....................................................................................... 123-125 Kansas.............................................................................................. 125,126 Maryland.......................................................................................... 127-129 Missouri............................................................................................ 130,131 Montana............................................................................................ 131 Nebraska.......................................................................................... 131 New Jersey....................................................................................... 131,132 Ohio................................................................................................. 132-134 Oklahoma........................................................................................ 135,136 Washington....................................................................................... 136,137 West Virginia................................................................................... 137 Wisconsin.........................................................................................137-140 BULLETIN OF THE UNITED STATES w h o l e n o . 109 . BUREAU OF WASHINGTON. LABOR. o c t o b e r 15, 1912 . STATISTICS OF UNEMPLOYMENT AND THE WORK OF EMPLOYMENT OFFICES. BY FRANK B. SARGENT. INTRODUCTION. This article enumerates such statistics as are available upon the subject o f unemployment in the United States, presents these sta tistics in part, describes the methods o f obtaining them, and discusses their value and comparability. It then proceeds to a consideration o f one o f the remedies for unemployment, that o f the distribution of labor by means of employment agencies, and describes the activities of such agencies in various States. A full discussion o f remedies for unemployment would require a classification of the unemployed and an analysis of the causes of idle ness in each class. No satisfactory classification is possible from a statistical standpoint, however, and as a discussion o f remedies is not contemplated, no classification o f the unemployed is attempted. The nature o f this report does not demand a reconciliation of the various definitions of the term “ unemployment,” nor does it permit, on account o f the varied meaning o f the term in the statistics pre sented, the formulation of a hard and fast definition to which the dis cussion will conform throughout. It is important, however, to keep in mind the significance o f the term in each set of statistics on the sub ject, as its varied meaning may easily lead to confusion. For instance, the percentage o f unemployment among organized workers in Eng land has sometimes been compared with similar reports for the State of New York. Yet the New York reports include as unemployed mem bers o f labor unions idle from all causes, while the English reports include only those who are idle through inability to obtain work. 5 6 BULLETIN OF THE BUREAU OF LABOR. To avoid confusion o f this character care is taken in the presentation of each set of statistics in this report to set forth the exact meaning of “ unemployment ” or “ the unemployed ” as used therein. It may be briefly said that the subject of unemployment has re ceived but a limited amount of attention in the United States, and that such statistics as have been gathered concerning it must be con sidered with very careful limitations, both as to their reliability and the inferences which may be drawn from them. To the frequent question as to the amount of unemployment in this country the reply must be that the statistics do not make possible any estimate of the number of unemployed persons in the United States at any time. STATISTICS OF UNEMPLOYMENT. The sources of statistical information concerning the amount of unemployment in the United States during recent years are the fol lowing, which will be discussed in the order given: 1. The United States census reports. 2. A report on the cost o f living contained in the Eighteenth An nual Report of the Commissioner o f Labor. 3. Reports of unemployment among organized workmen in New York and in Massachusetts, issued by the department of labor in New York and the bureau o f statistics in Massachusetts. 4. Reports of unemployment among organized workmen, by the American Federationist. 5. State census o f the unemployed in Rhode Island in 1908. 6. Reports of the Geological Survey, showing the days of enforced idleness in coal mines in the United States. UNITED STATES CENSUS. The statistics on unemployment furnished by the United States census reports are very meager, and are presented with careful warn ing by the Bureau of the Census as to their reliability. Inquiries con cerning unemployment were first made in the census o f 1880, but the results were not compiled on account of lack of funds and also because the census officials doubted the reliability of the returns. In 1890 and 1900 inquiries as to unemployment were again made, and the results appear in the census reports for those years. The census returns deal only with persons 10 years o f age and over who are ordinarily en gaged in gainful labor. They do not indicate what proportion of the population is habitually out of work on account of incapacity, unwill ingness to work, or constant inability to find work. In the census o f 1890 inquiry was made as to the number o f months unemployed at usual or regular occupation, and the number of months unemployed at any occupation. The returns on the second UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 7 question were not considered complete enough to warrant their compilation, but the answers concerning the usual or principal occu pation were tabulated. The 1890 census report states, therefore, that the figures presented “ show the number and approximate length of time unemployed with regard to the principal occupation in which persons so reported were usually engaged and upon which they de pended for a livelihood. They do not show the actual length of time for which they were unemployed in any form o f remunerative labor.” 1 The 1900 census report states, however, that although the returns tabulated and published in 1890 are presumably the answer to the first question, so much confusion existed in the minds o f enu merators concerning the second that it is probable that the published statistics actually represent a combination of answers to both ques tions.2 In the census of 1900, on the other hand, the inquiry concerning unemployment aimed only “ to find out the number of months or parts o f months during which a person ordinarily engaged in gain ful labor was not employed at all.” 3 The number not employed at all at some time during the year would be less than the number not employed at their usual occupations. Yet the percentage reported unemployed in 1900 exceeded that so reported in 1890. According to the census o f 1890, 15.1 per cent o f all persons having gainful occupations were not employed at such occupations at some time during the year. In 1900, 22.3 per cent o f such persons were re ported as not working at their regular occupations or any other occu pations at some time during the census year. The census report observes that the apparent increase in unem ployment in 1900 affects all classes to about the same extent and states that it is probably due to improvements in the work o f enu merators. The report explains that the form o f the schedule was superior in 1900 and that the 1900 instructions to enumerators were plainer, briefer, and more direct. Furthermore, the confusion inci dent to two similar questions on the same subject was avoided in 1900. For these reasons and because o f a general improvement in census returns, it is concluded that the 1900 report is the more accurate. A t the same time the report states that while further census inquiry may obtain complete and satisfactory information concerning months unemployed, the reliability o f the returns so far secured is still undetermined.4 The following table shows by sexes and by classes of occupations the number and per cent reported unemployed in 1890 and 1900: 1 Eleventh Census o f the United States, 18 90: Population, Pt. II, p. cxxxvi. 2 T w elfth Census o f the United States, 19 00: Occupations, p. ccxxvii. 8 Idem, p. cclii. 4 Idem, p. ccxxv. 8 BULLETIN OF THE BUREAU OF LABOR. NUMBER OF PERSONS IN EACH M AIN CLASS OF OCCUPATIONS UNEMPLOYED DURING ANY PORTION OF TH E CENSUS YEAR COMPARED W IT H TH E TOTAL NUMBER SO OCCUPIED, FOR BOTH SEXES AND FOR EACH SEX SEPARATELY, 1890 AND 1900. [From Twelfth Census of the United States, 1900: Occupations, p. ccxxviii.] Males 10 years of age and over engaged in gainful occupations. Census year and classes of occu pations. Unemployed. Total. 1890. Agricultural pur suits.................... Professional serv ice....................... Domestic and per sonal service....... Trade and trans portation............ Manufacturing and mechanical pur suits.................... Females 10 years of age and over engaged in gainful occupations. Per Number. cent. Unemployed. Total. Per Number. cent. 8,378,603 911,456 10.9 769,845 108,749 14.1 632,646 54,654 8.6 311,687 87,920 28.2 2,553,161 668,503 26.2 1,667,651 130,769 3,097,701 247,757 228,421 4,650,540 1,130,747 All occupations. 19,312,651 3,013,117 19.5 13.5 1900. Agricultural pur suits.................... Professional serv ice....................... Domestic and per sonal service....... Trade and trans portation............ Manufacturing and mechanical pur suits.................... Persons 10 years of age and over engaged in gainful occupations. Unemployed Total. Per Number. cent. 9,148,448 1,020,205 11.2 944,333 142,574 15.1 7.8 4,220,812 799,272 18.9 15,114 6.6 3,326,122 262,871 7.9 24.3 1,027,928 168,061 16.3 5,678,468 1,298,808 22.9 15.6 4,005,532 510,613 12.7 23,318,183 3,523,730 15.1 977,336 313,886 32.1 10,381,765 2,144,689 20.7 430,597 219,019 50.9 1,258,538 330,566 26.3 3,485,208 1,209,787 34.7 2,095,449 358,334 17.1 5,580,657 1,568,121 28.1 4,263,617 10.4 503,347 55,907 11.1 4,766,964 10.5 28.3 1,312,668 294,346 22.4 7,085,309 1,925,403 27.2 22.0 5,319,397 1,241,492 23.3 29,073,233 6,468,964 22.3 9,404,429 1,830,803 827,941 111,547 444,278 5,7*72,641 1,631,057 All occupations. 23,753,836 j5,227,472 8.0 500,185 The following table classifies the persons reported unemployed in 1900, according to the months of unemployment, and also by sex and classes of occupations: UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 9 DISTRIBU TION , B Y PERIODS OF MONTHS, OF M ALES AND OF FEM ALES IN EACH M AIN CLASS OF OCCUPATIONS UNEMPLOYED DURING T H E CENSUS YEAR, 1900. [From Twelfth Census of the United States, 1900: Occupations, p. ccxxxv.] Persons unemployed— Classes of occupations. 1 to 3 months. 4 to 6 months. 7 to 12 months. Total. Per Number. Per Number. Per Per Number. cent. cent. Number. cent. cent. MALES. Agricultural pursuits.......................... Professional service............................. Domestic and personal service........... Trade and transportation................... Manufacturing and mechanical pur suits.................................................. 956,554 47,679 562,981 215,082 810,840 All occupations.......................... 2,593,136 52.3 42.7 46.5 48.4 729,476 44,294 510,424 158,606 49.7 39.8 39.7 42.2 35.7 144,773 19,574 136,382 70,590 7.9 1,830,803 17.6* 111,547 11.3 1,209,787 15.9 444,278 100 100 100 100 626,746 38.4 193,471 11.9 1,631,057 100 49.6 2,009,546 39.6 564,790 10.8 5,227,472 100 48.8 50.7 42.2 39.3 142,109 70,395 149,284 19,517 45.3 32.1 41.7 34.9 18,645 37,697 57,717 14,434 5.9 17.2 16.1 25.8 313,886 219,019 358,334 55,907 100 100 100 100 14.6 294,346 100 13.8 1,241.492 100 FEMALES. Agricultural pursuits.......................... Professional service............................. Domestic and personal service........... Trade and transportation................... Manufacturing and mechanical pur suits.................................................. 153,132 110,927 151,333 21,956 147,269 50.0 104,074 35.4 43,003 All occupations.......................... 584,617 47.1 485,379 39.1 171,496 The two tables above, so far as they relate to the returns for 1900, are briefly summarized in the census report as follows: “ It appears that approximately four persons out of five who claimed gainful occupations were continuously employed throughout the census year, while the fifth person was idle for a period varying from one to 12 months.” 1 O f the persons reported idle, 22.3 per cent of all ordinarily employed, nearly half were out of work three months or less, and nearly 80 per cent o f the remainder were unemployed from four to six months. O f the males 10.8 per cent and o f the females 13.8 per cent were unemployed seven months or more. The agricultural pursuits represent the largest proportion of unemployment for the short period o f one to three months, and the smallest proportion for the longest period designated in the table. The reason is obvious and is due to the small amount of farm labor done in the winter months. The table indicates that nearly 2,600,000 males and over half a million females were out of work from one to three months; that over 2,000,000 males and nearly half a million females were out o f work four to six months; and that over half a million males were out seven months or over. There is no means of knowing what per cent o f these persons were idle from choice and what per cent wanted work and were unable to secure it. The tables include all persons 10 years of age and over ordinarily employed and so include many children attending school part of the year. 1 Tw elfth Census o f the United States, 1900: Occupations, p. ccxxxiv. 10 BULLETIN OF THE BUREAU OF LABOB. Those idle one to three months constituted 10.9 per cent of all per sons ordinarily employed; those idle four to six months constituted 8.8 per cent; and those idle seven to twelve months, 2.5 per cent. The Census of Manufactures also furnishes data which may be considered in a study of unemployment. The number of persons employed each month during the census year in each manufacturing industry and in all such industries combined is shown in the census reports. The fluctuations in the monthly demand for workers in manufacturing do not show how many are unemployed during any month, as they may find work in other lines. These fluctuations do show, however, the discontinuous demand for labor, and are valuable on this account. The Census o f Manufactures of 1905 shows that the manufacturing industries employed more persons in October than in any other month of the census year. The number employed in October does not indicate the total persons seeking a livelihood from manufactures, as some workers were necessarily unemployed during the month on account of sickness, disability, or strikes, and probably some were unable to obtain work. For the purpose of comparison, however, the following table, which shows the number of persons employed in all manufacturing industries combined during each month of the census year (1904), assumes that all such workers were employed in October, and computes the number and per cent apparently unem ployed in each of the other months. The per cent unemployed each month was obtained by dividing the number apparently idle by the maximum number in the industry, the number at work in October, and suggests only how much other months exceeded October in the amount o f unemployment. The table follows: NUMBER EM PLOYED IN M ANUFACTURES EACH MONTH IN 1904 W IT H T H E NUMBER AND PER CENT OF TH E M AXIM UM NUMBER FOR TH E Y EAR NOT SO EM PLOYED DURING EACH MONTH. [From Special Reports of the Census Office: Manufactures, Part 1 ,1905, p. 72.] Months. January... February. March....... April......... May.......... June......... July.......... August___ September October... November. December. Per cent Number Number unem unem employed. ployed. ployed. 263.000 331.000 451.000 496.000 516.000 468.000 328.000 425.000 611.000 678.000 587.000 491.000 415,000 347,000 227,000 182,000 162,000 210,000 350,000 253,000 67,000 7.3 6.1 4.0 3.2 2.9 3.7 6.2 4.5 1.2 91,000 177,000 1.6 3.1 As the table indicates, 415,000 workers engaged in manufacturing in October, 1904, had not been so engaged the previous January, This was 7.3 per cent of the number at work in October. In Feb ruary and July over 6 per cent o f the October workers were not UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 11 engaged in manufacturing. As January, February, and July are months o f high unemployment in industries other than manufactur ing, it is not probable that many o f those thrown out o f manufac turing find other work. For this reason the table may be regarded as a fairly accurate index o f the amount o f unemployment due to the inability of manufacturing workers to find work. Information as to monthly variations in the number employed in manufacturing is also published by the bureaus of labor in several States. REPORT ON COST OE LIVING BY THE UNITED STATES BUREAU OE LABOR. In 1901 the United States Bureau of Labor conducted an investiga tion into the cost of living of 25,440 workingmen’s families, represent ing 124,108 persons, distributed over 33 States. The investigation was limited to families o f wageworkers and of persons on salaries not exceeding $1,200 per year.1 The data obtained were gath ered by the experienced special agents o f the Bureau by personal in quiry, the information being given generally by the housewife, who was often assisted by other members o f the family. For nearly every family this information covered a year ending some time in the calendar year 1901. In a few cases the year covered ended in the latter part o f 1900 or the early part o f 1902. Among other sub jects, inquiry was made as to the amount o f nonemployment during the year o f the head o f each family visited. The answers obtained were verified or corrected by data given concerning earnings, in come, and expenditure, so that the information may be regarded as reliable. In the report of this investigation in the Eighteenth An nual Report of the Commissioner of Labor the tables relating to nonemployment include 24,402 of the 25,440 families investigated. Those families in which the husband did not work at all during the year are omitted. In this respect the data are placed on the same basis as those above discussed in the census reports, from which per sons not ordinarily engaged in gainful occupations are excluded. In comparing the amount of idleness indicated by the two reports, how ever, it should be remembered that the investigation made by the Bureau o f Labor, including, as it did, inquiry concerning total earn ings and expenditures, necessarily took notice of brief periods of idleness. The census inquiry, on the other hand, asked the number o f months unemployed, and short periods of idleness may easily have been disregarded. Furthermore, the census inquiry may have been interpreted to ask the number of months the worker was “ out o f a job ” and to disregard short periods of voluntary absence from a per manent position. Such idleness may be termed nonemployment as distinguished from unemployment, and is included in the Bureau of Labor statistics. 1 Eighteenth Annual Report o f the Commissioner o f Labor, 1908, pp. 15, 16. 12 BULLETIN OF THE BUREAU OF LABOR. The data obtained by the Bureau of Labor in 1901, although not recent, may be taken as indicative of the amount of nonemployment during a normal year. The statistics of unemployment o f the New York department of labor, which will be considered later, indicate that the year was not unusual with respect to the amount o f idleness, and that in at least two years since that date— 1904 and 1908—the percentage idle was greater than in 1901. The 1901 data may there fore be taken as fairly representative. The following table shows, by States and geographical divisions, the number and per cent of the heads of families who were not idle during the year, and the number and per cent who were idle during some portion of the year, with the average number of weeks of idleness : NUMBER AND PE R CENT OF HEADS OF F A M ILIE S IN V E STIG A TE D B Y UNITED STATES BUREAU OF LABOR IN 1901 NOT IDLE DURING T H E Y EAR, AND NUM BER AND PER CENT IDLE DURING SOME PORTION OF TH E YEAR, W IT H TH E AVERAGE NUMBER OF W EEKS IDLE, BY STATES. [From Eighteenth Annual Report of the Commissioner of Labor, 1903, pp. 42, 286, and 287.] Per cent of heads of families. Heads of families. States. Total idle and not idle. Number Number Average weeks Not idle. not idle. idle. idle. 14 273 Alabama....................................................... 322 132 California...................................................... 106 84 Colorado....................................................... Connecticut.................................................. 325 457 92 98 Delaware...................................................... 49 District of Columbia.................................... 51 149 106 Georgia......................................................... 854 750 Illinois.......................................................... ................................... 178 385 147 157 Iowa.............................................................. TTftnsajg.................................... 144 49 116 178 Kentucky..................................................... 32 148 Louisiana..................................................... 204 142 Maine............................................................ Maryland..................................................... 246 316 1,951 Massachusetts.............................................. 619 310 558 Michigan....................................................... 234 163 Minnesota.................................................... 515 259 Missouri........................................................ 202 97 New Hampshire.......................................... 493 483 New Jersey.................................................. 1,871 2,399 New York.................................................... 124 69 North Carolina............................................. 1,129 657 Ohio.............................................................. 2,023 1,507 Pennsylvania............................................... 296 149 Rhode Island............................................... 51 145 South Carolina............................................. 36 154 Tennessee..................................................... 86 98 Texas............................................................ 221 135 Virginia........................................................ 41 148 W ashington................................................. 142 56 West Virginia.............................................. 421 256 Wisconsin.................................................... 9.85 11.94 10.95 9.85 7.03 9.47 10.08 11.52 7.09 9.87 9.86 8.28 12.37 7.99 10.67 8.33 8.64 5.78 10.02 9.57 10.45 10.08 5.99 8.37 9.77 5.97 8.99 6.69 8.43 8.24 10.17 7.92 7.04 287 454 190 782 190 100 255 1,604 563 304 193 294 180 346 562 2,570 868 397 774 299 976 4.270 193 1,786 3,530 445 196 190 184 356 189 198 677 Idle. 4.88 70.93 55.79 41.56 48.42 51.00 58.43 53.24 31.62 48.36 74.61 39.46 17.78 58.96 43.77 75.91 35.71 41.06 66.5-1 67.56 50.51 43.82 64.25 63.21 42.69 33.48 26.02 18.95 46.74 62.08 78.31 28.28 37.81 95.12 29.07 44.21 58.44 51.58 49.00 41.57 46.76 68.38 51.64 25.39 60.54 82.22 41.04 56.23 24.09 64.29 58.94 33.46 32.44 49.49 56.18 35.75 36.79 57.31 66.52 73.98 81.05 53.26 37.92 21.69 71.72 62.19 Total- - ............................................... 12,248 12,154 9.43 24,402 50.19 49.81 North Atlantic States................................. South Atlantic States................................. North Central States................................... South Central States................................... Western States............................................. 6,702 990 3,696 284 576 6,516 1,060 3,470 851 257 9.59 9.01 8.83 9.22 11.33 13,218 2,050 7,166 1,135 833 50.70 48.29 51.58 25.02 69.15 49.30 61.71 48.42 74.98 30.85 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 13 This table indicates that approximately half o f the 24,402 heads of families visited during this investigation were idle a portion o f the year. In Alabama 95.12 per cent o f these men did not work all the year, in Louisiana 82.22 per cent, and in South Carolina 73.98 per cent. In the South Central States combined 74.98 per cent were un employed a part o f the year. The lowest percentage, 30.85, was in the Western States, and the State o f Washington had the lowest propor tion o f heads o f families idle, 21.69 per cent. The total number o f heads o f families idle some portion o f the year was 12,154 and these persons were idle an average of 9.43 weeks. In Louisiana, 148 out o f 180 heads o f families were idle an average o f 12.37 weeks, or about one-fourth of the year. In the Western States, where the per cent o f idleness was lowest, the average number of weeks o f idleness is highest, 11.33 per cent. The tables in this report also show the number and per cent idle and not idle, by nativity, and the causes o f idleness in each industry. UNEMPLOYMENT OF ORGANIZED LABOR IN NEW YORK. The department o f labor o f the State of New York has published data showing the extent o f unemployment among organized workers in that State for a continuous period extending from March, 1897, to the present time. These statistics, it must be kept in mind, are o f two classes—those furnished by selected unions and those furnished by all unions in the State. The former are received every month and the latter at the end o f the first and third quarters o f each year. The returns from the selected unions, which are considered the more accurate, will be discussed first. These unions number slightly less than 200 and they have a membership o f 90,000 to 100,000, or about one-fourth o f the total organized laborers in New York. The aim in their selection is to maintain as nearly as possible the same pro portionate representation of different industries as appears in the total o f all unions. The secretary of each o f these unions reports monthly the membership o f his union, the number at work, and the number idle on the last working day of the month, and the causes o f idleness. The following schedule is used: 14 BULLETIN OF THE BUREAU OF LABOR. S chedu le used by S elected U n io n s M onth report for t h e m o n t h in in R e p o r t in g New Y on U nem ploym ent each ork. o f __________________________________ Number of members in the union at the end of the month? il?Ten [Women__________ Men___ _______ Women_________ { How many members were idle at the end of the month on account o f : Men. Lack of work-------------------------------------------------Lack of material______________________________ Unfavorable weather__________________________ Strike or lockout______________________________ Sickness, accident, old age-------------------------------Other reasons (specify)----------------------------------- -------------_________ _________ _________ --------------------------- Women. -------------_______ _________ _________ --------------------------- Total number idle at the end of the month. Occupation of members_______________________ Name of organization!________________________ Signature of secretary____ Address. The chief points to be observed in the above schedule are that inquiry is made as to the number at work and idle at the end of the month and not during the month, and that the information is fur nished by the secretary o f the union. “ End of the month ” is de fined in a letter accompanying the schedule as “ the last working day o f the month.” I f it appears from the schedule that persons reported as idle at the end of the month were taking a vacation, such individuals are dropped both from the number idle and the number reporting. Inasmuch as the unions selected for monthly reports ordinarily have more intelligent secretaries than the average union, the sched ules are usually well filled out. Each schedule is carefully examined by expert clerks in the department and if errors are apparent it is returned for correction. This does not obviate all chance of error, but no futher verification o f the returns is considered practicable. Monthly returns from selected unions, beginning with December, 1901, have been received by the department, and the following table shows the number o f unions reporting since that date, the aggregate membership reporting, and the number and percentage reported idle at the end o f each month: UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 15 STATE OF EMPLOYMENT OF ORGANIZED L A BO R IN NEW Y O R K , AS R E P O R T E D B Y REPRESEN TATIVE TR AD E UNIONS, 1901 TO 1911. [From New York Department o f Labor B ulletins.] Years. Month. 1901.......................................................................... December... 1902........................ ................................................. January....... February... June............ July............. August........ September.. October....... November.. December... 1903.......................................................................... January....... February... March.......... April............ May............. June............ July............. August........ September.. October....... November.. December... 1904.......................................................................... January February... March.......... April........... May............ June............ July............ August........ September.. October....... November.. December... 1905.......................................................................... January....... February... March.......... April........... May............ June............ August........ September.. October....... November.. December... 1906......................................................................... January...... February... April............ May............. June............ July............. August........ September.. October....... November... December... 1907.......................................................................... January....... February... April........... May............. June............ July............. August........ September.. October....... November... December... Idle at end of month. Number Aggregate of unions member ship re . report porting. Aggregate ing. number. Per cent. 188 187 187 187 187 187 187 187 185 185 185 185 185 185 184 184 184 184 184 184 184 184 184 184 184 184 182 181 182 182 180 176 189 198 199 199 199 199 198 196 193 193 191 192 192 192 192 192 192 191 190 192 192 192 192 195 195 195 195 195 195 191 191 191 191 191 191 194 193 193 194 194 194 97,270 96,173 97,126 96,888 98,740 97,148 98,020 101,223 101,281 98,349 97,951 98,063 99,063 102,414 101,226 100,540 98,574 100,134 100,484 105,202 104,445 105,952 101,159 100,200 100,879 100,602 104,074 103,681 95,501 96,187 96,476 96,824 96,772 99,652 98,167 95,938 96,075 97,345 96,641 97,151 91,913 92,649 93,729 92,916 93.860 94,836 91,088 91,521 91,767 84,539 85,155 85,956 90,352 91,163 92,100 94,571 94,220 94,280 92,062 93,049 93,318 92,871 92,797 93,242 94,402 94,755 95,840 100,965 100,025 98,224 99,121 98,068 97,732 18,593 20,115 18,148 16,738 15,099 13,591 14,247 15,836 7,148 6,166 10,966 13,985 22,036 20,955 18,066 17,699 17,071 20,210 23,215 18,759 16,101 9,956 11,802 16,395 23,301 26,004 22,460 28,124 16,198 15,262 13,263 14,317 13,231 12,001 10,620 10,644 18,847 21,886 18,748 18,618 10,825 7,687 8,557 7,417 6,789 5,636 5,079 5,576 10,223 12,682 13,031 9,952 6,583 6,364 5,801 7,229 5,462 5,959 6,383 7,052 14,352 20,007 18,653 17,018 9,563 9,955 7,809 8,585 12,135 12,089 18,296 21,596 31,917 19.1 20.9 18.7 17.3 15.3 14.0 14.5 15.6 7.1 6.3 11.2 14.3 22.2 20.5 17.8 17.6 17.3 20.2 23.1 17.8 15.4 9.4 11.7 16.4 23.1 25.8 21.6 27.1 17.0 15.9 13.7 14.8 13.7 12.0 10.8 11.1 19.6 22.5 19.4 19.2 11.8 8.3 9.1 8.0 7.2 5.9 5.6 6.1 11.1 15.0 15.3 11.6 7.3 7.0 6.3 7.6 5.8 6.3 6.9 7.6 15.4 21.5 20.1 18.3 10.1 10.5 8.1 8.5 12.1 12.3 18.5 22.0 32.7 16 BULLETIN OF THE BUREAU OF LABOR. STATE OF EM PLOYMENT OF ORGANIZED LABOR IN NEW YORK, AS REPORTED BY R E PR E SE N TA TIV E TR AD E UNIONS, 1901 TO 1911— Concluded. Years. Month. 1908.......................................................................... January....... February... August........ September.. October....... November.. December... 1909.......................................................................... January....... February... August........ September.. October....... November.. December... 1910.......................................................................... January....... February... June............ August........ September.. October....... November.. December... 1911......................................................................... January___ February. . . March......... A p ril.......... June............ August....... September.. O ctober___ November.. December . Idle at end of month. Number Aggregate of unions member report ship re porting. Aggregate ing. number. Percent. 192 192 192 192 192 192 193 193 193 193 193 193 192 192 192 192 192 192 190 190 190 190 190 190 193 193 193 193 193 193 192 192 192 192 192 192 190 190 190 190 190 189 188 188 188 188 188 188 96,727 95,696 94,542 94,148 93,532 92,814 92,112 90,872 90,708 89,275 89,426 88,746 88,604 89,396 90,619 89,039 89,241 89,227 89,551 90,429 90,783 91,247 91,977 91,162 90,998 91,944 95,388 96,074 97,358 100,418 103,875 111,730 114,365 114,147 116,581 118,317 120,859 120,235 121,828 120,877 121,132 121,237 116,801 118,445 119,724 118,007 117,826 115,430 35,684 35,924 35,436 31,956 30,152 28,013 24,693 22,389 22,315 20,631 19,232 24,879 25,964 23,727 20,836 18,042 15,228 15,503 12,459 10,799 13,171 12,468 12,206 18,791 22,253 20,610 21,524 15,413 14,121 15,497 20,172 24,967 14,262 17,122 20,378 32,304 32,312 29,804 31,187 25,798 32,996 27,793 18,128 13,879 13,350 13,657 23,620 39,530 36.9 37.5 37.5 33.9 32.2 30.2 26.8 24.6 24.6 23.1 21.5 28.0 29.3 26.5 23.0 20.3 17.1 17.4 13.9 11.9 14.5 13.7 13.3 20.6 24.5 22.4 22.6 16.0 14.5 15.4 19.4 22.3 12.5 15.0 17.5 27.3 26.7 24.8 25.6 21.3 27.2 22.9 15.5 11.7 11.2 11.6 20.0 34.2 The table indicates that the percentage of idleness at the end of the month in the selected unions reporting each month was ordi narily over 10 per cent from 1902 to 1905 and that during 1904 it did not fall below 10 per cent for any month. Several winter months during the period, and also in May and June o f 1903, it ran over 20 per cent. A period o f high unemployment seems to have begun about May, 1903, when 20 per cent of the union workers covered by the table were idle, as against 14 per cent the preceding May, and, to have extended well toward the end of 1904, reaching its highest point in March, 1904, at which time 27.1 per cent o f the union workers in selected unions wTere idle. The percentage idle during the UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 17 winter o f 1904-5 was lower than during the preceding winter, and in May, 1905, the percentage of idleness fell below 10 per cent and remained below that mark, except in the winter months, until the end o f 1906. Even during the winter of 1905-6 the percentage o f un employment was no greater than in the spring and summer months o f 1904. In the early part of 1907 the amount o f unemployment as here reported was somewhat higher than in the preceding year, and in August, more than two months before the outbreak o f the panic of 1907, the beginning of a second period of high unemployment is clearly shown. A t the end o f this month 12 out of every 100 union men covered by the table were idle, as against less than 6 in August, 1906. The percentage of idleness rose rapidly, reaching its highest point, 37.5 per cent, in February and March, 1908. Thus the table indicates that during the period covered by it union labor in New York experienced two periods o f high unemployment, one in 1903 and 1904 and one beginning in 1907 and extending through 1908 and into 1909. Between these two periods there was a period o f low unemployment. From the middle o f 1909 to near the end o f 1911 the percentage o f idleness was lower than during the industrial depres sion, but was as high as during the first period o f high unemploy ment shown by the table in 1903-4. The statistics relating to the unemployment of all organized work ers in the State as distinguished from those which concern selected unions only are o f three classes, as follow s: 1. Number and percentage of all organized workers idle on the last working day of the first and third quarters o f each year. 2. Number and percentage idle throughout the first and third quarters o f each year. 3. Number o f members who worked each specified number o f days during the quarter. The supplying of this information by all unions is made compul sory by law, but it has very seldom been found necessary to use the compulsory feature. About one-third of the unions supply the infor mation by mail, a higher percentage being received in this manner from outside o f New York City than from the city itself. Unions not returning schedules are visited by special agents o f the depart ment o f labor, and the desired information is obtained by personal interviews. Schedules apparently inaccurate are also corrected by personal visits. The information is always obtained from the secre tary or other officer of the union, and no attempt is made to verify his statements. It is considered probable that the reports received through special agents are more accurate than those made by the secretaries o f the unions, except where the secretaries are above the ordinary intelligence and particularly interested in making the re662690—Bull. 109—13----- 2 18 BULLETIN OF THE BUREAU OF LABOR. port. Not all reports can be collected in this manner, however, because of the expense involved. None of the monthly reports from selected unions above considered are collected or verified by personal visits. Quarterly returns from all unions in the State were received from March, 1897, to September, 1901, since which time they have been received for only two quarters of each year. The following table, compiled from reports of the department, shows the number o f union members and the number and per cent idle on the last working-day of each quarter reported: STATE OF EMPLOYMENT OF ORGANIZED LABOR IN NEW Y O R K AS R E PO RTED B Y A LL UNIONS IN THE STATE FROM 1897 TO 1911. {From New York Department of Labor Bulletins.] ! Years, 1897. 1900.. 1901. 1902.. 1903.. 1904.. 1905. 1906.. 1907.. 1908.. 1909.. 1910.. 1911. Aggre gate Quarter end member ing— ship re porting. March........ June.......... September. December.. March........ June.......... September. December.. March........ June........... September. December.. March........ June.......... September. December.. March........ June.......... September. March........ September. March........ September. March........ September. March........ September. March........ September. March........ September. March........ September. March........ September. March........ September. March....... September. 142,570 179,955 174,751 173,516 188,455 202,004 212,844 221,917 239,691 237,157 223,642 228,327 245.492 268,573 270,855 321,082 347.492 369,093 368,522 373,022 363,155 375,107 377,283 376,355 404,027 405,114 387,450 358,756 353,035 359,787 389,501 462,466 475.890 467,825 Idle on last work ing day of quar ter. Number. Percent. 43,654 27,378 23,230 39,353 38,857 35,643 22,485 46,603 31,751 20,141 9,590 41,707 44,336 49,382 31,460 49,110 42,244 29,181 18,617 36,710 18,377 41,941 33,063 101,886 36,605 54,916 17,903 37,237 21,573 77,269 42,653 138,131 80,576 74,543 36,968 62,851 63,106 96,608 50,390 30.6 18.1 13.8 22.6 21.0 20.7 10.3 26.7 18.3 10.7 4.7 19.6 20.0 20.6 13.3 22.0 18.5 11.9 6.9 13.6 5.7 12.1 9.0 27.6 9.8 15.1 4.8 9.9 5.7 19.1 10.5 35.7 22.5 21.1 10.3 16.1 13.6 20.3 10.8 This table, it should be remembered, relates to all union workers in the State, who on September 30,1911, numbered 467,825, belonging to 2,498 different unions. The table indicates that the percentage idle in March has ordinarily greatly exceeded the percentage idle in Sep tember. The reports for 1897 to 1901 show that the per cent unem ployed was generally higher in March and December than in June and September, and that in June o f these years a higher percentage were idle than in September. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 19 The amount o f unemployment reported at the beginning of the period covered by the table was very high, and during the four years, from 1897 to 1900, the reported percentage of unemployment fell below 10 per cent only once. From 1901 to 1906 it was below 10 per cent at the end of each September and it was above that mark at the end o f March, except in 1906. Since September, 1906, it has not fallen below 10 per cent. In September, 1903, March, 1904, and September, 1904, a period of high unemployment as compared with 1902, 1905, and 1906 may be noted. The same period has been ob served in the preceding table relating to selected unions, as has the succeeding period of low unemployment. The financial panic of 1907-8 brought the percentage of unemployment in all unions to 35.7 in March, 1908. The amount o f idleness fell during 1909, but was higher in 1909,1910, and 1911 than in the latter part o f 1904 or in 1905 or 1906. The following table compares the returns from all unions and from selected unions at the end o f March and at the end o f September of each year: NUMBER AND PERCENTAGE OF MEMBERS OF LABO R UNIONS IDLE IN THE STATE OF NEW Y O R K AT END OF MARCH AND SEPTEM BER, 1897 TO 1911. [From New York Department of Labor Bulletins.] Idle at the end of March. Years. 1897............................................................... 1898............................................................... 1899............................................................... 1900............................................................... 1901............................................................... 1902............................................................... 1903............................................................... 1904............................................................... 1905............................................................... 1906............................................................... 1907............................................................... 1908............................................................... 1909............................................................... 1910............................................................... 1911............................................................... 1 Idle at the end of September. Percent Percent Number Percent age in Number Percent age in age in all represent in all in all age in all represent ative unions. unions. unions. unions. ative unions. unions. 43,654 38,857 31,751 44,336 42,244 36,710 41,941 101,886 54,916 37,237 77,269 138,131 74,543 62,851 96,608 30.6 21.0 18.3 20.0 18.5 13.6 12.1 27.6 15.1 9.9 19.1 35.7 21.1 16.1 20.3 17.3 17.6 27.1 19.2 11.6 18.3 37.5 23.0 22.6 25.6 23,230 22,485 9,590 31,460 18,617 18,377 33,063 36,605 17,903 21,573 42,658 80,576 36,968 63,106 50,390 13.8 10.3 4.7 13.3 6.9 5.7 9.0 9.8 4.8 5.7 10.5 22.5 10.3 13.6 10.8 6.3 9.4 12.0 5.9 6.3 12.3 24.6 14.5 12.5 11.2 The higher percentage idle in March than in September is note worthy, as is also the fact that the selected unions nearly always show a higher percentage o f idleness than do all unions. This may indicate that these unions are not strictly representative; and again, the higher percentage may be due to the more nearly accurate reports of selected unions. 20 BULLETIN OF THE BUREAU OF LABOR. The accuracy of the above returns can not be considered as entirely above question. The information is furnished by the secretaries of the unions, voluntarily in the case o f the selected unions, and through requirement o f the law in the case o f all unions. The compulsory feature is kept in the background, however, and probably does not affect the accuracy o f returns. The authenticity of the reports de pends upon the knowledge the union secretary has o f his men and his care in making reports. When out-of-work benefits are paid, the number unemployed is positively known to the union secretary, but very few unions pay such benefits. In small unions also the secre tary is likely to know how many men are idle on a given day, but in a large union he can only estimate the number and in very large unions guess at it. Individual slips to be filled out by each member are furnished by the department o f labor if desired, but practically no use is made o f them. Nevertheless, union officials who were inter viewed were unanimous in their belief that the returns are accurate. They take the position that the secretary o f a union is always well informed concerning the employment of the members o f the union and that he is usually careful in preparing the reports. In the opin ion o f the chief statistician o f the New York department o f labor the reports from selected unions are reliable and fairly accurate. He doubts the accuracy o f the reports from some o f the unions. As above stated, the New York reports show not only the number reported idle on the last day of March and September by all unions in the State, but also the number reported idle throughout the quarter and the number o f days worked by each member. This information, if reliable, would be o f far greater value than the reports of the num ber idle on a given day. Authentic information o f this character, however, could be obtained only from the individual union members. The union secretary can only guess at the truth, particularly in the case o f large unions. The chief statistician o f the New York depart ment o f labor does not regard these returns as more than approximat ing the numerical truth as to unemployment, but he believes the errors to be compensatory to some degree, and that the figures are o f value, not as a measure o f unemployment, but as an index o f the trend of employment from year to year. The following table shows the percentage reported continuously idle during the entire quarter for the first and third quarters o f each year from 1897 to 1911: UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 21 PERCENTAGE OF MEMBERS OF LA BO R UNIONS ID LE THROUGHOUT THE QU ARTER SPECIFIED IN THE STATE OF N EW Y O R K AS R E PO RT E D B Y THE SECRETARIES OF A L L UNIONS IN THE STATE, 1897 TO 1911. [From New York Department of Labor Bulletin 47, p. 204, and Bulletin 49, p. 473.] During first quarter. During third quarter. Years. Number. Per cent. Number. Per cent. 1897.................................................................................................. 1898.................................................................................................. 1899.................................................................................................. 1900.................................................................................................. 1901.................................................................................................. 1902.................................................................................................. 1903.................................................................................................. 1904.................................................................................................. 1905.................................................................................................. 1906....................................................; ....................................... 1907........................................................................................... ............... 1908...................................... ................... 1909.................................................. 1910.................................................................................................. 1911................................................................................................. 35,381 18,102 22,658 22,895 26,841 16,776 19,310 55,710 31,638 22,746 55,624 101,466 50,477 28,411 46,021 24.8 10.1 13.1 10.1 11.3 6.2 5.5 14.6 8.7 6.5 13.8 26.3 14.3 7.3 9.8 10,893 9,734 4,790 12,926 8,341 6,291 12,670 9,175 7,491 7,354 10,490 46,117 15,823 15,485 12,725 6.5 5.7 2.3 5.4 3.1 1.9 3.3 2.4 2.0 1.9 2.5 12.8 4.4 3.3 2.7 This table indicates that the lowest percentage o f unemployment among organized workers in New York during the first three months o f any year covered by the table was in 1903, when 5.5 per cent were idle throughout the quarter. In 1908, 26.3 per cent were reported out o f work during these three months, and in 1897, 24.8 per cent. The proportion idle during the entire first quarter exceeded 10 per cent in 9 o f the 15 years reported upon. The proportion o f idle ness during the third quarter—July, August, and September—was much lower. It reached 12.8 per cent in 1908, but was over 5 per cent in only three other years, 1897,1898, and 1900. The smallest per centage o f unemployment during this quarter was 1.9 per cent in 1902 and 1906. The table shows the same periods o f high and low unemployment which have been indicated by the two preceding tables. As the idle ness during the fourth quarter is not reported, the high unemploy ment at the end o f 1903 and o f 1907 is not shown, although the be ginning o f the 1903-4 period is indicated by the comparatively high percentage idle throughout the third quarter o f 1903. This table also indicates a large amount o f idleness during the third quarter o f 1900, and it corroborates the preceding table by showing high unemployment in 1897. The following tables include persons employed a part or all o f the quarter specified and show for the first and third quarters o f each year from 1904 to 1911 the percentage o f such workmen reported as working each specified number of days: 22 BULLETIN OF THE BUREAU OF LABOR. PER CENT OF ORGANIZED W AGE EARN ERS (M ALES) W ITHIN CERTAIN LPMITS OF EMPLOYMENT IN FIRST Q U A R TER OF THE Y E A R , NEW Y O R K , 1904 TO 1911. [From New York Department of Labor Bulletin No. 41, p. 118, and Bulletin No. 47, p. 208.] Percentage. Duration of employment. Number, 1911 1904 1905 1906 1907 1908 1909 1910 1911 1 to 29 d a y s......................... 18,662 30 to 59 d a y s........................ 80,714 60 to 79 d a y s ....................... 217,270 80 days or over.................... 62,171 6.9 24.8 52.1 16.2 5.5 23.3 56.5 14.7 1.9 11.0 72.4 14.7 4.2 19.3 59.5 17.0 7.2 25.5 48.5 18.8 5.4 21.1 54.6 18.9 4.7 19.4 57.7 18.2 4.9 21.3 57.4 16.4 Total........................... 378,817 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 PER CENT OF ORGANIZED W AGE EARNERS (MALES) W ITHIN CERTAIN LIMITS OF EMPLOYMENT IN THIRD QUARTER OF THE Y E A R , NEW Y O R K , 1904 TO 1911. [From New York Department of Labor Bulletin No. 43, p. 16, and Bulletin No. 49, p. 477.] | Duration of employment. Number,1 1911 Percentage. 1904 1905 1906 1907 1908 1909 1910 1911 1 to 29 days.......................... 10,880 30 to 59 days)....................... 64,915 60 to 79 days........................ 266,671 80 days or over.................... 66,625 4.0 15.3 63.5 17.2 1.0 7.8 76.5 14.7 0.8 9.8 74.4 15.0 1.0 11.8 69.4 17.8 5.0 24.5 53.4 17.1 1.3 13.7 66.2 18.8 14.3 14.1 55.1 16.5 2.6 15.9 65.2 16.3 Total........................... 409,091 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Here, as in all other tables presented, the large amount of unem ployment in the first quarter is in evidence, as is the high percentage o f unemployment in 1904 and 1908. Those at work a month or less during the first quarter constituted over 4 per cent of all workers employed each year, except one, included in the table; and in 1908 they were 7.2 per cent. In the third quarter this group was approxi mately 1 per cent in four of the years, but reached 4 per cent in 1904, 5 in 1908, and over 14 in 1910. The very low percentage working 60 to 79 days in each quarter in 1904 and 1908 is striking when contrasted with the corresponding percentages in other years. Still more striking is the fact that the percentage working 80 days or over during a quarter in these years was greater than in 1905 and 1906, when the aggregate amount of unemployment was low. It may be repeated that the information as to the amount of unemployment during the first and third quarters, as distinguished from the amount at the end of those periods as reported by all unions, and from the amount at the end of each month as reported by selected unions, is not more than an approximation of the numerical truth. The information is not obtained monthly from the selected unions, because of the great doubt as to its accuracy. The large number of unions reporting the amount of idleness throughout UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 23 the quarter, however, makes it fairly probable, in the opinion of the officials o f the New York department o f labor, that the errors in reports by individual unions are largely compensated by errors by other unions, and that the combined returns, although not indicating exactly the amount o f idleness, show the general trend of unem ployment from year to year. UNEMPLOYMENT OF ORGANIZED LABOR IN MASSACHUSETTS. Beginning with March, 1908, the Massachusetts bureau of statistics has also obtained statistics o f unemployment of organized labor. The information gathered in Massachusetts differs from that above conv sidered in the State o f New York in the following respects: 1. Monthly returns are not received from any union. 2. The filing of returns is not compulsory upon the unions, and therefore not all unions are covered by the reports. 3. Quarterly returns are received for each quarter and not for the first and third quarters only. 4. Inquiry is not made as to the number idle throughout the quarter, nor as to the number o f days each member was idle. 5. A ll o f the information is received by mail, whereas in New York some is gathered by special agents. Like the New York returns, the Massachusetts data show the amount o f unemployment on a given day, and therefore the statistics of the two States are comparable in this respect. In New York the number and percentage idle at the end o f each month in the selected unions, and at the end of March and September in all unions, is shown. In Massachusetts the returns show the number idle at the end o f each quarter in the unions reporting. In both States the information is received from the secretaries o f unions. Although the return of the schedules in Massachusetts is not compulsory, re turns are now received from about 66 per cent o f all unions, repre senting, it is estimated, 67 per cent o f the aggregate membership o f all unions in the State. The schedules received are examined in the bureau and compared with previous reports from the same unions. I f they appear to be incorrect they are returned for correction. Beyond this no verifica tion is attempted. The following table shows the number of unions reporting, their membership, and the number and percentage idle at the end of each quarter from March, 1908, to December, 1911: 24 BULLETIN OF THE BUREAU OF LABOR. NUMBER AND MEMBERSHIP OF LABOR ORGANIZATIONS REPORTING AND NUMBER OF MEMBERS AND PERCENTAGE OF MEMBERSHIP IDLE A T END OF QUARTERS SPECIFIED, MASSACHUSETTS, 1908 TO 1911. [From Massachusetts Bureau of Statistics Labor Bulletin No. 79, p. 1, and No. 89, p. 2.] Number reporting. Idle at end of quarter. Quarter ending— Unions. Members. Members. Percent ages. Mar. 31,1908................................................................................. June 30,1908................................................................................... Sept. 30, 1908................................................................................... Dec. 31,1908.................................................................................... Mar. 31,1909................................................................................... June 30,1909................................................................................... Sept. 30,1909................................................................................... Dec. 31,1909.................................................................................... Mar. 31,1910................................................................................... June 30,1910................................................................................... Sept. 30,1910...................................................................................1 Dec. 31,1910................................................................................... 1 Mar. 31,1911................................................................................... June 30,1911................................................................................... Sept. 30,1911..................................................................................1 Dec. 30,1911................................................................................... I 256 493 651 770 777 780 797 830 837 841 845 862 889 897 975 905 66,968 72,815 83,969 102,941 105,059 105,944 113,464 107,689 117,082 121,849 118,781 122,621 122,002 135,202 133,540 125,484 11,987 10,490 8,918 14,345 11,997 6,736 5,451 10,084 8,262 8.518 6,624 12,517 12,738 8,927 7,527 12,167 17.90 14.41 10.62 13.94 11.42 6.36 4.80 9.36 7.06 6.99 5.58 10.21 10.44 6.60 5.64 9.70 Concerning the value of these statistics, the same comment must be made as in connection with the New York returns. Inasmuch as they are received from the secretaries of unions, and not directly from the workers themselves, they can not be accurate. A union secretary can not know positively what members were idle on the 30th day of a given month, particularly in a large union, and his report must there fore be an estimate and sometimes only a guess. There is doubtless a strong tendency to overstate the number of unemployed in times of industrial depression, and perhaps to understate it in periods of pros perity. In the opinion of the statisticians of the Massachusetts bureau, however, the reports received are fairly accurate. I f not numerically correct at a given time, they show with reasonable accuracy the fluctuations in the demand for labor, and for this infor mation alone are of great value. The further question arises as to whether the per cent idle among organized workers in Massachusetts and New York can be taken as an indication of the amount of unemployment in industry as a whole in those States. No answer to the question can be made. The usual conclusion is that union men capable of performing high-grade skilled labor are much more likely to be employed than unskilled workmen, and that therefore the percentage idle among union men is much lower than among industrial workers as a whole. Another view is presented by an English writer on unemployment as follows: It is by no means axiomatic that the proportion of unemployment is lower amongst skilled men as a whole than amongst unskilled, or amongst trade-unionists than among nonunionists. The skilled man holds out for a job in his own particular line, the unskilled man will UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 25 take anything he can do. The unionist will rather be unemployed than work below his rate * * *; the nonunionist more readily adjusts himself to a falling market.1 Although written with reference to the situation in England, the argument is not without point. The New York and Massachusetts returns can not be used to estimate unemployment among industrial workers as a whole in those States. The figures are valuable only for the field covered by them. This is the position taken by the officials of both the New York and Massachusetts bureaus. STATISTICS FROM THE AMERICAN EEDERATIONIST. Data concerning the amount of unemployment among organized workers from 1899 to 1909 have been published by the American Fed erationist, the official organ of the American Federation o f Labor. These data were received from such union secretaries as voluntarily made reports in all parts o f the United States. The following table shows the per cent of organized workers reported by the American Federationist as unemployed each month beginning with October, 1902. It also shows the maximum and minimum numbers reported upon each year: PERCENTAGE OF UNEMPLOYMENT AMONG ORGANIZED W ORKERS REPORTING TO THE AMERICAN FEDERATION IST, B Y MONTHS, 1902 TO 1909. [From American Federationist, August, 1909.] Months. 1902 1903 1904 6.4 7.3 1.4 4.2 1.3 5.1 1.6 3.2 1.5 1.2 3.9 2.1 1905 6.3 6.1 3.8 1.3 1906 1907 1908 1909 January..................... February................... March........................ April.......................... Mav........................... tr“ v • • • • • .............................. June........................... July........................... August....................... September................. October...................... November................. December.................. 6.9 1.8 1.3 Smallest number re porting.................... Largest number re porting................... 83,277 36,293 44,870 41,148 28,300 26,680 42,700 56,418 133,354 135,626 115,406 154,118 165,671 131,050 134,720 139,836 6.1 3.7 2.1 1.8 5.3 2.5 3.3 2.1 2.1 1.2 4.2 1.1 2.2 2.0 5.8 3.7 .9 1.2 1.3 7.8 4.6 1.9 2.3 .9 1.5 1.4 1.8 3.2 .8 1.8 4.1 2.3 3.2 1.3 .5 1.7 .2 1.7 5.8 2.2 1.4 2.3 1.2 8.8 8.2 8.6 6.6 7.1 4.1 6.4 9.6 8.4 6.9 6.8 6.2 9.8 7.4 8.6 5.6 6.7 5.3 5.7 5.6 4.8 1.2 It is noteworthy that the amount of unemployment as here re ported has at no time, even during the industrial depression o f 1907-8, reached 10 per cent, and several times it has gone below 1 per cent. Unemployment was reported for the end of the month and therefore the returns should be comparable with those in New York and Massachusetts. The comparatively small number of workmen covered by the re turns to the Federationist, the great variation in the number reported 1 W. H. Beveridge, Unemployment, a Problem o f Industry, p. 21. 26 BULLETIN OF THE BUREAU OF LABOR. upon, and the lack of information as to the industries included affect the value of the Federationist’s figures. Their chief value lies in their suggestion that the New York returns may not be repre sentative of organized labor throughout the country in the amount o f unemployment shown. The publication o f data on unemployment has been discontinued by the American Federationist, because, in the opinion o f the editor, the returns were so meager as to be of uncertain value. CENSUS OE UNEMPLOYED IN RHODE ISLAND IN 1908. In March, 1908, a census of the unemployed was taken in Rhode Island. This was during the industrial depression and therefore its results show only temporary abnormal conditions and indicate nothing as to the amount of unemployment in the State ordinarily. The aim o f the census was to enumerate the breadwinners who were usually at work, but who were entirely without employment. Care was taken to avoid enumerating those who were habitually unem ployed. A house-to-house canvass of the entire State was impossible because the census was to be taken in a single week, but such a canvass was made in the five cities of the State by the police depart ment, and the occupation and sex, but not the names, of the unem ployed were ascertained. As the country and village districts could not be canvassed in the short time allowed for the census, the per cent o f unemployed found in the cities was applied to the total wage earners o f the State in order to determine the total number of un employed. The f o l lo A v in g statement shows the result o f this census: 1 POLICE CENSUS OF UNEMPLOYED IN RHODE ISLAND, IN MARCH, 1908. * Number of wage earners in State---------------------------------------------------- 234,040 Number of wage earners in cities---------------------------------------------------- 157,921 Number of wage earners outside of cities__________________________ 76,119 Number of unemployed wage earners in cities_______________________ 12,355 Per cent of unemployed wage earners in cities_____________________ 7.8 Number of unemployed wage earners outside of cities________________ 5,937 Total unemployed wage earners in State______________________ 18,292 There were found to be 12,355 unemployed wage earners in the five cities o f Rhode Island, which was 7.8 per cent o f the estimated num ber o f wage earners in those cities. The estimated number o f un employed in the State was 18,292. The estimated total number of wage earners was based on the census of 1905. It should be remem bered that by the unemployed in the above table is meant those usually at work and that the census aimed to measure only the effects o f the industrial depression. 1 Twenty-second Report o f Industrial Statistics, Rhode Island, 1908, p. 19. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 27 At the time the census was taken inquiry was made of all manu facturing establishments in the State and other representative estab lishments as to the number employed February 28, 1907, and Feb ruary 28,1908. From the returns received the decrease in the number o f persons employed in the State was found to be 19,121, which veri fies to a remarkable degree the census of the unemployed taken by the police. The census was, however, subjected to severe criticism and its accuracy has been questioned. The canvass, it was charged, was not thorough. The method of enumeration, the short time allowed for it, and its performance by officers having other duties, it was claimed, made accurate results impossible. The term “ unemployed” was strictly construed, and men doing a few hours’ relief work provided by charity organizations were counted as employed. It was con tended, therefore, that the census did not show the full extent o f unemployment in the State. Naturally, the census could take no account o f the number working on short time, which was the usual method o f curtailment in the State o f Khode Island in 1908. UNEMPLOYMENT IN COAL MINES, AS SHOWN BY REPORTS OF UNITED STATES GEOLOGICAL SURVEY. Evidence o f a different character from that above considered is fur nished by the reports o f the United States Geological Survey concern ing the amount o f unemployment in coal mines. This information, except where some other well-established agency already exists by which the statistics are collected accurately, is obtained directly from the producers. The reports show the average number o f days which the coal mines o f each State and of the United States operate during the year. These numbers represent the maximum possible employ ment o f coal miners in the mines, but they do not show the amount of unemployment from causes other than lack o f work. Neither do they show the amount of idleness due to operation for only a part o f a day. The following table shows the average number of days worked by employees in coal mines in the United States from 1890 to 1908, and in 1910, also the number and per cent o f days idle, assuming 300 working-days each year: 28 BULLETIN OF THE BTJBEAU OF LABOB. EMPLOYMENT OF COAL MINERS IN TH E U N ITED STATES, 1890 TO 1908, AND IN 1910. IFrom United States Geological Survey: Mineral Resources of the United States, Vol. 11,1910, p.42.J Number of days active. Years. Days idle.1 Anthracite. Anthra cite. 1890............................................................... 1891............................................................... 1892.............................................................. 1893............................................................... 1894............................................................... 1895............................................................... 1896............................................................... 1897............................................................... 1898............................................................... 1899............................................................... 1900.............................................................. 1901.............................................................. 1902............................................................... 1903....................................................... 1904............................................................... 1905............................................................ 1906.............................................................. 1907.............................................................. 1908............................................................... 1910............................................................... 200 203 198 197 190 196 174 150 152 173 166 196 116 206 200 215 195 220 200 229 Bitumi nous. 226 223 219 204 171 194 192 196 211 234 234 225 230 225 202 211 213 234 193 217 j Bituminous. Number. Percent. Number. Percent. 100 97 102 103 110 104 126 150 148 127 134 104 184 94 100 85 105 80 100 71 33.3 32.3 34.0 34.3 36.7 34.7 42.0 50.0 49.3 42.3 44.7 34.7 61.3 31.3 33.3 28.3 35.0 26.7 33.3 23.7 74 77 81 96 129 106 108 104 89 66 66 75 70 75 98 89 87 66 107 83 24.7 25.7 27.0 32.0 43.0 35.3 36.0 34.7 29.7 22.0 22.0 25.0 23.3 25.0 32.7 29.7 29.0 22.0 35.7 27.7 1 The table assumes 300 working-days in the year. It may be observed that the number of days worked by employees in anthracite mines has varied from 116 in 1902, the year of the great coal strike, to 229 in 1910. In bituminous mines the variation has been from 171 in 1894 to 234 in 1899, 1900, and 1907. During the best years coal mines are idle about one-fourth of the time, and both anthracite and bituminous mines have often averaged less than 200 days each year. The amount of enforced idleness has varied, there fore, on the assumption that there are 300 working days in the year, from 22.0 to 43.0 per cent o f the working time of employees annually in the bituminous mines, and from 23.7 to 50 per cent, disregarding the year 1902, in anthracite mines. This is a much higher percentage of unemployment than has been reported in other industries and from other sources, as above presented. At the same time it should be re membered that the unemployment here shown in the coal-mining industry is only that due to lack of work. Unemployment due to sickness, accidents, or other causes is not .shown. Similar data concerning the coal mines in Illinois are shown in the Illinois coal reports. The following table is from the United States Geological Survey and shows the average days of operation of coal mines in each State from 1904 to 1908, and in 1910: UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 29 DAYS OF OPERATION OF COAL MINES IN EACH STATE DURING EACH Y E A R FROM 1904 TO 1908, AND IN 1910. [From United States Geological Survey: Mineral Resources of the United States, Vol. II, 1908, p. 39, and Vol. II, 1910, p. 41.] States. 1904 1905 1906 1907 1908 1910 Alabama...................................................... Arkansas . . . ___ _ - - .................... ........ California..................................................... Colorado...................................................... Georgia........................................................ Trisha ., „ __________ ________ Illinois____________________ - ■.......................... Indian a «__ Iow a ............................................................ Kansas......................................................... Kentucky.................................................... Maryland.................................................... Michigan..................................................... Missouri........................................................ Montana...................................................... New M exico................................................ North Dakota............................................. O h io............................................................. Oklahoma................................................ Oregon..................................................... Pennsylvania (bituminous)....................... Tennessee.................................................... T exas........................................................... U tah............................................................ Virginia....................................................... Washington................................................. West Virginia............................................. W yom ing.................................................... 216 165 1282 261 2 223 3 112 213 177 213 213 197 226 183 206 243 228 192 175 199 149 196 217 220 294 238 243 197 262 225 177 J 294 255 2 266 3 107 201 151 209 212 200 252 186 194 243 234 187 176 188 242 231 222 238 247 241 227 209 236 237 165 1253 268 279 3 157 192 175 224 165 212 250 173 185 243 242 209 167 166 224 231 229 227 288 250 266 220 281 242 190 1 187 258 262 4 121 218 197 230 225 210 263 234 214 268 269 223 199 216 231 255 232 242 258 241 273 230 275 222 145 1 220 212 261 160 185 174 214 181 186 220 207 169 224 197 181 161 172 249 201 209 254 227 200 202 185 217 249 128 189 236 265 200 160 229 218 148 221 270 211 154 239 283 207 203 144 257 238 225 234 260 241 256 228 248 Total bituminous.............................. Pennsylvania (anthracite).......................... 202 200 211 215 213 195 234 220 193 200 217 229 Grand total....................................... 202 212 209 231 195 220 ^Includes Alaska. * Includes North Carolina. 8Includes Nevada. 4Includes Nebraska and Nevada. COMPARISON OF STATISTICAL DATA. A comparison o f the various sets of data above presented does not assist materially in determining the accuracy of any. The New York reports on the number idle at the end of each month in certain unions and at the end o f the first and third quarters in all unions differ from the Massachusetts reports only in the percentage o f unions reporting. Yet the tables show a much higher precentage o f unemployment in New York than in Massachusetts. In fact, the percentage reported idle on the last working day o f each quarter in Massachusetts is ordi narily lower than the percentage reported idle throughout the same quarter in New York. The American Federationist’s figures, which also relate to union labor and were reported in the same manner as those for New York and Massachusetts—by union secretaries—but which cover only a small and varying percentage o f unions in various States, show a much lower percentage o f unemployment than do the Massachusetts reports. The high percentage of unemployment among organized workers in New York is unexplained. The only explanation offered is the importance which the returns from seasonal trades assume in the reported figures. The building trades include more than one-fourth 30 BULLETIN OF THE BUREAU OF LABOR. of all union men in the State, and the clothing trades are also of greater importance than in Massachusetts. In the building trades 30 to 50 per cent are frequently idle in the winter months, and in the clothing trades a high proportion at dull seasons. As already ob served, neither the Massachusetts nor the New York returns are com parable with the figures on unemployment in England, because the latter exclude unemployment due to sickness, disability, or strikes. The census figures for 1900 furnish no basis for comparison with the New York returns for the same year. The New York returns relate to union labor only while the census reports cover all persons ordinarily engaged in gainful occupations. This fact alone would not invalidate comparison were the two sets of data on the same basis. The census, however, reports the number and percentage who were unemployed at some time during the year, while the New York sta tistics show those idle on a certain day, or throughout a quarter. It is interesting to note, however, as the above tables indicate, that the percentage reported as unemployed at some time during the census year, 22.3, is closely approached by the percentage o f union laborers reported idle in New York on the last day of December, 1899, the last day o f March, 1900, and the last day o f June, 1900. The percentage o f all workers unemployed from one to three months during the en tire census year, as reported by the 1900 census, 10.9 per cent, was slightly higher, and the percentage unemployed from four to six months, 8.8 per cent, was only slightly lower than the percentage o f union workers, 10.1 per cent, reported idle in New York throughout the first quarter o f 1900. The Bureau o f Labor returns for 1901 show a higher percentage o f nonemployment than does the census of 1900. This may be due in part to the fact that the former relate to the heads o f families only, and in part to the methods o f enumeration, very brief periods of idleness appearing in the Bureau of Labor report. The Bureau o f Labor reported 38.9 per cent of the heads o f families investigated as idle 13 weeks or less, while the census reported in 1900 that 10.9 per cent o f persons gainfully employed were idle from one to three months. With this high percentage of nonemployment reported by the Bureau of Labor when compared with the census returns, it is interesting to observe that the percentage of union workers reported idle throughout the first quarter of 1901 in New York was 11.3, while the percentage reported by the Bureau o f Labor as idle 13 weeks or over during the year was only 13.2 per cent of the heads o f families visited. Seasonal fluctuations in the demand for labor are well brought out by the New York and Massachusetts statistics. As already noted, the quarterly returns in New York show a high percentage o f un employment both during and at the end o f the first quarter. They UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 31 show a lower percentage o f unemployment for the third quarter o f each year. The New York returns prior to 1901 and the Massachu setts returns add evidence of a high percentage o f unemployment at the end o f the fourth quarter o f the year, which is supported by the monthly returns from selected unions in New York. The monthly returns in New York also show violent fluctuations in the amount o f unemployment from month to month. A more striking phenomenon brought out by the New York sta tistics is the return at fairly regular intervals of periods o f high unemployment. These periods have already been mentioned in the discussion o f the various tables relating to union labor in New York. The statistics furnish unmistakable evidence of high unemployment in the latter part o f 1903 and in 1904, and of very high unemploy ment in the latter part of 1907 and in 1908, with an intervening pe riod of low unemployment. Since 1908 there has been a falling off in the percentage o f unemployment in both New York and Massachu setts. Prior to 1903 the periods of high and low unemployment are not so marked as since that date, but the statistics suggest that in 1897 and in 1900 unemployment was greater than in the intervening years, although the evidence is insufficient to warrant positive con clusions. While there are no statistics of unemployment earlier than 1897, there was, there can be no doubt, a large amount o f unemploy ment in 1893. It appears, therefore, that at least among union work ers in New York there are cyclical as well as seasonal fluctuations in the amount o f unemployment and that periods o f high unemploy ment occur at intervals o f four years or a little less. The statistics have not been gathered for a sufficient time to establish absolutely that these cyclical fluctuations are likely to occur, but the data forcibly suggest that such is the case. Whether or not the New York data are sufficient to establish the probability that periods o f high unemployment will recur every four years or thereabouts, they do clearly establish that the amount o f un employment is by no means constant, but that it varies from month to month, from season to season, and from year to year. This fact is most instructive in view o f the assertion sometimes made that the unemployment question in the United States is unim portant; that all desiring work in this country can obtain it; and that those who are idle, although able to work, are idle from choice. Were it true that the unemployment o f able-bodied persons is due solely or largely to laziness, the amount o f unemployment would, it is obvious, remain fairly constant. Not many more persons are sick or disabled or lazy in winter than in summer, and certainly no more in 1904 and in 1908 than in the intervening years. Yet among union workers in New York and Massachusetts two or three times as many are idle at the end o f March as at the end o f September 32 BULLETIN OF THE BUREAU OF LABOR. each year; and in New York only about half as many were idle in 1905 as in 1904, with a still lower percentage in 1'906. In 1908 nearly four times as many were reported idle as in 1906 on the last days o f both March and September. In September, 1905, only 4.8 per cent o f all union workers in New York were reported idle. In March, 1906, the percentage was twice as great. By March, 1907, it had doubled again, and by March, 1908, it had nearly doubled again. Clearly incapacity or laziness, or both combined, do not vary to the extent thus indicated. The weather is doubtless an important factor in causing seasonal fluctuations, but can not account for variations from year to year. Labor disputes, the New York statistics show, were, a more important factor in years of low unemployment than in other years. It becomes obvious, therefore, that the great changes in the amount o f unemployment are due primarily to variations in the demand for labor. Industry needs more workers in September than in March, and it needed more in 1905,1906, and 1907 than in 1904 and 1908. This leads to a brief presentation o f statistics on the causes o f un employment. The two following tables show the causes of idleness among organized labor in New York at the end o f March and the end o f September o f each year from 1906 to 1911: CAUSES OF IDLENESS AMONG ORGANIZED W O R K E RS IN N EW Y O R K A T THE END OF MARCH, 1907 TO 1911. [From New York Department of Labor Bulletin No. 51, p. 103.] Number. Per cent. Causes. 1907 1908 Lack of work........... 52,031 123,706 576 Lack of stock........... 1,819 8,064 Weather................... 15,472 3,970 1,573 Labor disputes......... 3,811 Disability................. 3,563 274 315 Other reasons.......... 127 100 Reason not stated... T otal.............. 77,270 138,131 1909 1910 1911 1907 1908 1909 1910 1911 60,585 42,010 804 2,667 7,890 7,329 1,498 6,864 3,467 3,838 151 56 148 87 79,866 548 8,544 3,289 3,752 450 159 67.3 2.4 20.0 5.2 4.6 .4 .1 89.6 .4 5.8 1.1 2.8 6.2 .1 81.3 1.1 10.6 2.0 4.6 .2 .2 66.8 4.2 11.7 10.9 6.1 .1 .2 82.7 .6 8.8 3.4 3.9 .4 .2 74,543 96,608 100.0 100.0 100.0 100.0 100.0 62,811 CAUSES OF IDLENESS AMONG ORGANIZED W O R K E RS IN NEW YO R K A T TH E END OF SEPTEM BER, 1907 TO 1911. [From New York Department of Labor Bulletin No. 49, p. 474.] Number. Per cent. Causes. 1907 1908 1909 1910 1911 1907 1908 1909 1910 1911 Lack of work............ 29,301 Lack of stock .......... 1,752 W eather................... 569 Labor disputes......... 6,916 Disability................. 3,442 343 Other reasons........... 233 Reason not stated... 71,532 2,043 500 2,288 3,082 466 665 27,225 39,307 2,517 2,450 894 163 2,867 17,646 3,000 3,216 175 181 290 143 39,959 680 493 5,699 3,336 128 95 68.9 4.1 1.3 16.3 8.1 .8 .5 88.8 2.6 .6 2.8 3.8 .6 .8 73.6 6.8 2.4 7.8 8.1 .5 ,8 62.3 3.9 .2 28.0 5.1 .3 .2 79.3 1.3 1.0 11.3 6.6 .3 .2 42,556 80,576 36,968 50,390 100.0 100.0 100.0 100.0 100.0 Total.............. 63,106 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 33 The following table shows similar facts concerning organized workers in Massachusetts: CAUSES OF IDLENESS AMONG ORGANIZED W ORKERS IN MASSACHUSETTS ON MARCH 31, 1909 TO 1911. [From Bulletins of Massachusetts Bureau of Statistics.] Number idle on March 31— Per cent of membership idle on March 31— Causes. 1909 1910 1911 9,980 138 172 1,354 353 6,186 113 96 1,646 221 9,120 831 178 1,691 918 9.50 .13 .16 1.29 .34 9.28 .10 .08 1.41 .19 7.47 .68 .15 1.39 .75 Total....................................................................... 11,997 8,262 12,738 11.42 7.06 10.44 Lack of work or material................................................ Unfavorable weather....................................................... Strikes or lockouts........................................................... Disability (sickness, accident, or old age).................... Other causes.................................................................... 1909 1910 1911 CAUSES OF IDLENESS AMONG ORGANIZED W ORKERS IN MASSACHUSETTS ON SEPTEMBER 30, 1909 TO 1911. [From Bulletins of Massachusetts Bureau of Statistics.] Number idle on Sep tember 30— Per cent of membership idle on September 30— Causes. 1909 1910 1911 1909 1910 Lack of work or material............................................... Unfavorable weather....................................................... Strikes or lockouts.......................................................... Disability (sickness, accident, or old age).................... Other causes.................................................................... 3,873 85 173 1,199 121 4,687 146 132 1,510 149 4,904 235 477 1,668 243 3.41 .07 .15 1.06 .11 3.95 .12 .11 1.27 .13 3.7 .2 .3 1.2 .2 T otal...................................................................... 5,451 6,624 7,527 4.80 5.58 5.6 1911 In each o f these tables it may be noted that the all-important cause o f idleness is lack o f work. The number idle from disability remains fairly constant, but the corresponding percentage necessarily rises with the decrease o f unemployment from other causes. Weather becomes an important factor in the winter months. The number idle on account o f labor disputes varies greatly, but was smaller in 1908 than in any other year. The returns as to the causes o f idleness here considered are made by the union secretaries in New York and Massachusetts, and so are subject to the same doubt as to their accuracy as the statistics already considered o f the amount of unemployment. Nevertheless they are strongly supported by the investigation made by the United States Bureau o f Labor in 1901, wherein the inability to obtain work com bined with “ slack work ” was by far the leading cause o f un employment. This brief consideration o f causes of unemployment is sufficient to establish as fallacious the frequent assertion that all who desire work in the United States can obtain it. Even if at the best seasons 66269°— Bull. 109— 13--- 3 34 BULLETIN OF THE BUREAU OF LABOR. o f the best years, industrially, all who wanted work were employed, some would be out of work the next month, and many more, it is evi dent from the above considerations, the following year or within a very few years. Those who became unemployed would, o f course, be the less efficient, but if all were equally capable, some would lose their jobs simply because industry could not use them. DISTRIBUTION OF LABOR. In a consideration of agencies for the distribution o f labor, it should be remembered that such agencies deal with one phase, but only one phase, o f the unemployment problem. I f men are out of work because no work is available such agencies are o f no value. Likewise, if men are idle because they are either unwilling or unable to work, an employment office can accomplish nothing. Again, if unskilled men are idle when skilled men only are wanted, there is no place for an employment bureau. If, however, men with certain qualifications are idle at a time when employers are seeking men with those same qualifications, then an employment agency can be of serv ice. This most obvious limitation upon the usefulness o f employment bureaus is important. Much o f the criticism to which these agencies, particularly free public agencies, are subjected is due to a failure to recognize the limits of their usefulness. They can not make work and they can not give workmen energy or ability. They can serve the public only when the condition of the labor market permits them to do so. Within the field thus defined employment offices have a great opportunity for usefulness. An employer in need of help can not. know what particular man is idle or in want of work. The unem ployed workman can not know which one of a thousand employers needs his services. To bring these two persons together is the prov ince o f an employment agent, and whether his office is maintained by the State or municipality, supported by a charitable society, or operated for gain, if he accomplishes his purpose expeditiously and satisfactorily he has performed a valuable service. In the benefit accruing to both parties through the intermediation o f an employment agency may be seen the justification for the com mercialized agency, which charges a fee. In the effect upon the char acter o f the workman, as well as the material benefit to him and his family, is found the argument for the philanthropic agency. And in the advantage accruing to the public through a lessening o f unemployment is the justification for free public employment bureaus. In addition to these three general classes of employment agencies, two others of importance may be enumerated, those main tained by large firms or by associations o f employers, and those maintained by labor unions. U N E M P L O Y M E N T AND W O R K OF E M P L O Y M E N T OFFICES. 35 FREE PUBLIC EMPLOYMENT OFFICES. The establishment o f State free employment bureaus has been due ordinarily to two principal causes: First, the desire to curb the evils o f private agencies through competition, and, second, the belief that it is the duty o f the State to make some provision for its unem ployed. Employment agencies maintained by the State and desig nated as either free employment bureaus or free employment offices now exist in 15 States. Following is a list of these States, with the year o f the passage o f the law providing for free employment*bureaus, and the number and location of such offices: Colorado, 1907, 3 offices; Colorado Springs, Denver, Pueblo. Connecticut, 1905, 5 offices; Bridgeport, Hartford, New Haven, Norwich, Waterbury. Illinois, 1899, 6 offices; 3 in Chicago, 1 each in Peoria, East St. Louis, Springfield. Indiana, 1909, 1 office; Indianapolis. Kansas, 1901, 1 office; Topeka. Maryland, 1902, 1 office; Baltimore. Massachusetts, 1906, 3 offices; Boston, Fall River, Springfield. Michigan, 1905, 5 offices; Detroit, Grand Rapids, Jackson, Kala mazoo, Saginaw. Three other offices, Bay City, Battle Creek, and Muskegon, authorized in 1909, are not yet established. Minnesota, 1905, 3 offices; Duluth, Minneapolis, St. Paul. Duluth office was established as a municipal office in 1901. Missouri, 1899, 3 offices; Kansas City, St. Joseph, St. Louis. Ohio, 1890, 5 offices; Cleveland, Columbus, Cincinnati, Dayton, Toledo. Oklahoma, 1908, 3 offices; Oklahoma, Muskogee, Enid. Rhode Island, 1908, 1 office; Providence. West Virginia, 1901, 1 office; Wheeling. Wisconsin, 1901,4 offices; La Crosse, Milwaukee, Oshkosh, Superior. New York had a free employment office located in New York City from 1896 to 1906, when the law providing for such a bureau was repealed. Nebraska has a law providing for a free employment bureau, but as no appropriation has ever been made for its mainte nance the bureau is inactive. Free municipal employment bureaus are maintained, so far as information was obtained, in the States and cities named below. The date given in each case is the date o f establishment o f the bureau. California : Los Angeles, established as municipal bureau in 1893; transferred from the municipality to the Associated Charities in 1910; Sacramento, 1902. Montana: Butte, 1902; Great Falls, 1905. New Jersey: Newark, 1909. 36 BULLETIN OF THE BUREAU OF LABOR. Washington: Seattle, 1894; Tacoma, 1904; Spokane, 1905; Everett, 1909. PRIVATE EMPLOYMENT OEFICES. Private employment agencies, which charge a fee for their services, are found in every city o f any size in the United States. The nature o f their business is such as to make possible most iniquitous practices. Their patrons are frequently men and women with only a dollar or two, which they are eager to give up for the opportunity o f earning more. They are often o f small intelligence and easily duped. Sto ries of how these agencies have swindled and defrauded those who sought employment through them are heard universally. Some of the more common of the fraudulent methods said to be used by these agencies are the follow ing: 1. Charging a fee and failing to make any* effort to find work for the applicant. 2. Sending applicants where no work exists. 3. Sending applicants to distant points where no work or where unsatisfactory work exists, but whence the applicant will not return on account o f the expense involved. 4. Collusion between the agent and employer, whereby the appli cant is given a few days work and then discharged to make way for new workmen, the agent and employer dividing the fee. 5. Charging exorbitant fees, or giving jobs to such applicants as contribute extra fees, presents, etc. 6. Inducing workers, particularly girls, who have been placed, to leave, pay another fee, and get a “ better job.” Other evils charged against employment agents are the congre gating of persons for gambling or other evil practices, collusion with keepers o f immoral houses, and the sending of women applicants to houses o f prostitution; sometimes employment offices are maintained in saloons, with the resulting evils. These iniquitous practices have caused the enactment in most States o f laws regulating these agencies. These laws usually provide for a license and bond, forbid location where liquors are sold, and require registers to be kept. They sometimes prescribe the fee to be charged and provide that receipts be given. Other provisions will be noted in discussing the laws of the States visited. Experience has proved that these laws do not accomplish the results desired unless provision is also made for frequent inspection. Ineffective also, so far as the regulation o f private agencies is concerned, has been the creation o f free employment bureaus. The States which established such bureaus with the expectation that they would drive private offices out o f business, or at least bring about improvement in their methods, have found further legislation essential. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 37 With proper regulation, private employment offices are of great service to the public, and where free offices do not exist may be re garded as a necessity. It is probable that in discussions relating to private agencies too much emphasis has been laid upon the evil prac tices o f unprincipled agents, and too little upon the service rendered by the properly conducted bureau. Until public employment agen cies have developed to a far greater usefulness than at present, and until much more money is appropriated for their extension and sup port, the private agency will continue to fill a need and to charge for its services. To legislate such offices out of existence, as has some times been proposed, would be disastrous, and to hope to drive them out o f business by the competition o f free public offices is, for the present at least, unwarranted. Yery little statistical information concerning private employment agencies is available, as, except in a few instances, no reports are made by them. It is, therefore, impossible to judge their impor tance as compared with free agencies, except by their number. In large industrial centers, like Chicago and New York, such agencies are very numerous. In smaller cities, like Providence and Indian apolis, they are very few in number and their business is not o f great importance. OTHER AGENCIES. Various philanthropic and semiphilanthropic agencies are en gaged in the distribution of labor in all cities of importance. Among these are what may be roughly designated as immigrant societies, which usually, though not always, deal with immigrants, or citizens o f a specified nationality. Municipal lodging houses and the Salva tion Army find or provide temporary work for persons in need. The Associated Charities ordinarily maintain free employment bureaus as an adjunct to other work. The Young Men’s Christian Association and the Young Women’s Christian Association in cities o f importance usually conduct em ployment bureaus. They ordinarily charge for their services, and sometimes confine their work to members o f the association. The yearbooks of the Young Men’s Christian Association show the num ber o f positions secured by each association in the United States. The following table is compiled from these reports, showing the number o f persons placed in each State during the past two years: 38 BULLETIN OF THE BUREAU OF LABOR. POSITIONS SECURED IN EACH STATE THROUGH EMPLOYMENT BUREAUS OF YOUNG MEN’ S CHRISTIAN ASSOCIATION DURING THE Y E A R S ENDING A P R IL 30, 1909 TO 1911. 1908-9 States. 1910-11 1909-10 Number Number Number of asso Positions of asso Positions of asso ciations secured. ciations secured. ciations Positions securing securing secured. securing positions. positions. positions. Alabama,_____ ______________ ________ _ Arizona......................................................... Arkansas......... ............................................ California r__ . ...................... ................ Colorado....................................................... Connecticut-... _________________ _____ Delaware...................................................... District of Columbia.................................... Florida....................................... ................. Georgia......................................................... H awaii......................................................... T d f l h o __________ _________- ............. Illinoi-S „ ,. t................. ........ .......... ...... Indiana............................... - __________ Iowa.............................................................. Transas.......................................................... Kentucky..................................................... Louisiana.......... .................................. - ___ Maine-............................................................ Maryland...................................................... Massachusetts.............................................. Michigan....................................................... Minnesota..................................................... Mississippi.................................................... Missouri.................................. ..................... Montana....................................................... Nebraska...................................................... New Hampshire.......................................... New Jersey................................................... New Mexico................................................. New Y ork.................................................... North Carolina............................................. North Dakota.............................................. Ohio.............................................................. Oklahoma.................................................... Oregon.......................................................... Pennsylvania............................................... Rhode Island............................................... South Carolina............................................. South Dakota............................................... Tennessee..................................................... Texas............................................................ Utah............................................................. Vermont....................................................... Virginia.............................................. ......... Washington................................................. West Virginia............................................... Wisconsin.................................................... Total................................................... 1 I 4 2 4 15 8 15 93 54 62 2,527 645 218 4 2 5 14 7 14 1 2 76 39 76 1,518 733 319 135 344 3 2 91 87 14 6 11 1 1 3 3 1 1 15 6 9 10 7 1 2 3 33 12 6 838 745 282 33 210 164 40 62 155 926 280 319 264 46 8 232 350 3,312 1,862 220 1 1 2 6 35 25 4 55 1 24 13 12 13 8 1 4 6 35 11 10 1 15 1 9 52 969 398 501 243 73 3 61 364 3,412 680 452 2 766 150 460 2 20 11 9 14 8 1 4 5 37 13 7 2 13 257 883 603 156 429 138 9 117 363 3,538 2,573 513 6 757 8 1 8 904 40 478 12 663 3 18 1 62 5 2 22 12 397 9 6,488 44 20 1,446 1 18 1 66 7 2 29 2 395 40 1 7,058 164 21 2,671 840 1,491 41 61 1 129 318 114 22 205 3,505 36 125 5 15 1 44 4 2 21 1 5 38 2 1 1 6 7 1 2 7 7 3 4 30 433 36 7,705 56 105 2,390 15 2,115 1,231 29 100 3 206 135 50 9 103 2,718 38 70 2 53 4 2 1 8 10 1 4 12 8 4 6 273 810 234 46 1 165 148 113 42 168 1,526 41 153 1 55 3 1 1 7 9 1 2 8 7 2 3 444 24,387 435 31,539 344 30,525 i Not including 32 charged to “ county and town work.” In Bulletin No. 68 o f the Bureau o f Labor, issued in January, 1907, will be found an account o f the free public employment offices in operation in the United States at that time. In the brief study of the agencies for the distribution o f labor which is here presented, the free public employment offices at Boston, Providence, Indianapolis, Detroit, Minneapolis, and Chicago were visited and their methods observed and studied. The first three offices named have been estab lished since Bulletin 68 was prepared. The offices at Detroit and Minneapolis had been in operation but a few months at that time, UNEMPLOYMENT AND WORK OP EMPLOYMENT OFFICES. 39 and in both Michigan and Minnesota new offices have since been created. In each o f the cities named above, and in New York City, a study was also made of the various other agencies engaged in the distribution o f labor. In the reports relating to each State visited, which appear below, statistics of the free State bureaus and of other agencies are presented, the laws regulating the various agen cies are reviewed, an account is given of their activities, meth ods, and operations, and their relative importance is considered. These several classes o f agencies vary greatly in the cities visited in their methods, efficiency, and relative importance. In view o f the fact that further study would doubtless reveal still greater variety, it can not be said that the cities visited can be taken as representative o f methods of distribution o f labor. In fact, the existence of one or more free public employment bureaus in each city visited, except New York, precludes the possibility o f stamping them as representa tive. It is probable, however, that practically all o f the agencies engaged in distributing labor in the United States were found in one form or another in the cities visited, and although their methods and efficiency would vary in other cities, the general purpose o f such agencies, and the field o f their activities, as well as the best methods o f operation, are no doubt disclosed by the agencies herein described. Following the description o f agencies for the distribution of labor in the States and cities visited will be found a brief account o f free public employment offices in other States, with recent statistics o f their activities. INDIANA. STATE FREE EMPLOYMENT OFFICE. The law providing for a State free employment bureau in Indiana was passed in April, 1909. The chief of the bureau of statistics had for a long time felt the need o f such an agency, and to his activ ity in this direction was due the passage o f the law. No appropria tion was made for the maintenance o f the office. The provision was made, however, in the law relating to private agencies enacted in March, 1909, that the license fees paid by private offices should be used for the support of a free employment bureau. A small part o f the support of the offices is furnished by a unique provision of the law, which authorizes applicants “ to inclose sufficient postage for all replies.” Under this provision all applicants are required to pay postage, if they have the money. The question of charging a nomi nal fee was considered when the bill was framed, with the result above indicated. During the first quarter of the bureau’s existence nearly half o f the applicants placed could not pay the postage asked for. 40 BULLETIN OF THE BUREAU OF LABOR. It was nearly six months after the passage of the law before enough money had accumulated from license fees to pay for printing and fixtures, so that the State bureau could be established. The office was then installed in connection with the office of the bureau of industrial statistics in the State capitol. The money from licenses has been found sufficient for the payment of postage, telephone, printing, and incidental expenses. There is no expense for office rent and the clerical help is that of the bureau of statistics. One man gives all of his time to the work of the employment bureau and occasionally has the assistance o f others. The law provides for the registry of all persons applying for help and for those seeking employment, and states what information shall be included in such registry. The law also requires the publi cation o f quarterly bulletins concerning the work of the bureau, and provides that employers shall notify the office as to whether applicants sent are rejected or accepted. The following is the form used by applicants for employment: A APPLICATION FOR EMPLOYMENT. Name--------------------------------------------------------------------- Date_______________ Address___________________________________________ _ Phone_____________ Age------------------ Sex----------------- - Color____________ Nativity___________ (Birthplace, country or State.) Occupation ______________________________________________________________ Kind of work wanted_____________________________________________________ Wages wanted___________________________________________________________ Number of dependents, if any-------------------------------------------------------------------Referred to This form is printed on a card which is filed. The letter at the top o f the form is for facility in indexing. The application is in dexed under one o f 72 occupations and is kept on file and accessible until the applicant is placed. The last two lines on the application blank are used for the names of employers to whom the applicant is sent. References are not required. I f given, they are placed on the back of the card for the information of employers, but are not investigated. In placing workmen, priority is given to those longest registered and to those having dependents. Sometimes those having telephones are favored when quick communication is necessary. Applications for help are usually made by telephone. The em ployer is asked the exact nature of the work and the probable wages; also the age, sex, color, and experience o f the employee wanted. This information is given to the applicant for employment, and he is UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 41 questioned as to his ability to do the work. Thus, careful effort is made to fit the man to the job and thus increase the usefulness o f the bureau and secure the confidence o f employers. An incident which occurred the morning the office was first visited shows the care used to satisfy employers. A call had come for 40 railroad laborers to work a few miles out o f the city. Fearing that some of the men who agreed to do the work would back out ‘and fail to report, the manager o f the employment bureau accompanied them on the electric car to the outskirts of the city. The reports o f the bureau, covering the first year o f its operation, show that most o f the men and boys placed in positions were common laborers. In the fourth quarter of the year, which ended September 30, 1910, 682 o f the 789 men who secured positions through the office were classed as laborers and 29 as farm hands. Carpenters securing work numbered 10, and in all other occupations, except one, the number o f men placed was 5 or less. O f 41 boys placed during this quarter 27 were laborers. Few women and girls, only 30, were placed during the fourth quarter, and only 86 applied for work. During the entire year only 105 women secured positions through the office. Nearly all of these entered some form o f domestic service. The demand for female workers has exceeded the supply. The bu reau has found an oversupply, however, of both male and female clerks, stenographers, and salesmen. The following table is a summary o f the work of the bureau during the first year o f its operation, ending September 30,1910. A P PLIC A TIO N S FOR W ORK AND POSITION S O FFERED AND F IL L E D , INDIANA F R EE EM PLOYMENT BUREAU, Y EA R ENDING SEPT. 30, 1910. [From Fourth Quarterly Report, Indiana Free Employment Bureau, p. 6.] Applica Positions tions for offered. Positions filled. work. Men.................................................................................................................. 3,945 2,405 1,982 776 309 Boys................................................................................................................. 300 337 143 Women and girls............................................................................................. 105 Total....................................................................................................... 5,058 2,857 2,387 The following table shows the growth o f the business o f the office by quarters during its first two years. The number o f positions filled, it will be observed, increased from 2,387 during the first year to 2,846 during the second. 42 BULLETIN OP THE BUREAU OP LABOR. BUSINESS OP IN DIAN A FR EE EM PLOYMENT BUREAU FOR TWO YEARS ENDING SEPTEM BER 30, 1911, BY QUARTERS. [F rom Quarterly Reports o f the Indiana Free Employment Bureau.] Years ending Sept. 30,1910 and 1911. First quarter.. Second quarter.. Third quarter... Fourth quarter.. Number applica tions filed. Number Number appli Number Number Number appli cants positions positions positions cants not not offered. filled. placed. filled. placed. 1910. 1,639 1,219 929 1,271 463 472 592 860 1,176 747 337 411 574 497 666 1,120 463 472 592 860 I ll 25 74 260 5,058 2,387 2,671 2,857 2,387 470 Fourth quarter. 772 1,180 1,345 1,277 470 444 955 977 302 736 390 300 613 612 1,084 1,292 470 444 955 977 143 168 129 315 T otal....... 4,574 2,846 1,728 3,601 2,846 755 Total First quarter___ Second quarter.. 1911. It may be observed that the Indiana bureau distinguishes between positions offered and positions filled. No position is counted as filled without positive assurance to that effect. Difficulty in obtaining this information has been encountered, but, although the law fixes a penalty of $100 on the employer who fails to inform the bureau whether or not applicants sent to him are accepted, the penalty has not been enforced. Instead, employees are requested to notify the bureau if they accept the position. The total persons placed in posi tions is not large, as the table shows, but in this connection it should be recalled that the office is maintained with no special appropria tion for its support, aside from license fees of private agencies. The bureau has received much attention from the newspapers, and this has, of course, been helpful in keeping it before the people. Another method used with success to secure applications for help is to send a card describing the work of the office to employers adver tising for help in the daily papers. The Indiana employment bureau is fortunate in having the good will and confidence of all classes. The labor unions assisted in se curing its establishment and are satisfied with its administration so long as it does not become an instrument inimical to labor interests, and this they do not expect. The members o f the employers’ associa tion o f the city use it for obtaining unskilled labor, and have confidence in its administration. Its location in the State capitol gives it dignity and is a most important factor in placing it above ordinary agencies. P R IVA TE E M P L O Y M E N T OFFICES. Prior to 1909 Indiana had no law regulating private offices. When the city o f Indianapolis attempted, in 1907, to regulate these UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 43 offices by an ordinance which provided for a license and a bond, and which regulated the fees, the courts held that the city was without authority to make such regulations. The manager o f the free employment bureau o f the employer’s association o f Indianapolis made some investigation in 1908 o f the methods o f these offices and reported a need for legislative action. Among other abuses he found that in the contracts which these employment agencies made with applicants they merely promised to “ assist55them in finding employ ment and that receipts given were for money paid “ for services to be rendered in assisting.” Other abuses reported were those o f sending an applicant to an accomplice o f the employment agent, who discharged him in a few days, and o f sending applicants to distant places where no job existed, but where the expense o f transportation was too great for them to return. An advertisement for statements from persons duped by these offices brought many responses. Following these disclosures and the resulting newspaper agitation, a law was passed in March, 1909, regulating these agencies. The principal provisions o f this law are as follow s: Employment agencies must pay a license fee of $25 and give bond for $1,000. They must keep a register o f all applicants for employment, with the address, age, nativity, sex, color, trade, and occupation o f each; also o f the names and addresses o f employers to whom applicants were sent and the number of positions secured. The register must also show all applications for help. A ll o f this information must be reported monthly to the chief of the bureau o f statistics, a provision found in no other State visited. The registry fee is limited to $2, 75 per cent to be returned in 10 days if work is not secured. I f work is obtained the fee, including the registry fee, may be 10 per cent o f the first month’s wages. False advertising and false entries in registry are prohibited, as is the sending o f women to immoral places. Agencies may not be main tained in a building where intoxicating liquors are sold. The total number o f agencies licensed in the State under this law up to July 1,1910, was only 19. O f these, 14 were located in Indian apolis and 5 in other cities. O f the 14 in Indianapolis, 8 had gone out o f business before July 1, 1910. The license o f one o f these had been revoked and two others escaped revocation by voluntarily quit ting the business. The others discontinued apparently because they Avere unable to make a profit under the new law. Licenses are issued and revoked by the chief o f the bureau o f statistics, who conducts the State employment office and who is charged with the enforcement o f the law relating to private offices. O f the six private offices still remaining in Indianapolis, two are operated by women and four by men. One o f those operated by 44 BULLETIN OF THE BUREAU OP LABOR. women deals with female domestic help entirely and one with nurses; one o f those operated by men furnishes hotel help, and the other three handle general laborers, one as a side issue to the real-estate business. The principal private agency places male laborers on railroad work outside o f the city almost exclusively. The importance o f these agencies as compared with the State free employment bureau is indi cated by the number o f positions secured during a representative month. In April, 1910, five o f the six agencies (one is exempted from furnishing a report) placed 255 persons in positions. O f these, 143 were placed by one agency. The State employment bureau placed during the same month 166 persons. FREE E M P L O Y M E N T BU REAU OF EM PLOYERS’ ASSOCIATION. The employers’ association of Indianapolis maintains a free em ployment bureau for the benefit of its members. The employment bureau o f the Metal Trades’ Association is merged with that o f the employers’ association. This association is professedly antiunion, but disclaims being opposed to organized labor. Its professed purpose is to secure and keep the records of employees, and thus relieve indi vidual employers o f the burden of making detailed inquiries con cerning applicants. It registers applications of skilled mechanics only and directs unskilled laborers to the State free employment bureau. The members o f this association usually notify its employment office when men are laid off, so that these men may be available for other employers. The number o f registrations in 1909 was 6,580; in 1910, 7,950; in 1911, 8,100. The total registration during the first seven years after the office was established was 47,310. The number o f men sent to positions in 1909 was 5,401; in 1910, 6,472; and in 1911, 7,340. Not all the credit for securing positions for these large numbers of em ployees, however, can be given to the employment bureau, because its records include the names o f all persons hired by members o f the association, whether or not they had previously made application for work at the employment office. During 1909, 2,622, or nearly half o f all those employed, secured positions without the intermediation of the employment office, and it is probable that about the same propor tion obtained in the years 1910 and 1911. During the three years 1909, 1910, and 1911 the bureau mailed 22,905 reference inquiries. Many positions are filled and workmen made acquainted with oppor tunities for employment and their interests advanced through in direct ministrations o f the bureau of which no report is made and for which the bureau is unable to take proper credit. Judging solely by the number of positions filled, the employment bureau o f the employers’ association is the most important agency engaged in the distribution of labor in Indianapolis. The relative UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 45 importance is emphasized by the character o f the positions filled. Nearly all o f the men served are high-grade mechanics and are placed in permanent positions. OTH E R AGENCIES FOR T H E DISTRIBU TION OF LABOR. In Indianapolis, as elsewhere, the business agents o f the labor unions act as employment agencies for their members. The Young Men’s Christian Association also maintains an employ ment bureau in the city. It does not charge a fee; it does not limit its activities to its members, but persons benefited are expected to join the association. One man gives only a portion o f his time to the employment office and no effort is made to push the work. During the year 1909, 269 men and boys secured positions through this office. Eighty-nine were placed in positions in 1910 and 116 in 1911. Refer ences are required and are investigated if possible. The references are turned over to employers, but applicants are never recommended. An agency o f no small importance engaged in the distribution of labor in Indianapolis is the employment bureau o f the Children’s Aid Association. This bureau grew out o f the juvenile court, and its first work was securing positions for boys on probation. It now finds positions for children o f both sexes from 14 to 21 years of age. It investigates positions very thoroughly, the manager visiting all fac tories, stores, etc., before children are placed in them. She also visits the homes o f children in order to become acquainted with their needs and capabilities. The children’s bureau has the confidence of em ployers, many o f whom rely upon it entirely for boys needed. The following table shows the amount of work done by this bureau from 1909 to 1911: OPERATIONS OF EM PLOYMENT BUREAU OF CHILDREN ’ S A ID INDIAN APOLIS, 1909 TO 1911. 1909 ASSOCIATION, 1910 1911 Registration: Boys (white)............................................................................................. Boys (black)............................................................................................. Girls (white. ................................................................................. Girls (black) ............................................................................................. 554 60 82 38 270 44 68 27 474 61 96 48 Total....................................................................................................... 744 409 679 Vacation registration: Boys.......................................................................................................... Girls.......................................................................................................... 88 13 147 46 252 84 Total....................................................................................................... 101 193 336 Grand total registration....................................................................... 845 602 1,015 Employers’ registration: Firms and factories................................................................................... Day’s work and errands................................................ . - ...................... Domestic and fanners.............................................................................. 256 94 129 497 96 225 696 321 170 Total...................................................................................................... Grand total positions secured........................................................................ 479 500 818 1,085 1,187 1,191 46 BULLETIN OF THE BUREAU OF LABOR. The figures relative to registrations do not include the number o f boys and girls reregistered, o f whom there were 803 in 1910 and 492 in 1911. The table shows that in 1909, 500 children were placed at work, the number increasing to 1,191 in 1911. The great majority o f chil dren placed are boys. There is a scarcity of girls, particularly as domestics. There is healthy cooperation between these various agencies for the distribution of labor, excepting, necessarily, the private agencies. The Children’s Aid Association sends unskilled men who come under its notice and are in need o f work to the State office and skilled men to the employment bureau of the employers’ association. The latter sends its unskilled men to the State office and sometimes applies for men there, and the members o f the employers’ association also apply at the State office for unskilled help. ILLINOIS. STATE FREE E M P L O Y M E N T OFFICES. Illinois now has six free public employment offices. Three are located in Chicago and one each in Peoria, East St. Louis, and Springfield. The following table shows the amount of business done by these offices each year during the first 12 years o f their operation: A PPLIC A TIO N S FOR EM PLOYMENT AND FOR H E LP AND POSITIONS SECURED, ILLIN OIS FREJ3 EM PLOYMENT OFFICES, 1900 TO 1911. [F rom Thirteenth Annual R eport o f the Illinois Free Employment Offices, 1911, pp. 22 and 23.] Year ending Sept. 30— 1900........................... 1901........................... 1902........................... 1903........................... 1904........................... 1905........................... 1906........................... 1907........................... 1908........................... 1909........................... 1910........................... 1911........................... Total,12 years. Applications for Applications for help. employment. Num ber d k of 1 Fe Fe offices. Males. males. Total. Males. males. Total. 3 3 4 4 4 4 4 4 5 16 6 6 Positions secured. Males. Fe males. 35,542 15,322 26,623 12,748 47,497 26,661 47,559 26,335 36,710 19,405 44,577 27,652 60,908 39,420 65,872 42,305 40,453 22,918 47,921 28,982 77,620 45,240 68,228 40,571 15,896 10,018 13,520 12,892 12,319 11,946 14,197 13,112 11,818 12,567 17,324 19,256 31,218 22,766 40,181 39,227 31,724 39,598 53,617 55,417 34,736 41,549 62,564 59,827 403,342 185,742 589,084 384,701 214,809 599,510 347,559 164,865 512,424 21,142 15,807 14,647 10,650 30,157 14,743 29,414 14,096 23,763 13,730 32,073 13,250 42,023 15,466 45,200 14,161 30,691 14,682 33,567 14,965 49,208 19,522 51,457 24,670 36,949 25,297 44,900 43,510 37,493 45,323 57,489 59,361 45,373 48,532 68,730 76,127 16,749 14,294 30,243 29,946 21,625 29,351 42,077 47,278 25,165 31,843 52,963 43,167 18.793 12,329 17,254 17,613 15,085 15,226 18,831 18,594 15,288 16,078 24,657 25,061 Total. 1 One office in operation only three months. Perhaps the most noteworthy fact disclosed by the above table is that the number of positions secured has not varied greatly since 1902 except for the large numbers in 1906,1907,1910, and 1911. The 47 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. number o f positions filled by four offices each year from 1902 to 1905 was nearly as great as the number filled by six offices in 1909. The Illinois free employment offices, like those of several other States, do not ordinarily record applications for work unless positions are avail able for the applicants. The applications for employment enumer ated in the tables, therefore, do not represent all persons coming to the office for work. The following tables show the total recorded applications for em ployment by classes of skilled and of unskilled workers, the number o f applications for help of the same character, and the number o f positions secured during 12 years at the Illinois free employment offices: A PPLICATION S F'OR EM PLOYMENT AND H E LP AND POSITION S SECURED BY SK ILLE D W ORKERS DURING 12 YEARS, 1900 TO 1911, ILLIN O IS F R E E EM PLOYMENT OFFICES. [F rom Thirteenth Annual Report o f the Illinois Free Employment Offices, 1911, p. 25.] Applications for em ployment. Applications for help. Positions secured. Classification. Males. Fe males. Total. Fe Males. males. Total. Males. Fe males. Clerical................................... 7,032 Commercial........................... 10,084 382 Professional........................ : Trades.................................... 39,294 3,696 3,129 2,755 1,806 10,728 13,213 3,137 41,100 3,011 7,998 240 31,949 1,510 3,026 2,521 2,083 4,521 11,024 2,761 34,032 2,788 6,602 214 25,307 1,182 1,859 1,934 1,274 3,970 8,461 2,148 26,581 Total............................ 56,792 11,386 68,178 43,198 9,140 52,338 34,911 6,249 41,160 Total. APPLICATIONS FOR EMPLOYMENT AND H ELP AND POSITIONS SECURED B Y UNSKILLED W O R K E R S DURING 12 Y EA R S, 1900 TO 1911, ILLINOIS F R E E EMPLOY MENT OFFICES. [From Thirteenth Annual Report of the Illinois Free Employment Offices, 1911, p. 26.] Applications for em ployment. Applications for help. Positions secured. Classification. Males. Fe males. Total. Males. Fe males. Total. Males. Fe males. Total. 17,465 17,031 17,031 15,078 17,465 51,764 164,190 215.954 44,831 192,000 236,831 43,327 146,323 181,454 196,120 196,120 171,706 181,454 164 86 65 86 164' 24,215 22,*60i* 27,373 *24,*2i5* 27,373 8,206 68,494 10,002 78,496 59,306 13,583 72,889 54,426 7,131 7,120 3,903 15,405 4,740 11,871 10,139 11,502 15,078 189,650 171,706 65 22,601 62,632 17,259 Total............................ 358,052 178,259 536,311 348,634 210,409 559,043 317,277 161,714 478,991 Agriculture .............. Domestic service................... Manual labor......................... Personal service..................... Transportation Miscellaneous......................... Not classified......................... The comparatively small number of persons classified as in clerical, commercial, or professional occupations is noteworthy. Only 9,604 males and 4,975 females were placed in such occupations during the 12 years. The trades engaged 25,307 o f the 34,911 skilled males who found positions through the free employment offices, but only about one-fifth o f the skilled females. Among the unskilled males, more 48 BULLETIN OF THE BUREAU OF LABOR. than half, *or 171,706, were classified as manual laborers, and 43,327 males were placed in domestic service. Only 4.8 per cent o f the males securing positions were agricultural laborers. O f the unskilled females 146,323 out o f 161,714 were in domestic service. The following recapitulation of the above tables shows the number o f skilled and of unskilled workers who have secured positions at the free public employment offices. Out o f 352,188 positions secured for males 34,911, or nearly 10 per cent, were for skilled workers. O f 167,963 positions secured for females only 6,249, or less than 4 per cent, were skilled. In none of these tables can the number of positions secured be compared with the number o f applicants, to determine the percentage of applicants supplied with work, because, as mentioned above, not all applications are here included. The recapitulation follows: SK ILLE D AND UNSKILLED W ORKERS SU PPLIED BY IL LIN O IS FREE EMPLOYMENT OFFICES DURING 12 YEA R S, 1900 TO 1911. [From Thirteenth Annual Report of the Illinois Free Employment Offices, 1911, p. 27.] Applications for em ployment. Applications for help. Positions secured. Classification. Males. Fe males. Total. Males. Fe males. Total. Males. Fe males. Total. Skilled................................... 66,792 11,386 68,178 43,198 9,140 52,338 34,911 6,249 Unskilled............................... 358,052 178,259 536,311 348,634 210,409 559,043 317,277 161,714 41,160 478,991 Total............................ 414,844 189,645 604,489 391,832 219,549 611,381 352,188 167,963 520,151 In the year ending September 30, 1911, male applicants for em ployment at the Illinois free employment offices were placed in 142 occupations and females in 40 occupations. The following table shows the number o f positions secured in the 36 leading occupations for males and the 19 leading occupations for females: POSITION S SECURED IN LEAD ING OCCUPATIONS A T IL LIN O IS FREE EM PLOY MENT OFFICES, Y E A R ENDING SEPTEM BER 30, 1911. [From Thirteenth Annual Report of the Illinois Free Employment Offices, 1911, pp. 36-39.] Females. Males. Occupations. Bam men.................................................... Blacksmiths................................................ Boiler makers............................................. Bovs, bell, and other occupations.............. Bricklayers................................................. Cabinetmakers............................................ Canvassers.................................................. Carpenters.................................................. Clerks, all kinds.......................................... Cooks........................................................... J)ighwashers and kjtcben work................. Positions secured. Occupations. 388 Chambermaids.......................................... 71 Cooks......................................................... 27 Day work.................................................. 1,437 Dining-room help..................................... 267 Dishwashers.............................................. 106 Domestics.................................................. 167 Factory work............................................ 633 General housework................................... 218 Housekeepers............................................ 568 Kitchen help................................. ......... 1.518 Positions secured. 114 948 2,925 281 1,223 496 800 4,065 177 882 2,854 49 UNEMPLOYMENT AND WORK 01 EMPLOYMENT OFFICES. POSITIONS SECURED IN LEADING OCCUPATIONS AT ILLIN OIS F R E E EM PLOY MENT OFFICES, Y E A R ENDING SEPTEM BER 30,1911—Concluded. Females. Males. Occupations. Positions secured. Drivers...................................... Engineers.................................. Factory hands........................... Farmhands.............................. Firemen..................................... Gardeners.................................. Handy men.............................. Hod carriers............................. House m en................................ Janitors..................................... Laborers.................................... Machinists and machine hands Molders..................................... Packers...................................... Painters..................................... Porters....................................... Punch-press hands................... Salesmen................................... Teamsters................................. Tinsmiths................................ Truckmen............................./. Waiters..................................... Watchmen................................ Window washers...................... Yardmen................................... Other occupations................... 272 60 1,213 926 146 104 3,264 51 968 581 20,024 373 86 131 375 624 316 300 753 104 1,263 299 108 401 193 2,236 Total................................ 40,571 Positions secured. Occupations. Nurses................................... . Office work and bookkeepers. Pantry work......................... . Scrub women......................... Seamstresses......................... . Second work......................... . Stenographers....................... . Waitresses.............................. Other occupations................. 77 120 149 1,482 57 208 40 907 451 Total............................. 19,256 Grand total, both 59,827 The Illinois reports also show in detail the age period of appli cants for employment, their conjugal condition, nationality, and aver age time of idleness. In the following table is shown the percentage of male and of female applicants within certain age limits during the year ending September 30, 1911: APPLICATIONS FOR EMPLOYMENT IN ILLINOIS FREE EMPLOYMENT OFFICES, B Y AGES, Y E A R ENDING SEPTEM BER 30,1911. [From Thirteenth Annual Report of the Illinois Free Employment Offices, 1911, p. 57.] Percentsige of re corded ajplicants. Age periods. Male. Under 20 years................................................................................................................... 20 and under 30 years.................................................................................................... 30 and under 40 years........................................................................................................ 40 and under 50 years........................................................................................................ 50 and under 60 years........................................................................................................ 60 years and over............................................................................................................... Age not reported.............................................................................................................. 7.11 33.95 22.38 14.61 4.32 .76 16.87 Female. 13.59 26.61 21.98 16.06 5.98 .44 15.34 The age period o f 20 to 29 years included 33.95 per cent o f the male and 26.61 per cent o f the female applicants for employment. Only about 6 per cent o f each sex were over 50 years old. O f the females, 13.59 per cent were under 20 years o f age. O f the male applicants for employment during 1911, 23.9 per cent were married and 76.1 per cent single. O f the female applicants, 66269°—Bull. 109—13------4 50 BULLETIN OF THE BUREAU OF LABOR. 41.8 per cent were married and 58.2 per cent were single. O f 51,457 male applicants, 17,551 were reported as losing time, having been idle an average of 13 days. O f 24,670 female applicants, 10,188 were reported as idle 9 days. Only 522 male and 6 female applicants were members o f unions. O f the men, about one-half, and o f the women, only about one-twentieth, were willing to work outside of the city where they applied for work.1 The maintenance o f the Illinois offices in the fiscal year 1911 cost $42,427.12. The positions secured numbered 59,827* so that the cost for each position filled was $0.71. The preceding year the cost for each position was $0.69. In the above tables the positions reported filled are probably in excess o f the actual number, as it has been the practice of some of the offices to record a position as secured if an applicant is sent to it and nothing is heard from either party. In Illinois, as elsewhere, no information is obtained as to the dura tion of positions secured. The superintendent of one of the Chicago offices estimated that from 10 to 20 per cent o f the males sent out secured short jobs, but that the women usually secured steady work. His record books showed that most o f the applicants wanting female help offered steady positions. Another superintendent estimated that about. 50 per cent of the males and a higher percentage of fe males placed secured steady positions. Many women looking for daywork remain in the office during the morning waiting for a call. Not many laborers are sent out o f the city. No harvest hands are sent into the West. The three Chicago offices were visited during this investigation. These offices are designated, according to their location, as the North Side office, the South Side office, and the West Side office. The North Side office is on the street level, and the other two are one flight up. Each has fairly commodious quarters, with a separate department for each o f the sexes, but there is no division into skilled and un skilled departments. One office has a force of two male and three female clerks besides the superintendent, and each of the others has a force of two males and two females. There is no cooperation among the three offices in Chicago. All deal with the same class o f labor, largely unskilled males, and female domestics, as indicated by the above tables. The suggestion that the offices specialize, each dealing with a particular class of labor, has frequently been made, but this has not been considered practicable by the officials. The methods of the three offices differ but slightly. The superin tendent of one office stated that he is now recording all applications 1 Data from Thirteenth Annual Report o f the Illinois Free Employment Offices, p. 63. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 51 for employment. The other two record an application only when the applicant is sent to a position, because any other method, the officials believe, would take too much time from other work. The law requires that all applications for employment and for help be entered in a book, and the copying thus necessitated consumes much o f the time o f the clerks. In each office inquiry is made of applicants as to the number o f dependents, but little effort is made to give preference to those having the largest number o f dependents. The application blank also inquires the length o f time idle and whether the applicant is a member o f a trade union, but the ques tions are frequently not answered. References are not required, except when demanded for women workers. Then they are asked for, but are not investigated. No investigation is made of positions, but care is taken not to send women applicants to hotels or houses bearing bad reputations. The location o f nearly all immoral resorts is known to the officials of the employment offices, and applications from them are refused. As a further precaution, all women sent out are given a leaflet containing the following in eight languages: Chapter 48, section 61, Revised Statutes o f Illinois: No agency shall send or cause to be sent any female help or serv ants to any place o f bad repute, house o f ill fame, or assignation house, or to any house or place of amusement kept for immoral pur poses. I f the place we send you to should prove to be any such place, please do not accept it, but return and report the same to this office. In the case o f a strike, the policy is to accept the application for help, but to notify applicants for work o f the existence of the strike. As a result, it is said, workers seldom accept the positions offered. One superintendent said that he never tries to fill positions where a strike exists. This is interesting in view o f the fact that the first law in Illinois creating free public employment offices was declared un constitutional because it prevented public employment offices from being of service to an employee in case o f a strike. The law provides that the superintendent o f each Illinois free em ployment office shall “ immediately put himself in communication with the principal manufacturers, merchants, and other employers of labor, and use all diligence in securing the cooperation o f said employers o f labor, with the purposes and objects o f said employ ment offices.” The superintendents in Chicago do not visit em ployers to any extent on account of lack o f time, although each of them believes that such visits would increase the business o f the offices, and one is o f the opinion that the office should have solicitors going among employers and telephoning orders to the office. This would be expensive, however, and the funds are not available. The 52 BULLETIN OF THE BUREAU OF LABOR. law also authorizes advertising for situations and “ for the coopera tion of large contractors.” Formerly some advertising was done, but there is said to be no appropriation for this purpose now. The free employment offices are utilized to find positions for pris oners on parole. Care is taken in placing these men, and employers are advised of the character of the employees in all such cases. As shown by the tables given above, the field o f the Illinois free employment offices is largely in unskilled labor. The tables also show that there has been little increase o f business from year to year. The fact that the skilled trades are strongly organized and that many of the unions have contracts with employers to supply all men needed, prevents the free employment office from dealing ex tensively with skilled men. In the unskilled labor market, however, a large part of the labor supply is not handled by the free employ ment offices. Upon first thought it is difficult to understand why laborers will patronize an agency which charges a fee when a free office is easily accessible. The problem is solved, however, by the reflection that the private offices are likewise free, so far as employers are concerned, and furthermore that many employers will not hire through the free public offices. Thus the most desirable jobs can be secured only from private agencies and for this reason the work ingman is obliged to pay a fee despite the existence o f free public employment offices. As a rule, contractors for construction work on railroads within range o f the Chicago labor market rely upon private agencies for their men and will not hire them elsewhere. One agency furnishes Greek laborers for a certain railroad, and another Italian laborers. The demand upon one private agent supplying railroad-construction workmen is so great that he applies regularly to the Chicago West Side Illinois Free Employment Office for men to fill his orders. From the men thus secured he is not permitted to collect a fee. Some o f the private agencies are said to have a regular clientele o f workmen. They know when men are to finish work, and can gauge accurately the number and character of men they will have on hand at any time. The railroad companies can rely upon them to furnish the men needed when called upon, and as the service costs the companies nothing they will doubtless continue to patronize the private agency, rather than the free agency which handles a disorgan ized, unreliable, and inefficient labor supply. An appeal in the form of a letter addressed to many railroad contractors, which was sent out by one of the superintendents of a free public employment office in Chicago, pointing out some o f the evils o f private employment offices and urging these contractors to transfer their patronage to the free employment offices, met with no response. In other words, through specialization and a personal knowledge o f their men the UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 53 private agencies outstrip the free agencies in the field of unskilled labor. Whether in addition to these advantages they divide fees with foremen or overseers is a disputed question. The superintend ents o f free employment offices in Chicago all attributed the success o f private employment agencies in part to personal solicitation, which the free offices, with their present forces, can not undertake. The manager o f a large private employment office assigned the lack o f confidence o f employers in the free public offices to the fear that the offices were dominated by politics, and that men would be sent who were not competent, but who had political “ pull.” With due allowance; for all o f the above causes tending to prevent the expansion of the free public employment offices there must be some further reason why their business remains nearly stationary from year to year. This reason may lie in the impression existing in Chicago that the only purpose o f the State employment offices is to deal with unskilled labor and domestics. This impression is shared by the officials of the employment offices, and little effort is made to handle skilled workers. Some o f the officials regard their work as primarily a charitable one, and expressed the belief that the proper field o f the office is the service o f the destitute man. One superintendent described the free office as the “ last resort ” for both workmen and employers. The law relating to free public employment offices in Illinois pro vides for the publication o f weekly reports from the various super intendents of such offices by the State bureau of labor statistics. These weekly reports show, by occupations, the number of applica tions for employment and for help and the number o f positions filled during the week by each office in the State. The advantages o f weekly reports are not obvious. Their use has not made cooperation among the various Illinois offices, or even the three Chicago offices, practical. Such frequent reports might be of aid in studying the labor market if all applicants were registered, with their occupations. Otherwise, they are of little value, and no practical use is made of them in Chicago. PRIVATE E M P L O Y M E N T OFFICES. In 1909 Illinois enacted a very detailed law relating to private em ployment offices. By this law the license fee is fixed at $50 in cities having a population o f 50,000 and over, and at $25 in smaller cities. Such agencies may not be located on premises where liquors are sold. An application for a license must be accompanied by two affidavits by persons who have known the applicant for two years, stating that he is o f good moral character, and such application must be posted and published before a license is issued. The application and affi 54 BULLETIN OF THE BUREAU OF LABOR. davits, together with all complaints against each private agency or information concerning it, are kept on file and readily accessible in the office of the chief inspector. Registers must be made by all private agencies of accepted appli cants for help and employment. The registration fee must not exceed $2, and must be returned on demand after 30 days if no service is rendered. No further fee can be collected until a position is secured, at which time such fee as has been agreed upon may be collected. This further fee is not limited by the law, because o f the probability that such limitation would be held unconstitutional as an infringe ment of the right o f private contract. A receipt must be given for fees and all receipts must have printed on the back thereof the name and address of the chief inspector o f employment agencies. The law provides for a return of three-fifths o f the fee in case the service is terminated within a week without the fault o f the party paying the fee. Agencies are prohibited from sending females to immoral resorts, from assisting children to get employment in violation of the childlabor law, from false advertising, and from dividing fees with em ployers. Contract or railroad laborers sent out o f the city by these agencies must be given a statement containing, in a language with which the laborers are familiar, the following items: Name and address o f the employer, name and nature o f the work to be per formed, wages offered, destination o f the person employed, terms o f transportation, and probable duration of employment. The law is to be enforced by an officer known as the chief inspector o f private employment offices, with one assistant inspector for every 50 licensed employment offices. The present force for the inspection o f these offices consists o f four men and one woman, each o f whom is assigned to a certain district. The law provides that these inspectors shall visit all licensed agencies bimonthly, but some are visited more frequently. The inspectors state that all complaints receive prompt attention, and, as a general rule, are adjusted in accordance with recommendations made by the inspection department. Prior to the enactment o f this law, the enforcement o f the law relating to private employment offices was delegated to the superin tendent o f the Chicago South Side Illinois Free Employment Office. This arrangement led to adverse criticism because this superintendent was virtually a rival o f the agencies which he supervised. The former superintendent o f the South Side office was appointed chief inspector under the new law, and his office is now practically a part o f the free employment office and can be entered only by passing through the employment office. There were, in 1911, in the State o f Illinois and under the jurisdic tion o f chief inspector o f private employment offices 309 licensed UNEMPLOYMENT AND WORK O f EMPLOYMENT OFFICES. 55 employment agencies, 280 o f which were located in the city of Chicago. No statistics are available of the number o f positions secured to applicants by these agencies, but it is needless to say that the 280 private agencies in Chicago constitute the most important factor in the distribution o f labor in the city. No investigation was made as to the observance o f the law by private agencies, but on every hand, from charity workers, sociolog ical investigators, and the better class of private offices there was unanimous approval of the present administration o f the law. The opinion was expressed that some o f the crooked practices commonly found among private employment offices still remained, but that where these could be detected they were ferreted out and punished by the supervisors. The following statement shows the work done by the inspection department during the year ending August 31, 1911 : S U M M A R Y OF IN S PE C T IO N OF PR IVATE E M P L O Y M E N T AGENCIES OF I L L I N O IS, Y E A R E N D IN G A U G . 3 1 , 1 9 1 1 . Number of private employment offices____________________________ 309 Number of inspections___________________________________________ 1,220 Number of investigations with written records on file_____________ 372 Amount of money refunded to applicants upon request of inspectors— $4,040.40 Number of licenses revoked______________________________________ 1 Number of agencies against which complaints have been made______ 92 Number of agencies against which no complaints have been made__ 217 Number of prosecutions________________________________________ 14 Number of convictions___________________________________________ 5 Total fines---------------------------------------------------------------------------------$425 The chief inspector states that few of these agencies charge the registration fee, but charge the contract fee after the position is secured. He regards the provisions relating to the registration fee as unjust, because the applicant must wait 30 days for its return. The applicant may, however, assign his claim to it to another em ployment agent, and this is sometimes done. A large number o f private employment offices are centered about Canal Street, Chicago, near the Union Station. They deal chiefly with seasonal laborers. In the spring they send men out on railroad construction. The fee is high, and it is stated the man able to pay the largest fee goes out first. Gradually the fee is lowered, and by summer perhaps no advance fee can be collected, because the men remaining are men without a dollar. Agencies frequently send out men without payment o f fee so as to fill orders and hold customers. After a slack in the call for railroad laborers, the harvests be gin and the same men, who have found their way back to Chicago, 56 BULLETIN OF THE BUREAU OF LABOR. are sent to the harvest fields in return for another fee. Some o f these offices have branches in other western cities and this facilitates the handling o f men. After the harvest the men again return and the agencies find odd jobs for them or they remain idle till they pay another fee to be sent to an ice camp to harvest ice. Then comes a period o f loafing in Chicago during late winter or early spring. Three or four or perhaps a dozen fees a year are paid by these men for work. This account is o f greater interest from the standpoint o f the sea sonal worker than as a study of employment agencies. Alternate periods o f working and loafing are not calculated to build up a man’s character. When loafing means the eating o f free soup and poor food, sleeping in cheap lodgings with bad air and filthy rooms alive with vermin, with all o f the associations and evils which attend such a life in a big city, the effect on the moral and physical nature of most men is pitifully disastrous. In 1908 the League for the Protection of Immigrants in Chicago made an investigation o f 178 employment agencies in that city, 110 o f which made a specialty of placing foreigners. The following tables from the report o f this investigation show certain interesting facts concerning the agencies covered by them i1 KIN D OF W ORK SU PPLIE D IM M IGRANT WOMEN P»Y CHICAGO EM PLOYMENT AGENCIES, 1008. Agencies supply ing women only. Agencies supply ing both men and women. Agencies offering housework......................................................................... Agencies offering hotel or restaurant work.................................................... Agencies offering factory work...................................................................... 28 18 4 17 5 28 35 9 Agencies counted twice................. <............................................................... 50 17 22 1 72 18 Total number of agencies.................................................................... 33 21 54 Total. FEES, CHARGED IMMIGRANT WOMEN BY CHICAGO EMPLOYMENT AGENCIES, 1 90 8 . Agencies Agencies Agencies Agencies charging from $0.50 to $1_____________________________________ charging $1.50 to $2__________________________________________ charging $3__________________________________________________ charging a per cent of wages---------------------------------------------------- 15 25 3 8 Agencies supplying women in which fees were not ascertained____________ 51 3 Total number of agencies------------------------------------------------------------- 54 1 The Chicago employment agency and the im migrant worker, by Grace Abbott, in A m eri can Journal o f Sociology, Vol. xiv, p. 289 (N ov. 1908). UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 57 KIN D OF W ORK OFFERED IM M IGRANT MEN BY CHICAGO EM PLOYM ENT AGENCIES, 1908. Agencies Agencies which which supply supply men and men only. women. Total. Agencies offering “ gang work” ...................................................................... Agencies offering restaurant or hotel work.................................................... Agencies offering factory work....................................................................... Agencies offering “ city jobs” ......................................................................... 49 2 2 8 3 15 6 52 17 8 8 Agencies counted twice................................................................................... 61 5 24 3 85 8 Total number of agencies...................................................................... 56 21 77 LOCATION OF CHICAGO EMPLOYMENT OFFICES W HICH MEN, 1908. PLACE IM MIGRANT Agencies Agencies which which supply supply both men men and only. women. Total. 1 3 Agencies near saloons and cheap lodging houses........................................... Agencies near saloons only.............................................................................. Agencies in saloons.......................................................................................... Agencies in family rooms................................................................................ Agencies in steamship and banking offices.................................................... Agencies located elsewhere.............................................................................. 14 9 2 5 14 12 14 15 12 2 8 14 26 Total number of agencies...................................................................... 56 21 77 3 Investigators of the League for the Protection of Immigrants rep resented themselves as applicants for positions at 102 employment agencies in order to ascertain the fees charged. The results o f this part of the investigation are shown in the following table: FEES ASKED OF INVESTIGATORS B Y EMPLOYMENT AGENTS. Men. Agencies charging $0.50 to $1........................................................................... Agencies charging $1 to $2.............................................................................. Agencies charging $2 to $3.............................................................................. Agencies charging $3 to $5.............................................................................. Agencies charging $6 to $10............................................................................ Agencies charging $11 to $14........................................................................... Agencies charging per cent of wages.............................................................. 13 Women. 15 25 3 23 12 3 8 Total. 15 38 3 23 12 3 8 51 Agencies in which fees were not learned........................................................ 51 8 102 8 Total number of agencies...................................................................... 59 51 110 There was organized in Chicago a few years ago an association of employment agencies. One o f its purposes was the prevention of legislation harmful to the interests of employment agencies. It in dorsed the present law, however. According to the president o f the association, its purpose was to correct abuses practiced by the dishon est agents, but he states that this work is done effectively by the 58 BULLETIN OF THE BUREAU OE LABOR. chief inspector of employment agencies, and that for this reason the association has become inactive. The employment bureaus connected with the Young Men’s Chris tian Association and the Young Women’s Christian Association are licensed employment agencies. The following table shows the busi ness done by the employment bureau o f the Central Young Men’s Christian Association o f Chicago during the four years, 1907 to 1910. In 1911 the bureau was discontinued and work in employment lines was only incidental to other activities of the association. APPLICATIONS FOR EMPLOYMENT AND HELP AND POSITIONS FILLED B Y EMPLOY MENT BUREAU OF CENTRAL YOUNG MEN’S CHRISTIAN ASSOCIATION OF CHICAGO, 1907 TO 1910. 1907 Applications for employment......................................................... Applications for help...................................................................... Positions filled................................................................................ 1,331 620 292 1908 1,550 1,095 624 1909 5,329 1,512 566 1910 8,864 1,987 948 It will be observed that the amount o f business done is not large. On the other hand, the expense has been high. The 566 positions secured in 1909 represent a cost of $2,223, or nearly $4 for each po sition. A statement o f the cost for 1910 was not available. With the purpose of increasing business and becoming self-supporting, the fees have been cut down. The charge is now 10 per cent of the first month’s salary, with only a nominal charge for transient jobs. Nearly all of the positions filled are clerical. The great difficulty has been to get the type of men wanted. References are usually required, but, owing to the fact that men are wanted quickly when called for, time does not always permit the investigation of refer ences. Applications for help and the cooperation of employers are obtained by personal letters. One plan found effective has been to make a list o f available men, with their qualifications, and send it to employers who have patronized the office, asking them if they can use any of the applicants. Folders are sometimes sent out describing the work o f the office. The services of the office are not confined to members. The Young Women’s Christian Association employment bureau makes a specialty of nurses, governesses, clerks, and stenographers. It also places managing housekeepers, but very few domestics. It charges a fee of 50 cents from the employee and $1 from the employer. OTHER AGENCIES FOR T H E DISTRIBU TION OF LABOR. Many philanthropic agencies are engaged in the distribution of labor in Chicago. These agencies are not licensed and are not under the supervision o f the inspectors o f employment agencies. Among such agencies is the United Charities o f Chicago, which finds work, UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 59 but only as means of relief, for persons applying to it. No report is made o f the number of persons placed by the United Charities. The principal charity organizations maintaining employment bureaus are societies dealing primarily with immigrants, or persons o f foreign extraction. Among these are the B ’nai B ’rith free employment bureau, the German Society of Chicago, and the Swedish National Association o f Chicago. The B ’nai B ’rith free employment bureau is a consolidation of the employment bureaus of the Jewish Aid Society and the United Hebrew Charities, and is located in the heart o f the Ghetto o f Chi cago. It keeps on file a very careful record of each person given employment, his needs, and the work given him. The following statement shows the amount o f work done by the bureau during the year ending April 30,1911, in its present location: Total number of applicants registered________________________________ 4,415 Total number placed________________________________________________ 2,575 Total male applicants_______________________________________________ 3, 847 Total female applicants___ _________________________________________ 568 Total number of married persons_____________________________________ 1,757 Total number of single persons______________________________________ 2,658 Total number of dependents of applicants-------------------------------------------- 6,027 All persons receiving work through the bureau are Jews, but the report for the first year o f its existence shows that they were o f 19 different nationalities. Over 70 per cent, however, were Kussian Jews. About half o f all persons placed were classed as laborers. O f the remainder many were skilled workers—cabinetmakers, carpenters, bricklayers, electricians, druggists, locksmiths, machinists, painters, shoemakers, tailors, and others. It is obvious that the bureau deals with a much higher class o f labor than the State free employment offices. The German Society of Chicago is a charitable organization which has been in existence 57 years. It has maintained a free employment bureau for 32 years, and has gained during this time a considerable clientele of employers. It does not confine its advantages to Germans, but places large numbers of Austrians, Swiss, and Russians. The following tabular statement shows the number o f persons placed by the society during five years and classifies them according to occupations: PERSONS SECURING POSITIONS THROUGH GERMAN SOCIETY OF CHICAGO, B Y OCCUPATIONS, 1907 TO 1911. Occupations. 1907 1908 1909 1910 1911 Common workmen and day laborers........................... Farm hands................................................................... Skilled workmen........................................................... 3,929 575 356 2,543 979 336 3,456 1,248 430 3,796 1,684 423 3,551 1,217 375 Total..................................................................... 4,860 3,858 5,134 5,903 5,143 60 BULLETIN OF THE BUREAU OF LABOR. The following table from the 1911 report shows the distribution o f skilled workmen placed by the society among the various occupations: SKILLED W ORKM EN SECURING POSITIONS THROUGH GERM AN CHICAGO, B Y OCCUPATIONS, 1911. Number. Occupations. 45 1 13 17 14 57 36 1 Bakers........................... Basket makers.............. Blacksmiths................. Butchers........................ Cabinetmakers.............. Carpenters..................... Cooks............................. Coopers......................... Number. Occupations. Gardeners.................. Locksmiths................. Machinists.................. Masons....................... Painters...................... Polishers..................... Saddlers...................... Shoemakers................. 21 5 9 10 46 1 3 12 SOCIETY Occupations. OF Number. Tailors......................... Tinsmiths.......... Upholsterers.............. wagon makers. Waiters.................... Weavers...................... Wood turners.......... 17 19 1 13 15 2 14 The following table shows the nationality of persons securing positions through the office during five years: PERSONS SECURING POSITIONS THROUGH GERMAN B Y NATIO N ALITY, 1907 TO 1911. Nationalities. 1907 1908 SOCIETY 1909 OF CHICAGO, 1910 1911 German.......................................................................... Austrian......................................................................... Swiss.............................................................................. Russian.......................................................................... 3,109 1,397 288 67 2,606 948 240 64 3,457 1,320 296 61 4,041 1,410 341 111 3,645 1,146 224 128 Total.................................................................... 4,860 3,858 5,134 6,103 5,143 The following table shows the States served by the employment bureau of the society and the number sent to each State: PERSONS SECURING POSITIONS THROUGH GERMAN SOCIETY OF CHICAGO, B Y STATES TO WHICH SENT, 1907 TO 1911. States. 1907 1908 1909 1910 1911 Illinois........................................................................... Indiana......................................................................... Michigan........................................................................ Wisconsin...................................................................... Iowa............................................................................... Missouri......................................................................... Minnesota.................................................................... 4,806 20 2 32 3,786 43 2 26 1 4,965 20 8 131 9 1 5,840 16 3 42 1 Total.........................................................- ......... 4,860 3,858 5,134 5,903 5,042 21 15 61 4 1 5,143 The Swedish National Association of Chicago was organized in 1894. Its primary object was to maintain a free employment bureau for Swedes. During the first 14 years of its existence it secured em ployment for 35,000 men and women, without charge. The great majority of these, the latest report of this association states, were placed in permanent positions. Applicants have been sent to nearly every State, and in most cases free transportation has been secured. The Association claims to have some o f the best Chicago business houses as regular patrons. For the first 15 years o f its existence the services o f its employment bureau were entirely free. Since 1908 a UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 61 fee is charged for furnishing female help, $1 from the employer and $1 from the employee, if the parties are able to pay it. By permis sion o f the State authorities the association charges this fee without securing a license as an employment office. The association cooperates with the United Charities, with the League for the Protection of Immigrants, and with the Young Women’s Christian Association. The immigrant agents of the latter meet all incoming trains in order to assist young women on their first arrival. All immigrant Swedish women are sent by the agents to the Swedish National Association. Most o f the Swedish young women are placed in domestic service. The following tabular statement shows the number of persons for whom permanent positions were secured by the bureau during the three years, 1907 to 1909: PERSONS SECURING POSITION S THROUGH SW EDISH NATIO NAL ASSOCIATION OF CHICAGO, BY SEX, 1907 TO 1909. Years. 1907................................................................................................................... 1908................................................................................................................... 1909................................................................................................................... Males. 2,943 1,706 2,206 Females. 1,605 1,638 1,626 Total. 4,548 3,344 3,832 The labor unions are very strong in Chicago, and through them a large proportion of skilled men secure employment. Among the very strongly organized trades are the building trades, printers, fire men and engineers, and brewery workers. Trade agreements whereby the unions agree to furnish men needed by contractors are made by these and other unions. Many o f these contracts provide for the employment of nonunion men if the union is unable to fur nish all the men needed. The methods which the unions use for securing work for their unemployed are somewhat haphazard. Most o f them maintain a “ loafing room ” at headquarters, where the men congregate in the morning and play games and wait for a call. When one is received the secretary notifies them and the necessary number o f men go. In a very few cases the “ loafing room ” has a blackboard, where the men write their names in the order in which they come in, and they are given opportunities to work in the same order. Many large employers maintain employment bureaus to facilitate the hiring o f their employees. The associations of employers also maintain free employment bureaus. The Chicago Employers’ Asso ciation has such a bureau, which was organized for the service o f its members in case o f a strike. Its principal activity occurs when a strike exists. It receives applications and supplies workers to its members at all times, however, but the amount o f business done is not large. 62 BULLETIN OF THE BUREAU OF LABOR, MASSACHUSETTS. STATE FREE E M P L O Y M E N T OFFICES. The law providing for the establishment o f free employment offices in Massachusetts was passed in 1906. There had been more or less agitation o f the question for a number o f years before the law was enacted. The abuses of private offices played some part in the argu ment for the establishing o f State offices, but not so much perhaps as the contention that it was the duty of the State to use all means available for reducing unemployment. The proposition met with opposition from all sides and for varying reasons. The labor unions feared that it would be a strike-breaking institution. It was argued that such a scheme would be socialistic and paternalistic; that the office would be dominated by politics; that self-respecting individuals would not patronize a free office. The law provides for the establishment of free employment offices in such cities as may be selected by the director o f the bureau o f statistics with the approval o f the governor and council. Three offices have been established, one in Boston in December, 1906, and in 1907 one in Springfield and one in Fall River. The Boston office, which was the only one visited during this investigation, has five departments, as follow s: 1. Department for skilled males. 2. Department for unskilled males. 3. Department for boys. 4. Department for skilled females. 5. Department for unskilled females. These departments all have the same entrance. The male depart ments are on one side o f a wide hall or passageway and the female on the other. The two female departments are separated by a parti tion, but the male only by a railing. In fact there is no separation between the skilled labor department and the boys’ department, but a different desk is used for each. The Boston office was the only one visited during this investigation which had separate departments for skilled and unskilled workmen. The Boston office during the first six months of its existence had an office force of 20 to 25 persons. This has now been cut to 10 per sons besides the superintendent. The cost of maintenance the first year, not counting original equipment, was $19,565. This was cut to $13,986 during the year ending November 30, 1909. The cost for 1910 was $14,330 and for 1911, $15,856. The decrease from the first year’s cost, the superintendent avers, was made without cutting off any o f the legitimate needs o f the office. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 63 The office force at Springfield consists of a superintendent and two clerks, and that at Fall Kiver of a superintendent only. Superin tendents, assistants, and clerks are all chosen through civil-service examination. The following tables show the business o f the Massachusetts free employment offices from their establishment to November 30, 1911: BUSINESS OF M ASSACHUSETTS FREE EM PLOYMENT OFFICES FROM DECEMBER 3, 1906, TO NOVEMBER 30, 1911. [From Fifth Annual Report on the State Free Employment Offices of Massachusetts, 1911, pp. 6 and 7-1 Year ending November 30— Classification. Total. 1907 1908 1909 1910 1911 44,910 44,876 14,480 10,707 33,696 46,563 24,445 9,941 6,535 12,825 31,820 32,432 13,034 8,327 17,404 35,181 41,630 15,478 9,262 21,425 40,114 47,688 15,806 10,112 22,816 198,588 191,071 68,739 44,943 108,166 2,176 1,464 796 0) 1,488 7,144 3,940 2,431 1,538 3,204 7,145 5,753 3,166 1,929 4,283 8,108 6,626 3,675 2,085 5,007 10,563 8,559 4,310 2,300 6,176 35,136 26,342 14,378 7,852 20,158 660 513 234 (a) 379 3,698 4,269 2,583 1,020 2,951 3,642 3,355 1,541 910 2,130 4,088 2,826 1,421 945 1,922 3,582 1,925 1,042 793 1,640 15,670 47,746 46,853 15,510 410,707 35,563 57,405 32,654 14,955 9,093 18,980 42,607 41,540 17,741 11,166 23,817 47,377 51,082 20,574 12,292 28,354 54,259 58,172 21,158 13,205 30,632 249,394 230,301 89,938 56,463 137,346 BOSTON. Applications for employment.................... Oners ofpositions..................................... . Positions reported filled............................ Persons for whom positions were secured Persons applied for by employers............. JSPRINGFIELD. Applications foremployment.................... Offers of positions....................................... Positions reported filled............................ Persons for whom positions were secured . Persons applied for by employers............. FALL RIVER. Applications for employment.................. Offers of positions...................................... Positions reported filled............................. Persons for whom positions were secured.. Persons applied for by employers............. TOTAL, 3 12,888 6,821 3,668 9,022 OFFICES.3 Applications for employment.................. Offers of positions...................................... Positions reported filled............................. Persons for whom positions were secured.. Persons applied for by employers............. 1 No record of detail kept. Office open 3 months only in 1907. 2 No record of detail kept. O ffice open 2 months only in 1907. 3 The figures for 1907 are for a full 12 months for the Boston office, but are for 3 months only for the Spring field office and 2 months only for the Fall River office. 4 This figure is for the Boston office only. The following table compares the business of the three Massa chusetts offices for the two years, 1910 and 1911. It also illustrates the detail o f the statistical reports o f each o f the Massachusetts offices. Similar tables for each office in the State are included in the pub lished reports o f the Massachusetts free employment offices. 64 BULLETIN OF THE BUREAU OF LABOR. BUSINESS OF THE MASSACHUSETTS F R EE EMPLOYMENT OFFICES FOR THE Y E A R ENDING NOVEM BER 30, 1911, COMPARED W ITH THAT FOR Y E A R ENDING NOVEMBER 30, 1910. [From Fifth Annual Report on the State Free Employment Offices of Massachusetts, 1911, p. 14.] 1911 Total, 1910. Classification. Males. Applications for employment...................................... Applications from employers....................................... Individual employers who applied for help................ Persons applied for by employers................................ Offers of positions......................................................... Females. 37,780 16,479 18,081 39,729 Individuals to whom one position only was offered.. Individuals to whom more than one position was offered........................................................................ Total. Per cent of in crease (+ ) or decrease 12,551 18,443 54,259 24,821 8,668 30,632 58,172 47,377 23,681 8,854 28,354 51,082 +14.53 + 4.81 - 2.10 + 8.03 +13.88 13,557 4,399 17,956 16,799 + 6.89 6,817 3,417 10,234 8,482 +20.66 Total to whom positions were offered............... Positions reported filled............................................... 20,374 12,468 7,816 8,690 28,190 21,158 25,281 20,574 +11.51 + 2.84 Individuals for whom one position only was secured. Individuals for whom more than one position waa secured....................................................................... 6,585 3,033 9,618 9,126 + 5.39 2,056 1,531 3,587 3,166 +13.30 Total for whom positions were secured............. 8,641 4,564 13,205 12,292 + 7.43 In a presentation o f the above statistics mention must be made o f the care used in collecting the data presented. All persons apply ing for work are required to register, a practice not followed by most State employment offices, and applicants for help are asked to state the exact number o f persons wanted. The result is believed to indi cate approximately the supply and demand o f the labor market. The supply is obtained in accordance with the following rule: The employee’s application slip must be made out for each em ployee who applies for work the first time, whether there is any position to offer or not. So long as he remains out of work from the time the first application was made, one application slip will be enough. I f he obtains employment in the meantime and then be comes unemployed, another application slip should be made out. This slip is intended to obtain a record o f all individuals who call at the office seeking work, and care must prevail to prevent duplica tion and to obtain, as nearly as possible, a correct statement o f the labor supply.1 The above tables also distinguish between the number o f positions offered and the number reported filled, and in the detailed report which is presented above for the year 1911 the number of individuals who were offered positions is also reported. This is interesting in view o f the fact that some offices make no distinction between posi tions offered and positions filled, counting as filled all to which appli cants are sent who do not return. To ascertain whether a position is actually filled, the worker is given an introduction card which is also a postcard addressed to the free employment office with a blank 1 Third Annual Report on the State Free Employment Offices o f Massachusetts, p. 8t UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 65 in which the employer is requested to state whether or not the appli cant was engaged. I f the card is not returned the information is obtained by telephone or, i f necessary, by messenger. The above table shows that in 1911 the Massachusetts offices offered 58,172 posi tions to 28,190 applicants, 21,158 o f whom were reported as engaged. These figures indicate a wide difference between positions offered to applicants and positions actually filled. Applicants for employment at the Massachusetts free employment offices are required to stand in line, and each one in turn confers with the employment clerk, registering i f it is his first visit, and inquiring for work i f he has previously registered. In other States visited the applicants congregate in the waiting room and volunteer for work only when a call is made for men in their occupation. The application slip filled for each applicant for employment at his first visit is here presented: E m plo y ee ’s A p p l ic a t io n Sl ip . Name: ___________________________________________________________________ Address: ___ _ _ Band of work desired: --------- Age . —. S . M Number dependent: _ Remarks: _ _____ D e p t.:__________________________________________ Date_________________ From persons sent to positions further information is obtained and entered upon a card for filing. The worker is asked whether he belongs to a trade-union, his religion, how long he has been unem ployed, and his experience in the line of work sought. Applications are usually made in person, although skilled workers are encouraged to apply by mail. Advertising for workmen is resorted to only when in the opinion o f the superintendent the position can not otherwise be filled. The question o f charging a nominal fee of applicants for employ ment and that o f requiring and investigating references are both dis cussed in some detail in the First Annual Report on the State Free Employment Offices o f Massachusetts, page 18 et seq. As to a nomi nal fee, the report says: The principal argument in behalf o f this proposition is that “ a better grade o f employees would be obtained and the undesirable ones kept out o f the office ” if a fee were asked. Some employers have complained that in offices where no fees are charged there is a resulting tendency to make the employees too independent, since they feel that they can leave the employer whenever they choose, without reasonable notice, and readily obtain a new position without cost; the net result being to make help shiftless and migratory. This theory has been found, upon investigation, to be based upon indi vidual instances of unfortunate experiences in obtaining help from 66269°—Bull. 109—13------5 66 BULLETIN OF THE BUREAU OF LABOR. the free employment office. * * * The experience o f the Boston free employment office, in short, does not justify the theory that its defects, whatever they may be, would be materially remedied by the exaction o f a fee from applicants for employment, nor does this experience furnish any substantial basis for the theory that capable and skilled help out of employment are disposed to refrain from using the office on the ground that it is a charitable institution, which they can not, in due deference to instincts o f self-respect, ?>atronize. It is a xallacious assumption, moreover, that the mere act o f the possession of the amount that might be required as a fee can be relied upon as bearing any direct relationship to the qualifi cations o f the applicant. * * * In my judgment, there is no necessary relationship between the charging o f a fee and the quality o f service, and if there were it is extremely unlikely that the condi tion would be altered in any material degree by demanding only a nominal fee such as has been suggested. So far as the problems o f the office are solvable, they are so through proper management and the securing and retaining o f the confidence and good will of the employing public as the result of efficient service. Concerning references and the contention that the offices should send applicants to employers only after a careful investigation of recommendations, the report says: Here again, the adoption o f such a plan on as comprehensive a scale as would be absolutely necessary * * * would involve a great and incalculable expense in the conduct of the office. Waiving that point, however * * * I believe * * * that the State is not justified in taking upon itself the obligation of guaranteeing the re liability o f an applicant for work whom it sends to an employer; for if no guarantee is made, no legal responsibility is incurred. More over, aside from the question as to whether the State should under take to guarantee references, as is done by certain private agencies, the intrinsic value of references is a matter of grave doubt. Almost any man can get some kind of a reference, and the average employer, though he can not continue on his pay roll a needless employee or one whom he deems inefficient, is, nevertheless, very apt to be suffi ciently well disposed to feel that the man is at least entitled to a kind word. As to the duties of the office in furnishing information to each party, the report continues: To contend that the free employment offices are not justified in attempting to guarantee references, and, further, that such references are often of comparatively little real value when given is not, how ever, to be construed as absolving the offices from the duty of furnish ing each party to the transaction o f employment as full information about the other as is possible under the circumstances. It is believed that this information should be obtained by inquiring in detail as to the conditions of employment and by careful question ing as to the ability and experience of the worker. The office can thus avoid sending applicants to positions for which they are un suited. Such information as is obtained may be given to either party, but beyond this the office does not see fit to go. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 67 In line with the policy of giving full information concerning posi tions offered is that of stamping on the card given to workers, if a strike exists, the words, “ There is a strike at present at this estab lishment.” This practice meets the approval of organized labor and employers have made no objection to it. The Boston office has suc cessfully weathered strikes of teamsters, garment workers, teleg raphers, cigar strippers, engineers, and newsboys. Some o f these strikes were bitterly contested. Orders for men were received and filled, and the superintendent states that “ not one word of criticism has ever been made to the office by employer, employee, or organized labor.” To procure applications for help, the Massachusetts free employ ment offices rely principally upon the publicity given their work in the newspapers. During the first year of their existence they re ceived much attention from the press, and reports o f their work continue to appear in the papers from time to time. During 1909 the three offices expended only $202.29 for advertising; in 1910 they ex pended $454.81, and in 1911, $581.72. An additional method of bring ing the work o f the Boston office before the public is by means of pub lic addresses delivered by the superintendent. Agents are not em ployed to solicit applications for help. It is believed this method would be expensive and at the same time ineffective. Employers applying for help make out a registry card stating the kind of work, the hours, and the rate of pay offered, and the ages of the workers desired. This card contains space for indicating each applicant sent to the employer, so that all business done with each employer can be seen at a glance. To facilitate the work when an employer wishes to hire a number o f persons the office provides a room and desk where the employer may interview applicants for work. Employers take advantage of this opportunity o f securing men quickly without the necessity of having a large number call at their offices. The same plan is followed in the female department, a room being provided where women can meet domestics seeking work, or where other employers of female labor can interview would-be employees. Beyond determining whether or not a strike exists, and asking the usual questions as to nature o f work, hours, wages, etc., which are placed upon the employer’s application card, the Massachusetts offices make no investigation o f the positions to which they send men or women. Investigation is usually unnecessary as many em ployers are known personally or by reputation to the superintendent or his assistants. When an employer acquires a bad reputation through repeated complaints from persons sent to him, the office refrains from sending him more workers. In sending workmen to positions the Boston office, at the outset, attempted to give preference to those longest registered and to per 68 BULLETIN OF THE BUREAU OF LABOR. sons having dependents. This was found impracticable, and the person in the office when help is called for now receives the prefer ence. The applicants for employment are encouraged to come often, but loitering in the office is not permitted. The law creating free employment offices in Massachusetts limited the privilege o f regis tration to residents o f the State, but has been amended so that residents are merely given preference. The three offices o f the State do not cooperate to any extent, the time required to transport laborers making it impracticable. At the same time there appears to be little necessity for cooperation, as each office is able to supply its demand without assistance. To extend the benefits o f the offices throughout the State, the law au thorizes the director of the bureau of statistics to furnish weekly to city and town clerks, to be posted by them, printed bulletins showing the demand for employment as indicated by applications at the free employment offices. The practice o f supplying these bulletins was soon discontinued because they were found to be of little value. The Boston office has not succeeded in finding places for immi grants. Neither has it been successful in placing men who have come to it through charity organizations and philanthropists. The 1909 reports show that o f 562 such persons only 125 secured employ ment through the free employment office. This small proportion is doubtless due in part to the fact that the men who come through philanthropic agencies are handicapped in one way or another, and incapable o f any but special kinds of labor. Positions for such per sons are not easily found, and an employment office seeking to grow in favor with employers may well hesitate before placing handi capped men in positions, particularly if more competent men are available. Whatever the reason for the failure to place these men, the result has been a growing lack o f confidence on the part of philanthropic organizations in the free employment office. This lack of confidence may be due in part to the different methods o f work o f the two classes o f institutions. The charity organization is concerned with the individual primarily, and seeks to find his indi vidual needs and capabilities and to deal with them. This is called personal work or more technically “ case work.” Such work can not be done by the free employment office. The very large number of persons who must be dealt with across a desk in the presence of other persons precludes it. Beyond seeking to place the best avail able man in the position offered, the employment office can do little in supplying the individual’s needs, and this limitation must often shut out the most needy. To the mind of the trained charity worker this absence o f personal work is a most serious omission. The labor unions of the State heartily indorse the work o f the free employment bureau, while they regard private employment agencies 69 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. with suspicion. They claim positive knowledge that some of the private offices are engaged in practices dangerous to their applicants and that some o f them are guilty o f the classes o f frauds frequently charged against these institutions. The unions find little occasion to patronize either the State office or private employment agencies, as the larger, stronger unions all maintain free employment bureaus for their members. During a representative month only about 3 per cent o f the male applicants for employment at the Boston Free Employment Office were members o f unions. It is probable that these men were chiefly members o f the small unions which maintain no employment office. The tables presented above show that the Fall River office secured positions for only 793 persons in 1911, and that the volume of its business has remained about .stationary for the four years since the office was established. This experience well illustrates the limitations o f an employment agency in a city without diversified industries. The industry far exceeding all others in importance in Fall River, employing 81 per cent o f all wage earners in manufacturing indus tries, is the manufacture of cotton textiles. The manufacturers’ asso ciation in that city has a working agreement with the textile unions, and the unions are relied upon to furnish the cotton-mill employees needed. During the year ending November 30, 1909, cotton manu facturers applied for only 104 workmen at the free employment office. Even if no contract existed between cotton manufacturers and unions, the field for the employment office would not be larger. With only one important industry in the town, the workmen know where to look for employment without the assistance o f the employment office, and when there is no work to be had in the one important indus try, the employment office is unable to find any work for the appli cant. It is only where industry is so diversified that men are likely to look in the wrong place for employment that a labor exchange be comes necessary. The work o f the Fall River office is, in fact, confined to domestic service and the odds and ends of business. The character o f the positions filled by the three offices in 1911 is indicated by the following table: PERSONS SECURING POSITIONS THROUGH TH E M ASSACHUSETTS FR EE EMPLOYM ENT OFFICES, B Y SEX AND OCCUPATION, 1911. [From Fifth Annual Report on the State Free Employment Offices of Massachusetts, 1911, p. 8.] Occupations. Agricultural pursuits...................................................................................... Professional service......................................................................................... i 1 Domestics and personal service...................................................................... Trade and transportation.................... ........................................................... Manufacturing and mechanical pursuits....................................................... Apprentices...................................................................................................... Total....................................................................................................... Males. Females. Total. 1,921 56 4,531 2,641 3,184 135 6 3 7,331 418 921 11 1,927 59 11,862 3,059 4,105 146 12,468 8,690 21,158 70 BULLETIN OF THE BUREAU OF LABOR. The latest reports do not show the occupations o f persons securing positions except by classes as above indicated. The second annual report, however, shows the number of each sex placed in each occu pation by each office in 1908. The table is here reproduced: PERSONS SECURING POSITION S THROUGH TH E M ASSACHUSETTS FREE EM PLOYM ENT OFFICES, BY SEX AND OCCUPATION, Y E A R ENDING NOVEM BER 30, 1908. [From Second Annual Report on the State Free Employment Offices o f Massachusetts, pp. 18 and 19.] Sex and occupation. Boston. Fall River. s& Total. MALES. Agricultural pursuits: Com huskers.......................................... Farm hands........................................... Gardeners.............................................. Onion laborers....................................... Pickers (peas)........................................ Potato laborers...................................... Tobacco workers................................... Woodchoppers...................................... Professional service: Theatrical supernumeraries................. Domestic and personal service: Carpet cleaners...................................... Chefs....................................................... Cleaners.................................................. Cooks..................................................... Dishwashers.......................................... Elevator tenders................................... Furnace tenders.................................... General workers.................................... Institution employees........................... Janitors and assistants.......................... Kitchen m en......................................... Laborers (general)................................ Laundry workers.................................. Lumpers................................................ Pin setters............................................. Porters................................................... Restaurant workers.............................. Vacuum sweepers................................. Waiters.................................................. Watchmen............................................. Window cleaners................................... Trade and transportation: Agents (not specified).......................... Bookkeepers.......................................... Boys (errand, office, etc.)..................... Canvassers............................................. Clerks (not specified)........................... Coal shovelers........................................ Distributors (circulars, etc.)................. Drivers (not specified)......................... Office workers........................................ Packers.................................................. Paper sellers.......................................... Salesmen (not specified)...................... Shippers and assistants......................... Solicitors................................................ Stablemen............................................. Stenographers and typewriters............ Teamsters Manufacturing and mechanical pursuits: Bakers.................................................... Blacksmiths.......................................... Bottlers and washers............................ Brass workers (not specified).............. Buffers................................................... Carpenters............................................. Concrete workers................................... Cotton-milloperatives (not specified). Electricians (linemen, etc.).................. Engineers............................................... Factory workers (not specified).......... Firemen................................................. Ice cutters.............................................. Ironworkers (not specified)................. 568 28 29 426 7 33 13 7 64 31 14 29 1,094 4C 21 13 7 64 85 100 8 40 3 23 29 140 95 54 9 305 8 40 281 278 8 29 5 71 23 8 40 16 4 63 2 7 7 208 3 11 52 24 38 163 102 58 20 420 10 95 2 12 50 296 581 13 29 5 83 27 6 50 10 23 18 18 9 660 95 45 36 90 21 11 11 624 61 20 32 19 15 18 66 18 67 23 33 30 44 13 16 15 8 16 9 146 4 1 4 ‘is 20 22 4 36 2 11 10 365 15 19 67 41 34 37 54 14 172 26 8 19 9 208 15 119 54 136 439 16 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 71 PERSONS SECURING POSITIONS THROUGH THE MASSACHUSETTS F R E E EMPLOY MENT OFFICES, ETC.—Concluded. Sex and occupation. Fall River. Boston. Total. m a l e s —c o n clu d e d . Manufacturing and mechanical pursuits—Concluded. Machinists____ _________ _____ Masons......... ..................... ........ ................. Meat cutters............................................................................. Metal workers (not specified)............................................... Painters__ ..,, . . . . . . _____ ................ Paper hangers ........... . . - __________ P l u m b e r s ____ Printers (not specified).......................................................... Compositors................................................. ............. Press feeders.................................................................... Pressmen........................................................................... Roofers...................................................................................... Steam fitters................................... .......... ......... Taiinifs -. ______ __________________ _________ Tinsmit-hsr T- _______ __ ____________ Woodworkers (not specified)................................................. Apprentices (not specified)................................................ . father trades and np.p.npotions T o ta l.................. , ______ _____ 27 1 3 1 33 3 4 13 2 14 18 1 70 5 42 20 128 6 35 9 37 47 11 6 8 12 2 8 92 179 1 1 5 1 5 73 32 I ll 24 46 21 161 9 40 23 39 47 11 6 9 14 8 9 97 284 4,531 1,445 945 6,921 11 42 2 301 30 18 2 37 118 1 1 1 1 FEMALES. Domestic and personal service: Addressers................................................................................ Art workers............................................................ t................ Chambermaids....................... .......................... ....................... C!ooks_______ . ................... ..................................... fyympanions__ , . , . _____ ______ _ _______ Pay wnrlrp.rs (not specified) Cleaners............................................................................. W asherwomen................................................................... Demonstrators......................................................................... Dishwashers............................................................................. Folders (circulars, papers, etc.).............................................. Hotel employees...................................................................... Housekeepers........................................................................... Housework............................................................................... Institution employees.............................................................. Kitchen workers...................................................................... Labelers.......... ........................................................................ Laundresses.............................................................................. Laundry employees................................................................. Nurse girls................................................................................ Nurses...................................................................................... Pantry workers........................................................................ Restaurant workers................................................................. Scrub women........................................................................... Second girls.............................................................................. Waitresses................................................................................ Ward maids............................................................................. Trade and transportation: Bookkeepers............................................................................. Canvassers................................................................................ Cashiers.................................................................................... Clerks........................................................................................ Cutters and pasters (press clipping)....................................... Errand girls.. ............................................................... Office workers.......................................................................... Saleswomen.......................................................................... Stenographers and typewriters.............................................. Store workers........................................................................... Telephone operators................................................................ Manufacturing and mechanical pursuits: Baker’s helpers........................................................................ Bookbinders and folders......................................................... Corset-shop employees ........................................... Cotton-mili operatives............................................................. Factory workers (not specified). . ....................... Leather workers .................................................................... Machine operators .......................................................... Printing employees................................................................. Seamstresses. ............................................................... Stitchers................................................................................... Tailoresses.... ............................................................... Apprentices (not specified) . ............................. Other trades and occupations....................................................... Total........ .................................................................. 38 8^f 188 371 5 216 133 22 200 45 18 108 1,386 7 519 9 113 18 45 19 75 26 201 82 706 9 16 54 7 18 34 49 38 43 10 4 6 273 99 246 1 5 40 262 49 506 62 1 7 12 1 11 10 45 14 14 2 1 2 8 36 1 2 73 45 3 1 2 6 2 5 2 3 5 1 3 3 2 8 38 84 236 531 2 579 345 397 25 205 45 18 197 2,154 7 593 11 131 28 104 35 76 26 205 163 787 13 18 61 9 5 18 34 53 41 51 11 11 8 5 3 22 1 6 18 4 11 68 19 306 14 3 45 76 49 12 11 69 986 1,638 8,034 5 68 273 14 3 37 49 46 11 10 45 33 5,410 19 1 72 BULLETIN OF THE BUKEAU OF LABOR. These tables indicate that domestic and personal service engaged over 85 per cent of the females who obtained employment at the Massachusetts free employment offices during the two years 1908 and 1910. The principal occupation under this classification in 1908 was “ housework,” which engaged over 2,000 women. Domestic and per sonal service also engaged more men than any other class of occupa tions. “ Manufacturing and mechanical pursuits ” was next in order in the number of men placed in 1910 and in 1908. The table for 1908 shows that this class o f workers included many skilled men. The great majority o f workers placed were unskilled, however. In 1910 89 men and in 1911 59 men were placed in “ professional service.” In 1908,40 were so placed, all as theatrical supernumeraries. The Massa chusetts offices make special effort to handle professional and skilled workers, a blank being provided whereby they may file applications by mail, and much attention being given to placing them. The Boston office has filled one position paying $2,000 per annum. The entire expense o f maintaining the offices in Massachusetts is borne by the State. The cities where the three offices are located contribute nothing. The following table shows the amount expended for the support of each office, and the average cost o f each position filled in 1911: COST OF MAINTENANCE OF MASSACHUSETTS FREE EMPLOYMENT OFFICES AND COST OF EACH POSITION FILLED, 1911. [From Fifth Animal Report on the State Free Employment Offices of Massachusetts, pp. 6, 7, and 10.] Cities. Cost of mainte nance. Per capita cost of each position filled. Boston........................................................................................................................ $15,856.11 3.969.17 Springfield.................................................................................................................. 2.115.18 Fall River................................................................................................................. $1.00 .92 2.03 21,940.46 1.04 Total................................................................................................................. When the cost per position as above indicated is compared with that in some other States, something o f the expense o f securing the accurate statistical data contained in the Massachusetts reports is suggested. In Minnesota the average cost o f each position filled during the past year was only 19.4 cents. The difference is largely, though not entirely, due to the cost o f securing accurate statistical data. LABOR S U P P L Y A N D DE M A N D AS INDICATED B Y REPORTS OF FREE E M P L O Y M E N T OFFICES. The statistics gathered by the Massachusetts free employment offices are presented in such a way as to indicate the supply and demand for labor and thus to throw some light on the amount of UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 73 unemployment. In the following table the average daily supply o f labor and the average daily demand for 1911 is shown. It should be recalled that all applications for help and employment are recorded and that no application for employment is intentionally recorded more than once. BUSINESS AT EACH OFFICE AND LABOR S U P P IY AND DEMAND, FOR THE Y E A R ENDING NOVEMBER 30, 1911. [From Fifth Annual Report on the State Free Employment Offices of Massachusetts, pp. 18 and 19.1 Supply. Work Appli ing cations days. for em ploy ment. Classification. Demand. Positions filled. Per Per cent of cent of posi posi tions tions filled filled of per of ap sons called plica tions. for. Num Aggre gate ber of Daily appli num Daily aver cations ber of aver from persons age. age. called em ployers. for. Num ber. Daily aver age. 13,898 8,918 45.72 29.33 9,303 6,503 30.60 21.39 66.94 72.92 33.38 53.10 22,816 75.05 15,806 51.99 69.28 39.40 3,690 2,486 12.10 8.15 2,791 1,519 9.15 4.98 75.64 61.10 36.14 53.47 6,176 20.25 4,310 14.13 69.79 40.80 493 1,147 1.62 3.76 374 668 1.23 2.19 75.86 58.24 17.08 47.99 1,640 5.38 1,042 3.42 63.54 29.09 18,081 12,551 59.44 41.24 12,468 8,690 40.98 28.56 68.96 69.24 33.00 52.73 30,632 100.68 21,158 69.54 69.07 38.99 Boston: Males................. Females............. 304 304 27,868 12,246 91.67 40.28 Total.............. 304 40,114 131.95 Springfield: Males................. Females............. 305 305 7,722 2,841 25.32 9.31 Total.............. 1305 10,563 34.63 Fall River: Males................. Females............. 305 305 2,190 1,392 7.18 4.56 Total.............. i 305 3,582 11.74 Total for three offices: Males....... Females.. 304 304 37,780 16,479 124.17 54.15 T otal.. 304 54,259 178.32 18,504 5,012 1,305 24,821 1Springfield and Fall River offices had 26 working days in June. The number o f males applying for work was twice as great as the number applied for and more than three times as great as the number securing positions. O f 37,780 males who applied for work during the year only 12,468 were placed in positions. O f the remaining 25,312, it can not be known how many secured employment elsewhere, but the fact that a daily average of 83 men, 61 in Boston alone, not count ing recurrent applicants, were turned away without work, indicates that unemployment is a most important factor in the industrial situa tion in the State o f Massachusetts. Only 33 per cent o f the men applying for work secured i t ; 67 per cent were not benefited. O f females, the table shows that the demand was about threefourths as great as the supply. Only 69.24 per cent o f the applica tions for help and 52.73 of applications for employment were filed. The following table shows the labor supply and demand for each o f the 12 months ending November 30, 1911: 74 BULLETIN OF THE BUREAU OF LABOR. BUSINESS AT A L L OF THE OFFICES AND LABOR SUPPLY AND DEMAND, FOR THE Y E A R ENDING NOVEMBER 30, 1911, B Y MONTHS. [From Fifth Annual Report on the State Free Employment Offices of Massachusetts, pp. 18 and 19.) Month.s Positions offered. Demand. Supply. Num Work Appli ber of ing days. cations Daily appli-. for em aver cations from age. ploy ment. employ ers. Aggre gate num Daily ber of aver persons age. called for. Positions filled. Num ber. Daily aver age. Num ber. Daily aver age. Per cent of posi tions filled of per sons called for. 1910. December.. 26 4,463 171.65 1,451 2,191 84.27 3,202 123.15 1,309 50.35 59.74 1911. January___ February... March......... April.......... May............ June............ July............ August....... September, October___ November.. 26 23 27 24 26 125 25 27 25 25 25 5,005 3,859 5,018 4,306 4,933 5,138 3,840 4,329 4,585 4,809 3,974 192.50 167.78 185.85 179.42 189.73 203.46 153.60 160.33 183.40 192.36 158.96 1,396 1,263 1,923 2,197 2,878 2,327 2,112 2,136 2,803 2,423 1,912 61.19 1,591 1,526 66.35 83.63 2,258 2,465 102.71 3,303 127.04 2,778 110.01 2,693 i 107.72 2,607 96.56 3,664 146.56 3,098 123.92 98.32 2,458 3,043 2,925 4,415 4,805 6,158 5,316 4,710 5,115 6,615 6,718 5,150 117.04 127.17 163.52 200.21 236.85 211.14 188.40 189.44 264.60 268.72 206.00 1,140 1,139 1,613 1,676 2,348 2,017 1,897 1,747 2,225 2,250 1,797 43.85 49.52 59.74 69.83 90.31 79.87 75.88 64.70 89i00 90.00 71.88 71.65 74.64 71.43 67.99 71.09 72.61 70.44 67.01 60.73 72.63 73.11 T otal... 304 54,259 178.32 24,821 58,172 191.24 21,158 69.54 69.07 30,632 100.68 i Springfield and Fall River offices had 26 working days in June, making 305 working days for the year in those offices. P RIVATE E M P L O Y M E N T OFFICES. There can be little doubt that the most important agencies for the distribution o f labor in Massachusetts and in Boston are the private employment agencies. There are 96 of these agencies in Boston, and it is estimated that there are from 250 to 300 o f them in the State. The State law provides that such agencies shall pay a license fee of not less than $2; that fees shall not be accepted unless employment is furnished; and that in case of discharge within 10 days without cause, five-sixths of the fee shall be refunded. False advertising is prohibited, and a fine of $50 to $200 is fixed for sending any woman to enter a house of ill fame. Three cities, Cambridge, Lowell, and Boston, have regulations supplementing the State laws. In all cities except Boston employment offices are licensed by the mayor and board of aldermen, and the duty of enforcing the laws concerning them rests upon these officials. In Boston the licenses are issued by a license board consisting of three members, appointed by the gov ernor. The licensing and control of employment offices is only one o f the duties of this board, which also issues liquor licenses, victualer’s licenses, and other licenses. The rules issued by this board divide employment offices into two classes, Class I and Class II. Offices of Class I deal with account ants, clerks, draftsmen, stenographers, etc., and with skilled labor. Offices o f Class I I deal with unskilled labor, farm labor, and domes tics. The license fee is $50 for offices of Class I and $25 for those o f UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 75 Class II. No bond is required. Boston has 33 employment offices o f Class I and 79 o f Class II, a total o f 112 offices. O f these, 16 are both Class I and Class II, so that the total number o f places where offices are located is 96. The rules made by the licensing board fix the fee which may be charged by offices of each class, specify that a receipt be given, and provide for the refund o f the same if employment is not ob tained and o f a part thereof if the position secured is not held. They also require a refund o f money paid for transportation if no vacancy exists where the applicant is sent. Records must be kept which shall be open to inspection by the licensing board. No provision is made for inspection, but the “ rules relating to intelligence offices,” required to be posted, contain the following words: “ Make any complaints to any police officer, who will direct you to the proper authorities.” Early in 1910 (November, 1909, to February, 1910) the Women’s Educational and Industrial Union of Boston conducted an investiga tion o f private employment offices in Massachusetts. The report has not been published, but by the courtesy of the officials of the organiza tion some of the information obtained is here presented. At the time of the investigation made by this organization Boston had 105 agencies listed by the licensing board and classified as fol lows : Class I, 21 offices; Class I and II, 18 offices; Class II, 66 offices. O f the 21 Class I offices, 1 had had its license revoked and 2 others were out o f business. O f the 18 which wTere active, 6 were general mercantile offices, 3 were textile offices placing superintendents and men in mills all over the United States, 2 specialized in hotel and res taurant help, 2 furnished chefs and cooks, 1 supplied stenographers and typewriters, 2 specialized in engineering and mechanical help, and 1 specialized in draftsmen. Two of the textile agencies were subordinate departments o f monthly magazines. O f the Class I and Class I I agencies combined, 1 specialized in farm labor and 10 in hotel and restaurant work. This division in cluded the employment bureaus of the Young Men’s Christian Asso ciation, Young Women’s Christian Association, and the Women’s Educational and Industrial Union. O f the Class I I agencies, 7 spe cialized in farm hands and woodsmen and 57 in domestic help. This classification shows something o f the field open to employment agencies. More than half o f all agencies furnished domestic help and 14 other hotel and restaurant workers and cooks. Only 15 aimed to specialize in higher-grade help. The location o f the offices as disclosed by the investigation is inter esting and throws further light upon their importance. O f 92 offices in Boston, 12 were located in lodging houses, 22 were in living rooms, 4 were in upstairs tenements, 3 were connected with dry goods stores, 1 was connected with a variety store, 1 was connected with a bakery, 76 BULLETIN OF THE BUREAU OF LABOR. 26 were in office buildings, 23 were in the poorest kind of business blocks. The offices in lodging houses and living rooms and in connection with stores were practically all domestic offices. O f the 26 in office buildings 15 were Class I offices, 7 of them mercantile, 3 were Classes I and I I combined, furnishing chiefly hotel help, and 8 were domes tic offices of a good type. O f the 23 agencies located in second-class business blocks, 11 were Class I offices, none o f high grade, 8 placed domestic help, and 5 placed farm hands. A ll domestic offices in Boston were found to be conducted by women, as were all except 3 o f Classes I and I I combined. Most o f the latter placed hotel help chiefly, so it appears that homes and hotels in Boston depend upon women office keepers for their help. The city had 15 hotel agencies, 10 of which were conducted by men. Those conducted by men do a greater volume o f business and place a higher grade o f help than those conducted by women. The investigator for the “Women’s Educational and Industrial Union visited 54 offices in nine cities outside o f Boston. In the great majority of the offices in these cities the business was found to be con ducted usually in living rooms or second-class business blocks, as a side line in connection with various occupations—dressmaking, tailor ing, housekeeping, insurance, real estate, photography, storekeeping, spiritualist meetings, etc. The volume o f business would seemingly warrant no more than 1 to 4 good offices in each of these cities, but they had from 2 to 29 each. In factory towns, notably Lowell and Lynn, the agencies placed domestics only. This bears out the experience of the State free office at Fall Eiver and emphasizes again the narrow field for employment offices in cities where the industries are not diversified. In some o f the offices visited by the investigator the sanitary con ditions were bad. Some were dirty and foul-smelling and not venti lated. On the whole, however, sanitary conditions were found to be fairly good. O f the 148 offices visited in the State, 110 were kept by women and only 38 by men. O f 75 representative office keepers in Boston, the investigator re ports that only 12 were making use of the blank form or card system o f registrations, and only 14 pretended to keep references on file. The law does not require that references be kept nor that receipts be given for fees. The local regulations in Boston and Cambridge re quire receipts for fees. It was found, however, that in these cities, as well as in all others, the office keeper who uniformly gave a receipt was the exception. The great majority say that they give them “ only when asked for.” UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 77 The report summarizes business methods as follow s: A small minority, including the large mercantile and textile offices in Boston, the engineering agencies, and a few others, together with 6 to 8 domestic offices, approximately 20 out of 148, had full business equipment, well-ventilated, clean, orderly business offices, where suit able provision was made as to waiting room for applicants and where businesslike management matched the appearance of the office, where books and other records were accurately kept, references were investi gated, and kept on file, and receipts were invariably given for all fees received. In other agencies, in the three cities where local regulations called for them, books o f registration were usually kept, after a fashion; in other cities the office keeper registered his applicants or not, as he pleased; sometimes he made no pretense o f doing so, and again a very poor pretense, registering employers, but not employees, and keeping no record o f fees received. Those who invariably gave receipts were the exception. About 11 per cent kept references on file. The investigation indicated that the employment business is not, as a rule, profitable if full business equipment is maintained. The hotel agencies gain considerable profit, chiefly because the investiga tion o f references is not considered necessary. In the majority of offices outside o f Boston the employment business is a side issue to some other, because the profit is not sufficient to maintain it alone. The most common form of fraud practiced by agents in Boston was found to be the acceptance o f “ gifts ” and illegal fees. One domestic worker reported that her job cost her $3 extra and that offices “ take gifts and let you know what they want.” Four offices admitted that they took illegal fees and 10 that they accepted “ gifts.” OTHER AGENCIES I N BOSTON. Various philanthropic and semiphilanthropic societies are also en gaged in obtaining work for the unemployed in Boston. Agencies which charge a fee must have a license, and are under the jurisdic tion o f the license board. The Young Men’s Christian Association of the city maintains a licensed employment bureau, which charges the full fee and limits its service to members. The office was formerly a free office. The superintendent states that with each increase in fee both the quality and quantity o f the business have increased. The office placed 1,258 applicants during the year ending April 30, 1909. The Young Women’s Christian Association also maintains an em ployment agency for women and the Young Men’s Christian Union maintains a free bureau for young men and boys. The Associated Charities Society does not maintain an employment office as such, but tries to find employment through employment agencies and otherwise for men who come under its attention. The same thing is true o f the Boston Provident Association. The Industrial Aid Society places farm help. 78 BULLETIN OF THE BUREAU OF LABOR. For dealing with immigrants and finding them employment there are the Benevolent Aid Society for Italian Immigrants, the German Aid Society, and the Boston branch Baron de Hirsch Fund, the field o f each being indicated by its name. The labor unions, it has been mentioned, maintain employment offices as a part of their regular office work for the benefit o f members. The National Metal Trades Association maintains a free employ ment bureau in Boston. The Employers’ Association of Boston also maintains such a bureau for the benefit of its members. Its object is to assist in maintaining the open shop. Applicants for employment are asked whether or not they are members o f unions, but the office claims to make no dis crimination, placing as many union as nonunion men. It uses every effort to secure men needed in case of a strike, but it also serves its members at all times. It keeps a record o f men and makes some investigation as to their ability before sending them to positions. Following is a statement o f the business done by the office during 1911-12 and also since its establishment in 1906: OPERATIONS OF THE EMPLOYMENT DEPARTM ENT OF THE EM PLOYERS' ASSO CIATION OF BOSTON. January July 1,1911, to 30,1906, to March March 1,1912. 1,1912. Applicants registered....................................................................................................... Requests from members for help..................................................................................... Men needed to fill requests............................................................................................... Men sent out to fill positions............................................................................................ Men sent out employed.................................................................................................... 4,533 518 1,397 1,951 983 16,821 2,258 io'iii 3,329 MICHIGAN. STATE FREE E M P L O Y M E N T OFFICES. The law establishing free employment offices in Michigan was en acted in 1905. The reasons for its passage, as well as the methods o f administration of the first two offices established during the first few months o f their existence are discussed in Bulletin 68 o f this Bureau, issued in January, 1907, to which the reader is referred. The follow ing extract from the 1907 report o f the superintendent of the Detroit office indicates that the desire to curb the abuses o f private offices was a very important factor in securing the establishment o f free offices. The report says: Because o f the unscrupulous methods pursued, with scarcely an exception, by the private employment agents o f the larger cities in the State, and with the object of at least partially protecting the thousands of working people against the fraud and deception prac UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 79 ticed by these sharks, the legislature passed a law directing the com missioner o f labor to establish free employment bureaus.1 The law enacted in 1905 authorized the establishment o f such o f fices in cities having a population of over 50,000, but made no special appropriation for the purpose, except an allowance o f $500 for ad vertising. Under the provisions o f this law offices were established in two cities, Grand Rapids and Detroit. In 1907 a new law appro priated $5,000 for the support o f free employment bureaus and auTwo new offices were established in 1907—one at Saginaw and one thorized their creation in cities having 30,000 population or over, at Kalamazoo. A fifth office was established at Jackson in 1908. The legislature o f 1909 reenacted the law o f 1907, with a few changes. This law authorizes free employment bureaus in three more cities—Bay City, Battle Creek, and Muskegon. It appropriates $40,000 annually for the support o f the department o f labor, aside from the salary o f the commissioner o f labor and his deputy. This amount must defray the salary and expenses o f the entire depart ment, including factory inspection, coal-mine inspection, the gather ing o f statistics, the expense o f the several free employment bureaus of the State, the inspection o f public buildings, school buildings, opera houses, and theaters. It is evident that not a large amount is available for the maintenance o f free employment bureaus. For this reason the three additional offices authorized have not been estab lished. The law forbids the charging o f any fee directly or indirectly; directs the commissioner o f labor to use all diligence in securing the cooperation o f employers of labor, by advertising and other means: and provides for the appointment by such commissioner o f such assistants as may be necessary, all o f whom shall be under his direc tion and receive such compensation as he may determine. Each o f the four offices outside o f Detroit has a manager only. Three o f these managers are men; the manager at Jackson is a woman. The mana ger o f the Detroit office has two assistants—a man and a woman. The Detroit manager is also superintendent of all offices in the State, but he seldom visits the other offices. Two of the offices, those at Detroit and Saginaw, are located in the city hall, and so are without expense for rent. The offices, except that at Detroit, in addition to their other work, issue work permits to children. The following table shows the amount of business done by each of the five offices o f the State for the four years, 1908 to 1911: 1 Twenty-fifth Annual Report M ichigan Bureau o f Labor, 1908, p. 471. * 80 BULLETIN OF THE BUREAU OF LABOR. BUSINESS OF FREE EMPLOYMENT OFFICES OF MICHIGAN FOR YEARS ENDING NOVEMBER 30, 1908 TO 1911; ALSO TOTAL BUSINESS OF EACH OFFICE FROM ES TABLISHMENT TO NOVEMBER 30, 1911. [Compiled from Annual Reports of the Department of Labor, Michigan.] 1908. Applications for em ployment. Applications for help. Positions secured. Males. Females. Total. Males. Females. Total. Males. Females. Total. Location of office. 5,408 2,844 521 4,300 2,992 1,887 2,231 353 1,412 632 7,295 5,075 874 5,712 3,624 5,361 1,511 198 1,617 1,709 2,275 1,550 258 973 777 7,636 3,061 456 2,590 2,486 4,951 1,453 160 1,339 1,430 1,773 1,490 205 666 526 6,724 2,943 365 2,005 1,956 Total........................ 16,065 6,515 22,580 10,396 5,833 16,229 9,333 4,660 13,993 Detroit.............................. Grand Rapids................... Jackson.............................. Kalamazoo........................ Saginaw............................. 1909. Detroit............................... 20,714 Grand Rapids................... 4,375 Jackson.............................. 1,317 Kalamazoo........................ 3,941 Saginaw............................. 2,751 3,905 1,844 826 2,259 689 24,619 6,219 2,143 6,200 3,440 21,358 3,996 883 2,623 1,844 5,661 2,071 814 2,570 843 27,019 6,067 1,697 5,193 2,687 19,321 3,199 804 2,050 1,529 3,703 1,484 642 1,667 547 23,024 4,683 1,446 3,717 2,076 Total........................ 33,098 9,523 42,621 |30,704 11,959 42,663 26,903 8,043 34,946 1910. Detroit.............................. 24,769 Grand Rapids.................. 8,059 Jackson............................. 1,249 Kalamazoo........................ 4,011 Saginaw............................. 2,711 5,694 3,331 779 2,138 554 30,463 11,390 2,028 6,149 3,265 25,223 6,816 785 3,230 2,120 7,214 4,262 877 2,541 844 32,437 11,078 1,662 5,771 2,964 23,509 6,017 650 2,0S3 1,783 5,538 2,817 652 1,388 502 29,047 8,834 1,302 3,471 2,285 Total........................ 40,799 12,496 53,295 38,174 15,738 53,912 34,042 10,897 44,939 1911. Detroit.............................. 25,379 Grand Rapids.................. 9,795 Jackson............................. 1,836 Kalamazoo........................ 5,419 Saginaw............................ 3,827 5,825 3,341 1,279 2,031 599 31,204 13,136 3,115 7,450 4,426 25,303 7,885 1,094 3,537 2,156 6,875 3,630 1,355 2,452 904 32,178 11,515 2,449 5,989 3,060 23,767 6,655 957 2,587 1,722 5,633 2,706 1,055 1,166 509 29,400 9,361 2,012 3,753 2,231 Total........................ 46,256 13,0/o 59,331 39,975 15,216 55,191 35,688 11,069 46,757 T O T A L BUSINESS O F E A C H O F F IC E F R O M E STA B L ISH M E N T TO N O V E M B E R 30, 1911. 97,355 32,376 4,923 18,471 13,515 20,623 117,978 100,848 14,875 47,251 27,031 8,160 2,960 3,237 8,099 26,570 11,459 16,283 2,768 9,339 26,712 127,560 16,493 43,524 3,304 6,264 8,803 20,262 3,774 13,113 92,460 22,948 2,571 8,438 7,342 19,938 32,084 2,554 5,027 2,298 112,398 35,032 5,125 13,465 9,640 Total........................ 166,640 49,602 216,242 151,637 59,086 210,723 133,759 41,901 175,660 Detroit.............................. Grand Rapids.................. Jackson............................. Kalamazoo........................ Saginaw............................ The table shows that the number o f positions secured by the five offices in the State increased from 13,993 in 1908 to 46,757 in 1911. In 1911, 35,688 males and 11,069 females were placed in positions. Dur ing the year 59,331 applications for employment were recorded, but as will appear later this does not indicate how many persons came to the various offices seeking employment. During the same year 55,191 81 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. applications for help were made to the five offices, 8,434 o f which were not filled. No positions are recorded as secured unless the office has positive assurance that the applicant has been accepted. The Detroit office secured positions in 1908 for 6,724 persons and in 1909 for 23,024, an increase of 16,300, or more than 250 per cent. In the year ending November 30, 1911, there was a further increase to 29,400. The following table shows the amount of business done each month by the Detroit office from December 1, 1910, to November 30,1911: APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS SECURED, DE TROIT FREE EMPLOYMENT OFFICE, FOR TW ELVE MONTHS ENDING NOVEMBER 30, 1911. Applications for em ployment. Applications for help. Positions secured. Males. Females. Total. Males. Females. Total. Males. Females. Total. Months. 860 966 1,040 1,449 1,618 2,740 2,150 2,154 2,757 3,239 3,718 2,688 286 433 405 487 515 620 575 427 565 542 557 413 1,146 1,399 1,445 1,936 2,133 3,360 2,725 2,581 3,322 3,781 4,275 3,101 728 854 938 1,347 1,546 2,773 2,102 2,110 2,779 3,599 3,757 2,770 324 472 473 552 597 792 704 532 627 705 609 488 1,052 1,326 1,411 1,899 2,143 3,565 2,806 2,642 3,406 4,304 4,366 3,258 710 827 880 1,251 1,469 2,608 1,969 2,031 2,651 3,112 3,571 2,688 270 415 391 474 503 610 554 414 545 528 516 413 980 1,242 1,271 1,725 1,972 3.218 2; 523 2,445 3,196 3,640 4,087 3,101 Total........................ 25,379 5,825 31,204 25,303 6,875 32,178 23,767 5,633 29,400 26,712 127,560 92,460 19,938 112,398 December, 1910................. January, 1911.................... February, 1911.................. March, 1911....................... April, 1911......................... May, 1911.......................... June, 1911.......................... July, 1911........................... August, 1911.................... September, 1911............... October, 1911.................... November, 1911............... Total from establishment of office to November 30, 1911................................ 97,355 20,623 117,978 100,848 This table indicates that the phenomenal increase in the amount o f business transacted by the Detroit office still continues. During the 12 months ending November 30, 1911, this office recorded 31,204 applications for work and 32,178 applications for help. It secured positions for 23,767 males and 5,633 females, a total o f 29,400, or 2,450 each month. The Detroit office has only two small rooms in the basement o f the city hall. This permits the use of only one room by the public. The comparatively small number o f females placed in positions is prob ably due to the lack o f a separate room for female applicants. In studying the above tables, as well as the reports o f any employ ment office, the conclusion should not be drawn that the number of persons entered under “ Positions secured” were placed in fairly permanent employment. Many of the positions are for a day or less, some for only an hour. Nearly all of the women sent out from the Detroit office on the Monday morning when it was visited by the writer were women to wash or scrub for a single day or half a day. For this work all women sent by the office are understood to receive a 66269°—Bull. 109—18----- 6 82 BULLETIN OF THE BUREAU OF LABOR. standard rate of $1.25 a day and 10 cents car fare. It is impossible to determine what proportion either of men or women are placed in permanent positions, but many receive only a day’s work and return the following day or week for another job. Some of the short hurry calls for men are not recorded. While the writer was in the office a call came for men to work at the docks. They were wanted at once and the manager of the office announced the opportunity and told all that wanted the work to go. Another occurrence the same morning well illustrates the character of the men patronizing the office. A call came for 30 men to help in wrecking buildings, at 25 cents an hour. Payment was by the week, however, and no pay would be received for a week and a half after beginning work. Although the office was packed with men, none volunteered for the work. The superintendent explained that the men did not really want work or else were unable or unwilling to wait for their wages. They demanded a job which would bring money at the end o f the day. The character of the positions filled by the Detroit office is shown by the following table: OCCUPATIONS OF PERSONS SECURING POSITIONS A T TH E D E TR O IT FREE EMPLOYMENT OFFICE, Y E A R ENDING NOVEMBER 30, 1909. M ALES. Occupations. Positions securea. Agents........................... Ambulance drivers.. . . Apprentices.................. Assemblers................... Asylum attendants.. . . Automobile painters.. . Automobile repairers... Auto washers............... Bakers........................... Bandsaw hands............ Barbers......................... Bam m en .................... Bar porters................... Bartenders.................... Bell boys...................... Bench hands................. Blacksmiths................. Blacksmiths' helpers.. Boiler makers.............. Bootblacks.................... Boring machine hands. Box makers................. Box nailers.................. Brass brazers................ Brass furnace tenders. . Brass molders............... Brass polishers............. Bricklayers................... Buffers.......................... Bus b oy s...................... Bushelmen................... Butchers....................... Butlers.......................... Cabin boys.................... Cabinetmakers............. 125 Carpenters............. Carriage trimmers.. Casting clippers 845 8 19 22 1 4 8 15 8 2 1 128 7 1 46 42 46 15 4 10 25 6 2 5 10 Occupations. Cement-block makers... Cement-block setters.. .. Cement finishers............ Cement workers............. Chefs............................... Chore boys..................... Chore m en...................... Clerks.............................. Cooks.............................. Coopers........................... Core makers.................. Corrugated-iron workers Craters............................ Deck hands.................... Demonstrators............... Die makers.................... Die setters...................... Dishwashers................... Distributors................... Dock builders....... ........ Draughtsmen................. Drill-press hands............ Drivers........................... Electrical workers.......... Electricians.................... Elevator conductors___ Engineers....................... Errand boys................... Factory boys................. Factory helpers............. Factory laborers............ Farm and dairy hands.. Farm boys...................... Farm hands.................... Filers.............................. Firemen.......................... Fitters............................ Floor scrapers................ Florists........................... Foundry helpers............ Positions secured. 2 4 27 533 37 21 352 5 2 6 27 17 17 1 157 89 9 1 128 117 25 12 34 95 126 430 171 595 239 45 441 3 68 1 11 4 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 83 OCCUPATIONS OF PERSONS SECURING POSITIONS A T THE D E TR O IT FR E E EMPLOYMENT OFFICE, Y E A R ENDING NOVEMBER 30, 1909—Continued. M A LE S—Concluded. Occupations. Fry cooks.................................................. Fumace-repair men.................................. Fiirrritnra finishpirs Furniture vamishers................................ Gardeners.................................................. Gasoline engineers.................................... Glass cutters............................................. Glass fitters............................................... Glass framers.............. ............................. Gordon press feeders................................ Grinders.................................................... Grocery clerks.......................................... Hand carvers....... Handy -men. . . . Hoisting engineers.................................... Hotel clerks............................................... House m en............................................... Iron molders............................................. Janitors.. , ................................................ Jones and Lamson operators................... Kitchen men.___ x Laborers................................................... Landis? grinders.. , Lathe hands......... Lathers..................................................... Laundrymen............................................ Locksmiths............................................... Lumber handlers..................................... Lumber scalers........... ............................ Lunch-counter men................................. Machinery riggers..................................... Machinists................................................ Machinists7apprentices........................... Machinists’ helpers................................. Marble setters........................................... Mason tenders.......................................... Mechanical draftsmen.............................. Messenger boys......................................... Messengers................................................ Metal polishers.......................................... Mill hands................................................. Milling machine hands............................ Millwrights............................................... Monitor hands.......................................... Night watchmen...................................... Nurses....................................................... Office boys................................................ Office clerks.............................................. Oilers........................................................ Orderlies.................................... Painters................................................... Pantrymen............................................... Pan washers............................................. Paper hangers.......................................... Pastry cooks............................................. Pattern makers........................................ Photographers.......................................... Piano finishers.......................................... Piano players........................................... Pile drivers............................................... Pin boys................................................... Pipe fitters................................................ Pipe organists.......................................... Planers...................................................... Plasterers.................................................. Plasterers’ helpers ............... Plumbers.................................................. Plumbers’ helpers..................................... Positions secured. 13 4 29 12 30 2 4 3 2 9 23 2 1 485 8 9 44 7 105 12 80 8,901 26 138 40 15 1 494 3 13 3 195 1 10 1 72 1 15 1 47 4 37 51 44 33 6 45 28 12 25 255 1 30 58 1 22 1 3 4 32 29 16 1 10 46 1 20 7 Occupations. Polishers.................................................... Porters...................................................... Power-machine operators........................ Pressers................. Press feeders............................................. Printers..................................................... Punch-press hands................................... Punch-press men....................................... Radiator testers........................................ Rip sawyers.............................................. Riveters.................................................... Rivet heaters............................................ Roofers...................................................... Rough carpenters..................................... Rough slun rubbers.................................. Salesmen................................................... Sawyers..................................................... Screw machine hands.............................. Shaper hands............................................ Sheet-metal workers................................ Shinglers................................................... Ship carpenters........................................ Shipping clerks......................................... Shoeblacks................................................ Shoemakers............................................... Sign painters............................................. Sign writers............................................... Slaters....................................................... Soda dispensers........................................ Solderers.................................................... Steam fitters............................................. Steam fitters’ helpers............................... Steel temperers......... •............................. Stenograpners........................................... Stock boys................................................ Stockmen.................................................. Storeroom helpers..................................... Stove repairmen................................... Structural-iron workers........................... Tailors....................................................... Teamsters.................................................. Thrashing-machine hands........................ Tinners’ helpers........................................ Tinsmiths................................................. Tinsmiths’ helpers................................... Toolmakers............................................... Trim sawyers........................................... Upholsterers............................................. Variety sawmen....................................... Varnidi rubbers........................................ Waiters..................................................... Warehouse helpers................................... W arehousemen......................................... Warner and Swasey operators................. Washers.................................................... Watchmen................................................ Water tenders........................................... Whitewashers........................................... Window cleaners...................................... W ood finishers.......................................... Woodturners............................................ Woodworkers................... ...................... Yard foremen............................................ Yardmen................................................... Total................................................ FEM A LE S. Actresses................................................... Agents....................................................... Billing machine operators....................... Bookkeepers............................................. C ham berm aids,,,,.,,.,......... 3 38 1 2 159 Cigar makers.......................................... Cooks....................................................... Core makers............................................ Demonstrators...................................... Dishwashers Positions secured. 7 264 2 5 9 1 19 14 4 5 16 7 25 242 2 7 10 79 9 34 5 18 25 5 3 11 2 2 12 63 14 7 1 7 3 2 15 4 48 5 322 3 13 118 29 90 1 8 1 1 28 77 7 4 17 4 8 1 1 96 13 21 33 1 24 19,321 84 BULLETIN OF THE BUREAU OF LABOR. OCCUPATIONS OF PERSONS SECURING POSITIONS AT THE D E TROIT F R E E EMPLOYMENT OFFICE, Y E A R ENDING NOVEM BER 30, 1909—Concluded. F E M A LE S—Concluded. Occupations. Domestics................................................. Dressmakers............................................. Factory workers....................................... Hall girls................................................... Housekeepers............................................ Housemaids.............................................. Janitresses................................................. Kitchen women........................................ Labelers.................................................... Laundresses.............................................. Laundry workers..................................... Lunch-counter women............................. Machine operators. . Machine workers....................................... Nurse girls................................................. Positions secured. 591 2 222 10 37 13 26 433 29 546 57 2 19 14 32 Occupations. Nurses....................................................... Office girls................................................. Pantry girls.................... Pantry women__ Pastrycooks............................................. Salesladies................................... Scrub women......... Seamstresses............................................. Singers....................................................... Solderers................................... ... Stenographers............................ .... Waitresses....................................... Total.............................................. Positions secured. 9 30 59 6 13 12 606 3 1 12 14 287 3,703 This table clearly indicates that the great majority of persons securing positions through the Detroit office are unskilled. Out of a total of 19,321 male persons placed in 1909, 8,901 were classed as laborers and 595 as factory laborers. Factory helpers numbered 171, factory boys, 430; chore men, 352; barn men, 128; farm hands, 441; rough carpenters, 242; lumber handlers, 494; teamsters, 322; porters, 264; dishwashers, 157; handy men, 485; errand boys, 126; and cement workers, 533. These 15 occupations engaged 13,641 of the applicants who secured positions. Other unskilled workers were: Agents, 125; bell boys, 46; farm boys, 45; house men, 44; janitors, 105; kitchen men, 80; and window cleaners, 96. On the other hand, the table shows that a fair number of skilled workers found work through the free employment office. Among these were 40 brass molders and 10 brass polishers, 66 bricklayers, 96 buffers, 845 carpenters (perhaps not all skilled), 40 lathers, 37 elec tricians and electrical workers, 138 lathe hands, 195 machinists, 47 metal polishers, and 51 millwrights. Other skilled men were: Paper hangers, 58; tool makers, 90; plasterers, 48; and solderers, 63. Four piano players and a pipe organist also secured positions through the office. The list o f occupations shows that the automobile manufac turers o f Detroit are patrons of the employment office, and it is to the growth of this industry and its demand for labor that the super intendent of the Detroit office attributes a part of the rapid growth of business in his office. O f the 3,703 women and girls securing positions, 222 were factory workers and 287 were waitresses. The only other occupations engag ing more than 100 workers were the domestic occupations. Kitchen women numbered 433, domestics 591, laundresses as distinguished from laundry workers 546, chambermaids 159, cooks 190, dishwashers 192, and scrub women 606. Very few skilled women secured posi tions through the bureau. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 85 The Michigan offices find positions for boys out on probation from State reformatories. The employer is usually not advised o f the character o f these employees, but great care is taken in placing them. The Detroit office was the only office in Michigan visited by the writer. Its business methods are the same as those of the other offices in the State, and owing to the large amount of business done a de scription o f its administration should be valuable. The office, as stated, has a force of only three persons. This has necessitated a simplification o f methods. Only two forms are in common use, one to record applications for help and the other an introduction card given persons sent to positions. The following form is used to enter appli cations for help, most of which come by telephone: A p p l ic a t io n fo r H elp. Date_____________________________ Name____________________________________________________________________ Address_______________________________________________ Phone___________ No. and class of help wanted________ - _____________________________________ Wages__________________________________ per--------------------------------------------Other particulars_________________________________________________________ To bring the existence of the bureau to the attention of employers, and so obtain applications for help, the superintendent sometimes visits employers. Factory inspectors also carry the cards o f the employment bureaus and pass them to manufacturers and thus help build up the work. The office spends very little money for adver tising. Applicants for employment congregate in the waiting room o f the employment office and await calls for workmen, which are announced by the superintendent. To persons volunteering for a position is given an introduction card, as follow s: MICHIGAN FREE EMPLOYMENT BUREAU. D e t r o it O f f ic e — B asem ent C it y H all. -------------------------------------------- , 19— The bearer------------------------------------------is sent you in response to your request for. Please notify this office whether you do or do not employ the person sent, that your order may be canceled or another person sent you. -------- , Superintendent. 86 BULLETIN OP THE BUREAU OF LABOR. This card seldom includes the bearer’s name, his occupation being entered after the word “ bearer.” No record is made o f the number o f men or women who visit the office in search o f work, and, except in the case o f unusual or highly skilled occupations, no applications for employment are filed. Although this practice, it is admitted, vitiates the statistics for the purpose o f indicating the labor supply, the office force is not sufficient for recording all applications. It follows that unless a call for a carpenter, for example, is on file when a carpenter applies he must apply again in order to secure a position. Should an employer apply later for a carpenter the man will not be sent for, but the job goes instead to the first person with proper qualifications who applies after the employer’s application comes in. It should be mentioned that the same result usually obtains in offices recording all applications for work. Calls for help must ordinarily be filled as soon as possible, and an earlier applicant will not be sent for if another is waiting in the office. It will be observed that the application blank calls for very little information from employers seeking help. No investigation is made o f positions offered, except to find whether a strike exists. In case o f a strike the policy o f the office is not to send workmen. Ordinarily no information is recorded concerning applicants for work. They are necessarily questioned as to character o f work wanted and also con cerning their experience. Beyond this they are not questioned and references are not required. In the opinion o f the superintendent it is a mistake to ask and record the detailed questions used by some employment bureaus. He believes that the life history o f an appli cant for work is not the business of the employment bureau, and that the inquisitorial methods sometimes used tend to keep applicants away. His aim is to connect the man with the job with the least pos sible delay, and the result is the method described above. EMPLOYERS’ ASSOCIATION OF DETROIT. Judging by the number of positions filled, the Michigan Free Em ployment Bureau is the most important agency engaged in the distri bution o f labor in Detroit. The free employment bureau of the employers’ association places a large amount of labor, however. This association has about 190 members. The secretary states that the members o f this association employ from 75,000 to 85,000 wage earn ers, or approximately half of all in the city. Practically the only business of the association is the maintenance of an employment bureau. A ll applicants for employment, either at the employment bureau o f the employers’ association or at the office o f any o f the mem bers o f the association, are required to answer the questions indicated on the following form : UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. A p p l ic a t io n for E 87 m ploym ent. Name_______________________________________________________No.---------------No___________ Street--------------------------------------------------------------------------------Trade_______________ Age_______ Nationality________________ Single Married Where last employed______________________________________________________ Wlien did you leave----------------------------------------------------------------------------------Reason for leaving________________________________________________________ Applicant sign h e r e ^ ____________________________________________________ Engaged by______________________________ Date employed------------------- , 19__ Department______________________ Occupation_________________ Rate_____ Physical condition_________________________________________________________ Remarks_______________________ - ________________________________________ Each application, together with any other information obtained concerning the applicant, is placed on file and indexed. When an applicant is sent to a position, he is given an introduction card bearing his signature to prevent its transfer or sale. I f the man is engaged, this card is returned to the labor bureau by the employer to complete the workman’s record. The bureau now has on file the records o f more than 100,000 men. The bureau is notified if men leave any employer in the associa tion or are laid off. The following notice is then sent to these men: No fee charged. D e a r S i r : If out of work, we may be able to help you to secure a position if you will present this card at our labor bureau. E m ployers’ , A s s o c ia t io n of D e t r o it , Stevens Building Washington and Grand River Avenues. During the year 1911, 32,645 new employees were reported as en gaged by the members o f the association. O f these, 17,235 applied for work at the employment bureau and the remainder were engaged without its assistance. During the year 74,496 applications were re ceived at the bureau. The importance of the work is increased by the fact that a majority of applicants placed are skilled men and are placed in fairly permanent positions. The bureau deals with both skilled and unskilled labor, and also furnishes stenographers and clerks. As a result of the thorough investigation o f workmen’s records its indorsement is practically a guaranty o f the workmen’s ability and character. The association is professedly antiunion, but the employment bureau, in common with similar bureaus else where, disclaims any discrimination against union men. 88 BULLETIN OF THE BUREAU OF LABOR. PRIVATE E M P L O Y M E N T OFFICES IN DETROIT. Michigan has no State law regulating private employment offices. Such offices are regulated in Detroit by the following ordinance: S ec. 5. Persons so licensed may receive fees or compensation for their services as follows: From each female seeking employment, 50 cents; and from each male, $1; from each person applying for a female servant, 50 cents; and for a male servant, $1; and in every case a receipt shall be given for the money paid: Provided, That in case no servant or place of employment is obtained within six days from the date o f the payment the money shall be refunded. The above schedule o f rates shall, however, only apply to positions the salary or compensation for which shall not be more than $30, per month. In the case of positions the compensation or salary for which shall be more than $30 per month, the person so licensed may be per mitted to contract with the employment seekers as to compensation, but the compensation so agreed upon shall in no instance exceed 10 per cent o f one month’s salary or compensation o f such position. No cash fee above $2 shall be accepted from seekers o f employment, and both cash fee and order for payment shall not be collected from same applicant. Persons so licensed shall not charge any fee for registration, litera ture, or compel employment seekers to subscribe to any periodical o f whatever nature. Persons so licensed shall not advertise or by any means attempt to make their business known as a bonding or brokerage office, but shall be known as an intelligence office or employment bureau. This section and all other sections of this ordinance as to the fees to be charged by intelligence offices shall be printed upon the back of every receipt issued by the intelligence office or employment bureau. In 1910 Detroit had 18 licensed employment offices. O f these, 11 were conducted by men and 7 by women; 13 were in business blocks and 4 in private houses; 4, all conducted by women, placed domestics only; 5 were booking agencies for theaters, nickelodeons, etc.; 8 were general in character; and 1 dealt only with clerks, stenographers, and high-class labor. No report was made of the amount of business done by these agencies. The licensed employment agencies are under the jurisdiction o f the sergeant of police of Detroit. The opinion prevails that the law is well administered. The licenses of five offices have been revoked for dishonest methods. The following table shows the amounts refunded to applicants through the orders of the sergeant o f police during the past few years: Amount Amount Amount Amount refunded in 1907-------------------------------------------------------------- $180.00 refunded in 1908_________________________________________ 404. 75 refunded in 1909-------------------------------------------------------------- 160.00 refunded first 6 months of 1910____________________________ 120.50 U N E M P L O Y M E N T AND W O RK OF E M P L O Y M E N T OFFICES. 89 YOUNG M EN’ S CHRISTIAN ASSOCIATION EMPLOYMENT OFFICE. One o f the licensed employment offices of the city is that connected with the Young Men’s Christian Association. This office was estab lished in January, 1909, and almost from the outset it has done a large amount of business. During the year ending May 1, 1910, it placed 2,116 men and boys in positions. It received during that time orders for 4,989 men and boys from 1,540 employers. Applicants for employment fill out a detailed application blank stating, among other facts, the names of the last three employers or, if none, the names of three teachers. The office communicates with all o f these asking for an estimation of the applicant, and a sum mary of these reports is sent to the prospective employer of each applicant. Nobody is directed to an employer until this investiga tion is made except in the case o f hurry calls, and then the employer is advised of the fact, and reports concerning the man are sent him later. It is interesting to note that out o f 5,600 men and boys apply ing for work at the office, adverse reports were received for only 80. The attention of employers is brought to the existence of the office in various ways. One of these is a printed account and description of the work of the office on the margin o f the letter paper used. When the office was established, the manager mapped out the city with the intention of visiting all who might possibly be patrons. The business of the office increased so rapidly, however, that after two weeks these visits were given up. As a result of the publicity given the office among employers, the demand for help ordinarily exceeds the supply. This is shown by the following table, which covers the first six months of 1910: APPLICATIONS FOR W O R K AND FOR HELP AND POSITIONS SECURED THROUGH YOUNG M EN S CHRISTIAN ASSOCIATION EMPLOYMENT OFFICE, D ETROIT, 6 MONTHS ENDING JUNE, 1910. Months. January, 1910.................................................................................................... February, 1910................................................................................................. March, 1910....................................................................................................... April, 1910......................................................................................................... May, 1910.......................................................................................................... June, 1910......................................................................................................... Applica Applica Posi tions for tions for tions se work. help. cured. 296 250 243 191 190 221 390 315 521 451 288 261 158 123 154 120 102 108 During the first nine months of its operation the office found posi tions for 445 office men and salesmen, 430 mechanics, 316 factory men, and 119. boys. During the first six months of its operation it filled 24 positions, paying $75 to $100 a month, and 222 at from $50 to $75. These facts indicate the nature of the bureau’s work. It does not handle laborers or hotel help, and it fills very few posi 90 BULLETIN OF THE BUREAU OF LABOR. tions paying as high as $125 per month. It directs unskilled laborers to the Michigan Free Employment Bureau, and farmers applying for help are also directed to the same place. Applicants securing positions must be members of the Young Men’s Christian Association, in which a short membership can be obtained for 50 cents. The fees charged vary from $1 for positions paying less than $7 per week to 10 per cent of the first month’s wages, and are increased by delay in payment, but all applicants are urged to pay promptly. Applicants are also urged to secure positions by their own efforts. The fees do not pay the expenses o f the office. OTHER AGENCIES IN DETROIT ENGAGED IN THE DISTRIBUTION OF LABOR. The Young Women’s Christian Association also maintains an em ployment office for women and girls which is run on much the same lines as that of the Young Men’s Christian Association. This office placed 474 women in positions during the first nine months o f its operation, which began in 1909. During the year 1910, 5,431 were placed in positions, and during 1911, 8,205 positions were filled. Posi tions are secured for domestics, stenographers, teachers, dressmakers, and others. The Associated Charities maintains an employment bureau which places women for day work principally. The object o f the bureau is to furnish relief to persons in need o f help, and not to act as an intermediary between those seeking help and those seeking work. It has more applications for help than it can fill, yet it will not place women i f they are needed at home, or if the family can be supported without the woman’s work. Very few positions are secured for men by the Associated Charities. Men, if unskilled, are directed to the Michigan Free Employment Bureau and, if skilled, to the employers’ association. The reports of the office show that during 1909, 1,144 positions were secured through the office. As noted, most o f the jobs furnished were of one day’s duration. The McGregor Mission furnishes lodging and food to men in need in return for labor. It also places men as handy men and in house work for short jobs. Such work was found in 1909 for 3,669 men, about 200 of whom were placed in permanent positions. The mis sion requires its patrons to search for permanent work through other agencies. The Salvation Army #also finds temporary work for men and women. The Jewish charity society acts as an employment agency for Jews in the city, and does effective work. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 91 The business agents o f labor unions aim to find employment for their own members, but, owing to the weakness of labor unions in Detroit, are not an important factor in the distribution of labor. The large amount o f business done by the employment offices in Detroit is, in part, an indication of effective management, and in part the result o f the business activity of the city. The establishment o f automobile factories in large numbers has given the business of the city a great impetus, and this accounts in some degree for the reports o f enormous business by employment agencies. There is some cooperation among the various agencies as mentioned in the above discussion, but not a great deal. Little criticism is heard of any o f the agencies except the private offices, and, by labor unions, o f the bureau o f the employers’ association. The feeling seems to prevail, to some extent, that the services of an employment office should be free, owing, perhaps, to the large work done by the Michi gan Free Employment Bureau and the free office of the employers’ association. The result is that the employment bureau of the Young Men’s Christian Association comes in for some criticism because it charges a fee. MINNESOTA. STATE FREE EMPLOYMENT OFFICES. Minnesota has three free public employment offices—one at Duluth, one at Minneapolis, and one at St. Paul. The first law relating to such offices, enacted in 1905, provided for one office, which was estab lished in Minneapolis. Duluth already had a free municipal office, established in 1901. The law was amended in 1907 so as to provide for a free employment bureau in all cities of 50,000 inhabitants or over, whereupon the Duluth municipal office was merged into the State office, and an office was established at St. Paul. The law relating to free public employment bureaus is brief. It provides for a superintendent for a term o f two years at $1,200 per annum, who shall make monthly reports to the commissioner of labor. It also prescribes the form o f register to be kept, provides that applications shall lapse in 30 days, and makes an annual appro priation o f $10,000 for the support of such bureaus. The following table shows the amount of business done by the Min neapolis office for four years, the business o f the fiscal year 1910 being given by months and the business done by the other two offices from their establishment to July 31, 1910; also the business o f the three offices combined for the years ending July 31, 1909 and 1910: 92 BULLETIN OF THE BUREAU OF LABOR. APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS SECURED, MIN NESOTA FREE PUBLIC EMPLOYMENT OFFICES, AUGUST 1, 1906, TO JULY 31, 1910. [From Twelfth Biennial Report, Bureau of Labor, Minnesota, 1909-10, pp. 571-573.J Applications for em ployment. Applications for help. Positions secured. City, year, and month. Fe Total. Males. Fe Total. Males. Fe Total. Males. males. males. males. Minneapolis: Aug. 1,1906, to July 31,1907 .......... 6,470 Aug. 1,1907, to July 31,1908......... 6,161 Aug. 1,1908, to July 31,1909......... 7,710 5,999 12,469 5,442 11,603 4,890 12,600 6,865 5,628 7,157 6,535 13,400 6,436 12,064 5,959 13,116 6,424 5,416 7,020 5,957 5,302 4,746 12,381 10,718 11,766 845 883 1,089 778 504 521 498 926 1,116 1,228 1,219 1,220 1,921 2,083 2,396 1,849 572 552 540 1,439 2,588 1,913 1,420 1,384 1,000 2,921 1,105 3,188 1,159 3,555 860 2,709 580 1,152 579 1,131 623 1,163 1,147 2,586 1,270 3,858 1,430 3,343 1,520 2,940 1,362 2,746 1,835 1,801 2,274 1,658 562 523 496 1,223 2,370 1,741 1,299 1,219 845 883 1,042 778 504 521 498 926 1,116 1,228 1,219 1,220 2,680 2,684 3,316 2,436 1,066 1,044 994 2,149 3,486 2,969 2,518 2,439 Total, August 1,1909, to July 31, 1910.......................................... 17,001 10,827 27,828 18,657 12,635 31,292 17,001 10,780 27,781 August, 1909................................... September, 1909............................. October, 1909.................................. November, 1909............................. December, 1909.............................. January, 1910................................. February, 1910............................... March, 1910..................................... April, 1910...................................... May, 1910........................................ June, 1910....................................... July, 1910........................................ 1,835 1,801 2,274 1,658 592 523 496 1,223 2,370 1,741 1,299 1,219 St. Paul: May 15,1907, to July 31,1908 ., 3,145 Aug. 1,1908, to July 31,1909......... 3,434 Aug. 1,1909, to July 31,1910......... 5,449 1,785 1,831 3,330 Duluth: June, 1907, to July 31,1908 ........... 7,355 1,404 Aug. 1,1908, to July 31,1909......... 6,859 2,236 Aug. 1,1909, to July 31,1910......... 12,064 3,089 Total, three offices: Aug. 1,1908, to July 31,1909......... 18,003 8,957 Aug. 1,1909, to July 31,1910......... '34,514 17,246 2,680 2,684 3,363 2,436 1,066 1,044 994 2,149 3,486 2,969 2,518 2,439 3,115 3,434 5,449 1,564 1,831 3,330 4,679 5,265 8,779 1,843 9,190 7,339 2,831 9,690 6,859 5,308 17,372 12,064 1,397 2,236 3,089 8,736 9,095 15,153 26,960 17,450 11,662 29,112 17,313 8,813 51,760 36,170 123,368 59,538 34,514 17,199 26,126 51,713 4,930 5,265 8,779 3,172 3,434 5,449 8,759 7,347 9,095 6,859 15,153 12,064 2,753 5,925 2,872 6,306 5,425 10,874 i The report of applications for help and of positions secured, by months, in the Minneapolis office is instructive. The table shows that the demand for male labor reached the low-water mark o f the year in February, when only 540 men were applied for at the free employ ment office. The following month 1,439 men were wanted, and in April, 2,588. After April the demand fell until July, when it reached 1,384. During August, September, and October o f 1909 the demand for workers constantly increased, and in October the number o f men wanted was only 192 less than in April, 1910. In November the demand again fell, and in December and January was only slightly greater than in February. Thus there were two high tides and two low tides, one of them very low, in the demand for male labor at the Minneapolis office during the year. The number o f positions secured fluctuated similarly. The demand for female help also fell, though not in so marked a degree, during the winter months, but up to July, 1910, it had not suffered a summer slump. The small number o f persons placed during certain months of the year illustrates conversely the seasonal fluctuations in unemployment already discussed. The data presented indicate that some men are unemployed a part of the year, not through laziness or incapacity, but because industry does not demand their services. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 93 In the above table the applications for employment do not repre sent all persons seeking work, and so do not show the demand for labor. Applications are usually filed only for those for whom posi tions are open. For this reason the number o f applications for employment, as shown in the table, is ordinarily identical with the number o f positions secured. Another fact to be kept in mind in a study o f the above table is that the number of positions secured is not verified. I f an applicant is sent to a position and nothing is heard from him or from the applicant for help, the position is counted as filled. It should also be remembered that many of the positions are temporary. In the male department many o f the men are placed only for a day or for a few hours, and will, in fact, accept no other work. * The manager o f the female department at Minneapolis estimated that 90 per cent o f the jobs secured for women are for a single day. Despite these limitations on the value o f the statistics presented they indicate a very rapid growth in the usefulness of the Minnesota Free Employment Offices. The Minneapolis office received 13,116 ap plications for help and reports 11,766 positions filled in the year end ing July 31,1909. In the following year it received 31,292 applications for help and filled 27,781 positions. The Duluth office filled 9,095 positions in the fiscal year 1908-9 and 15,153 in 1909-10. The appli cations for help at the three offices more than doubled in 1910, and the positions secured at the three offices increased from 26,126 in 1909 to 51,713 in 1910. These 51,713 persons were placed at a cost o f $9,925, or $0,192 for each position. The chief point o f interest is the means by which this rapid development has been accomplished. It is essential to the growth o f the work of any employment office that the confidence of employers be secured. Without this confidence the patronage o f employers can not be obtained and little can be done for the unemployed. How to gain this confidence is the great problem before any employment agent, and its solution is doubtless a most important factor in the rapid growth of the Minnesota offices. The first step in reaching employers is necessarily that of fre quently bringing the existence of the office to their attention. Various methods have been used to accomplish this end. In every letter sent to employers by the Minnesota Bureau of Labor is inclosed a card advertising the free employment offices. In this manner every em ployer in the State is reminded at least once a year o f the work of these offices. Employers are sometimes visited and their patronage solicited, but this has not been done extensively. Former patrons of the office are frequently called by telephone and asked i f any men are needed. Advertisements for men are inserted in the papers, and these serve as an advertisement of the bureau. Very effective adver tising also comes from the publication by newspapers of the monthly reports o f the offices. An important step, which doubtless increased 94 BULLETIN OF THE BUREAU OF LABOR. business under the present administration, was a change of office hours. Formerly the offices opened at 9 a. m. and closed an hour at noon. Now they are open from 8 a. m. to 5 p. m. The location of the most important office—that at Minneapolis—in the city hall, is no doubt a further factor in promoting business. Its location places the office on a higher plane than its competitors, the private offices, and raises it to the dignity of the rest of the public service. The St. Paul office is located in the old State capitol, and although the situation gives it dignity, this advantage is said to be offset by its distance from the business heart of the city. The Duluth office is in a rented building not far from a large number o f private offices, with which it enters into most active competition. Another very important feature of the development of the Min neapolis office is the complete separation of the male and female departments. Until 1909 they were in adjacent rooms and were entered from the same hallway. The female department is now in the same building as the male department, but is on the first floor, while the male department is in the basement. The result has been to obtain a greater number and a higher class of female applicants than formerly, and, in the opinion of the officials, to raise the dignity and the value of the female department in every respect. The occupations o f persons who secured positions at the Min neapolis office during the years ending July 31, 1909, and July 31, 1910, are shown in the following table: CHARACTER OF POSITIONS SECURED AT THE MINNEAPOLIS FREE PUBLIC EM PLOY MENT OFFICE, AUGUST 1, 1908, TO JULY 31, 1910. [Compiled from tables in Twelfth Biennial Report, Bureau of Labor, Minnesota, 1909-10, pp. 574,575, and M A LE S. Number of posi tions secured. 1908-9 Building trades: Bricklayers.............................. Bridge tnp.n Carpenters and cabinetmakers Cement workers...................... Lathers.. .......................... Masons and helpers __ Painters and paper hangers... Plasterers and helpers............ Plumbers, steam and gas fit ters ....................................... Factories and workshops: Apprentices............................ Bakers..................................... Blacksmiths and helpers........ Brass workers......................... Butchers.................................. Coopers .......... Engineers................................ Firemen................................... F low load ers..., ................. Number of posi tions secured. Occupations. Occupations. 1 176 124 5 96 17 8 5 2 1 5 1 1 1 11 1909-10 2 158 559 2 395 47 14. 142 1 36 2 4 24 4 1908-9 1909-10 Factories and workshops—Con. Flour packers.......................... Foremen.................................. Foundry men......................... Furniture finishers................. Glaziers.................................... Handy men...................... Leather workers...................... Machinists............................... Polishers.................................. Pressmen................................. Renovators.............................. Sawyers................................... Shoemakers............................. Tailors...................................... Tobacco strippers.................... W arehousemen........................ Watchmen.............................. Wire workers........................... Woodworkers, not specified. . . Miscellaneous operators____ 1 1 1 874 8 3 11 4,110 2 3 2 1 1 1 15 2 63 216 53 156 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 95 CHARACTER OF POSITIONS SECURED AT THE MINNEAPOLIS FREE PUBLIC EMPLOY MENT OFFICE, AUGUST 1, 1908, TO JULY 31, 1910—Concluded. M A LE S—Concluded. Number of posi tions secured. Number of posi tions secured. Occupations. Occupations. 1908-9 Hotels, restaurants, mercantile, and office: Bookkeepers............................ Clerks, hotel............................. Cooks....................................... Delivery Tnp.n.......................... Dining-room help................... Elevator operators.................. Errand and messenger boys... Hospital attendants............... Kitchen help........................... Office boys............................... Porters..................................... Solicitors.................................. Agriculture, dairying, livery, and teaming: Agricultural labor................... Bam Tnp.n................................ Coachmen Farm managers......... ............ Gafdeners................................ Teamsters................................ 2 1 9 2 2 5 1 25 1 10 1 682 20 1 19 104 1909-10 1908-9 1909-10 28 7 7 11 14 1 277 2 43 25 Railroad labor: Baggagemen............................ 2 1 Laborers.................................. 28 Riflrcrers____________________ 2 Roundhouse men__________________ 2 Yardmen........................•......... ! 62 6 Other establishments: 5 Hotel boys............................... House movers.......................... 10 Icemen..................................... 50 123 Janitors.................................... 33 18 8,921 Laborers, com m on................. 4,566 1 Pressers.................................... 3 .........66 Quarrymen.............................. 1 Surveyors' helpers................... 1 3 Whitewashers.......................... Woodsmen.............................. 20 Not reported.................................. 1 137 639 16 8 1 181 423 Total.......... 7,020 17,001 7 35 4 1 7 36 20 29 1 2 2 8 6 1 2 16 1 17 FEM ALES. Apprentices..... ............... Berry pickers................................. Bookkeepers.................................. Canvassers..................................... Chambermaids.............................. Clerical workers............................. Clerks ........................................ Combination girls.......................... Companions................................... Cooks.............................................. Day workers.................................. Dining-room girls.......................... Dishwashers................................... Factory girls.................................. General housework Hall girls........................................ Housekeepers................................. 3 1 1 43 1 8 12 4,125 31 72 4 305 11 47 7 63 2 4 6 1 69 9,942 26 79 16 338 2 77 Janitresses...................................... Kitchen girls.................................. Laundresses................................... Nurse girls..................................... Nurses............................................ Pantry girls................................... Parlor maids.................................. Seamstresses.................................. Second cooks.................................. Second girls.................................... Silver girls...................................... Stenographers................................ V egetable girls............................... Waitresses...................................... Total..................................... 9 5 20 1 4,746 10,780 More than half o f the positions secured by males at the Minne apolis office in both 1909 and 1910 were filled by common laborers. In 1910 these men numbered 8,921, and handy men, also unskilled, numbered 4,110. Other unskilled workers securing positions in 1910 were agricultural laborers, 639; teamsters, 423; kitchen helpers, 277; and icemen, 123. In the building trades many skilled or semiskilled workers were placed. Positions were secured in 1910 for 142 plumb ers, 47 painters and paper hangers, 395 masons and helpers, and 158 carpenters and cabinetmakers. As a rule, however, occupations suggesting skill claimed but few o f the applicants at the office. Formerly Minneapolis was a center for men moving east to Wis consin and Michigan as lumbermen in the winter and west as har vest hands in the sunimer. Not a large number of men are sent as 96 BULLETIN OF THE BUREAU OF LABOR. lumber hands now. During the summer months many men are sent to positions out o f the city, either as harvest hands or railroad laborers. The majority o f the men placed, however, secure positions in the city where the office is located or near it. The portion o f the above table relating to females shows that day workers, which means women who do washing, scrubbing, ironing, and similar work for a day in a place, obtained 9,942 out o f 10,780 positions filled in the fiscal year 1910. The occupation next in im portance was general housework, which engaged 338 women. Dishwashers securing positions numbered 79, housekeepers 77, cooks 69, and chambermaids 63. Each o f the Minnesota offices has a male manager, who has charge o f the male department. The St. Paul and Duluth offices have a female assistant in charge of the female department. The Minne apolis office has two female assistants, and the superintendent also gives most o f his time to the Minneapolis office. Only the Minneapolis office was visited during this investigation. Its office methods, particularly those o f the female department, have certain distinctive features. In each department applicants for work congregate and wait, without registering, for calls for help. These are made by telephone ordinarily and are announced by the official in charge, whereupon workmen fill out an application blank and are sent to positions. Applications for help and applications for employment are placed on the same sheet, as indicated by the following form : A p p l ic a t io n . M in n e s o t a S t a t e P u b l ic E m p l o y m e n t B ureau. (Office h ou rs, 8 a. m. to 5 p. m . ; S atu rda y, 12 m .) C o u rth ouse and c it y hall, for e m plo y m e n t. Name______________________________ Address____________________________ Age______ Married-------- Single--------Nationality-------------------------------------Occupation desired--------------------------Are you willing to work outside of city--------------------------------------------References: ----------------------------------Remarks: -------------------------------------- M 19 i n n e a p o l i s ,_________________________ for help. Name______________________________ Address------------------------------------------Class of help desired-----------------------Number required___________________ Length of time employment will be given------------------------------------------Wages to be paid___________________ The custom has grown up of omitting some of the few questions on the above form. In the female department day workers are asked only their names and addresses. Others are asked as to age, con jugal condition, and nationality. In the male department all of the questions are asked, but references are seldom requested. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 97 In the female department a plan for determining the value of workers has been devised. Attached to the slip containing the em ployer’s name and address, which is given to the applicant for employ ment, is the following blank, which the employer fills out and the employee returns to the office: [T his blank must be returned to this office.] ----------------------------------------- 191_ M---------------------------------------------------------------------------------- has worked for me --------------days. ------------------------------------------------------------------------------------[State kind o f work and satisfaction given.] Signature of employer_____________________________ Address_____________________________ After a number o f these slips have been returned by a worker the manager o f the office knows the worker’s capacity. Some slips are not satisfactorily filled out, the employer not wishing to injure the employee, and sometimes the slips bear evidence o f alteration by the worker, but, on the whole, satisfactory results are obtained from them. From the information thus gained the manager establishes a list o f satisfactory workers and is able to select for each position one well fitted for it. As already mentioned, a very high proportion o f women placed in positions are day workers. They collect in the waiting room o f the employment office and remain until sent to respond to a call for help. Some remain all day, as calls for immediate help, or for help the fol lowing day, are likely to come in. In sending these applicants to positions priority o f arrival at the office is disregarded. The appli cant best fitted for the work or the one who, in the judgment o f the manager, most needs work, receives the preference, and only occa sionally is the earliest arrival given preference for this reason alone. This method o f selection, which has been in use for some time, is said to be the most satisfactory, both to employers and workmen. Although the fact that so many women placed are day workers gives an inflated value to the number o f positions filled, it should also be remembered that certain results attributable to the employment office do not appear in the statistical reports. Day workers, i f satis factory, are frequently retained by the employer for a day or more each week. Thus, they soon have each day filled and do not apply to the employment office. In other words, positions secured for only one day become permanent for one day each week, and several o f them give the worker permanent employment. The placing o f day workers consumes the time o f the female de partment almost to the exclusion o f other work. Some permanent positions are filled, however, and some positions are filled outside o f 66269°—Bull. 109—13— 7 98 BULLETIN OF THE BUREAU OF LABOR. the city. Positions to whicn women are sent are not investigated so thoroughly as the manager desires, but enough investigation is made o f new applications for help to avoid sending women to immoral resorts. Like the Illinois law, that o f Minnesota requires the recording of the names o f all applicants for help and for employment in a book. As already noted, this provision is not strictly followed, owing to the lack o f sufficient clerical assistance. A ll applications filed, how ever, are copied. This copying constitutes the greater part o f the clerical work of the office. The three State offices cooperate whenever possible. Applica tions which one office is unable to fill are sent to another and the re sources o f the three offices are thus concentrated and the result is said to be very advantageous. The Duluth office also cooperates in the same manner with the Wisconsin office at Superior. The Minne apolis office was found to be in active cooperation with various so cieties located, as it is, in the city hall. One o f these is the Asso ciated Charities, which maintains an employment bureau, but sends able-bodied applicants to the State bureau. The State bureau, par ticularly the women’s department, also sends needy applicants to the Associated Charities, to the Sunshine Society, a charitable organiza tion which gives immediate relief, and, if need be, to the Humane Society. PRIVATE E M P L O Y M E N T OFFICES IN M IN N E A P O L IS . The law relating to private employment offices in Minnesota pro vides that offices furnishing male help shall pay a license fee o f $100 and give a bond for $2,000. The licensee is required to keep in a book a memorandum o f the terms o f employment o f each person en gaged, showing rates of wages, the kind o f service, the period o f em ployment, and the name and address o f the employer. Duplicate copies o f this memorandum are to be given to the applicant for work, one being for the employer. Fees may not be charged unless the agent has on record a bona fide application for help and any person failing to receive employment by reason of any fraud or misrepresen tation may recover all damages sustained. The law does not apply to employment agencies dealing mainly in clerical positions. In Minneapolis this law is supplemented by a city ordinance which fixes a license fee of $10 for agencies furnishing female help only, and provides that no employment office shall be conducted on the same premises where intoxicating liquors are sold. The ordinance also provides for the record of a very detailed contract between the licensee and employer, a certified copy o f which is to be given to each person employed. The latter provision is not followed, but the UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 99 memoranda provided for in the State law are made in the following form : ----------------------------------- Employment Co. No. P lace_______________________ D a te ________________ x-*aam iu e----------------------------------------------------------------------------------------c -------------------N Hired f o r ------------Work near------- _ Occupation ----------Wages — ____ . ------ day— _____ board -------------Report at office-----R e m a r k s _________ Subject to conditions on the back. On the reverse side is the following: N o t i c e .—We are only liable for our office fee, and will return it when you can not get work; but then only when signed by the employer whose name ap pears on the other side of the ticket. We are not liable for any railroad fare or expenses under any circumstances. The party accepting this ticket hereby agrees to these conditions. E m p l o y e r : If this party is not employed, please state the reason here and sign your name. Signed-------------------------------------------- There were, in 1911, 49 licensed employment agencies in Minne apolis, a majority o f which are within a block or two o f the Union Station. Large signs are displayed before each stating that laborers are wanted in various States, and in every case free transportation is advertised. No statistical information was available concerning these offices. Many complaints o f crooked practices by them have been made to the bureau o f labor o f Minnesota. Among these were the sending o f men to jobs which do not exist and the division o f fees with foremen with the accompanying quick discharge o f workmen. The division o f fees is said to be very com mon. Some contractors give standing orders for men, and when new men are sent the old ones are discharged to make room for them. When the applicants complain to the bureau o f labor, the bureau, without specific authority, attempts to secure the return o f fees, but is not always successful. The general impression prevails that these offices are improving as a result o f strong, wholesome competition by the free agencies and the agitation and discussion which has occurred in the newspapers. The need is felt, however, for more effective con trol over these agencies. The enforcement o f the law now rests upon the police and the inspector o f licenses. This official with one assist ant issues licenses o f 25 or 30 different kinds and makes inspections o f employment agencies only upon complaint. As a rule, when com-* plaints are made to the license department the person claiming in jury is referred to the city attorney. Usually it is found that he has 100 BULLETIN OF THE BUREAU OF LABOR. a grievance, but not a case which would stand in court. It is felt that regular inspections by an officer delegated for that work only are needed. A railroad company entered into a contract with one o f these agencies in Minneapolis to supply all laborers wanted, and gave passes to the agent for men to be sent as laborers. The agent sold some o f these passes to men not hired and thus defrauded the com pany out o f large amounts. This railroad company has now estab lished an office o f its own in order to escape further fraud o f this character. OTHER AGENCIES IN MINNEAPOLIS ENGAGED IN TH E DISTRIBUTION OF LABOR. The Associated Charities o f Minneapolis maintains a free employ ment bureau, but only for the purpose o f giving relief in connection with its other work. Persons who would become dependent i f not employed and who can not obtain work elsewhere, and also persons who are partially disabled, this bureau tries to provide for. The Associated Charities recognizes the fact that the State office can do little for handicapped men and takes upon itself the responsibility o f finding such men employment. During the year 1911 this bureau found 1,038 positions for men, most o f them temporary. For women, 2,015 positions were found during the same period. The Jewish charity organizations o f the city established March 1, 1910, a free employment bureau for Jews. This office had been in operation five months when visited, and had placed 182 men, nearly all o f them in permanent positions. The manager has sent out 500 letters to business firms in the attempt to secure employers. Many o f the applicants for employment are immigrants who can not speak English, and the manager goes with them in search o f work at the various factories. Many o f the applicants at this bureau are skilled men. The Young Men’s Christian Association o f Minneapolis estab lished an employment bureau in 1909, but discontinued it after a year’s operation. The Young Women’s Christian Association employment bureau furnishes girls for general housework chiefly, but no day workers. Girls are sent on two weeks’ trial and if retained the employer pays a fee o f $2. The applications for help always exceed the applications for employment. The following tabular statement shows the amount o f work done by the employment office o f the Minneapolis Young Women’s Christian Association during the past five years: UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 101 APPLICATIONS FOR HELP, GIRLS SENT OUT AND POSITIONS FILLED, MINNEAPOLIS YOUNG WOMEN’S CHRISTIAN ASSOCIATION EMPLOYMENT OFFICE, 1907 TO 1911. Applica tions for help. Years. 1907................................................................................................................... 1908................................................................................................................... 1909................................................................................................................... 1910................................................................................................................... 1911................................................................................................................... 1,734 1,683 1,659 1,500 1,475 Girls sent out. 674 708 494 458 519 Posi tions filled. 127 173 156 168 230 The small number of positions filled when compared with the num ber sent out is noteworthy, and shows the result o f the two weeks’ trial. The excess o f applications for help indicates the scarcity of domestic help in the city. The social settlements and various other philanthropic agencies also place some workers. The labor unions aim to secure work for their unemployed, but have no systematic method. The union men do not patronize the free employment bureau. They are said to be hearty supporters of it, but the attitude of those interviewed was one of indifference. NEW YORK. STATE FREE EMPLOYMENT OFFICE. The State o f New York has had no free public employment office since 1906. The reasons for the repeal at that time of the law au thorizing such agencies are discussed in Bulletin 68 issued by this Bureau. PRIVATE EMPLOYMENT OFFICES. The law relating to private employment offices in New York makes it a misdemeanor to maintain such an office without a license, fixes the license fee at $25, and requires a bond o f $1,000 to be furnished by licensed agencies. An application for such license must be in writing and accompanied by affidavits o f reputable residents o f the city to the effect that the applicant is o f good moral character. The character o f the applicant must be investigated, the place where it is proposed to conduct the agency must be examined, and any pro tests against the issuing of the license must be heard before the license can be issued. No such agency may be conducted in living rooms, in rooms where boarders or lodgers are kept, or where meals are served, or in connection with buildings or premises where intoxi cating liquors are sold. Each licensed person is required to keep a register o f applicants for help and for employment showing, among other things, the name and address o f each applicant, the fee charged, and the rate o f 102 BULLETIN OF THE BUREAU OF LABOR. wages agreed upon. Agencies are required to communicate, if pos sible, with persons whose names are given as references by applicants for work in private families and to keep on file the results of such investigations. The fee charged certain unskilled workmen must not exceed 10 per cent o f the first month’s wages, and for all other applicants must not exceed the first week’s wages, or for yearly employment, 5 per cent of the first year’s salary. In case employment is not obtained the full amount of the fee must be refunded, and in case employment is terminated within a week, three-fifths thereof. Receipts stating the amount of the fee must be given and on the back o f each receipt must be printed a certain section o f the law in language which the person receiving the receipt can understand. The acceptance of gifts as fees is forbidden, as is the sharing o f fees with employers. The law prohibits false advertising; the sending out o f applicants for employment without a bona fide order therefor; the sending o f either males or females to places o f bad repute; the sending o f any female to any place where she will be required or permitted to sell liquors; and the acceptance o f applications for employment by chil dren or the placing o f children in positions in violation of the edu cation law or o f the child-labor-law. The law also provides that no agency shall send out any female applicant for employment without making a reasonable effort to investigate the character o f the em ployer. The law is to be enforced in smaller cities by the mayor or an officer appointed by him. In cities having a population o f 300,000 or more the enforcement o f the law is intrusted to a commission of licenses. Bimonthly inspections are required. The following table shows the number of licensed employment agencies in New York City during the license year ending May 1, 1910, by classes: Agencies furnishing— Domestic servants_________________________________________________393 Theatrical performers_____________________________________________ 191 Professional nurses_______________________________________________ 24 Stenographers and office help______________________________________ 21 7 European passage workers, as cattle attendants and crew members___ Seamen----------------------------------------------------------------------------------------- 13 Technical help (male only)_______________________________________ 28 Farm and garden laborers________________________________________ 20 Hotel help (male and female)_____________________________________ 38 Barbers__________________________________________________________ 23 22 General__________________________________________________ _______ Contract laborers--------------------------------------------------------------------------- 58 838 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 103 When a law similar to the present one went into effect in 1904, there were only 450 licensed employment agencies in the city. This number has nearly doubled. The earlier law was enacted primarily to regulate agencies supplying domestic servants, but as is shown by the above table fewer than half o f the agencies now existing are in this class. It will be noted that 191 o f the agencies are for theatrical performers. These agencies, according to the last annual report o f the commissioner o f licenses, provide over 100,000 engagements for performers each year. Concerning the enforcement o f the law in New York City the last annual report o f the commissioner o f licenses says: The registers o f the agencies are now inspected at stated intervals; the references o f servants sent out are tested as to genuineness; every complaint from either employee or employer is investigated, and in important cases, or where there is a conflict of testimony as to facts, a hearing or trial, with witnesses, is held by the commis sioner or deputy commissioner. Nearly 600 such hearings or trials take place during the course o f the year. Several times a week agents are forced to refund money which they have taken in excess o f the legal fees, and this feature o f the office administration is important in that the individual sums, although small in amount, are returned to those who can least afford to lose them—people in search o f employment.1 The report also avers that steps have been taken which have checked immorality in agencies dealing in domestic servants and also to prevent the swindling of Italian laborers by agencies operated by their own countrymen. The following table from the last annual report shows the work of the office o f the commissioner o f licenses for the years ending May 1, 1910 to 1912: SUMMARY OF INSPECTIONS OF EMPLOYMENT OFFICES IN NEW Y O R K CITY, Y EA R S ENDING MAY 1, 1910 TO 1912. [From Reports of the Commissioner of Licenses of New York City for years ending May 1,1910 to 1912.] 1910 Number of inspections made.................................................................. Number of complaints involving refund of fees to applicants for em ployment.............................................................................................. Number of complaints involving refund of fees to applicants for help... Number of complaints made by inspectors........................................... Number of complaints made by public for violations of the law other than those for refund of fees................................................................ Total number of complaints investigated............................................. Number of advertisements in newspapers investigated......................... Number of subpoenas and summonses served by inspectors.................. Number of hearings or trials held before commissioner......................... 1911 1912 5,012 8,050 7,096 1,035 525 115 1,058 561 398 1,234 509 203 136 1,811 650 689 597 258 2,275 542 103 2,045 312 1,039 632 Amount of money refunded by agencies to applicants for employment as a result of complaints made to this office......................................... Amount of money refunded by agencies to applicants for help as a result of complaints made to this office................................................ $3,610.20 $2,825.42 $1,806.41 $940.15 $1,084.39 $937.86 Total amount of money refunded by employment agencies as a result of complaints................................................................... $4,550.35 $3,909.81 $2,744.27 1 Report o f the Commissioner o f Licenses o f New York City fo r year ending May 1, 1910, p. 4. 104 BULLETIN OF THE BUREAU OF LABOR. SUMMARY OF INSPECTIONS OF EMPLOYMENT OFFICES IN NEW Y O R K CITY, Y EA R S ENDING M AY 1, 1910 TO 1912—Concluded. 1910 12 Number of proceedings instituted in criminal courts............................. 3 Number of convictions............................................................................ 3 Number of dismissals.............................................................................. 1 N amber of acquittals............................................................................... 3 N amber of discontinuances upon recommendation of commissioner. . . 2 Number of cases pending in May........................................................... N amber of licenses issued....................................................................... 838 10 Number of licenses revoked..................................................................... 13 Number of licenses transferred............................................................... 9 Number of applications for licenses rejected......................................... 55 Increase in licenses over last year............................................................ Amount collected for licenses.................................................................. $20,950.00 2,492 Number of contract-labor statements filed by employment agents....... Total number of visits made to employment agencies by inspectors, 16,000 including all kinds of inspections, investigations, etc......................... 1911 1912 16 7 3 6 866 16 13 4 1 1 5 2 774 14 14 28 $21,650.00 2,715 6 192 $19,350.00 2,153 1 Decrease. A ll agencies are required to register the name and address of each applicant to whom employment is promised or offered and of each applicant accepted for help. This register is open to inspection by the commissioner of licenses. No report is made, however, of the number of persons placed in positions, except by those agencies which send contract laborers out of the city. Such agencies must file with the commissioner of licenses a statement concerning such contract laborers containing the following items: Name and address of the employer, name and address of the employee, nature of the work to be performed, hours o f labor, wages offered, destination of persons employed, and terms o f transportation. A duplicate copy of the statement must be given to the applicant for employment in a lan guage which he can understand. During the year ending May 31, 1910, 2,640 such statements were filed, showing a total o f 36,868 contract laborers reported as sent out of the city. The following table shows the number sent out each month and also the number o f European passage workers furnished by New York agencies each month: LABORERS SENT OUT OF THE CITY B Y NEW Y O R K EMPLOYMENT AGENCIES, JUNE 1, 1909, TO MAY 31, 1910. [Data furnished by the Commissioner of Licenses of New York City.] Contract labor ers. Months. 1909. June.................... July.................... August................ September.......... Octooer............... 1STATTiiTYl Vv/M* December............ Passage work ers. State ments filed. Num ber sent out. State ments filed. Num ber sent out. 221 314 247 262 218 203 113 2,758 3,807 4, *59 3,575 3,271 2,879 1,961 12 15 22 22 23 24 17 132 185 238 269 194 211 144 Contract labor ers. Months. Passage work ers. State ments filed. Num ber sent out. State ments filed. 1910. January............... February............ March.................. April.................... May..................... 94 81 217 352 318 2,114 1,021 3,024 4,453 3,546 19 16 24 24 28 123 106 320 501 372 Total........... 2,640 36,868 246 2,795 Num ber sent out. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 105 From the reports filed in the office of the commissioner o f licenses of New York City prior to July 31, 1906, by agencies sending out contract laborers, very detailed statistics have been compiled and pre sented at pages 414 to 422 in Bulletin No. 72, issued by the United States Bureau of Labor in September, 1907. This report shows the nationalities, occupations, destination, hours worked, and wages of 40,737 contract laborers sent out o f New York from May 1, 1904, to July 31,1906. A recent investigation o f the agencies dealing with immigrants was made by the commission o f immigration o f the State of New York in 1909. The commission reported as follow s: The investigation shows that the distribution of alien la*bor means chiefly the distribution of unskilled labor, for usually either the alien is an unskilled laborer or he is compelled after arrival to undertake temporary unskilled or slightly skilled labor. * * * Probably the most important means for distributing arriving aliens in various parts of the country are the mails. * * * Other im portant instruments of distribution of aliens are railroad companies and other large corporations, State immigration bureaus, contractors, and other employers, padrones, and other agencies. These distribute aliens to different industries, farms, and labor camps, and for rail way construction, public works, dams, reservoirs, canals, and public highways. * * * An examination of 105 agencies located in the foreign quarters of New York City shows that they deal almost exclusively with aliens o f the following nationalities: Irish, Swedish, German, Polish, Slav ish, Hungarian, Bohemian, Galician, Russian, Slavonian, Lithuanian, Scandinavian, Greek, Finnish, Norwegian, Austrian, Roumanian, Italian, French, and Spanish. The licensed agencies are conducted by individuals, partnerships, associations, and companies, and are variously designated as bureaus, offices, agencies, or registries. In some cases the securing of employ ment is carried on in connection with other business, such as banking, steamship-ticket selling, commissary, or store. These agencies supply help, services, or labor o f every conceivable kind. Some agencies specialize in a particular kind o f labor, such as the so-called intelligence offices, which supply general domestic help, and others cooks, waitresses, or chambermaids. Some limit their bus iness to only one nationality; others to particular nationalities; while still others include all nationalities without distinction. Only male help is dealt in by some agencies; others supply only female help. Some are exclusively for colored workers; others for white. Some charge a fee to the applicant for securing a position; others charge the fee to the employer for securing the labor. Some confine their business to the city or to a particular section of the city; others sup ply labor throughout the State and adjoining States. That the efficiency o f these agencies as distributors o f labor may not be overestimated, it is necessary to state that most o f them are run on very small capital. A number are in tenement houses, a sin gle living room being set aside for the business o f the agency. Some agencies conduct a boarding or lodging house. Thirty-nine on the 106 BULLETIN OF THE BUREAU OF LABOR. lower east side o f New York are located on two streets within a few blocks of each other. Competition among them is wasteful and at times even unpleasantly aggressive. Alien domestic servants are sent in large numbers to hotels and boarding houses up the State. Except in the case of a few wellknown hotels, the agent can have no knowledge o f the parties to whom they are consigned, nor are they properly protected on this journey, being guided usually only by an address on a slip o f paper. Many employment agencies, other than those dealing with contract labor, send each year a large number o f workers o f all kinds to posi tions outside the city. O f 100 agents visited by the investigators o f the commission, 21 sent applicants out o f the city but in the State, the number reaching in the case of one agency to 250 a month. Dur ing the year ending May 1, 1908, employment agencies in New York City placed 15,715 farm laborers and gardeners, of which 8,427 went to places in New York State and the remaining 7,288 outside. The aliens sent to New York State included principally Norwegians, Swedes, and Danes.1 The report of the commission of immigration also states that from May, 1904, to February, 1909, 103 licenses were revoked by the com missioner o f licenses. O f these, 63 handled immigrants; 10 lost their licenses for sending girls to questionable resorts, 6 for failing to return fees, 9 for improper conduct or record, 12 for misrepre sentation, and 26 for other causes, among them failure to investigate references, running agencies in living rooms, and failure to file state ments. Concerning the enforcement of the law, the commission reports: Many believe authority should be given, the commissioner o f licenses to impose fines for minor offenses. Such treatment o f offend ing agencies merits consideration, as it would enable the commis sioner to be more lenient in some cases and to act more promptly in cases where the dereliction is not great but should not be ignored. Hindrances to the proper enforcement o f the law arise from con gestion o f cases in the court o f special sessions; from the attitude o f leniency on the part of justices toward offending agents in suspend ing sentence after conviction; from the difficulty of securing legal evidence, especially against agents dealing in unintelligent alien labor; from the difficulty o f securing the attendance o f witnesses at trials; from the inability on the part o f inspectors o f the department o f licenses to locate unlicensed agents operating on the street, in the parks, or in tenenents; and from the absence o f a knowledge o f the English language by the agents and o f their language by the in spectors. The number of court cases for the period from May, 1904, to Feb ruary, 1909, was 214. O f these, 180 were for running an agency without a license, with only 34 for all other offenses.2 Concerning certain agencies, the following statement appears: A group o f six or more farm-labor agencies doing business on the lower west side o f New York City requires special reference. They 1 R eport o f the Commission o f Im migration o f the State o f New York, 1909, pp. 109-116. 2 Idem., pp. 115, 116. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 107 supply many aliens for farm labor, but their surroundings are not such as to enable them to reach many honest, well-behaving workers. They are frequently run in connection with saloons. Complaints have from time to time been made against these agents for sending incapable, intemperate, and unwilling men out to farms. Some o f the other agencies uptown furnish farm laborers, but this group rep resents the agents specially interested in this class o f workers. Although the agricultural demand is the greatest, the chief means of meeting it through licensed agents is in the hands o f those at the bottom of the list in efficiency and surroundings.1 Quotations have been freely made from the report o f the com mission o f immigration because it contains the most recent and most authoritative description of the private employment agencies o f New York City. The commission concluded that there has been a general improvement in the agencies for several years. In this connection it may be of interest to quote the commission’s report on employment agencies in Buffalo, which is as follows: A brief description may appropriately be given at this point of the employment agencies in Buffalo. The headquarters for issuing licenses for employment agencies are in the mayor’s office, city hall. The mayor’s clerk, who also has the title o f commissioner o f licenses, enforces the law and issues licenses to employment agencies and also to those engaged in any other occupation requiring licenses. The commissioner has one assistant, who, during the months o f January, March, April, May, June, and July, assists the commissioner in issuing licenses; the other six months in the year he looks after de linquents, violations o f law, and visits employment agencies twice a month. The commissioner o f licenses reports 17 licensed employment agencies, none unlicensed, and none dealing with contract labor. Only one hearing was held and one license revoked in 1 year and 11 months. The cause for revocation was misrepresentation and overcharge. F ifty cents was the total amount refunded on fees paid. An investigator o f the commission who visited the employ ment bureaus at Buffalo found that only 2 of 17 kept their registers according to law. Fourteen made no entry in the last four columns, namely: (1) Names of applicants for help, (2) in what capacity, (3) place o f residence, (4) fees. One agency, which in November secured positions for 63 men and women, had no entry whatsoever in the register. The investigator was given the names and addresses o f 10 unlicensed employment offices. He found the employmentagency law in various languages to be unknown in Buffalo and that vicinity. Only English placards adorn the walls, and the foreign applicants are ignorant o f the law. Other violations were reported, such as sending applicants to places where there was no bona fide order for labor and placing girls in disorderly houses.1 1 R eport o f the Commission o f Im m igration o f the State o f New York, 1909, p. 117. 108 BULLETIN OF THE BUREAU OF LABOR. DIVISION OF INFORMATION OF THE FEDERAL BUREAU OF IMMIGRATION AND NATURALIZATION. The division of information of the Federal Bureau o f Immigra tion was established July 1, 1907. The New York office is located not far from where immigrants land from Ellis Island. The division, immediately upon its establishment, put itself into communication with State officials, manufacturers’ associations, individual employ ers o f labor, farmers, and others. Thousands o f letters and over 2,000,000 postal cards were sent out the first year, this work being facilitated by the privilege o f franking mail. The purpose o f this correspondence is, of course, to secure opportunities for placing alien citizens in positions. The actual work of distribution of workers did not begin until April, 1908. During the 15 months ending June 30, 1909, positions were obtained for 5,008 persons and during the year ending June 30, 1911, for 5,176 persons. The following table shows the nation alities represented: N A TIO N ALITY AND NUMBER OF ALIEN S AND OTHERS D IST R IB U T E D BY DIVISION OF INFORMATION, 1909 TO 1911. Number of persons. Nationality. Bulgarian............... Danish .. ...... English................... Finnish................... German.................. Greek...................... Irish....................... Italian.................... J^ltliUaXUd'll.... . Magyar................... 15 months Year ending ending June 30, June 30, 1910. 1909. Year ending June 30, 1911. 42 176 37 91 939 107 83 41 67 65 24 163 41 164 1,127 21 140 51 115 123 99 202 59 127 879 72 73 256 65 65 Number of persons. Nationality. Norwegian............. Polish...................... Russian.................. Ruthenian............. S w ede.................... United States citi- 15 months Year ending ending June 30, June 30, 1910. 1909. Year ending June 30, 1911. 221 1,028 428 148 406 171 700 487 149 253 167 1,044 704 158 221 All others............... 517 363 562 313 500 413 T ota l............. 5,008 4,283 5,176 The following table shows the classes of occupations o f persons distributed: OCCUPATIONS OF W ORKERS DISTRIBUTED B Y DIVISION OF INFORMATION, 1909 TO 1911. Number of persons. Occupations. Agricultural laborers........................................................................................ Common laborers............................................................................................. Domestics............................................................................................... Woodsmen....................................................................................................... Children (unemployed)................................................................................... Others............................................................................................................... Total.................................................................................................... 15 months Year Year ending ending ending June 30, June 30, June 30, 1910. 1909. 1911. 2,565 1,215 269 168 192 599 2,747 1,047 314 5 106 64 3,083 1,215 36o 53 80 385 5,008 4,283 5,176 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 109 As indicated by the table, more than half of all persons distributed have been sent to farms. The aim o f the division has been to divert the stream o f immigration toward the land or to small towns and away from the large cities. Care is taken not to send men where strikes exist. A majority o f the domestics sent out were wives o f the men sent to the same employer. The unemployed children accom panied their parents but were too young to work. The following table shows the number o f persons distributed to each State: DISTRIBUTION OF ALIENS AND OTHERS APPLYIN G TO THE DIVISION OF INFORMA TION, A P R IL 1,1908, TO JUNE 30, 1909, AND Y EA R S ENDING JUNE 30,1910 AND 1911, B Y STATES AND T E RR ITO R IE S. [From Annual Reports of the Commissioner General of Immigration.] State or Territory. April 1, 1908, to June 30, 1909. Alabama................ Arkansas............... California............... Colorado................. Connecticut.......... Delaware............... District of Colum bia ...................... Florida................... Georgia.................. Illinois................... Indiana.................. Iowa....................... Kansas................... Kentucky.............. Maine..................... Maryland............... Massachusetts....... Michigan............... Minnesota.............. Mississippi............. Missouri................. Montana................. 12 52 3 2 122 July 1, 1909, to June 30, 1910. April 1, 1908, to June 30, 1909. July 1, 1909, to June 30, 1910. 17 12 676 1 2,202 2 12 77 41 1 220 7 43 9 1 138 300 57 149 19 38 4 948 22 61 43 85 43 Nebraska............... New Hampshire ... New Jersey............ New Mexico.......... New Y o rk .............. North Carolina.., North Dakota........ O hio....................... Oklahoma.............. Oregon................... Pennsylvania......... Rhode Island......... South Carolina South Dakota........ Tennessee............... Texas..................... Vermont................ Virginia................. West Virginia....... Wisconsin.............. **38 T otal............ 5,008 136 23 1 202 31 47 152 14 87 20 78 21 135 22 71 56 64 27 7 July 1, 1910, to June 30, 1911. 15 52 15 140 30 6 1 1 252 4 1 1 "54 13 58 97 1 State or Territory. July 1, 1910, to June 30, 1911. 20 2 1,236 2,139 2,545 1 34 ............i i 27 11 15 2 23 8 17 14 133 5 39 17 27 4,283 42 2 11 7 233 211 21 18 22 5,176 As would be expected, the great majority of persons go to New York, New Jersey, and other near-by States. The cost o f transporta tion prevents many from going farther away. The applicants for information have greatly exceeded the number sent out at all times. The growth o f the work has been rapid. The following tabular statement shows the number of persons sent to employment each six months since January 1, 1908, to June 30, 1910, and during year ending June 30, 1911: NUMBER OF PERSONS SENT TO DEFINITE EMPLOYMENT B Y DIVISION OF INFOR MATION, EACH SIX MONTHS, JANUARY, 1908, TO JUNE, 1910, AND Y E A R ENDING JUNE 30, 1911. Periods. January 1 to June 30,1908.................................................................................................................. July 1 to December 31,1908......................................... .................................................................... January 1 to June 30,1909.................................................................................................................. July 1 to December 31,1909............................................................................................................... January 1 to June 30,1910.................................................................................................................. July 1,1910, to June 30,1911............................................................. ................................................j Number sent to definite employ ment. 815 1,636 2,176 2,494 1,789 5,176 110 BULLETIN OF THE BUREAU OF LABOR. BU R E AU OF IN F O R M A T IO N A N D STATISTICS OF T H E N E W Y O R K DEPART M E N T OF AGRICU LTU RE. The bureau of information and statistics o f the department of agriculture was established in 1905. Its purpose is to assist agricul turalists to the fullest extent possible in procuring farm labor, and to secure the settlement o f unoccupied or partially worked farms. It is not therefore primarily an agency for assisting the unemployed, but is rather for the benefit of the farmers o f the State. Its activities are confined, therefore, to the State o f New York. During the first year o f its existence this bureau sent 4,171 farm hands to the farms o f New York. During the fiscal year 1908, 3,600 men were sent out as farm hands and 400 families were placed on farms by the bureau. During 1909 about 4,000 men were sent out, and in 1910 4,944 people secured employment upon farms. The bureau will not send out any man who can not command the usual wages, $25 to $30 per month. This requires men experienced in farm labor. The bureau has been able to find employment during the spring and summer for all applicants with the proper qualifications. N A T IO N A L E M P L O Y M E N T E X C H A N G E . The National Employment Exchange of New York City is the out come of a proposition by Mr. Jacob H. Schiff, of New York City, to establish an unofficial employment bureau with a working fund o f $100,000 and with an organization covering the entire United States. Dr. Edward T. Devine, general secretary of the Charity Organization Society of New York City, was appointed to examine into the need for such a bureau. After a study of the situation he concluded that “ there is a need at all times and in periods o f even slight depression, a very urgent need o f an efficient system o f bringing together as quickly as possible those who are seeking work and those who are seeking workers.” 1 After reviewing the agencies engaged in bring ing these parties together, Dr. Devine concludes that the need for the establishment of such a bureau is very great, that it is not met by other existing agencies, and can not be met by other plans more effectively or economically than by that proposed. The strongest argument in favor o f establishing such a bureau, in Dr. Devine’s opinion, is the dearth o f information on the subject of maladjustment of the labor supply. He believes that the mere collec tion o f such information will be worth all that the experiment costs. Dr. Devine proceeds to recommend, following the lines o f Mr. Schiff’s proposition, as follows: 1 R eport on the Desirability o f Establishing an Employment Bureau in the City o f New York, by Edward T Devine, p. 9. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES* 111 I would recommend that there be organized in the city of New York an employment bureau under a board o f trustees composed of experienced men representing the mercantile, academic, philan thropic, and industrial classes. * * * The bureau should be placed under a manager o f great executive ability with the necessary number of assistants. * * * It would be necessary to have interpreters, men to take charge of gangs in transit, and to perform virtually the function now exercised by the padrone. The bureau should establish an organization covering all sections o f the United States, so that it shall be in immediate and close touch with requirements for labor and employment wherever such exist, but its benefits should accrue primarily to the unemployed o f the city o f New York. It may not be necessary to maintain agencies perma nently in particular localities outside o f New York. * * * For the most part, the agents in the field would be moving from place to place, establishing relations with employers, looking after the inter ests o f the men who had been sent to work, and ascertaining when they would be free from particular engagements, so that there would be little loss o f time in transferring them to other places where they were needed.1 These recommendations show the purposes and plans of the Na tional Employment Exchange, which was incorporated and opened offices in 1909. An announcement of its incorporation, after naming the subscribers contributing $100,000 for its support, says: This is the first practical step of a movement to establish an em ployment bureau in this city which will inspire confidence alike in employers and employees. In order to insure the success o f this undertaking and its permanency, and in order to ultimately occupy a large field m the community, the exchange is to be run as a business and not as a charity. The purpose, however, is usefulness and the motives philanthropic. The primary effort will be to fill orders for laborers and employees in a satisfactory manner with good material. A t the outset only one office was established, known as the State Street office, and located not far from the point where immigrants arrive from Ellis Island. This office places manual laborers only. Later a general mercantile bureau for miscellaneous positions for both men and women was established, and in 1910 another office for manual laborers. No branches have been established outside of New York City nor have agents been sent out. The general mercantile bureau, located at 30 Church Street, en deavors to secure positions for office help, salesmen, draftsmen, eta During the year ending September 30, 1911, positions were secured for 1,331 applicants—more than double the number who were placed in position during the preceding year. This number was composed o f 270 stenographers, 90 typewriters, 116 bookkeepers, 143 boys and girls for offices, 112 addressers, 41 switchboard opera 1 R eport on the D esirability o f Establishing an Employment Bureau in the C ity o f New York, by Edward T. Devine, p. 9, 112 BULLETIN OF THE BUREAU OF LABOR. tors, 8 draftsmen, about 400 clerks, and the others in miscella neous clerical occupations. It has been found, however, that the supply o f clerks and stenographers greatly exceeds the demand, and the manager believes, therefore, that the schools should train more men for the trades and fewer for clerical positions. The excess o f clerks necessarily militates against the success of an employ ment agency for them, because under the circumstances an employer ordinarily need not apply to a labor exchange for help o f this character. During the year ending September 30, 1911, the State Street office received 3,890 applications for help (all male), and 2,398 persons were placed in positions. The applications for employment were not recorded during a part o f the year. The manager estimates the number at 75 per day. The following table shows, by States, the destination o f these men: DESTINATION OF W ORKERS SENT OUT B Y STATE STREET OFFICE, NATIONAL EMPLOYMENT EXCHANGE, OF NEW Y O R K CITY, Y E A R ENDING SEPTEM BER 30, 1911. States. New York: New York C ity................................... Outside of New York City................. Pennsylvania............................................. New Jersey................................................. Connecticut ...................................... Tennessee ......................................... Virginia....................................................... Number of labor ers. 569 1,119 256 220 70 56 34 States. Number of labor ers. Massachusetts........................................... Maryland.................................................. O h io ......................................................... West Virginia........................................... Porto Rico................................................ North Carolina.......................................... 27 23 11 g 4 1 Total............................................... 2,398 It will be observed that although the amount of business done by the exchange during its second year was not large the field covered was extensive. The manager states that a great many more positions could have been filled had the men been willing to accept the work offered. The difficulty has been, he states, to secure a sufficient num ber of capable men who were willing to go where the jobs were located. Many requests for help come from distant States, which it is found impossible to supply because transportation is not ad vanced and because workmen are unwilling to go far from New York City. The nature of the positions filled is illustrated by the work done in May, 1910. During that month the office recorded 822 applications for employment and 1,100 applications for help, and filled 331 posi tions. O f the 331 applicants who secured positions, 76 were skilled workers or mechanics, 222 were common laborers, and 33 were handy men. Positions have been furnished to applicants o f 36 different nation alities. The office force speaks and writes 18 different languages. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 113 which greatly facilitates business with foreign-born workmen. Men are secured by “ runners ” who are sent out to solicit them. There has been no solicitation of jobs, because the demand for men has ex ceeded the supply. The exchange has received much press notice and has also sent out many circulars, and the result has been a great many applications from employers. With the idea that an employment agency should be regarded as a business proposition and should be run at a profit, a fee is charged, but the exchange has not yet become self-supporting. The fee for placing common laborers is $2. I f the demand for work exceeds the supply, the laborer pays the fee. I f labor is scarce, the employer pays the fee. A t the time the exchange was visited—June, 1910— each paid $1. The fee for mechanics is $3, and for clerks and similar occupations the first week’s salary, with six weeks in which to pay it. Although the exchange has been unable to fill the demand for men, the office records show many more applications for employment than applications for help, and indicate that many unemployed applicants failed to secure work. This means that the unfilled demand was for men o f different abilities from those applying. The work secured was principally railroad and canal labor, outside o f New York City, and many applicants were not strong enough to perform it, while others were unable or unwilling to leave the city. The exchange was unable to find work for all applicants who were not suited to heavy labor. E M P L O Y M E N T BU REAU S OF T H E Y O U N G M E N ’ S C H R IS T IA N ASSOCIATION . The following table shows the number o f positions secured by the employment bureaus o f the Young Men’s Christian Association in New York City during the years ending April 30, 1908 to 1912: POSITIONS SECURED B Y EMPLOYMENT BUREAUS OF THE YOUNG MEN’S CHRISTIAN ASSOCIATION IN N EW Y O R K CITY FOR THE YEARS ENDING A P R IL 30,1908 TO 1912. Association bureaus. B ow ery......................................................................... Twenty-third Street..................................................... West sid e ...................................................................... Central (Brooklyn)....................................................... All others...................................................................... 1907-8 762 767 541 1,303 624 1908-9 454 703 637 2,211 477 1909-10 1910-11 741 789 1,258 1,784 914 854 933 1,265 1,921 1,263 1911-12 919 957 1,639 2,330 1,547 The aim o f the employment bureaus of the Young Men’s Christian Association is to keep the employment feature subordinate to the other purposes o f the organization. All o f the offices except that at the Bowery Young Men’s Christian Association are licensed and charge a fee. The work which is done for the unemployed by the Bowery branch o f the Young Men’s Christian Association of New York City is es66269°—Bull. 109—13------8 114 BULLETIN OF THE BUREAU OF LABOR. pecially interesting. Besides maintaining an employment bureau, this association cares for destitute men who come to it until they can obtain employment. Men are given board and lodging at $2.50 a week, but the association trusts them for payment until they secure work. The number who fail to pay for their accommodation is said to be decreasing each year. The work done is limited by the size of the building, which can comfortably lodge only 75 each night. During 1908, 2,410 men were furnished 26,480 lodgings. During 1909, 2,491 men were furnished 26,184 lodgings. In 1911, 2,968 men were provided with lodgings, averaging nine days for each man. The methods of the employment bureau o f the Bowery Young Men’s Christian Association are described in the following extract from one o f the annual reports: Every applicant for admission to the house is required to fill up one o f our blanks, enabling us to know who he is, where he comes from, his qualifications for work, where he has worked and how long? and the reason why he is now out of employment. To the parties given as references, we write asking for information regarding the man’s last employment, also regarding his moral character. Forty-six per cent of the references returned to us testify as to the good character and ability of the applicant. We keep a complete record of everything relating to a man who stops in the house, which makes it possible for us to more intelligently study his needs and assist him more quickly to a position o f self-support The character of the men applying to the Bowery Young Men’s Christian Association for assistance is described in the following statement by its secretary: The following figures thoroughly disprove the statement so fre quently and erroneously made that the Bowery branch is “ only a home for old men,” unable to work or incapacitated by reason of dis sipation. O f the men provided for last year, 72 per cent were 35 years o f age or under, 65 per cent were Americans, and the other 35 per cent repre sented 27 different nationalities; 76 per cent were American citizens; 64 per cent were Protestants, 34 per cent Roman Catholics, and 2 per cent Hebrews; 84 per cent were single men; 40 per cent were total ab stainers; 31 per cent had high school or college education; 31 per cent were skilled laborers, 4 per cent professional, 22 per cent cleri cal, and 43 per cent unskilled laborers; 40 per cent had been out of work less than one month; 70 per cent had been employed regularly one year or more previous to arrival at the branch; replies were re ceived from 80 per cent o f the references written for, 47 per cent being testimonials to good character and ability; 25 per cent were members o f Protestant churches. The Bowery Young Men’s Christian Association also assists in dis tributing immigrants. An agent stationed at Ellis Island, to whom immigrants are instructed to apply by Young Men’s Christian Asso ciation secretaries in their own country, gives them advice or instruc UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 115 tion as is necessary. The following account o f this work is from the 1909 report o f the Bowery Young Men’s Christian Association: Since the beginning o f the work at Ellis Island, 5,267 men have been personally interviewed, cards o f introduction have been given to them, addressed to our secretaries throughout North America, and, in addition thereto, letters were written to the secretaries advising them o f the coming o f the aliens. This group represented over a dozen nationalities, 63 per cent o f whom were under 25 years o f age. They were directed to 769 cities and towns in 42 States in this coun try, and 21 cities in 6 Provinces in Canada. Since three men were engaged to give their entire time# to this work during 1909, we were able to meet 3,184 men, as compared with 2,083 for the previous two years, during which time we had practically but one man engaged. The work at the port o f New York involves meeting these men, who bear cards of introduction from secretaries in Europe, and many without such cards. A cordial welcome is extended to them, and in formation given regarding conditions, routes and rates o f travel, dis tances, value of money, transfer of baggage, and something o f the locality in which they are to reside. A card of introduction is given to the immigrant, addressed to the secretary in the community to which he goes, or, where no association exists in that place, to the State or county secretary. The Young Women’s Christian Association o f New York also maintains employment agencies for its members. O THER P H IL A N T H R O P IC AGENCIES. Two other agencies that are o f importance in the distribution o f labor in New York City are the Alliance Employment Bureau and the Charity Organization Society. The former is supported by sev eral philanthropic societies. It secures work for women and girls and for boys 14 to 16 years old. Its principal service is in its careful investigation o f all positions offered, so that its applicants may not be given work morally or physically harmful. It places from 700 to 1,000 persons annually. The Charity Organization Society gives temporary work to women in a laundry established for that purpose. In 1907 this laundry gave 11,544 days o f work to 244 different women, who earned about 90 cents a day. The society also maintains a wood yard, established to test the good faith o f men seeking relief under plea of inability to secure work. The wood yard has become self-supporting. For about three hours’ work here, men with homes receive 50 cents; homeless men receive three meals and a night’s lodging. Another very interesting feature of the work of the Charity Organ ization Society is its “ employment bureau for the handicapped,” established in 1906. The necessity for an employment bureau deal ing exclusively with handicapped men, even where a free public employment bureau is in operation, is obvious. The public employ 116 BULLETIN OF THE BUREAU OF LABOR. ment bureau must, in order to secure and retain the confidence o f employers, send the most competent man available to each position offered. As the applicants for work ordinarily exceed the applica tions for help, the handicapped man is not likely to secure a position where this reasonable policy is followed. Moreover, the placing of such men requires more study and personal attention than a State can give. Not only must positions be found for men with physical or mental deficiencies, but the kinds o f work that such men can do must be ascertained by study and investigation. The 1907 report o f the employment bureau o f the Charity Organi zation Society, of New York City, contains a descriptive analysis o f 596 applicants, which shows the classes of persons with whom an employment bureau for the handicapped must deal. The report says: The largest group among the new applicants was o f those disabled by some crippling disease, generally rheumatism, numbering 125; 120 were convalescents; 94 were handicapped by age; 56 were in an early stage o f pulmonary tuberculosis, and 17 more were suffering from other forms o f tuberculosis; 25 were partially blind, 2 totally blind; 20 had lost a hand, 17 a foot, and 2 more than one lim b; 17 were mentally diseased and 4 were mentally defective; 13 were suf fering from nervous diseases and 16 from diseases o f the circulatory system; 9 were inebriates and 8 had a criminal record; 4 were defec tive in speech or hearing and there were 2 epileptics; a miscellaneous group or 8 included corpulency, hay fever, cancer, and loss o f a sing ing voice; 4 had become unfitted for their previous employment and were not yet readjusted; and the remaining 33 had more than one handicap. The positions available for handicapped persons are indicated by the same report. O f 251 persons placed in positions which were ex pected to be to some degree permanent, domestic servants numbered 58; factory workers, 26; janitors and furnace men, 22; messengers and delivery men, 20; “ handy men ” and “ utility women,” 20; coun try laborers, 17; clerks, 14; porters, 14; watchmen, 9; news dealers, 6; slot-machine tenders, 6; drivers, 6; elevator and door men, 5; attend ants, 5; job carpenters, 3; manicurists, 3; restaurant helpers, 2; guides, 2; employees in a country hotel, 2; and 1 berry picker, 1 bootblack, 1 day laborer, 1 needleworker, 1 orderly, 1 telegraph operator, 1 printer, 1 locksmith, 1 assistant matron, 1 cutter, and 1 motorman. The report continues: The wages o f these positions ranged from $2 to $20 per week, the average being $8.36. A large proportion o f these persons are at time o f application de pendent on charity; others are on the verge o f dependence. Those for whom employment can be found by these special efforts are helped to become partially, in many cases wholly, self-supporting. This bureau, during the first 18 months of its existence, registered 1,137 applicants, 450 o f whom it placed in positions. During 1909, UNEMPLOYMENT AND WORK OP EMPLOYMENT OFFICES. 117 766 applicants secured positions, two-thirds o f them permanent, and in 1911, 731 were placed, 425 o f whom were employed at steady jobs. OTHER AGENCIES FOR DISTRIBUTING IMMIGRANTS. Various other agencies are engaged in the distribution o f alien labor from New York City. One o f these is the Labor Information Bureau for Italians. Ordinarily the applications for help received by it exceed the supply of laborers, which indicates that Italian work men have little difficulty in securing work. The following table shows the work o f the bureau for three years: BUSINESS OF LABOR INFORMATION BUREAU FOR ITALIANS IN NEW Y O R K CITY, 1907 TO 1909. 1907 Applications for employment......................................................................... Applications for help....................................................................................... Positions secured............................................................................................. 10,696 18,363 5,290 1908 7,635 5,097 2,696 1909 3,015 10,632 3,919 It will be observed that in 1907, 18,363 men were wanted, and only 10,696 workmen, applied for*work. In 1908, due to the financial depression, the supply exceeded the demand; but in 1909 the demand for Italian workmen was three times the supply. The records o f the bureau show that nearly all the positions secured are for laborers. Many skilled workers apply, but few are placed. This accounts for the usual excess of applications for employment over positions secured, despite the high demand for certain classes o f labor.1 The Industrial Kemoval Office o f New York City is engaged in distributing Jewish immigrants. It was established in 1900, and during the first eight years of its activity sent 42,000 persons out of New York City, about 60 per cent of whom were breadwinners, and the remainder women and children. The removal office reports that 85 per cent o f those sent out remained where sent, and that not more than half o f the remainder returned to New York. The work of the office has been directed toward the distribution o f industrial and not agricultural workers. The office formerly aimed to secure work before sending men out. Now the procedure is reversed. Men are sent where work is likely, and are cared for by local committees pending the finding o f employment for them.2 Bureaus for the distribution o f aliens are also maintained for their respective nationalities by the German Immigrant Society and the Irish Immigrant Society. 1 The above inform ation concerning the Labor Inform ation Bureau fo r Italians was ob tained from Mr. W illiam Leiserson, investigator fo r the New York legislative commission on employers’ liability, etc. 2 Inform ation from Report o f the Commission o f Im m igration o f New York, 1909, p. 239. 118 BULLETIN OF THE BUREAU OF LABOR. RHODE ISLAND. STATE FREE E M P L O Y M E N T OFFICE. The law authorizing the establishment of State free employment offices in Rhode Island was enacted in April, 1908. The principal reasons advanced for their establishment were “ the opportunities presented o f bringing together those who seek employment and those who desire to employ, without charge or cost, direct or indirect; the desire to assist in securing positions for those having dependents; and the laudable ambition to help the unemployed in Rhode Island to secure work with as little trouble as possible and at no expense.” 1 The passage of the law followed closely upon the announcement of the result of a census o f the unemployed which was taken during the time o f the financial depression, and showed that the number o f unemployed persons in the State who were ordinarily employed was approximately 18,000. It was believed that an employment office would help in the solution o f the problem presented by so large a body o f unemployed. The shortcomings o f private employment offices played little part in the creation of free offices in Ehode Island. In 1905 an investi gation of private agencies had been made, but although the usual charges of fraud had been made against them it was not found pos sible to substantiate the charges. Such agencies are not numerous in Rhode Island. The law authorizes the establishment o f free employment offices in such cities as the commissioner o f industrial statistics may select. Only one office has been established, located at Providence. This office in its methods o f work is patterned after the Boston Free Em ployment Office, which was visited and studied by the Rhode Island officials. The business done by the Rhode Island Free Employment Office since its organization is shown by the following table: APPLICATIONS FOR W O R K AND FOR H E LP AND POSITIONS SECURED, RH ODEISLAND STATE F R E E EMPLOYMENT OFFICE, FROM ESTABLISHMENT TO OCTO BE R 31,1911. [From Annual Reports of the Commissioner of Industrial Statistics, Rhode Island.] Applications for work. Periods. Six months ending Oct. 31, 1908..................................... Year ending Oct. 31,1909 ___ Year ending Oct. 31,1910 ... Year ending Oct. 31,1911 ... Applications for help. Positions secured. Males. Fe males. Total. Males. Fe males. Total. Males. Fe males. 5,473 3,754 1,821 1,251 1,955 1,876 1,806 2,850 7,428 5,630 3,627 4,101 520 1,165 873 762 852 1,391 971 959 1,372 2,556 1,844 1,721 459 1,155 1,153 933 549 1,255 999 995 1 Twenty-second Report o f Industrial Statistics, Rhode Island, 1908, p. 563. Total. 1,008 2,410 2,152 1,728 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 119 The large number of applications for work during the first six months after the office was established reflects the industrial condition at that time. Established in a period of industrial depression, the free employment office received over 2,000 applications from males desiring work during the first month o f its existence. O f these, only 72 obtained positions, owing again to the financial depression. During the year ending October 31, 1909, 2,410 positions were filled by the bureau at a cost o f $4,000; each position filled, there fore, cost the State $1.66. The 933 males for whom positions were secured during the year ending October 31, 1911, were placed in 65 different occupations. A total o f 236 were placed on farms, 120 were cooks and kitchen men, 96 were porters, and 119 common laborers. The male applicants represented 75 occupations. The 995 females securing positions were placed in 40 occupations. Waitresses numbered 74 and girls for general housework 295. Six other household occupations included 378 persons, so that waitresses and domestics placed numbered 747. The Providence office has two departments, one for males and one for females. Its office force consists of the superintendent and two female clerks. The superintendent does most of the work connected with the male department. This prevents him from going about among employers to any extent to solicit jobs. References are re quested but not required from applicants and they are not usually investigated when furnished. The employer is given such informa tion as has been obtained, but the office does not vouch for the work er’s ability. Each position is investigated with as great care as cir cumstances permit, and the applicant advised fully as to hours, wages, and other details. In filling positions, dependents are given preference. The com missioner o f industrial statistics has also proposed the making of special efforts to find work for handicapped persons, but the sugges tion has not been carried out. Registry may be by mail or in person. Applicants for work are sent out of the State and nonresidents may apply for help, but not for work. This indicates that the office is for the unemployed primarily, and secondarily for those seeking help. The labor unions favored the establishment of the bureau and re gard it as a necessity, yet they patronize it but little. This is because each union maintains what is, in fact; a free employment bureau for its members. The three great manufacturing industries o f the State—the textile manufactures, the jewelry manufactures, and the metal trades—have not patronized the free employment office to any extent. The Metal Trades Association has an employment bureau, and the jewelry man ufacturers maintained a similar organization until recently. The textile manufacturers have been able to secure enough help without 120 BULLETIN OF THE BUREAU OF LABOR. applying to the State office. It is said that they ordinarily retain a sufficient number o f employees, but cut down operating time rather than discharge employees. I f additional help is needed during a brisk season, it is obtainable through those already employed. Among other employers the free employment office appears to have an increas ing number o f patrons. OTHER E M P L O Y M E N T AGENCIES. Other agencies working for the distribution o f labor in Providence are the private employment agencies, which are not numerous, the employment bureaus of the Young Men’s Christian Association, and the Young Women’s Christian Association, the charity organization, and a few church societies. Little information is available concern ing the private agencies. There are only five such agencies, all run by women, and it is believed they deal chiefly with domestics. The employment work of the charity organization is here, as else where, only incidental to other relief work. The office tries to secure temporary work for men in need o f assistance. There is some cooperation between the free employment bureau and the associated charities, the latter sending persons in search o f employment to the bureau, and the employment bureau sending needy men to the Asso ciated Charity Society. The Young Men’s Christian Association has an employment bureau which deals chiefly with office men and office boys. It has placed 243 during the year ending May 1,1912. The fee charged is 50 cents for registration and 50 per cent o f the first week’s salary. In the winter months the office is unable to fill all calls from employers, but in summer there are more applicants than positions. The office claims to have the confidence o f the best employers. Positions and appli cants are both thoroughly investigated and care is taken to place applicants in positions best suited for them. The employment bureau of the Young Women’s Christian Associa tion of Providence has placed 741 women in positions during the past year. These were chiefly domestics, but included also day nurses and some stenographers and bookkeepers. The fee charged is $1 from the employer and 50 cents to $1 from the employee, the amount depending upon the wages received. The Metal Trades Association o f Providence maintains a free em ployment bureau. Its purpose is stated to be the weeding out o f poor workmen, although it is charged with being an antiunion strike breaking organization. The manager is a good judge o f the ability o f men in the metal trades and the members o f the association rely upon his judgment in sending them men. Thus they are relieved of investigation and inquiry as to a workman’s ability. The bureau placed 1,802 men in positions during the year ending March 1,1911, and 4,386 men were hired through the office and at the factories. U N E M P L O Y M E N T A N D W O R K OF E M P L O Y M E N T O F F IC E S . 121 OTHER STATES HAVING FREE PUBLIC EMPLOYMENT OFFICES. Following is a brief account o f free public employment offices in States not visited during this investigation and also a brief review in two States, California and Maryland, o f reports concerning pri vate employment agencies. So far as free public agencies are con cerned, the report for each State is supplementary to the reports, published in Bulletin 68 of the United States Bureau of Labor, to which the reader is referred for detailed information concerning methods o f administration. The statistics o f the offices described in the former report are brought to date, and an account is given o f the establishment o f free employment bureaus in Colorado and Oklahoma with an abstract o f the law creating them. C A LIF O R N IA . O f the two municipal free employment bureaus in California de scribed in Bulletin 68, issued by the United States Bureau of Labor, one, that at Los Angeles, was placed in charge o f the Associated Charities in February, 1910. No information was obtained concern ing the office located at Sacramento. The Associated Charities of Los Angeles operates the employment bureau independently o f its charity work. During the five months from March 1 to August 1, 1910, this bureau received 974 applications for employment and obtained em ployment for 624 persons. The law relating to private employment agencies in California re quires those agencies to keep very complete records, which shall be open to the commissioner o f labor and his agents, and to make monthly reports concerning all persons given employment, showing the kind o f work, number hired, rate of pay, amount o f fee, and where sent. These reports are perhaps the most detailed required in any State. Only a small part o f the information to be gained from them is published, but the Thirteenth Biennial Eeport of the Bureau of Labor Statistics contains statistical tables summarizing much inter esting information concerning the private employment offices of the State. These tables show that the private employment offices reporting in San Francisco in 1907-8 placed 26,731 persons in employment, 20,143 outside o f San Francisco and 6,588 in the city. O f these nearly 14,000 were laborers, and 2,000 were ranch hands. The re mainder o f the persons placed in employment represented a variety o f occupations, and many o f them were skilled workmen. The fees paid for positions ranged from 25 cents to $6 and over. One group o f 6,570 applicants paid $2 and another o f 6,507 paid $1. A total o f 19,025 paid from $1 to $2 for their positions. Those paying $5 and over numbered only 269. The average fee was $1.84. The highest 122 BULLETIN OF THE BUREAU OF LABOR. average fee paid in any occupation was $4.18 paid by 17 stenog raphers. The lowest was $1.27 paid by general laborers. The total amount paid to employment agencies in California annually for securing positions approximates $300,000. The tables presented in the report also show the wages per day and per month of the persons securing positions. COLORADO. A law was enacted in 1907 providing for the establishment o f a free public employment office in each city in Colorado having a popu lation of 25,000 and over and o f two such offices in cities o f 200,000 and over. The law provides that each of these offices shall have a superintendent at $1,200 per annum and an assistant superintendent at $1,000. The law also requires that each office have a separate apartment for women, and that full and complete records be kept concerning all applicants for employment, and provides for the printing o f weekly reports from each office. Each superintendent is directed to put himself into communication with the principal em ployers o f labor, and he is authorized to advertise in newspapers and in trade journals. Under this act three offices were established in 1907—one at Den ver, one at Colorado Springs, and one at Pueblo. None o f these offices was visited, so that no account can be given o f their admin istration. The following table shows the business done by each for three years: APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS SECURED, FR EE PUBLIC EMPLOYMENT BU REAU S OF THE STATE OF COLORADO, Y E A R S ENDING NOVEMBER 30, 1908 TO 1910. Applications for employment. Applications for help. Positions secured. Males. Females. Total. Males. Females. Total. Males. Females. Total. Cities and years. 1908. Colorado Springs i ............ Denver2............................ Pueblo8 ...................... 2,857 4,043 4,967 1,070 561 1,337 1,694 3,927 4,604 6,304 i........ Total....................... 11,867 2,968 14,835 Colorado Springs.............. Denver.............................. Pueblo.............................. 2,857 7,540 3,532 1,361 802 529 Total....................... 13,929 982 2,676 1,665 1,378 1,774 904 474 775 2,569 1,852 2,549 1,694 982 2,676 4,817 2,153 6,970 4,218 8,342 4,061 2,753 7,538 2,720 1,277 702 426 4,030 8,240 3,146 2,347 4,882 2,194 1,107 578 305 3,454 5,460 2,499 2,692 16,621 13,011 2,405 15,416 9,423 1,990 11,413 Colorado Springs.............. 4,282 Denver.............................. 15,252 5,228 Pueblo.............................. 2,870 1,643 827 7,152 16,895 6,055 3,881 6,951 4,575 2,819 1,429 1,185 6,700 8,380 5,760 3,715 6,864 3,635 2,738 1,219 694 6,453 8,083 4,329 24,762 5,340 30,102 15,407 5,433 20,840 14,214 4,651 18,865 1909. 1910. Total....................... . I Year ending Nov. 30,1908. 2Nov. 20, 1907, to Nov. 30,1908. 8Date not clearly shown in report. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 123 This table indicates that the work o f these offices is rapidly in creasing. The Denver office placed over 8,000 applicants in 1910, as against 5,460 in 1909 and only 1,852 in 1908. The three offices placed 4,817 males and 2,153 females in 1908. In 1910 they found positions for 14,214 males and 4,651 females. The applications for employ ment, as shown in the above table, do not represent all persons apply ing for work, as applications are recorded only o f those applicants who have a permanent address. Transients who could not be reached if wanted are not listed. CON N ECTICU T. Connecticut has five State free employment bureaus. The follow ing tables show the amount of business done by each during the year ending November 30, 1910, and also the total since the establishment o f the offices in 1901: APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS SECURED, CONNECTICUT FREE PUBLIC EMPLOYMENT BUREAUS, Y E A R ENDING NOVEM B E R 30, 1910. [From Report of Bureau of Labor Statistics of Connecticut, 1909-10, p. 101.) Applications for em ployment. Applications for help. Positions secured. Cities. Males. Females. Total. Males. Females. Total. Males. Females. Total. Hartford....................... Bridgeport................... New Haven................. Waterbury................... Norwich....................... 1,978 1,546 1,814 1,140 298 1,540 2,339 884 1,303 161 3,518 3,885 2,698 2,443 459 1,455 1,028 1,242 825 283 1,244 2,172 913 1,487 259 2,699 3,200 2,155 2,312 542 1,131 846 1,063 760 147 892 1,616 520 1,034 117 2,023 2,462 1,583 1,794 264 Total.................. 6,776 6,227 13,003 4,833 6,075 10,908 3,947 4,179 8,126 TOTAL BUSINESS OF CONNECTICUT FREE PUBLIC EMPLOYMENT BUREAUS FOR 113 MONTHS ENDING NOVEMBER 30, 1910. [From Report of Bureau of Labor Statistics of Connecticut, 1909-10, p. 101-1 Applications for em ployment. Applications for help. Positions secured. Males. Females. Total. Males. Females. Total. Males. Females. Total. 41,632 29,878 25,086 19,442 5,540 13,454 7,065 6,732 5,340 1,486 17,470 21,332 10,368 12,291 2,968 30,924 28,397 17,100 17,631 4,454 12,084 6,152 6,059 4,938 1,299 13,046 16,487 8,057 9,641 2,209 25,130 22,639 14,116 14,579 3,508 67,266 121,578 34,077 64,429 98,506 30,532 49,440 79,972 Cities. Hartford............................ 21,825 Bridgeport........................ 8,974 New Haven...................... 13,338 Waterbury........................ 7,358 Norwich............................ 2,817 Total........................ 54,312 19,807 20,904 11,748 12,084 2,723 124 BULLETIN OF THE BUREAU OF LABOR. The following table shows the occupations in which positions were secured through each o f the five free public employment offices in the State in 1910. Among the males it will be noted farm hands and laborers were the two principal classes. A great majority of the males securing positions were unskilled workers. O f the females, the various domestic occupations include nearly all persons securing work. Office girls, clerks, and stenographers were very few in number. SITUATIONS SECURED B Y THE CONNECTICUT FREE PUBLIC EMPLOYMENT BUREAUS, B Y OCCUPATIONS, Y E A R ENDING NOVEMBER 30, 1910. [From Report of Bureau of Labor Statistics of Connecticut, 1909-10, pp. 102,103.] M ALES. Occupations. Apprentices.................................................. Attendants................................................... Bakers.......................................................... Bartenders.................................................... Bell boys..................................................... Blacksmiths................................................. Bookbinders................................................ Bookkeepers................................................ Boys.............................................................. Brass mclders.............................................. Brass rollers................................................. Buffers......................................................... Butchers....................................................... Butlers......................................................... Canvassers.................................................... Carpenters.................................................... Chauffeurs................................................ Chefs............................................................. Clerks............................................................ Coachmen.................................................... Cooks............................................................ Core makers................................................ Day workers................................................ Drivers......................................................... Electricians.................................................. Elevator men............................................... Engineers..................................................... Enumerators................................................ Farm hands................................................. Firemen....................................................... Foremen....................................................... Gardeners..................................................... Grinders....................................................... Hospital orderlies........................................ Hostlers........................................................ Hotel workers.............................................. Janitors......................................................... Kitchen men................................................ Laborers....................................................... Lathe hands................................................ Laundrymen................................................ Machine hands............................................. Machinists.................................................... Masons.......................................................... Meat cutters................................................. Millwrights.................................................. Miscellaneous............................................... Musicians. .. ................................ Nurses.......................................................... Painters........................................................ Paper hangers............................................. Pattern makers............................................ Platers.......................................................... Plumbers..................................................... Polishers.-..................................................... Porters.......................................................... Poultry keepers........................................... Press hands.................................................. Printers........................................................ Salesmen....................................................... Shop hands.................................................. Hartford. Bridge port. 3 New Haven. 3 4 1 14 1 48 1 3 2 3 1 1 1 5 2 1 1 1 11 3 6 5 5 16 36 3 2 11 15 2 1 7 3 2 3 4 20 1 1 2 4 71 1 1 1 3 189 6 18 5 4 308 1 34 16 146 3 1 6 3 7 2 2 38 174 1 3 4 30 154 7 41 181 2 66 490 9 39 62 6 19 2 1 31 4 1 1 53 1 14 1 1 1 14 1 33 1 4 1 2 3 550 9 1 1 7 6 Norwich. 1 9 1 1 1 13 1 2 50 5 3 Waterbury. 27 28 1 20 19 3 5 1 1 2 3 39 7 9 7 1 3 2 1 1 1 1 2 1 5 2 2 1 1 228 1 1 Total. 7 3 1 1 22 19 1 2 80 3 1 3 1 4 15 9 2 4 23 10 82 1 73 50 7 9 7 3 1,211 19 1 56 5 45 186 1 24 179 926 7 1 35 80 5 2 3 57 1 1 17 1 1 1 5 2 55 6 2 2 2 288 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 125 SITUATIONS SECURED B Y THE CONNECTICUT F R EE PUBLIC EM PLOYMENT BUREAUS, B Y OCCUPATIONS, Y E A R ENDING NOVEM BER 30,1910-Concluded. M A LE S—Concluded. Hartford. Bridge port. Occupations. Spinners (ftotton)____ ______________ ___ hands__________________ Tailors__________________ _ _________ __ . T, ________________ Tile setters.................................................... _________ _______ Tinjsmitlis. _T Tobacco hands... _____ ___________ Toolmakers............. ....... .. -. - ........ Waiters......................................................... Watchman... , ________________________ Weavers........................................................ Wo™1chr>ppeTS. r. ___ ___ _____________ Wood sawyers.............................................. Wood turners.............................................. 112 Total................................................... 1,131 New Haven. Waterbury. Norwich. Total. 1 2 7 1 1 2 1 94 1 1 112 17 23 3 9 7 4 2 1 2 85 1 6 2 1 11 6 4 17 3 2 1 1 1 8 2 846 1,063 760 147 3,947 FE M A LE S. 2 3 1 Attendants for children............................... Bookbinders................................................. Bookkeepers................................................. Canvassers.................................................... Chambermaids.................... ....................... Clerks................................... ........................ Companions................................................. Cooks............................................................ Day workers................................................. Demonstrators................ ........................... Dishwashers................................................ Enumerators................................................ General housework...................................... Housekeepers............................. ................. Kitchen help................................................ Laundresses.................................................. Nurse girls.................................................... Nurses........................................................... Pantry mai^s............................................... Salesladies.................................................... Scrub women............................................... Seamstresses................................................. Second girls. ............................................... Shop hands.................................................. Store work.................................................... Tobacco hands............................................. Waitresses.................................................... Washerwomen............................................. Weavers........................................................ Miscellaneous............................................... 2 326 17 84 152 6 7 9 Total................................................... 892 6 2 45 2 2 1 117 4,179 1 2 66 45 1 12 106 452 28 45 403 7 8 2 1 443 16 109 98 33 5 256 330 32 60 33 33 2 62 2 52 49 3 4 5 5 1 2 35 86 8 37 34 2 6 55 2 3 1 1 125 7 2 231 865 2 1 2 1,417 67 309 337 80 14 9 3 121 11 130 111 12 6 285 13 2 10 53 53 10 11 30 13 113 13 75 41 3 10 1 9 1,616 520 1,034 K A N SA S. The following table shows the work done by the Kansas Free Public Employment Bureau, 1907 to 1911: APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS FILLED, FREE PUBLIC EMPLOYMENT BUREAU OF KANSAS, 1907 TO 1911. Applications for employ ment. Applications for help. Positions filled.* Males. Females. Total. Males. Females. Total. Males. Females. Total. Years. 1907.................................... 1908.................................... 1909................................... 1910................................... 1911................................... 1,292 2,221 2,231 6,454 3,968 129 203 204 238 208 1,421 2,424 2,435 6,692 4,176 498 575 1,792 5,813 12,360 214 154 174 143 105 712 729 1,966 5,956 12,465 909 1,539 1,686 5,700 3,229 74 85 93 66 61 983 1,624 1,779 5,766 3,290 126 BULLETIN OF THE BUREAU OF LABOR. This office is located at Topeka, but it has agents located in five cities of the State. The following table shows the amount o f work done by each agency, 1909 to 1911: APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS FILLE D , F R EE PUBLIC EMPLOYMENT BUREAU OF KANSAS, 1909 TO 1911. [From Annual Reports of the Director of the Kansas Free Employment Bureau.] 1909. Applications for employ ment. Applications for help. Positions M ed. Males. Females. Total. Males. Females. Total. Males. Females. Total. Agencies. Kansas City, Kans.......... Topeka.............................. Chanute............................ TTingmq.n........................... Silver Lake....................... Director’s office................. 25 15 50 150 3 1,988 Total........................ 2,231 200 25 19 50 150 3 2,188 25 15 50 150 3 1,549 204 2,435 1,792 4 166 25 23 50 150 3 1,715 25 7 50 150 3 1,451 93 25 7 50 150 3 1,544 174 1,966 1,686 93 1,779 1,210 2,627 45 250 85 1,483 66 1,210 2,627 45 250 85 1,549 5,700 66 5,766 8 1910. Kansas City, M o .............. Topeka............................. Chanute........................... Kingm an......................... Arkansas City................... Director’s office............... 1,210 2,640 45 250 85 2,224 T o ta l...................... 6,454 238 1,210 2,640 45 250 85 2,462 1,210 2,627 45 250 85 1,596 143 1,210 2,627 45 250 85 1,739 238 6,692 5,813 143 5,956 1911. A. T. & S. F. R. R ......... C. R. I. & P. R y .............. St. Joseph Free Employ ment Office................... Union Pacific R y ............ Director’s office............... T o ta l.................... 411 153 411 153 411 153 411 153 55 486 2,863 208 55 486 3,071 12,360 io5 12,465 55 486 2,124 61 55 486 2,185 3,968 | 208 4,176 12,360 105 12,465 3,229 61 3,290 The chief work of the Kansas Free Employment Bureau is the dis tribution o f harvest hands. O f 3,229 positions secured for males during 1911 by this bureau 2,905 were for harvest hands, 216 for farm hands, and 86 for common laborers. In no other occupation were as many as 10 male workers supplied. U N E M P L O Y M E N T AN D W O R K OF E M P L O Y M E N T OFFICES. 127 MARYLAND. The law creating a free public employment office in Maryland was enacted in 1902. The following table shows the amount o f business done by the office each year since its establishment: APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS SECURED, BAL TIMORE FREE PUBLIC EMPLOYMENT OFFICE, 1903 TO 1911. Applications for employ ment. Applications for help. Positions secured. Males. Females. Total. Males. Females. Total. Males. Females. Total. Years. 1903.................................... 1904.................................... 1905.................................... 1906.................................... 1907.................................... 1908.................................... 1909.................................... 1910................................... 1911................................... 543 1,078 377 617 161 378 233 112 677 652 109 1,312 234 74 451 644 27 27 * 188 47 * 425 22 255 39 151 103 780 Total........................ 4,176 682 4,858 490 202 155 459 40 33 39 23 154 256 160 108 62 21 31 11 47 91 746 362 263 521 61 64 50 70 245 185 378 78 129 42 24 28 6 47 71 151 44 12 24 5 4 26 17 256 529 122 141 66 29 32 32 64 1,595 787 2,382 917 354 1,271 The highest number of positions secured in any one year by the Baltimore office was 529 in 1904. Since that time the highest number was 141 in 1906. In 1908 only 29 persons—24 males and 5 females— secured positions through the office, and in 1909 and in 1910 only 32. The third annual report o f the office (1905) states that the results of the work were not satisfactory. The report for 1906 states that they were very unsatisfactory and assigns as one reason the fact that manufacturers and business men have not availed themselves o f the advantages o f the office. As the number o f applications for help continued to fall until it reached 50 in 1909, it is evident that the office has not gained the confidence o f employers generally. The 1908 report recommends the establishment of two more offices in Baltimore and one each in Cumberland and Hagerstown, all to cooperate in receiving applications and securing positions. The Maryland office has reported an inability to supply the de mand for farm hands and for female help, particularly household workers. One o f the objects in establishing the free public employment office in Maryland, as in other States, was to remedy the evils o f private agencies. The office has not accomplished this purpose, but it has constantly recommended legislation to control these agencies. In 1907 the bureau o f statistics made an investigation o f private em ployment offices in the city o f Baltimore. A t that time there were about 150 o f these agencies, but the inspectors were able to secure returns from only 43. In view of the paucity of information on the subject o f private employment offices, it is interesting to note the re 128 BULLETIN OF THE BUREAU OF LABOR. suits o f this investigation. results : The following table summarizes these CHARACTER OF P R IV A T E EM PLOYMENT OFFICES IN M ARYLAND IN 1907. [From Sixteenth Annual Report, Bureau o f Statistics and Inform ation o f Maryland, 1908, p. 89.] Date Color of person of open- carry ing on h f the of busi fice. ness. Sex of person carry ing on the busi ness. Character of help secured. Black. ...d o .. ...d o .. ...d o .. .. .d o .. ...d o .. ... d o . . White. . . .d o .. ...d o .. Black. White. Black. ...d o .. d o .. ...d o .. ...d o .. ...d o .. ...d o .. .. .d o .. White. . . .d o .. ...d o .. . . .d o .. . . .d o .. Female. ...d o ___ ...d o ___ M ale.... Female. ...d o ___ ...d o ----...d o .... ...d o ___ ...d o ___ ...d o ___ M ale.... Female. ...d o ___ M ale.... Female. ...d o .... ...d o ___ Male___ Female M ale.... ...d o ___ ...d o ----...d o ___ do___ 1902 d o .. 1896.. .. .d o .. 1899.. .. .d o .. 1895.. . . .d o .. .. .d o ., 1906** d o .. 1906.. . .. d o . . 1900.. Black, 1903 d o .. 1905.. . . . d o . . 1906.. . .. d o . . 1897.. White 1882 d o .. 1906.. Black. 1906.. . . . d o . . 1876.. White. 1894.. Black, 1901 d o .. Female. ...d o .... ...d o .... M ale.... Female. ...d o ___ ...d o .... .. .do___ ...d o .... Male___ Female. . . .do___ M ale.... Female. ...d o .... Male— Female. Male 1892.. 1906.. 1880.. 1907.. 1900.. 1906.. 1893.. 1897.. 1905.. i905: ‘ 1870.. 1906.. 1905.. 1892 1903.. 1897.. 1897.. 1904.. 1902.. 1824.. 1904.. 1907.. 1900.. 1897 Charge for registering applicants. Charge for securing positions. Charge for securing help. Domestic, female only...... .......do................................. Domestic, female............... Domestic, male and female .......do................................. Domestic, female............... .......do................................. Domestic........................... Domestic, female only.___ Domestic, female............... All classes.......................... Seamen and farm labor__ Domestic, female............... Domestic, male and female .......do................................. .......do................................. Domestic........................... .......do................................. .......do................................. .......do................................. Farm labor........................ All classes........................... .......do................................. .......do................................. Domestic............................ 25 and 50c... None........... .......do.......... .......do.......... .......do.......... .......do.......... 50c............... None........... .......do.......... .......do.......... 50c............... None............ .......do.......... .......do.......... .......do.......... .......do.......... $1................. $1................. $1..*............ 50c. and $1 $1................. $1................. $1................. $1.............. $1................. $1............... $1. 50c. to $1___ 50c.............. 5 0 c.............. $1................. $1................. $1................. $1................. $1................. $land$2___ $1.50___ 50c. to $5 None........... .......do.......... $1................. .......do................................. ....... do................................. All classes........................... Domestic only................... Domestic and mercantile.. Domestic........................... .......do................................. ....... do................................. .......do................................. Domestic, female............... .......do................................. .......do................................. Farm and vessel labor...... Domestic........................... .......do................................. Farm and vessel labor...... Domestic............................ ....... do................................. None........... 50 c.............. 50 c.............. 50c. and $1.. 50 c.............. 50 c.............. None............ $1................. $1................. 50c. and $1.. None........... .......do.......... 50 c.............. 50 c.............. $1................. 50 c.............. $1................. None........... $1................. None.... $1................. $1................. $i ................. None........... 10 per cent o f fir s t m o n t h ’s wages. $1................. $1................. 50c. to $1 . . . 50c. to $1 . . . 40c........... $1................. 50 c.............. None............ 50c.............. None........... .......do.......... 50c.............. None........... 50c.............. 50c.............. $1 to $2........ .......do.......... $1................. .......do.......... $1..... 10 c.............. $1.............. None........... 10c.............. $1 to $1.50... $1................. None........... $1................. .......do.......... $1................. 25c.............. $1................. None........... 50c.............. 50c.............. $1................. 50c.............. $1................. None............ .......do.......... $2................. $1................. .......do.......... $1................. .......do.......... $1 to $2........ .......do.......... .......do.......... $1................. All he can All he can All he can get. get. get. $1................. 50c. and $1.. None........... .......do.......... .......do.......... SI................. None........... Posi tions re ported having been secured in 1907. 50 300 100 1,500 240 150 309 25 190 175 390 1,500 The following extract from the report o f the investigation is inter esting and instructive: There are about 150 employment agencies in Baltimore. Among them they cover the field of domestic, farm and vessel, and contract labor. Contract labor, it should be explained, consists usually of un skilled hands, such as the day laborers used in digging ditches or building railroads. This class is the rank and file of labor and usually it is recruited from the recent immigrants to this country. UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 129 Many o f the establishments refuse to give information about them selves. The number already heard from is representative, however, as it includes a fair proportion of each sort, and many of the more reputable concerns. O f the 43 agencies that have reported, 24 are conducted by colored persons and 19 by white persons. Nineteen of the colored agencies are conducted by women, and 10 of the white agencies are in the hands of members o f the fair sex. Few of them have a settled place o f busi ness. Most o f them are conducted as private enterprises by individ uals, who carry on their transactions in their homes. Four o f the 43 agencies conduct a farm and vessel labor business, 34 carry on an exclusively domestic business, and 5 cater to all classes o f trade. The 4 farm and vessel agencies form a distinct class. They have all been established for a number of years and all have regularly equipped offices down town. O f the other 39 agencies, there is only 1 that has been in existence for more than 10 years. This is one conducted by a colored man. It has been in existence, it is said, since 1880. There are several ways in which employment agencies charge for their services. Usually they ask for a sum o f money from both employer and employee when the two have been brought together. I f they do not charge one party directly, they usually ask a registra tion fee o f him. Sometimes they ask both registration and service fees. The Young Men’s Christian Associations o f the city make one single charge o f employer or employee, and return 75 per cent if sat isfaction is not given. O f the 43 agencies that report there are 12 that charge for regis tration. Eleven o f these ask sums varying from 10 to 50 cents for this little formality. One, which is run by a Negro, asks, “ Anything I can get:” For securing a position, 39 of the 43 agencies charge the applicant sums varying from 50 cents to $1. One charges 10 per cent o f the first month’s wages. One (the same affable Negro mentioned in the preceding paragraph) asks, “ A ll I can get.” One charges the em ployees nothing. For securing help (bringing labor to capital), 39 of the 43 ask sums varying from 50 cents to $2. Three charge nothing and one “ A ll I can get.” Few employment agencies keep a record o f their business. O f the 43, only 12 have any sort of system of bookkeeping at all, and in many cases this is very crude.1 1 Sixteenth Annual Report, Bureau o f Statistics and Inform ation o f Maryland, 1908, pp. 90, 91. 66269°—Bull. 109—13------9 130 BULLETIN OF THE BUREAU OF LABOR. M ISSO URI. The following table shows the business done by the Missouri free employment bureaus, 1908 to 1911: APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS SECURED, STATE FREE EMPLOYMENT DEPARTM ENT OF MISSOURI, YEARS ENDING SEPTEMBER 30, 1908 TO 1911. 1908. Applications for em ployment. Applications for help. Positions secured. Males. Females. Total. Males. Females. Total. Males. Females. Total. Location of bureau. St. Louis........................... TTq.nsfls City...................... St. Joseph......................... Total....................... 585 544 641 6,042 3,671 4,246 1,194 3,247 3,140 405 875 723 1,599 4,122 3,863 1,111 2,426 2,800 327 223 539 1,438 2,649 3,339 12,189 | 1,770 13,959 7,581 2,003 9,584 6,337 1,089 7,426 5,457 ! 3,127 1 3,605 | 1909. St. Louis........................... Kansas City...................... St. Joseph......................... 4,608 3,039 2,328 537 438 409 5,145 3,477 2,737 2,194 3,226 17,882 676 924 566 2,870 4,150 18,448 1,748 2,373 2,022 413 196 365 2,161 2,569 2,387 Total....................... 9,975 1,384 11,359 23,302 2,166 25,468 6,143 974 7,117 1910. St. Louis___ Kansas City St. Joseph .. 7,136 2,954 3,124 7,603 467 530 ! 3,484 502 | 3,626 5,779 3,751 3,112 804 872 658 6,583 4,623 3,770 4,619 2,406 2,589 366 320 364 4,985 2,726 2,953 13,214 1,499 j 14,713 12,642 2,334 14,976 9,614 1,050 10,664 923 810 173 6,750 2,228 1,007 4,134 1,049 692 491 348 113 4,625 1,397 805 1,906 9,985 5,875 952 6,827 1911. St. Louis........................... Kansas C ity .................... St. Joseph....................... 7,264 1,803 713 581 539 124 7,845 | 5,827 2,342 ! 1,418 '837 j 834 Total...................... 9,780 1,244 11,024 | 8,079 i The report of these bureaus shows that for the year ending Sep tember 30, 1909, applications were received for 16,500 harvest hands, but that only 1,371 harvest hands applied for work and that all were placed. Many of these, it is reported, worked all o f June, July, and August, moving slowly north with the ripening of the crops. The report for the year ending September 30,1911, shows no appli cations for harvest hands. Forty-six persons applied for jobs of this character, but no places were obtained for them. In Bulletin 68 of United States Bureau of Labor it is stated that the free employment system was established in Missouri to combat the abuses practiced by private agencies. This was in 1898. It is interesting to note, therefore, that in 1909 a law was passed regulat UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 131 ing such agencies and placing them under the control of the com missioner , o f the bureau of labor statistics. Apparently here as elsewhere the public employment bureau has not proved itself a regulator o f private agencies. M ONTANA. The following table shows the amount of business transacted by the free public employment office of Butte and Great Falls, Mont., from 1907 to 1910. These offices are maintained by the municipalities in which they are located. APPLICATIONS FOR W O R K AND FOR HELP AND POSITIONS SECURED, MONTANA FREE PUBLIC EMPLOYMENT OFFICE, YEARS ENDING NOVEMBER 30, 1907 TO 1910. [From Reports of the Bureau of Agriculture, Labor, and Industry, Montana.] Applications for work. Applications for help. Positions secured. Males. Females. Total. Males. Females. Total. Males. Females. Total. Cities and years. Butte: 190 7 1908 190 9 191 0 Great Falls: 1907 190 8 190 9 191 0 5,826 3,478 3,257 4,308 3,603 2,533 3,001 2,916 9,429 6,011 6,258 7,224 4,630 2,221 2,075 2,916 3,687 3,224 3,116 2,346 8,317 5,445 5,191 5,262 3,660 1,895 1,846 2,248 2,610 2,417 2,644 2,140 6,270 4,312 4,490 4,388 1,001 707 516 533 147 100 73 72 1,048 807 589 605 364 154 135 99 129 83 41 44 473 237 176 143 220 97 72 80 56 33 24 38 276 130 96 118 N E B R ASK A . The law providing for a free public employment office in Nebraska still remains a dead letter. In his 1908 report the deputy commis sioner of labor reports that the law “ appears to have been ignored, except spasmodically.” He states that men and women have applied to the bureau for employment, but that it has been necessary to refer them to private employment offices. The deputy commissioner advo cates an appropriation, so that an office can be fitted up and the law relating thereto carried ou t.' N E W JERSEY. A free employment bureau was established by the city of Newark November 15, 1909. The office is in charge o f the city clerk and is maintained without any special appropriation. Applications for help have been secured by the use o f 66want ads ” and by means of circular letters. The work o f the office is limited to the city o f Newark. Up to May 23, 1910, a period of slightly over six months, this office had received 1,300 applications for employment and had secured over 400 positions. Only 110 women applied for employment during 132 BULLETIN OF THE BUREAU OF LABOR. the six months under consideration, and about half of these secured positions. The manager reported a scarcity o f female Jabor both for factories and as domestics. During the year ending December 31, 1911, 6,210 persons were registered, of whom 3,831 were males and 2,379 females. Employ ment was procured for 2,755 persons—712 males and 2,043 females. The employments obtained are as follow s: OCCUPATIONS OF PERSONS SECURING POSITIONS AT THE N E W A R K FREE EMPLOY MENT OFFICE DURING Y EA R ENDING DECEMBER 31, 1911. Occupations. Positions filled. Occupations. MALES. Apprentices and boys.............. Blacksmiths............................. Bookkeepers............................. Butchers................................... Butlers and domestics............. Carpenters and cabinetmakers Chauffeurs................................ Clerks and salesmen................. Collectors.................................. Coopers..................................... Draftsmen................................ Drivers..................................... Electricians.............................. Elevator runners...................... Engineers................................. Factory hands.......................... Farmers and gardeners............ Firemen.................................... Foremen................................... Handy men.............................. Janitors..................................... Laborers................................... Machinists................................ Machine hands......................... Masons...................................... Packers..................................... Painters.................................... Pipe fitters and plumbers....... m ales— Positions filled. concluded. Polishers................................. . Porters.................................... Proof readers............................ Stablemen............................... Stenographers......................... . Tailors...................................... Tinsmiths................................ Watchmen.............................. 1 1 35 16 3 1 3 27 FEMALES. Chambermaids....................... Clerks...................................... Companions............................ Cooks...................................... Day’s work............................. . Dishwashers.......................... Factory hands........................ Governesses............................ Housekeepers......................... Houseworkers......................... Jani tresses.............................. Laundresses............................ Nurses..................................... Seamstresses........................... Stenographers......................... Typewriters........................... Waitresses.............................. 52 3 2 173 745 4 9 1 U 874 14 11 56 16 6 2 64 O H IO . The free public employment offices of Ohio report rapid increase in the amount o f business done and a consequent reduction in cost for each position filled during the past four years. The number o f positions secured and the average cost of each from 1908 to 1911 was as follows: UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 133 POSITIONS SECURED AND AVERAGE COST OF EACH, OHIO FREE PUBLIC EM PLOY MENT OFFICES, 1908 TO 1911. [From Bulletins 35 and 43, Ohio Bureau of Labor Statistics.] Persons placed. Years. 1908..................................................................................................................................... 1909..................................................................................................................................... 1910..................................................................................................................................... 1911..................................................................................................................................... 15,966 22,448 47,209 47,903 Average cost. $0,834 .601 .282 .287 The Ohio offices were the first established in the United States and have now been in operation more than two decades. The fol lowing table from Bulletin 35, Ohio Bureau of Labor Statistics, shows the business done by each office since its establishment: OPERATIONS OF FREE PUBLIC EMPLOYMENT OFFICES OF OHIO, FROM ORGANIZA TION TO THIRD QU A R TER , 1911. CIN CIN NATI (organized J u ly 2 5 ,1 8 9 0 ). Males. Years. Per cent positions secured are of applications— Females. Posi Situa Situa Posi Help Help For sit tions tions tions tions wanted. wanted. secured. wanted. wanted. secured. uations. For help. Totals for the first decade end ing with the year 1899......... 1900......................................... 1901.......................................... 1902.......................................... 1903.......................................... 1904.......................................... 1905.......................................... 1906.......................................... 1907.......................................... 1908.......................................... 1909.......................................... 1910.......................................... 27,762 2,552 2,423 3,204 3,528 1,898 3,153 4,901 3,517 1,901 3,434 9,227 11,155 1,323 1,527 2,564 3,020 1,621 2,810 4,639 3,154 975 2,596 8,968 8,047 1,246 1,305 2,410 2,871 1,397 2,794 4,505 3,095 975 2,502 8,952 23,888 1,463 2,101 2,115 1,970 2,411 1,995 2,289 1,948 2,315 2,573 2,201 20,211 2,018 2,802 2,845 3,024 2,778 2,336 2,561 2,101 1,523 2,141 2,383 13,159 1,033 1,646 1,767 1,631 2,071 1,715 1,974 1,600 1,497 1,940 2,151 8f 87f 90^ 85^ 58f 75 97^ 74* 78| 87| 90 89$ 99 90£ 97* Grand total................... First quarter, 1911.................. Second quarter, 1911.............. Third quarter, 1911............... 67,500 1,267 2,236 2,665 44,352 949 2,106 2,479 40,179 945 2,100 2,475 47,269 689 753 695 46,723 703 826 827 32,184 622 681 649 63*V 80tV 93^r 93 79^ 94*5 94^ 94J 73f 65£ 64 61* 41 56f 54i 78i 67§ 681 U CLEVELAND (organized Ju ly 1 ,1 8 9 0 ). Totals for the first decade end ing with the year 1899......... 1900.......................................... 1901.......................................... 1902.......................................... 1903.......................................... 1904.......................................... 1905.......................................... 1906.......................................... 1907.......................................... 1908.......................................... 1909......................................... 1910........................................ 31,243 2,253 3,384 3,411 3,238 1,728 2,048 4,102 4,205 2,615 4,758 6,450 10,523 312 3,264 4,586 4,141 1,453 2,433 7,749 5,098 1,703 4,469 6,346 7,543 298 2,108 2,606 2,566 1,051 1,670 3,902 3,985 1,698 4,429 6,326 30,995 1,606 2,765 2,390 2,324 2,082 2,523 2,853 2,999 2,455 2,799 4,111 29,019 2,379 3,069 2,819 2,852 2,280 3,071 3,784 3,994 2,367 3,869 4,415 21,608 1,464 1,947 1,933 2,131 1,790 2,261 2,695 2,881 1,987 2,702 4,082 43* 45§ 66 78* 84g 74§ 86 94& 95& 72/^ 94 * 98H 96f Grand total................... First quarter, 1911.................. Second quarter, 1911.............. Third quarter, 1911................. 69,435 1,951 1,887 1,880 52,077 741 1,854 1,880 38,182 741 1,854 1,880 59,902 890 1,199 796 63,918 992 1,233 796 47,481 890 1,199 796 661 57* 98 * 100 94* 98* 100 67} 76* 71§ 571 75| 90* 85i 134 BULLETIN OF THE BUREAU OF LABOR. OPERATIONS OF FR EE PUBLIC EMPLOYMENT OFFICES OF OHIO, FROM ORGAN IZA TION TO TH IR D QU ARTER, 1911—Concluded. COLUMBUS (organized September 2, 1890). Males. Years. Per cent positions secured are of applications— Females. Situa Posi Situa- | Help Posi Help For sit tions tions tions i tions wanted. wanted. secured. wanted. ; wanted. secured. uations. For help. Totals for the first decade end ing with the year 1899......... 1900......................................... 1901......................................... 1902.......................................... 1903.......................................... 1904.......................................... 1905.......................................... 1906......................................... 1907.......................................... 1908........................................ 1909......................................... 1910.......................................... 30,958 1,217 1,181 1,616 1,875 1,469 2,103 2,517 2,265 1.295 2,599 4,575 10,437 1,270 1,022 2,439 2,145 1,652 2,889 3.750 4,334 1,349 2.867 4,589 7,315 499 828 1,447 1,760 1,422 1,872 2,150 2,177 1,050 2,482 4,575 16,791 1,895 1,586 1,443 1,493 2,061 2,586 2,674 2,305 1.775 2,284 4,304 23,003 2,985 2,919 2,855 2,735 2,888 3,735 3,904 3,384 2,176 2,758 4,771 16,637 1,581 1,592 1,417 1,355 L885 2,271 2,272 2,232 1,681 2.257 4,322 87* 93§ 92* 93§ 88§ 85* 96* 89 97 100* 71f 48 * 61§ 54* 63* 72$ 62* 57* 57* 77* 84% 95* Grand total.................. First quarter, 1911.................. Second quarter, 1911............... Third quarter, 1911........ ........ 53,570 735 1,358 1,138 38,743 678 1,357 1,138 27,587 675 1,358 1,138 41,197 1,425 1,994 1,944 58,113 1,425 1,999 1,944 39,502 1,425 1,994 1,944 70f 97* 100 100 69* 99*£ 99* 100 m 66£ DAYTON (organized June 30, 1890). Totals for the first decade end ing with the year 1899........ 1900.......................................... 1901.......................................... 1902.......................................... 1903.......................................... 1904.......................................... 1905................................. . 1906.......................................... 1907.......................................... 1908.......................................... 1909.......................................... 1910.......................................... 32,401 3,113 3,221 3,931 3,449 2,322 3,500 3,869 3,842 2,422 3.537 6,090 12,132 2,507 2,684 4,472 3,793 2,170 3,599 5,166 3,613 1,503 2,848 6,268 9,384 1,701 1,931 3,147 2,982 2,035 3,217 3,505 3,331 1,437 2,696 5,957 29,609 2.691 2,887 2,491 2,185 2,234 2,014 2,171 2,834 3,182 3,190 6,303 26,824 4,385 5,792 7,194 7,163 4,732 5,361 5,051 4,919 4,233 4,503 7,773 19,549 1.954 2,135 2,080 2,026 2,119 1,942 2,105 2,767 2,959 3,051 6,302 46§ 63 66* 81§ 88* 91* 93^ 92* 91* 78£ 85§ 98* 74* 53 48 44f 45* 60* 57§ 54* 71* 76f 76# 87* Grand total...................... First quarter, 1911.................. Second quarter, 1911.............. Third quarter, 1911................. 71,697 918 1,457 846 50,755 713 1,617 925 41,323 705 1,457 846 61,791 1,714 2,069 1,084 87,930 1,974 2,429 1,258 48,989 1,759 2,069 1,084 67*$ 93$ 100 100 65* 91* 87* 88f TOLEDO (organized June 36,1890). j Totals for the first decade en d -! ing with the year 1899......... 27,212 1900..........................................!! 1,944 1901......................................... |: 2,426 3,995 1902.......................................... 3,777 1903.......................................... 2,006 1904......................................... 2,990 1905......................................... 1,683 1906......................................... 3,273 1907.......................................... 3,774 1908.......................................... 3,886 1909......................................... 4,272 1910........................................ 14,513 1,196 3,230 3,913 3,950 1,869 3,209 1,960 4,697 1,471 2,624 4,892 11,211 970 1,983 2,704 2,726 1,365 2,458 1,285 2,663 1,280 2,263 4,153 21,860 2,121 1,349 2,372 1,832 1,122 1,220 977 1,793 2,012 1,798 1,902 29,401 4,062 1,965 2,926 2,315 1,623 1,565 1,396 2,186 1,793 1,709 2,192 21,127 2,598 1,362 1,917 1,639 840 1,003 864 1,426 1,334 1,363 1,907 65* 87f 88 72f 77# 70* 82* 80* 80* 45* 63§ 98* 73§ 67* 64£ 67f 69| 63* 72* 64 59§ 80* 83* Grand total.................. ! 61,238 First quarter, 1911.................. i 458 Second quarter, 1911.............. 11 1,253 Third quarter, 1911................. 1 1,202 47,524 430 1,261 1,215 35,061 426 1,253 1,202 40,358 546 828 883 53,133 588 886 919 37,380 543 828 883 71* 96* 100 100 71*| 95| m b 97^ UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 135 OKLAHOM A. The law directing the commissioner of labor o f Oklahoma to estaolish a free employment bureau was passed in 1908. An office was established at Guthrie July 1, 1908, but was removed to Oklahoma city in September of the same year. In 1909 the establishment of a branch office was authorized, and this was located at Muskogee. The law fixes the salary of the superintendent of the main office at $1,200 per annum and that of the attendant at the branch office at $600 per annum. The law also provides for separate records, in books, of all applications for employment and for help, with detailed statis tical and sociological data concerning each applicant, but it also provides that refusal to answer the questions asked shall not cause the applicant to forfeit his right to the services o f the office. The superintendent is directed to use all diligence in securing the co operation o f employers o f labor. He may advertise for positions and also for the cooperation o f large contractors. In his reports of the work of the bureau the superintendent states that but few skilled workers are furnished by it and that the greater part o f applicants are destitute and unable to pay transportation out o f the city or to pay board while waiting for their first wages. Dur ing the year ending June 30, 1909, 3,250 positions were secured for applicants. In the following year the number increased to 12,852, o f which 3,149 were secured through the Muskogee branch. In 1910 the Enid branch was established and a total of 14,942 positions were secured through the three offices during the year ending June 30, 1911. During the latter year 53,870 applications were made for employment, the large number being due to a depression in industries employing large numbers of common laborers and to the fact that many applications were duplicated. Applications for help come chiefly from farmers, contractors, and hotels. The following table shows the amount o f business done by the free employment bureaus o f Oklahoma during the years ending June 30, 1909 to 1911: APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS SECURED, OKLA HOMA FREE EMPLOYMENT OFFICES, FOR YEARS ENDING JUNE 30,1909 TO 1911. [From annual reports of the Department of Labor of Oklahoma.] Positions secured. Location of office and year. Oklahoma city, 1909 Oklahoma city, 1910 Muskogee, 1910......... Oklahoma city, 1911 m u s K U g r o , 1911....... j Muskogee, Enid,191L 3,452 9,948 4,358 46,001 3,915 3,954 3,674 12,044 4,057 16,921 4,907 3,013 3,250 9,703 3,149 9,076 3,131 2,735 136 BULLETIN OF THE BUREAU OF LABOR. The same legislature which provided for the establishment of a free employment bureau also passed a law regulating private employ ment agencies, and provided for its enforcement by the commissioner o f labor. The commissioner reports that 35 such agencies were licensed by him during the year ending June 30, 1910. These agen cies reported that they placed in employment during the year 31,692 males and 2,581 females at an average charge of $1.65 each. W A S H IN G T O N . The State o f Washington now has four free public employment offices, located at Everett, Seattle, Spokane, and Tacoma. A ll are municipal offices. The Seattle office was established in 1894, that at Tacoma in 1904, the Spokane office in 1905, and the Everett office in 1908. The following table shows the amount o f business done by the Seattle office each year since its establishment, with the average cost o f positions filled. BUSINESS OF SEATTLE FREE PUBLIC EMPLOYMENT OFFICE, 1904 TO 1909. Positions filled. Years. Hop pickers. Other male help. Other ! female j Total, help. ! Cost of Total each po Average expense. sition. per month. Cents. 1894.............................................. 1895............................................. 1896............................................. 1897............................................. 1898............................................. 1899............................................. 1900............................................. 1901............................................. 1902............................................. 1903............................................. 1904............................................. 1905............................................. 1906............................................. 1907............................................. 1908............................................. 1909............................................. 1,144 2,050 135 2,890 2,235 1,285 2,682 1,465 1,480 1,465 1.105 802 2,490 280 1,580 1,831 1,647 6,163 18,154 20,852 16,082 19,411 19,242 23,302 15,666 17,763 31,792 28,769 20,123 36,332 1,243 1,898 1,756 2,573 3,794 5,468 4,082 5,684 5,183 5,639 3,787 3,202 3,552 2,305 2,060 2.514 1 3,967 5,779 3,403 11,626 : 24,183 27,650 22,846 26,560 25,905 | 30,305 20,558 i 21,767 i 37,834 i 31,074 ! 22,183 ! 38,846 441 482 284 969 2,015 2,300 1,904 2,214 2,159 2,525 1,713 1,814 3,153 2,589 1,848 3,237 $909.65 1,120.00 727.50 724.08 1,377.13 1,239.41 1,132.61 1,276.69 1,320.91 1,479.70 1,308.36 1,314.19 1,526.11 1,549.30 1,321.70 1,623.05 22.93 19.38 21.38 6.24 5.69 4.49 4.96 4.80 5.10 4.88 6.36 6.03 4.03 4.98 5.95 4.18 The extremely low cost of each position filled is noteworthy, as is the large number of positions secured. A total of 37,834 positions were filled in 1906, and in 1909, 38,846. The cost per position was lowest in 1906, only 4.03 cents. Only twice since 1897 has the av erage cost gone above 6 cents. During the past three years the Spokane office has filled positions as follows: POSITIONS FILLED B Y SPOKANE FREE PUBLIC EMPLOYMENT OFFICE, 1907 TO 1909. Years. 1907...................................................................................................................................................... 1908...................................................................................................................................................... 1909...................................................................................................................................................... Positions filled. 3,834 3,359 5,179 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 137 From January 1,1907, to August 31,1908, the Tacoma office placed 10,355 males and 942 females. Data are available for only the first month of work at the Everett office. During that time it placed 137 males and 19 females. WEST VIRGINIA. The following table shows the amount of business done by the West Virginia Free Employment Bureau, located at Wheeling, each fiscal year since its establishment May 15, 1901: APPLICATIONS FOR EMPLOYMENT AND FOR HELP AND POSITIONS SECURED, FREE PUBLIC EMPLOYMENT BUREAU OF WEST VIRGINIA, FROM DATE OF ORGANIZA TION, MAY 15, 1901, TO MAY 15, 1912. Applications for em ployment. Applications for help. Positions secured. Male. Female. Total. Male. Female. Total. Male. Female. Total. Years. 1902........................................ 1903......................................... 1904........................................ 1905........................................ 1906........................................ 1907......................................... 1908........................................ 1909........................................ 1910........................................ 1911........................................ 1912........................................ 896 1,952 2,009 1,960 2,015 1,450 4,852 4,111 3,800 2,341 1,546 312 188 230 380 520 540 1,005 955 870 840 659 1,208 2,140 2,239 2,340 2,535 1,990 5,857 5,066 4,670 3,181 2,205 836 3,468 1,560 1,275 801 1,025 431 1,471 2,974 2,874 1,801 468 501 448 420 493 785 572 847 997 913 738 1,304 3,969 2,008 1,695 1,294 1,810 1,003 2,318 3,971 3,787 2,539 790 1,875 1,504 1,001 651 885 381 1,315 2,850 2,013 1,443 254 165 207 274 378 478 461 668 696 679 493 1,044 2,040 1,711 1,275 1,029 1,363 842 1,983 3,546 2,692 1,936 Total............................ 26,932 6,499 33,431 18,516 7,182 25,698 14,708 4,753 19,461 W ISC O N SIN . Wisconsin has four State free employment offices, located at La Crosse, Milwaukee, Oshkosh, and Superior. Before presenting statistics relating to them, it must be observed that the tables in the reports do not show all applications for employment. In common with the offices of several other States, the Wisconsin offices have not found it practicable to record all such applications. As in some other States also, the number of positions secured has not been posi tively ascertained. In the tables the columns headed “ Applications for work,” “ Applications for help,” and “ Positions filled ” are prac tically the same, and according to the last published report relating to the free employment offices o f the State the figures given are “ the number of persons who have been referred to possible employers who have asked for help, but it has not been ascertained in how many of these cases positions were actually secured.” 1 The following table shows the number o f positions reported filled by each office and by all offices for each fiscal year from 1905 to 1910. As the reported number o f applications for help and for employment 1 Thirteenth Biennial Report of the Bureau of Labor and Statistics of Wisconsin, 1907-8, p. 663. 138 BULLETIN OF THE BUREAU OF LABOR. are approximately the same as the reported number of positions se cured and do not represent all applicants, only the table showing positions secured is presented. POSITIONS REPO RTED AS FILLED B Y WISCONSIN FREE EMPLOYMENT OFFICES, FOR FISCAL YEARS ENDING JUNE 30, 1905 TO 1910. [From Fourteenth Biennial Report of the Bureau of Labor and Industrial Statistics of Wisconsin, 1909-10.] All offices. Sex and years. Males: 1905.......................................................................... 1906.......................................................................... 1907.......................................................................... 1908.......................................................................... 1909.......................................................................... I 1910.......................................................................... Females: I 1905.......................................................................... j 1906.......................................................................... i 1907.......................................................................... I 1908.......................................................................... 1909........................................................................ • 1910.......................................................................... Milwau Superior. kee. La Crosse. Oshkosh. 8,453 13,865 14,538 13,133 12,091 20,592 3,594 0,898 5,545 4,194 3,772 0,136 3,293 4,371 5,970 6,201 6,096 11,267 1,125 1,471 1,718 1,593 1,234 1,777 441 1,125 1,305 1,145 989 1,412 2,037 3,407 2,884 3,022 3,374 3,200 1,115 1,267 992 1,077 1,106 1,112 713 992 618 672 930 914 516 544 635 631 612 606 293 664 639 642 606 028 The following table shows the business of each Wisconsin office for the fiscal year 1910: APPLICATIONS FOR W ORK AND FOR IIELP AND POSITIONS FILLED, WISCONSIN FREE PUBLIC EMPLOYMENT OFFICES, Y EA R ENDING JUNE 25, 1910. Applications for work. Applications for help. Positions filled. Male. Female. Total. Male. Female. Total. I Male. Female. Total. 6,209 11,285 1,944 1,487 1,402 1,208 852 788 7,671 12,553 2,796 2,275 6,136 11,267 1,777 1,412 1,112 914 606 628 7,248 12,181 2,383 2, 04a 3,280 ! 23,921 j 20,925 ! ! 4,370 25,295 20,592 3,260 23,852 Offices. 1 Milwaukee............................. 6,136 Superior................................. 11,207 1,777 La Crosse............................... Oshkosh................................. 1,455 Total............................ ! 20,035 i 1,112 914 606 654 7,248 12,181 2,383 2,109 UNEMPLOYMENT AND WORK OF EMPLOYMENT OFFICES. 139 The character of the positions filled is shown by the following tables for the years 1907 to 1910: POSITIONS REPO RTE D AS FILLED B Y WISCONSIN FREE EMPLOYMENT OFFICES, B Y SEX AND OCCUPATION GROUPS, 1907 TO 1910. 1907 Occupation groups. Mil Osh La wau Supe rior. Crosse. kosh. kee. 3 23 Agents, clerks, salesmen, etc....... Hand trades—carpenters, black 124 smiths, etc................................. Machinists, molders, engineers, 132 boiler makers, e tc.................... . 59 10 Factory operatives...................... 113 135 279 Farm hands................................. Laborers....................................... 3,850 5,293 122 Teamsters, truckmen, etc............ 532 91 Cooks, dishwashers, chore men, etc. 494 Office boys, elevator operators, 74 6 messengers................................ 54 41 All others..................................... Total males......................... 5,545 o, 970 21 21 190 46 1,216 59 57 3 16 All Mil Osh All La wau Supe kee. rior. Crosse. kosh. offices. 18 65 23 2 15 54 43 336 71 536 138 811 51 263 26 32 104 248 561 21 87 547 426 83 723 11,082 3,008 5,310 740 178 27 86 42 684 296 9 97 71 1,102 93 38 24 92 147 654 33 41 91 314 727 10,074 490 461 6 24 72 44 168 1,593 1,146 13,134 3 63 86 174 1,718 1,305 14,5 34 4,194 6,201 FEMALES. Bookkeepers, stenographers, and clerks.......................................... Chambermaids, cooks, waiters, dishwashers, etc......................... Domestics and housekeepers....... Factory girls................................. Nurses and attendants................. Scrub women and washerwomen. All others...................................... 697 171 10 6 106 301 264 122 234 97 5 Total females..................... 992 618 635 Total males and females... ,537 10 18 116 328 71 26 1,236 997 178 44 405 18 734 219 50 7 6 1,077 672 2,353 1,944 17,422 5,271 i, 873 1909 166 245 56 24 139 104 352 49 41 631 642 3,022 2,224 1,788 16,156 1,273 1,124 158 78 371 1910 MALES. Agents, clerks, salesmen, e t c ....... 73 6 Hand trades—Carpenters, black smiths, etc.................................. 113 271 Machinists, molders, engineers, 91 boiler makers, etc...................... 30 Factory operatives........................ 76 ...... 61 Farm hands................................... 500 Laborers........................................ 2,607 5,426 84 Teamsters, truckmen, etc............ 122 54 Cooks, dishwashers, chore men, etc 115 Office boys, elevator operators, 32 messengers................................. 46 90 71 All others...................................... Total males......................... 3,772 6,096 9 14 102 70 7 12 21 110 104 69 557 121 87 122 73 403 1 61 108 813 69 15 7 55 163 547 15 9 22 64 129 192 87 10 454 832 71 9,393 4,869 10,831 290 191 111 75 193 202 3 82 150 1,249 83 16 25 250 109 805 29 14 114 429 784 17,754 414 307 1 53 34 76 3 57 36 50 79 198 1,777 1,412 20,592 1,234 113 290 33 45 7 46 989 12,091 6,136 11,267 FEMALES. Bookkeepers, stenographers, and clerks.......................................... Chambermaids, cooks, waiters, dishwashers, etc......................... Domestics and housekeepers........ Factory girls................................. Nurses and attendants................. Scrub women and washerwomen. All others...................................... 7 1 670 245 80 15 103 46 288 514 Total females....................... 1,166 930 122 5 Total males and females___ 4,938 7,026 g 16 12 2 150 253 54 11 102 42 105 373 36 44 79 21 1,213 1,385 170 70 406 114 727 140 55 18 113 47 315 466 612 666 3,374 1,112 914 3 119 9 1,846 1,655 15,465 7,248 12,181 24 38 139 217 90 8 107 45 82 326 51 37 101 7 1,263 1,149 196 66 440 108 606 628 3,260 2,383 2,040 23,852 140 BULLETIN OF THE BUREAU OF LABOR. The Wisconsin bureau of labor statistics has, during the past few years, assisted in securing laborers for farms in addition to the work done by the free employment offices. This work was begun in the fall of 1907 to relieve the distress resulting from the industrial de pression. Although the work wras undertaken as a temporary ex pedient the farmers continued to apply for help under the impression that the State bureau o f labor was maintaining an employment office. During two and one-half years the bureau placed 2,750 farm laborers. In the spring of 1910 the work had grown too heavy to be carried on by the bureau of labor and the cooperation of county clerks was sought. They were asked to take up the work in the interest of the unemployed and of the farmers of their county. Over a third o f them responded, and all applicants for help and for employment ap plying to the State bureau o f labor are now referred to the county clerks or to the free employment offices. No statistical report has yet been made of the number of workmen placed by the county clerks. INDEX. Page. Age, classified, and sex of applicants for work through Illinois employment offices................................ 49 Agencies for the distribution of labor......................................................................................................34-140 Aliens. (See Immigrants.) Alliance Employment Bureau, New York City................................................................................... 115-117 Applications for employment, forms used by employment bureaus: Employers' Association of Detroit..................................................................................................... 87 Indiana................................................................................................................................................ 40 Massachusetts...................................................................................................................................... 65 Michigan.............................................................................................................................................. 85 Minnesota.................................... t...................................................................................................... 96,97 Applications for employment. (See Positions secured and applications made through employment offices.) Arkansas City, Kans., free public employment office, positions secured, applications, etc., by sex, 1910. 126 Associated charities, employment offices: Boston, Mass........................................................................................................................................ 77 Detroit, Mich......................... ............................................................................................................ 9© Minneapolis, Minn.............................................................................................................................. 100 Associated Charities. (See also United Charities.) Associated Charity Society, Providence, R. I., cooperation of, with free employment bureaus.............. 120 Baltimore, Md., free public employment offices, positions secured, applications, etc., by sex, 1903 to 1911......................................................................................................................................................... 127 Baron de Hirsch Fund employment office, Boston, Mass...................................................................... 78 Benevolent Aid Society for Italian Immigrants, Boston, Mass.............................................................. 78 B’nai B’rith employment office, Chicago, 111........................................................................................... 59 Boston, Mass., employment offices, free public, and other: Associated Charities Society............................................................................................................... 77 Baron de Hirsch Fund........................................................................................................................ 78 Benevolent Aid Society for Italian Immigrants................................................................................ 78 Boston Provident Association............................................................................................................ 77 Employers’ Association...................................................................................................................... 78 Free public employment offices............................................................................................... 62,63,67-74 German Aid Society............................................................................................................................ 78 Industrial Aid Society........................................................................................................................ 77 National Metal Trades Association.................................................................................................... 78 Positions secured, applications, etc............................................................................................... 63,70,71 Private employment offices................................................................................................................74-77 Supply and demand for labor, and positions filled, by sex, 1911..................................................... 73 Women’s Educational and Industrial Union.................................................................................... 75-77 Young Men’s Christian Association................................................................................................... 77 Yoimg Women’s Christian Association............................................................................................. 17 Bridgeport, Conn., free public employment office, positions secured, applications, etc., by sex, 1900. 123-125 Bureau, Federal, of Immigration and Naturalization, New York office.............................................108,109 110 Bureau of Information and Statistics, New York Department of Agriculture..................................... Butte, Mont., free public employment office, positions secured, applications, etc., by sex, 1907 to 1910. 131 California, free public employment offices.......................................................................................35,121,122 Causes of idleness. (See Unemployment, statistics of.) Chanute, Kans., free employment office, positions secured, applications, etc., by sex, 1909,1910........... 126 Charity Organization Society, New York City..................................................................................... 115-117 Chicago, 111., employment offices, free public, and other: B’nai B ’rith......................................................................................................................................... 59 Employers’ Association...................................................................................................................... 61 Free public employment offices.................................................................................................... 46,50-53 German Society................................................................................................................................... 59,60 League for the Protection of Immigrants..................................................................................... 56,57,61 Private employment offices................................................................................................................54-58 Swedish National Association............................................................................................................ 59-61 United Charities............................................................................................................................. 58,59,01 Young Men’s Christian Association................................................................................................... 58 Young Women’s Christian Association............................................................................................. 58,61 Children’s Aid Association, Indianapolis, Ind., employment office....................................................... 45,46 Cincinnati, Ohio, free employment office, positions secured, applications, etc., by sex, 1899 to 1911___ 138 Cleveland, Ohio, free public employment office, positions secured, applications, etc., by sex.............. 133 Coal mines and coal miners. (See Unemployment, statistics of.) Colorado free public employment offices................................................ ........................................ 35,122,128 Colorado Springs, Colo., free public employment office, positions secured, applications, etc., by sex, 1908 to 1910.............................................................................................................................................. 122 Columbus, Ohio, free public employment office, positions secured, applications, etc., by sex........... 134 Connecticut, free public employment office..................................................................................... 35,123-125 Cost, average, per person placed, of maintaining employment bureaus: Chicago, III., Y. M. C. A ..................................................................................................................... 58 Illinois, free public............................................................................................................................... 50 Massachusetts, free public...................................................................................................................62,72 Minnesota, free public......................................................................................................................... 72,98 Ohio, free public.................................................................................................................................. 133 Rhode Island, free public................................................................................................................... I lf Washington, free public...................................................................................................................... 13# 141 142 INDEX. Page. Dayton, Ohio, free public employment office, positions secured, applications, etc., by sex................ 134 Demand and supply, labor, as indicated by reports of Massachusetts employment offices...................72-74 Denver, Colo., free public employment offices, positions secured, applications, etc., by sex, 1908 to 1910.......................................................................................................................................................... 122 Detroit, Mich., employment offices, free public, and other: Associated Charities............................................................................................................................ 90 Free public employment offices......................................................................................................... 79-86 Jewish Charity Society........................................................................................................................ 90 McGregor Mission................................................................................................................................ 90 Private employment offices................................................................................................................ 8&-90 Salvation Army....................................................................*............................................................. 90 Young Men’s Christian Association.................................................................................................. 89-91 Young Women’s Christian Association............................................................................................ 90 Distribution of labor, agencies for...........................................................................................................34-140 Duluth, Minn., free public employment office, positions secured, applications, etc., by sex, 1906 to 1910. 92 Employment offices, free public,’and other: Alliance Employment Bureau, New York City..............................................................................115-117 Associated Charities Society, Boston, Mass....................................................................................... 77 Baron de Hirsch Fund, Boston (Mass.) branch................................................................................ 78 Benevolent Aid Society for Italian Immigrants, Boston, Mass....................................................... 78 B’nai B’rith, Chicago, 111.................................................................................................................... 59 Boston (Mass.) Provident Association............................................................................................... 77 Bureau, Federal, of Immigration and Naturalization, Division of Information, New York office. 108,109 Bureau of Information and Statistics, Department of Agriculture, New York.............................. 110 California, free public.......................................................................................................................... 121 Charity Organization, New York City........................................................................................... 115-117 Children’s Aid Association, Indianapolis, Ind.................................................................................. 45,46 Colorado, free public........................................................................................................................ 122,123 Connecticut, free public................................................................................................................... 123-125 Cost, average, per person placed, of maintaining bureaus, different States.. 50,58,62,72,93,119,133,136 Employers’ Association, Boston, Mass.............................................................................................. 78 Employers’ Association, Chicago, 111................................................................................................. 61 Employers’ Association, Detroit, Mich............................................................................................. 86,87 Employers’ Association, Indianapolis, Ind.......................................................................................44,45 Fraudulent methods and evil practices of private agencies.............................................................. 36 German Aid Society, Boston, Mass.................................................................................................... 78 German Society, Chicago, 111..............................................................................................................59,60 Illinois, free public.............................................................................................................................. 45-53 Illinois, other than private and free public....................................................................................... 53-61 Illinois, private....................................................................................................................................53^58 Industrial Aid Society, Boston, Mass................................................................................................ 77 Industrial Removal Office, New York City...................................................................................... 117 Indiana, free public.............................................................................................................................39-42 Indiana, other than private and free public......................................................................................45,46 Indiana, private.................................................................................................................................. 42-45 Inspection of private agencies, Illinois............................................................................................... 55 Inspection of private agencies, Maryland....................................................................................... 127-129 Inspection of private agencies, New York City, 1910 to 1912......................................................... 103,104 Kansas, free public...........................................................................................................................125,126 Laborers sent out by, New York City, 1909,1910............................................................................. 104 Labor Information Bureau for Italians, New York City................................................................. 117 League for the Protection of Immigrants, Chicago. Ill................................................................ 56,57,61 Maryland, free public.......................................................................................................................... 127 Maryland, private, character of...................................................................................................... 128,129 Massachusetts, free public...................................................................................................................62-74 Massachusetts, other than private and free public........................................................................... 77,78 Massachusetts, private........................................................................................................................ 74-77 Metal Trade Association, Providence, R. 1....................................................................................... 120 Michigan, free public...........................................................................................................................78-86 Michigan, other than private and free public......................................................................... 86,87,90,91 Michigan, private, in Detroit...........................: .................................................................................88-90 Minnesota, free public........................................................................................................................ 91-98 Minnesota, other than private and free public......................................................................... 98,100,101 Minnesota, private, in Minneapolis.................................................................................................. 98-100 Missouri, free public............................................................................................................................ 130 Montana, free public........................................................................................................................... 131 National Employment Exchange, New York City....................................................................... 110-113 National Metal Trades Association, Boston, Mass"........................................................................... 78 Nebraska, free public.......................................................................................................................... 131 New Jersey, free public................................................................................................................... 131,132 New York, free pu blic........................................................................................................................ 101 New York, other than private and free public................................................................................. 117 New York, private........................................................................................................................... 101-107 Ohio, free public.............................................................................................................................. 132-134 Oklahoma, free public..................................................................................................................... 135,136 Rhode Island, free public................................................................................................................ 118-120 Rhode Island, other than private and free public............................................................................ 120 Rhode Island, private......................................................................................................................... 120 States having free public, list of, and year of establishment of........................................................ 35,36 Swedish National Association, Chicago, 111.......................................................................................59-60 United Charities, Chicago, 111........................................................................................................ 58,59,61 Washington, free public................................................................................................................... 136,137 Wisconsin, free public...................................................................................................................... 137-140 Wromen’s Educational and Industrial Union, Boston, Mass............................................................75-77 Young Men’s Christian Association— Boston, Mass................................................................................................................................. 77 Chicago, 111.................................................................................................................................... 58 Indianapolis, Ind.......................................................................................................................... 45 New York City.......................................................................................................................... 113-115 Providence, R. 1........................................................................................................................... 120 INDEX. 143 Employment offices, free public, and other—Concluded. Young Women’s Christian Association— Page. Boston, Mass................................................................................................................................. 77 Chicago, 111....................................................................................................................................48,61 New York City............................................................................................................................ 115 Providence, R. I ........................................................................................................................... 120 Enid, Okla., free public employment office, positions secured, applications, etc., 1911........................ 135 Fall River, Mass., free public employment office, positions secured, applications, etc........................ 63,73 Farm help, agencies for placing: 110 Bureau of Information and Statistics, New York Department of Agriculture............................... Industrial Aid Society, Boston, Mass................................................................................................ 77 Kansas.................................................................................................................................................. 126 Maryland............................................................................................................................................. 127 Minneapolis..........................................................................................................................................95,96 Missouri............................................................................................................................................. 130 New York City, lower west side..................................................................................................... 106,107 Private agencies, Boston, Mass.......................................................................................................... 74,75 West Virginia...................................................................................................................................... 137 Wisconsin............................................................................................................................................. 140 Fees charged of applicants by employment bureaus...............................................................................36,37 Boston, Mass., Y . M. C. A .................................................................................................................. 77 Chicago, 111., Swedish National Association...................................................................................... 60,61 Chicago, 111., Y . M. C. A .................................................................................................................... 56 Chicago, 111.. Y . W. C. A .................................................................................................................... 56 Detroit, Mich., private agencies......................................................................................................... 88 Detroit, Mich., Y. M. C. A ................................................................................................................. 90 Illinois private agendas....................................................................................................................... 54 Indiana private agencies..................................................................................................................... 43 Maryland private agencies.............................................................................................................. 128,129 Massachusetts free employment bureaus........................................................................................... 65,66 Massachusetts private agencies.......................................................................................................... 74,77 Minneapolis, Minn., private agencies. Minneapolis, Minn., Y . W. C. A ........................................................................................................ 100 New York private agencies................................................................................................................ 102 New York City National Employment Exchange........................................................................... 113 Providence, R. I., Y . M. C. A ............................................................................................................ 120 Providence, R . I., Y . W . C. A ........................................................................................................... 120 San Francisco, Cal., private agencies................................................................................................. 121 ^orms, application, used by employment offices, free public and private; Employers’ Association of Detroit.................................................................................................. 87 Indiana................................................................................................................................................ 40 Massachusetts...................................................................................................................................... 65 Michigan.............................................................................................................................................. 85 Minnesota.............................................................................................................................................96,97 Fraudulent methods and evil practices of private employment offices................................................. 36 Free public employment offices............................................................................................................... 35,36 German Aid Society employment office, Boston, Mass.......................................................................... 78 German Immigrant Society, New York City.......................................................................................... 117 German Society, Chicago, III., positions secured through, 1907 to 1911................................................ 59,60 Gifts, and illegal fees received by private agencies, Boston, Mass.......................................................... 77 Grand Rapids, Mich., free public employment office, positions secured, applications, etc., by sex, 1908 to 1911............................................................................................................................................ . 80 Great Falls, Mont., free public employment office, positions secured, applications, etc., by sex, 1907 to 1910.............................................................................................................................................. 131 Hartford, Conn., free public employment office, positions secured, applications, etc., by sex, 1910.. 123-125 Harvest hands. (See Farm help, agencies for placing.) Humane Society, cooperation of, with Free Employment Bureau, Minneapolis, Minn...................... 98 Idle, and not idle. (See Unemployment, statistics of, and sources.) Illinois free employment offices, location, positions filled, cost of maintenance, etc...................... 35,46-53 Illinois private employment agencies, inspection of................................................................................ 54,55 Immigrants, agencies for distributing and finding employment for: Baron de Hirsch Fund, Boston, Mass............................................................................................... 78 Benevolent Aid Society for Italian Immigrants, Boston, Mass....................................................... 78 Federal Bureau of Immigration and Naturalization, Division of Information, New York....... 108,109 German Aid Society, Boston, Mass................................................................................................... 78 German Immigrant Society, New York City.................................................................................... 117 Industrial Removal Office of New York City (Jewish).................................................................... 117 Irish Immigrant Society, New York City......................................................................................... 117 Labor Information Bureau for Italians, New York City.................................................................. 117 League for the Protection of Immigrants, Chicago, 111..................................................................... 56 National Employment Exchange of New York City.................................................................... 110-113 Swedish National Association, Chicago, HI....................................................................................... 61 Immigrants, kind of work supplied to, fees charged, etc., by Chicago employment agencies..............56,57 Indiana free employment office, location, positions secured, etc....................................................... 35,39-42 Indianapolis, Ind., Children’s Aid Association employment bureau, positions secured, registration, etc., 1909 to 1911...................................................................................................................................... 45 Industrial Aid Society employment office, Boston, Mass....................................................................... 77 Industrial Removal Office of New York City (Jewish)........................................................................... 117 Inspection of private employment agencies: Illinois, summary................................................................................................................................ 55 Maryland.......................................................................................................................................... 127-129 New York City................................................................................................................................ 103,104 Irish Immigrant Society, New York City................................................................................................ 117 Jackson, Mich., free public employment office, positions secured, applications, etc., by sex, 1908 to 1911 80 Jewish societies, free employment bureau maintained by: Boston, Mass........................................................................................................................................ 78 Chicago, HI........................................................................................................................................... 59 Detroit, Mich....................................................................................................................................... 90 Minneapolis, Minn.............................................................................................................................. 100 New York City.................................................................................................................................... 117 144 INDEX. Page. Kalamazoo, Mich., free public employment office, positions secured, applications, etc., by sex, 1908 to 1911..................................................................................................................................................... 80 Kansas City, Kans., free public employment office, positions secured, applications, etc., by sex, 1909, 1910................................................................................................................................................. 126 Kansas City, Mo., free public employment office, positions secured, applications, etc., by sex, 1908 to 1911..................................................................................................................................................... 130 Kansas, free public employment offices........................................................................................... 35,125,126 Kingman, Kans., free public employment office, positions secured, applications, etc., by sex, 1909, 1910.......................................................................................................................................................... 126 Labor, agencies for the distribution of....................................................................................................34-140 Labor Information Bureau for Italians, New York City........................................................................ 117 Labor, organized. {See Trade-union, etc.) Labor supply and demand as indicated by reports of Massachusetts employment offices................... 72-74 112 Laborers distributed through National Employment Exchange of New York City, 1911................... Laborers sent out by New York City employment agencies, 1909, 1910................................................ 104 La Crosse, Wis., free public employment office, positions secured, applications, etc., b y sex.......... 138,139 League for the Protection of Immigrants, Chicago, 111., employment office..................................... 56,57,61 Licensing of private agencies, fees, registration, and other regulations: 88 Detroit, Mich......................... ............................................................................................................. Illinois..................................................................................................................................................53,54 Indiana................................................................................................................................................ 43 Maryland............................................................................................................................................. 129 Massachusetts...................................................................................................................................... 74-76 Minnesota............................................................................................................................................ 98,99 New York................................................................................................................. ...................... 101-107 Location of Chicago agencies placing immigrants................................................................................... 57 McGregor Mission employment office, Detroit, Mich.............................................................................. 90 Maryland free employment offices, location, positions seemed, etc............................................... 35,127-129 Maryland private employment agencies, character of............................................................................. 128 Massachusetts free public employment offices, location, positions secured, cost of maintenance, etc............................................................................................................................................. 35,62-64,69-74 Massachusetts trade-union members unemployed, statistics of..............................................................23-25 Metal Trades Association, Providence, R. I., employment bureau....................................................... 120 Michigan, free public employment offices, location, positions secured, etc....................................... 35,78-86 Michigan private employment offices....................................................................................................... 88 Milwaukee, Wis., free public employment office, positions secured, applications, etc., by sex........138,139 Minneapolis, Minn., employment offices, free public, and other: Associated Charities............................................................................................................................ 100 Free public employment office...........................................................................................................91-98 Private employment offices..............................................................................................................98-100 Young Men’s Christian Association................................................................................................... 100 Young Women’s Christian Association............................................................................................. 100 Minnesota free public employment offices, location, positions secured, cost of maintenance, eto... 35,91-98 Minnesota private employment offices................................................................................................... 98-100 Missouri, free public employment offices, location, positions secured, etc..................................... 35,130,131 Montana, free public employment offices, location, positions secured, etc.......................................... 35,131 Municipal employment bureaus............................................................................................................... 35,36 Municipal lodging houses.......................................................................................................................... 37 Muskogee, Okla., free public employment office, positions secured, applications, etc., 1910 and 1911. 135 National Employment Exchange of New York City........................................................................... 110-113 National Metal Trades Association employment office, Boston, Mass................................................... 78 Nationality of immigrants distributed by Division of Information, Federal Bureau of Immigration and Naturalization, New York, 1909 to 1911......................................................................................... 108 Nebraska, free public employment office, inoperative............................................................................ 131 Newark, N. J., free public employment office, positions secured in special occupations, by sex, 1911. 132 New Haven, Conn., free public employment offices, positions secured, applications, eto., by sex, 1910....................................................................................................................................................... 123-125 New Jersey free public employment office, positions filled, etc..................................................... 35,131,132 New York City employment offices, private and other: Alliance Employment Bureau........................................................................................................ 115-117 Bureau, Federal, of Immigration and Naturalization................................................................... 108,109 Charity Organization Society.......................................................................................................... 115-117 Free public office, law authorizing, repealed................................................................................... 35,101 German Immigrant Society................................................................................................................ 117 Industrial Removal Office.................................................................................................................. 117 Inspection of private agencies, 1910 to 1912, summary of............................................................... 103,104 Irish Immigrant Society..................................................................................................................... 117 Labor Information Bureau for Italians.............................................................................................. 117 National Employment Exchange................................................................................................... 110-113 Private employment offices............................................................................................................. 101-108 Young Men’s Christian Association................................................................................................ 113-115 Young Women’s Christian Association.............................................................................................. 115 New York trade-union members employed and unemployed, statistics o f ........................................... 13-23 Norwich, Conn., free public employment office, positions secured, applications, etc., by sex, 1910... 123-125 Occupations, specified, and number of positions secured by employment bureaus in each of: Connecticut.......................................................................................................................................... 124 Illinois........................................ : .............................................................................................. 48,49,59,60 Massachusetts...................................................................................................................................... 70,71 Michigan.............................................................................................................................................. 82,83 Minnesota.............................................................................................................................................94,95 New Jersey........................................................................................................................................... 132 New York City National Employment Exchange........................................................................ Ill, 112 Wisconsin............................................................................................................................................. 139 Ohio free public employment offices, location, positions secured, cost of maintenance, etc......... 35,132-134 Oklahoma free public employment offices, location, positions secured, etc.................................. 35,135,136 Organized labor. (See Trade union.) Oshkosh, Wis., free public employment office, positions secured, applications, etc., by sex, 1906 to . 1910........................................................................................................................................................ 138,139 INDEX. 145 Page. Positions secured and applications made through employment offices, number of, by sex, etc., in specified years: Arkansas City, Kans........................................................................................................................... 126 Baltimore, Md..................................................................................................................................... 127 Boston, Mass........................................................................................................................................70-73 Bridgeport, Conn.............................................................................................................. ..............123-125 Butte, Mont...................................................... ................................................................................. 131 Chanute, Kans..................................................................................................................................... 126 Children’s Aid Association, Indianapolis, Ind.................................................................................. 45 Cincinnati, Ohio.................................................................................................................................. 133 Cleveland, Ohio................................................................................................................................... 133 Colorado............................................................................................................................................... 122 Colorado Springs, Colo........................................................................................................................ 122 Columbus, Ohio.................................................................................................................................. 134 Connecticut...................................................................................................................................... 123-125 Dayton, Ohio...................................................................................................................................... 134 Denver, Colo........................................................................................................................................ 122 Detroit, Mich.......................................................................................................................................80-84 Duluth, Minn...................................................................................................................................... 92 Employers’ Association, Boston, Mass.............................................................................................. 78 Enid.Okla........................................................................................................................................... 135 Fall River, Mass.............................................................................................................................C3,70-73 Grand Rapids, Mich........................................................................................................................... 80 Great Falls, Mont................................................................................................................................ 131 Hartford, Conn................................................................................................................................ 123-125 Illinois.................................................................................................................................................. 46-48 Indiana................................................................. .............................................................................. 41,42 Jackson, Mich...................................................................................................................................... 80 Kalamazoo, Mich................................................................................................................................ 80 Kansas................................................................................................................................................. 125 Kansas City, Kans.............................................................................................................................. 126 Kansas City, Mo................................................................................................................................. 130 Kingman. Kans................................................................................................................................... 126 Labor Information Bureau for Italians, New York City................................................................. 117 La Crosse, Wis..................................................................................................................................138,139 Maryland............................................................................................................................................. 127 Massachusetts............................................................................................................................ 03,64,69-74 Michigan................................................................................................. ............................................80-84 Milwaukee, W is................................................................................................................................138,139 Minneapolis, Minn......................................................................................................................... 92,94,95 Minnesota............................................................................................................................................ 92 Missouri............................................................................................................................................... 130 Montana............................................................................................................................................... 131 Muskogee, Okla................................................................................................................................... 135 Newark, N. J ....................................................................................................................................... 132 New Haven, Conn........................................................................................................................... 123-125 Now Jersey.......................................................................................................................................... 132 Norwich, Conn................................................................................................................................. 123-125 Ohio..................................................................................................................................................133,134 Oklahoma............................................................................................................................................ 135 Oshkosh, W is................................................................................................................................... 138,139 Pueblo, Colo........................................................................................................................................ 122 Railroads, specified, in Kansas.......................................................................................................... 126 Rhode Island...................................................................................................................................... 118 Saginaw, Mich..................................................................................................................................... 80 St. Joseph, Kans................................................................................................................................. 126 St. Joseph, Mo..................................................................................................................................... 130 St. Louis, Mo....................................................................................................................................... 130 St. Paul, Minn..................................................................................................................................... 92 Silver Lake, Kans.............................................................................................................................. 126 Spokane, Wash................................................................................................................................... 136 Springfield, Mass........................................................................................................................... 63,70-73 Superior, Wis................................................................................................................................... 138,139 Toledo, Ohio........................................................................................................................................ 134 126 Topeka, Kans....................................................................................................... ............................. Washington......................................................................................................................................... 136 Waterbury, Conn....... *.................................................................................................................... 123-125 West Virginia...................................................................................................................................... 137 Wisconsin............................. .......................................................................................................... 138,139 Y . M. C. A., Detroit, Mich................................................................................................................. 89 Y . M. C. A., New York City.............................................................................................................. 113 Y . W . C. A., Minneapolis, Minn........................................................................................................ 101 Philanthropic bodies. (See Employment offices, free public, and other.) Practices, iniquitous, of private employment offices.............................................................................. 36 Private employment offices...................................................................................................................... 36,37 Private employment offices. (See also Employment offices, free public, and other.) Providence, R. I., employment offices, free public, and other: Associated Charity Society, cooperation of, with free employment offices..................................... 120 Free public offices............................................................................................................................118-120 Metal Trades Association................................................................................................................... 120 Young Men’s Christian Association................................................................................................... 120 Young Women’s Christian Association............................................................................................. 120 Public employment offices, free. (See Employment offices, free public, and other.) Pueblo, Colo., free public employment office, positions secured, applications, etc., by sex, 1908 to 1910.......................................................................................................................................................... 122 Race. {See Nationality.) Railroads, specified, in Kansas, positions secured with, through free employment bureaus, and applications for work, 1911..................................................................................................................... 126 66269°—Bull. 109—13----- 10 146 INDEX. j Reference or recommendation requirements of employment bureaus: Page. Chicago, IU., Y . M. C. A .................................................................................................................... 58 Detroit, Mich., Y . M. C. A ................................................................................................................ 89 Illinois, free public............................................................................................................................. 51 Indiana, free public............................................................................................................................ 40 Massachusetts, free public................................................................................................................. 66,67 Michigan, free public.......................................................................................................................... 86 Minnesota, free public....................................................................................................................... 96 New York City, Y . M. C. A. (Bowery branch)............................................................................... 114 Rhode Island, free public.................................................................................................................. 119 |Registration, licensing, fees, and other regulations of private agencies Detroit, Mich...................................................................................................................................... 88 Illinois.................................................................................................................................................53,5* Indiana............................................................................................................................................... 43 Maryland............................................................................................................................................ 129 Massachusetts.....................................................................................................................................74-76 Minnesota...........................................................................................................................................98.99 New York....................................................................................................................................... 101-107 Registration. (See also Forms, application, used by employment offices, public and private.) Rhode Island, free public employment offices, location, positions secured, etc........................... 35,118-120 Rhode Island police census of wage earners, employed and unemployed, March, 1908........................ 26 Saginaw, Mich., free employment office, positions secured, applications, etc., by sex, 1908 to 1911.... 80 126 St. Joseph, Kans., free employment office, positions secured, applications, etc., by sex, 1911............ St. Joseph, Mo., free employment office, positions secured, applications, etc., by sex, 1908 to 1911... 130 St. Louis, Mo., free employment office, positions secured, applications, etc., by sex, 1908 to 1911— 130 St. Paul., Minn., free employment office, positions secured, applications, etc., by sex, 1906 to 1910.. 92 Salvation Army, employment offices maintained b y ............................................................................. 37,90 Silver Lake, Kans., free employment office, positions secured, applications, etc., by sex, 1909.......... 126 Skilled and unskilled workers placed by employment bureaus: Detroit, Mich., free public.................................................................................................................. 84 German Society, Chicago, 111............................................................................................................. CO Illinois free public, durmg 12 years, by sex....................................................................................... 47,48 Minneapolis, Minn., free public........................................................................................................ 95 New York City, Y . M. C. A. (Bowery branch)................................................................................ 114 Spokane, Wash., free employment office, positions filled, 1907 to 1909.................................................. 136 Springfield, Mass., free employment office: Positions secured, applications for work, etc., 1907 to 1911.............................................................. 63 Supply and demand lor labor and positions filled, by sex, 1911...................................................... 73 State free employment offices. (See Employment omces, free, public and other.) States having free public employment offices, list of.............................................................................. 35.36 Strikes, information of, to applicants for work through free public bureaus: Illinois................................................................................................................................................. 51 Massachusetts..................................................................................................................................... 67 Michigan.............................................................................................................................................. 86 Sunshine Society, cooperation of, with free employment bureau, Minneapolis, Minn......................... 98 Superior, Wis., free employment office, positions secured, applications, etc., by sex........................138,139 Supply and demand, labor; as indicated by reports of Massachusetts employment offices................. 72-74 Swedish National Association, Chicago, 111., employment office, positions secured, etc...................... 59-61 Toledo, Ohio, free employment office, positions secured, applications, etc., by sex, 1899 to 1911......... 134 Topeka, Kans., free employment office, positions secured, applications, etc., by sex, 1909,1910....... 126 Trade-union members idle and not idle, statistics of: Massachusetts......................................................................................................................................23-25 New Y ork........................................................................................................................................... 13-22 United States...................................................................................................................................... 25,26 Unemployment, statistics of, and sources............................................................................................... 6-34 American Federationist......................................................................................................................25,26 Causes of idleness, specified, union members reporting, Massachusetts, 1909 to 1011..................... 33 Causes of idleness, specified, union members reporting, New York, 1907 to 1911........................... 32 28 Coal mines, days active and days idle, United States, each year, 1890 to 1910............................... Coal mines, days of operation of, by States, specified years, 1904 to 1910........................................ 29 Data, comparison of, from the several sources..................................................................................29-34 Heads of families idle and not idle, number of, and average weeks idle, by States, 1901............... 12 Massachusetts Bureau of Statistics................................................................................................... 23-25 New York Department of Labor....................................................................................................... 13-23 Persons engaged in manufactures who were unemployed, number of, and per cent of total env ployed, each month, 1904................................................................................................................ 10 Persons 10 years of age and over unemployed, number of, and per cent of total in gainful occupa tions in the United States, by sex and occupation groups, 1890 and 1900................................... 8 Persons unemployed each classified number of months, number and per cent of, by sex and occupation groups, United States, 1900.......................................................................................... 9 Rhode Island police census, 1908....................................................................................................... 26,27 Union members employed each classified number of days, per cent of, New York, 1904 to 1911.. 22 Union members idle at end of each month, number and per cent of, selected unions in New York, 1901 to 1911................................................................................................................................ . 15,16 Union members idle at end of each quarter, number and per cent of, and unions in New York, 1897 to 1911....................................................................................................................................... 18 Union members idle at end of each quarter, number and per cent of, Massachusetts, 1908 to 1911 24 Union members idle at end of March and September, per cent of, in all unions and in selected unions, New York, 1897 to 1911...................................................................................................... 19 Union members idle throughout each specified quarter, number and per cent of, all unions in New York, 1897 to 1911.................................................................................................................... 21 Union members unemployed in the United States, per cent of, by months, 1902 to 1909............. 25 United States Bureau of Labor, 18th Annual Report......................................................................11-13 United States Census reports............................................................................................................. 6-11 United States Geological Survey coal mine reports..........................................................................27-29 Wage earners unemployed, police census of, Rhode Island, March, 1908........................................ 26 United Charities of Chicago (111.), employment office........................................................................ 58,59,61 Wage earners employed and unemployed. (See Unemployment, statistics of, and sources.' INDEX. 147 Wages, range of, in positions filled by employment bureaus: Page. Bureau of Information and Statistics, New York............................................................................. 11® Charity Organization Society, New York City................................................................................. 116 Detroit, Mich., Y . M. C. A ................................................................................................................. 89,90 Washington, free public employment offices, location, positions secured, cost per person placed, etc.................................................................................................................................................... 36,136,137 Waterbury, Conn., free public employment office, positions secured, etc., by sex and occupation, 1910....................................................................................................................................................... 123-125 West Virginia, free public employment offices, location, positions secured, applications, etc............35,137 Wisconsin free public employment offices, location, positions secured, applications, etc............ 35,137-14© Women's Educational and Industrial Union of Boston (Mass.)............................................................ 75-77 Young Men's Christian Association employment bureaus......................................................................37,38 Boston, Mass........................................................................................................................................ 77 58 Chicago, 111........................................................................................................................................... Detroit, Mich....................................................................................................................................... 89-91 Indianapolis, Ind................................................................................................................................ 45 Minneapolis, Minn.............................................................................................................................. 100 New York City................................................................................................................................ 113-115 Providence, It. 1.................................................................................................................................. 120 Young Women's Christian Association employment bureaus................................................................ 37 Boston, Mass........................................................................................................................................ 77 Chicago, 111...........................................................................................................................................58,61 Detroit, Mich....................................................................................................................................... 90 Minneapolis, Minn........................................................................................................................... 100,101 New York City.................................................................................................................................... 115 Providence, R. 1.................................................................................................................................. 120