[Annual Report of the Department of the Interior 1944]
[From the U.S. Government Publishing Office, www.gpo.gov]

LIBRARY OF
WELLESLEY COLLEGE
PRESENTED BY
United. States Government
(Depository)
231896

I
Annual
REPORT
of the Department of Interior by the Sectetary of the Interior and the Governors of Alaska, Hawaii, the Virgin Islands, and Puerto Rico
1944
231896
DOCS.
J
84
85
1944

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Annual
REPORT
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of the Secretary of the Interior
for the Fiscal Year=Ended June 20
1944
Post-War Frontiers Edition
UNITED STATES DEPARTMENT OF THE INTERIOR
HAROLD L. ICKES
Secretary
UNITED STATES GOVERNMENT PRINTING OFFICE, WASHINGTON, D. C. For sale by the Superintendent of Documents, Washington 25, D. C. Price 45 cents
ii



CONTENTS
REPORTS BY BUREAUS AND DIVISIONS
Letter of Transmittal------------------------------------------ v
Bureau of Reclamation------------------------------------------ 1
Division of Power--------------------------------------------- 35
Bonneville Power Administration------------------------------- 41
Southwestern Power Administration----------------------------- 63
Bureau of Mines----------------------------------------------- 67
Geological Survey-------------------------------------------  101
Solid Fuels Administration for War--------------------------- 127
Coal Mines Administration------------------------------------ 137
Petroleum Conservation Division------------------------------ 143
General Land Office------------------------------------------ 147
Office of Land Utilization----------------------------------- 165
Grazing Service---------------------------------------------- 113
Fish and Wildlife Service--------------------•-------------- 183
Office of the Coordinator of Fisheries----------------------- 199
National Park Service---------------------------------------- 207
Office of Indian Affairs------------------------------------- 235
Division of Territories and Island	Possessions--------------- 255
Puerto Rico Reconstruction Administration-------------------- 273
War Relocation Authority_____________________________________ 279
Board on Geographical Names---------------------------------- 295
Office of the Solicitor-------------------------------------- 299
Division of Personal Supervision and Management-------------- 307
Interior Department Museum___________________________________ 311
Division of Information______________________________________ 315
in
Secretaries of the Interior
from March 8, 1849 to June 30, 1944
Harold L. Ickes
Mar. 4, 1933, continuing in office
June 30, 1944
Ray Lyman Wilbur
Mar. 5, 1929 to Mar. 4, 1933
Roy 0. West
July 25, 1928 to Mar. 4, 1929
Hubert Work
Mar. 5, 1923 to July 24, 1928
Albert B. Fall
Mar. 5, 1921 to Mar. 4, 1923
John Barton Payne
Mar. 15, 1920 to Mar. 4, 1921
Franklin K. Lane
Mar. 6, 1913 to Feb. 29, 1920
Walter L. Fisher
Mar. 13, 1911 to Mar. 5, 1913
Richard A. Ballinger
Mar. 6, 1909 to Mar. 12, 1911
James Rudolph Garfield
Mar. 5, 1907 to Mar. 5, 1909
Ethan A. Hitchcock
Feb., 20, 1899 to Mar. 4, 1907
Cornelius N. Bliss
Mar. 6, 1897 to Feb. 20, 1899
David R. Francis
Sept. 3, 1896 to Mar. 5, 1897
Hoke Smith
Mar. 6, 1893 to Sept. 2, 1896
John W. Noble
Mar. 4, 1889 to Mar. 6, 1893
William F. Vilas
Jan. 16, 1888 to Mar. 3, 1889
Lucius Q. C. Lamar
Mar. 5, 1885 to Jan. 15, 1888
Henry M. Teller
Apr. 7, 1882 to Mar. 4, 1885
Samuel J. Kirkwood
Mar. 5, 1881 to Apr. 6, 1882
Carl Schurz
Mar. 4, 1877 to Mar. 4, 1881
Zachariah Chandler
Oct. 19, 1875 to Mar. 3, 1877
Columbus Delano
Nov. 1, 1870 to Oct. 18, 1875
Jacob D. Cox
Mar. 5, 1869 to Oct. 31, 1870
Orville H. Browning
July 27, 1866 to Mar. 4, 1869
James Harlan
May 15, 1865 to July 26, 1866
John P. Usher
Jan. 8, 1863 to May 14, 1865
Caleb B. Smith
Mar. 5, 1861 to Jan. 7, 1863
Jacob Thompson
Mar. 5, 1857 to Mar. 4, 1861
Robert McClelland
Mar. 8, 1853 to Mar. 4, 1857
Alexander H. H. Stuart
Sept. 12, 1850 to Mar. 7, 1853
Thomas M. T. McKennan
July 10, 1850 to Sept. 11, 1850
Thomas Ewing
Mar. 8, 1849 to July 9. 1850
■■■■
Letter of Transmittal
The Secretary of the Interior
Harold L. Ickes, Secretary
MY DEAR MR. PRESIDENT: The time approaches when the Nation will cease to produce for war, obliging us to find new and stable uses for the facilities which we have developed in the greatest proportions in order to hasten victory.
During the past fiscal year, we have concentrated upon those facilities that provide the necessities of war from the natural resources. We have hastened the construction of huge dams and the installation of generators to furnish power for war production plants. We have extended our irrigation facilities to increase the production of food for war. We have developed and improved technological processes to account for more fuels and minerals for war and to produce them faster.
If we could lump together as “power” the final results of such developments, then the Department of the Interior would be the steward of an accumulation of power which is probably the greatest that was ever administered under one jurisdiction.
A glance at a few of this Department’s developments indicates how enormous they are in the aggregate. The Department’s installed capacity for the generation of hydroelectricity at the end of the fiscal year was nearly 2,500,000 kilowatts, roughly three times the entire developed capacity in South America in 1935, or one-half of that in Asia (including Soviet Asia), at the same time. We generated 13,-747,000,000 kilowatt-hours of electricity during the past fiscal year, about four times the amount that was used in Michigan in the manufacture of automobiles and automobile parts in 1939. We irrigated more than 4,000,000 acres of land, equivalent to the acreage that is planted to crops in Louisiana in a normal year. We have affirmed the presence of so many large deposits of essential ores that the effect would not be different if we had annexed a couple of mineral-rich States.
v
vi • Report of the Secretary of the Interior
Our job soon will be to turn this vast block of power from war to peace. It is a Herculean job but I think that we can master it by shifting, gradually if possible, from war to its nearest economic equivalent in the field of conservation; namely, regional development. But it must be regional development at its boldest. The program must embrace entire areas, usually the basins of great rivers and their tributaries; it must provide for full and unified development of all of the resources within the region, and an ideal program would call for simultaneous attack upon all phases of the job.
There is scarcely a facility of ours that is now producing for war that could not be put to use in such an undertaking. It would absorb such material developments as dams and such tributary activities as surveys and metallurgical processes. The benefits of such a project would be so widespread that, in my estimation, they could easily hold community interest and effort together in the post-war years.
Working in a typical region under a program for unified and simultaneous development, we would provide for irrigation at the upper reaches of a river, for deep-water navigation as far upstream as would be practicable, for barge transportation above that point, and for flood control wherever floods occur. We would impound water for municipal supply, generate hydroelectric power and transmit it for use in factories and homes and on farms. We would determine the location and volume of the ores and the bases of plastics that are amenable to processing or manufacture by means of electricity, and improve the means of processing them. We would forestall or ameliorate the pollution of streams, safeguard the soil against erosion, protect wildlife, and develop recreational areas.
Considered as a means of transition from war to peace, conservation unitized on a great scale, is especially timely, but I think that it is to be commended as well for other reasons. In the long view it is the most economic procedure. When we plan all phases of the job as one we foresee some of the frictions that might develop between one facility and another, and dispose of them in the planning stage. That is where alterations are cheapest. We discover others and correct them at the next cheapest point—early in our operations. By committing ourselves to the development of all of the resources of a region we preclude those conflicts that result from a commitment to half measures; conflicts, for example, between those who would profit and those who would suffer if we generated power for industry without providing against the pollution of the rivers. We reap another advantage in the tendency of each phase in a large-scale development to assist each other phase and to assure its success. A navigable river may join with power in attracting industries that need cheap transportation for raw materials and heavy output.
Letter of Transmittal • vii
The advantage of reciprocal benefits among facilities was demonstrated, as on a prearranged proving ground, in the Pacific Northwest where the demands of war production—not our own independent planning—drew our numerous, large, and dissimilar developments into a close-knit unit. The primary need was for hydroelectric power to energize the region’s war production plants. But plants needed more ores and deposits that were easy of access. They required water for processing and for municipal supply in the new communities that grew up around new industries. They required improved metallurgical processes and pilot plants and laboratories in which these processes might be proved. In response, we affirmed the presence of iron ores that were a thousand miles nearer than the usual supply, and, as nearby as Arkansas, we disclosed huge new additional deposits of bauxite for urgently needed aluminum which, otherwise, would have had to be shipped from Dutch New Guinea. In many other ways we responded to the region’s needs by unitizing our facilities. We have been justified already by a magnificent record in war production in the Pacific Northwest, and we may be justified again by that region’s readiness to seize any opportunity that peace may offer for continued functioning. It is ready precisely because its developments are a unit. The functioning of no facility would be delayed for lack of supporting facilities.
Other regions are equally in need of coordinated development of their natural resources. The hurried demands of war production merely dramatized the need in the Pacific Northwest. There are vast areas throughout all of the West in which great potentials would be realized by similar coordination. If we launched a program of full measure to make actualities of these potentials, we might require stronger implementation, but we would not have to strike out on new lines in the field of conservation. From its beginnings this Administration has proceeded in that direction. We have sought better coordination in the development of our resources, and we have assumed increasingly greater responsibility for the equitable distribution of the resulting benefits among the greatest possible number of persons.
You will recall that we requested the return of the Bureau of Mines to the Department to team with the Geological Survey, and that under your second and third Reorganization Plans we brought in the Bureau of Biological Survey and the Bureau of Fisheries, and consolidated them as the Fish and Wildlife Service, the better to unify our conservation program. We proceeded toward the same goal in establishing such new agencies as the petroleum Conservation Division, and in organizing centralized controls such as the Office of Land Utilization. We have consistenly shaped our policies toward an equitable use of the natural resources. We have rejected the old conception of a dam
x • Report of the Secretary of the Interior
proximately 135,000 new irrigated farms would be created and the livelihood of more than 150,000 additional families would be stabilized in regions in which a maximum crop production is uncertain because of a deficient water supply.
The new irrigation systems would serve 6,705,000 acres of new land and furnish supplemental water for an additional 9,364,000 acres of land, now without adequate irrigation supplies. The same reservoirs that would impound the storage water for this irrigation would make possible the addition of 1,765,000 kilowatts of power on existing or authorized projects and would make available 2,579,000 kilowatts of firm power capacity, on projects that are under investigation.
The inventory, surpassing in scope any other program that the Bureau has presented in its 42-year history, was prepared in recognition of the fact that approximately 3,000,000 returning service men, demobilized war workers and others in the West will seek employment. More than 260,000 of this number will be fitted by training and experience to undertake farming on irrigated land.
Furthermore, the program is well suited to meet the need for intensified reclamation in the West. In the 11 far-western States the population increased about 60 percent from 1920 to 1940, while the increase in irrigation has been less than 10 percent. The extension of irrigation, as outlined in the inventory, would increase the purchasing power of the WTest for products that are produced elsewhere by $1,250,000,000 annually.
The construction cost of all of the projects in the program would be nearly $3,000,000,000 on the basis of 1940 prices. An expenditure of $793,000,000 would be required to complete the 40 projects that are authorized or under construction, so that work on them could be undertaken or intensified immediately. Most of the program consists of potential projects, many of which would require special legislation before construction could be undertaken. Substitutions may be made in the list as surveys of projects and basins are completed.
Approximately 170 irrigation and multiple-purpose projects, and 50 river basins and sub-basins, were under study during the year. Seventy-eight detailed field reports which involve construction that would cost $547,000,000 are ready to put into effect.
The Bureau’s peacetime planning for the orderly agricultural and industrial development of the West and for its accelerated wartime activity continued to bear fruit in the field of power and crop production. There were spectacular additions in our power installation in the fiscal years 1942 and 1943, but Achievements during 1944 surpassed even the records of those years. More than 500,000 kilowatts of new power capacity—exceeding the total pre-war installation of the State of Nebraska—were added during the year, the greatest expansion of this kind by a single organization in a single year. Our total
Letter of Transmittal • xi
installation of approximately 2,360,000 kilowatts exceeds Reclamation’s pre-Pearl Harbor capacity by 1,330,000 kilowatts. The additions that the Bureau made during the war in the 11 far-western States constitute 84 percent of the expansion made in the area by all systems.
The power output matched the unparalelled increases in rated capacity. Approximately 14,500,000,000 kilowatt-hours of energy—a 52 percent increase over the preceding year—were produced. Nearly all of the new energy made available played a direct part in war production. The war industries in the Pacific Southwest were dependent for 50 percent of their power on Boulder, Parker, and other Reclamation installations. The world’s largest magnesium plant used a fourth of Boulder’s huge 6,333,000-kilowatt-hour output, and aluminum plants took a major portion of the power of Grand Coulee Dam in the Pacific Northwest.
Gross revenues from the sale of Reclamation power reached a new high of $18,992,000, an increase of $4,438,000 over the fiscal year 1943. These returns are highly significant to the Reclamation program. Power revenues will repay half of the investment in projects that were outlined at the beginning of the war.
Reclamation’s contribution of food for war was increasingly impressive. Increases in 2 basic crops indicated the spirit in which the Bureau and the farmers on its 44 irrigation projects responded to the threat of a food shortage. Potato production in the calendar year of 1943 increased by 52 percent over 1942, and bean production increased by 23 percent.
The potato output was sufficient to provide a year’s supply for 31,000,000 persons, and the bean yield to serve 30,000,000. Alfalfa production was also at an unprecedented high. This crop, fed to beef and dairy herds, would provide annual rations of milk for 4,800,000 persons and a yearly supply of beef for 5,500,000 persons.
The acreage in production, the total volume of crops, and the crop values also increased. A total of 4,055,329 acres was served a full or partial supply of water by Bureau systems. These lands produced 10,660,000 tons of food and forage crops, which were valued at $388,670,969. Eighty-three percent of the area for which the Bureau was prepared to supply water was in cultivation.
Despite the continued restrictions on critical materials, and on manpower for irrigation construction, the Bureau made progress in bringing water to land on which agricultural production could be increased. Under the war food program, the War Production Board issued clearances that will bring under irrigation 243,657 acres of new land and will provide supplemental water to 1,022,125 acres that are handicapped by shortages in moisture. All authorizations were granted in
xii • Report of the Secretary of the Interior
the fiscal year except for four projects on which work had previously been cleared.
The Reclamation service of providing municipal-industrial water also aided in the prosecution of the war. Supplemental supplies were served to important municipalities, in which the demand was increased by an influx of industrial workers, and to major war industries, including a $200,000,000 steel plant near Provo, Utah, and the world’s largest magnesium plant at Basic, Nev.
At the close of the year the Bureau had in operation, under construction, or authorized, 78 projects in 16 western States. In nearly all of this area rainfall is inadequate for sustained crop production and hydroelectric power is the main driving force in industry. The area that was served by the 52 Bureau projects that delivered water or produced power is populated by more than 5,000,000 persons.
DIVISION OF POWER
As we enlarged our hydroelectric installations and increased our flow of power, new complexities arose in the fields of operation and marketing. The increase in our own installation and production was, in itself, enormous; and on September 1, 1943, the power from the Grand River, Norfolk, and Denison dams was added to our own, bringing the total of more than 3,000,000 kilowatts of installed capacity.
Consequently, we assumed a heavier burden of work and responsibility in the Division of Power. Here we strove, in operating our system and in marketing our power, to prepare for transition to a peacetime economy while meeting the immediate interests of a Nation at war.
This Division organized the Southwestern Power Administration to operate the Grand River Dam and to market the power from the three dams that added their output to ours. This agency, created by authority of Executive order as a wartime measure, is now in full operation.
In the Division of Power as a whole our activities were especially directed toward the establishment of rate schedules and the negotiation of power sales contracts. The Division reviewed or participated in the establishment of a number of rate schedules and in the negotiation of various contracts for the sale of power by the Bonneville Power Administration, by the Southwestern Power Administration, and by the Bureau of Reclamation, and helped to establish rates for the sale of power from the Fort Peck Dam, which was turned over to the Bureau of Reclamation for marketing. Most of the contracts were negotiated on a war duration basis.
The Division also took an active part in determining the allocation of the costs of the Grand Coulee Dam as one step in the ultimate establishment of rates for the sale of Grand Coulee power. Closely allied
Letter of Transmittal • xni
to the Coulee allocation are the studies, participated in by the Division, regarding the Central Valley project of California. These were undertaken to determine the best method and the rates at which benefits from the project will be made available to the people of California.
In anticipation of the time when the need of power for war will cease and industry can return to peacetime production, the Division has given considerable attention to the preparation of post-war plans and programs. It has participated in studies that concern the further development of the river resources of the Nation, and in this pursuit it has given much assistance to congressional committees and to individual members of Congress. Attention has been devoted to the problem of the conversion and disposition of Government-owned war plants, and to the establishment of peacetime industrial economies which would be based upon the liberal use of low-cost power. Discussions also have been initiated concerning the disposition of fuel-operated power plants that were constructed during the war for use of Military Establishments. The objective is the incorporation of these fuel plants into the facilities of Federally owned hydroelectric plants as a means of economically providing peaking power or standby power which must now be purchased. In the event that Congress passes legislation authorizing the delivery of power to the Secretary of the Interior for marketing from dams constructed by the United States Corps of Engineers, it is also anticipated that the Division will be called upon to undertake the organization of additional marketing units to dispose of such power.
THE BONNEVILLE POWER ADMINISTRATION
In the Bonneville Power Administration we have also worked toward the restoration of the Nation’s industrial balance after the war. The wartime industrialization of the Pacific Northwest has contributed much toward this end. It is widely recognized both throughout this region and the Nation that these gains must be fostered in the interest of a sound economic posterity.
From its inception the Bonneville Power Administration’s activities have been planned upon the fundamental idea of regional development. Through the war years, the acceleration of the Government’s transmission grid construction program to serve war industries at the same time has provided, some years in advance of schedule, a potent tool for both reconstruction and regional development. In making-available low-cost hydroelectric power to the people of the Pacific Northwest, the Bonneville Power Administration is earning both the confidence of the people of the region and a sound position of leadership in regional developmental programs.
Conscious of the responsibilities which attend such a position of leadership, and in order that the policies set forth by Congress in the Bonneville Act might be carried out to the fullest possible degree, the
xiv • Report of the Secretary of the Interior
Administration lias established certain guiding principles or objectives in the interest of securing the greatest possible benefit from the resources of the region for the greatest number of people. Briefly, these objectives are as follows:
To make power a tool for true development.—The cheap and abundant electric power of the region must become the means for opening new opportunoties for investment, enterprise, and employment for agriculture, for new industries, for small business and for the home owner.
To provide larger quantities of power at lower rates, thereby increasing over-all consumption. The development of the resources of the region through the use of power as a public enterprise provides a vital ingredient for establishing a sound economic base for private enterprise.
To create new jobs in enduring projects for returned servicemen, demobilized war workers, and others. There will exist a readjustment problem for some 500,000 workers in the Pacific Northwest alone when the war is finished.
To add new wealth creating activities to the taxable wealth of the community. In the final analysis, the economically secure community is the very foundation for solvent national Government.
To establish a higher general standard of living.—With the distribution of abundant low-cost hydroelectric power throughout the region, living can become more enjoyable and work can be made easier for farm dwellers and city dwellers alike.
To insure the national investment in developmental projects of the region. The multiple benefits of the dams and the transmission system which the Federal Government has built—reclamation and irrigation of thousands of acres of formerly unused farm lands, widespread distribution and sale of facilities for bulk freight movement on our rivers—will proyide full protection for the taxpayers and full payment of their investment, besides accomplishing the basic objectives of regional development and the enhancement of our national economic portion.
As to the feasibility of proceeding toward the foregoing objectives, a recapitulation of the progress that the Bonneville Power Administration had made at the end of the fiscal year affords substantial demonstration:
Approximately 45 percent of all of the electric energy that was consumed in the five Pacific Northwest States of Oregon, Washington, Idaho, Montana, and Utah during the 12-month period ending June 30, 1944, was supplied by the two Federal power plants at Bonneville and Grand Coulee Dams.
During fiscal year 1944, the Bonneville Administration sold 8,741,-106,000 kilowatt-hours of electric energy at a total cost to its customers
Letter of Transmittal • xv
of $20,893,363, or an average of 2.39 mills a kilowatt-hour. The rapid growth of the Bonneville Power Administration to its present position as one of the three largest power marketing agencies in the Nation is shown clearly by a comparison with fiscal year 1939 power sales, which totaled only 30,042,911 kilowatt-hours at a cost of $49,835. The output of the Bonneville and Grand Coulee power plants is averaging between 25,000,000 and 30,000,000 kilowatt-hours a day, or approximately 10,000,000,000 kilowatt-hours a year.
During the 6 years beginning in the fiscal year 1939, when the first generators at Bonneville dam were placed in operation, the Bonneville Power Administration had sold 17,927,787,000 kilowatt-hours with revenues amounting to $40,885,633. This record of service evidences not only a material contribution to the progress of the war but also a substantial participation in strengthening the industrial and economic base of the region.
THE SOUTHWESTERN POWER ADMINISTRATION
Our war and post-war policy has been further reflected in the work of the Southwestern Power Administration. Although conditions may change before we are able to foresee them, this Administration is designing a construction program to provide carrying capacity which will be essential to our post-war operations. Changes in the program may be necessary before it can be carried out. But the basic plan is being drawn in anticipation of a definite need.
Through the year this Administration provided adequate power and continuity of service at the lowest rates that were consistent with reasonable economic requirements. The average rate was 4.21 mills per kilowatt-hour, and, since approximately 95 percent of the power delivered went to war industries, this low rate has resulted in a decided saving to the tax payer. It has enabled industries to provide essential war needs more economically.
Power continued to flow to the great aluminum reduction plant near Lake Catherine, Ark. In this service to the aluminum plant this Administration continued to operate and maintain 200 miles of transmission lines, constructed and owned by the Ark-La Cooperative of the Rural Electrification Administration. Delivery of power was continued to the Oklahoma Ordnance Works for the manufacture of explosives and also to Camp Gruber, an Army cantonment near Braggs, Okla. The Administration furnished power, as we had previously, to municipalities and Rural Electrification Administration Cooperatives which, in turn, furnish it to war industries.
The Administration pursued its system-interconnection policy with private utilities which aided them in fulfilling their power commitments without service interruptions.
xviii • Report of the Secretary of the Interior
With military requirements dipping deep into domestic petroleum reserves and discoveries of new oil fields declining, the Bureau mapped out a long-range program of research in the production of synthetic liquid fuels from coal, oil shale, and other materials. This will involve the construction and operation of demonstration plants to provide a blueprint for private industry. Meanwhile the Bureau continued laboratory-scale investigations of the various synthetic fuel-making processes and gained widespread attention as.the war rationing of gasoline made American motorists conscious of motorfuel shortages. One pilot plant for the complete gasification of sub-bituminous coal and lignite was designed, built, and successfully tested in 1944, and another was under construction.
The completion of three new helium plants increased the total to five, enabling the Bureau to meet every demand of the armed forces and to release large quantities of this lightweight, nonburning “miracle gas” to scientific, medical, and industrial consumers. The United States enjoys a world monopoly of helium, but the supply is not inexhaustible. However, an adequate reserve for the future is assured by the Bureau’s conservation plan in which helium, extracted from natural gas going to the commercial fuel market, is returned to the original subterranean vaults for storage until it is needed. Official recognition of the Bureau’s extraordinary achievements in helium production for war came in January 1944, when the Army-Navy “E” was awarded to the plants at Amarillo and Exell, Tex.
Charged with the seemingly paradoxical tasks of helping supply more oil for war and prolonging the life of the Nation’s natural crudeoil deposits, the Bureau achieved both. Research disclosed new sources and improved the quality of ingredients that were needed to increase the production of high-octane fuel for war planes, toluene for explosives, and other petroleum products. At the same time, application of the modern engineering principles of secondary recovery extended the period in which the United States can depend upon petroleum reserves as its main source of liquid fuels. A number of surveys were made of oil field practices and reservoir components, and more than 40 engineering reports were submitted to the Petroleum Administration for War, operators, and others who were concerned with meeting the way needs for special lubricants, fuels, and chemicals.
Wartime shortages of labor and equipment, longer working hours, and the need for greater production called for increased emphasis on the Bureau’s health and safety programs in the mineral industries. Safety experts trained thousands of workers in first aid and in minerescue and accident-prevention procedures. Approximately 3,000 coal mines in the United States and Alaska had been surveyed for safety conditions and practices, many for the second time, and Federal inspectors reported thousands of improvements that protect life and
Letter of Transmittal • xix
property. The effect of these precautions was demonstrated as accident-frequency rates in reinspected operations declined about 6 percent and as the industry’s fatality rate reached the lowest point in coal-mining history. Achieved despite adverse conditions related to the war, these gains foretold greater attainments after victory. The opposition expressed by many operators to the legislation and the early phases of the coal mine inspection program turned to praise and wholehearted cooperation.
Cooperating with the Bureau’s wartime plant-security programs, the mineral industries’ record was not blemished by a single clearcut case of sabotage. Under the Federal Explosives Act, the Bureau inspected stores of nonmilitary explosives and licensed the manufacturers, distributors, and users of nonmilitary explosives and their ingredients. The mineral production security program was so effective that it was curtailed after Bureau engineers, trained in the prevention of sabotage and of subversive activities, examined mines, mills, and smelters to suggest suitable precautions.
Thousands of chemical analyses and explosives control tests were made in the Bureau’s laboratories, the majority of them for the Army and Navy. To promote safety in the manufacture and handling of explosive and inflammable materials, experiments were conducted to determine the characteristics of military pyrotechnics, explosives, powdered metals and plastics, coal dust, vapors, gases, and liquids. Gas masks and other respiratory devices were tested, and inspections were made to improve hygienic conditions in mines, plants, and some Army Establishments.
Increasing requests from war agencies and industries for factual reports on minerals to guide their programs resulted in a further step-up in the Bureau’s statistical services which already had been operating at high speed. The Bureau compiled up-to-date information on such subjects as domestic and foreign production, consumption, requirements, trade, uses, and stocks of mineral commodities. Many special studies were undertaken for the War and Navy Departments, War Production Board, Solid Fuels Administration for War, and Petroleum Administration for War, and many more will be required in the solution of national and international post-war problems.
THE GEOLOGICAL SURVEY
The Geological Survey prepared plans within the fiscal year for two related but distinct programs—one for the investigations and mapping that it should promptly undertake to provide the fundamental information required by the agencies that are now laying out plans for post-war construction and development projects, and the other for the long-range investigative and mapping program that it should undertake after peace returns.
xx • Report of the Secretary of the Interior
The Geologic Branch has continued to devote itself very largely to studying deposits of minerals and ores that are needed in war, and to estimating the reserves and grades of these materials. Many thousands of deposits have now been examined, and the information obtained constitutes an inventory of the Nation’s reserves of metals and minerals which is essential to peacetime industry as well as to the conduct of the war. A number of minerals at first considered critical in the war program are now known to be adequate in quantity, at least for the present, but the accelerated use of minerals to meet the war demands has resulted in a serious depletion of the reserves of many of the more common metals. A wise policy, therefore, demands that the national inventory of mineral reserves be intensified and kept current as new deposits are discovered and older ones become exhausted.
Among the outstanding war projects carried on by the Alaskan Branch was the continued compilation of aeronautical maps and charts for the Army air forces. The method of compilation from air photographs was largely devised by civilian members of its staff. By this trimetrogen method, so named from the camera lenses used, the Survey has furnished planimetric maps covering about 5,300,000 square miles of strategic area widely distributed throughout the world. The Branch has also prepared reconnaissance topographic maps of selected areas totaling more than 500,000 square miles.
Another important project has been the attempt to unify many of the activities concerned with the search for or development of Alaskan oil resources. Although these negotiations are still in progress, the Alaskan Branch has made a start on carrying out its part of such a program by sending five parties into the field to conduct such preliminary work as can be done within the limits of its regular appropriations.
Adequate topographic maps showing woodland coverage and highway facilities are a necessity in the successful waging of any war. The Topographic Branch has bent every effort to the making of such maps of vast areas of strategic importance within the United States and also in Europe and other theaters of war. Special topographic maps were made for Army maneuvers; for the investigation of critical minerals which are indispensable to successful military operations; for coal explorations; and for river utilization and flood control. Of great importance for the defense of our island possessions was the completion of the topographic mapping of Puerto Rico and Vieques.
The importance of water to both war and post-war activities has been emphasized by more than 5,000 requests made of the Geological Survey within the year for special reports on water in relation to problems that have arisen in the construction and operation of military, naval, and industrial establishments and in post-war planning.
Letter of Transmittal • xxi
These problems have involved the quantity and quality of the surface and ground water that was available or could be made available for use at hundreds of different sites in every State and in the Territories of Alaska and Hawaii. This important public service by the Water Resources Branch has been possible because of its mass of published and unpublished information which has been collected regularly for many years and supplemented by numerous special field investigations. The staff is decentralized, and it operates from about 100 field headquarters. Much of the work was done in cooperation with Federal, State, and municipal officials, who have aided materially in the solving of special problems. Water experts of the Survey have continued to serve with the armed forces, either as officers or civilians, in obtaining water for the Armies in the field.
The Conservation Branch has two principal functions. The first is to make surveys and investigations of the water and mineral resources of the public domain and to apply the results to public-land administration. The second is to supervise operations for the development of power and the production of minerals, including oil, gas, coal, potash, sodium, lead, and zinc, from public lands, Indian lands, and naval petroleum reserves. Additional funds, made available to the Conservation Branch during the year, provided extra assistance and equipment necessary for initiating war-related field investigations and the preparation of reports dealing with power and fuels and with mineral^ essential to the national war program. This activity, if maintained on the present scale, will reveal new reserves of such resources and will provide engineering information that is essential to the elimination of waste.
THE SOLIDS FUEL ADMINISTRATION FOR WAR
Our work in the Solid Fuels Administration for War helped to strengthen the coal industry for this emergency, but no legislation has been designed specifically to help us to stabilize the industry after victory.
. We so regulated the distribution of coal that war industries, first of all, might receive their necessary supplies, and, after them, other consumers were taken care of according to their relative needs. This helped to stabilize war manufacture in coal-burning plants, and to facilitate the operations of railroads and public utilities.
By establishing relative needs for other than production use, and by regulating distribution accordingly, we forestalled widespread suffering among householders.
The distribution of coal was so arranged that we developed and put into effect over-all distribution programs which fully related the anticipated supply to estimated requirements, and the programs were
xxii • Report of the Secretary of the Interior designed to assure an equitable distribution of all of the coal which can be produced under present conditions.
We helped to maintain maximum production at the mines, striving to retain mine manpower and to increase working hours and the number of days of work in the pits. We helped to furnish additional machinery and equipment and in the development and extension of mines.
All of these measures were carried out with the cooperation of the coal industry and of coal consumers.
The SFAW encountered a coal supply crisis only a few days after its establishment, when the first in a series of widespread mine strikes occurred. These strikes cost an estimated 40,000,000 tons of potential production in 1943. Thereafter, through 1943 and into early 1944, we dealt with a series of major and minor crises caused by coal shortages. While meeting the demands of the day, we enlarged the SFAW staff, formed advisory committees of experienced leaders of the coal industry, and began the development of long-range plans to avert further difficulties.
The programs that are now in effect cover coal distribution from the mine to the industrial plant and to the household consumer, and take into account differences in grades, kinds, and sizes of coal and the varying requirements of consumers. These programs will continue, subject to any modifications which changes in the coal supply may dictate, until March 31, 1945. Then they may be extended if necessary. They allocate scarce hard and soft coals among users in accordance with their needs and essentiality, encourage the use of alternative coals, where available, and spread the supply by limiting the amounts of the scarce coals that domestic consumers may receive. This will necessitate the extensive use of alternative fuels by such consumers and the practice of rigid conservation.
The SFAW was given the added responsibility during the year of distributing equitably the limited supply of coke available for domestic consumption.
A Nation-wide network of industry committees has been established to keep the SFAW informed of conditions in retail distribution and supply in order to avert local emergencies. If unavoidable crises occur, the committees will function to pool the resources of their communities, thus mitigating the distress of individual consumers.
The major production problem has been a growing shortage of manpower in the mines. This has placed a definite limit upon the productive capacity of the Nation’s mines. Operators and miners have performed a difficult task in producing coal in spite of handicaps.
Much of the increased production has been in the strip-mined coal from temporary operations, and in low-grade coals which are suitable only for certain industrial uses. However, industrial consumers who are able to utilize these coals have been required to accept them so far
Letter of Transmittal • xxm
as possible, thus freeing the scarcer coals for use by industries which cannot shift, and for the use of domestic consumers.
Consumption of coal, in view of the production losses during the strikes and the impossibility of increasing production because of manpower shortages, would have been severely curtailed in the fiscal year except for the millions of tons of bituminous coal in consumer storage piles. This supply was accumulated in 1941 and 1942 against apparent emergencies. By compelling users with adequate stocks to draw upon them for part of their current consumption, the SFAW freed large tonnages of newly mined coal for the use of industries with insufficient stock piles and for distribution by retail dealers.
With the production lag in some coals that are most essential to industry and to domestic users, it is evident that the Nation’s coal problems are not solved. Nevertheless, a smooth-functioning mechanism now exists to lessen the impact of difficulties and to facilitate the flow of coal for essential uses.
THE COAL MINES ADMINISTRATION
As a result of our work in the Coal Mines Administration the strikebound coal industry was brought back to full production without our resorting to force. Before the end of the year we were able to return to private possession and control all except two of the Nation’s anthracite and bituminous coal mines of which we took possession under your orders when the industry was paralyzed by strikes.
By the time the mines were returned, harmony had been restored between management and labor, firm wage contracts were in effect, bituminous coal production had increased to the largest volume it has ever reached, and anthracite output was at its wartime peak.
Under a Government-mine-workers’ contract, which provided for no increase in the basic rate of pay specified in the miners’ pre-war contracts with the operators, but which called for substantially increased working time, the men improved their efforts to augment coal output.
This contract served as the model for the operators and miners who, as a result of our intercession, were brought together by mutually acceptable wage contracts within the terms of the national stabilization program.
For years the industry has failed to operate in the absence of a contract between its owners and employees. As rapidly as the new industry contracts were effectuated, we began to return the mines to their private owners, and by June 21, 1944, all of the mining properties had been returned, except the two mines of one bituminous coal company which was engaged in a legal test of the portal-to-portal compensation which was provided for under the industry-mine-workers’ agreement.
The Government first took possession of the mines on May 1, 1943. All of the mines that were involved were returned to their owners by
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October 12, 1943. On November 1, 1943, possession was taken for the second time.
During the 13 months that the mines were in the possession of the Government, production per man was the highest on record, and the mine fatality rate from November 1943 through May 1944, was the lowest for any comparable period in our mining industry.
We organized the Coal Mines Administration early in July 1943, to administer Government possession of the mines. Its personnel was kept at a minimum by utilizing, in large measure, the trained workers in existing Bureaus of the Department of the Interior. The Coal Mines Administration, having done its work, is now being liquidated.
THE GENERAL LAND OFFICE
In the General Land Office we have worked as hard to fit ourselves for the best post-war land administration as we have worked to make our great contributions to the war program.
One of our big post-war jobs will be the administration of a carefully developed system of stabilized-land settlement in Alaska. Settlement in the Territory has a strong appeal, particularly to those vigorous and adventurous citizens who seek the opportunity to pioneer. We must do our utmost to foster that undertaking, for through such a spirit America has grown great. It is equally essential that the disastrous ghost-town experiences of earlier settler days on the mainland be avoided in the development of Alaska. Plans already laid by the General Land Office for the attainment of that objective can be facilitated by congressional authority to extend to Alaska the requirement that public land, before disposal, must be classified as suited to the use for which it is sought.
Land settlement in the United States by returned service men constitutes another high priority problem. We could assist greatly in its solution by the establishment and maintenance of an inventory of all Federal lands, in order that a fresh determination may be made of the locations of the comparatively few tracts on the public domain which may still be suitable for homesteading.
Increasingly mechanized armies require greater amounts of minerals for war and call for the highest degree of efficacy in our national mineral economy. But we cannot achieve that efficiency without a rejuvenation of our Federal mining laws. Vast areas of public lands, and lands acquired under many Federal laws, constitute a storehouse of essential minerals, yet, under present statutes, no method exists by which the United States may catalog and, in cooperation with private initiative, develop the resources on those lands through leases based on sound principles of conservation. Legislation that would provide for the marshalling our full complement of mineral resources is a necessary adjunct to adequate stockpiling.
Letter of Transmittal • xxv
The soundness of this Administration’s conservation policies was clearly demonstrated by the accomplishments of the General Land Office in the administration of the public domain during the past fiscal period. Although a full realization of the program for maximum benefits to the people from the use of natural resources, particularly minerals, was blocked by opposition to a much-needed revision of the Federal mining laws, there were other distinct gains registered during the year. For example, operations for the 12-month period were featured by the highest bid ever received by the Government for the privilege of drilling for oil on a single acre of Federal land, when $26,216.21 per acre were offered as a bonus for leased land in the Elk Basin field in Wyoming. Moreover, the cash receipts from the activities of the office wTere the largest in 20 years, exceeding, expenditures for its maintenance at a ratio of $6.18 to $1, and producing a total cash return of more than $14,000,000.
In addition to furnishing minerals for war through the administration of the mining and mineral leasing laws, the office made a greater aggregate contribution of public land and resources for war uses than ever before. Afore than 15,400,000 acres of the public domain have been made available for training areas, target ranges, and other military uses during the emergency period, and approximately 70,000,000 other acres were set aside to permit the exploration and development of minerals for war. Timber for war uses was furnished from the revested Oregon and California railroad grant lands under its jurisdiction. Stability for industries and communities in that region will result from the wider establishment, contemplated for the near future, of economic units for sustained yield forestry operations.
THE OFFICE OF LAND UTILIZATION
In the Office of Land Utilization we placed special emphasis on plans for extending our land conservation and development programs after the war to furnish interim employment, if needed, during the demobilization and reconversion period.
A major forward step in administrative management was taken by the establishment of a Water Resources Committee in the Office of the Secretary, to assemble and disseminate essential information concerning water-development programs involving the Department; to review water-development projects proposed by the bureaus and offices of the Department; and to formulate such recommendations as viH assure an all-inclusive departmental water conservation policy.
Although continuing to operate on reduced wartime budgets, the land-conservation programs which are coordinated by this office made satisfactory progress in the protection of resources and of strategic facilities on the public domain during the fiscal year. Forest and range fires were held to low levels. Excellent cooperation on the part
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of range users increased the effectiveness of soil and moisture opeia-tions. The 11 conscientious objectors’ camps operated by the Department continued to give first priority to conservation programs, including fire, insect, and disease control.
THE GRAZING SERVICE
Our post-war plans in the Grazing Service provide for the employment, on a 3-year basis, of 31,000 men on 60,000 projects of 16 major types, including soil, water, and forage improvements, in 200 western counties. This work would aid in the restoration and better use of the Federal range, and would condition these long-neglected lands to contribute their fair share to the local and national economy. Such projects would increase production on the range, and would protect the water and the soil on the public and other lands.
Although primarily concerned with the administration, protection, and development of the grazing and related resources on the 142,000,000 acres of Federal range in the 60 grazing districts in 10 western States, the work of the Grazing Service during the year just closed included many other activities relating to the war and after-war period.
The Grazing Service made available 14,428,919 acres of public land for maneuvers, precision bombing, gunnery ranges, training camps, airfields, and other military purposes. Grazing privileges were issued to 22,562 livestock producers for 10,694,305 head of livestock. Alternating military and grazing uses in large areas enabled range lands to serve two war uses.
Extensive range improvements were postponed to conserve man power and materials. Access roads of 788 miles were constructed, making a total of 1,570 miles in 2 years to tap 20 types of critical materials in 8 States.
THE FISH AND WILDLIFE SERVICE
Changes in administrative objectives and procedures necessitated by wartime economy surely will carry over into our post-war activities in the Fish and Wildlife Service. It has been necessary, for instance, to give rather close attention to labor problems in the fishery industries. As a result of the benefits obtained, it is planned to establish a labor unit, the operations of which will contribute to the solution of post-war problems in employment and social security.
Methods have changed through an increased adoption of scientific management principles in fish production, whether in the farm ponds that are now being built by the thousands, in the lakes and streams providing important recreational angling, or in the bays and seas which are the source of the greatest commercial yield of fishery products.
Letter of Transmittal • xxvii
A 3-year development program in fish and wildlife conservation is ready to be put into action whenever required. This program will provide employment for thousands of persons and will benefit numerous industries which manufacture the supplies that will be needed.
A record take of fur seals brought returns expected to exceed $4,500,000, and economic uses of the wildlife refuges yielded an income of $244,700.
The Fish and Wildlife Service has put boats and buildings to war use, its refuge lands are used on a vast scale for military training and for actual fighting bases, and its personnel cooperates in observing enemy submarines and in guarding against sabotage and subversion.
THE OFFICE OF COORDINATOR OF FISHERIES
We have brought about the accomplishment, to an encouraging degree, of the primary tasks which we undertook in the Office of the Coordinator of Fisheries. This applies to the Nation’s war and postwar needs.
With the demand for fishery products greatly increased by the war program, the most essential need was to halt the decline in production which set in early in 1942, and, if possible, to restore the yield to the pre-war level. Through the unceasing and closely coordinated efforts of industry and Government, this aim is now being accomplished. The total yield of fishery products in 1943 was slightly more than 4,000,000,000 pounds, a substantial increase over the 3,700,000,000 pounds landed in 1942, and approximately equivalent to the catch in 1940. While the yield in 1944 cannot be foreseen with accuracy at this point—June 30,1944—the upward trend appears to be continuing and a total production of approximately 4,300,000,000 pounds is anticipated.
The restoration to the fishing industry of the greater part of its machinery of production is largely responsible for this improvement.
The requisitioning of 700 of the finest fishing boats for the Army and Navy caused a loss in productive capacity amounting to 50 percent or even more in certain fisheries. Restoration of the depleted fleet is proceeding rapidly. Total returns of requisitioned craft now amount to approximately 40 percent of those originally taken; while authorizations for the construction of new vessels totaled 1,010 by June 30. Of these, 661 were scheduled for completion by the middle of 1944. When construction of the authorized craft has been completed the fishing fleet will have regained its full strength and will consist of a larger proportion of new vessels than ever before. Similarly, the situation with respect to the repair and maintenance of vessels and shore plants shows further improvement over last year, while the gear situation is generally satisfactory.
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Not all of the wartime problems of the fishing industry have been solved. There are not enough men to operate the vessels, the shortage of captains, mates, and other skilled personnel being especially serious. Labor is critically scarce in many processing plants. Operating programs administered by the coordinator’s office are still required in the salmon and pilchard fisheries to obtain the maximum production and the most efficient utilization of the catch. Difficulties of refrigerating, storing, and transporting the products of the fisheries have not yet been satisfactorily resolved.
One of the most significant and gratifying facts, however, is the sound condition of the fishery resource. Because the precepts of wise conservation have been followed even while attempts were being made to increase production, many important commercial species are actually showing signs of an increase in abundance. Instead of being impaired by the heavy demands of war, the fisheries will be in excellent condition for post-war development.
THE NATIONAL PARK SERVICE
In the National Park Service we have contributed toward the Nation’s post-war future by holding intact those priceless remnants of the American scene entrusted to our guardianship. Despite the issuance of more than 1,000 authorizations to war agencies for the use of park lands and facilities, there has been but little impairment of park features. They would have been impaired if we had yielded to organized group pressures, without questioning the alleged critical necessity for invading the parks, or if we had not helped to explore alternative courses of action, when the use of resources in the parks was proposed. Credit is due to the representatives of war agencies, military and otherwise, who have realized the value to the Nation of preserving the national parks unimpaired.
The National Park Service during the past year has been subjected to some unwarranted and unjust criticisms by interests that have seen in the war an opportunity to utilize, for their own gain, certain natural resources hitherto denied them because of well-established park policies. These resources include representative areas of virgin forest, the forage available for cattle and sheep in the meadows, water resources, and minerals. Although these do not bulk large in the total economic life of the Nation—the acreage of the Park System is only three-fourths of 1 percent of the land area of the United States— groups that stand to gain thereby have tried to reopen old issues as to exploitation of the parks under the pretext of war needs. These interests represent small, but vociferous, minorities.
Despite a country-wide campaign of misrepresentation, against designating the Jackson Hole as a national monument, I am convinced that the persons who have directed this campaign do not represent
Letter of Transmittal • xxix
public opinion nationally or in the region concerned. There recently was published in the Congressional Record, by the chairman of the Public Lands Committee of the House of Representatives, a petition signed by more than 100 leading citizens and business people of the Jackson Hole region, asking that this area, rich in scenery, wildlife, and historical interest, be preserved for park and recreational purposes, rather than allow it to go the way of unplanned exploitation.
Although we have stood ready to sacrifice the park spruce for Army aircraft construction, if absolutely necessary, the need was met without destroying the magnificent “rain forests” of Olympic National Park in the State of Washington. It has not been necessary, either, to open the national parks of California to cattle grazing. The situation that confronted the cattle industry in the State during the drought was serious, but the use of the meadows and uplands of the parks in the Sierra Nevada for grazing would have accommodated fewer than one-half of 1 percent of California’s approximately 1,400,000 beef cattle, and that only for a brief period. This inconsiderable aid would have been out of proportion to the resultant damage to public properties.
Two important areas were added to the National Park System during the year—the 700,000-acre Big Bend National Park on the Rio Grande in Texas, through the donation of lands by that State, and the home of Franklin D. Roosevelt national historic site.
Since the attack on Pearl Harbor, 4,135,000 men and women in uniform have visited the national parks and allied areas, including scenes of important events in the Nation’s history, and, as a result, they have the better appreciated the greatness of America.
THE OFFICE OF INDIAN AFFAIRS
The progress in the Office of Indian Affairs has been better than could have been expected considering the innumerable hampering restrictions that are placed upon our administrative procedures. Administration will be good, in my opinion, to the extent that a competent administrator is left free, within reasonable limits, to apply his energies and his funds as shifts of circumstance require. But the Indian Office is restricted to an uncommon degree in its activities and in the exercise of the Commissioner’s judgment by means of limitations which are written into its appropriation bill.
The budget for this office is broken down into about 200 separate appropriations, each hedged with limitations—so much for salary to an Indian school superintendent, for instance, so much for his assistant, so much for drayage, so much for repairs, etc., and no matter how little money may be needed for these items nor how much may be required for a purpose that was unforseeable when the budget was submitted, funds may not be used to defray any expenses for which they were not specifically appropriated. There is a specific appro
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priation for each of our many Indian boarding schools and while unforeseeable circumstances may cut the cost of conducting one of these and increase the cost of conducting another, still we are prohibited by legislation from diverting more than 10 percent of an appropriation from one school to another.
Some of the restrictions strike at the very base of our fundamental policies—for example, bills to issue patents in fee and to remove all restrictions on the sale of specific tracts of Indian lands. The enactment of such measures has the effect of removing our authority to protect the Indians’ interests in the sale of their lands. Such bills are introduced ordinarily after the Office of Indian Affairs has determined that a proposed sale would not be in the best interest of an Indian who proposes to sell. More than 20 such bills were introduced before the Seventy-eighth Congress. Despite such limitations and restrictions the Office of Indian Affairs has accomplished much during the fiscal year.
Indians, in cooperation with field employees of the Office of Indian Affairs, began work on proposals for post-war programs to meet the needs of various reservations. Sixty-four detailed proposals, dealing with the problems of 120 tribes, have been submitted, and these are now being carefully analyzed. When approved in their final forms they will point the way to economic self-sufficiency and integration with the national life.
Increased interest in education on the part of Indians was in evidence, and a number of tribal councils passed compulsory education ordinances and enforced others that had been neglected. Indian communities have taken an active part in planning school programs and many throughout the country have requested that Indian Service schools be equipped for the training of home-coming soldiers who may wish to take advantage of the opportunities that are offered by the Servicemen’s Readjustment Act. Plans are being made to meet these requests.
The contribution of Indians to the prosecution of the war has been most remarkable. On the first of April, 21,756 had joined the armed forces and were serving with conspicuous gallantry on all fronts. Indians have won all decorations, including the Congressional Medal of Honor and the Croix de Guerre.
Approximately 15,000 Indians are regularly employed in war industries, and in addition, 10,000 men, women, and children have left their homes for varying periods to w’ork on farms and ranches.
Notwithstanding the great exodus from reservations, the total value of all Indian agricultural products last year was more than $19,000,000. nearly $2,000,000 more than in the fiscal year 1943. The production oi food by the Indian schools was 50 percent greater than in the previous year. Fifty-eight thousand gallons of fruits and vegetables were
Letter of Transmittal • xxxi
canned and 10 tons were dehydrated. In addition, 17,000 tons of stock feed were raised.
At the end of the year Indians owned 1,500,000 head of livestock— 90,000 more than they owned in the fiscal year 1943.
It is estimated that war bond sales to Indians had reached a total of $50,000,000 by the end of June.
The rebuilding of the Indian landed estate has continued, and approximately 700,000 acres were added within the United States proper. In Alaska, 6 new reservations, with a total of approximately 13,000 acres, were established, and proposals for 16 additional reserves, comprising nearly 4,000,000 acres, are under consideration.
The democratic approach to the solution of Indian problems has been emphasized during the year. On a number of reservations Indians have organized health councils for the purpose of combating communicable diseases, and these organizations are functioning with enthusiasm for the task. Further progress was made in solving the difficult problems of fractionated land ownership through inheritance. The Rosebud Tribal Land Enterprise is the latest organization to attack the problem.
Indian arts and crafts have not languished, despite the fact that many young craftsmen have left home. In many cases there has been an increase in production and sales, owing to the sponsorship of cooperative producing and distributing centers. Plans have been made for an expansion of craft activities after the war.
THE DIVISION OF TERRITORIES AND ISLAND POSSESSIONS
In the Division of Territories and Island Possessions we have been occupied with the economic and social adjustments in our offshore areas which are becoming more pressing as the end of the war approaches.
The key positions held by Alaska, Hawaii, and Puerto Rico in international travel and as way stations between the world’s greatest production centers and the world’s greatest markets have brought them into sharp focus and emphasized the urgency for preparing them for their post-war roles.
Owing to progressive reductions in its appropriations for personnel, however* the Division has been seriously hampered in trying to perform its duties effectively. If the Department is to be charged with responsibility for the territories we must be provided with funds that will be adequate for the purpose.
The importance of Alaska is universally recognized. Hundreds of letters from service men, indicating their interest in establishing themselves in Alaska after the war, have dramatized the need for a
xxxii • Report of the Secretary of the Interior well-integrated program of settlement. The Territory remained a “combat area” throughout the year, although the last Japanese were ejected last summer. Health and welfare problems that have been aggravated by war conditions continued to be serious. The Division has worked and will continue to work closely with other bureaus and Departments on these problems and on development programs for the Territory.
The Alaska Railroad for the second successive year has exceeded all previous records in its volume of freight and in passenger traffic. The manpower shortage has presented an acute problem, but despite this handicap, the railroad has continued its improvement program. To meet wartime demands much additional equipment and rolling stock were purchased, most of which was second-hand, due to immediate necessity which would not permit delays incident to the securing of new equipment.
The relaxation of military rule in Hawaii has been an important factor in relieving tension. Many conferences were held with the War Department looking to the termination of martial law, while maintaining such restrictions on civilian activities as may be necessary in view of the importance of Hawaii as an offensive base. Civilian shipping requirements, housing, and public health have had the attention of the Division.
Political advances in territorial areas should keep pace with the aspirations of the territorial people and with their skill in political self-management. During the past year, the concerted desire of the people of Puerto Rico for greater home-rule, expressed there by groups of every political shade, found response in your declaration that the Organic Act of Puerto Rico should be revised so that it would include the right of the people to elect their own governor, and in your appointment of four able and distinguished Puerto Ricans and four continentals, of whom I had the honor to be one, to draft recommendations for such action. The people of the island have the skill and ability to manage their local affairs. I believe that the enactment into law of the recommendations made by the advisory committee which you appointed would give substance to this Nation’s declared policies, and that the Puerto Rican people would use this law to strengthen democratic self-government.
At the same time there has been in the island an upsurge of hope and an energetic striving among these people to cure the severe economic dislocations. Some parts of the program which they are executing may not work. They may find it necessary to discard certain features. This must certainly be a period of trial and error, but I believe that there will develop a measure of economic improvement which will at least give the masses of people some hope of a better standard of living.
Letter of Transmittal • xxxm
Steady progress is being made by the Government of Puerto Rico in the introduction of new industries to supplement the island’s agricultural economy.
The shipping situation has continued to improve so that food supplies, which reached a desperate state of depletion both in Puerto Rico and the Virgin Islands during the German submarine campaign, are now ample. Through the coordinated efforts of the Division of Territories of this Department, the Office of Distribution and the War-Shipping Administration, distribution of the necessities of life throughout the island at stabilized prices has been maintained. It has been possible to return the responsibility for supplying all except a few basic articles to former importers, and it is hoped that the Government may soon be able to withdraw entirely.
An increase of approximately 178 percent in income taxes in the Virgin Islands materially improved the condition of the municipalities’ treasuries. The Selective Service and Training Act of 1940 was applied for the first time to the Virgin Islands, and at the close of the fiscal year there were 3,660 registrants between the ages of 18 and 44 in St. Thomas and St. Croix. The Islands were handicapped by the elimination of the Federal appropriation for the position of Government Secretary. This, combined with the frequent absences of the Governor, whose duties by law devolve upon the Government Secretary, threw a very heavy burden on the small administrative staff.
In conformity with your letter of instructions of September 16, 1942, the Department has been engaged in an intensive study of the problems with which we will be faced in the Philippines after reoccupation. There is every reason to look forward to driving the enemy out of the Islands in the not too distant future, and when that time comes the loyalty of the great mass of people encourages the hope that a sound solution of their difficult problem will be found.
THE WAR RELOCATION AUTHORITY
On February 16, 1943, the War Relocation Authority was transferred to the Department of the Interior. This agency was created to assume responsibility for 110,000 persons of Japanese ancestry who had been evacuated from the West coast in the spring of 1942, and to resolve other difficulties that resulted from evacuating the Japanese from the coast.
Two major accomplishments have resulted from our work in this agency. We have segregated from the principal population of the relocation centers those persons who have declared a preference for the Japanese way of life, or who are not considered suitable for resettlement in outside communities. And we have developed an effective
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xxxiv • Report of the Secretary of the Interior program for returning the loyal and law-abiding majority of evacuees to the mainstream of American life.
At the close of the fiscal year, 18,672 persons who are not suitable for resettlement were residing in the Tule Lake segregation center in northern California. Segregation, however, had not proved satisfactory as a permanent measure. Among the segregants were approximately 3,300 children under 17 years of age and an additional 1,800 persons who were placed in the center solely to avoid disrupting family units. Careful studies of the segregants indicate that only a few of them are disloyal to the United States. Many older people sought to be segregated simply because segregation seemed to offer them a haven for the duration of the war. Others went to the center in protest against the evacuation and the restrictions that were placed upon them. They interpreted these restrictions as evidence of unfair discrimination. It is extremely doubtful that deportation after the war will dispose of the Tule Lake problem.
The conversion of Tule Lake into a segregation center left nine centers populated principally by individuals and families that are eligible for relocation. At the end of the year the progress of relocation had enabled us to close one of them—the Jerome center in southeastern Arkansas. A total of 16,846 persons departed from the centers on indefinite leave during the 12-month period, making a grand total of 23,693 to that date. Mainly, they were younger people without family responsibilities, though an encouraging increase in the relocation of older people and family groups occurred toward the end of the year.
The relocation of those who remain in the centers becomes more difficult as the younger people leave. Every departure increases the percentage among the residue of evacuees who, because of age, infirmities, unfamiliarity with English, and indigency, are less amenable to rehabilitation in strange environments. Many evacuees have developed a reluctance to leave the comparative security of the centers for the uncertainties of life outside. This reluctance is hard to combat, but we are working constantly to overcome it.
The departure ol the younger, more able-bodied evacuees also has augmented the difficulty of recruiting evacuee-workers to maintain essential services at the centers. No essential service has been allowed to lapse, however, and no phase of the relocation program has been abated to hold workers in the centers. The full force of the War Relocation Authority has been exerted to relocate the evacuees as rapidly as possible.
On June 9, the War Relocation Authority was assigned to take charge of an emergency shelter that was to be established at Fort Ontario, N. Y., for approximately 1,000 European war refugees. Plans to receive the refugees were under way at the end of the fiscal year.
Letter of Transmittal • xxxv
THE SOLICITOR’S OFFICE
Through the concerted work of the Solicitor’s Office and the legal divisions of the bureaus and offices under the supervision of the Solicitor, the attorneys of the Department have done much during the past year to advance the Department’s post-war programs, to support the fighting of the war, and to protect and conserve the Nation’s resources for their best long-term use.
Since most of the Department’s post-war programs require legislative authority, the Solicitor’s Office and the legal divisions of the interested bureaus proceeded to put these programs into legislative form. Some of the bills were enacted. The most important legislative proposals provided for the opening up of greater homestead and industrial opportunities to veterans and other persons in the territories and in the continental United States through reclamation and power developments. Another important bill, prepared in anticipation of post-war liquidation problems, provided for the administration of surplus Federally owned real property.
Toward the winning of the war the attorneys of the Department originated the legal mechanisms for the equitable and beneficial allocation of supplies of coal and other solid fuels and of fishery resources. They prepared the necessary documents for the operation of the coal mines and for the termination of Government possession, undertaking extensive research to protect the Government. They drafted regulations for the storing, handling, and transportating of explosives and their ingredients by civilians, and for the operation of relocation camps for citizens and aliens of Japanese ancestry and for other persons who had been removed from military areas. They reviewed leases, permits, and other agreements whereby agricultural, grazing, timber, and mineral resources of the Nation were made available for military uses or for the greater production of food and other necessities of war. They gave attention to the legal problems that were involved in the application, under martial law, of military orders to civilians in Hawaii, and engaged in numerous conferences on such problems with the War Department and the Department of Justice. They also drafted contracts for the operation of experimental metallurgic laboratories.
In the field of a long-term conservation of resources, the attorneys helped to prepare Public Law 273, establishing the principle of sustained-yield to forest management on Federal lands, and Public Law 106, strengthening the Alaska game and fish protection law. They protected title to certain public lands that were subjected to invalid claims and passed upon the title to new acquisitions of grazing, timber, and park lands. They maintained Indian property rights on the Pyramid Lake and Allegheny Reservations through successful litigation and undertook the protection of Indian lands in Alaska through the

xxxvi • Report of the Secretary of the Interior
study of Indian, land claims. They also devoted increased energy to the protection of the civil rights of various groups toward which the Federal Government has assumed special responsibilities, notably the inhabitants of Hawaii, Puerto Rico, and other Territories and possessions, as well as Indians and evacuees of Japanese descent.
To stimulate the interest of the Department’s attorneys in the opportunities of Government service and in the possibilities for improvement in standards of work, the Solicitor put into effect a strict application of the Department’s advancement from within policy and undertook the establishment of an in-service training program.
CONCLUSION
From all of the foregoing I conclude that we have so far advanced conservation that nearly every individual on this continent may improve his lot if only we have the will to make our gains serve their logical purpose—the advancement of human welfare. The consolidation within a brief time of gains that have been long in the making, is not new in our history. Steam propulsion spent a century in the toy and novelty stage, then developed enough in a decade to reshuffle our industrial processes. Electricity followed the same course to the point at which it revolutionized domestic economy. So did automotive transportation. The advent of hydroelectricity, so developed that it can revolutionize heavy industry, and accompanied by equally developed supporting facilities, serves mainly to introduce a new generation to an historic occurence.
There are some differences, of course. One difference appears especially important to me. All of the other great additions to the world’s power have reached the world-changing stage under divided ownership. Public will, no matter how united, could not have demanded the prompt development and the equitable use of the potential power in steam or in the internal combustion engine. The development of potential power usually has been delayed while individuals have warred over who should profit when the development occurred. The consumers eventually financed such wars.
The final results of conservation that I have referred to as power— the product of our dams, our irrigation projects and other developments—is the first great accumulation of new energy that ever belonged to all of us. In that there is a huge advantage and a corresponding responsibility. The advantage is that we can put our new acquisition of power to work for all of us, and do it promptly. The responsibility is that we must do these things for ourselves.
Sincerely yours,
Secretary of the Interior.

Bureau of Reclamation
Harry W Bashore, Commissioner1
PREPARATION to safeguard the western economy in the critical postwar transition period was emphasized in activities of the Bureau of Reclamation in the fiscal year 1944.
Reclamation developments have greatly increased food and power production for war, but today the Bureau is making ready to enable the people to utilize western water and land resources in a great peacetime expansion. Plans call for completion of irrigation and multiple-purpose projects now authorized, involving costs of more than three-quarters of a billion dollars, and for construction of 236 potential projects. These were described in an inventory placed before the Senate Committee on Postwar Economic Policy and Planning on June 6,1944.
This presentation emphasized the fact that authority for projects which would not be entirely self-liquidating would have to stem from Congress, and that funds also would have to be voted before detailed plans could be completed.
In anticipation of approaching industrial reconversion, the Bureau is getting ready for quick employment of hundreds of thousands of demobilized servicemen and civilian war workers. Equally important is the objective of permanent homes for veterans and others on irrigated farms in 17 Western States—homes which will assure large new markets for products of eastern as well as western farms, and for factories in all parts of the Nation—a true expansion of our western frontier.
Planning was carried forward simultaneously with Bureau activities to increase food production and hydroelectric output to drive the wheels of a war industry which sprang up with incredible rapid-
1 Mr. Bashore took office as Commissioner of Reclamation on August 3, 1943, having been appointed by President Roosevelt. From May 27, 1939, until his appointment, he had been Assistant Commissioner of Reclamation. William E. Warne, formerly Chief of Information of the Bureau, was appointed Assistant Commissioner by the Secretary of the Interior on August 3. 1943. and entered on his duties on August 9.
1
2 • Report of the Secretary of the Interior
ity to pour forth aluminum, airplanes, warships, ammunition, and which without this power would have limped. Throughout this planning, there was intense awareness of the difficulties all will face—but particularly the West—in making the adjustment to peace.
But as a result of this foresight, it will be possible to put to work demobilized men at project sites in the Western States almost as soon as peace comes, provided enabling legislation is passed; and the benefits will spread to industries and transportation systems in the other 31 States as soon as orders are placed for equipment and supplies that will be needed in the construction of the Bureau’s projects and in the creation of farms that will be established upon them.
For the discharged men who are qualified by previous training and experience to undertake irrigated farming, 135,000 new farms ultimately would be made available. In the wake of the new development would rise new cities and towns, having a population equal to that of the rural areas. Markets and production centers throughout the Nation would be stimulated by the enlarged western purchasing power.
Toward the integration of western industry and agriculture, which must be developed together if the region is to reach full economic maturity, the multiple-purpose projects in the program would offer large blocks of new low-cost electric power. Revenues from the sale of the new energy would pay for a sizable portion of the project construction costs which have been estimated, on the basis of 1940 prices, at nearly 3 billion dollars.
Reclamation construction is ideal as a postwar undertaking because the volume and speed of the construction can be readily geared to the volume of employment and settlement needs. And what is doubly important, the development and utilization of unused water supplies for the production of hydroelectric power and expansion of irrigation will permanently enrich the West.
Continued study of the land and water resources of the West during times of peace and throughout the war, have made it possible for the Bureau to present its concrete postwar blueprint. From the beginning of the war, it has advanced, as rapidly as emergency conditions permitted, investigations of more than 200 individual projects, and of approximately 70 river basins and subbasins.
The Bureau made notable progress in advancing postwar plans during the year without relaxing its war activities in the fields of power and food production. Outstanding records were made in both.
Reclamation generators delivered nearly 14% billion kilowatt-hours of electric power, about 52 percent more than in the preceding fiscal year. The increase since the fiscal year ending a few months before Pearl Harbor is 400 percent. More than 90 percent of the new energy made available during war was consumed by war industries—alu
Bureau of Reclamation • 3
minum and magnesium plants, airplane factories, shipyards, and munitions plants. The 3-year increase in production was about five or six times the percentage of increase in aggregate production recorded over the same period by all plants in the United States.
The expansion in output resulted from a highly accelerated program of hydro power installations. During the war a million and a third kilowatts of new installed capacity were added—about half a million this year—to bring the Reclamation installation to about 2,360,000 kilowatts. The Bureau’s war power contribution constitutes 84 percent of the total new capacity made available in the 11 Far Western States since 1941.
No less spectacular were the achievements of farmers on Bureau projects in production of vital war food crops. The more than 4 million acres served in 15 Western States during the calendar year of 1943 produced 52 percent more potatoes than in 1942 and 23 percent more beans. The expansion in these basic food crops is indicative of the manner in which Reclamation helped forestall threatening food shortages.
Throughout the fiscal year the Bureau, in recognition of the great need for increased agricultural production, sought to construct new facilities to bring under cultivation additional areas of arid and semi-arid lands and to provide supplemental water for farms on which crop production was being reduced by an inadequate supply of water. Since the fall of 1942, when the Bureau’s ability to expand irrigation was limited by diversion of critical materials to other war uses, it has requested the War Production Board to clear many projects on which food production could be expanded. On June 30, 1944, this agency, on recommendation of the War Food Administration, had approved construction of projects on which irrigation service is being extended to 1,265,782 acres.
Another significant Reclamation wartime service was the provision of municipal and industrial water to major war plants and cities and towns which were important in war activity. Municipal areas of 3 million population, including Los Angeles, depend on Bureau projects for supplemental supplies.
PEACETIME CONSERVATION PAYS WAR DIVIDEND
The wartime benefits of Federal Reclamation are the result of 42 years of activity by the Bureau of Reclamation in the field of land and water conservation in the West.
Under the Reclamation Act of 1902, the Bureau has put into operation, or has under construction or authorized, in the 17 States west of or bisected by the 100th Meridian, 78 irrigation and multiple-purpose projects.’ Fifty-two of these are producing food supplies, electric
4 • Report of the Secretary of the Interior
energy, and furnishing municipal-industrial water. On several operating projects important features remain to be completed. On 9 projects that have been authorized, work has been deferred because of the war.
In the area to which the Bureau’s activities are confined the rainfall is inadequate to support agriculture, and conservation of water for irrigation is essential for the maintenance of civilization. The need for low-cost power for irrigation pumping, industries, and other uses has given added emphasis to the importance of double and triple use of limited water resources. The Reclamation developments also provide, in addition to benefits mentioned earlier, flood control, river regulation, repulsipn of salt water encroachment and reduction of clogging silt deposits. They aid fish propagation, and create recreational areas and waterfowl and wildlife refuges.
Nearly 5 million persons live in areas in which Bureau of Reclamation systems are operated. About 3% million persons benefit from power and domestic water, and 1,257,395 live on the 91,120 farms or in cities and towns on Federal irrigation projects. These developments support 338 towns, 1,207 schools, 1,514 churches, and 137 banks (with deposits totaling half a billion dollars) (see table 3). When the construction program now authorized is completed, the various Bureau services will be extended to areas in which reside more than 10 million persons.
The Federal investment in Reclamation developments at the end of the year totaled $930,000,000. (See table 5, p. 34.) More than 95 percent of the cost is reimbursable under Reclamation law. The remaining 5 percent is allocated to flood control, aid to navigation, and nonreimbursable labor costs.
POSTWAR INVENTORY COMPLETED
Mindful of the Secretary’s words—“in time of war we must prepare for peace”—the Bureau laid a sizable portion of the foundation for a stabilized peacetime western economy, warped out of proportion by the dislocations of war.
Near the end of the fiscal year, it completed for the Senate Committee on Postwar Economic Policy and Planning an inventory of irrigation and multiple-purpose projects in the West, which could be included in a postwar public works program to provide employment for discharged veterans and war workers, and make available to those who are qualified, livelihoods on irrigated farms.
In the program are 40 projects already authorized for construction, and about 200 under study. On many of the projects authorized, work is in progress to advance the Bureau’s war food and war power programs. Construction on others has been halted or deferred because of the war.
Bureau of Reclamation • 5
Carried out in full, the contemplated program would furnish employment equivalent to l1/^ million men working 1 year, and create an estimated 135,000 new farms. In addition, it would bring greater security to 150,000 additional families, now handicapped by inadequate water supplies which do not permit maximum crop production.
The need for postwar employment and settlement opportunities was indicated to the Bureau in a report by labor experts, which stated that 1414 million persons will be demobilized from the armed forces and war plants. About 3 million of those who will face reemployment problems live in the 17 Western States, and, what is of prime importance to the irrigation program, some 265,000 of this number will be equipped by previous training and experience to undertake irrigated farming.
While the proposed construction would be centered in the western half of the country, 56 percent of the employment—the equivalent of 698,000 men working for a year—would be provided in the mines, mills, and factories of the Midwest, East, and South. The remaining 44 percent, or 553,000 men, would be employed at the sites of construction.
The effectiveness of the Reclamation construction as a shock absorber in the postwar reconversion is enhanced by the fact that it permits a “quick get-a-way”. Provided with funds and manpower to complete field investigations and preconstruction work, the Bureau could put more than 300,000 men to work the first year. A peak employment of 400,000 could be reached in the second year.
From the long-term point of view, the inventory is an important milestone toward the expansion of western irrigated agriculture in which lies the basic hope of the region for increased growth and prosperity. The dry-land farming potentialities of the West are virtually exhausted, but water is available for the irrigation of 22 million additional acres of land, approximately the acreage now served. The projects in the inventory would extend irrigation service to a third of the new.area—6,705,000 acres—and, in addition, furnish supplemental water for 9,364,000 acres now inadequately watered. Construction of irrigation features on authorized projects alone would create 70,000 new farms and overcome the water deficiency of 100,000 existing farms.
The growing need for added agricultural production in the West is known to all who have analyzed the western economy. The area is becoming increasingly deficient in crop production to meet its own requirements. Expansion in cultivated acreage has not kept pace with population increases. While the number of people living in the Far Western States has increased 60 percent from 1920 to 1940, the irrigated acreage has been expanded but 10 percent.
Integrated industrial and agricultural development is one of the basic prerequisites for orderly economic growth of the West. The same reservoirs which will serve irrigation could provide 1,765,000
6 • Report of the Secretary of the Interior kilowatts of new power for industrial use, if the Bureau increased its installations, and 2,579,000 kilowatts of firm power capacity on projects under study. Through revenues derived from the sale of this energy, projects not otherwise economically feasible, can be made sound.
The full development of the new farms and the new communities will increase the purchasing power of the West for products manufactured elsewhere by 1% billion dollars, at 1940 prices. The estimated construction cost of the projects in the inventory, on the basis of pre-war prices, is $2,952,393,000. About $793,000,000 would be required to construct irrigation features on projects already authorized. The construction of most of the 196 potential projects included in the list would require special legislation by Congress. The inventory may be changed as basin surveys are completed, with additional projects added or substitutions made for those now included.
WAR POWER EXPANSION SPECTACULAR
The greatest expansion of electric power generating facilities ever made by a single agency in a single year was the wartime record established by the Bureau of Reclamation in fiscal year 1944 to meet emergency industrial demands. More than half a million kilowatts of hydro power were added in 31 plants on Reclamation projects in 12 Western States. The increase surpassed by about 55,000 kilowatts the additions made during the previous fiscal year, and by about 100,000 kilowatts, the capacity added in fiscal year 1942.
The new facilities, whose output was almost wholly consumed by airplane factories, aluminum and magnesium plants, shipyards, and other industries that made fighting equipment, brings to nearly 1,400,000 kilowatts the capacity made available since July 1, 1941—a few months before Pearl Harbor. Additional installations proposed by the Bureau, aggregating 865,000 kilowatts, were halted by the War Production Board in the fall of 1942 to conserve critical materials for other war uses. The present Reclamation installation totals about 2,360,000 kilowatts. When all generators on existing projects and on those authorized are placed into operation the capacity will be 4,863,075 kilowatts.
The rapid enlargement of power facilities on Bureau projects was the result of farsighted construction, in time of peace, of multiplepurpose projects designed to meet current and potential industrial and agricultural requirements of the growing West. On these projects, stored water serves both irrigation and power generation.
The output of Reclamation generators paralleled the great gain in capacity. During the fiscal year the plants produced 14% billion kilowatt hours, highest on record. This was an increase of more than 50 percent over the preceding period.
Bureau of Reclamation • 7
The new power developments during the fiscal year were confined to three projects. Early in the year the Bureau began transmitting power from Fort Peck Dam (Montana), constructed by the War Department. At Grand Coulee, three of the world’s largest hydroelectric generators, each rated at more that 100,000 kilowatts, were put into operation. At the end of the fiscal period, two units, each of 75,000-kilowatt capacity, began service at Shasta Dam of the Central Valley project (California).
The immense blocks of Reclamation power made available in the West, particularly on the Pacific coast, have made possible its recordbreaking increase of industrial production. Energy from Boulder Dam supplies the great aircraft plants in the Los Angeles area, the largest magnesium plant in the world near Boulder City, Nev., and other basic war industries, while power produced at Grand Coulee serves a half dozen large aluminum plants, the biggest carbide plant west of the Mississippi, large shipyards, and many other plants.
Gross revenues from the sale of electric power produced in plants operated by the Bureau reached an all-time high during the year of 1944, $18,993,000. This was a $4,438,000 increase over fiscal year 1943. Production of power, while regarded as incidental to the Bureau’s major function—irrigation of arid and semiarid land—is highly important as a source of revenue for reimbursing the United States for the cost of Reclamation construction. Power will repay half the investment of the Reclamation program as outlined at the beginning of the war.
Boulder Dam’s gross revenues are the largest of all Bureau plants. In its 7 years of operation, this development has returned to the United States Treasury $25,200,000 in net revenues, and in addition, has* paid the states of Arizona and Nevada, $4,200,000, and the Colorado River development fund, through which potential projects in the Colorado River Basin are investigated, $3,500,000.
Preparations for the sale and transmission to war industries of the output of two 75,000-kilowatt generators at Shasta Dam of the Central Valley project (California), were completed during the year. In September 1943, a wartime contract, guaranteeing the United States an annual payment of $2,775,000 after January 1, 1945, was made with the Pacific Gas & Electric Co. The 97-mile Government transmission line over which the energy will be delivered to company facilities at Oroville was completed in July 1944.
RECLAMATION FOOD PRODUCTION AT NEW HIGH
Like their sons on the fighting fronts, reclamation farmers, through record-breaking increases in vital crops, brought the Allies closer to victory during the calendar year of 1943.
8 • Report of the Secretary of the Interior
Toward meeting emergency food requirements, they increased potato production to 64,044,814 bushels, 52 percent greater than the 1942 aggregate yield, and bean production to 4,175,797 bushels, an increase of 23 percent over the preceding year. The 3,507,723 tons of alfalfa produced, vital as a winter feed for beef and dairy herds, also was at a new high. These three critical war food crops were grown on 36.4 percent of the total acreage in cultivation.
The expansion was due both to the concentration of farmers on the more important war crops, and to the increases in irrigated acreage resulting from enlarged farm activity and from additional facilities provided by the Bureau under the war food program. The irrigated area was increased to 4,055,329 acres, highest on record. It is expected that the total 1944 agricultural production on Bureau developments will be brought to an even higher level than that attained in 1943.
From the day—soon after Pearl Harbor—when the Secretary of Agriculture called for “the greatest production in the history of American agriculture” the Bureau has been seeking to extend irrigation systems to bring additional acreages under cultivation and to supply areas suffering with water shortages with a supplemental supply.
The Bureau prepared several accelerated construction programs (see the annual report for fiscal year 1943), listing the projects on which new areas could be served promptly, the amount of critical materials required in the construction, the year crop production could be expected, and other pertinent factors. The detailed information was presented to the War Food Administration, which has the wartime function of evaluating the potential food yield against the amount of strategic materials required, and of recommending clearance of projects to the War Production Board.
The Bureau’s activities resulted in approval being given to construct irrigation facilities on 25 projects, which are bringing under cultivation 243,657 acres of new land and providing a supplemental supply for 1,022,125 acres. All clearances were granted in this fiscal year except those for Friant Dam and Madera Canal of the Central Valley project (California), facilities on the Gila project (Arizona), to protect an air base from dust storms, and Scofield Dam (Utah), which would provide both flood control and irrigation service.
Bureau of Reclamation
9
The projects cleared were:
1 Excavation only (pending before the War Production Board).
2 Not yet approved by the President.
MUNICIPAL-INDUSTRIAL WATER AIDS WAR
Of equal importance with war pdwer and war food production was a third major Reclamation wartime service—providing municipalindustrial water for major industries and military encampments, and for communities that were important in the war program.
As a multiple-purpose benefit, five operating projects met this need. Through construction on three other projects, additional areas in which shortages exist or threaten will be served with new supplies.
Boulder and Parker Dams in the Pacific Southwest, working as a team, stored fresh water from the Colorado River for diversion through the Metropolitan Water District aqueduct to busy Los Angeles and 12 nearby cities. Direct from Lake Mead above Boulder, 30 million gallons a day were piped to the world’s largest magnesium plant at the peak of its activity.
State	Project	Acreage to ibe benefited	
		New lands	Supplemental water
Arizona	 California	 Colorado	 ..	__ Idaho		 Montana	 New Mexico	 	 	 Oklahoma	 Oregon		 Oregon-California— 	 Utah	 Washington	 Subtotal	 Colorado	 	 Idaho	 Montana	 Nebraska	 	 Nevada	 		 South Dakota		 Texas		 Utah	 Subtotal	 Grand total				Regular Reclamation Projects Gila		 	 Coachella (All-American Canal)	 Madera Canal (Central Valley)	 Friant Dam (Central Valley) 	 .. Friant-Kern Canal1	 		 Colorado-Big Thompson		 Anderson Ranch	 Fort Shaw Drainage...	.... Tucumcari			i	 Luger t-Altus			 	 Carlsbad Drainage	 	 Deschutes			 Klamath-Modoc	 Modoc Extension		 Provo River.		 	 Yakima-Roza. 	 WCU Projects Mancos		 		 Post Falls (Rathdrum Prairie)	 Bitter Root		 Intake	 Dodson Pumping	 	 Missoula Valley	 Mirage Flats	 Humboldt2	 	 Rapid Valley	 	 Balmorhea	 Newton	 	 Scofield	 		8,500 10,000 20,000 45, 000 40,000 20, 000 12, 500 12,100 32,050 200,150 2,000 2, 527 14,600 620 1,200 900 12,000 8,000 1,660 43, 507 243,657	16,000 80,000 160,000 320,000 340, 000 600 1,200 27,000 19, 300 964,100 8,000 1,000 4,000 240 1,200 17, 000 12, 000 1,520 565 12, 500 58,025 _ 1,022,125
10 • Report of the Secretary of the Interior
The Contra Costa Canal of the Central Valley project (California) furnished water to important industries in the cities of the Upper San Francisco Bay area. The Rio Grande project (Texas-New Mexico), served El Paso, Tex., and nearby military encampments. Reclamation projects in Utah provided water for the cities of Salt Lake, Ogden, and Provo and a huge, new steel plant.
Raising the height of Altus Dam (Oklahoma) during the year will extend domestic water service during the fiscal year to important consumers in that area. Under construction are the Rapid Valley (South Dakota), and the Tucumcari (New Mexico), projects, which, in addition to providing irrigation service, will supplement the municipal supplies of the cities of Rapid Valley and Tucumcari, respectively. Through enlargement of the Weber-Provo Diversion Canal, principally for irrigation, and the construction of the Salt Lake Aqueduct, supplies will be made adequate for the Salt Lake and Provo areas, where the demand for water has risen sharply due to increased population and military centers.
CROP VOLUME AND VALUE AT RECORD LEVEL
With irrigation activities accelerated in accord with the demands for increased war food supplies, all records on Reclamation projects as to the acreage in production, total volume of crops, and crop values were broken in the calendar year 1943.
The 4,055,329 acres served wholly, or in part, by Bureau facilities on 44 projects in 15 Western States produced 10,660,000 tons of food and forage crops, valued at $388,670,969. The gross returns were 43 percent, or $116,622,453, greater than in calendar year 1942, which in turn exceeded the previous year’s total by $112,162,519. The skyrocketing of aggregate values was due partly to the fact that Reclamation farmers, despite labor difficulties and equipment shortages, had nearly doubled their actual production since the year of Pearl Harbor, and partly due to the sharp increase in market prices received for the commodities produced.
The returns cited are exclusive of the values of livestock fatted on Reclamation projects and of dairy and poultry products. These would increase quoted totals by about 25 percent.
The inventory of livestock and equipment on hand December 31, 1943, was valued at $116,170,312, an increase of $16,081,407 over the preceding year. Livestock values amounted to approximately $950 per irrigated farm.
Bureau of Reclamation • 11
Table I.—Reclamation areas and crop returns, calendar year 19431
	Irrigable area2	Irrigated area	Area in cultivation (paying area)	Crop values	
				Total	Per acre
Regular projects	 Storage projects	 Storage projects (no crop returns reported) Special and Warren Act lands	 Additional areas reported: Temporarily suspended 3	 Leased areas, WRA centers, etc	 Grand total, 1943		Acres 2, 397, 241 484, 879 29, 376 1,896,026 4, 807, 522	Acres 1,927, 660 387,103 1, 633,041 53,498 54,027 4,055, 329	Acres 1, 900,088 391, 309 1, 615,424 53,498 54, 027 4,014, 346	$185,263,326 27, 708,861 170, 606, 761 1, 593,852 3, 498,169 388,670, 969	$97.50 70.81 105. 61 29.79 64. 75 96.82
i A detailed table of area and returns by individual projects is available on request from the Bureau of Reclamation, Washington, D. C.
2	Area for which Bureau is prepared to supply water.
3	Generally part of irrigable area, but not subject to construction charges until reclaimed.
4	Based on areas reported in both years and excluding temporarily suspended and leased lands.
»Decrease due to readjustment of estimated acreage.
The cultivated area, exclusive of areas temporarily suspended and leased lands, was at a new high of 3,906,821 acres in 1943. This was an increase of 85,122 acres over 1942. On projects entirely constructed by the Bureau, the cultivated area rose to 1,900,088 acres. In 1942 it was 1,873,978 acres. Crop values in 1943 amounted to $138,181,276, as compared with $185,263,326 in 1942. The cultivated area on projects furnished supplemental storage from Bureau works and on those under special and Warren Act contracts, totaled 2,006,-733 acres in 1943, as compared with 1,947,720 acres in the preceding year. The crop values were $198,315,622 in 1943 and $133,867,240 in 1942. On leased areas, Japanese relocation centers, etc., the cultivated area totaled 54,027 acres, and crop values, $3,498,169.
Eighty-three percent of the irrigable area for which the Bureau was prepared to supply water—4,807,522 acres—was under irrigation in 1943.
Because of labor difficulties and price conditions, the area planted to sugar beets was reduced to 139,014 acres in 1943, a decrease of about 25 percent over 1942. The" 1943 yield totaled 1,996,213 tons, which was valued at $17,494,670.
Reclamation projects also produced small grains, fruit and nuts, long-staple cotton, flax, hops, vegetables, and seeds.
Due to the war, no new land has been opened to homestead entry during the last 3 years.
Grand total, 1943	 Grand total, 1942	 Increase or decrease, 1942-43	 Percent of increase, 1942-43		Comparison 1942 and 1943 irrigation results 4				
	4,807, 522 4, 821, 839 5 —14,317	3,947,804 3, 936, 235 +11, 569 +0.29	3, 906,821 3,821, 699 +85,122 +2.22	$383, 578, 948 272,048, 516 +111, 530,432 +41.00	$98.18 71.19 +26.99 +37.91
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• Report of the Secretary of the Interior
Table 2.—Cumulative crop values—1906—43
Federal irrigation projects i	Warren Act Lands and Special Contractors	Entire area
Total crop value	Total crop value	Total crop value
Irrigated	------------------Irrigated	------------------Irrigated	------------------
acreage vation	Cumulative acreaSe vation F	Cumulative acreaSe vation F	Cumulative
r or year total	or year total	loryear totai
1906--------- 22,300	2 20,100	244, 900 ______•_________________________________ 22, 300	2 20,100	$244,900
1907--------- 187,628	2 169 000	4, 760, 460	$5,005, 360 ------------------------ 187,628	2 159 Q00	4, 760,460	$5,005,360
1908-------- 289,549	2 260, 500	7,635,888	12,641, 248 ________________________ 289, 549	2 260,500	7, 635,888	12,641, 248
1909-------- 410,628	2 369.500	11,920,663	24,561,911	_______________________________________ 410,628	2359500	11,920,663	24,561,911
1910-------- 471,423	413,000	12,944,639	37,506,550	..._ _______________________ 471,423	413,000	12,944,639	37,506,550
1911-------- 562,311	470,100	13,086,441	50.592,991	_______________________________________ 562,311	470,100	13,086,441	50,592,991
1912-------- 614,477	540,000 16,007,134	66,600,125 _____'.________________________________ 614,477	540,000	16,007,134	66,600,125
1913 ------- 694,142	637,227	15,676,409	82,276,534	    694,142	637,227	15,676,409	82,276,534
1914-------- 761,271	703,424	16,475,517	98,752,051	  761,271	703,424	16,475,517	98,752,051
1915________ 810,649	760,035 18,164,452	116,916,503 _1.2____________________ 810,649	760,035	18,164,452	116,916,503
1916________ 922,821	858,291	32,815,972	149,732,475	    922,821	858,291	32,815,972	149,732,475
1917________ 1,026, 663	966, 784 56,462, 313	206,194, 788 __________________________________ 1,026, 663	966, 784	56,462, 313	206,194, 788
1918________ 1,119, 566 1,051,193 66,821, 396	273,016,184 2 501,100 2 481, 600 $35,000,000 _21, @20,666 1, 532, 793 101,821, 396	308,016,184
1919--------- 1,187,255	1,113,469	88,974,137	361,990,321	916,313	880,613	64,368,468	$99,368,468	2,103,568	1,994,082	153,342,605	461,358,789
1920_________ 1,223,480	1,153,820	66,171,650	428,161,971	981,940	950,890	47,836,750	147,205,218	2,205,420	2,104,710	114,008,400	575,367,189
1921...------ 1,227,500	1,157,900	49,620,300	477,782,271	1,001,250	969,550	45,288,630	192,493,848	2,228,750	2,127,450	94,908,930	670,276,119
1922_________ 1,202,130	1,169,100	50,360,850	528,143,121	983,290	951,270	33,240,840	225,734,688	2,185,420	2,120,'370	83,601,690	753,877,809
1923_________ 1,213,700	1,179,870	65,046,300	593,189,421	1,051,380	993,040	37,557,860	263,292,548	2,265,080	2,172,910	102,604,160	856,481,969
1924_________ 1,290,890	1,216,610	66,488,560	659,677,981	930,670	889,460	43,237,470	306,530,018	2,221,560	2,106,070	109,726,030	966,207,999
1925_________ 1,320,300	1,242,750	77,608,880	737,286,861	1,019,170	951,250	53,655,850	360,185,868	2,339,470	2,194,000	131,264,730	1,097,472,729
1926_________ 1,411,020	1,328,810	60,369,620	797,656,481	1,097,190	949,590	49,750,040	409,935,908	2,508,210	2,278,400	110,119,660	1,207,592,389
1927_________ 1,378,990	1,326,810	70,985,450	868,641,931	1,148,115	1,072,486	61,160,010	471,095,918	2,527,105	2,399,296	132,145,460	1,339,737,849
1928_________ 1,442,080	1,385,560	80,238,800	948,880,731	1,235,020	1,192,030	62,495,320	533,591,238	2,677,100	2,577,590	142,734,120	1,482,471,969
1929_________ 1,483,900	1,420,070	87,559,670	1,036,440,401	1,234,230	1,192,990	72,720,490	606,411,728	2,718,130	2,613,060	160,280,160	1,642,752,129
1930_________ 1,504,810	1,467,097	64,418,940	1,100,859,341	1,286,046	1,254,493	54,654,550	660,966,278	2,790,856	2,721,590	119,073,490	1,761,825,619
1931_________ 1,522,718	1,462,565	40,121,089	1,140,980,430	1,293,889	1,251,830	33,406,340	694,372,618	2,816,607	2,714,395	73,527,429	1,835,353,048
1932_________ 1,555,144	1,506,320	31,165,752	1,172,146,182	1,214,461	1,196,400	18,627,219	712,999,837	2,769,605	2,702,720	49,792,971	1,885,146,019
1933_________ 1,589,770	1,529,903	48,138,576	1,220,284,758	1,239,017	1,199,113	35,425,870	748,425,707	2,828,787	2,729,016	83,564,446	1,968,710,465
1934_________ 1,552,124	1,464,405	59,628,327	1,279,913,085	1,285,081	1,229,594	40,160,676	788,586,383	2,837,205	2,693,999	99,789,003	2,068,499,468
1935_________ 1,640,936	1,604,166	63,601,663	1,343,514,748	1,294,680	1,256,970	43,179,631	831,766,014	2,935,616	2,861,136	106,781,294	2,175,280,762
1936_________ 1,702,192	1,629,174	78,902,818	1,422,417,566	1,335,995	1,272,745	57,599,662	889,365,676	3,038,187	2,901,919	136,502,480	2,311,783,242
1937_________ 1,725, 463	1, 700, 969	72, 893, 649	1,495,311, 215	1, 389, 338	1, 333, 800	45, 764, 623	935,130, 299 | 3,114, 801	3,034, 769	118,658, 272	2,430.441, 514
Bureau of Reclamation • 13
2, 543,904, 974
2, 675, 987, 768
2,775,776,445
2,935, 662, 442
3,207,710,958
3, 596, 381,927
113,463,460
114,082, 794
117, 788,677
159,885, 997
272,048, 516
388,670, 969
3,040, 695
3,078,072
3,316,030
3, 380,460
3,821, 699
4,014,346
3,106, 699
3,140, 976
3, 391,070
3,339, 383
3, 880,862
4,055,329
955 095 576 767 567 328
733, 047, 737, 223, 652, 259,
980, 1,021, 1,058, 1,108, 1,224, 1,395,
45, 603,656 40,313,140
37, 690,481
49, 486,191 116,428, 800 1170, 606, 761
1, 276, 332
1,174, 803
1,177,103
1, 202,172
1, 562,046
1, 615,424
1,329,115
1, 218,108
1, 238, 262
1,140, 204
1, 602, 907
1, 633,041
1, 563,171,019
1, 636,940, 673
1, 717,038, 869
1, 827,438,675
1, 983,058, 391
2, 201,122, 599
67,859, 804
73,769, 654
80,098,196
110, 399, 806
155, 619, 716
218, 064, 208
1,764,363
1, 903, 269
2,138,'927
2,178, 288
2, 259, 653
2, 398,922
1, 777, 584
1, 922,868
2,152, 808
2,199,179
2, 277, 955
2, 422, 288
1938_________
1939_________
1940_________
19413________
19424________
1943 5_______
i Includes projects constructed by the United States and those for which supplemental water is furnished from storage works built by United States.
3 Doesnot include, project acreage and returns from All-American Canal (Imperial Valley) and 5 supplemental water projects.
4 Does not include project acreage and returns from 2 supplemental water projects. Estimated data for Imperial Valley mcluded under Special contractors.
3 Does not include project acreage and returns from 1 supplemental water project. Estimated data for Imperial Valley included under “Special contractors.” Includes cultivated acreages and returns from class 5 lands, leased areas, and other lands irrigated from project works.
617248—45—4
14 • Report of the Secretary of the Interior
PROJECT PLANNING HAS POSTWAR OBJECTIVE
Foresight in the programming of its studies and investigations of potential projects and of river basins and subbasins made it possible for the Bureau of Reclamation to present to Congress in June 1944 a comprehensive inventory of postwar construction.
Planning activities directed in pre-war days toward an orderly agricultural and industrial development of the West, and early in the war toward increasing production of electric power and war food supplies, created a large shelf of projects which can be undertaken after the war to provide emergency employment and permanent settlement opportunities. During this fiscal year, with the emphasis shifted to planning for the postwar readjustment, additional projects were added to the reserve.
About 170 irrigation and multiple-purpose projects and approximately 50 river basins and subbasins were under study during the year. The Bureau investigates river basins in conjunction with studies of individual projects to assure orderly regional development.
The most impressive of the basin-wide studies completed during the year was the report on the Missouri River. It proposes construction costing a billion and a quarter dollars in the upper basin area, which construction would ultimately bring under irrigation 4% million acres of new land in seven States and supplement the water supply for half a million acres suffering shortages.
In connection with the June 1944 project inventory, there are on hand 53 detailed field reports involving construction costs amounting to $526,000,000, and 25 detailed field reports of Water Conservation and Utilization projects under the war food program, estimated to cost $21,000,000.
Postwar planning was given added impetus in June 1944, when Assistant Commissioner William E. Warne held conferences with Bureau regional officials in each of the six regions to determine the status of investigations and to plan for increased activity in this field. As a result of the meetings definite deadlines calling for the completion in the field of basin reports were set for early in the next fiscal year. These are: Columbia River Basin, December 1; Rogue River Basin, December 1; Central Valley, October 15; Santa Barbara County, September 15; Russian River Basin, September 1; Lower Colorado River Basin, November 1; Upper Colorado River Basin, November 1; Great Salt Lake Basin, December 1; Nueces River Basin, August 15; Rio Grande Basin, September 1; Red River Basin, September 15; Pecos River Basin, October 1; Guadalupe River Basin, October 15; Colorado River (Texas) Basin, November 1; and Arkansas River Basin, December 1.
Bureau of Reclamation • 15
As part of its planning activities, the Bureau reviewed flood control reports of the Corps of Engineers, War Department. This work was carried on under the terms of an agreement, dated August 14, 1939, through which the Bureau, the Department of Agriculture, and the War Department interchanged information on multiple-purpose projects. On December 29, 1943, this agreement was superseded by a four-party agreement, which made the Federal Power Commission also a participant, and changed the name of the joint committee to the “Inter-Agency River Basin Committee.”
Servicemen Seeking Postwar Farms
Forecasting the great need for postwar expansion of reclamation in the West, war veterans and emergency workers evinced a growing interest during the fiscal year in obtaining farms on Federal Reclamation developments. A growing number of inquiries concerning land settlement opportunities were received in the Washington, D. C., headquarters and in the many Bureau offices near military posts and war production centers.
Further evidence of the demand for land was the enlarged activity in the transfer of ownerships on irrigation projects, particularly near war industries where workmen, receiving high wages, purchased land for postwar homes.
In preparation for meeting the enlarged requirements for land, the Bureau’s land use and settlement activities were pointed to postwar objectives. At the end of the year the Bureau had completed a program for presentation to Congress as a possible basis for legislation to provide settlement opportunities commensurate with anticipated needs. The program contained various recommendations for settlement preference for veterans, and provisions to assure that suitable farm units will be available on reasonable terms and conditions. It also called for farm advisory services.
Special Studies Will Aid Settlement Program
Three special studies of settlement and development problems advanced by the Bureau during the fiscal year will be of definite postwar value in making farm opportunities available for returning servicemen.
To provide maximum benefits from the complex multiple-purpose Central Valley project of California, a great volume of factual material on all phases of the proposed development has been collected through a series of project studies. These investigations are to be concluded early in the next fiscal year. Many Federal and State agencies are participating in the programming.
16 • Report of the Secretary of the Interior
The Bureau has substantially completed the studies known as the Columbia Basin Joint Investigations, which have as their objective a general plan for the settlement of a million-acre area to be watered by Grand Coulee Dam, and to prepare detailed plans for areas to be irrigated relatively soon..
The investigation of economic and agricultural aspects of the practical problems which will confront settlers on the type of arid desert soil that characterizes the Yuma-Mesa Division of the Gila project (Arizona) was advanced during the year. This large-scale predevelopment demonstration was undertaken in January 1942 in accordance with a directive from the Senate Committee on Appropriations. At the end of the fiscal year 320 acres were planted to alfalfa, and 590 acres prepared for planting of this crop next fall.
The development of 4,200 acres of public lands which the current schedule, approved by the War Production Board, contemplates, will aid in meeting the demand for new farms and new homes. A total of 150,000 acres of new lands, both public and private, may be developed rapidly on the Yuma-Mesa as a result of the knowledge gained from the investigation.
CONSTRUCTION CONTINUES DESPITE CURBS
Construction activities of the year were highlighted by the completion of Shasta Dam, second largest concrete structure in the world, and key feature of the Central Valley project (California), and the “holing through” of the 13.1 mile long Alva B. Adams tunnel of the Colorado-Big Thompson project (Colorado). Both Reclamation achievements were accomplished at the close of the fiscal period.
Shasta Dam is 602 feet high, 3,500 feet long at the crest, and 265 feet wide at the base. On June 30, 1944, it contained 6,391,682 cubic yards of concrete. Construction was begun in September 1938.
The transmountain tunnel cuts through the Rocky Mountains near Estes Park, Colo. When lined with concrete, which operation is now in progress, it will carry a supplemental supply of water from the headwaters of the Colorado River, on the west side of the Continental Divide, to 615,000 acres facing shortages in northeastern Colorado, on the east slope.
The Bureau’s construction activities were retarded on most projects as the aftermath of a sweeping War Production Board stop-construction order issued in the fall of 1942, which halted all work except power installations on five projects. Since that time the War Production Board has cleared a number of projects to create work for Japanese evacuees from the Pacific coast and for conscientious objectors, to supply municipal-industrial water, to provide dust control for an air base, and to expand food production. Twenty-five projects were cleared under the war food program.
Bureau of Reclamation • 17
e Work remained at a standstill on Davis Dam (Arizona-Nevada); e Payette Division, Boise Project (Idaho) ; Friant-Kern Canal of the d Central Valley project (California); irrigation features of the Colum-e bia Basin Project (Washington); Eden, Kendrick, and Riverton projects (Wyoming).
> Additional details on construction activities are provided in the t summary of the activities of the various regions.
t
Bureau Engineers Foremost as Dam Builders
e Since 1902 179 dams—5 of them the largest concrete structures in * the world—have been constructed by the Bureau of Reclamation on 61 irrigation and multiple-purpose projects in 16 Western States. The 5 mammoth monoliths, which have given Bureau engineers the reputa-t tion of being foremost in the field of dam designing and construction are, in order of volume: Grand Coulee (Washington), Shasta (Cali-1 fornia), Boulder (Arizona-Nevada), Friant (California), and Marshall Ford (Texas).
1	The Bureau has also built the following existing facilities: 31 power-
plants, 5,937 miles of transmission lines, 212,549 canal structures, 14,421 bridges, 358 tunnels having a combined length of 110.7 miles, 5,121 miles of ditches and drains, 23,683 culverts, 6,555 flumes, 2,322 miles of pipe, and 4,344 miles of roads. In the 42 years of its existence as a Federal I agency, the Bureau has excavated 621,790,400 cubic yards of earth and rock—more than 60 times the bulk of the 7 great pyramids of Egypt. A total of 34,225,500 cubic yards of concrete have been poured, more than 6 times as much as used in all the locks and structures of the Panama Canal. In the preparation of this concrete, 38,475,900 barrels of ' cement were used.
Storage Capacity at New Peak
The storage capacity of 81 Reclamation reservoirs was increased by about 5 million acre-feet during the fiscal year. The June 30, 1944, capacity was 69,174,919 acre-feet. The active water storage—more than 53% million acre-feet—was also at a record level. The largest of the man-made lakes were impounded by Bonder Dam (Arizona-Nevada), Grand Coulee Dam (Washington), and Marshall Ford Dam (Texas). Storage of water in the reservoir behind Shasta Dam was begun on December 30,1943, and behind Friant Dam on February 22,1944.
Japanese Evacuees On Three Projects
Increased war food production, valued at $460,272, resulted from the activity in 1943 of persons of Japanese ancestry on 3 Reclamation projects, to which they were evacuated from West Coast military zones
18 • Report of the Secretary of the Interior
early in the war. The approximately 38,000 men and women housed in the War Relocation Centers harvested 4,861 acres of hitherto undeveloped land.
The camps are located on the Gooding Division of the Minidoka project (Idaho), which at the peak of the year’s activity held 10,000 persons; the Tule Lake Division of the Klamath project (Oregon-California) , 18,027; and the Heart Mountain Division of the Shoshone project (Wyoming), 9,800.
In addition to farm activities, the Japanese aided in Bureau construction operations on the Minidoka and Shoshone projects. The camps were erected by the Army engineers, and the Bureau had charge of the work crews.
Small C. P. S. Crews Building Dams
Construction was advanced on three medium-sized irrigation dams on the Rapid Valley (South Dakota), Deschutes (Oregon), and the Mancos (Colorado) projects by conscientious objectors housed in Civilian Public Service camps, established by the Selective Service System. The assignees also helped clear the reservoirs and performed other work. At the end of the year 124 men were stationed in the Rapid Valley camp, 90 in the Deschutes center, and 117 on the Mancos project. In the first 2 camps a religious organization was responsible for the welfare of the men, and the Bureau was in charge of the work. On the Mancos project all operations were supervised by Reclamation officials.
A small group of men in a camp administratively assigned to the Farm Security Administration was employed on Reclamation activities on the Buffalo Rapids project (Montana).
Water Conservation and Utilization Construction Stimulated
Enactment of amendments to the Water Conservation and Utilization Act, and added emphasis on expansion of production of war food crops, caused increased activity under the Water Conservation and Utilization program during the year. Work continued on six projects authorized for construction before the war. Preconstruction activities were underway on six additional projects approved under the war food program.
The amendments to the Water Conservation and Utilization Act authorize, for the duration of the war, the expenditure of appropriated funds for project construction in lieu of contributions formerly made by the IVork Projects Administration and the Civilian Conservation Corps. *
The projects under construction are: Mirage Flats (Nebraska), Buffalo Rapids No. 2 (Montana), Newton (Utah), Rapid Valley (South Dakota), Mancos (Colorado), and Scofield (Utah).
Bureau of Reclamation • 19
Other projects cleared for construction and the acreages involved are: Intake (Montana), Missoula (Montana), Dodson (Montana), Bitterroot (Montana), Post Falls unit, Rathdrum Prarie project (Idaho), and Balmorhea (Texas).
Construction remains at a standstill, due to War Production Board stop orders on the Fallon unit of the Buffalo Rapids project (Montana), and on the Eden project (Wyoming).
During the year the Farm Security Administration, in accordance with the original approval by the President, assumed supervision and control of the operation and maintenance work on the Buford-Trenton project (North Dakota), which is providing water for 4,000 acres. The Farm Security Administration is also in charge of land development and settlement activities on the Buffalo Rapids No. 1 project, on which about 15,000 acres of land have been put under irrigation.
REGIONAL ACTIVITIES ADVANCE RECLAMATION
While not yet fully effectuated, chiefly because of difficulties in obtaining suitable personnel, the regionalization of the Bureau of Reclamation, begun in September. 1943, intensified operations in all fields of Reclamation activity. The following is a summarization of the most important activities in each of the areas.
Region 1
The outstanding wartime activities in Region I during the fiscal year were the expansion of power production at Grand Coulee Dam (Washington), for industrial plants, and the extension of irrigation service on the highly productive Roza Division of the Yakima project (Washington). The region includes the States of Oregon, Washington, Idaho, and western Montana.
The Bureau’s power program at Grand Coulee was spectacular. Three units rated at about 325,000 kilowatts were installed to complete, in 3 years, the transformation of an empty shell of a building into the second largest powerplant in the world. The fiscal year output was approximately 5,800,000,000 kilowatt-hours, double the production of the preceding year. In March 1944, the plant produced 621 million kilowatt-hours, a world’s record for quantity of power generated during 1 month by a single hydroplant. About 98 percent of the Grand Coulee energy is consumed by war industries.
On the Roza Division, the acreage under irrigation was increased during the year from 9,000 to 15,000 acres. Ultimately the gravity system, under construction, will serve a total of 47,000 acres, whereon excellent settlement opportunities for returning servicemen and demobilized war workers could be provided.
Construction work in Region I was continued, under wartime restrictions, on the Deschutes project (Oregon), Anderson Ranch Dam
20 • Report of the Secretary of the Interior
of the Boise project (Idaho), and the Gooding Division of the Minidoka project (Idaho).
Construction of Anderson Ranch Dam, which when completed will be the highest earth-fill structure in the world and will provide supplemental irrigation water for 340,000 acres in the fertile Boise Valley, was resumed after delay of about a year due to War Production Board restrictions. About 1,300,000 cubic yards of embankment and 75,000 cubic yards of rock-fill were placed during the year to bring the total yardage in place to about 2^ million. Ultimately the dam will contain 9,600,000 cubic yards of material.
Design and location of irrigation features and development of a settlement pattern for the Columbia Basin project (Washington) was advanced. This project, of which Grand Coulee Dam is the key structure, offers the largest settlement oportunities of any single project in the Bureau’s postwar program.
Region II
Completion of Shasta Dam, dominant structure of the Central Valley project (California), at the end of the fiscal year, climaxed the construction activities in this region, which includes central and northern California, and a small portion of Oregon. The Shasta Reservoir, gradually filling since December 30,1943, contained 1,175,129 acre-feet of storage on June 30,1944, more than a third of its maximum capacity.
The first two of five 75,000-kilowatt generators to be installed in the Shasta powerplant began production in June 1944, sending their output, under a wartime contract, over the newly completed Government transmission line to a connection with the Pacific Gas & Electric Co. system at Oroville, Calif.
Three other major items of the Central Valley project were featured in the region’s construction program. Keswick Dam and powerhouse, construction of which was halted for a time by the War Production Board, were practically completed. Work was being advanced rapidly on four contracts for the construction of 28 miles of the Madera Canal, which when completed will serve 20,000 acres of new land and provide supplemental service to 80,000 acres. Eight miles of the canal had been completed previously.
Installation at Friant Dam of needle valves borrowed from Boulder Dam to provide temporary control over the San Joaquin River was practically completed. Water storage in Millerton Lake was begun on February 22, 1944, and had reached 290,490 acre feet—approximately half maximum capacity—at the end of the year.
Construction of the 160-mile Friant-Kern Canal of the Central Valley project remains at a standstill. An application for clearance is pending before the War Production Board.
Bureau of Reclamation ■ 21
With War Production Board authorization under the war food program, granted on September 8, 1943, construction was resumed on the Modoc unit of the Klamath project (Oregon-California). On June 23, 1944, the War Production Board approved construction of the extension of this unit.
Region II is featured prominently in the Reclamation postwar inventory. Twenty-nine projects, which would serve 1,281,500 acres of new land and provide supplemental water to 3,485,000 acres now inadequately served are contemplated. Power installations on authorized projects would be increased by 446,500 kilowatts and an estimated 288,900 kilowatts of firm capacity would be provided on projects under study. The over-all cost of the postwar program in this region, on the basis of 1940 prices, would be $551,360,000.
Region III
With more than half the electric power produced by Reclamation power plants on projects in 12 States coming from Bureau installations within its boundaries, Region III was outstanding as a contributor to the prosecution of the war. This region includes nearly all of the State of Arizona, Southern California, and small portions of Nevada, New Mexico, and Utah.
Approximately 7 billion kilowatt-hours of energy were generated during the year. More than 50 percent of all the power used by the war industries of Southern California, southern Nevada, and Arizona was produced by Bureau generators in this area. These are located on five projects: Yuma and Salt River (Arizona) ; Boulder Canyon (Arizona-Nevada); Parker Dam (Arizona-California) and All-American Canal (California). After the -war, and as the need arises, the present installation can be doubled.
Although no capacity was added, the output of the Boulder Dam power plant, largest in the world, was increased by 20 percent over the preceding year. By increasing the production of its generators, the output was brought to a new high of 6% billion kilowatt-hours. Revenues from the sale of this energy and for generating charges totaled $8,162,422.86. One-fourth of the plant’s production was consumed by a huge magnesium plant nearby. A new 82,500-kilowatt generator is scheduled to go into operation in September 1944.
Region III also contributed heavily toward the Nation’s war food supply. The 744,380 acres of land served by Reclamation facilities produced crops having a gross value of $109,371,178—an all-time high for the area.
Twenty-three of the projects in the postwar inventory are located in this region. The over-all cost of constructing these developments, on the basis of pre-war prices, is estimated at $720,015,000.
22 • Report of the Secretary of the Interior
Three of the projects have been authorized for construction, namely: Boulder Dam, with 287,500 kilowatts additional power capacity remaining to be installed, the Mesa Unit of the Gila project (Arizona), to provide water for 33,000 acres of new lands, and the All-American Canal (California) from wdiich 400,000 acres of new lands may be irrigated and 20,000 provided with supplemental water.
Construction of a fourth project, Davis Dam, to provide river regulation and 225,000 kilowatts of power, was halted by the War Production Board late in 1942. Nineteen projects which will irrigate 454,235 acres of new lands, furnish supplemental water to 374,200 acres, and provide 1,099,200 kilowatts of firm power are under study.
Region IV
With large-scale construction halted or retarded by emergency conditions, project planning activities received major attention in region IV. This region includes practically all of the States of Nevada and Utah, the southwestern portion of Wyoming, and that portion of Colorado west of the Continental Divide.
Work was advanced on more than 25 individual projects and subbasins, with 6 reports completed and 14 reports nearing completion. The reports form the foundation for that portion of the reclamation inventory planned for region IV. The outline calls for the construction of 46 projects. These would serve 313,790 acres of new land, provide supplemental service to 684,940 acres, make available 8,600 kilowatts of new energy on authorized projects and 148,000 kilowatts of firm power capacity on proposed developments. On the basis of 1940 prices, the estimated construction cost is $237,603,000.
Construction continued during the year on four projects. Conscientious objectors aided in constructing a medium-sized dam on the Mancos project (Colorado). The Newton Dam on the Newton project (Utah) was practically completed, and work was advanced on the Scofield project (Utah). Sufficient work was completed during the past 2 years on the canals of the Provo River project (Utah) to provide supplemental water in 1943 to more than 25,000 acres of highly developed lands and serve an industrial supply to the new $200,000,000 Geneva Steel plant near Provo, Utah. Progress was also made on the Salt Lake Aqueduct of the Provo River project to make additional water available to Salt Lake City.
Region V
Planning for postwar construction received primary consideration in Region V. In this region, comprising all of Texas and Oklahoma, that portion of New Mexico east of the Continental Divide, the southeast quarter of Colorado, and the southern half of Texas, 2 projects
Bureau of Reclamation • 23
are in operation, 3 under construction, 3 authorized, and 26 are under study.
More than 2,653,000 acres of land are now irrigated in the area; 194,000 of which are included in Federal reclamation projects. Construction of 30 projects outlined in the postar inventory would provide an irrigation water supply for 637,310 acres of additional land and furnish a supplemental supply of 1,615,980 acres now partially irrigated. About 18,000 kilowatts of additional electric power could be installed on authorized projects and 36,000 kilowatts of firm capacity made available on proposed developments. Total construction costs, based on 1940 prices, are estimated at $296,786,000.
Construction was in progress, under the war food program, on the Tucumcari project (New Mexico), and the Altus project (Oklahoma). Work on both was suspended by the War Production Board in December 1942. In April 1944 both projects were cleared for war food construction. Development plans for the Tucumcari project call for 17,000 acres to be brought into production by 1945, with additional acreages subsequently. The Altus project by 1945 is to provide irrigation service to 20,000 acres and a domestic water supply to the city of Altus. It is scheduled to serve an additional 20,000 acres in 1946.
The three projects authorized are Valley Gravity Canal and Storage project (Texas), San Luis Valley project (Colorado), and the Balmorhea project (Texas). The latter was approved by the President in May 1944, and construction work will be begun as soon as negotiations for the purchase of additional water rights and for repayment contracts are completed. Construction on the Valley Gravity and San Luis Valley was halted by the War Production Board.
Region VI
The Bureau of Reclamation’s project planning activities in the West drew national recognition in the fiscal year because of the accomplishments in this region. Completed here was a comprehensive report on the conservation, control, and use of the water resources of the entire Missouri River Basin, one of the Nation’s greatest drainage areas.
Region VI includes the States of North Dakota, South Dakota, Nebraska, the northern half of Kansas, northeastern Colorado, all of Montana east of the Continental Divide, and a major portion of Wyoming.
The investigations report was the culmination of more than 5 years of planning work. It was presented to Congress early in June 1944, and bills were introduced in both houses that would authorize the construction of the initial stages of the development planned.
24 • Report of the Secretary of the Interior
Constituting a major item in the Bureau’s postwar outline, the report proposes the irrigation of 4,760,000 acres of new land, the construction of about 90 multiple-purpose reservoirs, 16 power plants with a total installed capacity of 723,500 kilowatts and interconnecting transmission systems, flood control for the lower reaches of the Missouri River and many of its tributaries, and a sustained flow for navigation from Sioux City to St. Louis.
The estimated total construction cost of the entire program is $1,250,-000,000, and the initial developments recommended for construction would involve an expenditure after the war, of approximately $200,-000,000, for the irrigation and power features alone.
Completion on June 10, 1944, of the excavation of the 13.1-mile long transmountain tunnel of the Colorado Big-Thompson project through the Rocky Mountains to carry supplemental water from the west to the east slope was the most important construction achievement of the year in this region.
Bureau of Reclamation • 25
g i
1
co
H
Special Warren Act contractors	if Ph	4, 590 1,816 272 19, 516 50, 614	1 1	: i : ig- :g§ ; i i i h' i-!' i iiii : i iiii i :	6_ _ ?9t_‘ZI___	98, 387
	Irrigated farms 1	S : iBfeSS i : : u- । । oo i—* b- t—< 1 1 • M	! i i : :	ill		; HI’™Isa 1 IIII	1	1 IIII	1	I IIII	1	1	!cO	'CM	। l«	1	1 I^h-	1	1 1	1	1	22,890
Banks	Number of depositors	oofcto-co 1 Iks 1 oo-	ooofrCgcfHH- 1 1 oom o ^-Lh : : : : :				254,102
	Deposits	SBSeS s ls§3§ sssssS igggg §’gg‘gg 5^oopm§E£kSm>3	:
1	: : : : : : . ; : : : : : : : : : : : 1,11	1	1	OT	'	1	!	1	1	1	1	1	1	1	1	1 ! os ; i !	;	«2 ! ! § ! J ! ! ! !	!	' li lllih 1 <Pnosits Number of Irrigated Popula-
ber tion ber tion	ber p depositors farms1 tion
Supplemental storage projects
California______ All-American Canal:
Imperial Valley_______ 4,488	27,000	8	33,723	157	76	7	(3)	_________________________
Coachella Valley2_____ (3)	8,000	4	4,400	9	12	2	(3)	_________________________
Central Valley_________ 30	(3)	___________________________________________________________________
Colorado________ Fruitgrowers Dam_______ 75	(3)	________________________________________________________J----------
Pine River_____________ 325	1,288	5	1,047	20	12	1	400,000	500 _______________.
Idaho___________ Upper Snake River______ 1,143	4,816	16	9,460	23	30	3	2,460,000	6,342 _______________
Nevada__________ Humboldt_______________ 90	287	1	1,287	3	4	1	2,020,737	1,497 ______________
Truckee Storage________ 606	2,520	2	31,318	21	21	3 31,650,000	22,187 _______________
Oregon__________ Baker__________________ 40	160	1	8	3	0 ________________________________________
Burnt River____________ 118	460	8	1,875	8	4	1	336,000 _______________________
Deschutes (Central Oregon I. D.)	646	2,050	3	15,000	23	32	4	4,525,228	5,210 _______________
Stanfield______________ 161	484	1	500	1	3 ________________________________________
Westland_________________ 97	201	0	0	0	0	0	0	0	________________
Utah____________ Hyrum__________________ 516	1,520	3	3,730	5	6	0	0	0 ________________
Moon Lake_______________ 678	2,500	10	3,675	15	23	1	1,148,390	2,475 _________________
Ogden River___________ 1,100	4,300	8	78,687	34	60	4	40,000,000	36,000	________________
Provo River (Deer Creek division).....^____________ 1,260	3,000	5	37,200	24	47	6	17,366,340	14,262	_______________
Sanpete_________________ 257	1,086	2	2,933	5	4	1	800,000	900	________________
Weber River___________ 3,000	15,000	21	26,706	31	26	8	50,000,000	40,000	________________
Subtotals__________ 14,630	74,672	98	251,549	382	360	42	150,706,695	129,373	______________
Water conservation and utilization
projects
Montana_________ Buffalo Rapids2________ 115	240	3	5,600	11	16	4	4,500,000	5,500 _______________
Eden____:______________	90	(3)	________________________________________________________-------
Grand total_________________________ 68,230	252,663	338	906,345	1,207	1,514	139 517,902,174	388,975 _____________
--- ■ .. - ■■ . ...... --------------------------------------------------- — ....
Farms furnished partial or whole water supply by Bureau-constructed works.
Estimated figures used.
Data not reported.
Bureau of Reclamation • 27
OPERATION AND MAINTENANCE ACTIVITIES OUTLINED
The operation and maintenance of irrigation systems constructed by the Bureau was directed towards assuring water supplies for more than 4 million acres of land and the protection of the Federal investment.
Supervision was given to 15 projects or completed portions of projects operated in their entirety by the Bureau, and to the dams, reservoirs, and other reserved works on 6 other projects. Administration also extended to 26 projects or portions of projects where operations are conducted by water users’ organizations under contract with the United States. Approximately 120 separate water users’ organizations on these projects have contracts with the Federal Government.
Settlers Given Aid and Advice
Maximum war food production through improved farming methods was one of the year’s prime objectives for the Branch of Operation and Maintenance. Settlers were assisted in effectuating up-to-date practices in the proper utilization of land and water both by regular Bureau employees and by assistant county agents of the Extension Service of the Department of Agriculture, under a Memorandum of Understanding, dated June 12,1940. The work performed included assisting landowners and water users in laying out and constructing farm irrigation systems, preparing land for irrigation, rendering advice in the economic use of water, alleviation of seepage conditions, and control of noxious weeds.
Considerable educational material was prepared and disseminated, including slide lectures and films designed to assist farmers in the development of pastures, measurement and proper use of irrigation water, and weed control.
Soil and Conservation Program Continued
Extensive field work in the lining of canals to conserve water and prevent damage to irrigable lands by seepage was carried on under the Soil and Moisture Conservation program. Asphalt and bentonite linings were installed and tested from the standpoint of design, placement, effectiveness, and cost, and results compared with standard concrete and earth linings. Other activities included: Prevention of canal bank erosion by vegetative plantings, investigation of methods to reduce siltation of canals and reservoirs, drainage work to relieve seeped land, installation of accurate devices for measurement of irrigation water, and studies of the requirements for and application of irrigation water by reason of relative impermeable characteristics of some soils.
Million Acres of Withdrawn Land Restored
More than a million acres of land, most of which was public land withdrawn by the Bureau in connection with completed or partially
28 • Report of the Secretary of the Interior completed projects or projects under investigation, were restored to entry during the fiscal year.
Approximately 929,500 acres of public land were under lease during calendar year 1943; 688,000 acres for grazing purposes, 53,500 for agricultural uses (8,500 more than in 1942), and 188,000 for other special uses, including the areas reserved for Japanese evacuee centers. Some additional lands were leased early in 1944 for expanding livestock and farming operations to increase food production. Reclamation land temporarily transferred to the Grazing Service to provide for efficient range administration under the Taylor Grazing Act was reduced by the vacation of reclamation withdrawals and by transfers to the War Relocation Authority for Japanese encampments.
Amendatory Contract Negotiations Advanced
Under the Bureau’s reorganized plan of procedure, active progress was made at the close of the fiscal year toward completion of negotiations of amendatory repayment contracts with a number of water users’ organizations. To date eight contracts have been executed. A contract negotiated with the Klamath Drainage District of the Klamath project (Oregon-California) was approved by Congress on June 17, 1944. Power features contained in several agreements were given special attention.
Reclassification of irrigable lands under provisions of the 1939 Act was completed or in progress on approximately 298,000 acres on 14 projects or divisions of projects.
Requests for Relief Continue to Decrease
With farm incomes in 1942 and 1943 at high levels and prospects good for continuing high returns in 1944, requests and authorizations for temporary relief from the payment of accrued construction charges dropped to new lowTs during the fiscal year. Applications, in the amount of $108,092.33, were submitted by eight water-users’ organizations. Relief totaling $21,916.44 was granted to four applicants.
In comparison, applications totaling $189,922.44 were received in the fiscal year 1943 from six water-user groups and seven individuals. Relief in the amount of $24,530 was authorized.
NEW LEGISLATION ADVANCES RECLAMATION
Three major items of legislation affecting Reclamation activities were enacted during the year. The Water Conservation and Utilization (Wheeler-Case) Act was amended, construction of the Hungry Horse Dam (Mont.) was authorized, and Congress gave its consent to rhe Belle Fourche Compact.
Bureau of Reclamation • 29
Amendments to Water Conservation and Utilization Act Passed
To provide for a quick expansion of potential food-producing acreages on projects in the process of construction under the Water Conservation and Utilization Act of October 14, 1940 (54 Stat. 1119), Congress amended this legislation on July 16, 1943 (Public, 152, 78th Cong., 1st Sess.).
The amendments authorize the expenditure of appropriated funds for construction in lieu of nonreimbursable money or services formerly contributed by the Work Projects Administration and the Civilian Conservation Corps, which were disbanded early in the war. The original Act has as its objective the stabilization of agriculture and employment in the Great Plains and other semiarid areas to the westward which are most seriously affected by periodic droughts.
Congress Gives Consent to Belle Fourche Compact
The long-standing controversy between the States of South Dakota and Wyoming over the division of waters of the Belle Fourche River was brought to an end in February 1944, when Congress gave its consent to the Belle Fourche Compact.
The legislation clears the way for construction of works to provide supplemental storage for irrigation projects in South Dakota and also storage for potential projects in Wyoming. Incorporated in the compact is a provision giving Federal recognition of water rights as against an assertion of power under the Commerce Clause of the Constitution. It requires the Federal Government to respect established water rights as property and to consult with State officials with respect to specific Federal programs or projects.
Hungry Horse Dam Approved as Postwar Project
Construction of Hungry Horse Dam, a major feature of the comprehensive plan for multiple-purpose development of the Columbia River in the Pacific Northwest, was authorized by Congress on June 5, 1944 (Public, 329, 78th Cong., 2d Sess.). This structure, to be erected 4 miles above the confluence of the South Fork and Flathead Rivers in Montana, is a prominent item in the Bureau’s inventory of irrigation and multiple-purpose projects for postwar construction. It would increase the firm power output of Grand Coulee and Bonneville Dams through regulation of the flow of the Flathead River. The act also authorizes an irrigation development in the vicinity of Kalispell, Mont.
Bureau Preparing Veteran Settlement Legislation
Drafting of legislation which would make homesteads available on Reclamation projects for returning servicemen after the war, in con-617248—45-------5
30 • Report of the Secretary of the Interior
junction with the Bureau’s postwar construction program, was well advanced at the end of the fiscal year. Under tentative plans, the settlement program would be handled by the Department of the Interior in cooperation with the agencies that are charged directly with the administration of veteran affairs. The Bureau’s legal staff is engaged in preparing a report on and drafting amendments to H. R. 3179, introduced by Congressman Murdock of Arizona, which would provide opportunities for veterans to reestablish themselves on irrigated farms.
Seek to Amend Project Act of 1939
Pending before Congress was legislation which would amend Sections 4, 7, and 17 of the Reclamation Project Act of 1939. The principal objective of the bill, reported out by the Senate Committee on Irrigation and Reclamation, is to extend the time within which amendatory contracts may be made to December 31, 1950, or 5 years after the end of the war, whichever period is the longer. With additional personnel available in the postwar period, it is expected many amendatory contracts can be negotiated. Relief provisions of the Act would also be extended by the measure.
BUREAU DECENTRALIZATION EFFECTUATED
Decentralization of the Bureau of Reclamation through the establishment of six regional offices and five administrative branches in Denver, Colo., the objective of which was to “streamline” the organization for greater efficiency in meeting war and postwar problems, was effectuated during the fiscal year.
Six outstanding Bureau officials were placed in charge of each region as Regional Directors of Reclamation, and five others, experienced in their respective fields, were named to head the branches. These are: Design and Construction, Project Planning, Operation and Maintenance, Fiscal and Administrative Management, and Power Utilization. Regional offices were established in Boise, Idaho; Sacramento, Calif.; Boulder City, Nev.; Salt Lake City, Utah; Amarillo, Tex.; and Billings, Mont.
The Regional Directors are responsible for coordinating all Bureau activities within their regions, and they report directly to the Commissioner. They have extensive latitude for independent action. Assistance in technical phases of their work is provided by the Branch heads.
On the basis that the improved organization would provide added protection of the Federal investment in irrigation and multiple-purpose projects, and that it was essential because of the Bureau’s greatly expanded activities, nonreimbursable funds were sought for the cost
Bureau of Reclamation • 31
of administration, without success. Further efforts to obtain these funds will be made in fiscal year 1945, with continued emphasis to be placed on the fact that the decentralization extends a significant portion of the Commissioner’s function (the cost of which is nonreimbursable) to the field.
Military furloughs, resignations, and transfers reduced the number of Reclamation employees from 6,543 on June 30, 1943, to 6,513 on June 30, 1944. Twenty-one Washington employees and 1,643 field employees were in the armed forces of the United States. Twelve have given their lives and 2 are missing.
The number of persons employed in the various Bureau activities were: Commissioner’s office, 98; branch offices (Denver Colo.), 820; legal office (Denver), 13; Region 1, 1,733; Region 2, 833; Region 3, 1,050; Region 4, 312; Region 5,1,109; Region 6, 545.
During the year the number of field offices, exclusive of headquarters for project planning work, was reduced from 54 to 50.
Commissioner and Two Assistants Appointed
Harry W. Bashore, Assistant Commissioner of Reclamation since May 27, 1939, and for more than 37 years a Bureau employee, took office as Commissioner on August 3, 1943, upon appointment by the President. He replaced John C. Page, who resigned in June 1943 because of ill health. Mr. Page had served as Commissioner since January 25, 1937.
Secretary of the Interior Harold L. Ickes appointed two Assistant Commissioners during the year; namely, William E. Warne, former Chief of Information for the Bureau, and Kenneth Markwell, former Regional Director of the Federal Works Agency. Mr. Warne took office on August 9, 1943, and Mr. Markwell on April 18, 1944.
Reclamation Fund Accretions
In the 42 years of the Bureau’s history, the accretions to the Reclamation fund have totaled $220,910,306.02. (See table 4.) These have come from the sale of public lands, proceeds from the Oil Leasing Act, from Federal water power licenses, potassium royalties, and rentals and receipts from Naval petroleum reserves from 1920 to 1930 under the act of May 9, 1938. Collections—construction and operation and maintenance repayments, water rentals, power revenues, etc.—have totaled $159,748,056.18.
Disbursements during that period have totaled $349,523,020.29, leaving a balance in the fund on June 30, 1944, of $31,135,346.91. Repayments of construction charges to the Reclamation fund during the fiscal year 1944 totaled $400,000,000. Operation and maintenance collections amounted to $1,400,000, and water rental, power, and other receipts aggregated $6,000,000.
32 • Report of the Secretary of the Interior
The total collections reflect the improved financial condition of Reclamation farmers and their continued response to the President’s anti-inflation policy by maintaining a good record of repayments. The high level of the Reclamation fund provides resources for the extension of irrigation investigations and for the extension of irrigation systems when the resumption of construction is possible.
Table 4.—Accretions to reclamation fund by States
1	Proceeds for fiscal year, $33,282.98.
2	Proceeds for fiscal year, $286,298.75.
Federal Investment Exceeds $900,000,000	«
The Federal investment in Reclamation since June 17, 1902, when the Reclamation law was approved, topped the $900,000,000 mark in 1944. Expenditures for construction on all projects during the 12-month period totaled $51,665,144.79, bringing the total Federal outlay under Reclamation to $921,770,619.71. (See table 5, p. 34.)
Despite the war restrictions on materials and manpower, progress was made on the construction of irrigation systems under the war food program. While clearances from the War Production Board were not available sufficiently early in the fiscal year to complete war food schedules as planned, the Bureau of Reclamation was able to lay the groundwork for more rapid construction during the fiscal year 1945 and 1946.
	Sale of public lands		Proceeds from Oil Leasing Act		Total to June 30, 1944
	Fiscal year 1944	To June 30, 1944	Fiscal year 1944	To June 30, 1944	
Alabama	 Arizona	;	 California	 Colorado	 Idaho	 Kansas	 Louisiana	 Michigan	 Mississippi	 Montana	 Nebraska	 Nevada		 New Mexico	 North Dakota	 Oklahoma		 Oregon	 South Dakota		 Utah	 Washington	 Wyoming	 Total	 Proceeds, Federal water power licenses	 Proceeds, potassium royalties and rentals	 Receipts from naval petroleum reserves, 1920 to 1938, act of May 9, 1938	 Grand total					$2, 766,339.36 8, 304,067. 54 10,326, 330. 20 7,058,097. 58 1,033, 601. 40 15, 388,624.90 2,097, 698. 70 1,042,345.90 6,	742,810. 30 12,219,646. 27 5,931,145. 58 11,995,324.73 7,	733,675.48 4, 397, 539.48 7,475,102.22 8,	722,080.55 113, 234,430.19 113, 234,430.19	$31.76 1,197. 65 1, 473, 572. 47 131,696.11 63.01 596. 24 9,454.01 1,010. 36 156, 372.30 21.00 8,541.57 747, 899. 95 18,856.49 1,157. 75 98.30 5, 529.35 162,673. 69 1, 296. 25 1,178, 712. 22 3,898, 780.48 3,898, 780.48	$197,635. 78 7, 501. 60 23,195,923. 94 1,236,483. 51 22,437. 94 10,803.06 342,050. 77 1,066.81 110. 25 1,788,360. 91 351. 75 14, 733.55 4,966,805.38 278,050. 99 8,327.07 1,055.58 24,826.07 1, 294, 669. 49 45,270.96 41,822, 755. 37 75, 259, 220. 78 75, 259, 220. 78	$197,635. 78 2, 773,840.96 31,499,991.48 11,562,813.71 7,080, 535.52 1,044, 404.46 342,050. 77 1,066.81 110. 25 17,176,985.81 2,098,050.45 1,057,079.45 11,709, 615. 68 12,497,697. 26 5,939,472. 65 11, 996,380. 31 7,758, 501. 55 5, 692, 208. 97 7,520,373.18 50,544,835.92 188, 493,650. 97 1 960, 590.86 2 1,677,763.96 29, 778,300. 23 220,910,306. 02
Bureau of Reclamation • 33
The funds available for advancing power installations under the war power program enabled the Bureau to increase substantially not only the Federal investment in power facilities on reclamation projects, but to provide facilities, through additional storage and generating equipment, that are providing revenues for assisting in financing the cost of irrigation systems.
The importance from a financial standpoint of the power installations on Reclamation projects is illustrated by preliminary studies which indicate that about 50 percent of the repayable costs of the entire reclamation construction program as laid out at the beginning of the war, will come from power revenues. Approximately 45 percent of these costs will be repayable by irrigation water users, and the remaining costs will be allocated to nonreimbursable purposes such as flood control, navigation, and contributed labor, or will be repayable by municipalities for supplemental water supplies.
The Congress appropriated $18,907,200 for construction of irrigation facilities during the fiscal year 1945. The total unexpended balance for construction purposes of all kinds brings to $80,628,000 the total funds available for this activity by the Bureau of Reclamation during 1945.
Control over the construction of irrigation, power, and other facilities remained in the hands of the War Production Board. Construction of irrigation facilities is recommended to the War Production Board by the War Food Administration, and the construction of power facilities is subject to the direct consideration of the War Production Board.
—
34 • Report of the Secretary of the Interior

Table 5.—Consolidated statement by projects of construction cost of irrigation works, other items reimbursable with construction, and amounts repayable
O Deration and main Operation and main- Construction revenues,
Construction cost	tenance before pub- tcnance deficits ar- contributed funds, Abandoned Total repayable
lie notice (net')	rearages and penal- and nonreimbursable works, non-
State and project	ties	appropriations reimbursable
_____ . ___________________________________________________________cost and____________________ authorized
Fiscal year To June 30, Fiscal To June Fiscal To June Fiscal To June 30, charge-offs Fiscal year To June 30, 1944	1944 year 1944	30, 1944 year 1944	30, 1944 year 1944	1944	1944	1944
Regular projects
Total__________$25, 610,932.25 $512,749,282.48 $44,027. 77 $3,401,525.89 $42,121. 52 $9,372, 781.44 $617, 518. 50 $16,883,688.99 $17,131,187.06 $24, 995,320. 00 $491,508,713.76
Operation and main-
tenance during con-	Construction revenues	Net construction cost
Water conservation and	struction
utilization projects ______________________________ ________________________________________________________
Total__________ $1,111,744.24 $6,665,867.94 $1,428.73	$41,124.54 _ $758.28	$1,423.35 _____ $1,112,414.69 $6,705,569.13
Special projects
Colorado River Dam
fund:
All-American Canal. $126,444.97 $31,971,269.61 _______ .	..... ... ................ . .. ............
Boulder Canyon_ 1,613, 339.16 141,213,694.34 _______________________________________________________________
Davis Dam______ 2,248,737.81	3,301,997.66 _____________________ ..	____
Parker Dam___	44,888.08	6,823,943.39 _____________________I____________________ .	________
Parker Dam power..	1,082, 545. 75	14,771,153.63 ____________________________________________________________
Montana: Fort Peck...	84,945.78	87,003.47	____________________________________________________________________
Texas: Colorado River.	102,789.24	23,642,396.02 ______________________________________________________________
Washington: Colum-
bia Basin.... 19,891,667.45 180, 544,011.17 _I____,__________________________________.’.____________________
Total______ 24,942, 468.30 402,355,469. 29 _______________________________________________________________
Grand total_ 51,665,144.79 921,770,619.711___________ _ ...
___________________________________|__________________________________________________________________________
♦

Division of Power
Arthur Goldschmidt, Director
AFTER the war the problem of how to cope with abundance will beset our economy all along the line, and unless it is solved, will threaten the development of vital irrigation and flood control works dependent upon the Midas touch of power. Power facilities that were hastened to completion for war production must not remain idle to block further multiple-purpose water conservation needed throughout the Nation. Hydroelectric power cannot stagnate without dire results any more than manpower can. If it is unemployed the men and the capital that it supports will be unemployed also.
The country expects this Department to take the initiative in averting such a catastrophe, and quite naturally. We operate the largest aggregate of hydroelectric capacity in the world. We also market power which is generated at dams that are operated by the United States Army Corps of Engineers. The generating plants from which the Department of the Interior markets power produced 17.6 billion kilowatt-hours of energy during the fiscal year, as compared with 12 billion kilowatt-hours last year. As the year ended the total capacity of Department plants in operation amounted to 2,(95,000 kilowatts. Other units now being tested will increase this total to more than 3 million kilowatts—an amount of energy sufficient to supply three cities the size of greater New York. And the Rivers and Harbors bill and the Omnibus Flood Control bill, both pending, would authorize the Secretary of the Interior to market, in addition, all the excess power which would be generated by these new projects that are to be constructed by the War Department.
Consequently, this Department has prepared to undertake the task of employment agent to find jobs for power after the war. The job can be simply stated, but it is not simple. We know that a lot of power will be needed in the West, but power works under contract, and in order to prepare for contracts we must know accurately how much power is to be delivered, and precisely where. Approximately how much and
35
36 • Report of the Secretary of the Interior
approximately where within half a continent will not do. And the answer to these questions depends on the answers to innumerable others that stem from one big question—what kind of world will the postwar world be ? How can more power be employed on the farm, in the home and in the factory ? How fast will we fill back orders for such familiar things as radios and refrigerators? What now-unfamiliar things will become as commonplace as bathtubs ? What will these necessaries be made of ? From what base will we extract the raw material ? At what rate will they be manufactured? How will altered transportation practices affect certain sections? These and a book-length roster of other questions must be answered before we can know where there will be jobs for power, and for how much power, after the war.
Numerous inquiries have been launched in an effort to acquire the needed information. The power selling agencies of the Department have pursued some of our studies in collaboration with other Federal agencies, or with State or municipal research organizations. We do not pretend to have found the unalterable answer to many of our questions, but our inquiry has been profitable because we have found some reliable clues to what the answers will be when they are found, and we have placed ourselves in a position to be among the first to get the facts when they are established. Also, our work has done more than merely provide guidance for the Department. We have given much assistance to industries, power distributors and to congressional committees and to individual members of Congress.
Among the post-war power planning activities of the Department in which the Division has participated are the following:
General.—The Division has worked with the war agencies on the problem of disposition of war power plants. Some of the large military establishments, constructed during the last few years, have been so located or have required electric power in such quantities that it has been necessary to provide fuel-operated generating plants to serve them. During the past year the Division has initiated discussions regarding the acquisition by the Federal power agencies of those plants which the armed services will not need after the war, as a means of supplementing and firming the power which is now generated at federally owned plants. Such coordination of Government facilities will result in better operations, sounder financial arrangements and lower rates. In many instances such fuel-operated plants can provide needed peaking or standby power which is now being purchased by the Government.
Central Valley project.—The Division participated in studies being conducted by the Department to work out the pattern for the administration and the extension of the multiple-purpose development in the Central Valley and to determine the best method for making available to the people of California its maximum benefits at a minimum cost.
Division of Potver • 37
Members of the staff participated, as committee members, in the discussions and studies of 13 of the 24 problems into which the study was divided. These problems included the use of Shasta power for war production, the scheduling of construction features, the reconversion of war plants in the area, the extension of the project to provide additional post-war opportunities, the allocation of cost on the project, and the power policies to be effectuated. Some of the reports resulting from these studies were completed during the year.
Missouri River development.—The Division reviewed programs for the development of the resources of the Missouri River Basin, prepared by the Bureau of Reclamation and the Corps of Engineers, and undertook independent studies looking toward the coordination of the several interests involved in this development. The problem of a unified development on this major stream is being given close consideration.
Pacific N orthwest.—The Division participated in discussions and reviewed proposals regarding further development of the Columbia River and its tributaries. These efforts cover the economic development of the area as well as proposals directly concerned with specific river structures, and have as their objective the establishment of a diversified industry as the basis for a more self-sustaining and self-reliant region following cessation of specialized war activities. The Director of the Division, representing the Secretary of the Interior on the Bonneville Advisory Board, participated in the consideration of the problems of securing upstream storage on the Columbia and in the review of the studies of the Administration with respect to the development of industrial opportunities in the Northwest.
Colorado River area.—The Division engaged in a study of the further development of the Colorado River, and of the opportunities for marketing additional power in Arizona to assure this State its share in the resources of this stream, integrated with development of the Pacific Southwest as a whole. Studies of the relationship between the Salt River Valley Water Users’ Association of Arizona and the United States and its effect upon post-war marketing possibilities were made in cooperation with the Bureau of Reclamation. The studies included the possibility of integrating these power facilities with the Colorado River power plants to produce a unified operating system, and make possible lower power rates.
ESTABLISHMENT OF SOUTHWESTERN POWER ADMINISTRATION
The work of the Division of Power, which is charged with supervising and coordinating all of the power activities of the Department, continued along the lines that have been dictated by the market
38 • Report of the Secretary of the Interior
ing problems resulting from increased tempo of war operations, as well as the concern for post-war conversion and expansion.
The principal work in the field of operations which confronted the Division during the year was the establishment of the Southwestern Power Administration. This agency was created along the lines of the Bonneville Power Administration to market power from dams in Arkansas, Texas, and Oklahoma. By Executive orders of the President, under his war powers and as a war measure the Pensacola Dam of Oklahoma’s Grand River Dam Authority, previously taken over by the Government under the Federal Power Act, was turned over on September 1 to the Department of the Interior for operating purposes, and the Department was also designated as the agency to market the power to be generated at the Norfolk and Denison multiple-purpose dams, then rapidly being completed by the Corps of Engineers of the United States Army. The initial installations at these three dams total 130,000 kilowatts. They may ultimately have a combined total capacity of 320,000 kilowatts. The task of setting up the Southwestern Power Administration was undertaken directly by the Division of Power, which handled negotiations with other Federal agencies, helped to formulate basic policies and operating procedures, reviewed recommendations for key personnel, supervised the preparation of operating budgets, accounting procedures and negotiations and reviewed contracts for the sale of power from the three dams.
Rates and Rate Schedules
Rural Electrification Administration financed projects.—Rural residents served by Rural Electrification Administration financed power distributing projects have been benefited by the rapidly growing power developments of the Department through the availability of abundant power at low rates. Thirty-seven Rural Electrification Administration financed distributing agencies are being supplied directly with energy from facilities under the supervision of the Department at rates ranging down to 2.7 mills a kilowatt-hour.
Reduction in rates to these units, made possible by direct service from Department plants, have ranged from 3 to 27 percent in the case of four projects in the Wyoming-Colorado area, and from 15 to 20 per cent in the case of those projects which were served by the Bonneville Power Administration. In addition, one of the conditions of the sale to a private power company in Texas of power from the Denison Dam assured the continuation of low rates to fifteen Rural Electrification Administration projects that are served by that company as long as the Denison power is available.
Division of Power • 39
General.—Recent major rate studies reviewed by the Division included those covering proposed rates for power from Fort Peck Dam, the general rate revisions of the Bureau of Reclamation covering its Wyoming installations, the establishment of an irrigation pumping rate in Arizona by the Bureau of Reclamation and the establishment of new rates by the Bonneville Power Administration. Current studies include possible additional rates for industrial purposes by the Bonneville Power Administration and rates for the sale of power from the Denison and Norfork projects by the Southwestern Power Administration.
Contracts
Important contracts for the sale of power are reviewed by the Division before execution, in order that a uniform Departmental policy with respect to power sales may be maintained. Although the Division does not generally participate in the negotiations of power contracts, the services of the staff of the Division are made available to the negotiating agency in special circumstances. For instance, during the year the staff of the Division has participated in negotiations of the Bureau of Reclamation (a) for the sale of Central Valley project power to the Pacific Gas & Electric Co. as a wartime measure, (&) for the sale of Fort Peck project power to the Montana Power Co. as a wartime measure, (c) for the sale of Fort Peck project power to the Montana-Dakota Utilities Co. on a long-term basis, and ( Act petroleum	Okla. statlons pa.	tion
Office of the Directort----.$28,951	$598 ----------------------------------------------- $221 -----------...-----
Office of Minerals Reports_ 8,711	$22,989	$4,958	$9,726 $10,125	$9,608 --------- 7,404 ------ $653	$10,235
Total_____________ 28,951	9,309	22,989	4,958	9,726	10,125	9,608 ___________ 7,625 -----------653_____10,235
Administrative Service_ - 444,783	24,425	15,870	48,288	10,316	9,468	1,641 $21,906 --- 11,943 ----- 37,549	36,729
Mining and Metallurgical Serv-	on
iee__ _____________________________________________________________ 82,805 ___________ 19,924 _____________ 30,830
Central Region.	_	_	________________...______ 13,743 ----------- 35,447 ------------- 516,080
Eastern Region"™"""" —	40,787	12,831	3,391	1,647	18,376 115,541 ___ ____ 224,901 $134,205 ...-	827,936
Western Region________________________________________________ ______ 198,209 ---------- 296,305 ------------ 527,347
Fuels and Explosives Service:
Fuels Division___________ 103,726	16,879	6,524 .... 376,278	1,377 ----------- 611	4,577 ----- 28,047
Explosives Division______ 94,456 --------- 69,546 ----------------------------------------------------------------
Petroleum and Natural Gas
Division_____________________________________________________________ 542,550 $23,975 -...----------------------
Total___________________ 198,182	16,879	76,070 ______ 376,278	1,377 542,550 23,975	611	4,577 ----------28,047
Economics and Statistics	•
Service:
Coal Economics Division___________________________________________________________________________ 41, 077 -------
Foreign Minerals Division. ------------------------------------------------------------------------ 44,853 -------
Metal Economics Division------------------------------------------------------------------- ------- 115,691 ------
Mineral Production and
Statistics Division_____________ 19,189 --------------------------------------------------------- 153,809 -------
Nonmetals Economics Division_________________L________________________________-___________d--- -------------------------- 79,710 --------
Petroleum Economics Division__________________________________________-__________________________________________________ 56,017 --------
Total_____________________?_____ 19,189 j________________________________________________________ 491,157 -------
Bureau of Mines
97
Health and Safety Service:
Coal-Mine Inspection Division____________________________ 652,417 -------------------- —-------------------------'------------------------—
Safety Division__________ 397,002	19,755 ------------------------------------------------------------------------
Health Division__________ 58,236	47,680	365	2,099 ------------------------------------------------------
Mineral Protection Division_______________________________ 23 _____________ 362, 792 ---.------------------------------------------------.---
Explosives Control Division_______________________________________ 424, 575 -----------------------------------------------------------------
Total___________________ 455,238	719,875	424,940	364,891 ______________________________________________________
Total appropriations	75,265	735,700	817,880	565,000	400,000	415,000	440,000	568,380	30,000	629,500	138,800	571,650	2,000,000
Total expenditures___ 73,734	727,941	807,633	557,647	386,580	414,247	422,924	564,456	23,975	596,756	138,782	529,359	1,977,204
Balances__________ 1,531	7,759	10,247	7,353	’	13,420	753	17,076	3,924	6,025	32,744	18	42,291	22,796
98 • Report of the Secretary of the Interior
Table 2.—Bureau of Mines expenditures, fiscal year 1944—Continued
Tnwjtip-a	Investiga-
Construc- G	Produc- of	tion of de’	Protec- Reduc- Develoo.
tion and “d Manga- tion of lSuxi2e Magne- posits of Drainaee	Construe- tion of tion of t R
equip- %id nese alumina j sium critical and q™inage	tion and expen- zme processes
Division or service	meilt of fuel re- beneflc1’ from low’ alunite pilot essential	equip- mental concen- P
Division or service	electro. iueJre ation grade alunite plants mineralsin Lead produc ment of coal. trates to re
develop-	pilot bauxite	and re- the United	tlon helium mine with C0Z®^°£
mentlab- 0	° plants and alu- . search Statesand L'010’	plants property meth- Tn(,tpriflio
oratory ores	nite	its posses-	from ane gas materials
deposits	sions	mine fire
Office of the Director______________________•_____________ $487	’ $206 _________________________________________
Office of Mineral Reports_ $1,331	$5,091	$7,837	$943	$13,249	960	28,647	___________ $311________________________
Total_______________ 1,331	5,091	7,837	943	13,249	1,447	28,853	..__________ 311________________________
Administrative Service__ 364	15,183	26,824	18,432	28,476	10,515	76,899	$11,179	$25,756	37,487 ___ $703 ________
Mining and Metallurgical Service. 7,794 _ 9,921	7,696	18,486	78,618	121,592	3,166 ________________ 3,475 _______
Central Region_________________ 46,933	50,442	76,591 1,053,686	23,473	1,145,070 ______________________ 21,096 ______
Eastern Region_________________ 193,058	26,202	321,765	278,923	42,114	815,994 ____________________________ $15,352
Western Region__________ 331,255 108,145 710, 788	150,387	141,032	152,300	1,662,623 1, 363,674 ______________________
Fuels and Explosives Service:
Fuels Division_________________________________________________ 20,455 ______________________ $31,090 ____________
Explosives Division_______________________________________________________________________________________________
Petroleum and Natural Gas Division_________________________________.....________________ 10,058 ________ 1,035,667 1,032,409 ______________
Total_________________________________________________________ 30,513________ 1,035,667 1,032,409	31,090 ________
Economics and Statistics Service:
Coal Economics Division___________________________________________________________________________________________
Foreign Minerals Division________,________________________________________________________________________________
Metal Economics Division__________________________________________________________________________________________
Mineral Production and Sta-	•
tistics Division_____________________;___________________________________________________________________________
Nonmetals Economics Division________________________________________________________________________________■_____________________________
Petroleum Economics Division______________________________________________________________________________________________________________
Total____________________________________________________________________________________________________________
Bureau of Mines
99
Health and Safety Service:	I
Coal-Mine Inspection Division_____________________________________________ _______________________________________________________________________
Safety Division________________________________________________________________________________________________________________
Health Division_________________________________________________________________________________________________________________
Mineral Protection Division___________________________________________________________________________________________________’-----------
Explosives Control Division____________■__________________________________________________________________________________ZZZZZZZZZZ
Total______________________________________________________________________________________________________________________________________
Total appropriations--------- 342,164	400,000	900,000	590,000	1,543,000	375,000	3,900,000	1,400,000 3,047,600	3,423,706	45,000	242,400	75 OOC
Tota expenditures____________ 340,744	368,410	832,015	575,814	1,533,852	308,467	3,881,544	1,378,019 1,061,423	1,070,207	31,090	25,274	15,’352
Balances------------------ 1,420	31,590	67,985	14,186	9,148	66,533	18,456	21, 981 11,986,177	> 2,353, 499	13,910	217,126	59,648

7 . :
100 • Report of the Secretary of the Interior
_____________________________Table 2.—Bureau of Mines expenditures, fiscal year 1944—Continued
I	Emergency	Emergency
Experi-	Develop-	fund for the	fund for the Salaries
mental ment and Mainte President,	President,	and explant for	operation	national de-	national de- penses,	Printing
Division or Service	synthesis	of helium	n ”7;	fense (allot-	fense (allot-	Solid Fuels	and	Total
of motor properties f ment to In- ment to In- Adminis- lunas binding Benc
fuel, Pitts- (special 0 ° terior, Bu- terior, Of- tration for burgh, Pa. fund)	reau of flee of Secre- Wat-
Mines.) tary)
Office of the Director____________________________._______________________..._________________ $891 _________ $31,354
Office of Mineral Reports_....________________________________________________ $147 __________ 4,477 ________ 147,402
Total---------------------------------------------------------------------------147 ______ 5, 368 _______ 178, 756
Administrative Service____________)..______ $590 _____________________________ 1,096 _________ 6,378	$6,266	529,067
Mining and Metallurgical Service.______________________,__......_________ ...	_	384,307
Central Region-------------------------------------------------------------------------------- 2,027	.	2,984,588
Eastern Region--.^...._____________________________________________________________________ 1,947	..	3,074,970
Western Region-------------------------------------------------------------------------------- 5, 792 _______ 5, 647,857
Fuels and Explosives Service:	~	~
Fuels Division------------------ $927 ___________________ $3,756 ___________ 162,660 $571,216	13,589 .   1,341,712
Explosives Division__________________________________________________________________ 5, 967	4,025	______ 173,994
Petroleum and Natural Gas Division______ 52,884 _____________________________________ 1,452	2,102 ______ 2,701,097
Total-------------------------------927	52,884 _____ _____3, 756 _______ 162,660	578, 635	19,716 ______4, 216.803
Economics and Statistics Service:	'
Coal Economics Division...)_________________________________________________ 126,123 _______ 369	____ 167,569
Foreign Minerals Division_______________________I___________________________________________ 53 ___________ 44,906
Metal Economics Division_____________________________________________________________ 117,075	1,512	.2. . __	234,278
Mineral Production and Statistics Division__________________________________________________ 32, 278	I”.	205,276
Nonmetals Economics Division____________________________l____________________________ ._____ 950 "	80,660
Petroleum Economics Division___________________________________________________________1____ 145 __________	56,162
Total--------------------------------------------------------------------- 126,123	117, 075	35,307 ____ 788,851
Health and Safety Service: Coal-Mine Inspection Division______________________________ $32,512	.	3,865	688,794
Safety Division---1------------------------------ $12,487	116 ________________ 1,645	430,999
Health Division----------------------------------------------------------- .	800	109,180
Mineral Protection Division_________________________________________ _	_	362,815
Explosives Control Division_______________________________________________________1ZZZZZZZZZ ”””””	424,575
Total--------------------------------- -------- 12,487________110_____32, 512 ____________ 6,310 ______...	2, 016,363
Total appropriations-------------- 1,027	344,626	12,500	5/738	35/192	359,668	954,926	85,000	67300	25,476,222
Total expenditures---------------- 927	53,474	12,487	3,866	32,512	290,026	695,710	82,845	6,266	19,821,562
Balances----------------------------100	> 291,152___13______1,872_____2, 880	69, 642 1 259, 216	2,155_34	5, 654, 66C
1 Available for expenditure in fiscal year 1945.
*>
Geological Survey
W. E. Wrather, Director
MODERN wars are not won by a single battle or even on a single front. Though each battle must be fought with vigor and the intent to win, the planning staff and the field command would indeed be short-sighted if they squandered on one engagement too much of their power in men and munitions. On the contrary, they must plan for an entire campaign, must hold in reserve the forces that will be required for other battles, and, by endeavoring to hold the initiative, must gradually evolve a broad strategic pattern that will lead to final victory. Both the intelligence service and the planning staff must focus much thought on future engagements far behind the enemy’s present lines.
The Geological Survey must endeavor to be similarly forwardlooking.
Of necessity, most of the Survey’s energy since Pearl Harbor has been devoted to immediate objectives—the many tasks that contribute directly to the winning of the war. Those tasks have included investigations, both in this country and abroad, of sources of the metals, minerals, and fuels that must be made available in seemingly endless amounts to provide the munitions and machines of war; the research for and preparation of confidential technical reports on foreign combat terrains, required by the military planning staffs and the fighting forces; the analysis of complex problems of water supply for military installations and for plants engaged in making the implements of war; and the mapping of millions of square miles in this country, in Alaska, and on other continents, to provide the countless maps needed by the armed forces and by our military and commercial planes in world-wide air-transport service.
However, the Survey has endeavored to plan and execute its work in such manner that the results would not only meet the day-by-day war
101
102 • Report of the Secretary of the Interior
demands but would also be of greatest usefulness in the campaigns yet to come. Its engineers and scientists must be, and within the limits of its present means are, an “intelligence service” for the far-sighted gathering of basic information needed now and in the future by the Nation’s “planning staff,” both governmental and private.
To achieve an enduring peace this Nation is pouring out its wealth of manpower and resources without stint or hesitation. When peace comes this country must assume its part in rebuilding a war-torn world. Even now, Federal and State Governments and industry are devoting serious thought to plans for demobilization, reconversion, and post-war development. For the conception and perfection of sound plans, as well as for the later successful accomplishment of many public and private development projects, those planning agencies must have access at the earliest possible time to all needed information on our mineral resources, which have been seriously depleted by war demands; on the flow of rivers and the amounts of surface and underground waters that can be made available for municipal and industrial uses and for irrigation, flood-control, and power projects; and on the nature of the terrain as shown with engineering accuracy on detailed topographic maps.
The gathering of such information and the preparation of reports and maps are functions of the Geological Survey. Much material is already available through the work of earlier peacetime years; other material has been gathered as a byproduct of its urgent war studies but is still largely undigested and not generally accessible; and many investigations and surveys remain to be made. If the planners for postwar reconstruction are not to be gravely handicapped but are to have the fundamental information available in time to be of value, the Geological Survey should be enabled to proceed at once with the full analysis and coordination of the data now in its files and with the most pressing of the additional investigations and surveys. To postpone these tasks until the end of the war would be extremely shortsighted, if not disastrous. They should be undertaken immediately, for they are fully as urgent and practical as the direct war jobs that must be continued.
GEOLOGIC BRANCH
During the past year the Geologic Branch has been fully on a war basis. For the duration this situation will necessarily continue, but it is essential that plans be prepared now to adjust the Branch’s work to assist in solving the problems that will face this country in the postwar period and to orient the war work, insofar as that is possible, in such ways as will permit its results to contribute also to the conversion period. The normal demand for minerals, greatly accelerated by war activities, has resulted in an alarming depletion of the supply of many of the basic materials upon which our economy is built. As the richer deposits of minerals are exhausted, more reliance must be
Geological Survey • 103
placed on exploration for deposits that are concealed or only obscurely indicated, on deposits of lower grade, and on improved technique in recovering those lower-grade materials. Industry is primarily interested only in those resources that can be exploited at a profit and in peacetime pays scant attention to large reserves of ores and minerals that are below commercial grade. Yet in times of national emergency these low-grade deposits may be the only available sources of vitally needed raw materials. It is a function of the Geological Survey to keep an inventory of all reserves of mineral commodities. During the year Survey geologists have completed the examination of many hundreds of deposits and made preliminary estimates of the national reserves of some 15 or 20 mineral commodities. This inventory should be kept current and broadened.
The rapid depletion of our supplies of petroleum, natural gas, and coal is a matter of grave national concern. The Survey, with its skilled force of geologists, paleontologists, chemists, and petrographers, is the organization best qualified to carry out basic field studies on the stratigraphy and geologic structure of large areas to discover and define those wherein it may be profitable to prospect for new supplies of mineral fuels. These studies should be still further expanded as promptly as possible.
War Minerals
For the 3 years prior to the summer of 1942, principal emphasis was placed by the Geologic Branch upon the search for and appraisal of domestic deposits of the metals and minerals originally classified by the Army and Navy Munitions Board as “strategic” and “critical.” With the success of the antisubmarine campaign through the winter of 1942-43 large imports of these commodities began to arrive regularly, and by the fall of 1943 the pressure for domestic production of some of them began to ease. It became apparent, however, that domestic reserves of some of the common metals were being seriously depleted, and geologic personnel was gradually shifted from work on some of the original “strategic” metal deposits to work in districts that held out hope for developing noteworthy new reserves of the common metals. Attention was focused on such zinc districts as Metaline, Wash., Pioche and Goodsprings, Nev., Eureka, Utah, southwestern Wisconsin, and eastern Tennessee, and on the copper districts in the Foothills Belt, Calif., Globe, Ariz., and Michigan. In most of these districts the Geological Survey’s work led to recommendations for exploration by the Bureau of Mines, which has been especially successful in Washington, Wisconsin, and eastern Tennessee. Work has been continued in many strategic metal districts to complete studies initiated earlier and .to obtain data currently desired by the war agencies, as in the southeastern and western manga
104 • Report of the Secretary of the Interior
nese districts; the Almaden and Oat Hill mercury deposits, California; the tungsten districts of Pine Creek, Calif., Mill City, Nev., and Yellow Pine, Idaho; and the vanadium districts of southeastern Idaho and Colorado-Utah.
The object in studying bauxite deposits has been twofold—to relieve the critical shortage of this, the only commercial source of aluminum, by aiding private companies in discovering and delimiting new areas, and to give an accurate appraisal of our resources so that they can be used more wisely in the post-war period as well as in the war emergency. Detailed surveys of areas containing bauxite were continued in nine areas in the Gulf Coastal Plain. Final reports, with geologic and prospecting maps, have been submitted for all these areas except Arkansas, where drilling and mapping is still in progress, and for part of Mississippi, a report on which is still in a preliminary stage. In Saline and Pulaski Counties, Ark., the cooperative drilling program of the Geological Survey and the Bureau of Mines during the fiscal year 1943-44 delimited more than 11 million tons of bauxite of commercial grade.
The search for sources of aluminum and magnesium covered the country from coast to coast and included studies of deposits of alunite, high-alumina clay, magnesite, dolomite, and brucite, in addition to the intensive work on bauxite. More than 250 pegmatite deposits containing sheet mica, beryllium, tantalum, lithium, and feldspar were examined in 13 different States, and recommendations were made to the Bureau of Mines for further exploration of a number of these deposits. Other nonmetallic mineral deposits studied included talc, graphite, salt, potash, asbestos, corundum, and quartz crystals.
Studies of iron-ore deposits were carried on in more than 50 separate areas in 20 States. Some of this work was done in cooperation with other Federal and State bureaus or at the specific request of other Government agencies. Work was carried ahead to obtain information that will be essential to insure a supply after the war, when deposits of inferior quality and small reserves may become producers. Investigations of districts in which appreciable reserves appear to be indicated included those made in the Iron River and Crystal Falls districts of Michigan, the Adirondack region of New York, and the Highlands region of New York-New Jersey.
Owing to greatly increased demands for fluorspar for war uses, consequent depletion of national resources, and likely continuance of an augmented demand for new civilian purposes after the war, fluorspar investigations were pushed energetically and enlarged. In addition to the three established parties working in (1) the Kentucky-Illinois district and Tennessee, (2) Colorado, Idaho, Wyoming, and Washington, and (3) New Mexico, Texas, and Arizona, a fourth party was organized to take charge of work on fluorspar in Utah, Nevada, and
Geological Survey • 105
California. Temporary parties were assigned to work in northwestern New Mexico and in Montana and northern Idaho.
In the field of mineral fuels attention was directed primarily to the search for new supplies of petroleum. Regional studies were initiated in 23 States to obtain data on the distribution of possible oil-bearing formations and to locate broad areas where conditions in these rocks might be favorable for the accumulation of petroleum. Nearly 100 geologists were engaged in these expanded activities at the end of the year. Ten preliminary maps and charts giving the results of these studies were issued during the year, and others are in preparation. The petroleum investigations, though stimulated by the war and aimed toward the discovery of war fuel supplies, yield basic geologic data of lasting value in the future search for oil and many other natural resources.
Tar sands and asphalt deposits that have considerable potential importance as sources of petroleum were mapped in Oklahoma and California, and preliminary examinations were made of deposits in many other States. This work was conducted in part in collaboration with the Petroleum Administration for War and the Bureau of Mines.
Examination of coal deposits was confined mainly to areas in the West, where expanded war activities have increased the demand for coking and steam coal. Detailed mapping of coal beds was undertaken in Colorado, Nevada, Oregon, and Alabama in conjunction with exploratory drilling by the Bureau of Mines. Coal deposits were also studied in Oklahoma and Washington.
The sections of Chemistry and Physics, Paleontology and Stratigraphy, and Petrology devoted their time mainly to the laboratory study of materials collected by the field geologists who needed this information in the solution of their war minerals supply problems. In the chemical laboratory more than 8,000 tests and analyses were made, and new techniques were developed for field and laboratory determination of many of the rarer elements that have come to have new and secret, either actual or potential, war uses.
American Republics
Investigations of strategic and critical minerals in the American Republics continued. The work was financed in about equal proportions by the Department of State and the Foreign Economic Administration. Close and cordial cooperation continued with Mexican, Cuban, and Brazilian geological agencies, and cooperative field work was begun with the newly formed Bureau of Mines of Haiti and with the minerals agencies in Chile and the Dominican Republic.
Recently discovered aluminous deposits in Haiti were examined, and prospecting was done in the Dominican Republic for similar deposits. Investigations of chromite and manganese deposits in Cuba
106 • Report of the Secretary of the Interior
were continued. In Mexico work on fluorspar, copper, mica, mercury, antimony, manganese, and tungsten was carried on in collaboration with the Institute de Geologia, the Direction de Minas y Petroleo, and the Commission for the Investigation of Mineral Resources. In Brazil investigations of the mica deposits of Minas Geraes were carried on in cooperation with the Departmento National da Producao Mineral and the United States Purchasing Commission. Investigations of mercury and tungsten deposits in Chile were commenced in cooperation with the Chilean Department of Mines. Survey geologists on detail to the Foreign Economic Administration continued investigations of the resources of Colombia, Guatemala, Nicaragua, and Honduras.
The eruption of the new volcano, Paricutin, in Michoacan, Mexico, provided an opportunity to make many observations of considerable scientific interest.
Military Geology
During the fiscal year 1943-44, the Military Geology unit has continued to prepare terrain intelligence reports for the Military Intelligence Division, Corps of Engineers, and at their request has increased its staff of professional scientists from 30 to 67. The staff now includes several soils scientists and a forester. At the request of the commander of the Southwest Pacific theater, 4 of these military geologists and 1 soils scientist were assigned to headquarters in Australia to prepare similar reports needed for the planning and conduct of combat operations.
Although virtually all the work of this unit was devoted to the prosecution of the war, several byproducts of post-war usefulness have been planned and, in part, developed. These include atlases of the geology and mineral resources of many foreign countries; a topographic or terrain atlas; an appraisal of the completeness of information in the fields of the earth sciences in the whole Pacific area; and a report that will define the field of engineering geology, including military geology. Plans also were outlined for peacetime continuation of liaison between the Geological Survey and the War and Navy Departments.
ALASKAN BRANCH
Many years ago Patrick Henry in one of his orations reflected the then current idea of the remoteness of lands in what is now Michigan when he described them as “beyond the most distant wilderness and remote as the moon.” Seventy-five years ago our grandsires prdbably thought in somewhat the same terms of Alaska. Indeed, even in the early 1890’s it was a venturesome pioneer who was willing to brave the unknown conditions that must be met in casting his lot with the few settlers that then occupied this northland. Now that we have learned
Geological Survey • 107
more about Alaska and are more familiar with the details of how its development has taken place we have become increasingly aware that the winning of the great northwest province has been merely a reenactment of the various steps by which the States have come to their present stages. In Alaska some of these steps are now being taken at greatly accelerated rates, because modern tools and devices facilitate the overcoming of many of the handicaps hitherto imposed by distance and time. No longer is there need to rely on slowly plodding ox teams to cross seemingly limitless plains and bring in supplies and settlers to the remote corners of the domain, or to wait for weeks to elapse in the exchange of communications, or to depend solely on man’s strength to perform necessary labor. Instead airplanes, radios, and mechanical devices can perform these various acts quickly and effectively.
However, no matter whether the rate is fast or slow, true progress in any development depends on thorough knowledge of the problems involved. Many mistakes in past practices and in formulating our national policies have arisen through inadequate or incorrect information as to the pertinent facts. Wise laws cannot be enacted and put into operation for the conservation and proper utilization of the Nation’s potential resources without adequate knowledge of the geographic and geologic factors involved. Businessmen, investors, and workers cannot fulfill their roles in undertaking enterprises without dependable authoritative data. The selection of sites for business and industrial centers, for transportation lines to serve them, for sources of power to operate the various appliances and services now regarded as necessary by civilized man are all closely tied to the physical features of the country, as expressed in terms of its geography and geology. Even the most casual consideration of most projects calls for analysis of many of these factors.
If, then, the pattern of Alaskan development so far has followed closely that of the States, it seems inevitable that its fuller development may also be expected to follow the more advanced developments in the States. With confidence that this expectation is valid, it behooves us to learn and apply the lessons of the past as well as add to our store of knowledge.
What are the services that the Alaskan Branch of the Geological Survey is prepared to furnish ? Full answer to this question would require far more space than can be given here. Therefore, let a few examples suffice to illustrate some of the broader aspects of its work.
Consider the Survey’s mapping program for Alaska. This program provides for the complete topographic mapping of the Territory. The resulting maps show lakes and rivers in true position and relation to other features; settlements, roads, railroads, houses, and other works of man; and the character of the terrain—the height of hills and depth of valleys. From such maps, measurements of the direction and dis-
108 • Report of the Secretary of the Interior
lance between places and things are easily and accurately accomplished ; gradients along prospective routes for railroads or roads may be compared; the areas above or below sites for catchment or utilization of water may be computed; special information, such as the distribution of timber and agricultural developments, can be plotted; and military maneuvers can be planned.
No less essential but perhaps less well known than the topographic maps are the geologic maps and reports covering parts of Alaska issued by the Geological Survey, which portray and describe the geologic features of various areas. These maps and the geologic reports are indispensable to those whose business involves knowledge of mineral deposits—their location, their mineral content, and their geologic features, which, when understood, may guide operators in their search for extension of known deposits or lead them to discovery of new ones.
Perhaps a dearer idea of the application of these various studies may be gained by considering typical inquiries about Alaska received recently from various governmental agencies, such as the War and Navy Departments, War Production Board, and Petroleum Administration for War, and from citizens and companies throughout the country. One inquirer wants to know about the character, distribution, and extent of permanently frozen ground as affecting problems of construction; another inquires about the quality and quantity of asbestos or some other mineral in a remote part of the Territory; another would like to know the location of mines at which he might find work; another asks for details of the terrain in certain of the Aleutian Islands; another asks whether certain lands are available for entry as coal lands; and another asks what materials are available near a specified point for supplying a new plant for making cement. Many inquiries are for identification of place names not found on generally accessible maps; others are for identification and information as to the mineral content of specimens of rocks; and innumerable inquiries relate to the availability of water supplies for various purposes. Still other requests are for photographs and reports useful in teaching about Alaska or of general educational value relative to its magnificent glaciers, volcanoes, and other natural wonders.
From the foregoing examples of the services that the Alaskan Branch is called on to render it is apparent that utilization of the Survey’s assistance should precede any thoughtful analysis of the worth-whileness of most development enterprises. The set-up of the Survey’s activities in Alaska to meet post-war conditions must not await the cessation of hostilities, because most post-war plans involving the development of our natural resources and the utilization of our country’s physical features should not even be considered until this basic factual material is available. Because of lack of infor
Geological Survey • 109
mation on the geology and geography of Alaska in the past lives have been lost, worth-while enterprises have been laid aside, and contributions of materiel to the Nation’s defense and welfare have been far less than they might have been. Now is none too soon to remedy some of these lacks, whether we face years of additional warfare or are planning for America’s eventual after-the-war resumption of national leadership.
The principal new field projects that were undertaken during the season of 1943 to furnish information needed in the Nation’s war plans dealt with the general supervision and gathering of information on mineral resources in the five principal regions into which Alaska may be divided; namely, southeastern Alaska, Copper River-Prince William Sound, Cook Inlet-Alaska Railroad belt, Kuskokwim, and western Alaska. Specific investigations were in progress in each of these regions. In southeastern Alaska search was made for molybdenite ores in areas adjacent to Prince of Wales Island; for chromium and nickel ores near Cross Sound and Lituya Bay; for copper-iron ores on Kasaan Peninsula; for lead-zinc ores near Wrangell; and for basic intrusive and magnetic rocks at a number of localities. In the Copper River-Prince William Sound region, in addition to a general examination of most of the old copper-producing localities, intensive search for copper deposits was carried on in the Nizina and Kotsina-Kuskulana districts and at Rua Cove. In the Cook Inlet-Alaska Railroad belt specific projects involved intensive examination of parts of the Matanuska-Moose Creek coal fields, of coal deposits near Costello Creek, of the tungsten deposits near Fairbanks, of lead and zinc ores near Mount Eielson, and of the chromite deposits near Seldovia. In the Kuskokwim region the individual projects included detailed studies of the quicksilver deposits near Decourcy Mountain and reconnaissance of the quicksilver deposits near Cinnabar Creek in the Holitna Valley. In western Alaska investigations were continued on the tin resources of western Seward Peninsula and in the Morelock Creek area of the Yukon Valley, and preliminary studies were made of tungsten deposits near Nome and Solomon, of graphite in the Kigluaik Mountains, of asbestos near Shungnak, and of quartz crystals in the Koyukuk Valley.
For the field season of 1944 the same general supervision of the work in the various regions was maintained. The emphasis that was being placed on discovery of oil in Alaska, however, led to establishing a separate unit to handle all projects having to do with that work, irrespective of their geographic location. Petroleum investigations are in progress in five areas—near Yakataga, Katalla, Iniskin, on the Alaska Peninsula, and in northern Alaska. The Alaskan projects involving other mineral commodities are the following: In south-617248—45-------io
110 • Report of the Secretary of the Interior
eastern Alaska investigations are continuing of the copper-iron deposits near Kasaan, Tolstoi, and Copper Mountain, and of lead and zinc deposits in the vicinity of Tracy Arm. In the Copper River region examination is being made of molybdenum-copper deposits in the vicinity of Nabesna. In the Cook Inlet-Alaska Railroad belt contact is being maintained with a number of miscellaneous prospects that are in course of development, and intensive examinations are under way in both the Matanuska and the Healy River coal fields. In the Kuskokwim region general scouting of areas regarded a^ likely to contain significant deposits of quicksilver minerals is being continued, and a reconnaissance of the reported ore deposits in the Russian Mountains is being made. In western Alaska a reconnaissance is being made of the coal deposits adjacent to Yukon River from Ruby to Kaltag and near Unalakleet on Norton Sound, the investigation of tin deposits in western Seward Peninsula will be continued, and examinations will be made of certain mineral deposits that have been reported near Shungnak, in the Kobuk Valley.
In addition to these projects a large part of the activity of the Branch has been devoted to the extended mapping program being carried on at the request of and with funds provided by the Army Air Forces. This project, which originally was more or less restricted to mapping parts of Alaska, has proved so useful that gradually it has been expanded to include the mapping of large strategic areas in other countries. At the close of the fiscal year the Alaskan Branch had completed from aerial photographs planimetric maps covering nearly 5,-500,000 square miles and, as part of the same project, topographic maps covering 500,000 square miles.
TOPOGRAPHIC BRANCH
The headquarters offices of the Topographic Branch and its Atlantic Division are located in Washington, D. C.; the headquarters office of the Central Division is in Rolla, Mo.; and that of the Pacific Division is in Sacramento, Calif. Section offices are maintained in Chattanooga, Tenn., and Clarendon, Va.
General Office Work
During the year the regular program of cooperative mapping was carried on with 17 States, Puerto Rico, and the Tennessee Valley Authority, but the Topographic Branch directed a large part of its activity to producing maps for the War Department in both domestic and foreign areas. Many field engineers were detailed to this assignment, which included the revision by means of aerial photographs of maps of foreign territory covering approximately 26,000 square miles and the compilation of contour maps from older hachured maps cover
Geological Survey • 111
ing 13,000 square miles. Existing maps for an area of 43,000 square miles were assembled in changed format and re-drafted. A considerable amount of map shading on scales of 1:1,000,000 and larger was done for special use of the Army Air Forces. This work for the War Department is in addition to that reported by the Section of Photomapping.
Section of Computing.—The office processing of control surveys made for the topographic mapping of strategic areas continued in unusual volume during the year. These computations and adjustments resulted in the issue of lithographed lists of leveling, transit traverse, and triangulation results for 70, 186, and 12 quadrangles, respectively. Bulletin 930-D was published during the year, the fourth and last part of spirit leveling in Illinois. Manuscript was prepared in part for a bulletin on spirit leveling in North Carolina. Computations and adjustments for routine field projects were continued, and the usual volume of control data was assembled and transmitted to comply with requests from field engineers and correspondents.
Section of Photomapping.—This section maintains offices in Washington, D. C., Clarendon, Va., Chattanooga, Tenn., Rolla, Mo., and Sacramento, Calif. Its principal work is the production of topographic maps from aerial photographs by stereophotogrammetric methods and the production of planimetric maps and planimetric bases for topographic field surveys by both stereophotogrammetric and graphic methods.
Topographic maps of areas in the United States produced during the year by these methods covered approximately 7,120 square miles; planimetric and base maps covered approximately 13,900 square miles. Topographic maps of foreign areas were produced from aerial photographs for the War Department; of these, maps covering approximately 10,000 square miles were completely processed for reproduction, and maps covering 2,700 square miles were delivered in manuscript form. These figures do not include work performed in the Chattanooga office, which is engaged on a cooperative project with the Tennessee Valley Authority and the War Department. .
At the principal office of the section, in Clarendon, Va., in addition to the large production facilities, which are operating on a two-shift basis, there are also maintained a central laboratory for designing, testing, repairing, and adjusting all types of special optical and mechanical equipment utilized for our stereophotogrammetric work and a photographic laboratory specializing on research and precision photography required for the other offices.
The Washington office maintains a general file of aerial photographs utilized in the work of the Geological Survey and of aerial photo-
112 • Report of the Secretary of the Interior graphic negatives that have been purchased under photographic contracts. Through this office contacts are maintained with other governmental agencies involved in aerial photographic work.
Section of Cartography.—The Topographic Branch cooperated with the Army Air Forces in preparing aeronautical charts, work on which was performed in the Section of Cartography. Cooperation with the Public Roads Administration was continued, with the result that 31 sheets of road maps were prepared and submitted for reproduction.
Work on the International Map of the World on a scale of 1:1,000,-000 was continued. Sheets 1-18 (Hatteras), K-10 (Mount Shasta), K-17 (Lake Erie), and L-10 (Cascade Range) were in progress, and Sheet K-16 (Chicago) was in course of publication at the end of the year.
Section of Inspection and Editing.—During the year 224 quadrangle maps were edited for publication, 164 of which were for multicolor photolithography and 60 for engraving; 362 quadrangle maps, 21 State maps, and 4 State index maps were prepared and edited for reprint editions; 206 maps and diagrams that had been prepared as illustrations for geologic reports were edited; and 528 proofs of all kinds were read. On June 30 maps in the process of reproduction included 94 for engraving and 64 for multicolor photolithography; maps being edited or awaiting editing included 35 maps for engraving and 128 for multicolor photolithography; and 664 maps remained on hand for preparation for reprinting.
The Section of Inspection and Editing maintains in Clarendon, Va., a small unit to draft maps produced by the Atlantic Division. Part of this staff was employed for about 5,000 man-days in drafting special maps of foreign areas urgently needed for use in the war program.
Map Information Office
The Map Information Office continued its work as clearing agency for data pertaining to maps and aerial photographs of both Federal and commercial agencies. The office maintains extensive card-index and map files and is equipped to furnish data to Federal and State institutions- and to the public.
Field Surveys
Topographic mapping was carried on in 34 States and Puerto Rico. Cooperative projects were conducted with 17 States and Puerto Rico and with the Tennessee Valley Authority. The survey of the islands of Puerto Rico and Vieques was completed.
The mapping of 6115-minute quadrangles and 192 7%-minute quadrangles was completed, and mapping was in progress on 41 15-minute quadrangles and 49 7J^-minute quadrangles at the end of the year. In -
Geological Survey • 113
addition, work on 128 quadrangles was progressing in some one of the steps prior to actual mapping. Of the 253 quadrangles completed and 90 partly completed, 279 are within the strategic area designated by the War Department. For use in the investigation of strategic and critical minerals, including bauxite, lead, zinc, vanadium, magnesite, high-aluminum clay, coal, and iron ore, 10 special large-scale maps were completed and 4 are in progress. Two maps of special areas on a scale of 1:24,000 were completed for the investigation of coal for coking and transcontinental transportation. Two special areas were mapped for river-utilization purposes and one for flood control. The survey of the Olympic National Park in the State of Washington was continued.
A large amount of work each year consists of the remapping on a larger scale and in greater detail of areas that had previously been mapped and reported, which partly accounts for the small increase in the percentage of the United States covered. Of the total area of the United States, 47.4 percent has now been covered by adequate topographic maps produced by the Geological Survey.
Topographic mapping by the Geological Survey in the United States, Puerto Rico, and Hawaii, to June 30, 1944
State	Area mapped during fiscal year 1944 for publication on standard scales, contour intervals from .5 to 50 feet (square miles)				Total area mapped to June 30, 1944 (square miles)
	Field scale		New survey	Resurvey	
	1 to 24,000 or larger	1 to 48,000			
Alabama	 Arizona	 Arkansas		 California	 Colorado	 Connecticut	 Delaware	 Dist. of Columbia. _ Florida	 Georgia	 Idaho	 Illinois	 Indiana	 Iowa	 Kansas	 Kentucky		 Louisiana	 Maine	 Maryland.;	 Massachusetts	 Michigan	 Minnesota	 Mississippi	 Missouri	 Montana		 Nebraska	 Nevada	 New Hampshire	 New Jersey	 New Mexico	 New York	 North Carolina		19 5 48 472 2,835 123 293 58 1,129 312 67 2 12 124 709	292 491 516 351 711 230 1. 150 231 >86 2,773 396 219	42 203 5 228 2,835 351 705 293 1,147 213 229 1,592 408 219	269 288 336 472 123 6 230 3 18 58 1,129 169 1,248 124 709 —	25,884 33, 398 24, 614 132,404 58,156 5,009 2,507 69 11, 949 25, 202 37, 623 45,018 7,789 14, 233 65,852 27. 559 17, 542 25,977 10, 577 8,257 16, 550 9,542 8,997 61, 527 39,312 28, 225 43, 762 9,304 7,836 36,156 49, 576 19, 574
Percentage of total area of State mapped to June 30, 1944	Control, fiscal year 1944		
	Spirit levels (miles)	Transit traverse (miles)	Triangulation stations established
50.2 29.3 46.3 83.4 55.8 100.0 100.0 100.0 20.4 42.8 45.0 79.8 21.5 25.3 80.0 68.2 36.2 78.2 100.0 100.0 28.4 11.4 18.9 88.3 26.7 36.5 39.6 100.0 100.0 29.7 100.0 37.1	346 162 170 24 196 418 196 51 75 17 132 315 129	95 77 127 116 255 59 30 29 44 19 76	56 27 18 6
1	Planimetric maps, not included in total surveys, were compiled from aerial photographs with field examination—Michigan, 907; Wisconsin, 837 square miles.
2	Mapped on scale 1:31,680,
114 • Report of the Secretary of the Interior
Topographic mapping by the Geological Survey in the United States, Puerto Rico, and Hawaii, to June 30, 1944—Continued
1 See footnote on p. 113.
3 Contour interval in meters.
WATER RESOURCES BRANCH
Water is one of the Nation’s basic assets. It is necessary for all life, for irrigation, navigation, sanitation, and production of power, for certain industrial processes, and for many of the comforts of civilized life. It is a menace to life and property in times of flood. Its deficiency during periods of drought is often calamitous. Water is a varying resource. In all places and times, it is limited in quantity by the amount of water that reaches the earth’s surface in the form of rain and snow. The amount available determines the acreage that can be irrigated, the size of power plants, the capacity of industrial plants, and the growth of towns, cities, and communities. In many places the limit of supply available for man’s purposes has now been reached; the needs are conflicting, and pressing questions arise relating to priority of rights, superiority of use, and equitable division. Under these conditions reliable information is essential to stability of development, soundness of financing, efficiency of operation, and equity of administration. Congress has authorized the Geological Survey to collect and publish essential facts about the quantity, character, availability, and best methods of utilizing the water resources of the Nation.
State North Dakota	 Ohio		 Oklahoma	 Oregon	 Pennsylvania	 Rhode Island	 South Carolina	 South Dakota	 Tennessee		 Texas	 Utah			 Vermont	 Virginia	 Washington	 West Virginia	 Wisconsin	 Wyoming	 Total	 Hawaii	 Puerto Rico		Area mapped during fiscal year 1944 for publication on standard scales, contour intervals from 5 to 50 feet (square miles)				Total area mapped to June 30, 1944 (square miles) 16,828 41, 222 41, 586 35,681 42,923 1, 214 15, 772 20, 750 23, 998 92, 532 20,119 9,286 38,097 44,175 24,181 20, 348 35,642 1,433,884 6,435 3,370	Percentage of totalarea of State mapped to June 30, 1944 23.8 100.0 59.5 36.8 94.7 100.0 50.8 26.9 56.8 34.6 23.7 96.6 93.3 64.8 100.0 36.2 36.4 47.4 100.0 98.8	Control, fiscal year 1944		
	Field scale		New survey 713 260 621 50 28 449 75 282 10,948 1, 401	Resurvey 794 1 328 301 708 154 65 76 7, 609			Spirit levels (miles) 359 113 297 72 67 9 3,148	Transit traverse (miles) 312 78 321 339 30 2,007	Triangulation stations established 4 32 9 9 161
	1 to 24,000 or larger 1 328 85 5 75 93 6,793 3 1, 401	1 to 48,000 713 260 1, 415 50 244 703 603 65 (>) 265 11, 764							
Geological Survey • 115
Cooperation With States and Municipalities
The appropriation by Congress for studies of water during the fiscal year 1944 was $1,437,700. Of that appropriation, $1,065,000 was restricted for use in cooperation with States and municipalities, but. the 182 cooperating agencies contributed considerably more than that amount, and sufficient additional Federal funds were supplied from the umestncted part of the appropriation to meet the excess offerings. The amounts conti ibuted by States and municipalities are summarized below:
State: Alabama	 Arizona	 Arkansas	 California	 Colorado	 Connecticut	 Delaware	 Florida			 Georgia	:	:	 Idaho	 Illinois	 Indiana			 Iowa	 Kansas	 Kentucky	 Louisiana	 Maine	 Maryland	 Massachusetts	 Michigan	 Minnesota	 Mississippi	 Missouri	 Montana	 Nebraska	 Nevada		Contribution	State:	Contribution
	$14, 375 25, 400 10, 450 85, 913 33, 500 10, 790 1, 700 32, 950 15,000 26,167 15,113 26,178 25, 970 35, 030 19, 896 31, 600 7, 500 17, 073 15, 750 18, 000 16, 075 15, 000 13,350 12, 660 27, 050 3, 850	New Hampshire	 New Jersey	 New Mexico	 New York	 North Carolina	 North Dakota	 Ohio	 Oklahoma	 Oregon	 Pennsylvania	 Rhode Island	 South Carolina	 South Dakota	 Tennessee	 Texas	 Utah	 Vermont	 Virginia	 Washington	 West Virginia	 Wisconsin	 Wyoming	 Hawaii	 Total		$9.095 21,600 38, 350 33, 549 24, 000 7,000 23, 067 20, 530 27, 040 31, 100 1, 750 9,700 2, 800 13, 400 66, 872 23,167 4, 760 25, 600 42, 980 9, 000 8, 263 16, 575 44, 352 1,110, 890
Activities Carriedjinj'Or Other Federal^Agencies
Other Federal agencies provided nearly $700,000 for water-resources investigations that could not be financed by appropriated funds of the Geological Survey or included in cooperative programs. These agencies are the Office of the Chief of Engineers, Mississippi River Commission, and Office of the Quartermaster General, War Department; Bureau of Yards and Docks, Navy Department; Tennessee Valley Authority; Flood Control Coordinating Committee, Department of Agriculture; Weather Bureau, Department of Commerce; Bureau of Reclamation, Fish and Wildlife Service, National Park Service, Office of Indian Affairs, Office of Land Utilization, and Bonneville
116 • Report of the Secretary of the Interior
Power Administration, Department of the Interior; Department of State; Defense Plant Corporation; Federal Power Commission; Veterans’ Administration; and Federal Works Agency.
War and Post-War Activities
Requests for special reports on water have continued in large numbers throughout the year. Most of these requests have related to war activities, but increasing numbers of them have related to post-war problems that are now being studied widely. During the year more than 5,000 reports have been made in response to specific requests, 2,263 in the first 6 months and 2,789 in the last 6 months. These are in addition to the regular published reports. They have related to every State and to the Territories of Alaska and Hawaii but particularly to the industrial regions of the East, South, and West.
To record the variations in water supply resulting from fluctuations in precipitation, a widely scattered field force is needed. About 100 field headquarters are maintained, in which the assignments are reasonably permanent and experienced men familiar with local problems related to water are available. Such decentralization also serves well the purpose of cooperation, as close contact is maintained between the Survey personnel and cooperating State and municipal officials, and records and reports are made available currently where urgently needed. During the emergency of war and now in preparing for peace the decentralization has been especially valuable, because men who are experts not only in water but also in local problems have been available in all parts of the country to conduct special field investigations and to furnish promptly and efficiently information not elsewhere obtainable.
The demand for special services related to water as it affects war activities and post-war plans has thrown a heavy burden on the experienced engineers, geologists, and chemists of the Survey at a time when the force has been depleted by enlistment and draft for the armed services and by the assignment of experts to water-supply battalions in the several theaters of war. The maintaining of a force adequate for the performance of work that is essential to both war and peace has been difficult; it has been accomplished only by adding carefully selected replacements to the nucleus of experts.
Continuing Activities
The operations of the Water Resources Branch are conducted by five administrative divisions—surface water, ground water, quality of water, utilization of water, and power resources. Because of the wide variations in quantity and quality of water, continuity of records is essential both for the emergency problems of war and for the re
Geological Survey • 117
curring problems of peace; it is necessary, therefore, that at least as much of the ordinary activities of the Survey as will suffice to maintain continuity of records shall be carried on, even when the major efforts relate to war problems.
Records of the stage, quantity, or availability of surface waters are collected at about 5,000 gaging stations distributed through every State and the Territory of Hawaii, the number of stations depending upon the funds made available by cooperation with States and municipalities and by transfer from other Federal agencies. The field records are analyzed and released to the cooperating agencies and to the public as promptly as practicable. They are the basis for constructing, operating, and administering municipal and industrial water supplies, irrigation systems, power plants, flood-control works, inland waterways, and similar activities. Cooperation in surface-water studies is effective with about 161 State and municipal agencies, the personnel operating from 63 field offices.
The studies of ground water relate to the waters that lie in the zone of saturation, from which wells and springs are supplied. They cover the source, occurrence, quantity, and head of these waters; their conservation and replenishment; their availability and adequacy for domestic, industrial, irrigation, and public supplies, and as watering places for livestock, and the methods of constructing and utilizing wells and of improving springs. The increasing use of water from wells is causing a great demand for intensive studies of the quantities of ground water that are perennially available. Investigations conducted from 34 field offices were in progress during the year in nearly every State. In 6 States and in Hawaii the work was done in cooperation with 61 State and municipal agencies. Periodic measurements of water levels or artesian pressure were made in about 7,000 observation wells. Investigations were made or are in progress in most of the critical areas of heavy pumping to determine whether shortages in ground-water supplies are being caused by war demands.
Chemical analyses of 2,563 samples of water were made in the waterresources laboratory in Washington and of 6,729 samples in laboratories in Safford, Ariz., Albuquerque, N. Mex., Raleigh, N. C., and Austin, Tex. Many of the samples were collected in connection with studies of water supplies for Army and Navy establishments and for munitions plants and housing developments. Cooperative studies of the chemical character of surface waters were initiated in Louisiana and North Carolina and were continued in Florida, Georgia, New Mexico, and Texas. Samples of water were analyzed for cooperative studies of ground-water conditions in other States. Interpretations of analyses or advice about water problems were furnished to 16 Bureaus in 6 Federal Departments and to 8 independent agencies.
118 • Report of the Secretary of the Interior
A variety of hydrologic and hydraulic studies and compilations are made on the utilization and control of streams, and a monthly summary, the Water Resources Review, is issued giving stream-flow and ground-water conditions throughout this country and Canada. These summaries are used extensively by many agencies, including major war agencies, engaged in production where floods or droughts are vital. The administration of certain responsibilities relating to permits and licenses of the Federal Power Commission has been continued. Because of the importance of power in the war program this function is increasingly essential. Investigations of water problems along the international boundary between the United States and Canada have been continued for the State Department and the International Joint Commission. Several studies were made that have an important bearing on water investigations and projects to be undertaken after the war.
CONSERVATION BRANCH
The Conservation Branch has two principal functions: (1) Making surveys of the water and mineral resources of the public domain and applying the results to the problems of public-land administration; (2) supervising operations incident to the development of power and to the production of minerals, including oil, gas, coal, potash, sodium, lead, and zinc from public lands, Indian lands, and naval petroleum reserves.
Additional funds made available during the year provided extra assistance and equipment necessary for the undertaking of field investigations and engineering studies and the preparation of reports dealing with power, fuels, minerals, and chemicals essential to the national war program. The results of this activity, if maintained on the present scale, will reveal the presence of new reserves and will provide information essential to the improvement of production practices and the elimination of waste, thereby increasing available reserves and furnishing the basis for sound post-war planning and true conservation of energy resources.
Classification of Lands
Mineral classification.—The Mineral Classification Division, in response to war-engendered demand for new sources of oil, gas, coal, potassium, and magnesium from the public domain, continued and increased markedly all phases of its service of furnishing to the agencies of the Interior Department concerned with public-land administration the geologic findings and decisions required by law or policy.
Geological Survey • 119
In all, 10,887 cases, each involving one to many geologic determinations, were acted on during the year, an increase of 38 percent over 1943. In addition, initial or revised definitions of the known geologic structure of four producing oil or gas fields were prepared and promulgated, increasing the net area so defined in 9 public-land States to 1,710,931 acres on June 30, 1944; geologic appraisal was made of 60 unit-plan submissions; and 34 special reports were rendered to the General Land Office on new discoveries of oil or gas on or adjacent to Federal lands.
To facilitate the acquisition of the basic geologic data required for the discharge of its increasing duties in connection with public-land classification and leasing-law administration, the Division established during the year regional field offices with a resident geologist in charge of each at Los Angeles, Calif., and Great Falls, Mont., and opened suboffices of its Denver regional office at Casper, Wyo., and Salt Lake City, Utah. From these offices numerous field investigations were carried on during the year in Colorado, Wyoming, Montana, California, and Utah.
Water and power classification.—All new surveys and investigations concerning the water-power resources and storage possibilities of Federal lands were on projects proposed for development to assist in the prosecution of the war or for post-war construction. Topographic surveys were made of 142 linear miles of stream valley and of 1 mineral leasehold, and, in cooperation with the Water Resources Branch, supervision of construction and operation was given to 167 power projects under license from the Federal Power Commission, to 193 such projects under permit and grant from the Department of the Interior, and to 154 in cooperation with the Office of Indian Affairs.
Office studies resulted in the addition of 67,166 acres to power-site reserves and the elimination of 30,650 acres therefrom, with net increase of the outstanding reserves of 23 States and Alaska to 6,671,948 acres; in the publication of maps of 580 miles of river valley and 8 dam sites; in final action involving hydraulic determination on 261 cases received for report from departmental sources and the Federal Power Commission; and in water-power classification on 1,726 cases, which also involved mineral classification. Reservoir-site reserves in 9 States remain unchanged at 137,172 acres.
Mineral Lease Supervision
Mine supervision.—The Mining Division supervises operations for the discovery and production of coal, potassium, sodium, phosphate, and oil shale on public lands; of all minerals, except oil and gas, on tribal and restricted allotted Indian lands; and of other minerals on various land grants. The Division serves as consultant to the De
120 • Report of the Secretary of the Interior
partment of Agriculture on mining leases under the jurisdiction of that Department and also supervises production of minerals from public lands by the Metals Reserve Co. and the Defense Plant Corporation under authorization of the Secretary of the Interior. The supervisory work, directed from 6 field offices in the western United States and 1 in Alaska, included on June 30, 1944, 636 public-land properties under lease, permit, or license in 15 States and Alaska; 225 Indian properties under lease or permit in 14 States; and 4 secretarial authorizations in 3 States. The total output was valued at more than $62,000,000.
The Division cooperated with the Departments of War, Justice, and Agriculture, other bureaus of the Department of the Interior, the War Production Board, the Reconstruction Finance Corporation, the Defense Plant Corporation, and the Office of Price Administration by furnishing information on potential sources of minerals necessary to the war program.
The war-induced expansion of mining operations has resulted in an accelerated diminution of the known potash reserves in New Mexico. Under instructions from the Secretary of the Interior the Geological Survey and the Bureau of Mines are cooperatively drilling test holes under contract and have proved additional high-grade potash reserves of national importance in and adjacent to the potash reserve created by Executive Order 6797.
The production of zinc from leased Indian land in Oklahoma has been maintained only by working ores of successively lower grade under the stimulus of production premiums. The Division is now making studies to aid in increasing production by improvements in recovery practices and is obtaining information on the probable reserves of low-grade ore that may be mined by large-scale mechanized operations.
Oil and gas supervision.—The Oil and Gas Leasing Division supervises operations for the discovery and production of petroleum, natural gas, natural gasoline, and butane occurring in public lands of the United States, in naval petroleum reserves, and in all Indian lands subject to departmental jurisdiction, both tribal and allotted, except those of the Osage Nation, in Oklahoma. During the fiscal year 1944 these duties were accomplished through 18 field offices and suboffices in California, Colorado, Montana, New Mexico, Oklahoma, Utah, and Wyoming.
To meet wartime demands, the Division opened new suboffices at Bakersfield, Calif., and Artesia, N. Mex., and, by intensive recruitment, succeeded in building up four special-study groups to aid in the adoption of proper secondary-recovery methods and other engineering practices necessary to conservation and maximum ultimate recovery of petroleum. During the year studies were completed and preliminary
Geological Survey • 121
reports prepared on the Hogshooter Field, Okla., the Cole Creek Field, Wyo., the Grayburg Unit Area, N. Mex., and the Buena Vista Front Pool, Calif.
On public lands 5,329 properties were under supervision at the end of the fiscal year, aggregating 3,106,392 acres in £0 States and Alaska.
Drilling on public lands during the year included the spudding of 536 wells and the completion of 506 wells, 350 of which were productive of oil and gas and 156 of which were barren. In all, 11,096 publicland wells, including 5,893 capable of oil and gas production, were under supervision on June 30, 1944. The production of natural gas and gasoline from public lands during 1944 was somewhat less than in 1943, and the production of crude oil was somewhat more.
The efforts to fulfill the need for new petroleum reserves were reflected in an increase of 8 in the number of new unit plans approved during the year, the total being 18; 29 unit plans were terminated because all rights thereunder were relinquished or abandoned, leaving 112 approved plans covering 1,342,149 acres outstanding on June 30, 1944. Production under approved unit agreements constituted about 59 percent of the petroleum obtained from public lands during the year, 69 percent of the natural gas, and 84 percent of the gasoline and butane.
On Indian lands the work of oil and gas lease supervision involved 4,572 leaseholds in 9 States, containing at the end of the year a total of 7,499 wells, 4,012 of which were productive of oil or gas and 201 of which had been completed during the year. Notable increases in production of natural gas and crude oil were reported from the Chickasaw and Choctaw lands in Oklahoma, from the Blackfeet lands in Montana, and from the Shoshone lands in Wyoming. Rentals, royalties, and bonuses accrued from Indian-land operations during the fiscal year are estimated to aggregate $3,292,305.
On behalf of the Navy Department supervision was continued over operations for the production of oil, gas, gasoline, and butane from 21 properties under lease in Naval Petroleum Reserve No. 2 in California. Production from 259 active wells on this reserve aggregated 1,569,004 barrels of petroleum, 1,373,863,000 cubic feet of natural gas, and 7,494,253 gallons of natural gasoline and butane, having an aggregate royalty value of $252,629.
WORK ON PUBLICATIONS
Texts.—The publications in the regular series (professional papers, bulletins, and water-supply papers) issued during the year numbered 49, as contrasted with 76 in the preceding year. This substantial reduction reflects adjustment to a war-curtailed publication schedule, with postponement of more general scientific reports and a concentration on the issue of those that would be of greatest direct or indirect
122 • Report of the Secretary of the Interior
aid to the war program. In addition, 14 miscellaneous pamphlets were published. Work by the editors included the following: 6,686 pages of manuscript edited and prepared for printing; 223 galley proofs and 3,698 page proofs revised and returned; indexes prepared for 17 publications, covering 1,193 pages and consisting of 1,650 index entries. Copy prepared for mimeographing included 127 press releases, comprising 145 pages, and 257 pages of miscellaneous material.
Illustrations.—Twenty-eight reports, containing 475 illustrations, were transmitted to the printer. In addition, 157 maps and sections illustrating deposits of essential strategic minerals were prepared for preliminary release, and 153 proofs and 67 edition prints were examined.
Geologic map editing.—The work of the Section of Geologic Map Editing was varied in type, ranging from simple line drawing and retouching to extremely difficult drawings of complex maps and sections. In all, 119 maps and other illustrations were prepared. Most of these were concerned with investigations directly related to the war minerals program. A large part of the time of 1 illustrator since March has been spent in the preparation of an index map of the geology of the United States. In addition, maps and other illustrations for 5 water-supply papers and 85 maps for bulletins on strategic minerals and 1 professional paper were edited and reviewed during the various stages of their final preparation.
Distribution.—The Division of Distribution received during the year a total of 804 publications, comprising 63 new books and pamphlets and 2 reprinted books, 293 new or revised topographic and other maps, of which 3 maps were first published as “preliminary” editions, 12 Tennessee Valley Authority maps with contours, 421 reprinted topographic and other maps, 3 new advance sheets, and 10 reprinted advance sheets. The total units of all publications received numbered 88,596 books and pamphlets, 5,000 copies of the revised Missouri index map, and 2,363,815 topographic and other maps, a grand total of 2,457,411. The division distributed, or otherwise disposed of, 287,148 books and pamphlets, 624 geologic folios, and 1,462,298 maps, a grand total of 1,750,070, of which 510 folios and 1,232,123 maps were sold. The net proceeds (gross collections less copying fees and amounts refunded) from the sales of publications were $31,209.15, including $31,078.50 for topographic and geologic maps, and $130.65 for geologic folios. In addition to this $48,942.53 was repaid by other establishments of the Federal Government at whose request maps or folios were furnished. The total net receipts, therefore, were $80,151.68.
Engraving and printing.—During the year 84 newly engraved topographic maps, 177 multicolor topographic maps (2 of which were originally printed as advance maps), and 26 special maps were printed, making a total of 287 new maps printed and delivered. Reprint edi-
Geological Survey • 123
tions of 403 engraved topographic maps and 22 photolithographed State and other maps were printed and delivered. Of new and reprinted maps, 712 different editions, amounting to 2,359,625 copies, were delivered. A large amount of work was done for 53 other units of the Government, including branches of the Geological Survey, and the charges for it amounted to about $204,000, for which the appropriation for engraving and printing geologic and topographic maps was reimbursed. Transfer impressions and velox prints, numbering 145, were made during the year, and the amount turned over to miscellaneous receipts was $263.20. Topographic maps and contract and miscellaneous work of all kinds, totaling 3,096,999 copies were, printed and delivered. The photographic laboratory made 12,847 negatives, 27,129 prints, 3,310 photolith press plates, 167 intaglio etchings, 3 celluloid transfers, and mounted 810 prints.
LIBRARY
Work for the Military Geology unit of the Survey constituted a major service of the library. The War and Navy Departments, the War Production Board, the Foreign Economic Administration, and other war agencies made increased use of the library’s facilities. The total number of readers was 13,163; of these 3,402 were from other agencies. The total circulation of books, pamphlets, periodicals, and maps was 72,853. Acquisitions were slightly greater than in 1943, but still much below the normal pre-war number. The present war work required a somewhat broader field of material, and this is reflected in the type of books and j ournals purchased. The Bibliography of North American geology, 1929-39—the 11-year cumulative volume, which includes the otherwise unpublished bibliography for 1937-39— was received from the printer in May. It contains 1,546 pages and more than 28,000 entries. The somewhat new format, which makes it much more useful, has been greatly complimented.
FIELD EQUIPMENT
Outstanding improvements in the trimetrogon mapping procedures are resulting from the construction of three stereoblique plotters by the Division of Field Equipment for the Alaskan Branch during the past year. Numerous operations that had been necessary previously in the production of trimetrogon reconnaissance maps will henceforth be reduced or eliminated, and greater speed, accuracy, and lower costs will result from their use. Parts for seven additional models have been fabricated, and these are expected to be completed and placed in operation during the month of July. Activities during the past year have been marked by the unusual number of dead lines that had to be met. One such deadline was the result of a sudden decision to re-design and construct for greater portability an oitho-
124 • Report of the Secretary of the Interior
graphic projection machine to be taken by military geologists into the theaters of war. This machine is used for producing three-dimensional relief diagrams from topographic maps. It was necessary to complete work on it in approximately one-third of the time needed to produce the original model. Another article that was constructed with very limited time allowance was a graph-rectifying device, by which a discontinuous graph on curvilinear coordinates could be mechanically and accurately translated into a continuous graph with rectilinear coordinates. The device provided an infinite selection of changes in scale, both laterally and longitudinally, to any size within approximately 50 to 150 percent of the scales of the original graphs. Other instruments unusual in type and design that were constructed in the Division of Field Equipment are six Hotchkiss superdips, such as are used by geologists in measuring the comparative magnitude of variations in the earth’s magnetic field, and a device which produces true perspective drawings of land areas from topographic maps.
FUNDS
During the fiscal year 1944 there was available for expenditure under the direction of the Geological Survey a total of $11,585,328. Of this amount $5,576,495 was appropriated directly to the Geological Survey, and $6,008,833 was made available by other Federal agencies, and by States and their political subdivisions. In addition, $9,700 was allotted from the appropriation for contingent expenses of the Department of the Interior for miscellaneous supplies.
Funds available to the Geological Survey in 1944 from all sources
General administrative salaries:
Interior Department Appropriation Act____________ $189, 670
First Deficiency Appropriation Act_______________ 31, 200
-----------$220, 870
Topographic surveys:
Interior Department Appropriation Act____________ 672, 500
States, counties, and municipalities_____________ 313, 624
War Department___________________________________ 1, 739, 448
Tennessee Valley Authority__________________________ 76,	000
Public Roads Administration_________________________ 42,	169
Miscellaneous repay________________________________  95,	807
----------- 2, 939, 548
Geologic surveys:
Interior Department Appropriation Act____________ 1, 176, 500
First Deficiency Appropriation Act__________________ 106,	000
States, counties, and municipalities________________ 22,	322
Bureau of Mines____________________________________ 317,	000
Board of Foreign Economic Administration----------	64,	000
War Department______________________________________ 166,	400
Miscellaneous repay______________________________ 355
----------- 1, 852, 577
Geological Survey • 125
Funds available to the Geological Survey in vtdd from all sources—Continued
Strategic and critical minerals:
Interior Department Appropriation Act_____________ $624, 000
First Deficiency Appropriation Act________________ 68, 000
States, counties, and municipalities______________ 4, 562
State Department (for work in other American Republics)------------------------------------------ 74,172
Miscellaneous repay_______________________________ 38§
Mineral Resources of Alaska:
Interior Department Appropriation Act__________ 157, 500
First Deficiency Appropriation Act_____________ 20, 000
War Department_________________________________ 711 952
Gaging streams:
Interior Department Appropriation Act____________ 1, 312, 900
First Supplemental National Defense Appropriation
Act-------------------------------------------- 90, 000
First Deficiency Act_____________________________ 33, 700
States, counties, and municipalities_____________ 1, 152, 193
Permitees and licensees of Federal Power Commission------------------------------------------ 27, 366
Department of the Interior:
Bonneville Power Administration________________ 50
Fish and Wildlife Service______________________ 2, 165
Office of Indian Affairs_______________________ 6, 581
Office of Land Utilization_____________________ 16, 400
National Park Service__________________________________ 338
Bureau of Reclamation__________________________ 6, 933
Department of Agriculture________________________________ 775
Commerce Department______________________________________ 133
Federal Power Commission_____________________________________ 153
Defense Plant Corporation________________________________ 57,	922
Federal Works Agency________________r________________ 9, 618
Navy Department___________________________________________ 3	631
State Department_________________________________________ 50,	000
Rubber Reserve Corporation___________________________ 117
Tennessee Valley Authority_______________________________ 59,	500
Veterans’ Administration_____________________________ 100
War Department:
Office of Chief of Engineers_____________________ 709, 215
Mississippi River Commission_____________________ 2, 717
Classification of lands:
Interior Department Appropriation Act_______________ 225, 000
States, counties, and municipalities________________ 1, 500
War Department______________________________________ 4
$771, 122
889, 452
3, 542, 507
226, 504
Printing and binding,interior Department Appropriation Act_______________________________________________________________
617248—45----11
87, 500
126 • Report of the Secretary of the Interior
Funds available to the Geological Survey in 1944 from all sources—Continued
Preparation of illustrations:
Interior Department Appropriation Act______________ $22, 925
First Deficiency Appropriation Act_________________ 3, 100
----------$26, 025
Engraving and printing geologic and topographic maps:
Interior Department Appropriation Act______________ 200, 000
First Deficiency Appropriation Act_________________ 32, 000
Miscellaneous repay________________________________ 165, 417
——	397, 417
Mineral leasing:
Interior Department Appropriation Act______________ 475, 000
First Deficiency Appropriation Act_________________ 49, 000
Navy Department____________________________________ 20, 000
Office of Indian Affairs___________________________ 85, 000
Department of	Agriculture_____________________________ 674
Department of	Justice_________________________________ 158
--------—	629,	832
Payment from proceeds of sale of water, special account__________ 1, 974
Total___________________________________________________ 11,585,328
Solid Fuels Administration for War
C. J. Potter, Deputy Administrator
IRREPARABLE harm to the fighting of the war, because of inadequate coal production, was averted during the fiscal year by forthright measures taken by the Solid Fuels Administration for War in cooperation with the coal industry, the mine workers and consumers.
In this period, the Nation’s fuel requirements soared to new heights, creating record-breaking demands for bituminous coal, anthracite, and coke.
Lack of manpower and other handicaps, including mine strikes, prevented the coal mining industry from increasing production sufficiently to meet the full requirements of war industries and domestic users and necessitated adoption of a coordinated program to distribute current production to those who needed it most.
Every possible measure was taken to increase production and to distribute mine output so as to avoid distress to domestic consumers and impairment of industrial activity. Early in the period, it was necessary to issue thousands of directions diverting coal shipments to industrial consumers and retail yards in dire need of fuel. Later in the year measures became necessary for general control over distribution of the scarce types of solid fuels.
The Solid Fuels Administration was established 2 months before the start of the fiscal year, succeeding the Office of Solid Fuels Coordinator for War. Within a few days after it was set up, the agency was faced by the coal supply threat which resulted from the first of a series of general mine strikes. These were caused by a breakdown in wage contract negotiations between mine operators and labor. Until the Administration could recruit the trained staff it needed, its skeleton organization was forced to handle the strikes and problems of coal supply chiefly with personnel loaned by other agencies.
127
128 • Report of the Secretary of the Interior
Its initial task was that of administering coal mines taken over by the Secretary of the Interior on order of the President but it was relieved of this duty with the establishment of the Coal Mines Administration shortly after the start of this fiscal year. During the period it was administering Government possession, and afterward in cooperation with the Coal Mines Administration to which it was closely coordinated, it concentrated on the job of increasing mine output.
It worked with the War Manpower Commission and the Selective Service System to retain as much manpower as possible for the mines; with the Office of Price Administration to make sure that coal prices were such as to stimulate the maximum production and distribution; with mine operators, unions, and the Coal Mines Administration to see that working conditions in the mines were safe for the miners and with the Office of Defense Transportation to make sure that the supply of coal cars was adequate and that coal was moved expeditiously to the places where it was needed. It cooperated with the operators and the War Production Board to provide essential new and replacement machinery for the mines and-with the industry in developing production incentive campaigns. It promoted maximum stocking of coal so as to keep mines in full operation during the war months. These actions assisted in stimulating the production of an all-time record volume of bituminous coal and a wartime peak of anthracite output.
Loss of potential coal production during 1943 and 1944 as the result of strikes and discontent among miners cost an estimated 40 million tons of anthracite and bituminous coal. Added to this was a drain of skilled mine manpower into other industries and into the armed services, thereby constantly reducing mine productive capacity. This problem appeared likely to continue throughout the war since replacements are not available.
Upon the men who remained in the mines—and their average age increased from about 32 years to about 45 years—fell the task of stepping up mine output. While these older men did a remarkable job by increasing the per-man production of the mines, they were unable to mine sufficient coal to fill requirements.
As a result, the Nation’s needs had to be met in part by utilizing the reserves of bituminous coal above ground in consumers’ stockpiles which had been built against such an emergency under the stimulus of the Administration’s predecessor, the Office of Solid Fuels Coordinator for War.
From the 86 million tons of bituminous coal in these stockpiles at the start of 1943, a total of some 30 million tons was withdrawn to meet current needs during the calendar year, and an additional 6 million tons was withdrawn in 1944 before consumption fell below production and permitted the addition of fresh reserves to the depleted stockpiles.
The interruptions to production and the fact that the reserves were unequally spread about the country made the problem of distributing
Solid Fuels Administration for War • 129
the available coal supply extremely complicated. Coal distribution, even in peacetime, is a complex job. Grades, types, and sizes of coal vary widely, and consumers’ burning equipment likewise varies. Some consumers cannot operate without certain coals; other consumers, because of long use and tradition, are accustomed to particular coals. With the shortages of manpower affecting mines unequally, radical shifts had to be made in the distribution of the output of mines throughout the country to make sure that consumers requiring special coals were able to get them and that consumers got enough of some kind, grade or size of coal for essential needs.
This was a task of enormous magnitude. It meant taking into account the production of about 15,000 mines controlled by 14,000 producers ; it meant utilizing efficiently the distributing facilities of 1,500 wholesalers and of tens of thousands of retail dealers; it meant considering the needs of millions of domestic and industrial consumers.
Before the coordinated program necessary properly to balance all the factors entering into this complex situation could be fully developed and effectuated, one local crisis after another had to be surmounted. While much of the Solid Fuels Administration’s effort had to be devoted to handling immediate and specific problems, nevertheless, prior to the close of 1943, it was possible to inaugurate broadergage plans and by the spring of 1944 the entire distribution program had been put on a long-range basis.
THE IMMEDIATE PROBLEMS
The first serious coal shortage occurred in the byproduct coke industry, which supplies the steel industry, as a result of decreased output in mines normally serving it, coupled with increased requirements. This was met by emergency directions which diverted coal suitable for byproduct purposes from other industries to the byproduct plants. The second immediate problem was to halt a maldistribution of anthracite among domestic consumers resulting from changes in the pattern of requirements and from deficiencies in the productivity of various mines. The third problem was to increase the flow of coal via the Great Lakes to move a year’s supply to upper lake docks before the seasonal close of navigation. The fourth problem was to supply coal to industries with insufficient stockpiles.
After the start of the heating season and throughout the winter months there was superimposed upon these principal problems a whole series of domestic coal.shortages throughout the eastern half of the country. Community after community ran short of coal and required emergency assistance. Bituminous coal normally used by industry was rushed into Northeastern States to supplement inadequate supplies of domestic-sized anthracite. Similarly, bituminous coal was diverted into Southeastern States and into Michigan for domestic purposes.
130 • Report of the Secretary of the Interior
Throughout the Plains States voluntary emergency shipments of coal were moved into hundreds of communities. Part of this domestic crisis was due to a shortage of coal to meet unexpectedly increased requirements which came from a decline in the firewood supply, from conversions to coal by users of oil and gas and from war-created population shifts.
These sweeping problems compelled the Solid Fuels Administration to increase its small initial staff rapidly by drafting trained coal men from other Government bureaus and from the industry.
LONG-RANGE PROGRAMS
Handling of the earlier problems was largely by specific directions to producers to ship coal to consumers who were short. These actions prevented interruptions of the war-production program and general suffering among domestic consumers of coal. As the volume of these directions became unmanageable, it became necessary to issue broad orders to direct the whole flow of coal and thereby eliminate many specific directions.
As rapidly as conditions permitted, the Solid Fuels Administration began to make plans for coal distribution in the months ahead. The first long-range plans covered the winter of 1943-44 and a second series of plans covered the entire coal year of 1944-45. By April 1, 1944, general regulations had Been issued laying down a distribution program to continue in effect until March 31, 1945. This program, covering the whole distribution of solid fuels, is designed to spread the supplies expected to be available as fairly as possible. Cut-backs in the domestic consumption of the scarcer solid fuels are provided to assure that most domestic consumers may receive up to nine-tenths of their normal requirements of coal.
To draw up these programs it was necessary to collect a large volume of production and distribution statistics. A steady flow of this information to the Solid Fuels Administration was thereafter required. Upon the basis of these reports it was possible to keep reasonably informed on over-all coal supply and distribution and to determine changes necessary in the pattern of coal distribution.
To assemble this information, full use was made of the statistical services of the former Bituminous Coal Division and of the Bureau of Mines. But with the termination of the Bituminous Coal Division in August 1943 a large share of this statistical work fell upon the Solid Fuels Administration itself. Before the end of the fiscal year, all this work was turned over to the Bureau of Mines in the interest of the most efficient coordination.
In developing its new programs, the Solid Fuels Administration relied in large measure on the experience and advice of the coal industry. A series of industry committees provided continued close contact of the agency with producers, transporters and distributors of coal.
Solid Fuels Administration for War • 131
The primary committee is the Solid Fuels Advisory War Council, first set up early in 1942 by the Solid Fuels Coordinator for War. Its counsel has been secured on every important program undertaken by the Solid Fuels Administration. Contacts with soft coal producers are maintained through advisory boards for the 22 bituminous coal mining districts.
Advisory committees have been established by the Solid Fuels Administration to cover the supply and distribution of anthracite, of bituminous coal and of coke for domestic use. To maintain contact with the thousands of retail dealers, a National Retail Distribution Committee meets regularly to make recommendations.
Dealers throughout the country have been organized into committees to function as an emergency distribution system prepared to avert the development of acute shortages by keeping the Solid Fuels Administration currently informed on area supply conditions. The same committees will function, when necessary, to pool dealer and community resources and take other steps to meet unavoidable emergencies. This flexible system is adaptable to varied local conditions.
ANTHRACITE DISTRIBUTION
Anthracite, the primary fuel for household and other domestic ust» in New England and the Middle Atlantic States, provided the Solid Fuels Administration with the most difficult retail distribution problems met in 1943-44. Responsible for this were the sharply increased demands for domestic sizes due to the influx of war workers into eastern cities, to heavy seaboard conversions from fuel oil, gas and fuel wood, to the withdrawal of much coke from the domestic market, to heavy consumption in the winter of 1942-43 which had exhausted normal dealer inventories and to large new requirements for the military services.
Partly due to these changes in demand and partly to changes in the productivity of various mining operations, a serious maldistribution of the available hard coal was far advanced before the Solid Fuels Administration could halt it. Some retail dealers had received large supplies of anthracite and had oversupplied their customers and others had received little or no coal and their customers were undersupplied.
An emergency program to halt this maldistribution was instituted by the Solid Fuels Administration shortly after mid-June 1943. This program was enlarged on September 1 by ordering a redistribution of current production among wholesalers as a means of bringing retail dealer receipts nearer a common level and by cutting back 10 percent under the 1942-43 receipts the quantities individual dealers could receive. At the same time, the Office of Price Administration was given authority to limit the distribution of hard coal from retailer
132 • Report of the Secretary of the Interior
to consumer. In November 1943, the Office of Price Administration relinquished this control and the Solid Fuels Administration itself instituted a dealer-consumer limitation program.
While these measures improved the situation, the earlier maldistribution could not be fully corrected and, as the winter progressed, hundreds of householders in community after community ran out of coal simultaneously. Emergency diversions totaling some 300,000 tons of coal were required during the winter months to relieve distress. Moreover more than 825,000 tons of hard coal were ordered transferred from one wholesaler to another to level the coal year distribution. To supplement inadequate anthracite supplies, coal from Northern and Southern Appalachian bituminous mines was diverted into seaboard communities. Emergency organizations of several types helped to distribute the limited supplies of solid fuels to householders who ran short in many of these communities.
The supply of anthracite available for domestic distribution in the 1944-45 coal year is running more than 6,000,000 tons short of estimated requirements. A similar shortage existed in the 1943-44 coal year.
A new control program, developed from the 1943-44 coal year experience and designed to spread equitably the limited production, was instituted on April 1,1944, for the 1944-45 coal year. This limits domestic consumers to seven-eighths of their normal supply and provides better controls over distribution from the mines to assure that the output is distributed fairly among dealers.
Increased output of fine sizes of anthracite, suitable only for industrial use, threatened for a time in the fiscal year to clog up the anthracite car supply by the inability of producers to market the coal. However, the Solid Fuels Administration undertook a program to find additional uses for these fine sizes and the situation had been helped before the year’s end.
BITUMINOUS COAL DISTRIBUTION
Approximately 90 percent of the Nation’s coal output is bituminous coal which varies widely in type and quality depending on the mine and the area from which it comes. Since it is the chief industrial fuel, as well as the domestic fuel for millions of consumers^ supply deficiencies could interfere seriously with the whole war program.
Shortages in the supply of high grade eastern-mined coals, which are required for coke making in the expanding steel industry and for the production of metals and certain strategic chemicals, created difficulties early in the fiscal year. As time went on, these shortages extended into the domestic supply which, in large areas, was threatened. Consumers, both industrial and domestic, who were unable to secure the eastern coals then turned to midwestern coals and these new and
Solid Fuels Administration for War • 133
heavy demands extended the shortages into those fields. Consumption requirements exceeding the output were met by diversions from industrial users who had stockpile protection.
Diversions of current production were accomplished, first, by specific directions which ordered coal shipped to a consumer who was short, and, second, by the institution of regulations- which restricted the amount of coal industries were permitted to procure currently in accordance with the protection represented by their stockpiles. The first method, which continued to be necessary in some instances even after general regulations were instituted, necessitated learning from whom the coal would be taken and making sure that it was the type which was suitable for the consumer to whom it was directed. Under the second method of general regulation, industries with ample stockpile protection were compelled to reduce current purchases proportionately, and industrial users with little or no coal on hand were permitted to buy beyond current requirements to build up their protection.
The volume of specific directions issued at times during the fiscal year laid a heavy burden upon the staff of the Solid Fuels Administration. In all a total of 6,541 directions for the shipment of bituminous coal were sent out covering a total of 10,417,496 tons.
Because production of many captive mines which supplied coal to the byproduct coke industry had declined seriously, the problem of supplying the proper coal for coke manufacture was one of the first handled by the office. To reduce the flow of directions diverting coal suitable for byproduct and special purposes away from industrial consumers who had been using it for steam generation, producers were required eventually to give a first preference, before filling any other orders, to the needs of the byproduct industry and to users of special purpose coals.
Late opening of the 1943 navigation season on the Great Lakes and the mine strikes which interfered with the normal movement of coal to the lakes had held the movement up the lakes before midsummer to a dangerously low point. To force additional coal up the lakes, producers were directed to fill orders for coal to be moved by lake, second only to the top preference given to byproduct and special purpose coal. Extremely heavy shipments followed during the last few months of the navigation season, with the result that by the end of 1943 the total movement from Lake Erie ports was within 2,000,000 tons of the 1942 shipments. The preference for lake-borne coal was continued in the 1944-45 program with the additional requirement that shipments be made on an equal monthly basis throughout the navigation season, thereby eliminating need for heavy late season movements.
Although the Pacific Northwest had been expected to provide serious problems in the winter of 1943-44 and the Solid Fuels Administration took steps to prepare for them, a combination of circumstances
134 • Report of the Secretary of the Interior
favorable to the area carried it through the winter without special trouble. Production of coal mines in the Pacific Northwest grew better, the volume of coal imported from Canada was increased and, unexpectedly, a large flow of coal was available from mines in Colorado and Utah. This coal normally would have been moved to the Plains States, but a blocked railroad tunnel necessitated its movement elsewhere.
Although the winter was mild in the Northwest, in the Southeast it was 15 percent colder than normal. The Southeastern States are dependent normally on the same Southern Appalachian mines which supply the Great Lakes trade. Insufficient production in the mines coupled with the heavy movements to the lakes decreased the coal available for the Southeast.
To correct this situation between January and March 1944, producers normally supplying the Southeast were required to fill all outstanding retail orders from that area on their books. Approximately 400,000 tons of coal were moved into Southeastern States in two weeks and the situation was relieved.
The heavy requirements for Southern Appalachian coal for byproduct purposes and for the Great Lakes movement likewise brought repercussions in other areas, such as Michigan, where domestic consumers ran short of the coal they normally received all-rail from the mines. Shipments direct from mines either by voluntary arrangement with the producers or by specific direction assisted in relieving these shortages. Communities in Western Kentucky, Western Tennessee and other East South Central areas normally receiving high volatile coals from midwestern mines also suffered periods of shortage due to the heavy demand for those coals. Emergency shipments from the mines relieved the deficiencies.
The supply of bituminous coal for the Nation’s railroads, which ordinarily consume 23 percent of the bituminous coal output, ran perilously low several times during the winter. Emergency action was required to keep some of the biggest lines in full operation. After consultation with the railroad industry, arrangements were made to substitute available coal for some of the high grade eastern coal the railroads ordinarily used. This has resulted in a largely increased use by railroads, even in the East, of middle western and strip-mined coal. Railroads normally supplied with eastern coal from the Great Lakes docks are now taking midwestern coal moved by way of Lake Michigan.
With the end of the heating season in the spring of 1944, the Solid Fuels Administration controls over the distribution of bituminous coals were relaxed as far as practicable to encourage industrial consumers to rebuild their depleted stockpiles as rapidly as coal became available, thereby fully utilizing mine capacity. The modifications
Solid Fuels Administration for War • 135 were first applied to midwestern coals and then were extended to various eastern coals as the heavy demands for those coals declined. No modifications, however, were made in the controls over Southern Appalachian-mined coal which remained in short supply.
Since it was evident that the available tonnage of domestic sizes of Southern Appalachian coals would continue below requirements, a new Governmental control was put into effect on April 1,1944, limiting the amount of such fuels dealers could furnish to domestic consumers during the warm months for storage purposes. Under this regulation, which was of temporary character, an equitable distribution of the limited supply expected to be available during the spring and summer months was instituted. A program to supplant this temporary action and to control the distribution of scarce bituminous coals throughout the 1944-45 coal year was being formulated at the end of the fiscal year.
DOMESTIC COKE DISTRIBUTION
The responsibility for the equitable distribution of domestic coke was delegated by the War Production Board to the Solid Fuels Administration on December 31, 1943. Temporary regulations were instituted for the remainder of the winter providing that coke be supplied only to consumers with limited stocks. In the 1944-45 coal year program the distribution of domestic coke was coordinated with that of other domestic solid fuels. In the New England and Middle Atlantic States coke is controlled under the regulations which govern anthracite. In the remainder of the country it is controlled under the regulations which govern the distribution of scarce bituminous coal.
To increase the supply of fuel available for the Northeastern and Middle Atlantic States, producers were persuaded to reclaim usable beehive coke which had accumulated in refuse piles near the ovens. This coke has helped materially in supplementing the supply of fuel available to domestic consumers, but the supply is running short and is expected to become exhausted within the next few months.
Because some of the reclaimed coke was being marketed without proper preparation, the Solid Fuels Administration established a maximum permissible limit for ash content to insure that unsatisfactory fuel was kept off the market.
COAL PRODUCTION
Definite contributions to the coal industry’s remarkable production record in 1943 and in the first half of 1944 were made by the Government’s coal agencies, the Solid Fuels Administration for War and the Coal Mines Administration. Output in 1943 was estimated at 589,000,000 tons of bituminous, an increase of some 6,000,000 tons over
136 • Report of the Secretary of the Interior
1942 and the highest production on record, and at 60,644,000 tons of anthracite, highest since 1930. This was accomplished in spite of the continuous attrition of mine manpower and the losses of potential production during the strikes.
The two Government agericies helped to bring harmony between management and labor, helped to make 6-day operation general throughout the industry and secure cooperation of the industry in reducing production losses at holiday and vacation times. The Coal Mines Administration, through the Government-labor agreement, lengthened the working day. The Solid Fuels Administration for War took every available step to maintain mine manpower, to provide essential machinery and equipment and to assist in the extension and development of the mines.
Much of the increased production has been in the low grade and strip-mined bituminous coals and in the fine sizes of anthracite, all of which are suitable only for some industrial purposes. Production of the eastern-mined bituminous coals, essential to the byproduct and metallurgical industries and for domestic use, and of domestic sizes of anthracite continue far short of requirements. Careful control of the distribution of these scarce coals, both hard and soft, is required to assure that the consumers who must have them receive at least enough for their minimum needs.
THE COAL OUTLOOK
Programs of the Solid Fuels Administration for War designed to promote equitable distribution and assure the coal supply for essential users during the next fiscal year should prevent much of the maldistribution which would otherwise be caused by production deficiencies in particular anthracite and bituminous coals. Moreover, an extensive system of field offices, coupled with the work of industry committees, should provide a rapid check on coal supply conditions and permit action to be taken in time to avert the development of emergency conditions.
Also, in the event that unavoidable emergencies arise, the machinery is now functioning to divert coal rapidly to meet the immediate needs of industrial and domestic consumers.
Under present conditions, the individual industrial and domestic consumer will get the greatest coal protection by cooperating with his supplier to:
1.	Store as much of his equitable share of coal as his supplier can furnish before the start of the next heating season.
2.	Substitute available and suitable alternative coals, as far as possible, for the use of the scarce fuels.
3.	Exercise the utmost conservation in the use of the fuel that he is able to obtain.
Coal Mines Administration
C. J. Potter, Deputy Administrator
THE NATION’S coal mining industry, of which possession was taken by the Government when it was paralyzed by a general strike, was back in private control before the end of the fiscal year, with harmony restored between management and labor and with production at a wartime peak.
Affairs of the Coal Mines Administration, set up by the Secretary of the Interior to administer Government possession of the mines, were being liquidated as the fiscal year ended.
All but 2 of the mines had been turned back to their owners 13 months after possession of some 3,300 strike-bound pits was taken by the Government to restore and maintain full coal production essential to the successful prosecution of the war.
During the period of Government possession:
A strike-bound, demoralized industry was restored to full operation without bloodshed or use of force, despite the almost hopelessly tangled relations between the mine workers and the operators.
Working time was substantially increased and the miners redoubled efforts to get out the coal under a Government wage contract which provided for no increase in the basic rates of pay specified by their pre-war contract with the operators.
All previous bituminous coal production records were broken and anthracite was at wartime maximum in an industry that for years has failed to operate in the absence of a contract between its owners and employees.
Mine workers and operators were finally brought together on a mutually acceptable wage contract within the National Stabilization Program, and the mines were quickly restored to private possession and control.
137
138 • Report of the Secretary of the Interior
The Secretary of the Interior first took possession of the coal mines on May 1, 1943, under an Executive order of the President after general strikes had practically halted mining operations and curtailment of war production was being threatened by coal shortages. The strikes resulted from a break-down in wage contract renewal negotiations between the operators and mine labor.
The initial take-over was carried out by the Solid Fuels Administration for War. However, that agency had been established primarily to regulate wartime coal distribution and early in July 1943, the Secretary set up the Coal Mines Administration to administer Federal possession of the coal pits.
After the first take-over, the miners voluntarily returned to work under arrangements made by the Secretary for operation under Government control. On June 25, 1943, the War Labor Disputes Act (Smith-Connally Act) became law, requiring a return of Government-possessed private properties to their owners within 60 days after they had attained the productive efficiency prevailing prior to the takeover. Under the terms of this law, and under the existing circumstances the mines were all returned to their owners by October 12, 1943, although no wage contracts for their operation had been concluded.
Sporadic strikes again broke out a day later, the miners refusing to stay on the job in the absence of a wage contract.
By November 1, strikes had become widespread and production had practically ceased. A new Presidential Executive order was then issued authorizing and directing the Secretary of the Interior once again to take possession of all mines in which production had been stopped or was threatened by strikes. The new order directed the Secretary to “* * * offer the duly constituted representatives of the workers’ own choosing a contract or contracts governing the terms and conditions of employment for the period of the operation of the mines by the Government * *
The Secretary immediately called in representatives of the United Mine Workers of America and on November 3, after but a few hours of actual negotiation between representatives of the workers and of the Coal Alines Administration, reached an agreement as to the terms and conditions of employment to govern both bituminous and anthracite mines in the Government’s custody.
This agreement continued in effect various changes in the former contracts which had been ordered by the War Labor Board and further, provided for an increase in the workday and for payment in the bituminous mines for portal-to-portal travel time in accordance with principles formally announced by the War Labor Board.
This contract was subsequently approved by the AVar Labor Board as being within the Stabilization Program.
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Under the new Government-United Mine Workers agreement, so far as bituminous coal was concerned, assuming that 45 minutes were spent daily by the miners in travel inside the mine between the mine mouth and the working face, the miners agreed to work 8 hours a day at actual coal production instead of the 7 hours spent under the previous industry agreement. This new agreement later became the basis for a new contract between the operators and mine labor.
Under the agreement, payment of a basic wage of $8.50 per day in the bituminous mines was authorized. This was the amount the miners would have earned for 8 hours of actual work under the old contract. Of this sum, 50 cents was counted as basic compensation for portal-to-portal travel time.
The contract provided no increase in the basic wage rate of $1 per hour for straight time and $1.50 per hour for overtime but it recognized that the bituminous miners were entitled to pay for inside travel time as well as worktime.
Under the new contract, the basic wage obtainable by inside day men in bituminous mines was $57.06 per week for the new 8-hour workday as contrasted to an average of $45.50 per week for the 7-hour day under the old contract. The change required the men to stay underground 9 hours per day, which includes an average of 8 hours productive work, 45 minutes of travel time and 15 minutes for lunch, to earn $8.50 per day.
The agreement between the Government and the United Mine Workers of America similarly provided for increased work by the anthracite miners. Under this agreement hard-coal miners contracted to reduce their customary 30-minute lunch period to 15 minutes. The 15 minutes given thereby became productive time for which compensation would be paid at the rate of 37.8 cents per day for each miner— the average overtime rate for that time on the job under the old industry contract.
In mid-November the Secretary of the Interior called together 29 of the principal owners and operators of bituminous coal and anthracite mining properties and urged them to negotiate a contract with the mine workers, pointing out that the execution of a firm contract was essential to settlement of the Nation’s coal troubles. Two days later he convened a joint conference of the bituminous coal operators and representatives of the United Mine Workers to start them on the resumption of negotiations to work out a joint wage agreement within the framework of the November 3 Government agreement and the decisions of the National War Labor Board.
As a result of the deliberations of this group, an industry agreement was worked out to continue in effect until March 31,1945. The agree
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ment was modeled on the Government contract and provided for a retroactive payment of $40 in settlement of portal-to-portal travel time claims. At the request of the negotiators, the Secretary called a meeting in Washington on December 17, 1943, at which representatives of approximately two-thirds of the Nation’s bituminous coal tonnage approved the new Supplemental Wage Agreement. The agreement was then submitted to the War Labor Board.
In the spring of 1944 widespread unrest developed among soft coal miners as a result of failure to execute the agreement and delay in making the $40 retroactive payment. On May 19, 1944, the Supplemental Wage Agreement was approved by the War Labor Board and the Director of Economic Stabilization. The approval covered the entire agreement including the $40 retroactive pay provision.
In the anthracite industry negotiations between operators and the miners eventuated on March 8, 1944, in a contract to remain in effect until April 30, 1945. The contract continued the provisions of the Government agreement as well as the other modifications which had been directed previously by the War Labor Board and compromised several controversies which had not yet been settled. It received War Labor Board approval on April 7. This contract was finally ratified by the mine workers after a tri-district convention in mid-June.
The Secretary of the Interior terminated Government possession of mines operated by the members of the Coal Producers Association of Illinois on December 20,1943, after a contract had been executed with the Progressive Mine Workers Union labor in those mines. Possession of other mines was retained by the Coal Mines Administration after the receipt of an opinion of the Attorney General to the effect that the War Labor Disputes Act did not require that possession of mines be terminated if the absence of a firm wage contract constituted a continued threat to the maintenance of coal production.
On May 31, 1944, the Secretary terminated Government possession of bituminous coal company properties in six production districts which had executed the bituminous wage contract and had indicated their readiness to put it into effect immediately upon termination of Government possession. Between May 31 and June 21, mines of additional companies were released as information was received that they had either executed or were about to execute the wage contract and were ready to put it into effect.
On June 21, the Secretary released the mines of all coal companies, both anthracite and bituminous, then remaining in Government possession, except two. These were the bituminous mines of the Jewell Ridge Coal Corporation of Tazewell, Va., which was testing the va
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lidity of portal-to-portal payments in Federal courts. They were still in Government possession at the end of the fiscal year.
Administration of Government possession of the mines in 1943-44 was carried out with practically no interference with the normal management of the mining properties, and the coal mining operations continued to be for the financial account of the coal mining companies.
Executive heads of the various coal companies were designated as Federal operating managers of the mines and field staffs of Government trained men were established in the production districts to maintain contact between the Coal Mines Administration and the operating managers. The staff of the Coal Mines Administration itself was kept at minimum size by utilizing as far as possible the services of trained men already serving the Department of the Interior in the Solid Fuels Administration, the Bureau of Mines and the Bituminous Coal Division until that division was terminated in August 1943.
Mine output increased impressively during the period of Government possession in spite of steady manpower drains, the serious production losses in the strikes and sharp increases in the average age of miners. For 1943 as a whole, bituminous production totaled 589,-000,000 tons, the highest output on record. Anthracite output totaled 60,644,000 tons, the highest production in 14 years. In the first half of 1944, soft-coal production increased 12 percent and anthracite 13 percent over the first 6 months of 1943.
Besides the longer working day provided under the Governmentmine workers’ agreement, several programs sponsored by the Government undoubtedly contributed to this achievement. Most important of these was the 6-day-week program. Shortly after the Government takeover, instructions were issued to all operating managers to afford the men an opportunity to work the sixth day. This resulted in more general 6-day operation than had been the case previously.
The miners were afforded an opportunity to work during the usual holiday and vacation periods.. As a result, very substantial tonnages of coal were produced on various days in 1943 and 1944 ordinarily observed as holidays in the mines. Production was also maintained during the scheduled vacation period of 1943 and operators and miners in 1944 made supplementary agreements to eliminate the vacation period.
A Sunday work program was instituted in the anthracite mines in February 1944, by agreement with the operators and miners. In the four Sundays of that month, nearly 600,000 tons of hard coal were added to the Nation’s supply. At the same time, the month’s output on the usual working days was raised 100,000 tons over that in January.
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While the mines were in Government possession, Coal Mines Administration officials worked continuously to settle and prevent the day-to-day strikes which ordinarily occur in individual mines as a result of local disputes. Other programs included an investigation of the operation of company-owned commissaries and an intensification of health and safety activities. Fewer lives were lost per million tons of coal mined between November 1,1943, and May 30, 1944, than in any comparable period on record.
Petroleum Conservation
Division
J. W. Steele, Acting Director
THROUGH foresight of Congress the Connally “Hot Oil” Act was enacted February 22, 1935, delegating to the President prescribed powers “to regulate interstate and foreign commerce in petroleum and its products by prohibiting the shipment in such comm prop of petroleum and its products produced in violation of State law, and for other purposes.” Primarily designed “to encourage the conservation of deposits of crude oil within the United States” the Petroleum Conservation Division was created to effectuate the expressed intention of Congress.
Acting through the Secretary, as the designated agent of the President, the functions of Petroleum Conservation Division are to assist in the prescribed administration of the act, to cooperate with oil and gas producing states in the prevention of waste and the adoption of uniform oil and gas conservation laws, and to keep informed as to the movement in interstate commerce of petroleum and its products with respect to its parity between supply and consumptive demand.
Regulations were promulgated requiring, among other things, the keeping of books and records and the filing of reports by those respectively engaged in producing, shipping or transporting, and refining petroleum within designated areas.
FEDERAL PETROLEUM BOARD
Federal Tender Board No. 1 was established at Kilgore, Tex., to enforce the Connally Act by administration of regulations promulgated thereunder and to regulate the movement in interstate commerce of petroleum from designated areas. This Board, under supervision of the Petroleum Conservation Division, continued its prescribed func
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tions until October 27, 1942, when it was superseded by the present Federal Petroleum Board in pursuance of Order No. 1753-A.
While the Connally Act is applicable to any State having conservation laws regulating production of petroleum, regulatory operations of Federal Petroleum Board are now confined to 106 counties in Texas, the 2 principal oil producing counties in New Mexico, and the entire State of Louisiana. The major oil producing and refining sections in the Southwest are within these areas. Eliminating fields of minor commercial significance,, there are 557 oil fields, containing 64,584 oil wells, producing daily an average of 1,914,500 barrels of crude oil; 79 refineries processing daily an average of 1,446,000 barrels of petroleum products; and 128 gasoline plants producing daily an average of 105,500 barrels of casinghead gasoline and liquefied petroleum gases.
The counties within Texas and New Mexico which were excluded from the designated areas contain fields incapable of producing oil in excess of the amounts permitted by State laws and are therefore not subject to prohibitions prescribed by the Connally Act. The administration of prescribed regulations would, in such fields, be an unwarrantable burden on the industry and an unnecessary expense to the Government. For similar reason, the required filing of reports by producers has been suspended in certain fields within the designated areas.
The enforcement of the act and administration of the regulations is essentially a specialized field operation requiring, among other things, physical inspection of properties and facilities of oil operators. This function is necessary to maintain effective control over the interstate movement of petroleum and petroleum products. As a result of this control, illegal practices are reduced and a maximum compliance with conservation laws is maintained in oil operations.
Extensive activities of Federal Petroleum Board have been somewhat curtailed by reduction in experienced personnel and other wartime handicaps, yet the volume of criminal investigative operations has been maintained at a comparatively high level.
During the fiscal year 41 criminal investigations were initiated which, together with 4 investigations in progress at the close of the preceding year, were disposed of as follows:
One case was successfully prosecuted; 27 were concluded administratively because of insufficient and inconclusive evidence; and 2 were closed by action of the Attorney General. At the close of the year, 2 cases were pending with the Department of Justice, 3 were pending trial on dockets of United States District Courts, 1 case was in process of transmittal to the Department of Justice for prosecution, and 5 cases remained under investigation.
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At the beginning of the year eight criminal cases were pending with the Department of Justice. Two cases were successfully prosecuted, five were closed because of inconclusive evidence, and one was pending June 30,1944.
Of seven criminal cases pending in Federal courts at the beginning of the year, six were successfully prosecuted and one remained pending trial on June 30,1944.
In the nine cases successfully prosecuted fines aggregating $7,430 were assessed and several suspended sentences were imposed.
*
General Land Office
Fred W. Johnson, Commissioner
NEW LEGISLATION to modernize present Federal land laws is one of the requirements essential to the most effectual use of the millions of acres of public land in the continental United States and Alaska under the jurisdiction of the General Land Office. Only through the enactment of such remedial statutes can the maximum benefits under national conservation safeguards be assured with which to meet current and post-war demands for the utilization of natural resources. Moreover, this fundamental need, firmly established by land administration experience in connection with the war, is an integral factor in the adequate handling of the after-the-war responsibilities of this Federal organization which for 132 years has served as the official real estate agent of the Government.
The needs for up-to-date laws are numerous and are reflected in virtually every field of public land administration. Specifically, however, there are at least five major points at which service to the public is being hampered by lack of adequate statutory authority to act. These are outlined in the following:
RECOMMENDATIONS
1. Mechanized warfare has shown beyond a doubt that minerals are the sinews of modern war and unequivocally demonstrated the necessity for the highest degree of efficacy in our national mineral economy. That goal is not possible of attainment without a rejuvenation of our Federal mining laws. The experience of the first few months of the emergency when our admittedly superior technical and industrial skill was handicapped by a lack of readily available raw mineral materials, must not be repeated. The gravity of the situation is aggravated by the fact that generally speaking, the United States had the materials at all times, but because of antiquated statutes, was unable to find out what and where they were.
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Specifically, the vast areas of public lands and lands acquired under the National Industry Recovery Act, the Bankhead-Jones Farm Tenant Act and various relief appropriation and rehabilitation acts constitute a veritable storehouse of essential minerals. Under present statutes, no method exists by which the United States may catalog and in cooperation with private initiative develop the resources on those acquired lands through leases based on sound principles of conservation. Such legislation as will enable the marshalling of our full complement of mineral resources is a necessary adjunct to adequate stock piling not only for current needs but also for future post-war or emergency demands. Moreover, the application of the leasing system to the acquired lands would be particularly advantageous, since it would allow those lands, which are in large part situated in or near well-settled areas, to be used contemporaneously for mining and for numerous essential surface uses.
Similarly, except for the fuel and fertilizer minerals in the public lands, no authority at present exists for supervising the mining of other minerals owned by the United States. No real mineral conservation is possible without such authority. A general leasing system would supply not only the power to conserve but would enable the Government to classify and catalog its mineral resources on these lands also. Finally, the accumulation of knowledge of the allocation of mineral deposits which would naturally result from a leasing system, would prove a valuable defense element in time of war.
• 2. One of the elements essential to successful administration of the public domain is complete, authentic information as to the character and status of the land. At the present time, evidence of the filing of thousands of unpatented mining claims is not made a matter of Federal record, but is merely registered in county recording offices. The enactment of legislation to enable the recording of such evidence in the General Land Office is urgently recommended. The decided advantage of such a system was clearly demonstrated during the earlier stages of the war when time-consuming search of county offices had to be made before land could be made available for troop-training and other military purposes.
3.	One of the most serious handicaps to proper administration of the public domain during the post-war period is expected to be the lack of any facilities by which detailed information can be secured concerning the real-estate holdings of the various branches of the Federal Government. The establishment within the General Land Office of a centralized, consolidated inventory of all such land records is recommended .as a solution of this problem.
4.	Plans for land settlement in Alaska call for the utmost in service and safeguards for the public if development of the Territory is to be attained on a permanently stabilized basis. Protection against ill-
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advised use of the public domain in Alaska, similar to that afforded on the mainland through the requirements for classification of land tracts for the best use to which they may be put, would do much to promote the stability of its economic future. The passage of legislation making such classification statutes applicable to the public domain in the Territory is urgently recommended.
5.	The need for the utmost development of natural resources consistent with nonwasteful use is apparent from even the most cursory survey of post-war requirements. The world-wide pressure for forest products resources, food, fiber, or leather furnished in part from the public domain will call for the highest possible efficiency in the administration of the public lands. Greater protection of the public lands and their resources from dissipation would be afforded by the enactment of a uniform Federal trespass law.
POST-WAR PLANNING
Besides the necessity for modern laws, an adequate response to the prospective heavy demands for natural-resource materials in the rehabilitation of a post-war world entails a need for coordinated planning after the war. Such a program encompassing many aspects of settlement, resource development and other problems in land administration already has been set under way by the General Land Office. The scope of this workds indicated below.
Alaska
Popular interest in the Territory of Alaska has reached new heights. The presence of American troops, the construction of the military highway system, and the influx of civilian workers on the many construction projects in Alaska have focused attention upon the possibilities of the .area for permanent homes. In advance of anticipated post-war demands, trained technicians were sent to the Territory by the General Land Office near the end of the fiscal year, in order that plans could be ready for an orderly development of land-settlement activities which will safely avoid the disastrous ghost-town experiences of earlier settler days on the mainland. Meantime, deluged with requests for information, the Office distributed tens of thousands of leaflets and other publications setting forth the basic requirements for land settlement in the Territory under Federal law. The principal point stressed in all this material is the fact that, contrary to popular belief, it is not possible to secure public land on an “order by mail, sight unseen” basis, since Federal statutes require personal inspection and full knowledge of the general characteristics of any piece of land for which application may be made.
Coupled with the land settlement problem is the need for the identification through official surveys executed by the Cadastral Engineering
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Service of additional tracts of the public land in the Territory. Some idea of the task confronting the General Land Office in this respect may be gained from the fact that only 2,322,079 acres of the total land area of 365,481,600 acres have as yet been surveyed. While, of course, all of the remaining 363,159,521 acres of unsurveyed land will not be included in even the most extensive post-war plans, since it contains mountainous terrain and other tracts not adaptable to use, nevertheless the cadastral measurement of land areas as a step toward proper settlement activities will be a necessary part of the post-war program.
The resumption of tourist travel in Alaska and the growth in the population expected to result from the increased settlement after the war will involve greater responsibilities for forest fire protection than those now borne by the Alaskan Fire Control Service. This branch of the General Land Office, which has just completed its fifth year of operation can, upon the cessation of the war emergency, be expanded to meet the urgent needs of post-war conditions in the Territory.
Soldier Settlement
American service men and women have become more land-conscious than any group of comparable numerical strength in recent years. Trained in camps far from their homes, and later transferred to foreign lands, they have acquired a yearning for a home of their own, which in many instances means a homestead on Government land. The furnishing of an adequate number of land areas to meet that demand is another high priority problem facing the General Land Office in the postwar era. Its solution is complicated by the fact that homesteading, as popularly understood, was first set under way by President Abraham Lincoln 82 years ago and that, as a consequence, good farm land upon which an agricultural living can be made as required by the homestead law, is scarce on the vacant, unappropriated and unreserved public domain in the United States which still remains in Federal ownership. This does not apply to the public land in Alaska, where good agricultural areas still are open to settlement, nor, obviously, to such farm lands as may be made available on Federal reclamation projects.
Meanwhile, another and broader opportunity for land settlement by World War veterans as well as civilians is afforded under the terms of a law which authorizes the lease or sale of not to exceed 5 acres of public land for home, camp, cabin, health, convalescent, recreational, or business purposes. Popularly known as the “small sites” act, this law does not require the making of a living by agriculture upon the land. In order properly to care for the postwar expansion in this type of land settlement, field parties of the General Land Office were engaged during the past year in the classification of areas of the public domain suitable for such use, and informational material setting
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forth the location of the tracts and the legal requirements for theii settlement was made available to the public.
The gratitude of the Nation for its fighting forces has always been reflected, after other wars, in the granting of special privileges to veterans in the acquisition of the public land. Credit for military service, for example, was given in meeting the time requirements involved in securing land under the homestead laws. The extension of similar credit to veterans of this war is authorized in legislation advocated by the General Land Office which had passed the House of Representatives, but not the Senate, by the end of the fiscal year. Its final approval will prove another favorable factor in soldier settlement plans in the postwar period.1
Training Areas
A segment of the public domain equal to half the total land surface in New York State has been directly dedicated to jvar purposes. Some set aside for national defense use even before Pearl Harbor brought a formal declaration of war, these 15,400,000 acres withdrawn by public-land orders or Executive orders swiftly were transformed into troop training areas, target ranges, tank maneuver grounds, aerial bombing ranges, and other forms of military reservations. All of these lands were mustered into active service only for the duration of the war, with the stipulation that the tracts would return to their “civilian” status in the public domain 6 months after Presidential proclamation that the emergency is at an end.
The fitting of these “demobilized” lands into the post-war economy will constitute another element in General Land Office activities. Some of the tracts, formerly so isolated as to be of minor use, now are made more accessible by the construction of military roads and other improvements. Whether tracts of such a type will present additional opportunities for small site or other form of settlement after the war is a major angle to the postwar land administration problem.
Natural Resources
A broader responsibility in the conservation of natural resources on the public domain forms still another factor in General Land Office operational plans for the period after the war. Widening the scope of these activities, Congress during the past fiscal year passed a law extending the policy of sustained yield timber management to all the public land. The application to the entire public domain of this principle which has been so successful in the development and pro-
’This act (Public 434) was approved by the President on September 27, 1944. It gives credit up to 2 years for military service in meeting residence and cultivation requirements under the homestead laws, and grants veterans during the next 10 years a 90-day preference right of application under the homestead or desert land laws, and the small site leasing act.
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duction of forest products on 2,500,000 acres of revested Oregon and California railroad grant lands, is calculated to prove a distinct contribution in the solution of postwar economic problems.
The resumption on an enlarged scale of operations by the Range Development Service, curtailed during the emergency, will be an integral part of plans for securing the maximum benefits from the use of natural resources on the public domain in the production of food after the war. This program of conservation carried on in cooperation with livestock men who use the public range outside Federal graizng districts for feeding and watering their cattle or sheep will provide technical assistance in combatting soil erosion, the construction and improvement of watering facilities, and the fencing and reseeding of grazing areas.
The part that the public lands may play in the expansion of airborne transportation facilities after the war already is a matter of study by the General Land Office. Under existing Federal statutes, it is the responsibility of the office to lease portions of the public domain for use as airfields by municipalities or private individuals; consideration currently is being given to the problem of whether amendment of the laws might not be advisable to permit the leasing of public lands for landing fields and repair shops in glider operations as well as airplane flights.
THE YEAR IN REVIEW
With many of its field offices reporting an upswing in “over the counter” business similar to that which prevailed in the General Land Office as a whole, a review of activities for the fiscal period ending June 30,1944, reveals an outstanding record of accomplishment under national conservation policies.
Receipts and Expenditures
Not the least of the year’s achievements was the financial benefit accruing to the American taxpayer from the General Land Office operations. Total receipts for the 1944 fiscal year were $14,355,342, the highest since 1924, and more than $4,597,000 greater than the previous fiscal period. This was the third time since 1880 that receipts of the General Land Office have exceeded $14,000,000.
Total operating expenses of $2,321,664 were only $17,000 more than the previous year, with the result that the ratio of receipts to expenditures in 1944 was $6.18 in income for every $1 of outgo, the highest ratio in a decade and nearly double that attained in 5 of the last 10 years.
Mineral Work Breaks Records
All records for the largest amount of money ever offered to the United States Government for the privilege of drilling for oil on one
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acre of Federal land were shattered twice in the same year by the General Land Office in leasing the public land for development of petroleum resources during the 1944 fiscal period. Oddly enough, both record-breaking bids were offered for land in the same area—the Elk Basin oil and gas-producing field in Wyoming. In August 1943 a bid of $5,800 smashed all previous high offers for 1-acre drilling rights. Three months later, a bid of $26,216.21—nearly five times greater than the previous high mark—was made to set a new world’s record for peak value per acre of Government oil land. This unprecedented price was offered for land in the Elk Basin field which comprised one of seven parcels in the area which aggregated approximately 75 acres.
Nearly 3 million dollars was paid the Government during the year as bonus bids for the privilege of drilling for oil, a profit to the taxpayer which does not take into account the additional rental and royalties from production on the lands which accrue to the Federal Government under General Land Office lease operations. Federal lands in Wyoming made the largest contribution in bonus-bid revenues, the lease of 2,849.05 acres bringing a bonus of $2,844,028.46. The lease of lands in Montana, New Mexico, Oklahoma, Utah, and Wyoming brought a combined bonus bid score for the year of $2,874,454.
The net result of these and other financial transactions conducted by the General Land Office in the mineral field during the year was the collection of receipts totaling $11,791,097. This constituted the second highest cash proceeds from mineral activities to the Government during the 24 years of operations under the Mineral Leasing Act of 1920, the peak of $13,631,840 having been reached in 1924.
Bringing about a 25 percent increase in the amount of coal produced from the public lands during the year, the General Land Office contributed 9,061,045 short tons of fuel to keep war factories in operation in 1944. During the same period, a 10-percent increase was attained in the amount of petroleum produced from the public domain, 15 percent in potassium salts, and 18 percent in sodium salts.
Besides these direct contributions from the public domain, more than 70,800,000 acres were withdrawn for various war uses in connection with the development of strategic minerals, and 43,000 acres were provided under special licenses to defense plants for the extraction of strategic minerals.
Best Land Use Studied
Complex problems ranging from determining the status and disposal of 11 million acres of land ceded to the United States 75 years ago by the Ute Indians of Colorado to the designation of tracts suitable for settlement by returned war veterans placed heavy burdens upon the technical branches of the General Land Office during the 1944 fiscal year. Serving as the channel for authentic information and
154 • Report of the Secretary of the Interior statistical data upon which governmental procedures and Federal legislation may be based, the Research and Analysis Division completed its Federal land inventory covering four Western States and registered notable progress in the compilations affecting other areas of the public domain. Carried out with the assistance of the Civilian Public Service Camp in Elkton, Oreg., the inventory makes available for the first time in public land administration activities a complete set of county maps encompassing Nevada, New Mexico, Utah, and Wyoming, and showing the location of the public-land tracts and the several agencies of Government which exercise jurisdiction over the areas as of 1941.
Coequal with the task during 1944 of assembling and interpreting data on the scope, location and character of the public lands was the responsibility of the Land Classification Division in protecting the areas from unwise or wasteful use. A prerequisite to the disposal of any portion of the public domain under national conservation policies written into the Taylor Grazing Act of 1934, land classification involves the scientific determination of the best use to which the land may be put, and the approval or rejection of land use applications on the basis of these findings. One of the outstanding accomplishments of the Division during the year was the classification in advance of applications for use of areas of the public lands suitable for lease by ex-soldiers and others for home, camp, health, convalescent, recreational, or business purposes. In this way, opportunity has been afforded for speedy action on this feature of post-war land settlement problems.
Oregon and California Revested Lands Administration
The furnishing of forest products for war and the taking of definite steps toward permanent economic stability of the lumbering industry and communities in the post-war period was the twofold task accomplished by the Oregon and California Revested Lands Administration during the 1944 fiscal year. This branch of the General Land Office was established in 1938 to carry out provisions of Federal law which require sustained-yield forestry management practices on 2,500,000 acres of land formerly included in a grant for construction of a railroad between Oregon and California, but now reverted into Federal ownership. Under the sustained-yield method of forestry management, timber-cutting is limited to the extent which will insure a continuous supply of raw materials for the industry and communities dependent upon it for existence. Replenishment of the forests is fostered through tree planting, reseeding of denuded areas, fire protection and other forest conservation practices.
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Containing one of the finest stands of Douglas Fir trees in the United States, the Oregon and California lands have been called upon for valuable contributions to the Nation’s war needs, furnishing forestry products ranging from heavy construction and bridge timbers to airplane woods. In the past year, sales of timber from these lands exceeded 390,063,000 board feet, valued at $1,361,991. More than $900,000 of the proceeds from these sales are scheduled to be paid to the 18 counties in Oregon in which the lands are situated, in accordance with Federal statutes.
Plans to activate the program for setting up operating units in the Oregon and California land structure laid aside on account of the war emergency, were carried forward during 1944. Under this program, the economic selfsufficiency of the lumbering industry and communities in the region will be sought through the establishment of a marketing area to be served by the unit through a continuous flow of forest products insured under sustained-yield timber cutting.
Further augmenting the post-war program for betterments in the industry on the Pacific coast is the planting of seedlings on the denuded land by the Oregon and California organization. Utilizing the services of Civilian Public Service Camp enrollees, a total of 1,650,000 young trees were planted during 1944. Many of these seedlings were grown in nurseries maintained by the General Land Office.
Cadastral Engineering Service
Scientific land measurements which have been basic in the administration of the public domain since the earliest days of the Republic were carried on by the Cadastral Engineering Service in 1944 as an essential part of the conduct of the war. Differing from the type of survey work which involves primarily the recording of geologic, geographic, or historic features of the terrain, cadastral surveying consists of careful measurement of areas on the ground, for use in connection with administration of the public lands, and the recording of such measurements by the placing of monuments or other markers, and the preparation of maps scientifically compiled from field notes made by trained engineers at the time of the on-the-ground measurements.
Although sharply curtailed by wartime restrictions upon funds, personnel, and materials, these survey activities nevertheless were maintained in 17 States and Alaska during the year. Centering its operations primarily upon projects directly connected with the war, the Service, through 86 field groups and facilities maintained in 13 public survey offices, responded to requests for technical assistance from the Army and Navy and 6 other agencies of the Government, in addition to the work-schedule of the General Land Office.
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As a result of these operations, more than 1,352,800 acres of land were surveyed or resurveyed during the course of the year, embracing projects essential to the war-connected livestock industry, timber resources, and power sites for war and post-war purposes. Meantime, approximately 44 million acres of land await survey by the Service as the result of approved projects. Study of these proj ects with a view to their inclusion in an expanded survey program to be undertaken with the return of normal peace-time conditions, formed a part of the workload in the last fiscal year.
Branch of Field Examination
One of the primary agencies of Government in bringing about the best use of the public lands in the interest of conservation and the public welfare is the Branch of Field Examination. Its activities during 1944 ranged from finding new pastures for ranchers engaged in raising livestock for the war to the subterranean tracing of depredations which 42 years ago resulted in the unlawful mining and removal of more than 200,000 tons of coal from the public domain.
Particularly important to the war are the operations of this organization in the investigation of mining claims on sites selected for military purposes. As a result of these examinations, undertaken at the request of either the War or Navy Department, many thousands of abandoned claims have been eliminated with a saving of thousands of dollars in the acquisition of the lands. In one region alone, it was discovered that, out of several thousand mining locations examined, only three were maintained in accordance with existing law, and these three were appraised and purchased by the War Department.
The examination of land upon which is based the rejection or approval of plans for its use under the public land laws, is a major responsibility of the Branch. Similar investigatory work in connection with tracts of the public domain outside Federal grazing districts which are sought for livestock raising, was another task confronting the field examiners in 1944. In the course of these latter operations, some isolated areas overlooked by the ranchers and aggregating more than 150,000 acres were brought to the attention of the livestock men and made available for lease in order that the war food supply might be increased.
With its staff of trained technicians including mining and civil engineers, geologists, lawyers, auditors, timber cruisers, range specialists, and others experienced in land investigations, the Branch during the year handled many difficult and unusual types of cases. In the field of tresspass upon the public lands there was, for instance, the case where trees had been lifted bodily and planted miles away, for landscape purposes, and, in the case of the pilfered coal, the BFE men had to dig their own mine shafts and face the dangers of fire damp
General Land Office • 157
to determine the extent of the damage inflicted upon the public domain resources nearly a half-century ago.
Alaskan Fire Control Service
The Alaskan Fire Control Service completed its fifth year of activity on the public domain in Alaska in 1944 with a record of the lowest lire losses yet sustained during its operations in the Territory. However, despite cooperation between the various Federal agencies and the military forces in Alaska, coupled with unusually favorable weather conditions from the standpoint of fire protection, the Service nevertheless was called upon to suppress 61 fires which burned 53,686 seres during the year. Handicapped by restricted funds and personnel, it was powerless to undertake suppression work on 13 fires in other areas which consumed more than 180,000 acres.
From the military point of view, much valuable assistance was given in the prosecution of the war by the activities of the Service in the last 12 months. Numerous fires endangering military installations, encampments, equipment, etc. were suppressed by the personnel and equipment of this General Land Office agency. In addition, radio stations and other air navigational facilities were several times saved from destruction or impairment, while the air-lanes were kept unusually free of smoke, thus partially removing one of the annual hazards formerly confronting all air transportation in interior Alaska.
One of the world’s largest single fire-fighting districts, the responsibilities of the Alaskan Fire Control Service embrace more than 250 million acres of public domain, including approximately 40 million acres of forests, 110 million acres of open woodland and grassland and 100 million acres of sometimes dry and inflammable tundra areas.
Grazing on Public Lands
More acres of public land outside Federal grazing districts than ever before were utilized under lease from the General Land Office in 1944 for the production of food, fiber, and leather for military and civilian needs. Registering an increase of more than 400,000 acres over the previous year, a total of 12,440,210 acres of public land in continental United States and Alaska were made subject to use under 10,020 separate leases involving annual rentals of $227,308.
In addition to the activities for augmenting the Nation’s supply of livestock products afforded by the leasing of the public lands for grazing, the operations of the Range Development Service form an integral part of the progressive permanent land administration program under the supervision of the General Land Office. Although its activities were restricted by wartime personnel and material shortages, this Service nevertheless worked on 134 projects designed to improve 617248—45—13
158 • Report of the Secretary of the Interior
stock raising conditions on more than 800,000 acres. Equipped to carry forward a broad program of range improvement; its work includes the development of watering facilities, replenishment of forage through reseeding and control of soil erosion. Working in close cooperation with the stockmen who contribute a portion of the labor and funds necessary to undertake the projects, the Service is prepared to put into effect a broad schedule of improvements when normal employment and supply conditions are restored.
THE PUBLIC LANDS
Area of the Public Lands
The area of public lands remaining in Federal ownership, including Indian trust and tribal lands, as of June 30, 1944, amounted to about 400 million acres in the public land States, and about 365 million acres in Alaska. Approximately 393 million acres of these public lands were vacant and unreserved as follows: 37 million acres in the States outside of Federal grazing districts; 131 million acres within such districts; and 225 million acres in Alaska.
Of the approximately 778 million acres remaining in Federal ownership in the States and Alaska, 118 million acres in the States and 363 million acres in Alaska w’ere still unsurveyed as of June 30, 1944.
The total acreage patented with minerals reserved to the United States was increased during the year to 48,688,421 acres, as shown by the following table:
Acreage of lands patented with minerals reserved to the United States, as of June 30, 1944
Type of mineral reservation	Patented during fiscal year 1944	Total patented through lune 1944
Reservation of all minerals: Under Stock Raising Act	 Under other acts..		 Total	 Reservation of specific minerals: Coal	 Others 1	 Total	 Grand total		38, 803 116,303 155,106 15, 948 11, 649 27, 597 182, 703	33,570,958 2, 325,572 35,896,530 10,870,531 1,921,360 12,791,891 48,688,421
Leases and Permits
During the year an additional area of 594,366 acres was brought under lease, including mineral licenses and permits, making a total of 15,913,927 acres under lease at the end of the year. The types of leases in force June 30, 1944, are shown by the following tables:
General Land Office
159
Mineral leases, permits, and licenses outstanding,1 as of June 30, 1944
Mineral	Leases		Permits		Licenses		Total	
	Number	Acres	Number	Acres	Number	Acres	Number	Acres
Coal	 Oil and gas	 Phosphate	 Potash	 Sodium			 Total		340 2 5, 238 9 20 4 5,611	72, 514 2,970,918 5, 364 47, 292 1,874 3,097,962	86 73 159	74,979 109, 499 184, 478	104 104	4,060 4,060	530 5,238 9 20 77 5,874	151, 553 2, 970, 918 5,364 47, 292 111, 373 3, 286, 500
i Does not include permits granted to Federal war agencies.
2 Does not include 18 leases within naval reserves (9,199 acres).
Leases other than mineral leases outstanding, as of June 30, 1944
Type of lease	Number	Acres	Annual rental
Aviation	 Fur farm (Alaska)	 Grazing (Alaska)	 Grazing (Oregon and California)	,	 Grazing (Taylor Act, sec. 15)	 Recreational	 Scrugham Act	 Small sites (5-acre tracts)	 Water well			 Others	 Total	.		43 19 9 192 10,020 22 8 403 12 3 10, 731	28,936.27 133,810.00 1,168,953.93 306,302. 79 10, 964,952. 78 21,049. 78 798.89 1,989.96 480.00 153.01 12,627,427.41	$525.00 775.00 1,269.35 7,444.13 218,594.60 i 1,372.63 2 19.605.00 3 1,995.00 485.50 10.00 252,076.21
1	Does not include rental of 1 lease, the rental of which is based on receipts.
2	Sale price of timber authorized to be cut.
3	Does not include rental of 4 business site leases, the rentals of which are based on receipts.
In addition, 634,800 acres were being used at the end of the year by Federal and local agencies, private individuals, and corporations under permit by the Commissioner of the General Land Office. War agencies held temporary Departmental permits for the use of about 22 million acres of public lands.
Homesteads, Sales, and Other Entries
A decline in the number of entries on the public lands in continental United States was experienced during the year, the number of new homesteads decreasing from 213 during the fiscal year of 1943 to 158 during 1944. The number of new homesteads in Alaska, however, increased from 79 to 94.
The following tables show the new entries and selections allowed, the entries finally approved, and the patents and certificates issued during the year. At the end of the year 4,302 entries embracing 663,796 acres were pending awaiting further compliance with the public land laws by entrymen or final action by the General Land Office,
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Original entries and selections 1 fiscal year 1944
Type of entry or selection	Public lands		Ceded Indian lands		Total	
	Number	Acres	Number	Acres	Number	Acres
Homestead entries: Stock raising	 Enlarged.. A	,	 Reclamation	... Forest	 Sec. 2289 R. 8., et al	 Total homestead entries	'		5 3 12 4 133 157	2, 320. 00 785.74 1, 336. 53 306. 52 14,939.01 19,687.80	1 1	180. 00 180	5 3 13 4 133 158	2,320.00 785.74 1,516.53 306.52 14,939.01 19,867.80
Other entries and selections: Desert land entries	 State selections	 Timber and stone applications	 Mineral applications and adverse claims	 Town lots 2		 Other	 Total other entries	 Grand total		30 109 3 69 24 3 238 395	4, 246.05 58,359.02 99.78 7, 964. 78 (3) 42.82 70,712. 45 90,400. 25	1	180	30 109 3 69 24 3 238 396	4,246.05 58,359.02 99.78 7,964.78 (3) 42.82 70,712.45 90,580.25
’An original entry or selection is one made in pursuance of an act of the Congress which prescribes the terms and conditions under which patent may be issued or other evidence of title granted. An original entry becomes a final entry upon compliance by the entryman with further requirements of the law, such as residence or additional payment, and upon the issuance of a final certificate. A State selection becomes final upon certification by the Commissioner of the General Land Office.
2	Town lots upon which only part payment was made.
3	Area not tabulated.
Final entries 1 fiscal year 1944
Type of entry	Public lands		Ceded Indian lands		Total	
	Number	Acres	Number	Acres	Number	Acres
Homestead entries: Stock raising	 Enlarged	 Reclamation	 Forest	 Commuted	 Sec. 2289 R. S., et al		56 5 139 3 1 80	26, 685.35 1,096. 03 15, 640.81 135. 31 141.58 6, 948. 43	1 9 16 8	400.00 972. 49 1,178.78 520.00	57 5 148 3 17 88	27,085.35 1,096.03 16, 613.30 135.31 1,320.36 7,468.43
Total homestead entries		284	50, 647. 51	34	3,071. 27	318	53,718.78
Other entries: Desert land entries		 Public auction sales 2	 Timber and stone entries	 Mineral entries	-	 Town lots	 Miscellaneous cash entries	 Other		22 135 3 98 207 54 7	2,731.38 11,031.17 99.78 7,881.68 (3) 8,962.06 430. 40	48	(3)	22 135 3 98 255 54 7	2,731.38 11,031.17 99.78	. 7,881.68 (3) 8,962.06 430.40
Total other entries	 Grand total		526 810	31,136.47 81,783. 98	48 82	3,071. 27	574 892	31,136.47 84,855.25
A final entry is one upon which final certificate has been issued showing that the law has been complied with and that in the absence of irregularity, the entryman or claimant is entitled to a patent. If the requirement of the law has been met, the equitable title to the land passes to the claimant upon the issuance of the final certificate.
2 Isolated tracts.
3 Area not tabulated.
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Patents and certifications 1 fiscal year 1944
Type of patent	Public lands		Ceded Indian lands		Total	
	Number	Acres	Number	Acres	Number	Acres
Homestead patents: Stock raising	 Enlarged	 Reclamation	 Forest	 Commuted	 Sec. 2289 R. S., et al	 Total homestead patents—	75 9 159 4 96 343	38,803. 29 1, 503. 36 16, 023.11 109. 76 8. 437. 34 64, 876. 86	2 1 1 4	200.00 40.00 160.00 400. 00	75 11 159 4 1 97 347	38,803. 29 1, 703. 36 16,023.11 109.76 40.00 8, 597. 34 65, 276. 86
Other patents: Desert land	 Public auction 2 3	 Timber and stone	 Mineral	 Indian	 Miscellaneous cash sale... Exchange	 State grants	 Curative and supplemental	 Other	 Total other patents		26 132 3 100 448 125 31 191 86 1,142	3, 637. 65 10, 808.07 240. 00 7,487. 05 9, 265. 75 195, 597. 80 76, 919. 73 (*) 5, 753.95 309, 710.00	128 128	3 6, 649. 51 6,649. 51	26 132 3 100 128 448 125 31 191 86 1,270	3, 637. 65 10, 808.07 240.00 7, 487. 05 6, 649. 51 9, 265. 75 195, 597.80 76,919. 73 (<) 5, 753. 95 316, 359. 51
Total all patents	 Certified to States		1,485	374,586. 86 20,087. 88	132	7,049. 51	1,617	381, 636. 37 20,087. 88
Grand total..			1,485	394, 674. 74	132	7, 049.51	1,617	401, 724. 25
i Where upon final examination it is found that an entry or selection is in proper form and that the law has been complied with, a patent conveying the legal title to the claimant is issued. In the case of certain State selections, the legal title is conveyed upon approval thereof by the Secretary of the Interior and certification by the Commissioner of the General Land Office.
2 Isolated tracts.
3 Indian tribal lands.
< Acreage not counted because previously reported.
Land Grants
Title to 102,185 acres was conveyed during the year in satisfaction of grants of land made to the States and railroads by the Congress for public purposes. Grants to States included 75,180 acres of park selections, 17,426 acres of indemnity school land selections, 2,662 acres selected for miners’ hospitals, and 1,740 acres of swamp land. The Northern Pacific Railroad received 5,177 acres patented to it pursuant to the Transportation Act of 1940. In addition to these grants, 25 patents were issued to States to give them additional evidence of title to 569,575 acres of previously granted school sections.
A total of 249 applications for rights-of-way were approved during the year under laws which provide for the granting of rights-of-way over the public lands for telegraph and telephone lines, public roads,
162 • Report of the Secretary of the Interior
pipelines and other purposes. Of the applications approved, 81 in-volved permits or easements calling for an annual rental of $2,520 and 33 were temporary rights-of-way over the Oregon and California lands with an annual rental of $340.
Land Exchanges
Exchanges of land with private parties and local governments during the year resulted in the addition of 144,904 acres to grazing districts in exchange for 153,314 acres of Federal land; 13,553 acres to Indian reservations in exchange for 18,063 acres; 2,219 acres to the Oregon and California lands in exchange for 840 acres; and 361,778 acres to national forests in exchange for 23,381 acres of land and sufficient timber to equalize the values involved.
Receipts and Expenditures
Receipts from all sources during the year totaled $14,355,342. Mineral rentals, royalties, and bonuses accounted for 82 percent of the total receipts and sales of timber from the Oregon and California and Coos Bay lands for an additional 13 percent. The remaining 5 percent was realized from fees and commissions, sales of public and ceded Indian lands, rentals, fines and penalties, copying fees, and from miscellaneous sources.
Of the total receipts, 37 percent will be distributed to various States, and counties and 43 percent will be credited to the reclamation fund. Except for $13,098, which will be credited to Indian trust funds, and $50,617 which will be credited to the range improvement fund, the remainder will be covered into the general fund of the Treasury.
Expenditures from appropriations amounted to $2,321,664 distributed as follows: general, $857,495; surveys, $560,766; field examination, $331,461; administration of the revested and reconveyed lands, $257,966; district land offices, $250,727; range improvements, $32,986; and fire control in Alaska, $30,263. Expenditures, aggregating $286,374, were made from funds transferred to the General Land Office for the emergency protection of certain public lands and for soil and moisture conservation operations.
The following table shows the receipts earned during the year, by sources and by Treasury accounts.
General Land Office • 163
Disposition of receipts of the General Land Office,1 2 3 4 5 6 fiscal year 1944
Covered in the Treasury earmarked for—
Source of receipts	General fund	Reclamation fund	States and counties	Indian trust funds	Total
Sales of public lands	 Fees and commissions	 Mineral leases and permits: Mineral Leasing Act	 Red River oil and gas lands	 Potash	 Other		$25, 095. 57 10, 264. 76 1,091, 397.48 58, 788.08 4 229, 570.31	2 $80,000. 00 2 40, 000.00 5, 729,836. 78 3 358, 754. 91	2 $2, 000.00 4, 092,740. 56 3, 582.93 220,455.30	$5,971. 54	$107,095. 57 50, 264. 76 10, 913, 974. 82 9,554.47 637,998. 29 229, 570. 31
Total mineral	 Oregon and California grant lands— Coos Bay grant lands	 Taylor Act grazing leases	 Rights-of-way leases	 Sales of reclamation town lots	 Sales and lease of Indian lands	 Copying fees	 Miscellaneous		1,379, 755.87 885,112.83 4, 969. 21 50, 616. 58 30,408. 75 17, 343. 36 340, 735.33	6,088, 591. 69 3 50, 616. 58 «13, 608. 65	4,316, 778. 79 885,112.82 2 20, 000. 00 101,233.17	5,971. 54 7,126. 23	11, 791,097.89 l,*770,225. 65 24,969. 21 202,466. 33 30,408. 75 13, 608.65 7,126. 23 17,343.36 340, 735.33
Grand total		2,744, 302.26	6,272,816.92	5, 325,124. 78	13,097. 77	14,355, 341. 73
1 Before final settlement of all accounts by the General Accounting Office.
2 Estimated.
3 Includes $50,117.50 collected in California under act of Oct. 2, 1917 (40 Stat. 297).
4 Includes $20,257.66 collected in Wyoming under act of June 26, 1926 (44 Stat. 1621), $193,195.80 collected in California under Executive order 9087 dated Mar. 5,1942, and $16,116.85 collected in Alaska, of which $260 were collected under the Mineral Leasing Act of 1920.
5 Range improvement fund.
6 Includes $1,250 from sales of reserved reclamation lands.

Office of Land Utilization
Lee Muck, Assistant to the Secretary
THE activities of the Office of Land Utilization are primarily of an advisory and coordinating nature. The assumption of administrative functions that should be performed by the bureaus and other units which form a part of the departmental organization are assiduously avoided. The office aids in every possible way in the formulation of plans for the improvement of administrative activities and takes the lead in the presentation to the Congress of the appropriation needs of the Department as a whole for soil and moisture conservation operations, white pine blister rust control, and emergency forest fire protection.
When such appropriations are authorized, they are allotted to the various action agencies of the Department in proportion to requirements as revealed by detailed reports. In such apportionment the office utilizes the experience gained by members of its force during many years of practical administration in responsible units of the Federal Government over widely distributed areas. The details of expenditure and the field supervision of construction, protection, and related activities are left primarily to the discretion' of representatives of various administrative units. Supervision by the Office of Land Utilization is confined to the guidance of the action agencies in the selection of projects which can unquestionably qualify as appropriate activities under the justifications that have been submitted to the Bureau of the Budget and the Congress and upon the basis of which it is assumed the appropriations were made. The supervision of appropriations and coordination of types of projects to be undertaken is supplemented by field inspections and conferences with those in direct charge of field activities for the purpose of insuring that the final results achieved are consistent with the general purposes of the Department.
In the soil and moisture conservation program emphasis is constantly placed upon the restoration to former productiveness of range
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166 • Report of the Secretary of the Interior
lands and farm lands that have been subjected to improper use and it is insistently required that proper use be established as a condition precedent to the expenditure of Federal funds in a restoration plan. Attention is centered upon the proposition that only when the recovery of a range and the restoration of agricultural productivity can not be effected through the utilization of natural processes should expensive methods of control be used. The recuperative powers of nature are astonishingly effective in the correction of unfavorable conditions when the destructive agencies are removed. The artificial reseeding of a range may secure no better result than carefully regulated grazing will effect at a much lower cost. The construction of expensive masonry structures for the protection or restoration of eroding farm lands is authorized only when it is reasonably apparent that less heroic measures will not be effective.
In the problem of protecting forests from fire, disease, and insects there is generally less occasion for cautioning against precipitate expenditures than there is for encouraging alertness. The suddenness with which a forest fire may develop into an uncontrollable conflagration and the insidious manner in which a forest disease or insect infestation may spread before detection demand constant vigilance and prompt suppression without too anxious a calculation of the initial cost. The Office of Land Utilization need offer no apologies for its persistent advocacy of increased measures of forest protection, especially for the vast resources of Alaska which have never received the protection which their economic importance justifies.
SOIL AND MOISTURE CONSERVATION OPERATIONS
Under the provisions of the Soil Conservation Act of April 27,1935 (49 Stat. 163), and the President’s Reorganization Plan No. IV (54 Stat. 1234), soil and moisture conservation projects on lands under the jurisdiction of the Department of the Interior are coordinated through the Office of Land Utilization.
The impact of the war had a restraining effect on the scope and amount of work undertaken and, accordingly, the soil and moisture conservation program of the Department has been restricted to avoid conflicts in the use of labor, equipment, or materials that might be needed in the prosecution of the war. The practices and procedures followed have been adjusted to a wartime economy, with the emphasis on those projects and operations which would contribute to the winning of the war. Special emphasis has been placed on projects such as range reseeding, small water developments, water spreading, vegetative gully control, and similar projects that are low in cost, that can largely be accomplished through the use of local materials, and that fit in with the cooperation obtained from the users of the land.
Office of Land Utilization • 167
Much of the soil erosion and water losses fpom the lands under the jurisdiction of the Department was occasioned by unsatisfactory use conditions on the upper portions of.the various watersheds. These conditions were the result of ill-advised use or misuse over a long period of time. Continued use of these lands was necessary in the war program and the procedures adopted gave consideration to the necessity of maintaining use while correction of the unsatisfactory conditions was occurring. Accordingly, a major part of the effort of the Office of Land Utilization in the coordination of the program for the Department as a whole was to secure a maximum amount of cooperation from the users of lands under its supervision. This procedure was devised to develop interest in conservation by the users of the Federal lands and to accomplish a larger amount of work by obtaining contributions of labor, materials, and money. During the past year these contributions in value amounted to 50 percent of the amount appropriated by the Congress.
Close cooperation also was maintained by field offices of the land-management agencies with local soil conservation districts, pursuant to an interdepartmental cooperative agreement between the Department of Agriculture and the Department of the Interior, which recognized that the conservation of soil and moisture on Department of the Interior lands was a segment of the over-all national conservation policy.
The funds available during the past year, namely $1,333,200 were less than at any time since the program started, but much progress was made in soil and moisture conservation by reason of the high degree of cooperation which prevailed.
•The Department now is well organized for the prosecution of a sound program of soil and moisture conservation that is understood and supported by the land-management agencies and by a constantly increasing number of the users of its lands. With the continuation of the necessary funds for the work during the post-war years, marked progress can be made in the restoration and rehabilitation of those lands under the jurisdiction of the Department which now are in an impoverished condition. The program as a whole has been designed and procedures have been set up to effect a complete and coordinated rehabilitation program on a sound, practical basis.
COORDINATION OF WATER PROGRAMS
In recognition of the fact that programs designed to attain a closely coordinated plan in the field of land use could not be fully realized without a similar degree of coordination in the field of water development programs, the Water Resources Committee was established within the Office of the Secretary by Departmental Order No. 1946 under
168 • Report of the Secretary of the Interior
date of May 2, 1944. The Water Resources Committee acts in an advisory capacity to the Secretary and its functions concisely stated are: the assembly of essential information covering the water-development programs of the bureaus and offices of the Department and other Federal, State, and private agencies; the review of all basic water-development projects or programs proposed to be undertaken by the bureaus and offices of the Department; the preparation for submission to the agencies concerned with water-development programs of statements covering various aspects of such programs with a view to providing definite information thereon and reconciling such conflicts with respect to water use as may develop; the conduct of hearings on problems concerned with the use and development of water resources for the purpose of resolving questions concerning policy; and the formulation of such recommendations to the Secretary as will insure an ah-inclusive departmental water conservation policy.
The plan of coordination of land-management and water-development programs, which has been established in the office of the Secretary of the Interior, is a major forward step in the field of administrative management. It insures effective coordination at the top level of administration and the objective sought is achieved through the effective correlation of operating relationships at the lower administrative levels concerned with action programs in the field of land management and water utilization. The time is at hand when these principles of administrative coordination and integration should be extended to all Federal agencies engaged in these fields, for the effective use of land and water will not be at its best until all agencies dealing with these functions have coordinated and integrated their responsibilities and activities.
LAND CLASSIFICATION AND LAND POLICY
Because of the extensive areas and the variable character of the lands under the jurisdiction of the Department of the Interior, there is urgent need for the development of a unified policy of land management. As a part of the staff work for the Departmental Land Policy Committee, the office is cooperating with the land-management bureaus of the Department in preparing a succinct statement of the Department’s policies for administering the agricultural, grazing, forest, wildlife, mineral, water, and recreational resources under its control; for acquiring lands needed for essential public purposes; and for disposing of public lands suitable for private ownership. The objectives sought are the clarification of existing policies, the coordination of conflicting policies and procedures, and the formulation of new policies where existing policies appear to be inadequate to protect or advance the public interest in the Federal lands.
Office of Land Utilization • 169
PLANNING POST-WAR PUBLIC LAND IMPROVEMENTS
An integral part of the war program has been the planning for maintenance of employment in the post-war demobilization period, during which time men in the armed forces and workers in expanded war industries may be released faster than peacetime industries, with their difficult problems of reconversion, can absorb them. To provide a reservoir of employment opportunities, the land-administering agencies of the Department, in response to a letter from the President dated May 22, 1943, have submitted budgets for planning and blueprinting of construction projects which would produce, if needed, all or any part of an estimated 1,550,000 man-years of employment. The Office of Land Utilization assisted in the preparation of these programs for presentation to the Bureau of the Budget.
FOREST MANAGEMENT
The effect of the World War upon forest administration has been especially significant. The very unusual demand for forest products has been accompanied by a marked shortage of manpower and by an effort to control prices of logs and of manufactured forest products. Every facility for an increase in production has been afforded by the Department. Some operators have been able to increase their production. However, the total production from Department of the Interior lands has shown a reduction in volume over the preceding year. The total cut from Oregon and California revested and reconveyed grant lands was slightly below 400 million board feet with a stumpage value of $1,321,641. The cut from Indian lands was 423 million board feet with a value of $1,766,192. Relatively small amounts were cut from public lands in Alaska and the United States.
The act of August 28,1937 (50 Stat. 874), providing for a conservative administration of the Oregon and California revested and reconveyed grant lands, was the first recognition in Federal law of the principle of cooperative sustained yield in forest management. During the past year this Department joined with the Department of Agriculture and other agencies in requesting from the Congress general legislation that would authorize sustained-yield agreements for all classes of public land administered by the Secretary of the Interior and the Secretary of Agriculture for timber production purposes. This important legislation was secured in the act of March 29, 1944 (Public, No. 273,78th Cong.).
WAR RELOCATION AUTHORITY
The President, by Executive Order 9102 of March 18, 1942, created the War Relocation Authority, a nonmilitary agency with authority to formulate and carry out a program for the p] anned and orderly re
170 • Report of the Secretary of the Interior
location of persons evacuated from military areas. Acting pursuant to this Executive order, agreements were entered into between the Department of the Interior and the Director of the War Relocation Authority providing for the location of evacuee communities on lands under the jurisdiction of the Department. Agreements were consummated covering lands within the Tule Lake Reclamation Project, Calif,, the Minidoka Reclamation Project, Idaho, the Heart Mountain Reservation Project, Wyo., the Colorado River Indian Reservation, Ariz,, and the Gila River Indian Reservation, Ariz.
By Executive Order 9423 of February 16, 1944, the President transferred the War Relocation Authority from its status as an independent agency to the Department of the Interior. This action had the effect of eliminating any necessity for continuing further liaison activities by the Office of Land Utilization.
FOREST AND RANGE FIRE CONTROL
With $530,000 appropriated by the Interior Appropriation Act of 1944, together with $231,708 previous year balances reappropriated, the emergency fire control program of the Department of the Interior was continued during the year. This program, an essential war activity, supplements and augments normal fire protection for the forest and range resources situated on the forest, brush, and grass lands of the Department located within a 300-mile zone of the Atlantic and Pacific coasts and the Gulfs of Mexico and California.
There are approximately 400 million acres of forest, brush, and grass lands requiring protection from fire under the jurisdiction of the bureaus and agencies of the Department of the Interior in the continental United States and Alaska. Of this total acreage approximately 272 million acres lie within critical zones and have required special protection during the war. These lands support some of the finest stands of virgin timber left in the United States, together with other resources all of which are playing an important, part in the present 1 war emergency. Protection of these resources from sabotage, direct , enemy action, and normal fire risks is a major responsibility of the action agencies of the Department of the Interior.
The responsibility of the Department to protect the resources and related strategic facilities located on or adjacent to lands under its jurisdiction has been most satisfactorily met during the past 2 years The normal fire control protection organizations, assisted by ap- , proximately 500 trained guards and standby crewmen made available through the emergency fire protection program, were able to hold fire losses to low levels, and thus prevent the disruption or destruction of important war activities.
Office of Land Utilization • 171
Cooperation between the Department of the Interior, the Department of Agriculture, and the War Department continued at a high level throughout the year. The Forest Fire Fighters Service perfected its organization and trained approximately 200,000 volunteer civilian fire fighters for prevention and suppression work in 44 States. The assistance rendered by the Forest Fire Fighters Service to all organized fire protection agencies has proved feo be very valuable and especially so to some of the action agencies of this Department.
Excellent results have been achieved in the coordination of fire control work on all Department of the Interior lands during the war. However, provision has yet to be made for increased regular appropriations which will insure adequate protection for the entire 400 million acres under the management of this Department.
WHITE PINE BLISTER RUST CONTROL
White pine blister rust control operations on lands administered by the Department of the Interior were continued during the fiscal year 1944. These operations are designed to protect the valuable five-needle pines from the white pine blister rust, a fungus disease of foreign origin which became established in this country approximately 30 years ago. The actual control work consists of the eradication of Ribes (currant and gooseberry bushes), the alternate hosts of the disease. The act of April 26, 1940 (54 Stat. 168-169), provides that all white pine blister rust control operations be combined as one appropriation to be carried in the annual appropriation act of the Department of Agriculture. For the fiscal year 1944, $170,747 was appropriated for white pine blister rust control work on Department of the Interior lands and made available to the National Park Service, the Office of Indian Affairs, and the Oregon and California Revested Lands Administration of the General Land Office.
Progress in the control operations on Department of the Interior lands during the war has been necessarily slow and has barely kept pace with the spread of the disease. In the calendar year 1943, 9,446 acres were worked for the first time and 15,143 acres were reworked.
CIVILIAN PUBLIC SERVICE CAMPS
Section 5 (g) of the Selective Training and Service Act of 1940, approved September 16, 1940 (54 Stat. 885), provided that persons who by reason of religious training and belief were conscientiously opposed to participation in war should not be subject to combatant training and service in the land or naval forces of the United States, and further provided for the assignment of such conscientious objectors to noncombatant service or to work of national importance under civilian direction.
172 • Report of the Secretary of the Interior
Prior to July 1, 1943, all Civilian Public Service camps were sponsored by the National Service Board for Religious Objectors and the costs of operating the camps, except as to the work program, was financed by that organization. On July 1,1943, Civilian Public Service Camp No. Ill was organized at Mancos, Colo., under the supervision of the Bureau of Reclamation, and full responsibility for both housekeeping and the wDrk project at this camp was assumed by the Government. Two other government-operated camps, namely, Civilian Public Service Camp No. 128 at the Deschutes Reclamation project (Oregon), and Civilian Public Service Camp No. 135 at the Seney National Wildlife Refuge (Michigan), were placed in operation during the year.
All camps on Department of the Interior lands, of which there was a total of 11 at the close of the year, continued to give first priority to the protection and conservation of natural resources, including fire, insect, and disease control.
PRISONER-OF-WAR CAMPS
On November 8, 1943, the Secretary advised the Provost Marshal General of the War Department that the Office of Land Utilization had been selected to represent the Department of the Interior with respect to all proposals pertaining to the use of prisoner-of-war labor on Department of the Interior lands.
Following the establishment of this liaison relationship a request was made to the War Department for clarification of its policy with respect to the compensation to be paid by Federal agencies for prisoner-of-war labor. As a direct result of this request the War Department issued instructions which provided that the sponsoring Federal agency reimburse the War Department for the aggregate cost of prisoner-of-war labor at the rate of 80 cents per day for wages and approximately 65 cents per day for subsistence.
As of June 30, 1944, only one contract had been consummated with the War Department by an agency of this Department, namely, the Fish and Wildlife Service. However, it is expected that this source of labor may prove helpful in relieving shortages which have developed in connection with slash disposal on Indian reservations and in the construction of access roads.
Grazing Service
C. L. Forsling, Director
THE IMPORTANCE in war of land, minerals, food, fibre, and other materials derived from the soil has been emphasized throughout the fiscal year. To help mobilize these resources on grazing district lands so they may be utilized to the full extent in the war program has been foremost in the work of the Grazing Service. Many of its peacetime “musts” have been postponed until victory is won.
The Federal range is extensively used in many ways for the training of men and the development of machines and skills for war. Practice bombing ranges, flying schools, mine roads, supply dumps, and many other similar activities and uses tell the story of the part these lands are playing in the war program.
Range Administration.—In the 10 years since the passage of the Taylor Grazing Act progress has been made in the accomplishment of the proper use of the grazing district range. This has made it possible for these lands better to play their part in the production of livestock for war needs. Regulation of the range has eliminated the migrant herds which formerly menaced the stability of the local livestock industry. The consumption of vast quantities of forage by horses that are no longer useful as domestic animals has been greatly reduced, and the reduction in overstocking coupled with better seasonal use affords better growth of forage.
Most effective of all perhaps has been the stabilization in the use of the range by the dependent livestock operators and the elimination of ruthless competition. Those who are entitled to use the range now have reasonable assurance that they will have the benefit of the available forage and may plan their_ livestock operations with greater certainty.
In spite of these accomplishments, however, numerous jobs remain undone. Man^ areas need closer determination of grazing capacitv and the application of better management practices in order to restore
61/248—45-14	17Q
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the productivity of the range which was dissipated through the long period of unregulated use. The complicated land ownership pattern which developed prior to the establishment of the grazing districts calls for the development and execution of land exchanges whereby private, State, and railroad land is exchanged for Federal range and the exchange of use of land to simplify range administration to the advantage both of the Government and the range users. Vast areas need to be reseeded. Many improvements such as watering places, drift and division fences, and other facilities should be constructed to afford better management and more even utilization of the grazing resources. Protection from fire is still inadequate. Rodent control, to reduce the waste of range feed, needs to be expanded. These are jobs to be undertaken as soon as enough manpower and enough facilities are available.
It is the wartime policy of the Grazing Service to assist and encourage stockmen in every way possible, consistent with long-time policies, to produce more meat, wool, and other livestock products to meet the needs of war. It includes the following general principles: (1) increased use of Federal range wherever possible and consistent with good range management; (2) removal of surplus horses and the harvest of surplus game and their diversion to food channels; (3) increased protection to reduce the loss of forage and damage to the productive capacity of the soil by fire; (4) the adoption of practices and emergency activities, such as opening snow-blocked trails, to reduce livestock losses; (5) better management of both range and livestock.
Increased range use was attained by allowing extended grazing periods, by a system of war emergency licenses and by the trend of the industry toward more cattle and fewer sheep. During the fiscal year, 1,497 war emergency licenses were issued for 70,319 cattle, 993 horses, 145,700 sheep, and 4,513 goats.
A comparison of range use during the years 1940 to 1944 (using 1940 as 100 percent) shows that the number of animals licensed and permitted have been increased by 6 percent in the 5-year period and the total amount of range use permitted has been increased by 15 percent.
Whether this increased use is consistent with the sustained yield and further increase in productive capacity of the range is a-matter for immediate consideration after the close of the war. The extra use has been permitted as a temporary war-emergency measure and must be curtailed wherever necessary as soon as the emergency has passed.
Action under the Secretary’s orders of March 16,1943, and January 29,1944, resulted in the removal of 32,920 surplus horses from grazing districts, an increase of 7,647 over the number removed in 1943. A total of 77,163 horses have been taken from the Federal range and adjacent territory during the past 2 years. These have been diverted
Grazing Service • 175
to many useful purposes. At the same time, thousands of acres of range formerly used by these horses have become available for cattle, sheep, and wildlife.
Despite an increased harvest of big game in grazing districts, the numbers increased by about 30,000 over the previous year. Cooperative game counts in sample areas and inventories gathered from many sources indicate that approximately 535,000 big game animals inhabit grazing districts during a part or all of the year.
Licenses and permits.—The number of licensed operators increased from 22,019 to 22,562, a gain of 543, and involved 10,694,305 livestock, by classes as follows: cattle, 1,990,272; horses, 127,701; sheep, 8,482,387; goats, 93,956. The statistical detail is shown by regions on table I at the end of the chapter.
The trend toward more cattle and fewer sheep in grazing districts followed the national wartime pattern. In the 5-year period (1940-44) cattle numbers licensed have increased 27 percent and sheep have decreased 16 percent. Sixty-four percent of the range operators were on a term permit basis at the close of the year.
Criticisms from many quarters calling attention to illegal use of the range are supported by records which show a greater number of trespass cases during 1944 than for any previous year. Current high prices for livestock, coupled with the extra grazing load and inadequate facilities for complete range supervision have encouraged trespass. This circumstance is in need of correction and can be met if and when additional personnel is provided.
Range surveys and utilization checks.—Range surveys were completed on 738,630 acres and grazing capacity estimates rechecked on 6,281,565 acres during the year. The area covered by original range surveys (598,463 acres) was the smallest coverage since the inception of this type of work in 1936. To date 114,326,240 acres have been covered by range surveys in 10 States. Since the pattern of grazing use as well as of land ownership is interwoven with Federal, State, and private lands, such surveys include a comprehensive examination of all the lands involved. Approximately 100 million acres to be surveyed in grazing districts are included in plans for post-war work, as it is anticipated that our trained personnel, many of whom are now serving in the armed forces, will again be available.
Appeals and hearings.—During the fiscal year, 142 appeals from administrative decisions were filed, an all-time low. Of these, 67 were disposed of and 75 were pending at the close of the year. Twenty of the cases disposed of were settled without formal hearing. Ten decisions of examiners were appealed to the Secretary.
Land activities.—For the third successive year primary emphasis in grazing district land matters was given to military needs. During the fiscal year 1944,1,357,000 acres were eliminated from grazing districts
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for war purposes and 11,676,000 acres were involved in military use permits. These include bombing ranges, gunnery ranges, precision bombing sites, airfields, storage dumps, depot installations, chemical warfare proving grounds, troop maneuver areas, rights-of-way for telephone lines, water pipe lines, and military roads. The livestock producers cooperated to the fullest extent in adjusting their range affairs in order that military requirements could be met.
Certain land uses for military purposes became unnecessary during the year. Also, certain military programs demanded only temporary occupancy of public lands for training purposes and, having served the purposes for which they were withdrawn, they were restored to grazing use. During the year, 1,351,000 acres of such lands were returned to Grazing Service Administration.
As of June 1914, 24,168,532 acres of grazing district lands in nine States were used for military purposes, of which 14,428,919 acres are federally owned.
There are a number of reasons why these lands are selected for military uses despite their importance for food production. Among these are: (1) their relatively low cost to the Government, (2) distance from population and industrial centers, and (3) favorable climate and topography for large-scale training operations.
Military agencies were assisted by the Grazing Service in the joint examination of areas proposed for withdrawal, special use, and alternate use. Maps, data, and technical assistance were furnished in connection with the appraisal of ranch and range areas to establish equitable settlement values under the act of July 9, 1942 (Public, No. 663, 77th Cong.). Advice and liaison were provided the Army Claims Board and enabled it to settle more promptly for alleged damages to private property in connection with troop maneuvers.
Prior cooperative agreements with bureaus in the Department were continued and new agreements for further cooperation on mutual problems were initiated. Close cooperation in these and related activities helped to maintain balanced livestock activities in the regions while affording both grazing and military uses of a number of important range areas.
Careful study was given to post-war uses of lands now devoted to military operation. Substantially all of these lands will be restored to grazing administration when they have fulfilled their present purposes. As a result of these uses and the various types of installations considerable repair is anticipated not only of the land itself but also of the livestock facilities.
Under the act of June 5,1942 (Public, 586, 77th Cong.), the Grazing Service reported favorably on a number of applications to purchase timber growing on the Federal range, when the investigation showed that the lumber was to be used in connection with production of equipment for war.
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At the beginning of the fiscal year, 209 applications were pending in the Grazing Service, involving rights-of-way, entry, exchange, and sale under sections 6, 7, 8, and 14 of the Taylor Grazing Act and the 5-acre law of June 1, 1938. Seven hundred and thirty-two such cases were received during the year, and 747 were disposed of, leaving a total of 283 pending at the close of the year. Favorable action was taken on 8 motion-picture permits, 72 cases involving disposal of improvement on canceled homesteads, and 564 applications for domestic use of timber within grazing districts.
Since actions on land matters having to do with war needs took precedence, full progress on earlier plans for consolidation of the federally owned land by the exchanges for private, State, and county land and by additional leases under the Pierce Act was retarded in some regions. Detailed, long-time plans to fit into range development and post-war activities were under way in 10 districts, involving approximately 40,000,000 acres in 10 States. These were in the process of preparation in written form at the close of the year.
Status of grazing districts— Orders were issued establishing 2 additional grazing districts during the year, bringing the total to 60 in 10 States. Data and other essential material were assembled looking to the establishment of other districts or the addition to established districts in 3 States. Status changes during the year included, in addition to military withdrawals, 36 orders vacating former reclamation withdrawals, totaling 5o0,000 acres; revocation of stock driveway withdrawals involving 720,000 acres; and allocation of 50,600 acres for development under the Department’s reclamation program. Grazing district acreages are shown by regions on table II at the end of the chapter.
Funds. Congress provided $1,070,700 for the opeiation of grazing districts during the fiscal year 1944. Of this amount $978,700 was for ' over-all administration, including presuppression of range fires; $83,000 for construction and maintenance of range improvements; and $9,000 for leasing of lands under the Pierce Act. Contributed funds and allotments for soil and moisture conservation work, for fire suppression, and for miscellaneous items totaled $912,283.55. The Public Roads Administration transferred to the Grazing Service $1,446,500 for construction of access roads under the Defense Highway Act, as amended.
Grazing fees.—Earned grazing fees in the grazing districts totaled $813,351.96. Of this amount $406,584.32 was paid to the States affected and $183.43 was deposited to the credit of Indians under provisions of the Taylor Grazing Act. State revenues derived from grazing fees during the 9-year period, 1936 to 1944, now total $3,062,-04(.34. Moneys paid to States as a result of grazing fees earned in the fiscal year 1944 are as follows: Arizona, $18,484.26; California, $10,087.20; Colorado, $27,056.36; Idaho, $37,321.96; Montana, $28,-
178 • Report of the Secretary of the Interior
515.37; New Mexico, $60,337.92; Nevada, $65,051.35; Oregon, $26,-980.31; Utah, $74,063.15; Wyoming, $58,686.14. The flat rate of 5 cents per month per head for cattle and 1 cent per month for sheep over 6 months of age, with some exceptions, continued to be charged as the grazing fee in grazing districts. The authorizing act provides for “the payment annually of reasonable fees in each case to be fixed or determined from time to time.” The task of determining a “reasonable fee” for the wide variety of conditions found on the public range in 10 Western States is not a simple one. The fact finding and analysis necessary to its accomplishment were interrupted on the entry of our country in the war by other activities incident to meeting war needs. This undertaking cannot be delayed much longer.
Audits.—Audits were completed in 6 of the 10 regions during the year. It was impossible to keep current this important phase of the work due to the shortage of personnel qualified to handle these matters.
Job load analyses.—Analysis of work load in the grazing districts, begun 2 years ago, was completed during the fiscal year just closed. The data were assembled and a method of rating the districts on the basis of minimum personnel needs was developed. They emphasize the excessive overtime of present personnel and that many jobs are being slighted because of inadequate manpower.
Training and personnel.—The high percentage of personnel turnover, particularly clerical, has made on-the-job training a daily requisite. In the conduct of action programs and to meet changing conditions incident to war demands, conferences were held at all levels in the national, regional, and district offices as often as time and funds would permit.
Temporary wage employees decreased 36 percent and salaried workers increased 10 percent during the year. The number of employees in military service totaled 173 at the end of the year, an increase of 39.
Equipment and supply.—The state of repairs of power machinery and automotive equipment needed to prosecute action programs is at a low ebb and great difficulty was experienced during the latter part of the fiscal year in obtaining competent repair of units. Maintenance costs of old, worn-out units have been excessive.
Range development.—To conserve manpower and material, primary consideration has been given to maintenance work on existing range improvements for the duration. Approximately $150,000 was expended during the year for this purpose. However, in addition to public funds the ranchers in many localities contributed an unrecorded amount of labor in maintaining thousands of small projects of various types, mainly springs, wells, reservoirs, corrals, and fences. Whenever new construction was undertaken during the year the matter was first considered on its merits. That is, whether it would pro-
Grazing Service • 179 mote beneficial use of the range, add to food supplies, and aid producers to overcome critical labor shortages. In this light a considerable number of fencing and water development projects were pushed to completion. On one-half of all the range-improvement projects completed during the year, stockmen furnished either the labor or the material or both. Despite the handicaps occasioned by shortage of parts, the facilities such as windmills, pumps, and other installations at principal stock-watering places were maintained in serviceable condition. This was accomplished by use of salvaged equipment and substitutes in certain instances. A summary of range improvement projects completed is shown on table III at the end of the chapter.
Under section 4 of the Taylor Grazing Act fences, wells, and other facilities for handling of permitted livestock on the range may be constructed and maintained by the range users. A total of 432 permits to construct and maintain such improvements and 92 permits to maintain existing facilities were issued during the year. These have an estimated value of $332,572.50, an item of expense that is borne by the range users themselves.
Soil-and-moisture conservation— Soil-and-moisture conservation work to restore depleted range lands was conducted during the year on 60 of the 95 project areas approved by the Office of Land Utilization. Gully plugging and area treatment to arrest wind and water erosion and fencing to prevent misuse of treated areas comprised the principal class of activity in this connection. Since the rehabilitation of ranges is integrated with activities authorized by the Taylor Grazing Act, the soil and moisture conservation work was augmented by contributions from the range improvement funds and by donations from cooperating individuals and groups.
Range protection.—Range fires consume large quantities of resources needed for victory. They draw manpower from important work, aid the Axis, and prolong the war. Everything possible is done to keep such fires down to an absolute minimum.
Due to a late spring in 1944 fire occurrence during the latter half of the fiscal year was only about 50 percent of expectations. Throughout the past year weather conditions were more favorable from a firehazard standpoint than for many years. Encouraging results from training and organization for fire suppression are shown by a reduction in both number of fires and acreage burned.
A burn of three-quarters of a million acres is too great a loss, however, considering in addition to the value of the forage destroyed the interruption of going livestock operations, the damage to the productive capacity of the range, and the soil erosion and watershed menace thus created.
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In training and educational programs emphasis is given to fire prevention. During the year, 86 training meetings for per diem guards and 114 meetings for training under the Forest Fire Fighters Service Cooperative System were held in grazing districts. At these schools a total of 3,419 men received instruction in techniques. In addition, 1,373 cooperative fire fighters, mostly farmers and stockmen, were given spot training in fire fighting methods and prevention. Since almost 80 percent of the fires that occur on the Federal range are man-caused the protective measures include constant educational campaigns. As a result of these cooperative efforts, which were aided by favorable weather conditions, the 1,085 fires last year burned 748,138 acres as compared to 1,128 fires which burned 1,734,992 acres the previous year.
Drafting.—During the year the drafting facilities of the Grazing Service continued to serve the Army and other war agencies at the expense of much needed regular work. About 60 percent of the volume was for various branches of the Army and included blueprints, photostats, tracings, drawings, and drafting of air bases, buildings, installations, supply depots, land status plats, etc. At the peak of Army demands for this type of work, the Grazing Service recruited, trained, and supervised certain temporary employees attached to the War Department pay roll.
Access roads.—'One of the outstanding Grazing Service contributions to the war program is the construction of access roads to sources of raw materials. From the inception of the access road program in 1942,1,570 miles of such roads have been built to 20 types of metals, minerals, and other war materials in 8 States. During the fiscal year 788 miles were completed at a cost of $1,171,293. As a part of the Department’s war program, the building of these roads has stimulated the small, independent operator to rush his diggings, and the emphasis on production of these vital materials has shifted with the progress of the war. For instance, in the early days of war production great shortages existed in the steel alloy materials. The road program then was directed to deposits of vanadium, chromium, manganese, and tungsten. Later the needs for coal, timber, petroleum, and certain non-metallic minerals shifted the emphasis to such products. There are many rungs in a ladder which reaches from the bottom of a mine shaft to a battle front, and an access road is one of them. Over such roads go truck loads of mica, gilsonite, manganese, vanadium, lead, zinc, coal, and many other basic ingredients of tanks, planes, guns, explosives, and precision instruments.
Post-war plans.—During the year the Grazing Service submitted to the Department general plans for a much needed post-war rangeimprovement program, which would employ 31,000 men for a 3-year
Grazing Service • 181
period at an estimated cost of $226,000,000. This involves 60,000 projects of 16 major types, widely distributed in 60 grazing districts, and can be implemented within 3 months after victory. The plan contemplates 150 camps of 100-man capacity as well as the employment of 7,500 men on work convenient to their homes. Of the total expenditures contemplated in this program nearly $200,000,000 would be for wages in 200 counties. Already 5 percent of the listed projects have been approved as to location and type of structure. To expedite the program in the event of an unemployment problem after the war, funds are needed now to provide the necessary detailed surveys, specifications, and plans for launching the program promptly at the proper time. In accordance with the President’s request of May 23, 1943, and supplemental Department instructions, the Grazing Service submitted in August 1943 an estimate showing the need for $3,000,000 to cover detailed engineering and planning costs of its post-war program.
Table I.—Number of licensed operators and livestock in grazing districts by regions, June 30,1944
Region	Licensed operators	Cattle	Horses	Sheep	Goats	Total livestock
Arizona	 Colorado	..	 Idaho	 Montana	 Nevada-California	 New Mexico	 New Mexico, 7	 Oregon	 Utah	 Wyoming		612 2,150 3,355 3, 200 1,690 2,828 1,935 1,473 3,809 1,510	98,062 187, 506 214, 394 223, 772 394,186 293, 034 5,405 231,238 178,810 163,865	2,253 7, 332 17,440 25, 583 17,051 12,483 7,424 16,883 8,087 13,165	140, 558 746,320 1,237,313 1,080,040 960,999 678,066 140, 705 373,084 1, 520, 629 1,604,662	11,145 152 35 57 3,084 47,449 22,834 8,950 250	252,018 941,310 1,469,182 1,329,452 1,375,320 1,031,032 176,368 621,205 1, 716, 476 1, 781, 942
Total		22, 562	1,990,272	127,701	8,482, 376	93,956	10, 694, 305
Table II.—Status of grazing districts—approximate acreages of Federal land as of June 30, 1944
State	Number of districts	Gross area	Withdrawn by establishment of grazing districts	Other Federal land	Total Federal land administered by the Grazing Service	Other land 1
Arizona	 California	... Colorado	 Idaho	 Montana	 Nevada	.	 New Mexico	 Oregon	 Utah.		 Wyoming		4 2 8 5 6 5 7 7 11 5	18,171,400 8,050, 300 15,903, 700 21, 867, 600 31, 968, 700 48, 560, 200 39, 747,400 20, 346, 500 37, 487,800 22, 506,100	8,847, 274 2, 584,237 7,645, 973 12, 326, 501 5, 781, 597 33, 586, 969 14,263,675 12, 400,385 21, 343, 546 13, 500,878	819, 879 812,399 654, 561 762,200 924, 357 549, 700 684, 369 157, 763 2,155,525 1,096, 329	9, 667,153 3, 396, 636 8,300, 534 13,088, 701 6,705,954 34,136,669 14, 948,044 12, 558,148 23,499, 071 14, 597, 207	8, 504, 247 4,653, 664 7, 603,166 8,778,899 25,262, 746 14, 423, 531 24, 799. 356 7,788, 352 13, 988, 729 7, 908,893
Total		60	264, 609, 700	132, 281,035	8, 617,082	2 140, 898,117	123,711, 583
1 Includes State, private, county, and certain withdrawn lands which the Grazing Service does not administer.
. 2 In addition, the Grazing Service administers 1,306,885 acres of non-Federal land within grazing districts in 6 States under leases authorized by the Pierce Act of June 23,1938, and under cooperative agreements with the owners.
182 • Report of the Secretary of the Interior
Table III.—Cumulative summary of range improvement projects
1 The total number of completed projects as reported for the period 1935 to June 30,1944, includes projects acquired, such as drought relief and other emergency structures which are now recorded as grazing district improvements.
Type of project	Unit	Completed, fiscal year 1944	Total completed or acquired from April 1935 to June 30, 1944
Structures Spring developments		 Reservoirs (stock water)	 Wells (stock water)	 Pipe and tile lines	 Ditches	 Truck trails			;		 Stock trails and driveways	 Bridges (over 20-foot span)	 Fences	 Corrals and holding traps	 Cattle guards	 Dipping vats	 Firebreaks	•_ Telephone lines	 Area Treatment Rodent control	 Insect pest control	 Range re vegetation (seeding)	1 Noxious weed eradication		Number	 Number	 Number	 Lineal feet			 Miles	 Miles	 Miles	 Number	 Miles	 Number	 Number	 Number	 Miles	 Miles	 Acres	 Acres	 Acres	 Acres	:		110 313 89 17,510 4.5 244 66 12 345.2 41 66 1 870 4.5 276, 716 2,700 41,083 788	i 1,952 i 2,882 i 767 1 318, 690 57.7 1 13,905 1 3,171 196 1 6,479 i 402 652 5 3,695 286
Fish and Wildlife Service
Ira N. Gabrielson, Director
THIS Service is the Federal custodian of the Nation’s vast fish and wildlife resources, and in cooperation with the various State and Federal agencies, organizations, and individuals has the responsibility to see that this valuable natural asset is fully maintained and wisely managed.
America’s predominant position in the commercial fishing industry of the world must be maintained. Post-war competition among nations for the food resources of the high seas and even of coastal and the larger inland waters will be greatly intensified. That the resources may be utilized in accordance with sound principles of conservation and management the Service is helping the commercial fishery industries to organize for expansion and is acquainting them with the most modern technological and scientific methods.
At the present time fishery products rank fifth among food resources of the Nation, and in addition supply vitamins, oils, fish meal for livestock and poultry foods, and byproducts for industrial uses. If the fishery industries are to maintain a constant flow of these materials essential to our economy, and if they are to realize in the near future the potential 7-billi on-pound yield of fishery products a year, governmental assistance will be necessary in the form of scientific direction. The providing of facilities for technological engineering and scientific improvement of fishing and of processing, distributing, and marketing fishery products is well adapted to a post-war program of public works. Such facilities will include experimental stations and research laboratories, vessels for the development and exploration of fishing grounds, and fact-finding surveys to provide comprehensive inventories of the status of the industry.
Hunting, fishing, and recreation play such an important part in the life of the American people that planning and construction projects designed to perpetuate the wildlife resources are being given a promi7 nent place in post-war planning.
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A 3-year development program for wildlife conservation has been outlined. Work plans are now available for the employment of some 12,000 persons. In addition it is estimated as a result of these projects that another 4,000 persons will receive employment from private industry in the production of materials, supplies, and equipment. Additional programs are being formulated that will provide at least 8,000 persons with employment in development operations and 1,500 persons with employment in private industry. This 3-year program for the continuation of wildlife development projects will cost approximately $115,000,000.
The Fish and Wildlife Service program for the protection, development, and utilization of fish and wildlife resources involves a wide variety of activities. The more important of these are: Construction and development of wildlife refuges, fish hatcheries, and rearing ponds; stream and lake improvement; tree planting on refuges; range revegetation; marsh conditioning; and other management practices including controlled burning, as well as prevention and suppression of uncontrolled fires—all designed to improve living conditions for wildlife.
ECONOMIC FISHERY INVESTIGATIONS AND PROGRAMS
Studies in fishery economics have been completely adjusted to war needs. For the first time data have been collected from fishery unions on membership and movements. Tables have been established which indicate the classification of labor in the fishery industries according to sex, age groups, and occupations. Occupation titles and definitions also have been studied. The material was successfully used in presenting to the War Manpower Commission and the Selective Service System the case for adequate recognition of the needs and importance of the fishery industries.
These labor studies will be the bases for analyses of post-war labor problems which will extend especially to wages and hours, to collective bargaining, and to the seasonal character of fishery labor. It is planned to establish a labor unit for the specific purpose of collecting data and studying the problems involved. This will contribute indirectly to reemployment after the war and to the solution of the fishery industries’ social security requirements which up to now have not received adequate consideration in Federal and State legislation.
A survey of the financial condition of fishery cooperatives was made for a report to the Ways and Means Committee of the House of Representatives on a bill which provides for the exemption of cooperatives from certain taxes. The material collected will be the basis for future studies on cooperatives, a type of fishermen’s association which will be of increasing importance in the post-war period.
Fish and Wildlife Service • 185
A survey made in 12 cities during January and February for the purpose of determining the effect of Office of Price Administration’s retail Maximum Price Regulation 507 on the retail price and consumption of fresh fish indicated that the regulation was beneficial as it made available to a large number of consumers an increased poundage of fish at lower prices. To prevent disruption of the usual channels of production and distribution, a survey of 1942 fresh-fish prices was outlined, conducted, and supervised in cooperation with Office of Price Administration in order to find a fair and equiable basis for fish prices at production and wholesale levels. The same consideration prevailed in an extended study of cost increases in the fishery industries from 1941 to 1943 and to prevent an eventual unadjusted recession of prices to pre-war levels. The cost survey will establish samples of cost ratios for normal and for war years to which any individual enterprise can compare its own costs and profits. Both the price and cost surveys will be continued, the results being important to the solution of postwar problems.
Consumer Relations
Efforts made during the fiscal year to obtain maximum benefit for consumers have led to wider dissemination of fishery facts and to the marketing of new and little used varieties of fishes. Although these programs develop slowly there is every reason to expect that their war impetus will be effective in promoting increased fish consumption to a considerable degree in the post-war period.
Collection and Publication of Fishery Statistics
The collection and publication of information relating to the quantity and value of the commercial catch of fishery products in the United States, the employment of fishermen, shore workers, fishing craft and gear in the industry, and the production of manufactured fishery products was continued. Due to the loss of agents to the armed services and also through the assignment of members of the statistical staff to assemble information required by war planning and regulatory agencies, it was necessary to curtail the regular statistical surveys. However, the collection and publication of certain additional current information required by the industry and Federal agencies concerned with the fisheries was undertaken.
Fishery Market News Service
This service assists the orderly marketing of fresh, frozen, and cured fishery products by disseminating to fishermen, shippers, wholesalers, buyers, and consumers, current information on production, shipments, prices, supply, and demand. Field officers at New York, Boston, Chi
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cago, Seattle, and New Orleans, issued daily and monthly reports during the entire fiscal year, but the Jacksonville office was closed after only 2 months’ operation, due to curtailment of funds. In addition to the supply and demand data in the daily reports and monthly summaries, the market reports reprinted all Federal orders, in full or in condensed form, which affected fishery production, marketing, or supply. The inclusion of these regulations, immediately upon issuance, provided the only current source of such information to the fishery industries.
Fishery Market News, a monthly review, also carried special articles of interest to the industry, more complete texts and interpretations of Federal orders, and a monthly index of Federal regulations. Market News data has been extensively utilized by other Federal agencies to determine ceiling prices on fishery products, in transportation studies, in allocating catches, and in distribution surveys. The demand for these data and the need for expanding and adapting Market News procedures to meet war requirements is expected to continue in the post-war period when production and distribution problems, though different, will be equally acute. To meet these demands, additional Market News offices will be required to collect data for those sections of the country from which current information on production, imports, markets, and distribution is not now being received.
Studies to Improve Methods of Production and Use of Fish
The fishery technological laboratories at Seattle, Wash.; College Park, Md.; Ketchikan, Alaska; and Mayaguez, P. R., continued to be completely occupied with researches aimed to relieve difficulties caused by material and manpower shortages that have handicapped the fishery industries. Such difficulties may exist for a considerable time in the post-war period, particularly if large quantities of fishery products are required for export. Current technological advances therefore, will have continuing and world-wide application.
Specially prepared packs of all types of fish and shellfish, both fresh and processed, were subjected to storage and shipping tests to determine the most practical solution to the critical tin shortage. After many field and laboratory tests, recommendations were made for the most effective use of available fibers for cordage and nets. Chemical and bacteriological studies resulted in improved methods for extracting agar and related seaweed gums. Investigations of present and possible vitamin-A resources provided information for their intelligent exploitation. Improved methods of handling and processing fish livers also were developed.
To increase the Nation’s food supply, the laboratories developed new canned fish products and demonstrated the utility of numerous kinds of fish and shellfish formerly neglected. In order to increase the utili-
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zation of fish as food, improved handling and processing methods and new recipes were evolved.
Upon its request, the Army Quartermaster Subsistence Laboratory was furnished technical assistance in solving fishery problems by the detail of an experienced fishery technologist.
On the basis of completed and proposed researches, the laboratory staffs are prepared to make recommendations which will enable the fishery industries to satisfy the expected demands of post-war markets for improved methods, equipment, and products.
THE ROLE OF GAME FISH AND HATCHERIES
Since the outbreak of hostilities, the general public has realized more than ever before the tremendous value of this country’s fishery resources. While at the present time first place must be assigned to the amount of nutritious food involved, the recreational value of angling is of utmost importance under the stress of wartime living. Continued maximum use of the fishery resources cannot be attained by a static, policy of merely guarding them against unwise utilization. Therefore, the Division of Game Fish and Hatcheries has realigned its program to include management principles. Up to a short time ago the Division had been concerned largely with producing hatchery stock—the raw material of fisheries management. While for various reasons it will not be possible to put this revised program into full operation until the post-war era, the foundation is being laid as rapidly as manpower will permit.
During the present emergency, the value of a properly constructed and managed farm pond has been fully demonstrated. Such ponds are producing thousands of pounds of edible fish annually, but owing to restrictions upon the heavy equipment required for constructing the impoundments, the program has not reached its peak. When conditions return to normal, it is anticipated that in some States 45 percent of all farms will have one or more ponds. The Division of Game Fish and Hatcheries is expanding its studies on the stocking and managing of farm ponds for the purpose of obtaining more fundamental information so that greater yields may be derived from the ponds that are developed in the future.
BIOLOGICAL INVESTIGATIONS OF THE FISHERIES
The very nature of biological control of the fisheries and the necessity for keeping in mind future goals as a guide for current action has stimulated careful thought on plans to be consummated after the war. Restriction of theoretical studies was continued as more men than during last year were detailed to the staff of the Coordinator of Fisheries. Unpredicted changes have occurred in the fisheries of the Nation, changes the significance and magnitude of which must
188 • Report of the Secretary of the Interior be noted now so that their bearing upon the future management will not be forgotten.*
As usual the work was conducted on a regional basis. In the North Atlantic area studies related especially to the rosefish and yellowtail flounder, the yield of which will decrease considerably unless practical remedial measures can be developed. On the other hand, fishing pressure on both the haddock and lobster populations has been reduced considerably as the result of wartime boat and manpower shortages. Observations on their recovery will be of aid in maintaining and increasing the yield in post-war years.
In the Middle Atlantic area studies of the shad fisheries indicate that all the major producing streams can be restored to full production by the abatement of pollution, in some cases, and by provisions for a larger spawning reserve in others.
Investigations in Alaska were directed toward maintaining maximum production of the fisheries and toward collecting data for their proper management in the post-war period. These were concerned particularly with the salmon populations of Bristol Bay, Brooks Lake, and Karluk River. The commercial catch of pink salmon in southeastern Alaska was disappointing with a total production of 1,035,000 cases, only a fourth of the 1941 yield. Studies carried out at the Little Port Walter Station indicated an unfavorable change in returns in the “test stream” at this location. Herring production in Alaska showed a substantial increase with a total yield of 84 million pounds as against 38 million pounds for 1942. Predictions of the age-composition and probable abundance of herrings were made for the season of 1944, from which it appears that the prospects of this fishery are very good.
The sablefish industry has expanded rapidly under wartime demands, the commercial catch of the past season amounting to approximately 4 million pounds. A survey was undertaken to appraise the probable effect of this increased fishing intensity and to determine the need for regulation. This species has been accepted as an excellent food fish and it is probable that there will continue to be a considerable demand for it after the war.
In South Atlantic and Gulf areas observations on the effects of war conditions on our shrimp fisheries have been continued. This information will be of great value in the formulation of principles for future management. Close watch and collection of data on the fastexpanding offshore shrimp fishery have been maintained as developments there will be important in the future of the industry.
Research on the pilchard fishery of our southern Pacific coast is directed toward learning the size and productivity of the resources and toward measuring the response of these quantities to different levels of fishing intensity. Results achieved during the past year have demonstrated that fluctuations in year-class strength are highly
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correlated with fertility of the sea, as reflected by surface salinity. The abundance of the resource was found to be indicated, to a high decree, by the size of the two age classes which ordinarily dominate in the California fishery and by the amount of fishing effort 3 years previous to each season. With the return of post-war facilities, considerable benefits may be expected to accrue to the industry from the increased understanding of the trends and fluctuations in the pilchard fishery.
In the Great Lakes area, exhaustive studies are needed on the lake trout, the most valuable of the Great Lakes commercial species. It is especially urgent that the relative effectiveness of artificial and natural propagation of the species be investigated.
Analysis of conditions, which in the past have been impeding the progress of the shellfish industry, shows that depletion of natural oyster grounds and pollution of inshore waters are the two principal factors responsible for decline in the production of oysters and clams, and that introduction of a definite State-management plan of exploitation is necessary for the rehabilitation and planned utilization of these natural resources.
The rapid development of many new industrial processes, and sanitary engineering procedures, attendant on the war have created waterquality problems which will persist to the serious detriment of the proper post-war development of national fisheries unless adequately controlled. Accordingly, systematic studies of these new effluents and other substances which can affect our aquatic resources detrimentally have been made or are in progress to provide specific scientific definitions of the hazards which these materials present to fish and other aquatic life.
After determining the noxious fractions of the various wastes and effluents, attention has been given to the chemical and physical properties of these fractions looking toward their transformation into innocuous or useful products. Practical approaches for the elimination of harmful effluents by utilization have been suggested to the managers of several plants and are now in successful operation. This work has increasingly demonstrated that practically all industrial pollution is not only unnecessary, but that in many instances commercially feasible processes of utilization can be developed which will pay part or all of the elimination expenses and may even show a profit.
War conditions have closed several plants that formerly poured large quantities of destructive wastes into certain streams and it has been possible to observe the return of these streams to normal fish productivity after cessation of the industrial pollution. These findings show that following the elimination of industrial pollution many streams will return rapidly to valuable fish production. It has 617248—45—15
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been found that very dilute pollutants present in quantities much too small to be directly harmful to fishes may, nevertheless, in time completely eliminate all fishes from the polluted waters.
- PROTECTION OF THE ALASKA FISHERIES
Protection of the fisheries of Alaska has continued with the purpose of permitting maximum commercial utilization of the resource consistent with a stabilized yield on a high level of productivity in perpetuity. Every question raised with regard to promulgation or adjustment of regulations has been answered in favor of conservation as against exploitation.
The need for greater production of food fishes, during the war years and in the post-war period, has not gone unrecognized, however. Increased emphasis has been placed on careful observations of fishery runs; regulations have been made more flexible to permit announcements of seasonal extensions when runs are above expectations; as a result, in 1943, 119 additional fishing days were permitted, and catch limitations on herring were raised 6,250,000 pounds. An increase of 36,536,405 pounds of fishery products over 1942 production was realized, of which 24,032,224 pounds represented the increase in the output of canned salmon.
Fur-Seal Industry
The year ending June 30,1944, was notable in that the take of 117,164 fur-seal skins on the Pribilof Islands was the largest number ever secured under controlled conditions. The largest previous annual take was 110,585 skins in 1874. The byproducts plant produced 782,000 pounds of seal meal marketed primarily for stock and poultry feed, and 75,259 gallons of seal oil sold for leather-tanning processes.
In May 1944, the natives of the Pribilof Islands, together with supervisory personnel, were returned from Funter Bay in Southeastern Alaska, to the Pribilofs from which they were evacuated for security reasons in June 1942. This will reestablish sealing and foxing- activi-ties on a normal basis, and permit the expansion of the present byproducts plant, for which funds have been appropriated, to utilize all seal carcasses on St. Paul Island.
During the fiscal year 1944, two public auction sales of fur-seal skins were held at St. Louis, Mo., for the account of the Government. On November 1, 1943, 17,525 dressed, dyed, and finished skins sold for $717,147.40 and on June 19, 1944, 21,742 skins were sold for $795,397. Also, 3 confiscated skins were sold for $1.50. In the same period, 230 skins were sold at private sales for promotional purposes, under special authorization of the Secretary for $11,165. Total gross sales during the year amounted to $1,523,710.90.
Of particular interest to conservationists was the act of February 26,1944, giving effect to a provisional fur-seal agreement entered into
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with the Canadian Government in 1942, and superseding the acts of April 21, 1910 and August 24, 1912. The terms of the new law, made necessary by the abrogation of the fur-seal treaty of 1911 by Japan, 6 weeks before the outbreak of the present war, provide for continuing protection of the fur seals of the North Pacific, and for a division of the skins on the basis of 80 percent to the United States and 20 percent to Canada.	ri
COOPERATIVE PREDATOR AND RODENT CONTROL
Predator and rodent control operations conducted on a cooperative basis with other Federal agencies, States, counties, municipalities, livestock grower and farmer organizations, and individuals played an important role in furthering food and fiber production and conservation. Sheep, cattle, and poultry were saved from destruction by coyotes and other predators and stored foodstuffs, agricultural crops and other vital materials were protected from the onslaughts of rats and field rodents.
In predator control operations 118,879 predatory animals were taken, consisting of 108,050 coyotes, 1,170 wolves, 8,900 bobcats and lynx, 167 mountain lions, and 592 stock-killing bears. Rodent control operations included the treatment of 12,336,172 acres of infested lands for the control of field rodents and the treatment of 377,499 premises to control common house rats.
The operation of the combined projects involved the expenditure of $845,908 from Service funds, $579,885 from cooperating States, and $1,302,554 from cooperating counties, livestock grower and farmer associations, and others. The Service’s Supply Depot at Pocatello, Idaho, prepared and distributed 647,655 pounds of rodent bait materials to cooperators and processed other supplies and equipment.
Control operations were not conducted without many difficulties inherent in wartime conditions. There was a dearth of trained predatory animal hunters and rodent control workers, and a shortage of automotive and other equipment in face of the fact that increasing predator and rodent populations demanded greater, rather than diminished, control efforts. The Service continued to cooperate with the Army and Navy on numerous military reservations in the control of rats and field rodents to protect food supplies and to alleviate the threat of rodent-borne diseases.
Losses Reduced Through Organized Control Work
Where predatory animal and rodent control work has been intensively prosecuted, substantial benefits have accrued.
For example, one hunter in Presidio County, Tex., held losses among 40,000 sheep and goats to 11 sheep killed by coyotes. Another hunter m the same county kept losses among 11,000 sheep down to 35 killed
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during the year. Crane County, Tex., ranchers report that predator control has made possible an 80 percent, instead of a 40 percent, lamb crop.
While the foregoing examples are typical of many areas, the general predator problem is definitely more acute. This is reflected by the fact that although a yearly take of 100 predators by an individual hunter was considered excellent work a few years ago, today many hunters are destroying predators at the rate of 400 to 600 or more annually.
Previous to control work in Flathead County, Mont., the loss to wheat, oat, barley, and truck crops amounted to 3 percent annually because of ground squirrel depredations. On a monetary basis, this loss exceeded $54,000. Organized control during the past 5 years, costing $6,200, effected a net saving in crops of approximately $48,600. In Ravalli County, Mont., where sugar beet, pea, and truck crops were involved, the returns from ground squirrel control were $10 for each $1 expended. The Mayor of Marshfield, Oreg., reports that at least $25,000 worth of food and other merchandise has been saved during the year because of organized cooperative rat control.
Post-War Aspects
Post-war control of injurious mammals will be greatly aided by the existence of our field organization—kept going as efficiently as possible during the war—through which expansion of projects may be facilitated. Greater effort must be applied after the war to regain control of predator and rodent populations that have locally increased rapidly in numbers. The upswing of predatory animal populations began at the onset of the financial depression when low fur prices removed the incentive for private trappers to take predators for their pelt values. The situation was aggravated because at that time, when accelerated organized control effort was needed to fill the gap, Federal and cooperative appropriations for the purpose were decreased. The effects of subsequent advances in fur prices, which ordinarily would have stimulated predator control, were neutralized because private trappers began to find more remunerative employment in defense and war industries or entered the military forces. These factors have operated to remove an important check on predators, the numbers of which have continued to increase alarmingly. The manpower shortage has also served greatly to curtail organized rodent control operations and thus has permitted rodent pests to continue their upward population trends. Livestock, crop, and foodstuff damage by predators and rodents has also increased proportionately. As manpower and equipment again become available, expansion of sorely needed mammal control can be realized.
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The urgency of rodent and predator control to protect vital food resources has occupied a prominent part in the thinking of more and more people during the period of war. The impression thus left will serve to stimulate cooperative measures to protect and conserve vital food resources in times of peace, which will be needed to rehabilitate our own and the war-torn nations. The widespread interest in rat control, especially stimulated during the war to curtail food loss and to protect human health, will increase in the post-war era.
WILDLIFE CONSERVATION LAWS AND REGULATIONS
Realizing that an increased demand for hunting opportunities will immediately follow the war, the Service is administering the Federal conservation laws and regulations to assure an adequate supply of wildlife at that time. These laws include the: (1) Migratory Bird Treaty Act, (2) Lacey Act, (3) Migratory Bird Conservation Act, (4) Migratory Bird Hunting Stamp Act, (5) law protecting wildlife and property on Federal refuges, (6) Black Bass Law, (7) Bald Eagle Act, and (8) the Alaska Game Law.
The 60-odd United States game management agents, working singly or in cooperation with State officers and United States deputy game wardens, obtained 1,985 convictions during the past fiscal year. With an expenditure of only $15.75 by game management agents, 3 persons were convicted of serious violations and fined $700. In addition, the agents worked with farmers in controlling migratory birds threatening damage to agricultural crops and detected and reported to the proper Federal authorities suspicious characters and acts inimical to the welfare of the Nation.
Importation permits issued and the number of animals and birds imported increased as the submarine menace eased. The greatest increase was in monkeys, used largely in medical research laboratories; 7,728 arrived compared to 3,675 the previous year. Mongooses are prohibited by law from entry, but 2 were brought in without permits. One was discovered in New York, the other in Philadelphia. Both were asphyxiated and their skins preserved for science.
Approximately 40 percent of the enforcement agents in the Territory of Alaska have entered the armed forces, but, by making a few replacements and by the increased use of airplanes, it was possible to obtain fairly satisfactory results. Valuable assistance was furnished the armed forces and Federal Bureau of Investigation by enforcement agents. The problems of wildlife protection in the Territory increased in proportion to the influx of men of the armed forces and war workers. The problems were largely solved by arrests, speedy convictions, and cooperation on the part of the military authorities and of project superintendents.
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NATIONAL WILDLIFE REFUGES
In general, the refuges enjoyed satisfactory water conditions, the nesting season was successful, and the production of wildlife food was favorable. The refuges also contributed materially to the war program through the production of food, furs, and other essentials.
In 1943, livestock grazing to the extent of 279,358 animal months’ use was provided and 15,836 tons of hay were harvested; the cultivation of 21,173 acres of refuge land by private individuals and refuge personnel produced 456,887 bushels of grain and other crops. These represent increases amounting to 177 percent for cattle grazing, 161 percent for hay production, and 182 percent for cereal crops as compared with 1940. These increases were due, first, to the fact that while most refuges were not in full production in 1940, subsequent proper management has increased utilization possibilities; and second, to operations in accordance with the Department’s policy to make available in the war program all possible resources of the Department.
The restoration of drained marsh areas has served to increase substantially not only the numbers of waterfowl but also of fur animals, the pelts of which are of great value in outfitting troops in northern climates. Approximately a million fur animals have been taken on the National wildlife refuges between 1936 and 1944. During the 1943-44 trapping season, a total of 185,130 fur animals was taken or 148 percent of the 1940-41 catch.
An increased use of wood products was permitted during the year. As much pulpwood, posts, ties, firewood, and lumber was removed as practicable without adversely affecting the primary purposes of the areas.
Where circumstances permitted, refuge waters were managed for fish production. Consequently, more use was made of their fishing waters than ever before. Recreational fishing totaled 149,941 man-days and resulted in the taking of 760,511 fishes. An additional 964,432 pounds of rough fishes were removed by commercial fishermen.
The total revenue from economic uses on National wildlife refuges including the disposition of big game animals, fur animals, and surplus products was $244,700, which was deposited in the Treasury.
The occupation of the Netherlands West Indies by the enemy stopped the importation of kapok. In the hunt for a substitute, the fully ripened seed heads of cattails appeared to be the best for use in life preservers, sleeping bags, mats, and pads. National wildlife refuges proved to be among the best sources for this cattail fluff. The 70,000-acre Mud Lake National Wildlife Refuge in northwestern Minnesota was opened to the local residents for harvesting this crop, their income from the fluff amounting to $34,050.
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The population of migratory waterfowl, estimated during the spring of 1944 as 125,350,000 birds, was probably the greatest since the early 1920’s. At least a fifth of these birds was reported using the National wildlife refuges. Populations of upland game birds and animals on these areas have also increased favorably. Hunting possibilities on lands adjacent to the refuges as well as on managed hunting units have been benefited. On certain refuges, surpluses have been used for restocking public lands with low game populations.
Fire protection on the forest, grass, and marshlands of the national wildlife refuges continued a major objective. This phase of refuge administration is particularly important not only to protect refuge resources from fire but to prevent the spread of fires to adjacent forest and grazing lands. Funds amounting to $30,000 were provided during the year under the appropriation “Fire Protection of Forests, Forest Industries, and Strategic Facilities (National Defense)” for the purchase of additional fire-fighting equipment and the employment of lookouts, patrols, and standby crews to augment fire prevention and fire suppression on nine timber-producing refuges located within 300 miles of the coasts.
Lands aggregating 1,845,000 acres were made available on 35 national wildlife refuges within the United States for Army and Navy use as bombing ranges, artillery ranges, aerial gunnery ranges, training grounds, air bases, tank maneuvering areas, docking facilities, and as sites for chemical war munition plants.
The following areas were established as national wildlife refuges during the year: Box Butte, a reservoir of 2,210 acres in Dawes County, Nebr., part of the Mirage Flats Reclamation project, for the protection of migratory waterfowl (Public Land Order, October 30, 1943); Mesilla, an area of 500 acres in Dona Ana County, N. Mex., and El Paso County, Tex., as a resting area for migratory waterfowl (Public Land Order, April 6, 1944); Monomoy, a 3,000-acre peninsula located on Cape Cod in Barnstable County, Mass., one of the finest wintering concentration areas for water fowl along the New England Coast; Santa Ana, consisting of 1,886 acres in Hidalgo County, Tex., acquired on September 1, 1943, the best remaining habitat on the American side of the Rio Grande for the chachalaca, white-winged dove, white-fronted pigeon, and red-billed pigeon—it will provide a refuge also for black-bellied tree ducks.
LAND ACQUISITION
The Division of Land’s activities have been directed to the acquisition of those new refuges and additions to old ones where the emphasis is uppermost on post-war developments. Plans have been formulated for expansion of the work immediately upon the termination of the
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war. The Division, as in the preceding war years, has delegated a very substantial part of its manpower to aiding the Navy Department in land acquisition.
WILDLIFE RESEARCH
The wildlife research program has been planned and conducted on the principle that constructive vision and foresight are essential to getting needed information and in making it available for current wildlife management programs and post-war plans. In recognition that the wildlife resources of the continent will be called upon to make an important contribution to the rehabilitation of the American citizenry and soldiers, the scientific staff has been reorganized to economize on time and cost so that the utmost could be accomplished in meeting present needs and in laying a sound foundation of biological facts for post-war programs. Cooperative efforts were enlarged with other Federal, State, and local agencies. These have included public-land management agencies, as the Forest, Park, Indian, and Grazing services and those concerned with flood control, navigation, power development, and reclamation. Extensive studies have been made to develop new poison products and methods of application in rodent-control operations and to devise improved methods of using available supplies of toxic agents heretofore commonly employed but largely cut off by war conditions. Marked progress has been made in these fields and also in the use of deterrents and frightening devices through investigations by our research laboratories and through cooperation with the Office of Scientific Research and Development of the National Research Council and with Federal, State, and local health agencies, including those of the Army and the Navy.
Looking to post-war construction and development work, there is the greatest need for effective coordination among the various land-use agencies, particularly the Corps of Engineers of the United States Army, the Reclamation Service, and the Tennessee Valley Authority. Huge impoundments are being blueprinted by these agencies and plans for wildlife development on these reservations are being made at the same time with a view to increasing their productiveness for wildlife. Studies have revealed in some instances that a few minor modifications in plans will provide means whereby water can be effectively controlled for maximum production of wildlife food and habitat requirements.
Work and recreation out-of-doors appeal to a great many people. This Service is receiving many requests from military personnel and veterans who are now making plans for after the war. They are interested in such vocations as hunting, fishing, trapping fur animals, raising fur animals and game in captivity, and growing rabbits for
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food and fur. These enterprises require no heavy work and are admirably suited for those who prefer the out-of-doors or can do only light inside work.
Blind people in increasing numbers are finding rabbit raising both profitable and practicable, and the Library of Congress has received requests frequently for literature on the subject in braille. Permission to transcribe Conservation Bulletin 25, “Rabbit Raising,” into braille in order that information on the production of domestic rabbits for food and fur may be made available to the adult blind, was requested of the Service by the Library of Congress.
A book entitled, “What is Farming?” has been prepared for the United States Armed Forces Institute and this Service has contributed material and illustrations for the chapter, “Unusual Kinds of Farming.” This includes information on fur animal and game farming, rabbit raising, and fish propagation. It is written at high school level and is intended to serve as an orientation course in agriculture. The book will be used by men in the armed services who have an interest in agriculture. More intensive courses in these subjects also are being provided.
After the last war, veterans were encouraged to invest their money in get-rich-quick schemes in the production of fur animals, including rabbits. To avoid a recurrence of this evil, the Service is cooperating with the War Department and the Veterans’ Administration to inform military personnel and veterans accurately in order to prevent their being exploited by unscrupulous persons. Material calling attention to the danger of exploitation by high-pressure promoters has been included in the books, What is Farming ? and Managing a Farm, which will be distributed by the United States Armed Forces Institute to military personnel.
Post-war plans for rehabilitating fur farming have been discussed at numerous wartime agricultural conferences for fur farmers. This Service has taken an active part in this post-war planning and will put forth every effort to restore fur farming during the period of readjustment. This activity is an important part of our agricultural development and fits in well with conventional farming.
All the help that we can give will be provided for the returning servicemen and others who wish to engage in fur farming, rabbit raising, trapping, and all the other pursuits in the field of fur resources. Enormous demands for development of this natural asset that have been put aside during the war await satisfaction. A great effort will be made to prevent pressure groups from exploiting any individual who is desirous of rehabilitating himself through business endeavor in the wildlife field.
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FEDERAL AID IN WILDLIFE RESTORATION
Despite the war and a further reduction in appropriation, the Federal Aid in Wildlife Restoration program continued to operate effectively during the year.
The cooperating States emphasized particularly the purchase of lands of little agricultural value to provide a basis for post-war development projects. The International Association of Game, Fish, and Conservation Commissioners also has urged the State fish and game departments to plan projects of a developmental nature for post-war attention. The Association was actuated to a considerable extent by the fact that on July 1, 1943, the special Federal Aid in Wildlife Restoration fund contained $9,441,557, representing the excess of collections over appropriations since 1938. Anticipating liberal appropriation of this accumulated money during the postwar period, the States desire to have ready ample plans so that construction and other restoration measures can be started with the minimum of delay.
Wildlife, including fishlife, is an important feature of outdoor recreation which has always played a prominent part in the American way of life. It is primarily responsible for luring thousands of people outdoors to our National parks and forests, and to the fields and streams. After the present conflict, Americans will require even greater wildlife resources for public enjoyment. In addition to their value in maintaining public health by inducing recreational activities, our abundant wildlife resources normally comprise a basic source 1 of raw materials as fur, meat, and other industrial products, and in time of war they have developed even greater value.
Office of The Coordinator of Fisheries
Ira N. Gabrielson, Deputy Coordinator
THE United States fisheries are in a condition more nearly approaching normal than at any time since the war began. The fleet, which lost some 700 of its finest craft through requisitioning for military service, is being restored to a size comparable with its prewar strength. Not only is the fleet nearing its normal size, but it has been kept in good repair and will soon consist of a larger proportion of new vessels than ever before. Nets of practically all kinds are available in adequate supply and shortages of the best types of cordage for marine use are being met in reasonably satisfactory fashion by substitution. On the other hand, severe shortages of manpower persist in some sections of the industry. In the field of marketing and distribution, refrigeration facilities and storage space are generally insufficient and transportation is inadequate to the demands at certain seasons and in some localities. These remaining difficulties, however, are chiefly of a kind that affect the full and efficient utilization of the catch. The basic machinery of production has been restored to good order and the condition of the fishery resource itself is sound.
The improved condition of the fishing industry is reflected in the statistics of production. The total yield in 1943 was 4 billion pounds, a substantial gain over the 3,700,000,000 pounds landed in 1942 and approximately equivalent to the catch of the pre-war year 1940, when production totaled 4,059,524,000 pounds.
The upward trend begun in 1943 has continued into 1944. Total production in the major fisheries made encouraging increases in the first 6 months of 1944 as compared with the previous year, although catches of a few important species are somewhat smaller than last year.
Especially encouraging is the gain in the New England vessel fish
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eries, which last year operated under a severe handicap because of the loss of many medium and large trawlers taken for military service. With the entrance of new vessels into the fishery and the return of a number of these boats to active fishing, landings gained 16 percent during the first half of 1944, compared with the same period last year.
In 1944 the important tuna fishery of the Pacific coast, which ranks fourth in productiveness among all fisheries of the United States and Alaska, is showing a gain of 50 percent in its landings. The pack of Maine sardines has increased 54 percent over the first 6 months of 1943, which will aid in supplying war-increased demands for canned fish. The Pacific mackerel fishery, on the other hand, again shows a reduction in its catch, but this industry is one that is normally subject to great fluctuations of yield, and the decline probably is not entirely due to war conditions. Similarly, the production of shrimp during the first half of 1944 has been disappointing, but the small catch has been due in large part to a scarcity of shrimp on the fishing grounds. A noticeable increase in the catch began during June, however, and with the months of heaviest landings still ahead, the year’s production of shrimp may make a better showing.
Viewing the fisheries as a whole, a survey of production made by the Coordinator’s Office at the end of June 1944, showed that the smaller catches in certain fisheries, compared with last year, have been more than offset by gains in others. The catch during the first half of the year normally amounts to only a fourth of the year’s total, so it is too early to forecast with assurance the total production for 1944. It is believed, however, that it may reach 4,300,000,000 pounds.
This improvement in the condition of the fisheries has been brought about by unceasing effort and close cooperation on the part of industry and Government. When the Office of the Coordinator of Fisheries was established in July 1942, the fisheries of the Nation were in a serious condition of disorganization. The story of the effect of war on the fisheries has been told in many places, and need be only briefly summarized here.
The immediate loss of a large part of its most effective machinery of production crippled important segments of the industry at the outset of the war. The vessels requisitioned for the Army and Navy were, for obvious reasons, the largest and fastest boats in the fleet. The catching capacity of the pilchard fleet, which normally supplies a fourth of all fish caught in the United States and Alaska, was reduced materially. The Alaska salmon fishery lost the greater part of its floating equipment. In New England, the number of large trawlers was reduced one-half. On a somewhat lesser scale, the same condition prevailed in most important fisheries employing boats of any considerable size.
Office of the Coordinator of Fisheries • 201
Security regulations placed restrictions on the movements of fishing boats, excluded enemy aliens from fishing crews, and reserved many formerly important fishing areas as mine fields or for target practice.
Repairs to vessels and engines were difficult to secure in busy shipyards, even when the necessary materials could be obtained. Netting was needed by the Army and Navy for camouflage, and supplies of manila, the cordage best adapted to marine operations, were shut off when the Japanese occupied the Philippines. In addition to these difficulties with operating equipment, an estimated one-fourth of the men who normally earn their living directly in the fisheries had either entered the armed services or had abandoned fishing to engage in other industries.
Confronted with this situation, the Coordinator’s Office undertook as its first and most urgent task the restoration of vessels and other instruments of production to the fisheries. At the same time it gave its attention to the matter of reconciling the various security regulations and obtaining amendments or relaxations where possible so that the industry might have greater freedom of operation.
BUILDING UP THE DEPLETED FISHING FLEET
The Coordinator’s Office immediately began negotiations through the War Shipping Administration to arrange for the return of vessels requisitioned for military service as soon as circumstances should permit their release. In some instances, a large number of boats had been taken as a precaution against emergencies which, fortunately, never materialized. This was true of the Alaska salmon fishery. Representatives of the Coordinator’s Office were therefore able to arrange for the return of most essential vessels, cannery tenders, and boats to this industry before the opening of the 1943 season. Construction of new boats for specific military purposes gradually supplied the needs of the Army and Navy and in many instances the Coordinator’s Office has been able to demonstrate that the requisitioned fishing vessels would be of greater service to the nation if returned to active fishing.
The total returns of requisitioned fishing vessels now amount, it is estimated, to about 40 percent of those originally taken. These include, in addition to the floating equipment of the salmon fishery mentioned above, vessels returned to the Pacific pilchard fishery, the New England vessel fisheries, the Atlantic coast menhaden fishery, and the sponge fishery. Additional craft probably will be returned in the near future because of the volume of new construction for the military services; some fishing vessels, however, will necessarily continue in active military service until the end of the war.
Much larger additions to the fishing fleet are being made through new construction. The role of the Coordinator’s office in this program has been to allot controlled materials through the War Food Admin-
202 • Report of the Secretary of the Interior istration, approve authorized production schedules, and grant preference ratings to applicants who wTish to construct vessels. During the period from May 13, 1943, to July 1, 1944, the Coordinator authorized the construction of 1,010 new fishing vessels. Of these, 661 were scheduled for completion by July 1,1944; the balance during the second half of 1944 or sometime in 1945.
Construction needed merely as normal replacements for vessels lost at sea or worn out during the year , is estimated at about 275 boats annually. However, the mounting volume of new vessel construction is such that, coupled with the return of requisitioned boats, it is considered that the fleet will shortly be restored to approximately its prewar size, although shortages may remain in certain fisheries.
Securing Materials for Repair and Operation
In addition to facilitating the construction of new vessels, the Coordinator’s Office has sought to keep the existing fleet and shore processing facilities in good operating condition by providing materials for repairs and replacements.
During the period from April 1, 1943, to June 30,1944, applications for more than $1,185,000 worth of controlled materials and products destined for use in fishing vessels, engines, and shore processing plants were approved by the War Production Board on the Coordinator’s recommendation. Applications for controlled materials included more than 11,670 tons of carbon steel, alloy steel, and copper and aluminum products for use in the construction of vessels and engines. Manufactured items for which priorities are required totaled more than $4,428,000 worth of equipment including various types of engines, machines, refrigeration equipment, and canning machinery. The total number of individual transactions involved in the granting of priority assistance amounts to 891 for the period from April 1, 1943, to June 30,1944, exclusive of vessels and marine engines.
By acting as a direct claimant in securing allocations of fish nets, twine, and cordage for the domestic fisheries, the Coordinator’s Office has been successful in averting any serious shortage of netting with consequent interruption of production. Military needs for camouflage netting, which required a large percentage of the output of the fish net manufacturing industry until late in 1943, were satisfied by that time and the military contracts were cancelled. However, heavy demands for lend-lease and other foreign shipment remain and the normal flow of nets from the manufacturers to the distributors and users cannot yet be resumed. Vigilance and careful assessment of these various demands are still necessary to insure an adequate supply of netting for our domestic fisheries.
Office of the Coordinator of Fisheries • 203
FISHERY MANPOWER
Maintaining production in the fisheries requires the maintenance of personnel for producing the catch and processing it for distribution and consumption. Like all other industries, the fisheries have lost many able and skilled young men to the armed services and the war industries. The problem of the Coordinator of Fisheries has been the extremely difficult one of attempting to protect fishery labor that is essential to production, of permitting the drafting of fishermen and processors who are less essential or less productive, and of assisting in recruiting replacements for the unavoidable manpower losses. This task has required the harmonizing and coordinating of the policies of the various Governmental agencies concerned with military and industrial .manpower.
During the earlier part of the war the Coordinator’s Office was moderately successful in obtaining deferment for men of all age groups who were felt to be essential to the effective prosecution of the fisheries. More recently, however, with a change in the policy of the Selective Service System regarding the deferment of men under 26, the fisheries have lost many highly skilled men for whom no satisfactory replacements can be found. In some localities, fishing vessels are tied up for lack of captains or crews. Without additional men to operate them, a number of the vessels recently built or returned from military service may remain inactive.
In addition to attempting to secure the deferment of essential men, the Coordinator’s Office has considered various methods of recruitment, and in cooperation with other agencies has applied the most promising. Neither the use of prisoners of war nor the importation of foreign labor has proved practicable on a large scale. Some of the field representatives of the Coordinator’s Office have been successful in programs of direct recruitment of fishermen. On the Coordinator’s recommendation, the War Manpower Commission, through its local offices, has conducted manpower surveys for the fisheries and in some instances has undertaken active recruitment campaigns. Improved facilities have been obtained here and there for transporting cannery and other workers from outlying towns to ports of landing where fish are processed. These activities have helped in some measure to alleviate the situation, but a critical shortage of manpower persists in some fisheries. This situation is undoubtedly the most important obstacle to maximum fishery production.
SPECIAL PROGRAMS OF OPERATION
The role of the Coordinator’s office has for the most part been confined to placing in the industry’s hands the instruments of production and removing, insofar as it was possible to do so, restrictions and
204 • Report of the Secretary of the Interior
hindrances to their effective use. In a few instances, however, it has proved necessary to exercise additional authority derived from the various Executive orders based on the Second War Powers Act, and to assume the broader powers of actual cooperative management of the Alaska, and later of the Puget Sound, salmon fisheries and the Pacific pilchard fishery.-
Salmon Concentration Programs
The concentration program for the Alaska salmon fishery, which was inaugurated in 1943 and repeated at the request of the industry in 1944, was made necessary by the unusual situation in which the industry found itself at the close of the 1942 season. The loss of its floating equipment has already been described. In addition, it was expected that no more than 50 or 60 percent of the normal supply of labor would be available in 1943. Shipping facilities for transporting labor and canning equipment to Alaska for the comparatively brief fishing season were at a minimum.
To make the best possible use of available supplies and labor, the Secretary of the Interior issued an order concentrating the canning of salmon in 77 of the largest and most modern plants rather than in the 120 previously used. The concentration program was designed to make possible a reduction in manpower requirements by 5,030 persons, in north-bound passenger accommodations by 3,933 persons, in northbound tonnage by 17,724 tons, in floating equipment by 86 tenders and 50 scows, and in fishing apparatus by 48 traps, 25 purse seiners, and 67,130 fathoms of gill nets. So effectively did the program operate in 1943 that 5,396,509 cases of salmon were packed during the season, an increase of 307,400 cases over the previous season.
With labor and transportation difficulties somewhat eased in advance of the 1944 season, it was possible to make certain relaxations in the program for this year, although it continues the essential features of the original concentration order. Continuation of the concentration plan after 1944 will be dependent on conditions and on the sentiment of the industry.
The success of the Alaska salmon concentration program in 1943 so impressed the salmon industry generally that the operators of the 11 canneries in the Puget Sound area petitioned the Coordinator of Fisheries to establish a similar program for that branch of the industry. Accordingly, a program was outlined in consultation with representatives of the industry. Under this program, 9 firms are operating jointly in the largest and most efficient cannery of the area, 2 plants are operating independently, and a smaller cannery has been designated a standby plant for use in case of emergency. The plan reppresents a saving of 525 cannery workers and 27 tenders and fishing
Office of the Coordinator of Fisheries • 205 boats, which are thus released for use in other fisheries, and a considerable saving in fuel oil and critical repair and other maintenance material. A concentration program is particularly desirable in Puget Sound during the 1944 season, which is one of the “off years” in which relatively small runs of salmon are to be expected. In 1945, however, heavier runs should occur, and the desirability of modifying or abandoning the program will be given due consideration before the season opens.
Pilchard Production Plan
Because of the heavy volume of its normal production, and also because of the great importance of its products to the war program, the effective operation of the Pacific pilchard fishery is a matter of national importance. Landings of pilchards normally amount to about one billion pounds annually, or a fourth of all the products of the fisheries of the United States and Alaska. Out of this catch, three to five million cases of canned pilchards or California sardines are packed, and over 14 million gallons of oil and 75,000 tons of meal are processed. Since 1941, the Government has requisitioned over half the canned pack each year for military and lend-lease requirements.
In an effort to secure maximum production and effective utilization of the catch, some degree of control over the pilchard fishery was instituted by the War Production Board in 1942. This control was not effective in accomplishing the desired results, however, and after the delegation of authority in this field to the Office of the Coordinator of Fisheries, the industry requested the issuance of new Government controls which would meet the requirements of the situation. In the early months of 1943 conferences were held with industry consultants, and mass meetings of fishermen, boat owners, and cannery and reduction plant operators were held in several cities in California. A plan was evolved which met the approval of the industry and was accordingly adopted. It provided for distributing the fishing activity and catch on the basis of (1) the Government requirements for canned sardines and sardine meal and oil; (2) the necessity of maintaining an even flow of raw material into the various ports and plants to insure that the equipment and manpower would be available at all times for processing the catch; and (3) the condition of fishing in the waters adjacent to each port.
In general, the Coordinated Pilchard Production Plan was well received and generally successful during the operating season of 1943-44. Aside from minor administrative difficulties, the chief difficulty was to maintain a fleet of sufficient size to supply canneries and reduction plants in the San Francisco area. This condition was aggravated by poor runs of fish and interruptions of fishing by unfavor-617248—45-------16
206 • Report of the Secretary of the Interior
able weather. The season’s production in California as a whole was 473,450 tons, a decline of 9 percent from the previous 5-year average. Owing primarily to the shortage of cannery labor, the production of canned sardines declined materially, being 11 percent less than the 5-year average. However, a thorough analysis of the situation indicates that the pack would have suffered a further decline had no production program been in operation.
The industry was consulted at the close of the season as to the desirability of continuing the production program. The consensus favored a repetition of the program with minor improvements and provision for stricter enforcement during the 1944-45 season.
FISHERIES IN SOUND CONDITION FOR POST-WAR DEVELOPMENT
In spite of the heavy demand for the products of the fisheries and the difficulties under which the industry has operated, the fundamental condition of the resource is sound. As a result of the temporary reduction in the size of the fishing fleet, the intensity of fishing has declined in many areas and, as a result, signs of a relative increase in the abundance of many important commercial species have been noted. In carrying out the war program for increased production, the responsibility of preserving the Nation’s basic fishery resources for future use has not been forgotten. Conservation regulations have been amended in only a few instances, when mature consideration indicated that such action would not endanger the stability of the resource. The wisdom of this policy is now apparent.
The Office of the Coordinator of Fisheries is a war-time agency, and as such has no permanent existence and no post-war program. Plans for the future development and expansion of the fisheries belong, rather, to the Fish and Wildlife Service and the individual States. The Coordinator’s Office derives satisfaction, however, from its conviction that when its task is completed and the present controls over the fisheries are relinquished, the living resources on which they depend will be found in sound condition, unimpaired by the strains and demands of war.
National Park Service
Newton B. Drury, Director
AS THE Nation approaches the decisive phases of total war, it is 2X gratifying to report that the national parks as an institution have thus far stood intact. There is now reason to believe that they will emerge with their essential qualities and the pattern of their management relatively unimpaired, for even under the stress of national emergency general recognition has been given to the importance of protecting, in war as in peace, those portions of the Federal Estate which, because of significant features of beauty and interest, have been set aside to be held unchanged as part of the American heritage.
Recent annual reports have outlined the challenge that faced the Service in meeting the emergencies and making the contributions involved in World War II, at the same time giving protection to scenic, scientific, and historic aspects of the National Park System. Those reports explained the course pursued by the National Park Service, with the firm support of the Secretary of the Interior, in cooperating with war agencies without departing from the obligation of its stewardship.
After some 3 years of participation in the war program, involving more than 1,000 authorizations for uses of park lands and facilities, an appraisal of the status of the parks produces some interesting and reassuring facts. Although it is still too early to report definitely upon the effects of all park uses by military and other war agencies, a recent survey indicates that, although such uses have been much more numerous than expected, relatively little permanent impairment of park features has resulted, largely because of the cooperative, open-minded approach of the war agencies to each problem.
THREATS TO PARK CONSERVATION AVERTED
It has been fortunate that no desperate situation demanding destruction of major park features has arisen; and developments of the past year proved the wisdom of not yielding to pressure without
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208 • Report of the Secretary of the Interior
a reasonable showing of critical necessity. Park timber, urgently demanded on the ground of war needs, upon investigation was found not to be essential to victory, as alternatives proved to be available; invasion of California parks by cattle and sheep proved not to be essential to the public welfare and was found to be of negligible importance to the meat industry; an initial venture in removing strategic mineral ore from a national park was abandoned as uneconomical. Thus scenic, scientific, and cultural resources of the national parks, that would have been disastrously affected or even entirely destroyed had free rein been given to all agencies and industries demanding their use in the name of winning the war, are still held as a part of the Nation’s treasure.
Sitka spruce.—Pressure for the logging of Sitka spruce in Olympic National Park was intensified at the beginning of the year. Anticipation of a shortage of this species for aircraft lumber to meet war needs in the spring and early summer had led to a request from the War Production Board for the release of the park spruce.
Although some of the lumber manufacturers were insistent, the Secretary of the Interior refused to act without satisfactory proof that the necessary aircraft spruce could not be obtained from other sources. While negotiations between the Department and the War Production Board were pending, the situation changed by reason of the Alaska Spruce Log Program of the United States Forest Service, greatly increased spruce production in British Columbia, increased production of aluminum available for plane manufacture, and the Army’s cancelation of orders for certain types of wooden planes. The War Production Board thereupon withdrew its request.
Thus the threat of invasion of Olympic National Park by logging was safely outridden. Nevertheless, constant vigilance is necessary, since in some measure the drive was directed to the use of park forests to sustain private industries after the war.
Spruce and hemlock in Great Smokies.—War needs for wood pulp of the long-fibered type early in the spring of 1944 loomed as a threat to the remnant of virgin red spruce and hemlock in Great Smoky Mountains National Park.
Availability of these species in the park was investigated by representatives of the Paper Division of the War Production Board, the School of Forestry of North Carolina State College, and a local lumber company having nearby an idle pulp mill equipped to process these woods.
Fortunately, it was ascertained that numerous other species are available for the manufacture of long-fibered paper products and that many other mills are manufacturing long-fibered pulp.
Strategic minerals.—The apparent necessity of relieving the critical shortage of strategic minerals resulted in an exception to national park
National Park Service • 209
policy in 1943. Mining of a deposit of tungsten in Yosemite National Park by the Metals Reserve Co., a Federal agency, was permitted upon recommendations of the Geological Survey, Bureau of Mines, and War Production Board. The company ceased operations in the fall of 1943, with approximately 55 tons of hard-sorted ore obtained, and permit therefor was revoked by the Secretary of the Interior as of December 27, 1943.
The Defense Plant Corporation, whose permit to extract salt from Death Valley National Monument as an emergency measure in connection with nearby magnesium production expired December 31, 1942, completed restoration work in the Badwater salt area of the monument in December 1943.
Grazing.—Remembering the experiences of World War I, when grazing was permitted as an emergency measure, the National Park Service during the present struggle definitely excluded livestock from the wilderness national parks. Its studies had revealed that the carrying capacity of all the national parks in the one State of California, where grazing was demanded by the cattlemen, would not exceed 6,000 cattle—less than one-half of 1 percent of that State’s approximately 1,400,000 Beef cattle—and that this slight contribution to the meat supply would entail heavy damage to park features.
Drought conditions in the spring of 1944 caused livestock growers in the interior valleys to renew efforts to secure grazing privileges in the Sierra Nevada national parks. With greater than normal cattle inventories, range conditions were about 50 percent of normal in early April and dry feeds were exceedingly short. Therefore, after conferences with representatives of livestock associations, war food administrators, and others, the Service recommended to the Secretary that he consider limited grazing in some national park areas in California as a wartime emergency if it were shown that such steps were necessary to save purebred breeding stock from starvation. The Secretary agreed to consider each case on its merits.
To investigate the need of such action, a grazing committee was established, including representatives of the Sierra Club, California Conservation Council, Western Federation of Outdoor Clubs, and United States Forest Service. After a thorough study of the situation, and after consultation with Government agencies charged with control of the wartime food supply, this committee reached the unanimous conclusion that to June 30 opening of national park lands to grazing was “not justified by manifest war necessity—nor is the purebred breeding stock of the herds for which applications have been submitted likely to be lost if park range is not made available.” Expressing sympathy and understanding of the situation in which the applicants found themselves through their efforts to produce more meat, the committee nevertheless stated that it “would feel itself
210 • Report of the Secretary of the Interior
hard-pressed to recommend to the Secretary that a natural resource within a park, such as its grasslands, should be utilized for what amounts to the economical stabilizing of a private operation on the outside.”
In closing its report, the grazing committee stated that “if and as applications are submitted which fall clearly within the spirit of the Secretary’s intent, the committee will recommend their approval.”
Meanwhile, a bill (H. R. 5058) has been introduced in Congress by Representative Clair Engle to open all national parks and national monuments to livestock grazing for the duration of the war and six months thereafter.
HISTORIC OBJECTS THREATENED
Necessity for the salvaging of metals led to the suggestion that the historic cannon, monuments, and markers in the national military parks be melted down as an aid to the scrap drive. This was a real threat for a time, but was fortunately averted. The Service gathered in its areas over 8,500,000 pounds of scrap metal, but as to trophy ordnance and memorials raised with the War Production Board the question whether rare and irreplaceable historic relics should be scrapped until the national stockpile of useless and nonhistoric and nonartistic metal objects had been utterly exhausted. The point was made that each war memorial represents the last possible debt payment of the Nation to some soldier or group of soldiers in our national past, and that it would be of little comfort to the soldiers of the present day if such evidences of the Nation’s gratitude should come to be lightly regarded.
In this connection, at least one patriotically intended, but impulsive and irrevocable act of salvage serves to give point to the position taken by the Service. The U. S. S. Oregon, famous for its spectacularly long and speedy run to participate in the American naval victory at Santiago Harbor in 1898, was withdrawn from active service in 1925 and maintained as a historic shrine by the State of Oregon. In 1942 this battleship was dismantled for scrap metal. Representative Homer D. Angell now doubts that an appreciable amount of salvage from the Oregon went into the war effort and has asked for an official investigation. In any case, that which to many citizens was a precious symbol of our freedom has now become a wistful memory,, and the question “Was it really necessary?” is a question asked too late.
NATIONAL PARK SERVICE LAND POLICIES CHALLENGED
Partly due to war pressures, and partly because of growing conflicts between utilitarian and conservation concepts, there arose during the past year definite challenges to the land-acquisition policies of the
National Park Service • 211
National Park Service, accompanied by widespread misconception of the Service’s functions and purposes. This was the case in the controversy over Jackson Hole National Monument. It was also brought out in the Partial Report of the Senate Committee on Public Lands and Surveys Pursuant to Senate Resolution 241, Seventy-sixth Congress, which contained this statement:
There are certain Government agencies that habitually and regularly include in their withdrawals far larger areas than could possibly be justified after a careful examination of the actual and proper needs. Probably the most flagrant example of this constant overreaching is to be found in the actions of the National Park Service in the setting up of national parks and monuments. There is, apparently, no limit to the demands of that agency for additional areas to administer.
It is sincerely believed that this is a misconception of the attitude of the National Park Service.
Hearings were held during the year by a subcommittee of the Senate Committee on Public Lands and Surveys in various western towns. Administrative officials of the Service were asked to attend these hearings and endeavored to answer this charge. At the hearing in Fredonia, Ariz., the Director said in part:
We are confining our attention to the areas of national caliber which are outstanding in natural beauty, wildlife values, historical and scenic interest, and we can, I agree with you, readily imperil the high standards which we have tried to maintain for the national-park system, if we take in too much territory.
Now the question as to how much land it is reasonable to include in national parks and monuments, is, of course, debatable. The fact is that, of the total land area of the United States, only about three-quarters of 1 percent, at the present time, is included in all the different types of areas administered by the National Park Service. In general, our approach is not to add to this number of areas or acreage, except where there are outstanding examples of scenery and other values such as we are supposed to preserve in parks and monuments, examples that are distinctly of interest to the Nation as a whole * * * That, too, I think we have to do without injustice either to individuals concerned or the communities where these areas are located.
While at these hearings the National Park Service took exception to the charge of “land-grabbing,” it has welcomed the opportunity to explain its land policies to members of Congress, to conservationists, to those who wish to use park lands for private commercial gain, and to the public generally, which stands to gain or lose most by any change in. park conservation principles and practices since the national park areas are established “for the benefit and enjoyment of the people.”
It is believed that an impartial review of the history of the National Park System will verify the statement that the long-range policy guiding its growth has been one of restricting the system to areas superlative in their own fields of scenery, natural science, or history. Em-
212 • Report of the Secretary of the Interior phasis has been placed upon quality rather than quantity, and upon the national rather than the local significance of the areas acquired.
The Service would welcome an impartial reevaluation of the units of the National Park System in the light of the highest public use of the lands involved, from the standpoint of national interest.
Establishment of national parks by act of Congress began in 1872 with Yellowstone National Park. Up to 1916, when Congress created the National Park Service, 16 national parks, the Hot Springs Reservation, and 56 national monuments and related reservations had been established. Unquestionably, before 1916 a few areas had crept into the National Park System which did not measure up to national park standards. No Federal agency existed to investigate the national importance of their scenic, scientific, or historic characteristics. The Service believes that had it been in existence at the turn of the century, its stand against inclusion in the system of these substandard areas would have been heeded by Congress.
Since its organization the Service has hoped and planned to relinquish jurisdiction over some such properties. Unfortunately, in most cases this has been impossible. No units of the National Park System, whether established by act of Congress or by Presidential proclamation, may be abolished without authority of Congress. Paradoxical as it may seem in the face of the present Jackson Hole controversy, it is far easier to establish a new area with the approval of Congress than to abolish an existing one. Once a park or monument is established and accepted by the local people, its abolition usually is considered an affront to local pride.
Similarly, when the consolidation of national parks and allied areas under the National Park Service took place in 1933 by Executive order, certain areas were inherited which were not characteristic of the National Park System. Efforts to remove them from the national category and give them State or local park status have in general been met by united local opposition supported by Congressional delegations from the States concerned.
National cemeteries.—Among the areas transferred to National Park Service jurisdiction in 1933 were several national cemeteries within or near national military parks. Recently, the demand for burial space in these cemeteries has increased, giving rise to the question as to whether cemeteries in this group shall be enlarged. The National Park Service has taken the position that existing national cemeteries under its jurisdiction shall not be extended, since any such increase would encroach upon the historic area of the national military park with which the cemetery is associated. Moreover, op-
National Park Service • 213
eration of such enlarged cemeteries would not be a proper function of the Service.
It has been determined that the Chattanooga National Cemetery, Tenn., one of those transferred to the National Park System in 1933, is not located on historic ground and is not adjacent to Chickamauga and Chattanooga National Military Park. It has nearly 14,000 unoccupied grave sites. With the concurrence of the Secretary of War, and approval by the Bureau of the Budget, a draft bill to transfer jurisdiction over this cemetery to the War Department has been prepared for presentation to the Congress. This is typical of the endeavor of the Service to concentrate its activities in the fields primarily covered by the basic act establishing it.
Rejections of park proposals.—From 1933 to 1940 the Service investigated 353 areas proposed for national park, monument, or related purposes. Most of the proposals were disapproved on the ground that the areas under consideration were not of national park caliber. During the same period, 420 additional park proposals were made, but were not investigated or otherwise acted upon, largely because of lack of funds and personnel. Among the areas proposed for national park status which have been adversely reported upon were the scenic and well known Pikes Peak and Mount Baker.
As to the charge that “habitually and regularly” certain Governmental agencies “include in their withdrawals far larger areas than could possibly be justified after a careful examination of the actual and proper needs,” the record shows that in wilderness national parks the National Park Service in general has erred in taking too little land, resulting in inadequate range for native wildlife and creating administrative difficulties; and Congress has frequently rectified such park boundaries.
Recreational demonstration areas.—In line with Congressional authority requested by the Department, upon advice of the National Park Service, and granted in 1942, more than half of the 46 “recreational demonstration areas” have been relinquished. Fifteen and part of another have been transferred to the respective States, and 2 others have been approved by the President for such transfer. Nine, and part of 1 other, have been added to the National Park System, primarily to existing park areas. One has been transferred to the Bureau of Reclamation. It is expected that 13 additional demonstration areas will be transferred to their respective States or political subdivisions thereof when these are in a position to administer them. Five are being retained in their present status awaiting determination as to their best disposition.
214 • Report of the Secretary of the Interior
The status of all 46 recreational demonstration areas is shown below:
Recreational demonstration areas, June 30, 1944
Area	State	Acreage
Acadia	 Alexander H. Stephens. Badlands	 Beach Pond	 Bear Brook	 Blue Knob	 Blue Ridge	 Bull Run	 Camden Hills	 Catoctin	 Cheraw	 Chopawamsic	 Crabtree Creek	 Cuivre River	 Custer	 Fall Creek Falls	 French Creek	 Hard Labor Creek	 Hickory Run	 Kings Mountain	 Lake Guernsey	 Lake Murray	 Lake of the Ozarks	 Laurel Hill	 Mendocino Woodlands. Montgomery Bell	 Montserrat	 Oak Mountain.	 Otter Creek	 Pere Marquette	 Pine Mountain	 Raccoon Creek	 Roosevelt	 St. Croix	 Shelby Forest	 Shenandoah	 Silver Creek	 Swift Creek	 Versailles	 Waysides (6 units)	 Do	 Waterloo	 Winamac	 White Sands	 Yankee Springs. 			Maine	 Georgia	 South Dakota	 Rhode Island	 New Hampshire... Pennsylvania	 /North Carolina	 /Virginia.. .7-.	 	do	 Maine	 Maryland	 South Carolina	 Virginia	.	 North Carolina	 Missouri	 South Dakota	 Tennessee	 Pennsylvania	 Georgia.	 Pennsylvania	 South Carolina	 Wyoming	 Oklahoma	 Missouri...	 Pennsylvania	 California	 Tennessee	 Missouri	 Alabama	 Kentucky	 Illinois	 Georgia	 Pennsylvania	 North Dakota	 Minnesota		 Tennessee	 Virginia	 Oregon	 Virginia	 Indiana	 South Carolina	 Virginia	 Michigan	 Indiana	 New Mexico	 Michigan		5,654 940 43,414 3,484 6, 436 5,136 } 10,624 1,605 4,962 9,919 6,825 15, 984 4,983 5, 759 20, 405 15, 777 6,198 5,804 13, 386 10,147 1,753 2, 228 16,196 4, 026 5, 425 3,746 3,441 7,805 2, 445 2,	522 3,	032 5,035 66, 376 18,499 12, 258 10,129 4,	093 7, 605 5,	371 228 206 11,830 6,	233 1,719 4,197
Disposition	Visitors
Added to Acadia National Park, June 6, 1942. Added to Badlands National Monument by act of June 26, 1936. Transferred to State, June 28, 1943	 Transferred to State, May 12, 1943	 Added to Blue Ridge Parkway, June 30, 1936. Designated as Manassas National Battlefield Park, June 10, 1939. 6,619 acres transferred to State, June 9, 1944. 206 acres transferred to Fish and Wildlife Service, May 10,1944. Added to National Capital Park System, Aug. 13, 1940. Transferred to State, April 6, 1943	 Transfer to State approved by President, awaiting acceptance. 214 acres established as Hopewell Village National Historic Site, August 3, 1938. Remaining 5,984 acres added to Site, June 6, 1942. 3,972 acres added to Kings Mountain National Military Park, July 11, 1940. Remaining 6,175 acres transferred to the State, May 30, 1944. Transferred to Bureau of Reclamation, June 8,1943. Transferred to State, February 20, 1943.. Transferred to State, June 9, 1943	 Transferred to State, Apr. 30,1943	 Transferred to State, May 7, 1943	 Transferred to State, Sept. 27, 1943	 Transfer to State approved by President, awaiting acceptance. Added to Shenandoah National Park, June 6,1942. Transferred to State, Apr. 20, 1943	 Transferred to State, June 9,1944	 Transferred to State, Mar. 26, 1943	 Transferred to State, June 15, 1943	 Transferred to State, Apr. 20,1943	 Added to White Sands National Monu- ment, June 6, 1942. Transferred to State, June 15, 1943		(*) 7,300 (*) 7,143 (*) (’) 5,495 16,006 1,547 (>) 21,346 9,005 (>) 10,522 11,331 2,867 24,708 4,726 3,413 10,590 12.450 32,950 (*) 3,901 67,843 (>)
i Visitors counted in park or monument totals.
Jackson Role National Monument.—Still pending at the close of the year were the Barrett bill (H. R. 2241) to abolish the Jackson Hole National Monument and the suit of the State of 'Wyoming v. Paul R. Franke (Superintendent of Grand Teton National Park and of Jack-son Hole National Monument), the latter to test the legality of the
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establishment of the monument by the President on March 15, 1943, under authority of the Antiquities Act of 1906.
Following the hearings on the Barrett bill held in Washington in late May and early June 1943, further hearings were held in the Jack-son Hole area the following August. Involved in these hearings were many issues which brought to a focus most of the basic problems of the National Park Service.
Of the area Frederic L. Paxton, distinguished historian of the West who was awarded the Pulitzer Prize for his History of the American Frontier, said: “Jackson Hole at the base of the Grand Tetons is not only a great scenic treasure but also an important early center of mountain fur trade and exploration of the far West. It should be preserved as a national monument.” Similar opinions by authorities on geology and wildlife support the preservation of the Jackson Hole according to the National Park Service pattern.
That many of the local people are of the same opinion was evidenced by petitions received by the House Committee on Public Lands too late for inclusion in the printed hearings of the committee on the Barrett bill, but published in the Congressional Record of June 7, 1944. Approximately 100 “long-time residents of Jackson Hole, Wyo., * * * actively engaged in business here,” expressed the belief that “Jackson Hole is one of the finest outdoor recreational areas in the world and * * * it should be protected and developed as such,” and that “it is our final conclusion that it is time for us to work constructively together and to put an end to quarreling, and we urge upon our congressional delegation that they transfer their efforts from the present Barrett bill to efforts for constructive legislation that will supplement the monument proclamation, by giving permanence and certainty to the foregoing rights [valid existing claims already recognized by the Department] which, although now guaranteed by the statements of officials of the Interior Department, should be placed beyond any possibility of doubt by legislative action.” Another petition, signed by eight prominent businessmen representing commercial interests in the Jackson Hole valued at more than half a million dollars, urged the Committee “not to undo the Jackson Hole National Monument, but, if it needs bettering in any way, that you strengthen and perfect it by legislation.”
During the 1944 fiscal year the National Park Service gave the monument such protection against fires and vandalism as could be provided under the limitations of the 1944 Interior Department Appropriation Act, which provided that the Service might undertake only those administrative functions that were in operation on the lands prior to monument establishment. The 1945 Appropriation Act contains the same restriction.
216 • Report of the Secretary of the Interior
In March 1944 the Public Lands Committee of the House of Representatives made a favorable report on the Barrett Bill to abolish the monument, and in May the Rules Committee of the House took action providing for a vote. The bill, however, to June 30 had not been called up.
Meanwhile, the trial of the State of Wyoming v. Paul R. Franke was held on August 21 at Sheridan, Wyo.1
TRAVEL CONTINUES DESPITE WAR
Despite recurring rumors to the contrary, the national parks of the United States have not been “closed.” They have remained open to travel, but on a limited-service basis. The Office of Defense Transportation necessarily tightened restrictions on pleasure-travel, and the National Park Service adhered strictly to the policy enunciated by the Secretary of the Interior of not encouraging visitors to the national parks.
The travel figures are interesting more for the trends indicated than for the totals. Due to the continued trend of diminishing travel, especially through July, August, and September, 1943 (the first months of the 1944 fiscal year), the total number of visitors for the fiscal year decreased to 7,455,271 from the 1943 fiscal year total of 8,193,090, a decline of 737,819 or 9 percent. The downward trend, gradually leveling off during the next 2 months, reached bottom about December 1, 1943, and has since reversed its direction to consistent and accelerating increases. The total of 3,818,766 visitors recorded during that portion of the 1944 fiscal year from December 1, 1943, to June 30, 1944, was an increase of 615,446, or 19.2 percent over the 3,203,320 recorded during the corresponding period of the 1943 fiscal year. An increase of 49 percent was recorded in June 1944 over June 1943.
On the basis of current travel trends, it is estimated that the total number of visitors for the 1944 travel year (October 1943 through September 1944) will equal 40 percent of the peak travel year of 1941 when there were 21,050,426 visitors.
The 2,149,398 military visitors during the 1944 fiscal year made up 29 percent of the total. In all, 4,135,052 men and women in uniform have visited the national parks and allied areas since Pearl Harbor.
Faeilities available to visitors.—Park concessioners, as required under their contracts, provided limited service, such as stores, meals, and overnight accommodations, in those areas where the extent of wartime travel indicated a distinct need therefor. In the face of difficult operating conditions, this service to the public was well handled. All Office of Price Administration rules and regulations
1 The case was taken under advisement and a decision is expected sometime after January 1, 1945.
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with respect to meals and housing rate ceilings and the rationing of food and gasoline were strictly applied. No sightseeing trips were operated, practically all hotels were closed, and accommodations were the simplest compatible with the responsibility of providing for the public comfort.
CONCESSION POLICIES
The Department policy that concession facilities wherever possible should be installed and owned by the Government was further crystallized. This policy relates to ownership of the improvements and physical plant by the Government, and is quite distinct from the question of operation. Post-war construction programs were broadened to include plans and estimates for new Government-owned concession facilities in many areas. Concession facilities in 38 areas under National Park Service administration now are owned in whole or in part by the Federal Government.
National Park Concessions, Inc., the nonprofit distributing private corporation organized in 1941 to handle concession operations in facilities acquired through donation in Mammoth Cave National Park, extended its operations to include the concessions at Isle Royale National Park, Rosemary Inn in Olympic National Park, and Vanderbilt Inn in the Vanderbilt Mansion National Historic Site. It also acted in a managerial capacity at Lassen Volcanic National Park for the park concessioner. Its operations on the Blue Ridge Parkway were in abeyance during the year. The Secretary of the Interior designated National Park Concessions, Inc., to operate facilities in Big Bend National Park.
LOOKING INTO THE POST-WAR FUTURE
Past experience and present indications point to a speedy resumption in the early post-war period of the upsurge in national park travel that was interrupted when hostilities began late in 1941. Inherent in this anticipated increase will be diverse problems of protection, development, and use, requiring much thought and planning.
Typical of the most serious pending use-problems are: Control of concentration of visitors, fundamental to the protection of perishable features of certain western parks; possible future removal of concession facilities from areas of the greatest natural beauty; campground and forest encroachment conditions in Yosemite National Park; operation of Crater Lake National Park on a summer basis, avoiding costly snow-removal activities; and possible removal of Mount Rainier National P’ark headquarters to a more suitable site. Implicit in each of these situations, and many others of like nature, is the responsibility of the National Park Service, under mandate of Congress, to protect the natural features of the parks, while contributing to public enjoyment.
218 • Report of the Secretary of the Interior
In the older national parks the original lay-out of visitor facilities, under then-prevailing slow modes of travel, was based on the need for overnight accommodations within the parks and near points of major interest. In general, this condition no longer prevails. The question, therefore, arises: Should future planning envision only such facilities as are necessary for daytime use, depending upon nearby communities to furnish sleeping accommodations as in the case of the Great Smoky Mountains National Park? Needless to say, there will always be certain areas where it would not be practicable to follow this procedure. But a trend away from developments of the resort type within the parks will serve the objective of holding the perishable features of many areas unimpaired.
Post-war construction.—The National Park Service is not primarily a construction agency, but it stands ready, as part of its continuing program of providing facilities, to take a small, but nonetheless substantial, part in any national post-war public works program. When the Nation went on a war basis, the construction of all physical developments in national park areas was terminated, and there is now a backlog of urgently needed construction.
Studies have been made of the Master Plans, upon which all development is based, to ascertain the maximum amount of construction that could be promptly undertaken in connection with post-war public works financing. A suggested program of planning was prepared involving the expenditure, over a 3-year period, of $4,758,135 on investigations, surveys, and the preparation of detailed plans, specifications, and estimates. This is essential, as it takes much time and thought to program construction in such manner as to retain the natural beauty of the native landscape. Based on such studies, the Service could have ready for initiation within a reasonable time a construction program involving about $78,000,000 for parkways, major and minor roads, trails, and physical improvements. Experience indicates that the desirable pace for such construction would be at the rate of about $22,500,000 per year. . More than this might result in hurried and ill-advised construction.
During the 10 years of work relief programs most of the work in National Park Service areas that could be done by unskilled labor and with restricted amounts of equipment and materials was accomplished. The bulk of needed future work could best be done under contract with responsible contractors possessing good equipment and experienced foremen and crews.
Studies as basis of park policy.—Post-war planning should include research projects and interpretive undertakings of prime importance in preserving basic park values. Studies of this nature are essential to intelligent administration and vital to the protection of historic and scientific resources. One such problem is to determine the extent
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of permanent impairment that may result from development of tourist facilities and heavy use of park areas. There are kindred problems in forestry, wildlife, history, and other fields, regarding which investigations as to basic facts must precede the formulation of policies or the taking of action.
Airplanes.—Recognizing the tremendous impetus given to air travel by war-caused developments in aviation, the Service is looking ahead to its possible effect upon the national parks and has discussed the problem with representatives of the Civil Aeronautics Authority. Commercial and private aircraft will increasingly become a popular mode of transportation to the national parks, and will have to be reckoned with. It is felt, however, as in the case of rail and bus terminals, that airplane landing fields should be located outside park boundaries.
There will be a period of experimentation in this new and highly important field of air travel, and this phase of trial and error should not be allowed to impair the national parks. Experiments with airtransport, helicopter, or private plane should be carried on in other areas. When aircraft construction and use are stabilized, or .when conditions change materially, this policy will be reviewed. Meanwhile, it is obvious that the construction of landing fields and auxiliary buildings would intrude upon park scenery; and that the noise and confusion of airplanes would disturb the native wildlife and would tend to destroy the character of these great areas as nature sanctuaries, especially affecting their atmosphere of serenity and peace, wherein lies their value for inspiration, recreation, and relaxation.
COOPERATIVE PLANNING STUDIES
By maintaining a review of the water control plans of various Federal and State agencies, the Service has been able to observe the trends in national water policy and water use developments, and their bearing upon the National Park System or on other park and recreational interests.
Potomac River recreational survey.—At the request of the War Department, the National Park Service made a study of the scenic, recreational, and historic features of that portion of the Potomac drainage basin upstream from Great Falls to the headwaters of the river, and the effect thereon of the proposals for a series of multiple use reservoirs. In putting its investigative facilities at the disposal of the United States Army Engineers the National Park Service in no way supported any plan to dam the Potomac River, which admittedly would adversely affect the environs of the National Capital.
Denison Dam and Reservoir recreational planning project.—This survey was completed and a report was prepared, including plans and recommendations. It recommends acquisition of 9,630 acres of
220 • Report of the Secretary of the Interior additional lands to permit establishment of two major recreational developments—one each in Texas and Oklahoma—and six minor developments. The estimated cost for acquisition and development is $6,000,000.
Other recreational studies.—Recreational planning studies were continued, in cooperation with the Bureau of Reclamation, on the Grand Coulee Dam and Reservoir on the Columbia River, Wash., the Central Valley Reclamation Project in California, covering the Sacramento and San Joaquin watersheds; the Colorado River basin; and the Missouri River basin. There were further studies and research on the suggested Mississippi River parkway, of interest among Mississippi River States.
Alaska Highway study.—Field studies were made during the 1943 summer, of scenic, scientific, historical, and recreational features, and possible roadside developments, along that portion of the Alaska Highway located in the Territory of Alaska, as authorized by the President on January 8, 1943. Further studies are now in progress.
STATE RELATIONS
The Service has continued, but in a more limited way, to assist the States in their park planning and administrative problems. The principal assistance rendered has been the serving as an informal liaison between State park officials and war agencies in connection with the utilization of State parks and recreational areas for purposes relating to the prosecution of the war.
WILDLIFE OVER-POPULATION PROBLEMS
In war or peace, certain problems of protection and administration confront the National Park Service, notably in the fields of wildlife and forestry.
The basic wildlife policy has been one of permitting each species to carry on its struggle for existence without artificial aid, in the belief that this is for the ultimate good of the species, and conforms to the purpose of the parks. If conditions become such that a particular type will perish if not given especial protection, temporary resort may be made to control of natural enemies, artificial feeding, or such other measures as are necessary; directing the entire effort, however, toward placing the species as soon as possible upon a self-sustaining basis. During the past two decades over-population by grazing and browsing species in relation to the available winter range has increased, partly because of earlier artificial protective methods and partly because of growing restriction of once natural range outside these reservations. During the past year definite steps were taken to correct several of the most critical situations.
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Yellowstone buff alo management.—This problem has been especially serious in Yellowstone National Park because of the complex pattern presented by the varied herbivorous forms that inhabit the area—deer, antelope, elk, moose, mountain sheep, and buffalo—and the limited winter range available. In considering the buffalo situation three salient points were taken into consideration: (1) The buffalo no longer faces extermination; numbers and distribution in the United States attest to its security as a species. (2) Continuance of the buffalo herd in Yellowstone is considered desirable and justifiable because the animals occurred there naturally, as evidenced by ancient skeletal finds. (3) Reduction of the herd is deemed imperative that Yellowstone National Park may be maintained as a natural area, and not as a zoological park or game farm. Present policy proceeds on the theory that ranch activity is no longer necessary, either for survival of the bison as a species or for the continuance of a normal number of buffaloes in the park.
To restore the buffalo to its normal place in the park fauna and to rehabilitate the range vitally needed by other wildlife species, the Lamar buffalo herd was reduced by 400 animals during the winter.
The ultimate plan for the Yellowstone buffalo herd contemplates a tapering off of feeding and placing the animals entirely upon their own resources. Hay will be kept on hand for several years to insure against potential adverse effects of unusual weather conditions before the herd reestablishes its natural feeding habits; and intensive studies will be made of its behavior under the new program. Future action will be based upon experience and investigation, but always with the ideal of maintaining the buffalo, like other species, as a wild animal in a natural environment, and not as the basis of an “animal show.”
Yellowstone elk.—Because of the mild winter, most of the northern elk herd stayed in the park and the comparatively modest reduction planned through hunting north of the park could not be effected. The season closed on March 1, 1944, with a total estimated kill of 125 elk.
Zion Park deer.—Studies during the past decade revealed that mule deer in Zion National Park had increased far beyond food supply limits. Hunting outside the park boundary proved utterly ineffective in reducing the population or even in keeping it in bounds. Zion Canyon offers a sheltered wintering ground and freedom from predators, with the result that the range has been badly depleted. A few more years would have seen almost total destruction of food plants, as well as fatal deterioration of the deer. In cooperation with the Utah State Game Department, therefore, 300 deer were removed. The animals were killed by park rangers and turned over to the State game authorities.
617248—45--17
222 • Report of the Secretary of the Interior
Rocky Mountain Park elk and deer.—The east central region of Rocky Mountain National Park has been subjected to heavy overuse by elk and deer for at least 15 years. Original tendencies of the animals to migrate to lower elevations outside of the park have been inhibited by human developments blocking the original migration route. These ancestral winter ranges of the elk and deer, furthermore, have been devoted to close grazing by domestic stock. To meet this situation, plans were made in cooperation with the Colorado game authorities to reduce the herds by approximately one-third, or 200 deer and 300 elk. It was impracticable to carry out the program | during the winter of 1943-44 (only 14 deer and 12 elk were eliminated) | and it is planned to complete the program next winter.
WILDLIFE INVESTIGATIONS
In order to conserve, protect, and manage the important wildlife resources of the National Park System, insofar as diminished man- I power and appropriations would permit, essential fact-finding pro- | grams were continued as to condition of, and changes in, important species. Assistance was furnished by the Fish and Wildlife Service 1 for a faunal investigation on the western portion of Olympic National Park, and information supplied on the wildlife, particularly elk, in Jackson Hole National Monument. A life history study of the Yellowstone elk was resumed, to fill out many gaps in our knowledge of the famous northern herd, and to work out a successful management and range restoration program. A cooperative project is contemplated, with all Federal and State agencies concerned contributing information.
Yellowstone Park personnel initiated a life history study of the park buffalo. Studies were continued on the depleted winter range ■ in the east central portion of Rocky Mountain National Park. The Zion National Park staff, assisted by an investigator of the Fish and 1 Wildlife Service from the Utah Cooperative Wildlife Research Sta- I tion, accumulated important data on the 300 deer that were eliminated from Zion Canyon in November and December 1943. Studies of the black bear in Yosemite Valley were made as a guide to management of that species. Bear feeding has been eliminated in all national parks. At Mesa Verde National Park, Colorado State officials continued investigations of forage on the mesa as a part of a regional program to determine carrying capacities for deer that range across national park, forest, and private lands without regard to boundaries. The Merriam turkey was restocked in Mesa Verde by the Colorado Game and Fish Commission. This species is known to have existed
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there during the Indian era, but disappeared probably at the time of the great drought (A. D. 1276-99) that also forced aboriginal inhabitants to migrate.
PROTECTION OF PARK FORESTS
Protection of the remnants of the formerly widespread virgin forests of America now held as representative exhibits in the national parks continued to be a Service responsibility of first magnitude. The normal problems of protection from fire, insects, and disease and from preventable injury in areas of intensive use were further aggravated by the increasing shortage of experienced protection personnel, available fire fighters, and other workers.
During the 1943 calendar year 308 forest fires originated within or entered areas of the National Park System, a decrease of 23 percent from the previous 10-year average. A total of 10,444 acres was burned over, 70 percent of which involved a forest fire in Saguaro National Monument and a grass fire at Dinosaur National Monument.
The forest insect situation generally continued to be favorable, indicating the value of previous maintenance control measures. Three areas, however, reported threatening conditions. At Bryce Canyon National Park an epidemic of the Black Hills beetle required continued control. In Yosemite National Park, as a result of a fire in 1941, an epidemic of forest insects required control measures. A serious outbreak of the spruce budworm attacked spruce, Douglas-fir, and ponderosa pine in Rocky Mountain National Park. Experiments which indicate improved control methods are being undertaken with the cooperation of the Bureau of Entomology and Plant Quarantine.
The intensive white pine blister rust control program has resulted in initial control or reeradication work on 253,000 acres to date, leaving 190,000 acres within important pine areas of the national parks still unworked but needing attention. This threat to some of the finest forests in the parks is yearly becoming more imminent.
LAND STATUS
Since investigations have practically ceased for the duration, and acquisitions have been confined to acceptances of donations under authority of Congress or rectification of boundaries, land area changes were few during the past year. Especially noteworthy was establishment of the
New National Park at Big Bend, Tex.
This newest and twenty-seventh national park was established on June 12, 1944, in accordance with authority granted by Congress on June 20,1935. Covering an area of 707,895 acres it is our sixth largest
224 • Report of the Secretary of the Interior national park. Its creation was made possible by the efforts and generosity of the State of Texas, which acquired and contributed all. but 16,556.50 acres of the area to the Federal Government.
Big Bend National Park deserves the place it has been granted among the primary areas of the National Park System. It embraces a region of elusive lasting charm and arresting scenery. Perpendicular gorges cleft by the Rio Grande in the Santa Elena and Bo-quillas Canyons are a sharp contrast to the cool forested slopes and summits of the Chisos or “Ghost” Mountains that rise above the arid plain. Human history, rare wildlife species, mountain and desert plant life, and their combination in natural settings make it “a biological island in an expanse of desert.” The paramount purpose of this national park must be the preservation of its vast wilderness as an inspiring “last frontier” on our southern border. The possibility of the establishment by Mexico of a similar park across the Rio Grande presents opportunity for a lasting memorial to international amity through linking the natural and human history of our two countries.
Developments for the benefit of visitors to the Big Bend will have to wait until the termination of the war. The necessary planning, however, is in progress.
Home of Franklin D. Roosevelt National Historic Site
By gift from President Roosevelt, title to his home at Hyde Park, N. Y., with approximately 33 acres of ground, passed to the United States on January 15, 1944, for preservation as a national historic site. Congress in 1939 authorized this step. The site adjoins the Library which the President gave to the Nation in 1939. Under the terms of the deed, actual administration of the national historic site for the benefit of the public shall begin when life interests held in the estate by the President, Mrs. Roosevelt, and the Roosevelt children shall have terminated. The property fronts on the historic New York and Albany Post Road. James Roosevelt, the President’s father, acquired it in 1867, and the President was born there in 1882. The President’s life has been intimately associated with this home, where since 1933 the heads of many foreign governments, including Prime Minister Churchill, have visited.
Total Acreage Accepted
The total acreage accepted by the Department of the Interior for park purposes during the year, both in established parks and approved projects, was 701,167.65 acres.
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Lands acquired by the National Park Service July 1, 1943, to June 30, 1944
	Acquired by—	Funds expended		Acres	Total Federal lands in area (acres)
		Federal funds	Donated funds		
Acadia National Park, Maine	 Antietam National Battlefield Site, Maryland. Appomattox Court House National Historic Monument, Virginia. Big Bend National Park, Texas	 Blue Ridge Parkway, Virginia	 Blue Ridge Parkway, North Carolina. Colonial National Historical Park, Virginia. Great Smoky Mountains National Park, Tennessee. Hickory Run Recreational Demonstration Area, Pennsylvania. Home of Franklin D. Roosevelt National Historic Site, New York. Lassen Volcanic National Park, California. Lava Beds National Monument, California. Mammoth Cave National Park, Kentucky. Morristown National Historical Park, New Jersey. Natchez Trace Parkway, Alabama.. Olympic Coastal Parkway, Washington. Saratoga National Historical Park Project, New York. Total	 Lands in Federal ownership in other areas. Total	 Less land transferred to: Navy Department from Colonial National Historical Park. State of Tennessee—Shelby Forest and Falls Creek Falls Recreational Demonstration Areas. Fish and Wildlife Services— South Carolina—Cheraw Recreational Demonstration Area. Eastern Band of Cherokee Indians, North Carolina—Great Smoky Mountains National Park. State of California—Lassen Volcanic National Park. Less area transferred	 Total Federally Owned Land. Non-Federal land within authorized boundaries	 Grand total..			Donation	 Donation	 Donation	 Donation	 Transfer	 Donation	 Purchase	 Purchase	 Purchase	 Donation		 Exchange	 Donation	 (Donation	 (Purchase	 Donation	 Donation	 (Transfer	 (Purchase	 Purchase	 Transfer	 Transfer	 Transfer	 Sale	 Exchange		$14,000.00 36, 739. 77 3, 700.00 54, 439. 77	$31,001.00 850.00 9,441. 25 2, 440.00 16, 900.00 60,632. 25	2, 700.00 128. 59 .06 691, 338. 95 105.80 1, 579. 58 214.83 2,278.05 479.44 33.23 40.00 120. 00 772. 31 291.02 .47 432. 62 86.85 237.15 328. 70 701,167.65 16.00 28,174.00 206.10 905.27 6.25	27,870. 99 183. 32 973.30 691,338.95 }	38, 910.00 7,057. 78 461, 786.82 13,386.44 33.23 101,840. 41 45, 727.00 }	51, 244.51 1,051. 56 13,648.87 }	43, 398.36 1,864.60 1, 500, 316.14 20,896,495.44 22, 396,811.58 29, 307.62 22, 367,503.96 895,651.46 23, 263,155.42
Non-Federal Historic Site Established
St. Paul’s Church) Eastchester) National Historic Site.—Historic St. Paul’s Church, associated with events leading to the establishment of the Bill of Rights, became a national historic site July 5, 1943.
226 • Report of the Secretary of the Interior
No transfer of property from the Episcopal Church Corporation was made; but under the terms of the Historic Sites Act of August 21, 1935, the National Park Service will cooperate in its management and preservation. St. Paul’s is a noteworthy example of the Renaissance revival style of architecture in America, and the best example now standing of the eighteenth century parish church of the central colonies.
Progress on National Park and Monument Projects
Everglades National Park project.—Interest in the possibility of substantial oil discoveries in the Everglades region is flourishing in Florida. As a consequence, the park project has become more complicated. If the park cannot be established, some provision for more protection for the wildlife of the area must be provided. The Service has agreed with Dr. Ira N. Gabrielson, Director of the Fish and Wildlife Service, and the Secretary has proposed to the State of Florida, that until the obstacles to the park are cleared up, some of the lands should be administered as a wildlife refuge. The national park project has by no means been abandoned, but if the park does not eventually materialize, the refuge should be made permanent.
Cape Hatteras National Seashore Recreational area project.—Gratifying progress was made by North Carolina in its acquisition program. The North Carolina Cape Hatteras National Seashore Commission, with assistance from this Service, in November 1943 made a reconnaissance survey to determine boundaries in relation to the numerous small communities within or bordering the most important of the three acquisition units in the project.
Richmond National Battlefield Park and Fort Frederica National Monument projects.—Progress is being made on the clearance of title to the lands being donated for these projects, and their establishment as units of the National Park System is imminent. Because of their historic interest, they will be a distinct asset to the National Park System. The Richmond Battlefield Park contains several areas over which the Union and Confederate Armies fought during the Union drives on Richmond, Va., the Confederate Capital. Fort Frederica, in Georgia, was built in 1736 by General James Edward Oglethorp, founder of Georgia, as an English outpost against Spain, which then owned Florida.
Grandfather Mountain.—A non-Federal organization, the Grandfather Mountain Park Association, was established for the purpose of acquiring, for donation to the Federal Government as part of the Blue Ridge Parkway, some 12,000 acres including Grandfather Mountain, N. C., one of the most outstanding features of the entire 484-mile parkway route.
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Iowa Indian Effigy Mounds National Monument project.—The State of Iowa is pursuing land acquisition, but probably will defer donation to the Federal Government until after the war.
Olympic Parkway, Wash.—This Public Works project of some 53,000 acres, is still in the land acquisition stage. Some general studies have been made regarding the parkway location.
George Washington Carver National Monument project, Missouri.— No practical advance was made in this project to preserve the birthplace of the late Dr. Carver, noted Negro scientist, as authorized by act of Congress, because of the high valuation placed by the owner on the lands.
Cumberland Gap National Historical Park project.—This 6,000-acre project has progressed encouragingly. Land surveys, essential to negotiations for the purchase of the individual properties, were begun by the States of Kentucky, Tennessee, and Virginia. Funds for land purchases are available in the three States, and Congress, by act of May 26,1943, gave consent to their entering into a compact under which the necessary properties may be acquired and conveyed to the Federal Government.
Manuelito National Monument project.—The legislature of New Mexico has appropriated funds with which to acquire the most important Indian allotments; and effort is being made to complete the land and development programs of this archeological project located in the States of New Mexico and Arizona.
TVA to Transfer Land to Great Smoky Mountains National Park
By agreement between the Tennessee Valley Authority, the State of North Carolina, Swain County in that State, and the National Park Service, 44,000 acres of land lying between the reservoir above Fontana Dam on the Little Tennessee River and Great Smoky Mountains National Park are being purchased by Tennessee Valley Authority for addition to the park in consideration of post-war road construction to be undertaken by the Service. This addition rounds out Great Smoky Mountains National Park in accordance with the original concept.
The Problem of Private Holdings
The total gross area of land within the boundaries of the 169 areas constituting the National Park System amounts to 21,076,459.41 acres. Of this total, 621,445.12 acres are privately owned and not subject to the rules and regulations governing the 20,455,014.29 net acreage of the system. From the standpoint of protecting and administering the parks, these inholdings are a serious handicap; in fact, they constitute the greatest single land problem of the Service. While no definite action is possible during the war, the Service has done what it can to
228 • Report of the Secretary of the Interior formulate a comprehensive program for the acquisition of these privately-owned lands. Legislation providing funds for a continuous land acquisition program directed to the acquisition of inholdings is sorely needed.
ADVISORY BOARD
The Interim Committee of the Advisory Board on National Parks, Historic Sites, Buildings, and Monuments met once during the year to advise on war and postwar problems. Attending were Edmund H. Abrahams (chairman), Dr. Waldo G. Leland, Col. Richard Lieber, Charles G. Sauers, Dr. Frank Setzler (secretary), and Dr. Ralph W. Chaney. Other members of the Board are Dr. Clark Wissler (vice chairman), Dr. Thomas Barbour, Dr. Herbert E. Bolton, Mrs. Reau Polk, and Dr. Fiske Kimball.
The death early in July 1943 of George De Benneville Keim, Board member, was reported last year. The Service now records with deep regret the death of another member, Col. Richard Lieber, noted authority on conservation. Colonel Lieber’s contribution in the fields of conservation and the humanities, both to the Nation and to his own State of Indiana, cannot be overestimated. Service officials benefited greatly from his wisdom and experience.
Dr. Ralph W. Chaney, paleontologist of the University of California, was appointed a member of the board vice Mr. Keim. The vacancy created by Colonel Lieber’s death has not yet been filled.
COOPERATING FEDERAL AGENCIES
Public Roads Administration.—New regulations implemented the working agreement that had been in effect since 1926 between the National Park Service and the Public Roads Administration. Included are new cooperative features applicable to the planning and construction of major roads and to planning for the maintenance of roads constructed by the Public Roads Administration. The regulations were approved by the Secretary of the Interior and the Federal Works Administrator pursuant to a requirement contained in the 1940 Federal Aid Highway Act.	-x
Public Health Service.—A new agreement has been made with the United States Public Health Service providing that its eight district sanitary engineers shall furnish advice and service on sanitation matters in the National Park System. The high plane upon which this cooperative work has been conducted was largely due to the pioneering by Sanitary Engineer Harry B. Hommon, who retired in 1943.
Fish and Wildlife Service.—An agreement was reached between the Fish and Wildlife Service and the National Park Service as to the detailing of biologists for wildlife investigations in national park areas. This cooperation is especially helpful at a time when park protective and research staffs have been cut to a bare minimum.
National Park Service • 229
Civilian Public Service Program.—Five Civilian Public Service Camps—conscientious objectors—again were allocated to the National Park Service and assigned to the Blue Ridge Parkway and Shenandoah, Great Smoky Mountains, Glacier, and Sequoia-Kings Canyon National Parks. These men were trained for and placed primarily on jobs involving forest protection, but also assisted in maintenance work, tree-disease control, and soil and moisture conservation in much the same manner as did the Civilian Conservation Corps on a much larger scale before the war. Their presence helped to meet the manpower shortage in the five areas concerned.
ADMINISTRATIVE ORGANIZATION
In general, the administrative organization remains unchanged as it concerned the responsibilities and activities of the Director’s Office, located in Chicago as a wartime measure since August 1942. Organization of the four regional offices was improved, despite drastic personnel cuts. The units of the National Park System, particularly the smaller areas, have been hard put to it to carry their administrative responsibilities because of the loss of experienced members of their staffs, but have met these responsibilities well. Kings Canyon National Park and the adjoining Sequoia National Park were placed under a single superintendent for reasons of economy and effective administration.
The Service suffered a serious loss in the death of George A. Moskey, Chief Counsel, in February 1944. Mr. Moskey contributed much to Service policy and procedure during the formative years of the bureau and in the period of emergency expansion. Of him it has been said: “He was an attorney who knew how to apply the science of democratic government.” The vacancy created by Mr. Moskey’s death was filled by the transfer of Jackson E. Price from the position of Assistant Solicitor of the Department of the Interior.
The position of Biologist was established in the Director’s Office and filled by the transfer back to the Service of Victor H. Cahalane, formerly Chief of the Wildlife Division, who, in a departmental reorganization in 1939, was transferred to the Fish and Wildlife Service. As chief of that agency’s section on National Park Wildlife he handled park wildlife problems until his retransfer to the National Park Service.
Following the trends of previous years, the number of permanent full-time positions in the Service was reduced from the 1,974 reported on June 30, 1943, to 1,573 on June 30, 1944, resulting in severe handicaps in the basic fields of administration, protection, and maintenance. The number of employees of the Service just before Pearl Harbor was 5,963.
230
Report of the Secretary of the Interior
Increased use was made of women as park rangers and fire lookouts during the summer months; and as more veterans return to civil life attention is being given to placing them in vacant positions. By such means and the use of older men, with some relaxation of physical and qualifications standards, it has been possible to maintain reasonably adequate staffs despite the critical manpower shortage. The Service gained by the return of several of its supervisory officials released by the Army. On June 30, 651 National Park Service employees were on furlough with the armed forces and 617 had transferred to civilian war agencies with reemployment rights.
The highly trained, competent, and vigorous personnel who have left the Service to enter the armed forces constitute one of its most important contributions to the prosecution of the war. The Service recognizes an obligation to perpetuate for them the integrity of the National Park System. This obligation is being met by those who have remained, and who have shown themselves constant to their tasks. Their loyalty and devotion deserve clear recognition.
INFORMATION TABLE
There follows a table showing the units of the National Park System, including several projects now being administered by the Service pending transfer of lands, the acreage of these areas, and the number of visitors:
National Park System, acreage, and number of visitors
Areas (classification)	Location (State)	Net acreage	Approximate visitors, fiscal year July 1, 1943-June 30, 1944	Approximate visitors, 5-year average, 1940-44	Visitors, peak year (1941 unless otherwise stated)
National Parks Acadia	 Big Bend		 Bryce Canyon	 Carlsbad Caverns	 Crater Lake	 Glacier	 Grand Canyon	 Grand Teton	 Great Smoky Mountains. Hawaii	 Hot Springs	 Isle Royale	 Kings Canyon	 Lassen Volcanic	 Mammoth Cave	 Mesa Verde	 Mount McKinley	 Mount Rainier	 Olympic	 Platt	 Rocky Mountain	 Sequoia	 Shenandoah	... Wind Cave			 Yellowstone	 Yosemite	 Zion				Maine	 Texas	 Utah	 New Mexico	 Oregon	 Montana	 Arizona	 Wyoming	 North Carolina-Tennessee. Hawaii..	 Arkansas	 Michigan	 California	 	do	 Kentucky	 Colorado	 Alaska	 Washington			 	do	 Oklahoma	 Colorado	 California..			 Virginia	.... South Dakota	.’... Wyoming, Montana, and Idaho. California	 Utah		27,870.99 691, 338.95 35,980.08 43,087.12 160, 213.54 997,400. 36 645,084.31 94, 852.84 460,881. 55 173,384.00 1,015. 27 133,838. 51 453,048.02 101,880.41 51,244. 51 51,149.12 1,939,199. 04 239,899.92 845, 759. 47 911.97 252,625.87 385,100.13 193,472.98 11,818. 34 2, 213,206.55 756,294.65 94, 201.06	9,966 (>) 8,014 104,476 30, 641 25, 542 63,350 10,854 462,125 424,272 223,392 5,026 51,151 19,991 46,031 4,584 (0 127,944 62,168 99,747 127,450 63, 599 66,165 3, 359 68,942 122,618 43, 710	210,248 (>) 65, 270 185,937 154, 721 106, 795 255,851 63,972 802,424 348,800 199, 288 2 4,433 126, 993 68,198 102,023 23,190 (>) 330,025 71,241 220,002 438,160 196, 354 574,692 12,405 325,910 370,329 116, 587	423,088 (') 124,098 284,024 273,564 210,072(1936) 431,816 153,353(1938) 1, 247,019 414,274(1943) 273,083(1936) 7,257 201,545(1940) 108,663 158,772 42,079 («) 456,637(1940) 92,968 358,240(1939) 685, 393 300,012 1,054,479 108,943(1929) 581, 761 594,062 190,016
See footnotes at end of table.

National Park Service • 231
National Park System, acreage, and number of visitors—Continued					
Areas (classification)	Location (State)	Net acreage	Approximate visitors, fiscal year July 1, 1943-June 30, 1944	Approximate visitors, 5-year average, 1940-44	Visitors, peak year (1941 unless otherwise stated)
National Historical Parks Abraham Lincoln	 Chalmette	 Colonial	 Morristown	 National Monuments Ackia Battleground	 Andrew Johnson	 Appomattox Courthouse-Arches	 Aztec Ruins	 Badlands	 Bandolier	 Big Hole Battlefield	 Black Canyon of the Gunnison. Cabrillo3	 Canyon de Chelly	 Capitol Reef	 Capulin Mountain	 Casa Grande	 Castillo de San Marcos... Castle Pinckney	 Cedar Breaks	 Chaco Canyon	 Channel Islands	 Chiricahua	 Colorado	 Craters of the Moon	 Death Valley	 Devil Postpile	 Devils Tower	 Dinosaur	 El Morro	 Father Millet Cross	 Fort Jefferson	 Fort Laramie	 Fort Matanzas	 Fort McHenry	 Fort Pulaski3	 Fossil Cycad	 George Washington Birthplace. Gila Cliff Dwellings	 Glacier Bay	r	 Grand Canyon	 Gran Quivira	 Great Sand Dunes	 Holy Cross	 Homestead National Monument of America. Hovenweep	 Jackson Hole 4	 Jewel Cave		 Joshua Tree	 KatmaL.		 Lava Beds	 Lehman Caves	 Meriwether Lewis.		 Montezuma Castle	 Mound City Group	 Muir Woods	 Natural Bridges	 Navajo	 Oemulgee	 Old Kasaan	 Oregon Caves	 Organ Pipe Cactus	 Perry’s Victory and In- ternational Peace Memorial. Petrified Forest	 Pinnacles	 Pipe Spring		Kentucky	 Louisiana	 Virginia	 New Jersey	 Mississippi	 Tennessee	 Virginia	 Utah	 New Mexico	 South Dakota	 New Mexico	 Montana	 Colorado	 California	 Arizona	 Utah	 New Mexico	 Arizona	 Florida	 South Carolina	 Utah	 New Mexico	 California	 Arizona	}	 Colorado	 Idaho	 California-N evada	 California	 Wyoming	 Utah-Colorado	 New Mexico	 New York	 Florida	 Wyoming	 Florida	 Maryland	 Georgia	 South Dakota	 Virginia			 New Mexico	 Alaska	 Arizona	 New Mexico	 Colorado	 	do			 Nebraska	 Utah-Colorado	 Wyoming. 		 South Dakota	 California	 Alaska	 California	 Nevada	 Tennessee	 Arizona	.	 Ohio	 California	 Utah	 Arizona	 Georgia	 Alaska	.... Oregon	 Arizona			 Ohio	 Arizona	 California	 Arizona		110. 50 29.52 7,057.78 1,051.56 49.15 17.08 973. 30 34,139. 70 25.88 122,812.46 25,971.89 200.00 12, 040. 55 .50 83,840. 00 33, 068. 74 680.37 472. 50 18. 51 3.50 6,066.60 18,039. 39 1,119. 98 10, 529.80 18,060.45 47, 540. 70 1,850, 565.20 798.46 1,193.91 183, 221.56 240.00 .01 86.82 214.41 18. 34 47.64 5,427. 39 320.00 395. 44 160.00 2.299, 520. 00 195, 231. 00 370.94 36,849.19 1, 392. 00 160.82 285.80 173, 064. 62 1,274. 56 653,123. 70 2, 697, 590. 00 45,727. 00 639. 31 300.00 520. 00 57.00 424. 56 2,740.00 360. 00 683.48 38.00 480. 00 328,161. 73 14. 25 84, 597.10 12,817. 77 40.00	12,440 56, 398 247,322 96,596 G) 14,094 5,500 744 4,949 9, 234 7,065 G) 3,141 G) 456 («) 10, 798 8,660 142,139 G) 4,479 2,995 G) 3,877 5,737 1,909 12,098 G) 5,412 1,477 421 G) G) 1,252 2,163 281,251 G) 9,193 G) G) G) 321 2,788 G) G) 41 G) 31 14, 487 G) 8,286 830 3, 567 3, 036 G) 105, 397 110 45 27,463 G) G) 65,492 14, 794 37,963 4,779 425	80, 241 38, 642 428,298 156,060 G) 2 4, 220 3 15,185 2,006 9,053 129,159 8, 921 2 1, 962 11, 247 2 88,810 1,596 2 970 25,199 14, 435 215, 552 G) 10, 553 2,117 G) 7, 979 22,018 12,006 59,734 2 4,443 21,433 6,006 1,086 G) G) 4,688 11,425 432,154 2 22,410 G) 31, 255 2 91 G) 2 64 1,745 6,678 2 24 2 280 178 G) 2 2, 509 2 16, 058 G) 24, 283 3,021 12,707 6,457 G) 123,136 483 303 41, 511 G) 2 28,601 27, 042 2 25,996 138,707 16,996 1,105	175,000(1934) 48, 216(1943) 663,971(1937) 221,779 G) 6,898(1943) 50,000 3,786 20,214(1938) 251,498 14, 619(1938) 4,000 19,307(1940) 234,465(1937) 2, 733(1940) 2,100 35, 550 37, 244(1929) 297, 620 G) 22, 500(1938) 8, 014(1937) G) 15,331(1934) 64, 715(1938) 21, 796 96, 529 10, 251 53, 389(1938) 10,928(1940) 5,794(1926) G) G) 10,102(1940) 21, 370(1939) 660,403 55, 536 100(1935) 65,154(1932) 330 G) 324 4,812(1930) 11,700(1939) 600(1935) 1,400 500(1937) G) 5,203 (1939) 27 .747(1942) 17(1924) 36,619(1940) 5,000 21, 281 19, 298(1930) 35, 260(1935) 179, 365(1939) 1, 044(1939) 965(1929) 63, 330 G) 57,704 50, 842(1943) 75,000(1938) 240,967 28, 036 24,883(1929
See footnotes at end of table.
232 • Report of the Secretary of the Interior
National Park System, acreage, and number of visitors—Continued
- Areas (classification)	Location (State)	Net acreage	Approximate visitors, fiscal year July 1, 1943-June 30,1944	Approximate visitors, 5-year average, 1940-44	Visitors, peak year (1941 unless otherwise stated)
National Monuments— Continued Pipestone	 Rainbow Bridge	 Saguaro	 Santa Rosa Island	 Scotts Bluff	 Shoshone Cavern	 Sitka	 Statue of Liberty	 Sunset Crater...	 Timpanogos Cave	 Tonto	 Tumacacori	 Tuzigoot	 Verendrye	 Walnut Canyon	 Wheeler	 White Sands	...	 Whitman	 Wupatki	 Yucca House		 Zion			 National Military Parks Chickamauga and Chattanooga. Fort Donelson	 Fredericksburg and Spot- sylvania County Battlefields Memorial. Gettysburg	 Guilford Courthouse	 Kings Mountain	•	 Moores Creek	 Petersburg	 Shiloh	 Stones River	 Vicksburg	 National Historic Sites Atlanta Campaign Markers. Federal Hall Memorial... Fort Raleigh	 Home of Franklin D. Roosevelt. Hopewell Village	 Jefferson National Expansion Memorial. Manassas National Battlefield Park. Old Philadelphia Customhouse. Salem Maritime	 Vanderbilt Mansion-	 National Battlefield Sites Antietam	 Brices Cross Roads.		 Cowpens	 Fort Necessity	 Kennesaw Mountain	 Tupelo	 White Plains	 National Memorials Camp Blount Tablets	 House Where Lincoln died. Kill Devil Hill	 Lee Mansion		Minnesota	 Utah	 Arizona	 Florida	 Nebraska	 Wyoming	 Alaska	 New York	 Arizona	 Utah	 Arizona	 	do	 	do__ 	 North Dakota	 Arizona	 Colorado	 New Mexico	 Washington	 Arizona		 Colorado	 Utah	 Georgia-Tennessee	 Tennessee	 Virginia	 Pennsylvania	 North Carolina	 South Carolina	 North Carolina	 Virginia	 Tennessee	 	do	 Mississippi	 Georgia	 New York	 North Carolina	 New York.'.	 Pennsylvania	 Missouri	 Virginia	 Pennsylvania	 Massachusetts	 New York	 Maryland	 Mississippi	 South Carolina	 Pennsylvania	 Georgia	 Mississippi	 New York	 Tennessee	 District of Columbia	 North Carolina	 Virginia		115. 08 160. 00 53, 669. 24 9, 500.00 2,292.15 212. 37 57.00 10.38 3, 040.00 250.00 1,120.00 10.00 42.67 253.04 1,635.32 300.00 137,885.91 45.93 34,693.03 9.47 33, 533.01 8,146. 33 102. 54 2,420.15 2,425. 25 148.83 4, 012. 29 30. 00 1, 328. 25 3, 716. 66 323.86 1, 323.56 20. 96 .49 16. 45 33. 23 6,197.00 82.58 1, 604. 57 .79 8.61 211. 65 183.32 1.00 1.00 2.00 60.00 1.00 .00 (9 .05 314. 40 .50	2,372 (9 4,653 451,246 29,665 (9 4, 484 345,299 2,392 18, 715 3,008 5,016 3, 271 (9 4,036 (9 34, 69 (9 438 26 (9 100, 755 7,078 37, 739 87, 312 11, 742 7,821 5, 610 87,336 48,883 10, 649 9, 031 (9 110, 255 9,104 (9 32, 246 32, 252 5,250 23,838 4,875 20,950 12,951 (9 (9 13, 350 15,177 (9 (9 (9 52,085 10,427 170,380	2 1.470 2 134 12, 034 2 273,182 65, 513 (9 6,500 375, 963 7, 934 11,867 5, 517 8,164 5, 461 2 3, 250 9, 222 2 285 54, 779 21,640 2,309 75 2 100 279,387 28, 206 91,133 382, 286 29,610 17,450 4, 389 185, 707 158, 092 5, 277 130,747 (9 2 63,139 2 19,881 (9 2 31, 557 2 12,027 2 6, 504 2 8,847 5, 453 2 11,282 20, 697 2 1,290 21, 250 52, 321 13,044 2 3, 660 (9 (9 36,638 41, 245 274,510	2 785 ’ 550(1936) 20,422(1938) 405,968 108, 536(1940) (9 9,195(1942) 446,364 12, 944 16,673(1943) 18* 472(1937) 9, 350 15,000(1928) 13, 526(1938) 511(1940) 110,805(1938) 8,204 4,153 400(1937) 500 481,381(1940) 41, 908 156, 038 1, 554, 234(1938) 53, 203 29,487(1939) 6, 218(1938) 263,169 346,069(1938) 6,542 317,120(1938) (9 126, 737(1942) 76,016 (9 85, 562 34, 914(1943) 11,494(1943) 15,489(1943) 7,258(1942) 17,669 88, 949(1937) 3,200(1940) 5,150(1942) 107, 533(1938) 18,430(1942) 7, 500(1940) (9 (9 91,724(1937) 84,194 729, 652(1937)
See footnotes at end of table.
National Park Service
233
National Park System, acreage, and number of visitors—Continued
Areas (classification)	Location (State)	Net acreage	Approximate visitors, fiscal year July 1, 1943-June 30, 1944	Approximate visitors, 5-year average, 1940-44	Visitors, peak year (1941 unless otherwise stated)
NationalMemorials—Con. Lincoln Memorial	 Lincoln Museum	 Mount Rushmore	 New Echota Marker	 Thomas Jefferson Memorial. Washington Monument. _ National Cemeteries Antietam	 Battleground	 Chattanooga	 Custer Battlefield	 Fort Donelson 1 2 3 4 5	 Fredericksburg 3	 Gettysburg 3	 Poplar Grove 3	 Shiloh 3	 Stones River 3	„	 Vicksburg 3	 Yorktown 3	 National Capital Parks 6 * The park system of the District of Columbia. Parkways Blue Ridge	 George Washington Memorial. Natchez Trace	 Total National Park System. National Pecreational Area Boulder Dam	 Projects Saratoga National Historical Park.8 9 Kennesaw Mountain National Battlefield Park. Richmond National Battlefield Park. National Historic Sites in Non-Federal Ownership Gloria Dei (Old Swedes’ Church). Independence Hall	 Jamestown Island	 McLoughlin Home	 Saint Paul’s Church	 San Jose Mission	 Grand total		District of Columbia	 	do	 South Dakota	 Georgia	 District of Columbia	 	do	 Maryland	 District of Columbia	 Tennessee	 Montana			 Tennessee	 Virginia	 Pennsylvania	 Virginia	 Tennessee	 	do	 Mississippi	 Virginia	 Virginia - North Carolina. Virginia-District of Columbia. Mississippi, Alabama, and Tennessee. Arizona-Nevada	 New York	 Georgia	 Virginia	 Pennsylvania	 	do	 Virginia	 Oregon	 New York	 Texas		(9 .18 1, 710.00 1.00 (9 0) 11.36 1.03 136.15 757. 84 15. 34 12.00 15.55 9.02 10.25 20. 09 119. 76 2.91 2 27, 790. 36 38, 910.00 2,458. 68 13, 648. 87 20,455, 014. 29 1, 680,133. 33 1,864. 60 3,034.21 .00 1. 53 4.55 22.00 .63 6. 09 4. 13 22,140,085. 36	613,887 85, 783 30, 355 (9 408, 323 514,474 (9 2,700 (9 15, 312 (9 (9 (9. (9 (9 (9 (9 (9 (9 194,107 (0 (9 7, 218,122 236,101 5,962 (9 (9 (9 (9 (9 (9 (9 (9 ’7,460,185	1,130,043 62,123 2118,997 2 3, 027 2 154,251 752,071 (9 3,400 (9 2 23,684 (9 (9 (9 (9 (9 (9 (9 (9 (9 2 315,141 (9 (9 13, 056,451 526, 219 2 18,866 (9 (9 (9 (9 (9 (9 (9 (9 13, 601,536	1, 796, 752 132, 787(1937) 400, 000 6,090(1940) 463, 555 (1943) 998,686(1937) (9 5,000 (9 65,132 (9 (9 (9 (9 (9 (9 (9 (9 (9 965, 507 (9 (9 838, 246 72, 591 (9 (9 (9 (9 (9 (9 (9 (9
1 Travel figures not available or maintained.
2 Travel figures available for less than five years.
3 Closed to visitors.
4 Established by Presidential Proclamation, March 15,1943.
6 Included in travel figures for adjacent battlefield site, military park, or historical park.
• Travel included under “Memorials.”
’ Includes Chopawamsic area, Virginia, and C. & O. Canal, Maryland.
’ Administered by Service pending final establishment.
9 Includes 2,149,398 military visitors.

Office of Indian Affairs
John Collier, Commissioner
THE truly epic story of Indian heroism on all the battle fronts of the planet, unstintingly backed by the toil of Indian men, women, and children on farm and range and in the war industries, has broadened and deepened during' the past year.
On the first of April, 21,756 Indians, exclusive of officers, had joined the fighting forces, of which number 19,284 were in the Army, 1,555 in the Navy, 574 in the Marine Corps, 127 in the Coast Guard, and 216 in the Wacs and Waves.
NUMEROUS DECORATIONS
Throughout the Pacific area, in China, North Africa, Sicily, Italy, and Normandy, Indians have served with conspicuous gallantry, winning all decorations, in addition to numerous citations and commendations. By the end of June, 16 had received the Distinguished Flying Cross; 29, the Air Medal; 20, the Silver Star; 4, the Distinguished Service Cross; 1, the Soldier’s Medal; 1, the Distinguished Service Medal; 1, the Navy Cross; 1, the Medal of Honor; and 1, the Croix de Guerre. Seventy-five had been awarded the Purple Heart. Some had received more than 1 decoration, and numerous Oak Leaf Clusters had been distributed in lieu of further awards of a given medal or in recognition of flying missions achieved. Several had received from 6 to 14 Clusters each.
THE CONGRESSIONAL MEDAL OF HONOR
Until April last, no Indian had received the Congressional Medal of Honor. Now, thanks to Second Lieutenant Childers, a three-quarters Creek of Broken Arrow, Okla., this honor also may be claimed by the first Americans. Lieutenant Childers, who had won his commission on the battlefield during the invasion of Sicily, was awarded the nation’s highest military honor as the result of an all but incredible
235
236 • Report of the Secretary of the Interior exploit performed near Oliveto, Italy, in September 1943. Hobbling with a broken instep, he advanced alone against three German machine-gun nests, rubbed them out, and opened the way for the advance of his battalion which had been in danger of annihilation. Only 14 Medals of Honor have been awarded thus far in the war, 3 in the Mediterranean theater.
A GLOBE-EMBRACING STORY
Decorations serve only to highlight the globe-embracing story of the Indian fighting man’s gallantry and efficiency, as indicated by reports from all fronts. A group of 13 Indians from nearly as many tribes was in the first wave of paratroopers dropped with demolition equipment upon German defenses in France at the beginning of the 1 Normandy drive. Harlyn Viclovich, “The Sky Chief,” a Shoshone-Paiute of Sacaton, Ariz., won fame as one of General Chennault’s “Flying Tigers,” was commended by General Chiang-Kai-shek, and was promoted to the grade of captain shortly before his death in China last January. A noted Cherokee woodcarver, Going Back Chiltoskey, was employed by the Engineer Board in making scale models of terrain and buildings for the plans of the African invasion. It was an Omaha Indian boy, Pvt. Robert Stabler, who, in July last year, landed alone under heavy fire in advance of the assault waves at Licata, Sicily, to mark the beaches for the infantry craft—an exploit for which he received the commendation of his general. He had volunteered for service at the age of 20, and he wore no medal when he died of wounds in Italy last January.
The story of Indian heroism cannot be told in terms of medals and commendations. It is woven closely into the untold all-American tale of high heroism everywhere, regardless of race and color and creed.
FAITH AND WORKS
The profound seriousness with which Indians generally are devoting their energies to the prosecution of the war has been conspicuously evidenced by the religious observances of the homefolk. Indians in the old days, interwove religion into everyday living to an extent unknown in white society; and out of the deeps of racial memory, sacred ceremonies have been revived by many tribes as an expression of their dedication to a great common cause and their dependence upon divine aid for its achievement. In various instances, Christian Indians have joined their prayers with the ancient supplications of their people, in the true American spirit of religious liberty. These i expressions of profound faith and dedication, notably increased during I the past year, have accompanied heroic works at home, as well as abroad,-even as in the old days.
Office of Indian Affairs • 237
THE GREATEST EXODUS OF INDIANS
The war lias brought about the greatest exodus of Indians from reservations that has ever taken place. Out of a total of approximately 65,000 able-bodied men from 18 to 50 years of age, 30 percent have joined the armed forces and about 25 percent are engaged in war industries and other essential war services. In addition, more than 10,000 men, women, and children have left the reservations for varying periods to work on farms and ranches. Thus, at least half of the able-bodied men and about one-fifth of other employable persons have been drained from the reservations. Reports show that there were 8,683 fewer Indian families residing at home in 1943 than in 1941.
WOMEN, CHILDREN, AND OLD MEN CARRY ON
Notwithstanding this great loss of manpower at home, the total production of agricultural commodities by Indians on all reservations was greater in 1943 than in 1942. Approximately 1,000 more families engaged in farming and stockraising. Although a greater acreage of land was planted to all crops, less grain and feed were sold, owing to the increased feed requirements of the great number of livestock on hand. At the end of 1943, Indians on all reservations owned a total of 1,531,000 head of livestock—90,000 more than at the end of the previous year, and, incidentally, double the number owned by them in 1933. The total receipts from livestock sales in 1943 amounted to $10,533,079, which was $667,000 greater than in 1942, and five times more than in 1933. The total value of all sales of Indian agricultural products was $19,077,333, compared with $17,457,241 in 1942; and the total value of all food produced and used in the home was $8,364,792, compared with $7,985,584 in the preceding year.
This remarkable achievement may be credited largely to the eagerness and ability of Indian women, children, and older men to carry on while the young men are away. The bond between the Indian and his homeland is very strong, and most Indians in the far-flung battle areas write home, giving instructions for the management of livestock and farming operations, and dwelling on the plans they have in mind for the post-war years.
REMARKABLE ACHIEVEMENT OF SCHOOL CHILDREN
The same enthusiastic response to the needs of the time was to be noted in the schools of the Indian Service, whose production of fruits, vegetables, meat, milk, and eggs was almost 50 percent greater in 1943 than in the previous year, although many high school students were serving in the armed forces or in war industries. Nearly 3 million pounds of fruits and vegetables were stored and used. A large number of the schools were on a self-sustaining basis, so far as agricultural 617248—45-----18
238 • Report of the Secretary of the Interior produce was concerned, and large quantities of vegetables, meat, milk, and eggs were marketed for the general need. Fifty-eight thousand gallons of fruit and vegetables were canned.
Dehydrators, on the model developed at the Phoenix Indian School, in collaboration with the United States Department of Agriculture, were erected at half a dozen other schools in the Indian Service. As a result, more than ten tons of fruits and vegetables were dehydrated in the schools of the Indian Service, from which supply the boarding schools and hospitals in Alaska were furnished most of their vegetables for the year at a great saving in freight cost. In addition to the foregoing, the Indian schools produced more than 9,000 tons of hay, nearly 3,000 tons of grain, and more than 5,000 tons of silage.
A great share of the labor involved in producing such quantities of foodstuff was furnished by the Indian boys and girls themselves, and many employees of the Indian Service sacrificed their vacation time that they might help in the fields.
INVESTING IN DEMOCRACY
The Indian people’s faith in their country and their devotion to the cause of Democracy have been further attested by their war bond purchases.
It is estimated that bond sales to Indians had reached a grand total of $50,000,000 on June 30. During the fiscal year 1944, group investments amounted to $2,517,000, and sales to restricted Indians totaled $1,525,664. In addition, during the year the Office of Indian Affairs had received for safekeeping bonds purchased by individuals with their unrestricted funds in the amount of $92,438. The latter item represents only a portion of such purchases.
On many reservations war bond auction sales and bond pow-wows have been patronized with remarkable enthusiasm. In January, the Lower Brule Sioux sponsored an auction at Reliance, S. Dak., in which donations, ranging from a sack of peanuts to poultry and horses, garments and fancy quilts, were disposed of to the highest bidder in bonds. Sales totaled $22,000, half of which was realized through the donations of the Indians. A Sioux boy sacrificed his pet colt, which brought $925 in securities. An old longhair wept when told that he could not donate 320 acres of land to the cause.
The Phoenix Indian School was awarded the Treasury Department’s certificate of merit for its success in organizing a bond pow-wow that resulted in sales amounting to $58,177. In the Fourth War Loan Drive, the Papago Reservation exceeded its quota by almost 600 percent, although the State of Arizona as a whole fell behind. In Alaska, many isolated villages have sacrificed the white man’s food and clothing in order to buy bonds.
Office of Indian Affairs • 239
Although the amount donated by Indians to the Red Cross and to the National War Fund cannot be stated with accuracy, it is known to be very large and in proportion to the general whole-hearted response of Indians to the needs of the time.
LAND ACQUISITION
Although no additional public funds for land purchases were appropriated for the fiscal years 1944 and 1945, funds appropriated in past years permitted purchases involving 17,337.29 acres at a cost of $105,860.70. Also, 631,887.51 acres were restored to tribal ownership on the Wind River Reservation in Wyoming, under authority of the act of July 27,1939.
The desire of the Indians to increase their land holdings is evidenced by the fact that tribal funds amounting to $183,450.68 were used during the past year in purchasing 37,720.18 acres on 12 reservations. Many tribes possessing funds have demonstrated their determination to invest a substantial portion of their money in this way. In addition to the above, 2,680 acres were withdrawn from the public domain for reservation purposes and for the benefit of certain individual Indians.
* NEW RESERVATIONS IN ALASKA
The large influx of population into Alaska as a result of war activities, and the growing encroachment of the whites upon the land and resources of the Indians and Eskimos have served to emphasize the most serious problem confronting the natives—the protection of their ancestral hunting, trapping, and fishing bases. Recognizing the fundamental importance of the problem, the Office of Indian Affairs, early in the year, detailed a special representative to the Territory to supervise the work of establishing reservations.
Under authority of the act of May 1, 1936, six reservations .were formally established in Alaska during the fiscal year 1944, as follows: Akutan, in the Aleutian Islands, area 72,000 acres; Karluk on Kodiak Island, 32,000 acres; Venetie, on the Upper Yukon, 1,408,000 acres; Shishmaref, 3,000 acres, and Wales 21,000 acres, both on Seward Peninsula.
Proposals for the creation of 16 additional reserves totaling 3,729,-420 acres, have been received and are now under consideration. Two of the proposed reservations are located on the upper, and 1 on the lower, Tanana River; 2 are in southeastern, and 5 in central Alaska; 5 are along the Arctic coast; and 1 on the Noatak River.
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LAND CONSOLIDATION
The absurd fragmentation of Indian estates under the allotment and inheritance system, resulting in great economic loss to the Indians and much unproductive administrative expense to the Government, has received further attention by the Sioux of South Dakota during the past year. The organization of the Tribal Land Enterprise by the Rosebud Sioux marks an encouraging advance toward the solution of this serious and complicated problem. The new organization’s bylaws were approved by the Secretary of. the Interior in December last, and its first “certificate of interest” was issued in January.
The purpose of the new enterprise, in keeping with the general Sioux land consolidation program, is to acquire individually owned allotments and fractional inherited interests in exchange for use rights in compact tribally owned areas thus established; also to purchase scattered interests and key tracts with tribal funds. Indians are coming to realize that only by such a method can the progressive, and otherwise ultimately ruinous, evil of fractional land ownership be ended. Already the Rosebud Tribal Land Enterprise has approximately 30,000 acres under its management, and there is a growing interest in the plan. The South Dakota projects are being watched by Indians elsewhere, and this movement to establish land ownership on a sound basis may well spread to many other allotted reservations of the western States.
LAND CONSERVATION
In the long view, the control of erosion on the home front must be regarded as secondary only to the successful conclusion of the war. Now that soil is being used more intensively than ever before, its •fertility is being taxed to the limit. Accelerated erosion is destroying millions of acres of Indian land, in common with other lands throughout the nation.
The Indian Service has given increasing attention to aiding Indians in following conservation practices which will yield maximum production with a minimum of soil losses. During the war, with curtailed appropriations, such practices can be applied only in emergencies, to critical areas and to those which will most readily respond to treatment under the load of maximum production.
It has been fully demonstrated that the practice of scientific conservation on farm lands will increase yields by 20 percent, and in many instances by as much as 100 percent. The possibility of such increase has been demonstrated on the Florine Little Bear farm of 80 acres in Oklahoma. On this land the corn yield was increased from 100 to 360 bushels, hay from 20.5 to 38 tons, cotton from two to four bales, pasture carrying capacity from 48 to 63 animal-months.
Office of Indian Affairs • 241 THE RUINOUS COST OF SILTATION
The Salt River watershed in Arizona serves to reveal the values involved in the erosion and siltation problem of the West. At the present rate of siltation, the reservoirs of the Salt River Valley System will be completely silted full in 175 years. With this life expectancy it can be shown that the total annual loss resulting from reservoir sedimentation in this area is approximately a million dollars, or $150 for each square mile of watershed.
The losses from siltation to downstream development in this area are greater each year than returns from the range and forest lands of the watershed. To these losses may be added large yearly damages from flood water. An amount equal to the losses to downstream developments, if applied for a 10-year period to the watershed, will reduce erosion and siltation to the minimum. Conclusive evidence on Navajo demonstration areas show that this can be done, with increasing returns to watershed users at the same time.
The Indian lands in the South and Southwest, comprising approximately one-half of all Indian lands, will require 111,400 man-years of unskilled labor, 31,650 man-years of skilled labor, 8,040 man-years of technical assistance, and 21,000 tractor-yeafs to build the dams, terrace the fields, reseed the ranges, improve pastures, reconstitute cropping and cultural practices, stabilize stream banks, spread water, and do the other things necessary to preserve the soil and productivity of the upland farms and ranches, and to protect the downstream irrigation and public utility developments.
ACCOMPLISHMENTS IN 1944
The outstanding response of Indians to a program of conservation is attested by the fact that they spent in the past year for this purpose $421,206 in terms of cash and contributed labor to supplement $437,839 of Indian Office funds. The demand for assistance in preparing and carrying out conservation plans has been greater than the office could supply. Plans were requested on 544 land unit areas comprising 920,899 acres. Assistance in planning and establishing conservation practices was rendered on 330 units embracing 813,265 acres of Indian farm and range land, and erosion was checked in varying degrees on 536 farm units, comprising 206,266 acres.
Improved cropping practices were inaugurated on 53,047 acres, and drainage of 5,539 acres required 13 miles of ditching. Permanent farm pastures, totaling 10,000 acres, were established or improved. Worn out and badly gullied land, totaling 31,649 acres, was seeded to provide better soil cover and increased financial returns.
On the range land, improved management was instituted on 2,958,-W5 acres. The various activities undertaken to accomplish this in-
242 • Report of the Secretary of the Interior eluded the seeding of 17,518 acres, the contouring of 3,203 acres, the digging of 4,080 feet of drain canals, water spreading on 10,950 acres, the building of stock water tanks, and the development of wells and springs. Utilization checks, to learn the amount of forage being consumed and to determine the safe use of range, were made on 8,802,-500 acres.
IRRIGATED LANDS AND POWER PROJECTS
Irrigation construction on Indian reservations was reduced to a minimum during the year in order to conserve materials for vital war projects, and only facilities for irrigating garden tracts were installed, noncritical materials being used. On lands already under irrigation, 37 internal distribution systems, comprising 10,000 acres, were revised to prevent waste and effect a more nearly uniform use of water.
During the year the irrigation projects of the Indian Service supplied water to 570,000 acres of farm lands on Indian reservations west of the Mississippi River. These lands, used by Indian and non-Indian farmers, have been devoted to increased production in keeping with the policy of the War Food Administration to emphasize maximum production in the area adjacent to shipping lanes for the Pacific war theater. Thus cross-country shipping facilities were conserved for other vital war materials. It is estimated that the combined farm crops raised on Indian irrigation projects during 1943 were sufficient to feed 10 Army divisions for a year. Forage crops were harvested for 300,000 head of beef cattle and 50,000 dairy cows.
Power systems, operated by the Indian Service along with irrigation projects, furnished 60 million kilowatt-hours of energy, directly and by inter-connection, to copper and molybdenum mines, manufacturing plants, city utilities, and other industrial and commercial consumers in the rural West. The San Carlos and Colorado River projects furnished irrigation water and power to relocation centers settled by 20,000 people of Japanese ancestry removed from the west coast and strategic defense areas. Power was furnished also to an army camp near Florence, Ariz., where prisoners of war are interned.
During the year, plans were developed for an impressive list of proposed irrigation projects on Indian reservations, to contribute to increased food production, to create post-war employment, and to make farms available for Indians returning from the armed services and industrial areas. On the San Carlos project, studies were made to prepare for post-war changes in commercial power loads.
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MINERALS FOR WAR AND THE FUTURE
Will the petroleum and other mineral reserves on Indian lands be so depleted when peace comes as to render them insignificant in the post-war period? Not if the present exploratory activities, growing out of the Nation’s war needs, meet with even a fair degree of success.
Already wartime discoveries of oil have been made on the Wind River Reservation in Wyoming, and on the Otoe and Pawnee lands of Oklahoma. Prospecting permits have been issued, with approval of tribal authorities, covering several hundred thousand acres in the Rocky Mountain region; and wildcat leasing blocks have been assembled on Indian lands in Montana, western Oklahoma, Mississippi, Wyoming, South Dakota, and New Mexico. Over a thousand oil and gas leases covering Indian lands have been approved during the past fiscal year.
QUAPAW RESERVATION MINES
Most gloomy of the predictions relating to post-war production of minerals from Indian lands have been concerned with the once-rich lead and zinc mines on the Quapaw reservation in the Tri-State mining district. But in spite of depletion of the richer ores, production from Indian lands within that district has borne up well. In the period from July 1, 1941, to June 30, 1943, the mines and tailing mills on restricted Indian lands of the Quapaw reservation sold 304,577 tons of lead and zinc, and the royalty received by restricted landowners from these sales amounted to nearly 2 million dollars. At the close of the fiscal year it was estimated that production for 1944 would, equal that of the previous year.
Indian owners, the mining industry, the Geological Survey, and the Indian Service, are cooperating in arrangements to permit economical, unitized operations for the mining of lower grade ores and isolated high-cost ores. These arrangements and the industry’s efforts to perfect improved methods for re-treating the ores and tailing piles may prove sufficient to prolong the productivity of the Quapaw mineral lands. Elsewhere in Oklahoma, prospecting permits, covering several thousand acres of Indian lands, have been approved in support of efforts to locate additional reserves of lead and zinc ores. In view of these activities, it seems probable that production of minerals from Indian lands will not decline in volume or importance during the war and for some time into the post-war period.
At present, leased Indian properties are producing minerals having an annual value in excess of 39 million dollars, yielding an annual income of nearly 6 million dollars in royalties to the Indian owners.
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This estimate includes the total output of petroleum and its products, lead, zinc, copper, vanadium, helium, coal, tungsten, asbestos, manganese, gypsum, limestone, and marble.
COAL AND ASPHALT LANDS
The Choctaw and Chickasaw Nations once possessed lands encompassing many hundreds of square miles in the Southern States. Their last remaining communally held property, other than a few scattered tracts, consists of some 370,000 acres of coal deposits and about 3,000 acres of asphalt deposits that were segregated and reserved from allotment under the Atoka Agreement of 1898 and the supplemental agreement of 1902. A provision in the Interior Department Appropriation Act, approved June 28, 1944, paves the way for disposal of this last remaining property to the United States. The provision authorizes and directs the Secretary of the Interior to enter into a contract on behalf of the United States for the purchase of the lands and deposits. The contract is not to become effective unless ratified by the Indians in a referendum election, and then finally ratified by the Congress. The Principal Chief of the Choctaw Nation and the Governor of the Chickasaw Nation have indicated their desire to enter into the negotiations contemplated by the legislation, and plans for the negotiations are now receiving consideration.
INDIAN FORESTS
Based on a conservative estimate, there are approximately 35 billion feet of timber on about 16,700,000 acres of Indian lands in 19 states, 17 of which are located west of the Mississippi River. Of this volume approximately 80 percent is considered suitable for the production of lumber.
There have been active logging operations on many Indian reservations during the past year. The volume of timber cut for the production of lumber and other forest products was 502,867,000 feet. Since a very high percentage of the timber cut under contract went directly into military activities, the Indians and the Indian Service made every reasonable effort to furnish timber for cutting, consistent with sustained-yield management and available personnel. It is anticipated that the forests on Indian lands will continue to provide their full share of timber needed by the Nation during the war and postwar periods.
LUMBER ENTERPRISES OF INDIANS
During the past year the four Indian sawmill enterprises were operated with a reasonable degree of success. The volume of logs cut by each of these enterprises is as follows: Menominee Indian Mills, Nec-
Office of Indian Affairs • 245
pit, Wis., 18,337,000 feet; Red Lake Indian Mills, Redby, Minn., 5,360,000 feet; Navajo Indian Mills, Window Rock, Ariz., 7,718,000 feet; Fort Apache Sawmill, Whiteriver, Ariz., 1,008,000 feet. Limited available labor and equipment curtailed production to some extent. In addition to these sawmill enterprises, the Indians have carried on logging operations, on their respective reservations.
FOREST DISEASE AND FIRE PROTECTION
The white pine blister rust continues to be a problem on Indian lands in the Lake States area. During the past year control work was done on 7,580 acres, in cooperation with the Bureau of Entomology and Plant Quarantine, Department of Agriculture. Indian women did much of the work.
The pine bark beetle caused some loss of ponderosa pine timber on Indian lands in the Western States last year. No control work was done because of the war. It is planned, however, as a post-war project, to do as much control work as conditions may warrant.
Fire protection on Indian forest and range lands continues to be a serious problem on account of limited funds and personnel. During the year, 976 fires burned over 166,058 acres of these lands, but none was excessively destructive, owing to favprable weather conditions. The average cost for fire presuppression was one-half cent an acre for the 36,425,700 acres under protection.
GRAZING
Approximately 38,956,000 acres of Indian forest and range lands were used last calendar year for grazing approximately 355,770 cattle, 79,140 horses, and 1,299,720 sheep and goats. Of this total area, about 30,365,000 acres are being used by Indians to graze their livestock, and the remainder is being used by non-Indian stockmen under approved grazing permits.
Estimates of the grazing capacity of the Indian range lands have been made, and on most reservations the stocking has been limited in keeping with such estimates. Some districts of the Navajo, Hopi, Papago, and a few of the smaller reservations in the Southwest, continue to present a difficult problem with regard to overstocking. In all instances the problem is complicated by the fact that the Indians concerned depend largely upon a livestock economy, and do not own sufficient range lands on which to graze the number of livestock needed to maintain themselves on a reasonable economic level. Efforts are being made to correct this situation, and some progress was achieved during the past year.
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FISH AND WILDLIFE MANAGEMENT
The management of fish and wildlife resources on Indian lands was given considerable attention. The Fish and Wildlife Service has conducted special investigations on several reservations and has assisted in encouraging the Indians to adopt ordinances for the regulation of hunting, fishing, and trapping. The fish hatchery on the Fort Apache Reservation, Ariz., was successfully operated, and supplied fish for planting streams in that area. Fish from other sources were planted in waters on other Indian reservations.
ROAD BUILDING AND MAINTENANCE
Modern society cannot exist without adequate transportation. The roads constructed on Indian reservations during the last decade have contributed greatly to the ability of the Indians to expand their food production for war use. During the present emergency period, ordinary road activities are restricted to maintenance. The fact that construction organizations were equipped and available at the various reservations made it possible for the Indian Service to undertake the building of access roads to sources of raw materials, a program involving a cost of approximately 1 million dollars. This work is continuing. These access troads will be useful in the marketing of mineral and forest materials after the war.
Plans are being formulated for post-war construction to continue the development of reservation road systems, but a lack of funds has thus far prevented the making of field surveys and the preparations of blue prints and specifications. This is an essential step in meeting post-war responsibilities.
EDUCATION CONTRIBUTES TO WAR NEEDS
The mobilization of Ifidian resources, energy, and skills for the needs of the world conflict, has carried over into the educational realm with gratifying results. The effectiveness of the training offered in the Indian vocational schools, throughout the decade just ended, has been demonstrated by the rapid advancement of vocational school graduates to noncommissioned and technical grades in the armed forces, and by the large number of young men and women who have been employed in war work demanding high manual skill.
The great exodus of Indian families has reduced the number of students in both the elementary day schools and high schools by 2,200 from a total of 29,621 in the previous year. Although the total enrollment in Indian Service high schools has been reduced about 20 percent, as a result of the drafting and employment of older students, specialized training of a wide variety, which contributes to the success of the war, is being continued. Many high schools have given
Office of Indian Affairs • 247
courses in welding and metal work, suitable to the needs of the aircraft and shipbuilding industries.
The Navajo vocational schools have operated pre induction classes for illiterate and semiliterate Navajos, of whom there are a great many. Haskell Institute has offered special training for mature men in plant maintenance and engineering to replace younger employees of Indian schools, agencies, and hospitals, who have joined the armed forces. The commercial department at Haskell has found so great a demand for trained office workers in other branches of the Government that most of its students are now finding placement outside the Indian Service. Other schools have given special training for nursing and other especially needed skills.
Schools of the Indian Service are now planning the part they expect to play in the continued education and retraining of returning veterans under the provisions of the Servicemen’s Readjustment Act; and Indian communities throughout the country have requested that we be equipped to undertake such training.
It is noteworthy that a considerable number of Indian students, granted Government loans for higher education, have continued or increased the payments on these loans since entering the armed forces, despite the legal moratorium they enjoy. The number of loan students, however, has been reduced from a previous maximum of 600 per year to 155.
INCREASING INTEREST IN EDUCATION
Increasing interest in education upon the part of Indians themselves has been evidenced by the fact that a number of tribal councils have passed compulsory education ordinances, and enforced such ordinances previously enacted but neglected.
The Navajo Tribal Council has called upon the Indian Service to provide additional schools, asserting that the Government is not carrying out its treaty agreement to supply a classroom and a teacher for each 30 Navajo children presented for enrollment. Also the Council has asked that a high priority be given in post-war planning to the additional boarding and day schools needed for 10,000 Navajo children not now enrolled in any school.
Indian communities have been encouraged to take an increasingly active part in planning for their school children and in outlining a program of post-war development for serving different age groups. The discussions which occurred during the year revealed an almost unanimous enthusiasm for the Federal school program in the closed reservations, to which it is now largely limited.
Research in Indian education has been supplemented by initiating a study of achievement in elementary and high schools, and it is hoped
248 • Report of the Secretary of the Interior
that an initial report on the effectiveness of Indian schools in achieving their objectives may be presented within the coming year.
The annual Indian Service summer school, primarily for the inservice training of employees of the Education Division, has for the last 2 years been oriented towards war and post-war problems, encouraging a consideration of revised vocational curricula in the light of post-war needs. New teachers have found the summer school most effective as an introduction to the program of Indian education.
EXTENSION WORK
The diminution of Extension funds resulted during the year in the withdrawal of Extension positions on several reservations, such as Eastern Cherokee and Mississippi Choctaw. In such areas the day school teachers and vocational instructors attached to the schools undertook to carry on a program of advice and guidance in agriculture, stockraising, and home extension with the adult Indians. At the day schools on these and other reservations, the Education Division has assigned purebred sires to assist in improving the beef cattle, horses, and other livestock of the reservations. Several years ago, a decision to undertake the up-grading of dual purpose beef and dairy cattle at Eastern Cherokee led to the purchase for the day schools of registered brown Swiss bulls, whose offsprings are now affording better milk and more meat. At the day schools of the Pine Ridge and other Dakota reservations, purebred Morgan stallions are improving Indian cattle horses.
All Home Extension work on reservations with Federal schools is being handled by the day school teachers and housekeepers under the direction of the home economics teachers of the central vocational schools. Home economics equipment is made available for use by adults, and instruction is offered them in sewing, also in cooking by way of increasing their concern over the use of an adequate variety of nutritious foods within the home.
INDIAN ARTS AND CRAFTS
During the past year Indian craft centers have enjoyed a greater demand for craft products than at any previous time. While a great many of the younger craft workers have been away from the reservations, the earnest efforts of craft teachers and the sponsorship of cooperative producing and distributing centers have led, in many cases, to an actual increase in crafts produced and sold. For example, the Northern Plains Indians Crafts Association, which is the outlet for producer cooperatives among the Indian craft workers of the Montana and Wyoming reservations, increased its business from $6,906.87 in the calendar year 1942, to $11,135.30 in 1943.
Office of Indian Affairs • 249
During the same period of time, the sales of Alaskan native crafts increased from $242,100.67 to $420,201.18. The latter increase, however, was more a matter of higher prices than of quantity sold, owing to the patronage of American troops stationed in the Territory.
The foundation has been laid for a considerable expansion of craft production in all the major Indian areas after the war. Recently, the Indian Arts and Crafts Board has copyrighted trade-marks for the Navajo Crafts Guild, the Seminole Crafts, and Northern Plains Indians Crafts Association. Copyrights of trade-marks for other producing and marketing groups are pending.
INDIANS ORGANIZE FOR HEALTH
One of the more encouraging developments of the year has been the increasing participation of Indian communities in the health activities of the Indian Service. Health councils were organized by the Indians on a number of reservations, and these are now functioning with marked enthusiasm for the task confronting them. In one instance a salaried board of health, the membership of which is entirely Indian, has been established. Such councils, in collaboration with health personnel and the superintendent of the agency, formulate modern health programs, recommend health legislation to their communities, and assist in presenting approved health policies and practices to their people in such a way as to stimulate interest and win acceptance.
Numerous ordinances, providing for the control of communicable diseases, have been passed by the health councils and approved by the tribes. This democratic approach to Indian health problems is highly significant, and there are indications that the movement will spread to other reservations during the coming year.
SHORTAGE OF HEALTH PERSONNEL
The growing determination of Indians to do something about their own health problems is especially desirable in view of the critical shortage of health personnel. On January 1 of this year, there were 73 vacancies for full-time physicians, 27 for part-time physicians, and 188 for nurses. Some of these vacancies are filled by local temporary employment, so that, in most instances, the essential emergency services are still available.
Cadet Nurses are being assigned to Indian hospitals, with benefit to all concerned; and the facilities thus given to their training is a direct contribution to the war program. Arrangements have been completed for the affiliation of the new Tacoma Hospital with the School of Nursing at the University of Washington.
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Indian technicians and orderlies are being trained by Indian Service physicians and nurses to take the places of those now serving in the armed forces and to relieve medical personnel for more important duties.
HEALTH SERVICES OF THE YEAR
Exact tabulation of health service statistics for the fiscal year has not been completed, but the trend has not varied greatly from that of the preceding year. At that time the 94 hospitals operated by the Indian Service in the States and Alaska had 3,255 beds available for general cases and 1,214 for tuberculosis; 40,184 patients were admitted to the general hospitals for a total of 968,993 hospital days, and in addition, there were 4,739 tuberculosis patients given 393,859 days care.
Considerable hospital care has been furnished to families of soldiers and sailors, in cooperation with the Maternal and Child Care Program of the Children’s Bureau. The intensive campaign to control and eradicate trachoma has continued, and during the year 2,232 cases were reported by the hospitals. The Bacillus Calmette Guerin or B. C. G. vaccination research project for the control of tuberculosis was carried on under extreme difficulties; but progress continued, and several reservations have reported 100 percent of known cases hospitalized.
Health conditions in Alaska, emphasized by the presence of war workers and the military, have been of great concern. At the close of the fiscal year, the Congress approved the transfer of a 150-bed hospital at Skagway from the Army to the Indian Service. If the necessary personnel can be obtained, the operation of this facility will contribute in large measure to the control of tuberculosis among a highly susceptible people.
The most notable innovation by the Indian health service during the year was the beginning of a complete analysis of vital statistics to determine accurately the Indian population served, birth and death rates, age distribution, causes of death and of morbidity, hospital utilization, economic status with its many implications, and other matters necessary for efficient employment of funds and efforts. When the analysis is completed it should prove of great practical value to the various branches of the Indian Service.
WELFARE ACTIVITIES
Especial emphasis was placed upon a more constructive welfare program, beginning with aid to adult Indians in taking advantage of opportunities offered by the defense industries, and featuring preventive and protective care for children, adolescents, the aged, and the incapacitated. Perhaps the greatest advancement in relief work
Office of Indian Affairs • 251
during the past year has been in the substitution of cash assistance for rations.
There has been a continuing effort to gain full recognition of the Indians as citizens of their home counties and States, with the responsibilities as well as the privileges of other citizens. It is good to note that the State of Colorado, on January 1 last, began issuing assistance under the Social Security Act to needy Indians of the Consolidated Ute Reservation. Efforts are being made to have the Sac and Fox Indians of Iowa included in the State aid to dependent children program.
As throughout the Nation, there has been a considerable increase in juvenile delinquency, and in other problems traceable to faulty adjustments away from home, as well as in families disrupted by the absence of the father. Our program is planned to meet such situations, continuing to stress adequate aid for the needy, wholesome recreation for the whole family, and particularly for adolescents. Careful attention is being given to the needs of returning servicemen and defense workers.
AWARDS OF EXCELLENCE
Four Indian Service employees, Mr. and Mrs. C. Foster Jones and Mr. and Mrs. Charles Ralph Magee, received awards of excellence and meritorious promotions voted by the Interior Department’s Board of Suggestions. Mr. and Mrs. Jones, radio operator and teacher, respectively, on the island of Attu in the Aleutians, remained courageously at their posts after war was declared; and when Attu was taken by the Japanese in June 1942 they either became prisoners of war or lost their lives resisting the enemy. When Attu was retaken no trace of them was found and no word has been received from them, but it is hoped that they are alive and will return to their work after the war is over. Mr. and Mrs. Magee, holding similar positions on Atka, managed by heroic measures to evacuate the population of the island without loss just before the arrival of the Japanese, and they accompanied the Aleuts to temporary homes on the mainland.
HOONAH VILLAGE BURNED
Fire broke out in Hoonah Village, Alaska, on the evening of June 14, when, according to reports, an Indian woman who was drying fish in a little stilt-supported house threw gasoline on the embers of her fire. A high wind spread the flames rapidly and about 70 percent of the village was destroyed, leaving 350 persons homeless. One man lost his life. Coast Guard officers flew to the scene, and the Army, at the request of Indian Service officials, evacuated many of the homeless to Excursion Inlet, where barracks were available for
252 • Report of the Secretary of the Interior temporary shelter. The Red Cross, through the Sitka, Juneau, and Kechikan chapters, sent food and blankets. Planning was begun at once by the Indian Service, in cooperation with other Government agencies and the Army, for rebuilding and resettling the village.
TRIBAL CLAIMS
One of the important objectives to be obtained in the post-war period is the early settlement of Indian tribal claims against the United States, which, for patriotic reasons, have not been pressed during the war.
The Indians look forward to the settlement of their claims as a means for their economic advancement in the post-war period. The proceeds from favorable judgments will be used largely to acquire additional needed land, to build homes, and to develop land enterprises. Consonant with this plan, legislation has been enacted to enable the Menominee Indians to acquire reservation lands in Wisconsin from the proceeds of the judgment rendered by the United States Court of Claims last February. Negotiations are being made for settlement of the claims of the California Indians by an appropriation to be used during the post-war period for the economic advancement of these Indians.
The establishment of an Indian Claims Commission would relieve the Congress of the burden of considering each claim at a time when other matters of great moment will require attention. Also, such a commission would relieve the Court of Claims at a time when doubtless it will be overburdened with litigation. The Indian office has urged the creation of such a commission, and will continue to do so.
INTER-AMERICAN ACTIVITIES
In Mexico City, on April 18,1944, the governing board of the InterAmerican Institute of the Indian held its annual meeting, exactly 4 years after the first great Congress of the Indians at Patzcuaro, Mexico. Twelve republics have now united themselves with the Institute through treaty. They are: Mexico, El Salvador, Panama, Honduras, Nicaragua, Ecuador, Colombia, Peru, Costa Rica, Paraguay, the Dominican Republic, and the United States. Others are preparing to join in the movement. At the annual meeting, particular attention was given to the project of the National Indian Institutes of Panama, Nicaragua, and Ecuador, cooperating through the Inter-American Institute with the National Indian Institute of the United States, for the establishment of health work at the subprofessional level. This project includes, a study of the feasibility of uniting modern health work with the work of native medicine men, and the organization of subprofessional health services in the necessary absence of a sufficient supply of doctors and nurses.
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Attention was given, also, to the Indian personality project, carried out under the Inter-American Institute in Mexico. This project has been successful in using the services of many types of professional and lay workers, including Indians, and promises to be deeply revealing on both the administrative and psychological levels. It is an integrative study, paralleling that now going forward in our own Indian Service.
On Indian Day, the purposes and hopes of the Institute were broadcast throughout Mexico, Central America, and northern South America, through speeches by Dr. Manuel Gamio, Director of the Institute, Senor Isidro Candia, the Director of the Indian Service of Mexico, and Commissioner Collier, who had been reelected as chairman of the governing board.
MISSION TO EL SALVADOR
During his visit to El Salvador last summer, Mr. Ernest E. Maes, Secretary of the National Indian Institute, was much impressed with the program set up there by the Confederation of Rural Credit Funds. As our Indian Service has been greatly interested in developing a selfliquidating agricultural system for Indian farmers, Mr. Maes felt that someone should be sent to El Salvador for the purpose of studying the program there in operation.
Mr. David C. Dozier, a young Santa Clara Pueblo Indian employed at the United Pueblos Agency in Albuquerque, was chosen for the mission, which he performed during February with profit to all concerned. In sending Mr. Dozier on this mission, the National Indian Institute was fulfilling its function of developing collaboration among Latin-American countries arid our own country in the solution of Indian problems.
LOOKING TO THE FUTURE
The fiscal year 1943 marked the end of 11 years during which there had been a tremendous release of long-dormant Indian energy, a vigorous functioning of inherent Indian democracy, and a rebuilding of the shrunken Indian landed estate. It was necessary to know how much progress Indians had made during those 10 years in the direction of democratic self-control and economic self-sufficiency, and what might best be done to safeguard and improve Indian organization and economy for the trying test of the post-war period.
For 2 years research, designed in its end result to criticize and implement policy and administration in Indian Service, has gone forward in 11 contrasting communities in 5 contrasting tribes. The Committee on Human Development, of the University of Chicago, and specialists from a number of other institutions, have contributed indispensably. These studies have used integratively the instruments 617248—45------19
254 • Report of the Secretary of the Interior of discovery of anthopology, psychology, ecology, and medicine. The initial results are now in process of publication or ready for the press. Information acquired by these studies and the practical experience of Indian Service administrators, augmented by consultation with experts in personnel and public administration, will be used in the coming months to produce critiques of Indian administration which well may prove far reaching and practicable for the administration of native groups.
These intensive researches and their practical utilization are confluent with the production, service-wide but less intensive, of detailed, factually based post-war plans by the Service personnel and the Indians in all jurisdictions of the Service. Early in the fiscal year Indians and field employees were requested to review past accomplishments and present conditions; to analyze the social, economic, political, and administrative problems of each tribe or group; and on the basis of such an analysis to consider the future relations of each tribe or group to the Federal Government, to the States and counties, and to the non-Indian population.
It was realized that the basic resources of nearly all tribes were inadequate; that the enlargement of resources and their effective use by Indians presented many difficult problems; and that the functioning of the reorganized tribes as civic or corporate bodies was in need of much improvement.
In response to this call of a year ago for the gathering and interpretation of facts, opinions, and suggestions, 64 detailed proposals for post-war programs, dealing with the problems of 120 tribes and groups, have been submitted. These proposed programs are now being carefully analyzed and revised. Upon approval in their final forms, they will serve as maps whereby the Indian tribes and bands concerned, in cooperation with the Department and with the support of the Congress, can determine definite courses which will lead them to the common goal of self-sufficiency and harmonious integration with the national life.
Division of Territories
And Island Possessions
Benjamin W. Thoron, Director
THE magnificent accomplishments of the armed forces in freeing Alaska of the Japanese invaders, relieving Hawaii of the probability of attack, and virtually clearing the Caribbean area of the submarine menace, point to the necessity for developing a post-war program by the Division of Territories and Island Possessions. It has, however, been unable to make much progress because of the reduction of its appropriation necessitating reduction in staff at a time when many new problems mtist be met. The action of Congress in still further reducing the 1945 budget leaves the Division in a desperate situation.
The Division of Territories has been keenly aware that the position of Alaska is one of national strategic importance. Public interest has been greatly stimulated as a result of war activities, the building of the Alaska Highway, and various articles in the press and magazines. As a consequence, inquiries from servicemen and civilians relative to post-war opportunities have flooded the Division. In cooperation with the General Land Office and other bureaus an effort has been made to supply information that is factual and will be helpful to settlers desiring to build their future on the new frontier. The development of an Alaskan program by coordinating the work of the various bureaus within the Department is essential and the Division has tried to make a start on this. Hospitals for the treatment of tuberculosis among both white and native populations are urgently needed. Negotiations are now under way to have the military facilities which are no longer considered necessary for the treatment of war casualties, transferred for the use of the civilian population. The disposition of other surplus military property and equipment to Federal and territorial civilian agencies can be of great permanent value, where its sale
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to dealers and speculators for cash as salvage will lead to much greater Federal expenditure in the future.
The Alaska Railroad continues to do heavy duty for military and civilian needs. In spite of manpower shortages and difficulty in securing equipment, every effort has been made to improve the roadbed, bridges, and rolling stock. The Division has worked in close cooperation with the War Manpower Commission and the War Department to recruit help, and with the Office of Defense Transportation and the War Production Board to secure priorities for materials and equipment.
Since the changed military situation in Alaska during the summer of 1943, the need for governmental stockpiles of food for civilians no longer exists. Liquidation of these stocks has been proceeding in an orderly and businesslike manner, through sales to the trade, other agencies, and to the Army and Navy, and is rapidly nearing completion.
The Morningside Hospital at Portland, Oreg., where insane residents of Alaska are cared for, was inspected, and conditions were found to be satisfactory.
The position of Hawaii has changed from a defense outpost to a base for offense. As a springboard for the South Pacific, it still has all of the problems of a war theater. Civilians feel the pinch of housing and shipping shortages. Although martial law remained in force, conferences were held between this Department and the War, Navy, and Justice Departments, looking to the complete restoration of civil affairs to civil authorities and some relaxations of military controls were obtained. The validity of the trial of civilians by provost courts was challenged in the Federal District Court. Both Federal judges ruled against the military, and appeals were taken to the Circuit Court of Appeals at San Francisco, but had not been argued by the end of the year.1
The Division, working in cooperation with the Hawaiian Housing Authority, was successful in securing an interim housing program providing for 250 publicly financed dwelling units and 500 privately financed dwelling units. This allotment was predicated largely on the availability of manpowTer and materiel. While it does not begin to meet the need, we hope that a more extensive program may be undertaken in the coming year. The Territorial Office of Civilian Defense, which has done an outstanding job in instructing civilians in all phases of defense activities, has discontinued many of its branches. However, it maintains a skeleton force and its employees, both paid and voluntary, demonstrated their training in a recent serious explosion and plane crash. By rigid control of expenditures it still
1 By proclamation of the President dated October 19, 1944, martial law was terminated and the privilege of the writ of habeas corpus was restored, effective October 24, 1944.
Division of Territories and Island Possessions • 257 retained a sufficient balance of the appropriation made in January 1942 to carry through the 1945 fiscal year.
Of outstanding interest and importance to the possible future relationship between Puerto Rico and the continental United States was the meeting of the President’s Advisory Committee to draft recommendations for revising the Island’s Organic Act with a view to granting to the people an increased measure of control over their local affairs, including the popular election of their Governor. The committee consisting of four Puerto Ricans and four continentals under the chairmanship of the Secretary of the Interior met in Washington for 3 weeks in July and August and drafted a bill providing for election of the Governor by the people, appointment of the justices of the Supreme Court and of all department heads by the Governor, together with other amendments to the Organic Act consistent with these provisions and increasing local self-government. The bill was transmitted by the President to Congress. It passed the Senate with numerous amendments, but has not yet been taken up by the Insular Affairs Committee of the House of Representatives.
The Civilian Food Reserve unit of the Division of Territories, working with the Office of Distribution of the War Food Administration, during the year procured and shipped to Puerto Rico and to the Virgin Islands a total of 479,715 tons of foodstuffs, feeds, and fertilizers. There were ample supplies of basic commodities and the prices during the year were stabilized in a very satisfactory manner.
In line with our expressed policy after discussion with our Trade Advisory Committee, 41 food and feed commodities, involving approximately 8,000 tons monthly, were returned from governmental procurement to the regular trade channels. The return of additional commodities is being made as rapidly as there is assurance that adequate supplies can be maintained at reasonable prices.
While shipping to Puerto Rico was still severely restricted, the supply situation was met satisfactorily, considering the prevailing wartime conditions, through the continuance of governmental control of shipping space as described in last year’s report.
The complete lack of war industries in Puerto Rico, the cessation of military construction, a severe drought that reduced sugar production materially, and the discontinuance of the work relief program of the Federal Works Agency all aggravated the Island’s unemployment problem. The Insular Government immediately appropriated funds for direct and work relief. Induction into the armed services of more than 25,000 men also helped to relieve conditions. The Division assisted in working out plans in conjunction with the War Manpower Commission and the Governor’s office to bring several thousand Puerto Ricans to the mainland to relieve the manpower shortage in war industries. The War Manpower Commission did not obtain the neces-
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sary appropriation to finance their transportation, but over 2,500 Puerto Ricans have come, some paying their own way and seeking employment individually, others transported at the expense of employers who contracted for their services through the War Manpower Commission.
Steady progress is being made by the Puerto Rico Development Co. in the introduction of new industries to supplement the Island’s agricultural economy. Private interests are constructing a coconut fiber bag plant, and a leather goods manufacturer has begun operations in the west end of the Island. Continental industrialists are showing increased interest in the Island. The Division and the Development Co. have not only aided those firms which have begun operations in the past year but have encouraged those who are looking to the Island as a possible post-war base for branch plants in which to manufacture goods for South and Central American trade.
During the year the President issued an Executive order which places on the Secretary of the Interior responsibility for coordinating the policies and activities of all Federal civil agencies in Puerto Rico and the Virgin Islands. Most of the agencies have cooperated effectively with the Division of Territories with a resultant improvement in the services provided in the Islands. The reduced appropriation for personnel in the Division has made it impossible to make this coordination fully effective.
In the fiscal year full or partial settlements have been received or agreements reached in 530 cases of hurricane relief loans, with collections totaling $135,835.05, as compared with a total of 852 adjusted in the preceding 4 years. New procedures have been instituted to expedite the settlement of these loans. Small debts of farmers living in isolated mountain areas have been handled expeditiously through the Agricultural Extension Service of the University of Puerto Rico.
The need for molasses for munitions production made it necessary for the War Production Board to establish quotas for the importation of beverage cane spirits from foreign countries and for the production of the same product in American Caribbean possessions. The Division energetically presented the case for Puerto Rico and the Virgin Islands at conferences of the interested agencies. The resulting quotas, while not fully satisfactory, have permitted the operation of the distilling industry in these islands at something less than 50 percent of capacity. The effect on the revenues and employment will be very noticeable in the coming fiscal year unless the restrictions are removed.
The failure of Congress to appropriate the salary of a Government Secretary for the Virgin Islands, upon which office the Governor’s duties devolve in his absence, resulted in that position remaining vacant from the time of the resignation of Robert Morss Lovett. This has resulted in an enormous burden on the small administrative staff
Division of Territories and Island Possessions • 259 of the Virgin Islands Government and the restoration of this position is essential. After the Federal Works Agency work program was liquidated at the end of November 1943, a bill was introduced in Congress containing a program of specified public works. Hearings have been held by the House Committee on Insular Affairs but no further action has been taken.
The Virgin Islands Co. enjoyed a prosperous year. The Bethlehem sugar factory, which had been rehabilitated with Public Works Administration funds, was put in full operation for the first time in 14 years and 33,200 tons of sugarcane were ground. It is expected that the operation of this mill will bring about increased cane planting and so add to the income of the small farmers of the islands.
As a result of the responsibility of the Department for matters affecting Puerto Rico and the Virgin Islands, the Division has participated actively in the work of the Anglo-American Caribbean Commission. Puerto Rico and the Virgin Islands were represented by their own delegates at the first West Indian Conference held at Barbados, March 21-30. The Director also attended as an adviser to the American Commissioners. The interchange of information and ideas among the people and officials of the various islands may well lead to a better understanding of the community of their problems and to trade relationships that will be extremely beneficial to the whole area.
Although the Philippines are still under enemy control, concern for their future is evidenced by the approval in November 1943 of a bill relating to their rehabilitation, a joint resolution of Congress relative to the establishment of an independent government after the enemy has been driven out and the approval of a joint rehabilitation commission to study and make recommendations on post-war problems. Certain fiscal responsibilities continued to be exercised by the Division, but because of the failure of. Congress to appropriate funds it was not possible to make any constructive preparation for the time when the Commonwealth Government returns to the islands.
A more detailed report of activities in each area follows:
TERRITORY OF ALASKA
Although the last Japanese on Alaskan soil was exterminated or had fled in the summer of 1943, Alaska still retained on June 30,1944, its status as a combat area. What military activity there was, however, had been transferred to the Aleutian chain. Civilian travel control, censorship, and other military restrictions still remained.
Recognition of the present and future military importance of Alaska has come with the establishment by the Army of the Alaskan Department to supersede the former Alaska Defense Command, commanded from San Francisco, and establishment by the Navy of the Seventeenth
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Naval District to supersede the Alaska Sector of the Thirteenth Naval District, commanded from Seattle. Both of these new commands have their headquarters in Alaska.
A similar recognition of Alaska’s importance and of its special character in a different field—and one of the greatest economic importance—came with the establishment of the Territory as region 6 of the Fish and Wildlife Service under its own Regional Director with headquarters at Juneau. Under the Regional Director, a fishery management supervisor and a game management supervisor superintend the vast natural resources in their respective fields.
The establishment of an Alaska regional office in Anchorage of the Civil Aeronautics Board is likewise a recognition of the great importance and potential growth of civil aviation in the Territory.
In the War-bond drive Alaska maintained its record of surpassing its quotas and of leading the Nation. In the Fourth War Loan, Alaska raised 202 percent of its quota. In second place was the other Pacific Territory, Hawaii, with 175 percent. This record is all the more striking since, while Alaska was the only political entity to subscribe more than double its quota, only two States exceeded their quotas by as much as 50 percent.
Although the Territory had made no provision up to the end of the fiscal year for a planning or development commission to formulate a post-war construction program, both to meet the Territory’s needs and to provide for the returning veterans, a start has been made by the Governor’s office which has requested individual communities to study their needs and to submit desired projects with approximate cost estimates. To date requests for projects totaling $23,050,500 have been received from the following Alaska towns: Anchorage, Craig, Cordova, Douglas, Fairbanks, Haines, Juneau, Kodiak, Ketchikan, Nome, Petersburg, Sitka, Skagway, Seward, Unalaska, Valdez, Wrangell, and Whittier. Estimated costs for post-war projects submitted thus far by Territorial and Federal agencies total $36,434,625. These estimates have been submitted by The Alaska Railroad, the Alaska Road Commission, the Forest Service, the Fish and Wildlife Service, the Office of Indian Affairs, the Public Roads Administration, the Territorial Department of Education, the Territorial Department of Health, the University of Alaska, the Department of Justice and the Post Office Department. Post-war planning for Alaska is, however, far behind what it should be, especially in comparison with other political units—virtually every State in the Union having long since established its planning and development commissions.
While war continues to be, in Alaska, as elsewhere under the flag, the overshadowing fact, Alaskans have in the last year become acutely and increasingly aware of another insidious enemy within. It is the “White Plague.” The incidence of tuberculosis has long been high in
Division of Territories and Island Possessions • 261
Alaska, approximately twice that in the 48 States, with correspondingly high mortality. Apparently the disease is on the increase. The last, the Sixteenth Territorial Legislature was the first to indicate the awakening local interest in this peril by appropriating $25,000 for the Territorial Department of Health for the hospitalization of tubercular patients. But since the health authorities estimate that there are at least 2,000 active cases in the Territory that require hospitalization— for only 5 percent of which hospital beds are available—this is only “a drop in the bucket.” Efforts during the last year to secure the construction with Federal funds of additional hospitals for tuberculosis have failed, because new construction requires military endorsement. Attempts to secure from the Alaskan Department of the Army one or more of the various new hospitals constructed for war purposes and closed as the military situation changed and the war moved westward, were likewise unsuccessful. Fortunately, however, the Northwest Service Command, which had jurisdiction over a small portion of southeastern Alaska, took a different attitude and was agreeable to the transfer of the abandoned military hospital at Skagway for the purpose. At the close of the fiscal year authority was obtained for the transfer of that hospital to this Department and an appropriation was made by Congress to finance the operation of the hospital for native tuberculosis patients, at least until the next Territorial Legislature, convening in 1945, could determine its desires and responsibilities in the matter, and make provision for operation of the hospital for all civilian tuberculosis sufferers.
THE ALASKA ROAD COMMISSION
The Alaska Road Commission has worked under difficulties due to shortage of labor and equipment but it has succeeded in keeping the main highways in passable condition to meet civilian as well as military traffic demands. The Glenn Highway was kept open throughout the winter. Maintenance work on the Alaska portion of the Alaska Highway was transferred from the Army to the Road Commission at the close of the year.
Reconstruction and improvement work on the Richardson Highway, necessary to make it suitable for the heavy truck traffic to which it was subjected was continued to the limit of available funds. Several new steel spans were substituted for weak and inadequate wooden bridges and trestles. No new mileage was constructed.
ALASKA RURAL REHABILITATION CORPORATION
The Matanuska Valley project has shown notable improvement. The total area of cleared land is over 6,000 acres, of which 4,000 are in cultivation. The Army and increased civilian population of central Alaska have created good markets for all products of the valley.
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The farmer’s cooperative is now supplying all of the fresh milk and cream used in Anchorage and is in sound financial condition. Several of the original colonists have paid their indebtedness in full and repayments generally are more satisfactory than formerly. With the approval of the Secretary of the Interior, the Board of Directors voted to eliminate all restrictions contained in land contracts when full payment is received and to issue fee simple deeds. Several tracts abandoned by or repossessed from original purchasers have been sold to new settlers. The Matanuska Colony is well on the road to becoming a thriving community of hard working, successful farmers and homemakers, fully justifying the sponsorship of the project by the Federal Government. Agricultural development in the Kenai Peninsula and in the Tanana Valley is also showing progress.
THE ALASKA RAILROAD
Operations of the Alaska Railroad were the most successful in its history. For the second successive year, the volume of both freight and passenger traffic exceeded all previous records. Net ton-miles of revenue freight carried were more than four and one-half times the volume in 1939, and passenger miles were more than twice those in 1939, the last year before war activities affected transportation.
Shortage of skilled manpower continued as the most serious operating problem throughout the year. The Railway Operating Battalion, loaned by the War Department on a reimbursable basis, continued to render valuable assistance throughout the year. Nevertheless, the railroad was handicapped by a continuing shortage of qualified personnel, especially in its repair shops at Anchorage. Strong efforts were continued throughout the year, with assistance of the Alaskan Department of the Army and the United States Employment Service, to recruit civilian personnel in the States. The results of these activities have been only partially successful. A comparable labor situation prevailed in Alaska’s coal mines. However, the Eska Mine, operated by the railroad, produced 67,300 tons of coal.
New construction included an addition to the Anchorage roundhouse, a new engine house at Fairbanks, and extensions to sidings at a number of stations, totaling approximately 13,000 feet. An extensive tie renewal program was carried on throughout the summer months of the fiscal year and extensive ballasting was undertaken on the Whittier line and at other points. Efforts to improve the standard of maintenance were, however, limited by shortage of manpower.
To provide adequate wartime transportation it was necessary to purchase much additional rolling stock and equipment, most of which unfortunately had to be second-hand.
The Whittier Cut-Off has been in full operation throughout the year with the result that the railroad has been able to handle a large
Division of Territories and Island Possessions • 263 increase in the volume of freight traffic without a corresponding increase in existing equipment and with approximately the same number of employees. Two new Diesel locomotives were purchased for operation on the Anchorage-Whittier line in lieu of providing forced draft ventilating systems in the tunnels necessary for operation of steam locomotives. Many of the terminal facilities at Whittier were completed and turned over to the railroad for operation.
River boat service on the Yukon and Tanana Rivers was maintained throughout the summer season. The river fleet was augmented by the transfer from the War Department of the steamer Barry K. and the loan of two barges. Also a new 300-ton barge was completed and placed in service. The amount of river freight handled increased approximately 10 percent, totaling 15,412 tons.
The McKinley Park Hotel was not operated by the railroad, as it has been turned over to the Army for the duration of the war as a recreation center for the Alaskan Department. Groups of officers and men from outlying posts are given the opportunity of spending a week’s leave at the park.
TERRITORY OF HAWAII
During the fiscal year Hawaii continued to accommodate all of its governmental and its commercial and industrial facilities to the maintenance of internal security and to the military effort centered in these islands. Planning for the future necessarily has been subordinated, but it has not been neglected.
The Governor established a post-war planning division of the Department of Public Works and an advisory board to assist this division. This agency is coordinating all other local efforts to formulate plans and policies involving the development of Hawaii’s natural and human resources and the expansion of its facilities to the highest attainable degree of usefulness to itself and to the Nation.
The operating experience of agencies created under the Governor’s emergency powers to meet war-created problems has provided a record which should be of great value in establishing future legislative policies. Citizens, trained as wardens and as auxiliary police and firefighters and defense corps, are unified and alert to the requirements of community safety.
The problems which have had to be surmounted in connection with the control and development of food production and importation, and the procurement locally and from the mainland of other essential civilian commodities, have emphasized our dependence upon regular trans-Pacific shipping facilities and the necessity for future expansion of local production for local use.
Widespread development of community interest in mosquito and rodent control and in other public health security measures fostered
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by the various territorial, Federal and municipal agencies involved, will pay dividends for years to come. Dengue fever, which became epidemic about the beginning of the fiscal year, was under control at its end. The disease was probably brought here from the western Pacific, which emphasizes the necessity for the intensification of protective measures (including embargoes against and quarantine of animals) designed to prevent airborne passenger and freight transport from bringing to Hawaii or to the continent human or other diseases which are prevalent in areas to our west.
Two new public health centers, constructed with Federal funds, were opened during the year. Lanham Act funds also helped to provide additions to Hawaii’s general and mental hospitalization facilities. At least one of the hospitals established as part of the emergency medical service will remain as a community asset at the end of the war. Plans exist to continue the emergency blood bank on a permanent basis. Compulsory “booster” injections of typhoid vaccine, the second since Pearl Harbor, provided immunization which should tend to keep down this disease in the future.
Construction had started on two new refuse incinerators in Honolulu, partly financed with Federal funds, and the municipal government was in the midst of a survey of sewerage requirements which should, prior to the war’s end, produce final plans for the complete sewering of Hawaii’s capital city.
Some progress was made toward solution of the continuing acute housing problem and efforts are continuing. All agencies concerned are endeavoring to tie in relief of current conditions with post-war plans for slum clearance and orderly community development.
All major territorial seaports and harbor facilities and all airports continue to be operated under the direction of the military authorities, but payment for the use of territorial wharves is now being made by the Army and Navy. Extensive reconstruction and repair of harbor facilities will be necessary at the war’s end. Substantial improvements have been made to major airports by the armed forces. Plans for continuation of these improvements are being prepared. Highway maintenance; i. e., prevention of total disintegration, continued to be a major problem and reconstruction will afford a major source of post-war employment if efforts to secure war damage reimbursement are successful. The Territorial government urges strongly that since the deterioration of the highways is due to their use by vehicles of the armed forces of a weight and character for which they were not built, those services should be obliged to finance their reconstruction. New construction, except for the Pearl Harbor Road, was confined to military access roads financed by Federal funds.
Large park and other recreational areas are still devoted to active military use. Plans are ready for coordinating the extensive restora-
Division of Territories and Island Possessions • 265 tion. work which will be necessary with further improvement and extension of these areas.
Hawaii’s teen-age citizens again cheerfully assisted in the production of its vital crops. Retail and other business remained at a relatively high level in spite of acute manpower shortages and continued curtailment of shipping space. Tax collections, both Federal and local, and bank deposits and postal receipts increased over the previous year. Territorial and county bonded indebtedness is being reduced, which will increase post-war borrowing capacity. Previously established rationing and price control procedures continued to be effective. Control of commercial rents was effected by a Defense Act rule.
Territorial, municipal, and Federal departments and agencies, as well as the post-war planning division and certain committees, are formulating plans for the reassimilation into Hawaii’s economy of her returning servicemen.
Administration of Hawaii’s civilian affairs by civilian agencies, existing under the authority of law, was further extended during the year.
PUERTO RICO
The year has seen the tides of war recede from Puerto Rico but the effects of the crucial danger period of 1942 are still noticeable. In spite of this it is not possible to relax in vigilance as Puerto Rico’s life blood flows through arteries of ships. So long as the war is on, the possibility of the diversion of ships for our invasion needs or of a final desperate attempt by the enemy to destroy our commerce through a renewed submarine campaign, necessitates Puerto Rican preparedness to keep its people from starvation.
Unlike the continental United States, the war has brought little benefit to the people of Puerto Rico with the exception of increased revenues from rum. Even this has been a mixed blessing as it has been used as a reason for reducing Federal aid to the Island and for proposals to change the fiscal relationships that have existed for over 40 years. The Federal Works Agency liquidated its work relief program on the island on November 30,1943, and the Insular War Emergency program financed by these internal-revenue taxes carried on the task of providing work for the island’s unemployed. Military construction dwindled during the year until at the present time there is virtually none. The unemployment created by the completion of this work has been partially offset by increased inductions into the armed services, although the benefits do not always go to the same families. The short sugar crop of this year meant less work for many thousands of workers. No war industries are located in Puerto Rico although plans are being formulated to utilize the needle-work trades in the manufacture of garments for the liberated peoples of
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the world under the United Nations Relief and Rehabilitation Administration program.
Keen interest is always displayed in politics in Puerto Rico, but with the approach of the elections in November, the battle cries of the opposing forces become almost deafening. The annual session of the insular legislature which started in February was unfruitful because of the impasse between the Senate and the Lower House, and only legislation of minor importance was passed. One very serious result of the deadlock was the failure to pass a bill appropriating additional funds for relief and work projects. This has led to litigation to test the applicability of section 34 of the Organic Act which provides for the automatic reenactment of appropriations in the event of a deadlock.
Puerto Rico has followed with passionate interest, the proceedings of both the Senate and House committees which are considering the proposed changes in the Organic Act.
Agriculture
A prolonged and severe drought, the worst on record, had a serious effect on all crops. Sugar production, the biggest employer of labor, dropped from a normal of over 1,000,000 tons to 728,000 tons because of the previous year’s fertilizer shortage and the drought. The Agricultural Adjustment Agency will make deficiency payments to growers for crop losses due to the drought. The quality and yield of tobacco were both adversely affected.
The effects of delayed and lost planting on many root and vegetable crops will be felt for some time to come. For a time this spring there was a relative shortage of locally grown vegetables and these were of an inferior quality.
Industry and Commerce
The manner in which a limitation on the production of rum in Puerto Rico was imposed as a consideration to Cuba to make its molasses available for industrial alcohol production created a very bad impression in Puerto Rico. Although recent partial relaxation of the limitation similar to that granted Cuba at the same time has helped to relieve this situation, almost the entire quota for the calendar year had been produced by midsummer and the resulting unemployment and loss of revenue for the fiscal year 1945 are viewed with alarm.
Slow but steady progress is being made in the introduction of new industries. The glass plant, under construction by a subsidiary of the Puerto Rico Development Co., ran into unforeseeable wartime delays but is now rapidly nearing completion. The ceramics plant is functioning well and plans are formulated for expanding its operations into other types of clay products. Construction of the
Division of Territories and Island Possessions • 267 paperboard factory has been started and plans are virtually complete for the wallboard mill. A proposed spinning and weaving mill for coarse fabrics and sugar bags is still in the planning stage. Private interests are about ready to start operation of a coconut fiber bag plant which is being completed at Mayaguez and a leather goods manufacturer is now operating in Cabo Rojo.
While many types of consumer goods are either nonexistent or scarce, the variety and quantity of goods on merchant shelves has shown a steady increase. Generally, merchants have suffered little or no financial loss despite shortages of goods because of higher than normal profit margins.
Labor
There has been considerable unrest in labor ranks this year, particularly in the sugar industry. The time lost in strikes, however, has not been higher than usual. The two principal unions are engaged in a struggle to determine which will be the bargaining agent for the sugar workers. The Insular Labor Relations Board with the assistance of technical advisers lent by the National Labor Relations Board has held hearings on the question of an election among the workers to settle the issue.
The Consumer and the Cost of Living
The War Food Administration, the Department of the Interior, the War Shipping Administration, the Office of Price Administration and agencies of the insular government have effectively cooperated to see that Puerto Rico was supplied with its basic needs and that prices did not skyrocket. Wages have increased in Puerto Rico during the war period but have not kept pace with the increased costs of living. The purchasing power of the wage earner’s dollar of March 1941 has dropped to 71 cents and on some items such as food and clothing to 66% cents. However, virtually no change has occurred in the purchasing power of the dollar in over a year and further devaluation of the dollar has been successfully blocked.
The total dry cargo tonnage for civilian use received during the 12-month period ending June 30, 1944, was 875,839 short tons, compared with 636,330 short tons received during the 12-month period ending June 30, 1943.
In accordance with previously announced policy, the procurement of many types of foodstuffs as well as animal feeds has been returned to private channels as fast as supply conditions warranted. The transfer of responsibility in most instances was accomplished without serious disturbance of distribution. The increase in available shipping tonnage has also permitted the importation of numerous articles which were of a less essential nature but desired by the people to be resumed.
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The Future
Undoubtedly, the rate of revenue that Puerto Rico has received from internal revenue taxes will decline appreciably as beverage alcohol production increases in the States. Plans have been made to use the surpluses now in the Treasury for the permanent benefit of economic and social conditions on the island. It has been impossible during the war to obtain the building materials and supplies to do the seriously needed work on schools, housing, sanitation and hospitals. Plans for all of these have been prepared and this work can start as soon as material is available.
The Virgin Islands
This year saw the application to the Virgin Islands, for the first time, of the Selective Training and Service Act of 1940. As this act was not heretofore applied to the Virgin Islands, registration of Virgin Islands youth for service in the armed forces of the United States was not accomplished until the President of the United States by proclamation dated October 26, 1943, directed the registration of all male citizens of the United States not previously registered. Registration of Virgin Islanders began in November 1943. The first induction call was made in June 1944. At the close of the fiscal year there were 2,185 registrants in the age group 18-44 under the jurisdiction of the St. Thomas local board and 1,475 under the jurisdiction of the St. Croix local board. In the first call for 200 inductees, 149 were supplied from St. Thomas and 62 from St. Croix, all of whom were volunteers for immediate induction.
The financial condition of both municipalities improved materially during the year, especially in the municipality of St. Thomas and St. John where income taxes yielded $1,295,380.50 as compared with $465,447.76 in the preceding fiscal year, an increase of 178.3 percent.
In the municipality of St. Croix income tax collections were $114,-836.45 as compared with $46,977.22 in the preceding fiscal year, an increase of 144.45 percent. Total revenues of this municipality amounted to $262,684.89 as compared with $194,440.62 in the preceding year, an increase of 35 percent. This tremendous increase in revenue from income taxes is attributable primarily to the prosperity of the rum manufacturing business as well as the increased rates and lower exemptions.
The municipality of St. Thomas and St. John, with its surplus revenues, created a hospital building fund with a deposit of $200,000; a high school building fund of $50,000; a sewer system fund of $150,000; a reserve fund of $100,000; and a scholarship fund of $10,000. Almost $300,000 of these funds were invested in War Savings bonds. In spite of increased revenues the municipality of St. Croix still re-
Division of Territories and Island Possessions • 269 quired a congressional appropriation to meet the deficit in its treasury, even though municipal services have continued at a minimum.
The withdrawal of the Work Projects Administration of the Federal Works Agency from the Virgin Islands in December 1943 left a considerable number of unfinished projects. It also eliminated relief employment for approximately 1,500 persons. Projects for nursery schools, school lunches, sewing, health, and vegetable growing projects, formerly operated by the Work Projects Administration, were taken over and operated by the Municipal Governments from December 1943 to June 1944. With the curtailment of employment on defense construction projects in St. Thomas during the closing months of the fiscal year, unemployment conditions were accentuated. In St. Croix there was considerable unemployment until the Virgin Islands Co. opened the cane harvesting season late in February which continued well into the month of May. It is estimated that there are at the present time between 1,500 and 2,000 unemployed employables, in the Virgin Islands. Fpr a small portion of these, employment will be provided on municipal projects made possible by the increase in income taxes on largely increased distilleries’ profits.
Legislation was introduced in Congress for extension to the Virgin Islands of the benefits of those titles of the Social Security Act providing for old-age assistance, aid to dependent children, aid to the blind, maternal and child welfare and public-health work. As American citizens, Virgin Islanders should share equally with continental citizens in the benefits of this act. Certainly there are few spots under the American flag which so desperately need these aids. No action has been taken on this bill beyond hearings held by a subcommittee of the Senate Finance Committee.
The Agricultural Experiment Station continued its efforts to improve farming practices and livestock for the farmers of the Islands. For years the policy of the station has been to provide extension and demonstration services. Experimentation has been reduced to a minimum. Limited appropriations have prevented an adequate broadening of the scope of its usefulness. It is proposed to request sufficient funds to carry out a real program of agricultural extension which includes growing and distributing various kinds of vegetable slips, importing and selling vegetable seeds, growing of field corn for seed distribution, using station equipment for land preparation for small farmers, classroom lectures and field demonstrations in agriculture, instruction by staff members in better methods of planting and cultivation processes, breeding and selling of purebred animals to improve the breeds on the Islands and free veterinary service.
For many consecutive years, municipal departmental operations in the Islands, particularly on St. Croix, have been below reasonable standards. Employees have been underpaid. Buildings have de-617248—45-------20
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teriorated, hundreds of pensioners were receiving pitifully low monthly allowances. The lepers have had woefully inadequate provisions. Commercial and vocational education were hardly existent. Water supply is precarious and insufficient for drought periods. The increase in revenue of the municipality of St. Thomas and St. John during the past 2 years enabled correction of many of these deficiencies in that municipality. Departmental operations have been improved and expanded. Scholarships in health education, public-health nursing and agriculture have been provided. In the municipality of St. Croix an increase in revenues during the past fiscal year and an estimated increase in the coming fiscal year have been budgeted to relieve some of the worst of these deficiencies and also to liquidate the indebtedness which has been long hanging over St. Croix’s head-monies which were borrowed to meet operating deficits for previous years. A deficit for the fiscal year had to be met by congressional appropriation as usual.
A Bill, H. R. 5029, was introduced into the House of Representatives to assist in providing capital funds to remedy many of these conditions in the Virgin Islands. If this bill passes the Congress it will provide total appropriations approximating ten million dollars for certain new hospital facilities, sanitation and fire protection, sewer and water systems, water supply, schools and educational facilities, highways, roads and streets, recreational facilities, telephone and radio communication, malaria control, and slaughterhouse and public market facilities. Unfortunately, its terms narrowly limit the works to be undertaken to those recommended by a survey undertaken some time ago with no provision for administrative revision in the light of needs that may exist after the war. No funds would be allowed for continuation of water-conservation work in St. Croix, a project vital to the agricultural life of the island.
The Philippine Islands
The Philippines have now been under enemy control for more than 2 years. Despite extravagant Japanese claims as to the extent to which the Filipino people are embracing the idea of the Greater East Asia Co-Prosperity Sphere, there is increasing reliable evidence that the great mass of the Filipino people are in no way deceived and remain steadfastly loyal to the cause for which they have made such heavy sacrifices. That the Japanese and the puppet government, which they have established, are having serious troubles is indicated by information obtained from many reliable sources, including the rather naive admissions of the Japanese themselves. There are evidently serious shortages of almost all essential commodities, notably food and clothing. This and the issuance of worthless currency have brought about inflation, which has made it necessary for the Japanese, after first
Division of Territories and Island Possessions • 271 reducing the wage scale, to increase it far beyond anything known under the former commonwealth administration. It is inevitable under such conditions that unrest and disorder will result, and that this has occurred is evidenced by the frequent appeals of the puppet leaders and the Japanese for the people to be patient and peaceful and for repeated announcements that law and order have been reestablished. The Japanese have made a great show of attempting to convince the people of their honest intentions. The principal step in this direction was their sponsorship of a convention for the adoption of a constitution followed by the establishment of a so-called independent government.
The constitution was drawn up and approved by an organization headed by persons collaborating with the Japanese, and there was not even any pretense of participation by the people themselves.
Stripped of all excess verbiage it provided for a one-man rule upon whom the only check is by his own appointees and in whose selection the people at large have no voice. By controlling one man, the Japanese control the entire government.
Jose P. Laurel, who from the very beginning has been one of the leaders among those collaborating with the Japanese, was, in due course, named president of the puppet regime.
It must be recorded with regret that the individuals who have taken the leading part in this hollow mockery are for the most part men who were formerly high in the councils of the Commonwealth Government.
That their activities are a matter of serious concern to this Government is indicated by the fact that the President on June 29, in announcing his approval of a bill relating to the rehabilitation of the Philippines, said, “Those who have collaborated with the enemy must be removed from authority and influence over the political and economic life of the country.”
The Commonwealth Government in Exile under the leadership of President Manuel L. Quezon1 and Vice President Sergio Osmena continued to function in Washington. Under the provisions of the Commonwealth Constitution, President Quezon’s term of office was to expire on November 15, 1943, and the vice president would assume office. However, at the request of the Government in Exile, Congress, by a joint resolution approved by the President November 12, 1943 (now Public No. 186), provided that President Quezon should continue office until the President of the United States should “proclaim that constitutional processes and normal functions of government
1 President Quezon died at Saranac Lake, N. Y., on August 1, 1944, and Mr. Osmena was sworn in as president of the Commonwealth the same day, in the Office of the Secretary of the Interior.
President Osmena landed at Tacloban, JLeyte, with General McArthur, commander of the American forces, which began the reoccupation of the islands on October 20, 1944.
272 • Report of the Secretary of the Interior
shall have been restored in the Philippine Islands.” Thereafter, the vice president is to assume the office of the president and serve until his successor is elected and qualified.
On June 29, 1944, the President approved two joint resolutions of Congress pertaining to the Philippines. The first (now Public No. 380) declares it to be the policy of the United States Government to establish an independent government after the repulsion of the enemy and the restoration of democratic processes. The President is authorized, after negotiation with the president of the Philippines, to acquire bases in the islands for the mutual protection of the United States and the Philippines, and if he finds that orderly processes of government have been restored, to proclaim Philippine independence prior to July 4, 1946, which is the date originally contemplated by existing law in the Independence Act.
The second resolution (now Public, No. 381) provides for a joint rehabilitation commission to be composed of 18 members, 3 to be appointed by the President, 3 by the president of the Senate, 3 by the Speaker of the House, and 9 by the Philippine Government. This commission is directed to investigate and make recommendations concerning all matters affecting post-war economy, trade, finance, economic stability, and rehabilitation of the islands.
The functions of the United States High Commissioner were transferred to the Secretary of the Interior by an Executive order of the President dated September 16,1942. In compliance with instructions of the President to the Secretary at that time, the Department has been engaged in a study of the many problems which will arise when the islands are reoccupied.
Many thousands of Americans are prisoners of the Japanese, including some 4,000 civilians, for whom the Department feels a special responsibility. In cooperation with the State Department, the Red Cross, and others interested, all possible means of assisting them all are being constantly explored. The plight of these unfortunate people, who have now been held for more than 2 years, is made much more serious by reported food shortages and inflationary prices.
Puerto Rico Reconstruction Administration
Benjamin W. Thoron, Administrator
WHEN the President under authority of the Emergency Relief Appropriation Act of 1935 established the Puerto Rico Reconstruction Administration as an agency to administer approved projects for providing relief and work relief and for increasing employment in Puerto Rico, he stated that its main objective should be permanent reconstruction of the island’s economy in terms of agricultural rehabilitation, rather than mere immediate palliative relief. Continuation of such progress as has thus far been achieved through projects with long range reconstruction possibilities, will be no less essential in the post-war period than it has been during the war, when the ever-prevailing unemployment problem was alleviated, but only temporarily, by work on Army and Navy projects.
During the fiscal year 1944, as in the 2 previous years, the Puerto Rico Reconstruction Administration has been financed with funds allotted by the President out of the Puerto Rico revolving fund, consisting only of income and the proceeds of the disposition of property derived from the Puerto Rico Reconstruction Administration’s operation of projects which were financed with funds originating in the Emergency Relief Appropriation Act of 1935. The comparatively small amounts thus available have limited the Puerto Rico Reconstruction Administration’s activities primarily to preservation of the most essential features of its former broad program of rural rehabilitation, and to protection of investments of the Government in housing, loans to cooperatives, etc., produced by projects of previous years. Despite these limitations the Puerto Rico Reconstruction Administration has endeavored to make its work useful to the prosecution of the war as well as of service to the island’s post-war needs.
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274 • Report of the Secretary of the Interior
For its activities during the fiscal year 1944, the President authorized expenditures by the Puerto Rico Reconstruction Administration out of the Puerto Rico revolving fund (49 Stat. 1135) as follows:
Operation and maintenance of housing projects and facilities-----$250, 000.00
Management of lands and leases connected with the Lafayette ^project_________________________________________________________ 60,000.00
Operation of Castaner farm project------------------------------- 60, 000.00
Supervision of and making and servicing of loans to cooperatives- 610, 000.00
General administration___________________________________________ 160, 000.00
1943 unobligated balance for construction of rural houses-------- 204, 644.43
Operation of Central Service Farms_______________________________ 150,000.00
Subdivision and sale of lands in Lafayette district for food crop production_______________________________________________________ 11, 000.00
Total_____________________-__________________________________ 1,505,644.43
A summary of the year’s principal activities follows:
HOUSING MANAGEMENT
Operation of the Puerto Rico Reconstruction Administration’s 1,210 urban family dwelling units and 6,254 rural houses, together with 4,891 3-acre parcels on which no houses have been built, produced rental collections in round figures of $335,500 as against outlays for management and maintenance of $245,000. On vacant parcels 300 additional rural dwellings were constructed of rammed earth (locally known as tosca), mixed with a small amount of cement. Farm laborers there resettled were assisted in raising subsistence crops to supplement their meagre earnings, so that completion of these houses added 1,500 acres of formerly unproductive land to the potential food supply of the island. As of June 30, 1944, all of the urban houses and 98.5 percent of the rural houses were occupied, and 80 percent of the parcels without houses were rented to farm laborers of the neighborhood for the nominal sum of 50 cents per month. It has been the policy to permit tenants who desire to become owners of the homes or parcels they occupy to enter into long-term purchase agreements, of which 287 in the urban zone and 3,621 in the rural districts were executed during the fiscal year.
RURAL REHABILITATION
Closely tied to the rural housing developments, which are really the backbone of the rural rehabilitation program, is what is known as the Central Service Farms Proj’ect. Federal funds of $150,000 were supplemented by an insular legislative appropriation of $60,000 and approximately $110,000 made available by the Insular Emergency Council. The most important accomplishment of the project was its contribution to the food supply and income of the island by the planting of 15,000 acres in subsistence crops and 3,000 acres in cash
Puerto Rico Reconstruction Administration • 275
crops on lands of the Federal Government occupied by the Puerto Rico Reconstruction Administration resettlers. Seeds produced by 550 acres of seedbeds in the seven Central Service Farms were distributed, and fertilizers and insecticides were furnished to resettlers. Agronomists gave constant advice and supervision to cultivation, harvesting, and marketing of their subsistence crops. Resettlers were not paid for labor on their own parcels, but were paid from both Federal and insular funds for labor performed in the Central Service Farms, in the planting of fruit trees on Federal lands, in the repair and maintenance of the intrafarm roads, and the operation of some 34 rural waterworks systems, which supply potable water gratis to approximately 100,000 rural dwellers.
At the Castaner project 1,163 acres were devoted to production of coffee, sugarcane, citron, vanilla, and minor crops, furnishing employment to 200 rural families resettled on 1-acre subsistence parcels. Sale of produce from the farm proper fell $4,780 short of the $60,000 allotted for operation, not a bad showing considering the storm of near hurricane proportions in October 1943 which damaged much of the planting, and the 7 months’ drought which greatly reduced the coffee crop. In addition to the 25-bed hospital at Castaner mentioned in last year’s report as established by the National Service Board for Religious Objectors, a similar 25-bed hospital was opened during the latter part of the fiscal year 1944 at the Puerto Rico Reconstruction Administration’s La Plata project, and another health unit has been started at the Zalduondo Rural Rehabilitation Unit. These institutions, authorized by the Director of Selective Service as adjuncts of Civilian Public Service camps, with technical supervision of the planning and direction of the work program by the Puerto Rico Reconstruction Administration, are providing preventive and curative health treatment to thousands of the Puerto Rico Reconstruction Administration resettlers and other rural dwellers for whom such facilities were never before available.
COOPERATIVES
As in previous years, particular attention has been given to the vegetable, cotton, and other marketing cooperatives, and to increasing the production of the butyl alcohol plant of the Lafayette Sugar Mill Cooperative. Increase to $610,000 of the previous year’s $250,000 allotment for loans to and supervision of cooperatives, was occasioned by needs of the Lafayette Cooperative. Difficulty in meeting its obligations due mainly to former operating losses of its pioneer solvents plant, required the furnishing of an additional $500,000 loan last December as part of a general refinancing of the mill’s obligations to the Government. If for no other reason, this additional loan and re-
276 • Report of the Secretary of the Interior financing were justified by the fact that the butyl alcohol plant was able to increase production, as desired by the War Production Board, to its full capacity of more than 5 million pounds of solvents per year for the exclusive use of lend-lease and war contractors, as contrasted with 3y2 million pounds exported the preceding year. Further, operations of the solvents plants have produced a substantial profit for the year, amounting to about three times Lafayette’s loss from its ordinary sugar mill operations. That loss and a comparable loss sustained by the Los Canos Sugar Mill Cooperative, which is likewise financed by the Puerto Rico Reconstruction Administration, are attributed to a reduction of about 25 percent in the sugar produced in the respective areas, due partly to shortage of fertilizer, and partly to the island-wide drought. Prospects for a better crop the coming season at present are good.
A new cooperative known as the “Cooperativa de-Cosecheros de Cidra” was organized and obtained a loan from Puerto Rico Reconstruction Administration of $50,000 for the purpose of stimulating the growing, curing, and marketing of citron and kindred fruits in distressed coffee areas. These products, for which there is constant demand, have hitherto had little encouragement. Market conditions are favorable, and while operations were started late in the fiscal year, the citron curing plant is now operating at full capacity. Additional loans totalling $22,000 were made to four vegetable marketing cooperatives; operations have so stimulated plantings by farmer members as to increase the cooperatives’ 1943 business of $100,000 to approximately $300,000 for the fiscal year 1944. Further, the vegetable cooperatives have recently organized a central marketing agency at Rio Piedras to attract buyers in the metropolitan district, and to offset the loss of the former New York market for some of their produce, particularly tomatoes, which before the war brought a high export price. The Vanilla Cooperative has processed and will market the largest crop in its history, approximately 5,700 pounds of cured vanilla beans. The Cotton Growers Cooperative has continued to market sea island cotton (in demand for war needs) amounting to about 1,600 bales. The Sociedad Agricola, a Puerto Rico Reconstruction Administration-financed cooperative which purchases farm supplies for members and patrons, has had a particularly successful year, increasing sales of fertilizer, insecticides, feeds, etc., to over $900,000 as contrasted with the previous year’s record of around $350,000. Close supervision is maintained of the accounting and operations of all the cooperatives to which the Puerto Rico Reconstruction Administration has made advances.
Puerto Rico Reconstruction Administration • 277
CONCLUSION
For the fiscal year 1945 beginning July 1, 1944, the President has authorized the Puerto Rico Reconstruction Administration to expend $1,190,324 out of the Puerto Rico revolving fund for the continuation of projects similar to those herein reported. These will at least conserve some of the social and economic progress achieved, which would be completely lost if the program were entirely terminated. But very much larger sums of money, whether Federal or insular, will have to be expended for many years to come if permanent reconstruction of the island’s distressed economy is to be accomplished.

War Relocation Authority
Dillon S. Myer, Director
THE fiscal year ending June 30, 1944, was an especially significant period in the history of the War Relocation Authority which became an agency of the Department of the Interior on February 16. This year brought about a full-scale development of the Authority’s program to provide for the relocation, maintenance, and supervision of 110,000 persons of Japanese ancestry who were evacuated by military order from the West Coast in the spring of 1942.
The general objectives of the program had been defined in broad outline shortly after the agency was created by a Presidential order on March 18,1942, but much had to be done before the program could be put into full operation. Of foremost importance was the need to acquire knowledge of the essential character and composition of the evacuee population in order to devise the most practicable procedures and techniques for resettling in normal communities those people who presented no danger to the national security. Methods of separating the loyal and law-abiding element from the trouble makers and others whose stronger ties were with Japan had to be developed. Ways to relocate those who were law-abiding and loyal had to be planned and organized. At the same time, the establishment of the relocation centers and the organization of personnel and services to provide adequate care and supervision for the people temporarily quartered in them also called heavily on the time and resources of the War Relocation Authority in the first year of its existence.
Three basic considerations have been taken into account in formulating the Authority’s program for the past 12 months. First, the War Relocation Authority has been fully cognizant at all times of the necessity for observing adequate precautions for the national security. Secondly, it has recognized an obligation to preserve the basic American principles of humanity and justice by protecting the constitutional rights of the American citizens involved in the evacuation, and by dealing fairly with the aliens. Thirdly, it has held con-
279
280 • Report of the Secretary of the Interior sistently to the belief that the best interests of both the evacuees and the Nation call for the liquidation of the relocation centers as rapidly as possible by returning the eligible residents to the mainstream of American life.
The ultimate goal of the War Relocation Authority is to complete the job of relocation of all evacuees in normal communities outside of relocation centers. The sooner it can complete its program, the more successful its service to the Nation will have been.
«
THE RELOCATION PROGRAM
Several factors had combined to delay the progress of relocation outside the centers before the summer of 1943. At the start, it was necessary to develop procedures for determining which members of the evacuee population should be permitted to depart from the centers on indefinite leave, and which ones should be detained. Time was needed to perfect these procedures, and to conduct individual hearings for thousands of evacuees whose eligibility or ineligibility for leave clearance could not be otherwise established.
There was, furthermore, the need to develop practicable plans for getting older people and families out of the centers. In the year preceding July 1, 1943, between nine and ten thousand people had relocated, but the great majority of them were young Nisei without family responsibilities. The population of the centers was getting harder to move as the percentage of younger people decreased.
Various other deterrents were also in evidence. Among them were the uncertainty of the evacuees regarding public sentiment, the difficulty of obtaining clearance for them to work in war plants, and housing shortages.
It was early recognized that the success of the relocation program would be determined, in a large measure, by the degree to which the evacuees approved its purposes. As early as July 1943, relocation committees to plan and encourage relocation had been organized among the residents of several centers, and increasing emphasis was placed on strengthening these committees and organizing new ones in the months that followed. By the end of the year, every center had a relocation planning committee, composed either entirely of evacuees or jointly of evacuees and staff members. Issei were well represented on these committees and were especially helpful in bringing evacuee questions and suggestions to the attention of the administrative staff.
The earlier relocation of younger Nisei had been mainly to the cities, but evidence was mounting in the centers that more emphasis was needed on rural relocation. Approximately 43 percent of the evacuees had come from farming communities, and most of those with agricultural backgrounds wanted to return to the land. They wanted opportunities which would enable small groups of families to relocate
War Relocation Authority • 281
together, where they could have the association of neighbors of Japanese descent, and they stressed the necessity of sending responsible evacuee representatives into the field to investigate the opportunities before decisions could be made.
Many families had suffered heavy losses in the evacuation. If they were to leave the centers to start new farming ventures, they needed financial assistance.
In November, the national office undertook a program to make available to these farm families the assistance that they seemed to require. The relocation officers in the field were directed to give specific attention to the development of opportunities for families to resettle in small groups, and exploratory trips by responsible evacuee representatives were authorized. On the financial side, the stimulation of credit unions among the residents of the centers was suggested as one means of providing funds for families that needed financial aid, and detailed information was provided on the availability of loans from Federal and private agencies.
Other developments of the relocation program were made, following studies and surveys of the problems presented. During the early part of 1943, each individual who left a relocation center on indefinite leave was given a leave assistance grant of $50, with $100 as the total amount that could be granted to any one family. To encourage the resettlement of larger families, the grant was reduced in October to $25 per individual and the $100 limit was removed. An agreement was made with the Federal Security Agency which made relocated evacuees eligible to receive assistance under the program for aliens and other persons affected by restrictive governmental action during the war. The cooperation of the Federal Housing Administration was obtained to help the War Relocation Authority staff in determining the acceptability of the evacuees for housing in various localities, and to suggest localities where housing opportunities for evacuees appeared more promising.
At the relocation centers, welfare counselors were assigned to interview families with a view to breaking down the rationalizations of reluctant families and to gathering information which would help the War Relocation Authority to plan its future course of action more realistically. Relocation officers and other staff members who were familiar with conditions in various sections of the country visited the centers both singly and in teams to bring first-hand information to the residents and to answer questions for them. Meetings and forums were held, informational publications were distributed, and motion pictures borrowed from public and private agencies were shown, depicting various cities and rural areas.
The need to get information into the centers, regarding the communities and areas where the people were encouraged to relocate, was
282 • Report of the Secretary of the Interior
emphasized repeatedly. Few of the evacuees had ever been east of the Sierra Nevadas before they were evacuated. The Middle West and East were regions almost unknown to them.
To facilitate the gathering of information, reports officers were assigned to the principal relocation offices in Denver, Kansas City, Chicago, Cleveland, and New York City. The Washington reports office also set to work on the preparation of descriptive and illustrated pamphlets designed to reveal the character of the relocation areas to the evacuees. Personal stories of individuals and families who had relocated successfully were found to be especially effective in the centers.
Prior to the fall ‘of 1943, all phases of the relocation program, both at the centers and in the Washington office, were functions of an Employment Division which was also responsible for the employment of evacuees to maintain center operations. In November, however, a new Relocation Division was organized to give exclusive attention to the relocation program, while other functions of the Employment Division, which was then discontinued, were transferred to the Administrative Management Division. ..
Six relocation areas had already been established with headquarters in Salt Lake City, Denver, Kansas City, Chicago, Cleveland, and New York City. These offices now came directly under the supervision of the Relocation Division in Washington, and they, in turn, were responsible for supervising all branch offices set up in the regions that they represented.
It had been the policy of the War Relocation Authority from the beginning to discourage the concentration of the evacuees in large numbers in any one community; nevertheless, the people from the centers showed a strong disposition to congregate in certain localities. The most popular localities for resettlement were in the Rocky Mountain States, especially in Colorado and Utah, and in the Chicago metropolitan district. The concentrations aroused local opposition particularly in the Inter-Mountain region.
The Relocation Division moved to meet the problem, under the authority of the Director, by restricting permission to relocate in the Inter-Mountain and Western Plains States to the members of families already relocated in those areas, and by stressing the relocation program in the Middle West and East. The New England States were set apart in a new relocation area with Boston as its headquarters. In May and June, a start was made toward developing resettlement in certain parts of the South, by opening relocation offices in New Orleans and Savannah.
At' the start of the relocation program, emphasis had been placed on securing job offers for the evacuees while they were still residing in the centers. Many offers were obtained, but for several reasons the
War Relocation Authority • 283
evacuees were reluctant to accept them. One reason was that many of the jobs were not the kind which they wanted or which they were trained and experienced to fill. Since the demand for domestics was especially keen, the supply of domestic workers at the centers rapidly approached the point of exhaustion. Another reason was reluctance to accept employment without meeting the prospective employers in advance and learning, from first-hand observation, the character and conditions of the job that had been offered. Too often, even when evacuees accepted offers, they stayed on the jobs only a short time before switching to other employment. It became obvious that a new approach was needed to the relocation problem.
To meet the situation, the relocation officers in the field were instructed to cease sending to the centers long lists of job offers, which were often more confusing than helpful, and to prepare, instead, brief summaries on employment conditions in the areas where they were assigned to duty, emphasizing information about the abundance or scarcity of certain kinds of opportunities, the attitude of the community, and the housing situations. They were directed to give more attention to the development of community acceptance and cooperation, and to seek community invitations for groups of evacuees to come from the centers to look over local conditions before accepting employment.
It was the plan to shift as much responsibility as possible to voluntary cooperating committees. The churches and welfare agencies have been especially helpful in organizing these committees which were functioning, by the end of the fiscal year, not only in every middle-western and eastern community where a relocation officer was stationed, but in a number of other communities as well.
The functions of the cooperating committees were to foster favorable community sentiment, and to assist evacuees in adjusting themselves to normal community life. Insofar as possible, they were to help arrivals from the centers to find acceptable employment and housing, and to develop social and recreational opportunities for them. Especially, they were asked to cooperate in the development of plans to accelerate the relocation of families and older people.
Two devices were used to provide temporary residence for evacuees while they were looking for employment. In several cities, special hostels were opened by cooperating groups; in other places arrangements were made with YMCA’s, YWCA’s, settlement houses, and churches, to make quarters available for them.
There had not been sufficient time, by the end of the fiscal year, to make a fully adequate test of the effectiveness of the new relocation policies in stimulating the resettlement of families and older people. Of the 16,846 individuals who departed from the centers on indefinite leave during the 12 months, by far the greater number were young
284 • Report of the Secretary of the Interior
Nisei without family responsibilities, but an encouraging increase was noted in the number of total family groups that relocated toward the end of the period. More notable was the increase of relocation farther east. While the Great Lakes States—Wisconsin, Illinois, Indiana, Michigan, and Ohio—received the largest number, the percentage increases in the Middle Atlantic and New England States were much higher. The trend was definitely eastward.
The acceptance of the evacuees in the communities where they relocated was generally good. There were a few incidents, however, that emphasized the need for the cooperating committees, and for the development of favorable community sentiment before the evacuees arrived. In New York City, resistance developed to the establishment of a hostel in Brooklyn, but was overcome by the efforts and influence of individuals and organizations cooperating in the War Relocation Authority program. Other incidents involving small groups of evacuees occurred in New Jersey, Delaware, and North Carolina, and in two midwestern communities, one in Iowa and one in Nebraska. The general reaction of the country at large was distinctly critical of these communities and favorable toward the evacuees.
The progress of relocation to the end of the fiscal year permitted one center—the Jerome Relocation Center in Arkansas—to be closed on June 30. Four other centers, where space was available, were designated to receive the Jerome residents. A transfer of 2,489 Jerome residents was made by truck to Rohwer, 35 miles north; 2,049 were sent to Gila River in Arizona; 549 to Granada in Colorado, and 499 to Heart Mountain in Wyoming. Before the transfers started, efforts were made to induce as many people as possible to relocate. Those who chose to relocate numbered 518.
SEASONAL WORK LEAVE
An early development in the leave program of the War Relocation Authority was an arrangement whereby groups of evacuees were permitted to leave the centers to assist in harvesting crops in the regions where the centers are located. Under the provisions of the leave granted to them, they were required to stay in specific areas unless authorized to move elsewhere by the relocation officers. At the termination of the work, they were returned to the centers unless, in the meantime, they had obtained indefinite leave.
These workers, who were employed chiefly in the sugar beet harvest, were credited with saving thousands of acres of beets in 1942 and 1943. Others helped to harvest potatoes, long staple cotton, and other crops.
During the year a considerable number of seasonal leaves were converted into indefinite leaves to enable the workers to accept offers of permanent jobs in the communities where they had been temporarily
War Relocation Authority • 285
employed. When certain areas of the West were restricted for relocation purposes to avoid concentrations, however, the usefulness of seasonal leave as a stepping stone to relocation was considerably diminished. Moreover, as time progressed, a good many evacuees— especially young men—began to show a disposition to favor seasonal leave as more desirable than indefinite leave. Each season, after several weeks of outside employment at good wages, they could return to the centers with enough pocket money to satisfy their incidental needs until another harvest season arrived, and they were increasingly reluctant to apply for indefinite leave under terms that made return to the centers and the resumption of living at Government expense more difficult.
The competition among agricultural employers for workers from the centers also presented a troublesome problem. Even at the outset, the supply of available workers was never sufficient to meet the total demand, and, as the employable population of the centers dwindled, through relocation, the inadequacy of the supply became more acute.
In February 1944, the seasonal work leave program was modified to provide for the issuance of seasonal leave only to persons recruited for agricultural work through the War Food Administration, and employment was authorized only in counties approved by War Relocation Authority relocation officers. This modification of the program improved controls and the systematic granting of leaves to meet critical manpower shortages. It was still impossible, however, to supply enough workers to satisfy all of the calls that were made for them.
There were 7,603 seasonal work leaves granted during the last half of 1943, and 5,029 during the first half of 1944, making a total of 12,632 for the 12-month fiscal period.
THE SEGREGATION PROGRAM
It was recognized from the time when the War Relocation Authority was first organized that some of the evacuees preferred to think of themselves as Japanese rather than Americans. Among them were people who wanted to return to Japan, and possibly some who could not safely be granted the privilege of moving about the country at will in wartime. These people had to be set apart from the others who desired to remain law-abiding residents of the United States.
Three categories were established for segregation which was, by every measure, the major War Relocation Authority undertaking in the fall of 1943. First, all persons who had filed applications for repatriation or expatriation to Japan, and who had not retracted their requests before July 1,1943,‘were scheduled for immediate segregation at the Tule Lake Center in northern California. Also included in the first segregation were those who, in a registration conducted at 617248—45------21
286 • Report of the Secretary of the Interior
all of the centers in the spring of 1943, had answered in the negative a question pertaining to their loyalty to the United States, or who had failed or refused to answer it, and who had not changed their answers to the affirmative before July 15, 1943, or who, having shown a disposition to change their answers, had failed to satisfy the project director involved in each case that the changes were made in good faith. In the third category were all persons to whom the Director had denied leave clearance after individual hearings. Designated to receive these individual hearings were all persons who () had changed their answers to the loyalty question from a negative or a qualified affirmative to an unqualified affirmative, ('W^''.:
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of the Gouer^n/of Hawaii to the Secretary of the interior for the Fiscal Year Ended June 20
1944
. United States
Department of the Interior
HAROLD L. ICKES, Secretary
Territory of Hawaii
INGRAM M. STAINBACK, Governor
For sale by the Superintendent of Documents, Washington 25, D. C. ★ Price 5 cents
CONTENTS
General Administration and Planning................... 1
Public Health and Welfare Services: Health........................................... 3
Public Welfare................................... 4
Institutions..................................... 4
Labor and Industrial Relations................... 5
Hawaiian Homes Commission........................ 6
Public Safety:
Police and Fire Protection.................... 6
Other Protection................................. 7
Public Works.......................................... 7
Public Utilities...................................... 3
Education:
Department of Public Instruction................. 8
University of Hawaii............................. 9
Libraries............................................ 10
Finances............................................. 10
Business and Industry................................. H
Conclusion............................................ H
III
t
Annual Report
of the Governor of Hawaii
Ingram M. Stainback, Governor
GENERAL ADMINISTRATION AND PLANNING
During the fiscal year last past, Hawaii continued to accommodate all of its governmental and its commercial and industrial facilities to the maintenance of internal security and to the military effort centered in these islands. Planning for the future necessarily has been subordinated, but it has not been neglected.
The Governor established a Postwar Planning Division of the Department of Public Works and an advisory board to assist this Division. Under the supervision of a full-time Planning Engineer this agency is coordinating all other local efforts to formulate plans and policies involving the development of Hawaii’s natural and human i esources and the expansion of its facilities to the highest attainable degree of usefulness to itself and to the Nation. At the fiscal year’s end the Division was engaged in a broad scale survey looking toward the development of a plan for a governmental administrative center in the city of Honolulu.
The operating experience of agencies established under the Governor’s emergency powers to meet war-created problems, has provided a record which should be of great value in establishing future legislative policies. The statistics and records accumulated through the registration and fingerprinting of all civilians will be as invaluable an aid in meeting post-war problems as they have been during the past 2y2 years. Citizens, trained as wardens and as auxiliary police and fire fighters and defense corps, are unified and alert to the requirements of community safety and have gained new concepts of individual civic responsibility. The problems which have had to be surmounted in connection with the development and control of food production and importation, and the procurement locally and from the mainland United States of other essential civilian commodities, have emphasized our dependence upon regular trans-Pacific shipping facilities and the necessity for future expansion of local production for local use.
Large park and other recreational areas are still devoted to active military use. Plans are ready for coordinating the extensive restora-626305—45
2 • Report of the Governor of Hawaii
tion work which will be necessary with further improvement and extension of these areas.
Tax collections, both Territorial and local, increased over the previous year, and Territorial and county bonded indebtedness is being reduced, which will increase post-war borrowing capacity. Previously established rationing and price and use control procedures continued to be effective. Control of commercial rents was effected during the year by a Hawaii Defense Act rule.
Administration of Hawaii’s civilian affairs by civilian agencies, existing under the authority of law, was further extended during the year. The number of cases handled in the Territorial and Federal courts substantially exceeded the number handled during the previous fiscal period.
In order to preserve the proper functioning of governmental services it was found necessary to provide a bonus to meet increased living costs. Investigation disclosed that Territorial and county employees had not received increases in compensation in line with those paid by private industries and the Federal Government, and the Governor’s emergency war powers were exercised to adjust the compensation schedules applicable to all such employees so as to establish uniformity of base pay and to provide a $50 monthly bonus for all such employees. During the fiscal year, approximately $590,000 was invested in war bonds by Territorial employees under the pay-roll allotment plan. The Territory as a whole again exceeded its quotas for each of the war bond drives during the year.
Executive acts of the Governor, recorded by the Office of the Secretary of Hawaii, included 13 proclamations, 47 Executive orders and 45 rules promulgated under the authority of the Hawaii Defense Act. That office likewise continued to meet the increased demand for issuance of and information concerning certificates of Hawaiian birth and was preparing to extend the services of that Division for the benefit of Hawaii’s service men and their dependents.
Territorial, municipal, and Federal departments and agencies, as well as the Postwar Planning Division and certain community committees, are formulating plans for the reassimilation into Hawaii’s economy of her returning service men.
The 429 members of the Territorial Employees Retirement System on millitary leave at the fiscal year’s end were being allowed full service credits to the same extent as if they had continued in active employment, the various governmental units paying the contributions which such members normally would have made to the system. During the year the trustees invested $2,600,000 in War Savings bonds. Par value of the System’s total investments at the year’s end totaled $17,847,100.
Report of the Governor of Hawaii • 3
PUBLIC HEALTH AND WELFARE SERVICES
Health
Widespread development of community interest in mosquito and rodent control and in other public health security measures fostered by the various Territorial, Federal, and municipal agencies involved, will pay dividends for years to come. Dengue fever, which became epidemic about the beginning of the fiscal year, was under control at its end, largely due to to an extensive mosquito eradication campaign conducted with the cooperation of the armed forces. The percentage of the total population contracting the disease was kept at a remarkably low figure. The disease was probably brought here from the western Pacific, which emphasizes the necessity for the intensification of protective measures (including embargoes against and quarantine of animals) designed to prevent airborne passenger and freight transport from bringing to Hawaii or to the continent human or other diseases which are prevalent in areas to our west. The United States Public Health Service reports a tenfold increase over the previous year in the number of ships passing through its quarantine here and that the number of patients it cared for (principally merchant seamen) more than doubled.
Two new Territorial public health centers, constructed with Federal funds, were opened during the year. Lanham Act funds also helped to provide additions to Hawaii’s general and mental hospitalization facilities. At least one of the hospitals established as part of the 0. C. D. emergency medical service will remain as a community asset at the end of the war. Plans exist to continue the O. C. D. blood bank on a permanent basis. An expanded program and the use of new equipment for X-raying food handlers and others resulted in the finding of infectious tuberculosis cases in excess of available hospitalization facilities. Plans are complete and lands available for necessary additions to such facilities and construction can be started as soon as funds and materials and labor are at hand. Compulsory “booster” injections of typhoid vaccine, the second since Pearl Harbor, provided immunization which should tend to keep down this disease in the future. The O. C. D. training of large numbers of citizens in first aid and home nursing should also show permanent beneficial results.
The venereal disease rate among locally stationed military men was again lower than the preceding year’s, and the distribution, near the year’s end, of supplies of penicillin should further improve this picture.
During the fiscal year the Territorial Board of Medical Examiners licensed 15 physicians to practice medicine and surgery, bringing the total number of physicians practicing in the Territory at the year’s
4 • Report of the Governor of Hawaii
end to 382. A total of 1,239 nurses were registered during the year, including 51 registrations by examination, 113 by reciprocity, and 1,075 re-registrations.
Construction had started on two new refuse incinerators in Honolulu, partly financed with Federal funds, and the municipal government was in the midst of a survey of sewerage requirements which should, prior to the war’s end, produce final plans for the complete sewering of Hawaii’s capital city.
Some progress was made toward solution of the continuing acute housing problem and efforts are continuing. All agencies concerned are endeavoring to tie in relief of current conditions with post-war plans for slum clearance and orderly community development.
All of these factors are pointing toward the accomplishment of our objective to make Hawaii, the future hub of Pacific travel and commerce, one of the world’s healthiest communities, and the fact that the crude mortality rate from all causes combined for the fiscal year was at a new all-time low (6.1 per 1,000 of estimated civilian population) may be taken to indicate considerable progress toward that objective.
Public Welfare
The problem of juvenile delinquency continued as one of the most urgent of the Territory’s war-time problems. The Territorial Department of Public Welfare extended its services in this field establishing a receiving home for dependent children and making its services more readily available to the courts. A new detention home for delinquent wards of the juvenile court was also nearing completion in Honolulu.
During the year the Department substantially extended its medical, dental, hospital, and burial programs for the needy, through direct assistance and also through reimbursement to the several county governments for expenditures made in expanding their work in these fields. The Department’s planning was centered around the provision of more adequate institutional segregation and care of dependent and delinquent juveniles and the extension of the Department’s facilities, in cooperation with other agencies concerned, in aid of the veterans rehabilitation programs.
Institutions
The Territorial Hospital for the mentally ill continued to be seriously overcrowded. A survey of Territorial Hospital needs by the district medical officer, United States Navy, revealed a need for 400 additional beds at this institution. Plans and specifications have been prepared for a new treatment unit but construction has been postponed due to the shortage of critical materials. In spite of the acute shortage of facilities, treatment continued to improve. Two-thirds of all admissions are discharged as cured or materially improved.
Report of the Governor of Hawaii • 5
The inmate population of Oahu Prison was 20 percent below the pre-war figure. During the past year, steps have been taken to establish a constructive work and production program for all prisoners, using commercial standards of production which will not only make the prison partially or wholly self-supporting, but will also provide a better rehabilitation plan for prisoners.
Waimano Home for the feeble-minded made marked progress during the year in establishing a high standard of production. Poultry, cattle, hogs, fruits, and vegetables are produced in large quantities. Tons of produce from Waimano were delivered to Aiea Naval Hospital. Several tons of seed were also supplied to the armed forces for their vegetable-production program around military camps in the islands of the Southwest Pacific.
Plans were being drawn for the development of modern dormitory buildings at Waialee Training School for Boys and at Kawailoa Training School for Girls. The outstanding feature of the plans is the proposed development of facilities for a constructive program of crafts, recreation, and reading for the period between the dinner hour and bedtime, which is one of the greatest needs of the delinquent wards at these institutions.
The Division of Parole and Home Placement for the Boys’ and Girls’ Training Schools and Waimano Home continued to serve its function of rehabilitation, maintaining close contacts with the wards, their parents, their foster homes, and their employers in order to guarantee success on parole. The number of parolees who are making a successful adjustment is in excess of the number of wards in the two schools.
The Board of Paroles and Pardons continued its program of rehabilitation for prisoners on parole. The number of parolees is more than twice that of inmates, and the percentage of parolees who have to be returned to Oahu Prison continued to be small.
The Bureau of Crime Statistics and Identification continued its normal work as well as supervising, for the Office of Civilian Defense, the registration and identification of all residents of the Territory.
Labor and Industrial Relations
The Territorial Department of Labor and Industrial Relations was making preparations for the extension of the benefits of the laws it administers to returning servicemen. These will include unemployment compensation payments to veterans who are unable to return to their former employment, and training programs under the Apprenticeship Division.
The Department is likewise making consistent gains in workmen’s compensation and industrial safety law administration and in labor taw enforcement procedures.
6 • Report of the Governor of Hawaii
The Department has accumulated wage, spending, and living cost statistics, and surveys of wage and hour conditions in island industries, which should be of great value in connection with post-war wage stabilization problems and programs.
The labor shortage continued to be acute, affecting every phase of civilian activity.
Hawaiian Homes Commission
In connection with its program for increased food production on lands under its control, the Hawaiian Homes Commission completed a study of the Molokai irrigation problem which will be available for consideration of the legislature at its next session.
PUBLIC SAFETY
Police and Fire Protection
Reduction in O. C. D. assistance during the year made it necessary for the county governments to assume a substantially greater financial burden in connection with the maintenance of emergency fire and police protection. This and other war-imposed financial burdens were partially met by the county governments as a result of the distribution to them during the year of the sum of $732,116.42, being the net proceeds of United States Army collections arising out of the operation of the provost courts and liquor control agencies, which were turned over to the Territorial Government by the Army.
During the year the Honolulu Fire Department was completely equipped with two-way radio dispatching and control equipment, adding substantially to its effectiveness. The O. C. D. volunteer file warden organizations continued to afford to the various island communities a comforting assurance of added protection against major conflagrations.
In spite of the Honolulu Police Department’s inability to procure sufficient manpower to maintain the department at its authorized strength, crime statistics at the year’s end showed a downward trend, particularly in major offenses.
Honolulu’s Volunteer Emergency Police Reserves, the Junior 1 raffle Police, the Traffic Safety Commission, the Military Police and the Shore Patrol worked in harmonious cooperation with the regular police forces for the accomplishment of this result.
Hawaii’s Militia, the Hawaii Territorial Guard, was functioning m numerous ways for the benefit of the communities in which its units were stationed. Each of the numerous Army-sponsored civilian volunteer groups continued to contribute its share to the general picture of local military security.
Report of the Governor of Hawaii • 7
Other Protection
The most critical problem faced by the Board of Agriculture and Forestry during the year related to the increasing danger of the introduction from the war zones of new insect pests or animal diseases. The vastly increased volume of air and sea traffic and the urgency with which it was handled made it necessary that extraordinary precautions be taken for the protection of the agricultural economy of the Territory and, upon the recommendation of the Board, the Governor in April of 1944, issued a proclamation prohibiting the introduction of any animals or birds from any area in the Pacific formerly occupied by the Japanese forces or from certain other specified areas. Orders issued by the armed forces have strengthened the protective regulations imposed by the Board and have made available Army and Navy personnel for more affective enforcement.
The Division of Forestry completed a land survey and an extensive research program designed to insure the effective carrying out of a post-war tree-planting program on all the islands for the replacement of timber permitted to be cut for military purposes. The Division also aided in the victory-garden program by supplying seedlings, fruit trees, and plants.
The Fish and Game Division entered into a cooperative research program with the University of Hawaii which will evaluate fisheries in Territorial waters as well as in the waters of the Western Pacific Islands formerly dominated by Japan. It is hoped that the information thus developed will assist in the establishment of a fish-canning industry centered in Hawaii which will draw upon the fisheries of the Western Pacific for its raw materials.
The Board continued to sponsor and direct various phases of the emergency food production program throughout the islands and the result of its demonstrations in this field may have far-reaching values in post-war utilization of lands which have heretofore not been successfully cultivated.
PUBLIC WORKS
All major Territorial seaports and harbor facilities and all airports continue to be operated under the direction of the military authorities, but payment for the use of Territorial wharves is now being made by the Army and Navy, and the fiscal year’s receipts of tolls and charges were the largest in the Territory’s history. Considerable dredging was done during the year,-some at Harbor Board expense and some directly by the armed forces. Extensive reconstruction and repair of harbor facilities will be necessary at the war’s end, although the Board of Harbor Commissioners maintenance program has kept its properties in usable condition. The Board’s current operating
8 • Report of the Governor of Hawaii
surplus will be available for appropriation for this purpose but postwar needs will undoubtedly require extensive additional capital improvements.
Substantial improvements have been made to major airports by the armed forces. P’lans for continuation of these improvements are being prepared.
Highway maintenance, limited by labor and material shortages to attempts to prevent total disintegration, continued to be a major problem. Highway reconstruction will afford a major source of postwar employment if efforts to secure Federal war damage reimbursement are successful. New construction, except for the Pearl Harbor Road, was confined to military access roads financed by Federal funds,
PUBLIC UTILITIES
The utilities both publicly and privately owned, have generally managed to keep pace with vastly increased demands for service in spite of manpower shortages and materials and equipment procurement difficulties. Virtually all are planning extensive repairs to and enlargement of their systems at the earliest time that conditions permit.
The North Halawa Water Development Project, financed jointly by the Federal Works Agency and the Board of Water Supply under provisions of the Lanham Act, was completed on December 1, 1944, at a total cost of $2,121,000, of which the Federal Works Agency contributed $683,250 by direct grant. This project, which consisted of 22,100 linear feet of 42-inch cast-iron pipe and a 20-million-gallon underground pumping plant, added a much-needed additional source of water for the Honolulu area.
Shortage of water in rural areas adjacent to large military and naval installations continued to be a major problem on Oahu. These installations must be adequately served, but additional Federal Government help is needed to finance the development of new supplies and the extension of transmission lines.
EDUCATION
Department of Public Instruction
The Department of Public Instruction reports substantial progress in the public-school program during the year despite teacher shortages and the continued occupancy by the armed forces of certain of its school buildings. For the first time, kindergartens were made available and a Pupil Guidance Division was established.
Continued participation by older pupils in the Governor’s “Work to Win” campaign resulted in the supplying of 6,879,198 hours of student labor for the cultivation and harvesting of vital food crops,
Report of the Governor of Hawaii • 9
for which the participating students were paid $1,432,389.63 in wages. Students unable to participate directly in this campaign were encouraged in other types of community cooperation such as victory gardening, salvage campaigns, mosquito control work, and Red Cross and hospital work. Public school pupils reported the purchase of $1,589,469.00 in war bonds and stamps during the year.
Chest X-ray surveys of all school personnel were completed and a veneral disease education program was developed for high-school students.
A new course of study plan was developed during the year for inauguration at the start of the 1944 fall term and a business education service and an occupational information and guidance service were added to the Vocational Education Division.
The Department’s program for the future looks toward reduction in the size of classes and the provision of a more adequately trained staff for the Division of Pupil Guidance. It also contemplates the further expansion and improvement of vocational education with a particular view to the provision of this service to returning service personnel.
Shortages of labor and materials continued to handicap the efforts of the county governments responsible for the condition of school buildings and grounds. The war’s end will find a substantial backlog of deferred maintenance as well as a need for reasonably extensive new construction in this field.
University of Hawaii
Despite many handicaps connected with staff maintenance and replacements, shortages of supplies and housing of students, the University of Hawaii continued to meet its obligations in the field of instruction, research, and extension services: 2,204 enlisted men were attending credit and noncredit courses on the campus and, during the year, 29,736 United States Armed Forces Institute correspondence lessons were handled.
A fisheries research project, undertaken in cooperation with the Territorial Board of Agriculture and Forestry, should prove of great ultimate value to the Territory. During the year the university was designated by legislative action as a depository of material, documents, photographs, and other data relating to Hawaii’s part in the war and a permanent staff was engaged in gathering and assembling such material. The creation at the university of a legislative reference bureau established a new type of service for the Territorial government. The work of the Agricultural Extension Service continued in cooperation with the Territorial Office of Food Production and the United States Office of Economic Warfare.
10 • Report of the Governor of Hawaii
Post-war plans envisioned a larger prospective enrollment than facilities would permit, but preparations were being made to give preference in admission to returning service men.
Existing plans called for early construction of a dormitory to house 300 students and for further expansion of dormitory facilities to accommodate a minimum of 1,500 as soon as conditions permit. Immediate acquisition of some 80 acres of adjoining lands was also considered necessary to provide space for adequate development of the university’s agricultural, housing, and athletic programs. The regents’ over-all expansion programs, looking toward the building of an institution which will be second to none in the Nation, called for the erection of 28 new buildings.
LIBRARIES
The easing of blackout restrictions during the year, in addition to other beneficial results, permitted the Library of Hawaii and the various other libraries throughout the Territory to open again during the evening hours and thus to increase their previous substantial contribution to community morale. Use of the libraries has increased vastly over the pre-war years and plans are being made to improve and extend their facilities for the benefit of Hawaii’s rapidly increasing population.
The Public Archives during the past year centered its efforts upon the collection and indexing of all material bearing upon Hawaii’s part in World War II. The rapidly expanding volume of materia] housed in this institution will make post-war expansion of its facilities a necessity and plans were in preparation for a new building which will adequately serve its needs.
FINANCES
Territorial tax collections during the fiscal year, exclusive of collections for the account of the county governments, totaled $33,083,446.74 in comparison with comparable total collections of $29,787,633.96 during the previous year. It was indicated that a substantial operating surplus would exist at the end of the biennium.
Tax and other operating revenues of the four county governments, exclusive of the revenues of public service enterprises, totaled $16,829,-813.83 for the fiscal year as compared with receipts totaling $14,337,-887.63 in the previous period. Increases in real property tax levies and diversion to the counties of all personal property tax collections accounted for the greater part of their increased revenues.
The Territorial treasury, following the Governor’s program of reduction of the Territorial debt, in addition to the required redemption
Report of the Governor of Hawaii • 11
of matured serial bonds, called for redemption prior to maturity $4,160,000 of outstanding term bonds. This has substantially lowered debt service charges and will enable the Territory to borrow more readily such sums as are necessary to fulfill its post-war plans. During the fourth and fifth war-loan drives the Treasury purchased for the sinking fund and also for the general fund a total of $8,500,000 of United States securities.
BUSINESS AND INDUSTRY
The sugar and pineapple industries maintained production at a comparatively high level in view of continued acute labor and supplies shortages and the continued utilization of extensive portions of their lands for military purposes. Two-thirds of the canned pineapple and pineapple juice packed during the year was set aside for the armed forces and a number of the companies continued to produce vegetables and meats to augment the Territory’s war food supply. The industries as a whole report progress in mechanization, soil conservation, and employee training, and extensive plans for post-war improvements.
Retail and other business remained at a relatively high level in spite of acute manpower shortages and continued curtailment of shipping space. Internal Revenue collections for the fiscal year totaled $149,-643, 817, compared with collections of $75,996,558 during the 1942-43 period. Gross postal receipts for the fiscal year were $8,673,187.47, showing a large increase over the previous year’s total of $3,481,683.03.
CONCLUSION
Hawaii’s government and all of her people are proud of her fighting sons who stood shoulder to shoulder with other Americans on battlefields throughout the 'world. They are likewise proud of the part they have played in securing the islands against any possible hostile efforts of our enemy and in assisting in the preparation of the increasingly powerful blows against that enemy which have been and are being launched from her shores.
Her government and her people will be found ready and willing to assume in full her rightful share of the obligations connected with meeting the problems of returning peace.
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of the Gouernonfffthe Virginfsfands to the Secretary of the Interior for the Fiscal Year Ended June 2a
'944
United States
Department of the Interior
HAROLD L. ICKES, Secretary
Territory of Virgin Islands
CHARLES HARWOOD, Governor
For sale by the Superintendent of Documents, U. S. Government Printing Office Washington 25, D. C. Price 10 cents
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CONTENTS
Economic Situation........................................ 2
Fiscal.................................................... 2
Municipality of St. Thomas and St. John.............. 3
Municipality of St. Croix............................ 3
The Federal Appropriation............................ 4
War Savings Bonds......................................... 4
Public Works Department................................... 4
Police and Prison Department.............................. 5
Health and Sanitation..................................... 5
Selective Service......................................... 6
The Agricultural Experiment Stations-..................... 6
Department of Social Welfare.............................. 7
The Public Libraries...................................... 7
Education................................................. 7
The Harbor Department..................................... 8
St. John.................................................. 8
The Police Courts......................................... 8
Civilian Public Service Unit.............................. 9
Legislative Authorities................................... 9
Conclusion................................................ 9
iii
620975—45

Annual Report of the Governor of the Virgin Islands
Charles Harwood, Governor
DURING the fiscal year ended June 30, 1944, a number of important events occurred in the Virgin Islands of the United States, most of which were of a beneficial nature. The year was one of definite progress. The outstanding event was the introduction of a bill into the House of Representatives designed to assist in the internal development of the Virgin Islands by the undertaking of useful projects. This bill, when enacted, will authorize a total appropriation of upwards of $10,000,000 for improvements to and extensions of existing facilities in the islands, as well as certain new projects, mainly hospitalization; sanitation; fire protection; sewerage; water system and supply; educational; roads, streets, and highways; recreational; telephone and radio communications; malarial control; and slaughterhouses and marketing. In its report on the bill, the Committee on Insular Affairs of the House of Representatives stressed that these projects would be of permanent and lasting benefit to the residents of the Virgin Islands.
For the first time the Selective Training and Service Act of 1940 was applied to the Virgin Islands this year. As this act was not heretofore applicable to the Virgin Islands, registration of Virgin Islands’ males for service in the Armed Forces of the United States was not accomplished until the President of the United States directed the registration of all male citizens of the United States, from 18 to 44 years of age, inclusive, who had not previously registered elsewhere.
The Bethlehem Sugar Factory on the Island of St. Croix was reopened by the Virgin Islands Co., after lying idle for 13 years. It processed all the sugarcane harvested on the island, and could have handled twice as much. The total cane crop was only 33,202 tons, as compared with 43,093 tons in 1943. Of this, 25,046 tons were converted into 2,687 tons of sugar, and the balance into rum.
1
2 • Report of the Governor of the Virgin Islands
Shipments of United States Government-inspected beef, pork, and lamb, totaling about 337,010 pounds, were made from St. Croix to Puerto Rico and to St. Thomas. The operation of the abattoir proved to be of immense help to the livestock industry. There has been an increase in the ownership of cattle by small growers.
For the first time in the history of the islands, women were admitted to serve on juries by legislation approved in St. Thomas on September 17,1943, and in St. Croix on March 27,1944.
The financial condition of both municipalities improved materially during the year; especially of the municipality of St. Thomas and St. John. The increased revenues in both municipalities are attributable primarily to the prosperity of the rum-manufacturing business, incident to the unusually high production and price of rum, attained as a result of the shortage of spirituous liquors in continental United States.
ECONOMIC SITUATION
As anticipated in the annual report for the preceding fiscal year, unemployment—despite the repatriation of many foreign workers who had been imported for defense construction—was the most serious consideration in the Virgin Islands during the year under review.
The withdrawal of the Works Projects Administration of the Federal Works Agency from the Virgin Islands in December 1943 left a considerable number of unfinished projects, particularly road projects, on the island of St. Thomas, nad water conservation projects on the island of St. Croix. It also eliminated relief employment for approximately 1,500 persons. Projects for nursery schools, school lunches, sewing, health, and vegetable growing projects, formerly operated by the Work Projects Administration, were taken over and operated by the municipal governments from December 1943 to June 1944. With the curtailment of employment on defense construction projects in St. Thomas during the closing months of the fiscal yeai, unemployment conditions in this municipality were accentuated. In St. Croix there was considerable unemployment until the Virgin Islands Co. opened the cane-harvesting season late in February, which continued well into the month of May. It is estimated that there are at the present time between 1,500 and 2,000 unemployed employables in the Virgin Islands. For a small portion of these, employment will be provided on municipal projects made possible by the increase in income taxes on largely increased distilleries’ profits.
FISCAL
For the third successive year the municipality of St. Thomas and St. John operated without a Federal deficit appropriation and on June 30, 1944, the Treasury of the Municipality of St. Thomas and
Report of the Governor of the Virgin Islands • 3
St. John showed a revenue surplus of $57,716.32 over expenditures. Conversely, the municipality of St. Croix operated with a Federal deficit appropriation of $140,000.
The Municipality of St. Thomas and St. John
The actual revenues of the municipality of St. Thomas and St. John were $1,617,705.36, including $75,497.33 transferred from surplus funds of the preceding fiscal year, and $2,000 from the operating fund of the St. Thomas Virgin Islands Lottery. The comparable figure for the fiscal year ended June 30, 1943, was $693,801.37. Thus, total income for the fiscal year 1944 exceeded by 133 percent the preceding year’s income.
Income-tax collections at $1,295,380.50 was an increase of 178.3 percent over the amount of $465,447.76 collected in the preceding fiscal year. In 1942 income-tax collections were $316,067.67, and in 1936 the revenue from this source was only $18,237.08. Real property taxes yielded $56,825.28, compared with $54,462.23 in the preceding year. Gasoline taxes and automobile license fees were $17,823.24, compared with $14,398.68 in 1943, an increase of 23.7 percent. Customs revenues yielded $39,800 compared with $28,200 in 1943, an increase of 41.1 percent. Pilotage fees decreased 131 percent, from $10,597.52 in 1943 to $4,587.57 in 1944. Although there was a large reduction in the collection of pilotage fees, thus emphasizing the changed economy of the island of St. Thomas incident to the war, and the reduction of shipping, it will be noted that other revenues, particularly those from income taxes, more than equalized the position.
The budget for the municipality of St. Thomas and St. John carried total appropriations of $1,559,989.04. Major departmental appropriations were: Public works and fire, $379,000; education, $135,000; municipal hospital, $134,000; police and prison, $57,000; the legislature, $33,000; sanitation service, $24,000; public welfare, $56,000; and harbor, $26,000.
Municipality of St. Croix
The revenues of the municipality of St. Croix amounted to $262,684.89; compared with $194,440.63 in the preceding years, an increase of 35.1 percent. Income-tax collections were $114,836.45, as compared with $46,977.22 in 1943, an increase of 144.45 percent. Real property taxes yielded $48,358.86, and in 1943, $59,558.34, a decrease of $11,199.48. The budget for the municipality of St. Croix embodied total appropriations of $412,515, of which local revenues were estimated to supply $272,515, and a Federal appropriation, $140,000.
4 • Report of the Governor of the Virgin Islands
Major departmental appropriations were: Education, $58,000; public works, $65,000; police and prison, $31,000; Christiansted Hospital, $33,000; Frederiksted Hospital, $29,000; Kingshill Home, ■$23,000; the legislature, $9,000; and sanitation, $9,000.
The Federal Appropriation
The Federal appropriation for the government of the Virgin Islands, fiscal year 1944, were:
Central Administration--------------------------$168’ 820- 00
Agricultural Experiment Station----------------- 37, 640. CO
Deficit, municipality of St. Croix-------------- 140,000.00
346,460. 00
The following supplemental appropriations for overtime and territorial service differential were added to the above.
Central Administration--------------------------$ 18,000.00
Agricultural Experiment Station----------------- 9> 175.00
Total supplemental appropriation---------- 27,175. 00
Comparable 1943 appropriations were:
Central Administration--------------------------$167, 230. 00
Agricultural Experiment Station----------------- 40,140.00
Deficit, municipality of St. Croix-------------- 159,800.00
367,170. 00
WAR SAVINGS BONDS
The municipality of St. Thomas and St. John invested $299,951 in War Savings bonds with total maturity value of $386,050. Of its surplus revenues, this municipality created a hospital building fund with a deposit of $200,000; a high-school building fund of $50,000; a sewer-system fund of $150,000; a reserve fund of $100,000; and a scholarship fund of $10,000. The major portions of these funds were invested in War Savings bonds. The municipality of St. Croix invested $56,300 in War Savings bonds.
PUBLIC WORKS DEPARTMENT
Due to the war emergency, the Public Works Department encountered many difficulties in procuring critical materials from continental United States. Consequently, many projects had to be postponed for an indefinite period of time. However, assignments were carried out with materials available here and in Puerto Rico, wherever possible.
Report of the Governor of the Virgin Islands • 5
The Federal Works Agency water-supply project with total storage capacity of 1,700,000 gallons, was more than 60 percent completed. Five catchment areas and five cisterns were completed, a sixth was 90 percent built, and a seventh, 50 percent. Lack of wire fencing and galvanized iron sheets held up the final completion of this work. In an effort to improve the water-supply facilities in the eastern end of St. Thomas, development work was started by the construction of a well, and excavation of a small run-off catchment basin. The results were excellent, and plans are now being made to extend this type of work. This seems to be the first large-scale effort to impound fresh water in St. Thomas.
The dirt highways on St. Thomas have all been machine-graded, and are in a better condition today than ever before. The city streets have been improved, new bridges built, a series of masonry steps completed, some open gutters covered with concrete tops, and a number of dirt streets widened and hard-surfaced with asphalt.
In St. John, the department constructed a pier at the Juvenile School. Extensions were also completed to the Cruz Bay pier, and to the Coral Bay pier.
The scope of the Public Works Department’s activities in St. Croix included the maintenance and repair of public buildings, streets, water supply systems, and public parks. Due to limited allotments, most of the year’s work was restricted to routine upkeep and maintenance. Only a minimum of actual construction was possible.
POLICE AND PRISON DEPARTMENT
The relations between the military and the civilian population continued to be highly satisfactory; a fine spirit of cooperation, of which we are proud, exists between the military authorities and the local police. The director of police of St. Thomas reports that a total of 1,182 persons were arrested during the fiscal year ending June 30, 1944, as against 1,148 arrests in the preceding year. The major portion of the cases were for disorderly conduct, violation of the automobile ordinances, and other minor offenses. The director of police of St. Croix reported that there were 237 cases filed, with 212 convictions; as against 250 cases filed, and 226 convictions, during tha previous year.
HEALTH AND SANITATION
The commissioner of health in St. Thomas reported that for the first time in 12 years seven cases of typhoid fever were diagnosed. A mass immunization against this fever was started promptly and the public response was most satisfactory. The incidence of venereal disease has been high in the past few years, but has shown distinct
6 • Report of the Governor of the Virgin Islands signs of dwindling due, no doubt, to measures of control and hospitalization maintained through the assistance of the United States Public Health Service and the Federal Works Agency. The municipal slaughterhouse, nightsoil removal dump, and harbor pollution continue to be serious health hazards.
The work of the municipal physicians continued to be carried out under various hardships, among which are dilapidated and ancient hospital buildings and facilities, and outmoded equipment. However, extensive repairs are now under way at St. Thomas and, when completed, will generally improve the physical appearance of the structures. The general health standard in St. Croix was good. Clinics were conducted in infant welfare and prenatal care. Infant mortality was undoubtedly reduced by the free distribution of milk at the various infant-welfare clinics. The Kingshill Home for indigents averaged 130 inmates. This institution is in good condition, and although many of its items of equipment are in good shape, new furnishings should be obtained as soon as war-time restrictions are lifted. There were no admissions to the Leper Colony during the fiscal year 1944. There were 2 deaths, which decreased the total to 54 lepers now hospitalized.
SELECTIVE SERVICE
The Selective Service Act was made applicable to the Virgin Islands by the proclamation signed by President Roosevelt on October 26,1943. Registration began on November 16, 1943. The Selective Service System was organized in January 1944, with the Governor as State Director, and with the superintendents of education in St. Thomas and St. Croix as administrative assistants. Local board operations were started in April. At the end of the fiscal year, 2,185 men were registered by the St. Thomas Local Board, and 1,475 by the St. Croix Local Board. The total number of inductees supplied in the first call for the Virgin Islands, from both local boards, was 211, all of whom were volunteers for immediate induction.
THE AGRICULTURAL EXPERIMENT STATIONS
There was a continued improvement in the food supply of both St. Croix and St. Thomas despite a severe drought. The St. Croix station made comparative tests in planting sugarcane and found a new variety to be far superior to the common types formerly used. Several thousand cuttings were distributed to the sugar growers. The agricultural fair held on the island of St. Croix on February 22, 1944, which featured assorted types of agricultural exhibits, handcraft, and school group-work displays, was an outstanding success. Federal Works Agency’s funds enabled a dam to be completed at the St. Croix sta
Report of the Governor of the Virgin Islands • 7
tion with a capacity of approximately 4,000,000 gallons of water. Approximately 346,000 slips of all kinds were distributed for planting. Studies and experiments were continued with the view to improving and increasing swine production on the smaller farms. The St. Thomas station distributed 160,000 vegetable slips.
DEPARTMENT OF SOCIAL WELFARE
During the year, certain trends and undertakings which should have a far-reaching effect on the work of the social welfare department, and its contribution to the islands’ life, have been noted, among which being the enactment of the Social Welfare Act of 1943. This act was adopted by the legislative assembly of the Virgin Islands, setting up standards and a legal framework for social services in the Virgin Islands, and providing a basis for cooperation and coordination of activities in the separate municipalities of St. Thomas-St. John, and St. Croix.
The Federal Social Security Board has recommended to Congress that several portions of the act, specifically, old-age assistance, aid to dependent children, aid to the blind, maternal and child welfare, and public health work, be extended to these islands. It is hoped that this legislation will become law within the next year.
Another important event was the opening of the Queen Louise Home for the Aged in St. Thomas. This institution fills a long-felt need for local facilities to care for the destitute poor of St. Thomas.
Cash aid to the poor in St. Thomas and St. John increased nearly one-third this year to the total of $23,583.15, as compared with $17,977.63 last year. In St. Croix pensions and other aid to the poor, . exclusive of Kings Hill Home totaled $11,420. The operating costs of Kings Hill Home were $23,850.
THE PUBLIC LIBRARIES
Adult and juvenile attendance have increased considerably in the public libraries of both municipalities. In St. Thomas the juvenile department was especially active during the summer months, and the story hour period was continued. Some new equipment was obtained and many new books added to the two public libraries in St. Croix.
EDUCATION
The educational system in St. Thomas has developed greatly during the past year. Notable examples are that the pay rates for teachers have been raised, and the Superintendent’s staff now includes administrative and supervisory assistants in the fields of physical education, art, music, attendance, adult education through the evening school,
8 • Report of the Governor of the Virgin Islands
vocational training, pre-school child development, and teacher training. The nursery schools are now an important branch of the educational system. The teachers’ institute conducts courses for teachers in service and training each spring and summer. A scholarship fund is also maintained to assist deserving graduates by means of loans for college expenses to the United States. Many scholarship grants were also made for students and teachers in the fields of education, public health, and nursing. While new school buildings and equipment, which are sadly needed throughout the islands, are virtually unobtainable at present, positive measures have been taken to assure action on a comprehensive building program as soon as war-time restrictions have been lifted.
In St. Croix, problems of teacher replacement, securing new equipment, and maintaining equipment already on hand, unfortunately, were so great as to force curriculum revision and supervision to second place. Nevertheless, there was definite progress along certain lines. A vegetable production course taught by the extension agent of the agricultural station was highly successful. Courses in nutrition were given, a summer school was conducted, and adult education programs were improved and expanded.
THE HARBOR DEPARTMENT
The harbormaster reported that shipping was poor due to the fact that war regulations prevented neutral ships from calling here. Eighty-six United States Government-owned ships, and 156 merchant vessels, or a total of 242 vessels with gross tonnage of 259,577, entered St. Thomas, as compared with 1,220 vessels with a total tonnage of 3,943,124 which called here during 1941.
ST. JOHN
The administrator for St. John, who is also the municipal physician of that island, has presented a picture of the excellent health conditions on the island of St. John. Regular monthly check-ups were given at the clinics located at the Cruz Bay and Coral Bay districts. Although there were no cases of typhoid, 326 inoculations were given. The administrator’s office was very active during the year in a series of island-wide projects, including a Young Men’s Athletic Club, a Boy Scout Troop, War Bond drives, Community Chest collection activities, drives for Red Cross funds, and various patriotic programs.
THE POLICE COURTS
The police judge of the municipality of St. Thomas and St. John reported that 1,122 persons were tried for criminal offenses during the
Report of the Governor of the Virgin Islands • 9 year, the greater number of which were for violations of the automobile ordinance. Eleven persons were tried in St. John. In St. Croix 363 criminal cases were tried, representing a small increase over last year’s figure; but there was a marked decrease in juvenile court cases.
CIVILIAN PUBLIC SERVICE UNIT
During the year, units of civilian public service were organized in the Virgin Islands with the approval of the United States Selective Service System. Workers in the fields of psychiatry, vocational education, child welfare and group recreation, were brought to the islands under local municipal sponsorship and they have undertaken many worthwhile public projects.
LEGISLATIVE AUTHORITIES
The most important piece of legislation enacted during the session of the Virgin Islands Legislative Assembly last December was the Social Welfare Act of 1943. This act provides standards for improving social welfare services, the immediate purpose of which is to make the islands eligible for Social Security grants as soon as certain titles of the Social Security Act are extended by Congress.
It is unhappily and unfortunately evident that, in the past, these sessions of the legislative assembly have failed to produce a history of useful results commensurate with the time and expense involved in holding them. An explanation can only be found in the divergent economies and interests of the two municipalities which have encouraged the short-sighted policy of considering individual problems, first at the expense of the broader needs of the collective group.
During the year the municipality of St. Thomas and St. John passed such important legislation as scholarship loans and grants, the legalizing of women jurors, and the appropriation of surplus funds into reserves earmarked for post-war construction projects. These funds are invested in War Savings bonds.
Among the important measures passed by the municipality of St. Croix are the legalizing of women jurors, and a pension bill which provides for the retirement of municipal employees at the age of 65 or before if a total disability is sustained. This bill also makes certain provisions for the dependents of deceased employees.
CONCLUSION
The abnormal increase in municipal revenues in the Virgin Islands which permitted the extension and expansion of essential Government functions during the year under review, and which will undoubtedly continue during the coming fiscal year, resulting, as it did, from in
10 • Report of the Governor of the Virgin Islands
creased distilleries’ profits, cannot be counted upon as a stable source of revenue for the future. Price and profits will undoubtedly drop close to normal when the distillation of beverage spirits is again resumed by continental producers.
As reported last year, all medical institutions are in dire need of rehabilitation and modernization, the primitive and unsanitary system of night-soil disposal, and the open drains and gutters in all towns, are a menace to the health of the people.
If and when Congress enacts the pending bill to provide large-scale appropriations for public works facilities of the islands, it will provide most of the physical improvements which have been long needed.
O

%
FORTY-FOURTH ANNUAL REPORT
OF THE
GOVERNOR OF PUERTO RICO
HONORABLE
REXFORD G. TUGWELL
1944
SAN JUAN, P. R.
Oficina Insular de Compras Division de Imprenta
1945
TABLE OF CONTENTS
Page
Introduction______________________________________________________________ 1
Finances________________________________________________________________   3
Legislation_______________________________________________________________ 4
Office of the Governor:
Bureau of the Budget________________________;_____________________	6
Executive Secretary___________________________________________________ 6
Insular Procurement	Office__________________________________________ 7
Office of Information___________________________x_________________ 7
Office of Statistics__________________________________________________ 8
Departments :
Department of	Agriculture and Commerce______________________________ 9
Department of	Education____________________________________________ 12
Department of	Health_______________________________________________ 15
Department of	Interior_____________________________________________ 18
Department of Justice________________________________±____________ 20
Penal Institutions_______________________________________________ 22
Courts----------------------------------------------------------- 23
Department of Labor__________________________________________________ 23
Agencies :
Agricultural Experiment Station_____________________________________  25
Board of Elections___________________________________________________ 27
Carnegie Library of Puerto Rico______________________________________ 27
Civil Service Commission-^___________________________________________ 28
Civilian Defense__.■________________________________________________  28
Committe on Design of Public Works___________________________________ 29
Communications Authority____________________________________________  30
Development Company__________________________________________________ 31
Extension Service____________________________________________________ 32
Fire Service_________________________________________________________ 33
General Supplies Administration________2__________________________ 34
Housing Authority---------------------------;________________;____ 35
Industrial Commission________________________________________________ 36
Institute of Tropical Agriculture____________________________________ 37
Insurance------------------------------------------------------------ 38
Isabela Irrigation Service-_----------------------------------------- 39
Land Authority_______________________________________________________ 39
Minimum Wage Board--------------------------------------------------- 40
Planning, Urbanizing, and Zoning Board_______________________________ 42
in
IV
CONTENTS
Agencies—Continued.
Police---------------------------------------------------------       43
Public Amusement and Sports Commission------------------------------- 44
Public Service Commission-------------------------------------------- 45
Public Welfare Board------------------------------------------------- £6
School of Tropical Medicine------------------------------------------ 46
Sewerage Service----------------------------------------------------- 49
State Guard---------------------------------------------------------  49
State Insurance Fund-----------------------------------------------   50
Tax Court------------------------------------------------------------ 51
Tobacco Institute——------------------------------------------------   51
Transportation Authority--------------------------------------------- 52
University of Puerto Rico—------------------------------------------  53
War Emergency Program------------------------------------------------ 54
Water Resources Authority-----------.------------------------------ 55
Federal Agencies:
Agricultural Adjustment Agency------------------.------------------	57
Agricultural Experiment Station------------------------------------ 57
Conciliation Service-------------■---------------------------------	59
Emergency Crop and Feed Loan Office-------------------------------- 59
Farm Security Administration--------------------------------------- 60
Federal Land Bank of Baltimore------------------------------------- 61
Foreign Funds Control----------------------------------------------.	62
Forest Service--------------------------------------.-------------- 62
National	Labor Relations Board------------------------------------- 64
Office	of	Defense Transportation------------------------------------ 64
Office	of	Distribution---------------------------------------------- 66
Office	of	Price Administration--------------------------------------- W
Puerto Rico Reconstruction	Administration-------------------------- 68
Soil Conservation Service-------------------------------------------  70
United States Employment	Service---------------------------------  70
Wage and Hour Division----------------------—---------------------- 71
War Production Board------------------------------------------------  72
War Shipping Administration-------------------------------------—	73
FORTY-FOURTH ANNUAL REPORT OF THE GOVERNOR OF PUERTO RICO
The Honorable
The Secretary of the Interior, Washington 25, D. C.
Sir:
Pursuant to law, I have the honor to submit the foil Giving report as Governor of Puerto Rico, for the fiscal year ended June 30, 1944.
Introduction
The year 1942-43 was characterized by the existence of a War emergency which affected every phase of life in Puerto Rico. I am happy to report, however, that, during the past year, the Island returned to as normal a life as any people at war can achieve. This was due in large part, of course, to the action which the Federal and Insular Governments had instituted in the previous year.
At no time during the twelve months were the basic food supplies of the Island threatened. It is true, of course, that shortages developed occasionally, but they were due as often to the existences of shortages on the Continent as to limitations upon or delays in shipping. And in no case did a shortage affect basic food supplies. Throughout the year adequate surpluses were maintained and local food production, stepped up during the period of serious shipping shortage in 1942-43, reduced very materially the demand for shipping space.
The Office of Distribution, War Food Administration, continued to purchase, import and distribute basic foods, under the agreement with the Department of the Interior. In part bcause of the subsidy provided by the Department of the Interior on rice and beans, and in part through the activities of the Office of Trice Administration, prices were held in check throughout the year. Of particular importance in the field of price control, was the action of the Office of Price Administration in setting maximum prices on locally produced foods.
In certain ways the year was unique. The Regular Session of the Insular Legislature failed to adopt an Insular budget. The previous year’s budget therefore, is to remain in effect. This naturally precluded any considerable extension of government activity.
i
2
FORTY-FOURTH ANNUAL REPORT
It also raised the question of whether the appropriation of $16,000,000 made during the preceding year for the relief program administered by the War Emergency Program, was also self-renewing under the circumstances. Since the original appropriation was barely enough to last out the year, a negative answer meant stopping relief. Pending action in the courts, it was decided that the appropriation could be considered as renewed. The fact that 1944 is an election year also has tended to slow up government activity in many ways.
In so far as the program for the industrial development of the Island is concerned, however, considerable progress was made. The Puerto Rico Development Company began the construction of a factory in which it will manufacture corrugated paper for use in making cartons for packing rum, and brought to virtual conclusion the construction of its large glass container plant. The Puerto Rico Development Bank went into actual operation, with an appropriation of $5,000,000.
The most spectacular advancement in industrial activity, however, was the great expansion in the manufacture of rum for shipment to the United States. The quantity of rum manufactured and shipped to the Continent, limited only by the amount of molasses made available for this purpose, increased many times over that in the previous year.
In the field of public utilities, the year marked the transfer of practically all power resources of the Island to the Water Resources Authority when it took over from the Federal Works Administration the properties of the Porto Rico Railway, Light and Power Company and the Mayaguez Light, Power and lee Company.
The year was memorable, also, in that it saw the preparation of and submission to the Insular Legislature of the first Six Year Financial Plan authorized under the law setting up the Planning, Urbanizing and Zoning Board. This is particularly significant because it coincides with the piling up of reserve funds in the Insular Treasury from the phenomenal increase in the revenue derived from rum. As a result of this coincidence Puerto Rico has both a well considered program of development and, in large part, the money with which to finance it. Because of the legislative stalemate, the Six Year Plan could not be used as fully as was intended under the law.
Finances
Revenue for the fiscal year 1943-44 was the highest in the history of Puerto Rico.
OF THE GOVERNOR OF PUERTO RICO
3
General Fund: Cash deposits in the General Fund during the year amounted to $104,148,590.17. This, plus $24,402,077.17, representing the cash balance on June 30, 1943, brought the total of cash available to $128,550,667.34. Net disbursements during the year totaled $46,497,883.69, including $4,002,036.45 in net transfers from the General Fund to Trust Funds, leaving a cash balance of $82,052,783.65 at the close of the fiscal year. Total net appropriation liabilities for the year came to $53,629,554.53 resulting in an unobligated surplus of $74,921,112.81 on June 30, 1944.
During the year the Treasurer raised his estimate of revenue from $30,075,000 to $92,700,000. Actually, revenue collections reached $103,993,636.52, exceeding the revised figure for the previous year by $62,514,657.06. A major part of the increase was accounted for by income from the United States Internal Revenue Tax which rose from $13,550,072.44 in the previous year to $63,884,357.89. Receipts from excise, Victory and income taxes were also substantially higher, as shown by the following tabulation:
The condensed comparative statement which follows shows the condition of the General Fund at the beginning and end of the fiscal year :
Condition as of July 1, 1943
Cash balance, July 1, 1943______________________$24, 402, 007. 17
Less: appropriation liabilities carried over from previous year___________________________________$17, 289, 281. 30
Condition on July 1, 1943, excess of resources over appropriation liabilities_____________________________________________________ $7, 112. 795. 87
Condition as of June 30, 1944
Cash balance, June 30, 1944_-------------------$82, 052, 783.65
Less: appropriation liabilities carried forward
to fiscal year 1944-1945____________________ 7, 131, 670. 84
Condition on June 30, 1944, excess of resources over appropriation liabilities------------------------------------------------------------- 74, 921, 112. 81
Gain during the year.
$67, 808, 316. 94
Revenue	1943-44	1942-43	Increase
Income Tax	 Victory Tax	 Excise Tax		$16,243,028.60	$11,319,105.95	$4,923,922.65 3,239,305.25	578,870.30	2,660,434.95 12,300,060.75	8,380,218.85	3,919,841.90
4	FORTY-FOURTH ANNUAL REPORT
The gain in resources for the fiscal year 1943-1944 is explained as follows:
Increase in cash balance.----------------------------------$57,650,706.48
Decrease in appropriation liabilities---------------------- 10, lo7, 610.46
$67, 808, 316.94
Trust Funds: The cash balance in Trust Funds at the end of the fiscal year was $27,872,108.82, as compared with $25,846,621.25 on June 30, 1943. Transfers from the General Fund to Trust Fund accounts amounted to $5,648,792.12, while transfers from Trust Fund accounts to the General Fund totaled $1,646,755.67.
Bonded Indebtedness: During the year, the bonded indebtedness of the People of Puerto Rico was reduced by $5,154,000—from $16,398,000 on July 1, 1942 to $11,244,000 on June 30, 1944. Ths reduction was effected as follows:
Bonds retired--------------------------------------------------1^7, ^00
Bonds transferred to Water Resources Authority----------------- 1, 957, 000
Bonds deposited with the Chemical Bond and Trust Co. as Fiscal
Agent of the Water Resources Authority----------------------- 1, 070,000
Interest charges on bonded indebtedness for the year amounted to $551,397.50, as compared with $994,293.33 paid during the pre> ceding fiscal year.
Legislation
The fourth and last regular session of the Fifteenth Legislature convened on February 14, and adjourned on April 15, 1944.
The general appropriations bill for the expenses of the Insular Government was not adopted. Consequently, in accordance with Section 34 of the Organic Act, the 1943-44 budget will remain in force until further action by the Legislature.
The Legislature enacted 202 bills, 109 of which were approved. The most important of the bills which became law were those:
Appropriating $5,000,000 for the Development Bank;
Fixing a basic salary for public school teachers, determining increases over and above the basic salary in consideration of academic preparation and of special service, and establishing cumulative increases for years of service.
Appropriating $1,000,000 to provide for the services of 900 additional public school teachers;
OF THE GOVERNOR OF PUERTO RICO
5
Appropriating $3,200,000 for the preparation of plans and specifications, and the purchase of land, for the development of housing projects for low income families;
Appropriating $25,000 for appraising the Porto Rico Telephone Company;
Extending the benefits of the Land Law to persons other than residents of the rural zone;
Appropriating $2,000,000 for the rehabilitation of the islands of Vieques and Culebra—$1,500,000 for the Land Authority for the acquisition of land, and $500,000 for the Puerto Rico Development Company to finance a sugar mill and rum distillery;
Appropriating $549,200 to reenact and supplement the budget of the Office of the Auditor for the fiscal year 1943-44;
Creating the Cancer Institute, and appropriating $500,000 for this purpose;
Appropriating $2,000,000 for the support of school lunch rooms;
Appropriating $150,000 for the service of vocational orientation in the public schools;
Providing for a Medical School in the University of Puerto Rico, and appropriating $500,000 as an initial contribution towards the expenses of this school;
Amending the Internal Revenue Act by allowing, in the case of motor vehicles, six months after their introduction into the Island for the payment of the tax, if they are not sold before, and by adding three new sections to the law whereby : (1) all machinery, apparatus or equipment essential for the establishment and operation of industrial plants are exempt from taxes; (2) articles and supplies which are returned by the importer to the sender within 10 days after they are imported into the Island, or which are damaged, spoiled, destroyed, evaporated, or lost by breakage, are exempt from taxes; and (3) antiseptics, disinfectants or germicides are not considered as drugs or alcoholic medicines for the purposes of the licenses prescribed by the Act;
Reducing from 15 per cent to 5 per cent the excise tax on confectionery, chocolate bonbons, caramels, almonds, and other sugar products;
Allowing the deduction of contributions or gifts in computing the income tax;
Establishing centers for the quick treatment of cases of venereal diseases in the contagious stage, and providing rehabilitation establishments;
Providing for the prevention and treatment of venereal diseases and for the protection of public health;
6
FORTY-FOURTH ANNUAL REPORT
Allowing compensation to municipalities for such property-taxes as they fail to receive by virtue of the acquisition of properties by the Water Resources Authority;
Appropriating $300,000 for the purchase of tillable lands for schools;
Appropriating $50,000 for student aid at the University of Puerto Rico;
Extending to Vocational Education teachers the benefits of the Permanency Act for teachers.
Office of the Governor bureau of the budget
In its second year of operation, the Bureau of the Budget was confronted with exactly the reverse of the problem it met in the first year of its existence. In 1942-43, the Bureau found it necessary to conform its budgeting of contemplated expenditures to ail anticipated 15 per cent reduction in income, as the result of the shipping crisis which threatened to curtail revenues from exported rum. The war situation improved and shipping eased with consequent gains for the Insular Treasury. The Bureau therefore, was enabled to plan for an income approximately $65,000,000 greater than the year before. The problem was to prepare a budget which would distribute the increase to the best advantage.
A multitude of claims were macle for a share in the available money, and in collaboration with the Puerto Rico Planning, Urbanizing and Zoning Board, a system of allocations was devised. The Legislature, because of political disagreement, failed to approve any budget, but many of the decisions made as to proportionate division of funds will be employed as bases for allocations in future budgets.
During the year 1943-44, the Bureau, working with the Civil Service Commission, took the first steps toward preparing a uniform salary compensation plan.
executive secretary
Corporations and Cooperative Associations: A total of 109 domestic corporations were registered during the year, 54 more than the previous year, while 219 were dissolved. Of these, 34 were dissolved following the usual legal procedure, and the remainder by legislative action. Six foreign corporations qualified for business in the Island and two such corporations withdrew.
Seven cooperative associations of production and consumption were organized, 28 less than in 1942-43. Four of these associations
OF THE GOVERNOR OF PUERTO RICO
7
are mercantile, two are engaged in agriculture and commerce, and one deals in handicraft. Three cooperative marketing associations were formed, and only one was dissolved.
Seventy-two domestic, non-profit associations were registered, 20 more than in the previous year. Ten were dissolved in accordance with law and six by legislative action.
Passports: The number of passports issued during the year amounted to 2,332. This represented an increase of 174 per cent over the previous year.
The Insular Police Force cooperated in the investigation of birth records of 400 merchant seamen, claiming to have been born in Puerto Rico, who had applied to the State Department for seamen’s passports. The Executive Secretary’s office checked the findings and prepared the reports to the State Department.
Insular Procurement Office
This office, created by Act 194 of May 15, 1943, started operations on August 14, 1943 when it took over the staff, services, and equipment of the Bureau of Supplies, Printing and Transportation. Purchases in Puerto Rico by the Purchase Division amounted, in net value, to $2,527,491.77, while requisitions sent to the Continent amounted to $448,090.43. A new procurement system which, in general, embodies the principles of the Federal Procurement service adapted to local conditions and Insular Government needs, was outlined in a Manual of Procedure.
office of information
Two publications were published and distributed by the Office during the year. The Little Mud, a 7-page brochure of photographs with brief descriptive text, issued in December, 1943, told the story of Puerto Rico’s housing problem. A Development Plan for Puerto Rico, a technical paper prepared by the Puerto Rico Planning, Urbanizing and Zoning Board, was published by the Office of Information in January, 1944. English and Spanish texts of a third booklet —Puerto Rico in the War—went to press as the fiscal year was ending.
The Department of the Interior in Washington was supplied with newspaper clippings, news releases and special articles on Puerto Rican affairs. The Office of the Coordinator of Inter-American Affairs made wide distribution in North and South America of articles, in Spanish and English, sent from the Office of Information.
8
FORTY-FOURTH ANNUAL REPORT
Reclassification and amplification of the photographic files inherited from the Institute of Tourism were undertaken. A collection of 100 photographs of Puerto Rico subjects, donated by the Farm Security Administration, was exhibited at the University of Puerto Rico, under the title of ‘ ‘ Puerto Rico—Life and Miracles ’ ’. The collection was later lent to the Special Service Office of the Army at Borinquen Field, Puerto Rico.
When Mrs. Roosevelt stopped in Puerto Rico for three days during her Caribbean tour in March, 1944, the Office of Information handled press relations. Assistance was given to numerous visiting writers from the Continent and various Puerto Rican journalists.
At the Barbados conference held under the auspices of the Anglo-American Caribbean Commission in March, 1944, information officers from Puerto Rico and the various British colonies agreed on a regular exchange of newsletters. Pursuant to this agreement, the Office of Information inaugurated a Caribbean newsletter and periodic releases to local papers summarizing the contents of newsletters received from other places.
OFFICE OF STATISTICS
During the year the Office of Statistics lost most of its trained personnel to the Armed Forces, including the head of the office. This loss, combined with a limited budget, made it necessary to restrict the scope of activity principally to analysis and dissemination of statistics.
At such time as the budget is expanded and a trained technical staff becomes available, the Office of Statistics will resume the important function of examining the present statistical reporting systems of the various Insular Departments with a view to devising and recommending standard methods, forms and procedures.
Considerable progress was made in improving and building up the distribution of a printed monthly statistical report. In addition to Puerto Rico, this report now circulates to neighboring Caribbean countries, South America, Central America, Canada, and continental United States. It goes to colleges, libraries, governmental agencies, commercial institutions, and private individuals. Some Federal and Insular government officials are also furnished with a special edition containing trade information which, for security reasons during the war emergency, may not be released to the public.
The printed monthly report has been gradually expanded to embrace most of the important phases of governmental activity related to economic and social development in Puerto Rico. Plans have been
OF THE GOVERNOR OF PUERTO RICO
9
formulated for continued expansion to provide the public eventually with a complete monthly statistical abstract.
The Office of Statistics has furnished considerable special statistical data for the use of other members of the Governor’s staff, and, upon specific request by the Division of Territories and Island Possessions, to Federal officials.
Departments department of agriculture and commerce
The Department of Agriculture and Commerce reorganized its work in the previous fiscal year to meet the War emergency. The progiam established in 1942—43, modified to meet changing conditions, was continued. Emphasis was still upon increasing the yield of native foods crops; upon the use of new land and the production of new food crops; upon the continued production of raw materials for munitions.
Towards the close of the year, following the prolonged drought, the Department inaugurated a $400,0-00 project, under the War Emergency Program, to distribute seeds and fertilizers to needy farmers, as a means of increasing the food supply. As a result, food crop production, which had fallen off because of the drought, was greatly stimulated.
The drought, which began in October, 1943, was one of the most intense in Puerto Rican history. The period of sub-normal rainfall extended to May, 1944. This not only caused large crop losses, but also reduced the acreage of new plantings, and affected adversely other phases of agriculture, such as livestock and milk production.
Sugar: Because of inadequate allotment of fertilizers for sugar cane, out-of-season deliveries, the prolonged period of drought, and the scarcity of agricultural machinery and implements, only 5,602,437 tons of cane, with an average yield of 12.90 per cent, were ground, netting 723,611 tons of sugar, which was 315,626 tons less than in 1942-43.
Puerto Rico produced 28,180,258 gallons of molasses during the year. With the 17,400,000 gallons left from 1942-43, available molasses totaled 45,580,258 gallons. Shipments from Puerto Rico amounted to 9,889,757 gallons. Local allotments were: for rum 17,050,000 gallons; for industrial alcohol, 5,500,000; for butyl alcohol, 3,194,000; for livestock feed, approximately 3,000,000.
Tobacco: There was considerable increase in tobacco production as the result of the timely arrival of fertilizers and the high price
10
FORTY-FOURTH ANNUAL REPORT
paid for Puerto Rican tobacco last year. The acreage rose to 34,500 cuerdas, as compared to 12,360 cuerdas in 1942—43. It is estimated that total production will reach 28,500,000 pounds, 19,078,000 pounds more than last year.
Coffee: The coffee situation was very unstable. A severe storm on October 14, 1943, reduced the crop from an estimated 222,044 to 189,848 hundredweights. The long period of drought also had an adverse effect on the crop.
Fruits: The production of citrus fruits in Puerto Rico' continued to decline. According to the United States Department of Agriculture War Board, approximately 108,000,000 pounds were harvested. Practically no shipments of fresh citrus fruits have been made in the past two years. However, 3,523,461 pounds of citron in brine were shipped during 1943-44. Although no fresh pineapples left the Island, 11,580,959 pounds of pineapple were canned, 45 per cent of which was for export.
Coconuts: In spite of unfavorable weather conditions, Puerto Rico harvested approximately 25,000,000 coconuts, about the same number as in previous years. Of the total, 7,252,000 nuts in the shell were shipped to the United States, as compared to 10,057,000 in 1942-43. Shipments of sweetened or shredded coconut jumped from 752,030 pounds to 5,082,483. The embargo placed on coconut exports during the previous year was lifted on September 30, 1943.
Cotton: The production of cotton was considerably reduced, due partly to climatic conditions. The harvest from the southern zone was 8,982 hundredweights, only 80 per cent of the previous year’s crop. The northern zone crop, too, showed a reduction. An increase in production is anticipated with the importation, by the Department of Agriculture and Commerce, of a short staple variety seed called “Monserrat Sea Island”.
Food Crops: Food production has increased markedly since the beginning of the War. The total production of corn, beans, rice, pigeon peas, cowpeas, sweet potatoes, yams, dasheens, tanniers, cassava, plantains, and bananas, considered collectively, was 14 per cent higher in the calendar year 1943 than in 1942. A total of 708,730 cuerdas of these 12 crops were harvested, an increase in acreage over 1942 of 69 per cent. On the basis of food groups the greatest increase occurred in cereals. This is of special significance, since large amounts of rice and corn are imported. The smallest increase
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occurred in the starchy vegetables, such as plantains, yams, tanniers, etc. Under the WEP Planting Program, fertilizer and seed valued at $193,496.41 were distributed to 21,916 farmers who planted 52,211.20 cuerdas to corn, rice, beans, cowpeas, pigeon peas, tanniers and minor vegetables.
The price support program, carried on by the Office of Distribution, and financed by the U. S. Department of the Interior, under which growers are assured a market for selected crops, has been of great value in stimulating food crop production. The Office of Distribution also gave vital assistance in procuring and importing seeds.
Fertilizer: Imports of fertilizer materials were more than three times as great as in the preceding year. The total was 159,519.45 tons, an increase of 104,926.80 tons.
The United States Department of Agriculture War Board, of which the Commissioner of Agriculture and Commerce is an advisory member, efficiently rationed fertilizer to farmers and was instrumental in obtaining increased supplies.
Agricultural Credit: Credit extended to farmers during the fiscal year by fo'ur agencies totaled more than $11,000,000. The Emergency Crop and Feed Loan Office made 5,456 loans amounting to $1,387,005. The Federal Land Bank of Baltimore put out $1,310,500 in 283 new loans. The Federal Intermediate Credit Bank of Baltimore discounted agricultural paper totaling $7,559,093.45. The Farm Security Administration granted loans to 6,317 clients aggregating $948,188.60.
Livestock: The Department of Agriculture and the Bureau of Animal Industry of the U. S. Department of Agriculture carried on the joint campaign against Bang’s disease. Considerable progress has been made on this project as well as on bovine tuberculosis and cattle tick eradication although all three programs were hampered by lack of veterinary personnel. The infection ratio for the 106,824 head of cattle tested for tuberculosis was .315, the lowest in the history of the Department.
Soil Conservation: The soil conservation program was carried on with the cooperation of various Insular and Federal agencies.
Conservation practices included both complete farm planning covered by cooperative agreements, and simple conservation practices which could be applied with a minimum amount of technical assistance. It is estimated that, in some parts of the Island where
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FORTY-FOURTH ANNUAL REPORT
such practices have been put into effect, crop yields increased from 15 to 30 per cent on treated lands.
Forestry: The rate of acquisition of land for forests was Very slow during the year; however a long range plan of acquisition was prepared and is now ready to be put into effect. The reforestation of lands best suited for timber growing, most of which are now denuded and idle, was the most important work of the Forest Service during the year. With the help of funds from the AVar Emergency Program, over 3,000,000 seedlings were produced. Of these, 2,153,000 were distributed to farmers and others, while 42,000 were planted on public lands.
Fishing: Attention was concentrated on the rehabilitation and development of commercial fishing, with emphasis on salt water fish. A fishing colony was established on Mona Island, and a cold storage unit for the preservation of the catch was installed on the Island. A freezing unit was purchased at Boqueron, and is being operated for the benefit of commercial fishermen.
Commerce: Business conditions improved, and, at the close of the year, many more businesses were running on a fairly normal basis. Shortages now are due not so much to shipping difficulties as inability of suppliers to provide the usual volume of civilian goods.
There was a remarkable increase in the output of many local industries during the year. The greatest increase came in the manufacture of rum which, in December, 1943, reached the highest volume of production eVer recorded. Shipments of rum to the United States this year amounted to 8,884,171 gallons, as compared to 2,334,223 gallons during the previous year. Total production of rum for the year was 12,148,768 gallons.
DEPARTMENT OF EDUCATION
The fiscal year 1943-44 is the first in which the 6-3-3 plan operated in the public schools in all municipalities of the Island, as well as in many private schools. Under this plan the system has been organized into isix-year elementary schools, three-year junior high schools, and three-year senior high schools.
Total enrollment in both public and private day schools for the year was 322,338, an increase of 6,408 from the preceding year. The picture since 1939-40, however, shows a much more marked increase in total enrollment. The most notable progress during these years has been in the high schools.
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There were 13,306 pupils enrolled in the 31 complete and two incomplete (tenth grade only) senior high schools. The 89 urban junior nigh, schools had an enrollment of 33,665 students, while the 64 rural junior high schools had 11,027 students. The total enrollment of 44,692 in junior high schools was a slight increase over the enrollment of 41,569 in the previous year.
hi the teaching of English, the acquisition of a standard basic vocabulary all over the Island is being emphasized. At junior and senior high school levels, an extensive supplementary reading program has been developed. Various aids were offered to teachers. These included: summer and emergency courses at the University Ox 1 uei to Rico; the publication of exercise books especially prepared for use in Puerto Rico; the dissemination of bulletins and circular letters on different aspects of teaching English; conferences to explain methods of handling the basic vocabulary problem. The work Ox the field assistants in English was extended to include the rural zones.
In Lne with the policy of adapting materials and techniques td the needs of the pupil, bulletins containing information about the social and economic problems of Puerto Rico were prepared. A weekly newspaper supplied junior and senior high school students with reading material for the work in Social Studies. A course in Latin American History was offered in senior high schools, while the. history of Puerto Rico was taught in junior high schools.
The Department of Education had many activities connected with the war. Instruction regarding the program and problems of the Office of Price Administration was given in the schools. Bonds and stamps sold to teachers and pupils in schools amounted to $302,113.60. Hie 1 rade and Industrial Education Division cooperated with the War Manpower Committee in the selection of persons to work on the Mainland.
The school lunch program, formerly carried on by the Work Projects Administration, was transferred to the Insular War Emergency Program in November, 1943. With the help of the Federal Office of Distribution, which contributed most of the food, and of the Insular Department of Interior, 179,000 children were fed at a cost of $3,500,000 to the Insular Government. The War Emergency Program also supplied funds to operate 206 adult schools, and to increase the salaries of rural teachers where teacher turnover was so great as to constitute a serious problem.
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FORTY-FOURTH ANNUAL REPORT
Enrollment in classes for adults was 8,009. Schools for adults were classified in five groups: schools for illiterate students, advanced groups, English groups, sixth grade groups, and eighth grade groups. These schools issued 310 eighth grade diplomas and 542 sixth grade diplomas. Each municipality had at least one adult school.
In 1943-44 extension high schools were operated in 23 localities. The enrollment figure was 2,717, and 277 diplomas were awarded. Extension eighth-grade schools, established in six localities, were attended by 349 persons. Of these, 263 received diplomas.
The Vocational Education Program was further expanded during the year, especially with reference to war needs. Thirty-three pre-employment courses were offered in the War Production Training Program. A total of 1,792 students completed the pre-employment courses.
School farm activities, under the Vocational Agriculture Program, yielded an income of $33,063.02, an increase of $3,417.44 over that for the previous year. The growing Future Farmers of America organization took part in War Bond, Red Cross, and Food for Victory campaigns.
Home economics instruction reached 13,000 children, and the number of Home. Economics teachers was increased. Home nursing courses were taught in Various schools of the Island. There were 68 evening and part time classes on community problems and health education. Victory gardens planted numbered 1,477.
Plans have been made to extend the work of the Vocational Rehabilitation Division to include facilities which will meet the needs of returning disabled veterans, in accordance with Federal legislation. During 1943-44 the services of this Division were offered in 4,542 cases. Of these, 153 were successfully rehabilitated.
Enrollment in Trade and Industrial Education classes reached a total of 2,143, as compared with 1,670 for the previous year. Emphasis was placed on pre-induetion courses for those students subject to induction who possessed aptitudes for and interest in specific army specialists jobs.
One of the principal educational problems of Puerto Rico is the existing inequality in opportunities. Thirteen municipalities, for example, have no rural junior high schools at all. Many other municipalities offer junior high school work in only a portion of their school districts. Educational opportunities are, therefore, extremely unequal, not only as between urban and rural communities, but within each community.
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Of the total school population of the Island, only 50.1 per cent attended school during the year. In rural zones 22.16 per cent of the pupils attended classes all day, while the remaining 77.84 per cent attended only half days under the double enrollment plan. In the urban zones, the situation was somewhat better, although 44.32 per cent of the total urban enrollment attended school for only a half day or less.
More than 50 per cent of the children who enroll in the first grade of the urban schools complete their elementary education. Approximately the same proportion of those entering rural schools stay only through the fourth grade.
At the request of the. Planning, Urbanizing and Zoning Board, the Department of Education prepared a six-year plan, covering the years 1944-45 to 1949-50, designed to extend equal educational facilities to the. entire school population between the ages of five and seventeen years. As submitted to the Board for its consideration, this plan called for an expenditure of $.135,000,000.
DEPARTMENT OF HEALTH
The vital statistics supplied by the Department’s Division of Public Health show no improvement in Puerto Rico’s population problem. Although the birth rate declined slightly (from 40.3 per one thousand to 39.6), the death rate fell from 16.6 per one thousand in the calendar year 1942 to 14.7 in 1943, a new low record. As of July 1, 1943, according to the. Division’s estimate, Puerto Rico had a population of 1,978,541, an average of 576 persons per square mile.
The chief causes of death were diarrhea and enteritis, tuberculosis, and pneumonia, as in previous years. These diseases, with diseases of the heart, nephritis, malaria, and cancer, were responsible for 63.5 per cent of the total number of deaths. Of special intelrest was the decrease in deaths from malaria. In the calendar year 1942, this disease accounted for six per cent of all deaths, while in 1943 it was responsible, for only four per cent of the total.
Communicable diseases increased 15.8 per cent ov’er the figure for 1942. Although the total number of malaria cases (16,032) was 5,359 less than the preceding year, this disease still occupied first place in the list of communicable diseases. An Island-wide epidemic of influenza, which caused 165 deaths and affected 11,746 persons, placed this disease second in the list, with a total of 13,041 cases reported. Syphilis, which last year was in second place, fell to third place with 12,102 cases.
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FORTY-FOURTH ANNUAL REPORT
The only disease, in addition to influenza, which reached epidemic proportions during the year was typhoid fever, which broke out in the rural zone of the municipality of Penuelas and resulted in 43 cases and One death. Immunization and prevention activities included the vaccination of 51,538 persons against smallpox, immunization of 9,207 children from diphtheria, and vaccination of 32,472 per-sons against typhoid fever.
There were 4,830 new cases of tuberculosis found among the 109,068 persons examined in the anti-tuberculosis clinics of the Department. Patients admitted to the five Insular tuberculosis hospitals, with a combined bed capacity of 1,500, numbered 2,296, while 2,286 patients were discharged. A total of 10,539 persons were examined by the 200 M.A. X-Ray Traveling Unit in towns where there were no available radiographic facilities, and the examinations revealed 144 cases of pulmonary tuberculosis. The 100 M.A. Traveling'Unit examined 4,309 persons, most of whom were government employees and University students, and found 27 cases. The educational campaign against tuberculosis was continued throughout the Island by means of moving pictures, posters and lectures.
The Bureau of Malaria Control, in conjunction with the Work Projects Administration and the United States Public Health Service, carried on anti-malaria treatment work on an Island-wide basis, and drainage operations of a permanent character. It also made surveys to determine the location and intensity of breeding areas. A total of 97,934 field Visits were made, and 46,156 blood smears were taken, of which 12.2 per cent were found positive. Treatment was given in all positive cases discovered.
The problem of venereal disease control, heightened by war time conditions, was partially met with the organization of the Puerto Rico Committee on Social Protection, and legislation for the prevention and treatment of venereal diseases. With the cooperation of the Office of Health Education, an educational campaign was carried on, and intensive work was conducted in the biological laboratories of the Department. The coordination of venereal disease services in the public health units will make it possible to care for 20,000 ambulatory patients. This, with the facilities furnished by four detention centers and four rapid treatment centers, will greatly aid in the control of venereal diseases.
Reorganization of the Bureau of Public Health Units, begun in the previous year, was carried through to completion. The result was the establishment of 45 public health units and, under these,
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48 urban public health subunits and 75 rural public health subunits. Rural medical dispensaries, which previously operated independently, were all incorporated in the now organization as rural public health subunits. The Island was re-divided into five districts, each in charge of a medical supervisor.
The eight Public Health Laboratories made 848,909 examinations, as compared with 843,314 in the previous year. The Bureau of Chemistry, which was again organized as a separate entity by legislative action, analyzed 9,501 samples of food, drugs, cosmetics and miscellaneous material. The Bureau also made daily tests to determine the thoroughness of pasteurization in commercial milk plants. Of a total of 7,809 samples of milk examined during the fiscal year, 277 were found to be adulterated.
The school hygiene services of the Bureau of Maternal and Infant Hygiene, Division of Public Health, included the examination of 11,759 children by physicians, the inspection of 73,276 children by mlrses, and the vaccination and immunization of 40,217 children against smallpox, diphtheria, and typhoid fever. The Bureau held 4,062 clinic sessions for prenatal care; gave dental care to 12,944 school children; supervised 1,806 registered, assistant midwives; conducted 11,990 case consultations in clinics; and made 177 home visits on nutrition problems. In December, 1943, the Crippled Children’s Section of the Bureau, which had previously been a part of the Bureau of Maternal and Infant Hygiene, was organized as an independent bureau in the Division of Public Health. Treatment was given in 1,071 cases of crippled children; 583 cases wore hospitalized; and 486 operations were performed.
During the year, the Bureau of Hookworm Control was organized in the Division of Public Health. This Division is concerned primarily with the construction of latrines. A total of 2,321 home privies were constructed, and 834 repaired.
The four district hospitals under the Division of Insular Medical Services cared for 16,136 patients in the course of the year. The new District Hospital at Aguadilla, inaugurated on April 7, 1944, admitted 92 patients during the period from May 3 to June 30, 1944 The Insular Hospital for the Leper, previously under the Division of Public Health, was transferred to the Division of Insular Medical Services at the beginning of the fiscal year. A total of 59 cases were hospitalized.
The new Division of Pubbc Welfare gave assistance in the form of monthly grants (amounting, in practically all cases, to $7.50) in
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FORTY-FOURTH ANNUAL REPORT
24,137 cases, disbursing in this way $2,303,489.94. Programs of Assistance to Enemy Aliens and Civilian War Assistance involved the expenditure of $15,094.61 in Federal funds.
Administrative accomplishments included the establishment of an office of the Division in all but one of the 77 municipalities, and the carrying on of an intensive in-service training program for the benefit of new personnel. This program was especially important in the Bureau of Public. Assistance where few of the employees had received previous training in social work.
The Division handled 2,521 applications for child welfare services. These applications covered 6,658 children of whom. 3,090 were given aid in their own homes or in the. homes of relatives. The others were placed in foster homes or institutions or given other types of assistance.
Improvements were effected both in the. physical plants and the quality of services of the four institutions managed by the Division ■—the Insular Home for Boys, the Insular Home for Girls, the Puerto Rico Institute for Blind Children, and the Insular Asylum for the Indigent Blind.
The Division also made a census of beggars in San Juan, completed a study of the effect of a law regulating the employment of minors, and started the organization of the Confidential Exchange which will serve as a clearing house for cases registered by public and private social agencies.
DEPARTMENT OP INTERIOR
Although the public works program of the Department continued to be hampered by war limitations on materials and lack of trained technical personnel, its normal activities were carried on.
The cost of construction work done in the course, of the year fell from $12,000,000 (in 1942-43) to $3,964,800, of which $2,072,000 came from Insular funds. Of the total, $3,453,800 went for road construction, and $511,000 for other construction work.
The Federal Government, through the Public Roads Administration and the Work Projects Administration contributed $1,792,650 for road construction as against $1,561,150 spent by the Insular Government. Among the most important single projects was the improvement of Loiza Street in Santuree, one of the three main routes out of San Juan. This was a joint project of the Department and the War Emergency Program, and cost $421,379.32.
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Other construction work included 33 fire stations, four school buildings, one retaining wall, and several urban and rural water supply systems.
The problem of road maintenance was complicated by continued heavy military traffic, the torrential rains of October, 1943, which caused damage to roads and bridges estimated at $150,000, and decreased revenues from the gasoline tax which normally provides for this work. In all, $1,418,400 was spent on road maintenance, an average of $466 per kilometer. In cooperation with the Planning, Urbanizing and Zoning Board, an Island-wide traffic census was begun.
Due chiefly to the rapid deterioration of the older public buildings, some of which were put up two centuries ago, the $125,000 provided in the budget for the maintenance of public buildings proved wholly inadequate. The Department was enabled to carry on an adequate program only by virtue of allotments totaling $323,100 from WEP funds, and an appropriation by the Legislature of $50,000 for repairs and improvements to the Insular Psychiatric Hospital. In addition to this hospital, buildings which underwent major repairs included: the Insular Home for Girls, the Anti-Tuberculosis Sanatorium, the Leper Hospital and the Department of Health.
The Department’s duty of public land policing is extremely difficult because of the lack of a definite land policy. A total of 492 infractions of the. Slum Prevention Act were reported and dealt with, in large part, by removal of the houses in question from the public land.
The Bureau of Automobiles and ' Traffic collected $932,250.08 during the year, and registered 27,648 vehicles. The low point in collections from automobile licenses was reached in 1942-43, when collections amounted to $890,103.98.
The Bureau of Mines carried on research work during the year to determine the commercial possibilities of developing known deposits of aluminum, tungsten, cadmium, and nickel. Statistics were compiled on the production of sand, gravel, and stone, and a report on explosives and the ingredients that enter into their composition is in preparation.
Activities of the Bureau of Harbors and Docks are rapidly returning to normal. Dockage fees collected amounted to $110,485.16, a 15 per cent increase over those of the previous year. Collections from wharfage, storage, mooring and other sources amounted to
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FORTY-FOURTH ANNUAL REPORT
$139,393.97, an all time high figure. The number of vessels which docked in Island ports was greater than in 1942-43—1,410 as against 1,097. Aggregate, gross tonnage was 2,958,150 tons. The dredging of the Arecibo harbor, under the direction of the War Department, was completed in May, 1944. Construction expenditures of the Bureau of Harbors and Docks for the fiscal year amounted to $66,714.86.
The Insular Park Commission completed 38 projects during the year in various towns of the Island. These included base ball and track fields and courts for basket ball, volley ball, and tennis.
Considerable time went into the preparation of plans for a construction program, amounting to $23,000,000, to be developed after the war with combined Federal and Insular funds. The proposed program includes the construction of bypasses for the most important cities of the Island, partial relocation and widening of existing highways, and replacement of inadequate bridges. Field data on the various projects planned has nowr been gathered, and final plans will be ready for about half the. work by the end of the present fiscal year.
department of justice
War-connected activities again had a large share of the attention of the Department of Justice. As it has done since the beginning of the war, the Department gave all possible help and advice to military and naval authorities and to Federal and Insular war agencies. Particularly, the Department cooperated in the investigation and prosecution of criminal cases involving the Armed Forces, and in the program to control venereal diseased and prostitution.
A total of 109 formal opinions were rendered during 1943-44 by the office of the Attorney General. Among the more important opinions were the following:
Holding that the appropriation made by Act No. 181 of May 15, 1943, amending Section 14 of Act No. 16 of 1942, creating the War Emergency Program, is a continuous renewable appropriation for any coining fiscal year while the state of war emergency exists or until otherwise determined;
Holding that the Insular Board of Elections is not endowed by law with a right or the power to return to the Local Elections Board “peticiones de inscripcion ” which may appear for some reason or other to be defective, as this is a matter which rests solely with the judicial branch;
Holding that, in accordance with the provisions of Act No. 1 of June 22, 1942, all petroleum products served to
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vessels as ship’s stores during the present state of war and until 90 days after the United States ceases hostilities are exempted from the levy and collection of every excise tax imposed by the Internal Revenue laws of Puerto1 Rico;
Holding that “trust funds” of The People of Puerto’Rico cannot be used for purchasing bonds issued by the Development Company since these bonds do not constitute indebtedness of the Insular Government.
The Attorney General s office made 95 reports to the Governor regai ding bills pased by the Insular Legislature in the regular session of 1944. The recommendations of the Department were followed by the Governor in 90 instances.
Litigation with regard to the five-hundred acre limitation included suits filed in the Supreme. Court of Puerto Rico against five partnerships owning over 60,000 acres of land. In this litigation, important constitutional questions arose which had not been passed on as of June 30. Two consent decrees were approved by the Supreme Court, and one such decree was tentatively agreed upon.
One of the cases handled by the Department which ev'oked wide public interest was that of Francisco Ballester Ripoil vs. Court of Tax Appeals, Treasurer of Puerto Rico, Intervener, in which the United States Circuit Court of Appeals upheld the decision of the Supreme Court of Puerto Rico that: (1) Section 13 of Act No. 31, Laws of Puerto Rico, 1941, (The Income Tax Law) providing for a single joint return by husband and wife, is not invalid in its applications to the income reported fdr the year 1940 and after; (2) the rule for uniform taxation is not violated by the provision for higher rates of taxation at higher income levels; (3) the imposition of a higher rate of taxation on the income, of a resident alien than on the income of a resident citizen is violative of the equal protection clause of the Organic Act; (4) a statute imposing a tax on al] income of a previous year, although one- tax on that income had already been paid, is valid, and that retroactive removal of provisions which are replaced by others limiting or eliminating deductions from gross income and retroactive increases in existing income tax rates, are valid.
A large number of tax cases were brought against the Treasurer. On June 30, 1944 there were 999 cases before the Court of Tax Appeals, many of which involved the Income Tax Law.
At the end of the fiscal year, there were pending in the. Insular and Federal courts 1,923 civil cases in which the People of Puerto Rico had an interest. This compares with 2,031 such cases pending
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FORTY-FOURTH ANNUAL REPORT
on June 30, 1943. The number of new cases initiated, during the year was 819, while 927 cases were decided.
The Registries of Property handled a total of 39,704 documents, of which 36,723 were recorded, 2,981 withdrawn or refused, and 1,584 left pending.
Penal Institutions
Despite problems of personnel and the increased cost of food, the Insular Penitentiary and seven district jails under the Department’s jurisdiction functioned normally. The daily average number of prisoners during the year was 2,617, as compared with 2,712 for the previous year. On June 30, 1944, there were 2,758 prisoners serving sentences or awaiting trial. The total expense of maintaining the Penitentiary and district jails was $393,779.76. Deducting the value of the services of the prisoners, each prisoner was maintained at a net cost of 33 cents per day.
In the self-sustaining plan of the Penitentiary, farm work was intensified with special emphasis placed on the growing of products which will aid in providing a more balanced diet for the prisoners. Vegetables and fruits valued at $6,230 were produced. In the shops of the Penitentiary $32,670.59 worth of articles were manufactured.
At the close of the year, 211 minors were in the Industrial Schoo] in Mayaguez, as compared with 231 at the end of the previous year. Academic instruction was given to 181 boys, and the remainder 'received instruction in various special skills. The school produced $12,685.09 in agricultural and industrial products during the year.
There were 50 girls in the Industrial School for Girls in Ponce on June 30, 1944. Eight girls graduated at the end of the year from the six-grade academic course (which is recognized by the Department of Education). Others received training in sewing and glove manufacturing.
During the year, 191 boys entered the Juvenile Home in San Juan, and 170 left it. On June 30 there were 58 boys at the Institution.
The Advisory Parole and Pardon Board handled 849 petitions for executive clemency in the course of the year—or 203 more than in the previous year. Of the total, 289 cases were disposed of and 560 were pending at the end of the year. Favorable recommendation was made to the Governor on 116 cases, 97 were unfavorably recommended, and no action was taken on 75 cases, either because
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of withdrawal of the petition, or expiration of the term of sentence. The Governor granted the clemency asked for in 75 of the cases which were favorably recommended to him.
Courts
Supreme Court: Of the 1,123 cases handled by the Supreme Court, 924 were decided, 57 were pending decision, and 142 were pending “perfection of appeal” on June 30.
District Courts: During the year, the District Courts handled 23,001 civil cases—or almost 3,000 more than in 1942-43. Of these, 9,313 were decided and 13,688 were left pending. Felony cases handled numbered 4,442 of which 1,987 were decided. Decisions were handed down in 1,372 of the 2,703 misdemeanor cases. The courts disposed of 2,174 appeals in criminal cases from municipal and justice of the peace courts.
Municipal Courts: The Municipal Courts processed 16,368 civil cases and 160,162 criminal cases. Disposition was made of 5,453 civil and 130,935 criminal cases. At the end of the year there were 10,915 civil and 29,227 criminal cases pending action.
Justice, of the Peace Courts: A total of 18,267 cases was brought before Justice of the Peace Courts, of which 13,721 were concluded and 4,546 cases were still awaiting action.
DEPARTMENT OF LABOR
The work of the Department of Labor falls principally into two categories: (1) the promotion of amicable relations between workers and employers in order to maintain industrial peace, and to encourage increased production and employment opportunities, and (2) the enforcement of labor laws.
In the maintenance, of industrial peace the Mediation and Conciliation Service, which began to function in March, 1943, intervened in 181 disputes affecting 143,517 workers. Sixty-three of these disputes were' strikes, involving 27,622 workers. The Service also cooperated in the negotiation of 49 collective agreements. This constituted only part of the total number of such agreements entered into during the year. Others w7ere negotiated with the assistance of the Federal Conciliator, and many were signed by unions and employers through their own initiative.
The Bureau of Labor Statistics conducted a survey of employment and labor conditions in more than 5,000 establishments
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FORTY-FOURTH ANNUAL REPORT
representing all economic activities of the Island. The study reveals the number of workers in each enterprise and gives information concerning working conditions. Monthly statistical reports were issued on the employment situation in the Island, and a census was made of all enterprises in the urban zone and in a portion of the rural zone of 25 representative municipalities. This census will provide the base for the computation of monthly employment and pay roll indexes for the different industries. A cost-of-living index, which is a measure of the effectiveness of Federal action to control inflation, is prepared monthly by the Bureau.
The Employment Service of the Department made a total of 1,483 placements, an increase of 25 per cent over the preceding year. The scope of its work was broadened to cover registration of the unemployed in 10 additional cities and towns.
The Children’s Bureau issued 2,126 work permits and age certificates. This was 30 per cent more than in the previous year. As a result of the 16-year age minimum provided by the Insular Child Labor and the Federal Fair Labor Standards Acts, the number of special permits to minors 14 and 15 years old was reduced from 148 to 100. Permits for vocational training were granted to 182 junior and senior high school students. A total of 7,986 inspections were made of all kinds of establishments, in order to determine compliance with the provisions of the law regulating the employment of minors.
Responsibility for the enforcement of labor laws falls chiefly on the Industrial Supervision Service. In the course of the year inspections were made of 16,205 establishments and working places which had 129,360 employees. Of the 6,293 complaints considered, 4,374, including 3,593 wage claims and 781 share-cropping claims, were settled. Collections in the settlement of claims amounted to $152,729.63, only $13,861.73 of which resulted from court action. The record for the year represents increases over 1942-43 of 33 per cent in the number of cases handled and of 61 per cent in the amount of money collected.
Under the Industrial Home Work Law, the Service issued permits to 505 contractors and subcontractors, and gave out 8,527 home work certificates.
During the year, the Legal Division received 5,038 claims involving a total of $629,319; dealt with 786 share-cropping cases, of which 743 were settled, 22 dismissed, 16 withdrawn, and 5 are still pending; investigated and prosecuted 41 cases for violation of labor laws;
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prepared and filed 164 cases in the Insular Courts: 150 in Municipal Courts, and 14 in District Courts.
The Homestead Division granted 1,286 titles of ownership. Of this number 394 were for houses and lots, aggregating 7,614 square meters, while 892 were for small farms, with a combined area of 8,809 cuerdas. The persons to whom the titles of ownership were granted were tenants of government farms and members of workers’ settlements who, after proper investigation, were found to be unable to pay the stipulated rent.
A program of workers’ education was begun in October, 1943 under the. newly created Bureau of Publications and Workers Education. In the course of the year, 481 short courses fol* workers were organized in 70 out of the 77 municipalities in the Island. A total of 19,591 men and 2,737 women enrolled in the courses, which were attended also by 1,085 visitors. Lectures were given on problems directly affecting the workers.
Agencies
AGRICULTURAL EXPERIMENT STATION (University of Puerto Rico)
The Agricultural Experiment Station continued to stress a program aimed at immediate increase in food production in the Island. This program consisted primarily of: (1) development of food crop varieties superior in yield and nutritional value and resistant to disease; (2) the improvement of cultivation and marketing practices; (3) conservation and preservation of seeds and other propagating material; and (4) the propagation of selected seeds to provide necessary initial stocks to farmers and government agencies.
Research was conducted on varietal development and adaptation, and on best cultivation practices, for sweet and Irish potatoes, field beans, soybeans, corn, tomatoes, onions, tanniers, peppers, cucumbers, pumpkins, and fruits of various kinds.
New varieties of field beans and of corn developed at the Station yield 25 per cent and 10 per cent more, respectively, than previous varieties. A new variety of sweet potato, superior in both yield and nutritive value, was selected from seedings of the native mameya variety. A new variety of peppers, resistant to the mosaic disease, was developed, but is being perfected before release to commercial
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FORTY-FOURTH ANNUAL REPORT
planters. Some native pumpkins, tolerant to the mosaic disease, are being selected for improved quality, shape and nutritive value.
Increase in the productive resources of agriculture and improvement in the distribution of agricultural products was the long range program of the Station. Funds for the establishment of two new sub-stations, one in the Lajas Valley, the other in Vieques, were secured. These new sub-stations, when established, will add very considerably to research activities.
The work on sugar cane has demonstrated that PR-903, M-317, M-275, POJ-2878 and POJ-2961 are the best all around varieties for the Island. The usual practice of applying fertilizer to sugar cane on top of the soil was definitely established as efficient. Rapid progress was made on the development of new cane varieties which are resistant to mosaic.
Results obtained from an experiment on nine crops of coffee, comparing the Puerto Rican and the Columnaris varieties, proved definitely that the latter is a much heavier yielder. Fertilizer experiments with coffee showed most marked response to phosphoric acid and nitrogen, an additional yield of 318 pounds of green coffee per acre resulting from each additional 100 pounds of phosphoric acid applied.
In growing cotton on the north coast, nitrogen was found to be the only fertilizer which could be used profitably. Tests to determine the best variety of regular Sea Island cotton, and studies for control of the pink bollweevil, were continued.
Progress was made in the development of foundation herds of native swine and cattle—an essential first step in- the development of new breeds of efficient production under local conditions.
A study of the commercial activities of fishermen and of fish marketing throughout the Island, was completed. The Eastern coast was found to offer the best possibilities for the development of fishing. Other findings were that marketing practices are extremely primitive, and that the lack of a continuing supply of fish is the principal marketing problem.
An economic study of Vieques Island resulted in a program for the use of Navy lands in that Island.
Large quantities of seeds of superior varieties were produced and distributed to farmers and government agencies. Many fruit trees and live plants for home gardens in the metropolitan area were also supplied.
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BOARD OF ELECTIONS
The holding of registrations was the big job of the year for the Board of Elections.
New registrations were held throughout Puerto Rico on January 15 for women, and on January 16 for men. Applications for registration were presented by 278,342 persons, of whom 134,169 were women and 144,173 men. Registrations were conducted by 1,231 Boards. Provisional lists furnished to the local committee of each political party, as provided by law, contained the names of 575,379 electors.
The number of incomplete or defective registrations increased very considerably over that in 1940, reaching a total of 87,546. In 62,000 cases the defect was the lack of the signature of one member of the Board to the oath.
As in 1940, the Insular Board of Elections refused to permit the return of application documents to the local Boards, and declared all defective registrations void. A mandamus was filed in the Supreme Court to compel the acceptance of such registrations but the Court split two to two, and the mandamus was denied. Similar cases were then filed in every District Court in the Island. One court rendered a decision ordering the Insular Board of Elections to accept the registrations as valid. This decision, upon appeal to the Supreme Court, was reversed. Of those whose registrations were defective because, of the absence of the signature of a Board member to the oath, it was possible to save from disfranchisement more than 5,000 persons who had voted in 1940.
Preliminary estimates indicate that the voting lists will contain approximately 720,000 names.
CARNEGIE LIBRARY OF PUERTO RICO
The Library played its part in the recreational program offered to members of the Armed Forces stationed in the training camps of the Island. Interlibrar.v loans were, made to the Antilles Headquarters of the Army Library as well as to Fort Buchanan. A total of 2,650 books circulated in traveling libraries which, in addition to serving the Armed Forces, brought reading material to schools and rural residents. A Parcel Post service was particularly helpful to high school students throughout the Island.
Total circulation of books for the year amounted to 42,524. Accessions numbered 2,354 volumes, of which 1,332 came as gifts and 1,022 were purchased. Special attention was given to increasing the
28
FORTY-FOURTH ANNUAL REPORT
collection of children’s books. Supplementary Volumes were added to encyclopedias, improving the value of the reference department to the public in general and to students in particular.
Magazine and newspaper titles totaled 193, exclusive of local publications and official journals and reviews.
CIVIL SERVICE COMMISSION
A new Chairman of the Civil Service Commission was appointed in May, 1944. He found that of approximately 20,000 Insular Government positions, about 9,000 were classified Civil Service appointments, and about 11,000 were as yet unclassified. The Insular Department of Education and the Insular Police had the two largest groups of unclassified positions—7,200 teachers and 1,800 policemen.
The Commissioner and his staff immediately began the task of drafting new job specifications for every type of work done in the Insular Government. The principal objective was to replace obsolete classifications, and to supply classifications where none existed.
During the fiscal year, 38 different types of examinations were held for Civil Service positions. As a result of these examinations. 3,706 people were given Civil Service classifications, and were placed on the rolls of eligibles.
CIVILIAN DEFENSE
As the theatre of war shifted away from the Caribbean, Civilian Defense began terminating its activities. The chief business of the year was the redistribution of work and materials to volunteers and Insular agencies.
In most areas, directors who were formerly paid continued in their positions on a volunteer basis. The Public Relations Office maintained publicity programs under a volunteer chief. The Social Services, Food and Housing Plans, and Training Divisions were eliminated.
The Insular Department of Interior, Municipal Public Works, and the Water Resources Authority took over the activities of the Defense Corps and Services.
The construction of 34 fire stations in different municipalities went forward under the supervision of the Department of Interior. As stations were completed, they were taken over by the Insular Fire Department. All fire fighting equipment belonging to the Federal Government, heretofore operated and maintained by Civilian
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29
Defense, was placed under the jurisdiction of the Insular Fire Department.
Ambulances, medicines, and supplies procured with Insular Funds were transferred to the Insular Department of Health. The Blood Bank, with its equipment, was transferred to the School of Tropical Medicine. A total of $5,307.07 worth of medical supplies allotted to Civilian Defense in Puerto Rico by the Federal Government was sold to hospitals, clinics, and doctors.
1 he Insular Department of Interior is in the process of. destroying air raid shelters, with funds appropriated by the War Emergency Program.
The Child Feeding Program of the Citizens Service Corps extended its activities throughout the Island. A campaign to raise funds for the support of milk stations was successful, and at the dose of the year 44,274 children were being fed daily at 399 stations.
COMMITTEE ON DESIGN OF PUBLIC WORKS
The Committee on Design of Public Works was established by the Insular Legislature in 1943. Its purpose is to translate into working plans the program of capital improvement projects prepared by the Puerto Rico Planning, Urbanizing, and Zoning Board, and to coordinate the plans of the various Insular Agencies for post war development. It is financed by a $100,000 Trust Fund created by the Legislature.
The Office of the Committee was set up in August, 1943, and reorganized in April, 1944, when the activities of the Committee were divided among the following eight sections: (1) Finance and Administrative Section; (2) Programing Section; (3) Land Section; (4) Specialized Designs Section; (5) General Designs Section; (6) Utilities Engineering Section; (7) Civil, Structural, Estimates, and Costs Section; (8) Architectural and Engineering Specifications Section.
Among the most important, projects undertaken during the first year of the Committee’s activities was the selection of sites throughout the Island for district hospitals, and the completion of a substantial part of the plans for the hospital at Ponce. Preliminary drawings have been made for the hospitals at Mayaguez, Caguas and Guayama as well as for the Insular Home for Girls at San German. Other projects in the preliminary stages of planning include: central laundries for the North and South of Puerto Rico, exten
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FORTY-FOURTH ANNUAL REPORT
sions to tuberculosis sanatoria, and a dormitory for girls at the University of Puerto Rico.
Housing, one of Puerto Rico’s most urgent needs, was the chief concern of the General Designs Section during the year. Realizing that public development, ownership, and operation of industries for the production of basic building materials on a non-profit basis is essential to a broad housing program, the Committee prepared a plan which it called the Zero Plus Housing Plan. This provides for the use of local materials in so far as possible and is based on the premise that public development must be: (1) on a laige scale; (2) tax exempt; (3) based on long-term financing at low interest rates; and (4) under public control to prevent deterioration and speculation.
As of June 30, 1944, a total of 330 Insular and Municipal Government projects were in process of development by the Committee. The total cost of these projects is $58,468,028.
COMMUNICATIONS AUTHORITY
No important changes in the telegraph and telephone systems of the Authority were possible due to the war emergency and resulting restrictions upon the use of materials ana equipment. How ever, service increased in volume, improvements were made, and further acquisitions of buildings and property carried out.
With materials and equipment at hand, general repairs to the telephone lines were effected throughout the Island. In many cases, this repair work led to the elimination of circuits strung through foliage along highways. Studies and proposals were completed for the establishment of automatic telephone exchanges when equipment is available.
During the year the Authority was put in charge of the telephone service rendered by the Porto Rico Telephone Company to the different departments and agencies of the Insular Government. New regulations governing this service, which became effective May 1, 1944, can reduce the telephone expenditure of the Insular Government by about $10,000 per annum, it is estimated.
The franchise of the Porto Rico Telephone Company expired in September, 1944. With a view to acquiring the properties of the Company, a three-man board of appraisal was set up in October, 1943, and completed its work in April, 1944. The Legislature, however, failed to authorize the transaction. Approval was voted by the Senate, but the House of Representatives passed a resolution
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31
postponing consideration of the proposal until after an investigation to be made by a special legislative commission. At the close of the year, this commission had not yet made a report.
DEVELOPMENT COMPANY
1 ae 12 months from July 1, 1943 to June 30, 1944 was a period of rapid expansion in the activities of the Puerto Rico Development Company
The chief accomplishment was the virtual completion of the glass container plant, construction of which was begun in May, 1943. Installation of machinery and equipment was well under way by the end of the year. Most of the forming machines were in place by that date. Difficulties encountered in connection with the construction contract led to cancellation of the contract early in 1944, and the completion of the plant was undertaken, on a fully reimbursable basis, by the War Emergency Program.
The total investment of the Development Company in the Puerto Rico Glass Corporation, as of June 30, 1944, totaled $2,276,890. Capital stock issued by the Corporation as of that date amounted to $2,500,000, of which private investors held $223,110.
The second major activity of the Development Company was the creation of the Puerto Rico Pulp and Paper Corporation in April .1944, and the award of a contract in the same month, to the War Emergency Program, for the construction of a paper mill on a site adjacent to the glass plant. Actual construction was begun in May, 1944. Two-thirds of the production of the mill, which will have a yearly capacity of 12,000 tons, will be used for the production of corrugated paperboard boxes to package bottles manufactured by the Puerto Rico Glass Corporation. The paperboard will be made from a mixture of waste paper and bagasse. As of June 30, 1944, the investment of the. Puerto Rico Development Company in the paper mill amounted to $379,386.32. The erection of the mill and the machinery will cost about $l,2OO,O0O.
Two important contracts in connection with the development of manual or semi-mechanized industries were also entered into during the year. One was a contract with the Companfa de Ceramicas de Puerto Rico, Inc., for the operation of its plant as an experimental activity for six months. The other was a contract with Fine Woods Manufacturers, Inc., for the development of a complete line of furniture. The Company was also instrumental in interesting other Continental firms in the establishment of semi-mechanized industry
FORTY-FOURTH ANNUAL REPORT
among which was the Red Cape Leather Products Corporation at Cabo Rojo. Continental markets for bamboo, needlework, fibre and other products manufactured in Puerto Rico were explored, and local producers were given advice as to improved designs, methods of operation, and marketing.
The Development Company continued to promote opportunities for training technicians. Eight graduate students were sent to the Massachusetts Institute of Technology, which has cooperated fully in the industrial training program. Twelve chemists were sent to the Louisville plant of Seagrams and Sons Inc., to study modern fermentation processes, in connection with the food yeast project.
On May 11, 1944, the Legislature of Puerto Rico appropriated $500,000 for the purpose of acquiring and operating a sugar mill and liquolr industry in Vieques as part of a plan for the economic rehabilitation of this island. Preliminary action toward this objective had been taken by the end of the year.
Funds for the activities of the Development Company were secured through Legislative appropriations, and by borrowing from banks. On May 25, 1944 the Company was authorized by its Board of Directors to issue Temporary Financial Collateral Bonds, with the Puerto Rico Development Bank acting as fiscal agent. Bonds in the amount of $2,000,000 had been issued as of June 30, 1944.
EXTENSION SERVICE
Extension Service continued to emphasize the production, preparation, and conservation of food.
Through Federal funds assigned to the Extension Service in Feb ruary 1944, an Emergency Food Production Assistant was appointed to work in each of the 36 Extension Districts of the Island. Assistance was given to more than 14,000 families in the cultivation of Victory gardens.
To prevent waste of the foods thus produced, Extension Home Demonstration Agents intensified their work of teaching rural women more diversified and better methods of food preparation. With the aid of Preservation and Canning Assistants appointed with Federal Emergency Funds, 19,244 cans, 3,274 pint jars, 5,401 quart jars, and 1,225 pounds of food were preserved. At the same time a campaign was carried on to assure maximum use. of home grown and preserved foods.
In cooperation with the War Emergency Program, six industry centers wrere established to train women and girls in various crafts.
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At. these centers, a total of 5,040 articles, valued at $2,988.31, were made. After training, the women are available for transfer to enterprises of the Puerto Rico Development Company. In addition to the wonk with the War Emergency Program, Instructors and Home Demonstration Agents trained boys and girls in making articles from native fibers and in the development of needlework techniques. The value of products sold by farm families in this program was more than $6,000.
Extension Field Personnel assisted in setting up 76 milk stations,, feeding over 5,507 children, in rural areas throughout the Island.
Other activities of the Service included health and hygiene instruction, the distribution of games and equipment for recreation, extension classes to give specialized training to farmers and the dissemination of material from the Office of Price Administration and Office of Distribution.
FIRE SERVICE
The Insular Fire Service dealt with 75 fires, which caused damage estimated at $817,188. The largest number of fires (29) took place in the San Juan district where damage amounted to $186,374. The Arecibo district had only three fires, but suffered damage to the extent of $207,000.
At the close of the year, the Service had 34 fire stations throughout the Island. Many of these stations were constructed for the Office of Civilian Defense, and were turned over to the Insular Fire Service for operation in the course of the year.
The rolling equipment of the Service included two modern fire trucks and 33 pumpers. The pumpers which were transferred from, the Office of Civilian Defense were mounted on second hand trucks most of which were in poor condition. Reparation work undertaken by the regular personnel of the Service resulted in salvaging 21 of these trucks.
To offset the handicap of deficient and uncertain water supply and of inadequate hydrant facilities, the Service sought to perfect techniques for using the sea for a source of supply. Emphasis was placed on this problem in fire drills and a special booster pump was, devised.
Lack of personnel limited the scope of inspection work.
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FORTY-FOURTH ANNUAL REPORT
GENERAL SUPPLIES ADMINISTRATION
Since no new war problems occurred, the work of the General Supplies Administration proceeded along lines previously established.
The principal activities of the Administration centered about the allocation of shipping space, the compilation of statistics, the importation and distribution of lumber, procurement and distribution of coffee, and the enforcement of a system of priorities for the purchase of fuel oil.
The system of allocating shipping space, established in 1942, was continued but, due to the fact that there were more vessels available, it was possible to obtain almost all kinds of commodities needed by the civilian population of Puerto Rico. After careful consideration of all factors involved, preference was given to the most essential items.
During 1943-44, a number of commodities which had been imported by the War Food Administration were turned over to commercial procurement, and consequently became subject to cargo space approval by the General Supplies Administration.
In the course of the year, 72,674 requests for cargo space, allotment, covering a total tonnage of 416,472.51 tons, were approved. Monthly reports of stocks on the Island of the most important food commodities were made throughout the year. In allotting space, the Administration gave particular attention to items, which, by increasing local production, would not only save shipping space, but contribute to the devlopment of Puerto Rico, and increase employment.
Under the direction of the Administration, and in collaboration with the War Production Board, the use of lumber for urgent repairs and essential new construction was regulated. A stock pile of construction materials for use in case of a hurricane, valued at $400,000, which had been created early in 1943, was liquidated in November when the hurricane season was considered over.
When a shortage of coffee threatened the Island, steps to import and distribute coffee were taken. The rationing and allocation of kerosene were handled by the Administration until the establishment of a method of distribution by the Office of Price Administration. A total of 3,998 permits were issued under the order governing the use of Bunker “C” Fuel Oil.
The General Supplies Administration also fostered the development of Victory Gardens by contributing $12,923.50 worth of seed
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to the Department of Agriculture, which, with the cooperation of the Agricultural Extension Service, carried on the AVar Emergency Program for Production and Conservation of Food.
As a result of commercial operations, the income of the Administration for the fiscal year 1943-44 exceeded administrative expenditures by $2,255.07. As of June 30, the working capital of the Administration was $513,213.19.
HOUSING AUTHORITY
The Federal Housing Authority made no loans except for defense housing projects, for which Puerto Rico could not qualify, and, consequently, no new housing projects were developed. Two loan contracts for the construction of projects at Catano and Guayama, already in effect, were also held up by the Federal Public Housing Authority. In . view of this situation, the Puerto Rico Housing Authority reduced its personnel to the number necessary for the operation of completed projects, although it retained a few technical men for post-war planning.
The terms of the Loan and Annual Contribution Agreement with the Federal Public Housing Authority require elimination of one unsafe or unsanitary dwelling for each new dwelling made available for occupancy. With the cooperation of the Insular Department of Health, the Puerto Rico Housing Authority completed this required elimination in all but three municipalities. A shortage of houses and lack of materials for repairs made such elimination impossible in Rio Piedras, Arauco, and Arecibo, and deferment of elimination until after the war was, therefore, requested in the case of these three towns.
The social activities of the Authority, carried out by the Central Office and the Management Aides, with the cooperation of civic and social organizations operating on the Island, included the organization of tenants’ associations in nine projects, the establishment of women’s clubs in five projects, the operation of 4-H Clubs for boys and girls, the establishment of school lunch rooms in seven projects, and the establishment, with the cooperation of the War Emergency Program, of day nurseries in four projects.
The Insular Legislature granted $2,200,000 to the Authority for the purchase of land and the preparation of plans and specifications for post-war projects. Negotiations for the purchase of land in all municipalities have, been initiated. The annual rotating fund
3Q	FORTY-FOURTH ANNUAL REPORT
of $500,000, provided by Legislature in 1942, will be used at such time as construction work is again possible.
The Authority approved a Slum Freezing and Clearance Program to be developed in the municipalities within its jurisdiction. On the basis of a slum survey and of estimated population growth throughout the Island, a preliminary project application was submitted to the Federal Public Housing Authority, providing for the construction of 39,000 houses at an estimated cost of $98,000,000.
INDUSTRIAL COMMISSION
When the Industrial Commission was created in 1935, with the establishment of the State Insurance Fund, it was authorized to determine the amount of the debts of the Workmen’s Compensation Trust Fund from August 13, 1928 to June 30, 1935. The Industrial Commission was also given power to liquidate all claims pending action, which had originated under previous compensation acts. The Bureau of Liquidation was created for this purpose and, with the exception of the collection of premiums which for the most part appear uncollectable, the work of the Bureau is now completed. A bill introduced at the 1944 regular session of the Legislature, aiming at the final disposition of all old claims, failed to pass.
A total of 1938 cases were registered with the Commission during the past year. These, with 1,076 cases pending from, the previous year, brought the total to 3,014 cases, of which 2,860 were decided during the year. Only 154 cases, therefore, were pending on June 30. In addition, 346 cases were reconsidered during the year. Public hearings totaled 1,090 and the Commission held 30 administrative sessions.
The Medical Advisor to the Commissioners rendered 1,634 written reports to the Commission, and made hundreds of verbal reports at the public hearings.
During the year, 59 cases, three of which were pending from the previous year, were appealed to the Supreme Court of Puerto Rico. Forty of the decisions of the Industrial Commission were confirmed by the Supreme Court, 18 were reversed, and one. appeal was withdrawn.
The most important decisions of the Commission, thus far, have been published in nine volumes. Of late, the daily press has carried a summary of the more important decisions as well as of Supreme Court decis’ons on questions of workmen’s compensation.
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On November 10, 1943, rules of procedure for the Commission were approved, one of which requires monthly publication in the press of the calendar of cases to be heard the following month.
The Medical Advisor of the Industrial Commission made 1,498 medical examinations and rendered a report on each.
INSTITUTE OF TROPICAL AGRICULTURE
During the second year of its existence the Institute of Tropical Agriculture was- able to initiate fundamental research in the field of plant physiology, as well as to continue research in soil minerology and tropical mycology.
In its role as an inter-American station of investigations in tropical agriculture, the Institute was consulted by many institutions, museums, and scientific societies in Latin America. It received distinguished visitors from the United States, Spain, Mexico, Colombia, and the British West Indies. The Director attended meetings called by -the Anglo-American Caribbean Commission in the Virgin Islands and the British West Indies, and was appointed Chairman of the Section on Agriculture, Nutrition, Fisheries and Forestry of the Caribbean Council, created by the Commission.
In the survey of the southwestern region of Puerto Rico, the Lajas Valley, being conducted under the direction of the Puerto Rico Planning Board, the Institute served as a coordinating factor among the cooperating agencies of the Insular and Federal Governments. An economic survey of the farms of that region was made to determine the average crop production and possibilities under irrigation. Studies are planned for crops other than sugar cane in the Lajas Valley. The vegetation and sugar cane development under irrigation were studied in the “El Anegado” zone.
Research begun on the hormone mechanism of tropical plants reached conclusions in regard to the auxin content of sugar cane. Practical application of the results of this research was made on various plants and fruit trees.
The number of specimens in the mycological herbarium reached 5,000. Every effort is being made to complete the Puerto Rican collections.
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FORTY-FOURTH ANNUAL REPORT
INSURANCE
The volume of insurance premiums and losses paid for the calendar years 1942 and 1943 are shown in the following table:
PREMIUMS RECEIVED
Coverage	1942	1943	Per cent
Fire and Fire and Marine (adjusted)	 Casualty and Miscellaneous	 Life and Health	 Totals (adjusted)		$5, 861,717.59 1,308,833.86 2, 206,296.10	I $2,977,450.83 1,182,194.06 2, 788,802.24	50.79 90.32 126.40
	$9,376,847.55	$6,948, 446.63	74.10
Losses Paid Fire and Fire and Marine	 Casualty and Miscellaneous	 Life and Health	 Totals		$2,230,505.49 301,064.83 341,385.66	$377,130.18 306, 219.18 680,114.19	30.36 101.71 125.62
	$3,072, 955.98	$1,663, 463.55	54.13
Thirteen and one half million dollars of new life insurance was written in 1943 as compared to $8,987,543.49 in 1942.
The storm of near-hurricane proportions which passed over the western part of Puerto Rico in October, 1943, was responsible for an increase of $21,063.43 over the amount paid for hurricane insurance losses in 1942. Losses paid amounted to approximately five per cent of the premiums received during the year.
Earthquake insurance written exceeded that of 1942 by 39.11 per cent. Loss payment was slightly ov'er four per cent.
Automobile fire, property damage, and collision insurance continued to be. affected by gasoline and tire rationing. The volume of premiums received came down to approximately 52 per cent of that for 1941. Losses amounted to 21 1/3 per cent of the premiums received.
Fire losses were considerably higher in 1943 than in 1942, but the volume of premiums received exceeded the million dollar mark for the first time since 1928. Losses paid amounted to 28.9 per cent of premiums received.
Up to June 30, 1944, only one hospital plan had been organized under the act of 1942. This is the Puerto Rico Hospital Service Association which, on June 30, 1944, had 8,199 contracts covering a total of 18,036 persons. Of this total, 13,200 are covered for both hospital and medical services, the remainder for hospital services only.
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During the fiscal year 1943-44, 65 companies received authorization to transact insurance business in the Island. Forty-three were organized under the laws of the United States, 14 under the laws of Great Britain, seven under the laws of Canada, and one under the laws of Puerto Rico.
On June 30, 1944, deposits in trust for the protection of policy holders in Puerto Rico amounted to $1,901,000.
ISABELA IRRIGATION SERVICE
At the end of the fiscal year, 90 per cent of the construction work on Hydroelectric Plant No. Three had been completed. Final cost of this project will exceed the original estimate by approximately $50,000, and this supplemental sum was appropriated on May 15, 1944.
Due to the severe drought, the run-off into the reservoir of the Isabela Irrigation Service was only 76 per cent of the average for the previous 15 years. This, and the fact that water service to power plants was often suspended during the year in order to line the Main Canal with concrete, accounts for a drop of nearly 3,900,000 kwh. in power production. Total power generated and purchased amounted to 8,852,375 kwh. Gross sales of electric energy came to $248,236.36.
Of the total draft of 59,897 acre-feet of water from the reservoir, 3,900 acre-feet, or 2.6 times as much as last year, were, delivered for irrigation purposes, 2,442 acre-feet were sold under direct orders, and 3,108 acre-feet were served to municipal water-works and for industrial and domestic purposes.
Irrigation and hydro-electric investigations were initiated in the municipalities of Hatillo, Camuy and Quebradillas. Improvements to the spillway channel of the Guajataca reserv'oir, financed with funds of the War Emergency Program and the Isabela Irrigation Service, were completed in November, 1943. By the end of the year, 11,000 lineal feet of the Main Canal had been lined with concrete.
LAND AUTHORITY
The outstanding event in the land program during the year was the operation of the first six proportional-profit farms by the Land Authority. These farms, which were established on land purchased in the previous fiscal year from the Central Cambalache, were planted to sugar cane. A net profit of $53,656 was realized, despite the fact that the year was extremely difficult for sugar producers, because
40	FORTY-FOURTH ANNUAL REPORT
of the drought and the continued scarcity of fertilizers and equipment. Of the net profits, the sum of $46,891.98 has been set aside for distribution to the workers employed on the farms, while $6,763.98 will go to the lessees of the farms. In the course of the year, the Land Authority acquired 6,246.61 cuerdas of land, for the purpose of Title V of the Land Law {Agregado program), at a cost of $590,262.34. This represented the major land acquisition of the year. As of June 30, 1944, a total of 23,969 cuerdas of land, for all purposes of the Land Law, had been acquired by the Authority, at a cost of $2,795,029. This total does not include 5,639 cuerdas of land of the Compama Azucarera del Toa, for which negotiations to purchase were practically completed on June 30.
In developing the program for Agregados (landless farm workers), the Authority established 38 rural communities and distributed parcels of land ranging from one-fourth cuerda to three cuerdas to 5,108 agregado families, representing about 25,000 persons. As of June 30, a total of 9,021 parcels of land had been distributed, benefiting approximately 46,000 persons. In the established communities, plots were reserved for churches, vocational schools, 4-H Clubs, stores and other public services.
The amount of subsistence crops already planted on the agregado plots indicates that those who have received land are willing and able to till it. At the close of the year, subsistence crops valued at $206,268 were being cultivated.
Under the provisions of Section 25 of the. Land Law, 89 individual farms were created and 75 of the farms, comprising 1,194 cuerdas of land valued at $93,834, were assigned to farmers during the year.
In addition to the lands of the. Compania Azucarera del Toa, 37,758 cuerdas of land, with a value of $3,550,066 were appraised during the year.
MINIMUM WAGE BOARD
At the beginning of the year, Mandatory Decrees issued by the Board, were in effect for the leaf tobacco industry, the sugar industry, and hospitals, clinics and sanatoria. Mandatory Decrees covering the beer and soft drinks industries and hotels, restaurants, bars, and soda fountains were issued during the year.
The Board set rates of 30 cents an hour for the beer industry, and 25 cents an hour for the soft drinks business. In the case of
OF THE GOVERNOR OF PUERTO RICO	41
the latter industry it was prescribed that the rate will be raised to 30 cents an hour six months after the end of the war. An eight-hour day and 48-hour week were ordered with double time for every hour in excess of either the daily or weekly maximum. Minimum wages prevailing in these industries prior to the Board’s Decree were 15 and 10 cents an hour respectively.
The Decree for hotels, restaurants, bars, and soda fountains divided the Island into two zones, and established rates of $10 per week for the first zone (comprised of the larger cities), and $8.50 a week for the second zone. The Decree permits employers to deduct for meals or lodging furnished, at rates fixed by the Board—■ but 111 no case more than 60 cents a day. The Board also fixed standards for lodging and food which the employer must meet, if he charges for these services. Employees may accept or reject any or all of such services. The. minimum wage prevailing in this industry prior to the Decree, including the value of services furnished by the employer, was found to be $3.50 per week in the first zone, and $3 per week in the second. An 8-hour day and 48-hour week were established, with double, time for overtime.
Amending the Decree relating to hospitals, clinics and sanatoria, the Board set a basic monthly wage of $25, with breakfast, lunch, dinner, room and laundry furnished free.. When any of these various perquisites are lacking, the Decree provides that the basic monthly wage is to be increased by the value, of services not received at prices established by the Board. In case no such services are donated, a monthly wage of $42 was fixed.
Regulations adopted by the. Board permit employment of handicapped persons at rates of pay below the prescribed minimum wages, but in no case less than 50 per cent of the minimum. The Board also authorized a graduated monthly salary for learners employed as assistant nurses in hospitals, clinics, and sanatoria, and minimum rates for learners working as assistant nurses, and for students under the Program of Vocational Education of the Insular Department of Education.
On September 23, 1943, the Supreme Court of Puerto Rico decided that the retroactive wage payments provided for in the Mandatory Decree of the Board for the sugar industry, were, not in accordance with the law. Appeal from this decision was taken on December 22, 1943, to the United States Circuit Court of Appeals, where it was pending on June 30, 1944.
42	FORTY-FOURTH ANNUAL REPORT
PLANNING, URBANIZING, AND ZONING BOARD
This was the first full year of operation of the Puerto Rico Planning, Urbanizing and Zoning Board. Coordination of the normal work of the Board with the war emergency and post-war planning was the chief concern of the year.
During the first months, the Board continued its functions as a projects analysis office for the War Emergency Program. As such, it received 124 projects for review. After relinquishing these duties to resume its normal function of reviewing all government projects, the Board received 315 project proposals from Insular agencies and municipalities, making a total of 439 applications submitted in the course of the year. Of these 259 were approved, 11 rejected, and 75 returned to the War Emergency Program for resubmittal. The remaining 94 were under consideration on June 30, 1944.
The projects approved by the Board call for an investment of approximately $19,600,000. Of that sum $4,351,365 represented the value of 101 public improvement projects proposed by the WEP. Insular and municipal roads and bridges head the list of WEP rural projects while sewerage is first in the urban WEP program. Twelve Insular agencies, other than WEP, received approval of 102 projects, while the remaining 56 approved projects were submitted by 16 municipalities. The year’s program placed great emphasis on rural areas, which were alloted projects of a total value of $14,484,746, representing 73.9 per cent of the total.
The first six-year financial program of the Board was presented to the Insular Legislature in March, 1944. It called for postwar capital improvements amounting to $258,000,000, of which $125,000,000 would be spent for construction projects such as schools, hospitals, sanatoria, correction institutions, and urban and rural housing. The balance would be used to stimulate the Insular economy through the establishment of manufacturing industries, the furthering of land tenure reforms and agricultural research, and the development of roads, hydro-electric power, and irrigation. It is estimated that over 20,000 construction workers would find full' employment annually.
The Urban Development Division, with the cooperation of the Work Projects Administration and the War Emergency Program, extended its land use studies, to include a number of additional municipalities. A project for re-housing slum dwellers in the San Juan metropolitan area was prepared in collaboration with the WEP, and approval was granted the Puerto Rico Housing Authority for
OF THE GOVERNOR OF PUERTO RICO
43
the purchase of land for this and various other housing projects. A preliminary draft of the Master Plan of Parks in Urban Areas was made during the year. Considerable attention was given to a study of airports.
Developing a program for the improvement and extension of the road system of Puerto Rico was the outstanding activity of the Mapping Division. In connection with studies of transportation facilities in the rural zone, carried out with the cooperation of the Insular Department of the Interior, an inventory was made of all roads that can be efficiently used by motor vehicles. The Official Barrio Boundaries Map for the Municipality of Caguas was completed. A detailed report of problems connected with the Caonillas Hydroelectric Project at Utuado was made available to all agencies concerned with this project.
In January, 1944, the Insular Industries and Services Division of the Board published its first technical paper, A Development Plan for Puerto Rico. This paper was an outgrowth of work begun by the staff of the National Resources Planning Board field office in San Juan. Substantial progress was made in studies relating to: (1) the Insular Land Law; (2) agricultural planning and research; (3) expansion of educational and health facilities; (4) governmental services and facilities.
POLICE
The decrease in offenses of all kinds, noted during the previous year, continued. A total of 107,434 actual offenses were reported as compared with 112,003 in 1942-43. Tn all, 120,642 arrests were made, in comparison with 131,539 in 1942-43 and 210,392 in 1941-42.
Juvenile delinquency, however, showed a slight increase, with 319 persons charged as against 270 the previous year. To combat juvenile delinquency, the Department organized the Police Athletic League in March, 1943. On June 30, 1944, the 26 Units of the league had a membership of 3,218 boys between the ages of seven and 15. Because of lack of available personnel, the League had not yet been organized in 51 police stations. Most of the equipment which the League used*was secured through the cooperation of the Amusement and Sports Commission.
Murder and non-negligent manslaughter also increased, the number of arrests rising from 280 in the previous year to 356. Marked decreases occurred in burglary and in auto thefts. The age group most frequently represented among persons arrested was, as during the year 1942-43, that between 20 and 24 years of age.
44
FORTY-FOURTH ANNUAL REPORT
A total of 271 men completed the course of the School for Recruits of the Police Academy. In addition, courses were offered to 77 non-commissioned officers and 20 welfare officers in charge of the Police Athletic League.
The Policewomen’s Bureau, which deals with problems of juvenile delinquency and of prostitution on the part of girls under’ age, recorded 540 complaints. Only 28 of these complaints were pending investigation at the close of the year.
The Bureau of Criminal Identification and Investigation received 13,102 finger print records, of which 4,208 were classified and sent to the Federal Bureau of Investigation. The Bureau made numerous investigations, and filed 14,133 criminal record cards. The Photographic Laboratories of the Bureau handled a total of 8,796 photographs.
The Detective Bureau made 10,031 criminal and non-criminal investigations. These were carried out by a squad of 49 men, making an average of 205 investigations per man for the year.
A total of 12,455 violations were reported by the Traffic Division. During the year 5,601 persons were convicted of traffic violations. Four hundred twenty-six were acquitted, and 11,109 cases were pending trial on June 30, 1944.
Although there was a slight increase in motor vehicle accidents, the number of persons killed and injured was less than in the previous year.
First class patrolmen were decreased by 16, and second class patrolmen by 86. Induction of members into the Armed Forces resulted in a considerable loss of strength to the Service as a whole.
PUBLIC AMUSEMENT AND SPORTS COMMISSION
An extensive program of sports activities was carried on under the direction of the Public Amusement and Sports Commission.
More than 5,000 players participated in the four classes of amateur baseball competition sponsored by the Commission in urban areas. In addition, 26 teams took part in a special competition organized for the rural zone. The amateur baseball program extended to 53 municipalities. Soft ball tournaments were held throughout the Island.
“The Golden Gloves Association”, organized by the Commission and managed jointly by two Puerto Rican newspapers, held a boxing tournament which attracted 873 contestants. The winners repre
OF THE GOVERNOR OF PUERTO RICO
45
sented the Island in the championship Golden Gloves tournament held in New York.
Basket-ball and volley-ball teams represented Puerto Rico in the games attending the Centennial Celebration of the Independence of the Dominican Republic. The basket-ball championship was won by the Puerto Rican team.
From the games held in the Dominican Republic grew the idea of setting up a regional sports organization. Later, at a meeting of representatives of Cuba, the Dominican Republic and Puerto Rico, in San Juan, the Governmental Inter-Antillian Amateur Sporting (Inion was established.
Activities of the Commission in the field of professional sport included the supervision of professional baseball during the season, and the. sponsoring of two cock-fight tournaments, one in San Juan and the other in Ponce.
The sum of $16,806.85 was collected by the Commission during the year.
PUBLIC SERVICE COMMISSION
During the year 4,792 cases were filed with the Public Service Commission, which, with 387 cases pending on July 1, 1943, brought the total of cases considerd by the Commission in 1943-44 to 5,179 Of these cases 5,136 were decided, 24 were pending decision, and 19 were pending hearing at the close of the year.
Sugar: The investigation of the books, accounts, and records of one sugar mill was completed and a determination was made of the division of sugar produced by the mill between growers and the mill. Investigation and hearings were completed in the case of a second sugar mill, and at the close of the fiscal year the Commission was in the process of making its final determination.
Electric Service: The Puerto Rico Water Resources Authority acquired the facilities of the distributing electric systems of two more municipalities: Coamo and Juana Diaz.
Water Service: The aqueduct of the municipality of Las Marias was repaired and put in operation. The Commission authorized the municipality of Cayey to use its waterworks reserve fund for the. purchase and installation of a chlorine plant. The only municipality lacking a waterworks system is Culebra.
Sewerage: Due to lack of construction materials, no new sewerage systems were put in service during the year.
46
FORTY-FOURTH ANNUAL REPORT
Telephone: The Porto Rico Telephone Company proceeded with the installation of automatic telephone service in San Juan and San-turce. It proposes to begin such service in March, 1945.
Piers and Docks: Investigation of the Pyramid Dock Company and Pier 3, Inc., in San Juan harbor, showed that rates charged by both were reasonable, as was the return on capital invested.
Gas Service: During the year the Commission made a reduction in the rates for gas service of the Porto Rico Gas and Coke Company, which serves the municipalities of San Juan and Rio Piedras. It is estimated that this will mean a saving of approximately $18,000 per year to consumers.
PUBLIC WELFARE BOARD
The Public Welfare Board, established by the Legislature of Puerto Rico on May 12, 1943, is responsible for assisting in the development of the programs of the Division of Public Welfare, which was created at the same time in the Insular Department of Health.
The Board held its first meeting on September 7, 1943. Four committees were organized, and the work of the Board distributed among them. Each Committee, under the Chairmanship of a member of the Board, is made up of outside persons selected by the Board.
The Board has, since its organization, devoted much of its time to study and discussion of the organization, functions, and plans of the Division of Public Welfare, especially with regard to public assistance. In addition, the Board has considered the problem of juvenile delinquency, and is at work upon a community plan to attack this problem. It is interested in establishing day nurseries, in developing a plan for the rehabilitation of the blind, in the prevention of mendicity, and in the improvement of the program for, and conditions in, the venereal disease hospitals throughout the Island.
The Board considers it especially important that the social security public assistance titles of the Federal Social Security Act be extended to Puerto Rico. To this end it has studied and made recommendations on a number of bills introduced in Congress.
SCHOOL OF TROPICAL MEDICINE
During the past year, a number of Latin American students, three of whom held fellowships established by the University of
OF THE GOVERNOR OF PUERTO RICO
47
Puerto Rico, attended the School of Tropical Medicine for study and training formerly sought in Europe. Here they studied at first hand diseases peculiar to the tropics, under conditions similar to those in which they will apply their knowledge. In addition, special courses were given for sanitary inspectors from Haiti and the Dominican Republic.
The School participated in the Regional Conference on Social Hygiene, held in San Juan in February, and was represented at the West Indian Conference, held in Barbados in March under the auspices of the Anglo-American Caribbean Commission.
The gradual withdrawal of war from Puerto Rico facilitated the purchase of materials and equipment needed for research. However, the situation in regard to personnel remained critical especially in the laboratories, where long training is necessary. The nursing problem also remained serious.
Cooperation with the Armed Forces had an important place in the year’s activities. Lectures on malaria, sprue, and schistosomiasis were offered to officers of the Medical Corps of the Armed Forces. In collaboration with the Army Medical Corps, an antigen to Wuchereria bancrofti infection was produced, and surveys of Continental and Island troops for the presence of certain diseases were conducted.
The Department of Bacteriology, in its work on “The Streptococcus Problem in the Tropics”, completed a survey of the hemolytic streptococci to be found in Continental and Island troops. Studies are under way on the role of group “A” betahemolytic streptococci in acute attacks of filariasis. Streptococcic organisms causing cow mastitis were examined with reference to possible public health implications. A series of studies, begun in 1938 on the. throat flora of monkeys, was completed with the examination of throat cultures for betahemolytic streptococci. A final report on the initial phase of the work on the Proteus Bacilli and Weir-Felix reaction was produced. The Department, in cooperation with the Department of Public Health, offered courses to laboratory technicians, sanitary engineers, nurses, and sanitary inspectors.
A total of 4,414 persons volunteered blood donations to the Blood Bank, bringing the total number of donors to 9,024 for the 26 months in which the Bank has been functioning.
Projects to determine the vitamin content and composition of native foodstuffs, with particular emphasis on their riboflavin content, were continued by the Department of Chemistry. After ascer
48
FORTY-FOURTH ANNUAL REPORT
taining the characteristics and Vitamin A content of a sample of hammerhead shark liver oil, the Department offered to undertake a survey of the Vitamin A content of offs of various species of sharks found in Puerto Rican waters. Development of a small but prosperous shark liver oil industry in Puerto Rico appears possible. Extensive work with rats was continued to determine the effects of the rice and beans diet.
The Department of Mycology and Dermatology added five new cases of ringworm of the scalp to its work in dermatomycosis. Studies were made of 58 persons suffering from skin eruptions, and of 189 cases of dermatophytes of the feet. A general survey of fungus diseases in Puerto Rico was conducted and the dramatic results of the new podophyllin therapy in the treatment of granuloma inguinale reported. Lectures and laboratory sessions were offered to groups of students enrolled in the Department of Public Health.
Extensive research was carried on in the Department of Medical Zoology to demonstrate the relation between infections with animal parasites and blood agglutinins. The research suggests important findings in regard to blood transfusions. The problem of mosquito transmission of this infection was studied in the Department by the National Institute of Health. In collaboration with the Department of Chemistry, further investigations in schistosomiasis were carried on.
The Department of Clinical Medicine continued its extensive work on sprue with special emphasis on chemical studies and Vitamin A and riboflavin deficiencies. Detailed observation of patients on the “Full Sprue Diet” were made. The study of the Vitamin C status of a sample population of Puerto Rico was included in the general work on nutrition in Puerto Rico. The Division of Pediatrics gave attention to cases of schistosomiasis and intestinal parasitism in children. Data on over 1,000 cases of cardiac diseases studied in Puerto Rico are being analyzed.
The University Hospital admitted 780 patients during the year. The Outpatient Department attended a total of 10,358 patients Operations performed totaled 240. Of the three special clinics established last year, the one for schistosomiasis patients was especially active because of the large number of young men who had been drafted and rejected for S. mansoni infections. The majority of these are now coming to the clinic for treatment.
The Department of Pathology performed 61 autopsies during the year and received 3,049 specimens for examination.
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49
The Committee in charge of the Santiago Primate Colony decided, to permit its transfer to the University of Puerto Rico.
The organization of the Department of Public Health was completed during the year. ' This Department offered courses for public health engineers, nurses, and in medical technology. It also conducted three short-term courses for sanitary inspectors.
SEWERAGE SERVICE
The condition of the sewerage systems on the Island, with very few exceptions, remains alarming. Little was done during the year to remedy the situation, because of the restrictions upon construction materials and mechanical equipment.
A project of cleaning and urgent repairs on .an Island-wide basis was undertaken by the Insular Sewerage Service; with funds amounting to $53,000, made available by the War Emergency Program. The purpose of this work is to put primary treatment plants into operation, and to eliminate the discharge of raw sewerage into streams and other natural bodies of water. For efficient and economical operation, the Island was divided into six sanitary districts, and plans made for establishing an operation crew in each. By the end of the year all necessary equipment had been purchased, and two crews organized.
Another project covering improvements and extensions to existing sewerage systems was submitted to the War Emergency Program. The cost of this project, which would benefit eight municipalities and the Tuberculosis Hospital at Mayaguez, is estimated at $131,000. In addition, plans for the construction of new plants, at an estimated cost of $550,950, were prepared and submitted to the WEP.
With an appropriation of $20,000 from the Committee on Design of Public Works, plans and specifications for post-war projects were completed for seven municipalities and undertaken for nine others.
STATE GUARD
The inability of the War Department to furnish arms and equipment, because of war demands, necessitated the curtailment of the Guard’s activities and the reduction of its strength to 181 officers and 2,294 enlisted men. The forces were reorganized into State Headquarters, State Headquarters’ Company, and four regiments of three battalions each. A battalion consists of three rifle companies, each of which has three officers and 62 enlisted men.
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FORTY-FOURTH ANNUAL REPORT
Authorized armory drills were held once a week. Correspondence courses, based on Army Extension Courses, were offered with the aid of instructors from the Federal Army. Officers’ schools, non-commissioned officers’ schools, unit classes, and officers’ training camps were held. The newly established Dental Department of the Medical Section rendered valuable service. The Guard cooperated with local authorities and civic institutions throughout the Island in numerous instances of fire, storm, bond drives, and the celebration of patriotic holidays.
STATE INSURANCE FUND
At the close of the fiscal year, the State Insurance Fund had accumulated a total surplus, including reserves, of $2,683,457.38. The policy of investing the reserve and surplus funds in Savings and United States Treasury bonds was continued with the purchase of $1,100,000 additional bonds.
Net premiums collected for the year were $2,305,903.20, as against $2,526,213.11 for the year 1942-43. The general premium rate reduction made during the policy year 1943-44, aggregating $438,908, more than accounts for this drop. As of June 30, 1944, the number of claims registered was 43,067 compared with 45,538 at the end of the preceding fiscal year. At the same time, expenses for the year increased to $173,656.66. This was due to higher hospitalization costs per case, and additional compensation benefits, prescribed by Legislative action. Eighteen death claims were compensated, and 37 were awaiting action as of June 30.
Despite a persistent campaign to insure employers, there remained no less than 10,000 uninsured employers each of whom had three or more employees working either regularly or seasonally. The number of employers insured this year increased by 1,827, bringing the total to 10,236. ■ Further steps were taken toward consolidating classifications. At the end of the year there were 154 classifications, a reduction of 136 in the past two years.
In December, 1943, the Division of Accident Prevention was created within the State Insurance Fund to facilitate the accident prevention program begun last year. The work of this Division includes industrial safety education, inspections, and industrial safety research.
The budget approved for the year 1944-45 amounts to 12.56 per cent of premiums collected. According to law the State Insurance Fund may use 15 per cent of the annual premium income of the preceeding year.
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TAX COURT
The Tax Court of Puerto Rico (formerly the Court of Tax Appeals), with exclusive jurisdiction in all suits relating to Insular tax laws, began functioning on August 15, 1943.
The work of the Court is summarized in the following table:
The Court held 121 public hearings and rendered 73 opinions during the year. Only 17 cases were carried through certiorari proceedings to the Supreme Court, which disposed of four. In each case, the appealed judgment was confirmed.
In the course of the year, the Tax Court established new rules of procedure, simplifying proceedings governing cases brought before it.
TOBACCO INSTITUTE
The Institute proceeded with its program of research in agronomy, chemistry, genetics, and pathology, and with its economic studies. Work in the Department of Chemistry, however, was curtailed because of changes in personnel.
Agronomic research included various fertilizer experiments, studies of new varieties and crosses of tobacco, and a soil conservation experiment which was carried on in cooperation with the Soil Conservation Service. Four-sevenths of the total seed bed area, planted this year was supplied with seeds, free of charge. In addition, 2,500,000, seedlings of standard varieties were distributed at cost price among tobacco growers.
Work continued on mosaic and black shank diseases, the “mottle” disease, and leaf spots, in the effort to determine or develop disease resistant strains. In addition to its scientific research, the Institute made studies of market movements and possibilities, production costs, legislation affecting the tobacco industry, and various other matters of interest to growers.
Seeds produced in experiments with crosses between Nicotiana rustica and Nicotiana tabacum were sown, but did not germinate.
Income Taxes	 Property Taxes	 Inheritance Taxes	 Excise Taxes	 Victory Taxes			 Taxes paid under protests	 Totals		Pending June 30, 1943	New cases in 1944	—		•	 Concluded during fiscal year 1943-44	Pending June 30, 1944
	899 431 3 1, 333	129 142 2 25 17 4 319	507 144 1 1 653	521 429 5 24 16 4 999
52	FORTY-FOURTH ANNUAL REPORT
The purpose of these experiments is to obtain a high yielding type rich in nicotine, for use in the manufacture of nicotine sulfate.
The Institute worked closely with Insular and Federal government agencies in the distribution of fertilizer for the 1943-44 crop, and in other government activities connected with tobacco production and marketing.
A.t the beginning of the fiscal year the Institute had a cash balance of $93,223.41.’ The income for the year amounted to $29,616.49, making a total of $122,839.90. Total expenses for the year were $53,072.60, leaving a balance on June 29, 1944 of $69,767.30.
TRANSPORTATION AUTHORITY
Although the Transportation Authority concentrated chiefly on the operation of bus service in the San Juan metropolitan area, considerable attention was given to future developments in air travel in the Caribbean area.
When the Civil Aeronautics Board announced a hearing on air travel facilities in the Caribbean, for September, 1944, work on exhibits to be submitted at the hearings was undertaken. A bill appropriating $1,000,000 for airport construction was introduced in the Legislature, but, though passed by the Senate, did not receive consideration by the House of Representatives.
A committee to study the airport problem, headed by the General Manager of the Transportation Authority, was appointed by +he Puerto Rico Planning Board. After seeing a preliminary report prepared by the Planning Board, it was decided to seek expert advice from the Civil Aeronautics Board. This agency sent two members of its staff to Puerto Rico, and after a survey of the Island, they recommended : first, the construction of an international airport at San Juan; and, second,- the construction of additional air fields in the Island. Surveys of both plans are now under way.
Bus transportation service in the San Juan metropolitan area was improved with the addition of 35 new or reconditioned buses, bringing the number of buses in service up to 95. The number of passengers carried during the year was 22,775,897, and the total gross income was $1,143,542.96. A profit of $57,698.23 for the year eliminated the losses incurred in the operation of the bus line during the first eight months after it was taken over, and left a balance of $8,608.73 in reserve.
The outlook for the next year is uncertain. The number of buses on the- road has reached the saturation point. A study of the pos
OF THE GOVERNOR OF PUERTO RICO	53
sibilities of eliminating a number of buses during the off-peak hours has been made by the Office of Price Administration and Office of Defense Transportation, and action has been promised by the Public Service Commission. The reconstruction of the fleet is 90 per cent complete. Repair and maintenance plans are being, formulated with a view to making all units last for the duration of the war.
Labor problems continued to receive attention during the year. In November the wages of the shop personnel were increased approximately 10 per cent and the demands of the chauffeurs for a six day week were met. A new labor contract, revised to meet operating conditions, and granting, provisionally, a wage increase of approximately 12 per cent was signed in June.
Additional land was acquired to provide for future expansion of the plant.
UNIVERSITY OF PUERTO RICO
The reorganization of the administrative structure of the University, begun in the previous year, was continued. The former Colleges of Arts and Sciences and of Education have now been reorganized to create four Schools: Humanities, Social Sciences, Natural Sciences and Education.
The employment of a number of visiting professors with Continental American and Spanish backgrounds greatly strengthened instruction in the four schools and in other faculties. During the year, there were seven visiting professors and three consultants in the University. The visiting professors offered courses in English, Political Science and Spanish studies.
Increased emphasis was placed upon the social, economic and physical welfare of the students. A Student Service Board was set up, and assigned duties concerned with the administration of student aid, and the supplying of both medical and psychological guidance.
The University spent approximately $100,000 for student aid, as compared with $48,000 in the previous year. This aid has been divided into non-service scholarships, work aid to students, and aid to superior high school students.
Steps were taken to assure a teaching staff adequate for postwar needs. A number of students and faculty members were sent to continental universities for further training. Scholarships for advanced study in 1943-44 and 1944—45 were granted to 63 persons, including students without previous university teaching experience.
Under the direction of the Chancellor, four special studies were made during the year. Three of these concerned proposals to estab
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FORTY-FOURTH ANNUAL REPORT
lish (1) a Medical School; (2) an affiliated School of Nursing; (3) a School of Public Administration. The fourth was a study looking toward improvement of the students’ pronunciation of English.
At Mayaguez, a program similar to that in Rio Piedras was carried out, so far as practical.
Enrollment in the University continued to increase, despite war conditions. The total number of students enrolled at Rio Piedras was 5,533, at Mayaguez 527. Extension and evening school students numbered 2,197.
WAR EMERGENCY PROGRAM
At the beginning of the year, the War Emergency Program was employing 15,000 persons. At that time it supplemented the Federal Works Agency, which was giving work to about 40,000 others.
Upon the termination of the Federal Works Agency’s program, .on November 30, 1943, the War Emergency Program was forced to assume the full responsibility for relief. Previously, the War Emergency Program had operated through a system of direct allocations to government agencies or departments, which then became responsible for the projects under their jurisdiction. In December, 1943, however, all projects operating under the direction of the various departments and agencies of the Insular Government were transferred to the control of the War Emergency Program, as were also some Federal Works Agency projects.
Materials and equipment in the amount of $1,200,000 were purchased from the FWA. A system of selection of workers was established, under which the workers are selected by the drawing of lots among those registered as unemployed and present when the selection is made.
The War Emergency Program was organized both to give temporary work to the unemployed and to carry out projects of lasting value. Two principal types of projects were undertaken: construction projects and community service projects.
Among the construction projects, the most important were those for the improvement and paving of streets, and the construction and improvement of highways, roads, and bridges. Those for the construction, improvement, and repair of hospitals, schools, sewer and water systems were next in importance. Other projects involved the construction of recreational facilities, public squares, parks, and cemeteries. In many instances, because of war shortages, it was necessary to use materials and even to plan structures which will eventually have to be replaced.
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One of the outstanding heavy construction projects undertaken was completion of the plant for the Puerto Rico Glass Corporation, a subsidiary of the Puerto Rico Development Company. This work was taken over by the War Emergency Program from the contractor when construction was somewhat less than 50 per cent completed. In May, 1943, the War Emergency Program also entered into a contract with the Puerto Rico Development Company for construction of a $300,000 paperboard mill for the Puerto Rico Pulp and Paper Corporation, another subsidiary of the Development Company. The WEP, of course, will contribute nothing from its own funds for either job.
The most important community service project was the School Lunch Program, through which 194,046 children were served meals daily, and in which over 5,000 workers were employed. A food production project, which produced over 14,000 pounds of vegetables for the school lunch program, was carried on during the year. The Nursery School Project operated 28 nursery schools' throughout the Island, with an enrollment of 1,241 children of pre-school age.
At the end of the fiscal year, only 21,705 persons were employed by the War Emergency Program, although a total of 239,412 persons had been registered as unemployed by the Division of Employment. In cooperation with the Employment Service of the. Insular Department of Labor, the War Emergency Program tried in every way possible to facilitate placement of registered unemployed persons in private and public employment, and to keep employers advised of the available labor supply in each municipality.
WATER RESOURCES AUTHORITY
During the year‘the. Water Resources Authority acquired the properties of the Porto Rico Railway, Light and Power Company and the Mayaguez Light, Power and Ice Company, which it had previously been operating for the Federal Works Agency. As a result of these transactions, the Authority became the supplier of practically all electrical power generated in the Island, v
The properties of the Porto Rico Railway, Light and Power Company were purchased for $11,218,416.66, and those of the Mayaguez Company for $1,700,000. Bonds of the Authority in the amount of $20,000,000 were issued to finance the purchases, and for other purposes.
56	FORTY-FOURTH ANNUAL REPORT
The enlarged and integrated system is comprised of 13 hydroplants and three steam plants, covers an area of 2,700 square miles, and serves a population of aproximately 1,600,000. Production during the year amounted to 271,294,750 kwh., approximaely 12,000,000 kwh. less than the total production for the Island. Of the Insular total, 39 per cent was produced by fuel oils.
There was a net gain during the year of 2,870 customers’ installations connected to the integrated system. Revenues increased from $4,599,699 to $5,397,721.
War restrictions imposed a limitation upon expansion. Despite this, however, construction of the Caonillas hydroelectric plant was begun. This plant is expected to go into operation in 1947. In addition, great progress was made on the work of installing Units No. 2 and No. 3 in the Dos Bocas power house. The temporary buildings at Garzas and Dos Bocas were dismantled, and the material moved to Caonillas, where it was used to construct temporary buildings for the new project. An electric substation was also erected at the site of the Caonillas dam, and connected to the main power line.
Power producing capacity of the Island still lags far behind requiremnts, largely because the building program of the Water Resources Authority has been delayed by the war. This lag was shown by the shortage in power production, and the consequent curtailment in power service which took place in April and May, 1944, as the result of a prolonged drought, beginning in December, 1943, which was ultimately reflected in the capacity of the hydroplants. The effect of the drought was heightened by the failure of sugar mills throughout the Island to produce a promised 2,000,000 kwh., and by the increased demand for power in a large manufacturing plant. Because of the power shortage, it was necessary to stop operation of the San Juan-Santurce. street railway for a month, and, for a time, to suspend electric service during part of the day.
Geological, topographical and hydrographic data were studied, from the point of view of the future development of a well balanced, Island-wide power network of inter-connected plants. A number of surveys of new hydroelectric possibilities in different parts of the Island were completed. In cooperation with the “Joint Committee • on the Survey of Southwestern Puerto Rico”, a report was prepared by the Authority on irrigation possibilities in this area.
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Federal Agencies
AGRICULTURAL ADJUSTMENT AGENCY (Department of Agriculture)
Final figures for the 1943 sugar cane program of the Agricultural Adjustment Agency showed total authorized payments of $13,122,989.69 to 13,728 growers. Preliminary estimates had placed the number of producers at 15,647 and the amount of payments at $12,000,000...
Quantitative distribution of 1943 payments is shown in the following table:
Sugar cane production for 1943 in land acreage harvested was 310,225, and in tons of sugar cane ground, 8,666,692. The number of acres planted to food crops in 1943, in fulfillment of the requirement that seven per cent of sugar cane acreage be used for this purpose, was estimated at 40,000, but actually came to 50,425.4 of which 30,139.7 acres were in legumes.
In the 1943—44 season, 36,362 acres were planted to tobacco, which was 4357.1 in excess of the allotted acreage. Allotments were issued for 23,727 farms.
agricultural experiment station (Department of Agriculture)
The Puerto Rico Experiment Station of the United States Department of Agriculture, in addition to experiments carried on in cooperation with the Government of Puerto Rico, worked on problems of vital importance to the nation’s war economy.
Payment intervals	Number of applications	Total amount 'of Payment
Under — $250	 250.01 —	500	 500.01 — 1,000	 	 1,000.01 — 1,500	 	 1,500.01 — 2,000	 	 2,000.01 — 3,000	 	 3,000.01 — 4,000	 4,000.01 — 5,000	 5,000.01 — 6,000		 6,000.01 — 7,000	 7,000.01 — 8,000	 	 8,000.01 — 9,000	 9,000.01 — 10,000	 10,000.01 — and over	 Totals			9, 249 1, 658 1,165 414 200 254 142 74 79 54 31 32 27 167 13, 546	$792,378.66 587,879.93 805, 245.04 512,122.64 343, 580.17 625, 774.87 486, 961.93 335,739.03 433, 616.82 348,115.17 233,780.30 270,865.30 256, 416.17 7,090, 513.66 $13,122, 989.69
58 •	FORTY-FOURTH annual report
Collaborating with the Office of Economic Warfare of the Foreign Economic Administration, and the Office of Foreign Agricultural Relations of the Department of Agriculture, the. Station distributed in the Caribbean area and Latin America more than two million cuttings of derris elliptica, a rotenone bearing root used in the production of insecticide, and formerly grown in areas now occupied by the Japanese. The establishment of derris plantations in the Western Hemisphere will insure a supply of rotenone closer to the United States, and will bring a new non-competitive crop to Latin America.
Working with the Defense Supplies Corporation, the Station is growing seeds from selected cinchona trees which are high in quinine content. These seeds were flown out of the Philippines just previous to the Japanese occupation. Areas available for growing cinchona in Puerto Rico have been extended through the cooperation of the Federal and Insular Forest Services, and with funds provided by the War Emergency Program of the Insular Government and the. Work Projects Administration.
Large quantities of economic plants, with relevant technical information, were supplied to Latin American countries interested in the Station’s experiments on tropical plants. The Director participated in the efforts of the Anglo-American Caribbean Commission to develop an agricultural- program for the Caribbean area.
A food production program, carried on with labor furnished by the War Emergency Program of the Insular Government, provided agronomic information and considerable quantities of food crop seeds for distribution.
Projects were conducted with Insular Government funds on vanilla, bamboo, essential oils, and other tropical crops. Experiments to test the relation between the amount of calcium in the soil and its absorption by the. vanilla plant were continued. Observations show that the best plants grow on soils of high calcium content.
An elaborated technique for studying oxidizing enzymes of vanilla showed that these enzymes form a complex system capable of oxidizing a variety of substrates, including vanilla itself, to quinone bodies and thence to condensed stable pigments. On the basis of sensitivity to cyanide, the enzyme system contains a heavy metal. Since it requires oxygen as an acceptor and is inactivated by carbon monoxide, the main action of oxidation should be classified as an oxidase rather than a peroxidase.
Work on essential oils was confined to experiments aimed at: (1) determining what parts of the oregano plant should be distilled
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59
to obtain essential oil which may have commercial possibilities because of carvacrol and thymol content; and (2) improving methods of extracting coffee flower oil.
In view of the considerable interest in bamboo aroused by recent industrialization, the Forest Service initiated a program to test bamboo as a potential forest crop for Puerto Rico. More than 16,000 plants of different species were distributed by the Station to the Forest Service for planting in forest areas. In cooperation with the Soil Conservation Service, a number of test plantings were made on land classified as unfit for intensive cultivation. Nine months after planting, they showed a high percentage of establishment. The Station furnished over 5,000 bamboo plants, in addition to technical assistance, to the Insular Department of Interior for the development of road-side improvement projects. The military forces obtained approximately 10,000 lineal feet of cured bamboo from the Station for construction purposes. Better methods for the propagation of bamboo were studied. Various experiment^ in the use of bamboo in building construction were undertaken and the use of common bamboo for concrete reinforcement was found to be unsatisfactory.
CONCILIATION SERVICE
(Department of Labor)
The Conciliation Service of the United States Department of Labor settled a total of 195 cases, involving 323,062 workers. Of the cases settled, 110 were strikes or threatened strikes, 71 were controversies, two were lockouts, and 12 were special situations.
EMERGENCY CROP AND PEED LOAN OFFICE
(Farm Credit Administration)
During the fiscal year 1943-44 the loans approved and disbursed by the Emergency Crop and Feed Loan Office to the farmers of Puerto Rico for the cultivation and harvesting of crops were as follows:
Crop e	Number of loans	Amount	Average amount of loans
Coffee	 Sugar	 Tobaoco	 Miscellaneous crops			 ■	Totals 		\............	429 2,404 2, 301 253 5,387	$295, 645 637, 840 296, 000 106, 260 $1,335, 745	$689 265 128 420 $248
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FORTY-FOURTH ANNUAL REPORT
farm security administration (Department of Agriculture)
Since the beginning of the rural rehabilitation program of the Farm Security Administration in Puerto Rico in 1941, a total of 16,272 families have received aid. Of this number, 13,381 cases were active on June 30, 1944. The difference is accounted for as follows: 1,074 eases have been paid up; 1,663 have been dropped; 154 are being held for collection only.
During 1943-44, the Administration made 6,207 rural rehabilitation loans aggregating $906,915.14. Initial loans totaled 2,268, and supplemental loans, 3,939. Of the amount advanced in initial loans ($361,957.14), 40 per cent was for farm operating, 40 per cent for capital goods for the farm, and 20 per cent to family living and capital goods for the home. Seventy-two per cent of the initial borrowers own their own land, 11 per cent have purchase contracts, and the remaining 17 per cent are tenants or share croppers.
Loans totaling $288,298 were made to 55 Farm Ownership clients, thus enabling them to establish their families on their own farms. The average Farm Ownership loan was for $5,241. Supplemental FO loans amounting to $4,657 were made for the purpose of providing additional improvements on farms.
The year’s collection of principal and interest, including $18,592.96 paid on Puerto Rico Reconstruction Administration loans, amounted to $1,024,648.69. Rural rehabilitation loan collections came to $873,737.99, and Farm Ownership borrowers paid in $132,297.77.
Farm and Home Operations grants in the amount of $29,740.23 were made to 1,489 farmers to assist them in purchasing subsistence supplies until they received revenue from the sale of their farm produce. Rural water supply projects, completed during the year with the assistance of the War Emergency Program and the various municipal governments, benefited 831 families. In addition to projects of this kind, the installation of sanitary facilities by individual farmers was encouraged through loans. Attempts were made to organize health service groups among Farm Security Administration borrowers throughout the Island, but the scarcity of doctors and nurses prevented any real accomplishment along this line.
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With the cooperation of the Forest Service, the Experiment Station, and their various nurseries throughout the Island, the Farm Security Administration was able to supply a large number of forestry, ornamental, and fruit tree nursery stock to its clients.
Sixteen Guernsey heifers, provided by the Brethren Service organization, were distributed to sixteen under-privileged farm families selected by the Farm Security Administration. The animals were assigned to FSA borrowers having large families and no other source of milk. The experience of FSA proves that, with a little supervision, such farmers can successfully care for good grade milk stock.
FEDERAL LAND BANK OF BALTIMORE
Despite adverse weather conditions during the winter and spring of 1943—44, repayment performance of the farmers served by the Federal Land Bank continued to be satisfactory.
At the end of the year, outstanding loans totaled $11,541,251.44 and were divided as follows: Federal Land Bank loans, $9,422,609.24; Land Bank Commissioner loans, $2,118,642.20. The net delinquency on Federal Land Bank loans amounted to $88,796.82, approximately the same as in the preceding year. On Land Bank Commissioner loans, the net delinquency was $8,010.19, as'compared with $6,312.31 for the previous year.
Eight of the Bank’s borrowers filed bankruptcy pleas, as compared with six the previous year, and 16 during the fiscal year 1941—1942. On June 30, the Bank held 18 farms for sale. Farms acquired through foreclosure numbered 18, as compared with 22 the previous year, and 10 farms were sold for a total of $64,000.
The volume of new loans increased sharply over the preceding year both in number and total amount. In 1943-44, 283 new loans amounting to $1,310,500 were made; in 1942-43, 154 loans, totaling $637,700. These loans are for 20 years at interest rates of 4% and 5 per cent respectively.
The contractual rate of interest was reduced by Treasury Department contributions to 4 per cent on Land Bank loans and Sty per cent on Land Bank Commissioner loans.
A net saving to borrowers of $167,469.40 during the fiscal year, resulted from these reductions.
The law providing for statutory interest reduction on Land Bank loans expired on June 30, 1944. In its place administrative interest reduction to 41/2 per cent was made effective on all Land
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FORTY-FOURTH ANNUAL REPORT
Bank loans, which had been written at rates in excess of 4% per cent in the past. As some of these loans carried rates up to 6 per cent, savings to borrowers in the future will be considerable.
foreign funds control (Treasury Department)
In the course of the year, the Puerto Rico Office of the Foreign Funds Control of the Treasury Department issued 1,000 licenses for general operations and transactions with foreign firms blocked under the “Freezing Control Order”. Approximately 65 firms have been “blocked” in Puerto Rico, and are operating under licenses. “Blocking” does' not necessarily indicate enemy interest; it may also indicate substantial continental European interest in the ownership or management of the firms, which, for war purposes, it is desirable to control. The total of all “blocked” interests in Puerto Rico is approximately .$75,000,000.
Coincident with the advance of the armed forces of the United Nations, steps were taken to relax the regulation with respect to liberated areas in Italy, Sicily, Corsica, North Africa, Metropolitan France, and the Baltic countries. Certain types of remittances and communications with those areas may now be exchanged, subjeci to appropriate Treasury license.
The Freezing Control program is now being geared to the resumption of normal relationships at the earliest possible date.
forest service
(Department of Agriculture)
The merging of all Federal forest activities in Puerto Rico under the Tropical Forest Unit has proven to be logical, effective, and economical.
The work of the Unit is divided into three main categories (1) the protection, management, and improvement of the Caribbean National Forest; (2) research in forest management problems peculiar to Puerto Rico and elsewhere in the Caribbean area; and, (3) cooperation and liaison work in forestry with Latin American countries.
The Director of the Unit is also the General Superintendent of the Insular Forest Service. Although both agencies continue as separate entities, there is a high degree of coordination in forest
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63
administration, management, and utilization of the forest lands owned by the Federal and the Insular Governments.
The total area of Federally owned forest lands in Puerto Rico on June 30, 1944, was 31,499 acres, of which 25,251 acres were located in the Luquillo Unit and 6,248 acres in the Toro Negro Unit. The ultimate purchase and reforestation of some 90,000 acres of forest lands adjoining these Units, is planned.
The management of these lands by the Forest Service has as primary objectives the supply of forest products and the protection of the upper water sheds above important water storage projects. Conversion of the present natural forest stands and development of the many young plantations of forest trees into productive forests will yield annually approximately three million board feet of lumber, 1,500 cords of wood for fuel and charcoal, and thousands of posts and poles for farm and building uses.
During the year, approximately 1,320,000 board feet of timber, valued at $21,600 on the stump and $104,000 in final form, were sold, and 2,433,000 board feet of forest products, valued at $17,150 on the stump and $105,000 in final form, furnished without charge for military purposes and to settlers in and near the forest.
Substantial progress was made in the establishment of communities for local people dependent upon the Federal forest lands for their domestic needs in forest products, and for part time employment. During the year, 53,000 man days of employment were furnished to people who otherwise would have had little or no cash income.
In the research field, greater attention was given to the determination of methods by which a maximum of forest products can be cut without endangering future productivity. A set of silvicultural rules were formulated, by which dead, over-mature, mature, and inferior timber can be cut, and the quantity and quality of the remaining stand can be increased.
A series of surveys of the farming in progress within the Forest Units was started by the Federal and Insular Services. These studies indicated that of the 700 families now occupying small parcels of land within the Federal and Insular forests, many are on land unsatisfactory for farming. Efforts were initiated through the Puerto Rico Land Authority and private land owners to find better lands for these people.
Trained foresters and technical men from Trinidad, British Guiana, the Dominican Republic, and Jamaica visited Puerto Rico
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FORTY-FOURTH ANNUAL REPORT
during the year for conferences with members of the Federal and Insular Forest Service staff. Cooperative work in the field of Latin American forestry will be facilitated and enlarged through the recently appointed Subcommittee on Forestry of the Agricultural Research Council of the Anglo-American Caribbean Commission.
NATIONAL LABOR RELATIONS BOARD
The Regional Office of the National Labor Relations Board handled 47 cases during the year. Of these, 22 involved allegations of unfair labor practices, and 15 were representation cases. As a result of the unfair labor practice cases, 91 employees were reinstated in their jobs, and received back-pay in the amount of $33,000. Three of the cases were settled by Board Order following formal proceedings, and the remainder were adjusted by informal agreement. In the representation cases, seven secret ballot elections were conducted in which 1,754 employees cast ballots.
In addition to the work on official cases, the Regional Office worked closely with other Federal and Insular agencies in the consideration-of the representation problem in the sugar industry. The National Labor Relations Board was unable to deal with the sugar industry, as a whole, because it lacks jurisdiction over agricultural workers. A special representative of the National Labor Relations Board came from Washington to assist the Insular Labor Relations Board in conducting hearings on questions relating to this problem.
In cooperation with the University of Puerto Rico, the Regional Office started a program of Labor Institutes in order to spread information among both workers and employers concerning the laws and procedures of collective bargaining.
OFFICE OF DEFENSE TRANSPORTATION
The Office of Defense Transportation gave a great deal of attention to a program aimed at reducing the overloading of motor vehicles, principally trucks. When the ODT began this program, trucks in general were overloaded by at least 50 per cent. Education of truck owners in the proper loading and maintenance of trucks, and penalties for overloading by as much as 15 per cent, reduced the average overload for trucks used in transporting sugar cane, for example, to 2.05 per cent. A check of truck operations, such as deliveries of sugar to the piers, deliveries of cement and of Office of Distribution products, showed overloading in a number of cases, but in no instance was the overload greater than 5 per cent.
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65
During the year, District Officers of the ODT made special efforts to secure back hauls for trucks to points of origin, and thus to prevent empty truck operations. This phase of the work was particularly successful in Arecibo and Ponce.
The Public Service Commission was requested not to issue certificates of necessity and convenience, making an operator of a public carrier eligible for tires, until after investigation by the ODT. Applications for these certificates, filed with the Public Service Commission, were sent to the ODT. As of June 30, 1944, the ODT had recommended issuance of 2,879 certificates of necessity and convenience. This brought the total number of certificates to 3,800, which was still insufficient to allow proper facilities throughout the Island. At the time when the tire rationing order went into effect, on July 12, 1943, only about 1,000 common carriers engaged in the transportation of passengers held such certificates.
Before November 1, 1943, no concerted effort was made by the ODT to enforce its orders by penalties. Since there appeared, however, to be considerable speeding, the ODT secured the cooperation of the military police in reporting this violation. ODT inspectors and military police reported 1,300 cases of speeding between November 1, 1943, and June 30, 1944. During the same period, 1,827 violations of other regulations of the ODT were reported. In 317 cases of speeding, and in 472 cases of other violations, suspension of gasoline rationing was recommended.
Properties of the American Railroad Company, which had been, controlled and operated by ODT since May 13, 1943, were turned back to the owners on June 30, 1944.
During the period of Federal operation, a number of new Diesel electric locomotives were put into use, and the operation of the road was reorganized to insure greater efficiency.
Tiaffic into and out of the piers of Puerto Rico is under direction of the ODT. As shipping increased, pier congestion occurred in San Juan. To prevent this congestion, exporters were prohibited from placing any shipment of merchandise in excess of 2,240 pounds on a pier without permit from the ODT. This order, however, never-had to be enforced because of the cooperative attitude of shippers. Every effort was continued to have cargoes so stowed at the point of loading that they may be unloaded in three different ports—San Juan, Mayaguez and Ponce. In the few cases in which this was-done, a great saving in truck tires and fuel resulted.
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FORTY-FOURTH ANNUAL REPORT
•OFFICE OF DISTRIBUTION
(War Food Administration)
The year’s program of the Office of Distribution of the War Food Administration was three-fold: (1) The importation of foods, feeds, certain household articles and agricultural production equipment for distribution through regular trade channels; (2) operation of the price support program and market news service; and, (3) free distribution of food supplies to milk stations, school lunchrooms institutions and, for a part of the year, to families eligible for public assistance.
In the first phase of the program, 307,477.62 net short tons of food products were imported for Puerto Rico and the Virgin Islands. In addition 144,620 net short tons of fertilizer ingredients, and 31,955.15 net short tons of animal feeds, seeds, fungicides, insecticides, and fumigants were brought in.
Several items formerly on the OD list were returned to private importers in the course of the year. These items included: butter, oleomargarine, vegetable oil, onions, tomato catsup, dairy feed, sausage, safety matches, and ground table salt. .
The Marketing Program Section, which is responsible for the direction and execution of the programs pertaining to the marketing of local food crops in Puerto Rico and the Virgin Islands, opened four new collection centers and one new distribution center during the year, bringing the total number of such centers up to 17 and seven respectively. Several revisions and refinements to the original program in regard to prices, eligibility requirements, and grade specifications were put into effect in March, 1944. Due to a sharp curtailment of the Island’s agricultural out-put because of the severe drought, however, the Price Support Program could riot be put into full operation. Purchases of surplus production of the agricultural crops for which there was a guaranteed price amounted to 123,700.08 hundred-weight, valued at $283,138.07.
Cooperating with programs to increase the local production of food crops, the Office of Distribution sold 1,078,816 pounds of seeds to various government agencies.
During the year, the Market News Service extended its coverage to six markets located in different parts of the Island. The information gathered by this Service, concerning quantities of food crops entering the markets, their price, origin, and mode of conveyance, is expected to serve as the basis for the continuance of an organized
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and uninterrupted effort to secure and maintain reliable and complete information on marketing activities in Puerto Rico.
The Civilian Program Section of the Office of Distribution distributed $1,178,567 worth of food on a free basis to 69,085 families representing 386,924 persons. In addition, it supplied 2,023 community school lunch units in schools with a total enrollment of 207,798 children. School lunch units received 19,216,960 pounds of foods, the retail value of which was $3,305,019. Foods distributed included evaporated milk, wheat flour, cornmeal, rolled oats, canned tomatoes, oleomargarine, dried beans, lard, and Vienna sausages. In connection with this part of the program, the services of a nutritionist were furnished.
OFFICE OF PRICE ADMINISTRATION
The Office of Price Administration, in the course of the year, expanded its Maximum Price Regulation to cover over 10,000 different brands or grades of commodities, including certain minor crops, molasses, local poultry, eggs, charcoal, imported and locally manufactured textiles, imported shoes, lumber, fertilizer, toys, and some durable goods.
That the price control program has been successful in Puerto Rico is evident from the Cost of Goods and Services Indexes compiled by the Insular Bureau of Labor Statistics. These Indexes cover the cost of goods and services customarily purchased by wage-earner families in Puerto Rico. Using March 15, 1941, as a base, they show that the cost of food at the end of the fiscal year was only 0.5 point higher than at the end of 1942. The cost of clothing, which stood at 154.2 on August 15, 1942, had fallen to 148.4 at the close of the year. The price index for all items reported on by the Bureau of Labor Statistics increased only 1.2 points—from 142.2 on June 15, 1943, to 143,4 on June 15, 1944.
To assist in bringing about compliance with OPA regulations at the retail level, Price Panels were formed throughout the Island in the fall of 1943, and by June, 1944, . 29 such Panels were operating. In addition to the activities of the Panels in obtaining compliance by retailers where price violations have been reported, the Panels are requested to make at least one survey in a different field each month to determine whether merchants are operating in accordance with the regulations. A survey made in April, 1944, of 17 selected items in 10,000 foods stores, showed 96.88 per cent compliance.
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FORTY-FOURTH ANNUAL REPORT
On February 1, 1944, rent control was extended to Puerto Rico and by the end of the fiscal year 65,000 dwelling units, 104 hotels, and 555 rooming houses had been registered. The rent index dropped 0.8 point during the first month of regulation, and by April, 1944 had been stabilized at 104.9, according to the report of the Bureau of Labor Statistics.
The rationing of gasoline, tires and tubes, new passenger automobiles, typewriters, and bicycles was continued with but minor changes. Rationing of gasoline from August, 1943, to April, 1944, effected a saving amounting to 30.6 per cent of the quantity consumed under normal conditions. Mileage rationing of tires and tubes was adopted in July, 1943. With the improvement in the production of synthetic passenger tires, all public vehicles and most private passenger cars were made eligible for first grade passenger tires on June 1, 1944. In the same month, rationing controls on recapping were relinquished, to become effective on July 1, 1944.
A special problem arose during the year with regard to milk. Because of decreased production, milk which was usually sold in lower priced zones was being transferred to higher priced zones, thus creating a milk shortage in many municipalities. To control the distribution of milk, a Restriction Order was put into effect on September 15, 1943, which provides that milk can be transferred from a lower to a higher priced zone only upon written authorization of the Office of Price Administration.
In September, 1943, the Legal Division, which handled enforcement activities, was abolished. A separate Enforcement Division was established, and organized in six sections corresponding to the various phases of the work of the Office of Price Administration. A total of 2,214 complaints were received during the year, and convictions were obtained in all of the 35 cases prosecuted by the United States District Attorney.
Throughout the year an extensive information and educational program was carried on by radio, in the schools, by civic, labor and government organizations, and through consumers’ committees.
PUERTO RICO RECONSTRUCTION ADMINISTRATION
As in the two preceding years, the program of the Puerto Rico Reconstruction Administration was financed principally from funds allotted by the President out of the Puerto Rico Revolving Fund. For the year 1943-44 the. money thus made available totaled $1,505,644.33. This circumstance has limited PRRA’s activities.
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Operation of PRRA’s 1,210 urban dwelling units and 6,254 rural houses, together with 4,891 three-aere parcels on which no houses have been built, produced rental collections of $335,500. Outlays for management and maintenance amounted to $245,000. As of June 30, 1944, all of the urban houses and 98.5 per cent of the rural houses were occupied, and 80 per cent of the parcels of land without houses was rented. During the year long-term purchase agreements were made for 287 urban houses and 3,621 rural houses or vacant plots. Three hundred rural dwellings were constructed on vacant parcels aggregating 1,500 acres.
The Central Service Farms project, which was carried on with $335,000 of Federal and Insular funds, stressed the growing of food. Fifteen thousand acres of subsistence crops and 3,000 acres of cash crops were planted. Seeds produced from 550 acres of seed beds on the seven Central Service Farms, were given to resettlers, who also received assistance in cultivating, harvesting and marketing their crops.
Resettlers were paid for their labor on the Central Service Farms. Their work included planting, maintenance of intra-farm roads, and the operation of 34 rural waterworks systems which serve approximately 100,000 rural dwellers.
A 25-bed hospital was opened at the La Plata Project, and a health unit started at the Zalduondo Rural Rehabilitation Unit. These institutions, adjuncts of the Civilian Public Service Camps, are giving medical care to many persons for whom such service was not previously available.
The cost of supervision, organization, and financing of cooperatives rose to $610,000 this year, occasioned largely by the needs of the Lafayette Cooperative in refinancing its obligations to the Government. The Butyl Alcohol Plant of that cooperative, however, increased its production to its full capacity of more than 5,000,000 pounds of solvents per year, as against 3,500,000 pounds exported the previous year. The operation of the solvents mill provided substantial profits. Due to the drought and the effects of the earlier fertilizer shortage, sugar mill operations both at Lafayette and at Los Canos resulted in a loss.
A loan of $50,000 was made to a new cooperative (Cooperativa de Cosecheros de Cidra) for the growing, curing and marketing of citron and kindred fruits in distressed coffee areas. Additional loans of $22,000 were made to four vegetable marketing cooperatives. The Vanilla Cooperative will sell approximately 5,700 pounds of cured
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vanilla beans, the largest crop in its history. Approximately 1,600 bales of Sea Island cotton were marketed by the Cotton Growers Cooperative. Sales of fertilizers, insecticides, feeds, etc., by the So-ciedad Agricola, a cooperative financed by PRRA, amounted to over $900,000, as contrasted with $350,000 in the previous year.
SOIL CONSERVATION SERVICE
The Soil Conservation Service continued to center its activities around the production of food and forage crops for local consumption. The seven months’ drought which began in October, 1943, emphasized the benefits derived from conservation practices, and consequently placed a heavy demand on the Service foi technical assistance.
Eleven small farm irrigation systems were developed, and 1,092 acres of idle and brush land were placed under cultivation. These produced, 1,419,432 pounds of food crops and 3,440 tons of sugar cane, and gave added income and food to 939 families.
The “widespread practices” program, including simple practices for pasture land, crop land, and wood land, was put into effect on 52 farms comprising 2,511 acres, and resulted in increased food crops, animal units, and forage. In the Arecibo district, “widespread practices” accounted for additional food crops valued at $19,100. In the Mayaguez area, benefits credited to “widespread practices” included the production of 100,000 pounds of coffee, 250 tons of minor food crops, 6,500 tons of sugar cane, and forage for 250 animal units.
During the year, 310 cooperative agreements, covering 13,136 acres, were signed. This brings the total number of farms under cooperative agreements to 4,609, and acreage covered to 65,246.
Technical assistance was furnished to the Navy Department in erosion control and concealment of military operations by vegetation.
UNITED STATES EMPLOYMENT SERVICE
(War Manpower Commission)
The Puerto Rican office of the United States Employment Service was established under the War Manpower Commission primarily for the purpose of recruiting Puerto Rican workers for war industries on the Continent. The office at once took over the program previously initiated by the Insular Department of Education to the same end.
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After interviews to determine skills and the workers’ ability to meet other requirements, 131 groups of Puerto Rican workers (1,030 in all), left the Island and secured employment on the mainland. Although the results appear generally satisfactory, the program was discontinued in November, 1943, pending the development of plans for a large scale importation program which would give greater protection to workers and to their dependents.
In March, 1944, the larger program was initiated. Work contracts were negotiated between Continental employers and the* Insular Department of Labor with the cooperation of the War Manpower Commission. Among other things, the contracts specified that the employer would advance the cost of boat transportation from Puerto Rico to the Continent; that he would pay, without reimbursement, all other costs of transportation, subsistence, and emergency medical care from the port of entry to the place of employment and from there back to Puerto Rico upon the legal termination of the contract; that he would deduct 25 per cent of the gross earnings of the worker for transmission through the Insular Treasury and Department of Labor to the worker’s dependents; and that Puerto Rican workers would receive treatment and working and living conditions equal to those afforded other employees in the same occupation and phase of employment.
A total of 1,988 unskilled workers left San Juan under this program. Of these, 1,038 were employed by the Baltimore and Ohio Railroad Company, 332 by the Edgar F. Hurff Canning Company, 418 by the Campbell Soup Company, and 200 by the Utah Copper Company. This program was discontinued on June 30, 1944, upon refusal of Congress to authorize recruitment of workers in Puerto Rico.
WAGE AND HOUR DIVISION
One hundred and twenty complete plant inspections, involving 15,901 employees, were made by the Wage and Hour Division in the course of the year. Resulting restitutions amounted to $129,694.54 in back wages due 10,605 employees of 99 firms found in violation of the Fair Labor Standards Act of 1938. The Division also investigated 200 complaints which did not require complete plant inspections.
The Mayaguez office, in addition to inspection work, checked 4,709 needlework embroidery designs, and computed the wages due to homeworkers on each design. This office also passed judgment on 12,871
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FORTY-FOURTH ANNUAL REPORT
cases involving requests of employers for authority to make deductions from homeworkers’ pay for poor work or damaged goods.
Special Industry Committee Number Three for Puerto Rico was formed by the Administrator, as provided for in Section Five of the Fair Labor Standards Act. The committee was in session from March 15 to April 19, 1944, and recommended minimum rates of pay as follows:
gUgar________________________________________________35	cents	per hour
Industrial Alcohol-----------------------------------40	”	”
Rum -------------------------------------------------40	”
Banking, Insurance, Finance--------------------------40	’
Shipping---------------------------------------------40
Leaf Tobacco-----------------------------------------27	”
Needlework___________________________________________15 to 27 cents Per hour
Leather Goods-------------hand sewing----------------15 cents per hour
other operations----------24	”	”	’
Cigars and Cigarettes--------------------------------30	’
Bay Rum, Bay Oil, Aromatic Alcohol-------------------25	”
Vegetable, Fruit and Fruit Juice Canning-------------16
Vegetable Packing------------------------------------15
Newspaper Publishing and Graphic Arts----------------40
Paper Box Manufacturing------------------------------40	’ ’
Cement_______________________________________________40
Manufactured Coconut---------------------------------28	”
Hairnets_____________________________________________271/2	cents per hour
Art Novelties---------------------------------------- 45 cents per hour
Full Fashioned Hosiery-------------------------------30
WAR PRODUCTION BOARD
The volume of requests for priority assistance and information relative to- War Production Board regulations increased by approximately 60 per cent over that of the previous fiscal year.
In order to make possible maintenance and repair of existing buildings (industrial and residential), and to provide for essential new construction, authority was granted to import 32,000,000 FBM of lumber. Construction projects were authorized in the sum of $10,118,708—$7,855,220 representing Insular Government projects; $1,687,129, commercial and industrial work; $57,334, residential building up to April 30, 1944, when the Federal Housing Administration was delegated to process residential construction of five or less family units. Establishment of several concrete block-making plants was authorized to assist in the conservation of lumber.
OF THE GOVERNOR OF PUERTO RICO
73
A “Hurricane Stockpile” of galvanized, corrugated steel sheets, lumber, locks, hinges, and other material, was made available over and above supplies normally earmarked for the Island.
Foundries were helped to obtain materials for maintenance and repair of sugar mills and other industrial facilities. The cement plants, railroads, tramway, bus lines, telephone and telegraph utilities, and distilleries, were given full cooperation to assure continued operation. In some instances new equipment was authorized for replacements.
To assist agriculture, authorization was given for 63 track laying tractors, 84,000 eye hoes, 96,000 machetes, and 1,000 dozen spades and shovels. Emergency assistance was granted to enable the importation of twine for tobacco harvesting.
Tire recappers and retreaders were brought together, and a plea for 24 hour utilization of equipment and manpower resulted in 15 to 20 day service being reduced to three days, in the five major plants.
Special authorization permitted the cracker container manufacturers to purchase and use 2,200 tons of reject blackplate for cracker containers.
Molasses control provided equitable distribution of ’25,400,000 gallons to farmers for cattle feed and to distilleries for production of industrial alcohol and rum. Another 16,000,000 gallons was shipped to the continental United States for use in war production programs.
Wider powers, delegated to the local office, eliminated a large percentage of Washington actions, thereby saving time and inconvenience for the local government, industry, and the public at large.
WAR SHIPPING ADMINISTRATION
During the first six months of 1944, the War Shipping Administration provided transportation facilities for 58 per cent of the 962,250 short tons of sugar on the Island for shipment in 1944. In the first half of 1943 only 23.72 per cent of the export sugar stocks had been shipped. It is expected that practically all of the available warehoused sugar will have left the Island by the time the next grinding season starts.
Adequate shipping space was also provided by the War Shipping Administration for other commodities produced and manufactured in Puerto Rico, such as rum, tobacco, canned fruit, needlework, cotton, alcohol, and hides.
Upon the recommendation of the War Shipping Administration, the Treasury Department waived the Coastwise Laws to permit the
forty-fourth annual report
use of vessels of 50 gross tons and over, of foreign registry. This was particularly helpful to the rum industry. Distilleries might have been forced to close had they not been able to use foreign ships to bring empty bottles down, and carry filled bottles back.
In May, 1944, a United Seamen’s'Service Club was established in San Juan to provide residential, recreational and health facilities to the merchant seamen coming to Puerto Rico. Merchant seamen stranded in Puerto Rico are now looked after by this Club, and are repatriated as promptly as possible by the San Juan office of the War Shipping Administration.
I have the honor to be, Sir, your obedient servant,
R. G. Tugwell,
Governor.
STATISTICS




OF THE GOVERNOR OF PUERTO RICO
77
Table 1.—Food crop acreage harvested and production in 1943 compared ivith the 1939—40 census figures
Food crop	Census 1939-40		19431	
	Area	Production	Area	Production
Beans					 Sweet potatoes	 Corn		 Rice		 Pigeon peas	 Yams	 Taniers	 Cowpeas			 Cassava				 Dasheen	.*	 Bananas	 Plantains			 Total		Cuerdas2 48, 363 49, 565 59, 350 13, 753 34, 301 8,827 22, 080 12, 373 6,596 8,426 47,114 16, 775 327, 523	Cwts. 192,488 1, 031, 600 368,110 79,156 157, 222 258, 525 427, 072 50,480 114, 014 212,879 3,963, 584 1,079, 092 7, 934, 222	Cuerdas2 130, 765 87,770 165, 255 45, 251 38, 790 13,128 41,822 26,689 19,174 10, 710 88,456 .40,920 708, 730	Cwts. 312,610 2,323,865 795, 083 233,817 171, 655 600, 042 1, 080,935 95,997 340,090 406, 480 2, 597, 513 2,446, 066 11, 404,153
i Estimated, by the Crop Forecasting Section of the P. R. Department of Agriculture and Commerce.
2 One cuerda is equivalent to 0.9712 acre.
, Source: Puerto Rico 1910 Census of Agriculture, U. S. Department of Commerce, Bureau the Census, and P. R. Department of Agriculture and Commerce.
Table 2.—Employees of the Insular Government under the jurisdiction of Civil Service Laws, fiscal years 1933-34 to 1943-44
Fiscal year	Total1 2	Classified employees Per cent Number of total	
1943-44	 1942-43	 1941-42	 1940-41	 1939-40	 1938-39	 1937-38	 1936-37	 1935-36	 1934-35	 1933-34		19, 5882 18, 015 18,894 15, 579 15, 394 14,493 13,435 12,414 10,830 9, 827 8,965	9,446 6, 324 6, 744 5,064 5,420 4,471 4,067 3, 751 3,184 2,948 2,868	48.2 35.1 35.7 32.5 35.2 30.8 30.3 30.2 29.4 30.0 32.0
1 Excludes employees of all independent authorities not covered by the Civil Service Laws.
2 Excludes employees of the University of Puerto Rico.
Source: P. R. Civil Service Commission.
78	FORTY-FOURTH ANNUAL REPORT
Table 3.—Employees1 of the Insular Government, by agencies, fiscal years 1939-44
Agency	Fiscal year					
	1943-44	1942-43	1941-42	1940-41	1939-40	1938-39
Department of Education	 Department of Health	 Department of Finance			 Insular Police	 University of Puerto Rico	 School of Tropical Medicine	 Insular Board for Vocational Edu- B cation	 Department of the Interior	 Department of Justice	 Department of Agriculture	 Department of Labor	 btate Insurance Fund	 Office of the Auditor	 Bureau of Supplies, Printing and Transportation		 Insular Procurement Office	 House of Representatives	 Senate	 All other agencies	 Total		7,524 4,720 1,111 1,644 2 255 52 628 1,016 450 227 217 197 149 100 104 1,194 19, 588	7,136 3,188 1,125 1,730 793 177 416 569 821 459 181 275 167 166 92 92 628 18, 015	7,004 3, 764 1,035 1,582 699 177 416 1,039 812 397 *	210 118 111 166 106 71 1,187 18, 894	6,450 2, 541 788 1,133 447 121 370 1, 516 749 257 200 143 74 152 111 83 444 15, 579	6,081 2,703 786 1,144 447 82 375 1,333 747 296 196 143 92 148 101 110 610 15, 394	6,190 1,966 716 1,138 580 77 390 1,274 752 212 197 139 92 135 71 109 455 14,493
i Excludes employees of all independent authorities not covered by the Civil Service Laws.
2 Not reported by Civil Service Commission.
Source: P. R. Civil Service Commission.
Table 4.—Number of applicants for Insular employment examined under Civil Service Laws, fiscal years 1938-39 to 1943-44
Source: P. R. Civil Service Commission.
Table 5.—Enrollment in public and private day schools of Puerto Rico, selected school years 1900 to 1944
Elementary and secondary schools
Year	Public	Private	Total
1900	 1910	 1920	 1930	 1940	 1944		34, 009 95, 342 181,658 221,189 286,098 309, 595	5,823 5,728 11,799 12, 743	34,009 95,342 187,481 226,917 297,897 322,338
Source: P. R. Department of Education.
Year	Total examined	Applicants passed and placed on register	
		Number	Per cent of total
UH 1943-44	 1942-43	 1941-42	 1940-41	 1939-40	 1938-39		4,575 1,856 2, 219 371 5,340 28	3,706 1,799 2,208 352 4,472 28	81.0 96.9 99.5 94.9 83.7 100.0
OF THE GOVERNOR OF PUERTO RICO
79
Table 6.—Enrollment in public clay schools, by grades, for the 1944 school year
Grade	Total		Urban		Rural	
	Number.	Per cent by grade	Number	Per cent by grade	Number	Per cent by grade
1	 2	 3	 4	 5	 6	 9	 10	 11	 12	 Total		63, 717 50,476 45,439 35,494 30,199 26, 272 18, 752 13,936 12,004 6, 323 4,030 2,953 309, 595	20.6 16.3 14.7 11.5 9.7 8.5 6.0 4.5 3.9 2.0 1.3 1.0 100.0	20,887 18,009 18,087 17,015 16, 670 16,249 13,979 10,455 9,241 6,323 4,030 2, 953 153, 888	13.6 11.7 11.8 11.0 10.8 10.6 9.1 6.8 6.0 4.1 2.6 1.9 100.0	42, 830 32,467 27,352 18, 479 13, 529 10, 023 4, 773 3,491 2,763 155, 707	27.5 20.8 17.6 11.9 8.7 6.4 3.1 2.2 1.8 100.0
Source: P. R. Department of Education.
Table 7.—Percentage - division of enrollment in public day schools between under, normal, and over age groups, by grade —1944 school year
O-Q-E. AS OF SEPTEMBER 1, 1943)
Grade	. Under age		Normal age		Over age	
	Age	Per cent	Age	Per cent	Age	Per cent
1	 2	 3	 4	 5	 6	 7	 8	 9	 10	 11	 12	 All		5 5-	6 6-	7 7-	8 8- 9 8-10 10-11 10-12 11-13 11-14 13-15 14-16	.6 1.0 1.4 1.8 2.7 3.9 4.8 6.2 7.7 14.2 16.3 22.9 2.9	6-7 7-8 8-9 9-10 10-11 11-12 12-13 13-14 14-15 15-16 16-17 17-18	45.5 40.5 39.7 38.5 41.4 42.8 45.8 42.9 49.0 55.1 58.9 58.1 42.9	8-21 9-18 10-19 11-21 12-21 13-21 14-21 15-21 16-21 17-21 18-21 19-21	53.9 58.5 58.9 59.7 55.9 53.3 49.4 50.9 43.3 30.7 24.8 19.0 54.2
Source: P. R. Department of Education.
Table 8.—Enrollment in public day schools, by type of attendance, school year 1944
Type of attendance	Total		Urban		Rural	
	Number	Per cent	Number	Per cent	Number	Per cent
Double enrollment	 Interlocking	 Total part-time.... Full day	 Total		163, 730 25,675	52.9 8.3	44,811 23,394	29.1 15.2	118,919 2,281	76.4 1.4
	189, 405 120,190	61.2 38.8	68, 205 85, 683	44.3 55.7	121, 200 34, 507	77.8 22.2
	309, 595	100.0	153,888	100.0	155, 707	100.0
Source: P. R. Department of Education.
80
FORTY-FOURTH ANNUAL REPORT
Table 9.—Number of pupils continuing public day school attendance through 1940, by grade and year of attendance, per each 1,000 enrollment in the first grade in 1929
Source: P. R. Department of Education.
Table 10.—Cost of education per pupil enrolled in public day schools by selected fiscal yehrs, 1909-10 to 1943-44
Source: P. R. Department of Education.
Table 11.—Receipts, disbursements, and cash balances, General and Trust Funds, fiscal year 1943—44
Item	General Fund	Trust Funds	Total
Cash balance—July 1, 1943	 Receipts: Revenue	 Non-revenue	 Repayments	 Trust funds	 Transfers	 Total	■... Disbursements: Fiscal year 1942-43	 Fiscal year 1943-44	 No fiscal year	 Indefinite appropriations	 Trust funds	 Transfers	 Total	 Cash balance—June 30, 1944		Dollars 24, 402, 077 103, 993, 636 154,954 2, 508,153 1, 646,756 108, 303,499 974, 695 21,493,937 21, 001, 830 1, 533, 539 5, 648, 792 50, 652, 793 82,052, 783	Dollars 25, 846, 621 43, 012, 901 5, 648, 792 48, 661, 693 44, 989, 449 1, 646, 756 46, 636, 205 27, 872,109	Dollars 50, 248, 698 103,993, 636 154,954 2, 508,153 43, 012,901 7,295, 548 156, 965,192 974, 695 21, 493,937 21,001, 830 1, 533, 539 44, 989, 449 7, 295, 548 97, 288, 998 109, 924, 892.
Source: Office of the Auditor of Puerto Rico.
Grade	Year of enrollment	Number of pupils
1	 2	 3	 4	 5	 6	,	 7	 8	 9	 10	 11	T	 12		1929 1930 1931 1932 1933 1934 1935 1936 1937 1938 1939 1940	1,000 735 623 406 275 199 157 139 52 45 36 . 32
Fiscal year	Cost per pupil
1909-10	 1919-20	 1929-30	 1939-40	••..................-	 1940-41	 1941-42	 1942-43	 1943-44		$11.29 16.20 23.75 24.42 23.73 24.35 29.91 33.13
Source: P. R. Department of Finance, Bureau of Excise Taxes.
OF THE GOVERNOR OF PUERTO RICO	gf
Table 12.—General Fund revenue receipts by sources, fiscal years ending June 30, 1940-44
Source	1943-44	1942-43	1941-42	1940-41	1939-40
• Customs	 U. S. Internal Revenue	 Beverage taxes	 Excise taxes	 Victory tax	 Income tax	 Property tax	 Inheritance tax	 Telegraph and telephone receipts	 Court fees and fines	 Harbor and dock fees	 Miscellaneous receipts	 Total		Dollars 1,900,000 63,884, 358 5,479,072 12,300, 061 3, 239,305 16,243,029 427, 646 185,866 42,025 37,194 255,081 103,993,637	Dollars 2,450, 000 13, 550,073 4,289,469 8,380, 219 578,870 11,319,106 359,430 113,140 90,377 45,954 38,231 264,110 41,478, 979	Dollars 2,085,000 13,939,989 4,141,495 8, 791, 515 7,635,383 367,469 84,456 186,872 47, 294 49,450 239,424 37, 568,347	Dollars 840,000 4,477,481 2,823,883 8, 619,606 2,843,433 377,004 222,659 162, 939 38,136 51,330 203, 229 20, 659, 700	Dollars 1, 030, 000 2, 779, 496 2,064, 890 7, 440, 083 2, 243, 584 415, 064 253, 821 145, 028 36, 551 51, 923 404, 018 16, 864, 458
Source: P. R. Department of Finance, Bureau of General Accounting.
Table 13.—Excise tax collections for general and trust funds by important single source, fiscal years ending June 30, 1940-44
Item	1943-44	1942-43	1941-42	1940-41	1939-40
General fundi Cigars and cigarettes	 Sugar	 Matches	 Self-propelling vehicles, etc	 Pneumatic tires, inner tubes, etc.... Phonographs, radios, etc	 Cinematographic films	 Chewing gum, bonbons, etc	 Electrical and fluid gas apparatus. Electric fans and ventilators	 Jewelry	 Kerosene	 Fuel oil	 Cosmetics, perfumery, etc	 Lubricating oils 	 Gas and diesel oil	 Contracts	 Internal revenue licenses	 Notarial instruments	 Sales tax, 2 per cent	 Gasoline [3 cents a gallon]	 Special funds: Gasoline	 Cigarettes	 Auto and chauffeur licenses	 Auto P. A	 Public shows	 Molasses: Malaria fund	 University fund			Dollars 5,973, 208 816, 694 50,934 639, 238 177, 608 38, 609 116, 760 69,057 354, 656 55,505 206,312 263, 755 112, 509 337, 248 107,498 473,626 43, 890 454, 527 379,326 1, 205, 623 2,813,174 1,050, 239 1,023,131 57,770 585,311 88, 765 72, 731	Dollars 3, 281,613 980,433 105, 591 219,436 188, 572 27,969 112, 700 34, 262 87,417 64,031 113,006 283, 251 104, 253 109,342 . 71,181 509,133 108, 232 360, 396 359,484 56,955 994, 543 3,471,433 697, 594 1, 538, 556 143,336 355, 625 168, 794 122,100	Dollars -3,731,631 1,090,468 77, 253 843,663 73,025 147,053 114,079 91,485 112,356 161,176 49,143 208,180 134, 599 129,446 110,399 288,494 130, 446 340, 469 368, 442 195,356 3, 557,415 1,167, 256 902, 364 57, 744 204,427 122, 209 92,571	Dollars 3,123,325 737, 544 49,330 931, 803 118, 240 75,898 109,758 99,813 82,953 114,315 33, 670 211, 283 93, 061 80,842 189, 229 92, 055 302,390 301, 527 1,382, 334 2,889,187 499,171 561, 745 134,690 138,058 109, 206	Dollars 2, 813, 678 799, 955 94, 546 601, 111 134, 077 52, 596 97, 897 65,313- 47, 819 85, 877 27,412 162, 383 68, 737 61, 374 207, 553 . 114, 740 279,118 300, 229 998,574 2,650, 372. 487, 296-781, 324 120, 26 146, 0 lO -lOS, 061
82
FORTY-FOURTH ANNUAL REPORT
Table 14.—Trust funds: revenue receipts by purpose of fund, fiscal years 1940-44
Receipt	1943-44	1942-43	1941-42	1940-41	1939-40
Total receipts	 Municipal bond and note redemption taxes	 Municipal property tax	 Additional municipal property taxes for local purposes	 School tax	 Special deposit—Redemption of outstand- ing bond for $200,000—Issue of Municipality of Vega Baja	 Special deposit—Accrued interest—$250, 000 loan of the municipality of Caguas Special additional tax for the redemption of taxes per Act No. 185, 1941	 Redemption funds, Insular	 Redemption funds, Municipal	 Advances to municipalities	 Deferred taxes	 Agriculture and Commerce funds	 Educational funds	 Health and sanitation funds	 Department of the Interior	 Isabela Irrigation Service	 Land Authority of Puerto Rico	 P. R. Lottery	 Staple commodities fund	 University funds	 Water Resources Authority funds	 Workmen’s compensation funds	 Employees’ savings funds	 Retirement funds	 Miscellaneous, n. e. c		Dollars 43,012, 901 2, 203, 247 3, 219,198 709, 353 358, 537 32, 692 11, 986 1, 052,425 1, 879, 748 274, 995 519, 293 67.622 106,142 721, 740 1, 636, 960 4,913,006 1, 558, 924 340,397 6,469, 620 1, 200,750 3,971, 257 1,186 3, 291,093 2, 771, 461 812, 933 4, 888, 336	Dollars 39,342,012 1, 868,025 2, 711, 707 429,126 306, 874 590, 282 1, 755,300 768, 950 348,832 87, 526 1,103, 768 346, 381 1, 766,826 6,464, 980 911,934 3,935 5, 633,425 466,169 2, 279,944 765,094 3, 357, 333 2, 601, 776 847,092 3, 926, 733	Dollars 38,026, 494 2,173,833 2, 743,177 218, 557 310, 789 534, 598 2, 681, 902 22, 445 92, 561 530,219 1, 393,169 719, 639 5, 234,220 1,065,830 5,076, 005 1, 484,318 4,760,963 28, 438 1,884, 632 677,067 6,394,132	Dollars 32,382, 700 1, 984, 756 2,827, 507 107, 349 319, 998 1, 720,495 27, 269 196,066 404, 883 419, 776 ' 591,828 4, 071, 621 866, 881 4, 592,120 1, 275, 667 1,588, 569 29,009 1,733, 960 603, 234 9,021, 712	Dollars 32, 229,932 2, 064, 951 3,121, 418 119, 663 357, 620 1,826, 518 37, 410 410,375 359,455 376, 540 473,144 4, 540, 625 1,154, 993 4,138,096 1, 243, 499 1, 567,920 39,061 1,491,096 641,801 8, 265, 747
Source: P. R. Department of Finance, Bureau of General Accounting.
'Table 15.—Disbursements and transfers from the General Fund, fiscal year 1943-44 compared with 1942-43
Item		1943-44	1942-43
.Disbursements Legislative			 Judicial	 Attorney General	 Office of the Auditor	 Department of Finance	 Department of the Interior	:	 Department of Education	 Department of Agriculture and Commerce	 Insular Police	  -	• Department of Health.		'	 Department of Labor			 University of Puerto Rico	 War Emergency Program	 General Miscellaneous				 Total	 Total disbursements and transfers			Dollars 528, 811 1,021, 575 673,997 312,132 1, 606, 738 929,676 7, 767, 938 535,430 2, 252, 262 2, 771, 792 377, 998 426,371 12,322, 607 10,984, 216 2,492,458 45,004,001 5, 648, 792 50,652, 793	Dollars 371, 931 1, 005, 956 703,205 328, 993 1, 476,949 2,078, 908 7, 818, 938 649,366 2, 249,153 3,014,164 317,346 434,557 1,801, 803 10,904, 749 2, 540,981 35, 696,999 7, 529,778 43, 226, 777
Source: Office of the Auditor of Puerto Rico;
OF THE GOVERNOR OF PUERTO RICO
83
Table 16.—Surplus of resources over appropriation liabilities, end of year and increase or decrease during year, General Fund, fiscal years 1939-44
Fiscal Year	Surplus end of year	Increase
1943-44	 1942-43	 1941-42	 1940-41			 1939-40	 1938-39		Dollars 74, 921,113 7,112, 796 15, 054, 969 4, 404, 557 1,444,139 99, 510	Dollars 67,808,317 7, 942,1731 10, 650,412 2, 960,418 1,344, 629 205, 726*
^Decrease.
Source: Office of the Auditor of Puerto Rico.
Table 17.—Indebtedness of the Insular Government of Pzterto Rico, end of fiscal years 1939-44
Fiscal year	Bonded debt	Notes payable	Total debt	Decrease
1943-44	 1942-43	 1941-42	 1940-41	 1939-40	 1938-39		Dollars 11, 244,000 16,398,000 23, 700,000 26, 975,000 27,200,000 26, 215,000	Dollars 635,000 334,000 695,000 170, 000	Dollars 11,244,000 16,398, 000 24,335, 000 27,309,000 27, 895,000 26, 385,000	Dollars 5,154,000 7, 937, 000 2, 794,000 586,000 1, 510,0001 1,190,000
increase.
Source: Office of the Auditor of Puerto Rico.
84
FORTY-FOURTH ANNUAL REPORT
Table 18.—Debt incurring capacity of the Insular Government of Puerto Rico, encl of fiscal year 1943-4A compared with 1942-43
Item	1943-44	1942-43
Assessed property valuation				 Debt incurring capacity—10 per cent of assessed valuation	 Insular bonds outstanding; Workmen's relief bonds of 1930	 Guayama irrigation bonds	 Road bonds	 Public improvement bonds	 Public hospital charity bonds of 1938	 Isabela irrigation consolidation bonds of 1938	 Isabela irrigation bonds	 Refunding bonds	 Consolidation bonds of 1935	 City of Ponce lot and building bonds			 Add;	, ,	,,	. . Temporary loans contracted by municipalities and chargeable against Insular Government borrowing capacity	 Le S Refunding bonds secured by equal amount of municipal and school bonds	 Sinking funds;		 For; Ponce District building bonds	 Road public improvement and homestead bonds	 Isabela irrigation bonds	 Net outstanding indebtedness	 Net available debt margin				Dollars 351,182,003 35,118, 200 150,000 3,195, 000 2,000,000 2,000, 000 200, 000 1, 500, 000 1, 475, 000 150,000 488, 000 86,000 636, 908 150, 000 904, 682 2,788 641, 548 260,346 10,826, 226 24, 291,974	Dollars 348,114,812 34, 811,481 175,000 3,195,000 3, 250,000 2,000,000 250,000 1,800,000 1, 475,000 150,000 988,000 88,000 692,394 150,000 651,394 4,962 419,421 227,011 13, 262,000 21, 549,481
Source; Office o:' the Auditor of Puerto Rico.
OF THE GOVERNOR OF PUERTO RICO
85
Table 19.-—Balance sheet of the Insular Government of Puerto Rico, end of fiscal year 1943^44 compared with 1942-43
Item	1943-44	1942-43	Difference	
			Increase	Decrease
	Dollars	Dollars	Dollars	Dollars
Assets: Laud and equipment	 Investments		 Cash	 Sinking funds	 Trust fund reserves	 Notes receivable	 Accounts receivable.			 Deferred assets	......................... Deferred debits	 University of Puerto Rico		83, 830, 620 1, 664, 754 108, 260,139 1, 257, 687 8,172,803 12,223,828 777, 237 63,181 8, 461, 541	80,872, 296 550, 000 56,884,198 1,124,184 6, 470, 744 221, 670 12, 938, 767 1, 501,896 77, 092 6, 813, 962	2, 958,324 1,114,754 51,375, 941 133, 503 1, 702,059 1, 647, 579	221, 670 714,939 724, 659 13, 911
Total				224, 711, 790	167, 454, 809	57, 256, 981	
Liabilities: Notes payable	 Accounts payable			 Trust fund liabilities	 Deferred liabilities	 Deferred credits	 Bonded indebtedness	 Contingent liabilities	 Trustees, University of Puerto Rico	 Surplus, Guayama Irrigation Service	 Surplus, Isabela Irrigation Service	 Surplus, hydroelectric projects	 Surplus, Ponce Electric System	 Donated surplus, Isabela Irrigation Service	 Paid-in surpluses	 The People of Puerto Rico	■		2, 221, 220 35,794,854 1, 583 1, 252, 857 11, 244, 000 10, 377 8, 461, 541 3,872, 638 605,1011 312, 969 162,144, 852	900,000 11,024, 980 33, 561, 056 3, 924 1, 297, 330 16, 398,000 10, 377 6, 813, 962 3, 982,840 906, 2691 3, 702, 360 492, 299 6, 244, 661 22,850 83, 906,439	2, 233, 798 1, 647, 579 301,168 78, 238, 413	900, 000 8,803, 760 2, 341 44, 473 5,154,000 110, 202 3, 702, 360 492, 299 5,931, 692 22, 850
Total		224, 711, 790	167, 454, 809	57, 256, 981	
i Decrease.
Source: Office of the Auditor of Puerto Rico.
86
FORTY-FOURTH ANNUAL REPORT
Table 20.—Total assessed valuation and total taxes levied on real and personal property owned by corporations and private citizens, fiscal years ending June 30, 194L-44
Item	1943-44	1942-43	1941-42	1940-41
Assessed valuation	 Corporation property	 Private property	 Taxes levied	 Corporation property	 Private property		Dollars 351,182,003 102, 580,430 248, 601, 573 9,131,032 2,666, 740 6,464, 292	Dollars 348,114,812 97,888,690 250, 226,122 8,892,877 2,490, 974 6,401, 903	Dollars 322,103, 099 78,168, 980 243, 934,119 8,063,492 1, 975,401 6,088, 091	Dollars 315,431,231 75,309,830 240,121,401 7, 749, 273 1,855, 731 5,893, 542
Source: P. R. Department of Finance, Bureau of Property Taxes.
Table 21.—Total and per capita assessed valuation of personal and real property, fiscal years 1941-44
Item	1943-44	1942-43	1941-42	1940-41
Assessed valuation	 Real property	 Personal property	 Assessed valuation per capita1		 Real property.					 Personal property		Dollars 351,182,003 275,160, 915 76,021,088 187.87 147.20 40.67	Dollars 348,114, 812 272, 824,499 75, 290, 313 186.23 145.95 40.28	Dollars 322,103,099 266, 952, 795 55,150,304 172.31 142.81 29.50	Dollars 315,431, 231 261,460,125 53, 971,106 168.74 139.87 28.87
1 Based on a population of 1,869,255 on April 1, 1940 according to the 1940 Census. Source: P. R. Department of Finance, Bureau of Property Taxes.
Table 22.—Net income tax assessment by type of taxpayer ' through June 30, 1944 for taxable years 1938-43
Taxpayer	1943	1942	1941	1940	1939	1938
Individuals	 Partnerships	 Corporations	 Withheld at source	 Gross assessment...... Tax cancelled	 Net assessment		Dollars 5,047,791 1,367,146 5,174,637 794,633 12, 384, 207 85, 725 12, 298, 482	Dollars 4, 783,094 1, 898, 544 5, 085,164 612, 801 12,379, 603 216,857 12,162, 746	Dollars 2,880,443 1,335,147 4,391,678 455,104 9,062,372 425, 744 8,636,628	Dollars 1,910,198 672, 234 2,491, 638 735, 804 5,809,874 374,049 5, 435, 825	Dollars 618, 932 389, 079 1, 655, 951 16, 664 2, 680, 626 323, 238 2, 357, 388	Dollars 596,380 353,419 1, 541, 535 12,113 2, 503,447 155,828 2,347, 619
Source: P. R. Department of Finance, Bureau of Income Tax.
OF THE GOVERNOR OF PUERTO RICO
87
Table 23.-—Number of income tax payers and amount paid 1 by class of taxpayer, for the taxable years 1943, 1942, and 1941 as of June 30, 1944, 1943 and 1942
Taxpayer	Taxable year 1943 as of June 30, 1944		Taxable year 1942 as of June 30, 1943		Taxable year 1941 as of June 30, 1942	
	Number	Amount paid	Number	Amount paid	Number	Amount paid
Individuals	 Partnerships	 Corporations	 Withheld at source	 Toy al		10, 761 385 492 54	Dollars 3,807, 764 1,149,090 4,497, 955 791, 283	2,544 381 450 165	Dollars 2,017,039 1, 420,382 3, 687, 793 604, 474	3, 539 286 385 130	Dollars 1, 043, 893 767, 718 2, 896, 604 391, 268
	11, 692	10, 246,092	3, 540	7, 729, 688	4, 340	5, 099, 483
iExcluding surcharges.
Source; P. R. Department of Finance, Bureau of Income Tax.
Table 24.—Receipts of the Municipal Governments of Puerto Rico, fiscal year 1943-44 compared with 1942-43
Item	1943-44	1942-43
Total receipts	 Budgetary receipts	 Property taxes			 General fund	 Current fiscal year			 , Previous fiscal years		 School fund	 Current fiscal year	 Previous fiscal years	 Redemption funds	 Funds for special purposes	 Local revenues	 Current fiscal year	 Imposts	 Aqueducts		 Electric service	 Sewerages	 Hospitals	 Rent of property	 Sale of properties	x	 Miscellaneous receipts							 Previous fiscal years	 Non-budgetary receipts		Dollars 11,952,327 9,327, 459 5, 999, 277 2, 426, 679 1, 656, 964 769, 715 1,175, 848 803, 374 372, 474 1, 757, 544 639, 206 3, 328,182 2, 535, 736 271,197 744,131 93, 239 38,406 13, 686 237,845 12, 725 1,124, 507 792, 446 2, 624, 868	Dollars 11,602,075 7, 511, 685 4, 958, 856 1, 829,056 1,425,885 403,171 886, 957 691,077 195, 880 1, 883, 404 359, 439 2, 552, 829 2, 065, 798 282, 937 665, 268 88,140 32,172 10, 343 201,161 6, 960 778, 817 487,031 4, 090, 390
Source; Office of the Auditor of Puerto Rico.
88
FORTY-FOURTH ANNUAL REPORT
Table 25.—Disbursements of the Municipal Governments of Puerto Rico, fiscal year 1943—44 compared with 1942-43
Item	1943-44	1942-43
Total disbursements	 Budgetary services	 Current fiscal year	 Municipal assembly	 •General administration	 Protection of person and property	 Public ways and plazas	■>	 Maintenance of miscellaneous properties	 Sanitation	 Correction	 Charities	 Education	 Aqueduct	 Electric service	'	 Debt service...	 Capital outlays	 Previous fiscal years	 Non-budgetary services			Dollars 12, 480, 014 9,057, 709 6, 453, 251 6, 864 961, 917 58, 409 435, 942 79,321 538, 523 65,060 1,425,085 815, 465 601, 507 85, 453 1,355, 296 23, 509 2, 604, 458 3,422, 305	Dollars 10, 848, 048 7, 583, 280 5, 445,133 6, 307 809, 216 45, 502 236,017 64, 421 412, 330 56,248 967, 308 692, 326 524,873 78, 996 1, 493, 927 57, 662 2,138,147 3, 264, 768
Source: Office of the Auditor of Puerto Rico.
Table 26.—Indebtedness of the Municipal Governments of Puerto Rico, end of fiscal years 1940-44
Item	1943-44	1942-43	1941-42	1940-41	1939-40
	Dollars	Dollars	Dollars	Dollars	Dollars
Total indebtedness		 Principal outstanding	 Interest payable	 Bonds	 Loans with Insular Government	 Principal outstanding	 Interest payable	 Current bank loans	 Principal outstanding	 Interest payable	 Advances of taxes	 Principal outstanding	 Interest payable	 Redemption fund deficiencies due Treasurer of P. R	 Other indebtedness	 Principal outstanding 	 Interest payable		17,030,406 17,023,077 7,329 12,482, 800 280,155 273,000 7,155 4,020,663 4,020,663 6,124 5,950 174 71,890 168, 774 168, 774	18,021,930 18,007, 588 14,342 13,306, 900 301, 500 288,000 13, 500 3,929,870 3, 929,870 6,837 6, 217 620 -75,322 401, 501 401, 279 222	19,118, 652 19,117,004 1,648 14, 401,000 294,080 293,000 1,080 4,018,130 4,018,130 471 471 71,080 333, 891 333, 794 97	19, 732; 839 19, 707, 502 25,337 14, 991,100 322, 795 298, 000 24, 795 4,003, 581 4, 003, 577 4 471 471 74, 630 340, 262 340,195 67	19,140,475 19,126, 333 14,142 16,086, 700 315, 960 303,000 12,960 2,313, 875 2, 313, 254 621 471 471 75,890 347, 579 347,489 90
Source: Office of the Auditor of Puerto Rico.
OF THE GOVERNOR OF PUERTO RICO
89
Table 27.—Debt incurring capacity of the municipalities of Puerto Rico, end of fiscal year 1943-44 compared with 1942-43
Item	1943-44	1942-43
Assessed valuation1	  ;	 Municipality of San Juan	 Municipality of Ponce	 Municipality of Mayaguez	 All other municipalities	 Debt incurring capacity	 Municipality of San Juan, 10 per cent of valuation	 Municipality of Ponce, 10 per cent of valuation	 Municipality of Mayaguez, 10 per cent of valuation	 All other municipalities, 5 per cent of valuation	 Outstanding indebtedness—Net	 Unaccrued payables		 Bonds	 Local loans	 Loans with Insular Government	 Other indebtedness		 Accrued principals payable	 Bond redemption fund deficiencies due Treasurer of Puerto Rico	 Loans with Insular Government	 Less Redemption funds	'.		 For bonds	  ' For local loans	 Local loans authorized to be contracted.			 Indebtedness outstanding and authorized to be contracted	 Debt incurring margin							Dollars 346,977, 954 82, 706, 970 29, 878, 252 18, 616,080 215,776, 652 23,908,963 8, 270,697 2, 987,825 1, 861, 608 10, 788, 833 13, 666,620 16, 247, 738 11, 842,300 4,020,663 216,000 168,775 128,889 71,889 57, 000 2, 710,007 2,109,349 600, 658 382, 000 14,048, 620 9,860,343	Dollars 309, 493, 449 77,398, 311 25,380,054 14,101, 984 192, 613,100 21,318, 690 7, 739,831 2, 538,006 1,410,198 9, 630,655 14,866, 731 16, 837,112 12, 636, 900 3, 929, 870 235,000 35,342 128, 322 75, 322 53, 000 2,098, 703 1, 836, 796 261,907 110, 500 14, 977, 231 6,341,459
1 1943-44, May 4, 1944; 1942-43, May 7, 1943.
Source: Office of the Auditor of Puerto Rico
Table 28. — Municipalities with indebtedness in excess of limitations1 end of fiscal year 1943-44 compared with 1942-43
Municipality	1943-44	1942-43
Total in excess of debt margin	I Anasco		 Barceloneta			 Ceiba	;	 Ciales	 Lares					 Las Marias	 Luquillo		 Morovis	 Quebradillas	 Trujillo Alto	 Vieques		Dollars 179, 648 9, 301 20,236 2,807 39, 865 . 69,263 7,419 , 15,922 7,361 1, 529 5, 945	Dollars 248, 871 18, 933 39, 423 8, 452 45, 433 74, 919 11,916 9, 292 15, 202 15, 655 9, 646
Indebtedness incurred prior to last amendment to Organic Act prescribing limitations. Suorce: Office of the Auditor of Puerto Rico.
90
FORTY-FOURTH ANNUAL REPORT
Table 29.—Births and birth rates per 1,000 population, by months, Puerto Rico, 1943, 1942, and 1941
Month	1943		1942		1941	
	Number	Rate	Number	Rate	Number	Rate
January	 February	 March	 April	 May	 June	 July	 August.		 September	 October	 November	 December	 Total		6,091 5,814 7,006 6, 990 7, 216 7,187 6, 631 6,145 6,069 6,181 6,319 6, 744 78,393	36.2 38.3 41.7 43.0 42.9 44.2 39.5 36.6 40.0 36.8 41.6 40.1 39.6	6,343 6,058 6,847 6, 965 7,071 6, 668 6,425 6,307 6,359 6, 542 6,200 6,620 78, 405	38.4 40.6 41.5 43.6 42.8 41.7 38.9 38.2 39.8 39.6 38.8 40.1 40.3	6, 404 5,806 6, 382 6,025 6, 834 6,717 6,393 6, Q91 6, 443 6, 634 6,005 6, 396 76,130	39.5 39.6 39.3 38.3 42.1 42.8 39.4 37.5 41.0 40.9 38.2 39.4 39.8
Source; P. R. Department of Health.
Table 30.—Deaths and death rates per 1,000 population, by sex, and type of residence, Puerto Rico, 1943, 1942, and 1941
Item	1943		1942		1941	
	Deaths	Rate	Deaths	Rate	Deaths	Rate
Total	 By sex; Male	 Female	 By type of residence; Urban	 Rural		29,065 15, 241 13, 824 13, 380 15, 685	14.7 52.4 47.6 19.3 12.2	32, 218 16, 958 15, 260 14,177 18, 041	16.6 52.6 47.4 21.0 14.2	35, 551 18, 540 17,011 15, 230 20, 321	18.6 52.2 47.8 23.2 16.2
Source; P. R. Department of Health.
OF THE GOVERNOR OF PUERTO RICO	91
Table 31.—Death rates per 100,000 population by leading causes, Puerto Rico, 1939-43
List No.	Cause of death	Rate per 100,000 population				
		1943	1942	1941	1940	1939
119-120 13- 22 107-109 90- 95 28 130-132 45- 55 140-150 169-198 96- 99 83 163-164 73 106 30 165-168 40 9 33	Diarrhea and enteritis (all ages)	 Tuberculosis (all forms)	 Pneumonia (all forms)	 Diseases of the heart	 Malaria	 Nephritis	 Cancer	 Disease of pregnancy, childbirth, and the puerperium1 2	 Accidents	 Diseases of the arteries	 Cerebral hemorrhage, embolism, throm- bosis, hemiplegia, etc	 Suicides		 Anemia	 Bronchitis	 Syphilis	 Homicides	 Uncinariasis	 Whooping cough	 Influenza		 All other causes	 Total		286.1 231.1 122.0 103.2 58.9 80.8 50.8 35.3 29.9 25.8 29.5 20.6 19.2 19.4 15.7 16.4 9.1 8.7 16.6 310.2 1,469.1	331.5 244.5 141.5 112.0 99.4 98.7 54.7 41.7 35.1 28.5 27.7 25.4 23.7 21.6 19.9 15.7 11.7 10.9 6.6 330.1 1,656.3	420.2 242.8 160.0 117.3 124.6 107.6 54.2 49.3 38.3 31.7 32.8 28.0 22.0 23.8 34.7 15.9 18.0 15.4 13.0 348.4 1,860.0	406.4 260.9 169.7 125.8 97.0 108.7 51.9 44.4 34.6 32.3 27.1 25.4 19.2 32.4 27.5 13.7 17.1 11.7 64.9 296.7 1,841.2	399.7 258.4 177.9 116.2 89.1 108.0 53.8 49.2 27.3 34.3 28.0 27.3 17.9 38.9 27.9 13.3 18.0 13.6 14.1 292.0 1,776.6
1 Rates computed per 10,000 total births. Source: P. R. Department of Health.
Table 32.—Number of cases and rates of the more prevalent communicable diseases, Puerto Rico, 1943, 1942, and 1938-42 average
Cause	Number of cases			Rates1		
	1943	1942	Average 1938-42	1943	1942	Average 1938-42
Chicken pox	 Diphtheria	 Dysentery	 Gonorrhea	 Influenza	 Malaria	 Measles	 Mumps	 Syphilis	 Tetanus	 Tuberculosis (all forms).... Typhoid fever	 Typhus (murine type) .... Whooping cough		566 814 136 3, 587 13,041 16,032 37 66 12,102 90 7,158 273 102 916	151 793 317 3, 097 364 21,391 196 416 10,060 160 7, 670 293 83 944	305 614 364 2 17,084 25, 678 745 170 9, 751 141 9,019 405 22 1,496	28.6 41.1 6.9 181.3 659.1 810.2 1.9 3.3 .611.7 4.5 361.7 13.8 5.1 46.3	7.8 40.8 16.3 159.1 18.7 1,099.8 10.1 21.4 517.2 8.2 394.4 15.1 4.3 48.5	16.5 32.6 19.2 3 913.4 1,377.0 39.4 8.8 516.5 7.5 482.2 21.7 1.2 80.1
1 Per 100,000 population.
2 Not reported previous to 1941. Source: P. R. Department of Health.
92
FORTY-FOURTH ANNUAL REPORT
Table 33.—Estimated population of Puerto Rico by age., sex, and race, July 1, 1943
Age	Total	Males			Females		
		Total	White	C olored	Total	White	Colored
All ages	 Under one yr.. 1- 4 years.... 5- 9 years.... 10-14 years.... 15-19 years.... 20-24 years.... 25-34 years.... 35-44 years.... 45-54 years.... 55-64 years.... 65-74 years.... 75 yrs. & over. Unknown		1, 978, 541 64,804 241,140 261,028 228,829 223,481 207, 249 277,959 191,443 133,165 75,246 49,344 23, 213 1,640	995, 766 32,667 122, 736 132,998 115,107 108,001 103, 884 139, 429 97,106 70, 598 39,600 23, 564 9,461 615	764, 519 24,341 91,929 100, 513 88,391 81, 597 79,831 109,257 75,647 55,203 31,069 18, 889 7, 384 468	231, 247 8,326 30,807 32,485 26, 716 26,404 24,053 30,172 21, 459 15,395 8, 531 4,675 2,077 147	982, 775 32,137 118,404 128,030 113, 722 115,480 103,365 138, 530 94, 337 62, 567 35,646 25,780 13, 752 1,025	754, 906 24,009 88,950 96,144 86, 624 87,916 81, 227 108, 715 73,263 48,676 27, 912 20, 218 10,457 795	227, 869 8,128 29, 454 31,886 27, 098 27, 564 22,138 29, 815 21,074 13,891 7, 734 5, 562 3, 295 230
Source: P. R. Department of Health.
Table 34.—Personnel of lhe Insular Police Department of Puerto Rico—June 30, 1944
’Includes one Chemist at $1,100 per year and one Deputy Inspector with civilian status. Source: Insular Police of Puerto Rico.
Classification	Number of positions authorized	N umber in active status	Number of vacancies
Chief	 Assistant Chief and Adjutant	 General Inspector		 District chiefs	 Superintendent Bureau of Criminal Identification	 Chief—Bureau of Detectives	 Special Agents			 Other staff assistants and experts1		 Sergeant—Policewoman	 Sergeants—Police	 Detectives—First class	 Detectives—Second class	 Police women	.			 Police—First class		 Police—Second class	 Civilian Employees	 Total		1 1 1 74 1 1 5 13 1 82 31 19 4 734 664 11 1,643	1 1 1 74 1 1 5 13 1 82 31 19 4 34 662 11 1, 641	0 0 0 0 0 0 0 0 0 0 0 0 0 0 2 0 2
OF THE GOVERNOR OF PUERTO RICO
93
Table 35.—Offenses recorded and arrests made by the Insular Police of Puerto Rico, fiscal years ending June 30, 1940—44
Item	1943-44	1942-43	1941-42	1940-41	1939-40
Felonous homicide Murder and non negligent manslaughter Offenses recorded	 Arrests made	 Manslaughter by negligence Offenses recorded	 Arrests made	 Rape Offenses recorded	 Arrests made		 Robbery Offenses recorded	 Arrests made	 Aggravated assault Offenses recorded	 Arrests made	 Burglary, breaking and entering Offenses recorded	 Arrests made	 Larceny-theft Offenses recorded	 Arrests made	 Auto theft Offenses recorded	 Arrests made	 Other assaults Offenses recorded	 Arrests made	 Weapons, carrying Offenses recorded	 Arrests made	 Sex offenses (except rape) Offenses recorded	 Arrests made	 Violation and liquor laws Offenses recorded	;	 Arrests made	 Disorderly conduct Offenses recorded	 Arrests made	 Gambling Offenses recorded	 Arrests made	,			 Traffic and motor vehicle laws Offenses recorded	 Arrests made	 All other offenses Offenses recorded	 Arrests made	 Total: Offenses recorded	 Arrests made		344 356 88 84 107 117 132 82 549 559 1,672 681 6,021 3, 463 46 38 9, 992 10,091 3, 920 3, 805 270 279 1,920 1,910 19, 710 27, 720 8, 668 15, 980 19,192 19, 238 34,803 36, 239 107,434 120, 642	254 280 84 85 73 74 91 79 410 419 2,174 903 7,051 3, 794 78 77 9,901 10,109 3, 749 3,749 228 293 2, 089 2,142 20,415 28,375 7,408 17, 668 17, 770 17, 770 40, 228 45, 722 112, 003 131, 539	525 545 209 208 116 119 72 86 857 853 963 1,018 3,998 4,631 75 77 10,191 12,176 5,185 5, 230 207 230 3, 225 3, 694 26,335 36,940 8,701 21, 681 43,000 43,016 75, 756 79, 888 179, 415 210,392	267 288 157 166 76 91 45 64 521 548 630 736 3, 045 3,579 31 38 8,085 8,979 4,198 4, 210 196 262 2,092 2, 290 22, 583 32, 553 5,161 16, 465 33, 634 33,196 72, 526 78, 672 153, 247 182,137	223 237 90 97 63 68 56 68 396 421 724 847 3,307 3,788 68 82 7,897 8,771 3,479 3,492 181 243 3, 581 3, 858 19, 926 29, 599 6,188 16,468 24,140 24, 554 44, 950 53, 542 115,269 146,135
Source: P. R. Insular Police.
94	FORTY-FOURTH ANNUAL REPORT
Table 36.—Juvenile delinquency: total offenders, convicted, acquitted, and pending trial or investigation, fiscal years ending June 30, 1940-44
Year	Total offenders charged	Convicted	Acquitted	Pending trial or investigation
1943-44	 1942-43	 1941-42	 1940-41	 1939-40		319 270 437 365 442	56 31 37 120 142	109 114 39 39 16	154 125 361 206 284
Source: Insular Police of Puerto Rico.
Table 37.—Motor vehicles and. other types of accidents, persons killed and injured, fiscal years 1940—44
Type of accident	1943-44	1942-43	1941-42	1940-41	1939-40
Motor vehicles: Number of accidents	 Persons killed	 Persons injured	 Other types: Number of accidents	 Persons killed	:				 Persons injured	 All types: Number of accidents	 Persons killed	 Persons injured		4,053 137 2,588 722 154 551 4, 775 291 3,139	4, 004 184 2,738 574 223 455 4, 578 407 3,193	7,549 215 4, 570 554 231 374 8,103 446 4,944	5,734 211 3, 969 656 207 357 6,390 418 4,326	5,587 147 3, 766 852 230 678 6, 439 377 4,444
Source: Insular Police of Puerto Rico.
Table 38.—Land Authority of Puerto Rico: General Fund disbursements during fiscal year 1943-44
Type of disbursement	Amount	Per cent of total
Crop financing—Proportional profit farms	 Financing—Pasture project—Sabana Seca	 Land—purchased and leased					 Buildings and other construction	'.	 Work animals	 Agricultural equipment	 Portable track and equipment	 Engineering equipment	 Automobiles and trucks	 Office furniture and equipment	 Repair shop equipment		 Advances for auditing and supervision	 Expenses—General administrative	 Total		Dollars 637,109 1,936 1, 374,190 175, 430 30, 513 43,962 21, 752 11, 255 11, 422 5, 967 475 13, 623 213,042 2, 540, 676	25.1 0.1 54.1 6.9 1.2 1.7 0.9 0.4 0.5 0.2 1 0.5 8.4 100.0
1 Less than .05 per cent. Source: P. R. Land Authority.
OF THE GOVERNOR OF PUERTO RICO
95
Table 39.-—Land Authority of Puerto Rico: Area and value of land purchased during fiscal year 1943-44, and to June 30, 1944
Type of use	Fiscal year 1943-44		To June 30, 1944	
	Area	Value	Area	Value
Proportional profit farms	 Individual small farms.		 Title V—“Agregados”	 Other uses	 Total		Cuerdas 5, 518.46 6,246.61 146.54 11,911.61	Dollars 1, 000, 737 590, 262 i 1, 590, 999	Cuerdas 5, 518.46 1,145.35 15,416.44 1, 888.75 23, 969.00	Dollars 1,129,177 93, 403 1, 475,455 96, 994 2, 795,029
1 Value included in proportional profit farms. Source: Land Authority of Puerto Rico.
Table -10.—Land Authority of Puerto Rico: Plots distributed under Title V, by purpose, as of June 30, 1944
Purpose	Number of plots
Assigned to “agregados”	 For churches	 For vocational schools			 For 4-H Clubs	 For communal woods and pastures	 For communal center	 For playgrounds	 For other public utilities		9,021 127 95 31 65 9 48 47
Total		9, 443
Source: P. R. Land Authority.
Table 41.—Land Authority of Puerto Rico: Acreage planted on land distributed under Title V, by kind of crop, as of June 30, 1944
Source: P. R. Land Authority.
Kind of crop	Number of acres
Corn	 Sweet potatoes	 Dasheen	 Plantains and bananas	 Beans	 Cassava	 Pumpkin			 Grass		 Home garden	 Peas	 Pigeon peas	 Yam	 Coffee	 Other crops	 Total		280.44 363.03 262.28 386.68 217.65 183.64 5.46 123.80 29.09 40.97 45.89 53.23 211.60 142.47 2,346.23
96
FORTY-FOURTH ANNUAL REPORT
Table 42.—Kilometers of road maintained and cost of maintenance, fiscal years 1939-44
Fiscal year	Kilometers maintained	Total cost	Cost per kilometer
1943-44	 1942-43	 1941-42			 1940-41	 1939-40	 1938-39		Number 3, 041 2, 877 2, 688 2, 552 2,394 2,317	Dollars 1,418, 417 1, 571, 764 1, 293, 287 1, 220,881 1, 298, 694 1,019,311	Dollars 466 546 481 478 542 440
Source: P. R. Department of the Interior.
Table 43.—Employees compensation: Premium revenue assessed, collected, and outstanding for each policy year 1939-40 to 1943-44 during corresponding fiscal years
Policy year	Outstanding at start of fiscal year	Net assessment for the fiscal year	Net collections for the fiscal year	Outstanding at end of fiscal year
1943-44	 1942-43	 1941-42	 1940-41	 1939-40		Dollars 3, 897 21, 826 11, 536 5,486 78,415	Dollars 2,424, 781 2, 643, 034 2, 253, 595 2, 210, 943 1, 791, 825	Dollars 2, 305, 903 2, 526, 213 2, 002, 605 1, 967, 664 1, 775,002	Dollars 122, 775 138,647 262, 526 248, 765 95, 238
Source: P. R. State Insurance Fund.
Table 44.—Employees compensation: Number of registered claims and cost of benefits paid, by class- of benefit, for policy years 1939-40 to 1943-44, as of June 30, 1944
Policy year
Item	1943-44	1942-43	1941-42	1940-41	1939-40
Total number of registered claims'	 Total compensation and medical benefits	 Total compensation benefits	 Temporary total	 Permanent partial	 Permanent total	 Death	 Reserve for compensation	 Total medical benefits		43, 067 $1,178,449 611,803 349, 914 229, 252 32, 637 566, 646	• 45,538 $1,768,170 1,114, 524 440,280 476, 690 9,365 105,189 83, 000 653, 646	66, 951 $1, 900, 682 1,183,061 504, 660 464, 737 20, 577 155,087 38,000 717, 621	64, 868 $1, 753,183 1,059, 942 511, 840 376, 273 15, 656 131, 673 24, 500 693, 241	58, 315 $1,615, 614 993,631 435, 745 407,908 9, 671 125,307 15,000 621, 983
Source: P. R. State Insurance Fund.
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