[Twentieth Annual Report of the Secretary of Labor for the Fiscal Year Ended June 30, 1932] [From the U.S. Government Publishing Office, www.gpo.gov] ANNUAL REPORT OF THE SECRETARY OF LABOR iuhi FISCAL YEAR ENDED JUNE 30, 1932 is TWENTIETH ANNUAL REPORT OF THE SECRETARY OF LABOR FOR THE FISCAL YEAR ENDED JUNE 30 1932 UNITED STATES GOVERNMENT PRINTING OFFICE WASHINGTON : 1932 For sale by the Superintendent of Documents, Washington, D. C. Price 10 cent* 3 1336 05750 2651 OFFICIALS OF THE DEPARTMENT OF LABOR, 1932 Hon. William N. Doak, Secretary of Labor. Hon. Robe Carl White, The Assistant Secretary of Labor. Hon. W. W. Husband, Second Assistant Secretary of Labor. W. N. Smelser, Assistant to the Secretary. Peter F. Snyder, Assistant to the Secretary. Theodore G. Risley, Solicitor for the Department. Samuel J. Gompers, Chief Clerk and Superintendent. Hugh L. Kerwin, Director of Conciliation. John R. Alpine, Supervising Director, Employment Service. Theodore G. Risley, Director, Industrial Housing and Transportation. Charles E. Baldwin, Acting Commissioner of Labor Statistics. Harry E. Hull, Commissioner General of Immigration. Grace Abbott, Chief, Children’s Bureau. Raymond F. Crist, Commissioner of Naturalization. Mary Anderson, Director, Women’s Bureau. Laura A. Thompson, Librarian. ii CONTENTS Page Report of the Secretary of Labor------------------------------------- 1 United States Employment Service_____________________________________ 3 Veterans’ employment service----------------------------------------- 4 Immigration Service__________________________________________________ 4 Conciliation Service------------------------------------------------- 8 h » Prevailing rate law_________________________________________________ 10 Bureau of Labor Statistics__________________________________________ 10 Bureau of Naturalization____________________________________________ 12 i Children’s Bureau--------------------------------------------------- 14 Women’s Bureau------------------------------------------------------ 16 > v United States Housing Corporation___________________________________ 18 Conclusion__________________________________________________________ 19 APPENDIX A United States Conciliation Service____________________________________ 25; Maintaining wage rates_____________________________________________ 26- United States Employment Service_______________________________________ 43 Farm labor division_________________________________________________ 43 Veterans’ division__________________________________________________ 44 Information division________________________________________________ 44 Office of the Solicitor________________________________________________ 46 Office of the Chief Clerk______________________________________________ 47 Department quarters_____________________________________________ 47 Disbursing office___________________________________________________ 48 Appointment division________________________________________________ 50 Division of publications and supplies_______________________________ 53 Department library__________________________________________________ 55 Bureau of Labor Statistics_____________________________________________ 57 Volume of employment________________________________________________ 57 Unemployment in foreign countries___________________________________ 50 Unemployment-benefit and unemployment-insurance plans_______________ 50 Labor productivity and displacement_________________________________ 59 Telephone and telegraph industries_____________________________ 59 Amusement industry_____________________________________________ 59 Street and road building_______________________________________ 60 Cargo handling_________________________________________________ 60 Sheet department of iron and steel industry____________________ 60 Cigar industry_________________________________________________ 60 Grade crossings________________________________________________ 60 Automobile-tire industry_______________________________________ 60 . | Motor-vehicle industry________________________________________ 60 ■ | Agriculture___________________________________________________ 60 Committee on technological unemployment________________________ 61 Wages and hours of labor____________________________________________ 61 Industrial wage studies________________________________________ 61 Union scales of wages and hours of labor_______________________ 62 Entrance-wage rates of common labor____________________________ 62 Extent of 5-day week in American industry______________________ 63 Wages in foreign countries_____________________________________ 63 Wholesale prices____________________________________________________ 63 Retail prices_______________________________________________________ 64 Changes in the cost of living_______________________________________ 64 International cost-of-living inquiry___________________________ 64 in IV CONTENTS Bureau of Labor Statistics—Continued. Page Labor legislation and decisions of courts affecting labor------------ 64 Court decisions-------------------------------------------------- 65 Public and private employment agencies--------------------------- 65 Workmen’s compensation------------------------------------------- 65 Pennsylvania safety conference----------------------------------- 65 Child-labor protection------------------------------------------- 66 Industrial accidents------------------------------------------------- 66 Accidents in general manufacturing------------------------------- 66 Accidents in the iron and steel industry------------------------- 66 Safety codes----------------------------------------------------- 67 Industrial health---------------------------------------------------- 67 Collective agreements and arbitration awards------------------------- 67 Building operations in principal cities of the United States--------- 67 Elapsed time in building construction____________________________ 67 Relative cost of material and labor in building construction__ 68 Labor turnover_______________________________________________________ 68 Industrial disputes-------------------------------------------------- 68 Cooperative movement_________________________________________________ 68 Special studies and reports------------------------------------------ 69 Park recreation areas-------------------------------------------- 69 Dictionary of occupations________________________________________ 69 Old-age pensions_________________________________________________ 69 Editorial division___________________________________________________ 69 Monthly Labor Review_____________________________________________ 69 Bulletins---------------------------------------,v------------ 70 Bureau of Immigration____________________________________________________ 71 New legislation________________________________________________,__ 71 Deportation________________.______________________________________ 71 Voluntary removals____________________________________________________ 72 Voluntary departures-------------------------------------------------- 73 Immigration statistics________________________________________________ 73 Exclusion_____________________________________________________________ 76 Visa petitions_______________________________________________________ 76 Students______________________________________________________________ 77 Reentry permits, including Chinese____________________________________ 78 Chinese_______________________________________________________________ 79 Border patrol_________________________________________________________ 80 Fines----------------------------------------------------------------- 80 Registration of aliens________________________________________________ 81 Financial statement___________________________________________________ 82 Board of review______________________________________________________ 82 Miscellaneous immigration statistics_________________________________ 83 Children’s Bureau_________________________________________________________ 89 Unemployment and child welfare_______________________________________ 89 Industrial hazards affecting employed children_______________________ 93 Maternal and child health____________________________________________ 94 Prevention and treatment of delinquency______________________________ 97 Recreation___________________________________________________________ 98 Mothers’ aid_________________________________________________________ 99 Cooperation with State and county agencies___________________________ 99 Child welfare in Puerto Rico__________________________________________ 100 Current child-welfare statistics______________________________________ 100 Legislation relating to children______________________________________ 101 State child-welfare commissions_______________________________________ 102 New reports issued and distribution of publications___________________ 103 General increase in the work of the bureau____________________________ 103 Recommendations_______________________________________________________ 104 Bureau of Naturalization__________________________________________________ 105 Women’s Bureau__________________________________________________________ 109 Completed studies_____________________________________________________ 109 The employment of women in vitreous enameling____________________ 109 Bookkeepers, stenographers, and office clerks in Ohio, 1914 to 1929____________________________________________________________ 109 Women office workers in Philadelphia_____________________________ 109 Women office workers in St. Louis________________________________ 110 CONTENTS V Women’s Bureau—Continued. Completed studies—Continued. Page Women in the cigar and cigarette industries------------------ 110 Women in the sewing trades of Connecticut--------------------- 110 Wages and hours in North Dakota------------------------------ 111 Made-work relief for white-collar unemployed------------------ 111 Studies in progress----------------------------------------------- 111 Business and professional women------------------------------- 111 The employment of women in offices--------------------------- 112 Hours and production__________________________________________ 112 Women in State labor administration--------------------------- 112 Fluctuation in employment of women in cotton mills in 1931___ 112 Women in Texas industries------------------------------------- 112 The 6-hour day in a food-manufacturing plant_________________ 112 Unemployed women in Detroit___________________________________ 113 Household employment in Chicago------------------------------- 113 The occupational progress of women--------------------------- 113 Work of the research division_____________________________________ 113 Employment fluctuations and unemployment of women, 1928 to 1932__________________________________________________________ 113 Working-conditions handbooks---------------------------------- 113 Industrial injuries to women in 1928 and 1929________________ 114 Standards of placement agencies for household employees------ 115 Occupational diseases of women________________________________ 115 Changes in women’s occupations________________________________ 115 News Letter--------------------------------------------------- 115 Special memoranda prepared and inquiries answered_____________ 115 Labor laws for women in the States and Territories___________ 117 Chronological development of labor legislation for women in the United States_________________________________________________ 117 Labor legislation for women in 1931-32________________________ 117 Division of public information____________________________________ 117 Publications______________________________________________________ 118 Comment and recommendations_______________________________________ 118 United States Housing Corporation_____________________________________ 121 Receipts__________________________________________________________ 121 Outstanding accounts______________________________________________ 121 Security__________________________________________________________ 122 Insurance_________________________________________________________ 122 Sales_____________________________________________________________ 122 Conveyancing______________________________________________________ 122 Taxation__________________________________________________________ 122 Administration____________________________________________________ 123 Unsold properties_________________________________________________ 123 Corporate organizations___________________________________________ 123 APPENDIX B Act creating the Department of Labor__________________________________ 125 TWENTIETH ANNUAL REPORT OF THE SECRETARY OF LABOR LETTER OF TRANSMITTAL Department of Labor, Office of the Secretary, ~W ashington., D. CNovember 2,1932. To the Congress of the United States: In accordance with section 9 of the act of Congress approved March 4, 1913, I have the honor to submit a report of the business of the Department of Labor for the fiscal year ended June 30, 1932. Respectfully submitted. W. N. Doak, Secretary of Labor. VII TWENTIETH ANNUAL REPORT OF THE SECRETARY OF LABOR In submitting to the Congress of the United States the Twentieth Annual Report of the Secretary of Labor, the second of my administration, it should be said at the outset that in the fiscal year ended June 30, 1932, the efforts of the department, in the face of economic trials, have been directed, primarily, to preserving the opportunities for work that remain to our citizens, native and foreign born, and to extend these opportunities whenever and wherever it was possible so to do. As a companion to this purpose there has been a sustained effort to advance the improvement of working conditions in all kinds of employment, but especially and necessarily with regard to women and children. The work of gathering data as to working conditions, wage scales, and living costs was continued and pressed with one high view— the maintenance of the wage scale wherever possible so that the wageearners might conform to the American standard of living. It is hardly necessary to say, I think, that all these activities are one with the main purpose of the Department of Labor, as expressed in the legislative act which brought it into existence. It can be said that the department has not deviated in thought or in action from the fixed purpose of fostering, promoting, and developing the general welfare of the wage earners of the United States; and this, of course, includes the improvement of their working conditions and the multiplying of their opportunities for gainful employment. It is plain that the condition in which the wage earner finds himself affects favorably or unfavorably all the elements of our population, some of them being affected more materially than others. Wage earners and their families are the chief buying power of the land. It follows necessarily that with the great numbers now unemployed, the purchasing power of our people has been drastically curtailed, thus checking the flow of the streams into the channels of trade, reducing the products of manufacturers and the consumption of the products of the farm. 1 2 ANNUAL REPORT SECRETARY OF LABOR Rents have decreased, values of properties have been affected, and dividends and interest rates have been lowered appreciably. The wage earner, however, has been and is suffering more than others because depression’s weight falls first upon him. The finding of means to better this condition is taxing the minds of all our people and the energies of our Nation. The National Government has bent itself to the work of aiding in every way possible the saving of working opportunities and their multiplication. It has advocated and adopted every plan which seems to hold encouragement. The Federal Government is expanding, judiciously, its powers in a way that it never before has done in times of peace. It is extending credit to financial institutions, to railroad systems, and to other essential activities. It has been alert to extend aid to the agricultural interests and to create employment by a broad program of construction of public buildings, and by the allotment of funds for self-sustaining projects, both municipal and private, it has provided work that otherwise could not be attempted in these times. The purpose behind all of these efforts and assistance is so to advance the interests of the people that employment can be stimulated and made secure and that the homes and the superior advantages of the American citizenry be maintained. Our country is more completely self-sustaining than any of the other large nations, and the home market for our products is the greatest that any country can boast. I feel it can be said to-day that there are many indications that because of this comparatively favorable condition there soon will be a more marked improvement in the manufacturing industry, and if this is steady and maintained, employment will be accelerated. It really has been increased materially within the past few months. The specter of fear, however, still hangs over the country, and thus far it has retarded the quickening return of better times and conditions, which, of course, would mean the supplying of increased employment. Inventories of goods and merchandise show decreased stocks and it seems that replenishment can not be much longer delayed. There is, then, a common interest and inducement to endeavor in every way to accelerate the return to better conditions. No industry in our country can prosper while another is depressed. This is the task confronting the Nation to-day, and the Department of Labor is dedicated to this purpose of smoothing the way for the coming of better times and of arresting efforts that might add to the troubles of the present situation. These recurring periods of unemployment seem to me to be an indictment of our civilization. A new industrial concept appears to be demanded, one which will make such times as we have been ANNUAL REPORT SECRETARY OF LABOR 3 passing through impossible or exceedingly rare in the future. The wage earner should be safeguarded, and whether this will be brought about by a reduced work week with a consequent spread of employment, accompanied by some universal system of employment insurance, or otherwise, is an immediate problem, but there is every reason to believe that the solving and removal of these recurring cycles of unemployment will not be impossible to an enlightened and aroused Nation, one which possesses all the elements and requisites for the proper support and general well-being of its people. The following observations relate to the functions and accomplishments of the various bureaus and offices of the department: United States Employment Service. The history of this valuable adjunct of the department has been recorded in prior years and should now be well known. It may be said, however, that the reorganization and expansion referred to in last year’s report have brought about the anticipated results in closer cooperation with State and municipal organizations having the same objects in view, and the possibility of exploring more intensively the field of available employment so as to bring together quickly the seeker of work and the right employer. The appropriations for this service during the year amounted to $938,780, and this was spread throughout the country for the furtherance of the work of 123 placement offices and also the offices which specialize in the finding of jobs for war veterans and their families. During the year the service and its cooperating offices were able to place in employment a total of 2,174,174 men and women, which was no mean accomplishment in these times of reduced work opportunities. These placements were, of course, without cost to either party, and the work represents as necessary a public service, especially in hard times, as does that of a fire department that protects the life and property of a community. The finding of work for the unemployed protects the life and well-being of the individual and his community, and, so far as the service is successful, contributes to the probable saving of municipal and organization funds devoted to the maintenance of the myriads who are out of work through no fault of their own but through the operation of the economic forces which have prostrated the country in the past year or more. Jobs found have been distributed in industry, commerce, agriculture, and domestic service, wherever they could be located, and the work of uncovering situations has entailed campaigns designed to stimulate and increase local or state-wide use of State products, as employment is generally necessary to be found at home, to preserve home ties and interests. This can not be so true of farm employment, for 4 ANNUAL REPORT SECRETARY OF LABOR this is usually seasonal, and the worker must be brought from outside the community. Nor, of course, is it true with respect to immense engineering and construction projects in isolated sections, when the labor has to be imported from a distance. The figure of .2,174,174 placements constitutes an increase of over 200,000 from the results of the preceding year in this worthy undertaking. Veterans’ employment service. There are now 30 of these specialized employment offices in the field, located in sections of the country in which best results are possible or may be expected. Widows and wives of the veterans have likewise the special solicitude of the department in providing them with suitable employment when necessary. This distinctive service continues to have the active aid of the various organizations of veterans, and it especially cooperated with the campaign last winter of the American Legion to find 1,000,000 jobs for ex-service men, and with the Disabled American Veterans of the World War in finding places for these seriously handicapped citizens. The country, of course, owes a special debt of gratitude to these men in whose lives a hiatus of civil employment and opportunities was necessary; and the least that can be done is to try to assure that they will have the opportunity to remain self-supporting. The department is proud of its opportunity to contribute in every possible way to this end and to take the lead in this worthy purpose. Seven of these specialized offices have been added in the year. Immigration Service. The Bureau of Immigration is numerically the largest in the department, considered in connection with its field service, and is the bulwark of the country in the protection afforded to the wage earners and salaried classes by its intelligent and strict but humane enforcement of the immigration laws, particularly the admitting, excluding, and expelling clauses. The laws are most diverse and complex and need simplification and codification; but as the Supreme Court said a few years ago, the history of the legislation in recent years points clearly to the conclusion that one of its great purposes was to protect American labor against the influx of foreign workers. This purpose is served in many ways: By the provisions denying admission to the mentally or physically diseased aliens, the morally unfit, the illiterates, those who would not likely be self-supporting, the criminally inclined, the natives of certain parts of the world whose radically lower living standards would undermine wage scales, and by numerous other provisions. However, the greatest protection in these times against the influx of untold numbers is the numerical restriction imposed by the immi-gration act of 1924 on immigration from most of the countries of ANNUAL REPORT SECRETARY OF LABOR 5 the world, and the administrative enforcement by consular officers abroad, in conformity with the wise and far-seeing orders of the President, of that provision of the 1917 act relating to persons who would be likely to become public charges if permitted to migrate to our country in these uncertain times. It is bewildering to contemplate the additional strain that would have been imposed upon our condition and resources in the past few years if general immigration had not been drastically curtailed; if hundreds of thousands had been permitted to enter yearly as in the past. As it is, the smallest number of immigrants in over 100 years gained entry in the past fiscal year, or 35,576, a drop of over 64 per cent from the preceding year’s figure of 97,139, and even of the 35,576 a fair proportion were the alien wives and unmarried children under 21 of American citizens, whose support is practically assured, and money for which will now be expended in our own country. Going back no further than the first fiscal year of the present quota act, ending June 30, 1925, it is found that 294,314 were then admitted, so that in comparison only 1 in 8 secured admission last year. In the 1930 fiscal year, the first full one of the present economic depression, 241,700 newcomers for permanent residence were recorded, or more than six times the admissions in that classification in the past 12 months. To illustrate what was happening in the days of the wide-open policy concerning immigration, the admissions just 25 years ago might be cited as an example. In that year the new permanent arrivals reached the highest figure in the history of the country, 1,285,349, more than thirty-six times the similar admissions in the present period; while even as late as 1914 the immigrants exceeded 1,000,000. It needs no extended comment to demonstrate that the present restrictive laws, with their adequate and proper enforcement, have accomplished the purpose expressed so aptly and concisely by the Supreme Court, before referred to, and have given the economic protection so absolutely necessary in these times, in the conservation of the restricted employment opportunities for our own citizens and the aliens in the country who have passed successfully the tests for lawful admission. Means and measures additional to the excluding provisions are, however, necessary properly to insure that the country shall have that measure of protection from unfair competition that is required. These means comprise the active and intelligent efforts of the border patrol service along the northern and southern boundaries and on some part of our seacoast to prevent the illegal entries of aliens through our back doors who can not secure the requisite documents for legal admission, or who have no desire or purpose to attempt to secure them. Then, as a further line of defense, there is the constant 6 ANNUAL REPORT SECRETARY OF LABOR investigation and inquiry to determine the presence in the country of those who have not the legal right to remain, with the consequent removal, if possible. It may be said, however, that mature consideration of our condition leads me to believe that the country will not likely again be in a condition to absorb successfully a similarly vast number of aliens as were allowed to enter until a few years ago. I believe that in the development of our resources and the natural increase of the present population we have approached or reached the stage when the facilities and opportunities of employment will not exceed our supply of workers at home. It is logical then to refer at this point to former recommendations of the department that our immigration policy should be revised to provide that no new and unattached immigrants coming for the avowed purpose of seeking work shall be admitted unless it has been previously determined by the department that there is an actual need for the kind of service they are qualified to render. Such a policy, excepting the wives, husbands, children, and aged parents of citizens and lawfully resident aliens, and possibly professional classes, would restrict and reduce general immigration from all countries to the demonstrated requirements of the United States at a given time; and under such a suggested system this department would determine in advance the necessity for the importation of aliens of a certain trade or calling, whose services were said to be needed, and if the representations were found to be valid, the consuls would then be advised so that applications could be invited from aliens who would meet these requirements. This would seem to be a scientific system of immigration, would redound to the best interests of the country in the future, and would be comparable in principle to the free entry under the customs laws of articles of foreign manufacture which do not enter into competition with our own industrial products. The past year has been one of unremitting and devoted work in the deportation of aliens who were found to be in the country in violation of one provision or another of the immigration laws. The aliens ordered deported in this period reached the impressive total of 19,426, the greatest number in the history of the department, and considerably more than 1,000 in excess of the prior comparable period. If there is added to this number the 10,775 really subject to deportation but who were permitted to depart without the institution of such proceedings, or without the issuance of a final order, and likewise the 2,637 aliens removed to native countries at their own request because of destitution, as provided by law, a procedure which also does not have the legal effect of deportation, there is presented a total of 32,838 aliens whose departure from the country was effected by the department through its Bureau of Immigration. ANNUAL REPORT SECRETARY OF LABOR 7 There can be no gainsaying the fact that the forced or permitted departures of so many aliens through the efforts of the department have particularly benefited the workers of the country in these times. There is so much less competition for the work that remains available, and in most instances this competition was especially unfair because enforced by aliens who had no right of residence in the country in the first place, because of illegal and uninspected entries, or because of an entry for a temporary purpose or time which did not permit of working, and a violation of such conditions. The justification for the deportation of aliens who have entered unlawfully, of those who have disregarded the conditions of lawful admission, or of those regularly admitted whose subsequent condition, conduct, or circumstances warrant it, has never been more certain than in this period of distress, in fairness to our own best interests. The removals bring about a relief or easing of the tax burden, directly or indirectly, in most instances. The department is particularly gratified at its ability to remove a considerable number who have become criminals of the character described by our laws, or who were criminals before their entry. However, there is a demonstrated need for the amendment of this feature of law which will permit the deportation of criminals whom we can not now touch, because removal is restricted to those who have been convicted and given a certain minimum sentence for violations or offenses which constitute moral turpitude. This restricts the field of operation among the criminal classes, and provision should be made to permit deportation of those aliens who are continually violating State laws, although they may receive but short sentences. In the year an increased number of aliens were deported who were members of or affiliated with organizations whose expressed purpose is to bring about the overthrow of our institutions by violence. This is always a most difficult task, as the necessary proof of subversive activities or affiliations is not easily obtained. The department heretofore has been quite handicapped in this connection by unfavorable court decisions, but within the past year or so has been benefited by opinions which have sustained departmental practices and findings. Of course, our lack of diplomatic relations with the country to which most of these alien enemies, using the term literally, belong, continues to reduce the number of this class who might be removed. There should be no room in this country for outsiders who abuse our hospitality by advocating the change of our own Government by violent means. Any government worthy of the name would resist any actual attempt at overthrow by its own citizens, and when aliens devote their energies and time and resources 8 ANNUAL REPORT SECRETARY OF LABOR to the furtherance of this ultimate purpose, self-respect and selfprotection demand their removal. This does not signify that the Federal Government is alarmed by the extent of such activities, or apprehensive of their success, but does mean that it will proceed in an orderly, dignified, and dispassionate manner to penalize by deportation the aliens of these proscribed organizations who are actively participating in or lending their financial and moral support by membership to this work of undermining our institutions. The very foundation of our Government is a respect for its laws and institutions, and any needed changes can be brought about by peaceful and constitutional means. The aliens, ignorant or otherwise, who participate in the work of these branches of a foreign and inimical organization, have forfeited any right to the probationary residence in this Nation which law-abiding aliens enjoy. Although in my administration a strict and impartial enforcement of the immigration laws has been insisted upon and maintained, yet this enforcement has been humane and not arbitrary. The department has recommended to Congress numerous measures which will permit of a more liberal administration in behalf of certain classes. Several of these recommendations have been enacted into law in the closing weeks of the last session of Congress. I would refer particularly to a provision which amends the drastic law of March 4, 1929, so as to permit aliens who have been deported to again apply for admission to the United States. This is a welcome provision, and under it the Secretary of the department will have authority to grant permission to reapply, in his discretion, to deported aliens when this liberality will be justified or dictated by humane considerations. Another amendment of law places in the nonquota classification alien husbands of American citizens, if the marriage occurred before July 1, 1932. This is an advance of four years over the law as heretofore existing in favor of the citizen wives, and places them more on a parity with the alien wives of citizen husbands. This provision will bring about the uniting or reuniting of more families, which I have consistently favored. Conciliation Service. The Department of Labor has witnessed since its organization the marked growth of a better understanding of their economic interdependence between the management of large industries and leaders of their workers; and there has been a remarkable departure from the callous disregard of the interests of one another. The department has had an intimate experience with this subject through the functions of the United States Conciliation Service, which has power to act as mediator, under my direction, in the settlement of industrial disputes. The department in the past year has had to consider many ANNUAL REPORT SECRETARY OF LABOR 9 such disputes between employers and their workers, the good offices of the conciliators being requested by one side or other, mostly while the controversies were still in an argumentative stage. The purposes and accomplishments of this very important branch of the department are well and favorably known, and both the employing and the working interests continue to welcome the intercession and mediation of these trained conciliators. The department’s representatives, a body of men and women having intimate knowledge of industrial processes and conditions, inquire into the contentions of either side to these disputes and weigh the fairness of the opposing claims. Both interests are brought together and grievances are finally discussed amicably. There is a deserved recognition of the fairness and impartiality of these mediators, so that it is possible to bring about a compromise or agreement in most of the disputes, to the resultant satisfaction of all concerned. A feature that is most important is the continuance of work while the controversy is being aired and adjusted, thereby avoiding the loss of pay and the friction and misery of strikes. This is not always possible, as in many instances strikes or lockouts have already taken place before the Conciliation Service is called upon to act. During the year 759 specific cases of disputes, strikes, threatened strikes, and lockouts came within the consideration of the service, affecting 342,890 workers directly and 106,279 indirectly. All industrial wage disputes must ultimately be settled through negotiations, and so it is the part of wisdom to attempt such settlements before the controversies become acute and before the discontinuance of work. Both management and men have come to realize that the public at large has a vital interest in the prevention of the stopping of work, with the resulting dislocation of conditions and the economic waste and restriction of purchasing power. In the 17 years of its operation the Conciliation Service has had a commendable part in the ultimate adjustment of about 11,000 labor disputes, involving directly or indirectly about 14,000,000 workers and an unknown number of dependents. It is impossible to estimate what the successful efforts of this service have saved to the industries and communities affected, and to what extent the example afforded of the efficacy of peaceful and impartial mediation has prevented other similar controversies. If there has been a stoppage of work in the industry, every effort is made to hasten adjustments of disputes so that the employees may return to their trades in the minimum time possible, the success in this regard having been significant. There will probably never come a time when important labor disputes will not arise in our country for a vast variety of causes, human nature being what it is, but certainly the successful efforts of the Conciliation Service have 146746—32---------2 10 ANNUAL REPORT SECRETARY OF LABOR pointed the way to peaceful settlement of differences before they reach the unfortunate stage of strikes or lockouts. As exemplifying the trend of the times, many of the largest bodies of workers in the country in the past few years have appointed representatives outside their own ranks whose primary function is to act as mediators with the employing interests in disputes concerning wages and working conditions, and these efforts have been markedly successful so far. Prevailing rate law. This is the popular title of the Davis-Bacon Act of April 3, 1931, requiring that the wages of mechanics and laborers employed in the construction of Federal buildings shall be equal at least to the prevailing rate of wages for similar work in the community or other subdivision in which the buildings are being erected. The need of such a measure is apparent in these times, when contractors or subcontractors can undoubtedly secure more help than needed at greatly reduced wages, based upon the law of supply and demand, and the necessity to accept employment at any terms. The law, however, is designed to ameliorate this condition so that wages may remain at a level which will leave something for other than the mere necessities of life. As was to be expected, there have been many disputes growing out of the application and enforcement of this law, and the Conciliation Service has been called upon to investigate them, being commendably successful, so that comparatively few have had to be submitted to me for final decision. The conciliators also have been able to persuade contractors to hire a considerable proportion of local labor on their projects, and this has been particularly beneficial to the workers and their communities. The law can not but have a decided effect in building operations beyond its own scope and effect, as a good example is often followed. As a stimulus to the purchasing power in communities affected, and they are many, the act in question has undoubtedly produced worth-while results. Certain somewhat insuperable problems and evasions growing out of the provisions of this law, were settled by presidential order of January 19, this year, and the Conciliation Service has found that this has improved conditions in the administration of the law appreciably. Bureau of Labor Statistics. In this bureau the department and the Nation have an agency that is one of the oldest of the Government’s functions. It is an active and versatile organization and its researches reach to the most important and intimate details of the Nation’s life, the conditions under which the wage earner labors, the fluctuations in his earnings, what it costs him to live, his opportunities for employment in the ANNUAL REPORT SECRETARY OF LABOR 11 great technological industries, how much work he gets in a given period, and a host of related questions. The necessary information in these and similar inquiries is obtained from a variety of sources and in a variety of means, but mostly from the findings of its field representatives or from monthly or periodical reports of industrial organizations on standardized questionnaires. The publications of the bureau in the form of its monthly review, its occasional bulletins and releases, are acknowledged and accepted as the most authoritative and impartial findings in the wide field of statistics covered. The published findings are of vital concern to the Nation, especially in this period of great unemployment, and their demand and use have greatly increased for that reason. The researches of the bureau on the subject of employment and unemployment were its chief concern in the year, and as a corollary or supplement the consideration of the effects of what has come to be termed technological unemployment growing out of the great displacement of labor by inventions and perfections of industrial machinery, or the need for much less man power by their extended use. The widespread adoption of these labor-saving devices had profound effects even in what were called normal times, in the decrease of workers in the large industries and in overproduction of commodities. Particular industries have been studied from this point of view, and the studies of others are now in progress, particularly with relation to the telephone and telegraph industry, one of the largest employers in our country. The eventual solving of this problem, what disposition can be made of the displaced workers, will tax the ingenuity of the Nation’s leaders in government, industry, commerce, and economics. On its successful solution the happiness and well-being of our people, and particularly the growing generation, will depend to a great degree. The work of the bureau has been expanded as much as possible, with the money and personnel available, so that, for instance, the report of employment for June represents 26 per cent more establishments than a year ago, and 16 large industrial groups were surveyed to obtain the data. The last report covers over 64,000 establishments with over 4,000,000 employees. Data regarding changes in wage rates in nonmanufacturing groups of industries, except building construction, were obtained for the first time, the last-mentioned industry having been the object of a special and intensive survey in the past couple of years. In the middle of the year the bureau made a start in the collection of data concerning man-hour operation from all reporting establishments except that of building construction. 12 ANNUAL REPORT SECRETARY OF LABOR The monthly reports are now, with the exception of two large industries, segregated by States, and a tabulation of employment and earnings in 13 cities of over 500,000 population each is now being made. An interesting and instructive addition to our knowledge is cabled data from American consuls, furnished by the State Department, as to the monthly statistics of unemployment in the principal European countries. As these figures are often published concurrently with our own on this same subject, a ready comparison is available to the many interested. During the year one of our States lias enacted an unemployment insurance law, the first in the history of the country, and its operation and effect will be watched with great interest. Mention was made in last year’s report of the comprehensive study of unemployment benefit provisions in this country, whether maintained by employers alone, or jointly with their workers, or by trade-unions; and of unemployment-insurance systems abroad. This is constantly becoming a more important and vital question in our social system, as is also the somewhat related subject of old-age pensions, the third survey of this feature having been made in the past year. Reports were obtained from 645 of the 681 counties in the 15 States in which such latter payments are provided by law. An early publication is expected of the results of the bureau’s investigation of labor productivity in the manufacture of automobile tires. Publication has been made already of the effects of technological changes upon occupations in the automobile industry itself, which the department considers of great value; and in the year another most important study, that of the effect of the use of improved machinery and methods in agricultural production, was finished and published. The foregoing represent but a few of the many and diversified activities of the Bureau of Labor Statistics in the past fiscal year. For a comprehensive knowledge of the varied investigations and findings attention is invited to the complete report in the appendix. It is difficult to single out what are really the most important researches, aside from those on employment and unemployment opportunities, but there might be mentioned the preparation of safety codes for industrial operations, the participation in the work of workmen’s compensation, the determination of the wholesale and retail prices of food products, and the researches into the subject of the effects of industrial processes or harmful substances upon the health of workers. Bureau of Naturalization. The Bureau of Naturalization of the department reports that 136,600 certificates of citizenship were issued in the year, a decrease ANNUAL REPORT SECRETARY OF LABOR 13 of over 6,895 from the preceding period. A total of 5,478 aliens were denied naturalization by the courts, State and Federal. It would be difficult to overemphasize the value to the country of the protection afforded by the constant efforts of this bureau in the safeguarding of the valuable privilege of citizenship, with all that implies in protection and opportunity for the new citizen. The requirements for naturalization are not particularly exacting, and I am of the firm opinion that the attainment of this valuable gift should be somewhat circumscribed by restricting it to those aliens who can at least read the English language. This would seem to be a reasonable requirement, and I believe it would redound to the better interests of the country. It should be remembered that naturalization is not a right but a favor, and that any reasonable requirements that would tend to elevate the entire body of citizenry should be imposed. Certainly, the alien with an understandable knowledge of our language would better appreciate the meaning of our institutions, and the obligations assumed as well as the rights conferred by naturalization. It is a general requirement that the verification of an alien’s admission to the United States for permanent residence is a prerequisite for naturalization, and the past few years a condition precedent to establish the validity of a declaration of intention to become a citizen. Because of this requirement an untold number of aliens who are otherwise eligible have been estopped from naturalization because of having arrived in the United States when records were not so carefully maintained as now or, with relation to our borders, when no records were made. Congress in the last session recognized this unfortunate condition by amending the naturalization law to provide that aliens who entered the country prior to June 29, 1906, the effective date of the basic naturalization measure, may be naturalized despite the absence of a record of entry. It is confidently expected that many aliens who now have resided in the country for more than 25 years will hasten to avail themselves of this deserved concession. Congress also extended for another two years the liberalized procedure in favor of legally resident aliens who served in our armed forces during the World War. The bureau was active in the year in breaking up extensive and wicked conspiracies to violate the naturalization law and in prosecuting persons responsible for these schemes to circumvent a process which should be considered one of the most vital and precious of our institutions. Citizenship fraudulently acquired is a pollution at its source of the stream of the body politic, and is a derogation of that inestimable heritage which the Supreme Court has said that American citizenship constitutes. 14 ANNUAL REPORT SECRETARY OF LABOR These conspiracies involved on a large scale the fraudulent manipulation of naturalization applications and the falsifying of records of arrivals of aliens in the country. The landing record of another alien would be made to fit the alien who is unlawfully in the country and so ineligible to naturalization himself. It was a long and tedious task to bring to justice in New York, for instance,, the vultures who were fattening upon extortions from aliens desirous of this illegal naturalization, or from aliens who were induced to become parties to the illegal attempts. The task, however, was accomplished and all the defendants, including a versatile and unscrupulous attorney, pleaded guilty to numerous indictments and were appropriately sentenced. Before passing from the subject of naturalization, I should like to refer to prior recommendations that should be appealing because of their common sense. One relates to an amendment of law that would permit the cancellation of a naturalization certificate within five years of issuance upon the holder’s conviction of a felony in that period. The desirability for such a statute has often been demonstrated. The other concerns the much needed codification and simplification of the code of laws relating to this subject, which are only less confusing than the complex and sometimes contradictory laws relating to immigration. Children’s Bureau. The conservation of the material assets and resources of the Nation, its rivers and forests and mineral wealth, has been for years a matter of great concern. How much more important is the conservation and protection of the children of the Nation, particularly the underprivileged and undernourished, who are its human assets,, and upon whom the country will be dependent for its continued progress and for the maintenance of its institutions! To this purpose the Children’s Bureau of the department has been devoted for 20 years, and in that time has witnessed material progress (though the pace sometimes seemed discouraging) in the far-seeing efforts for the protection of the mother and the child, the child from infancy to maturity. The formation of this bureau represented the first coordinated effort to grapple with the problems affecting the children of the country as a whole, whose condition and protection vary greatly in different sections because of the interacting of various State laws and customs. How well this effort has been successful is reflected in the bureau’s publications and reports from year to year, and the retrospect of the accumulated years. The ideal kept in mind and striven for is a concerted effort to the end that all children born in the United States shall have a ANNUAL REPORT SECRETARY OF LABOR 15 chance for happy and useful lives. There is no delusion that such an ideal is likely attainable, but the researches and practical application of what has been learned have contributed magnificently to the progress along that road. Cooperation in ever-increasing measure is obtained from the States and Territories of the country, and coordination in the effort to protect children who unfortunately in tender years have to seek employment. To indicate the diversified activities of the bureau, reference may be made to the accomplishments from year to year in bringing about greatly decreasing maternal and infantile mortality; in disseminating information on the proper feeding and care of the young child; in studies into the extent and conditions of child labor and the insistence upon ameliorating conditions of employment; in dependency and delinquency. The past year or so have not been so encouraging because of prevailing conditions among our people, which undoubtedly have brought about special health hazards to the children through widespread undernourishment. This unfortunate and unpreventable condition has been an especial concern of the bureau and department, and the demands on the bureau for information, for local surveys, and for advice have overshadowed and subordinated other activities. Every effort must be made adequately to protect the children in this emergency for our own best interests. Gratifying results were achieved in the year in the matter of the disposition of juvenile offenders against Federal laws, a subject of research and recommendations for more than 10 years now. At the bureau’s request the National Commission on Law Observation and Enforcement conducted an intelligent study on this important subject, and their findings and reports brought about a collaboration by the bureau with the Department of Justice in developing a program of study and local cooperation with Federal authorities in the treatment of cases of juvenile offenders. Widespread interest has been evinced in the subject, and early in the year the Attorney General announced a policy that, wherever practicable and consistent, juvenile delinquents who come into Federal custody will be returned promptly to their own communities for care and supervision by the State authorities. This advance in this field was confirmed and strengthened by an act of Congress of June 11, this year, which provides that United States attorneys, after investigation, may forego prosecution of any offender under 21 years of age, against Federal laws, if he is subject to the laws of any State that can and will assume jurisdiction, and if such surrender is to the best interest of the United States and the juvenile offender. The law also provides that the boy or girl will be sent at Federal expense to his home community. The bureau also has continued its efforts to bring about a more humane and uniform 16 ANNUAL, REPORT SECRETARY OF LABOR method of the treatment of these juvenile offenders in the several States, by probationary or parole supervision or otherwise. Continued interest and activity have been maintained in a plenitude of other subjects directly or indirectly involved in the cardinal purpose of the bureau to maintain and advance the ground gained in the treatment of questions involving the mothers and children of our country. Because of the economic depression and the widespread unemployment both of adults and children, principal efforts recently have been devoted to the maintenance of as favored conditions as possible, with the realization that advances in social questions affecting children can hardly be expected at the present. One or two examples will demonstrate the need for continued education of the country in the spiritual and even material advantages to be derived from a fairer treatment of the country’s unfortunate and growing children. Despite the advances that have been made in decreasing the number of working children, 1 in every 11 children in the country between the ages of 14 and 15 were employed in 1930, according to census figures, the number itself being 431,790. In that year, also, 235,328 children under 14 were gainfully employed. According to the same authority much over a million and a quarter children 7 to 15 years old were not attending school, and 811,166 of the total were under 14 years of age. The above facts constitute deplorable conditions in any civilized country and particularly our own, and it is the remedying of such conditions, growing out of poverty, neglect, ignorance, and a distorted social system, which is one of the aspirations of the Children’s Bureau and which should have universal support. I invite attention to the separate report of this bureau appearing in the appendix for a recital of its far-flung activities in the protection of children in the past fiscal year. Women’s Bureau. This youngest bureau of the department has witnessed accomplishments in its special field thoroughly justifying its existence and continuance. The past year was the busiest in its history because of the continuance and even the increase of the abnormal conditions affecting employment and unemployment. The wage-earning woman is peculiarly unfavorably affected in times like these. Always at a disadvantage in comparison with male workers because of the double standard of compensation, her condition in the past year has been one of trial and great uncertainty. The plight of the woman worker is not so spectacularly presented or obvious as is that of the opposite sex in these distressing times. They do not gather in bread lines and infrequently participate in unemployment demonstrations; ANNUAL REPORT SECRETARY OF LABOR 17 but their distress is equally acute although not so apparent on the surface. No other Federal bureau is so vitally concerned and absorbed in the welfare of women workers, and its cooperative work, researches, and printed findings have established standards and ideals which in normal times measurably improved the health and working conditions of women in industry. It should be recalled that the census of 1930 showed that nearly 11,000,000 women were gainfully employed in all manner of work, and there is no definite knowledge of the reduction in that number i in the past two years, but obviously it has been tremendous. It is significant that this number is about equal to what is assumed to be the total of unemployed workers in the country to-day. Wage scales have been greatly reduced for women as well as men; but when women’s earnings are decreased, those of men are also brought down to the approximate level of the women’s first earnings. The situation regarding the married woman in employment is particularly a matter of grave concern and interest. Her employment is especially prejudiced in these times because of a prevalent belief that she is unnecessarily supplanting the single woman in positions, or even the men. In many instances, however, her contribution to the support of the family and holding it together is essential. It would be an ideal condition if our economic system or condition were such that the employment of married women outside the home would not be the matter of actual necessity that it now is, speaking generally. The discharges of women just because they are married is regrettable and unscientific, and such discharges should follow only careful investigation, in justice to the married women who are compelled to work. In these times it is not uncommon to find a husband jobless and the wife supporting the family. It is true that many married women seek work because they wish more money to spend upon themselves, and undoubtedly the vast increase in the number of married women employed in industries has materially and seriously affected employment conditions. The bureau aptly states that there always has been a sharing of the economic responsibility of the family by the men and women within its circle. If the head of the family is unable to bear the load, it is necessary for the wife to contribute by outside employment. The study of human waste in industry as particularly affecting women has now been pursued for two years and will be continued as fast and as intensively as funds and available help will permit. This is a most important subject, involving as it does so many factors, such as the speeding-up system concerned with the use of industrial machinery in mass production of commodities. When all facts are 18 ANNUAL, REPORT SECRETARY OF LABOR sufficiently known, proper methods can at least be recommended and justified to prevent the early impairment of the health of workers and the consequent lessening of productive capacity. At least the country will be made to know what the needs of the situation require. During the year the bureau completed its study of the employment of women in the enameling of stoves, which employment in a considerable proportion brings about lead poisoning. A survey of earnings and trend of employment of office workers in Ohio for a period of 15 years was also concluded and results published, as was also a similar inquiry concerning such employment in St. Louis in the past few years. An important survey was made relating to the employment of women, most of them very young, in the machine-sewing trade in Connecticut. This showed that very meager wages were paid and very long hours worked. Many studies and researches were pending at the end of the year, probably the most important relating to employment fluctuations and unemployment of women for the past four years. The interest in the work of this particular bureau is quite universal, and for a better knowledge of its accomplishments, particularly in the year just closed, attention is invited to the separate report found in the appendix. United States Housing Corporation. The activities of this corporation in administering the affairs of the properties acquired during the war for the principal purpose of providing housing facilities for workers near munitions factories, or for needed transportation facilities for war workers, have produced excellent results in the past year considering the difficulties of the times. A considerable amount of property has been sold, obviously on time payments. During the year collections made as purchasers’ payments on the principal of their sales contracts amounted to $214,972.02 and as payments of interest $54,664.61. These properties in the main are being purchased by wage earners j and because of their reduction of earnings or entire loss of work, it is often exceedingly difficult to keep up payments and also pay the municipal or other taxes on the homes. Under my instructions the corporation has exercised every possible consideration and leniency in behalf of these purchasers in this period of business depression, but of course it has no power to take effective and direct action toward reductions in or postponements of tax payments. It has, however, on many occasions made appropriate representations to the taxing powers, but these have not had very gratifying results. For purposes of economy the work of the corporation is now centered entirely in Washington (with the exception of one employee ANNUAL REPORT SECRETARY OF LABOR 19 in Philadelphia) and this naturally delays somewhat the disposition of affairs because of the need of extensive correspondence. It is gratifying to state that in the fiscal year 201 purchasers made full and final payments of balances due on their contracts, but the active accounts still total nearly 900, the amounts of principal due being a little over $1,250,000. In addition to this completion of purchases, the corporation disposed of 2 houses, 30 lots, and 2 blocks of unimproved land by sales contracts to individual purchasers; and reexecuted contracts covering 10 houses which previously had been canceled because of defaults. The properties remaining to be disposed of, some, of course, reacquired because of defaults in payments, are mostly vacant lots in communities and various sections of the country, but include only 10 houses. However, in the total are over 22 acres of tideland in Vallejo, Calif. The last appraisal of the properties was made 12 years ago, under an authorization of Congress, and the value then of the present undisposed real estate was $139,029.60. The market value at this time would likely be considerably less, but the Government obviously must be bound by its appraisal figures. The remaining property in Philadelphia, consisting of nine houses, is appraised higher than any other of the undisposed real estate. The amounts covered into the Treasury on account of sales or other disposition of properties since the beginning of this activity in 1918 have amounted to $72,822,681.15 of the original appropriation of $100,000,000. The corporation utilized for construction purposes the sum of $66,933,321.62, which, increased by expenditures on account of operating expenses from subsequent appropriations and receipts, established the total cost of the war housing program at $76,028,647.47. Conclusion. The foregoing observations and resume concerning the work of the bureaus of the department having field services and touching the most intimate details of the Nation’s life furnish but the high lights of the accomplishments of the department in the past year. They have been carried on in a time when so many perplexing questions are confronting the Government and people of the United States. They all in their very essence and purpose concern and affect the wage earners of the Nation. Reference has not been made to the work of the office of the chief clerk of the department, with its various divisions, nor of the activities of the office of the solicitor, as their functions are interrelated with those of the other bureaus and services of the department. To no other branch of the Government are the unfortunate conditions of unemployment so fully and intimately known, and it is 20 ANNUAL REPORT SECRETARY OF LABOR this department which keeps its hand on the pulse of developments in matters particularly affecting the labor of men, women, and children of the country. There are indications that employment opportunities will increase in the next few months as the remedial measures provided by Congress and the Administration begin to have their natural and expected effect. The reports of the various bureaus, in addition to the foregoing pages, will provide in detailed form a knowledge of the problems confronted and still being studied for ameliorating results. Aside from the abnormal amount of unemployment occasioned by the financial and economic depression, a matter of grave concern, which has been referred to before in this report, is the ability of many of our major industries to produce in much less time than a year more goods and products than the purchasing power of the country can absorb; which, of course, occasions a vast amount of part-time employment. This situation will remain, even when normal conditions return, unless and until we are able to devise a solution or adjustment of the attendant problems; such as the absorption of the surplus of commodities or a decrease in production commensurate with the country’s demands; with either the employment of released labor elsewhere or reduced hours or days of work so as to spread employment over a greater number of workers. The development of markets, the easier and cheaper distribution of our products, the maintenance of wages at scales which will permit and induce purchases beyond actual needs of subsistence and housing will all assuage this condition. The necessity confronts the country to solve these problems with as little delay as possible, as it is a, truism that a high standard of wages is necessary for a resumption of commodity purchases on a large scale—what we vitally need. Every President of recent years has expressed the hope and desire that all our wage earners should be regularly employed at wages which will permit the realization of their aspirations for the finer things of life and the opportunity for the education of their children. They have not only desired these essentials but have actively striven to make them possible, as it is only upon fair treatment and justice to the wage earners that lasting prosperity in the Nation can be predicated. As Secretary of Labor I will continue to exert every effort to further the objects for which this department was created, knowing well that to the extent these aims are realized and attained the Nation as a whole will benefit in peace, contentment, health, and prosperity. It is an inspiring vision and cause, but is an ideal with which I have been actively concerned for many years, even before appointment as the head of the Department of Labor. In conclu ANNUAL REPORT SECRETARY OF LABOR 21 sion, I desire to testify to my appreciation of the assistance and cooperation received in our work from other departments and officials of the Government, from the various States and political subdivisions, from a multitude of interested individuals, and from the workers in the department and the field services. The personnel of the department and bureaus, of course, deserve the greatest amount of praise for the department’s accomplishments in the year—a year of very trying conditions. Secretary. o APPENDIX A CONDENSED REPORTS OF THE ACTIVITIES OF THE BUREAUS AND SERVICES OF THE DEPARTMENT OF LABOR FOR THE FISCAL YEAR ENDED JUNE 30, 1032: CONCILIATION SERVICE UNITED STATES EMPLOYMENT SERVICE OFFICE OF THE SOLICITOR OFFICE OF THE CHIEF CLERK BUREAU OF LABOR STATISTICS BUREAU OF IMMIGRATION CHILDREN’S BUREAU BUREAU OF NATURALIZATION WOMEN’S BUREAU UNITED STATES HOUSING CORPORATION 23 UNITED STATES CONCILIATION SERVICE Hugh L. Kerwin, Director To the Secretary of Labor: The following is a report of the activities of the Conciliation Service for the year ended June 30, 1932: During the fiscal year, 759 specific cases of trade disputes, strikes, threatened strikes, and lockouts were handled by the Conciliation Service. Of this total number, which includes 19 cases that were pending at the close of the fiscal year ended June 30, 1931, 659 were satisfactorily adjusted, leaving 15 pending cases to be carried forward into the fiscal year that will end on June 30, 1933. This service was called in on 49 cases, which were settled wuthout the assistance of commissioners or before their arrival. These cases came from 45 States of the Union and the District of Columbia and involved 449,169 workers, directly and indirectly. The results attained in their mediation are convincing proof that the principles and methods observed and practiced by the Secretary of Labor in the handling of industrial disputes through the Conciliation Service are sound and workable, and that they have the approval of the vast majority of employers and employees. American industry has made marked advances since 1913, when the Federal Department of Labor was created, and particularly is this true as to the improved trend of understanding between industry’s principals—men and management—who have been brought closer together in a cooperative relationship based upon mutuality of respect and good will. In this improved degree of regard which employers and employees are gradually evincing for each other, the Federal Conciliation Service may justifiably claim that it has been helpful, not only to the parties directly concerned, but to the public at large as well, which is ever vitally affected when industrial disagreements are before the country or any part thereof. Time and again it has been demonstrated that grave industrial controversies that refuse to yield to any other method have finally been satisfactorily settled in joint conferences arranged and guided by impartial Federal conciliators—men and women who have been selected because of their aptitude and fitness gained through wide experience in the great trades and industries, and who are thus specially qualified to deal with others and to supplant technical questions with understanding of practical conditions and results desired by all concerned. This has proved to be a most successful method of industrial peacemaking, and is coming into wider and wider recognition and acceptance the country over. The general principle which we observe in the conciliation of industrial differences is simple as well as practical, and is void of any hint of compulsion. The conciliator from the Department of Labor generally enters the labor controversy, at the request of the 146746—32---------3 25 26 ANNUAL REPORT SECRETARY OF LABOR parties concerned or at the invitation of the public interested, with the advantage of being apart from the issues involved and with the sole interest of seeing the parties at odds brought together again in harmonious cooperation. The business of this representative is first to learn the grievance of each side and the aims for which it is contending. He then seeks to assuage their uneven tempers and bring about a meeting of minds between them, perhaps as to some plan or compromise suggested by himself. But in the end, the Government conciliator always works toward leaving the two parties who are in dispute finally to settle their differences between themselves. All these mediatorial efforts are directed toward the adjustment of disputes while operations continue, or as acts of prevention prior to the open breach; and as all controversies are ultimately settled through negotiation, clearly it is far to be preferred to settle them before rather than after a stoppage of work, and thus avoid the economic wastage which ever attends idle hands, factories, and mills. The day of heedless disregard or casual treatment of labor relations as a business factor in industry has passed. Industrial management now perceives the invisible, though none the less important, economic losses which follow in the train of industrial strife. On the other hand, the leadership of labor approaches its problems with a much broader and more practical sense of responsibility to the real interests of the worker than was the case even a few years ago. And on both sides of the industrial-relations table we find a growing sense of public obligation, an appreciation of the interest of the public in the maintenance of industrial peace and of uninterrupted employment. The best evidence of this progress in the field of labor relations appears in the experience of the Conciliation Service during the more than 17 years of its operations. Since the creation of the Department of Labor in 1913, the Conciliation Service has used its good offices in 10,946 labor disputes, involving directly and indirectly 13,868,072 workers. Maintaining wage rates. In addition to their regular duties during the past nearly two years particularly, many of the commissioners of the Conciliation Service have devoted their special efforts to the settlement of wage controversies on Federal building-construction projects. This work has been gradually increasing in connection with the extensive buildingconstruction program of the Federal Government caused by the failure to pay the prevailing rates of wages in the localities in which the building projects were being carried on. On March 3, 1931, Congress enacted the Davis-Bacon prevailing rate law, which obligates all contractors and subcontractors on public buildings of the United States or the District of Columbia to maintain the prevailing wage scales. These building trade situations were frequently followed by serious controversy between laborers and mechanics on Government projects and their employers. In numerous cases conciliators have been able to induce the contractors to pay the prevailing-wage rates of the community and to employ local labor in preference to labor from points without. A majority of the cases presented were adjusted between the parties at interest, aided by the department representa ANNUAL REPORT SECRETARY OF LABOR 27 tives, without the necessity of calling on the Secretary of Labor for a decision, as the law provides. In this particular field of conciliation, the Department of Labor has had the earnest cooperation of officials of the Treasury, War, and Navy Departments, the Veterans’ Bureau, the Commissioners of the District of Columbia, and other governmental agencies, concerned wuth building-construction programs. This new legislation has been helpful to the localities in which Federal buildings were being constructed, and the Executive order of President Hoover issued January 19, 1932, has tended to clarify and remove certain misunderstandings that frequently developed prior to that date. Thus, it is felt that the work of conciliation, with its distinctly human side, has meant a great saving to industry in work, time, wages, purchasing power, and productive efficiency, and that this measure of service has commended itself to men, management, and the public at large. Cases reported from various States during fiscal year by months July Aug. Sept. Oct. Nov. Dec. Jan. Feb. Mar. Apr. May June Total Alabama 1 3 2 6 2 2 32 3 13 3 10 6 6 25 53 12 6 6 3 6 43 3 21 5 3 11 3 1 1 1 31 5 170 4 39 6 7 144 9 4 5. 13 3 2: 8 11 4 7 1 Arizona 2 Arkansas. .. 2 3 California 4 3 1 1 2 3 1 3 1 4 1 6 1 4 1 Colorado Connecticut 2 2 1 1 1 1 2 Delaware 1 2 1 1 4 District of Columbia- Florida 1 1 1 1 1 1 2 3 3 1 1 3 Georgia 1 1 9 1 1 2 4 1 2 2 Illinois 3 4 3 3 1 2 6 2 2 5 1 1 2 9 1 1 1 2 2 3 1 3 3 1 3 1 Indiana 4 1 Iowa I Kansas Kentucky., __ __ __ 1 2 1 Louisiana 1 Maryland 2 2 1 4 1 1 2 3 1 2 1 Massachusetts 4 1 1 1 6 6 9 1 6 1 Maine Michigan. 2 7 4 1 1 2 2 1 Minnesota 1 1 3 2 Mississippi Missouri 1 1 3 1 1 1 2 Montana 2 Nebraska ... 1 Nevada 1 New Hampshire 1 5 1 8 1 7 New Jersey 4 2 4 1 24 3 3 4 1 21 1 1 1 15 1 3 New Mexico 1 7 New York 19 17 12 19 10 1 3 2 6 12 2 3 2 North Carolina Ohio 2 4 4 1 7 2 2 2 1 9 2 4 Oklahoma Oregon 2 11 1 12 3 12 1 1 1 Pennsylvania 18 3 1 16 2 11 14 7 14 12 1 2 1 8 Rhode Island South Carolina Tennessee 1 1 1 Texas 1 1 1 2 3 5 1 Utah 1 1 Vermont 2 Virginia 3 1 2 3 Washington 2 1 1 1 3 3 West Virginia. 1 1 1 1 Wisconsin 3 1 1 1 1 Wyoming Total 68 68 78 54 58 48 61 51 81 57 59 76 759 28 ANNUAL REPORT SECRETARY OF LABOR Summary of workers affected, by months Month Workers affected Month Workers affected Directly Indirectly Directly Indirectly 1931 July 50,277 13,464 67, 318 31,460 23,529 4,287 2,786 3,509 5,646 11, 070 4,221 1,962 1932 January 10,435 55,443 29,097 35, 570 10,500 11,510 342,890 15,759 10,327 16,458 16,927 8,871 8,743 106, 279 August February .— September March - .. . October •\pril _ November May December June - Total Summary of cases, 1914-1932 Cases 1914 1915 1916 1917 1918 1919 1920 1921 1922 1923 1924 1925 1926 1927 1928 1929 1930 1931 1932 Number..— 33 42 227 378 1,217 1,780 802 457 370 534 544 559 551 545 478 522 557 582 759 Adjusted 28 26 178 248 1,073 1,442 596 338 266 428 346 392 377 395 307 385 386 385 640 Unable to adjust.. 5 10 22 47 71 111 96 48 41 27 62 64 61 57 57 40 66 52 55 Pending 5 21 42 7 13 9 24 31 60 67 42 43 24 53 76 60 82 15 Unclassified 1 6 41 66 214 101 47 32 19 69 61 70 69 61 21 45 63 49 Cases pending at end of last fiscal year and now adjusted, 19. Total number of adjustments for 1932, 659. . . , T v. j 208 cases in 1918 and 219 cases in 1919 were adjusted pending decisions of National War Labor Board. The following cases show the trend of conciliation endeavor during the fiscal year 1932: Silk workers, Allentown, Pa., .and vicinity.—A strike of approximately 8,COO employees of 42 silk mills in Allentown, Pa., and vicinity, occurred on April 24, 1931, and created a serious situation in that part of the country for more than four months. The strike was precipitated by a wage reduction of 16% per cent in the Majestic Silk Mills of Allentown, employing 140 people, and quickly spread to the rest of the broad-silk-weaving industry. At the time of the strike there was practically no union organization among the workers in that industry in that community, but they soon enrolled under the banner of the United Textile Workers of America. Commissioner Fred Keightly was assigned to the case to work in conjunction with Mediator Charles Kutz of the Pennsylvania Department of Labor and Industry. Conferences were held with the strike leaders, and it was found that while there was considerable sentiment among the strikers in favor of demanding a uniform rate for weavers, the restoration of the cut in wages at the Majestic Silk Mills and the assurance that there would be no further attempts to reduce wages without negotiations would bring about immediate settlement of the strike. No recognition of the union was asked or any demands made in behalf of any other employees but the weavers. The mediators then conferred with the silk manufacturers, as represented by their executive committee of eight, headed by E. W. Walters, vice president and general manager of the Phoenix-Adelaide Silk Mills, the largest single unit involved in the strike, John Pasqariallo, secretary of the association and owner of the Hi-Grade Silk Mills, and the attorney for the manufacturers. Every effort was made to induce the committee to agree to meet with the union leaders or a representative committee of strikers as a whole in order that a speedy adjustment of the entire situation might be brought about. It was pointed out that the longer a settlement was delayed, the more opportunity was being afforded for the development of bitterness, increasing and conflicting demands, and the entrance into the situation of the communists from other cities, who would hamper and, if possible, prevent any reasonable adjustment of the situation. ANNUAL REPORT SECRETARY OF LABOR 29 The manufacturers’ answer to all this was a point-blank refusal to meet with any union officials whatever or with any committee of strikers representing the entire group, the argument to sustain this position being that “ this community has always operated as an open shop and we do not propose to do anything that will change that policy.” However, they did agree that each individual mill management would meet with a committee of its own employees, as such, and that there would be no objection to the employees of any of the mills belonging to any legitimate labor organization, if they so desired. In defense of the wage policy of the members of the association, the committee pointed out that those who had “ arbitrarily ” reduced wages were “ commission weavers ” whose prices were set by brokers in New York and other cities and, therefore, they were unable to control their own cost of production. It also developed that the entire broad-silk business was in a bad way, due to the raw-silk market, and so forth, and there was much expression in the committee of the sentiment that “ it is just as well to be idle for a few months anyhow.” The position of the manufacturers’ committee was conveyed to the strikers’ general committee, and they were urged to give consideration to the selection of committees in all the mills and to instruct them to enter into negotiations with the respective mill managements. This was agreed to and carried out and within a week the committees had met with their respective mills and, with one exception, were well received. However, negotiations were not pressed as they should have been, and the entire situation assumed a somewhat dormant aspect. The failure of these committees to press and keep alive the negotiations can be attributed to their lack of experience in such matters, which was very unfortunate as shown by subsequent developments. The fact that the strike was costing the business men of Allentown alone, according to their own statement, “ $150,000 or more a week in lost business,” and a knowledge gained by long experience in such matters, were the principal influences actuating the mediators in urging some prompt and decisive action on the part of both sides, they recognizing full well that delay meant the creation of an impossible situation, which is actually what did happen. Many conferences were held in addition to those with the manufacturers’ and strikers’ committee, with International President Thomas McMahon, Vice President William Kelly, General Organizer Arthur McDonnell, all of the United Textile Workers, Mayor Grosse of Allentown, and other city officials, the chamber of commerce, and parties interested in the situation who were in New York and Washington, D. C., all with the purpose and hope of obtaining some speedy action. About May 15 the idea of a citizens’ committee was brought into the situation, and such a committee was appointed by Mayor Grosse. In June the assistance of Governor Pinchot was asked for by the strikers’ committee, and later a committee of the ministry also made some efforts to be of service. The mediators conferred and cooperated with all of these efforts and influences, but from none of them was any better proposition obtained or any better suggestions made than had been presented as a result of the mediators’ efforts in the first two weeks of the strike. On July 15 the communists made their first open break into the situation, although they had been active under cover from the very beginning. Meetings were disrupted by heckling or by forcibly taking possession of the platforms, circulars appeared condemning every influence that was attempting to be of service, including the Federal and State Departments of Labor, and containing the usual impossible demands, some acts of violence were perpetrated, and from this point it was only a matter of time until the strikers would recognize what these influences were doing to their cause and would act accordingly. About August 14 several shop committees met with their respective mill managements, and arrangements were made to return to work at the rates prevailing when the strike started and with the right to remain organized if they so desired. Action authorizing this procedure having been taken at a mass meeting prior to the 14th, by the end of the month practically all of the mills with any business on their books were again in operation. During all of these later negotiations the mediators were instrumental in ironing out many difficulties that arose where some of the employees charged that they were being discriminated against for strike activities, with the result that there was unusually few of these situations, considering the extent of the strike. Thus ended four months of strife in the broad-silk industry, the effect of which will long be felt by all who were involved, directly or indirectly, and it is desired that appreciation be recorded here of the efforts of many public- 30 ANNUAL REPORT SECRETARY OF LABOR spirited citizens of Allentown, including ministers, business men, a former director of the bureau of industrial relations of the State, many local labor leaders, city officials, and others, who gave freely of their time and talents in an effort to be of some service in a situation where the application of a little more of the sound principles of common sense would have ended the conflict in two weeks instead of four months, and certainly on a more satisfactory basis to everyone interested, employer and employee alike. United States Assay Building, J/0 South Street, New York City.—On June 26, 1931, the Granite Cutters’ International Association invoked the aid of various building trades and caused a strike or stoppage of work on the construction of the new United States Assay Building, affecting granite cutters, carpenters, plumbers, electricians, bricklayers and helpers, stonesetters, and other crafts, on account of stone being furnished from nonunion quarries in Georgia. As the Federal Government was desirous of having work progress on this building so that it could be completed in time to transfer millions of dollars of bullion from the old Assay Building on Wall Street, which had been sold by the Government, the Department of Labor was asked to intervene, and Commissioner William C. Liller was assigned to this case July 8. Commissioner Liller promptly conferred with the interested parties and secured an arrangement whereby work was resumed for over two weeks, during which time efforts were made to compose the differences. Officials of the Stone Mountain Granite Corporation of Georgia, which had the contract for furnishing the stone, and who had had some previous misunderstanding with the Granite Cutters’ International Association, were approached in an effort to bring about an amicable adjustment, but refused to meet representatives of the Granite Cutters’ Association or enter into any arrangement that would permit the uninterrupted progress on this building. After the expiration of two weeks, failing to secure any cooperation from the Stone Mountain Granite Corporation, the contractors, the Great Lakes Construction Co., entered in an agreement with the Granite Cutters’ Association to the effect that if they would remove their grievance, thereby permitting all union workmen to return to work on this construction, that no more stone would be procured from this quarry for use in Greater New York as long as that concern remained unfair to organized labor. This agreement was reached on August 14, and on August 17 all crafts except laborers returned to work. Custom Tailors, Washington, D. <7.—Eleven of the leading firms engaged in the custom-tailoring business and belonging to an organization known as “ The Merchants Exchange,” of Washington, D. C., sought the assistance of the Department of Labor in the adjustment of a controversy between them and coat makers in their employ. The controversy arose over the question of wages which were established when the parties entered into a contract with the Journeymen Tailors Union, Local 188, to which organization the coat makers belonged. The employers contended that they could not maintain the wages specified in the contract because of the business depression which had decreased the volume of trade and the selling price of the product, rendering it impossible to operate on a profitable basis. The coat makers, on the other hand, contended that the change in conditions did not justify employers to decrease wages during the life of the contract, which had approximately nine months longer to run. Representatives of the respective parties involved had held repeated conferences without reaching any understanding whatsoever, and the situation had progressed to a stage where there was grave danger of a lockout or strike of employees. Commissioner Charles Bendheim was detailed to the case, with instructions to do everything possible to harmonize the differences. He immediately contacted with representatives of the involved parties, and after having conferred separately with them, he arranged and presided at a joint conference between them. This joint conference was held at the Labor Department and resulted in an agreement under the terms of which the coat makers accepted a wage reduction of 5 per cent pending the expiration of the contract that had until October 1, 1932, to run, a period of six months from the date of the agreement. This settlement preserved the contractural relations of the parties, inculcated a friendly and cooperative spirit, and averted the grave consequences that would have resulted had a lockout or strike occurred. Veterans' Hospital, Coatesville, Pa.—Complaints having been received that the prevailing rate of wages was not being paid by the contractor for the ANNUAL REPORT SECRETARY OF LABOR 31 Veterans Administration Hospital at Coatesville, Pa., the Secretary of Labor directed Commissioner of Conciliation Homer J. Brown to make an investigation. Sinclair & Griggs, general contractors and builders of Philadelphia, Pa., had secured this Government contract, and were paying carpenters at the rate of 50 cents per hour, claiming that Coatesville contractors had informed them that due to abnormal business conditions local firms were paying that rate. At conferences arranged by Commissioner Brown between M. J. McDermott, representative of the United Brotherhood of Carpenters and Joiners of America, and representatives of the firm of Sinclair & Griggs, the firm agreed to pay its carpenters 65 cents per hour during the completion of its contract on the veterans’ hospital. This represented an increase of 30 per cent in wages, and it was accepted and ratified by Local Union No. 587 at Coatesville and signed jointly by the respective parties thereto. The agreement provided for time and one-half for overtime, double time for Sundays and holidays, and stated that there should be no stoppage of work during the completion of the work. Commissioner Brown was also instrumental in securing a mutually satisfactory and signed agreement with the plumbing and heating contractor, H. E. Kottcamp, and representatives of the United Association of Plumbers and Steamfitters, the latter represented by M. F. Garrett, national representative, and Charles A. Wills of the local union. This agreement provided for an increase from 75 cents to 95 cents per hour, and included an arbitration clause and an agreement that no stoppage of work for any cause should take place during the life of the agreement. A dispute affecting bricklayers was also taken up, and after several conferences at Philadelphia and Washington, arranged by representatives of the Department of Labor and the Veterans’ Administration, it was finally agreed that if the firm of Sinclair & Griggs would sublet the brickwork to a Philadelphia contractor, the John B. Kelly Co., the bricklayers would accept a rate of $1.12% per hour. This arrangement proved to be acceptable and disposed of the bricklayers’ complaint. During these separate negotiations, beginning in April, 1932, construction work on the hospital continued without interruption, and good progress was made toward completion of the contract with a minimum of friction or delay. Happy Hollow Coal Co., Warren Co., Iowa.—Early in November, 1931, a strike occurred at the Happy Hollow Coal Co. mine located in Warren County, about 10 miles from Des Moines, Iowa. This strike received a great deal of newspaper publicity and attracted public attention as a result of the miners from the Des Moines area having conducted a marching campaign to organize the miners at Happy Hollow and to bring about a joint wage agreement at this mine on the same basis as the other mines in the Des Moines field. Commissioner of Conciliation William H. Rodgers was assigned to the case and participated in a number of conferences held in connection with the situation, including a meeting with Governor Turner in his office. The situation gave the governor much concern, and he advised the miners’ representatives and the officials of the coal company that he desired that they compose their differences in a peaceful way and thus avoid any further conflict that might lead to serious consequences. As a result of conferences held regarding the matter, a satisfactory agreement was finally reached on November 10 between the officials of the United. Mine Workers and the officers of the coal company, thus bringing about a peaceful settlement in this disturbed situation. Conlon Coal Co., Hudson, Pa.—A strike of anthracite coal miners occurred at the mine of the John Conlon Coal Co. at Hudson, Pa., on April 8, 1932. Commissioner of Conciliation Thomas Davis was directed to get in touch with the situation. He found that the miners were picketing the colliery and that the company was endeavoring to work the mine with new men. Commissioner Davis attended a mass meeting of the striking miners with a number of union officials, where it was learned that the miners were determined that no new employees would be permitted to work. Mr. Davis informed the strikers at this mass meeting that he would meet with the officials of the company the next day and endeavor to arrange a conference for the miners’ committee and union officials. The next day the commissioner conferred with the officials of the company and found that the feeling there was as bitter as it was with the miners, but after an extended conference he persuaded them to meet with the miners’ committee and the union officials. The very next morning, however, the bitter feeling that had developed resulted in the shooting of two 32 ANNUAL REPORT SECRETARY OF LABOR pickets. However, the meeting that had been arranged was held in the afternoon and was attended by 6 miners on the committee, 3 representing the Keystone Colliery, 3 from the Madeira Colliery, and 3 officials of the union. The long conference that followed brought out clearly the bad feeling that had developed between the contending parties. In view of this feeling, Commissioner Davis deemed it advisable to adjourn the meeting for a few days, with the understanding that the mines would not be operated in the meantime, thus allowing the tense feeling to subside. This was agreed to, and in a few days the miners’ committee and union officials met with the company representatives and an agreement was reached which allowed the miners to return to work without a wage reduction and with no discrimination against the men who had been on strike. Building Trades Crafts, Des Moines, Iowa.—The building trades of Des Moines were notified under date of September 15, 1931, that on October 1 wage cuts ranging from $1 to $3 per day would be put into effect by their employers, the Master Builders Association. The cuts were to affect all of the trades regardless of any existing contracts or agreements, written or unwritten. And this in spite of the fact that all building-trade agreements in recent years expire on or about May 1 of each year. Commissioners Canfield and Rodgers were on the case, devoting nearly all their time to it from October 1 to November 9, at which time a settlement was reached. The Master Builders Association took the position that they had no contracts or agreements with the unions, and consequently had the right to cut wages whenever they chose to do so. It developed, however, that before October 1 the building laborers convinced them that they did have an agreement, a written contract, and succeeded in changing their minds about breaking it. Hence they agreed to go on through with the wage scale specified in the contract until May 1, 1932. As for the other unions, the master builders insisted that they had no contracts or agreements with them and declared to carry out their intention to cut wages. All the other unions affected resisted and their memberships were automatically thrown out of work. These unions, resisting the wage-cut ultimatum, offered to arbitrate the wage question; but the master builders contended they had no agreements and refused to arbitrate. It was then proposed that they arbitrate the question as to whether they had agreements or not. The master builders refused that also. They declared that they would wait a “ reasonable length of time ” for the union men to return to work at the reduced wage scales; and then, if they did not return, they would operate on an open-shop basis. It was evident that the master builders did not intend to alter their ultimatum of September 15 in the least. The carpenters, the bricklayers, and the electricians were not members of the building-trades council. Consequently the building trades of Des Moines were divided into two groups. The three mentioned, through their respective international executive boards, had an alliance. But the local unions negotiated independently with employers. The bricklayers and carpenters, working alone and independently, confronted with resistance on the part of the master builders and their persistent refusal to arbitrate any question, soon found themselves obliged to accede to the ultimatum of the master builders. They were forced by circumstances to take the $2 per day cut unconditionally. They returned to work October 7, leaving five affected unions (members of the building-trades council) still out on the streets resisting the wage-cut ultimatum. The hoisting engineers, structural-iron workers, plasterers and cement finishers, lathers, and the painters and decorators formed the group to carry on the resistance to a definite conclusion. These crafts offered to arbitrate the question of wages; they offered to arbitrate the question of existing agreements. Both offers were flatly refused. Later they proposed “ state arbitration.” This also was refused with a declaration that even though the unions could force such arbitration, the master builders would refuse to abide by the decision. (There is no provision in the State arbitration law to compel a resisting party to abide by decisions handed down. However, public sentiment and opinion is counted upon in such cases as being a powerful factor in the enforcement of decisions.) State arbitration was resorted to, and in due time, remarkably short in this particular instance, chosen arbitrators and an umpire proceeded to hear testimony submitted by all parties to the controversy. ANNUAL REPORT SECRETARY OF LABOR 33 In spite of the fact that the master builders had stated definitely that they would not participate in such arbitration and that they would refuse to abide by any decision handed down, they did select and propose names required by law from which the governor could choose an arbitrator to represent them. Their chosen arbitrator was James W. Hubbell, of Des Moines. The chosen arbitrator for the unions was John Connolly, jr. After a few days of deliberation, these two arbitrators agreed upon Frank C. Byers, of Cedar Rapids, as the third man or umpire. The hearing started on Saturday morning and was concluded the following Wednesday afternoon, October 21. Under the law, the board had until November 1 to hand down their decision. The decision was withheld until that date. One of the unions involved had had no written contract with the master builders since 1919. Others had been without written contracts for some years. The hoisting engineers’ union was the only one able to prove the existence of a written contract in force at that time. Yet all of them were able, to prove, and it was accepted by the board, that they had been and were working under verbal agreements from year to year, which were in fact just as binding on both parties as if written agreements had been signed.. The board rendered its decision in favor of the unions, upholding their agreements and contracts. Also that the master builders should call the men back to work and employ them under the terms of their agreements until May 1, 1932; that the builders and the unions should enter into negotiations for a 1932 wage scale, and advance the customary date in order to stimulate 1932 building. Even though the master builders had refused to abide by the. decision of the arbitration board, public sentiment and opinion was so strongly in sympathy with the unions that the master builders finally agreed to the boards’ recommendations, and a compromise settlement was reached which provided for about half the reduction asked and closed-shop agreements extended to May 1, 1933. Federal office building, Portland, Oreg.—On January 1, 1932, a horizontal wage reduction of 20 per cent became effective in the building-trades industry of Portland, Oreg., the result of long-drawn-out negotiations culminating in an arbitration award. Prior to January 1, 1932, the employers had agreed that work contracted before January 1 would be completed at the old scale of wages, and this provision was made a part of the arbitration award. On October 19, 1931, the Treasury Department called for bids for construction of a Federal office building. Murch Bros. Construction Co., of St. Louis, was the lowest bidder, and the contract was awarded to this firm December 26, 1931. No subcontracts were let prior to January 1, 1932. Bonds were approved and the work ordered started January 16, 1932. The building-trades council contended that this job came under the 1931 scale by virtue of their local arbitration award. Murch Bros, disputed this contention, holding that the Federal prevailing wage law could take cognizance of no rate but that being paid in the locality when work was actually being performed. This controversy threatened to delay beginning of operations on this million-dollar structure at a time when private building construction was at low ebb, with scarcely 20 per cent of available craftsmen being employed. Conciliator E. P. Marsh was called into this controversy and bent his efforts toward settling the dispute without the necessity of recourse to the Federal statute and the inevitable delay of such procedure. Together with Inspector Spice, of the Treasury Department, he began a series of joint conferences between the parties in dispute. At no time was there any challenge raised by Murch Bros, that the union scale was not the “ prevailing scale ”; the question hinged on when the scale was to be considered—before or during actual building construction. After several days of conferences a compromise was reached which satisfied all parties and obviated the necessity of formal legal hearings and decisions. The men agreed to accept a horizontal 20 per cent reduction from the 1931 scale, in return for which Murch Bros, agreed to rotate all crafts on a 6-hour-shift basis, or shorter if necessary, to absorb the available and competent unemployed, to operate under union conditions throughout, and place these conditions in all subcontracts. This settlement involved mutual concessions. The craftsmen felt they had a perfect case, morally at least, as it was undisputed that all private work let 34 ANNUAL REPORT SECRETARY OF LABOR prior to January 1, 1932, was to be fully completed at the old scale. Murch Bros, and the subcontractors made concessions in agreeing to rotate employment, for it is recognized that rotation effects a certain loss in efficiency regardless of the skill and loyalty of the workers. The 6-hour day and work rotation are both innovations in the building industry, apparently made necessary by the condition of the times and the economic trend of events. It was inevitable that some friction would develop in the practical application of new work methods, but it is a tribute to the patience, the patriotism, and the ability of all concerned that from the date of this settlement the department was not called upon to render any further assistance. Cumberland Coal Co., Crossville, Tenn.—Efforts of the miners of the Cumberland Coal Co. near Crossville, Tenn., to organize into a unit of the United Mine Workers of America ended in the discharge of 30 miners who had joined the organization. Commissioner of Conciliation Edward Stewart was directed to effect an adjustment if possible. Commissioner Stewart conferred with the vice president of the company, and a lengthy discussion of the affairs of the company followed. The vice president was very positive in his position that no member of the United Mine Workers would be permitted to work at the mine or that any of the discharged men would be reemployed. It was found that the company maintained a store where they compelled their employees to trade and where higher prices were charged than the workers would have had to pay elsewhere. The vice president requested Commissioner Stewart to report to his department that no member of the United Mine Workers organization would ever work in the mine. The commissioner offered the suggestion that with winter approaching these miners would need work to support their families. The reply to this suggestion was that the miners should have thought of this before joining the union. Guards were on duty at the mine who scrutinized closely all who approached. No check weighman was employed, and the coal was not even weighed, but the miners were paid 60 cents per car. A settlement of the case was utterly impossible, and Commissioner Stewart withdrew from the case. Post-office building, St. Paul, Minn.—During the month of June, 1932, a dispute arose as to the prevailing rates of wages for structural-iron workers and building laborers on the new post-office building under construction at St. Paul, Minn. Commissioner of Conciliation R. M. Pilkington was directed to make an investigation. It was found that the contractor had posted a notice that he would pay the prevailing rates but had not posted the amounts he would pay. It was currently reported that he was paying from 75 cents to $1 per hour for structural-iron workers and from 40 to 50 cents per hour for laborers, and this was neither denied nor affirmed by him. An exhaustive survey of the situation disclosed that there had been completed, or was in process of erection, public buildings costing approximately $6,000,000. The city council and county commissioners were empowered to set the rates for all labor engaged on these works, which constituted about 90 per cent of all work of a comparable nature under way in the city of St. Paul or vicinity. It was found that the rate established for structural-iron workers on all of this work was $1.25 per hour and for building laborers 45 cents per hour. Upon presentation of these facts to the contractor for the post office he readily accepted them and posted them as the rates to be paid on this project. Nearly 700 men were employed on this operation. San Francisco Bay district.—Through the activities of the Conciliation Service peace and harmony were established in the San Francisco Bay district between employers and building-trades mechanics for the fiscal year 1932. During a period of 10 years’ controversy and strife in the building industry which resulted in the loss of life and great economic distress brought about by strikes, lockouts, and boycotts prompted public officials, State, county, and city, to call upon the United States Department of Labor for assistance.' Commissioners of Conciliation E. H. Fitzgerald and E. P. Marsh were assigned with instructions to make an investigation and to render an opinion. After days of study, during which time all the business interests cooperated, public hearings were held in the Federal building at San Francisco, which resulted in a final and definite agreement to end this long-drawn-out dispute. Investigations and public hearings conducted by the commissioners to determine the prevailing wage scale were held in the Federal building, San Francisco, Calif., beginning May 4, 1932, and concluding June 1, 1932, where all ANNUAL REPORT SECRETARY OF LABOR 35 persons interested were given an opportunity to be heard and submit any documentary evidence which might have a bearing on the subject. The result of the hearings and investigation developed the facts that during the month of September, 1931, the Industrial Association of San Francisco, representing practically all of the employers in the building industry, in cooperation with tradeunion representatives of the basic trades, set up the impartial wage board. The following gentlemen were selected by mutual agreement to serve on said board: Henry J. Brunnier, Will J. French, and Willard E. Hotchkiss. Hearings were conducted in San Francisco and Oakland. This board concluded its work and rendered a decision October 17, 1931, to be effective January 1, 1932, and provided that: “ With certain minor adjustments to correct obvious discrepancies, the wage scale now in force shall remain in effect during the year 1932, and thereafter until occasion arises for its revision.” Subsequent to the decision of the impartial wage board and its effective date of January 1, 1932, certain groups of employers in the building industry held conferences with certain representatives of building-trades craftsmen, at which time agreement was reached which resulted in modification of the impartial wage board’s decision; in other cases no agreement was reached, the impartial wage board’s decision remaining in effect. Some of the crafts affected by reduction were plasterers, carpenters, electrical workers, iron and steel workers, and building-material drivers. Arbitrary action was taken by certain employers to reduce the scale fixed by the impartial wage board without conferring with building-trades mechanics or their representatives. The opinion rendered by the commissioners was as follows: The decision of the impartial wage board of October 17, 1931, and effective January 1, 1932, fixes the prevailing wage scale for San Francisco and Alameda Counties building industry for the year 1932, except where a revision of the scale has been or may be reached by negotiations and agreements. Bakers, Washington, D. C — Proposals by the Employing Bakers’ Association of Washington, D. C., to reduce wages of bakers in the employ of members of the association brought forth threats of a strike of 360 union bakers and 175 union helpers and apprentices in April, 1931. The proposal of the association called for a 20 per cent reduction in the wage rates of the journeymen bakers employed on both the day and the night forces, the wages of the helpers and apprentices to remain unchanged. On April 21, 1932, 10 days prior to the expiration of the 1931 agreement between the union and the association, the Department of Labor assigned Commissioner E. H. Dunnigan to the case. Through the efforts of Commissioner Dunnigan, representatives of the union and the association were immediately brought into joint conference. The first joint conference failed of results so far as effecting an adjustment of the dispute. The conference did, however, bring about an understanding whereby the union agreed to continue its men at work pending further negotiations; moreover, that in the event of a failure to work out an agreement satisfactory to both sides, the union would give the association four days’ notice of any cessation of work. Failure of the representatives of the two sides to reach an understanding in the first joint conference caused the dispute to continue on for three weeks after the expiration of the 1931 agreement. During that time the commissioner continued his efforts and held several separate conferences with the representatives of the two sides, out of which he succeeded in bringing the representatives of the two sides into two additional joint conferences. In the third joint conference, the association’s representatives submitted the following proposition : Ten per cent reduction in the scale of wages of journeymen bakers and apprentices and a 5-cent per hour reduction in the pay of helpers, the said scale not to be retroactive from May 1, 1932, as provided in the present working agreement, but to become effective from the date of the signing of the new agreement. At a special meeting of the union held on May 21, 1932, the association’s proposition was accepted by the union. Acceptance was followed by a meeting of officers of the union and the association, where a new agreement embodying the new wage rates was entered into and signed. Steel Fence Companies, New York.—For some years there has been a marked want of proper understanding as between certain steel fence companies and Housesmiths (Ornamental) Ironworkers Local No. 52 of Greater New York. 36 ANNUAL REPORT SECRETARY OF LABOR There is considerable of this steel and iron post and fence work done in New York, particularly in connection with school and other playgrounds, parks, and commercial buildings. While in some instances union agreements have been signed by companies, nevertheless, from time to time, strikes have occurred where the work in question was being installed. The department has been called upon a number of times to straighten out these difficulties. In January, 1932, Commissioner Thomas J. Williams was assigned to a strike situation on two public schools in the Bronx, New York, involving the Anchor Post Fence Co. of Baltimore, Md., and New York, and Local Union No. 52. It was stated that a union agreement had been signed by the company, but the company claimed they had no record of it. Mr. Williams conferred with a Mr. Allinger, representing the company, and later on with A. Blaeser, vice president of the company. Then the commissioner took the matter up with John Schilling, secretary of the housesmiths union. The union representative claimed that the agreement had been violated and was inclined to believe the union would not be in a mood to continue to do business with the company. After considerable effort, the commissioner was successful in arranging a joint conference between the company’s representative, Mr. Blaeser, and the three principal officers of the union. This conference lasted from 3 p. m. until 8 p. m. Finally, as a result of the conference, an agreement was reached whereby the union agreed to further investigate the work in dispute at the two schools, with the commissioner, Vice President Blaeser of the company, and a representative of the union being present. On further consideration of the matter the union decided to call off the strike, and the work in question was finished by the Anchor Post Fence Co., and good relations were resumed between the company and the union. Plumbers, Essex County, N. J.—During the latter part of April, 1932, several hundred journeymen plumbers in Essex County, N. J., were in controversy with the Master Plumbers’ Association ovex* a proposed reduction of wages. After several conferences the parties in interest failed to agree, and on the 30th of the aforesaid month the shops (36 in number) closed down, thereby locking the employees out. The matter was called to the attention of the department by a member of the executive board of the Master Plumbers’ Association, and pursuant to the policy of the department its good offices were offered to make an effort to adjust the differences, which were accepted by both sides. Therefore the department’s representative, Commissioner John A. Moffitt, made an investigation of the cause of the dispute, which was as follows: The journeymen plumbers were receiving $13.20 pel’ day and the master plumbers asked a reduction of $2.20 per day. After interviewing the representatives of both parties, a joint meeting was called and a compromise was agreed to, the journeymen accepting a reduction of $2, making their wages $11.20 per day. During the negotiations for an adjustment of this case, a strike of journeymen plumbers at Montclair, N. J., and several surrounding towns was inaugurated against a reduction in wages of $2 per day—from $12 to $10. The department was requested by the journeymen to come into this case. A number of conferences with the employees were held. The employees, though reluctant to recede from the position they had taken, were finally prevailed upon to compromise and signed an agreement for one year at $10 per day. Rutland (Mass.) Veterans'1 Hospital.—On July 3 word was received that the bricklayers employed on the construction of the veterans’ hospital at Rutland, Mass., had gone on strike because the firm of Woodall & Woodall, subcontractors in charge of plastering, had brought with them from the South six nonunion plasterers, who were being used on the Rutland job. Commissioner Weinstock -was assigned to the case. The situation developed one unusual aspect when the commissioner was told that three of the men employed by Woodall & Woodall could not join the union because their church affiliations restrained them from so doing. In addition, Mr. Woodall himself is a member of the same church and has the same objection to trade-unions. It might be just to add here that this particular church objects to its members affiliating themselves with any othei’ than religious organizations. The Bricklayers and Plasterers’ Union, on the other hand, have a very definite law in their organization which prohibits them from working with nonunion members of their own craft. ANNUAL REPORT SECRETARY OF LABOR 37 After a few conferences, Commissioner Weinstock was able to secure an agreement whereby the Bricklayers and Plasterers’ Union exempted these religious objectors and agreed to work with them provided the company would agree that all other plasterers employed should be members of the union. This was agreed to by the company. Plumbers, Rochester, N. Y.—Among the more serious strikes during the past year was one of 400 plumbers and steam fitters in the city of Rochester, N. Y. On April 1, 1932, every plumber and fitter in the jurisdiction of the Associated Master Plumbers of Rochester, N. Y., ceased work when association members reduced the wage rate from $11 to $8 a day. Not a single man employed by an association member remained at work. The strike was on in earnest, and the affair began to take on a serious aspect. Commissioner Thomas M. Finn was assigned to handle the matter, succeeding in bringing the parties into a joint conference which he attended. The first conference began at 2 p. m. and adjourned at 1 a. m. the following morning. At this meeting it was learned that not only did the master plumbers desire a reduced wage scale but a complete change in working conditions which would have taken from the men conditions which they had secured after years of effort and negotiations. Nothing resulted from the first joint conference. However, a second was held, at which General Representative E. W. Leonard attended. Mr. Leonard did the negotiating for the plumbers and fitters at this meeting. Commissioner Finn also attended and gave considerable advice to the contending parties, whom he succeeded in holding together until after the midnight hour, when an adjournment was taken. Other meetings were held between the parties with the ultimate adjustment of the strike, an agreement being signed carrying with it a wage scale of $9.40 a day of eight hours and practically all of the conditions held previous to the strike and contained in the expired agreement. The settlement of the strike was another example of the principles of conciliation as properly applied and by a trained commissioner who, by bringing both sides together in joint meeting, brought to them a realization of the fact that the interests of both were nearly identical. Veterans’ hospital, Canandaigua, N. Y.—An interesting illustration of the application of the prevailing rate of wage law was seen in the case of the Veterans’ Administration hospital, Canandaigua, N. Y. In July, 1931, ironworkers engaged by the subcontractor on the project struck as a protest against failure of the subcontractor to pay what was claimed to be the prevailing rate of wages in the territory where the building was being erected. Ironworkers claimed that ironwork at Canandaigua, Rochester, and other near-by places was being erected at a rate of $1.25 per hour and that the subcontractor on the project was paying from 50 to 70 cents an hour. Commissioner Thomas M. Finn was assigned to handle the matter, make a careful investigation, secure all necessary information, and, if possible, to bring about a satisfactory understanding of the controversy. The commissioner made a careful survey of the entire territory, ascertaining accurately the wage scale being paid by the subcontractor, which he found to be about one-half the amount of the prevailing rate. A great number of iron workers were at the time engaged in the territory and all were receiving $1.25 an hour. A number of conferences were held with the subcontractor, who finally agreed to pay the prevailing rate. However, after the commissioner had departed from the territory, he laid off the ironworkers and again resumed operations with semiskilled labor and at the reduced rate of wages. Commissioner Finn returned to Canandaigua and by appointment met thf general contractor, who came on from Chicago, Ill., and after a lengthy conference the latter agreed to take over the ironwork from the subcontract and complete the remaining work himself. He paid the prevailing rat^pf wages to all men engaged until the completion of the work. At one time^jjj^-wards of 60 ironworkers were employed on the building. This was plished by conciliation and in a manner which brought forth the conp^ep^-tions of all concerned. •inieiaog Lady garment workers, Boston, Mass.—In February of this year wbpdnwas received that a strike was imminent in the dress-manufacturing iiUhistryvnh Boston. A 2-year agreement between the International Ladies Garrft®ntxWorkers’ Union and the dress, cloak, and suit manufacturers of Bostoffl'wdsnabwt to expire. 38 ANNUAL REPORT SECRETARY OF LABOR The manufacturers served notice upon the union that the old agreement would not be renewed, and a strike was threatened. Commissioners Wood and Weinstock entered the situation. They found that the manufacturers’ organization had disintegrated to the extent where only 9 manufacturers remained in the association. There are 100 odd manufacturers in the city. Realizing the difficulty of maintaining harmony in that industry without better unity among the manufacturing element, the commissioners prevailed upon the board of retail trade of the Boston Chamber of Commerce to arrange a dinner to which the leading manufacturers were invited. A. Lincoln Filene acted as host. At the dinner the need of organization among the manufacturers was stressed and an attempt made to effect a larger organization in hopes that then a committee representing the manufacturers would be appointed to negotiate with a committee of the union. Unfortunately, the majority of the manufacturers present decided to postpone action in completing the above program. The result was that on February 15 a strike of 3,000 garment workers was called. One week after the beginning of the strike Commissioners Wood and Weinstock prevailed upon James M. Curley, mayor of Boston, to call the warring factions together. From the mayor’s conference a subcommittee of manufacturers, union representatives, and the commissioners of conciliation was appointed to continue conferences until a satisfactory agreement could be recommended to the larger bodies. For two weeks thereafter the subcommittee continued to meet daily, with the result that an agreement was finally recommended and accepted by the cloak manufacturers, the dress manufacturers, and the union. The new agreement contained most of the policy which had been established between the two groups in the past, but it did arrange for a downward readjustment in the wage scale and it gave to the manufacturers the right to reorganize their shops to the extent of 10 per cent of their employees. Lackawanna & Wyoming Valley Railroad Co. v. Brotherhood of Railway Trainmen, Scranton, Pa.—In this instance the company demanded a wage reduction averaging 10 per cent together with numerous changes in the working rules as prescribed in a perpetual contract then in operation between the company and the union. The company claimed it was “ not able to earn its bonded indebtedness and had defaulted in the payment of interest on debenture bonds ”; that “ unless the employees acceded to its demands the company would go into receivership.’’ The employees refused to grant any of the demands, claiming that the earning power of the company was entirely sufficient to warrant the operation of the railroad under the wage rates and working rules then effective, provided the total earnings were used exclusively for the operation of the railroad and not diverted into other channels. Two hundred and forty-six employees were directly and indirectly involved in the dispute. Conciliation was jointly requested by the employers and employees, owing to the fact that the railroad was electrically operated and did not come under the provisions of H. R. 9463 and the jurisdiction of the Railroad Labor Board created by that act for the adjustment of railroad labor disputes. Commissioner A. L. Faulkner was assigned to the case August 7, 1931. The commissioner brought the representatives of the disputants into conference in joint sessions in the offices of the company at Scranton, Pa., August 10-11, but found the dispute had so far progressed that neither side was willing to concede anything and that it was impossible to adjust the matter by conciliation methods. He then proposed arbitration of the entire controversy, which was finally agreed to August 11, when an arbitration agreement was signed by representatives of each side. There were two interesting and unusual features in this case: (1) Although conciliation had been requested by both sides involved in the dispute, neither side was disposed to make any concession toward its adjustment. (2) Arbitration was agreed upon solely upon condition that the commissioner would first agree to accept the responsibility of appointing the third arbitrator, or umpire. The responsibility was accepted by the commissioner by permission of the Secretary of Labor and the director of conciliation. The arbitration board assumed its duties shortly following the appointment of the third arbitrator August 19, 1931. Owing to the number of points in contention between the parties involved and the vast number of records and other documents necessarily examined by the ANNUAL REPORT SECRETARY OF LABOR 39 board of arbitration, the work of the board was tediously prolonged beyond reasonable expectancy, and it was not until February 12, 1932, that a decision was reached, six months and one day after arbitration was agreed upon. In its award the board of arbitration granted the company the right to reduce the wages 10 per cent, conforming to the general wage reduction accepted by other railroad employees, February 1, 1932. The board also decreed that Rule 16-B be amended to permit the company to, change from a 2-man to a 1-man operation on the Dunmore branch of its railroad. There was no other change made in the working rules. As provided for in the arbitration agreement, the award became effective on the date of finding, February 12, 1932, remaining effective for one year from date and thereafter, except by a 30 days’ written notice of any change being desired by either party to the agreement. Thus a strike was averted, there was no cessation of operation of the railroad, and a threatened receivership was happily avoided. Post-office construction, Boston, Mass —A strike lasting 52 hours, which swept off every trade engaged in the construction of the new $4,000,000 post-office building in Boston, was settled by the Conciliation Service without the loss of a minute's working time. This achievement was accomplished with the cooperation of the employer and the representatives of the Building Trades Council of Boston, who helped to overcome the serious obstacles in the path to harmony, and by using the radio Sunday night to notify striking workmen to return to the job Monday morning. All workmen were called off the job Friday, March 25, just at closing time of the day’s work. The week ended Friday, too, and the regular time for resuming work was the following Monday if the strike had not been called. Having knowledge of the trouble soon after the strike action was taken, the director of conciliation got in touch with Commissioner Charles G. Wood, who was on a sleeper en route to Providence, R. I., and requested him to continue on to Boston. Arriving there Saturday morning, the commissioner found that the grievances were to be considered by the council at 11 o’clock on Monday forenoon and the representative of the general contractor had been notified to attend the meeting. As this scheduled program was sure to result in the loss of a day’s pay to all men engaged on the job at that time, besides the loss of a day’s production in the construction of the building, and the possibility of a failure to settle the dispute for several days, Commissioner Wood discussed the situation with Edwin E. Graves, general business agent of the council; E. A. Johnson, secretary ; and Superintendent Hudin in charge of construction for the general contractor, a Ch’cago building company. It being Saturday, with all work suspended, the business agents of the building crafts were scattered, several out of the city, and it was impossible to convene the council then. The following day was Easter Sunday, and this was thought to be a time in the life of a business agent when he attended church service. It happened, however, that funeral services for the late Frank H. McCarthy, the representative in New England for the American Federation of Labor, were to be held Sunday afternoon and labor representatives generally were attending to pay their final tributes to a veteran leader. General Agent Graves agreed to present Commissioner Wood’s invitation to all the delegates of the building trades council to meet with him in conference with Superintendent Hudin at the Parker House at 3 o’clock in the afternoon. Every delegate accepted the invitation and came to the hotel immediately following the funeral services. When the grievances were made known to the commissioner, the issues were disposed of one by one by agreement. It appeared, among other things, that Mr. Hudin had inherited some conditions which a former superintendent had not promptly dealt with, and these undigested hangovers had complicated a situation in a way that was certain to promote a lack of confidence between the parties. It was finally agreed that any further controversy arising on the job would be settled without recourse to strike action by utilizing the good offices of the Conciliation Service in any case of continued disagreement. All issues in dispute were thus disposed of by 9 o’clock and the strike officially ended. Several of the newspapermen offered the radio facilities of their offices for use in notifying the men to return to work. Mr. Graves and several of the business agents adopted the method; and when the workday began at 8 o’clock Monday morning, they were all on the job as though nothing had 40 ANNUAL, REPORT SECRETARY OF LABOR happened Friday to disturb the normal conduct of the processes of construction. It was the first time in the records of the Conciliation Service that the radio had been used to officially inform workers that their strike was settled and to return to work. Thus, a 52-hour strike without loss—except to those delegates whose families were deprived of their society a greater part of Easter Sunday. Textile strike, Langley, Bath, and Clearwater, Horse Creek Valley, 8. C.— A strike of 1,600 textile workers (members of local unions affiliated with the United Textile Workers of America), employed in three mills located at Langley, Bath, and Clearwater, in what is generally known as Horse Creek Valley, S. C., began on March 28, 1932. The strike was caused by a change from the manufacture of print cloths to broadcloth in the mill located at Langley, as a result of which it was alleged by the weavers employed in that mill that their earnings were greatly reduced. The strike, involving the weavers only in. the beginning, spread rapidly to the other employees in that mill and by April 1 had reached the mills located at Bath and Clearwater, completely closing all three mills. Several weeks after the beginning of the strike, at the request of Paul W. Fuller, educational director for the American Federation of Labor in the South, and H. E. Thompson, member of the State Mediation Board, of South Carolina, that this department intervene in an effort to bring about an adjustment, Commissioner Howard T. Colvin was assigned to the case. After some 10 days of negotiation, during which the commissioner held conferences with the representatives of the strikers, the mill management, Governor Ibra C. Blackwood of South Carolina, and other interested parties, an adjustment was finally effected on the basis of a correction of the situation in the weaving room at the Langley mill where the strike originated, the reinstatement of all employees without discrimination against any for having participated in the strike or for membership in the union, and an understanding that any alleged injustices arising in the future that subordinate officials are unable to satisfactorily adjust may be taken up with the general manager for handling. These terms of settlement, having already been agreed to by the mill management, were ratified by the strikers at a series of three meetings held on the night of May 16, beginning at 7.30 o’clock and extending until 1.30 o’clock in the morning of May 17. During the seven weeks the strike was in effect the strikers and their families were for the most part supported from donations, made largely by the people living in the surrounding territory of South Carolina and Georgia. Business in the three mill villages in Horse Creek Valley was demoralized and trade conditions in the city of Augusta, Ga., a short distance away, were likewise unfavorably affected during this period. The adjustment of the strike, therefore, was not merely welcomed by the strikers, their families, and other residents of the three villages affected, constituting several thousand persons all told, and the mill management, but by the business interests and the general public in the near-by sections of both South Carolina and Georgia. As indicative of the general feeling in this respect one of the Augusta (Ga.) newspapers in reporting the settlement of the dispute and the calling off of the strike stated that it would “ restore to Augusta’s trade territory a $50,000 monthly pay roll ” and “ bring great relief to scores of tradesmen in the valley,” referring to Horse Creek Valley. Plumbers, Dayton, Ohio.—Commissioner Hugh D. Friel was assigned on January 18, 1932, to dispute over a reduction in wages between the Master Plumbers Association and the Plumbers and Steamfitters Union Local 162, Dayton, Ohio, and arranged a joint conference between the scale committees of the two interests on January 21, which lasted five hours. The employers demanded a reduction in wages from $11 to $8 per day. They modified their demand to $8.80 per day and later offered $9 per day. The union proposed a reduction of $1.50 to $9.50 per day, leaving a difference between the two of 50 cents. When it became apparent that neither side would volunteer a compromise the commissioner proposed the compromise of $9.25. The employers immediately declined to consider this and issued an ultimatum of $9 per day to the plumbers’ committee to be taken back to their local for consideration. The local union, No. 162, plumbers and steam fitters, were to meet and consider the employers’ proposition on January 25. This they did and refused to accept the figure set by the employers. The commissioner again took up the matter with the employers’ committee on January 26, and later in the evening with the entire Master Plumb- ANNUAL REPORT SECRETARY OF LABOR 41 ers Association of Dayton. He discussed the matter with them from every angle for over an hour and then retired to another room so they might consider his compromise proposal and give him an answer. This they did about 10.30 p. m. and agreed to accept the proposal providing it was accepted by the Plumbers and Steamfitters Local No. 162 in time for them to go to work Friday, January 29. The commissioner then went to the local union headquarters, where the international representative and the plumbers’ committee were awaiting him at his request. He put the matter up to them as he received it from the employers and in return was informed that, while they were agreeable to recommending the compromise to the local union, they could not possibly do it by Friday morning; and that if the proposition was to be hampered by this restriction they would give it no consideration. The situation entailed the difficulty of getting the employers to extend the time to at least Saturday morning. Thursday morning the commissioner got in touch with the representatives of the master plumbers’ association, and after considerable argument was finally able to induce them to extend the time to Saturday morning. He then communicated this fact to the plumbers’ committee and their international representative, who immediately arranged for a meeting of the local Friday night, which was held in due course and the compromise proposal accepted and ratified and the case satisfactorily concluded. United States hospital, Springfield, Mo.—Early in 1932, Joseph A. Holpuch, of the Joseph A. Holpuch Co., general contractors, Chicago, Ill., was awarded two Government contracts. One was for building the United States hospital for defective delinquents at Springfield, Mo., and the other was the building of the United States veterans’ hospital at Leavenworth, Kans. Soon after receiving these contracts Mr. Holpuch asked the department to make a wage-rate survey both at Springfield and at Leavenworth in accordance with the prevailing rate law and advise him accordingly. Commissioner B. M. Marshman was assigned to the matter, and before leaving Chicago he conferred with Mr. Holpuch. At this time the possibility of friction on these projects, owing to the fact that Springfield was, in the main, an unorganized town, was pointed out to Mr. Holpuch if he should attempt to bring mechanics from Kansas City, which is the nearest source of supply for building mechanics. Mr. Holpuch stated he would be willing to meet the representatives of each building craft in Springfield and take these matters up with them. In the forepart of January Commissioner Marshman met with business representatives of the Kansas City Building Trades Council, in Leavenworth. He explained the object was to make a survey of wage rates to be applied to the above-mentioned projects, and asked their cooperation in procuring authentic data on wages being paid in that vicinity. In this survey Commissioner Marshman found that Kansas City mechanics had been employed on practically all of the major projects heretofore erected in Leavenworth. The commissioner proceeded with the survey in Springfield and found there a very complicated situation. During this survey the building-trades department of the American Federation of Labor informed the various international unions that they should send representatives to Springfield so that they might meet with the contractor in order to adjust any wage difference while the commissioner was on the ground making the survey. On completion of the survey, Mr. Marshman pointed out to Mr. Holpuch the inconsistency of the wage rates. As an illustration, the prevailing rate for electricians proved to be 67% cents per hour, whereas the ironworkers were being paid $1.37% per hour. This being true in several cases, the commissioner suggested to the contractor that he increase the rates of the lower-paid trades and, in turn, prevail upon the higher-paid trades to agree to some reasonable reduction. This was done because Mr. Holpuch had signified that he was going to employ all union mechanics, and that Springfield was an unorganized city for a majority of the crafts. Mr. Holpuch met individually with the representatives of the international unions and together they worked out a plan for rates that would apply to each craft. Following that, the contractor met with the entire group and told them he expected to use the mechanics belonging to their respective crafts, but said he would demand first-class mechanics. The rates on some crafts did not 146746—32------4 42 ANNUAL REPORT SECRETARY OF LABOR figure in the controversy, as they were found to be in accord with the rates already being paid in Springfield to those crafts. From Springfield Commissioner Marshman and Mr. Holpuch proceeded to Leavenworth, Kans. Upon arrival Commissioner Marshman met with J. L. Rogers, president of the Kansas City Building Trades Council, and the board of business representatives of the Kansas City Building Trades Council. After a lengthy discussion Mr. Holpuch was asked into the conference and informed that the building trades would agree to a reduction of $1 per day on all the crafts concerned with the exception of the laborers and hod carriers, who agreed to a cut of 92 cents per day. These wage concessions were based on the fact that Mr. Holpuch would employ all union men on the entire project. However, the prevailing rate for common labor was 40 cents per hour, and Mr. Holpuch contended that he could employ common laborers as mason tenders and concrete mixers if he so desired. But he did admit that this was semiskilled work and deserved a higher classification in wages. Respectfully submitted. Hugh L. Kerwin, Director of Conciliation. UNITED STATES EMPLOYMENT SERVICE John R. Alpine, Supervising Director To the Secretary of Labor: Following is a report of the activities of the United States Employment Service for the fiscal year ended June 30, 1932: With the beginning of the year under review, the reorganization and expansion of the Employment Service had been practically completed and the new set-up actively in operation. As an indication of the approval with which this expansion has since met, I would like to mention the fact that the American Federation of Labor unanimously adopted a resolution at its annual convention at Vancouver, B. C., approving this service. The conventions of the American Legion, Veterans of Foreign Wars, and the Disabled American Veterans of the World War likewise indorsed the Employment Service. These organizations are thoroughly familiar with the efforts this service has made to place the idle in profitable employment, as well as of the work we have accomplished by closely cooperating with State, municipal, civic, and patriotic organizations in their endeavors for the unemployed throughout the country. In reviewing the results attained by this service during the past fiscal period, cognizance should be given to the fact that industrial and agricultural trends, so far as employment is concerned, showed little fluctuation and remained generally far below what is recognized as normal. This has meant that all officers and employees have had to work unceasingly in an endeavor to uncover employment opportunities. However, it is with some feeling of satisfaction that 1 am able to report that the United States Employment Service and its cooperative offices found jobs for a total of 2,174,174 men and women, and that this figure represents an increase in placements of over 227,000 compared with the previous year. We started the fiscal year with an appropriation of $818,780. In January, an additional appropriation of $120,000 was made available for the establishment of new offices in certain sections of the country where the need for our service had been definitely shown. Thus, with a total appropriation of $938,780, we functioned during the year with 22 farm-labor placement offices, 30 specialized veterans’ placement offices, and 101 general placement offices. In addition to these permanent offices, over 400 special agents were located in strategic points throughout the United States. Farm labor division. This branch of the service has grown to be recognized as of vast importance to those who depend largely upon farm work for their employment. The main office is located at Kansas City, Mo., in order to keep in close touch with the larger agricultural areas of the country. While the chief purpose is to recruit, distribute, and direct 43 44 ANNUAL REPORT SECRETARY OF LABOR seasonal farm workers, this division also places thousands of farm hands in permanent employment. In order that the various functions of the farm labor division may be wisely carried out, field surveys are constantly being made regarding crop conditions; when and where the sowing, cultivating, and harvesting will start; and the approximate number of men who will be needed to adequately meet the ascertained labor requirements. This division opeiated with 22 permanent offices, with 26 special agents employed for varying periods of from three to six months, whose work was chiefly in connection with the surveys made in the field and the movement of labor to the points where needed. This division functioned throughput more than one-half the area of the United States, its operations being directed chiefly to Texas, Mississippi, Louisiana, Arkansas, New Mexico, Arizona, California, Colorado, Kansas, Missouri, Nebraska, South Dakota, Minnesota, North Dakota, Washington, Oregon, and Idaho. The caring for the cotton, small grain, vegetable, fruit, and berry crops led in the demand for employment of seasonal farm laborers; however, the corn, beet, rice, and potato crops employed thousands of men during the harvesting periods. The total number of farm laborers directed to seasonal employment by the farm labor division for this fiscal year amounted to 886,605 men and women. Veterans’ division. In order to further the movement on the part of the Federal Government to assist war veterans in every feasible way, the veterans* division of the United States Employment Service was expanded and seven new veterans’ employment offices were established during the course of the year, making a total of 30 of these specialized offices in operation. These offices have been located in carefully selected sections of the country where the best employment interests of the veteran can be served. The aid advanced by the managers of these employment offices does not stop with the veteran, but extends to the assisting of the widows of deceased veterans and the wives of disabled veterans in securing the sort of work they are best qualified for. The veterans’ division worked in close harmony during the fall and winter months with the American Legion in their drive for 1,000,000 jobs. Approximately 50 special agents were appointed by the Department of Labor in various sections of the country to assist in this work, while those in charge of the drive were provided with the use of the penalty envelope, letterheads, and forms. The cooperative arrangement entered into with the Disabled American Veterans of the World War in their campaign to place disabled veterans in jobs resulted in most satisfactory accomplishments. The year’s work of this division has been marked by a splendid atmosphere, permeated with a desire on the part of all in authority to do their utmost for the unemployed veteran. In addition to the activities of the strictly veterans’ employment offices, the 101 industrial placement offices of this service lent their aid to the ex-service man seeking employment. Information division. This division is charged with the maintaining of current data concerning the industrial-employment situation existing in each State of the country. The information gathered is augmented by ANNUAL REPORT SECRETARY OF LABOR 45 the receipt of weekly and monthly reports submitted to the administrative office by the State directors. These reports are based on information collected by the State directors through personal observation and through contacts that have been established in the cities of each State, who through their daily touch with the industrial and economic trends of their communities are best equipped to render authoritative statements. Through these reporting contacts and personal visits the State directors have been able to keep in close touch with the employment trends in their respective States. The information gathered by the director is checked as to its authenticity before submitting his reports to the information division. Here the manuscripts are carefully collated with other reports and then prepared for publication in the Industrial Employment Information Bulletin. The bulletin now carries industrial-employment comment, alphabetically arranged, on the larger cities of each State of the country. The reliability of this publication is widely recognized and its value to the public has been shown by a growing demand for the bulletin received from the leading industrialists, railroads, banking institutions, libraries, labor organizations, economists, business men, and the worker in the factory and field. Responses are made to thousands of requests from all parts of the country for employment information during the year. Another activity is the maintenance of a revolving library of weekly and monthly publications, covering a wide range of industrial subjects, which is of considerable use in prosecuting the work of the information division. Respectfully submitted. John R. Alpine, Supervising Director. OFFICE OF THE SOLICITOR Theodore G. Risley, Solicitor Albert E. Reitzel, Assistant Solicitor To the Secretary of Labor: There is submitted below a detailed summary of work performed by this office for the fiscal year ended June 30, 1932. Legal opinions rendered, formal and informal (including drafts of departmental letters to the Attorney General exhaustively discussing . questions of law in pending court cases involving the department and its bureaus)______________________________________________________ 325* Innumerable oral opinions were rendered during the year to the Secretary and his assistants and to heads of bureaus on questions of law and administration of which no record is kept. Opinions approving or disapproving bills passed by Congress and sub- mitted to the President for his signature__________________________ 3. Proposed legislation drafted, redrafted, or analyzed_________________ 11 Briefs for cases in Supreme Court and Court of Appeals for the District of Columbia____________________________________________________________ 40 Pleadings prepared for or in collaboration with United States attorney in cases brought against the Secretary of Labor or his assistants_____ 37 Executive orders drafted for the President___________________________ 1 Bond forms drafted___________________________________________________ 7 Formal review of relief bills for Senate and House committees on claims and recommendation for or against passage------------------------ 7 Decisions at request of Attorney General regarding dismissal of criminal indictments by United States attorneys--------------------------------- 67 Formal recommendations to Attorney General concerning suits on departmental bonds by United States attorneys---------------------------- 37 Court opinions concerning immigration and naturalization laws indexed and filed______________________________________________________________ 80 Official bonds examined, approved, or disapproved-------------------- 5 Bonds (alien immigrant) examined, approved, or disapproved----------- 4,732. Contracts and leases examined, approved, or disapproved-------------- 386 Bonds on contracts examined, approved, or disapproved---------------- 16 Power-of-attorney cards, authorizing agents to execute official, indem- nity, and contract bonds for surety companies, examined and filed-- 2, 548 Revocations of authority of agents to execute official, indemnity, and contract bonds for surety companies, examined and records corrected- 3, 236. Miscellaneous matters submitted for advice or suggestion of the solicitor, or for the formulation of departmental action, not included in the foregoing------------------------------------------------------ 490 Total_________________________________________________________12,028 The above list covers formal office work only. In addition, the solicitor’s staff is called upon in the numerous court cases in which the Secretary is made defendant, with his assistants or the Commissioner General of Immigration, to defend personally or to assist the United States attorney in defending the Government. Members of the solicitor’s office also constantly assist the heads of the Bureau of Immigration in preparing new regulations or amending existing rules concerning the administration of the immigration laws made necessary by new legislation, change in circumstances, or court decisions. Respectfully submitted. Theodore G. Risley, Solicitor. 46 OFFICE OF THE CHIEF CLERK Samuel J. Gompers, Chief Clerk To the Secretary of Labor: During the past year the branches of the Secretary’s Office were hard put to perform their respective functions, mainly due to the increase of the work of the Bureau of Labor Statistics and the great expansion in the United States Employment Service, in which service a large number of new offices were installed. In fact all bureaus of the department showed substantial increases in activities, which were reflected in the demands made upon the Division of Publications and Supplies, Appointment Division, Disbursing Office, and the Library. It was necessary to secure temporary details of employees from the bureaus of the department in the endeavor to keep the work current. With the close of the fiscal year these detailed employees have been withdrawn, and it is impossible to state at this time just how the divisions of the Secretary’s Office will be able to render the required services. Department quarters. The department has been seriously handicapped in the past by lack of space and the scattering of its subdivisions throughout the city, making efficient operation very difficult. In the latter part of the fiscal year, additional office space was assigned to the Department of Labor as follows: The Civil Service Building, two small buildings, 1723 and 1725 F Street, and part of the Winder Building. In addition to providing sufficient space for the activities of the department, all of these buildings are within one block of headquarters, which greatly aids efficient operation besides reducing cost of messenger and telephone service, and for the first time since before the World War the department now has sufficient space to function advantageously. Thanks are extended to the Public Buildings Commission for its cooperation in this matter. The activities of the department are housed as follows: In the Department of Labor Building, located at 1712 G Street NW., are the administrative offices of the department, the Bureau of Labor Statistics, Bureau of Immigration, and Bureau of Naturalization. This building contains 87,292 square feet of floor space, with a net available office space of 63,994 square feet. Several activities of the department occupy space in other buildings, as follows: The Children’s Bureau occupies 18,660 square feet and the Bureau of Immigration 999 square feet, a total of 19,659 square feet, in the Winder Building, Seventeenth and F Streets NW. The Women’s Bureau occupies 9,983 square feet and the Bureau of Naturalization 1,123 square feet, a total of 11,106 square feet, in premises 1723 F Street NW. The Bureau of Naturalization (field office) occupies 1,080 square feet in the Walker Building, 462 Indiana Avenue NW. 47 48 ANNUAL REPORT SECRETARY OF LABOR The Employment Service occupies 5,733 square feet, the Bureau of Immigration 11,554 square feet, the Bureau of Labor Statistics 9,285 square feet, the Bureau of Naturalization 9,961 square feet, and the United States Housing Corporation 2,003 square feet, a total net floor space in Department of Labor Annex No. 1, 1724 G Street NW., of 38,541 square feet. The United States Housing Corporation also occupies storage spage aggregating 1,500 square feet in the old Southern Railway Building, Thirteenth Street and Pennsylvania Avenue NW. The Office of the Secretary occupies 2,710 square feet and the Bureau of Naturalization 4,734 square feet, a total net floor space of 7,444 square feet, in the building in the rear of 1712 F Street. The Veterans’ Employment Office of the United States Employment Service occupies 5,059 square feet in premises 1725 F Street NW. The total office space now occupied by the department in Washington is approximately 148,383 square feet. Reports of the activities of the major divisions of this office f ollow: Disbursing office. Functions.—The disbursing clerk prepares requisitions for public funds from appropriations for the department. He also pays its obligations and does the general accounting of the department. Naturalization fees and moneys received by the Secretary of Labor from aliens in lieu of bonds are accounted for by him. Under the operation of the immigration permit, the immigration registration, and the certificate-of-arrival fee systems during the fiscal year ended June 30, 1932, approximately 351,808 remittances, aggregating $1,795,043, were received, as against 428,164 remittances, aggregating $2,127,827, handled during the preceding fiscal year. Appropriations.—For the fiscal year ended June 30, 1932, the appropriations by Congress to the department and its services were as follows: Salaries, Office of the Secretary______________________________ $216, 060 Salaries and expenses, commissioners of conciliation----------- 205, 000 Contingent expenses, Department of Labor_______________________ 86, 800 Rent, Department of Labor-------------------------------------- 68, 000 Printing and binding___________________________________________ 296, 500 Salaries and expenses, Bureau of Labor Statistics______________ 580, 480 Salaries and expenses, Bureau of Immigration------------------- 110, 484,160 Immigration stations___________________________________________ 400, 000 Salaries and expenses, Bureau of Naturalization________________ 1,149,020 Salaries and expenses, Children’s Bureau_______________________ 395, 500 Salaries and expenses, Women’s Bureau-------------------------- 179, 900 Employment Service, Department of Labor________________________ 938, 780 Salaries and expenses, U. S. Housing Corporation--------------- 15, 000 15, 015, 200 Under the provisions of the act approved May 22, 1920 (41 Stat. L. 614), the sum of $332,098.29 was paid from the appropriations for the Department of Labor and placed to the credit of the civil-service retirement and disability fund in the Treasury Department. Expenditures.—The expenditures, arranged according to items of appropriation, were as follows: 1 $25,000 deducted and transferred to contingent expenses. ANNUAL REPORT SECRETARY OF LABOR 49 Office of the Secretary: Salaries, 1931____________________________________________ $17, 742. 91 Salaries, 1932____________________________________________ 203, 485.12 Contingent expenses, 1930_________________________________ 4. 45 Contingent expenses, 1931_________________________________ 17,440. 0G Contingent expenses, 1932--------------------------------- 74, 316. 50 Printing and binding, 1931____________________________________ 53, 343. 78 Printing and binding, 1932----------------------------------- 215, 039. 50 Salaries and expenses, commissioners of conciliation, 1931____ 18, 724. 87 Salaries and expenses, commissioners of conciliation, 1932___ 176, 571. 33 776, 668. 52 Bureau of Labor Statistics: Salaries, 1930-31_____________________________________________ 43. 79 Salaries, 1931________________________________________________ 28, 836. 50 Salaries and expenses, 1932___________________________________ 509, 058. 60 Miscellaneous expenses, 1930__________________________________ . 57 Miscellaneous expenses, 1931---------------------------------- 16,954. 30 554, 893. 76 Bureau of Immigration: Salaries, 1931___________________________________________ 10, 214. 97 Salaries and expenses, 1931-32___________________________ 291, 419. 56 Salaries and expenses, 1932______________________________ 9, 502, 621. 52 Expenses regulating immigration, 1930____________________ 961. 35' Expenses regulating immigration, 1931_______________________ 553, 425. 84 Immigration stations, 1930-31--------------------------------- 1, 689. 04 Immigration stations, 1931____________________________________ 6, 742. 05 Immigration stations, 1932---------------------------------- 107, 024. 74 10, 474, 099. 07 Bureau of Naturalization: Salaries, 1931______________________________________________ 9,186. 31 Salaries and expenses, 1932_________________________________ 1, 002, 755. 98 Miscellaneous expenses, 1930________________________________ 21. 30 Miscellaneous expenses, 1931________________________________ 56, 058. 28 1, 068, 021. 87 Children’s Bureau: Salaries, 1931________________________________________________ 9,331.16 General expenses, 1931________________________________________ 5, 307. 84 Investigation of child welfare, 1931__________________________ 17, 828. 00 Salaries and expenses, 1932___________________________________ 354,165. 95 386, 632.95 Women’s Bureau: Salaries and expenses, 1930_______________________________ 18. 64 Salaries and expenses, 1931_______________________________ 18, 846. 23 Salaries and expenses, 1932_______________________________ 142, 5'40. 69 161, 405. 56 Employment Service: Employment Service, 1930_________________________ 1. 00 Employment Service, 1931_________________________ 2,125. 50 Employment Service, 1931-32______________________ 386, 009. 30 Employment Service, 1932_________________________ 472, 553. 73 860, 689. 53 50 ANNUAL REPORT SECRETARY OF LABOR U. S. Housing Corporation: Contingent expenses, 1931----------------------------------- $79. 41 Salaries and expenses, 1932--------------------------------- 14, 715. 96 14, 795. 37 Grand total-------------------------------------------- 14, 297, 206. 63 The following disbursements were made from the special deposit account, representing refunds of amounts erroneously collected and payments for overtime in the Immigration Service: Immigration fees______________________________________________$54, 488. 21 Immigration permits___________________________________________ 1$, 575. 01 Naturalization fees------------------------------------------- 73,131. 82 Immigration overtime service---------------------------------- 45, 773. 78 186,968. 82 In addition to the disbursements by the disbursing clerk, the following expenditures on behalf of the department were specifically made: By special disbursing agents for the Immigration Service (esti- mated) _____________________________________________________$168, 319. 09 Claims settled by the office of the Comptroller General------- 34, 469. 63 202, 788. 72 Miscellaneous receipts.—The following receipts from miscellaneous sources have been recorded during the year: Bureau of Immigration: Head tax_____________________________________________________2 $929, 800. 00 Fines________________________________________________________ 2 88,000. 00 Collections for permits to reenter the United States--------- 307,230.00 Immigration fees (registry)__________________________________ 276,660.00 Forfeiture of bonds__________________________________________ 136,108. 55 Coin-box collections______________________________________________ 438. 46 Sales of exclusive privileges_____________________________________ 579. 03 Sales of Government property______________________________________ 955. 46 Expenses of deporting aliens—reimbursed---------------------- 1, 396. 69 Miscellaneous collections----------------------------------------- 224. 22 1, 741, 392. 41 Bureau of Naturalization: Naturalization fees— From clerks of courts_______________________________ 1, 828, 535. 75 Direct from applicants______________________________ 1, 210, 953. 41 3, 039, 489.16 Total receipts------------------------------------ 4, 780, 881. 57 Appointment division. Officials and employees.—There was a net increase of 604 employees in the department during the year ended June 30, 1932. The force of the Bureau of Labor Statistics was augmented by the addition of 40, all temporary employees, the Children’s Bureau by 35, of which 10 were temporary; the Immigration Bureau and Service by 202, of which 61 were temporary; the Women’s Bureau by 5; and the Employment Service by 339, of which 87 were temporary. The Office of the Secretary shows a reduction of 2, the Conciliation Serv 2 Estimated. ANNUAL REPORT SECRETARY OF LABOR 51 ice of 2 (at the nominal salary of $1 per annum), and the Naturalization Service of 13. The United States Housing Corporation remained at last year’s figure of 6 employees. On June 30, 1932, there were 202 temporary employees on the rolls of the department. By arrangement with the Treasury Department, 113 customs officers were designated to act as immigrant inspectors, and by arrangement with the Department of Justice 22 officers of that department were designated to act as naturalization examiners without compensation, all included in the foregoing figures for the year 1932. Of the total number of employees in the department (6,001), 894 are employed in the District of Columbia and 5,107 in the field service. Number of officials and employees of the Department of Labor on July 1, 1932, as compared with July 1, 1931 Bureaus Office of the Secretary_________________________ Conciliation Service____________________________ Bureau of Labor Statistics______________________ Children’s Bureau_______________________________ Immigration_____________________________________ Naturalization__________________________________ U.S. Employment Service_________________________ Women’s Bureau__________________________________ U. S. Housing Corporation_______________________ Total_____________________________________ July 1, 1932 July 1, 1931 Increase (+) or decrease (-) In District of Columbia Field Total 1 92 92 2 94 —2 4 3 33 37 4 39 — 2 227 3 13 240 6 200 +40 152 7 142 294 8 259 +35 202 9 3, 650 3,852 i« 3, 650 +202 123 n 327 450 12 463 -13 31 13 940 971 >4 632 +339 58 1 59 54 +5 5 1 6 6 894 5,107 6,001 5, 397 +604 1 Includes 2 at $1 per annum. 2 Includes 1 at $1 per annum. 3 Includes 2 at $1 per annum. 4 Includes 2 at $1 per annum. 5 Includes all at $1 per annum. 6 Includes 13 at $1 per annum. 7 Includes 119 at $1 per annum. 8 Includes 105 at $1 per annum. 9 Includes 7 at $1 per annum, and 113 without compensation. 10 Includes 8 at $1 per annum, and 80 without compensation. 11 Includes 22 without compensation. 12 Includes 16 without compensation. 13 Includes 465 at $1 per annum. h Includes 322 at $1 per annum. Transfers.—There were 44 persons transferred from other departments to the Department of Labor and 40 from this department to -other departments. 52 ANNUAL REPORT SECRETARY OF LABOR Transfers to and from the Department of Labor during the fiscal year 1932 From— Bureau or office Office of the Secretary...______________________________ Bureau of Labor Statistics______________________________ Children’s Bureau_______________________________________ Immigration_____________________________________ 3 1 Naturalization______________________________________ 1 U. S. Employment Service________________________________ 1 1 ______ 1 ___ 3 8 12 _______ 1 1 __________ 1 .... 12132222 .... 1 1 .... 1 _____ 1 ______________ 3- 15 2 19 4 1 Total____________________________________ 3 2 8 12 2622331 Bureau or office Office of the Secretary_________________________ Bureau of Labor Statistics______________________ Children’s Bureau_______________________________ Immigration_____________________________________ Naturalization__________________________________ Women’s Bureau__________________________________ Total_____________________________________ To— 48 reinstatements. The number of reinstatements in the department during the year was 48. There were 40 dismissals and discontinuances on account of unsatisfactory service. Retirement.—The following table shows the number of employees retired and those beyond the age of retirement who have been continued in the service under the provisions of the civil service retirement act; also the amount of deductions refunded to employees leaving the service each year since 1921. There were 37 employees retired during the fiscal year and only 4 given extensions. There were 132 applications for refund of deductions, and the total amount of refunds was $28,867.35. The total number of applications for refund for the period 1921 to 1932 was 3,138, with refunds of $318,380.94. ANNUAL REPORT SECRETARY OF LABOR 53 Retirements, extensions, and refunds under the retirement act of May 22, 1920, for the period August 1, 1920, to June SO, 1932 Action 1921 5 1922 1923 1924 1925 1926 1927 Retirements Extensions Refunds Total Amounts refunded 2 2 16 13 5 222 17 12 242 12 10 238 13 10 342 11 10 325 26 12 401 215 $2, 041.21 240 $8,616.65 271 $13,402. 78 260 $16,604. 59 365 $21,462. 36 346 $26,572.06 439 $40,027. 70 Action 1928 1929 1930 1931 1932 Total Retirements Extensions Refunds Total Amounts refunded 19 12 322 8 18 302 20 11 293 25 20 150 37 4 132 227 144 3,138 353 $43,589. 72 328 $43, 554. 21 324 $44,345. 87 195 $29, 296. 44 273 $28,867.35 3, 509 $318,380.94 During the month of June, 1932, in accordance with the provisions of Public No. 212, all extensions of officers or employees in the department who were subject to the provisions of the retirement act were canceled. Division of Publications and Supplies. The activities of the division during the fiscal year ended June 30, 1932, have been exceptionally heavy, demands on the division for service to the various bureaus, offices, and services having increased materially over preceding years. A report of the various activities, which shows an increase in the work of every section of the division of approximately 20 per cent, follows: Printing and Binding.—The 1932 appropriation, amounting to $296,500, was apportioned as follows: Office of the Secretary________________________________$12,000 Reserve------------------------------------------------- 3, 000 Bureau of Labor Statistics____________________________ 120, 000 Bureau of Immigration___________________________________ 7, 000 Immigration Service__________________________________ 22,000 Binding manifests_______________________________________ 5, 500 Children’s Bureau_____________________________________ 70,’ 000 Bureau of Naturalization_______________________________ 10, 000 Naturalization Service and directors___________________ 16, 000 Women’s Bureau_______________________________________ 16, 500 Employment Service__________________________________ 14,500 Of this total, bills for completed work had been submitted on June 30, 1932, for $220,601.33, leaving a balance of $75,898.67 to provide for uncompleted requisitions. Printing for the Housing Corporation amounted to approximately $111.25. Fifteen hundred and forty-five requisitions were sent to the Public Printer, an increase of 104 as compared with 1931. Printed stationery.—Requests for printed stationery during the year reached a total of 507, as against 431 for 1931, of which 58 were for bureaus and offices within the department and 449 for services outside the District of Columbia. Envelopes.—Orders to the number of 522 were placed with the contractors, calling for 11,286,469 envelopes, at an approximate cost 54 ANNUAL REPORT SECRETARY OF LABOR of $12,660.80, as compared with 449 orders for 9,000,939 envelopes at a cost of $11,201.59 for 1931. Editorial section.—The work of this section during the fiscal year included the forwarding of 24,882 folios of copy to the Government Printing Office, as against 20,388 last year. Galley proofs received reached the number of 2,916 and those returned numbered 2,856, as against 2,715 received last year and 2,631 returned; page proofs received reached 15,471 while those returned numbered 14,253, as against 10,742 received and 9,986 returned last year; and the number of forms received and returned was 175. Duplicating work.—Requisitions received during the year aggregated 1,612, as against 1,509 last year; number of pages 3,725, as against 2,751; stencils, 3,679, as against 2,693; with an aggregate number of sheets printed of 2,487,935, as against 2,323,392 last year. Publications distributed aggregated 2,597,068, of which 523,798 were sent out on mailing lists of the Superintendent of Documents, while 2,073,270 were sent out on franks. The total number of franks handled was 382,534, as against 287,603 the previous year. Books and btanks.—Requisitions for books and blanks to the number of 5,825 were filled, of which 3,249 were for clerks of courts, 212. for naturalization examiners, 1,851 for Immigration, Employment,, and Customs Services, and 513 for the bureaus in Washington. Receipts and skiprnents.—Shipments to the total number of 623,-732, with an aggregate of 307,066 pounds, were made. They were divided among four classes: Registered mail, 3,599 packages, weighing 20,107 pounds; regular mail, 8,498 packages, weighing 31,710s pounds; regular mail in bags, 3,161 bags, weighing 224,822 pounds; and letters, invoices, etc., 608,474, weighing 30,427 pounds. Service was rendered to the other divisions in the forwarding of material, as follows: 121 boxes of freight and express, weighing 4,068 pounds; 17,921 packages of regular mail, weighing 39,912 pounds; 944,251 letters, weighing 47,208 pounds, a total of 962,293 pieces, weighing 91,188 pounds. Supplies forwarded via freight and express covered 4,719 consignments, weighing 459,942 pounds, and 253 parcel-post packages, weighing 3,720 pounds, a total of 4,972 shipments, weighing 463,662 pounds. The total shipment of blanks and supplies,, pieces, parcels, packages, boxes, and bags aggregated 1,590,997, weighing 861,916 pounds. There were distributed 10,926 blank books and 21,552,850 blank forms. Summarizing the activities, there were received 29,560 packages of blank forms and blank books, weighing 234,237 pounds, and 8,144 packages of supplies, weighing 96,155 pounds, making the total number of packages handled 1,628,701, weighing 1,192,308 pounds. Bills of lading.—The increase in the number of bills of lading issued amounted to almost 15 per cent, being 1,990 as against 1,735-in 1931. Supplies.—There were received 4,039 requisitions for supplies, as against 3,471 the previous year, on which were written 5.264 orders, as against 5,053, covering 7,969 items, as compared with 7,295 last year, involving an expenditure of $180,493.40 as compared with $207,840.37 in 1931. ANNUAL REPORT SECRETARY OF LABOR 55 C ontingent allotment.—The total allotment for contingent expenses, including the $25,000 for the purchase of material for distribution to the immigration field service, was $86,800. This was apportioned as follows: Assistant secretary________________________________________ $250 Chief clerk______________________________________________11, 250 Disbursing clerk____________________________________________ 500 Publications and supplies________________________________ 1,000 Secretary------------------------------------------------ 1, 000 Solicitor___________________________________________________ 300 Library-------------------------------------------------- 5, 000 Reserve-------------------------------------------------- 3, 500 Labor Statistics_________________________________________ 9, 500 Immigration______________________________________________12, 000 Children’s Bureau________________________________________ 6, 000 Women’s Bureau___________________________________________ 4, 000 Naturalization___________________________________________ 7, 500 Immigration Service_____________________________________ 25, 000 The reserve of $3,500 was maintained, there being left apparently in the contingent fund at the close of business on June 30 approxi-imately $5,000. Department library. As in previous years, the library of the department has continued its task of assembling from many countries of the world the printed and mimeographed material needed for the research activities of the department. Besides building up the collection of source material basic to the general field of the department, it is part of the library’s function to anticipate the needs of new investigations, collect, classify, and index the material required for these, and make the information gathered available in reference work. The steady contribution which the library makes each year to the printed reports of the bureaus can not, of course, be presented statistically, nor can the work done in aiding readers who use the library in increasing numbers. The catalogued accessions of the year numbered 9,422 books and pamphlets, of which 1,267 represented bound volumes of periodicals. The public catalogue was increased by 17,817 cards. The books and pamphlets on the shelves of the library now total approximately 150,000 volumes, a carefully selected and extremely valuable collection of social and economic literature. The separate numbers of periodicals received numbered 48,467. These are checked on the records and then circulated to individual investigators in the different bureaus. Eighty-seven new periodicals were added to the list of journals currently received, representing a net gain of 39 after deducting the journals which ceased publication or were absorbed by others during the year. The demand for the printed bibliographies of the library has continued during the past year, particularly, for that on “ National economic councils,” contributed to the May, 1931, Monthly Labor Review. This represented pioneer work in this subject, and the library has received many calls for a supplementary list covering the discussions of economic planning during the past year. It is hoped this may be completed during the summer. A bibliography on 56 ANNUAL REPORT SECRETARY OF LABOR “ Public old-age pensions, 1929-1931,” which brought up to date an earlier list, was contributed to the Monthly Labor Review in March, 1932.. A supplement to the list on “ Injunctions in labor disputes ” was issued in mimeographed form in December, and both that and the main bibliography were much in demand while the subject of injunctions was being discussed in Congress. Respectfully submitted. Samuel J. Gompers, Chief Clerk. BUREAU OF LABOR STATISTICS Charles E. Baldwin, Acting Commissioner To the Secretary of Labor: The following is a summary of the activities of the Bureau of Labor Statistics for the year ended June 30, 1932: The subjects of employment and unemployment continued to occupy the chief attention of the bureau during the year under review. The monthly reports on volume of employment were very considerably improved by the addition of new industrial groups and many new establishments, particular effort having been made to expand the reports on building construction. Also, the bureau is endeavoring to secure the employment data for number of man-hours as well as for the number of employees on the pay roll. . Another phase of the employment situation which has received particular attention by the bureau is that of so-called “ technological unemployment.” The rapid development, especially during the past few years, in machinery and in the technique of management has resulted in an enormous increase in the average output per employee in practically all lines of industry, fewer workers being needed to produce the same output as formerly. Because of this, and entirely aside from the matter of the present depression, there would necessarily result a serious displacement of labor, unless increasing demand for the commodities affected or the development of new industries should be sufficient to absorb the labor power displaced by the increasing use of labor-saving devices and methods. It is even possible that the present depression has stimulated still further the use of such machinery and methods. In any case, the problem raised is clearly one of very great importance, and the bureau has sought to secure accurate information on the subject by a series of studies of particular industries. Some of these studies have been completed; others are now in progress. Volume of employment. The bureau’s monthly employment survey was steadily expanded during the 12-month period ended June 30, 1932, the June report covering 64,014 establishments, with 4,246,037 employees, in the 16 industrial groups surveyed. This represents an increase of 26 per cent in number of reporting establishments over those in June, 1931, but a decrease of 10 per cent in the number of employees covered in the June, 1931, report, due to the decrease in employment over the year interval. A number of improvements in the collection and publication of these employment data were effected during the year. The survey of manufacturing industries was enlarged to include a total of 89 industries, and the general indexes of employment and earnings were adjusted to include the added industries. 146746—32----5 57 58 ANNUAL REPORT SECRETARY OF LABOR Two inquiries were added during the year to the bureau’s monthly questionnaire. Data concerning the wage-rate changes were requested from establishments in the nonmanufacturing groups of industries, except building construction, and this information is now published regularly each month in the Monthly Labor Review together with the tabulation of wage-rate changes in manufacturing industries. In January, 1932, the bureau began the collection of data concerning man-hour operation from all reporting establishments in each of the industrial groups surveyed, with the exception of the building-construction group. The man-hour data reported have been compiled each month, but up to the present time have not been published, as a large number of establishments do not keep records of man-hours worked, and the data received have not been considered, sufficiently representative for publication. It is hoped that additional reports concerning man-hours can be secured and that this very important information can be published regularly in the bureau’s monthly compilation. Beginning in December, 1931, the monthly reports for each of the several industrial groups, excluding the building and the canning groups, were presented in the form of State totals. The recapitulations by geographic divisions were discontinued in February, 1932, as this information can be secured from the State totals. A tabulation showing the trend of employment and earnings in 13 cities of over 500,000 population has also been included in the bureau’s monthly reports. During the past year, the bureau made an experimental survey of the monthly fluctuations in employment and earnings of State, city, and county employees. Representatives of the bureau visited a number of localities and from official records secured detailed reports covering the employees on the pay rolls of the States, cities, and counties visited. The collection of these data was continued by mail, but as many State, city, and county offices were operating with greatly reduced personnel, due to general economy programs, the number of reports received had declined to such an extent by June, 1932, that the bureau discontinued the collection of this information. The survey of employment in the building-construction industry has been greatly enlarged during the past year, the June, 1932, survey covering 50 cities and their suburbs. In addition, information collected by seven cooperating State bureaus has been incorporated in the bureau’s building-construction report each month. Every effort is made to secure promptness in the compilation and publication of the monthly statistics of employment. Due to the length of time required to secure the necessary reports, final tabulation can not bo begun before the 9th of the month succeeding that for which pay-rob data were secured. A mimeographed statement summarizing the most pertinent facts shown by the compilation is issued about the 16th of the month, and a printed pamphlet containing more detailed information is published about 10 days later. The bureau began the monthly publication of information on employment in the executive civil service of the United States Government in January, 1932, summarizing data collected, compiled, and furnished by the United States Civil Service Commission. ANNUAL REPORT SECRETARY OF LABOR 59 Unemployment in foreign countries. By arrangement between the Department of State and the Department of Labor, the Bureau of Labor Statistics, for several months, has been receiving by cable from the representatives of the State Department monthly figures of unemployment in the principal European countries immediately upon the release of such figures. By this means the data regarding unemployment for a given month is available for the European countries in the early part of the succeeding month, and are issued by the bureau on or about the same date as the unemployment figures for the United States for the same month are issued. Unemployment-benefit and unemployment-insurance plans. > ' ' A special study of all the known plans for the payment of unemployment benefits or for guaranteed employment in this country and of unemployment-insurance systems in foreign countries was made in the early part of 1931, at the request of the Senate committee on the investigation of unemployment-insurance systems. The results of the study were published in bulletin form (No. 544) during the past fiscal year. At the time of the study there was no legislation in this country in this field, the Wisconsin unemployment-insurance law having been passed subsequently, and the survey covered, therefore, the various plans initiated by employers or trade-unions or those effective through joint agreement between employers and union organizations. The information was obtained by bureau agents directly from the companies and unions concerned, and it is believed that all plans of importance were covered. The reports for foreign countries were prepared by the consular representatives of the United States Department of State in the 18 countries in which public unemployment-insurance systems were in effect. LABOR PRODUCTIVITY AND DISPLACEMENT Telephone and telegraph industries. The bureau has undertaken a study of technological changes and labor displacement in the communications industries. The study has covered so far the principal phases of the telephone and telegraph industries. Early results of the investigation appeared in a series of articles in the Labor Review beginning in February, 1932. Further investigations are being conducted, and it is hoped that the bureau will be able to compare the effects of technological changes in all branches of the communications industries for the purpose of ascertaining the general trend throughout these industries, which constitute, functionally considered, a major division of economic life. Amusement industry. In 1931 the bureau made a general survey of displacement of labor m the amusement industry resulting from the introduction of soundmotion pictures. This general survey was followed by an intensive study of the effects of technological changes upon employment in the motion-picture theaters of Washington, D. C. The results of this survey were published in the November, 1931, issue of the Monthly Labor Review. 60 ANNUAL REPORT SECRETARY OF LABOR Street and road building. An article in the December, 1931, Labor Review, based on a survey by the bureau, shows the results of increased labor productivity in recent years, through the introduction and use of machinery, in the constructing and rebuilding of streets and roads and in ditch digging. Cargo handling. The results of the bureau’s survey of labor productivity in cargo handling and of longshore-labor conditions in the principal ports of the United States, the field work of which was completed in 1930, were recently published in bulletin form (No. 550). Sheet department of iron and steel industry. The study of labor productivity in the sheet department of the iron and steel industry was completed by the bureau during the past year and the results made public in the January, 1932, issue of the Monthly Labor Review. Cigar industry. A survey of the technological changes in the cigar industry, and especially of the labor-displacing effect of the long-filler cigar machine, was made by the bureau during the past year, and the results published in the Monthly Labor Review for December, 1931. Grade crossings. The serious effects of the introduction of automatic grade-crossing devices upon the employment of crossing watchmen, flagmen, and gatemen were covered in an article in the Labor Review for April, 1932. Automobile-tire industry. The field work involved in the bureau’s survey of labor productivity in the making of automobile tires has been completed and the figures are in the process of tabulation. Data were obtained for seven large representative plants with a total enrollment in January, 1931, of about 32,000 workers. In some of these plants the figures of output and the total man-hours used go as far back as 1919, but the survey as a whole will be limited necessarily to the period from 1922 to 1931, inclusive, a decade of the most rapid development in the tire industry as regards both output and the methods and costs of production. Motor-vehicle industry. A study by the bureau of the effects of technological changes upon occupations in the motor-vehicle industry, the results of which were published in the Labor Review, February, 1932, points out employment trends within occupations and opens a field of research which may be of great value to industry, labor, and to vocational-training organizations. Agriculture. The effects upon employment of the installation of improved machines and methods in agricultural production were developed in considerable detail in a study made by the bureau, being published in the Labor Review for October, 1931. ANNUAL REPORT SECRETARY OF LABOR 61 Committee on technological unemployment. At the request of the committee on technological unemployment, appointed by the Secretary of Labor, five members of the bureau’s staff were detailed to assist the committee with its research. These workers devoted from two to three and a half months each to the work of the committee—a total of approximately twelve 1-man months. The expenses of the committee were borne by the Bureau of Labor Statistics out of its regular appropriations. Wages and hours of labor. During the year under review the Bureau of Labor Statistics completed surveys of wages and hours of labor in 17 industries and also made its regular annual survey of union scales of wages and hours of labor. Industrial wage studies. The bureau has carried on its policy of making wage surveys of the principal industries at as frequent intervals as is permitted by its resources. Annual surveys of all important industries would be desirable; but as this is impracticable, the effort is to cover the leading industries every two years. Even this program, however, has necessarily been modified from time to time. The following table presents a list of the industries covered by the wage studies completed by the bureau during the fiscal year ended June 30, 1932. with the number of employees and average earnings and hours of labor in each industry: Average hours and earnings in specified industries covered by wage studies of the Bureau of Labor Statistics completed in 1931-32 Industry Number of wage earners covered Average hours Average earnings Full time per week Actually worked in 1 representative week Per hour Full time per week Actual in 1 representative week MALES Motor vehicles - 130,433 48. 7 34.6 $0. 733 $35. 70 $25. 40 Coal: Anthracite 42, 689 1 36. 7 > .824 30. 25 Bituminous - 137, 788 1 27.2 1 .619 16. 83 Silk and rayon goods - 21, 885 51.5 48.4 .485 24.98 23. 45 Foundries _ __ 28, 469 50.3 33. 5 .601 30. 23 20.13 Machine shops - -- - - 64,921 49.8 38. 2 .637 31. 72 24. 36 Furniture _ 28,876 51.9 41.4 .416 21.59 17.22 Bakeries: Bread _ 27,856 55.0 54.0 . 553 30.42 29. 82 Cake . _ _ _ - 1, 552 51.8 49.9 . 486 25.17 24. 25 Metalliferous mining __ _ 32, 195 51.6 41. 6 .559 28.84 23.25 Slaughtering and meat packing 45, 523 49.2 45.9 .470 23.12 21.57 Filling stations 2,960 60.0 59.5 .393 23.58 23.39 Service stations 6,059 53.4 51.0 .579 30.92 29. 56 Air transportation: Ground personnel _ 2,911 48.5 2 49. 5 .645 31. 26 31.89 Pilots _ ' 460 3 HO. 0 3 80. 4 4 7. 084 779.19 569. 49 Copilots _ 138 3 170.0 « 1. 341 227.89 Iron and steel - 66,865 52. 4 . 663 34.58 Boots and shoes - .. _ 28, 046 48.9 40.0 .493 24.11 19. 73 Cotton goods 48,168 53. 7 45.5 .284 15. 25 12.91 Dyeing and finishing . 16, 215 51. 4 51.1 .418 21.49 21. 37 Woolen and worsted! 20; 408 50.6 43.1 .447 22. 62 19.26 1 Based on time at face excluding lunch. 2 Credited hours. 3 Actual flight hours in 1 month. 4 Per hour of actual flight regardless of hours on duty. 8 Per hour on duty regardless of hours of actual flight. 62 ANNUAL REPORT SECRETARY OF LABOR Average hours and earnings in specified industries covered by wage studies of the Bureau of Labor Statistics completed in 1931-32—Continued Industry Number of wage earners covered Average hours Average earnings Full time per week Actually worked in 1 representative week Per hour Full time per week Actual in 1 representative week FEMALES Motor vehicles 4, 479 50.6 31. 8 . 436 22 06 13 86 Silk and rayon goods 27,151 50.0 43. 2 . 335 16. 75 14 46 Foundries 230 48. 7 29 4 . 422 20.55 12 40 Machine shops . 1, 017 49. 2 38 8 . 408 20 07 15 85 Furniture 1, 783 49 8 36.3 .314 15.64 11.40 Bakeries: Bread . 591 50.1 46 7 . 298 14.93 13 93 Cake ... _ 1, 240 50.1 44 1 . 275 13 78 12 11 Slaughtering and meat packing 8, 032 48.9 42.4 .321 15. 70 13. 61 Air transportation 88 48.0 2 48 0 .497 23. 85 23 85 Boots and shoes 21,620 48.9 40.8 . 308 15 06 12 58 Cotton goods 28, 462 53.0 42 2 .234 12 40 9 87 Dyeing and finishing 3,031 51. 2 43. 6 .290 14. 85 12 65 Woolen and worsted 18,102 50.0 38.5 .327 16.35 12.59 At the end of the fiscal year the bureau had wage studies in progress in hosiery and underwear manufacturing, leather tanning, and lumber manufacturing. Union scales of wages and hours of labor. The bureau’s annual surveys of union scales of wages and hours of labor, which were inaugurated more than 20 years ago, were at first limited to time workers in selected trades in representative cities. In 1928 the study was expanded to include piece workers as well as time workers in a selected group of cities and to include certain noncity occupations. The results of the 1931 study were published as Bulletin No. 566. Part 1 of this bulletin gives figures for time-work trades in 67 representative cities. The data were collected as of May 15 by agents of the bureau in 55 cities and by the State bureaus of labor of Massachusetts, Pennsylvania, and Wisconsin in 12 cities in those States. Part 2 of the bulletin covers a large number of trades which by reason of the nature of their work and wage systems do not lend themselves readily to statistical averages or comparisons. Entrance-wage rates of common labor. Information relative to entrance-wage rates paid common labor on July 1, 1931, and the number of workers receiving these rates was secured from general contractors, public-utility companies, and establishments in 11 manufacturing industries in which large numbers of common laborers are employed. These common-labor wagerate surveys have been made periodically since 1926, and for the last three years have been annual surveys requesting information as of July 1. The most recent survey, July 1, 1931, covered 94,529 common laborers in the industry groups previously mentioned. A similar survey is now being made requesting information for July, 1932. The reports are secured largely from establishments which also furnish volume-of-employment data to the bureau. ANNUAL REPORT SECRETARY OF LABOR 63 Extent of 5-day week in American industry. Entirely aside from the reduction in working time resulting from the current depression in industry, the movement for the shortened week has been making very considerable progress in recent years. In order to supplement the scattered information on this general subject, the bureau in 1931 made inquiry of all the establishments cooperating in making monthly reports on employment to the bureau as to their practices and policies regarding the adoption of the 5-day week as a permanent labor policy. Replies were received from 37,587 establishments with 3,941,792 employees in 77 industries. These replies showed that 2.4 per cent of the establishments reporting on this point had permanently adopted the 5-day week for all or part of their employees and that 5.6 per cent of all the employees covered by the inquiry were on a permanent 5-day week. Plants operating temporarily five days or less because of the depression were not included in the 5-day-week group; but the replies received indicate that there is a growing sentiment in favor of the 5-day week and that a considerable number of those plants which are now working temporarily five days or less per week will, when the depression has passed, readjust their working schedules on a permanent 5-day-week basis. Wages in foreign countries. In the latter part of 1931 the bureau undertook, in cooperation with the Department of State, a survey of prevailing wages and hours of labor in the various countries of the world. Owing to the limitations of printing funds, the bureau found it impossible to publish the results of this survey in bulletin form, but the data, somewhat abbreviated, are in process of being published in a series of articles in the Monthly Labor Review, the first article appearing in the January, 1932, issue. Wholesale prices. The wholesale-price work of the bureau was very considerably expanded during the fiscal year 1931-32. The weighted index number was revised for all years and months from January, 1926, to include 234 additional price series, giving a total of 784 items for this period. A rearrangement of the articles within the group was made, but no change was made in the method used in the construction of the indexes. Beginning with January, 1932, the bureau began the compilation and publication of a weekly index of wholesale commodity prices in addition to its monthly index, which has been running for many years. In both indexes the same number of price series (784) is used and the same base period, namely, the year 1926. The weighting factors and methods of construction for both series of indexes are also the same. To allow for changes in the relative importance of commodities over a period of years, the weighting factors used in computing the index numbers are changed from time to time as new information I becomes available. Revised weights based on recent census reports । and other data were introduced at the beginning of 1932. The information collected by the bureau is published annually in bulletin form, each bulletin containing monthly data for the last completed year and limited information for earlier years. In earlier 64 ANNUAL REPORT SECRETARY OF LABOR bulletins prices were carried back to 1890. The monthly figures are published in pamphlet form and in the Monthly Labor Review. The weekly figures are issued in the form of a press release. Retail prices. The Bureau of Labor Statistics has collected and published each month, for a number of years, the retail prices of leading food articles. For the fiscal year 1931-32, the retail prices of 42 articles of food in 51 cities of continental United States and in the city of Honolulu and other localities in the Territory of Hawaii were secured. Prices are supplied monthly by about 1,500 retail food dealers and, in addition, by about 350 bakeries and 150 dairies. Besides prices of foods, data are collected monthly by the bureau from about 225 retail coal dealers, and semiannually from approximately 80 gas companies and 70 electric-light companies. The information is furnished as of the 15th of the month on schedules supplied by the bureau. The retail dealers who furnish food prices are selected through personal visits of agents of the bureau, the stores being largely neighborhood and chain stores patronized by workingmen’s families. Return visits to the various firms are made by agents whenever it becomes necessary to make personal inquiries concerning the price quotations or to secure new firms to replace those which go out of business or persistently fail to send in their reports. Retail-price data, showing comparative monthly and yearly prices, are published currently in pamphlet form and in the Monthly Labor Review. Changes in the cost of living. Because of the existing industrial situation there has been very acute interest in the question of changing living costs. The regular semiannual surveys of this subject were made by the bureau in December, 1931, and in June, 1932. These surveys, as in the past, were made by agents of the bureau. Prices were obtained in 32 cities for all the important items entering into the consumption of the wage-earner’s family, and these, after being weighted by the relative importance of the different budget items, give a basis for the computation of index numbers showing the changes in the cost of living between the dates covered by the several studies. International cost-of-living inquiry. The investigation of the relative cost of living in Detroit and certain European cities, undertaken by the International Labor Office, was completed during the past year and a summary of the results published in the Labor Review for January. 1932. The basic study regarding living costs in Detroit was made by the Bureau of Labor Statistics in the early part of 1930, and the results of this study (published in the Labor Review for June, 1930) were used by the International Labor Office in carrying on the European aspects of the general inquiry. Labor legislation and decisions of courts affecting labor. The law division of the Bureau of Labor Statistics is engaged principally in two lines of work—the compilation of bulletins con taining reprints and digests of Federal and State labor laws and ANNUAL REPORT SECRETARY OF LABOR 65 the presentation of selected important court decisions of interest to labor. Periodically the labor legislation contained in the several annual bulletins is gathered together and published in one convenient basic volume. The last basic compilation was published in 1925 as Bulletin No. 370. This bulletin contains all the labor legislation (excluding workmen’s compensation legislation, which is published separately) in effect at the beginning of the year 1925. Each supplementary annual bulletin contains a cumulative index and serves to keep the basic volume up to date. Labor legislation enacted in 1931 and 1932 will be published in a single bulletin, because of the small number of States whose legislatures met during 1932. Annual summaries of labor legislation are given in the Labor Review. The principal amendments enacted by the several legislatures meeting in 1931 appeared in the April, 1932, issue. Court decisions. Bulletins giving selected court decisions have been published since 1912, in most cases annually, but in two or three instances the publication was biennial. The decisions of courts have never been published in one basic volume, but in each annual or biennial publication a cumulative index is given covering both subject matter and cases. The last bulletin on this subject (No. 548) was published during 1931 and contained selected cases affecting labor during the years 1929-30. Some of the more important court decisions are summarized in the Monthly Labor Review. Public and private employment agencies. A comprehensive bulletin of laws relating to public and private employment agencies is in course of preparation. Workmen’s compensation. The subject of workmen’s compensation has been given particular emphasis by the bureau. A basic bulletin (No. 423) was pub’ished in 1926, containing a history, analysis, comparisons, and reprints of workmen’s-compensation legislation of the United States and Canada up to the beginning of 1927. In 1929 a supplemental bulletin (No. 496) was issued, containing legislation for the years 1927 and 1928. This bulletin also brought up to date the charts, and so forth, contained in the basic bulletin. Digests of workmen’s-compensation legislation enacted during 1929, 1930, and 1931 were carried in the Labor Review. The principal amendments made to the workmen’s compensation laws by the 1931 legislatures appeared in the January. 1932, Review. The bureau has taken an active part in the activities of the International Association of Industrial Accident Boards and Commissions. This association is composed of the various State and Federal workmen’s-compensation boards and commissions, and holds a meeting each year. The bureau publishes in bulletin form the proceedings of the annual conventions. The results of the eighteenth annual meeting held at Richmond, Va., on October 5 to 8, 1931, were published as Bulletin No. 564. Pennsylvania safety conference. The bureau was represented at the Pennsylvania safety conference held under the auspices of the Pennsylvania Department of Labor and Industry at Harrisburg on May 12 and 13, 1932. While 66 ANNUAL REPORT SECRETARY OF LABOR this conference was referred to as an accident-prevention meeting, it was held primarily to discuss safety through the prevention of industrial diseases. The workmen’s compensation law of Pennsylvania does not cover employees who are industrially disabled through occupational diseases, and attempts will be made as a result of this meeting to initiate legislation seeking to cover men who are disabled on account of occupational diseases. Child-labor protection. The bureau also participated in a conference held in Washington, D. C., on May 24, 25, and 26, 1932, called by a committee of the White House Conference on Child Health and Protection to formulate regulations for the protection of minors in hazardous occupations. Industrial accidents. During the past year the accident division of the Bureau of Labor Statistics completed the gathering and compiling of the 1930 data for its annual reports on accidents in general manufacturing and in the iron and steel industry, and also practically completed the collection of the 1931 data for both of these studies. In addition, considerable time of this division has been devoted to the formulation of safety codes and the development of accident-prevention work, as well as to furnishing information on accidents and safety measures in response to numerous requests. Accidents in general manufacturing. In 1926 the bureau started an annual survey of industrial injuries in a group of manufacturing industries. Data for this survey were secured in part from State records and in part from manufacturing establishments through correspondence. The difficulty in obtaining accurate information on man-hour exposure of workers limited the field of inquiry, but approximately 10 per cent of the total wage earners in the several industries were covered in the survey for 1926, 21 per cent for 1927 and 1928, and 25 per cent for 1929 and 1930. The 1930 study covered 30 industries. The summary for the period 1926 to 1930, which was published in the Labor Review for May, 1932, shows the average frequency and severity rates for the different industries and also the average rates for the five years for the combined industries, as computed from data obtained in the survey and weighted according to the total number of wage earners employed in each industry. Accidents in the iron and steel industry. The special study of industrial injuries in the iron and steel1 industry goes back to 1910. This was before the enactment of State compensation laws and when, therefore, information regarding accidents could be obtained only from the individual establishment. The cooperation of the industry was so excellent, and the reports furnished so complete, that in the case of this industry this method of securing accident data has been continued, and a special annual report on accidents in the iron and steel industry is still prepared by the bureau. In addition, a comprehensive report on accidents in this industry during the past 10 years is now in progress. ANNUAL REPORT SECRETARY OF LABOR 67 Safety codes. The bureau has for years participated actively in the efforts of the American Standards Association to develop national safety codes for industrial operations and is represented on a considerable number of committees which are engaged in formulating such codes. It also represents the Department of Labor on the Standards Council of the American Standards Association. Out of the 59 safety codes projected to date, 40 have been completed and approved. The bureau has published 16 of them for distribution to State labor agencies, industrial concerns, insurance companies, and others interested. Industrial health. The bureau carried on pioneer work in this country in the field of industrial health, having been one of the first organizations to engage in the study of the effects of industrial processes or harmful substances upon the health of workers. As a result of its early efforts to improve working conditions and to remove or lessen the harmful effects of many of the dangerous poisons or occupations carrying exposure to industrial disease, the bureau has played an important part in the movement to protect the health of the working population. The present work of the bureau in this field consists of the publication of occasional bulletins dealing with industrial poisons or diseases; a review of current medical literature as it relates to occupational hazards, published each month in the Labor Review; and replies to inquiries addressed to the bureau regarding specific industrial hazards. Collective agreements and arbitration awards. In addition to following in the Labor Review the principal developments in the field of trade agreements and industrial arbitrations, the bureau has been making a topical analysis of a large number of trade agreements, and the following topics were covered during the year in a series of articles: Compensation for out-of-town work, conditions under which employers are permitted to work at the trade, the employment of union members, the discharge of union members without previous notice, and the wage scale to be paid superannuated members. Building operations in principal cities of the United States. The bureau collects monthly figures concerning building permits issued in all cities of the United States having a population of 25,000 or over. These figures are published in the Labor Review and also in a separate pamphlet, and if properly interpreted furnish an indication of current building and housing activities. The States of Illinois, Massachusetts, New Jersey, New York, and Pennsylvania, through their departments of labor, are cooperating in the collection of these data. An annual report on building permits is also issued by the Bureau of Labor Statistics. This report is in much greater detail than the monthly reports. Elapsed, time in building construction. In the Labor Review for November, 1931, the bureau issued a report on the elapsed time in building construction in 1929. This 68 ANNUAL REPORT SECRETARY OF LABOR report, based on data from 10 representative cities, answers three questions about which there had been considerable controversy. First, it shows how soon after a building permit was issued that employment was available in the construction of the building; second, how long employment was available on different types of buildings; and third, how many permits were allowed to lapse or remain unused after they were applied for. Relative cost of material and labor in building construction. The bureau is now preparing a report showing the proportion of the building dollar which goes for material and the proportion that goes for labor in the erection of buildings in representative cities throughout the country. The report also will show the percentage of the building dollar which goes for each class of work in making up a building, such as carpentry work, brick work, electrical work, plumbing, and so forth. Labor turnover. Beginning with March, 1931, the bureau began issuing quarterly reports on labor turnover in place of the monthly reports formerly issued. Information on labor turnover is now received from 4,500 manufacturing companies, employing approximately 2,000,000 people. The data are compiled so as to show turnover rates in detail for manufacturing as a whole and for 10 separate manufacturing industries. The 10 separate industries for which information is compiled are automobiles, boots and shoes, brick, cotton manufacturing, furniture, foundries and machine shops, iron and steel, men’s clothing, sawmills, and slaughtering and meat packing. Industrial disputes. The bureau has continued to collect current information regarding strikes and lockouts and to compile such information for monthly publication in the Labor Review. In addition, an annual report on industrial disputes is published in the June issue of the same publication. As there is no legal requirement for the notification of industrial disputes, the bureau must rely largely upon newspapers and trade journals for leads or initial information regarding these disputes. These leads are followed up through correspondence with the various parties concerned or by personal visits of agents of the bureau or of conciliators of the United States Conciliation Service, until satisfactory verification is obtained. It is quite possible that many disputes of minor significance escape the notice of the bureau, but it is believed that reports are obtained for practically all strikes or lockouts of importance. The year 1931 completed a 16-year period for which information of this character has been published by the bureau. Cooperative movement. No general statistical studyrwas made of the consumer’s cooperative movement during the year 1931-32. The bureau, however, besides keeping in touch with significant developments and noting them in the Labor Review, published a directory of consumers’ cooperative societies. A study involving considerable research was also made of what has been done in the United States and abroad toward the ANNUAL REPORT SECRETARY OF LABOR 69 cooperative provision of medical and health service. Although the cooperative movements in foreign countries far exceed that of the United States as regards medical and health work, the study showed that a real, though small, beginning in this line has been made in America. SPECIAL STUDIES AND REPORTS Park recreation areas. A study by the Bureau of Labor Statistics and the National Recreation Association, published by the bureau as Bulletin No. 565, Park Recreation Areas in the United States, 1930, shows what has been accomplished by the different types of communities in the United States in providing park and recreation centers and in supplying the special services and leadership necessary for their full usefulness. The great amount of leisure time, both voluntary and enforced, which the people of the country have to-day, makes it important that opportunities for the wise use of this unemployed time shall be presented and utilized as fully as possible. Dictionary of occupations. 1 In connection with its surveys of wages and hours of labor in the principal American industries, the bureau has compiled periodically a glossary of occupations and occupation terms found in these industries, together with a detailed description of the duties performed. This is essential, as to be of greatest usefulness wage data must be reported by occupation. The bureau is now engaged in bringing together, supplementing, and revising these various industry glossaries, with the intention of publishing in a single volume a general glossary or dictionary of occupations covering at least the major industries of the United States. Old-age pensions. The bureau’s third survey of operations under State old-age pension laws was made early in 1932, covering the experience in 1931. Reports were obtained for 645 (95 per cent) of the 681 counties in the 15 States in which some or all of the counties were actually paying pensions at the end of 1931. In 4 States (California, Delaware, Massachusetts, and New York) the pension system is practically state-wide; in the other States the proportion of the State population residing in those counties having the system varies from 0.3 per cent in Kentucky to 80.2 per cent in Montana. Editorial division. This division, in addition to editing the manuscript of all publications of the bureau, is responsible for the preparation of the Labor Review, which is published monthly. It also prepares from time to time special bulletins and handles much of the research work of the bureau. During the past fiscal year, ended June 30,1932, the combined publications of the bureau represented a total of 7,085 printed pages, this number including 3,036 pages in the 12 issues of the Monthly Labor Review and 4,049 pages in bulletins. Monthly Labor Review. The Monthly Labor Review is the principal medium of the bureau for the prompt publication of the results of its investigations 70 ANNUAL REPORT SECRETARY OF LABOR and studies. It also offers a means by which the work of other agencies may be followed, as practically all publications, foreign and domestic, dealing with labor matters are examined in the bureau and digests of important articles presented in the Labor Review. Bulletins. The more extended studies of the bureau are published in bulletin form, although an advance summary of each study is usually carried in the Monthly Labor Review. During the past fiscal year the bureau published a total of 23 bulletins. Respectfully submitted. Charles E. Baldwin, A ding Commissioner. i BUREAU OF IMMIGRATION Harry E. Hull, Commissioner General Edward J. Shaughnessy, Assistant Commissioner General To the Secretary of Labor: There is submitted herewith a brief and necessarily condensed report of the activities of the United States Immigration Service for the fiscal year ended June 30, 1932. It may be said at the outset that the past year was one of continued concentrated activity in the enforcement of the various provisions of the immigration laws, and justifiable pride is taken in the accomplishments of the service, often obtained under trying conditions. New legislation. During the closing months of the last session of Congress, and principally in the closing days, a few measures amending the immigration laws were passed which will bring about certain advantages from an immigration standpoint or correct anomalous conditions. These new acts were mostly based upon recommendations which have been made by the bureau and department in the past few years. Perhaps the most important act is that approved May 25, 1932, a section of a naturalization statute, which will permit aliens who have been deported or ordered deported from the United States to apply for permission to reenter. In effect this permits an alien to apply, after one year from his deportation or departure, to the Secretary of Labor for permission to reapply for admission to the United States. The statute amends the drastic law of March 4, 1929, and in particularly exceptional and meritorious cases, such as where deportation has separated a husband and wife or parents and children, and where it is apparent that the admission of such aliens would not be a cause of danger to this country or its institutions if allowed to return, the Secretary of Labor may in his discretion grant the deported alien permission to reapply, with the consequent possibility of uniting deserving families. The few amendments that have been passed are to the principal or basic immigration acts—those of February 5, 1917, and May 26, 1924—the latter imposing the quota or numerical system of restriction on immigration. It might be mentioned in passing that another very meritorious measure is the one permitting the service to exact bonds in the cases of immigrant students where there is doubt of the bona tides of the alien’s status as a student under the law. Heretofore when such doubt existed the alien had to be excluded, but the bond provision will permit of more equitable and satisfactory disposition of the cases. This will be referred to more fully later in this report. Deportation. The exclusion and deportation of aliens may be said to be the basic work of the Immigration Service, although it is engaged in many other activities more or less related. 71 72 ANNUAL REPORT SECRETARY OF LABOR The deportation activities of the Immigration Service during the past fiscal year have been constantly accelerated, with the result that the number of aliens deported is the highest ever recorded. The figures are final and show that 19,426 were ordered deported during the period under discussion, compared with 18,142 in the prior fiscal year and 16,631 for the fiscal year ended June 30, 1930. The formidable total of 19,426 represents a vast amount of work, as the legal and technical procedures connected with deportations consume a great deal of time. Of the number mentioned, 17,274 were deported at the expense of the immigration appropriation; 1,479 at the expense of the steamship lines responsible for bringing them to the United States or Canada within statutory periods; 103 were permitted to reship foreign one way as members of crews of vessels; and 570 were permitted to depart voluntarily at their own expense. These reshipments and voluntary departures, totaling 673, saved the appropriation from a very formidable expense. The principal cause for depor-" tation under the immigration laws was for entry after July 1, 1924, without the requisite immigration visa, and this, of course, includes all those aliens who effected surreptitious entry over land boundaries or who entered as stowaways or deserting seamen and remained in the country. Aliens who had remained here longer than the temporary period for which admitted comprised the second largest group" of deportees and the next in number are the criminal and immoral classes. The greatest number of deportations in any single month during the fiscal year was in March, 1932, when a total of 2,112 aliens were either forcibly removed or permitted to depart voluntarily under order of deportation; the next greatest number was in June, 1932, when 1,807 were removed or allowed to depart voluntarily. A most distressing series of occurrences in the past year from all viewpoints was the enforced departure from certain Mexican states of many Chinese who came across the border, voluntarily or involuntarily, and sought apprehension by the Immigration Service. These aliens were destitute, had no other place to go, and fully knew they would be fed and deported to their native country without cost to them. The usual detention places for aliens under warrant proceedings became so congested under this influx that it was necessary to detain many of the Chinese in camps or barracks, all at great expense to this service. Prosecutions of these aliens under the act of March 2, 1929, for illegal entry were quite often abortive and did not relieve the situation by discouraging further entries of the Chinese from Mexico. In all, 2,256 of such Chinese were deported from Pacific seaports in several parties by the end of the year, at a cost to our appropriation of $288,650.81. Of the 19,426 deportations, 6,530 were to Europe; 2,379 to China 2,338 to Canada; 7,116 to Mexico; 567 to other North America, and the West Indies, Central, and South America; 84 to Africa, Australia, and Pacific Islands; and 412 to other Asia. Voluntary removals. Following the procedure inaugurated in February, 1931, making operative on an intensive scale the provisions of section 23 of the immigration act of 1917, authorizing the removal of aliens to their ANNUAL REPORT SECRETARY OF LABOR 73 native countries who within three years of their landing in the United States have fallen into distress or need public aid, it is found that during the fiscal year 1932 a total of 2,637 aliens from numerous sections of the country were repatriated. The removals, however, were mostly from the industrial States. 1 he greatest number repatriated in any one month was 344 in September, 1931. This procedure constitutes an important contribution to the relief of communities and organizations burdened with the support of these aliens, who were without employment and destitute. As recorded in the last fiscal year, many cases involved persons in the prime of life, potential workers, who will no longer be competitors for the greatly restricted employment opportunities in our communities. Many applications for removal were still pending at the close of the fiscal year, although there was a considerable falling off in requests during the last few months. Each application is, of course, thoroughly investigated in order to determine if the representations of distress are genuine and whether the alien falls within the class which may be removed. As was to be expected, a few impostors sought to benefit from this repatriation procedure, but it is believed that most, if not all, these attempts have been discovered and frustrated. It is found that a few applicants for removal have endeavored to obtain reentry permits with the idea of returning to the United States at some future time. Permits, however, are not granted to such aliens. Voluntary departures. In addition to the 22,063 aliens either deported or repatriated, 10,775 aliens who were apprehended and found subject to deportation because of having entered the country clandestinely or having remained longer than the temporary period' for which admitted, were permitted to depart voluntarily either without the institution of warrant proceedings or before same were completed. As in former years, the majority of this class of aliens granted voluntary departure returned across the land borders either to Mexico or Canada. Therefore, it will be seen that the department directly caused 32,838 aliens who were here unlawfully or who had fallen into distress to depart from the country. In addition, it has been variously estimated that thousands of other aliens left the United States on their own initiative in preference to apprehension and subsequent deportation. Immigration statistics. During the past fiscal year 174,871 aliens of all classes were admitted, as compared with 280,679 in the preceding year, which is a decrease of 105,808, or approximately 37 per cent. This is the smallest number of arrivals in many, many years. In the past year 287,657 aliens of both departing classes, emigrant and nonemigrant, left the country, so that the outward movement overbalanced the incoming by 112,786. Dividing up the incoming figures, it is found that of the 174,871 aliens admitted only 35,576 were immigrants— that is, new arrivals with expressed intention for permanent residence—and that the remaining 139,295 were either nonimmigrants coming for a temporary stay in this country or aliens returning to 146746—32---6 74 ANNUAL. EEPORT SECRETARY OE LABOR resume their residence here after a temporary stay in foreign countries. Of the 35,576 new immigrants, 12,983, or more than one-third, were so-called quota immigrants, charged to the quota of the country of nativity, while the remaining 22,593 were what are termed nonquota immigrants, natives of nonquota countries such as Canada and Mexico, husbands, wives, and unmarried children of American citizens, and a few miscellaneous classes. Of the 287,651 alien departures 103,295 were emigrants—those intending to stay permanently abroad—and 184,362 were nonemigrants—those aliens having a residence here who intended to return to the United States, oi those aliens who were in the United States on a temporary status and were returning home. The apparent net permanent loss in alien population of the United States, based on incoming and outgoing travel figures, is 67,719, the difference between the number of immigrants admitted and those departing for permanent residence abroad. For the first time since records have been kept of both arrivals and departures, the exodus of emigrant aliens exceeded the influx of immigrants. In the 1931 fiscal year, 35,257 more immigrants than emigrants were recorded, and for the fiscal year ending 1930 the corresponding figure was 191,039. Stated in another manner, it may be said that for every 100 immigrant aliens admitted during each of the past fiscal years, 290 emigrant aliens departed in 1932, as compared with 64 in 1931 and 21 in 1930. The 35,576 immigrants admitted in the past fiscal year set a new low mark for all time, so far as definite statistics are available. It represents a drop from 97,139 in the preceding fiscal year, or of approximately 63 per cent, and the 1931 figure was the lowest theretofore recorded. The decrease in 1931 from 1930 was 59.8 per cent. If this rate of decrease persists, we might reach the vanishing point in new immigration in the not-f ar-distant future if it were not for the nonquota and preference relative classifications. Of course, the great decrease is attributable to the strictness with which the consular service, in these years of economic depression, applies the provisions of the immigration laws which deny admission to aliens who are likely to become public charges; and certainly this strictness of application is thoroughly justified at the present time. Canada is, as usual, the principal source of our immigration; and although only 7,927 immigrants were admitted from that country in the past fiscal year, this is a respectable portion of the entire number of 35,576. The number coming for permanent residence from that country fell off 63.4 per cent from the preceding .year, when 21,687 were admitted. It is interesting to note that in 1925 the immigration from Canada for permanent residence was 100,895. With re- p gard to Mexico, another prolific source of immigration to this counUU try in the past, only 2,171 immigrant aliens were admitted in the fiscal year, compared to 3,333 in the preceding one, or a drop of 34.9 per cent. The countries of northwestern Europe—that is, Belgium, France Luxembourg, the Netherlands, Great Britain and Northern Ireland, Germany, the Irish Free State, the Scandinavian countries and Switzerland—sent 7,762 new immigrants, or 21.8 per cent of the total, and the countries of southern and eastern Europe, 12,817, or 36 per cent. Immigration from Europe as a whole decreased from ANNUAL REPORT SECRETARY OF LABOR 75 61,909 in 1931 to 20,579 in the past fiscal year, a decline of 41,330, or 66.8 per cent. Every country except Albania showed a decline, but the greatest loss was in immigration from the Irish Free State, the comparative figures for 1931 and 1932 being 6,121 and 441, or a decrease of 92.8 per cent. Great Britain and Northern Ireland fell off from 10,294 to 2,155, or 79.1 per cent; Germany from 10,401 to 2,670, or 74.3 per cent; and Italy from 13,399 to 6,662, or a decrease of 50.3 per cent. The smaller comparative decrease in the case of Italy is explained by the large number of wives and unmarried children under 21 years of age of American citizens who came from that country. Almost two-thirds of the 35,576 immigrant aliens admitted during the fiscal year were between the ages of 16 and 44, the most productive years; 6,055 were from 16 to 21 years of age; 8,933 from 22 to 29; 5,451 from 30 to 37; and 2,466 from 38 to 44. Of the remainder 6,781 were under 16 years of age and 5,890 were 45 years old and upwards. The number of males admitted was 13,917, and of females 21,659, this being the third successive fiscal year in which the females have outnumbered the males. The males under 16 years of age exceeded by 161 the females in that age category. Of the male immigrants 8,730 were single, 4,784 were married, and 403 were widowed or divorced. The single females numbered 7,662, married 12,079, and widowed or divorced 1,918. A great variety of occupations or trades were represented by the newcomers, although as usual the majority were listed as having no occupation, 25,064 being in this group, which consisted mainly of -women and children. There were 2,831 immigrants who could be said to be skilled workers or artisans, either manual or mental; and additionally, 1,372 laborers, 1,232 servants, 403 farmers, and 2,136 of the mercantile and miscellaneous classes. In the so-called professional class, members of the clergy of various denominations, numbering 542, were in the lead, while 437 immigrants were reported as teachers. Following the customary trend, the vast majority of new immigrants were destined to the more densely populated and industrial sections of the country. Over one-third of the total, 12,200, or 34.3 per cent, indicated that New York would be the State of their future permanent residence, while 2,507, or 7 per cent, were destined to Massachusetts; 2,253, or 6.3 per cent, to Michigan; 1,982, or 5.6 percent, to New Jersey; 1,926 to Pennsylvania; and 1,902 to Illinois. Twenty-seven thousand, three hundred and thirty-two, or 76.8 per cent were destined to the North Atlantic and North Central States, the North Atlantic States, however, receiving 57.8 per cent of that number. The Western States received 4,676, or 13.1 per cent, of whom almost three-fourths settled in California. The insular possessions, including Alaska and Hawaii, were the destination of only 298 immigrants. Almost one-half, or 16,557, of the immigrants, including those who came from foreign contiguous territory, claimed to have paid their own passage or traveling expenses, so that slightly more than one-half admittedly were assisted in reaching this country by relatives or friends. 76 ANNUAL REPORT SECRETARY OF LABOR Exclusion. During the last fiscal year 7,064 aliens were excluded from admission to the United States, the far greater number of these rejections occurring at land-border ports, both on the Canadian and Mexican boundaries. At the Port of New York, where the greatest number of aliens from overseas enter, the rejections were less than four-tenths of 1 per cent, 444 out of 115,690 applicants at that port having been excluded during the year, or about 38 in each 10,000. At all seaports the number of arrivals was 144,823, but it should be remembered that these figures include both immigrants and nonimmigrants. The rejections for seaports as a whole were about seven-tenths of 1 per cent, or 66 in each 10,000. It is unnecessary to give an extended explanation of the proportionately fewer number of exclusions at New York, the principal seaport of arrival, as this has been explained in detail in prior reports, but briefly it may be said to be due to the fact that most aliens arriving at that port have come from European countries in which immigration technical advisers are stationed at the principal consulates, so that the qualifications of the aliens have been passed upon in advance of their starting from European shores. Many aliens are definitely refused visas under this preexamination procedure, so that they can not make the journey to the United States and actually apply for admission. The technical-adviser system, in conjunction with the medical examination abroad by officers of the Public Health Service, has now been in operation since 1925 and has thoroughly justified the expense and effort. It may be said in passing that the majority of rejections at seaports were stowaways and alien seamen seeking permanent admission who lacked the consular documents required by the immigration act of 1924. Visa petitions. The number of petitions filed under the immigration act of 1924 for the granting of nonquota or preferential immigration visas in behalf of wives, children, husbands, or parents of United States citizens has fallen off greatly in the past year, even from the decreased figures of the fiscal year 1931. These petitions are filed with the Commissioner General of Immigration; and if the facts stated are found to be true, he then, with the approval of the Secretary of Labor, so advises the Secretary of State in order that the approval may be communicated to the consular officer who will be called upon to consider the applications for immigration visas of the relatives residing abroad. The petitions received during the past year numbered 14,295, a decrease from 22,444 in the preceding year, or about 36.3 per cent. This great falling off is undoubtedly traceable to the economic conditions in this country, which deter citizens from seeking the admission of dependent or other members of families until conditions improve. The peak year in the receipt of such petitions was 1929, when 40,774 were submitted. Since the act of 1924 became effective, 239,701 petitions of citizens in behalf of their authorized relatives have been filed with the bureau. Of the 14,295 petitions received in the past fiscal year, 10,839 were approved and 1,345 rejected. The balance of 2,111 were not completed for one cause or another. Of the petitions granted, including those pending from last year, 10,972 were for nonquota status in favor of wives, unmarried children under 21 years of age, and hus ANNUAL REPORT SECRETARY OF LABOR 77 bands of American citizens by marriage occurring prior to June 1, 1928; the remainder, 3,760, were petitions for preference in the issuance of quota immigration visas in favor of fathers and mothers and husbands of citizens, the latter class where marriage occurred subsequent to June 1, 1928. In addition to the 10,839 granted, like action was taken on 79 petitions of American citizens for the issuance of nonquota visas for their wives of the Chinese race, made possible under the amendment to the 1924 act of June 13, 1930. By the act approved July 11, 1932, Public No. 277, 72nd Congress, the discrimination relating to husbands of American-citizen wives has been greatly lessened. While nonquota visas for wives of citizens are issued regardless of when marriage occurred, husbands of American citizens have been entitled to this status only where marriage occurred prior to June 1, 1928; and if after that date a preference in the issuance of a visa was authorized. The act just referred to authorizes the approval of nonquota status in favor of husbands of United States citizens where marriage occurred prior to July 1, 1932, and with regard to marriages solemnized after that date a preferential status is provided, but the restriction that the petitioning wife must be at least 21 years of age has been removed. This new legislation is the result of recommendations made in the past few years that this discrimination be removed, and it is confidently anticipated that it will considerably increase the number of petitions to be filed and will, of course, serve the laudable purpose of uniting or reuniting families. Students. In accordance with the immigration act of 1924, aliens who are bona fide students over 15 years of age may be admitted to the United States for a temporary period in order to attend some institution of learning approved by the Secretary of Labor. Students are designated by the law as nonquota immigrants, and it is necessary that they depart from the United States at the completion of their studies or when they have failed to maintain a student status. During the past fiscal year 1,266 such students have been admitted to the country, as compared with 1,538 in the preceding year and 1,902 in the year ended June 30, 1930. This shows a gradual dropping off of the number admitted under this classification. Since the passage of the act of 1924 a total of 13,635 immigrant students have gained entry; of whom 7,492 have left the United States, 1,269 having departed during the year just ended. In the past twelve months, 59 schools have received full approval as institutions of learning for immigrant students, making a total of 1,675 approved since July 1, 1924. Approvals are withdrawn from time to time, mostly because of the closing of the schools. In the past it has often been necessary to refuse admissions to aliens claiming to be bona fide students when there existed a doubt as to their status or claims. It has been recommended consistently that the law relating to students be amended so as to permit the exaction of bond in such a contingency, and Congress made provisions for this in an act approved July 1, 1932, Public No. 234, 72nd Congress. The bond, when hereafter exacted, will be conditioned upon the alien maintaining the status of a student in the United States and departing upon the completion of his studies or upon failure to maintain the status under which admitted. There has been a considerable amount of fraud and bad faith upon the part 78 ANNUAL REPORT SECRETARY OF LABOR of aliens admitted as students, and so for the better protection of the service a new rule regarding this class of aliens is in course of preparation, the present one having been found to be unsatisfactory and not sufficiently explicit. It is thought, particularly, that a clearer definition of a student is required and that hereafter admissions should be limited to a period within which the alien can leave the country on the basis of the passport, or document in lieu of a passport with which he is provided. Reentry permits, including Chinese. The consideration of and action upon applications for reentry permits constitute a very important activity of the Bureau of Immigration. As explained in prior reports, an alien resident of the United States who can show that he was admitted for permanent residence on the occasion of his last entry, and who desires to leave the country temporarily, may make application for a reentry permit in accordance with section 10 of the immigration act of 1924. Such a permit is of great value, since the holder does not have to apply to an American consul abroad for a nonquota immigration visa when he desires to return to the United States. It does not guarantee readmission to the country, but evidences that the alien had a lawful permanent residence in the United States before departure. These permits are not required for return from visits to foreign contiguous territory or certain other countries near the United States. During the past fiscal year 110,550 applications were filed, and at the beginning of the year 2,435 were pending, making a total of 112,985 cases which required action. Of this number, 103,297 were granted and 2,740 were denied. During the year, 1,551 applications were withdrawn and at the end of the period 5,397 were pending. About 3,000 more applications were received in the last fiscal year than in the preceding one, but about 700 less were granted, the number granted in the fiscal year 1931 being 103,957. Of 2,740 applications denied, 1,700 were due to the fact that no record of the alien’s claimed admission could be found, 687 because the applicants had sailed abroad without awaiting final action on their applications, and the unfavorable action in the remainder was due either to the fact that applicants were admitted to the country for but a temporary period, or were in fact United States citizens. In addition to the applications received from aliens in the United States, 18,009 requests for extensions were received from aliens who had gone abroad with permits, and 375 such requests were pending at the beginning of the fiscal year, making a total of 18,384 cases to be acted on. Of this number, 18,050 were granted, 88 were denied, and 75 were withdrawn. Eighty-two denials were for the reason that the permits had expired prior to the filing of requests for extension and 6 because the aliens had remained out of the United States for a sufficient length of time to support the presumption that they had relinquished their residence in the United States. It should be said that permits are valid for one year from the date of issuance, but this period may, under the law, be extended upon proper application for periods of six months each. The number of permits issued in the past year was the smallest in any one year since the operation of the act of July 1, 1924. During the fiscal year it became necessary to amend radically the procedure in filing applications for reentry permits in order to fore ANNUAL REPORT SECRETARY OF LABOR 79 stall and prevent the perpetration of frauds that had crept into the securing of these documents. It is required, generally speaking, that aliens whose last claimed entry for permanent residence antedated the passage of the immigration act of 1924, file their applications at immigration offices throughout the country instead of transmitting them direct to the bureau. The new procedure has added greatly to the work of the bureau and field offices, but it is believed this additional labor and time have been fully justified by the purpose m view. Numerous conspiracies fraudulently to obtain reentry permits, or to traffic in these documents, have been unearthed after painstaking investigations and prosecutions have been instituted. This has had a most salutary effect. Chinese. Chinese immigration to the United States requires a duplicate set of examinations, both under the general immigration laws and under what are termed the Chinese Exclusion Laws. In the past fiscal year the number of aliens of the Chinese race of all classes admitted was remarkably small, comprising a total of 6,372, as compared with 7,479 in the prior fiscal year. Moreover, most of the 6,372 were nonimmigrants and so inadmissible to the United States for permanent residence. The largest single group were Chinese in transit through the United States, the number being 3,900. Two hundred and forty-five merchants and their families, who may remain only so long as they maintain their exempt status, were admitted, as well as 278 temporary visitors and 135 Government officials, their families, attendants, servants, and employees. Nonquota immigrant students of the Chinese race numbered 155, ministers and professors with their wives and children numbered 10, and 99 alien Chinese wives of citizens were admitted, the remaining 1,550 being returning residents. In analyzing these various figures it is found that the insignificant total of 109 Chinese aliens,. new arrivals, were admitted to the United States for permanent residence, these consisting of ministers and professors with their wives and children, 10 in number, and 99 Chinese wives of American citizens, the latter being admitted under the act of June 13, 1930. As reported in prior years, the main problem in connection with applications of Chinese for admission to the United States continues to be the detection of Chinese fraudulently claiming the right of admission as citizens of the United States, such applicants with their witnesses being so well prepared for examination at ports of arrival that it is an extremely difficult task to detect fraud. A total of 3,252 who established citizenship were admitted in the year, of whom 2,384 were returning citizens, most of whom had made provision for reentry before they left. Excluding decisions at the ports in the past year, and by the department upon appeal, have been upheld by the courts in practically every case where habeas corpus proceedings were resorted to. As previously set forth, a great number of Chinese entered the United States over the Mexican border during the year who had been virtually evicted from that country. These Chinese were without funds, and it has been necessary to take them into custody and deport them to China at Government expense. As a matter of fact, they cross our borders for that very purpose. The cost of their removal has been tremendous and a heavy burden upon the appro 80 ANNUAL REPORT SECRETARY OF LABOR priation for the support of the Immigration Service, but in order to enforce the plain provisions of law, and for humane reasons, it has been necessary to finance their journey home. There is no reason to believe that this movement from Mexico has ceased, so that a further heavy expenditure for the deportation of this class of aliens confronts us. Border patrol. The immigration border patrol has now been in existence eight years, and during that period has accomplished very remarkable results. During its first fiscal year, beginning with July. 1, 1924, it was composed of 472 officers and there was available for its support an appropriation of $1,000,000. During the past fiscal year the appropriation for coast and land border patrol was $2,193,800, the largest amount so far provided for the maintenance and activities of this branch of the service. The average force carried on the rolls during the year was 995, the number of officers and employees being, however, 984 at the end thereof. The transportation provided for this unit at the present time consists of 304 automobiles and 27 trucks. In addition, it has the same horse allowance as in the preceding year, 14 saddle and 7 pack horses. During the year, 21,579 aliens endeavoring to enter this country clandestinely were apprehended and, what is more important, 149 smugglers of aliens were caught. Aliens to the number of 1,156 who had effected unlawful entry and were residing in the country were taken into custody on warrants of arrest. Persons apprehended and delivered to other agencies for violations of law numbered 866, 521 of these being turned over to the customs authorities, 40 to the prohibition service, 11 to the Department of Justice proper, 20 to the military authorities, and the remainder to the proper agencies, Federal, State, and municipal. Four hundred and thirteen automobiles were seized as well at 117 conveyances of other kinds, the automobiles being valued at $122,260 and the other means of transportation at $71,250, or a total of $193,510. The other contraband seized and delivered to the proper services was valued at $111,445. This was mostly liquor, so that the estimated worth of all seizures was $304,955. During the year border-patrol inspectors patrolled a total of 8,527,168 miles, 7,969,651 of which was by automobile, 410,114 on foot, 95,118 by railroad, and 52,285 by plane, boat, and horse. In the border-patrol service the country has a highly efficient and mobile organization of young men, intensively trained and under strict discipline, whose duties often are of the most hazardous nature. The organization has thoroughly demonstrated its value as a most effective force for the prevention and detection of smuggling over our land borders. During the year one patrol inspector was fatally injured in line of duty. Altogether there have been 16 fatalities in the force in the 7 years of its existence. Fines. The immigration laws provide for the imposition of fines against steamship companies for various causes, the principal penalties being based upon the bringing of aliens to the United States who are found inadmissible for certain reasons. Some are imposed under the immigration act of 1917 and others under the 1924 law. During the ANNUAL REPORT SECRETARY OF LABOR 81 past year the department considered 1,524 proposed fines against transportation companies and definitely imposed penalties in 528 of these cases, the total amount assessed being $87,150. This is the lowest figure since the passage of the immigration act of 1924, and should be compared with the amount assessed in the preceding fiscal year, $103,550. The reasons attributed in the last report of the bureau for the constant decrease in assessments of fines still hold good in the opinion of the bureau, but it would seem the principal cause of the diminution is the greatly lessened number of aliens being brought to seaports of the United States. The number of fines remitted by the department in the past fiscal year was 996, the amount involved being $184,340. Of the fines definitely imposed, $26,150 represented infractions of the act of 1917 and $61,000 penalties incurred under the immigration act of 1924. Registration of aliens. As stated in prior reports, any alien who claims to have entered the country prior to June 3, 1921, and in whose case a record of admission for permanent residence does not exist or can not be found, may apply for a certificate of registry under the act of March 2, 1929. A fee of $20 must accompany the application. The applicant and the required witnesses are questioned thoroughly by the immigration office in the field to establish the credibility of the claimed entry and of the continued residence of the applicant in the United States. If the bureau thereafter finds that the applicant possesses all the requisites for registration stipulated in the act, the certificate is issued. This certificate may be made the basis for an application for naturalization or the alien may secure a reentry permit if he desires to make a visit abroad. Otherwise, if he left the country he would have to obtain an immigration visa from consular officers before attempting to return to the United States, and in the case of natives of some countries this would require a wait of many years. These aliens, while unlawfully in the country, could not be deported because of their illegal entry alone, on account of the expiration of the statute of limitations. It is far better, both in the interest of the alien and the Government itself, that a means be provided for the legalization of the continued residence of such aliens whose numbers are very large in the aggregate. During the last fiscal year, 14,414 applications for registry were received and 6,074 were pending at the beginning of the year. The new applications showed a decrease of over 1,000 from the preceding year, when the number was 15,584. The falling off is due, in the bureau’s opinion, to the prevailing and general economic depression, as $20 looms large in these times. During the year 14,144 certificates were issued, 2,477 applications for registry were denied for various reasons, and 238 applications were withdrawn. At the close of the year 3,629 cases were still pending. The amount collected in fees during the fiscal year for the issuance of these registration certificates was $282,900. Since the passage of the registry act on March 2, 1929, the bureau has issued 38,484 of these certificates, and the advantages to be derived therefrom by the beneficiaries and their families are widespread. This represents a gross collection in fees of $769,680 in slightly over three years. When an application is denied or withdrawn, the fee is returned to the applicant. The bureau has recommended that this registration privilege be extended to 82 ANNUAL REPORT SECRETARY OF LABOR aliens who entered without inspection before July 1, 1924, the effective date of the immigration act of 1924, prescribing quota limitations, and a measure to provide therefor was presented in the session of Congress just ended and had considerable attention. However, it failed of passage. The arguments in favor of the passage of the act of March 2, 1929, apply with equal force to those aliens who entered without inspection between 1921 and 1924. Financial statement. Appropriation for the conduct of the Immigration Service and the administration of the immigration laws Salaries and expenses, Bureau of Immigration, field-------$8,175, 999. 00 Bureau____________________________________________________ 385, 530. 00 For coast and land border patrol-------------------------- 2,193, 800.00 For physical maintenance and upkeep of immigrant stations.- 400,000.00 Total___________________________________________________ 11,155,329.00 The net amount expended during the year for all purposes after deducting refunds to the appropriation for expenditures not properly chargeable to the Government was-------------------- 11,083, 340. 00 Net balance______________________________________________ 71, 989. 00 Balance against the expenditures mentioned there was collected as hereinafter shown, the sum of------------------------------- 1, 791, 482.13 Making the actual cost of operation-------------------------- 9, 298, 060. 87 Income and sources thereof Head tax_______________________________________________________ 912, 574. 28 Administrative fines------------------------------------------- 98, 210. 96 Reentry permits and extensions--------------------------------- 364, 041. 00 Certificates of registry--------------------------------------- 276, 660.00 Bonds forfeited and paid without suit, including interest coupons on Liberty bonds----------------------------------------------- 136,108. 55 Sale of exclusive privileges (feeding, money exchange, etc.)— 731.43 Expenses of deporting aliens—reimbursed------------------------ 1, 376. 69 Sale of Government property------------------------------------ 955. 46 Miscellaneous collections-------------------------------------- 335. 66 Coin-box collections, New York, Boston, Seattle, and Philadelphia___________________________________________________________ 488-1-9 1, 791, 482.13 Board of review. During the last fiscal year the Secretary’s and Commissioner General’s board of review, a very important division and exercising what might be termed quasi-judicial powers, considered and submitted recommendations in approximately 6,945 appeal cases and 28,282 warrant cases. The appeals referred to concerned aliens appealing from excluding decisions of boards of special inquiry at ports of arrival, and the warrant cases concerned aliens who had been arrested in deportation proceedings. Additionally, the board of review considered and made recommendations in other classes of cases, such as fines, reentry permit, and registration applications, alien contract-labor waivers, extensions of temporary admissions of aliens, and so forth, so that the total number of cases worked on was approximately 53,518. Oral hearings were granted in over 1,900 instances, During the preceding fiscal year the board of review considered and made recommendations in a total of 75,500 cases. The considerable falling off in the number of cases handled in the past year was occasioned by a change of procedure relating to applications for extension of temporary admission, these applications being ANNUAL. REPORT SECRETARY OF LABOR 83 passed upon by the Commissioner General’s office for the greater part of the year. Miscellaneous immigration statistics. The subjoined tables exemplify the trend of immigration and emigration and certain other activities of the Immigration Service for the fiscal year ended June 30,1932. For a complete statistical analysis of immigration statistics, reference is made to the Annual Report of the Commissioner General of Immigration for the same fiscal year. Table 1.—Immigrant aliens admitted and emigrant aliens departed, years ended June 30, 1930, 1931, and 1932, 0y principal countries or States of last or intended future permanent residence, and occupations, as specified Immigrant Emigrant 1930 1931 1932 1930 1931 1932 ► Total COUNTRIES 241, 700 97,139 35, 576 50, 661 61, 882 103, 295 Austria 1,744 738 301 301 270 452 Belgium 909 551 229 489 625 676 Czechoslovakia. 4, 438 2, 016 494 1,166 1, 331 1, 862 T)pnmn.rk 1,161 555 262 305 513 582 3,713 1, 830 854 1,978 1,978 2,572 Germany 26, 569 10, 401 2,670 4, 639 3, 369 5, 533 Great Britain: England 12, 884 4, 825 1,374 4,055 4,588 7, 019 Scotland 16, 692 3,895 633 1,589 2,860 4, 370 Wales L 439 390 50 105 215 311 Greece _ _ ______ 2, 291 1, 763 877 733 753 1,406 Hungary 1,265 887 446 550 512 783 Irish Free State 17, 971 6,121 441 1, 242 1, 556 2, 457 Italy . 22, 327 13, 399 6,662 2,654 2,410 4,866 Lithuania 612 403 191 169 349 411 Netherlands 2,738 1,143 231 476 612 780 Northern Ireland... 5,474 1,184 98 321 552 621 Norway 2,649 1, 280 348 1,085 1, 437 1,686 Poland 9,231 3, 604 1,296 1, 979 2,119 2,408 Portugal 637 542 248 255 204 1,003 Rumania - ______ 1, 726 933 465 508 504 768 Russia 1,133 335 244 256 433 1, 524 Spain . 670 476 445 1, 231 1, 667 2,998 Sweden 3,109 1, 298 328 1,113 1,583 2, 930 Switzerland 1, 689 864 235 465 411 778 Yugoslavia 1, 737 859 508 1, 302 1,317 1, 814 Other Europe. 2, 630 1,617 649 572 967 1,491 Canada 63, 502 21, 687 7, 927 3,142 2,735 1,989 Newfoundland 1, 752 496 76 87 160 192 rC Mexico 12, 703 3,333 2,171 6, 355 14, 442 37, 074 '©• West Indies ■5, 225 2,496 1,029 3, 577 3, 742 3,463 Other America. 4, 922 2, 804 1, 374 2,612 2,864 3, 066 Asia . 4, 535 3, 345 1,931 4,792 4, 405 4,918 Other countries STATES 1, 623 1, 069 489 558 399 492 « California. 15, 600 7,788 3, 382 4,685 7,463 19, 780 Connecticut 5, 476 2,164 875 588 719 1,207 Illinois . 15, 012 5,850 1, 902 2,541 2,934 4, 591 Massachusetts 18,127 7, 225 2, 507 1, 627 1, 646 2,368 Michigan. ._ 22, 149 5,591 2, 253 3,021 4, 277 5,549 New Jersey 16, 510 6, 381 1,982 2,255 2, 702 4, 501 New York 84, 734 35, 867 12, 200 20, 978 21, 458 30, 239 • Ohio 7,813 2, 889 918 1,493 1,767 2, 604 Pennsylvania 15, 906 6, 359 1, 926 2,617 2,756 4,282 Texas 6, 424 1,799 1, 246 4,083 7,891 11, 668 Washington 4,421 1, 707 573 808 846 986 Other States OCCUPATIONS 29, 528 13, 519 5,812 5, 965 7,423 15, 520 Professional 9, 888 4, 773 2, 538 2,784 2,363 2,827 Skilled 45i 572 13, 549 2,831 7,909 9,281 13, 301 Farmers ... 8, 375 2,743 403 1,311 1, 471 2,115 Farm laborers.. 13, 736 3, 422 254 389 807 1, 323 Laborers (common) 16, 447 4, 503 1,118 12,157 17,242 34, 296 Servants.. 29, 073 9, 740 1, 232 3, 992 3,956 5,317 Other unskilled- 2, 127 ' 222 49 106 119 172 Commercial 5,137 2, 393 1,133 2, 601 2,143 2,771 Miscellaneous _ 5, 751 2,782 954 2,110 2,702 3,162 No occupation 105, 594 53, 012 25, 064 17, 302 21, 798 38, 011 84 ANNUAL REPORT SECRETARY OF LABOR Table 2.—Increase or decrease in population by admission and departure of aliens, year ended June 30, 1932, by race or people, sex, age, and marital status Race or people Aliens admitted Aliens departed Increase (+) or decrease (—) Immigrant Nonimmigrant Total Emigrant Nonemigrant Total Total 35, 576 139,295 174,871 103,295 184, 362 287,657 -112, 786 African (black) 183 1,452 1,635 811 835 1, 646 -11 Armenian 316 112 428 45 93 138 +290 Bohemian and Moravian (Czech) 110 343 453 676 943 1, 619 -1,166 Bulgarian, Serbian, and Montenegrin ... 184 356 540 954 865 1, 819 -1,279 Chinese . 545 5, 827 6, 372 3, 311 7,088 916 10, 399 -4, 027 Croatian and Slovenian 299 508 807 781 1,697 -890 Cuban 409 4, 920 5, 329 1, 227 4,706 5,933 -604 Dalmatian, Bosnian, and Hercegovinian 51 71 122 238 677 915 -793 Dutch and Flemish 497 2,531 3, 028 1,433 3,001 4, 434 -1,406 East Indian . 50 186 236 166 171 337 -101 English 4,491 30, 763 35, 254 8,478 39,180 1,872 47, 658 -12,404 Finnish ... 133 990 1,123 1,227 3, 099 -1,976 French 1,873 7, 457 9, 330 2,646 8,436 11,082 -1,752 German _ 3,902 22, 005 25, 907 6,953 22,286 29, 239 -3, 332 Greek . 1,105 1,282 2, 387 1, 607 2,815 4, 422 -2,035 Hebrew 2,755 2,584 5, 339 452 1,354 1,806 +3, 533 Irish 1,570 6, 665 8,235 3,509 10,465 13,974 -5, 739 Italian (north) 1,118 2, 524 3,642 666 4,043 4,709 -1,067 Italian (south) 5,697 7,801 13, 498 4,705 16, 453 21,158 -7, 660 Japanese 503 5,132 5, 635 781 7, 620 8,401 -2, 766 Korean __ .. 19 46 65 25 53 78 -13 Lithuanian __ . 171 386 557 420 670 1, 090 2,137 -533 Magyar 441 1,167 1,608 808 1, 329 -529 ^Mexican 1, 674 2,022 3, 696 36,992 2, 234 39, 226 -35, 530 Pacific Islander - - . 11 11 6 32 38 -27 Polish 639 1,939 2, 578 2, 375 3,404 5, 779 4,395 -3, 201 Portuguese 265 1,338 1,603 1,105 3, 290 -2,792 Rumanian . ... 112 289 401 668 923 1,591 -1,190 Russian - ------ - - - 448 1,279 1,727 970 1,651 2, 621 -894 Ruthenian (Russniak) 90 153 243 70 54 124 + 119 Scandinavian (Norwegians, Danes, and Swedes) 1,206 8, 327 9, 533 5, 403 13,533 18, 936 -9, 403 Scotch _- - 1,902 8,951 10, 853 4, 724 9, 814 2, 069 14, 538 -3, 685 Slovak 336 1,183 1,519 1,438 3, 507 -1,988 Spanish 621 3, 209 3, 830 3, 606 4, 873 8,479 -4, 649 Spanish American 1,043 2,864 3,907 2,097 3, 364 5, 461 -1,554 Syrian--. ... - 284 497 781 164 465 629 + 152 Turkish 60 101 161 84 171 255 -94 Welsh 104 571 675 389 711 1,100 -425 West Indian (except Cuban).. 128 1,084 1,212 611 836 1,416 2, 252 -1, 040 Other peoples 242 369 449 487 936 -325 SEX Male 13,917 76, 501 90, 418 66, 859 109,135 175,994 —85, 576 Female 21, 659 62, 794 84,453 36,436 75,227 111, 663 -27, 210 AGE Under 16 years 6, 781 6, 970 13, 751 13,126 8, 977 9,201 18,178 -4, 427 16 to 21 years... ... 6,055 7,071 7, 191 9,002 16,193 -3. 067 22 to 29 years 8,933 31, 474 40, 407 24, 723 41,984 66, 707 -26, 300 30 to 37 years. _ 5, 451 34, 413 39,864 24,102 45, 216 69, 318 -29, 454 38 to 44 years. _. _ 2, 466 22, 564 25, 030 14, 505 29, 880 44, 385 -19, 355 45 years and over 5,890 36,803 42, 693 23, 797 49,079 72, 876 -30, 183 MARITAL STATUS Single 16, 392 55, 808 72, 200 44, 302 74, 423 118, 725 -46, 525 Married 16,863 76, 234 93,097 53, 493 103,865 157,358 -64, 261 Widowed 2,161 6, 590 8, 751 5,390 5,925 11, 315 —2, 564 Divorced 160 663 823 110 149 259 +564 ANNUAL REPORT SECRETARY OF LABOR 85 Table 3.—Aliens admitted, year ended June 30, 1932, by country or area of birth and by classes under the immigration act of 1924, as specified . .. — —— — Country or region of birth and classes Annual quota Admitted Quota Nonimmi Nonquota Total immigrant grant immigran Total 153,831 i 12,983 73,824 88,064 174,871 countries Albania 100 102 9 334 445 Austria 1,413 187 512 564 1,263 Belgium Bulgaria Czechoslovakia Denmark Estonia 1,304 117 559 470 1,146 100 11 51 82 144 2,874 304 893 1,364 2,561 1,181 209 801 991 2,001 116 15 33 62 110 Finland France Germany ..... Great Britain and Northern Irleand: 569 69 309 793 1,171 3, 086 288 3, 076 2,844 13,563 6,208 25,957 2,086 5,629 21,278 England 1,213 13,384 6,481 21,078 Northern Ireland Scotland 65, 721 104 462 811 1,377 723 59 3,117 4,405 8,245 Wales 382 385 826 Greece 307 141 258 1,411 1,810 Hungary Irish Free State Italy 869 329 569 667 1,565 17,853 452 917 3,518 4,887 5, 802 2, 012 2,629 11,857 16, 498 Latvia Lithuania Netherlands Norway ; Poland. 236 43 81 94 218 386 181 165 416 762 3,153 185 996 655 1,836 2,377 260 1,013 2,078 3,351 6, 524 917 1,235 2,633 4, 785 Portugal Rumania Russia Spain Sweden 440 201 141 1,190 633 1,532 295 318 410 1,361 2,701 528 1,062 978 2,568 252 191 1,381 1,622 3,194 3, 314 290 914 2,408 3,612 Switzerland Turkey 1,707 132 933 914 1,979 226 33 95 98 226 Yugoslavia Other Europe 2 Asia 2 Africa 2 , 845 252 373 854 1,479 800 70 94 175 339 1.523 530 7,232 6,650 14. 412 1. 200 99 446 176 721 Australia and Pacific Islands 2 Canada Newfoundland Mexico Cuba 600 182 1,324 300 1,806 9,951 326 7,196 623 17,147 949 1,842 2,644 4,486 4,074 1,707 5,781 Other independent countries of America American colonies of European countries 2 — 150 3,681 2,465 1,913 1,505 5,594 4,120 CLASSES Government officials, their families, attendants, servants, and employees . 3,844 Temporary visitors for business 13,741 Temporary visitors for pleasure In continuous transit through the United States. T o carry on trade under existing treaty — 26,724 28,678 837 — 73, 824 Husbands, wives, and unmarried children of United States citizens 9, 490 Returning residents 67, 057 Natives of nonquota countries 9, 328 Wives and unmarried children (born in quota countries) of natives of nonquota countries Ministers and professors and their wives and — 133 ■ 88,064 unmarried children 660 Students ■_ 1,266 Women who had been citizens of the United States 105 Spanish subjects admitted into Puerto Rico Quota immigrants (charged to quota) 12,983 25 12,983 —. . - - 1 Also includes aliens to whom visas were issued during the latter part of the fiscal year ended June 30, 1931, and charged to the quota for that year. Nationality for quota purposes does not always coincide with actual nationality. (See sec. 12 of the immigration act of 1924.) 2 Including colonies, dependencies, or protectorates, the annual quota for which is included with that for the European country to which they belong. 86 ANNUAL REPORT SECRETARY OF LABOR Table 4.—Aliens deported from the United States under warrant proceedings, and indigent aliens returned to their native land at their own request, years ended June 30, 1031 and 1932, by countries of destination and race or people Aliens deported Indigent aliens returned 1931 1932 1931 1932 Total COUNTRIES 18,142 19,426 541 2,637 C 7enh nsl n vak i a 351 304 6 28 Germ any 736 596 74 244 Great Britain - _ 898 863 241 1, 029 Greece - - - --------- - - - 203 364 2 24 Ireland 245 236 32 223 Italy - - - - ---------- - ------ - -- 645 996 41 289 Norway - 289 188 4 69 Poland - - - - 352 389 24 49 Portugal _ _ - _ - ~ ______ 167 277 3 Rumania _ _ _ _ _ __ 354 268 1 11 Spain — 283 508 1 9 Sweden - _ - - - - 151 138 28 125 Yugoslavia _ 451 477 8 30 Other Europe _ - - 1,037 926 60 275 Canada _ _ 2,276 2,338 5 ■ Mexico - _ - ----- _ 8,409 7,116 5 West Indies __ - - -- 209 236 10 15g Other America _ - - 295 331 2 41 China _ 402 2,379 Tanan . .. 123 160 Other countries RACE OR PEOPLE 266 336 2 15 African (blank') 213 271 4 7 Chinese _ _ 398 2,380 English-. - _ _ __ _ 1,195 1,243 85 412 French . - . - 585 587 1 14 German _ _ 1,156 935 77 268 Greek - __ _ _ 230 396 2 36 TT p,hrew 150 147 4 Irish 635 671 33 222 Italian - - 724 1,055 41 306 Japanese _ _ _ _ ________ _ 126 161 Mexican - - - _ ______ 8,335 7,049 5 159 Polish 390 437 24 50 Scandinavian. __ 720 513 36 213 Scotch ______ ______ _ ______ 535 513 143 585 Slovak _____________ __ _ __ - 290 240 6 9 Spanish _______________ 394 599 1 17 All others 2,066 2,229 83 335 i ANNUAL REPORT SECRETARY OF LABOR 87 Table 5.—Aliens registered under the act approved March 2, 1929, years ended June 30, 1930, 1931, and 1932, by principal countries of birth, races, ports of entry, means of entry, time of entry, age at time of entry, and sex, as specified Number registered_____________________ Born in— Germany____________________-------- Great Britain______________________ Greece_____________________________ Ireland---------------------------- Italy------------------------------ Norway_____________________________ Poland_____________________________ Russia_____________________________ Spain______________________________ Sweden_____________________________ Yugoslavia_________________________ Other Europe_______________________ Canada_____________________________ Mexico_____________________________ Other countries____________________ Entered via— New York, N. Y_________________________ Other ports________________________ Canadian land border_______________ Mexican land border________________ Entered United States— By boat____________________________ By railway_________________________ By automobile______________________ By wagon, sleigh, etc______________ Afoot______________________________ Entered United States— Prior to 1891______________________ From 1891 to 1900__________________ From 1901 to 1910__________________ From 1911 to 1920__________________ From Jan. 1 to June 2, 1921________ RACE English_______________________________ French________________________________ German________________________________ Greek_________________________________ Hebrew________________________________ Irish_________________________________ Italian_______________________________ '( Mexican________________________________ Polish________________________________ Scandinavian__________________________ Others________________________________ AGE AT TIME OF ENTRY Under 11 years________________________ From 11 to 20 years___________________ From 21 to 30 years___________________ From 31 to 40 years___________________ From 41 to 50 years___________________ Over 50 years_________________________ SEX Male__________________________________ Female________________________________ 1930 1931 1932 Total 8,098 16, 242 14,144 38,484 505 1,003 531 2,039 501 861 680 2,042 517 683 423 1,623 223 464 443 1,130 510 1,263 1,020 2,793 211 381 228 820 692 2,101 1, 956 4,749 399 736 576 1,711 263 452 238 953 216 393 260 869 195 481 404 1,080 1,361 2,598 2,046 6,005 1,059 2,342 3, 237 6,638 1,144 1,701 1,391 4,236 302 783 711 1, 796 2,980 6,741 5,838 15,559 1,536 2,831 2,085 6,452 2,412 4,883 4,784 12,079 1,170 1,787 1,437 4,394 5,427 11,177 9,191 25, 795 1,767 3, 582 3,786 9,135 126 170 134 430 192 197 158 547 586 1,116 875 2,577 313 739 806 1,858 381 1,246 1,396 3,023 1,491 4,096 4, 832 10, 419 5,282 9,122 6,567 20,971 631 1,039 543 2,213 735 1,292 1,532 3,559 342 736 936 2,014 614 1,397 932 2,943 579 804 488 1,871 705 1,672 1,337 3,714 406 884 998 2,288 487 1,160 960 2,607 1,131 1,672 1,360 4,163 325 913 1,109 2,347 564 1,050 644 2,258 2,210 4,662 3, 848 10, 720 629 2,030 2,511 5,170 3,038 5,823 4,956 13, 817 3,007 6,238 4,896 14,141 1,026 1, 663 1,278 3, 967 304 372 405 1,081 94 116 98 308 6,794 13,743 11,270 31, 807 1,304 2,499 2,874 6,677 88 ANNUAL REPORT SECRETARY OF LABOR Table 6.—Applications for registration under the act approved March 2, 1929, years ended June 30, 1930, 1931, and 1932, showing number denied by causes and by races and number withdrawn, by sex, as specified Causes 1930 1931 1932 Total Number denied 1,125 2,493 2,477 6, 095 Statutory causes for denial, total 401 856 953 2,210 Failed to establish continuous residence since June 3,1921 285 539 674 1,498 Not of good moral character 109 287 252 648 Subject to deportation 5 22 20 47 Ineligible to citizenship 2 8 7 17 Other causes of denial, total 724 1,637 1, 524 3,885 Record of permanent admission found 659 1,175 1,305 3,139 Failed to appear for examination 38 373 161 572 United States citizens- „ - - 12 28 10 50 Departed from the United States without awaiting final action. 9 29 19 57 Applicants now deceased 6 32 29 67 RACE All races 1,125 2,493 2,477 6,095 English _ - - 71 139 132 342 German _ ______ 80 190 147 417 Greek 80 151 120 351 diebrew _ _________ ______ 37 223 278 538 Italian - .. - - - 133 269 359 761 -A Mexican Polish - 106 330 292 728 70 195 180 445 Scandinavian (Norwegians, Danes, and Swedes) 70 123 87 280 Spanish _ _ - - 63 118 120 301 All other 415 755 762 1,932 SEX Male - - - 908 2,107 2,084 5,099 Female 217 386 393 996 Applications withdrawn 114 238 238 590 Male 86 185 179 450 Female 28 53 59 140 Respectfully submitted. Harry E. Hull, Commissioner General. CHILDREN’S BUREAU Grace Abbott, Chief Katharine F. Lenroot, Assistant Chief To the Secretary of Labor: The following is a summary of the activities of the Children’s Bureau for the year ended June 30, 1932: In August, 1932, the Children’s Bureau will have completed 20 years of service. The aims of those who sponsored its creation, as stated in an article in the New York Times of September 29, 1912, were “ to provide a common channel into which all the streams of child interests flow; * * * first, by considering the welfare of children as a whole, with the interrelations of various child problems; and second, by considering the United States of America as a whole, with the interaction of various State laws and customs.” The Children s Bureau was made an instrument of national leadership and national service by its first chief, Julia C. Lathrop, who directed its activities from 1912 to 1921, and who cherished the bureau as her fondest interest until her death on April 15 of this year. In the spirit of Miss Lathrop’s efforts to conserve the Nation’s childhood during the war years, the Children’s Bureau has endeavored in a variety of ways, within the limits of its resources, to serve those who are striving to protect children from the still more devastating effects of unemployment. Without additional appropriations the bureau has reorganized its work so as to give chief emphasis to the problems of children affected directly by unemployment. At the same time, ;t has continued its scientific studies in the fields of child health, child labor, recreation, dependency, and delinquency, and the preparation and distribution of popular and scientific bulletins. These activities furnish a continuing basis for maintaining the ground won and for advancing, when possible, in the effort to assure fuller opportunity and greater protection to the children of America. Unemployment and child welfare. Family-relief expenditures in cities.—In September, 1930, at the request of the President’s Emergency Committee for Employment, the bureau began to furnish that organization and other agencies concerned with the problem on a national scale with monthly relief reports collected by mail and telegraph from social agencies in cities of 50,000 or more. This work was made possible through the assistance of community chests and councils in the 38 metropolitan areas that had been cooperating by furnishing monthly reports covering a wide field of social and health service (see p. 101), by family-welfare agencies and those serving the transient and homeless, and by the Russell Sage Foundation, which had been assembling statistics on 146746—32---------7 89 90 ANNUAL REPORT SECRETARY OF LABOR relief in a number of cities not reporting to the Children’s Bureau. The reports were continued and expanded during the fiscal year 1932. They have proved useful in national, State, and local planning for unemployment relief. The Children’s Bureau and the Russell Sage Foundation also cooperated with the United States Bureau of the Census in a survey of the amount of relief and the numbers of families and of persons aided in the first quarter of 1931 as compared with the first quarter of 1929. Figures for cities reporting to the Children’s Bureau or the Russell Sage Foundation were supplied to the Bureau of the Census by the two organizations. The report, published by the Census Bureau under the title “Relief Expenditures by Governmental and Private Organizations, 1929 and 1931,” covered both urban and rural areas. As the census has not collected subsequent figures, the Children’s Bureau is now the only Federal' agency compiling reports relating to unemployment relief. In January, 1932, with the approval of the bureau’s advisory committee on social statistics, an agreement was reached for the combination of the two series of reports being collected by the Russell Sage Foundation and the Children’s Bureau into one for which the Children’s Bureau assumed responsibility. The peak of relief expenditures for the winter of 1931-32 was reached in March, 1932, representing a continuous rise of seven months, beginning in September. March relief was higher than relief for any previous month during the period of the depression. Expenditures of $28,274,678 were reported for 124 cities, representing 56 per cent of the urban population and 31 per cent of the total population of the United States, and approximately 1,000,000 families were on the relief rolls in these cities. Relief in April showed a sharp but seasonal downturn of 16 per cent, the amount of relief for 125 cities being $23,649,269. May figures show a further reduction of 6 per cent and an expenditure of $22,310,417 in 126 cities. In June these cities showed a reduction of 1 per cent, expending $22,960,285. Meals served to transient and homeless persons in March in 67 cities totaled 1,458,102, and number of night’s lodgings 486,405. In April the daily average of meals served declined 14 per cent, the number of lodgings furnished nightly dropped 8 per cent. May declines of 23 per cent for meals and 26 per cent for lodgings, and June declines of 4 per cent for meals and 10 per cent for lodgings, were shown. Public funds finance 65. per cent of the total relief, including outright and wage relief and special allowances, such as mothers’ aid and old-age aid, in the cities reporting. A slight increase in the proportion of public relief is indicated in 1932. When March is taken as the peak month, as a measure of the relative increase in the period of the depression, the following figures indicate the amount of relief in cities in each year from March, 1929 (before the stock-market crash), to March, 1932. ANNUAL REPORT SECRETARY OF LABOR 91 Amounts expended from public funds and from private funds for family relief by 809 agencies in 96 cities during March in 1929, 1930, 1931, and 1932, and percentage change Source of relief Amounts expended during— Per cent increase over March, 1929, in— March, 1929 March, 1930 March, 1931 March, 1932 March, 1930 March, 1931 March, 1932 Total Public funds Private funds $3, 605,733 $5,305,482 $16,090, 691 $27, 759,935 47 336 670 2,719,833 885, 900 4,201,187 1,104,295 10, 043, 582 6, 047,109 19,224,088 8, 535,847 54 25 269 583 607 864 State aid for unemployment relief.—Prior to the present depression, public relief was considered a local function, and few States had assumed any responsibility for assistance to the indigent. A few States, chiefly in New England, provided State aid for nonresidents. For example, Massachusetts for more than 100 years has given aid to dependent poor persons not having a legal settlement in the Commonwealth. In 1931 and 1932, as local resources approached exhaustion because of unprecedented need for unemployment relief, 11 States, notably Illinois, New Jersey, New York, Ohio, Oklahoma, Pennsylvania, Rhode Island, and Wisconsin, passed legislation providing some form of State aid to local communities for relief purposes. The Children’s Bureau prepared and published a chart summarizing the provisions of this legislation. A memorandum was prepared on Constitutional Limitations Affecting State and Local Relief Funds, for the use of those considering Federal and State legislative proposals. Safeguarding child health.—A folder prepared by the Children’s Bureau in cooperation with the Bureau of Home Economics of the Department of Agriculture entitled “ Emergency Food Relief and Child Health,” and a 1-page dodger for mothers entitled “How to Spend Your Food Money ” have been widely used by relief agencies desiring to insure that the foods necessary for normal growth and development would be included in relief budgets. To date approximately 75,000 copies of the folder and 125,000 copies of the dodger have been distributed. In spite of the absence of serious epidemics in the past year, reports have come to the Children’s Bureau from communities and agencies of different types, indicating the toll of the depression in terms of the health of children. There are evidences of special health hazards to children and widespread undernourishment with its train of diseases. These conditions can be combatted only by increased vigilance on the part of health and social agencies and the determination of the public that permanent losses to children must be prevented. Unemployment relief in areas of extreme depression.—In last year’s report, surveys of the extent of the need and the available resources for local relief in certain coal-mining counties in Pennsylvania, West Virginia, and Kentucky were described. These studies were undertaken at the request of the President’s Emergency 92 ANNUAL REPORT SECRETARY OF LABOR Committee for Employment. During the past year they have been extended to coal-mining counties in the following States: Alabama, Arkansas, Illinois, Indiana, Kansas, Missouri, Oklahoma, and Tennessee. The lumber industry, like the coal industry, builds up camps in rural territory, dependent solely upon the industry, and communities in the lumber areas of Michigan and Mississippi were included in the bureau’s surveys. The counties selected were, in general, those in which unemployment had been reported to be especially serious and relief inadequate, although each State had other counties in which there was little reason to believe that conditions were much better. The information that formed the basis of the reports submitted to the President’s committee by the bureau was obtained by interviews with public and private relief officials, superintendents of mines, union officials, school principals and teachers, health officers, priests and ministers of local churches, neighborhood grocers and officials of milk companies, and anyone else who could give information as to conditions among the unemployed. As the first draft of the report for each State was prepared, it was made available promptly to the President’s committee and to State welfare officials, chairmen of State employment committees, and executives of private agencies who were interested in relieving conditions and expressed a desire to see the reports. The county studies presented variations of the same story of general unemployment and underemployment, of reluctance of the miners to report their need of assistance, of quite inadequate resources for public aid, and of organized private relief inadequate for the cities or largest towns and able to give practically no assistance to the small mining towns. In the autumn of 1931, through a grant of $225,000 from the American Relief Administration, the American Friends (Quakers) Service Committee undertook to provide food and clothing for children and clothes and garden seeds for adults in a number of coalmining communities. The Children’s Bureau lent the services of two members of its staff for limited periods to assist in getting the work started. By March, 1932, the resources of the Friends had been expanded so that they were feeding approximately 24,000 school children in 6 States and furnishing milk to 3,174 preschool children and expectant mothers. A maximum of 40,000 children was reached. Everywhere, with the small addition of carefully selected food served the school children, a prompt improvement in the appearance of the children and in their mental alertness was reported, and the morale of the miners was greatly strengthened. Exhaustion of funds, however, made it necessary to stop the feeding program early in July except for supplies already on hand. The problem is beyond the resources that can be made available through private help and local public-relief agencies. Outside assistance in meeting emergency problems and in working out some plan for reemployment of the parents is clearly necessary. Transient boys.—Persistent rumors as to the increasing number of boys under 21 who are leaving their homes and hitch-hiking or, more frequently, “ riding the freights,” presumably in search of employment not to be found in their own communities, led the Chil ANNUAL REPORT SECRETARY OF LABOR 93 dren’s Bureau in the spring of 1932 to make brief surveys of the situation. Information was assembled through correspondence with chiefs of police and executives of community chests or councils of social agencies in 25 cities in different parts of the country and through visits to certain points in the Middle West, South, and Southwest. Communities visited for the purpose of the inquiry included St. Louis, East St. Louis, Kansas City, St. Joseph, Memphis, Birmingham, New Orleans, El Paso, and points in Oklahoma, New Mexico, Arizona, Utah, and California. The study revealed a problem beyond the knowledge of the general public and of most public officials and social workers. In autumn,, winter, and spring the migratory army of men and boys flows toward Florida, the Gulf States, the Southwest, and California. Men and boys swarm on every freight train in such numbers that it would be impossible for the railroad police to keep them off. Cities are now providing little social aid to nonresidents. Medical care for those sick as a result of exposure or hardship as a rule is not to be had until the sufferer is in an obviously serious condition. The situation calls for community action, reenforced by statewide planning and national cooperation in (1) keeping boys in their home communities and (2) affording constructive care to boys away from home, so that they will not be “ passed on ” to continue a policy of drift, neglect, and demoralization. The Children’s Bureau is cooperating with the President’s Organization on Unemployment Relief, the National Association of Travelers Aid Societies, and other agencies in promoting plans for more adequate community action both in preventing such movements and in constructive provision for transients. A preventive program includes strengthening of resources for family relief and providing opportunities in their home communities that seem to the boys worth while. Unemployment and child labor.—In 1930 the census enumeration showed that nearly 700,000 children (667,118) 10 to 15 years of age, inclusive, were gainfully employed. Statistics of employment certificates issued to children under 16 going to work in States and cities reporting to the bureau indicate a decrease of 21 per cent in 1931 as compared with 1930. (Seep. 100.) That too many children enter gainful employment at a time when millions of fathers and older brothers and sisters are vainly seeking work is a tragic paradox. Some cities, largely through the efforts of vocational guidance and placement bureaus, have achieved notable success in conserving school opportunities for children and keeping them from competing with adults for the limited number of jobs available. The social cost involved in children leaving school at an early age to take jobs that should go to adults or to suffer the demoralization of unemployment far exceeds the cost of more adequate training facilities that will hold young people in school and in their home communities. Economic conditions point directly to the necessity of increasing the length of the school term and of adding to the number of hours a day the school plant is in use. Industrial hazards affecting employed children. Illegally employed minors under workmen's compensation laws.— The report on the illegally employed minors under workmen’s compensation laws, which is now in press, includes an analysis of legal 94 ANNUAL REPORT SECRETARY OF LABOR provisions and their interpretation by the State agencies administering the workmen’s compensation acts and by the courts, and of such evidence as exists showing the comparative benefits under different types of laws available to minors injured while illegally employed. An account of the procedure followed in the administration of laws providing for extra compensation for illegally employed minors has also been prepared. Regulation of employment of minors in hazardous occupations.— In pursuance of a recommendation of the committee on vocational guidance and child labor of Section III, Education and Training, of the White House Conference on Child Health and Protection, a committee on the regulation of the employment of minors in hazardous occupations was appointed by the bureau, to supplement and continue the study of this problem begun by the conference. This committee, which had its first meeting in Washington in May, 1932, consists of the four members of the White House Conference subcommittee which studied the problems of the industrial hazards to which working minors are exposed, with the addition of leading safety engineers, industrial hygienists, and specialists in the administration of child labor and workmen’s compensation laws. Available information, both as to special hazards and accident statistics and as to the extent of legal regulation of hazardous employment for minors, was prepared by the bureau for the use of members. The committee’s recommendations, which are soon to be published, will list the types and places of employment that, on the basis of information now available, should be prohibited for minors of specified ages because of the accident or health hazards involved and in addition will outline general standards and procedure as aids to enforcement. The committee will continue to study these problems with a view to amplifying or modifying the recommendations from time to time as industrial processes change or knowledge of health hazards increases. Maternal and child health. Maternal mortality.—The report of the study of maternal deaths in 15 States, made in cooperation with the State boards of health and State medical societies, was reviewed in great detail by individual members of the bureau’s obstetrical advisory committee, and was considered at a 3-day meeting of the committee held in January, 1932. Because of the great value of the material, the committee recommended further statistical analysis of a number of points and the publication not only of the detailed technical report for obstetricians but also of a condensed report for more general use. Revision of the detailed report is nearing completion. New Orleans study of infant and maternal mortality.—Study of infant and maternal mortality in New Orleans has been undertaken in collaboration with the New Orleans Parish Medical Society, the departments of pediatrics and obstetrics of Tulane and Dillard Universities, the child welfare association, the city board of health, the Touro Infirmary, and other agencies. Interest has been focused on the relation of the death rates to such factors as age, race, hospitalization, preventive care, attendant at birth, and district of the city in which the deaths occurred. Statistical analysis is being made of the infant-mortality rates for children born in New Orleans during ANNUAL REPORT SECRETARY OF LABOR 95 the year 1930 (the most recent year for which complete birth and death data are available) and of the maternal-mortality rates for 1929, 1930, and 1931. A survey of the facilities available in New Orleans for the care of infants and young children and for maternal care is being made by physicians of the bureau staff, and the report will cover all agencies and institutions that offer facilities for preventive as well as curative care. In addition, the bureau’s consultant in obstetrics has investigated currently the maternal deaths occurring in the city during the calendar year 1932 and reported the findings to a committee of the New Orleans Parish Medical Society. It is the purpose of this committee to study the data presented and to decide as far as possible whether or not the deaths should be considered as preventable. Institutes and courses for doctors.—Short intensive courses in obstetrics for doctors in active practice, carried on for two years with the cooperation of the medical school of Emory University in Atlanta, Ga., were extended during the past year to rural communities in Kentucky and Mississippi. The courses are given on request of the State departments of health and county medical societies. Neonatal morbidity and mortality.—Analysis of material collected in the New Haven study of neonatal morbidity and mortality has continued. Prematurity has been shown to be the chief cause of death in the neonatal period. For this reason and because mortality statistics show that deaths from prematurity have increased in the last 10 years, a special study of the care of premature infants in a number of communities is being made. The object of this study is to determine: (1) What provision is made in hospitals for the care of premature infants and the type of care given; (2) the mortality from prematurity. It is well known that the smaller the premature baby the less the chance of survival, so that total mortality figures (usually the only ones available) are not so valuable as figures compiled by weight groups. Therefore, the cooperation of the hospitals visited has been sought in compiling mortality figures in four groups according to weight at birth. New Haren rickets studies.—During the year two special projects in connection with studies of rickets in New Haven have been undertaken. The first consists of observations of the effect of antirachitic treatment in infancy on skeletal and tooth development in later childhood. Follow-up studies of selected groups of children who had been examined as infants or young children in the bureau’s earlier investigations of the prevention and control of rickets were begun during the past year with a view to studying some of the results of antirachitic measures used in infancy and the ultimate effect of the severer degrees of rickets on skeletal and tooth structures. Two groups of children, now ranging in age from 6 to 15 years, were selected for such follow-up examinations: (1) Children given antirachitic treatment in infancy and known to have had little or no evidence of rickets either by Rontgen ray or by clinical examination during the first year or two of life; (2) children given no planned antirachitic treatment and known to have had at least moderate rickets (some of them severe rickets) at some time during their first three or four years of life. Weight and various skeletal dimensions were taken in each case, and special study was 96 ANNUAL REPORT SECRETARY OF LABOR made of bony deformities that might be ascribed to previous rickets. A detailed examination of the teeth was made in each case by dentists from the Yale University School of Medicine, and in a large number of cases molds of the teeth and dental arches were taken from which stone casts have been made. The second project is an investigation of the value of salmon oil in the treatment of infantile rickets. During the winter and early spring of 1932 there was carried out in New Haven a special investigation of the value of salmon oil in the treatment of infantile rickets. In September, 1931, Tolle and Nelson 1 had reported from the United States Bureau of Fisheries and the United States Bureau of Chemistry and Soils that oil prepared from the waste products of certain species of salmon was twice as potent a source of the antirachitic vitamin as was a good grade of cod-liver oil used for comparison in their biological assays, and they estimated that there was a potential supply of salmon oil amounting to approximately 1,000,000 gallons a year going to waste in the salmon-canning industry. Because of the great need of cheap sources of the antirachitic vitamin for infants and young children, especially in the present period of economic depression and the widespread need for emergency food relief, it seemed urgent that this hitherto untapped source should be made available, provided that clinical tests corroborated the results of the laboratory tests. Clinical tests were undertaken, therefore, and 13 children with active rickets were treated with salmon oil prepared from the waste product of three species of salmon. Each sample of oil was found to have a very prompt antirachitic effect as shown by clinical, Rontgen ray, and blood-chemistry tests. In addition, biological assays of the samples of salmon oil used in the clinical studies are being made in the Bureau of Chemistry and Soils, which is collaborating in the study. If the quantity of salmon oil potentially available in the salmoncanning industry were to be put on the market as a properly standardized food and supplied at low cost through the usual channels for distribution of food, one of the great nutritional needs of children would be more easily and more adequately met. Social-hygiene study.—A survey of the extent to which children are excluded from school because of venereal disease in an infectious stage was made in the District of Columbia in cooperation with the Social Hygiene Society of the District, the attendance department of the public schools, the health department, Children’s Hospital, the children’s division of the board of public welfare, the juvenile court, and other social agencies in the city. It is hoped that as a result of this survey, a plan may be worked out with interested agencies and individuals by which more adequate provision may be made for the regular treatment of many of these children and for their education during periods of exclusion from school. Popular bulletins on child health.—Infant Care, which was completely rewritten in 1929, was again revised in part so as to incorporate the most recent and authoritative information. With the 1 Tolle, C. D., and E. M. Nelson: Salmon Oil and Canned Salmon as Sources of Vitamins A and D. Industrial and Engineering Chemistry, vol. 23, No. 9 (September, 1931), pp. 1066-1069. ANNUAL REPORT SECRETARY OF LABOR 97 same purpose, two of the popular folders were issued in completely revised form—Why Drink Milk? (No. 3) and Sunlight for Babies (No. 5). A similar revision of Folder No. 8, Breast Feeding, was in press at the close of the year. The bulletin on child management is being revised. A leaflet on posture training for children and a list of references for parents on child care are in preparation. Dr. Douglas A. Thom, the author of Child Management, has prepared new material on the problems of the adolescent child which will be published during the coming year. Prevention and treatment of delinquency. Institutional treatment of delinquent boys.—Field work, on the study of boys who had been under the care of State institutions for juvenile delinquents has been completed. Case studies of 308 boys, from Ohio and New York schools, who had been discharged from parole for at least five years were made during the year. The entire study includes 773 boys from five State schools in California, Michigan. New Jersey, Ohio, and New York. Of these boys 624 (81 per cent) were interviewed personally; 32 were located in States or cities too distant to be visited; 81 boys were not located, but considerable information concerning them was obtained from other sources; 21 had died; and 15 were not found. Descriptive studies of each of the institutions were made during the year, and a brief separate report of these studies will be prepared and published in advance of the longer report, which will attempt to evaluate some of the factors in the success or failure of the boys following their periods of residence in the schools and on parole. Study of probation as a means of preventing delinquency.—Work has begun on a cooperative study of what a district probation officer in a city should be expected to do and what constitutes the best preparation for probation work. The study is being carried on in a district of Chicago, with the cooperation of the Juvenile Court of Cook County, the School of Social Service Administration, and the clinics of the University of Chicago. The work, which will be in the nature of a demonstration, will be along two general lines: (1) Supervision of individual delinquent children referred by the juvenile court or of children presenting special conduct problems referred by schools and other neighborhood agencies; and (2) development of community resources that will help to prevent delinquency and to improve the administration of laws designed for the protection of young persons. The Federal juvenile offender.—For more than a decade the Children’s Bureau and the Secretary of Labor have called attention to the problem of the child who violates a Federal law and thus comes under a system of justice not adapted to juvenile problems. With the reorganization of its Bureau of Prisons, the Department of Justice gave special consideration to this problem, and at the Children’s Bureau’s request the National Commission on Law Observance and Enforcement made a new study of this subject. As a result of these statistics, the Attorney General early in the past fiscal year requested the Children’s Bureau to cooperate with the Bureau of Prisons in developing a program of State and local cooperation with Federal authorities in the treatment of juvenile cases. About 45 per cent of the boys and girls arrested for violating Federal laws come from Southern States. The judge of one of the southern juvenile courts 98 ANNUAL REPORT SECRETARY OF LABOR was appointed to the staff of the Children’s Bureau, and part-time services of two other members of the staff were assigned to assist the Department of Justice in developing a new program. This involves: (1) Evaluating State facilities (institutions, courts, detention homes) for the care of juvenile delinquents, and stimulating the development of more adequate resources; (2) developing cooperation on the part of both Federal and State authorities in the use of these facilities; and (3) cooperating with the staff of the Bureau of Prisons in developing more effective procedure on the part of the Federal authorities in dealing with juveniles. In a circular issued August 14, 1931, the Attorney General announced as his policy that “ wherever practicable and consistent with the due enforcement of Federal statutes, juvenile delinquents who come into Federal custody will promptly be returned to the communities from which they come for care and supervision or punishment by the State authorities.” This policy has now been confirmed by an act of Congress of June 11, 1932 (Public Act No. 169, 72d Congress). Under this law, for the purpose of cooperating with the States in the care and treatment of juvenile offenders, United States attorneys, after investigation, are authorized to forego prosecution of any person under 21 years of age if he is subject to the laws of any State that can and will assume jurisdiction, and if such surrender is to the best interests of the United States and of the juvenile offender. The law authorizes payment by the Federal Government of the cost of transporting the juvenile to his home community. In carrying out the cooperative program, 18 State institutions for delinquents have been visited by members of the staff of the Children’s Bureau and reports have been submitted to the Department of Justice. In a number of these institutions Federal juvenile offenders are being cared for under contract with the Federal Government. Cooperation between Federal and local authorities has been worked out through field visits to three States—North Carolina, Georgia, and Alabama. A series of meetings to discuss the program of the Department of Justice and the Children’s Bureau was held in Philadelphia in May during the National Conference of Social Work. At these meetings representatives of State departments of public welfare and of juvenile courts expressed enthusiasm for the policies being developed and willingness to accept responsibility for the care of their own children when referred by Federal authorities. Widespread interest in the subject has been manifested by agencies outside the immediate field of social work, such as State bar associations, law schools, legal journals, the American Legion, and other national organizations. Recreation. For the past four years the recreation specialist of the bureau has given most of her time to furthering recreational programs in rural districts. This work has been done in cooperation with the extension divisions of the Federal and State departments of agriculture in the different States and has reached many groups of older boys and girls and women, and a number of mixed groups of men and women, in a large number of States. There has been a noticeable increase during the past year in the number of adult groups seeking advice and assistance in planning ANNUAL REPORT SECRETARY OF LABOR 99 for wholesome and enjoyable leisure-time activities and social life for their communities. Incomes in rural areas have been materially reduced, and in many localities various forms of entertainment and cultural activities previously brought to the community from other places have been discontinued. Teachers, women’s clubs, and parentteacher associations are feeling the need of developing and enriching the social life of young people and are asking for advice as to developing local abilities and resources and for assistance in planning and carrying out a great variety of recreational activities and community programs. Instruction given to rural groups in the principles and practice of good posture is another type of work that has been given increasing attention during the year. Because of a somewhat reduced appropriation and emergency demands growing out of unemployment, the recreation service of the bureau will have to be greatly curtailed during the coming year. Mothers’ aid. During the year information as to the extent to which aid fcxr mothers with dependent children is available was obtained from the District of Columbia and the 44 States in which mothers’ aid laws had been in operation during 1930. In 27 States the State department of public welfare has been given authority to obtain reports as to mothers’ aid administration from local administrative agencies. Many of the departments in these States and a few others not directed by statute to obtain this information cooperated with the bureau by sending out questionnaires to the counties and compiling statistics for the State. The bureau obtained information directly from the counties in the remaining States. This country-wide survey of mothers’ aid administration is the second that has been undertaken by the bureau. In 1921 and 1922 information as to aid given to mothers with dependent children was obtained from the 40 States that then had mothers’ aid laws. The statistics available at that time did not give information as to the number of children aided on a definite date, but it was estimated that approximately 121,000 children were receiving aid at a given time. The figures obtained in 1931 show for the 44 States and the District of Columbia, which were granting aid on June 30, 1931, that nearly 93,000 families with approximately 250,000 children were benefiting by mothers’ aid laws on that date. The total amount reported as paid to families during the year, exclusive of administrative expenses, was approximately $35,800,000, at an average annual per capita cash expenditure for the population in the areas granting mothers’ aid of 40 cents. Expenditures in the different States varied from 3 cents per capita in North Carolina to 82 cents in New York. Cooperation with State and county agencies. A number of requests for assistance in studying local and State resources for the care of children were received during the year from State departments and commissions. Owing to limitations in staff, services were given in only a few States. Field work in a study of child welfare in Iowa was completed just before July 1, 1931, and during the summer a report on the 100 ANNUAL REPORT SECRETARY OF LABOR findings of this study was prepared. This report was presented to representatives of public and private agencies interested in the childwelfare work of the State. Field consultation services were provided to the Kansas Public Welfare Commission, which had undertaken a survey of the childwelfare needs of the State. During December a member of the staff was released to the Pension Survey Commission of New Jersey to assist in working out a plan for reorganizing the child-welfare activities for which joint responsibility had been assumed by the State and local public agencies. Visits were made during the year to a number of States to complete the bureau’s study of child-welfare functions of State departments. A report of this work is in preparation. Child welfare in Puerto Rico. As a result of the bureau’s study of dependency and neglect in Puerto Rico, made during the fiscal year 1931, the governor and the insular child-welfare board requested continuation of the bureau’s consultative and advisory service. A specialist in child dependency was sent by the bureau to the island for five months, from November, 1931, to April, 1932, to work with the insular child welfare board. Current child-welfare statistics. Trend in child labor.—Reports of employment certificates issued to children going to work in States and cities reporting to the bureau furnish a rough index of the trend of child employment. In 1929 these reports, for the first time since 1926, showed a general increase. In August, 1929, however, a decline became noticeable, and this has continued to the present. The decrease for comparable localities was 34 per cent in 1930 from 1929 and 21 per cent in 1931 from 1930. Among the 34 cities in which more than 200 certificates were issued in 1930, 28 showed a decrease in 1931 ranging from 5 per cent to 65 per cent. In 23 States, the District of Columbia, and 36 cities of 50,000 or more in 11 other States, 78,859 children 14 and 15 years of age received in 1931 first regular employment certificates permitting them to leave school for work. In 5 States, the District of Columbia, and 34 cities in 7 other States the number of 16 and 17 year old minors issued such certificates was 55,735. The general decrease in 1931 may be attributed in large part to the decrease in opportunity for employment. The 1930 census figures, however, which have recently become available, show a decrease since 1920 that is too large to be explained wholly by unemployment. A total of 667,118 children 10 to 15 years of age, inclusive—1 in every 21 of these ages—were gainfully employed in 1930, compared with 1,060,858, or 1 in every 12, in 1920. This represents a decrease from 8.5 per cent of all children of these ages in 1920 to 4.7 per cent in 1930. A decrease of 38 per cent took place in the 10 to 13 year old group, but in 1930 there were still 235,328 of these children under 14 gainfully employed. Though the number of employed children 14 and 15 years old was 37 per cent less than in 1920, it still amounted to 431,790, or 1 in every 11 children of those ages, as compared with 682,795, or 1 in every 6, in 1920. In the 16 and 17 year old group 1,478,855 boys and girls were employed (1 in every 3), compared with 1,712,648, or 1 in every 2, for those ages in 1920. ANNUAL REPORT SECRETARY OF LABOR 101 These figures indicate that the employment of young children is still a serious problem—all the more so because at the time the 1930 census was taken there was widespread unemployment among all workers. Although the census reports of school attendance show many more in school than was the case a decade ago, 1,332,872 children 7 to 15 years of age, inclusive, were not enrolled in any school; 811,166 of these were under 14 years. Nearly 2,000,000 boys and girls 16 and 17 years old were not enrolled in school. juvenile-court statistics.—For the calendar year 1931 reports of cases of children dealt with by juvenile courts were received from all the courts in two States (Connecticut and Utah) and from 72 courts in 21 other States and the District of Columbia. In addition to adding the State of Connecticut to the reporting area, several changes occurred in the list of cooperating courts. Five courts serving areas with more than 100,000 population and 3 serving a somewhat smaller group were added, and 18 courts in counties with smaller populations discontinued reporting. These changes are in accord with the program of the bureau for furthering state-wide reporting through a State agency, while for the present, the bureau receives reports from courts in the larger centers of population. The 78 courts now cooperating with the bureau serve about 22 per cent of the population of the United States and reported 59,439 delinquency cases, 22,317 dependency and neglect cases, and 1,116 cases of other types over which the courts had jurisdiction. Reports were received also of 17,336 cases of children who had been discharged from supervision after a period of probation or supervision. Social statistics in metropolitan areas.—Definite progress has been made during the year in the collection and analysis of social statistics under the cooperative plan taken over by the Children’s Bureau on July 1, 1930, following a period of experimental development by the local community research committee of the University of Chicago and the National Association of Community Chests and Councils. Monthly reports showing the volume and type of service rendered in 22 fields of social and health work were received during 1932 from 38 metropolitan areas included in the social-registration project and from 3 other areas that are on probation until the reporting is developed satisfactorily. These areas are located in all parts of the United States and include about 15 per cent of the total population of the country. Summaries of important items in the reports, were issued monthly to each cooperating agency through December, 1931. Because of the cost involved in the monthly reporting of detailed tables and the need for summarizing and interpreting the mass of data presented so as to show the most significant trends, a brief monthly news bulletin on social statistics in child welfare and related fields will be substituted for the monthly tables during the coming fiscal year. Annual reports for the year 1930 in all fields have been published or are in preparation. Legislation relating to children. During the past fiscal year regular legislative sessions were held in 9 States—Kentucky, Louisiana, Massachusetts, Mississippi, New Jersey, New York, Rhode Island, South Carolina, and Virginia. 102 ANNUAL REPORT SECRETARY OF LABOR Eighteen State legislatures met in special session. Inasmuch as the major issues in the large majority of these States were relief of unemployment and curtailment of expenditures, few measures relating to other subjects of social welfare became laws. Seven States passed measures authorizing State aid for relief in the following amounts—Illinois, $20,000,000; New Jersey, $9,616,-033.50; New York, $25,000,000; Ohio, $22,015,000 (estimated—proceeds during 1932 from certain taxes); Pennsylvania, $10,000,000; Rhode Island, $2,540,000; Wisconsin, $7,000,000 (estimated—proceeds from special taxes). In addition, New Jersey proposed a bond issue of $20,000,000 for relief and New York a bond issue of $30,000,000 for relief, to be submitted to the voters of the respective States. Little legislation affecting children in industry was enacted. So far as available information indicates, the year may be characterized from the viewpoint of improvement in child-labor standards as one of considerable effort but slight advance. Several attempts to break down present standards were likewise unsuccessful. Significant progress, on the other hand, was made in Louisiana. An educational' requirement was set up for the first time for the child going to work—sixth grade or eight years’ school attendance in New Orleans—and provision was made in New Orleans for a vocational counselor to give guidance to children leaving school for work and a safety engineer to inspect places of employment and require safe conditions for workers. Legislation also was enacted providing for the establishment of continuation schools in certain places for employed children and requiring their attendance. New Jersey authorized the commissioner of labor to determine what occupations are hazardous for minors under 18 and prohibited their employment in such occupations. Kentucky authorized a survey of public education and required that every common-school district receiving aid from public taxation provide school for the minimum legal school term. Among social-welfare measures enacted during the year were the Kentucky law creating a State department of public welfare, to which were transferred all the powers and duties formerly vested in the State board of charities and corrections and in the commissioner of institutions; the Rhode Island law establishing a bureau of probation, parole, and criminal statistics under the direction of the State public-welfare commission; the revision of the New Jersey laws relating to mothers’ aid and the care of dependent children to remove the maximum limitation on relief grants and liberalize the eligibility requirements for mothers’ aid, so as to make possible the transfer of a large number of children from the dependency division to the mothers’ aid division of the State board of children’s guardians ; and the first appropriation by the State of Virginia for mothers’ aid. State child-welfare commissions. State commissions interested in improving legislation relating to child welfare or social welfare have been active during the past year in several States. Massachusetts passed three of the bills recommended by the Children’s Commission in 1931. The New Jersey Pension Survey Commission drew up and recommended five bills relating to dependent children, all of which became law. In the ANNUAL REPORT SECRETARY OF LABOR 103 States in which the legislatures did not meet, the commissions have been making studies and laying plans for the coming year. New reports issued and distribution of publications. During the fiscal year 1932, 24 new and 3 revised publications were issued, in addition to 18 issues of planographed tables in the field of social statistics. Twelve publications were in press at the close of the fiscal year. The most important of those issued are as follows: Infant and child hygiene—No. 8, Infant Care (revised 1932); No. 50, The Child From One to Six; his care and training (revised Janu-ary, 1931); Folder No. 3, Why Drink Milk? (revised); Folder No. 5, Sunlight for Babies (revised); Emergency Food Relief and Child Health; How to Spend Your Food Money. Child Labor.—First Regular Employment Certificates Issued to Working Children in 1930; No. 210, Employment of Mentally Deficient Boys and Girls. Delinquency and Dependency.—No. 206, Child Welfare in Selected Counties in Washington; No. 207, Juvenile-Court Statistics, 1929, based on information supplied by 96 courts; No. 208, Leisure-Time Activities of Rural Children in Selected Areas in West Virginia; Improvement in Rural Public Relief, the Lesson of the Coal-Mining Communities. Social statistics in child welfare and related fields.—Annual reports for the year 1930 on family welfare (including mothers’ aid and veterans’ aid); temporary shelter for homeless or transient persons and travelers’ aid; legal aid; protective case work for young people and maternity homes; number of aged in public and in private institutions, 1930; care of children in day nurseries; 10 monthly statistical reports on child welfare and related fields; 8 current reports on statistics of relief. Child-Welfare News Summary.—The Child-Welfare News Summary was issued 26 times during the past year and sent to a mailing list of approximately 1,100 child-welfare agencies and publications and persons actively engaged in child-welfare work. For reasons of economy it has been found necessary to suspend regular issuance of the Child-Welfare News Summary during the fiscal year beginning July 1, 1932. It is hoped that issuance may be resumed at a later date. Approximately 1,850,000 publications wTere distributed. The distribution of the popular publications on the care of the mother and child was as follows: Prenatal Care________________________________________ 228, 828 Infant Care__________________________________________ 567, 288 The Child From One to Six---------------------------- 287, 837 Child Management-------------------------------------- 86, 080 Are You Training Your Child to be Happy?_____________ 45,189 General increase in the work of the bureau. In last year’s report attention was called to the great increase in demands upon the Children’s Bureau. During the past year the number of letters received by the bureau was approximately 185,000, an increase of approximately 16,000 over the previous year. Each year requests for service multiply, coming from other Federal departments, national agencies, and State and local organizations, both public and private. To the best of its ability the bureau meets these 104 ANNUAL REPORT SECRETARY OF LABOR demands, but because of an inadequate staff it is forced to refuse many opportunities for improving facilities for dealing with problems of child welfare and family life. Recommendations. The depression will seriously endanger the future welfare of the whole citizenship if children are not adequately protected now. Social and health agencies, both public and private, have made great efforts during the past year to prevent and relieve distress, and unemployed parents have done much to keep their children ignorant of the mental anguish they were suffering. The Department of Labor has tried in various ways to keep the general public and public and private social agencies informed as to special needs and the resources that might be tapped to meet these needs. The demands upon the Children’s Bureau for factual material, for local surveys, and for consultation and advice have so multiplied that much of the important regular work of the bureau has been postponed or temporarily suspended to meet emergency calls growing out of the depression. Whatever sacrifices the present situation requires, the agencies serving children must be supported, and the needs of children must be the first to be met. We must go forward with the whole program for children. “ Protective foods ” may be the first requirement, but schools, playgrounds, agencies for preventing delinquency, organizations caring for dependent children in their own homes and outside when necessary, must also be maintained, and, in many instances, their resources must be expanded to meet unprecedented needs. On the basis of the experience that is behind us, we should be able to do more in the coming year than in the past, and with the knowledge of needs that have not been met, prepare to meet them now. Respectfully submitted. Grace Abbott, Chief. BUREAU OF NATURALIZATION Raymond F. Crist, Commissioner Thomas B. Shoemaker, Deputy Commissioner To the Secretary of Labor: The following is a summary of the activities of the Bureau of Naturalization for the fiscal year ended June 30, 1932: There were 101,345 declarations of intention made during the fiscal year 1932, which is a decrease of 4,927 under the preceding fiscal year, but an increase of 39,207 over 1930. Of the declarations made, 75,145 were by males and 26,200 by females. The petitions for citizenship filed during the fiscal year equaled 131,062, a decrease from 145,474 filed during the fiscal year 1931. These 131,062 petitions represented 89,788 males and 41,274 females. There were included with these petitions 19 filed by veterans of the World War, who filed their petitions under the terms of the act of May 25, 1932. This act granted exemptions from the general provisions of the naturalization law to alien veterans of the World War, and at the same time provided safeguards relating to residence and character. The number of certificates of citizenship issued was 136,600, of which 95,901 were issued to males and 40,699 to females. This shows a decrease of 6,895 under the number of certificates issued in 1931. There were 5,478 applicants for citizenship denied admission by the courts. On applications for new naturalization papers in lieu of such papers declared by their owners to have been lost or destroyed, the bureau issued 3,148 new certificates and 3,701 new declarations, a total of 6,849 new papers. There were 788 applications received from persons who believed themselves to have derived citizenship through the naturalization of their parents or through marriage, and 552 certificates of citizenship of this character were issued. The bureau received during the fiscal year 37,724 immigration visas, making a total of 1,924,709 since July 1, 1924. It also received 37,526 duplicate immigrant-identification cards during the year, or 655,727 of these cards since July 1, 1928. The bureau received during the year from the Bureau of Immigration 16,384 records of immigration registry made under authority of the act of March 2, 1929, as compared with 17,479 received during the previous year. Under the act referred to, a total of 41,561 records of registry have been received and filed and 23,754 certificates of arrival issued therefrom. For verification from these records, the bureau received 41,011 applications for certificates of arrival for declarations of intention, 41,042 for petitions for citizenship, and 189 for certificates of deriva-146746—32---------8 . 105 106 ANNUAL REPORT SECRETARY OF LABOR tive citizenship, making a total of 82,242 applications. The Ellis Island office received 62,749 applications for certificates of arrival for declarations of intention and 68,448 for petitions for citizenship, which includes applications for derivative citizenship, or a total of 131,197. This makes a total of 103,490 for declarations of intention and 109,679 for petitions received in both the bureau and Ellis Island office, aggregating 213,439. During the preceding year the bureau received 50,350 applications for certificates of arrival for declarations of intention and 12,409 for petitions for citizenship, a total of 62,759, and Ellis Island received 70,559 applications for certificates of arrival for declarations of intention and 104,933 for petitions for citizenship, a total of 175,492, aggregating 238,251. From the records of the bureau there were issued 39,021 certificates of arrival for declarations, 40,716 for petitions, and 165 for derivative citizenship applications, making a total of 79,902 certificates of arrival issued during the year. The bureau received from the Immigration Bureau, for verification from the immigration visas and identification cards, 52,261 applications from aliens for permits to reenter the United States after temporary absences abroad, as compared with 42,878 applications received during the fiscal year 1931. Of these, 46,032 claims of legal admission were verified and 6,229 could not be located, did not show legal admission for permanent residence, or were found to be frauds. During the year the bureau detected 838 cases of aliens applying for certificates of arrival who had not been lawfully admitted for permanent residence, or where doubt existed as to their immigration status. These were reported to the Immigration Service for possible deportation. Receipts from naturalization fees amounted to $2,835,948.17, of which $1,720,762.75 was collected by the clerks of naturalization courts and $1,110,952.41 by the bureau and its field offices. In addition, $3,955 was reported by the Department of Justice in fines, penalties, and forfeitures, and $278.01 was received as miscellaneous moneys, making a total of $2,835,948.17 for the fiscal year. The unsettled accounts from previous fiscal years brought forward July 1, 1931, amounted to $972,306. There was deposited in the Treasury of the United States $2,967,755.93 to the credit of miscellaneous receipts, $69,419.82 was refunded to aliens, and $6,811.08 transferred to the Department of Labor trust fund, leaving a balance of $764,267.34, representing unsettled accounts undeposited at the close of the year. The total receipts for the preceding fiscal year as a result of the administration of the naturalization law was $3,117,483.03. The total number of vouchers, abstracts, and pay rolls examined was 25,994, of which 731 were monthly abstracts for fees collected by the district directors of naturalization under the act of March 2, 1929, and 14,765 vouchers that were prepared for refunds of claims, which amounted to $68,359.07. At the close of the fiscal year there were 439 persons engaged in the administration of the naturalization law, of whom 121 were in the bureau and 318 in the field service, which includes 17 United States attorneys and their assistants appointed without additional ANNUAL REPORT SECRETARY OF LABOR 107 compensation as special naturalization examiners in Alaska, Hawaii, Puerto Rico, and the Virgin Islands. The separations from the service during the year were 41; by resignation 28, by dismissal 2, by death 5, and by retirement 6, while 25 appointments were made. A total of 26,135 copies of the Federal Textbook on Citizenship Training were supplied to public-school classes for declarants and petitioners for citizenship receiving instruction. At the close of the fiscal year 1,803 State courts and 261 United States courts were exercising naturalization jurisdiction, as compared with 1,816 State courts and 261 United States courts at the close of the preceding year. These courts held 3,895 sessions, at which 142,078 petitions for citizenship were heard and 136,600 certificates of citizenship were granted. The representatives of the bureau attended in person 2,910 court sessions, through correspondence 951, and in only 34 sessions was the Government not represented. This work necessitated personal examination by the Naturalization Service of 396,553 petitioners and witnesses, and 17,459 to be examined through correspondence. The field-service offices reported 978,-201 incoming and 1,297,058 outgoing pieces of mail, while the bureau received 267,305 and sent out 241,145. Depositions were taken by members of the field offices to the number of 23,959 from witnesses to petitions for citizenship to prove residence and good moral character of the petitioners, as compared with 23,644 during the preceding year. During this year Congress has made further amendments to the naturalization law and removed unnecessary hardships that had confronted aliens desiring citizenship. The main changes in the law were in the cases of the removal of the requirement of certificates of arrival by aliens who arrived in the United States prior to June 29, 1906, and renewing for two years the right to simplified naturalization for World War veterans of the armed forces of this country who served during the period of activities and who are legally residing in the United States. There has been no relaxation during the fiscal year just closed in the determined efforts by the bureau and field service to eliminate grafting and other imposition upon applicants for citizenship. Criminal prosecutions upon a large scale have been successfully instituted. Additional indictments were returned against naturalization runners, professional witnesses, and ineligible applicants in the Boston district. Prosecutions have been successful in the Pittsburgh district. A runner who had served a penitentiary sentence for violation of the naturalization laws has confessed to a number of similar crimes. Numerous naturalization frauds in Chicago have been successfully dealt with through judicial sentence. The most important criminal proceedings have taken place in the New York district. Here, unscrupulous lawyers, associated with a number of native and foreign born naturalization runners and grafters, operating on a wholesale scale, were discovered and successfully prosecuted. They had collected thousands of dollars for fraudulently manipulating naturalization applications and falsifying records of arrival. In this group, all of the defendants, including a prominent attorney and a number of runners, pleaded guilty to 15 108 ANNUAL, REPORT SECRETARY OF LABOR indictments containing approximately 60 separate counts. There w ere other indictments pending at the close of the year. The Circuit Court of Appeals for the Third Circuit, in the Sixto Mestres-Janssens case (55 F. (2d) 881), upheld the requirement that there be strict proof of the possession by the applicant for citizenship of good moral character during the entire required period of his residence in the United States, and due proof of such character by witnesses having the requisite knowledge to enable them to testify thereto. The continuity of residence was held to have been completely broken by four years of voluntary absence of the applicant from the United States. The court held it to be perfectly manifest that the witnesses could not be qualified to establish applicant’s good moral character during his absence. The Supreme Court, on October 19, 1931, denied certiorari in the case of Sadi v. United States (284 U. S. 643). Sadi had entered the United States as a bona fide student and was not admitted for permanent residence and charged to the quota allotted to the country of which he was a native. The court held that he could not be naturalized because he had not been admitted for permanent residence. Respectfully submitted. Raymond F. Crist, Commissioner of Naturalization. WOMEN’S BUREAU Mary Anderson, Director Agnes L. Peterson, Assistant Director To the Secretary of Labor: The following is a summary of the activities of the Women’s Bureau for the year ended June 30, 1932: COMPLETED STUDIES The employment of women in vitreous enameling. This is a study of the enameling departments of about 50 plants, practically all making stoves, and of home interviews with nearly 700 women employed in those plants at the time or within the 12 months next preceding. Stove enameling, a new and growing industry, employs considerable numbers of women; and wherever the enamel used has a lead content of more than a very small per cent the women are likely to contract lead poisoning. In the present study, 44 per cent of the women who did spraying in plants using a lead enamel had symptoms of poisoning, two-thirds of them having three or more symptoms. The establishments varied greatly, from poor to excellent, but in no establishment was the medical service adequate and in only a small minority was there adequate provision for cleanliness. Furthermore, in very few States are working conditions in the lead trades regulated adequately by law. The survey was made with the cooperation and scientific assistance of Dr. Alice Hamilton, assistant professor of industrial medicine at Harvard Medical School and an authority on lead poisoning. Bookkeepers, stenographers, and office clerks in Ohio, 1314 to 1929. The earnings and trends of employment of office workers in Ohio, male and female, over the 16-year period 1914 to 1929, are the subject of a bulletin published by the bureau in the past year. The figures were analyzed by the director of the Ohio Information Bureau on Women’s Work. Women office workers in Philadelphia. The data used in this report were obtained from preliminary tabulations of the employers’ reports in 44 business houses in Philadelphia, employing 6,057 women, visited in connection with the bureau’s extensive survey of office work for women. The firms were insurance companies, public-utility concerns, publishers, banks, and investment houses. Only 11.2 per cent of the women worked primarily on machines other than typewriters; one-half of these used bookkeeping and billing machines, principally in banks. Machines appeared not to 109 110 ANNUAL REPORT SECRETARY OF LABOR have caused the discharge of employees, but to have resulted in their transfer to other work. However, repeated references to the saving of labor were made by officials, so it may be assumed that employment opportunities had decreased. The range of monthly salaries was from less than $50 to $300 and over. More than one-half of the women received less than $100, the median for the group as a whole being $98. The usual hours of work were not long. Forty per cent of the women had a day of 7 hours or less and a week of less than 40 hours. Women office workers in St. Louis. The other city for which information on office workers has been tabulated is St. Louis, surveyed early in 1932. The report covers 50 firms—insurance companies, banks and investment houses, public utilities, publishers and advertising firms, and chain stores and mail-order houses—and their 2,963 women employees. Women operating machines other than typewriters formed 10.7 per cent of all in the study, their number being exceeded only by general clerks, stenographers, and typists, who formed, respectively, 35.8 per cent, 19.5 per cent, and 13.9 per cent of the total. The range of monthly salaries was from $30 to more than $300. More than two-thirds of the women had rates below $100, the median for all being $87. The most common hours’ schedule was a 7^-hour day and a 42-hour week. Women in the cigar and cigarette industries. The bureau’s report of the effects on women of the change from hand work to machine work in the manufacture of cigars and cigarettes is in press. The data include pay-roll figures for more than 28,000 women, personal information for more than 14,000, and home interviews with 1,400 women who had lost their jobs by the closing or removal of factories. Of interest in this connection is the fact that the census of occupations for 1930 reports a reduction since 1920 of 56,000 workers, more than 23,000 of them women, in the cigar and tobacco industries. Women in the sewing trades of Connecticut. At the request of Governor Cross, a study of the economic status of women engaged in the manufacture of wearing apparel in the State of Connecticut was made by the bureau in the autumn of 1931. The 106 establishments visited employed 7,775 women and girls, more than 80 per cent of the total in clothing industries reported by the 1930 census of occupations for that State. Almost 4,800 women reported their ages. They were a very young group; 34 per cent not yet 20 and about 20 per cent not yet 18. Few of the firms supplying records for this survey were recent arrivals in Connecticut, but a tabulation has been made of three that had located in the State in 1931. These are concerns too small for the drawing of general conclusions, and they are not typical of the average plant visited during the survey, but they are described here as illustrating a tendency in so-called “ runaway shops ” to exploit the very young to the disadvantage of the mature woman wage earner dependent for a living on the same type of job. In these factories only 2 of the 105 employees reporting age were as much as 20 years old, one-sixth were not yet 16, and the majority were 16 and ANNUAL. REPORT SECRETARY OF LABOR 111 under 18. More than three-fourths of the 102 for whom the hours were reported had worked at least 40 hours; one-half had worked as long as 50 hours. The majority were operating power sewing machines. The median of the week’s earnings fell between $4 and $5 for the total group for whom hours worked were reported, and for those who had worked more than 48 hours it fell between $5 and $6, shocking wages even when allowance is made for the youth and inexperience of the workers. One-half of the factories included in the survey were contract shops. In practically all these cases the materials were cut by the owner in New York and sent to the Connecticut contractor for making up. Though a week of 44 hours is practically the rule in the clothing trades, about three-fifths of the establishments visited had a normal week of more than 48 hours. Ten had a standard of more than 50 hours. Almost one-half of the women whose hours were reported had worked 44 and under 52 hours. Over 1,000 women, though less than one-fourth of the total, had worked less than 40 hours, many of them much less. At the other extreme were 665 who had worked at least 52 hours, many of them 60 or 65 hours and in a few cases on 7 days. The orders in the dress contract shops invariably were rush orders. One week there might be so many that the entire plant worked overtime and the next week there might be no orders and the shop would be practically closed. Of the 215 women who worked more than 55 hours, three-fourths were in contract shops. The medians of the women’s earnings in the pay-roll week selected ranged from $9.65 in men’s shirts to $16.15 in neckties and cravats. The median was $12.35 for the total of 7,631 women in all groups combined. Wages and hours in North Dakota. To make available data regarding working women in North Dakota, a study was made at the request of the minimum wage department of the workmen’s compensation bureau in the fall of 1931, State and Federal agencies cooperating in the survey. Almost 10 years had elapsed since the wage standards for women now in effect were established, and for this reason information regarding hours, wages, and working conditions was desired. Twenty-one cities and towns were visited, and records were obtained for 1,742 women employed in 204 establishments. Made-work relief for white-collar unemployed. The bureau cooperated with the President’s organization on unemployment relief (committee on administration of relief) by a survey, in Eastern and Middle Western cities, of the extent and kinds of made-work relief for white-collar unemployed. This report was printed by the committee. STUDIES IN PROGRESS Business and professional women. The bureau’s analysis of the 20,000 questionnaires made out by members of organizations in the National Federation of Business and Professional Women’s Clubs still is far from completed. At 112 ANNUAL REPORT SECRETARY OF LABOR present the important matter of responsibility for dependents is being worked up into a separate report, some 14,000 women having replied to these inquiries and 9,100 stating that they had dependents. The women who said they had total dependents, no one sharing the responsibility, were 24 per cent of the 14,000 reporting and 38 per cent of the 9,100 with dependents. The employment of women in offices. The importance of the bureau’s extensive study of office employment in businesses having large numbers of women clerical workers is clear when it is realized that clerical work ranked second among the various occupation groups for women in the census of 1930, an advance from third in rank that was its place in 1920. Figures for the various cities will be published as rapidly as they can be tabulated and analyzed. More than 5,000 questionnaires filled in by women workers in offices, reached through Young Women’s Christian Association clubs and camps, are now being analyzed. Hours and production. Since it is apparent that the larger the fund of general knowledge the easier it will be for engineers, employers, and workers to arrive at the most efficient hours for their special industries or establishments, the bureau undertook some time ago a comparison of women’s output under shortened hours in a number of industries where records were said to be available. The insufficiency of such records in several cases is evident in the bureau’s analysis of method and results. The findings of this survey will be published within the next few months. Women in State labor administration. This study, made in the field and from State and other records, is designed to show the existing status and the historical background of women’s participation in the administration of labor laws in the various States. Fluctuation in employment of women in cotton mills in 1931. The field work of a survey of about 130 cotton mills in a southern textile State has just been completed. In 85 mills the numbers employed month by month for one year were secured; in 126, pay rolls were copied. The information, covering 16,000 women, is now being tabulated. Women in Texas industries. A state-wide survey of hours, wages, and working conditions of women in Texas has been made by the Women’s Bureau at the request of the commissioner of labor of the State. The survey covered approximately 15,000 women. The 6-hour day in a food-manufacturing plant. Field work has recently been completed in a study of the effects on women of a change from eight to six in the daily hours of an important food-manufacturing plant. Hours, occupations, and earnings under the two systems were inquired into, as were the matters of fatigue, use of extra time, arrangements for meals, distance from home, and comments as to preference. Four hundred women were interviewed in their homes. ANNUAL REPORT SECRETARY OF LABOR 113 Unemployed women in Detroit. This is a study of employment fluctuation and the economic status of 560 unemployed women seeking work through various employment agencies in Detroit in the early months of 1930. Household employment in Chicago. An analysis of questionnaires returned by 250 employers and by 250 employees in a study undertaken to learn the character of the demand and the supply in this field and the outstanding difficulties in employment relations. The occupational progress of women. In 1922 the bureau published under this title an interpretation of the Federal census statistics of women in gainful occupations in 1920. Ten years later the same thing is being done with the recently published figures on women in gainful occupations in 1930. These bulletins, among the most useful of the bureau’s analyses of important secondary material, make clear how many women are at work, where they are, what they do, and how their proportions in various occupations are changing. Work of the research division. Research activities have included five main types of work: The preparation of major reports for publication; the compiling of memoranda of a less exhaustive character; the continual observation and notation of changes in statutes and rules affecting employed women and of material showing the frequency and character of the occurrence of accidents to women; the issuance of a monthly news letter carrying current information on women’s work and status; and the answering of inquiries involving some special research and arrangement of material. Employment fluctuations and unemployment of women, 1928 to 1932. The bureau is seeking in this report to find and present, with some interpretation, certain available indications of the directions of change or of the extent of unemployment among women. It brings together in one place, with some analysis of findings, four types of material pertinent to the irregularities of employment suffered by women within a recent period, as follows: A summary and discussion of the amount of unemployment found among women by the census of 1930; the extent and direction of fluctuations in the employment of women in certain of the more outstanding woman-employing industries as reported from official sources in three States, each industrially important, during the four years 1928 to 1931, with some analysis of the figures; brief summaries of the findings as to employment fluctuations and unemployment in certain recent studies made by the Women’s Bureau and by other authorities; and a statement of the extent to which the various States make information available in regard to the activities of their public employment agencies as these affect women, and the extent to which any indication of the employment situation touching women can be obtained from such reports. Working-conditions handbooks. Four of the major reports published or in progress this year relate to certain phases of conditions under which women work, and they are intended to constitute, when in published form, general handbooks 114 ANNUAL REPORT SECRETARY OF LABOR of the best available standards and practices on the subjects covered. In each case a resume of State requirements is given and such recommendations as are based on scientific study of the subject are reviewed. As is the case with many reports of the bureau, most helpful cooperation has been given by State departments of labor and other officials, and it is hoped that the resulting publications will, in turn, form useful references for the assistance of factory inspectors and other persons needing such information in compiled form. The bureau is publishing this year a study of State requirements for industrial lighting and for sanitary codes in work places, and it has in preparation a study of fire prevention in places where women are employed and of industrial service facilities for women, such as lunch rooms, washing facilities, cloak rooms, and dressing rooms, and provisions for first aid. State requirements for industrial lighting.—In this study the lighting codes of the 13 States that have adopted such codes are compared with the requirements of the American Standard Code of Lighting Factories, Mills, and Other Work Places, adopted August 18, 1930; other State requirements for lighting manufacturing and mercantile establishments are summarized; a large part of the American Standard Code is reprinted as a guide to good lighting; basic considerations about lighting are simply and nontechnically explained; the importance of good lighting from the standpoint of eye fatigue is discussed by an expert in this field; and suggestions of sources of information and of good practices are brought together for employers, employees, and State departments of labor. The need for such information is attested by the fact that 19 States have no requirements as to lighting in places of employment, and that investigations of working conditions made by the Women’s Bureau at intervals over a period of more than 10 years have shown that in large numbers of establishments the importance of giving attention to good lighting has not been appreciated. The installation and maintenance of toilet facilities in places of employment.—This handbook gives a summary of State requirements on the subject of toilet facilities in work places, and indicates the standards considered important for the health and comfort of employees. For each State a summary is given of the regulations on this subject—whether statutes, rules or orders, or recommendations; the establishments covered; and the agency responsible for administration. In several States the regulations were formulated only for the protection of the public, applying solely to food industries, and the report shows the limited extent to which such regulations affect employees. One section of the study presents the findings of the Women’s Bureau on toilet facilities in its various surveys, showing clearly the necessity of further attention to this important matter. Industrial injuries to women in 1928 and 1929. The research division follows constantly the available official information as to industrial injuries to women, and biennially it compiles this information from the various State reports for publication. The second in this series relating to industrial injuries as classified by sex covers the State reports for 1928 and 1929 and is now in press. These data show an increase in 1929 in the proportion of all injuries that were listed as occurring to women. Large numbers of women ANNUAL REPORT SECRETARY OF LABOR 115 yearly are injured. More than 5,000 women’s injuries were reported in each of three States in each of the years 1927, 1928, and 1929. Proportionately many more of the women than of the men so affected are young; and young women, on account of their extensive machine employment, are the victims of a disproportionate number of accidents leaving a permanent disability. Standards of placement agencies for household employees. Standards of various placement agencies for household employees—the nonlegal requirements as to wages, hours of work, type of work expected, free time, vacation, and living conditions—are being collected and analyzed by the bureau, cooperating with Mrs. Anna L. Burdick, agent for industrial education for girls and women of the Federal Board for Vocational Education. Occupational diseases of women. Among the reports in progress is that on occupational diseases of women, which is endeavoring to bring together the State requirements on this subject—in terms of specific or general laws—and the information available as to the extent to which the existence of disease inherent in certain occupations is being recorded. Changes in women’s occupations. The bureau has in progress two special studies of the occupations of women. One of these/expected to be ready for distribution toward the close of the present fiscal year, analyzes in considerable detail the changes from 1910 to 1930. The other deals with changes over a longer period, especially in the various States, and will require much more time for preparation. News Letter. Throughout the year current activities relating to employed women in this and other countries have been reviewed in the monthly News Letter. The information given in this form includes legislative enactments in the various States and countries; the findings of investigations relative to hours, wages, working conditions, occupations, and health and safety problems; trade-unions; notes on conferences and meetings of interest; changes in personnel among labor officials and in agencies concerned with the administration and enforcement of labor laws affecting women in the States; and other current material obtained by correspondence and by the constant following of publications touching matters that affect employed women. Special memoranda prepared and inquiries answered. In answer to letters and by giving personal interviews, members of this division have responded to many inquiries from outside the bureau. Data have been compiled for an average of approximately 25 such inquiries a month, with the peak in the winter and spring. These have come from all parts of the United States and from other countries as well. Employed women in a time of economic change.—Information has been sought especially upon the extent of unemployment, the status of the unemployed woman, the degree in which women’s wages have declined, and the gainful occupation of married women. As successive census reports have become available, the division has prepared analyses of the material they furnished, likewise taking 116 ANNUAL REPORT SECRETARY OF LABOR cognizance of data from other sources. While 37.3 per cent of all gainfully occupied women are under 25 years of age, a larger proportion (42.7 per cent) of the unemployed women are not so young. Of the girls under 20 years of age who ordinarily were in gainful work, 20.6 per cent were unemployed at the taking of the Federal census, as were 22.1 per cent of those 20 to 24 years old. The corresponding proportions of young men unemployed were 9.1 per cent and 15.8 per cent. There are many indications that widespread unemployment among men has thrown the responsibility of family support upon women to an even greater extent than has been the case heretofore. Of the gainfully occupied women of 15 years and over, 28.9 per cent are married as against 23 per cent in 1920. Nevertheless, the proportion of all married women who are in gainful employment is only 11.7 per cent, while of all women 24.8 per cent are thus occupied. The occupational distribution of the employed married women in the entire country has not been reported in detail as yet, but such information has been furnished for 41 States. In 32 of these States, the largest numbers of the employed married women are in domestic and personal service; in the remaining 9, the largest numbers are in either agriculture or the manufacturing industries, and in each case domestic and personal service ranks second. Women who enter such types of work can hardly do so from desire to pursue a career; they are there from economic necessity, and to preclude their remaining would seriously increase the hardship endured by the working population at this time, and, to the degree in which this was based on the purely personal reason of marital status, such additional hardships would be unnecessary and wholly undesirable. Indications are to be found, from such fragments as are available, that in a considerable number of industries the decline in employment from 1928 to 1931 has been more severe for women than for men. For example, in New York State an index of employment, based on June, 1923, and weighted in accordance with the importance of the industry and with the extent of its woman employment, is published by sex. Examination of these indexes discloses that in about half the more important woman-employing industries or groups the decline in the period 1928 to 1931 from the highest month in the period to the lowest month in 1931 has been greater for women than for men; this is true, for example, in the metal and machinery group; the printing and paper group; in cotton, candy, bakery products, shoes, women’s clothing; and the manufacture of wool, carpets, and felt. Data from Illinois, based on an entirely different type of index, show greater declines for women than for men in nearly all the important woman-employing industries or groups. Further notable declines have occurred in this period in the wages received by women who have continued to hold their jobs. Wage figures as reported monthly by sex in both Illinois and New York may be considered in September, 1931, as compared with the same month in 1929.1 These show a decline of 11.6 per cent in women’s wages in Illinois and of 13 per cent in New York. The decline for 1 In any other month taken, similar showing will result; September is given here because it is the characteristic month of fall activity. ANNUAL REPORT SECRETARY OF LABOR 117 men was somewhat greater,2 but it must be remembered that there always has been considerably less margin for the decline of the manufacturing earnings of women than of those of men. Labor laws for women in the States and. Territories. A revision to December 31, 1931, of bureau bulletin No. 63, State Laws Affecting Working Women, will shortly come from the press. Chronological development of labor legislation for women in the United States. A digest of all the laws passed by the various States that have concerned the employment of women—daily and weekly hour laws, night work laws, laws prohibiting certain kinds of employment or regulating the conditions under which they may be performed, and laws requiring seats for women workers—has been revised as of December 31, 1931. , Labor legislation for women in 1931-32. Little change in State labor laws occurred in the past year. In California the industrial welfare commission issued an amended order establishing standards of sanitation. Massachusetts extended its homework law to cover not only wearing apparel but any article or any part thereof; another Massachusetts act provides an increase in the rate of pay of women employed as cleaners in the Statehouse; and still another provides for the posting of hour schedules for women and children. New Jersey passed an act forbidding the employment of minors under 18 in occupations or trades that the commissioner of labor may deem harmful; the New York industrial board revised its cannery code; and the newly created State welfare commission of Oregon readopted the orders that the agency preceding it had promulgated. Puerto Rico authorized the establishment of a department of labor and the appointment of a labor commissioner, one of the bureaus specified in the act to be concerned with women and children in industry. Division of public information. Continuous effort is made by the division of public information to interpret and to bring to the attention of the average citizen the social and economic problems of America’s approximately 11,000,000 gainfully occupied women. The preparation and distribution of special news releases on the published bulletins of the bureau and on outstanding developments in connection with wage-earning women have constituted an important feature of the year’s work. More than 40 articles on many different aspects of employed women and Women’s Bureau activities have been prepared on request for a wide range of periodicals. A series of articles on the problems of women in outstanding woman-employing industries, prepared for current issues of one periodical, will later be collected in bulletin form for circulation by the bureau. Each year the bureau receives an increasing number of requests for graphic material pertaining to women wage earners. This is the result of two trends: The growing interest in visual education and an increasing appreciation of the importance of the problems of women workers and the necessity of being informed on these problems. ’ In Illinois 19.4 per cent and in New York 14.8 per cent, each from September, 1929. to September, 1931. 118 ANNUAL REPORT SECRETARY OF LABOR Because of the different needs of the various groups desiring exhibit material, the bureau presents information in the form of models, maps, charts, posters, folders, and motion pictures. In the past year all these types of material have circulated throughout the United States, and some of the exhibits have been sent to foreign countries. All displays are lent free of charge, the borrower paying transportation charges on material that can not be sent under frank. Certain wall exhibits are available for permanent use. An exhibit completed early in the year, “ Steps to Safety and Efficiency for Wage-Earning Women,” has been used extensively. A new wall display, a combination of poster and chart in effective colors, illustrates the minimum standards advocated by the Women’s Bureau for the employment of women in industry. • During the year the bureau’s four motion pictures have had intensive and extensive use. One of the films, entitled “ Behind the Scenes in the Machine Age,” is a 3-reel picture completed in January. In six months it had over 75 bookings. PUBLICATIONS The bulletins issued this year aggregate about 800 pages. Five others are in press. The bulletins follow: No. 6&-II. Chonological Development of Labor Legislation for Women in the United States. Revised December, 1931. 176 pp. No. 88. The Employment of Women in Slaughtering and Meat Packing. 210 pp. No. 89. The Industrial Experience of Women Workers at the Summer Schools, 1928 to 1930. 62 pp. No. 90. Oregon Legislation for Women in Industry. 40 pp. No. 91. Women in Industry: A Series of Papers to Aid Study Groups. 79 pp. No. 92. Wage-earning Women and the Industrial Conditions of 1930: A Survey of South Bend. 84 pp. No. 93. Household Employment in Philadelphia. 88 pp. No. 94. State Requirements for Industrial Lighting: A Handbook for the Protection of Women Workers, Showing Lighting Standards and Practices. 65 pp. No. 95. Bookkeepers, Stenographers, and Office Clerks in Ohio, 1914 to 1929. 34 pp. No. 96. Women Office Workers in Philadelphia. 17 pp. No. 97. The Employment of Women in the Sewing Trades of Connecticut: Preliminary Report. 13 pp. No. 98. Labor Laws for Women in the States and Territories. Revision of Bulletin 63. 70 pp. No. 99. The Installation and Maintenance of Toilet Facilities in Places of Employment. (In press.) No. 100. The Effects on Women of Changing Conditions in the Cigar and Cigarette Industries. (In press.) No. 101. The Employment of Women in Vitreous Enameling. (In press.) COMMENT AND RECOMMENDATIONS The year 1931-32 has been the busiest in the history of the Women’s Bureau. At this time of a nation-wide depression it is more important than ever before to study the many-sided problems that confront the workers of our country. Not the least of these are the problems of women workers. The Bureau of the Census reports that in 1930 we had nearly 11,000,000 gainfully employed women, an increase of two and one-fifth millions since the census of 1920. This means that of every nine employed persons two are women. Their importance to our Nation’s welfare, their importance ANNUAL REPORT SECRETARY OF LABOR 119 to their families, and the families’ importance to the Nation can hardly be overestimated. And there is no other bureau in the Government concerned with the welfare of women workers as is the Women’s Bureau. The bureau feels, therefore, that it must pursue vigorously the investigations that are being made and inaugurate others on the many-sided problems that working women are facing. Men out of work organize and dramatize their misfortunes more strikingly than do women. Crowded flop houses, bread lines, unemployment demonstrations—these draw direct attention to urgent needs. It is not so with women. Scattered stories of jobless women whose children are underfed and insufficiently clothed, whose homes are without fuel in winter, reach public ears. But this sort of poverty has always existed to a greater or less degree. These things have not the power to stir the mass imagination as does the plight of unemployed men. The problems of women wage earners that have arisen out of the K present economic crisis must be studied in conjunction with those of men wage earners and industrial and financial conditions. The double wage standard, the compulsion of women to accept jobs with a pay scale below that of men doing similar work, has proved particularly serious in the past two years, with considerable cuts in women’s pay tending to drag men’s wages to lower levels than before. We have seen the workers’ wages—that important keystone in the arch of prosperity—dealt a serious blow, and we have witnessed an inevitable toppling of our whole economic structure. As we look for underlying causes of the crisis, it is apparent that there has been in the past more interest in machines than in men and women. Progress in human relations in industry has lagged considerably behind technical progress. There is a growing realization of the need to develop a more social procedure for combining increased production with the greatest welfare of the human element. The study of human waste in industry, begun by the Women’s Bureau in 1930, has many sides and should be pursued diligently. Since skill and the work of individuals in industry have been largely eliminated by the use of machinery, speed having replaced skill, women are engaged more extensively in the occupations classed as repetitive and peculiarly susceptible to the speeding-up system. The effect on the individual of such speeding should be made clear, in order that proper methods may be devised and installed to prevent , ■ the early impairment of the workers’ productive capacity. Fatigue resulting from speed and monotony or from other undesirable working conditions should be investigated, as should the unemployment or part-time work resulting, and through such investigations these . > conditions should become thoroughly understood by the public. The long working day and week, still the practice in the womanemploying industries, should be continually investigated and reported upon. During the depression there has been a great decrease in wages paid to women. Wages that never were high have been cut by part time, and even in full-time work a tremendous decrease in the weekly wage has taken place. A continued watchfulness on this question should be carried on by the bureau. The need to guarantee economic security, both to the individual and to the family, has crystallized into an urgent problem to-day and into a definite challenge to our present civilization. 120 ANNUAL REPORT SECRETARY OF LABOR With the home maker’s rendering of services paid for in wages, salaries, or fees, her economic status has changed, and it should change even more if we are to arrive at a better adjustment of women in the modern economic world. This situation does not mean that women are necessarily displacing men as workers. There has always been a division of labor between the sexes. There has always been a sharing of economic responsibility to the family by the men and women within its circle. As methods of work change with a changing civilization, it is a question of adjustment of the sexes to the required work of the world. It is of interest perhaps to stress a fact, often overlooked, that men have been steadily taking women’s jobs from them in developing home industries into mechanized processes. Thus men take jobs from women, and women take jobs from men, and machines undermine the economic status of both. The economic status of the married-woman wage earner is rendered more unstable than that of other women workers partly because of the widespread tendency to challenge her right to work and therefore to discriminate against her. This principle causes hardships not only to the women but to their families, especially if in time of depression and widespread unemployment it results in wholesale dismissal of married women without careful investigation. For several years now the bureau’s recommendations have contained a suggestion for a study of women’s posture at work, including the possibility of combining a fair degree of comfort with unhampered efficiency in a chair of practical design and inexpensive construction. Machines are being designed constantly without any consideration for the operator’s comfort, though attention to this matter would add little to the cost of installation. Respectfully submitted. Mary Anderson, Director. UNITED STATES HOUSING CORPORATION Theodore G. Risley, President Thomas W. O’Brien, Vice President To the Secretary of Labor: The activities of the United States Housing Corporation during the fiscal year ended June 30,1932, in keeping with the general policy of your administration, reflects an earnest effort to increase the receipts of the Federal Government at a minimum cost to the taxpayers of the Nation, but at the same time giving due regard to the plight of the wage earners affected by the industrial and business depression, who constitute a majority of the purchasers of the corporation’s properties. Receipts. The collections made by the corporation during the year totaled the sum of $272,131.17, and were derived from the following sources: Purchasers’ payments on principal-------------------------------$214, 972. 02 Purchasers’ payments of interest________________________________ 54, 664. 61 Rent and other miscellaneous collections________________________ 2, 494. 54 Total____________________________________________________ 272,131.17 Outstanding accounts. During the year, 201 purchasers made full payments of the balances due the corporation, and their accounts were closed out, thereby reducing the active accounts on the books of the corporation to the number of 866. The principal balances due on these active accounts at the end of the year totaled the sum of $1,250,351.73, as will more fully appear by reference to the following schedule: Number of accounts Project Principal balance due 1 11 87 29 1 46 69 1 1 60 2 1 1 447 61 18 2 27 1 Aberdeen, Md_________ Alliance, Ohio_______ Bremerton, Wash______ Craddock, Va_________ Davenport, Iowa______ Erie, Pa_____________ Hammond, Ind_________ Kittery Point, Me.... Lowell, Mass______ New Brunswick, N. J. New London, Conn... Newport, R. I________ Niles, Ohio__________ Philadelphia, Pa_____ Quincy, Mass________ Vallejo, Calif_______ Waterbury, Conn______ Watertown, N. Y______ Watervliet, N. Y_____ $122. 71 11, 613. 22 82,606.33 12, 614.19 264.00 27,277. 60 152,738.13 3,485. 20 146. 31 29,217. 05 203. 47 916. 64 918.47 783,109. 37 111,444. 50 14,273. 28 3,809. 93 14, 225.31 1, 366.02 866 Total 146746—32----9 1,250, 351. 73 121 122 ANNUAL REPORT SECRETARY OF LABOR Security. The principal balances, together with the interest thereon at the rate of 6 per cent per annum, are fully secured either by the retention of title to or mortgages on the properties involved, constituting first liens in favor of the Federal Government, which are paramount to all other liens, including the tax liens of the municipalities and other political subdivisions where the properties are situated, the value of the said properties being many times in excess of the balances due on the purchasers’ accounts. Insurance. The purchasers under the terms of their contracts of purchase are required to carry fire insurance at their own expense for the joint protection of themselves and the Government. The individual policies at the close of the fiscal year provide an aggregate coverage of $3,302,432, and amply secure the Government against loss by fire pending the final payment of the balance due on the individual purchaser’s accounts. Sales. The corporation disposed of 2 houses, 30 lots, and 2 blocks of unimproved land by sales to individual purchasers, and in addition thereto reexecuted contracts covering 10 houses which had been previously canceled because of default. The total sales price of the properties thus disposed of during the fiscal year amounted to the sum of $63,159.62. Conveyancing. Due to the fact that the majority of the contracts of purchase have been in existence for a number of years, numerous changes occur from time to time which have the effect of changing the status of the titles to the properties involved; and consequently, in connection with the conveyancing of the properties, close study must necessarily be given to the legal status of the purchasers, as death, insanity, marriage, divorce, guardianship, and probate proceedings must be taken into consideration in many cases. Taxation. The taxable status of the properties involved has been settled by the Supreme Court of the United States so far as the rights of the corporation and the Federal Government are concerned, and by the courts of last resort in the States of Pennsylvania and New Jersey as to the rights of the purchasers. The effect of the decisions is to exempt the financial interests of the Government from taxation and to require the individual purchasers to pay taxes based on the full value of the property involved in the contracts of purchase. In many cases the purchasers have found it impossible to adjust their finances so as to be able to pay on their contracts with the corporation as well as the tax claims of the local tax collectors, and have appealed to the corporation to afford them some measure of relief. The corporation, however, has been powerless to afford such relief, but has made appropriate representations to the taxing powers on behalf of such purchasers. As a result of the representations made ANNUAL REPORT SECRETARY OF LABOR 123 to one municipality, a compromise of the tax claims has been made with the purchasers, but on the whole the results obtained have been far from satisfactory, since the municipalities have elected to stand on the law as laid down by the courts. The purchasers at one project have advised the corporation that the outstanding tax claims on which delinquent tax sales are threatened exceed one-quarter of a million dollars. The decision of the Supreme Court of the United States has limited the activities of the Government and the corporation solely to the protection of the interests of the Government, which precludes the taking of more active steps in the matter; and if any measure of relief is to be afforded, it will have to come from the taxing power of the State in which the controversy exists. ( Administration. In administering the affairs of the corporation, which among other things involves keeping in close touch with the purchasers who are scattered throughout the country, practically all of the work is done by the five employees in the Washington office. With the exception of an office maintained at the Philadelphia project (where one clerk who constitutes the entire field force is employed), the corporation has closed all of its local offices, and consequently the minutest detail of every transaction must necessarily be considered and worked out by correspondence, which has served to greatly increase the volume of work. Unsold properties. The properties remaining to be sold, which were originally acquired by purchase for war purposes or subsequently reacquired under foreclosure proceedings in default cases, have an appraised value of $139,029.66, fixed in the year 1920, when the last appraisal authorized by Congress was made, as presented in the following schedule: Project Description Appraised value Alliance, Ohio________________________________ Bridgeport, Conn______________________________ Craddock, Va__________________________________ Davenport, Iowa_______________________________ East Moline, Ill______________________________ Erie, Pa____________________________________— Ilion, N. Y___________________________________ Lowell, Mass__________________________________ Newport, R. I_________________________________ Philadelphia, Pa------------------------------ Quincy, Mass---------------------------------- Rock Island, Ill______________________________ Vallejo, Calif________________________________ Watertown, N. Y------------------------------- 44 vacant lots____________________________ 1 vacant lot_____________________________ 20 lots, 4 blocks_________________________ 19 vacant lots___________________________ 3 lots____________________________________ 1 house, 32 lots_________________________ 54 vacant lots____________________________ 2 lots____________________________________ 12 lots__________________________________ 9 houses__________________________________ 16 lots__________________________________ 2 lots____________________________________ 22J^ acres tideland_______________________ 34 vacant lots____________________________ $10,944.00 1, 300.00 9,710.00 17,475.00 2,120. 00 11, 275. 00 19,397. 50 2,323.16 3,350.00 36,100.00 16, 000.00 200.00 3,375. 00 5,460.00 Total. 139,029.66 Corporate organizations. The outstanding stock of the corporation, consisting of 665 shares without par value but which was purchased by the Government at $100,000 per share, totaling $66,500,000, is still held by the Secretary of Labor as trustee for the United States. 124 ANNUAL REPORT SECRETARY OF LABOR The officers and directors of the corporation for the fiscal year 1933 are the following: Hon. Theodore G. Risley, president. Thomas W. O’Brien, vice president and secretary. James J. Leonard, assistant secretary and treasurer. Hon. Robe Carl White. Hon. Walter W. Husband. Samuel J. Gompers. Hugh L. Kerwin. Thomas B. Shoemaker. Edward Corsi. Respectfully submitted. Theodore G. Risley, President. APPENDIX B ACT CREATING THE DEPARTMENT OF LABOR Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That there is hereby created an executive department in the Government to be called the Department of Labor, with a Secretary of Labor, who shall be the head thereof, to be appointed by the President, by and with the advice and consent of the Senate; and who shall receive a salary of twelve thousand dollars per annum, and whose tenure of office shall be like that of the heads of the other executive departments; and section one hundred and fifty-eight of the Revised Statutes is hereby amended to include such department, and the provisions of title four of the Revised Statutes, including all amendments thereto, are hereby made applicable to said department; and the Department of Commerce and Labor shall hereafter be called the Department of Commerce, and the Secretary thereof shall be called the Secretary of Commerce, and the act creating the said Department of Commerce and Labor is hereby amended accordingly. The purpose of the Department of Labor shall be to foster, promote, and develop the welfare of the wage earners of the United States, to improve their working conditions, and to advance their opportunities for profitable employment. The said Secretary shall cause a seal of office to be made for the said department of such device as the President shall approve and judicial notice shall be taken of the said seal. Sec. 2. That there shall be in said department an Assistant Secretary of Labor, to be appointed by the President, who shall receive a salary of five thousand dollars a year. He shall perform such duties as shall be prescribed by the Secretary or required by law. There shall also be one chief clerk and a disbursing clerk, and such other clerical assistants, inspectors, and special agents as may from time to time be provided for by Congress. The Auditor for the State and Other Departments shall receive and examine all accounts of salaries and incidental expenses of the office of the Secretary of Labor and of all bureaus and offices under his direction, and all accounts relating to all other business within the jurisdiction of the Department of Labor, and certify the balances arising thereon to the division of bookkeeping and warrants and send forthwith a copy of each certificate to the Secretary of Labor. Sec. 3. That the following-named offices, bureaus, divisions, and branches of the public service now and heretofore under the jurisdiction of the Department of Commerce and Labor, and all that pertains to the same, known as the Commissioner General of Immigration, the Commissioners of Immigration, the Bureau of Immigration and Naturalization, the Division of Information, the Divi 125 126 ANNUAL REPORT SECRETARY OF LABOR sion of Naturalization, and the Immigration Service at Large, the Bureau of Labor, the Children’s Bureau, and the (Commissioner of Labor be, and the same hereby are, transferred from the Department of Commerce and Labor to the Department of Labor, and the same shall hereafter remain under the jurisdiction and supervision of the last-named department. The Bureau of Immigration and Naturalization is hereby divided into two bureaus, to be known hereafter as the Bureau of Immigration and the Bureau of Naturalization, and the titles Chief Division of Naturalization and Assistant Chief shall be Commissioner of Naturalization and Deputy Commissioner of Naturalization. The Commissioner of Naturalization or, in his absence, the Deputy Commissioner of Naturalization, shall be the administrative officer in charge of the Bureau of Naturalization and of the administration of the naturalization laws under the immediate direction of the Secretary of Labor, to whom he shall report directly upon all naturalization matters annually and as otherwise required, and the appointments of these two officers shall be made in the same manner as appointments to competitive classified civil-service positions. The Bureau of Labor shall hereafter be known as the Bureau of Labor Statistics, and the Commissioner of the Bureau of Labor shall hereafter be known as the Commissioner of Labor Statistics; and all the powers and duties heretofore possessed by the Commissioner of Labor shall be retained and exercised by the Commissioner of Labor Statistics; and the administration of the act of May thirtieth, nineteen hundred and eight, granting to certain employees of the United States the right to receive from it compensation for injuries sustained in the course of their employment. Sec. 4. That the Bureau of Labor Statistics, under the direction of the Secretary of Labor, shall collect, collate, and report at least once each year, or oftener if necessary, full and complete statistics of the conditions of labor and the products and distribution of the products of the same, and to this end said Secretary shall have power to employ any or either of the bureaus provided for his department and to rearrange such statistical work and to distribute or consolidate the same as may be deemed desirable in the public interests; and said Secretary shall also have authority to call upon other departments of the Government for statistical data and results obtained by them; and said Secretary of Labor may collate, arrange, and publish such statistical information so obtained in such manner as to him may seem wise. Sec. 5. That the official records and papers now on file in and pertaining exclusively to the business of any bureau, office, department or branch of the public service in this act transferred to the Department of Labor, together with the furniture now in use in such bureau, office, department, or branch of the public service, shall be, and hereby are, transferred to the Department of Labor. Sec. 6. That the Secretary of Labor shall have charge in the buildings or premises occupied by or appropriated to the Department of Labor of the library, furniture, fixtures, records, and other property pertaining to it or hereafter acquired for use in its business; he shall be allowed to expend for periodicals and the purposes of the library and for rental of appropriate quarters for the accommodation of the ANNUAL REPORT SECRETARY OF LABOR 127 Department of Labor within the District of Columbia, and for all other incidental expenses, such sums as Congress may provide from time to time: Provided, however, That where any office, bureau, or branch of the public service transferred to the Department of Labor by this act is occupying rented buildings or premises, it may still continue to do so until other suitable quarters are provided for its use: And provided further, That all officers, clerks, and employees now employed in any of the bureaus, offices, departments, or branches of the public service in this act transferred to the Department of Labor are each and all hereby transferred to said department at their present grades and salaries, except where otherwise provided m this act: And provided further, That all laws prescribing the work and defining the duties of the several bureaus, offices, departments, or branches of the public service by this act transferred to and made a part of the Department of Labor shall, so far as the same are not in conflict with the provisions of this act, remain in full force and effect, to be executed under the direction of the Secretary of Labor. Sec. 7. That there shall be a solicitor of the Department of Justice for the Department of Labor, whose salary shall be five thousand dollars per annum. Sec. 8. That the Secretary of Labor shall have power to act as mediator and to appoint commissioners of conciliation in labor disputes whenever in his judgment the interests of industrial peace may require it to be done; and all duties performed and all power and authority now possessed or exercised by the head of any executive department in and over any bureau, office, officer, board, branch, or division of the public service by this act transferred to the Department of Labor, or any business arising therefrom or pertaining thereto, or in relation to the duties performed by and authority conferred by law upon such bureau, officer, office, board, branch, or division of the public service, whether of an appellee or revisory character or otherwise, shall hereafter be vested in and exercised by the head of the said Department of Labor. Sec. 9. That the Secretary of Labor shall annually, at the close of each fiscal year, make a report in writing to Congress giving an account of all moneys received and disbursed by him and his department and describing the work done by the department. He shall also, from time to time, make such special investigations and reports as he may be required to do by the President, or by Congress, or W’hich he himself may deem necessary. Sec. 10. That the Secretary of Labor shall investigate and report to Congress a plan of coordination of the activities, duties, and powers of the office of the Secretary of Labor with the activities, duties, and powers of the present bureaus, commissions, and departments, so far as they relate to labor and its conditions, in order to harmonize and unify such activities, duties, and powers, with a view to further legislation to further define the duties and powers of such Department of Labor. Sec. 11. That this act shall take effect March fourth, nineteen hundred and thirteen, and all acts or parts of acts inconsistent with this act are hereby repealed. o ■ ■ SAN DIEGO PUBLIC LIBRARY 3 1336 05750 2651