[Tenth Annual Report of the Secretary of Labor for the Fiscal Year Ended June 30, 1922] [From the U.S. Government Publishing Office, www.gpo.gov] 9Z2 TENTH ANNUAL REPORT OF THE SECRETARY OF LABOR FOR THE FISCAL YEAR ENDED JUNE 30 1922 WASHINGTON GOVERNMENT PRINTING OFFICE 1922 CONTENTS. Page Office of the Secretary...................................................... 2' The solicitor............................................................ 3 Disbursing clerk................................................... 4 Publications and supplies................................................ 8 Appointment clerk....................................................... 11 The library............................................................. 13 The conciliation service................................................ 14 Bituminous and anthracite coal strike—Anthracite strike—Railway shop crafts strike—Some typical cases. United States Employment Service.......................................... 28 Farm and harvest work — Industrial employment survey — President’s conference on unemployment—Junior division. United States Housing Corporation......................................... 32 Rentals and sales—Liquidation of transportation and public utility loans— Local taxes and assessments—The Norfolk County Ferries—The Government Hotel—Cradock, Va. Regulations of the Department of Labor.................................... 37 Bureau of Labor Statistics................................................ 38 Monthly Labor Review—Publications other than the Monthly Labor Review—-Reports transmitted but not published. Bureau of Immigration..................................................... 41 Immigration from foreign contiguous countries........................ 43 Oriental immigration................................................. 43 Smuggling and surreptitious entry of aliens.......................... 45 Deportation of aliens................................................ 46 Head tax collected and administrative fines imposed.................. 47 New legislation.;.........'..................,....................... 47 Bureau of Naturalization.................................................. 47 Naturalization....................................................... 47 Citizenship training................................................. 48 Financial statement.................................................. 49 Children’s Bureau......................................................... 50 Federal aid for the welfare and hygiene of maternity and infancy..... 50 Factors in infant and maternal mortality............................. 52 Child labor.......................................................... 53 Dependency and delinquency........................................... 54 Child welfare in the insular possessions............................. 56 Publications......................................................... 57 Publicity and exhibits............................................... 57 The Women’s Bureau........................................................ 58 Function and authority............................................... 58 Type of work done.................................................... 58 Publications and reports............................................. 60 The coming year...................................................... 61 19580—22 in IV CONTENTS. Page. Recommendations........................................................... 63 Introductory.......................................................... 63 Conciliation.......................................................... 68 The copper industry—The oil industry—The packing-house industry—Industrial controversies of national concern. United States Employment Service...................................... 77 The United States Housing Corporation................................. 78 Bureau of Labor Statistics............................................ 79 “ To improve their working conditions ”............................... 80 Immigration.......................-................................... 82 Survey of world conditions—Field service—Medical inspection at ports—Examination of alien seamen—Mental and physical defec- tives, illiterates, etc.—Orientals—Selection of immigrants. Bureau of Naturalization............................................... 107 Registration of aliens.............................................. HO Child labor.. ,f........................................................ Hl Procedure of Federal courts in children’s cases........................ 114 The Women’s Bureau...................................................... H4 Appendix I.-—Recent decisions of the Supreme Court as to the constitutionality of statutes affecting labor.............,............................. H7 Appendix II.—Act creating the Department of Labor.......................... 120 TENTH ANNUAL REPORT OF THE SECRETARY OF LABOR. Department of Labor, Office of the Secretary, 'Washington, October 1, 1922. The President, The White House, Washington, D. C. My Dear Mr. President: In compliance with the requirements of section 9 of the act of Congress approved March 4, 1913, entitled “An act to create a Department of Labor,” I respectfully transmit herewith for submission to Congress a report of the Department of Labor for the fiscal year ended June 30, 1922. This is the first report covering a full year’s activities of this department during my incumbency as Secretary of Labor. During the 16 months of my incumbency several changes through both legislation and administration have been made, affecting the functions and activities of the various bureaus comprising the department. There are other changes, some of them requiring legislation somewhat of a departure from the present policy of the Government, which I believe should be made. These are referred to in the conclusion and recommendations following the body of the report. I wish to call them to your attention. They concern the welfare of the American public and its institutions as relating to the everyday life and common affairs of our entire population. Perhaps the most important recommendations concern the Bureaus of Immigration and Naturalization. The Department of Labor performs its functions through five principal bureaus and a number of important divisions in the Office of the Secretary. For more convenient reference I enumerate these organizations. They are: Office of the Secretary. Bureau of Labor Statistics. Bureau of Immigration. Children’s Bureau. Bureau of Naturalization. Women’s Bureau. 1 2 REPORT OF THE SECRETARY OF LABOR. OFFICE OF THE SECRETARY. The Office of the Secretary includes the Secretary of Labor, the Assistant Secretary, the Second Assistant Secretary, the solicitor, the chief clerk, the disbursing clerk, the appointment clerS, the Division of Publications and Supplies, the department library, the Division of Conciliation, the United States Employment Service, and the Bureau of Industrial Housing and Transportation (United States Housing Corporation). The Assistant Secretary and the Second Assistant Secretary perform the duties assigned them by statute and such other duties as may be assigned to them by the Secretary. The chief clerk performs the duties usually performed by similar officers in all the executive departments. All the activities of the Department of Labor, either in the Office of the Secretary or in the various bureaus, deal with human rights rather than with property rights. For that reason nearly all the questions that come to the Office of the Secretary for action involve decisions and rulings dealing with human rights and require the personal attention of the Secretary or of an Assistant Secretary. These questions always require prompt action. The law clearly contemplates that a responsible officer shall deal with these matters, and specifically requires that either the Secretary personally or an Assistant Secretary personally must make the decisions and sign the various orders, decrees, and warrants. With the tremendous growth of the number of appeals involving immigration, as well as the movements of Chinese and other excluded aliens, the time of the Secretary and the Assistant Secretary was almost entirely consumed by these matters arising through the Bureau of Immigration. The Office of the Secretary has always been overburdened with important functions other than the details relating to any bureau. You will note from the foregoing list that there are five important bureaus in the department in addition to a number of very important divisions in the Office of the Secretary. Three of these divisions, namely, Conciliation, United States Employment Service, and Industrial Housing, have assumed the importance of bureaus both in size and volume of business. The activities of all these bureaus are of the highest importance and all require close personal attention of some one with the power to assume responsibility and act for the Secretary. Prior to the end of the fiscal year here covered there was but one Assistant Secretary in this department. The great increase in the business requiring the personal attention of a responsible head made necessary the request for an additional Assistant Secretary. This request was made early during the present fiscal year through the Bureau of the Budget, which made a careful investigation and recommended that REPORT OF THE SECRETARY OF LABOR. 3 the position of Second Assistant Secretary of Labor be created together with a private secretary for the Second Assistant. Congress finally passed the act creating this position on June 30, 1922. The appointment of the Second Assistant Secretary of Labor was made early in July, 1922. The lease on the building at 1712-1722 G Street NW. was renewed on July 1, 1922, for five years, at the same rental as for the previous five years. This is a modern nine-story fireproof building containing 63,994 square feet net of floor space. It is occupied by the Office of the Secretary, the Bureau of Immigration, Bureau of Labor Statistics, and the Bureau of Naturalization. The Children’s Bureau, Women’s Bureau, and the United States Employment Service occupy 26,800 square feet of floor space in Tempo Building No. 4, at Twentieth and D Streets NW. Owing to the increased appropriations for the Women’s Bureau and Children’s Bureau, and for the administration of the Sheppard-Towner maternity act by the Children’s Bureau, it was necessary to reassign space occupied by the various bureaus in that building. To secure necessary space for the proper functioning of these bureaus a request was made on the Public Building Commission for two additional rooms therein. The request was complied with, making the total space occupied by the department in that building as above stated. During the year the Bureau of Industrial Housing and Transportation was, by direction of the Public Buildings Commission, moved to the Maltby Building, 200 New Jersey Avenue, where it occupies 5,935 square feet of floor space. As in my last report, I call attention to the fact that while the department building is a modern, fireproof building, the scattering of the bureaus of the department in three separate buildings does not lend itself to efficient administration, and it is hoped that the Public Buildings Commission can find in one of the public buildings sufficient space to house the department as a whole. According to the report of the Public Buildings Commission of December 18, 1917, Senate Document 155, Sixty-fifth Congress, second session, the Government now owns a site bounded by Fourteenth and Fifteenth and C and D Streets NW., upon which it is proposed to erect a building for the Department of Labor. Economy in administration, efficiency in operation, and stability would be greatly increased if Congress should see fit to authorize the erection of this building. The Solicitor. While the solicitor, of course, is an officer of the Department of Justice, he has his office with the Department of Labor and his work is devoted entirely to matters of law arising in this department. 4 REPORT OF THE SECRETARY OF LABOR. Details of the work performed by the office of the solicitor for the fiscal year ended June 30, 1922, are as follows: Legal opinions rendered, formal.............................................. 95 Contracts and leases examined, approved, or disapproved..................... 267 Contracts, leases, forms of bonds, etc., drafted, redrafted, or modified..... 10 Bonds on contracts examined, approved, or disapproved........................ 18 Bonds, alien immigrants, examined, approved, or disapproved............. 6, 356 Bonds, official, examined, approved, or disapproved........................... 5 Miscellaneous matters embracing everything submitted for advice or suggestion of the solicitor, or for the formulation of departmental action, not included in the foregoing items....................................................... 445 Total............................................................... 7,196 Disbursing clerk. 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 bond are accounted for by him. His report for the fiscal year is appended. Appropriations.—For the fiscal year ended June 30, 1922, the appropriations by Congress to the department and its services were as follows: Salaries, office of the Secretary of Labor, 1922 ................ $140,380. 00 Salaries and expenses, commissioners of conciliation, 1922 ...... 150,000. 00 Salaries and expenses, commissioners of conciliation, 1920....... 2, 500. 00 Contingent expenses, Department of Labor, 1922 .................. 50, 000. 00 Rent, Department of Labor, 1922 ................................. 24,000. 00 Salaries, Bureau of Labor Statistics............................. 172, 960. 00 Miscellaneous expenses, Bureau of Labor Statistics, 1922......... 69,000. 00 Library, Bureau of Labor Statistics, 1922........................ 300. 00 Salaries, Bureau of Immigration, 1922............................ 74, 200. 00 Expenses of regulating immigration, 1922......................... 3,300,000.00 Expenses of regulating immigration, 1921......................... 150,000. 00 Refund to Calexico National Bank................................. 500.00 Refund to Chin Fong, San Francisco, Calif............................... 35. 25 Refund to Felix Schimmer................................................ 170. 50 Refund to N. Galanos & Co............................................... 240. 00 Refund to Pacific Mail Steamship Co., Honolulu, Hawaii................. 1,000.00 Refund to Whitney-Bodden Brokerage Co................................... 40. 00 Refund to United States Shipping Co..................................... 340. 00 Refund to Alfredo Saborde............................................... 50. 00 Refund to Vaccaro Bros.................................................. 10. 00 Immigration station, Ellis Island, New York Harbor............... 107, 270. 75 Salaries, Bureau of Naturalization, 1922............................... 97,010.00 * Miscellaneous expenses, Bureau of Naturalization, 1922............... 550,000.00 Naturalization fees, publication Citizenship Textbooks........... 17, 954. 21 Salaries, Children’s Bureau, 1922................................ 106, 040. 00 General expenses, Children’s Bureau, 1922........................ 85,000. 00 Investigation of child welfare, Children’s Bureau, 1922.......... 80,000. 00 REPORT OF THE SECRETARY OF LABOR. 5 Promotion of the welfare and hygiene of maternity and infancy, 1922.. $490,000. 00 Salaries and expenses, Women’s Bureau, 1922................. 75,000. 00 Women in Industry, Department of Labor, 1920................ 1, 200. 00 Women in Industry, Department of Labor, 1921.................... 600.00 United States Employment Service, Department of Labor, 1922. 225,000. 00 United States Employment Service, Department of Labor, 1920...... 400. 00 United States Employment Service, Department of Labor, 1921. 3, 500. 00 Increase of compensation, Department of Labor, 1922......... 502,101. 07 Printing and binding........................................ 200, 000. 00 Total...................................................... 6,676,801.78 Expenditures.—The expenditures, arranged according to items of appropriations, were as follows: Office of the Secretary: Salaries, Office of the Secretary of Labor, 1920.................... $0. 45 Salaries, Office of the Secretary of Labor, 1921.................. 5, 618. 25 Salaries, Office of the Secretary of Labor, 1922 ............... 131, 247. 25 Contingent expenses, Department of Labor, 1920..................... 217. 88 Contingent expenses, Department of Labor, 1921................... 13, 522. 23 Contingent expenses, Department of Labor, 1922................... 35, 075. 38 Salaries and expenses, commissioners of conciliation, 1920........ 1, 255. 24 Salaries and expenses, commissioners of conciliation, 1921.... 16,132. 41 Salaries and expenses, commissioners of conciliation, 1922..... 117,429. 65 Rent, Department of Labor, 1921................................... 2, 000. 00 Rent, Department of Labor, 1922.................................. 22, 000. 00 Advanced transportation, Department of Labor, 1918-19......... 61,180. 87 Increase of compensation, Department of Labor, 1920................. 15. 33 Increase of compensation, Department of Labor, 1921.............. 26, 863. 85 Increase of compensation, Department of Labor, 1922............. 501, 747. 06 Total........................................................... 934, 305. 85 Bureau of Labor Statistics: Salaries, Bureau of Labor Statistics, 1921.................................. 6, 839. 01 Salaries, Bureau of Labor Statistics, 1922................................ 158, 983. 98 Miscellaneous expenses, Bureau of Labor Statistics, 1920...................... 122. 54 Miscellaneous expenses, Bureau of Labor Statistics, 1921............... 14,140. 38 , Miscellaneous expenses, Bureau of Labor Statistics, 1922.................. 57, 352. 44 Library, Bureau of Labor Statistics, 1920................................... 4. 00 Library, Bureau of Labor Statistics, 1921.................................. 51. 50 Library, Bureau of Labor Statistics, 1922................................. 256. 36 Total............................................................ 237, 750. 21 Bureau of Immigration: Salaries, Bureau of Immigration, 1921................................ 3, 599. 68 Salaries, Bureau of Immigration, 1922............................68, 542. 50 Expenses of regulating immigration, 1920......................... 5, 568. 72 Expenses of regulating immigration, 1921..................... 423,418. 99 Expenses of regulating immigration, 1922..................... 2, 983, 626. 24 Enforcement of laws against alien anarchists, 1920................. 283. 84 Enforcement of laws against alien anarchists, 1921........... 53,152. 97 Expenses of deporting aliens, 1920................................. 112. 84 Expenses of deporting aliens, 1921.............................. 37, 067. 52 Immigration station, Ellis Island, New York Harbor.............. 84, 791. 26 6 REPORT OF THE SECRETARY OF LABOR. Bureau of Immigration—Continued. Refunds— Falik Schimmer.................................................. $170. 50 N. Galanos & Co............................................ 240. 00 Whitney-Bodden Brokerage Co................................. 40. 00 Pacific Mail Steamship Co.................................. 000. 00 Alfredo Saborde............................................. 50. 00 Vaccaro Bros. & Co.......................................... 10. 00 United States Shipping Co.................................. 340. 00 Calexico National Bank................................. 500.00 Relief of Kristana Farjak...................................... 495- 00 Total....................................................... 3,663,010.06 Children’s Bureau: Salaries, Children’s Bureau, 1921.................................... 4> 272. 59 Salaries, Children’s Bureau, 1922................................... 94, 787. 99 General expenses, Children’s Bureau, 1920........................ 464.12 General expenses, Children’s Bureau, 1921........................... 15, 052. 24 General expenses, Children’s Bureau, 1922........................... 50, 257. 36 Investigation of child welfare, 1920................................... 24. 39 Investigation of child welfare, 1921................................. 7, 549. 28 Investigation of child welfare, 1922............................. 64,047. 07 Promotion of the welfare and hygiene of maternity and infancy, 1922...........................-..................................... 1 296-39 Total.......................................................... 236,751.43 Bureau of Naturalization: Salaries, Bureau of Naturalization, 1921............................... 3, 941.03 Salaries, Bureau of Naturalization, 1922.............................. 89, 987. 77 Miscellaneous expenses, Bureau of Naturalization, 1920............. 1,044. 25 Miscellaneous expenses, Bureau of Naturalization, 1921............. 67,124. 63 Miscellaneous expenses, Bureau of Naturalization, 1922............... 489, 990. 90 Total......................................................... 652,088.58 Women’s Bureau: Women in Industry, 1920............................................ 951.15 Women in Industry, 1921.......................................... 5,805.06 Salaries and expenses, Women’s Bureau, 1922...................... 68, 010.18 Total.......................................................... 74,767.29 Employment Service: United States Employment Service, Department of Labor, 1920... 405. 67 United States Employment Service, Department of Labor, 1921... 16, 449. 99 United States Employment Service, Department of Labor, 1922... 195, 753. 05 Total.......................................................... 212,608.71 Salaries and expenses, International Conference of Labor, 1920................ 9. 28 Salaries and expenses, First Industrial Conference, 1920...................... 4- 74 Grand total............................................... 6, 944, 293-15 i Does not include $204,638.58 transferred to States by Treasury Department, and which amount is i eluded in “Claims settled by the General Accounting Office.” REPORT OF THE SECRETARY OF LABOR. 7 In addition to disbursements by the disbursing clerk, the following expenditures on behalf of the department were specifically made: By special disbursing agents for— Immigration Service.................................... $42, 324. 53 Children’s Bureau............................................ 379. 56 Claims settled by the General Accounting Office of the Treasury Department................................................... 772,182.46 814,886. 55 Miscellaneous receipts.—The following receipts from miscellaneous sources have been recorded during the year: Bureau of Immigration: Head tax..................................................... $2,503,096.00 Fines......................................................... 249, 048. 05 Forfeiture of bonds........................................... 216, 963. 50 Rentals and sale of exclusive privileges........................ 3, 591. 40 Telephone service............................................... 2, 616. 19 Sale of Government property..................................... 2, 086. 93 Miscellaneous collections.......................................... 300. 06 Total....................................................... 2, 977, 702.13 Bureau of Naturalization: Naturalization fees............................................. 657,190.00 Nunc pro tunc examination head tax............................ 11, 677. 97 Miscellaneous: Proceeds sale of Government property.......................... 15,192. 69 Total....................................................... 3, 661, 762. 79 Unexpended balances.—In accordance with the act of Congress of June 20, 1874 (18 Stat. L. 110, 111), the following unexpended balances of appropriations and repayments thereto were covered into the surplus fund of the Treasury Department June 30, 1922: Salaries, office of the Secretary of Labor, 1920........................ $920. 07 Contingent expenses, Department of Labor, 1920........................... 382. 77 Salaries and expenses, commissioners of conciliation, 1920............ 39.13 Women in Industry, Department of Labor, 1920............................. 195. 38 United States Employment Service, Department of Labor, 1920................ .94 Salaries and expenses, International Conference of Labor, 1920........... 119. 40 Salaries and expenses, First Industrial Conference, 1920................. 144. 56 Salaries, Bureau of Immigration, 1920.................................. 2, 880. 42 Expenses of regulating immigration, 1920.............................. 12, 418. 78 Expenses of interned aliens, 1919-20.................................. 13, 519. 68 Enforcement of laws against alien anarchists, 1920..................... 3, 266.11 Expenses of deporting aliens, 1920........................................ 17. 84 Salaries, Bureau of Naturalization, 1920............................... 1, 461. 24 Miscellaneous expenses, Bureau of Naturalization, 1920................. 6, 629. 58 Salaries, Bureau of Labor Statistics, 1920............................. 2, 261. 31 Miscellaneous expenses, Bureau of Labor Statistics, 1920.............. 1,499. 65 Salaries, Children’s Bureau, 1920..................................... 3,480.47 General expenses, Children’s Bureau, 1920................................. 53. 77 Investigation of child welfare, Children’s Bureau, 1920................ 1, 607. 24 Increase of compensation, Department of Labor, 1920.................... 1, 834. 61 Total......................................................... 52,732.95 8 REPORT OF THE SECRETARY OF LABOR. Publications and supplies. Printing and binding.—In the sundry civil act for 1922 there was allotted to the Department of Labor for printing and binding the sum of $200,000. This allotment was apportioned by the Secretary as follows: Office of the Secretary................................................$12, 500 Bureau of Labor Statistics............................................ 90,000 Bureau of Immigration.................................................. 6, 000 Immigration Service.............................................. 19,000 Children’s Bureau..................................................... 36,000 Bureau of Naturalization.............................................. 3, 000 Naturalization Service and naturalization examiners.............. 25,000 Women’s Bureau........................................................ 8,500 Total............................................................. 200,000 During the year requisitions were made on the Public Printer covering $195,643.04 of the appropriation. Bills were submitted by the Public Printer for $162,908.65, leaving an estimated balance of $32,734.49 on work at the Government Printing Office to be paid for out of the appropriation for 1923. There were written and sent to the Government Printing Office during the year 1,295 requisitions, as compared with 1,378 for the fiscal year 1921, a decrease of 83, or 6.4 per cent. Printed stationery.—During the fiscal year 1922, 342 requisitions for printed stationery were filled. Of this number 175 were for offices and bureaus within the department and 167 for services outside the District of Columbia. Envelopes.—During the year 171 orders were placed with the envelope companies calling for 2,829,450 envelopes, at a cost of $6,220.53, as compared with 204 orders in 1921, calling for 2,510,472 envelopes, costing $9,277.72. The cost of the envelopes for the fiscal year has been very much reduced from the previous year, due to the fall in the price of paper. There were furnished to the bureaus and offices of the department more than a million envelopes which had been salvaged from the effects of the war services of the department and which were overprinted by mimeograph. Periodicals.—The Monthly Labor Review and Industrial Employment Survey Bulletin issued, respectively, by the Bureau of Labor Statistics and the United States Employment Service, are the only periodicals issued by the department. The Monthly Labor Review is supplied to a free list of less than 2,000 copies, while the Superintendent of Documents maintains for that publication a paid list of about the same number. The Industrial Survey Bulletin was supplied for the greater part of the year to approximately 20,000 persons per month; this number, toward the close of the fiscal year, was reduced to 7,000. The printing of the Industrial Employment REPORT OF THE SECRETARY OF LABOR. 9 Survey Bulletin was paid directly from the appropriation of the United States Employment Service, and not from the printing allotment of the department. Editorial work.—Editorial and proof reading, expressed in figures, was as follows: Folios of copy (not including reprints) forwarded to the Government Printing Office, 20,483. Galley proofs received, 4,227. Page proofs received, 10,507. Proofs of forms received, 171. This statement does not convey any idea of the painstaking care, devotion to duty, and zeal exhibited by the employees performing this work. Books and blanks.—A tabulated statement of the books and blanks handled during the year, and of mail, freight, and express receipts and shipments is appended: NUMBER OF REQUISITIONS FILLED. Inside service................................................................ 647 Naturalization Service, clerks..............................................4,582 Naturalization Service, examiners............................................ 138 General (Immigration, Employment, Customs).................................. 801 Total..........'..................................................... 6,168 SHIPMENTS MADE. Blanks: Boxes, registered mail...................................... Boxes, regular mail......................................... Boxes, freight.............................................. Packages, registered mail................................... Packages, regular mail.......................■.............. Immigration laws, etc....................................... Bags, regular mail.......................................... Bags, regular mail (other divisions)........................ Letters, invoices, etc...................................... Weight, pounds. 358 0 1,080 32,041 241,582 3,381 133, 920 65,680 1,012 Number. 6 0 3 3, 767 42,694 8, 061 1, 674 821 7,428 Total................................................... 64,454 479,054 Supplies: Freight and express............................................ 7, 620 381, 844 Mail......................................................... 630 1,846 Total................................................... 8, 250 383, 690 NUMBER OF BOOKS AND BLANKS SENT. Books. Blanks. Customs...................................j..................... 217 8,900 Immigration service, general.................................. 1, 306 1,086, 335 Immigration service, New York................................... 955 723,000 Employment service.................................................. 2,196, 680 Naturalization service, clerks................................ 1, 397 1,484, 800 Naturalization service, examiners............................... 380 425, 725 Publications and supplies......................................... 2 247,815 Special and miscellaneous......................................... 2 1,152,500 Certificates of naturalization: 309 books of 10.................................. 3, 090 171 books of 25................................. 4, 275 10 REPORT OF THE SECRETARY OF LABOR. Certificates of naturalization—Continued. 1,772 books of 50..................................... 88, 600 1,355 books of special................................ 67, 750 163,715 Books. Blanks. 3,607 .......... Total.................................................... 7, 866 7, 325, 755 PACKAGES RECEIVED. Blanks and supplies: Blanks........................................................ Supplies.................................................. Weight, N umber. p ounds. 15, 984 231, 514 8, 851 353,469 Total...................................................... Total parcels handled............................................. 24,835 584, 983 97, 539 1, 447, 727 Distribution of publications.—During 1922 there were distributed 2,043,007 publications on mail lists and franks, as compared with 2,978,000 in 1921. Comparative statement of publications issued in 1921 and 1922. Description. 1921 1922 Per cent of increase (+) or decrease (-)• Total publications issued 2,978,000 2,043,007 -31 On mail lists 255,918 403,428 +58 On franks 2,722,082 1,639,579 -40 Franks handled 143,256 153,725 +7 Sixty-three mail lists, comprising 103,867 addresses, are now maintained by the department. Children's Bureau issues.—The demand for the Child Care series of the Children’s Bureau has become so great that that bureau has adopted a policy, wherever possible, of inducing organizations interested to purchase them from the Superintendent of Documents, thus accomplishing a material economy. Bureau of Immigration.—The Bureau of Immigration has adopted a policy of referring most of the requests for copies of the annual report and the Immigration Laws and Regulations coming to it to the Superintendent of Documents, with the result of greatly increased sales of that booklet by him. Supplies.—Appropriations for contingent expenses of the department for the fiscal year ended June 30, 1922, amounted to $50,000, with an addition of the transfer of $13,500 from the appropriation “Expenses of regulating immigration,” for the purchase of supplies for the immigration field service. The unused balance in this appropriation as of October 1, 1922, is $18,152.10, and -will be sufficient to meet the outstanding liabilities. Transactions in the purchase of supplies showed the handling of 1,586 requisitions and the placing of 2,159 orders. REPORT* OF THE SECRETARY OF LABOR. 11 Appointment clerk. Officials and employees.—There was a decrease of 292 employees in the department at the close of June 30, 1922, as compared with the number employed on the same date of the previous year, the reduction being mainly in the Immigration Service and the Bureau of Labor Statistics. These reductions totaled 346, while the annexed table shows an increase of 5 in the number of commissioners of conciliation (due to nominal appointments at $1 a year) and 33 additional employees in the Children’s Bureau. A slight increase was shown in the Bureau of Naturalization, Women’s Bureau, and the Employment Service. The number of positions authorized by statute remains the same as last year, totaling 428. The report shows 424 statutory employees. The remaining 4 statutory positions authorized have not been filled, due to the department’s desire to decrease the force wherever possible. It will also be noted that a reduction in force has been made in the nonstatutory positions outside the District of Columbia. It is interesting to observe that in the report for last year the Immigration Service had an increase of 208 employees and this year a reduction of 320. Last year the Children’s Bureau reduced its force 38 employees and this year increased it by 33. The United States Housing Corporation shows an increase of 4 employees during the fiscal year. Total number of officials and employees in the Department of Labor, July 1, 1922. Bureau or office. Statutory. Nonstatutory. In District of Columbia. Outside District of Columbia. Total, July 1, 1922. Total, July 1, 1921. Increase (+) or decrease (—) during year. Office of the Secretary 119 119 119 119 Commissioners of conciliation... 54 7 1 47 54 2 49 +5 Bureau of Labor Statistics no 11 121 121 147 —26 Children’s Bureau 75 95 121 349 170 137 +33 Immigration 53 1,610 61 1,602 1,663 1,983 —320 Naturalization 67 '212 95 ' 184 279 '271 +8 United States Employment Service 494 32 4 462 494 491 +3 Women’s Bureau 35 34 1 35 30 +5 Total 424 2,511 590 2,345 2,915 3,227 -292 Housing Corporation 57 16 587 583 +4 1 Of this number, 26 are employed at the nominal compensation of Si per annum. 2 Of this number, 3 are employed at the nominal compensation of per annum. 3 Of this number, 34 are employed at the nominal compensation of $1 per annum. 4 Of this number, 312 are employed at the nominal compensation of $1 per annum. Changes in personnel.—The table following indicates the changes of personnel throughout the executive offices and bureaus of the department during the fiscal year ended June 30, 1922. 12 REPORT OF THE SECRETARY OF LABOR. Appointments, separations, and miscellaneous changes in personnel during fiscal year 1922. Bureau or office. Appointments. Separations. Miscellaneous changes Permanent. Temporary. Total. From permanent. Temporary. Total. Competitive. Excepted. Unclassified. Competitive. Excepted. Unclassified. Office of the Secretary. Commissioners of conciliation 11 4 30 2 1 39 59 72 49 180 12 17 31 56 135 225 79 567 17 12 3 24 15 24 69 55 562 53 381 9 46 19 39 104 3,076 299 237 15 Labor Statistics 17 21 111 30 2 5 24 17 282 22 23 5 45 34 239 29 25 4 Children’s Bureau.... Immigration 55 40 4 33 2 333 2 8 N aturalization United States Employment Service.. Women’s Bureau 385 Total 197 514 2 414 1,127 385 399 8 376 1,168 3,835 There was a total of 1,127 appointments, 1,168 separations, and 3,835 miscellaneous changes of personnel during the year. There were 414 appointments to and 376 separations from temporary positions; 197 appointments to and 386 separations from competitive positions; 514 appointments to and 399 separations from excepted positions; and 2 appointments to and 8 separations from unclassified positions. Transfers.—In the matter of transfers to the Department of Labor from other departments and to other departments from the Department of Labor the figures show only a slight change, there being a total of 28 coming into the department from other establishments and 13 going from this department to other establishments. The following table shows the number of transfers to and from the department during the fiscal year ended June 30, 1922: Transfers to and from the Department of Labor during the fiscal year 1922. REPORT OF THE SECRETARY OF LABOR. 13 Comparative statements.—The following table shows the number of persons employed in the Department of Labor at the close of June 30, 1922, and the number who will be on the rolls on July 1, 1922. These changes come about by change in appropriations. The statement shows a decrease of 207 employees between the close of business on June 30, 1922, which is the end of the fiscal year, and the beginning of July 1, 1922. This decrease in the number of employees in the department affects 15 in the District of Columbia and 192 in the field service. Comparative statement of the number of employees of the Department of Labor, June 30, 1922, and July 1, 1922. Bureaus. June 30, 1922. July 1, 1922. In District of Columbia. Field. Total. In District of Columbia. Field. Total. Office of the Secretary 119 147 119 119 147 119 Conciliation 7 54 7 54 Bureau of Labor Statistics 125 2 48 125 121 2 49 121 Children’s Bureau 125 173 121 170 Bureau of Immigration 56 1,827 1,883 61 1,602 1,663 Bureau of Naturalization 97 172 269 95 184 279 United States Employment Service.... 40 3442 482 32 4 462 494 Women’s Bureau 36 1 37 34 1 35 Total 605 2,537 3,142 590 2,345 2,935 1 Of this number 26 are employed at the nominal compensation of SI per annum. 2 Of this number 34 are employed at the nominal compensation of SI per annum. 3 Of this number 312 are employed at the nominal compensation of $1 per annum. 4 Of this number 315 are employed at the nominal compensation of SI per annum. The library. The department library, which now contains approximately 90,000 books and pamphlets, is a carefully selected “working” collection covering practically every phase of the work of the department. It secures and circulates in the bureaus material bearing upon investigations in progress, and also acts as a feeder to the editorial offices of the Monthly Labor Review. About 1,800 periodicals and newspapers are received currently, recorded, and circulated. Besides its basic service to the research work of the department the library is serving a steadily increasing number of outside agencies and individual investigators who find in the Labor Department library material not available to them elsewhere in the United States. The catalogue of over a quarter of a million cards is a bibliography covering the whole field of public welfare. An annotated list of references on “Recent literature on unemployment with particular reference to causes and remedies,” issued at the time of the President’s unemployment conference, has been used extensively by civic organizations, individual employers, and students. The lists on the Kansas Court of Industrial Relations and on Workers’ Education have also been in much demand. 19580—22------2 14 REPORT OF THE SECRETARY OF LABOR. The conciliation service. Few persons in the country have realized the gravity of the industrial disputes which have occurred during the fiscal year just closed. Almost simultaneously more than a million workers in the bituminous and anthracite coal fields and the shopmen of our great railroad systems were on strike. At the same time nearly 80,000 textile workers employed in the mills in the New England States were idle. While the shopcrafts of the railroads were not actually on strike during the time covered by this report, the controversy was impending many weeks before the strike actually began and very soon after the coal strike started. This factor added in a measure to the complexity of the coal situation. These railroad workers came out on strike July 1, the day following the close of the fiscal year covered by this report. Perhaps never before in the life of this Nation have more complex and disturbing problems confronted the Federal Government, problems the solution of which required patience and forbearance in order to render justice to all elements alike. Possibly few trade disputes in the history of the world ever assumed the proportions of the strikes in the coal, transportation, and textile industries. The number of men involved and the duration of the strikes, it is estimated, have never been exceeded in this country. Despite the number of our conciliators engaged solely on the coal strikes in the various important fields involved, the service utilized its good offices in 370 cases, involving directly and indirectly 1,190,000 workers. At the close of the fiscal year there were pending 31 cases. Two hundred and sixty-six disputes were settled by commissioners, and 32 cases were settled in cooperation with State boards and local agencies or committees. Our corps of commissioners actually working throughout the year averaged 22, of which number 10 were engaged for a period of over four months in various fields and in Washington on the coal situation. Bituminous and anthracite coal strike. While the conciliation service during the past fiscal year has been confronted with a number of serious and intricate industrial disputes of grave importance to the country as a whole, the outstanding case was, of course, the general coal strike, involving approximately 450,000 bituminous and 155,000 anthracite miners. Realizing the consequences to the civic and industrial life of the country early in the fall of 1921, the department endeavored to prevent the impending strike. Through personal endeavor and through the efforts of a corps of commissioners of conciliation familiar with the coal industry, propositions were outlined and presented to the miners and operators, but, while respectful consideration was accorded at all times to the suggestions of the Gov- REPORT OF THE SECRETARY OF LABOR. 15 eminent, it was evident early in the spring of 1922 that a suspension was imminent. Finally when some of the bituminous operators in the central competitive field refused to meet the miners in that field prior to March 31, 1922 (as provided in the agreement entered into in New York City on March 31, 1920), and the anthracite miners and operators failed to come to an amicable understanding, the suspension in both coal fields became effective on April 1, 1922. The tie-up was complete in every union coal field of the country with the exception of a part of district 23 in western Kentucky, where a five-year nonstrike agreement expiring March 31, 1923, was in existence. This practically controlled conditions and continued the operation of all of the other union mines in that district. This was the only union field which was not affected during the strike. The administrative machinery* of the Government, through the Secretaries of the Departments of Commerce and Labor, the legislative branch, through the House Committee on Labor, and the conciliation service in cooperation with State agencies in coalproducing States, endeavored to prevent the suspension but without success. The House Committee on Labor summoned operators and miners to Washington and conducted extensive hearings beginning March 31 and concluding April 4. On the latter date the committee through its chairman invited operators and miners of the central competitive field to meet. A few operators expressed a willingness to comply and the miners agreed; but important operators in western Pennsylvania and some other sections refused. The Geological Survey and other Government agencies publicly announced that over 63,000,000 tons of bituminous coal and over 9,000,000 tons of anthracite were in stock on April 1,1922, and that with this extraordinary amount available, supplemented principally by the output from the nonunion mines remaining in operation, the public needs could be met for several weeks, and that in the circumstances no increase in price was justified. Later, when coal prices began to increase, Secretary of Commerce Hoover called the producing operators together, and as a result fixed a maximum price of $3.50 for bituminous coal at the mines. The Secretary of Labor instructed the director of conciliation to assign additional commissioners to the various important coal fields to keep him and his associates constantly inforified; to counsel against any action that would bring about a clash of interests, and to tender their good offices in any serviceable way. The department had for months been compiling data—wage scales and working rules, earnings and cost of living—in every bituminous coal district and bringing them down to date. It was 16 REPORT OF THE SECRETARY OF LABOR. therefore in a position to advise and cooperate with all other interested Government agencies in the analysis of all the contributing underlying factors. This strike created, without doubt, the most complex industrial situation that has ever confronted the United States. Over 600,000 workers involved—anthracite and bituminous—25 States directly concerned, and the whole country seriously affected. Matters of earnings, working conditions, overdevelopment, overmanning, competition, intermittency of employment, marketing, freight rates, readjustment, and many other factors contributed to the difficulties confronting the Government, the operators, and the workers. Many conferences were held by me with representatives of operators and miners in Washington, Pittsburgh, Chicago, New York, and elsewhere. The President called a joint conference of operators and miners for the purpose of working out a plan of settlement mutually satisfactory. This conference met at Washington, and the President in an address impressed upon the representatives of employers and employees the necessity for an adjustment in the interest of the common welfare of the Nation. At this conference the Government was represented by the Secretary of Commerce and the Secretary of Labor. This conference labored diligently for a number of days but finally adjourned without having reached any agreement. The President thereupon requested the representatives of the miners and the representatives of the operators to meet him at his office, which they did. The President at this meeting suggested that the men go back to work at the old scale of wages and under conditions as they existed before the strike, and that the whole matter in dispute between the two contending elements be referred to a commission to consist of three representatives of the miners, three representatives of the coal operators, and five representatives of the public, and that both sides agree to be bound by the findings of this commission. The coal operators had requested wage reductions varying from 25 to 40 per cent and did not regard with favor the President’s suggestion that the men go back to work on the same scale as had been in vogue prior to the strike. The operators and miners each met in separate conference to consider the President’s proposition. All of the bituminous miners and a large percentage of the bituminous operators refused to accept the proposition. The anthracite miners refused but the anthracite operators accepted the proposition. A minority of the bituminous operators also accepted the proposition. However, since unanimous action was necessary on both sides, the proposition brought no results. On July 1 the shop crafts employed on the railway systems of the country, to the number of 400,000, came out on strike, further complicating the coal situation. REPORT OF THE SECRETARY OF LABOR. 17 After the close of the fiscal year on June 30 the coal strike situation became each day more serious. Stocks of coal on hand were soon practically exhausted and the weekly production of bituminous coal from mines at work made up less than one-half of our weekly needs. The Government continued its efforts; a number of governors from coal States and from great industrial States endeavored to secure district settlements without avail. The strike was national in its scope so far as union mines were concerned. Early in June the Department of Labor, convinced that no adjustment could be reached unless a conference could be convened, centered its efforts on this program. Many operators were anxious to sign up and resume work. The president of the United Mine Workers of America finally called a meeting of the central competitive field at Cleveland, August 8. After a few days the conference representation was enlarged to cover a certain tonnage outside of the competitive field, and on August 15 a basis of settlement was agreed to which provided that the miners return to work until March 31, 1923, under the same wages and working conditions in effect when they quit work. The agreement also provided for a fact-finding commission which would report before the expiration of the contract, so that its conclusions might be available in making a new agreement. Within a few days the agreement, sponsored chiefly by Ohio coal operators, was accepted by Indiana, Illinois, central Pennsylvania, southwest fields, and practically all soft-coal fields in the country, except certain sections of western Pennsylvania, West Virginia, and a few smaller operations elsewhere, but which followed in their acceptance later in the month, so far as wage rates were concerned. As a result, by September 1 the production had increased to 9,500,000 tons weekly, or over 1,500,000 tons in excess of the average weekly production of last year, which was not quite 8,000,000 tons per week. The strike began April 1, 1922, and ended August 15 to 25, 1922, or 137 to 147 days—the longest and greatest strike in our industrial history considering the number of men involved, viz, 605,000 men. Anthracite strike. After the Cleveland bituminous conference arrangements were made between the parties to the anthracite dispute to meet in Philadelphia. A meeting was called for August 17, but adjourned and convened August 21, and an agreement was soon reached as to the wage scale. It provided for the same wages in effect when the strike was called, but the operators insisted on the agreement expiring March 31, 1923, and on some form of arbitration to report prior to that date as to the basis for a new agreement effective after April 1, 1923. The miners opposed any arbitration commission and stood out for the agreed wage scale, to run until 1924, 1925, or 1926, and the 18 EEPORT OF THE SECRETARY OF LABOR. maintenance of the principle of collective bargaining, not to be subject to the dictation of any outside authority. Senators Pepper and Reed, of Pennsylvania, lent their good offices in cooperation with other Federal officials and on September 2 a compromise on this difference was reached which extends the agreement to August 31, 1923, without arbitration. The strike began April 1, 1922, and the agreement was reached September 2, 1922. Work was fully resumed September 11, 1922, or 164 days after the closing of the mines April 1. The futility of this, our greatest industrial strike,both as to number of men involved and its duration, is shown when we note that the entire union bituminous and anthracite industry resumed work after four and one-half to five and one-third months of idleness on precisely the same wages and working conditions as prevailed when the strike was called. Railway shop crafts strike. • The Department of Labor has no jurisdiction in cases involving employees engaged on interstate railways. Under the Esch-Cummins Act, approved February 20, 1920, there was created a “Railroad Labor Board” of nine members, equally representative of management, employees, and the public. The board has complete jurisdiction over railroad workers, and while the department through its conciliation service has, whenever appealed to, endeavored to render all possible assistance, it is not under the law authorized to act in cases of this character. While the railway shop craftsmen actually went on strike July 1, 1922, or the day after the close of the fiscal year here considered, it is deemed necessary to deal with the subject in this report because the controversial stage of this strike began soon after the coal strike had started, and these two great controversies bore a certain relation to each other, so that it is not practical either to separate the two controversies or to terminate their discussion with the close of the fiscal year. Immediately following the beginning of the shop crafts strike on July 1, 1922, the Railway Labor Board worked diligently and incessantly in efforts to bring about an adjustment. However, when the controversy had reached the stage where further progress toward a solution seemed impossible, with the approval of the President I took up the matter with the shop crafts’ representatives who were then in Chicago. These men met me at Mooseheart, Ill., near Chicago. An extensive conference was held, during which I received from the men proposals of terms on which they would return to work. I immediately returned to Washington and reported to the President the result of my conference with the men and suggested that he call' these same representatives of the workers to REPORT OF THE SECRETARY OF LABOR. 19 Washington for a further discussion of the matter with him. After two conferences the President submitted a definite plan of settlement. The President then called in the late Mr. T. Dewitt Cuyler, chairman of the Association of Railway Executives, who, I understand, agreed to urge acceptance of the proposition submitted. It appears, however, that when the plan was presented to the Association of Railway Executives in New York it was rejected. The President then suggested that this proposition be referred back to the Railway Labor Board. However, this was not agreeable to either the executives or the shop crafts workers. The situation thus having become deadlocked, I suggested to the shop crafts men the desirability of individual settlements with those railroads, constituting a majority, who were willing to settle on the terms satisfactory to the workmen, substantially along the same lines which brought about a settlement of the coal strike. Some typical cases. The nature and type of the controversies that come to the attention of the Division of Conciliation are as varied as is the field of industry and human endeavor. It is not possible nor necessary to describe in detail in this report all of the cases submitted to the department for conciliation during this fiscal year. Following are a number of cases which are generally typical and descriptive of the work of conciliation in the Department of Labor: St. Andrews Bay Lumber Co.—In August, 1921, the department received a telegram from Mr. J. E. Winstanley, general representative of the International Union of Timber Workers, advising that the St. Andrews Bay Lumber Co. at Panama City and the Millville district of Florida was discriminating against and discharging union men, and requesting the good offices of the department with a view to bringing about a better understanding. Immigrant Inspector Thomas V. Kirk was delegated to act as a commissioner of conciliation and endeavor to adjust the difficulties. Considerable objection was made to the holding of a joint conference, but the way was smoothed by Commissioner Kirk and the contending parties brought together. A full, free, and frank discussion followed. Each side freely expressed itself, but there were no acrimonious remarks and a much better feeling soon manifested itself. Mr. J. M. Barrow, general manager of the company, stated that the company would not discriminate against union men and that he would take back the men as fast as they were needed. On this basis the entire matter was adjusted. Guards employed by the company were discharged and the sheriff and deputies withdrawn. At all the mills where incipient strikes had broken out the men were reemployed. This very satisfactory settlement meant more than appeared on the surface. The adjustment of the controversy prevented a possible tying up of the lumber industry where several thousand employees were at work and enabled the company to continue negotiations for the sale of over 10,000,000 feet of lumber to foreign countries. New England textile strike.—The trouble in the New England textile industry originated in Rhode Island, where the employees went on strike about February 1 in resistance to a wage reduction of 20 per cent and a lengthening of the weekly work from 48 to 54 hours. This reduction in wages was in addition to a cut of 22-£ per cent made in December, 1920, and which was generally accepted by the employees at that time as a natural sequence from the high rate in effect during the war period. 20 REPORT OF THE SECRETARY OF LABOR. The department assigned commissioners of conciliation to the situation on February 7 at the request of the American Insurance Union, of Providence, R. I. The governor of that State appointed a mediation commission with a view to effecting an adjustment. This commission, after a thorough investigation, made a recommendation which was unanimously rejected by both sides. New Hampshire.—The conditions in New Hampshire were somewhat similar to those in Rhode Island. In this State the operators are also demanding a 20 per cent reduction in wages and an extension of the weekly hours from 48 to 54. A State mediation board exists in New Hampshire and has made repeated efforts to arrive at an adjustment. Our commissioners of conciliation have cooperated with this board and have made thorough investigations of conditions. The governor of New Hampshire offered as a solution of the difficulties a plan providing for a 51-hour week and a wage cut of 10 per cent. Both sides declined to accept this compromise. On June 5 the operators opened their mills and endeavored to resume operations. The effort was apparently not very successful. Massachusetts.—The situation in Massachusetts differs somewhat from that in Rhode I land and New Hampshire in the fact that no effort is being made to lengthen the hours of labor, a 48-hour law being in effect in that State. A 20 per cent wage reduction has been demanded, however. Isolated instances of adjustments have been reported, but the general situation in Massachusetts remains about the same. The Department of Labor has had four commissioners of conciliation assigned to this series of strikes, and propositions of all kinds have been advanced looking to a possible solution.1 It is estimated that fully 80,000 operatives are directly affected by the strike. Milk industry, New York City—A strike of 11,000 workers engaged in the milk distribution industry of Greater New York and vicinity began on November 1, 1921. It affected route salesmen, route riders, teamsters, chauffeurs, helpers, platform and yard men, foremen, watchmen, stablemen, ice-house men, pasteurizers, checkers, bottle fillers, bottle washers, store managers, etc. The milk distributers had asked for a wage reduction of 13,3 per cent. The employees countered with a demand for an increase of $5 per week. The department assigned Commissioners Charles Bendheim and Homer J. Brown to the case on October 24. They immediately got in touch with the milk conference board and their good offices were accepted with thanks by that organization. They subsequently visited the headquarters of the union and joint conference of the contending parties was arranged for October 26. This conference did not result in a reconciliation of differences and dissolved. A second joint conference was arranged for October 29 at 3 p. m., which continued in session until 6 p. m., when an adjournment was taken until Sunday, October 30, at 3.30 a. m., from which time it was in continuous session, with the exception of an adjournment between the hours of 3 a. m. and 7 a. m., until Monday, October 31 at 4 p. m. During the progress of the conference the parties had successfully mediated about 30 articles of the agreement covering hours of labor and working conditions and had reached a point where the question of wages was under discussion and consideration. At this point the union representatives began to manifest great impatience. The representatives of the milk distributors held a hurried conference and then informed the conciliators that they were willing to withdraw their demand for a decreased wage and to continue the existing scale for another year, and authorized the commissioners to submit the proposal to the union representatives for acceptance. The proposition was submitted to the representatives of the union and was summarily i Since August 1,1922,many of these textile cases have been adjusted, particularly in Lawrence and some other textile cities in Massachusetts. Some cases have been settled in Rhode Island, and a few smaller mills elsewhere in New England have been started. Many of the mills resumed on former wage scales. REPORT OF THE SECRETARY OF LABOR. 21 rejected. An offer to arbitrate the wage question was urged by the commissioners, but this was also rejected by the union officials. The conciliators exerted every possible endeavor to make the union representatives perceive the deplorable situation which would result from an interruption of the distribution of the necessary milk supply in a territory embracing fully 10,000,000 people. They were unsuccessful, however, and the strike became effective. The employers had not, previous to the strike, raised the question of union recognition, but thereafter their attitude changed and they reached a determination to no longer recognize the union or have further dealings with it. They immediately began to employ workers to take the places of the strikers and were successful to such an extent that a new force was soon secured. This strike could have been averted had the workers’ representatives shown a disposition to compromise on the proposition submitted through the commissioners. As a result the employees lost the opportunity for collective bargaining, and the retention of their positions with the scale of wages in effect at the time of the strike. It is reported, however, that many of the strikers were afterwards restored to their former positions. Lumber industry in the Northwest.—In March, 1921, Mayor W. S. Wiley, of Klamath Falls, Oreg., requested the assignment of a Government mediator to assist in adjusting a strike in the lumber industry in that city. Commissioners E. P. Marsh and C. T. Connell were assigned and proceeded at once to the scene of the trouble. A survey ox the situation disclosed the fact that the trouble was not confined to Klamath Falls, but was quite general in Oregon and northern California. The difficulties at Klamath Falls were due to the inauguration of the 9-hour day. At Weed and other points in northern California the 10-hour day had been decided upon by the operators, and in addition a revision downward of the wage scale. The question of union activities was a pertinent one in the dispute, the operators refusing to have any contact with labor representatives. The Oregon State Board of Mediation cooperated with and assisted the Federal conciliators in every way possible. This board has statutory power to subpoena witnesses, take testimony under oath, and compel the production of books and records. It has no power to compel arbitration or the acceptance of its findings in any case, but these findings become matters of public record. Following the failure of the board’s attempt at mediation it proceeded to arbitrate the matter and eventually reached a decision upholding the 8-hour day and establishing a minimum wage of $3 per day. The operators rejected the award. A joint meeting of the contending parties was then suggested by the operators, at which time they would endeavor to convince the workers of the economic soundness of the position which they had taken. This meeting was arranged by Commissioner Marsh. The utmost frankness and courtesy prevailed, but when the vote was taken upon the acceptance or rejection of the operators’ plan it was almost unanimously rejected. Matters remained in status quo for some time after the meeting, and when the struggle had every appearance of being a long-drawn-out one the Federal mediators suggested the advisability of the strike being called off. The suggestion was duly considered by the strike leaders and permission to return to work was formally given on June 18, when the strike came to an end. In the meanwhile the strike at Weed and other points in northern California adjusted itself through the gradual return of the men to work on the companies’ terms. The reestablishment of the 9 and 10 hour day in the industry has become quite general. The packing-house strike.—On September 15, 1921, the Alschuler agreement, through which peace had been maintained in the packing-house industry since the war period, came to an end. On October 21 the union voted to invest its executive board with power to call a strike if such action became necessary. This action was taken in 22 REPORT OF THE SECRETARY OF LABOR. anticipation of announcements of wage reductions by the packers. Four of the Big Five packers had established plant councils in their establishments, and on November 9 these packers requested their employees, through the plant councils, to accept a reduction in pay. On November 18 it was announced that the employees had accepted a reduction of about 10 per cent, which was to become effective on November 28. On December 1 the executive board of the union announced a strike, effective December 5, in all plants where the reduction was put into effect. On December 8 the Department of Labor tendered its good offices with the view of being helpful in arriving at an adjustment. The union agreed to call off the strike and return to work if the packers would arbitrate or rescind the wage reduction. The latter refused to deal directly with the union, which was in line with the former policy, but agreed to take up all matters of dispute through the plant councils. On December 13 and 14 the Secretary of Labor conferred with representatives of the packers at Chicago in an effort to find a basis of settlement. On the same day commissioners of conciliation were assigned at New York City and East St. Louis, and later at Fort Worth, Denver, Oklahoma City, and other points. It was soon found that settlements in the various cities affected were contingent upon an agreement being reached in Chicago. Unskilled workers in the packing-house industries constitute 65 per cent of the total employees. Their hourly wage, prior to the announced wage reduction, was 45 cents per hour, having been reduced in March, 1921, from 53 cents. 1 he reduction of November 28 made the scale 37J cents per hour for this class of labor. The efforts to effect an adjustment were unsuccessful, and after a strike of many weeks it was called off by the union and work was resumed on the companies’ terms. The Chicago Typothatz.—In November, 1921, the Chicago Ty pothat se, employing printers, served notice on the printing trades that they desired conferences for the purpose of reaching an agreement as to a reduction of wages or increase of hours, or both. These unions immediately conferred and decided to unitedly resist reductions. They requested the employers to meet them as a unit. This the employers refused to do. Strike action was threatened. Commissioners Oscar F. Nelson and B. M. Marshman were assigned to the case by the department. Following the refusal of the employers to meet the five unions as a unit, the commissioners urged the unions to meet their employers as in former years, each union taking up its agreement with its employers. This course was decided upon and in a few days an agreement was reached between the bookbinders and employers which provided for a wage reduction from $42.50 to $39.25 per week. In March, 1922, the press feeders came to an agreement by accepting a reduction from $39.65 to $36.65 per week. Also in March the pressman settled on a basis of $3.65 reduction, making their weekly wage $44 in lieu of $47.65 previously in effect. During the same month the bindery women accepted a reduction of $1 per week, making their scale $21 per week for table work and $22.50 for general work. The Typographical Union, the largest of the five unions concerned, could not reach an agreement until April, when both sides agreed to arbitration. The proceedings began on May 1 and concluded on June 13. The award granted the workers an increase of $1.75 per week, making the scale for day work $48.40 and for night work $50.80. No change in the hours was made, the number of hours of work per week remaining at 44. The award affected 4,300 members. Full-fashioned hosiery workers, Philadelphia.—A strike of approximately 1,400 operatives in the full-fashioned hosiery industry in the city of Philadelphia was inaugurated on January 1, 1921, because of a demand made upon them by their employers for a 15 per cent cut in their wage scale and the establishment of the open shop. Two conferences were held between the parties in controversy, but no mutually satisfactory agreement could be arrived at. The strike dragged along for several months, the REPORT OF THE SECRETARY OF LABOR. 23 employers hiring such help as they could get until they were able to operate at about 33 per cent capacity. During the month of July the department’s representatives, Messrs. John W. Ford and John A. Moffit, were solicited to use their good offices with a view to arriving at an amicable adjustment. A survey of the situation disclosed that at the beginning of the controversy 36 mills were involved, but 22 of these made arrangements with their operatives providing for the 1920 scale, and in a few cases 10 per cent in excess of that scale. This left 14 firms to continue the controversy. The commissioners held numerous conferences separately, with committees of the strikers and representatives of the employers. Finally, on August 17 a joint conference was held at which the following plan of settlement was submitted: 1. 1920 wages to be paid in all shops. 2. All employees to be reinstated without discrimination on their old jobs or their equivalent in the same shop. 3. That when a contention arises on the part of the employer or employee as to whether the job offered is equal to the position vacated prior to the strike, same must be submitted to an impartial board'for decision. This proposition for a settlement was not accepted at once and the strike continued until about October 10, when one of the largest firms withdrew from the association and accepted the terms outlined above. This was followed by a general acceptance by the remaining concerns of the provisions of the plan set forth. Gold Leaf Manufacturers Association.—The case of the gold leaf beaters wage dispute illustrates the great diversity of matters brought to the division of conciliation for adjustment. In December, 1921, a conference was held in New York City between representatives of the gold beaters unions of New York, Philadelphia, Boston, and Chicago and the Gold Leaf Manufacturers Association to discuss a reduction in wages which the manufacturers were demanding. Adjournment was made postponing action of any kind for a period of six weeks. In the meanwhile the department was asked to assist in arriving at a satisfactory basis of settlement. Meeting of the various local unions in the organizations were held in which they voted to accept no reductions in wages. This action was predicated on the fact that the industry was in the throes of industrial depression which allowed only half time employment and that the employees could not withstand further reductions in the pay envelope. In January the gold leaf manufacturers announced that the subject of a wage revision would be held in abeyance for the time being. In March, however, the manufacturers association again served notice that beginning April 3 the men must accept a reduction of 5 cents per book for pieceworkers, and an equal amount for week workers. A committee of the union met in joint conference with the manufacturers on March 29, and after a full discussion of the whole matter the union representatives agreed to recommend to their local unions that the reduction be accepted until such time as conditions in the industry would permit the restoration of the old wage. Newport Shipbuilding Co., Wilmington, N. C.—About 1,000 employees of this company went on strike on October 1, 1921, in protest against a wage cut of 7 cents per hour. Their places were being filled by mechanics from as far away as Philadelphia when Commissioner John B. Colpoys tendered the department’s good offices. A compromise reduction of 5 cents per hour was suggested by the commissioner, and, after due consideration, was accepted by the management. The commissioner then addressed the strikers in mass meeting and prevailed upon them to accept the proposition. The strikers were all reinstated. Motion-picture operators and stage hands, Washington, D. C.—A contract under which the motion-picture operators, musicians, and stage hands had been working expired on August 31, 1921. The Theatrical Managers’ Association asked their employees to 24 REPORT OF THE SECRETARY OF LABOR. accept a 20 per cent reduction in wages. A deadlock ensued and the good offices of the department were proffered. After several meetings, it was finally decided that the workers would accept a 10 per cent reduction in their pay. About 500 were directly affected by the settlement. Silk workers, Easton, Pa.—In March, 1922, the department was advised of a strike of loom fixers and others, which brought about a shutdown at the plant of the Haytock-Cronemyer Silk Co., at Easton, Pa. It appears that the trouble rose through the discharge of a number of silk twisters, which necessitated the company importing warps which it was claimed was the product of nonunion looms. The loom fixers went out in protest, which necessitated the closing down of the entire plant, throwing some 700 operatives out of work. Commissioner E. H. Dunnigan arranged separate conferences in an endeavor to arrange an adjustment. The wage reduction amounted to but 6, 8, and 10 per cent. The strikers were finally prevailed upon to accept the cut and operations were resumed. Tinners and sheet-metal workers, Memphis, Tenn.—Commissioner W. C. Liller negotiated an agreement which adjusted a strike of tinners and sheet-metal workers at Memphis, Tenn. The agreement provided for the return to work under union conditions of the men on strike at a wage rate of 87 4 cents per hour, the agreement to continue for a period of two years from February 1, and provides for arbitration of any differences that may arise. Janitors versus Chicago Real Estate Board.—The janitors employed in the apartment and flat buildings of Chicago had an agreement with the Chicago Real Estate Board which provided that wages should be based on the rentals received, i. e., 84 for each $60 rental per flat. The real estate board attempted to reduce this rate and a deadlock ensued. The department’s commissioners suggested that the wage rate be submitted to arbitration, and both sides agreed. Municipal Judge Bernard P. Baiasa was named arbitrator. A strike was averted and the comfort of the apartment-house dwellers assured. Southern textile mills.—-Commissioner Robert M. McWade was instrumental in securing the adjustment in a strike involving 9,000 textile workers in the cities and towns of Charlotte, Concord, Huntersville, Kannapolis, and Rock Hill, N. C. This strike began on June 1 and ended on or about September 15. The cause of the trouble was efforts of the operatives to have restored to them the amount involved in a wage cut approximating 25 per cent, which followed a cut of larger proportions some time before. The strikers returned to work at the same rates of pay and with the same working hours as were in force prior to the strike. Gov. Cameron Morrison cooperated cordially with Commissioner McWade and assisted greatly in arriving at an adjustment. Bush Terminal Co., New York City.—Tho importance of the settlement of this strike lies in the fact that fully 40,000 workers were indirectly affected. The cause of the trouble was a misunderstanding as to the full extent of the wage reduction which had been put into effect. Commissioner Charles Bendheim assisted in negotiating an agreement by which the strikers were reinstated within a short time. Mill workers, New Orleans, La.—A strike of 350 sash and door makers in New Orleans grew out of a notice posted by the mill owners advising their employees that the agreement under which they had been operating would not be renewed, and that because of keen competition the 9-hour day would be put into effect. Commissioner William T. Christy, representing the department, met both sides in conference and secured an agreement by which the men returned to work under the same condition that existed when they walked out. The agreement was not renewed, however, the understanding being a verbal one. Andrews Rolling Mill Co., Newport, Ky.—A stubborn strike which the department has been unable to adjust occurred in the plants of the Andrews Rolling Mill Co., the Globe Iron Roofing Co., and the Newport Rolling Mill Co., at Newport, Ky. The employees’representatives requested the right of collective bargaining for all of the local unions involved. The companies expressed a willingness to sign the scale REPORT OF THE SECRETARY OF LABOR. 25 for local union No. 5, but declined to sign same for locals Nos. 15, 16, and 17, the members of which worked in the industrial departments. The strike has been accompanied with much violence and the bitterness thus aroused has made a settlement impossible. Martin Leather Co., Wilmington, Del.—The discharge of the president of the local union of leather workers at Wilmington, Del., by the Martin Leather Co. was the cause of a controversy which threatened to culminate in a strike in August, 1921. It was intimated by the company that the discharged employee had solicited membership in the union during working hours. Tliis charge was denied flatly by the employees. , Commissioner Thomas J. Williams was able through a joint conference to secure the reinstatement of the discharged man which averted the impending strike. Building trades, Champaign and Urbana, III.—On April 1 the various crafts composing the building trades at Champaign and Urbana, Ill., went on strike after refusing to accept a wage reduction. Commissioner W. C. Liller proffered the good offices of the department, which were accepted by both sides and conferences were arranged. The carpenters had previously accepted a reduction from $1 to 90 cents per hour and were not involved. At the last conference it was mutually agreed that all crafts should accept a reduction of 5 cents per hour. The carpenters then requested a revision of their agreement to correspond with the arrangements made with the other crafts. This was agreed to and the carpenters were allowed 5 cents per hour increase. The adjustment permitted work to be resumed on building projects to the value of, about $5,000,000. Balers, Washington, D. C.—The journeymen bakers and assistants of Washington threatened to strike in April, 1922, when requested by the master bakers to accept a wage reduction. About 650 bakers and 49 firms were involved in the dispute. A number of joint conferences were arranged by Commissioner E. H. Dunnigan. The matter was amicably adjusted over the council table through the employers withdrawing their demands and allowing wages and working conditions to remain unchanged for the ensuing year. Nashua Gummed and Coated Paper Co., Nashua, N. II.—The employees of this company went out on strike on Apirl 3, 1922. Wages had been reduced approximately 15 per cent. The company maintained that this action was necessary because of the condition of the market. Many of the vacancies brought about by the strike had been filled with new employees and the strike appeared to be lost. The commissioner conferred with the management and secured a statement by which the employees would be taken back as rapidly as possible. The strike was declared off on May 6, and the company’s terms accepted. Jute and flax, industry, Paterson, N. J.—A stubborn strike which was still pending on July 1 was inaugurated in the jute and flax industry of Paterson, N. J., in February, 1922. The trouble arose over the question of hours and elimination of overtime. The industry had been operating on a 44-hour week basis, in conjunction with the silk industry of that city, and the operators attempted to institute the 50-hour week in lieu thereof. The operatives maintained that wages were also unjustifiably low. The situation was still deadlocked on July 1, both sides manifesting an unwillingness to get together and effect a settlement. Jurisdictional dispute, Aurora, III.—A jurisdictional dispute in the building trades at Aurora, Ill., caused a suspension of building operations in Aurora and vicinity in May, 1922. The difficulties arose over the placing of the president of the local bricklayers union on the unfair list by the building trades council. B uilding operations had been stopped on many projects due to the withdrawal of the bricklayers pending a settlement. At a meeting of the building trades council the matter was amicably adjusted through the withdrawal of the order previously taken. Clothing workers, Bridgeport, Conn.—Commissioner John B. Colpoys assisted in negotiating an agreement which terminated a strike of 400 clothing workers in Bridge 26 REPORT OF THE SECRETARY OF LABOR. port, Conn., in June, 1922. Attempts to settle the strike by the chamber of commerce and other local bodies had ended in failure. The strikers were demanding an increase of $3 per week and a 44-hour work week. The commissioner was successful in arranging a joint conference at which the matters in dispute were vigorously discussed. Finally an agreement was reached which provided that the week work should consist of five days of nine hours each, and an increase of $1 in lieu of the $3 demanded was conceded. All of the strikers were reinstated and a much more friendly feeling was brought about. Kosher bakers, New York City.—The International Bakery and Confectioners’ Union issued official sanction for a general strike of 5,000 kosher bakers in Greater New York and vicinity in May, 1922. It appears that the Jewish bakers enter into agreements with the individual employers on May 1 of each year. Successive yearly attempts have been made to form an association of bakers to deal with the union, but the latter have refused to make the change. New contracts were entered into between the Jewish local unions and the individual employers as in previous years. These contracts run to April 30, 1923. Harbor boatmen, Philadelphia, Pa.—An acute situation in Philadelphia Harbor developed in May, 1922, due to a request of the boat operators that the men accept a wage reduction of 25 per cent and a change in working conditions wliich the workers claimed would have reduced their compensation about 38 per cent. The situation appeared very threatening, but a joint conference was held at which a conciliatory spirit became manifest. At this meeting it was recommended that a flat wage cut of 5 per cent without any change in working conditions go into effect. At a meeting of the men concerned the recommendation was accepted and peace assured until May 1, 1923. Commissioner John W. Ford was instrumental in arranging the settlement. American Shipbuilding Co., Lorain, Ohio.—The employees of the American Shipbuilding Co. at the Lorain plant of that company went on strike on April 22 in protest against a wage reduction of about 8 per cent. These employees were unorganized and their action seemed ill advised due to the fact that the new wage rate was in conformity with wages paid in all other shipyards on the lake. Commissioner A. L. Faulkner recommended the acceptance of the new rate, in view of all the circumstances in the case, and upon further consideration the recommendation was accepted and the strike declared off on May 17. Barron Bros., cigar manufacturers, Chicago, Ill.—Yhe cigar makers in the employ of this company went on strike on April 8, after flatly refusing to accept a wage reduction of $2 per thousand. A demonstration of the truth of the theory that the best settlements are those arranged over the council table is afforded in this case. At a joint conference arranged by Commissioners Nelson and Marshman the points at issue were thoroughly gone into in a friendly spirit, which resulted in the company finally agreeing to accept a reduction of SI per thousand. This was acceptable to the men and they returned to work on May 29. Summary of workmen affected, by months. Month. Workmen affected. Month. Workmen affected. Directly. Indirectly. Directly. Indirectly. July 31,535 20,586 10,431 31,278 111,899 37,012 18,926 26,370 15,597 4,665 515 49,076 10,925 3,495 February 87,929 14,902 23,548 620,717 38,524 450 23,860 1,100 „ 11,565 1,620 A ngnst March Sp.pt.Am bcr April October May o yp.jp ber June December Total 1,047,287 149,238 January REPORT OF THE SECRETARY OF LABOR. 27 Number and disposition of cases. Mar. 4,1913, to June 30, 1922. 1914 1915 1916 1917 1918 1919 1920 1921 1922 Number 33 42 227 378 1,217 1,780 802 457 370 Adjusted 28 26 178 248 865 1,223 596 338 1 266 Unable to adjust 5 10 22 47 71 111 96 48 41 Pending 5 21 42 7 13 9 24 31 Unclassified 1 6 41 66 214 101 47 32 RECAPITULATION. Number of cases handled. Month. 1921. July 31 August 42 September 27 October. 29 November 35 December 28 1922. January 27 February. 11 March 24 April 20 May 22 June 15 Total 311 California oil cases 1 25 Bituminous coal cases 1 11 Textile cases 1 23 Total 370 1 California oil eases (adjusted), 25; bituminous coal cases (adjusted), 11 (individual cases in West Virginia, Kentucky, and Tennessee); and textile eases (pending), 23; a total of 59 cases. Note.—Since the close of the fiscal year coal strike adjusted. Since July 1 a large number of textile cases settled, particularly in Massachusetts and Rhode Island. Cases reported from each State for each month. State. July. Aug. Sept. Oct. Nov. Dec. Jan. Feb. Mar. Apr. May. June. Total. Alabama 2 2 California 2 3 1 2 2 1 1 5 17 Colorado 1 1 Connecticut 1 2 3 Delaware 1 2 3 District of Columbia. 1 2 1 1 1 1 7 Florida 1 1 2 Illinois 4 2 7 4 5 5 3 ...... 2 4 4 40 Indiana 6 1 1 3 1 1 13 Iowa 1 1 2 - 1 5 Kansas 1 1 Kentucky 1 3 1 5 Louisiana 1 2 3 Maine 1 1 Maryland 2 1 1 2 1 2 3 9 Massachusetts 1 2 4 2 1 2 15 Michigan 1 1 2 Missouri...; 1 2 3 Montana 1 1 Nebraska 1 1 New Hampshire New Jersey 1 i 2 5 2 2 2 5 1 1 4 3 1 28 New York N orth Carolina 2 1 10 4 1 6 5 4 3 5 2 2 3 46 2 Ohio 2 2 1 1 2 2 4 1 4 19 Oklahoma 1 1 2 Oregon 2 1 1 3 1 1 1 10 Pennsylvania 6 4 3 3 7 3 1 2 2 1 2 34 28 REPORT OF THE SECRETARY OF LABOR. Cases reported from, each State for each month—'Continued. State. July. Aug. Sept. Oct. Nov. Dec. Jan. Feb. Mar. Apr. May. June. Total. Rhode Island................................. 1 ..... 1 ......... Tennessee................... 1 ................ 1 3 2 Texas....................................... 1 1 ........... Virginia.......................................................... Washington......... 1 ............... 4 ..... 1 3 ...... West Virginia............... 2 1 .............. 1 ........... Wisconsin................... 7 .................................. Wyoming......................... 1 ....................... 1 California oil cases.............................................. Bituminous coal cases............................................. Textile cases..................................................... Total....................................................... 2 7 2 1 9 5 7 2 25 11 23 370 United States Employment Service. Confronted with practically an unprecedented period of unemployment during the past year the United States Employment Service has demonstrated its usefulness and to it much credit should be given in lessening the burden of the depressed industrial situation. At no time is the American wage earner in such need of intelligent and effective attention to his welfare as when he is among the unemployed. During the peak of the unemployment period, which was reached in the early part of the fiscal year under review, between five and six million wage earners were out of employment. At the end of the year we find employment conditions nearly normal, and had it not been for controversies in two of our basic industries it is safe to say all unemployment would have been wiped out some time ago. During the past year the Employment Service extended its policy of coordinating the work of State and municipal employment offices, so far as its appropriations would permit, and effected cooperation with 9 additional States, making a total of 41 States now cooperating with the national service. The combined service has operated 239 public employment offices. During the depths of the industrial controversy just past the Employment Service was put to a severe test. Needless to say every effort was made to relieve the condition of unemployment throughout the country by the stimulation of public improvements and other means recommended by the President’s conference on unemployment. That the service has been a material aid in relieving the situation is evidenced by the fact that 2,874,785 registrations were recorded in the offices under the direction and cooperation with the Federal service, while 1,810,490 applications for help were received, to which were referred 1,734,493 persons from among those registered. Of these, 1,458,746 were actually placed in employment. When the worker is out of a job he is more or less likely to become the victim of fake employment agencies, which fatten upon the needs of the unfortunate. Not only does the Employment Service REPORT OF THE SECRETARY OF LABOR. 29 endeavor through cooperation with State and municipal offices to find jobs for the jobless but it keeps a watchful eye upon the activities of unscrupulous fee-charging agencies. A number of instances where the intervention of the department has resulted in curbing such activities are among the records of this service. Farm and harvest work.—The United States Employment Service has maintained a farm labor bureau for the purpose of assisting in caring for such crops as require special seasonal labor. The farm labor bureau has conducted its work chiefly in the Middle Western States, from the Mississippi River to the Rocky Mountains, and from Texas and Louisiana to the Canadian line. One of its principal func-tions is the recruitment, clearance, and distribution of an army of between 70,000 and 80,000 workers for the cutting of the wheat harvest in the grain belt, which begins in Texas about June 1 and extends through Oklahoma, Kansas, Missouri, and Nebraska, winding up with cutting and threshing in the Dakotas in September. Close cooperation exists between the State and county farm agents, thereby eliminating the confusion that existed before the Federal Government became the central directing head for the recruiting and distribution of harvest workers. The farm labor bureau maintains permanent headquarters at Kansas City, Mo., and a permanent office at Sioux City, Iowa, the latter in cooperation with the State of Iowa and the municipality of Sioux City. During the harvest season the farm labor bureau maintains 39 temporary employment offices in all States in or adjacent to the Wheat Belt. The permanent offices in Kansas City, Mo., and Sioux City, Iowa, which are the gateways to the wheat fields, direct the work of recruiting farm labor from communities where the least local disturbances will ensue by their transfer, having in mind, of course, the importance of securing adequate help to harvest the crop. The 39 offices are located at strategic points in order to keep the labor moving northward as the wheat ripens for cutting. The Kansas City office receives from all wheat States reports as to the acreage, condition, probable yields, local labor supply, additional laborers required, wages to be paid, and the time that cutting will start. This information must be accurate, reliable, and applicable to the various sections of the different States, as crop, weather, and labor conditions will differ materially in different localities of the same State, so, also, will cutting vary in the same State as much as 15 to 20 days. The farm labor bureau deals with a special problem presenting many economic phases. While wages may be sufficient to attract workers, it is necessary to recruit as many as possible from points the proximity of which would obviate unusual transportation charges and interference with other immediately active centers. At the beginning of the harvest season in 1921 to the close of the year under review, a 19580—22---------3 30 REPORT OF THE SECRETARY OF LABOR. surplus of workers existed almost everywhere. With the advance toward industrial prosperity, payment of higher wages became necessary and transportation costs presented an obstacle, thereby making it extremely difficult to recruit harvesters within a distance that would at least justify their expense of travel to the points where work could be obtained. Efforts have been made to encourage the recruiting of workers within a zone in the grain belt, and to discourage workers from migrating to the harvest fields from points beyond the zone. The problem of rail transportation has been very perplexing and trying. Special rates to harvest workers under proper regulations would do much to solve this problem Industrial employment survey.—The development of the industrial employment survey is distinctly a feature of the service. This survey was inaugurated for the purpose of regularly collecting and distributing impartial and authentic current information regarding general and specific industrial employment conditions, the distribution of labor, and the fluctuations in employment throughout the country. A bulletin is published monthly in the form of current information on employment, analyzed and tabulated according to industrial groups and geographical divisions. The figures of actual change in employment conditions cover payroll figures of concerns usually employing 501 or more in 65 of the principal industrial centers of the country, which embrace 1,428 firms employing more than 1,600,000 workers. Reports are received from identical firms each month. In addition, comment on industrial and employment conditions in 355 industrial cities or centers, whic are divided into the 9 geographical divisions of the country, is made by 9 district directors upon information gathered by special agents who are serving at nominal salaries. This comment is based on information gathered from authoritative sources through actual canvass of employment conditions of the principal industries in these cities. The demand for this bulletin exceeds the supply. President's conference on unemployment.—One of the outstanding undertakings of the United States Employment Service was a special survey for the President’s conference on unemployment. This survey made by the 9 district directors of the monthly industrial employment survey revealed the fact that there were 2,301,588 wage earners unemployed in 240 cities of the United States, with a combined population of 35,430,910; and, also, that there was a small fraction of 1 per cent greater unemployment in cities of 5,000 and upward than in cities of 25,000 and upward. The figures obtained through this survey, though they did not constitute a complete census of the unemployment in the United States, formed a reliable index upon which was based a very accurate estimate of the total unemployment in the country. It must be remembered, of course, in analyzing the REPORT OF THE SECRETARY OF LABOR. 31 statistics of unemployment in any industry or country there is always a certain number voluntarily out of work. In the United States it is estimated that more than 1,000,000 belong to the ‘'shifting” class composed of those changing jobs for better or worse, those in seasonal occupations, and men and women among whom unemployment is chronic. » Junior division.-—The junior division of the United States Employment Service functions in two ways—through the national administrative office at Washington and through placement offices in the States. It cooperates with local public-school systems and other agencies throughout the country to establish and maintain a limited number of placement offices for boys and girls between the legal working age and 21 years in sections where local educational and occupational conditions are especially favorable to the development of typical junior work. While these local offices serve incidentally to develop junior guidance and placement in their particular cities, they are to be regarded mainly as experimental stations,, where fundamental and specific junior-employment problems can be worked out by a trained personnel, information collected, and new workers trained for the whole placement field. The national administrative office collects and interprets data from these offices and from the junior placement field at large in regard to the junior wage earner and his relation to the public schools and the occupational world, and it makes this information available to both educator and employer, who recognize a mutual responsibility in the person of the young worker as a potential citizen. It is the policy of the junior division to develop a few placement offices in representative sections to a point of efficiency, rather than to spread superficially over a wider territory. In this way the service can get results of value to the country as a whole—that is, become a true Federal service. Only a Federal service can lay the foundation for so extensive a work as the careful supervision and guidance of all juniors entering the occupational world; invest in a vision when results are often slow in practical manifestation; and offer the disinterested leadership local communities require in its development. The main activities of the national office for the year are represented by a survey, made in cooperation with the Children’s Bureau of this department, of junior guidance and placement in a representative number of cities throughout the United States; by close cooperation with various agencies for vocational guidance and placement, looking toward standardization of organization and administration; and by preparation for the issuance of a biweekly news-letter and a series of field-work bulletins. 32 REPORT OF THE SECRETARY OF LABOR. In the field, junior placement offices have been successfully established or maintained in cooperation with the local school system or other agencies at the following cities: Atlanta, Ga. Gary, Ind. Jackson, Mich. Jersey City, N. J. Minneapolis, Minn. Milwaukee, Wis. Pittsburgh, Pa. Providence, R. I. A questionnaire determining affecting junior placement in these tabulated for general information. A limited budget has precluded and extension of activities, but ti been on a sound, constructive, and Richmond, Ind. Rockford, Ill. St. Paul, Minn. Salt Lake City, Utah. South Bend, Ind. Stockton, Calif. Wilmington, Del. Worcester, Mass. the particular local conditions cities was sent out and the results some highly desirable field work ie junior division work done has scientific basis. United States Housing Corporation. During the fiscal year ended June 30, 1922, the principal activities of the United States Housing Corporation, as for the preceding fiscal year, fall under the following general classifications: 1. Rentals and sales of its properties. 2. Collections from rentals and sales. 3. Liquidation of transportation and public utility loans. 4. Auditing of original construction accounts. 5. Operation of the Norfolk County ferries. 6. Operation of the Government Hotels. It was inevitable, of course, that the economic depression which obtained throughout the country during the latter part of the calendar year 1921 should have been reflected to a considerable extent in the business of the corporation. Involving, as it does, the collection of deferred payments on account of properties sold to thousands of different purchasers, this business constitutes a fairly accurate barometer of industrial conditions in many widely scattered communities. There has been manifest recently, however,'a decided improvement in certain of the localities which, so far as the corporation’s observations went, had sustained the severest shock, and there appears to be, consequently, a sound basis for the belief that to a considerable extent the conditions which were unfavorably affecting its business are now happily overcome. As of June 30, 1922, the corporation had in force real-estate sales contracts covering properties aggregating in value $19,303,144.78. There has already been collected approximately $4,600,000 on REPORT OF THE SECRETARY OF LABOR. 33 account of the principal amounts due under these contracts, aside from the regular interest payments. The properties covered by these contracts are scattered throughout 38 cities in 17 different States and the District of Columbia. They comprise some 6,000 houses and 12 dormitories, aside from the Government Hotel located in the National Capital, which latter affords accommodations to 1,900 female employees of the Federal Government. Rentals and sales. Improved and unimproved properties having an aggregate value of $468,613.12 were sold by the corporation during the year. Most of these sales were made in accordance with the corporation’s general sales policy upon the basis of contracts subject to deed. Some, however, involved immediate cash payments for the full amounts. At the present time but a small portion of the corporation’s real-estate holdings remains undisposed of, and as a consequence its rentals have been reduced to an almost negligible amount. Conveyancing.—The logical conclusion of the business of the corporation does not end with the mere execution of contracts of sale for its properties. Preparation of mortgages, deeds of trust, and notes, as well as their actual recordation, is a further duty which it must perform. As a consequence a close study of the real estate laws governing the various jurisdictions in which its properties are located and the drawing of the requisite instruments of conveyance in conformity therewith is necessary. The infinite detail involved in the preparation of the average real estate deed is well known. Some idea, therefore, of the magnitude of this portion of the corporation’s work may be gained from a consideration of the fact that it is under the duty of conveying title to approximately 6,000 pieces of property and the preparation of the requisite instruments of conveyance incident thereto, many of which present complicated questions of both law and fact. For the fiscal year 1922 it made actual delivery of deeds and took back mortgages, deeds of trust and notes covering its properties located in Aberdeen, Md., Alliance, Ohio, Bremerton, Wash., Butler, Pa., Elizabeth, N. J., New London, Conn., Newport, R. I., Niagara Falls, N. Y., Niles, Ohio, Vallejo, Calif., Waterbury, Conn., Davenport, Iowa, Rock Island, Ill., Moline, Ill., and East Moline, Ill. It is worthy of note in this connection that the entire cost of conveyancing, covering 341 cases at Alliance and Niles, Ohio, Newport, R. I., Waterbury, Conn., and Watertown, N. Y., was but $1,430.01, or an average of $4.20 per transaction, which is obviously much less than the charges prevailing in private business for work of this character. It should be added, moreover, that these charges included traveling expenses of the representatives of the corporation who handled the work, as well as all local recording fees. 34 REPORT OF THE SECRETARY OF LABOR. Settlement of claims arising out of requisitioned property .—The Housing Corporation acquired title to its various properties through either one of two methods, i. e., by purchase or requisition. Resort was had to the latter method only when the former proved unavailing, and the provisions of the housing act stipulated that the owner of the requisitioned property might elect either to take the amount fixed by the Secretary of Labor in full compensation for his claim or to accept 75 per cent thereof with the right to sue the United States for such further sum as added to the 75 per cent would make just compensation therefor. During the fiscal year under consideration, some 30 cases of this character, each of which presented close questions of law and involved many claimants, were settled. Protracted litigation arose out of the settlement of some 300 other cases, covering a large project which had been requisitioned on behalf of the corporation. In 28 of these cases which were first tried, judgments were rendered which were unacceptable to the corporation. Objecting to a proposal, submitted by attorneys for the claimants, that judgments be entered by stipulation covering the remaining cases on the basis of the decisions handed down in the 28 aforementioned cases, the corporation actively assisted in the preparation of these matters for trial, as well as in the actual court work, with the result that the final settlement effected a saving of $43,000 for the Government. Insurance.—In accordance with general governmental policy, the corporation itself carries no insurance on its properties, but it requires its various purchasers to provide insurance for its benefit wherever any portion of the purchase price of the property remains unpaid. This phase of the corporation’s work is no small undertaking. At the beginning of the fiscal year 1922 there were in force 3,134 policies covering $16,372,570 insurance for- the benefit of the corporation. There were also in force 114 policies representing $4,341,745 insurance on account of properties procured by various transportation and utilities companies with funds advanced by the corporation during the war. This total of 4,248 policies covering an aggregate liability of $20,714,315 was slightly reduced during the course of the year as a result of the cancellation of certain contracts and repayment in full of others. In the course of the year fires occurred in 24 houses owned by the corporation, all of which were covered by insurance. About one-fifth of the policies in the custody of the corporation run for a period of one year. Annual renewals are accordingly necessary, entailing corresponding changes in the corporation’s records. Of the balance, some three-fifths have been written for three years and one-fifth for five years. REPORT OF THE SECRETARY OF LABOR. 35 During the year upward of 1,200 assignments or changes of interest were handled. Collections from rentals and sales.—Revenues of the corporation covered into the Treasury during the fiscal year 1922 were as follows: Sale of salvage material............................................. $68, 470.49 Real estate contract principal..................................... 1,115, 475. 77 Real estate contract interest...................................... 863,136. 36 Repayment of loans................................................. 85, 298. 77 Interest on loans.................................................. 428, 900. 33 Miscellaneous items.................................................. 83,733.08 2, 645. 014. 80 The total expense for the administration of this business was $122,000, or but 4.61 per cent. To the above figures should be added also the receipts of the Government Hotel, which amount to $967,063.79. Receipts of the Norfolk County Ferries, with the operation of which the corporation is charged pending the liquidation of its loan, were $641,725.35. Liquidation of transportation and public utility loans. Interest to the amount of $428,900.33, and amortization payments on account of principal totaling $85,298.77, were received during the fiscal year from advances to transportation and public utilities companies. Full repayments of loans to two lighting companies aggregating $35,510.76, a loan of $43,330 to a private housing corporation, and a loan to a nationally known woman’s organization of $25,000 were made. Negotiations will be commenced shortly looking to the settlement of several of the larger contracts which the corporation has with transportation companies. Generally speaking, the provisions of these contracts contemplate that appraisal of the properties which were acquired with the advances made by the corporation may be made one year after the declaration of peace as officially proclaimed by the President. The proper protection of the corporation’s interests in these matters has required frequent physical inspections of the various properties and the adoption of appropriate measures for preventing any impairment of the security. Local taxes and assessments. In its report for last year the corporation made reference to the difficulty it was experiencing as a result of the divergence of opinion which had developed concerning the validity of certain so-called 11 service agreements” running between itself and various municipalities. Legislation clearing up the doubts which had arisen in the matter was subsequently enacted, authorizing the payment of amounts due under these contracts. Settlements have accordingly been effected with seven different cities, and arrangements are now under 36 REPORT OF THE SECRETARY OF LABOR. way for the fulfillment of the corporation’s contractural obligations under the remaining agreements. The consummation of these matters has, in each instance, involved protracted negotiations, as well as detailed study and examination of the bills rendered by the various claimants. The Norfolk County Ferries. The record of the corporation in the operation of the Norfolk County Ferries for the fiscal year 1922 is a refutation of the oft-repeated assertion that the Government is always inefficient in business. Proof of this fact is furnished by a comparison of the net earnings of the ferries for the year just ended with those of preceding periods. During 1922 they amounted to $99,962.01. The attainment of these results was made possible only by the introduction of measures calculated to promote efficiency and economy. An intensive survey of the operations of the ferries was made by the corporation, which indicated the necessity of a revision of the rates for vehicular traffic in particular. Operating expenses were reduced to the extent of over $7,000 per month and other general improvements inaugurated. Evidence is not lacking that the accomplishments of the corporation in the handling of this enterprise have met with the approbation of the communities which the ferries serve. In fact, its records are replete with commendatory articles which have appeared in the columns of the local press. It is a source of peculiar gratification to the department that the corporation has met with at least a measure of success in the discharge of the dual duty which devolves upon it of recovering the moneys which the Government advanced for the rehabilitation of the ferries and at the same time so administering the affairs of this public utility as to meet the needs of the communities which it serves. The Government Hotel. No appreciable decrease in the demand for accommodations in the Government Hotel was evidenced during the year 1922. It is apparent, therefore, that the great majority of the 1,900 women employees of the Federal Government who are domiciled in the hotel feel that the services which they are obtaining for the nominal sum of $45.50 per month far surpass those which could be secured elsewhere for the same amount. On the other hand, the Government is realizing something on the war-time investment which it made in this plant. Receipts from this operation for the fiscal year 1922 totaled $967,063.79, and expenditures $880,200, leaving a book profit of $86,863.79. As has been pointed out heretofore, however, this profit does not take into consideration rent, interest on the investment, or depreciation. But, aside from a purely financial standpoint, it seems only fair to assume that the Government also profits through increased efficiency on the REPORT OF THE SECRETARY OF LABOR. 37 part of those workers who find wholesome and healthful living accommodations in the Government Hotel. Cradock, Va. Another matter which has engaged no little of the corporation’s time and attention is that of attempting to work out, in conjunction with the purchasers of its properties at Cradock, Va., some form of local self-government which would best meet their needs. The community of Cradock is one of two housing projects adjoining Portsmouth, Va., which were created by the corporation. It was * constructed because of the inadequate supply of housing facilities available for workers in the Norfolk Navy Yard during the war, and some 3,500 persons make up its population. The problems which have arisen in connection with its administration are unique in many respects, due primarily to the fact that it lies outside the city limits. As a consequence, its citizens are dependent upon their own resources for the rendition of services which are ordinarily performed by municipal governments, such as maintenance and operation of water, sewage, and street-lighting systems, and the provision of police and fire protection. In the early part of the history of this project the corporation itself performed these various functions, but with the termination of the war and the consequent limitation of its authority it withdrew from this field of operation. As a temporary expedient, and pending the establishment of some distinct legal entity with which it could deal, the corporation granted a revocable license to a local utilities company which was formed by the citizens of Cradock. Various proposals have been advanced as possible solutions of the anomalous situation which obtains at the present time, but the corporation feels that incorporation of the community as a distinct political subdivision under the State of Virginia offers the only solution of the problem. However, it has consistently refrained from attempting to impose its viewpoint upon the residents of Cradock, preferring that they should, of their own volition, reach a decision in the matter. REGULATIONS OF THE DEPARTMENT OF LABOR. The statutes provide that executive officers shall by regulation cover the details of administration provided for by general provisions in the acts creating the departments and the various bureaus. It has long been the practice in the various departments to compile these regulations when promulgated by the head of the department and publish them in book form, not only for the information and guidance of the various officers and employees of the department but also for the information and guidance of citizens who have business to transact with the department or their attorneys and representatives. 38 REPORT OF THE SECRETARY OF LABOR. The first volume of regulations of the Department of Labor was published in 1915. In large measure this represented a segregation from the regulations of the former Department of Commerce and Labor of those provisions appertaining to the subject of labor and the bureaus transferred from the Department of Commerce and Labor to the Department of Labor. The Department of Labor has seen its greatest development since the time these regulations were published. A number of bureaus and divisions have been added, and others have been broadened and extended. Many amendments to the statutes affecting many of the bureaus and divisions of the department have required modifications of regulations almost without number. New regulations have been issued to cover new subjects referred to the department by congressional enactment. I found early after my entrance into office that the volume of published regulations of 1915 had become practically obsolete and unsafe as a guide. In order that the regulations might be recodified and printed in a volume for convenient use, work was begun in July, 1921, with that end in view. The task proved more extensive, more important, and more difficult than had been anticipated. The entire Department of Labor has been short handed, and the men and women in a position to furnish the information needed in this task have been most closely confined by their duties. A vast amount of work has been done, and the greater portion of the manuscript for the new volume completed. The new volume of the regulations of this department brought up to date and embracing every regulation promulgated to the date of publication will shortly be issued. BUREAU OF LABOR STATISTICS. The Bureau of Labor Statistics was organized January 1, 1885, 30 years before the organization of the Department of Labor, as the result of a long-continued agitation by wage earners for a department in the Government for the exclusive consideration of labor matters. It was placed in the Department of the Interior and called the Bureau of Labor. In 1888 it wasgiven independent status as the Department of Labor, but without executive representation. It again became the Bureau of Labor in 1903, being placed in the Department of Commerce and Labor, from which it was transferred to the newly organized Department of Labor in 1913, and given its present name. The function of the bureau, as stated in the act creating it, is “to acquire and diffuse among the people of the United States useful information on subjects connected with labor, in the most general and comprehensive sense of that word and especially upon its relation to capital, to hours of labor, to earnings of laboring men and women, REPORT OF THE SECRETARY OF LABOR. 39 and the means of promoting their material, social, intellectual, and moral prosperity,” and its duty, as set forth in the organic act of the department, is to “ 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.” The Monthly Labor Review.—The Monthly Labor Review has been published by the bureau since July, 1915. Established as a medium for the presentation and dissemination of reliable current information relating to labor in all its phases, both in the United States and foreign countries, and for the prompt publication of important data gathered by the bureau in original investigations and the printing of interesting and pertinent articles, it has been generally accepted and widely quoted. Many special articles treating of subjects of interest to labor are printed in the Review, and in addition there are published summaries of original investigations by the bureau, digests of current labor legislation, decisions of courts on questions relating to labor, reports of State labor bureaus and other official bodies dealing with labor matters, and accounts of the more important current movements of interest to labor, of methods of reporting industrial accidents and occupational or industrial diseases and for their prevention, industrial and vocational surveys, housing of workingmen, and other activities, public or private, for the betterment of industrial conditions. Current statistics as to the conciliation and immigration work of the Department of Labor are printed, and important trade agreements and awards are published in full or digested. Wholesale prices of commodities and retail prices of food and coal were published monthly during the fiscal year, and retail prices of gas and dry goods were printed quarterly. Data as to changes in the cost of living in the United States, secured quarterly, were given prompt publication. Summary reports of original investigations by the bureau as to wages and hours of labor in the slaughtering and meat-packing industry, anthracite and bituminous coal mining, cotton manufacturing, and sawmills appeared during the year, and statistics of volume of employment in selected industries were printed monthly. Changes in union scales of wages have been given prompt notice, and important labor laws and court decisions, workmen’s compensation reports, and minimum wage laws and orders have been summarized and reviewed. Statistics .of strikes and lockouts in the United States were printed quarterly. The activities of the State labor bureaus have been noted each month, together with current items of interest to labor and a review of official publications relating to labor. A directory of labor officials in the United States and Canada appeared in the July, 1921, issue. 40 REPORT OF THE SECRETARY OF LABOR. Since July, 1920, for reasons of economy, the Review has been on a subscription basis to all but official labor bodies and organizations, exchanging publications with the bureau. Publications other than the Monthly Labor Review.—At the end of the fiscal year there had been issued in completed form 19 bulletins and 12 numbers of the Monthly Labor Review. The 31 publications contained 6,443 pages of printed matter, 44 charts, and 3 text charts. Listed according to serial numbers, the bulletins issued during the fiscal year are as follows: 281, Proceedings of the Seventh Annual Meeting of the International Association of Industrial Accident Boards and Commissions; 284, Index Numbers of Wholesale Prices in the United States and Foreign Countries; 285, Minimum-Wage Laws of the United States—Construction and Operation; 286, Union Scale of Wages and Hours of Labor, May 15, 1920; 287, National War Labor Board; 288, Wages and Hours of Labor in Cotton-Goods Manufacturing, 1920; 289, Wages and Hours of Labor in Woolen and Worsted Goods Manufacturing, 1920; 290, Decisions of Courts and Opinions Affecting Labor, 1919-20; 291, Carbon-Monoxide Poisoning; 292, Labor Legislation of 1920; 293, The Problem of Dust Phthisis in the Granite-Stone Industry; 294, Wages and Hours of Labor in the Slaughtering and Meat-Packing Industry, 1921; 295r Building Operations in Representative Cities, 1920; 297, Wages and Hours of Labor in the Petroleum Industry, 1920; 299, Personnel Research Agencies; 301, Comparison of Workmen's Compensation Insurance and Administration; 303, Use of Federal Power in Settlement of Railway Labor Disputes; 306, Occupation Hazards and Diagnostic Signs; 307, Proceedings of the Eighth Annual Convention of the Association of Governmental Labor Officials of the United States and Canada. During the year a complete revision has been made of the bureau’s series of index numbers showing changes in the level of wholesale prices, consisting of (1) a regrouping of the commodities and the addition of a considerable number of new articles, and (2) the use of the 1919 census data for weighting purposes in place of the 1909 census formerly employed. The weighting of the retail prices index numbers has also been changed, 43 articles now being used instead of the 22 formerly used, and the earlier index numbers being made comparable with the later ones by a system of “linking.” Cooperation with the State labor bureaus has been maintained and much valuable information as to their current work has been published in the Monthly Labor Review, thus affording an opportunity for each bureau to keep constantly in touch with the activities of the other bureaus. An important and exacting part of the work of the bureau is the research work that is constantly being carried on. Information REPORT OF THE SECRETARY OF LABOR. 41 requested by Members of Congress, economists, labor organizations, manufacturers, and other employers’ associations, and persons interested in labor matters is promptly supplied. In the preparation of matter for the Monthly Labor Review hundreds of foreign and domestic newspapers and periodicals, official and unofficial reports, trade and labor journals, and books on various subjects are critically examined to ascertain all important labor news. Translations of foreign labor news items are made and verification of information found in newspapers is made from original sources whenever possible, in order that all information published may be as exact and authoritative as possible. Reports transmitted but not published.—Besides the 31 publications issued by the bureau (19 bulletins and 12 numbers of the Monthly Labor Review) 16 other bulletins were sent to the Government Printing Office, one of which was completed but not delivered and eight of which had part of the proof reading done. The serial numbers and the subjects of these 16 bulletins are as follows: 296, Wholesale prices, 1890 to 1920; 298, Causes and prevention of accidents in the iron and steel industry, 1910-1919; 300, Retail prices, 1913 to 1920; 302, Union scale of wages, May 15, 1921; 304, Proceedings of the eighth annual meeting of the International Association of Industrial Accident Boards and Commissions; 305, Wages and hours of labor in the iron and steel industry, 1907 to 1920; 308, Labor legislation of 1921; 309, Decisions of courts and opinions affecting labor, 1921; 310, Industrial .unemployment; 311, Proceedings of the ninth annual meeting of the International Association of Public Employment Services; 312, National health insurance in Great Britain; 313, Consumers’ cooperative associations in the United States; 314, Cooperative credit societies in America and foreign countries; 315, Retail prices, 1913 to 1921; 316, Hours and earnings in anthracite and bituminous coal mining—anthracite, January, 1922, bituminous, winter of 1921-22; and 317, Wages and hours of labor in lumber manufacturing, 1921. BUREAU OF IMMIGRATION. The most interesting chapter which the fiscal year 1922 has added to our history of immigration to the United States is that pertaining to the enforcement of the percentage limitation act (act of May 19, 1921). This act went into operation on June 3, 1921, and a full year’s experience has now been had with its operation. Based upon drastically restrictive (but not selective) principles, this act has unquestionably served to materially cut down immigration to this country during the past year. It is, of course, impossible to predict with any degree of certainty the numbers of aliens who would have come to our shores, 42 REPORT OF THE SECRETARY OF LABOR. seeking admission for the purpose of making this country their permanent homes, had this numerically restrictive legislation not been in operation; but a conservative estimate would place the figure at considerably over 1,000,000. The clearing up of the war clouds in Europe started a flow of immigrants to the United States early in the fiscal year 1921, which continued undiminished throughout the year until June, when the act of May 19, 1921, became effective and served to cut down, to some extent, the grand total for that year. However, there were 805,228 immigrant aliens admitted during that year, as compared to 430,001 in the previous fiscal year. The total number of immigrant aliens admitted during the present fiscal year was 309,556. A total of 122,949 nonimmigrant aliens (i. e., aliens not coming for permanent residence) also entered the country during the fiscal year, making a grand total of 432,505 admissions. Additionally, the immigration officials at the several water ports of entry examined under those provisions of the immigration law relating to seamen a total of 1,100,000 alien seamen. The grand total of all classes examined—immigrant, nonimmigrant, and seamen—was, therefore, 1,532,505, or 20,000 less than in the preceding year. Of the total admissions, 274,740 occurred through the port of New York, leaving a total of 157,765 for all of the other ports, including those on the Canadian and Mexican borders. The number of immigrant aliens from various sources during the year, compared w’ith the number coming from the same sources in the previous fiscal year, was as follows: Country. 1922 1921 Country. 1922 1921 Italy United Kingdom Greece Poland Czechoslovakia British North America 40,314 35,732 3,457 28,635 12,541 46,810 222,260 79,577 28,502 95,089 40,884 72,317 Mexico Scandinavia Portugal Spain China Japan 19,551 14,625 1,950 665 4,406 6,716 30,758 22,854 19,195 23,818 4,009 7,878 The races, or peoples, chiefly represented among the immigrant aliens admitted in the two fiscal years, were as follows: Races or peoples. 1922 1921 Italians (north and south) 41,154 222,496 English 30,429 54,627 Hebrew 53,524 119,036 Irish 17; 191 39;056 Scandinavian 16,678 25,812 Scotch 15,596 24,649 Spanish 1,879 27,448 REPORT OF THE SECRETARY OF LABOR. 43 The following table shows the immigration and emigration in each fiscal year since 1912: Total alien immigration and emigration, fiscal years 1912 to 1922. Year. Arrivals. Departures. Excess of immigration . Immigrant. Nonimmigrant. Total. Emigrant. Nonemigrant. Total. 1912 838,172 1,197,892 1,218,480 326,700 298,826 295,403 110,618 141,132 430,001 805,228 309,556 178,983 229,335 184,601 107,544 67,922 67,474 101,235 95,889 191,575 172,935 122,949 1,017,155 1,427,227 1,403,081 434,244 366,748 362,877 211,853 237,021 621,576 978,163 432,505 333,262 308,190 303,338 204,074 129,765 66,277 94,585 123,522 288,315 247,718 198,712 282,030 303,734 330,467 180,100 111,042 80,102 98,683 92,709 139,747 178,313 140,672 615,292 611,924 633,805 384,174 240,807 146,379 193,268 216,231 428,062 426,031 345,384 401,863 815,303 769,276 50,070 125,941 216,498 18,585 20,790 193,514 552,132 87,121 1913 1914 1915 1916 1917 1918 1919 1920 1921 1922 Immigration from foreign contiguous countries. The total number of aliens of all nationalities admitted from Mexico and Canada during the fiscal year 1922 was 66,361 as compared with 103,075 during the preceding fiscal year. This decrease of immigration from the two countries referred to is ascribable to depressed industrial conditions in the United States and not to the restriction of the percentage limitation act, for said act excepts from its operation “ aliens who have resided continuously for at least one year immediately preceding the time of their admission to the United States in the Dominion of Canada, Newfoundland, the Republic of Cuba, the Republic of Mexico, countries of Central or South America, or adjacent islands.” Oriental immigration. This fiscal year has witnessed a small increase in the number of Chinese arrivals of the “immigrant” alien class, the total number admitted being 4,465 as compared with 4,017 in the fiscal year 1921. There was, however, a very large decrease among Chinese arrivals of the “nonimmigrant” alien class, 8,755 having been admitted in the fiscal year 1922 as compared with 18,974 in the previous year. Combining arrivals of the “immigrant” and “nonimmigrant” classes, it will be noted that there were 13,220 admissions during the fiscal year 1922, which, compared with 22,991 admissions in the fiscal year 1921, shows a decrease of 9,771. Chinese aliens not entitled to admission to the United States under our exclusion laws continue to enter surreptitiously, despite the endeavors of the immigration authorities to prevent such entries. In my annual report for the fiscal year 1921 comment was made upon the large numbers of Chinese laborers who were entering under the guise 44 REPORT OF THE SECRETARY OF LABOR. of “seamen” and thereafter remaining here. These arrivals, according to the best information obtainable, were at an average rate of 125 to 150 per month. Our laws were violated with such impunity in this respect that it became necessary to devise a means of safeguarding shore privileges granted to Chinese seamen. This was done by requiring that such Chinese seamen, as a condition precedent to going ashore on leave from the vessel, or being discharged therefrom, furnish a bond in the penal sum of $500 guaranteeing departure from the United States at or before the expiration of 60 days from the date of their landing. This arrangement has not been entirely effective of its purpose, as illustrated by the fact that, although it has been in operation only since September last, more than 200 Chinese have forfeited their bonds and remained here in violation of law. It may be assumed, from the known ends to which Chinese laborers really desirous of gaining admission to the United States have gone in the past, that these people have adopted this as a ready and cheap way of accomplishing admission, for many of their fellow countrymen have in the past paid the Canadian head tax of $500 to enter that country and later paid as much more in order to be smuggled into the United States. Others have gone to Cuba, Mexico, and other countries, and instances have come to light where they have paid as high as $1,000 to be smuggled into this country, assuming the attendant risks of apprehension and deportation at the hands of the immigration authorities. The advisability of substantially increasing the amount of this bond is now receiving consideration. Effective June 15, 1922, the regulation was extended so as to include all seamen from the so-called Asiatic barred zone (sec. 3, immigration act of February 5, 1917). In addition to the numbers of Chinese aliens admitted to the United States for permanent or temporary residence the privilege of transit under bond was granted on behalf of 7,198 members of this race. Of this number 1,425 were admitted at San Francisco, destined principally to Cuba or Mexico, and 2,462 were admitted at Canadian border ports, or their transshipment in United States ports after crossing Canada, with destinations Cuba, Mexico, South America, and the West Indies. There was a further decrease in the admission of Japanese aliens to continental United States in the fiscal year 1922, the total number of such aliens admitted having been 8,981, as compared with 12,868 in 1921. As to such admissions to the Hawaiian Islands, 3,856 were admitted, as compared with 3,599 in the fiscal year 1921. The Korean aliens admitted in Hawaii for the fiscal year totaled 104, and 1 was debarred. REPORT OF THE SECRETARY OF LABOR. 45 Smuggling and surreptitious entry of aliens. The passport-vise restrictions, coupled with the restrictive measures of the percentage limitation act, has caused an unprecedented flow of United States destined European aliens to Cuba and Mexico and even to Canada and to certain South American countries. While residence in these countries does not relieve the aliens of the necessity of presenting viseed passports in order to gain admission to the United States, a domicile of one year in those countries served to place them within a class excepted from the operation of the act of May 19, 1921. While, doubtless, many of these aliens proceeded to the countries mentioned with the purpose in view of acquiring the necessary residence of one year there and of then later applying for admission in regular manner, it is known that many of them so proceeded with the purpose firnfly in mind of placing themselves in a favored position whereby later to gain admission in a surreptitious manner. That many have so entered from Cuba and Mexico (in particular) is a well-known fact, as many have been apprehended after having entered in this manner, and they have uniformly been deported either to the countries whence they immediately came to the United States or to the countries of which they were subjects or citizens. On May 11, 1922, Joint Resolution No. 268, extending the operation of the act of May 19, 1921, to and including June 30, 1924, and making certain amendments and additions thereto, received the approval of the President and became law. This measure increased from one to five years the period which an alien must reside in the Dominion of Canada, Newfoundland, the Republic of Cuba, the Republic of Mexico, countries of Central and South America, or adjacent islands, in order to gain immunity from the operation of this special legislation. While the general effect of this increase of four years in the residence period will no doubt prove to be highly beneficial, it has undoubtedly served to stimulate the endeavors of aliens who have proceeded to neighboring countries for the purpose of acquiring the necessary domicile there in their endeavors to enter the United States in a surreptitious and unlawful manner. Investigation in Cuba developed the fact that in the neighborhood of 7,000 European aliens were admitted to that country in the past year whose ultimate destination, judging from all the circumstances, was the United States. It was learned that probably not exceeding 2,500 of these aliens remain in Cuba at the present time. While the records show that some of these aliens proceeded to Mexico from Cuba, it seems safe to assume that the great majority of them have found their way into the United States via the smuggling route. Numbers of parties of them have been apprehended from time to 19580—22---4 46 REPORT OF THE SECRETARY OF LABOR. time, usually very shortly after they had landed from smugglers boats, and they have, of course, been deported. The price which aliens of this class customarily pay for the privilege of being smuggled in is in the neighborhood of $150. Generally they are brought across to points on the Florida coast in launches or small schooners, which arrive offshore in the nighttime, drop anchor outside the legal limit, and gradually send their human freight ashore in rowboats. It was also ascertained that there are in the neighborhood of 30,000 young Chinese coolie laborers now in Cuba, most of them without employment and without prospects of obtaining employment. In fact, they seem to have gone to Cuba with no purpose of either seeking or following employment, or with any object in view other than that of gaining surreptitious entry to the United States in any way possible. These Chinese pay anywhere from $500 to $1,000 for the privilege of being smuggled into this country, and the smuggling craft take them to inaccessible points on the Atlantic or Gulf coasts, as iar north as New York and as far west as New Orleans. The difficulties inherent in any endeavor to cope with this apparently well-organized and extensive smuggling scheme with the pitiably few officers at the disposal of the Immigration Service is readily apparent. Deportation of aliens. There was a slight decrease in the number of aliens deported from the United States for various causes under the immigration and Chinese exclusion laws from those deported for like causes in the fiscal year 1921, the figures for the two years being 4,345 and 4,517, respectively. The following table shows the numbers deported, by races: African (black).................. 99 Armenian................... - - 19 Bohemian.......................... 6 Bulgarian........................ 18 Chinese...............-......... 390 Croatian and Slovenian........... 47 Dutch and Flemish................ 45 East Indian...................... 70 English......................... 461 Finnish......................... 29 French.......................... 292 German.......................... 170 Greek...................-........ 96 Hebrew.......................... 214 Irish................-......... 155 Italian (north).................. 31 Italian (south)................. 373 Japanese.......................... 113 Korean.................J-...... 2 Lithuanian....................... 17 Magyar.................... - - - 32 Mexican......................... 879 Polish........................... 81 Portuguese....................... 35 Rumanian.-....................... 33 Russian.......................... 75 Ruthenian...................... 13 Scandinavian..................... 95 Scotch..........-.............. 127 Slovak.............-............. 39 Spanish.....................- - - 156 Spanish-American................. 36 Syrian..........-................ 42 Turkish........................... 9 Welsh....................-........ 7 West Indian....................... 4 Other peoples..................... 35 REPORT OF THE SECRETARY OF LABOR. 47 Head tax collected and administrative fines imposed. The total head tax collected on behalf of aliens admitted to the United States during the fiscal year 1922 was $2,503,096. Administrative fines imposed upon transportation companies or the masters, owners, or agents of vessels entering United States ports, bond forfeitures, etc., amounted to $489,781. New legislation. House Resolution No. 268, which was approved on May 11, 1922, extended the percentage limitation act (act approved May 19, 1921) to and including June 30, 1924. It also amended said act by imposing upon transportation companies for each alien brought to this country and found upon arrival to be not admissible under the terms of the act a fine of $200, and as an additional penalty and in order that aliens so brought may not suffer financial loss as the result of their fruitless journeys to the United States it requires that the offending company shall, in addition to returning them without cost to the port or place where they were embarked, refund to them the passage money which they paid in reaching this country. House Resolution No. 2193, approved May 26, 1922, entitled “An act to amend the act entitled ‘ An act to prohibit the importation and use of opium for other than medicinal purposes,’ approved February 9, 1909, as amended,” provides for the deportation from the United States of aliens who have been convicted of fraudulently or knowingly importing or bringing into the United States, contrary to law, any narcotic drug, or who assists others in so doing, or who receives, conceals, buys, sells, etc., any such narcotic drug and, following such conviction, are sentenced to serve a term of imprisonment. BUREAU OF NATURALIZATION. Naturalization. During the fiscal year ended June 30, 1922, the total number of petitions for naturalization filed in the clerks’ offices of the naturalization courts was 162,638, 9,468 having been filed by aliens who had performed military service and 153,170 by aliens in civil life. Of the first-mentioned class, who have certain exemptions under the law in consequence of honorable discharge from military service, all received certificates of naturalization. There were filed during the same period 273,511 declarations of intention, or first papers, a decrease, as compared with the figures given a year ago, of 30,970. There was also a decrease in the number of petitions filed, as compared with those reported for the fiscal year 48 REPORT OF THE SECRETARY OF LABOR. 1921, of 35,892, represented, as between the two classes of petitioners, military and civil, by the figures 8,168 and 27,724, respectively. It appears from the above figures that either the initial or final step toward citizenship was taken by 436,149 aliens. These figures also show a decrease of 66,862, as compared with the corresponding figures for 1921. The decrease in the number of aliens filing under the special provision of the law, on behalf of those who have been honorably discharged after military service, was 8,168. In view of the requirement of the law that petitions may not be acted upon within 90 days after the date of filing, 43,138 of such papers filed during the last quarter of the fiscal year can not be dis posed of by the courts during the fiscal year in which they were filed. The 52,678 such papers disposed of, as filed in the last quarter of the preceding fiscal year, added to the 110,032 filed in the first thiee quarters of the year under consideration, and including 83,957 cases continued from prior years, make a total of 246,667 petitions. The courts either dismiss, continue, or grant petitions at the time of hearing. Such action resulted in 29,076 dismissals, 56,612 continuances, and 160,979 orders of admission. In the last-named class naturalization certificates were issued. By court action 56,612 petitions were continued. To these should be added 43,138 which had not matured to hearing at the close of the fiscal year, representing the undisposed-of petitions awaiting final action in the ensuing fiscal year. Among the 29,076 petitioners who were denied citizenship, 10,288 had sought to evade military duty by claiming alienage, included under the several headings “ Immoral character,” “Invalid declaration,” and “Miscellaneous”; 6 were excluded under the provisions of section 2169 of the Revised Statutes; 1,876 because of immoral character; 1,404 were rejected because of ignorance of American institutions; 161 were held by the courts to be citizens already; and 537 petitions were abated by death. The remainder represents those who failed to comply with some requirement of the law. Citizenship training. The citizenship training activities during the past year have been carried on in cooperation with 3,625 communities. Phis is 99 more than the 3,526 reported for the preceding year. Plowever, the significant feature of this year’s development lies in the fact that there were 2,86/ of the 3,625 communities by which supplies were ordered for citizenship instruction, as compared with 2,138 of the year before, while there were only 758 subsidiary towns, as compared with 1,390 in the preceding year. The assistance which has been offered to the indus REPORT OF THE SECRETARY OF LABOR. 49 tries in promoting citizenship training is probably exemplified by one cpiotation: “The work that your bureau is doing is excellent in every regard and deserves the highest commendation.” Citizenship training has been extended to new isolated parts with the cooperation of county public-school organizations. A larger number of candidates were invited to attend the public schools by means of the Boy Scouts of America than in any preceding year. Financial statement. The naturalization law imposes upon aliens seeking citizenship fees amounting to 85 per head. One half of the amount so paid, up to 83,000 in each fiscal year, is assigned by law to clerks of courts for preparing and filing such papers and taking the oaths of declarants^ petitioners, and witnesses. The other half is by law remitted to the Treasury Department as miscellaneous receipts. All expenditures, for administrative purposes by the bureau are made from authorized appropriations in the annual legislative and sundry civil appropriation bills. No charge is made to aliens who have been admitted under special enactments in behalf of those who performed military service in the recent war. The total receipts from the clerks of courts for the fiscal year were 8598,709.95. The cost of administration, including the work in connection with the promotion of trainingfor citizenship, was 8772,171.31 , leaving a deficit of 8173,461.36, as compared with the amount collected, but within the appropriations made available by Congress. That a deficit even of this character should exist at all results from two features of the duties imposed by law upon the naturalization service which are not self-supporting in any degree, as they do not produce any revenue. The first of these is the naturalization work connected with the admission to citizenship of those who have been honorably discharged from the military service. As to these the law expressly provides that no fee shall be paid by the beneficiaries. The other branch referred to as nonproductive of revenue is that of the active cooperation of officials of the naturalization service with the various educational agencies, public and private, in the United States, with a view to the promotion of the training of candidates for citizenship in the responsibilities imposed upon citizens of this country, both State and Federal. The estimated expenditure on account of this service during the last fiscal year was 8148,402.23. Beginning with the first of the current calendar year, there was transferred for administrative reasons from the inspectors of immigration to the naturalization officers the duty of examining applicants for certificates of arrival in those cases where it had been impossible to locate such certificates from any record kept at the port 50 REPORT OF THE SECRETARY OF LABOR. of arrival. Where there was no such record of the admission of such aliens, and where it was apparent that no head tax had been paid on their account, as required by law, a collection of the amount of the immigration head tax has been made from each such applicant by the examining officers of the naturalization service and remitted to the department through the Bureau of Naturalization for deposit in the miscellaneous receipts of the Treasury Department. The amount so collected for the last six months of the fiscal year under consideration was $15,504.16. In connection with this section of the report, attention is particularly invited to the recommendations I have made in the conclusion for new legislation affecting the Bureau of Immigration. CHILDREN’S BUREAU. Federal aid for the welfare and hygiene of maternity and infancy. The Children’s Bureau, created in 1912 for scientific research in the field of child care, has had its usefulness greatly extended during the past fiscal year by the passage of the maternity and infancy act. The need and the practicability of the United States Government cooperating with the States in providing for the protection of mater-nitv and infancy through (1) public-health nurses, (2) teaching and practical demonstrations for mothers of the hygiene of maternity and infancy and of the household arts essential to the well-being of mother and child, (3) accessible consultation centers or well children’s clinics for the periodical examination of young children in order to secure their most vigorous development, were pointed out by the Chief of the Children’s Bureau in her annual reports from 1917 to 1920. The so-called Sheppard-Towner Act for the promotion of the welfare and hygiene of maternity and infancy, which became a law November 23, 1921, provides a working basis for this program. Although greatly changed in its details, the main features of the act are those which the bill introduced in 1918 embodied. It provides for Federal aid to the States; acceptance of its benefits is voluntary on the part of both the State and the individual parent; local administration is lodged in the child-hygiene or child-welfare divisions of the various State agencies, where such divisions exist. The general administration of the act is lodged in the Children s Bureau. A Federal Board of Maternity and Infant Hygiene, composed of the Chief of the Children’s Bureau, the Surgeon General of the United States Public Health Service, and the United States Commissioner of Education, has authority (1) to approve or disapprove plans submitted by the States and (2) to withhold further certification of Federal funds to a State if the money is not properly expended. These plans originate in the individual States, and section 8 of the act provides that “If these plans shall be in conformity with the REPORT OF THE SECRETARY OF LABOR. 51 provisions of this act and reasonably appropriate and adequate to carry out its purposes they shall be approved by the board. ” The act does not permit the payment of a money benefit or gratuity to the mother; it does not permit expenditures for building and equipping hospitals; it is not an insurance scheme. By June 30, 42 States had accepted the provisions of the act— 11 by legislative enactment and 31 by governors pending the next regular sessions of the legislatures. The second deficiency appropriation act, approved March 20, 1922, provided for an appropriation of 8490,000 for carrying out the provisions of the maternity and infancy act during the fiscal year ending June 30, 1922. Of this sum, 8240,000 was for equal apportionment among the States accepting the act without reference to population, 8237,500 for apportionment among the States according to population if matched in amounts by the States, and not to exceed 812,500 for the Children’s Bureau for administrative expenses. The act authorizes an appropriation for each of five succeeding years of 8240,000, to be apportioned equally among the States, and an additional sum of 81,000,000 to be apportioned 85,000 to each State and, after deducting 850,000 for administration by the Children’s Bureau, the balance to be apportioned among the States on the basis of population, provided such additional amounts are matched dollar for dollar by the States. The initial plans for State work which have been approved by the Federal board have varied greatly in type and extent of activities contemplated, as local conditions and previous developments in child hygiene have differed. In a number of the older and well-organized States with fairly complete programs the additional funds permit an extension of activities, looking forward to definite results in the reduction of mortality as well as in a lessened degree of illness among mothers and infants. The specific measures involved in State plans are accurate birth registration, improved milk supplies, State surveys of the medical and nursing facilities for maternal and infant care, and registration and supervision of midwives. Everywhere the plans of work are largely educational, to be carried out through actual teaching of mothers by public-health nurses. Any public-health measure is largely educational. This is particularly true in the field of maternal and child hygiene. The general discussion of the unnecessary loss of life among mothers and infants in the United States and of measures which had been successful in reducing it has had immediate educational value. Individual women have learned of new standards of prenatal care and of its importance to themselves and their children; and many communities have taken the first steps toward providing local facilities for educational work and adequate care. 52 REPORT OF THE SECRETARY OF LABOR. Both Hawaii and Porto Rico have officially asked to be included in the benefits of the act, and it is believed that in justice to the mothers and babies of those islands their requests should be granted. The Legislatures of New York and Massachusetts, while not accepting the act, have for the first time voted money for reducing maternal mortality. The act has already promoted both national and local appreciation of the importance of conserving the lives of mothers and children. Factors in infant and maternal mortality. A summary and analysis of data relating to mortality among nearly 25,000 infants born in eight cities is in progress. This study brings together a mass of evidence upon the basis of which the influence of each factor in determining the infant mortality rate can be ascertained. The employment of the mother during pregnancy is shown to have an influence not only in higher stillbirth and nepnatal mortality rates in the first month of life but also in an increased proportion of premature births. The employment of the mother away from home during the infant’s first year of life is found to be accompanied by a marked increase in the infant mortality rate, due in part to a greater prevalence of artificial feeding among these babies. The analysis already made of the relation of infant feeding to infant mortality brings out the very high rate associated with artificial feeding in the early months of life, and indicates that there is a cumulative effect of artificial feeding, if begun at a very early age, that produces an increasing divergence in the rates of artificially-fed and of breast-fed infants. In other words, the longer infants are breast fed, up to about the eighth or ninth month, the lower the mortality rate. A report, entitled “Maternity and Child Care in Rural /reas of Mississippi,” was issued during the year, and the report of a similar study in a mountain county of Georgia has been written. The latter is the sixth in a series of reports on the opportunities and needs of the country mother and child. It deals with native white families in a rural section of southern Appalachia where the problems confronting mothers in bearing and rearing their children are intensified by pioneer conditions. The findings call attention to the lack of medical and nursing service, and are of particular interest in connection with the legislation for the promotion of the welfare and hygiene of maternity and infancy enacted during the year. The statistical division has continued to assemble and interpret such information on maternal and infant mortality as is available for the nations of the world. Annual statistics from 1915 to 1920 for the expanding birth registration area of the United States show an increase of the death rate of mothers from causes connected with REPORT OF THE SECRETARY OF LABOR. 53 maternity, and the rate in this country for 1920 is the highest among all nations for which recent statistics are available. Infant mortality has decreased in the United States, but the rate here is still less favorable than the rates for seven foreign countries. Child labor. During the past year the industrial division of the Children’s Bureau has completed surveys in New Jersey, Maryland, and Virginia relative to the work, schooling, family welfare, and living conditions of some 3,600 children employed on truck farms. In connection with this inquiry a special study of migrations by Philadelphia school children into New Jersey for work on truck farms has also been made. A study of child labor in relation to school attendance has been made in six counties in North Dakota and in the three largest towns of that State. A field survey of vocational guidance and junior placement agencies has been completed in cooperation with the junior division of the United States Employment Service in 15 cities in which work of this kind has been definitely organized. In addition, an inquiry relative to the extent of vocational guidance activities has been made through questionnaires sent to the superintendents of public schools of all cities of 25,000 population and over throughout the country. Analyses and summaries of child-labor and compulsory-education legislation passed in the years 1921 and 1922 have been prepared, and a detailed analysis has been made of laws relative to the issuance of employment certificates. Eight charts illustrating the minimum child-labor standards adopted by the Child Welfare Conferences of 1919 have been drafted; they present in graphic form the legislation in effect in the different States at the present time. A bulletin, which is the fifth in a series of studies of the administration of child labor laws, has been completed; it summarizes the findings of the numerous studies made by the bureau in this field, with especial reference to the enforcement of the laws relating to the issuance of employment certificates or work permits. A conference on problems and standards of employment certificate issuance called by the bureau in cooperation with the National Education Association was held in Boston July 5-6, 1922, in connection with the annual meeting of the latter organization. An advisory committee of six school superintendents, appointed by the president of the National Education Association, cooperated with the bureau in planning the program of this conference, which was attended by both State labor and State and local education officials. Two reports issued during the year picture the conditions of child labor when no effective system of supervision exists, and are especially timely in view of the decision of the United States Supreme Court, 54 REPORT OF THE SECRETARY OF LABOR. rendered on May 15, which held the Federal child labor tax law unconstitutional and thus leaves the children without the protection of a Federal law. These reports, entitled 11 Child Labor and the Work of Mothers in Oyster and Shrimp Canning Communities on the Gulf Coast,” and “ Industrial Home Work of Children, a Study Made in Providence, Pawtucket, and Central Falls, R. I.,” show children working at ages far below those usually prescribed by child-labor laws and at hours prohibited by the laws of many States and by the standard set by the Federal law. The reports also stress interference with school attendance and school progress for which child labor is responsible. Dependency and delinquency. The advisory committee on juvenile-court standards, appointed last year as a result of a conference on juvenile courts held under the auspices of the Children’s Bureau and the National Probation Association, has been active during the year. A comprehensive outline for consideration of standards was prepared and at a second joint conference held June 21, 1922, in connection with the annual meeting of the National Probation Association, general discussion of the topics included was led by members of the committee. It is planned to have a final report on juvenile-court standards ready for discussion next year. Two juvenile-court monographs by authorities in their respective fields have been issued—The Practical Value of Scientific Study of Juvenile Delinquents, by Dr. William Healy, and The Legal Aspect of the Juvenile Court, by Bernard Flexner and Reuben Oppenheimer. A study of methods of dealing with children who have violated Federal laws, entitled “The Federal Courts and the Delinquent Child,” and a report of the Proceedings of the Conference on Juvenile -Court Standards have also been issued, and a study of the Chicago juvenile court is in press. In cooperation with the Child Welfare Commission of South Dakota and the Children’s Code Commission of North Dakota, the Social Service Division has made studies of the care of dependent and defective children, of juvenile courts, and of mothers’ pensions. These studies have largely concerned child welfare in rural communities. Their main purpose has been to ascertain conditions and to discover the needs for new legislative measures and for improvement in the administration of existing laws. The bureau has also given assistance in other ways than through field inquiries to the child-welfare or children’s code commissions of several other States, including Virginia and West Virginia. The recent rapid development of organized social work in counties as a public function is largely the result of the emphasis that has REPORT OF THE SECRETARY OF LABOR. 55 been given during the past few years to the problems of rural and small-town communities. The work is chiefly directed toward prevention and reconstruction. A report now in press summarizes the present status of work of this type in the various States. Sections describing in some detail the organization of county work for child care and protection were prepared by persons engaged in its development in Minnesota, North Carolina, California, New Jersey, and New York. Two studies have dealt with public aid to dependent children in their own homes. One of these related to the standards of aid and the methods of administration in nine localities, urban and rural; the other study has been conducted mainly through questionnaires and correspondence, with the object of securing information on the present status of administration in the 40 States now having mothers’ pension laws. A committee appointed by the National Conference of Social Work, cooperating with the Children’s Bureau in mothers’ pension inquiries, has made a study of standards of relief with special reference to budgets. The work of this committee is to be continued during the coming year. In an effort to secure first-hand information on unemployment as it affects the welfare of children, a study was made during the winter of 1921-22 in a middle western and an eastern city that had been seriously affected by the industrial depression. In the tw’o cities a total of 366 families known to State and city employment offices were visited by agents of the Children’s Bureau. Families of unemployed men, principally those who had been out of work six months or more, were selected, the study being further limited to those amilies in which there were two or more dependent children. In 71 per cent of the families studied in the first city, and in 48 per cent in the second, the father had been unemployed one year or longer. Of the 366 families, 185, or 51 per cent, had been compelled to apply for charitable aid, and only 22 of these families had previously needed such assistance. Ten per cent had aid from relatives, 32 per cent were the recipients of loans, 66 per cent had gone into debt for food, and 69 per cent had contracted other debts. Forty-three per cent had savings which helped to tide them over the period of depression. The principal source of maintenance, both as to aggregate amount and number of families reporting, was loans and other debts exclusive of credit for food. At the time of the visits by the bureau agents, almost one-third of the families had no income from earnings of father, mother, or children, and 29 per cent had earnings of less than $15 a week. It was possible to secure from 188 families what appeared to be a close approximation to their average monthly income during unemployment. Twenty-six per cent of the families had an average monthly 56 REPORT OF THE SECRETARY OF LABOR. income of less than $50, and more than a fourth of all the children were in these families. A total of 84 per cent of the families, including 81 per cent of the children, had less than $100 a month. It should be remembered that the families averaged more than five members each, and that the amounts reported as income included everything the family had to live on—credits, loans, charitable aid, and savings used, as well as earnings. It is evident, therefore, that unemployment has meant a lowering in the standards of life and consequently of child care. Child welfare in. the insular possessions. During the past year the bureau has conducted in Porto Rico, in cooperation with the insular department of education, a children’s year survey with the twofold purpose of studying the existing conditions affecting the children of the island and of stimulating the development of activities to improve their health and well-being. In the 23 years since Porto Rico became part of the United States the island has made great progress in education and general development, but it is severely handicapped by the basic conditions of great poverty, illiteracy, and physical debility. Porto Rico has a density of population which under existing economic conditions keeps the majority of the people far below what anyone can consider a decent standard of living. The island has reduced illiteracy from 80 to 55 per cent of the population 10 years of age and over, but although it devotes virtually half its total revenue to education, there exist to-day school facilities for only half the children of school age. The high infant mortality rate, high general death rate, and the alarming prevalence of such diseases as hookworm, malaria, and tuberculosis can be eradicated only by far-reaching public-health work extended over a considerable number of years. Cooperating with the Department of Education and other organizations, the bureau has strengthened existing work in behalf of children and has laid the foundation for other activities. Among these have been the development of games and athletics for school children, the introduction of play systems into many schools, the beginning of health teaching in the schools, general stimulus to childwelfare activities through “baby weeks,” and a campaign for the prevention of blindness and the education of the blind. The insular department of health has established a division of child hygiene, and in coperation with the American and Junior Red Cross eight infant-welfare stations have been established in different parts of the island. The bureau has made a special survey of homeless children, of whom the chief of police has estimated that there are at least 10,000 in the island, and interest has been aroused to meet the many problems involved in the protection of these children. REPORT OF THE SECRETARY OF LABOR. 57 Publications. During the fiscal year 1922 the bureau issued 35 new publications, leaflets, and charts; 11 of these were included in the ninth annual report, leaving a total of 24 issued since that report went to press. Nine reports are now in press. Among the publications issued which have not been mentioned under other topics are the following: A revised edition of the bureau’s popular pamphlet, Infant Care; a series of outlines for use in teaching courses in child care and child welfare, prepared in cooperation with the Federal Board for Vocational Education; a report entitled “Office Administration for Organizations Supervising the Health of Mothers, Infants, and Children of Preschool Age”; a presentation of the findings of the weighing and measuring tests conducted throughout the country during Children’s Year, the report being entitled “Statures and Weights of Children Under Six Years of Age”; and a study of children ■of wage-earning mothers. A report on playground facilities in the District of Columbia was issued in mimeographed form for local