The judges and the county fee offices: a statement to the taxpayers of Cook County

GIFT OF

ADMINISTRATION

OF THE OFFICE OF

CORONER of COOK COUNT
ILLINOIS

REPORT PREPARED FOR TH

JUDGES OF THE CIRCUIT COUR1

BY THE
CHICAGO BUREAU OF PUBLIC EFFICIENC

DECEMBER, 191

(Out

LICA'

'stering the Budget of
nary, 1911.

ting Machines by the Board of
ers of the City of Chicago. May,

the City of Chicago: An Inquiry
s, Methods and Results. June,

i the City of Chicago. July,

Oct<

The

n Whic

co of Recorder of Cook County,
1911.

the Office of County Treasurer.

Work done for the City of
October, 1911.

Two Related Propositions

of Chicago Will Be Asked to

Election of November 7 —

•'lystem of the City of Chicago. By Dab-
H. M December, 1911.

il Service Commission; and Special
Accounting System of the City of Chicago.

ADMINISTRATION

OF THE OFFICE OF

CORONER of COOK COUNTY
ILLINOIS

REPORT PREPARED FOR THE

JUDGES OF THE CIRCUIT COURT

BY THE
CHICAGO BUREAU OF PUBLIC EFFICIENCY

315 PLYMOUTH COURT

THE JUDGES

AND THE

COUNTY FEE OFFICES

STATEMENT
TO THE TAXPAYERS OF COOK COUM

BY THE

CHICAGO BUREAU OF PUBLIC EFFICIEr

DECEMBER 19, 191!

PRIOR PUBLICATIONS

Method of Preparing and Administering the Budget of
Cook County, Illinois. January, 1911.

2 Proposed Purchase of Voting Machines by the Board of

Election Commissioners of the City of Chicago. May,
1911.

3 Street Pavement Laid in the City of Chicago : An Inquiry

Into Paving Materials, Methods and Results. June,
1911. (Out of print,)

4 Electrolysis of Water Pipes in the City of Chicago, July,

1911. (Out of print,)

5 Administration of the Office of Recorder of Cook County,

Illinois, September, 1911.

6 A Plea for Publicity in the Office of County Treasurer.

October, 1911.

7 Repairing Asphalt Pavement: Work done for the City of

Chicago Under Contract in 1911. October, 1911.

8 The Municipal Court Acts: Two Related Propositions

Upon Which the Voters of Chicago Will Be Asked to
Pass Judgment at the Election of November 7—
Vote No, October 31, 1911.

9 The Water Works System of the City of Chicago. By Dab-

ney H. Maury. December, 1911,

10 Bureau of Streets; Civil Service Commission; and Special

Assessment Accounting System of the City of Chicago.
December, 1911.

11 Administration of the Office of Coroner of Cook County,

Illinois. December, 1911.

12 Administration of the Office of Sheriff of Cook County,

Illinois. December, 1911.

13 Administration of the Office of Clerk of the Circuit Court

and of the Office of Clerk of the Superior Court of Cook
County, Illinois. December, 1911.

THE JUDGES

AND THE

COUNTY FEE OFFICES

STATEMENT
TO THE TAXPAYERS OF COOK COUNTY

BY THE
CHICAGO BUREAU OF PUBLIC EFFICIENCY

315 PLYMOUTH COURT

CHICAGO BUREAU

OF

PUBLIC EFFICIENCY

TRUSTEES

JULIUS ROSENWALD, Chairman.
ALFRED L. BAKER, Treasurer.

ONWARD BATES. CHARLES R. CRANE.

CLYDE M. CARR. HENRY B. FAVILL.

GEORGE G. TUNELL. WALTER L. FISHER.

CHARLES E. MERRIAM.

HERBERT R. SANDS, Director.
GEORGE C. SIKES, Secretary.

PETER WHITE, Fiscal and Organisation Counsel.
HARRIS S. KEELER, Legal Counsel.

TABLE OF CONTENTS.

PAGE

Statement to the Taxpayers of Cook County by the Chi-
cago Bureau of Public Efficiency 1

Report of Committee of Judges to the Circuit Court of
Cook County 5

STATEMENT
TO THE TAXPAYERS OF COOK COUNTY

BY THE

CHICAGO BUREAU OF PUBLIC EFFICIENCY.

To the Taxpayers of Cook County:

Public revenues are being wasted on useless officials. The
Judges of the Circuit Court of Cook County, upon whom is im-
posed by the constitution the duty of fixing the number of em-
ployes in the county fee offices, have failed in their duty. They
are consenting to further unnecessary additions to the county pay-
rolls.

For several months the Chicago Bureau of Public Efficiency,
supported solely by the voluntary contributions of public spirited
citizens, has been engaged in the study of the so-called fee offices.
A report on the recorder's office was submitted to the judges last
September. The study of the county treasurer's office had to be
abandoned temporarily, because of the hostile attitude of Treas-
urer O'Connell. The judges took no steps whatever to assist the
Bureau in overcoming Treasurer O'Connell's opposition to the in-
quiry, notwithstanding the fact that it was undertaken in accord-
ance with formal action of the judges accepting the offer of the
Bureau to make these investigations for their use and informa-
tion. Last week the judges allowed Treasurer O'Connell eight
additional employes, despite indications that his office is waste-
fully managed, and in face of the obvious inference to be drawn
from the fact that he had prevented the making of a report on his

2 Chicago Bureau of Public Efficiency

office in time to be of use in fixing the number of employes for
1912.

Advance sheets of the reports on the offices of coroner, sheriff
and clerks of the circuit and superior courts were in the hands of
the committee of judges — consisting of Judges Baldwin, Smith
and Walker — before the order fixing the number of employes
for 1912 was approved by the court, which was on Friday last.
The report on the coroner's office was submitted to the committee
of judges on Tuesday, December 12, and was given to the public
the next day. A typewritten copy of the report on the sheriff's
office was submitted to the committee on Wednesday, with the
explanation that copies were not then available for the press or
for public distribution. The report on the offices of clerk of the
circuit court and clerk of the superior court was submitted in like
manner Thursday morning. The sheriff and the court clerks
each had been supplied with a copy of the report dealing with
his particular office.

The Chicago Bureau of Public Efficiency recommended a
reduction of fifteen in the staff of the circuit court clerk. No
reductions were ordered by the judges.

The Bureau recommended a reduction of 13 in the staff of
the superior court clerk. This recommendation took into account
the fact of the increase in the number of judges. In the face of
this recommendation, the judges actually increased the number of
employes by 10.

The Bureau recommended that the sheriff's staff be reduced
by the elimination of the assistant sheriff and four deputy sheriffs.
It took the position that no additional bailiffs were needed to take
care of the additional work caused by the increase in the number
of judges. The judges ordered no reductions, but on the con-
trary gave the sheriff ten additional bailiffs.

The Bureau recommended one additional employe for the
coroner. The judges gave him four.

The Judges and the County Fee Offices 3

In its report on the recorder's office, the Bureau pointed out
that two additional employes were required for certain work, but
there need be no net increase in the number, because there were
two unnecessary men in other divisions of the office. The re-
corder asked for one additional employe. A group of citizens
came forward with a request that the recorder be given seven
more employes than he had asked for. At the hearing before the
judges, the recorder gave perfunctory support to this plea. The
judges ordered the number of employes in the recorder's office
increased by six. There were special reasons why the recorder
hesitated to antagonize on this proposition the group of citizens
that urged the increase in his staff. The Bureau is satisfied that
neither the recorder nor his chief deputy believes the increase to
be necessary.

In the report submitted to the court by the committee of
judges, the Bureau of Public Efficiency was complimented on its
painstaking work in the study of the fee offices and the prepara-
tion of reports thereon. But no attention whatever was paid by
the judges to the recommendations made, in so far as they
affected the number of employes. It was said the re-
ports came in too late to influence action this year, but that state-
ment could not possibly apply to the report on the recorder's
office, for it was submitted to the judges three months ago. Pos-
sibly the judges were justified in hesitating to put into immediate
operation all the reductions that involve reorganization, and the
substitution of modern for antiquated methods, such as the use of
typewriters in place of longhand writing in record work. But
why should they authorize further, and in some cases large, in-
creases in the absence of better proof than was forthcoming as
to the need for the additional employes ? Why should the judges
listen to the plea of interested office-holders only, and pay no heed
to representatives of tax-paying citizens?

It is time for the people of Cook county to wake up and de-
mand that the waste of public funds be stopped.

4 Chicago Bureau of Public Efficiency

If they can legally do so, the Judges of the Circuit Court
ought to reconsider their order of December I5th fixing the num-
ber of employes in the fee offices subject to their control and
eliminate practically all of the increases that have been allowed.

CHICAGO BUREAU OF PUBLIC EFFICIENCY,

By the Executive Committee :

JULIUS ROSENWALD,

GEORGE G. TUNELL,
ALFRED L. BAKER,

CHARLES E. MERRIAM.
Chicago, Dec. 19, 1911.

REPORT OF COMMITTEE OF JUDGES

TO THE

CIRCUIT COURT OF COOK COUNTY.

STATE OF ILLINOIS,
COOK COUNTY.

IN THE CIRCUIT COURT OP COOK COUNTY.

In the Matter of the Application of Certain
County Officers for Assignment of Help.

REPOBT OF SPECIAL COMMITTEE,

to which was referred the matter of the application of certain county
officials for the assignment of help in their respective offices for the
ensuing year.

To the Judges of the Circuit Court of Cook County:

The undersigned, the committee heretofore appointed by you to
receive and consider the application of certain county officials for the
assignment of help in their respective offices, and to report to you our
conclusions thereon, beg leave to submit the following report.

That on November 1, 1911, an order was entered in the Circuit
Court, signed by the Chief Justice thereof, directing the several county
officials affected by Section 9 of Article 10 of the Constitution of the
State of Illinois, to file with the clerk of said court their several
applications for help on or before November 20, 1911, and to deliver
a copy thereof to each judge of said court.

Owing to the fact that the judges of the Circuit Court accepted,
under date of March 3, 1911, an offer made to them by the Chicago*
Bureau of Public Efficiency to prepare reports on the fee offices of
Cook County, which reports, it was believed, would be available for
their use by December 1, 1911, and from the fact that the Bureau was
continually conducting a very exhaustive examination in furtherance
of their offer, we have made no personal inspection of the offices cov-
ered by this report. Such an inspection, if made by us, without an
appropriation, without facilities, or the necessary time, would, at best,
be perfunctory in its nature, — and of little value.

The painstaking and carefully prepared initial report compiled
by the Bureau, covering the office of Recorder, which was submitted to
the judges in September, led us to believe that the often discussed
question as to the amount of help needed by the different county fee-
offices each year, would at last find a basis for proper settlement.

6 Chicago Bureau of Public Efficiency

But the task undertaken was enormous, and the fact that reports
of only five of the nine fee offices are at hand — that of the Recorder,
the Coroner, the Sheriff, the clerk of the Circuit Court, and the clerk
of the Superior Court — the last four received by us since Monday, and
only in rough draft, while not reflecting discredit on the Bureau,
makes more apparent the magnitude of their work.

However, the work done by the Bureau of Efficiency will not be
wasted, but will afford a basis for discussion and adjustment of the
necessary help for the county offices in the future. Many of the recom-
mendations of these five reports, which we have received, have been
conveyed to the different officials affected, and in most cases, when
these officials were before us, they expressed their approval of the
conscientious work done by the Bureau of Efficiency, and its undoubted
value to them and the public at large. Indeed, the Coroner stated
unequivocally to the Committee that he intended to carry into effect
the various recommendations made by the Bureau, and the help we
have allotted him has been with reference to his doing so.

The recommendations of the Bureau, especially as to changes in
the Sheriff's office, and as to those of the clerks of the Superior and
Circuit Courts, contemplate quite a radical reorganization of the pres-
ent methods of doing business, and make suggestions which we do not
feel at liberty at this time to adopt.

It should be remembered that these various county officials are
elected by and are accountable to the people for the administration of
their offices, so long as they are conducted within the law. The duty
of passing upon the number of employes necessary to perform the
work devolving upon these respective offices rests upon the judges of
the Circuit Court, but it may be doubted whether that duty or right
extends to the length of permitting us to require these elective officials
to adopt entirely new methods of doing the business of their offices,
or to reorganize their forces in accordance with the suggestions made
by the Bureau of Efficiency. In any event, these suggestions have
been received by us too late to allow the necessary time to fully dis-
cuss their merits by ,the representatives of the Bureau and the various
officials to be affected, and to sufficiently inform the judges as to the
practicability of enforcing the recommendations of the Bureau, even
If the Committee had the power. In fact, none of the judges, other
than the members of this Committee, have even seen the last four
reports of the Bureau. We feel confident that much good is to come
from these painstaking and efficient investigations by the Bureau; that
during the year to come, before the judges have again to pass upon
the matter of methods for the various county offices, these recom-
mendations can be thoroughly discussed with all the parties ipter-
ested, full publicity being given to them and to investigations and
discussions, so that by another year such recommendations may be
made as will incorporate the final and best judgment of the judges.

It is not impossible that if any county official should decline to
follow recommendations of the character indicated, after they had
been fully discussed, and such recommendations were so clearly in
the interest of the public, and the proper administration of the various
offices, in that the work of the office could be as well performed with
a much less number of employes, that the judges might decide to
recommend only the smaller number of employes that would be neces-
sary to adequately discharge the duties of the office under the most
approved methods.

The Judges and the County Fee Offices 7

We, therefore, express the hope that this Bureau of Public Effi-
ciency will continue and complete the work so efficiently begun.

In the present inquiry, we have carefully compared the work of
the office as reported during the past three years, and have studied
the recommendations of the two previous committees — which work
we have supplemented by the taking of personal testimony in public
of each separate official affected, and in most cases also by that of
his chief clerk. For the lack of a report such as that contemplated
by the Bureau, we have taken this testimony as the best evidence
obtainable — directly from the persons most vitally concerned, and
although we are unable to concur in some of their deductions, great
weight must be given their testimony, more especially as some of the
officials report that the work of their office is at present behind in
various particulars. Another matter which we have considered is the
fact that the personnel of the majority of the offices with which we
have to deal changed during the past year, and that much of the help
in these offices is therefore comparatively inexperienced.

An inspection of the reports and applications show a gradual,
though varying, increase in the amount of business transacted in the
several offices, and a request for assignment of help for the ensuing
year as follows:

Clerk of the Circuit Court:

From the fact that the report of the clerk of the Circuit Court
shows a gradual increase in business, we recommend that his request
for the same amount of help as allowed him last year be granted;
but that, as ex ojftcio clerk of the Juvenile Court, he be allowed one
efficient and capable stenographer (to be assigned to the exclusive
service of the judge of the Juvenile Court), in addition to the help
granted him for that branch of his work last year.

We commend his practice of reporting a return to the county
of the interest on "Trust Fund" and daily receipts of his office, as
set out in his report.

Clerk of the Superior Court:

The report of the clerk of the Superior Court shows a gradual
increase in the amount of business transacted, and presents a request
for an allowance of fifteen clerks in addition to the present staff, on
account of the election of the six new judges whose places were created
by statute last spring.

Basing our observations upon the testimony of the clerk and his
chief deputy — upon a comparison of the business transacted in the
Superior and Circuit Courts during the past three years, upon the fact
that about two of the newly elected judges will take the places of
country judges, who sat 607 days in the Superior Court during the
past year, and upon the further fact that a portion of their time may
be spent in the Criminal or Appellate Courts, we believe that the in-
creased business of the office can be well cared for by a smaller num-
ber than requested, and therefore recommend that ten instead of
fifteen clerks in addition to the present staff be granted.

Clerk of the County Court:

Inasmuch as the report of the clerk of the County Court shows a
perceptible increase in the amount of business done, we recommend
that his request for the same amount of help that he has at present

8 Chicago Bureau of Public Efficiency

be granted (which includes, in addition to those allowed him last year,
two additional clerks allowed in June, 1911).

Clerk of the Probate Court:

The report of the clerk of the Probate Court shows a small
increase in the business transacted and requests three additional
clerks or accountants for work upon the numerous fee books of the
office, and one confidential clerk, who shall be exempt from civil
service.

After carefully considering the very exhaustive report made by
an expert accountant in regard to these fee books in 1909, and taking
into account the fact that additional clerks were granted partly to
take care of this matter last year, and that the business of the office
shows no such increase in itself as to warrant placing more men upon
these books, we do not feel justified in recommending but one addi-
tional clerk for the use of the clerk.

We have before us a request made by the Hon. Charles S. Cutting,
Judge of the Probate Court, for a confidential clerk or private secre-
tary at a salary not exceeding $1,500 per year, who understands probate
procedure, so as to answer letters, questions, and advise in regard to
court matters parties who insist upon seeing the judge. Adequate
reasons are presented for this request, among others, that it would
save the time of a clerk of the Probate Court who is now helping to
do such work, but particularly in the saving of Judge Cutting's time
for the county, and we recommend that the clerk of the Probate Court
be allowed one additional capable clerk, who may be a stenographer,
and who shall be satisfactory to and assigned to the exclusive service
of the judge of the Probate Court.

Clerk of the Criminal Court:

The report of the clerk of the Criminal Court shows a very slight
increase in the amount of business transacted and requests two addi-
tional indictment record writers for emergency and general office work
and a private secretary, in lieu of the two to six extra men (averaging
three), which are now granted him. In view of the new law providing
for a system of probation for persons found guilty of certain defined
crimes, etc., which necessitates the keeping of a number of extra
records in his office and the fact that this request does not really
involve additional help, we recommend that the allowance of two ta
six extra men (averaging three) be discontinued, and that he be
allowed the two indictment record writers and an additional clerk

in addition to the remainder of his present force.

i

Coroner:

The report of the Coroner shows a gradual increase in the amount
of work done by his office, and requests one additional court reporter
and one additional typist, so as to enable him to cease accepting
transcripts of testimony in personal injury cases from stenographers
in the pay of public service corporations, who are parties in interest,
and also an additional physician, so as to properly care for the large
amount of work which his present force of three physicians are unable
to handle.

From the facts and figures presented by the Coroner's report and
his testimony before the Committee, we believe that the additional
physician is needed, and that the evil practice above named, which was

The Judges and the County Fee Offices 9

fully gone into and reported by your 1909 Committee, can only be
discontinued by the stenographer and typist asked for, and we, there-
fore, recommend that a stenographer, a typist and a physician, be
granted the Coroner, in addition to his present allowance.

A subsequent letter submitted to the Committee by the Coroner
emphasizes the fact that in order to be able to follow a number of the
suggestions of the report upon his office of the Bureau of Public
Efficiency he must needs be allowed an additional clerk to enable him
to perform the matters set out, and we recommend, therefore, that
besides the recommendations made above one additional clerk be
granted.

The Committee further approves and adopts the following recom-
mendations made by the Chicago Bureau of Public Efficiency and fur-
ther recommends:

1. That the Coroner requests the County Board for an appropria-
tion for transportation for his own use and for that of his deputies
in the discharge of their respective official duties.

2. That the use of passes by the deputy coroners and attaches of
the office be prohibited.

3. That the use of "unofficial clerks" by the deputy coroners be
discontinued.

4. That the use of "professional" jurors be discontinued as far
as possible.

5. That the pay checks of jurors be changed to a form which
will be acceptable at any bank.

6. That the scalping of jurors' checks or certificates be prohibited
the deputy coroners and attaches of the office.

7. That an "investigation record," accurately showing the work
of the office, somewhat similar to that kept by Dr. Hektoen, while
coroner's physician in 1890-94, be resumed.

The Recorder:

The report of the Recorder, whose office is divided into three
departments, — the Recording Department, the Abstract Department, and
the Torrens Department — shows a gradual increase in the amount of
business transacted.

One additional clerk is asked for in the Recording Department as
draftsman, and from the testimony, showing that the returning of
plats has been delayed by the lack of help for the past two years, we
recommend that a clerk, to be employed as draftsman, be granted, in
addition to the number of employes allowed last year.

In the Abstract Department the same number of employes as were
allowed for the past year is requested, and we recommend that they
be granted.

A supplemental report by the Recorder, in which was incorporated
a letter from the Cook County Real Estate Board Torrens Committee,
requested an addition of seven to the force at present employed in
the Torrens Division. The testimony of the Recorder, as well as that
of two members of the Committee named above, in regard to the need
for the additional number asked, showed that the value of this depart-
ment lay in the expedition with which the work could be done. The
fact that the receipts had increased nearly 100 per cent, during the
past four years, and over 20 per cent, during the last year, with every
prospect of a corresponding increase during the coming year, together
with the fact that one of those requested will more than earn his

10 Chicago Bureau of Public Efficiency

wages from the fees of work now waiting, tends to justify the granting
of a portion of the Recorder's request. We therefore recommend that
the two lady typists asked for be not allowed, and that one examiner
of titles, one investigator, one counter clerk, one typist, and one mes-
senger boy, be granted the Recorder in this department, in addition
to the number allowed last year.

Sheriff:

The report of the Sheriff shows a small increase in the business
transacted and asks for ten bailiffs and six janitresses on account of
the election of seven additional judges, and one marble finisher's helper
for the County Building, as well as one female clerk and matron at
the jail. He also asks that the jail physician be transferred from the
pay-roll of the County Agent to that of the Sheriff, and he stated to us
that this arrangement would be satisfactory to the County Agent.

After considering the representations made by the Sheriff and
his chief deputy as to the need for the increase in help requested, after
comparing the data of the last three years, and after considering the
fact that seven new judges have lately been elected, some of whose time
can be saved for the county by the use of a personal bailiff, we are
of the opinion that the granting of his request will better subserve
the county's interests, and, therefore, recommend that ten bailiffs, six
janitresses and one marble finisher's helper for the County Building,
as well as one female clerk and matron at the jail, be granted in addi-
tion to his present allowance of help. We also recommend that the
present jail physician be transferred to the pay-roll of the Sheriff,
as requested, if it can be done by a satisfactory agreement with the
County Agent.

County Treasurer:

The report of the County Treasurer shows a fair increase in the
amount of business transacted, and asks for eighteen additional clerks
and a private secretary, but suggests that the allowance of five clerks
for six months and of six clerks for four months, which has been
allowed for the past year, be discontinued. As a basis for his request
he points to the increase in business, and suggests that it is his policy
to place the highest grade of men on his regular pay-roll; that it is
impossible to obtain the class of help necessary in his office for either
four or six months' periods, and that he will better be able to serve
the county by retaining the best men upon his regular pay-roll continu-
ously than by hiring mediocre men for such short periods.

Taking into consideration the number of men whose short jtime
service he wishes to dispense with, whose work approximates that of
five men working full time, the net increase asked is fourteen men,
including a private secretary. Although we recognize the force of
his contentions, we are unable to say that the increase in business
justifies the whole number asked for, and we therefore recommend that
the allowance of the five clerks for six months and six clerks for four
months be discontinued, and that the County Treasurer be granted
thirteen additional clerks, in addition to the remainder of his present
allowance.

Juvenile Court:

Pursuant to the provisions of the Juvenile Court Act, we recom-
mend that a rule be entered of record providing for thirteen assistant

The Judges and the County Fee Offices 11

probation officers (three of whom shall be heads of divisions) and one
probation stenographer, in addition to the force heretofore allowed.
Your Committee has made no personal investigation in this matter, but
has consulted with Judge Pinckney and has adopted his suggestions
in the premises.

We have received a request from Judge Pinckney for the allowance
of a confidential clerk or private secretary, at a salary not exceeding
$1,500 per year, for use in his work in connection with the Juvenile
Court, because of the large detail incident to the work which devolves
upon him. We have heretofore recommended that the clerk be allowed
to supply the additional help.

Judge Pinckney suggests that the judges of the Circuit Court
join in a recommendation to the County Board that they increase the
salaries of the adult probation officers from $100 to $110 per month,
the increase being intended to cover traveling expenses. There being
no provisions under the adult probation law whereby such expenses
can be allowed in any other way. And, further, the chief probation
officer reports that the Municipal Court judges have already taken
affirmative action on a like request by the City Council. We recom-
mend the adoption of Judge Pinckney's suggestion that we join in
such a recommendation to the County Board.

Jury Commissioners:

The Jury Commissioners request the addition of one clerk to the
force allowed them last year by the courts of record of Cook County.
We recommend that the staff of the Jury Commissioners be increased
by the addition of one clerk named, because of the increase in the
amount of work done in this office, and this recommendation is also
approved by the judges of the Superior, Probate and County Courts
of Cook County, who share with us the duty of fixing the number of
these employes. We further recommend that the allowance made for
four assistants for a period of six months for certain special work
which has been completed, be discontinued.

The several requests for private secretaries or confidential clerks
have not been allowed because the law does not provide for them.

RECAPITULATION.

Based upon the foregoing we accordingly recommend the following;
lists of employes for the various county officials for the year 1912:

Cleric of the Circuit Court:

1 Chief Clerk
1 Book-keeper

1 Cashier

2 Execution Clerks
11 Record Writers

9 Minute Clerks
25 Clerks

1 Stenographer and Typewriter
1 Stenographer for use of Judges

12 Chicago Bureau of Public Efficiency

Juvenile Court Cleric Ex Officio:

1 Chief Clerk
1 Minute Clerk
3 Record Writers

5 Clerks

1 Stenographer for the exclusive use of the Judge of the
Juvenile Court

Clerk of the Superior Court:

1 Chief Clerk
1 Book-keeper

1 Cashier

2 Execution Clerks
8 Record Writers

8 Minute Clerks
38 Clerks

1 Stenographer and Typewriter
1 Stenographer for use of Judges

Clerk of the County Court:

1 Chief Clerk

1 Clerk, Assistant County Judge

1 Cashier and Book-keeper

6 Clerks

2 Record Writers

3 Minute Clerks

1 Stenographer for correspondence, certified copies, Insane

Court, etc.

11 extra men on special assessment work, making certified
copies, etc.

Clerk of the Probate Court:

1 Clerk-Stenographer for the exclusive use of the Judge of

the Probate Court
3 Assistants to Probate Judge

1 Chief Clerk

8 Record Writers
3 Minute Clerks
41 Clerks

2 Stenographers and Typewriters

1 Cashier and Book-keeper ,

Clerk of the Criminal Court:

1 Chief Clerk

1 Cashier and Book-keeper

6 Record Writers
22 Clerks

7 Minute Clerks

2 Indictment Record Writers
1 Stenographer

1 Messenger

The Judges and the County Fee Offices 13

Coroner:

1 Chief Deputy Coroner
4 Physicians and Deputies

11 Deputies
6 Clerks

4 Shorthand Reporters

4 Typists, Graphaphone Operators

Recorder:

A. RECORDING DEPABTMENT:

1 Chief Deputy

1 Chief Clerk
76 Clerks

2 Stenographers

100 to 140 Folio Typewriters to be employed as required, aver-
aging 135 for the year

B. ABSTBACT DEPABTMENT:

1 Superintendent
31 Clerks

C. TOBBENS DEPABTMENT:

1 Examiner of Titles

2 Attorneys

1 Investigator
1 Counter Clerk

3 Stenographers
1 Typist

1 Messenger

12 Clerks

Sheriff's Office:

1 Assistant Sheriff

1 Chief Deputy

2 Chief Bailiffs

2 Assistant Chief Bailiffs

1 Real Estate and Bond Clerk
1 Cashier
1 Summons Clerk
1 Assistant Summons Clerk
1 Execution Clerk
6 Clerks
1 Stenographer
1 Messenger
28 Deputy Sheriffs
114 Bailiffs
1 Bailiff, Chicago Heights

County Building:

1 Custodian
1 Assistant Custodian
1 Chief Engineer
1 General Mechanic
1 Elevator Caretaker

3 Oilers

14 Chicago Bureau of Public Efficiency

1 Clerk

2 Elevator Starters
18 Elevator Men

1 Head Window Washer

14 Window Washers
8 Watchmen

2 Chief Janitors
40 Janitors

96 Janitresses
2 Wood Finishers
1 Steamfitter
1 Steamfitter's Helper

1 Plumber

2 Electricians

1 Marble Caretaker
1 Marble Caretaker's Helper
1 Marble Finisher's Helper
1 Iron Caretaker

3 Bronze Caretakers
1 Store Room Keeper
3 Firemen

3 Coal Passers

3 Engineers

Criminal Court Building:

1 Custodian

4 Elevator Men
8 Watchmen

10 Janitors

2 Window Washers

15 Janitresses

1 Chief Engineer

3 Engineers
6 Firemen

1 Pump Engineer

1 Coal Passer

1 Electrician

1 Plumber

1 Chambermaid

1 Steamfitter

1 Steamfitter's Helper

Jail:

1 Jailor

3 Assistant Jailors

2 Clerks

1 Female Clerk and Matron

3 Matrons
1 Engineer
1 Laundress
1 Teacher

4 Elevator Men
53 Jail Guards

1 Nurse for Jail Hospital
1 Chief Cook

The Judges and the County Fee Offices 15

2 Assistant Cooks
4 Kitchen Helpers
1 Baker ,

1 Store Keeper

1 Jail Physician (provided he be transferred from County
Agent)

County Treasurer:

1 Assistant Treasurer

1 Chief Clerk

2 Cashiers
1 Auditor

4 Book-keepers
1 Draftsman

1 Stenographer

2 Messengers
98 Clerks

Extra men by the day, including night and Sunday
work, 50 to 250 men to be employed as required. Average,
150 men.

Juvenile Court Probation Officers:

1 Chief Probation Officer
1 Assistant Chief Probation Officer

. 3 Assistant Probation Officers who shall be heads of divisions
43 Assistant Probation Officers

1 Court Stenographer

2 Probation Stenographers
2 Probation Clerks

1 Assistant Probation Officer (Nurse)

2 Assistant Probation Officers (Interpreters)

Jury Commissioners:

1 Clerk (allowed by statute)
11 Assistants

All of which is respectfully submitted.

Dated, DECEMBER 15, 1911.

(Signed) JESSE A. BALDWIN.

(Signed) CHABLES M. WALKER,
(Signed) FREDERICK A. SMITH.

THE PARK GOV

OF CHICAGO

AN INQUIRY INTO THEIR ORGANIZE
AND METHODS OF ADMINISTRATK

REPORT PREPARED BY T H E
CHICAGO BUREAU OF PUBLIC EFFICIENCY

DECEMBER, 191

>RIOR PUBLICATIONS

t Preparing and Administering the Budget of Cook
>unty, Illinois. January, 1911,

sed Purchase of Voting Machines by the Board of Election
^Commissioners of the City of Chicago. May, 1911. (Out of
Prir ' i

reet Pavement Laid in the City of Chicago: An Inquiry Into
ials, Methods and Results. June, 1911. (Out of

oi V Uer Pipes in the City of Chicago. July, 1911.
(Out of Prim

niniatrati i the Office of Recorder of Cook County, Illinois.
S< tember, 1911.
Plea for Publicity in the Office of County Treasurer. October,

1911.

..pairing Asphalt Pavement: Work Done for the City of Chi-
go Under Contract in 1911. October, 1911. (Out of Print.)
ic Municipal Court Acts: Two Related Propositions Upon
Which the Voters of Chicago Will Be Asked to Pass Judg-
: Election of November 7-— Vote No. October 31,
0 f Print).

:. v: i; •<,:;.;;: System of tb e City of Chicago. By Dabney H,
Maun/, December, 1912.

eets; Civil Service Commission; and Special Assess-
« Bunting System of the City of Chicago. December,

ion of the Office of Coroner of Cook County, Illinois.
Deo .••• '911.
Adir; • atioii <>i -.lie Office of Sheriii of Cook County, Illinois.

Det< tnb<

Adn i the OfB< of Clerk oi the Circuit Court and of

Court cf Cook County,
... tceml er, I I]

he County :. ces December 19, 1911.

Gem. : ' - ; Report on the Park Gov-

nents C licago .( ' ser, • 311,

THE PARK GOVERNMENTS
OF CHICAGO

AN INQUIRY INTO THEIR ORGANIZATION
AND METHODS OF ADMINISTRATION

REPORT PREPARED BY THE
CHICAGO BUREAU OF PUBLIC EFFICIENCY

315 PLYMOUTH COURT

CHICAGO BUREAU

OF

PUBLIC EFFICIENCY

TRUSTEES

JULIUS ROSENWALD, Chairman
ALFRED L. BAKER, Treasurer

ONWARD BATES CHARLES R. CRANE

CLYDE M. CARR HENRY B. FAVILL

GEORGE G. TUNELL WALTER L. FISHER

CHARLES E. MERRIAM

HERBERT R. SANDS, Director

GEORGE C. SIKES, Secretary

PETER WHITE, Fiscal and Organization Counsel

HARRIS S. KEELER, Legal Counsel

TABLE OF CONTENTS

INTRODUCTION 9

HISTORICAL 11

GENERAL SUMMARY AND CONCLUSIONS 15

I. Waste and Inefficiency the Natural Consequences of

Lack of Unity 15

II. General Characterizations of the Separate Park Systems. 17

1. The South Park System 17

2. The West Park System 18

3. The Lincoln Park System 21

4. The Smaller Park Districts 21

III. Publicity for Park Board Affairs 22

IV. Financial Matters 23

V. Improvements Pending Unification 24

TEXT OF REPORT 27

Part One 27

I. Board Meetings 27

Time and Place of Meetings 27

Executive Sessions 28

Recording and Publishing Board Proceedings 29

Methods of Passing Ordinances 30

II. General Financial Methods 31

Receipts 31

Expenditures 31

Bonded Debt 34

Treasurers' Sureties 36

Interest on Deposits 37

Special Funds 40

III. Taxes for Park Purposes 42

Power of Park Boards to Levy Taxes 42

Increase of Park Taxes Due to Change in Assessed

Values 43

Inequity of Tax Distribution 46

South Park Board Specially Benefited in 1909 Levy 47

South Park Board Asking Further Increase in 1911... 48

Levying Special Assessments 49

3

TABLE OF CONTENTS-Continued

IV. Central Accounting and Auditing Control 49

South Park Commissioners 49

West Chicago Park Commissioners 49

Receipts 50

Expenditures 51

Materials and Supplies 51

Contracts 52

Payrolls 52

Cost Accounting 53

Auditing 53

In General 55

Lincoln Park Commissioners 56

Receipts 56

Expenditures 56

Materials and Supplies 56

Contracts 57

Expense Accounting 58

Payrolls 58

Auditing 58

Summary and Conclusions of Part One 59

Board Meetings 59

General Financial Methods 60

Taxes for Park Purposes 63

Central Accounting and Auditing Control 65

Part Two 67

I. Methods of Purchase (exclusive of coal) 67

Need for Centralization 67

Need for Standardization 70

Purchase of Soil 74

A $100,000 Annual Saving 75

II. Purchase of Coal '. 76

Defects in Specifications 77

South Park Commissioners 77

West Chicago Park Commissioners 78

Lincoln Park Commissioners 78

Methods Actually Employed in Weighing, Sampling

and Testing 79

South Park Commissioners 79

West Chicago Park Commissioners 79

Lincoln Park Commissioners 79

Savings Possible by Proper Selection of Coals 80

4

TABLE OF CONTENTS-Continued

III. Small Parks and Playgrounds 83

South Park Commissioners 84

West Chicago Park Commissioners 85

Lincoln Park Commissioners 86

In General 86

IV. Special Privileges 87

South Park Commissioners 87

West Chicago Park Commissioners 88

Lincoln Park Commissioners 89

V. Refectories and Lunch Rooms 90

South Park Commissioners 90

West Chicago Park Commissioners 93

Lincoln Park Commissioners 95

VI. Boats 97

South Park Commissioners 97

West Chicago Park Commissioners 99

Lincoln Park Commissioners 99

Summary and Conclusions of Part Two 100

Methods of Purchase (exclusive of coal) 100

Purchase of Coal 102

Small Parks and Playgrounds 103

Special Privileges 104

Refectories and Lunch Rooms 105

Boats 107

Part Three 109

I. Police Service 109

Appointment and Discharge 109

Increasing Cost of Park Police 110

Duplication of Police Work Ill

Other Conditions Contributing to Excessive Cost and
Inefficiency 1 12

II. Automobile Service 114

South Park Commissioners 114

Original Outlay 114

Maintenance and Operation 1 14

Service Records 116

West Chicago Park Commissioners 117

Original Outlay 117

Maintenance and Operation 117

Service Records 1 19

Lincoln Park Commissioners 119

Original Outlay 119

5

TABLE OF CONTENTS-Continued

Maintenance and Operation ......................... 120

Service Records .................................... 121

A Specific Case of Wasteful Methods ................. 121

III. Horse Service .......................................... 123

South Park Commissioners . .......................... 123

Methods of Purchase and Sale ...................... 123

Accounting for Horses ....................... ...... 124

Foraging of Horses ................................. 124

Management of Stables ............................ 124

West Chicago Park Commissioners ................... 125

Methods of Purchase and Sale ...................... 125

Accounting for Horses ............................. 125

Foraging of Horses ................................. 126

Management of Stables ............................. 126

Lincoln Park Commissioners .......................... 126

Methods of Purchase and Sale .., ................... 126

Accounting for Horses .............................. 126

Foraging of Horses ............................... . 127

Management of Stables ............................. 127

IV. Repair Shops .......................................... 127

South Park Commissioners ............................ 127

Organization and Equipment ........................ 127

Shop Costs ........................................ 127

West Chicago Park Commissioners ................... 128

Organization and Equipment ........................ 128

Shop Costs ......................................... 129

Lincoln Park Commissioners ......................... 129

Organization and Equipment ........................ 129

Shop Costs ......................................... 130

V. Laundries .............................................. 130

South Park Commissioners ............................ 130

West Chicago Park Commissioners ................... '131

Lincoln Park Commissioners .......................... 132

Summary and Conclusions of Part Three ............... 132

Police Service ....................................... 132

Automobile Service .................................. 134

Horse Service ....................................... 137

Repair Shops ................................ ......... 139

Laundries ............................................ 139

Part Four

I. Electric Lighting and Heating Plants ................... 141

South Park Commissioners ........................... 141

6

TABLE OF CONTENTS-Continued

West Chicago Park Commissioners 143

Lincoln Park Commissioners 145

Boulevard Lamps 146

II. Lincoln Park Extension 148

III. Marquette Park 149

IV. South Park Administration Building 151

The Old B-uilding 151

The New Building Project 152

New Building Erected at a Total Cost of $173,418 153

How $145,000 Might Have Been Saved 155

V. Insurance of Park Structures 157

VI. Park and Boulevard Pavements 162

VII. Need for Reorganization 165

Need for Reorganization of Existing Park Boards.... 165
Need for a Consolidated Park Organization 173

Summary and Conclusions of Part Four 175

Electric Lighting and Heating Plants 175

Lincoln Park Extension 177

Marquette Park 177

South Park Administration Building 177

Insurance of Park Structures 178

Park and Boulevard Pavements 179

Need for Reorganization 180

APPENDIX 183 ff.

Tables:

Table A Showing Amounts of General Fund of West Chicago
Park Commissioners Available for Deposit in Bank During
1909 and 1910; Amounts Deposited and Amounts Not De-
posited.

Table B Showing the Kinds of Coal Used by the Several Park
Boards and the Approximate Cost Thereof; Also Substitutes
Suggested and the Estimated Annual Savings in Cost.

Table C Showing Assessed Value in Each Park District and
Town for 1910, the Amount of Tax Levies Certified to the
County Clerk, and the Rate and Amount Extended on the Tax
Rolls.

Table D Showing Receipts and Expenditures for Each Park
Board During the Fiscal Year 1910; Also the Bonded Debt
Outstanding and Sinking Funds Provided.

TABLE OF CONTENTS-Continued

Table E Showing Fieldhouses, Playgrounds, Swimming Pools
and Bathing Beaches Maintained by the South, West and Lin-
coln Park Boards and the City Government.

Table F Showing Names and Areas of Parks Under Control of
Independent Park Governments and of the City Government
Respectively in Each Town and Ward of the City.

Table G Showing the Authority, Purpose, and 1910 Rate of Each
Park Levy Within the City Limits; Also the Amount of In-
crease Made Possible in the 1910 Levy by Changing from a
One-Fifth to a One-Third Valuation; Also the Amount of Each
Levy as Certified to the County Clerk.

Charts:

South Park Commissioners —
A — Chart of Organization as of January 1, 1911.
B — Chart of Reorganization as Suggested by the Chicago Bu-
reau of Public Efficiency.

West Chicago Park Commissioners —

C — Chart of Organization as of January 1, 1911.
D — Chart of Reorganization as Suggested by the Chicago Bu-
reau of Public Efficiency.

Lincoln Park Commissioners —

E — Chart of Organization as of January 1, 1911.
F — Chart of Reorganization as Suggested by the Chicago Bu-
reau of Public Efficiency.

Chart G Showing Organization Under Consolidation as Sug-
gested by the Chicago Bureau of Public Efficiency.

Map Showing Park Districts and Parks Within City of Chicago.

INTRODUCTION

There are ten separate park governments within the City
of Chicago, nine of which are independent taxing authorities.
Moreover, there is a general statute under which additional park
governments may be established. The existing park boards now
expend approximately six million dollars annually. While the
public has appreciated the excellent park facilities which have
been made available, it has known comparatively little as to the
organization and business methods of the park boards.

The Chicago Bureau of Public Efficiency was organized to
furnish the public with information regarding public revenues
and expenditures and to assist public officials in securing better
methods of administering public affairs in Chicago. The Bureau,
therefore, in the fall of 1910 sought the co-operation of the South,
West Chicago, and Lincoln Park Boards, respectively, for the
purpose of making a study of their organizations and methods
of administration.

On August 15, 1910, the South Park Board formally ex-
tended to the Bureau "an invitation to examine the South Park
Commissioners' system and methods of business." The Bureau
was apprised of the Board's action in a letter from the President,
Henry G. Foreman, dated August 20, 1910.

The West Chicago Park Board took similar action September
6, 1910, of which fact the Bureau was apprised in a letter from
the Secretary, George A. Mugler, dated September 8, 1910.

Also, Francis T. Simmons, President of the Lincoln Park
Board, wrote a letter to the Bureau September 26, 1910, in
which he offered facilities for making an audit "as well as a
thorough inquiry into the methods of the Lincoln Park Board
with special reference toward its economic side."

Since receipt of the above mentioned communications, the
Bureau has conducted an extensive inquiry into various phases
of the park problem in Chicago. It should be noted, however,
that the inquiry did not include a study of the expenditures

9

10 Chicago Bureau of Public Efficiency

for outdoor labor. Neither did the Bureau make an audit of the
accounts of the park boards. The inquiry was directed rather to
the fundamental features of organization and to the methods
of business administration.

Chicago's splendid parks and boulevards constitute a fea-
ture of the city's growth of which its people may be justly proud,
and it must be recognized that much credit is due to a number
of public spirited citizens, who, in their capacity as park com-
missioners, have contributed their time and efforts to the devel-
opment of the system.

Allowing full credit, however, for what has been accom-
plished, the problem presented is: How may better results be
obtained with the large amounts of money expended annually
for park purposes? The proportions which these amounts have
attained, the inefficiency and waste due to lack of unity in park
government and the rapidly increasing demand for park facil-
ities, particularly those of the character afforded by the small
parks and playgrounds, make the solution of this problem a
matter of first importance.

This report undertakes to set forth in detail the weak places
in the present scheme of park government and to suggest remedies.

HISTORICAL

The present multiplicity of park governments began about
1869, at which time the South, West and Lincoln Park Boards
were established. Prior to that time the public parks of Chicago
were under the control of the department of public works of
the city government. The entire park area was approximately
125 acres, of which only one-third was then improved. Today
the park area within the city is 3,220 acres, as shown in detail
in Table F of the Appendix.

The first attempt to found the South Park system was made
in 1866. Two park bills were prepared; one providing that a
park area be selected as an addition to the city and the other
that the park area selected be both inside and outside of the
city limits, and providing also for government by a commis-
sion of five members to be appointed by the Governor. The
latter plan which provided also for taxing for park purposes
only that portion of the city to be benefited by the parks, was
adopted by the promoters and the bill passed the Legislature
in 1867. It was defeated, however, when submitted to a vote
of the people of the towns of South Chicago, Hyde Park and
Lake at the general election the next spring. Another bill con-
taining practically the same provisions was introduced in the
next Legislature (1869) and passed. It provided that the act
should be submitted to the people at a special election. A special
election for the purpose of voting upon this act was therefore
called soon after and the measure was approved.

The bill which resulted in the establishment of the West
Park district, as originally drafted, provided for a system of
parks and boulevards throughout the entire city. When the
committee from the City Council which was sent to Springfield
to urge its passage found that representatives from the South
and North sides of the city had arranged for the passage of
bills to establish separate park systems in those portions of
the city, they modified their bill so as to include only the West

11

12 Chicago Bureau of Public Efficiency

side. The bill as modified provided for government by a com-
mission of seven members to be appointed by the Governor
and that the taxes therefor should be raised within the limits
of the park district described in the act. It was passed by the
Legislature and on March 23, 1869, was approved by a vote
of the town of West Chicago and those parts of the towns of
Lake View and Cicero which were entitled to vote under the
act. The West Chicago Park Commissioners are appointed for
terms of seven years.

Lincoln Park originally contained about sixty acres and
was set off for a public park from lands of the Chicago ceme-
tery by an ordinance of the City Council passed October 21,
1864. At that time it bore the name Lake Park. This was
afterwards changed to Lincoln Park. Beginning with the next
year, annual appropriations were made by the City Council
for its maintenance, the money being derived from a general
tax levy of the entire city. In February, 1869, the Legislature
passed an act fixing the boundaries of the park, providing for
condemning of remaining cemetery lots and also that the gov-
ernment of the park be vested in a commission of five persons
named in the act. They were to serve five years, after which
their successors were to be appointed by the Governor. A ques-
tion having arisen as to the power of the Legislature to name
commissioners in the law, another act was passed in June, 1871,
providing for the appointment of a new Board. In November
of that year the Governor appointed five commissioners to suc-
ceed the old Board and subsequent governors have appointed
the Lincoln Park Boards under the same authority. The number
was subsequently changed to seven and they have been appointed
for five year terms.

A number of acts have been passed which are amendatory
to the acts establishing the South, West and Lincoln Park
Boards. These amendatory acts have given the Boards more
taxing and bonding power and provided for extending and
developing their facilities. The Lincoln Park Board is unfor-
tunate in that the creative acts were ambiguous in some features
and silent upon others. They were never submitted to a vote

The Park Governments of Chicago 13

of the people of the towns of North Chicago and Lake View,
and the Board is therefore not clothed with corporate authority
such as is vested in the South and West Park Boards.

On July 1, 1895, there went into force a general enabling
act under which many additional park districts might be estab-
lished. Any one hundred legal voters resident within a pro-
posed park district may petition the County Judge to order
an election for the purpose of deciding whether the district
described in the petition shall be organized and also for the
purpose of selecting five commissioners. The term of one of
these commissioners expires each year and the vacancy is filled
by election.

Seven park districts have already been organized under this
act within the City of Chicago. The names thereof and dates
of organization (election) are as follows:

Ridge Avenue, April 14, 1896.
North Shore, May 10, 1900.
Calumet, September 12, 1903.
Fern wood, May 16, 1908.
Ridge, October 24, 1908.
Irving Park, April 12, 1910.
Northwest, June 30, 1911.

GENERAL SUMMARY AND CONCLUSIONS

I. WASTE AND INEFFICIENCY THE NATURAL CONSEQUENCES
OF LACK OF UNITY

Under separate management, each of the three large park
systems of Chicago has points of excellence — the South Park
and Lincoln Park systems more than the West Park system.
From the viewpoint of the community as a whole, however, there
is not only much waste and inefficiency in connection with expen-
ditures of park funds, but the needs of the people for park facili-
ties are not properly met, nor can they be, so long as the present
lack of unified management continues.

There are ten separate park boards within the City of Chi-
cago— not counting the Special Park Commission, which is an
arm of the city government, nor the Forest Preserve Commission,
intended to have taxing authority over the entire County of
Cook, the act creating which has been declared unconstitutional.
There are portions of the City of Chicago that are not
within any of the ten separate park districts. The names of
these ten boards, the amount of the outstanding bonded indebt-
edness and of the annual tax levy of each are giv°n in the follow-
ing tabular statement : Total Bonded Taxes Extended

Indebtedness at End by County

Park District of Fiscal Year 1910 Clerk for 1910

South $ 5,920,000.00 $2,601,159

West 2,763,166.66 1,437,263

Lincoln *1,790,000.00 990,239

Calumet 112

Fernwood *13,000.00 3,867

Irving 9,256

North Shore 32,000.00 10,506

North West **

Ridge 32,500.00 6,542

Ridge Avenue 3,544

$10,550,666.66 $5,062,488
Special Park Commission — Appropria-
tion by City Council for 1910 130,102

$10,550,666.66 $5,192,590

Less : Sinking Fund (See below) .... 470,458.81

Net Indebtedness . ..$10,080,207.85

*Sinkingr funds held against these bonds as follows:

Lincoln $470,000.00. Fernwood f458.81.

**Thls park district was not organized until 1911.

15

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