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NATIONAL DEFENSE MIGRATION
HEARINGS
BEFOBB THE
SELECT COMMIHEE INVESTIGATING
NATIONAL DEFENSE MIGRATION
HOUSE OF EEPEESENTATIVES
SEVENTY-SEVENTH CONGRESS
FIHST SESSION
PURSUANT TO
H. Res. 113
A RESOLUTION TO INQUIRE FURTHER INTO THE INTERSTATE
MIGRATION OF CITIZENS, EMPHASIZING THE PRESENT
AND POTENTIAL CONSEQUENCES OF THE
MIGRATION CAUSED BY THE NATIONAL
DEFENSE PROGRAM
PART 23
ST. LOUIS HEARINGS
NOVEMBER 26 AND 27, 1941
Printed for the use of the Select Committee Investigating
National Defense Migration
NATIONAL DEFENSE MIGRATION
HEARINGS
BEFORE THE
SELECT COMMITTEE INVESTIGATING
NATIONAL DEFENSE MIGEATION
HOUSE OF KEPEESENTATIVES
SEVENTY-SEVENTH CONGRESS
FIRST SESSION
PURSUANT TO
H. Res. 113
A RESOLUTION TO INQUIRE FURTHER INTO THE INTERSTATE
MIGRATION OF CITIZENS, EMPHASIZING THE PRESENT
AND POTENTIAL CONSEQUENCES OF THE
MIGRATION CAUSED BY THE NATIONAL
DEFENSE PROGRAM
PART 23
ST. LOUIS HEARINGS
NOVEMBER 26 AND 27, 1941
Printed for the use of the Select Committee Investigating
National Defense Migration
UNITED STATES
GOVERNMENT PRINTING OFFICE
WASHINGTON : 1942
SELECT COMMITTEE INVESTIGATING NATIONAL DEFENSE
MIGRATION
JOHN H. TOLAN, California, Chairman
LAURENCE F. ARNOLD, riinois M^ t-i/ff-fiARL T. CURTIS. Nebraska
JOHN J. SPARKMAN, Alabama ' FRANK C. OSMERS, Jr.. New Jersey
Robert K. Lamb, Staff Director
n
CONTENTS
rage
List of witnesses v
List of authors vn
Wednesday, November 26, 1941, morning session 8695
Testimony of panel representing city of St. Louis 8695
Statement by Hon. Wm. D. Becker 8696,8769
Statement by John J. Church 8702
Statement by Fred M. Karches 8702
Statement by W. M. Brandt 8707
Statement by H. O. Whiteside 8707
Statement bv C. M. Gwinner 8723
Statement by E. G. Steger 8723
Statement by F. J. Jeffrey 8741
Statement by Luther M. Slinkard 8744
Statement by Arnold B. Walker 8762
Testimony of Hon. Wm. D. Becker and panel 8769
Testimony of panel representing the Governor of Missouri 8785
Statement by William Anderson 8785
Statement by James Doarn 8835
Statement by J. W. Burch 8873
Statement by Lloyd W. King 8880
Statement by Proctar Carter 8882
Statement by Capt. W. J. Ramsey 8888
Statement by Dr. James Stewart 8890
Testimony of Governor's panel, resumed 8892
Testimony of Chester C. Davis 8901, 8904
Statement by Chester C. Davis 8901
Wedncsdav, November 26, 1941, afternoon session 8911
Testimonv of Lou E. Holland 8911, 8929
Statement bv Lou E. Holland 8911
Testimony of Peter R. Nehemkis, Jr 8937, 8976
Statement bv Peter R. Nehemkis. Jr 8937
Testimony of Fred Maytag II and W. Neal Gallagher 8990, 8995
Statement bv Fred Mavtag II , 8990
Statement bv W. Neal Gallagher 8993
Testimony of John Connolly, Jr 9002, 9005
Statement by John Connolly, Jr 9002
Thursdav. November 27, 1941, morning session 9011
Testimony of Belleville, 111., panel 9011, 9021
Statement by Belleville (111.) Chamber of Commerce 9012
Statement by C. A. Heiligenstein 9017
Statement by Rudolph Forayt 9018
Testimonv of William Gray 9029, 9030
Statement bv William Grav 9029
Testimonv of Walter E. Parker 9034, 9110
Statement by Walter E. Parker .-. 9034
Testimony of Decatur, 111., panel 9115
Testimony of Hon. Charles Lee 9116
Statement by Hon. Charles Lee 9116
Testimony of William E. Mueller 9117, 9122
Statement by Williain E. Mueller 9117
Testimonv of Earl Cooper 9129, 9131
Statement by Earl Cooper 9129
Testimony of K. T. Livesay 9132, 9133
Statement by K. T. Livesay 9132
Testimony of Richard B. Calhoun 9134
Statement by Richard B. Calhoun 9135
Testimony of E. Voris Conner 9138, 9139
Statement by E. Voris Conner 9138
HI
lA CONTENTS
Paga
Thursdav, Novenibor 27, 1941, afternoon .session. 9143
Ti'st iinony of Tluui Snow 9143, 9162
Statomenl bv Thad Snow 9143
Testimonv of Andrew Puckett 9172, 9173
Statement bv Andrew Puckett 9172
Testimonv of P. M. Barton 9176, 9177
Statement by P. M. Barton --^ 9176
Testimonv of P. G. Beck ^^^^' l^^l
Statement bv P. G. Beck 9178
Fridav, December 12, 1941 (postponed session) 9267
testimonv of Harrv W. Knight 9267,9271,9276
Statement. l)v Harry W. Knight 9267
Exhibits introduced at St. Louis hearing 9279
1 The Population of Missouri: Its Conditions and Trends, by Prof.
C. E. Livelv -r^V--- ^^^^
2. Defense Housing in the St. Louis Area, by Division of Defense
Housing Coordination - 9287
3 Effect of the Defense Program on St. Louis Workers, by WilUam
Sentner .- v--^--t " xf V ^^^^
4 Farm Labor and Tenancy in Southeast Missouri, by E. J. Hol-
comb, G. M. Murray, J. C. Folsom, and H. A. Turner 9302
5. Farm Labor Situation in St. Charles County, Mo., by R. A.
Langenbacher v: v," ; t Ho^n
6 Labor Situation in Sikeston, Mo., by E. P. Coleman Jr 9349
7' History of "The Village of All Saints," St. Cliarles County, Mo.,
by Rev. William Pezold ---- 9349
8 Experience of a Subcontracting Pool, letter by R. Newton Mc-
Dowell.
9350
9 Training Program in St. Louis Area, by the St. Louis Chamber of
Commerce, St. Louis, Mo t";;----- tHo
10 Manufacturing Armv Ordnance in Oklahoma Indu.stries 9353
11' The Work Projects 'Administration and Migration in Missouri,
by B. M. Casteel -. 9357
12 Effect of Defense Migration on Employment of A. P . of L. Union
Members in Evansville, Ind., by Evansville Central Labor
Union Committee t ' T --f " j " " "•" ' 'C"
13 Effect of the Defense Program on Evansville, Ind., Industries, by
N. L. Kneise - -- 9368
14 Lay-offs, Migration, and Dislocations in the Evansville, Ind.,
Area by Frank E. Richter 9371
15. Formation of Huntington County Industrial Pool, by C. H. Drew. 9381
16 The Industrial Situation in Muncie, Ind., by Lester C. Bush- - - _. 9383
17 Dislocations of Workers in Iowa Due to Priorities and Material
Shortages, bv Iowa Emplovment Security Commission -._ 9383
18. Emplovment, "Lay-offs, and Labor Supply in Iowa, by Iowa
Employment Security Commission - - - - - - - - - 93S.->
1 9 Effect of the Defense Program on Newton, Iowa, Schools, by
B C Berg --- ^"^^
20 Effect of Priorities on Employment in Newton, Iowa, Industries,
by Yates Payseur ;;-rv U~--V:"-" '
21 Effect of Defense Program on the Matthews Manufacturing
Co., Newton, Iowa, by J. S. Matthews ^- " - >%" „- " " " ^^^
22. Effect of Defense Program on Midwest Stamping Co., Kellogg,
Iowa, bv the secretary ,---,- -7- -Tr," ~ "•"" V"V "" '
23. Industrial' Trends and the Labor Market in lUinois, by Leon
Brower - - -^ --->;-- v ' V ; " " V
24. Effect of Priorities on the Wagner Malleable Iron Co., by John A.
Wagner- -_ -- -
25. Peoria, llh,' Group Resources Pool, by L. A. Phelps 9399
26. The Lancashire Way, by A. J. Liebling- . - y^ J^'
27. Interstate Claims and Benefits, by Bureau of Employment ^^^^
Index-. -.!!!!!^'!:::::::::::::::::::::::::-----^^i'-i"«p'^^
LIST OF WITNESSES
St. Louis Hearings, November 26, 27, 1941
Page
Anderson, William W., director, State Planning Board, State Office Build-
ing, Jefferson Citv, Mo 8785
Barton, P. M., planter, Catron, Mo 9176,9177
Beck, P. G., regional director, Farm Security Administration, Indianapolis,
Ind 9178, 9263
Becker, William Dee, mayor, St. Loui^, Mo 8695
Blette, George F., molder, 119 Lucinda Avenue, Belleville, 111 9011
Burch, J. W., director, extension service, college of agriculture. University
of Missouri, W^ater Hall, Columbia, Mo 8785
Calhoun, Richard B., employer relations representative, Illinois State
Employment Service, Decatur, 111 9115, 9134
Carter, Proctar, Missouri State Social Security Commission, State Office
Building, Jefferson City, Mo 8785
Conner, E. Voris. supervisor, Decatur township relief office, Decatur,
111 9138,9139
Connolly, John, Jr., counsel for United Electrical, Radio, and Machine
Workers of America (of Newton, Iowa), Des Moines, Iowa 9002, 9005
Cooper, Earl, chief engineer. Chambers, Bering, Quinlan Companv,
Decatur, 111 9115, 9129, 9131
Davis, Chester C, president. Federal Reserve Bank of St. Louis, St. Louis,
Mo 8901,8904
Doarn, James, Missouri State Employment Service, 1101 East Capitol
Avenue, Jefferson City, Mo 8785
Ehret, Hugo, president, Oakland Foundry Companj-, Belleville, 111 9011
Forayt, Rudolph, secretary. International Molders and Foundrj' Workers
of America, Local 182, Belleville, 111 9011
Foster, Don S., manager, Belleville Chamber of Commerce, 106 South
Thirtieth Street, Belleville, 111 9011
Gallagher, W. Neal, president and general manager, Automatic Washer
Co., Newton, Iowa 8990, 8995
Grav, William, trailer camp operator, 312 Cotton Belt Building, St. Louis,
Mo 9029, 9030
Gwinner, G. M., director of research. Social Planning Council of St. Louis
and St. Louis County, 613 Locust St., St. Louis, Mo 8695
Heiligenstein, C. A., president, First National Bank, Belleville, 111 9011
Holland, Lou E., president, Mid-Central Associated Defense Industries,
Inc., Kansas City, Mo 8911
Jeffrey, F. J., assistant superintendent, St. Louis public schools, 911 Locust
Street, St. Louis, Mo 8695
Karr, Edward, president, Karr Range Company, Belleville, 111 9011
King, Llovd W., State superintendent, department of public schools,
Capitol Building, Jefferson City, Mo 8785
Knight, Harry W., city manager. Two Rivers, Wis 9267, 9271, 9276
Lee, Hon. Charles, mayor, Decatur, 111 9115,9116
Livesav, K. T., representing Gebhardt-Gushard Company, Decatur, 111 — 9115,
9132, 9133
Maytag, Fred, II, president, Maytag Company, Newton, Iowa 8990, 8995
McBride, Colonel Harry D., director, civilian defense, St. Louis, Mo 8695
Mueller, William E., president, Mueller Companv, Decatur, 111 9115,
9117,9122
Nehemkis, Peter R., Jr., special assistant, Division of Contract Distribu-
tion, Office of Production Management, Washington, D. C 8937
Parker, Walter E., supervisor of employment offices, Illinois State Depart-
ment of Labor, Decatur, 111 ". 9034, 9110
V
VI LIST OF WITNESSES
Faee
Tuckctt, Andrew, sharecropper farmer, South Lilbourn, Mo 9172, 9173
Uamsev, Captain W. J., State highway patrol, State Office Building,
JolTorson City, Mo 8785
Sliiikard, Luther M., secretary, St. Louis Industrial Union Council, Con-
gress of Industrial Organizations, 706 Chestnut St., St. Louis, Mo 8695
Snow, Thad, planter, Charleston, Mo 9143,9162
Steger, E. G., director. Social Planning Council of St. Louis and St. Louis
County, 013 Locust St., St. Louis, Mo . 8695
Stewart, Dr. .James, commissioner, Missouri State Board of Health, State
Office Building, Jefferson City, Mo 8785
Whiteside, H. O., research director, St. Louis Chamber of Commerce,
511 Locust Street, St. Louis, Mo ._ _ 8695
LIST OF AUTHORS
Of Prepared Statements and Exhibits
Page
Anderson, William, director, Missouri State Planning Board, Jefferson
City. Mo 8785
Banta, Parke M., administrator, Missouri State Social Security, Jefferson
Citv, Mo 8882
Barton. P. M., planter, Catron, Mo 9176
Beck, P. G. regional director. Farm Security Administration, Indianapolis,
Ind 9178
Becker, Hon. William Dee, mayor, St. Louis, Mo 8696
Belleville Chamber of Commerce, Belleville, 111 . 9012
Berg, B. C, superintendent, Newton public schools, Newton, Iowa 9390
Brandt. W. M.. secretary. Central Trades and Labor Union of St. Louis
and vicinity, St. Louis^ Mo 8707
Brower, Leon, supervisor, research and statistics, Illinois Division of Place-
ment and Unemployment Compensation 9394
Burch, .J. W., director. Extension Service, College of Agriculture, University
of Miissouri, Jefferson City, Mo 8873
Bureau of Emplovment Security, Federal Security Agency, Washington,
D. C ." 9404
Bush, Lester C, manager, Muncie Chamber of Commerce. Muncie, Ind 9383
Calhoun, R. B., emjjloyment relations representative, Illinois State Em-
ployment Service, Decatur, 111 9135
Carter, Proctar, Missouri State Social Security Commission, Jefferson City,
Mo 8882
Casteel, B. M., state administrator, Work Projects Administration, Jef-
ferson City, Mo 9357
Church, John J., secretary. Building and Construction Trades Council, St.
Louis, Mo ■ 8702
Coleman. E. P., Jr., Sikeston, Mo 9349
Conner, E. Voris, supervisor, Decatur township relief office, Decatur, I1L_ 9138
Connolly, John, Jr., counsel for United Electrical, Radio, and Machine
Workers of .-America (of Newton, Iowa) 9002
Davis, Chester C, president. Federal Reserve Bank of St. Louis, St. Louis,
Mo 8901
Davis, P. L., secretary and treasurer, Chambers, Bering, Quinlan Co.,
Decatur, 111 9129
Denham, Will S., director, State Employment Service, Jefferson City,
Mo 8835, 8872
Division of Defense Housing Coordination, Office for Emergency Manage-
ment, Washington, D. C. _. 9287
Doarn, James, Unemplovment Compensation Commission of Missouri,
Jefferson City, Mo I 8835
Drew, C. H., executive vice president, Huntington County defense group,
Huntington, Ind 9181
Erb, Walter, district supervisor in charge of farm placement, Missouri
State Employment Service, Jefferson City, Mo 8864, 8866
Evansville Central Labor Union Committee, Evansville, Ind 9365
Folsom, J. C, Bureau of Agriculture Economics, Washington, D. C 9302
Gallagher, W. Neal, president and general manager. Automatic Washer
Co., Newton, Iowa 8993
Gray, William, trailer camp operator, 312 Cotton Belt Bldg., St. Louis, Mo_ 9029
Gwinner, C. M., director of research, Social Planning Council of St. Louis
and St. Louis County, St. Louis, Mo 8723
Hoffman, Malvin G., consultant, National Resources Planning Board 8806
Hoean, Maj. Randall J., executive officer. Ordnance Department, St. Louis,
Mo 9353
vn
VlII LIKT OF AITTTTORS
Pace
Holcomb, E. J., Bureau of Agricultural lOcoiioniics, Washington, D. C 9302
Ilollaiul, Lou E., president, Mid-Central Associated Defense Industries,
Inc., Kansas City, Mo 8911
Howe, Harold, consultant, National Rosoiirces Planning Board 8786
Iowa Kniployniont Security Coniniission, Dos Moines, Iowa 9383,9385
Jeffrey, F. J., assistant superintendent, St. Louis Public Schools, St.
Loiiis, Mo 8741
Karches, Fred M., director industrial relations division, Associated In-
dustries of Missouri, St. Louis, Mo 8702
King, Llovd W., state superintendent. Department of Public Schools,
Jefferson City, Mo 8880
Klein, president, Fe.stus Retail Merchants Association, Festus, Mo 8760
Kniese, N. L., secretary-manager, Evansville Manufacturer's and Em-
ployer's Association, Evansville, Ind 9368
Knight, Harry W., city manager, Two Rivers, Wis 9267
Langenbacher, R. A., county extension agent, St. Charles County, Mo 9348
Lee, Hon. Charles, mayor, Decatur, 111 9116
Liebling, A. J., c/o New Yorker Magazine, New York, N. Y 9399
Lively, Prof. C. F.., College of Agriculture, department of rural sociology,
University of Missouri, Columbia, Mo 9279
Livesay, K. T., representing Gebhardt-Gushard Co., Decatur, 111 9132
McDowell, R. Newton, president, R. Newton McDowell, Inc., Kansas
City, Mo 9350
Matthews, J. S., president, Matthews Manufacturing Company, Newton,
Iowa 9393
Maytag, Fred, II, president, Maytag Company, Newton, Iowa 8990
Mueller, William, president, Mueller Co., Decatur, 111 9117
Murray, G. M., Bureau of Agricultural Economics, Washington, D. C 9302
Nehemkis, Peter R., Jr., special assistant, Division of Contract Distribu-
tion, Office of Production Management, Washington, D. C 8937
Noves, John, consultant, National Resources Planning Board, Omaha,
Nebr 8825
Parker, Walter E., supervisor of employment offices, Illinois State De- '
partment of Labor, Decatur, 111 9034
Payseur, Yates, manager, Iowa State Employment Service, Newton, Iowa. 9391
Pezold, Rev. William, St. Joseph's Church, Cottleville, Mo 9349
Phelps, L. A., superintendent, Hart-Carter Company, Peoria, 111 9399
Puckett, Andrew, sharecropper farmer. South Lilbourn Mo 9172
Ramsey, Capt. W. J., State Highway Patrol, Jefferson City, Mo 8888
Reiser, R. J., president. District 4, Federation of Glass, Ceramic, and Silica
Sand Workers of America, Crystal City, Mo 8757
Richter, Frank E., acting manager, Evansville office, Indiana State 9371
Employment Service, Evansville, Ind
Rossert, H. D., consultant, National Resources Planning Board 8798
St. Louis Chamber of Commerce, St. Louis, Mo 9352
Secretary, Midwest Stam])ing Company, Kellogg, Iowa 9394
Sentner, William, international vice president and president. District No. 8,
United Electrical, Radio and Machine Workers of America, St. Louis,
Mo 9288
Slinkard, Luther M., secretary, St. Louis Industrial Union Council, Con-
gress of Industrial Organizations, St. Louis, Mo 8744
Snow, Thad, planter, Charleston, Mo 9143
Steger, E. G., director, Social Planning Council of St. Louis and St. Louis
County, St. Louis, Mo. 8723
Stewart, Dr. James, commissioner, Missouri State Board of Health,
Jefferson City, Mo 8890
Turner, H. A., Bureau of Agricultural Economics, Washington, D. C 9302
Wagner, John A., president, Wagner Malleable Iron Company, Decatur,
111 9397
Walker, Arnold B., industrial secretarv. Urban League of St. Louis, St.
Louis, Mo I 8752
Whiteside, H. O., research director, St. Louis Chamber of Commerce, St.
Louis, Mo 8707
NATIONAL DEFENSE MIGEATION
WEDNESDAY, NOVEMBER 26, 1941
morning session
House of Representatives,
Select Committee Investigating
National Defense Migration,
Washington, D. C.
The committee met at 9:30 a. m. iii the city hall, St. Louis, Mo.,
Hon. Johii H. Tolan (chairman) presiding.
Present were: Representatives Jolm H. Tolan (chairman), of Cali-
foiTiia; Laurence F. Arnold, of Illinois; Carl T. Curtis, of Nebraska;
Frank C. Osmers, Jr., of New Jersey; and John J. Sparkman, of
Alabama.
Also present: Dr. Robert K. Lamb, staff director; John W. Abbott,
chief field investigator; Jack B. Burke, field mvestigator; and Ruth
Abrams, field secretary.
The Chairman. The committee will please come to order.
TESTIMONY OF PANEL REPRESENTING CITY OF ST. LOUIS
The Chairman. Wlien I call the followuig names, I would like to
hav3 the gentlemen come up and take seats over there. Mayor
William Dee B3cker, Col. Harrv D. McBride, Mr. Luther M. Slmkard,
Mr. F. M. Karches, Mr. H. O. \\ldteside, Mr. F. J. Jeifrey, Mr. G. M.
Gwinner, Mr. Arnold B. Walker.
Gentlemen, I woidd like each of you to state your name and who you
represent here, so that the reporter will be able to designate you.
Mayor Becker. William Dee Becker, mayor of St. Louis.
Mr. Slinkard. Luther M. Slinkard, secretary, St. Louis Industrial
Union Council, Congress of Industrial Organizations, 706 Chestnut
Street, St. Louis, Mo.
Mr. Jeffrey. F. J. Jeffrey, assistant superintendent of the St. Louis
public schools, 911 Locust Street, St. Louis, Mo.
Mr. Whiteside. Henry O. Wliiteside, research director, St. Louis
Chamber of Commerce, 511 Locust Street, St. Louis, Mo.
Colon.4 McBride. Harry D. McBrids, director of civilian defense,
city of St. Louis.
Mr. Gwinner. G. M. Gwinner, director of research, Social Plannmg
Council of St. Louis and St. Louis County, 613 Locust St., St. Louis,
Mo.
Mr. Steger. E. G. Steger, director, Social Planning Council of
St. Louis and St. Louis County, 613 Locust Street, St. Louis, Mo.
Mr. Karches. Fred M. Karches, director of mdustrial relations
division. Associated Industries of Missouri, Railway Exchange Build-
ing, St. Louis, Mo.
8695
8696 ST. LOUIS HEARINGS
Mr. Walker. Arnold B. Walker, industrial secretary, Urban
League of St. Louis, St. Louis, Mo.
The Chairman. Wc deeply appreciate your coming here this morn-
ing. This committee was created in the last session of Congress. We
went from the East to the North, South, and Middle West, investi-
gating problems that had to do with mass migration of destitute citi-
zens among the States.
This committee was continued this session of Congress particularly
to investigate defense migration. We have made certain recommen-
dations to Congress, in view of the fact that the defense program,
instead of reducing migration, had increased it. Today we have
between 2,000,000 and 3,000,000 people who, attracted by defense
work, have gone from their home States to other States.
We want to say to you that this committee never attempts to cross-
examine witnesses or "show up" communities. Wc want to find out
what you know. We go about the country and ascertain what your
problems are in various sections, and tic them in with the problems
of other sections of the United States; and upon these facts we base
our recommendations to Congress. There is one thought, then, which
I wish to convey: No question asked you by any member of the com-
mittee is intended as a catch question; rather, our mquiries are
addressed in the spirit of cooperation and mutual desire to solve these
problems.
At this time I will ask Dr. Lamb to read a short letter written to
Mr. John J. Church, who was unable to be here.
Dr. Lamb. I have a letter from Mr. John W. Abbott, of the com-
mittee's staff, inviting Mr. Chm-ch to appear. The letter says
(reading) :
St. Louis, Mo., November 19, 1941.
Mr. John J. Church,
Secretary, Building Trades Council, Si. Louis, Mo.
Dear Mr. Church: This letter will serve as formal notification of the time
and place of the public hearings to be conducted by this committee November 26
and 27 in St. Louis.
As you already know, the committee has been worljing with Col. Harrj' D.
McBride, representing Mayor William Dee Becker in this matter, to arrange a
panel of representatives to appear with Mayor Becker at the conunittee's hearings.
Pursuant to these arrangements, I am hereby inviting you to appear with Mayor
Becker at the committee's first session, the morning of November 2G, at room 208
city hall. Hearings will be open at 10 o'clock.
Sincerely yours,
John W. Abbott,
Chief Field Investigator.
Dr. Lamb. Air. Church is unable to appear.
The Chairman. We found, in traveling over the United States and
interrogating witnesses, that the most expeditious method of con-
ducting these hearings is to analyze the prepared statements which
are fil?d with us in advance, and to ask questions based on examina-
tion of these statements. All your statements will hs filed and in-
serted in the record in full.
(The statements of the several members of the panel, referred to
above, are as follow^s:)
STATEMENT BY HON. WILLIAM DEE BECKER, MAYOR, CITY OF
ST. LOUIS, MO.
In understand that at the present time the committee's inquiry is directed to
the present and potential consequences of the migration caused by the national
defense program in the St. Louis area.
i
NATIONAL DEFENSE MIGRATION 8697
The St. Louis area is treated by the St. Louis Chamber of Commerce as includ-
ing not only the city of St. Louis and county of St. Louis, but also the industrial
area located in lUinois opposite St. Louis. However, what I have to say is largely
confined in its scope to the city and county of St. Louis. The city of St. Louis
and the county of St. Louis are very closely related. The city is still confined
within its boundaries established in 1876 and the county surrounds it on all sides
except the east, where it is bounded by the river. All its growth in recent years
has been into the county. In fact, for all practical purposes, except governmental,
the city and county are one. They are, however, different governmental agencies;
the city of St. Louis is not in any county; its government includes both municipal
and county functions. The county, separated from the city, has ordinary county
government except that there are a number of incorporated municipalities
located therein.
The sewers of the county drain into the Mississippi River through the sewers of
the city. Its residents have businesses or employments in the city, and use its
streets, parks and playgrounds, theaters, and other recreational facilities.
For the purpose of this inquiry the county and city may be treated as one; at
least it may be said that the problems of the city are affected and augmented by
the social, economic, and civic problems of the county.
ST. LOUIS AS AN INDUSTRIAL AREA
Industrial St. Louis is one of the largest commercial and industrial centers of
the LTnited States. It is the ninth largest industrial area ranked by value of prod-
ucts manufactured. It is the largest wholesale distributing center in the Missis-
sippi Valley, and it is also one of the important financial centers in the Middle
West.
Diversity is the predominant characteristic of industrial St. Louis' — of the 446
industrial classifications recognized by the United States Bureau of Census, 383,
or 64 percent, are to be found in this industrial area.
It is characteristic of the industries of this community that they are relatively
modest in size, there being up to this time no corporate giants employing tens of
thousands of workers here. The typical factory in St. Louis employs fewer than
100 workers. It is primarily home owned and the operations are directly under
control of the owners. It is just the sort of community that would be hit hard
by priorities programs.
ST. LOUIS AS A DEFENSE AREA
St. Louis is an important defense area. There is no comprehensive record in
existence listing all of the primary defense contracts awarded in this area and no
eflFort whatever has been made to tabulate defense subcontracts held by local
manufacturers and suppliers, but records maintained by the research bureau of
the St. Louis Chamber of Commerce do reveal that between July 1 and November
1, 1941, contracts were awarded to companies in the St. Louis industrial area
totaling approximately $600,000,000.
POPULATION AND IN-MIGRATION
The 1940 Census reported a population of 816,048 for St. Louis City and
274,230 for St. Louis County, or a total of 1,090,278. This represents a loss of
5,912 in the past 10 years for St. Louis City and a growth of 62,637 for St. Louis
County, or an increase for the city and county of 56,725. The combined popu-
lation of St. Louis City and St. Louis County has, however, increased by ap-
proximately 40,000 persons in the past 18 months or since the census of 1940.
However, over the past 10 years, the normal increase in the population of city
and county has been approximately 5,700 per year, and on this basis about
8,500 of the estimated 40,000 increase during the last 18 months represents
normal growth and the other 31,500 represents abnormal increase from migration
due to defense employment. These figures will be supported by data contained
in a statement to be presented by E. G. Steger, director. Social Planning Council
of St. Louis and St. Louis County.'
Suffice it to say at this time that the estimate of 31,500 persons migrating into
the city and county the past 18 months is based upon consideration of a number
of factors, including the number of dwelling units taken up and the change in the
employment situation. In Steger's statement it is also estimated that by the
end of 1942, 40,000 additional persons will be added to the population.
« See p. 8739.
8698 ^'^- LOLLS HKAIILXGS
UNEMPLOYMENT
Tliis in-niigration is wholly unnecessary from an employment standpoint.
The labor forces of the St. Louis area as at present constituted can meet all
demands now in sight and no further migration will be ncces.sary to .supply
employment needs. There are now approximately 43,000 i)crsons who are
unemployed, and in the defen.se work it is estimated that a total of about 37,000
additional will be needed. It is apparent then that the in-migration will swell
the ranks of the unemi)l()yed and increase the burden of the relief agencies in the
city and county. It would -seem that this situation would deter in-migration,
but that is not to be expected. News spreads throughout the rural districts and
in other urban centers that migrants to the city are getting jobs; and the general
publicity is that of "boom-town" employment, and the general public believes
that there is no more unemployment. It is extremely difllcult to convince the
average person of the facts about the employment situation; it will be even more
difficult to convince the marginal rural family that there is little or no oppor-
tunity for it in the city. It is expected that the real wave of additional migration
into the St. Louis area will begin about midwinter. It is this grouj) of unneces-
sary migrants that will need the help of the social agencies (luring the winter.
We anticipate that a large proportion of them will fail to secure employment and
will become stranded in St. Louis. In my opinion, a partial solution of all the
problems that confront or threaten us lies in encouraging employers to u.se the
full force of the St. Louis area's indu.strial manpower before they use labor from
other communities.
The solution would be further aided if the press would give wide publicity to
the unemployment situation prevailing here and the futility of submarginal
families migrating to this community in search for employment. It will also be
helpful if we all work toward the avoidance of discriminating against St. Louis
citizens because of race. There are several thousand colored workers who are
qualified for employment in the defense industries, but are refused employment
solely on account of their race. National unity is not helped any by that sort of
practice and our social problems are greatly increased. The employment of
local workers does not greatly increase the strain on our housing, municipal, and
charitable facilities, while the importation of outsiders to take places that might
be filled by local w-orkers increases such problems to a very great estent.
It would also help to stem the influx of outsiders seeking employment if em-
ployers and job seekers alike resorted more to State employment agencies where
the seeker after employment could get real information as to the need of his
services.
HEALTH DIVISION
The Division of Health of the City of St. Louis is headed by the health com-
missioner, W'ho is empowered by the charter to preserve or promote the health
of the city — to declare and abate nuisances, and to take such steps, use such meas-
ures, and incur such expenses as may be neces.sary to avoid, suppress, or mitigate
malignant, infectious, or contagious diseases. It follows such activities as milk
and food inspection and control; control of communicable diseases, venereal
disease, and tuberculosis; parochial school health service; public nursing service;
dental hygiene service; maternal hygiene and child welfare activities; supervision
of municipal health centers; abating nuisances and improving sanitary conditions;
conducting a vital statistics service. Our health commissioner reports that his
division has not so far felt any substantial impact of in-migration for defense work.
In a letter dated November 21, 1941, he says:
"Our health center activities and school hygiene have shown a slight increase
in the number of children requiring vaccination against smallpox and immuniza-
tion against diphtheria. As far as an influx of outsiders for defense work is con-
cerned we have not felt this impact up to this time. While there has been some
increase undoubtedly in this popidation it does not reflect itself in the health
division work.
"Water and sewage problems are well taken care of in St. Louis and I do not
feel that any increase in population will handicap this sanitary problem.
"We do notice, however, an increased problem in our eating establishments as
a result of places opening up everywhere that fail to meet sanitation requirements.
We are taking care of these as they arise. It has been necessary to condemn
several food handling places near the small-arms plant for lack of water, sewerage,
and other sanitary requirements.
"Overcrowding has not made itself manifest up to this time. We do notice
less vacancies throughout the city which is in part due to local residents no longer
doubling up; on the other hand, in the rooming-hou.se areas w'c find more people.
NATIONAL DEFENSE MIGRATION 8699
"Venereal disease control service has not noticed any particular increase except
among the colored. Patients attending clinics show a decrease, whereas private
physicians' cases show an increase. This would be in line with increased earnings
and we feel there has probably been a number of social problems arising in taverns
as a result of spending.
"The laboratory service has had increased work as a result of the draft boards
requiring blood tests for syphilis. From the most reliable information I can get,
the defense industries here will take up a number of employees from local areas
and those coming from the outside of course present problem's of vaccination and
immunization, but to date we have not felt this to any extent. Eating and
drinkmg establishments will require our greatest attention.
"Of course, an epidemic of influenza would seriously tax both private and public
hospital facilities. A high rate of pneumonia cases would also be a serious prob-
lem. There does not seem to be any prospect in the near future of a serious over-
crowding condition because of the large number of vacancies that have been in
existence over a period of years. The most serious housing problem still remains
among the Qplored who have not been employed to any great extent in the defense
industries as far as my information is accurate.
"We have increased activities in our industrial hvgiene section as a result of
defense, but fortunately ground work in this particular section has been laid for
the past 6 years. Funds for this particular work come through the State health
department. So long as we are provided with technical personnel this problem
should be adequately handled."
I cannot, as Mayor, speak for the county, neither can the St. Louis health com-
missioner, as to whether and to what extent health conditions there have been
and will be affected by in-migration. The county health commissioner should
be called in on this. However, the social planning council's statement; savs as
to this:
"There are also real dangers in the lack of proper sanitation and sewage facili-
ties, particularly in certain sections of St. Louis County. Facilities there have
long approached inadequacy, and are not built to accommodate the population
increases that are coming in certain areas. Many trailer camps and emergency
housing locations are springing up in unincorporated and unserved sections."
MUNICIPAL HOSPITALS
The condition in the city hospital and in the Homer G. Phillips, two general
hospitals, may be depicted in the following manner: The citv hospital with a
capacity of 1,037, has at present 800 patients and 237 vacant beds. That is, 77
percent of the beds are occupied. The number admitted during the 12 months
endmg March 31, 1940, was 18,010, and 1941 17,915. For the 6 months ending
September 30, 1941, 8,523 patients were admitted showing no increase in the rate
of admissions.
The total number of hospital days for the 6 months ending September 30 was
135,807, approximately half the total for the previous vear. The number of
clime visits is considerably less than the previous vear. The Homer G. Phillips
Hospital, with 685 beds has now 555 patients with "l 30 vacant beds. Eighty-one
percent of the total l)eds are occupied. Admissions for 12 months ending March
31, 1940, totals 11,327 and for 1941, 12,306. For the 6 months ending September
30, the admissions continued at alwut the same rate totaling 6,435. Total hospi-
tal days for the same 6 months' period were 109,745, about the same rate as for
tlie previous year. Clinic visits did show an increase at the Homer G. Phillips
Hospital during the 6 months ending Septenil:)er 30. There were 65 516 visits
compared with 119,611 for the year 1941 and 63,303 for 1940.
Except for emergencies, nonresidents are not treated in the city hospitals
After the workers and families that have migrated to St. Louis recently have
lived here a year, they will then become residents and entitled to hospital and
clinical care in the city institutions. Therefore, within the next vear the burden
on the city may be expected to increase and particularly so if the defense work
should discontinue.
That there is now an increasing demand for such service we have only to con-
sider the following: During the first quarter of the fiscal vear, 97 nonresidents
were admitted as emergencies to the city hospital but during the second quarter
152 were admitted.
During the first quarter 375 nonresidents were rejected in the out-patient
clinic while in the second quarter 440 were rejected.
8700 ST. LOUIS HEARINGS
There are other hospitals such as the Koch Hospital for tuberculosis, with a
population of al)out 700; the city saiiitariuin, for tlic insane, poi)ulation 3,600,
etc., but tlicy are specialized institutions. I think the experience of the two
major hosj)itals, the city hospital and llomor G. Phillips Hospital (for colored),
is suflicient for the purjwscs of this inf|niry.
It will be noted that the experience of the two major hospitals has been different,
the city hospital showing something of a decrease in demand, while the Homer
G. Phillips (for colored) lias increased, particularly in its clinic. I think that the
decrease in the city hospital is attributable largely to the imj)roved financial con-
dition of the group that would ordinarily avail of its services, coupled with a
rather rigid exclusion of nonresidents. The group served by the Homer G.
Phillips Hospital (colored), however, has not participated to any great extent
in the employment afforded by the defense plants, and, in fact, have suffered
more unemployment because of the priorities program. Moreover, the Homer
G. Phillips Hospital has probably not been so successful in excluding nonresidents.
PARKS AND PLAYGROUNDS
The St. Louis Division of Parks and Playgrounds has recently completed a
careful analysis of the personnel required in connection with the operation of
the parks, playgrounds, community centers, swimming pools, athletic fields,
bath houses, and other facilities operated by this division.
As a result of the survey it is reported that if the division is to meet the in-
creasing deir.ands upon it, it will be necessary to increase the number of employees
in the park section approxiniately 16 percent and in the recreation section at
least 50 percent. There are more visitors to the parks and more participating
in the various sports than ever before. The winter ])rogra!n for indoor sports,
handicraft works, dancing and other activities in the community centers has
necessarily been expanded in order to meet the needs of greater numbers. It is
interesting to note in this connection the increase in attendance at the municipal
opera in Forest Park. The number of paid admissions was 811,433 in the 10
weeks' season of 1941, as against 686,045 in the like season of 1939. The in-
crease was 125,000 in 10 weeks, or 12,500 a week.
While these increases in visitors to our parks and greater use of recreational
facilities are attributable in part to increases in workers' incomes and shorter
working hours, I have no doubt that in-mJgration has been a heavy contributing
factor. Here again, we find an increased number of foreign license plates on
automobiles in the parks and at the zoological gardens.
To m.eet the increased demands upon its recreational facilities, the city dees
not need, for the tin.e being at least, additional land — but it does need plaj'ing
fields, recreational facilities, picnic tables and benches, and additional personnel.
The traffic on the streets of St. Louis (not including streets adjacent to the
small-arms plant) shows an increase of 22 percent in 18 months.
The streets adjacent to the small-arms ];lant show an average of approximately
60 percent increase.
Pedestrian traffic in the downtown congested area shows an approximate
increase of 14 percent.
Mass transi)ortation passenger volume is up approximately 24 percent in the
last 12 n.onths. Gasoline consumption is the highest in the city's history, as is
also ntotor-vehicle registration.
Of course, som.e of these increases are due to greater spending power on the
part of local i)opulation, but undoubtedly a considerable portion is caused by
the influx of outside labor.
This is particularly probable as to increased automobile traffic. The known
tendency of in-migrants to come in their own cars as well as the wide prevalence
of foreign license i)latcs lead me to think that our traffic problem has been very
seriously augmented l)y in-migration. A com.mission of traffic experts is working
on this traffic congestion proi)lem, which is indeed serious, but I have no doubt
that any solution will call for a very considerable increase of cost to the city.
COUNTY HOSPITAL,
The county hospital superintendent says that his experience has been about
the same as that of our city hospital, in that his hos])ital and clinic have had a
slight decrease in attendance, while the number of rejections of applicants on
NATIONAL DEFENSE MIGRATION 8701
account of nonres.dence has increased and continues to increase. He also at-
tril'utes this condition to better economic conditions accompanied by rigid
exclusion of nonresidents.
THE FUTURE
It would seem clear that with the advent of the expected additional 40,000
population and so long as the defense effort continues, the streets and the parks
and recreational facilities will be increasingly overtaxed, and large expenditures
will be necessary in order to meet the situation.
When the defense work ceases, there no doubt will be a lessening of the pressure
on these facilities. I do not apprehend that except in the event of epidemic and
e.xcept for a possible need for additional inspectors, the health division will need
much augmentation or additional expenditures on account of the existing or
anticipated increase in population. The present set-up has largely anticipated
such increase.
The city's sewer and water supply will need no abnormal addition or change to
meet the increased population. However, there undoubtedly will be a con-
siderable sewer-building program necessary in the county. I would prefer, how-
ever, to have the committee refer to county officials as to this. While at present
our hospital status seems to be unaffected bj' the influx of defense workers, this
situation will change as soon as the workers and their families who have migrated
to St. Louis have lived here a year. They will then become residents and entitled
to hospital and clinical care in the city institutions. Therefore, within the next
year the burden on the city hospitals may be expected to increase and to continue
to increase. The increase will be much greater if the defense work should discon-
tinue and throw large numbers of people out of work.
I might add to what I have said that the private hospitals and social agencies,
not being hampered or protected by the rule against nonresidents, have had
their load tremendously increased by the influx of strangers. This subject, how-
ever, is fully covered by Mr. Steger's able statement, to w^hich I have already
referred, and for that reason I will not try to cover that subject.
PRIORITIES
The effect of priorities on production of consumers' goods has already been
felt, and some unemploj-ment has already resulted therefrom, and with the con-
tinued operation of priorities, employment due to this cause will show a steady
increase.
The solution to this problem appears to lie in the manner in which the priorities
rules are to be applied to the facts in any given case, supplemented by retraining
by defense industries for new vocations for workers displaced in the consumers-
goods industries.
HOUSING
Up to the present time we have no housing shortage for whites in the city.
However that is not the case with reference to our colored citizens. There is a
distinct shortage for Negroes in the lower rent field. The latter condition is
evidenced by the fact that in the last few months there has been a general tendency
to increase rents for Negroes in the lower brackets 15 to 20 percent. Serious
complaints regarding this situation have been brought to the attention of various
agencies, the city administration, and Federal representatives. Perhaps the
quickest and most practical method of solving this problem would be in a reha-
bilitation program of substandard properties.
When the defense construction is completed and the plants actually get under
full sway, more housing shortage even for the whites is to be anticipated. It is
to be hoped that your committee will give serious consideration to the housing
shortage and the high rents resulting therefrom, particularly insofar as it affects
our Negro population in this city.
TERMINATION OF EMERGENCY
We are seriously concerned about the results that will develop upon the termi-
nation of defense work. Such results in our opinion will be serious and critical
and though we are already anticipating such conditions and are developing plans
to meet them, obviously, however, the maguitude of such anticipated problems
will far exceed the financial capacity of the city and hence, will require Federal
assistance.
g702 ST. I>OUIS HKXRINGS
STATEMENT BY JOHN J. CHURCH, SECRETARY, BUILDING AND
CONSTRUCTION TRADES COUNCIL, ST. LOUIS, MO.
The building and construction trades council is comprised of skilled mechanic-
and common lat)orors cnpapcd in building construction, such as buildings, bridges,
sewers, streets and hijihway construction.
The menihersliij) of our organizations for the j'ears 1939-40 and up to October
19-11 has not increased to any great extent in the skilled trades. However, the
building laI>orers have taken (piite a number into their organization since the
inception of defense work in this area. The reason the skilled trades have not
taken these men into their organizations is because on these defense projects
mechanics were drafted from other localities who are affiliated with international
unions and they are given the privilege of working in this area until the completion
of the job and after its completion must return to the area from which they came.
We have ai)pro.\imately IS, 000 workers employed on defense projects at this
time and about 12,000 employed on nondefense construction.
In regard to the question as to what effort we are taking to have our member-
ship register with the Missouri State E.mployment Service, making them available
for defense training in the event of a lay-off resulting from the priorities or alloca-
tions program, we are, at this time, in the process of registering all workers
affiliated withUhe building and construction trades council with the Missouri
State Employment Service because we have manj' affiliated workers who are quite
skilled in the line of work necessary in the various defense industries in this area.
We feel the Missouri State Employment Service would be the best available source
of supply for skilled workers in defense industries.
In reply to your question as to what effect the $6,000 limit per single housing
unit, which was placed by the Office of Production Management would have on
the l)uilding-trades worker, following is a resolution which was adopted by the
building and construction trades council on September 30, 1941, in regard to
this matter:
Whereas the Ofhce of Production Management has placed St. Louis and vicinity
within the scope of the defense housing materials priority order; and
Whereas this ruling puts a limitation of $6,000 per single housing unit for which
such critical housing materials can be relea.sed; and
Whereas the near completion of defense construction projects will mean the
release of thousands of members of the St. Louis Building and Construction
Trades Council from such employment and create a serious local unemployment
problem; and
Whereas many of these unemployed building-trades men could obtain employ-
ment if the ceiling on residential construction were raised much above the $6,000
limit which sum is insufficient to erect a residence of a standard for which there
is an innuediate local demand: and
Whereas the completion of the vast industrial defense projects will release
considerable building materials for such construction; therefore be it
Resolved, That the Office of Production Management increase the current
$6,000 limitation on single unit housing construction in St. Louis and vicinity
in order to stimulate residential construction in this area and relieve a current
housing shortage due to the large requirement of i)roduction workers in our local
defense plants as well as give steady employment to building and construction
workers who otherwise may be unemployed for an indefinite period after the
present defense construction ends; and be it further
Resolved, That this resolution be respectfully submitted to the Office of Produc-
tion Management with the request that an early ruling be given to this request
before the small local construction field .stagnates and workers on residential
construction are added to the roles of the unemployed.
If .some elasticity in this maximum figure for building construction is not ex-
tended in this area, at least 70 ])ercent of ovir members will be out of employment.
STATEMENT BY FRED M. KARCHES, DIRECTOR, INDUSTRIAL
RELATIONS DIVTSTOX, ASSOCIATED INDUSTRIES OF MISSOT'RI.
ST. LOUIS, MO.
Preliminary comment should be directed to brief history of the Associated
Industries of Missouri, which I represent. It is an organization of ai)proximate]y
1,500 companies of a variety of industries in the State. It was organized in 1919.
The long record of service attests its fine relationship with both industry and labor.
NATIONAL DEFENSE MIGRATION 8703
Four service departments (research, taxation, insurance, and industrial relations)
provide factual and practical information and assistance to its many member
concerns.
My position is director of the Industrial Relations Division of the Associated
Industries of Missouri. I have had 14 years of experience in this field. Previous
to this ))osition, I had been director of industrial relations at Emerson Electric
Manufacturing Co. Am a panel member of the Training \\'ithin Industry Divi-
sion of the Otlice of Production Management aufl have conipletefl a number of
assignments for the Ofhce of Production Management in St. Louis and Kansas
City, Mo., Wichita, Kans., and Washington, D. C. In this capacity I have
counseled with and assisted persomiel and industrial-relations directors of the
large nn'dwestern aircraft compam'es with particular emphasis ui)on training and
development of adequate labor supply. Other activities include membership on
the State advisory committee for vocational education, the labor supply and
training committee of the metropolitan committee for, preparedness for national
defense and the St. Louis Advisory Committee for Defense Training, and in my
present capacity, regularly meet with individual groups of industrial-relations
officers, large employers, at St. Louis and Kansas City. I have been president
of the St. Louis Persomiel Directors' Club for the past 3 years.
The Associated iTidustries of Missouri has been conversant with the problem
of labor supply, training, and ultimate dislocation and possible unemployment,
the result of material shortages and priorities effects. Efforts of practical nature
were made and are continuing to be made to aid in minimizing the impact of the
defense program in the transition from civilian production to defense work.
Several months ago a series of "clinics" were held at Kansas City and at St.
Louis to acquaint businessmen with the importance of study and planning to
meet the exacting schedule and the function of that activity as well as the efforts
being made to si)read the work through the offices of Deifense Contract Distri-
bution.
Representatives of these divisions from Washington made up the panel and
ciuestions and answers were parried from the floor. Overflow meetings brought
an increased interest in the proljlem.
As result efforts were made by the Associated Industries of Missouri to provide
an opportunity for small manufacturers to obtain subcontracts from the holders
of prime contracts in the State. The Army Ordnance Procurement Division
gave encouragement. Invitations were mailed to holders of all prime defense
contracts to express interests in subcontracting those units which were producing
bottlenecks in production and those which would provide a share-the-work oppor-
tunity for the companies affected. This was jjlamied on a practical basis. Ex-
hibits of small component parts and assemblies were encouraged. A limited
response from prime contractors and a request to defer the plan made by the local
office of Defense Contracts Distribution canceled this attempt. One reply from
a large defense contractor expresses a problem which evidently exists in a great
number of instances. It is excerpted herewith:
"We shall be glad to cooperate with anything that looks constructive. One of
the great difficulties we have encountered in a sincere effort to do this has been
that even where our supplier was known to have the labor, machinery, and pro-
ductive skill necessary to do the job, his prices were so much higher than our own
that if we were to make up a contract of that character we would have no chance
whatever of getting the business.
"We understand the Government is willing to pay a somewhat higher price to
people who do a certain percentage of subcontracting. This I do not know to be
the case, but have heard it stated as a probable Government i)olicy.
"However, the i)rices that have been offered us for items have been anywhere
from two to three times our own cost and it will be obvious that under these cir-
cimistances subcontracting is not possible.. As I said above, we shall be glad to
cooperate in anything that looks constructive."
Practical experience with production planning and facility has given us oppor-
tunity to lend tangible aid to a number of companies faced with shut-down in
operations. Small maiuifacturers have been visited and their facilities inspected.
Using this data, meetings have been arranged with particular i)rime defense con-
tractors and subcontracts effected.
We are familiar with the function of the Office of Defense Distribution and of
its inexhaustible file of recorded companies and respective detailed facilities. We
have encouraged, as a solution of the contract rlistribution prol)lem, a very close
working arrangement V)etween company and district agencies. One imjirovement
is suggested in observing operation. There could be a larger number of industrial
and production engineers attached to th(> staff of these offices — men who could
f5o.'{ftr> — 42 — pt. 2;j 2
8704
ST. LOUIS IIKVKINGS
n)jvko first-haiul inspection of available facilities and orient tlie defense produc-
tion problem with the facilities of a wider number of manufacturers. Although
the initiative, granted, is a direct resjjonsibility of the manufacturers, this re-
sponsibility may be shared with comjM'tent engineering talents of the OfTice of
Defense Distribution lacking in the stafTs of a majority of smaller manufacturers.
To obtain a factual picture of the in)pact on employn ent as represented in
the ultimate shifting of large forces of workers to defense industries, our member-
ship was circulated on November 6, 1941. The following questions were asked:
(1) What percent of your production facilities is being used on defense work?
(2) Do you anticipate a reduction of operations because of effects of priorities
and allocation of defense work? (3) Approximately how many workers now in
your employ may be unemployed because of above reasons? (4) Have you made
an effort to get defense work? (5) Cite other pertinent facts which should come
to the attention of this committee.
The result of this survey is recorded in the attached sheet which is a compila-
tion of the replies. Approximately 1,200 were circulated and a 2n-percent re-
sponse was obtained. This may be interpreted to be substantially greater in
view of the fact that a number of our members are retailers, wholesalers, and
merchants handling staple articles. Comment made by a number of manufac-
turers is excerpt and presented in a separate statement.
Relative to the available supply of labor, I am agreeable to the findings of
the Missouri State Employment Service whose surveys are thorough and com-
petently administered. There does not appear to be any immediate impact
because of material shortages and priorities but ultimately this will be a greater
problem. The diversification of industries in this area argue well for a gradual
and complete absorption of those individuals presently employed but who may
later be released because of their particular occupation in nondefense enterprises.
There was a recent attempt to provide for an anticipated di.slocation of a large
number of automobile workers. Publicity, admittedly released from Washing-
ton expressed the problem as affecting 10,000 workers in this area. The facts
developed that a total of 1,000 workers were to be laid off over a period of 3
months, a number which several representatives of large companies claimed
would be absorbed with no hardship.
One of the recent actions of our labor organizations in circularizing their mem-
bers, reported to be approximately 173,000 workers, requesting that all, whether
employed or not employed, whether in defense industry or nondefense industrv,
register with the Missouri State Employment Service, has caused considerable
concern of those interested in the control of the migratory problem.
Transfers of labor have been effected from one defense job to another by the
M. S. E. S., the only reason presented, higher wages.
Question No. 1. — -What percent of your production facilities is being used on
defense work?
9.5 to 100
90 and iin<ipr95..
85 and tinder 90..
80 and under 85.
75 and under 80.
70 and under 75.
65 and under 70.
60 and under 65.
55 and under 60.
50 and under 55.
45 and under ."iO-
40 and under 45.
35 and under 40.
30 and under 35.
25 and under 30.
20 and under 25.
15 and under 20.
10 and under 15.
5 and under 10..
1 and under 5...
None.
Total.
Grand total.
Percent of facilities
Number of
companies,
St. Louis
Note.— 227 companies participating.
100
35
135
Kansas
City
Outstate
60
NATIONAL DEFENSE MIGRATION 8705
EXCERPTS OF COMMENTS MADE BY COMPANIES ANSWERING THE SURVEY OF THE
ASSOCIATED INDUSTRIES OF MISSOURI
"Believe that the tie-ups due to minor items (as needles, etc.) should be called
to the attention of the proper authorities. This tie-up has prevented progress
made on defense orders in production."
"We have made a lot of effort to get defense work. The fact of the matter is,
we sent two men recently to Kansas City to a clinic, but it seems that the prime
manufacturers are not interested in farming out small parts that manufacturers
such as ourselves could make and they are interested only in having parts farmed
out that are difficult and cannot be made with our present equipment. One
other complaint, we find many times, that l3efore we have an opportunity to bid
on an item, that the bid date has already been passed. It seems as though there
are a good many manufacturers who are having opportunities to bid before others.
The small manufacturers do not seem to have the opportunity of getting the
specification and getting the opportunity to bid, that the larger manufacturers do.
The fact of the matter is the Defense Contracts Office in St. Louis on many oc-
casions do not know that an item is being bid on, when we in a round-about way
have been able to find out about it. It seems that they should have advance
notice of everything that is wanted by the Government."
"We are definitely affected by the defense program. We shall have to go out of
business; our labor and equipment apparently are not suited for any defense work.
However, our facility, a new building under one roof comprising 3 acres of floor
space and 9 acres of industrial projerty fenced in, has been offered the Office of
Production Management and has been turned down. We feel that the United
States Government could use our factory to advantage immediately and that
they could not reproduce it under possibly $2,000,000 under new construction.
The emergency apparently is not great enough to justify them in avoiding the
delay involved in new construction."
"Attended defense clinic November 7 at Kansas City with no results or relief.
They had nothing to offer."
"We are a candy manufacturer. Our skilled workers are being taken away by
defense industries. It will cri])ple our normal operations."
"If we could get brass parts \\hich have been ordered and made, shipped after
January 1 which is a small part of our ^reduction, we could keep going."
"About 90 percent of the mattress business given by our Government has been
given to three factories of the South."
"I attended the clinic and exhil ition put on by the Division of Contract
Distribution at Kansas City. It was advertised that many prime contractors
would be there. I met several who said that they were there because the}' had
been urged. They had nothing to sublet. My opinion is that this business has
not been broken down as it must be if it is to be done by the small maiuifacturer.
Unless something is done immediately this country will find itself with a lot of
ghost communities."
"A certain amount of civilian work must be carried on and materials must be
allocated for it."
"I could handle and get 50 percent more defense work if it were not for the time
consumed on Office of Production Management formalities which now consume
25 percent of my time on useless papers. I can't keep up either. It took me two
holidays to buy a one-third horsepower motor to be installed on an English
defen.se job on account of Office of Production Management formalities."
"Our worst problem is the pirating of employees by cost-plus plants on defense
work."
"Too much red tape necessary in getting priority certificates when needed.
Chemical companies have allocated chemicals on 1940 consumjjtion figures.
Some that we use now on defense work were used in much smaller quantities in
1940 when not on defense work."
"No one seems to have a definite plan to coordinate the work in Washington."
"Priorities hinder home building which is so necessary here for defense housing."
"Earnest solicitation has failed to result in inquiries for quotations or checking
of our ability to produce castings. We read almost daily of shortages. We
wonder if they exist."
"We have submitted bid on rifle clip and although w^e were low bidders, were not
given consideration."
"Cannot obtain delivery of raw materials on priority ratings A-3 or better."
"Recommend the acceptance of small manufacturers' standard where possible —
rather than special .specifications on small quantities."
"We have an A-10 priority on two repair jobs. We use 5,000 pounds of one
type of material and 4,000 pounds of another. We can't buy less than 7,000
8706 ^'"^ ^^^'f'l^ HKAHINGS
])<)Uiids at a shi])inoiit, buying from the mill. Bocauso wo didn't use that much of
each of the .s])ccial ty])('s of steel on these two priority jobs, we can't use the
l)riority to re])lace thes(> six-eial steels. We have another job on which ap])lication
has been made for a ])riority, but by the time the Priority Divisioji gets around
to piviuR ai)i)roval of the priority certificate, these orders will be so old that
I can't combine them. On one hand, we are u]) against the i)riority rule that
we can't buy more of a certain fpiality steel than we use on a job. On the other
hand, we an> up against the rule of industry that the steel mills will not ship
less than 7,000 ixmiids."
"On November 7, 1041, the Chicago .Journal of Commerce published an item
on 'Meat Orders S])rea(i .Vniong 14 Packers,' and that this was a new ])rocurement
])olicy of wider distribution l)y the Quartermaster Corps. It further stated that
the weekly buy of frozen boneless meat amounted to ],739,6.")0 ])ounds worth
$407,0(>9, and that this order was spread among 14 companies, which re7)resented
an increase of .300 ])ercent in the number of companies ])articij)ating, as the former
number of com])anies was from 4 to 7. These few were receiving all the previous
similar weekly contracts.
"A magazine issued by the American Meat Institute about November of 1941,
entitled '.Meat — Reference Book of the Industry' lists the value of meat products
manufactured in 1931, and established the meat industry as ranking third in the
United States. (Missouri as a State ranked first among the States as a State meat
processor.) This booklet, on page 32, states that in 1939, the United States
Census of Manufacturers Reports show there were 1,516 meat establishments
in the United States.
"Kiplingcr's Washington Letter of Noveziil^er 8, 1941, states, 'Plant expansion
for food processing, financed by Government money will be stepped up. Dairy
products first, prol)ably others later. Operated by farmer co-ops. P'or production
during and after the war.'
"The ([uestion now arises as to the necessity of plant expansion when only 4
to 14 of the present country's 1,516 meat plants are able to handle Government
business the way it is allocated at present. With the present system, the Gov-
ernment does not buy on the basis of the market on meat products, but only gives
the orders to the lowest bidders. With only the lowest bid being considered, and
with only the large companies being able to bid the lowest as they are able to
handle the large business of the Army, the small jjlants must sit with their chin in
the palm of their hands and watch the business go to the big operators — also
take the raking over for not joining in the defense business. Federal inspection
requirement also limits the distribution. Any qualified and accredited post
mortem and ante mortem yet inspection should be recognized in the present emer-
gency. The small plants should be a})le to sell the Government such commodities
as they are able to sui)ply, on the market basis. Livestock not being bought from
the farmer on the lowest l^id basis V)ut on the highest bid basis, there is no reason
for the meats to be sold on any other than the market basis, which is based on the
price paid to the farmer.
"In the National Live Stock Provisioner, the magazine of the meat packers,
November 8, 1941, volume 105, page 7, we find the following under Meat and
Defense caption: * * * 'However, there is a great deal of merit to the sug-
gestion that individual packers take advantage of the current interest in defense
and tell, in their ads or elsewhere, something of what they are doing in furnishing
a vital food for the armed forces, and why the Army, Navy, and Marine Corps
regard meat so highly as one of the mmiitions of war.'
"How can all the small plants follow such a suggestion when only 4 to 14 of
the 1,516 supply the Army and Navy?
"How can the small packer and processor participate in the Army and Navy
program when meats are only bought from the lowest bidder, and labor costs and
livestock costs varv in different parts of the cotmtry?
"For week ending November 8, about 1.733,000 pounds frozen meats were
bought and Swift, Armour, Cudahy «fe Wilson received 1,333,000 pounds, so
there was not a great amount for the 10 other bidders. So far most all of the
business went to the 'Big Four'. Some should go to all that can take a portion
and who.se plants have a worth-while inspection, whether Federal, State, or city."
"We are sincerely concerned with the anticipated iini)act on our company
which em|)l()ys some 600 workers. Do not believe that sutlicient attention has
been given to these twt) major elements of this big problem (1) the instability of
employment because of the broken j^roduction .schedules, the fact that small
rpiantities of nece.s.sary materials are imavailable or require time to obtain, and
(2) the fact that Arniy and Navy contracts i)resent demands on suppliers for
materials, the need of which is not immediately nece.s.sary to complete the unit
NATIONAL DEFENSE MIGRATION 8707
being made. I have knowledge that a particular material needed for our pro-
duction is being sent the Navy for a battleship to be completed in 1945. The
same rule of efficient production scheduling and lay-out should apply to our Gov-
ernment agencies. It should not be proper for them to build inventories beyond
practical needs.
"The Government can help in stabilizing employment."
STATEMENT BY W. M. BRANDT, SECRETARY, CENTRAL TRADES
AND LABOR UNION OF ST. LOUIS AND VICINITY
The Central Trades and Labor Union of St. Louis and vicinity is the parent
organization for some one hundred and eighty-five local unions affiliated with the
American Federation of Labor. The crafts we represent are many and varied.
Just about every line of endeavor is covered by some branch of the American
Federation of Labor.
Our organization numbers well around 100,000 workers in and about St. Louis.
It is hard to state how many are employed on defense work but I would judge
that more than one-half of our membership is employed either directly or indirectly
on defense work.
Our office has no record of the over-all migration into the St. Louis area since
May 1940 but I can estimate that the figure runs into the thousands.
We have had several complaints up to this date from some of our local unions
in that unemployment is being felt among their membership because of the short-
age of certain materials. Priorities have cut into many lines of work and we
expect that the future will bring many more complaints.
At every meeting of our Central Trades and Labor Union for the last several
months we have always brought the question of registering at the Missouri State
Employment Service Office to the attention of our membership. We have advised
all of our local unions to register their membership with the Employment Service
whether they are employed or unemployed at this time. We hope a satisfactory
arrangement will eventually be worked out on this program.
As to those unemployed by virtue of the priorities and allocations programs I
think these individuals should be given production jobs without anj' political
interference.
I cannot make any statement as to the future migration of workers into the
St. Louis area.
STATEMENT BY H. O. WHITESIDE, RESEARCH DIRECTOR, ST.
LOUIS CHAMBER OF COMMERCE, ST. LOUIS, MO.
I. INDUSTRIAL ST. LOUIS
Before analyzing the industrial complexion of St. Louis as it is today, it would
be well to sketch brieflj^ the origin and background of this industrial community.
(a) Past economic developments in the area.
The city-of St. Louis was founded as a trading post in 1764 by a French business-
man interested in developing the rich fur trade of the then unsettled western
territory. Its location below the mouths of the Missouri and Illinois Rivers and
above the Ohio River established it at the outset at a strategic position on the
best traffic artery of that day. Subsequent to the establishment of trading activ-
ity on a relativel}' safe and highly profitable basis there came a greater penetration
of white settlers intent on farming the surrounding territory and exploiting the
natural wealth of mine and forest. As the westward movement of population
continued, St. Louis became a commercial city, outfitting expeditions into the
unexplored and partially explored western territory and supplying the multi-
farious needs of the settlers who had taken homesteads in the central Mississippi
Valley. W^ith the sale of the Louisiana Territory to the United States, the west-
ern migration of American settlers was accelerated and St. Louis, already a well-
established commercial center, profited from this population movement.
Practically all early transportation in the western country was by way of the
rivers but with the arrival of the settlers and the establishment of early towns,
there soon developed four main highways through the Illinois countrj^ converging
at a point on the Mississippi River opposite St. Louis. With the coming of the
first steamboat to St. Louis in 1817, transportation facilities were given a further
boost and St. Louis rapidly developed a river trade, playing an important part
8708 ^"^^ I-OUIS HEARINGS
in the "golden age" of stoamboats. The gold rush of 1849, carrying thousands
of people to the west coast, further fortilied the coniiiiercial iinpfirlance of St.
Louis. IVIaiiy fortunes were made in outfitting the huge caravans of migrants.
By the close of the Civil War the steamboat began to lose importance as a
means of transportation, giving ground to the railroads. Railroad activity
resulted in St. Louis becoming one of the greatest railroad centers in the United
States, and brought about the construction of the Kads Bridge across the Mis-
sissippi River at St. Louis. Later growth resulted in construction of additional
bridges to handle the increasing tradic.
Shortly before the Civil War the industrialization of St. Louis began. Mer-
chants who had made their fortune as middlemen, supplying the settlers of the
Mississippi Valley and the wagon trains headed for the West, envisioned the
possibilities of performing their own manufacturing operations using the abundant
agricultural, mineral, and forest resources that were at hand. The early indus-
trial enterprises rewarded the vision of their backers and in the period of railroad
e.xpansion and subsequently with the development of the automobile and the
hard road, the St. Louis region grew steadily in wealth and influence. The
trading and wholesale activity in St. Louis continued to develop as the population
of the Middle West and Southwest increased, with the result that at the present
time St. Louis enjoys an even balance between wholesale and manufacturing
activities. The economic history of St. Louis has been conducive to the develop-
ment of a relativel}' large number of consumer industries. The development of
railroad transportation, coupled with the accessibility of necessary raw materials
■was an incentive to the development of capital goods industries. Although the
production of consumer goods in St. Louis is foremost, a large and profitable
proportion of the city's industrial activity is concentrated in the production of
capital or producer goods. The combination of a large trade and a balance
between the light and heavy industries has been responsible for the relative
economic stability of this city.
(b) Industry today.
Industrial St. Louis is one of the largest commercial and industrial centers of
the United States. It is the ninth largest industrial area, ranked by value of
products manufactured. It is the greatest wholesale distributing center in the
Mississippi Valley and it is also one of the important financial centers of the
Middle West.
In St. Louis and its metropolitan area economic activity enjoys a healthy
balance between manufacturing and distribution. Further, the diversification
between capital and consumer goods manufacturing activity has endowed this
community with an economic stability considerably in excess of that enjoyed by
cities more dependent upon a limited number and variety of industries.
Diversity is the predominant characteristic of industrial St. Louis. Of the
446 industry classifications recognized by the United States Bureau of the Census,
283, or 64 percent, are to be found in this indu.strial area.
Tables 1 and 2 following, show the number of manufacturing establishments
and the number of factory wage earners in manufacturing establishments in each
of the 20 major industry groups recognized by the Census Bureau. It should be
noted on table 1 that 25 percent of the establishments are devoted to the manu-
facture of food and kindred products, 15.5 percent to the printing, publishing,
and allied industries, 10.4 percent to the needle trades industry. No other
industry group accounts for as many as 10 percent of the manufacturing establish-
ments.
NATIONAL DEFENSE MIGRATION
8709
Table 1. — Manufacturers of the St. Louis industrial area
[1939 Census of Manufactures]
DISTRIBUTION OF ESTABLISHMENTS BY MAJOR INDUSTRY
Major groups
Number
of estab-
lishments
Percent
of total
All industries
Food and kindred products _
Tobacco manufacturers-.
Textile-mill produc^ts and other fiber manufacturers
Apparel and other finished products made from fabrics and other similar materials
Lumber and timber basic products
Furniture and finished lumber products
Paper and allied products.
Printing, publishing, nad allied industries
Chemicals and allied products
Products of petroleum and coal
Rubber products .
T,eather and leather products ...!
Ptnne, clay, and glass products
Iron and steel and their products, except machinery
Nonferrous metals and their products
Electrical machinery
ATachinery (except electrical)
Automobiles and automobile equipment
Transportation equipment (except automobiles)
Miscellaneous industries
2,787
701
16
15
289
55
126
60
431
210
17
11
82
124
181
94
43
155
17
19
141
100. 00
25.15
.57
.54
10.37
1.97
4.52
2.15
15.47
7.54
.61
.40
2.94
4.45
6.49
3.38
1.54
5.56
.61
.68
5.06
Table 2. — Manufacturers of the St. Louis industrial area
[1939 Census of Manufactures]
DISTRIBUTION OF FACTORY WORKERS BY MAJOR INDUSTRY GROUP
All industries...
Food and kindred products..
Tobacco manufacturers
Textile-mill products and other fiber manufacturers
Apparf 1 and other finished products made from fabrics and other similar materials
Lumber and timber basic products
Furniture and finished lumber products.
Paper and allied products
Chemicals and allied products
Printing, publishing, and allied industries
Products of petroleum and coal
Rubber products
Leather and leather products
Stone, clay, and slass products
Iron and steel and their products, except machinery
Nonfrrrous metals and their products
Electrical machinery
Machinery (except electrical)
Automobiles and automobile equipment-.-
Transportation equipment (except automobiles)
Miscellaneous
Wage
earners
Percent
(average
of total
for year)
126,831
100. 00
19. 163
15.10
1, 562
1 23
1,309
1.03
14. 035
11.07
1,047
.83
4,400
3.47
4.369
3.44
7.999
6.31
5,905
4.66
3,557
2.80
516
.41
13,712
10.81
5,655
4.46
17, 732
13.98
4,402
3.47
7, 158
5.64
5, 239
4.13
3.901
3.08
2.384
1.88
2,786
2.20
3710 ^''- ''"'ii^ iiKAKi.\(;s
Table 2 shows even better the distribution of the factory wage earners among
the 20 classifications listed. Not even the food and kindred products industries
employ more than 15 percent of the factory labor of tliis industrial area.
It is diaracteristic of tiie industries of this community that they are relatively
modest in size, there Ix'ing uj) to this time no corporate giants emjjloying tens of
thousands of workers here. The typical factory in St. Louis employs fewer than
100 workers. It is jirimarilj- home owned and the operations are directly under
control of the owners.
II. DEFENSE CONTRACTS
To the best of our knowledge there is no comprehensive record in existence
listing all of the primary defense contracts awarded in this area. Further, no
effort has been made l)y any agency to tabulate defense subcontracts held bj- local
manufacturers and sui)pliers. Records maintained by the Keserarch Bureau of
the St. Louis Chamber of Commerce do reveal tlie following with resjiect to con-
tracts awarded to companies in t.lie St. Louis industrial area between July 1, 1940,
and November 1, 1941.
Classified list of defense contracts and awards in the St. Louis area
1. Construction awards $216, 924, 460
2. Aircraft, aircraft parts and supplies 161,117,218
3. Anuuunition, components, and supplies 145, 195,928
4. Clothing, caps, shoes, and insignia 27,381,500
5. Machinerv, tools, and equipment 12, 810, 319
6. Foodstuffs 7,511,081
7. Special ordnance equii)m.ent 6, 030, 222
8. Kitchen and bakery equipment 2, 574, 440
9. Housing facilities and furnishings 2, 359, 303
10. Chemicals and drugs 2, 264, 519
11. Packaging materials and containers 2, 166,269
12. Construction ecpuinuent and materials 1, 542, 961
13. Transportation equi]iment 9S6, Oil
14. Cable, cable assemblies, and reels 906,384
1 5. Photographic and X-ray equi]nnent 507, 939
16. Hospital equii^ment and medical supplies 460, 753
17. Athletic equipment and sporting goods 1 17, 889
18. Miscellaneous . 453,303
Total 591,310,499
In this list there is indicated a total of $591,000,000 in direct contracts which
have been awarded to more than 300 companies here. These figures do not in-
clude ver}^ considerable expenditures for subsistence items purchased by the
local quartermaster units. Further, it docs not include the production orders
awarded to some of the larger defense ])lants in the district or some of the secret
negotiated defense contracts. It is estimated that the amount of these is well in
excess of $150,000,000.
It should be pointefl out that figures shown in this table 3 cover a period of 16
months and many of the contracts included in these figures have been satisfied
long since. Some of the largest oi)erations in the district, however, are just now
reaching the production stage and will be turned out within the next 12 months.
We know of no means of estimating the volume of defense subcontracts. It will
be possible, however, at the time of the committee hearing to give some estimate
on the number of manufacturers who have received such subcontracts.
III. ESTIMATED MIGRATION INTO ST. LOUIS SINCE MAY 1940
It has been estimated In- the Research Department of the Social Planning
Council of St. Louis that within the last IS montlis there has been a jH)i)ulation
migration into this St. Louis area of from twenty to thirty thousand i)ersoiis. It
is our belief that this estimate is as accurate as any that has been made on defen.se
migration into the area. The migration study of the Work Projects Administra-
tion has not yet been released. This study will either confirm the above estimate
or will indicate a basis for more accurate estimates of immigration. It should be
noted that of this i)oi)ulation increa.se a large share is accounted for in terms of
construction workers who are habitually transient in that they move from one job
to another. Some of these workers now in the St. Louis district can be expected
to move out as construction work tapers off here and increase in other com-
munities.
NATIONAL DEFP:NSE MIGRATION 8711
IV. PRESENT AND ANTICIPATED UNEMPLOYMENT RESULTING FROM PRIORITIES AND
THE ALLOCATION PROGRAM
The chamber of commerce has in process a survey of inamifacturers and whole-
salers in this district designed to furnish the answer to this (jueslion of priorities
unemployment in this district. In view of this fact it would serve no useful pur-
pose at this time to attempt to estimate or predict on this subject when shortly
a comprehensive cross-section of industry will have supplied its answers. A
complete survey will be available for the interest of the committee before Novem-
ber 26, 1941.
It is my opinion that individuals deprived of employment in this community
through inability of their employers to obtain materials and supplies upon which
defense projects place a prior demand will be reabsorbed relatively quickly and
easily by defense plants operating in the area. Manj' of these workers will find
it necessary to take some training in order to effect a transition from nondefense
to defense type employment. Several defense manufacturers have already
indicated that so far as possible they will flraw their labor requirements from the
local labor supply in preference to migrants from outside areas. Such action will
have the effect of curbing migration and lessening unemployment of persons
already in the district and available for work.
It will be possible to give a more intelligent opinion on the desirability for the
Government to enter into negotiations with local employers for reemployment
after the results of the surve}' referred to above have been analyzed.
V. EFFORTS OF NONDEFENSE INDUSTRIES TO SECURE DEFENSE CONTRACTS ,'aND
CONVERT TO DEFENSE PRODUCTION
In the strictest sense St. Louis had practically no defense industries prior to
the present emergenc^^ It had, however, a number of chemical and heavy metal
working plants whose output could be used directly by the armed services or
readily adapted for defense purposes. Many of the St. Louis manufacturers have
secured defense contracts, the ]:)roduction of which is not dissimilar from their
ordinary commercial output. The shoe and garment comi)anies, as well as the
machine tool manufacturers, are outstanding examples of this change in emphasis
without the necessity of completely reorganizing production facilities.
There have been a number of instances where local manufacturers have secured
defense work in which the end product is radically different from that of their
normal lines. We list a few of these: A manufacturer of kitchen metal ware is
now producing tank mines; a manufacturer of control valves is now making
aircraft subassemblies; a manufacturer of lubricating devices is now making tools
and dies for defense plants; a manufacturer of vending machinery is now producing
special ordnance parts; a manufacturer of electrical appliances is now producing
telescope mounts; a manvifacturer of motorcycle parts is now producing parts for
bombers; a manufacturer of pharmaceutical tablet dies is now manufacturing
ammunition dies; a manufacturer of stove pipe is now producing metallic cartridge
belt links; a manufacturer of heat control devices is now producing shell boosters
and telescope mounts; a manufacturer of organs is now producing test-tube holders;
a manufacturer of shoe laces, jumping ropes, brpids, etc. is now producing gas-
mask face forms; a maimfacturer of church furniture has been making TNT
paddles and wooden trays for ammunition plants; a manufacturer of large knives
is now making straightedges. The list does not give a complete picture of the
change-over, but it does indicate the variety of changes in ]:)roduction that have
been effected by some of the manufacturers in this district who have succeeded in
obtaining defense orders.
Some industries, particularly the iron foundry industry and the sheet metal
stamping shops, have experienced difficulty in locating defense items for which
their facilities can be used. Some of these plants which normally produced large
quantities of goods for civilian consumption will be forced to curtail drastically
their normal production and at the same time will be unable to replace it with
defense production. This •will work a greater hardship on the plant owners than
on the plant employees as most of these employees will be able to obtain employ-
ment in other industrial establishments of the district actively engaged on defense
work.
The survey referred to in previous paragraphs will bring out more clearly the
industries most seriously affected by priorities and the allocation program.
Since facts will be available to the committee, it does not appear that specula-
tions on this subject will be of particular value at this time.
8712 ST. LOUIS HEARINGS
Exhibit A. — Twenty Leading Industries op the St. Louis Industrial Area
BY VALUE OF PRODUCTS
Moat packing, wholesale $137, 620, 972
Autoniohilcs and automobile equipment H3, r)24j 083
Eloctrical machinery 40, 74 0^ 727
Malt liquors 4]| I8l| 036
Choniicals, not olsowhero classified 31, 410, 525
Stcol works and rolling mills 24, 089^ 101
P'ootwcar (except rubber) 23^ 925^ 581
Boot and shoe cut stock and findings 23, 119, 376
Bread and other bakery products (except biscuit, crackers, and
pretzels) 22, 144, 267
Drugs and medicines j 19, 373, 137
Alloying; and rolling and drawing of nonferrous metals, except
aluminum 16, 423, 479
Paperboard containers and boxes, not elsewhere classified 15, 725, 929
Newspapers 15, 564, 261
Stoves, ranges, water heaters, and hot-air furnaces (except elec-
tric) 14, 298,434
Printing: Job and book 13, 904, 648
Steel castings 13, 364, 205
Prepared feeds (including mineral), for animals and fowls 11, 814, 054
Cars and car equipment — railroad, street, and rapid-transit 11, 405, 215
Men's and boys' suits, coats, and overcoats (except work cloth-
ing) ._. 9,851,058
Flour and other grain-mill products 9, 756, 777
BY WAGE EARNERS EMPLOYED
Footwear (except rubber) 8, 636
Electrical machinery ; 7, 158
Meat packing, wholesale 6, 201
Automobiles and automobile equipment 3, 901
Malt liquors 3, 714
Bread and other bakery products (except biscuit, crackers, and pretzels) __ 3, 696
Boot and shoe cut stock and findings 3, 444
Steel works and rolling mills 3, 376
Steel castings 3, 119
Women's and misses' dresses (except house dresses) 3, 003
Printing: Job and book 2, 652
Paperboard containers and boxes, not elsewhere classified 2, 427
Stoves, ranges, water heaters, and hot-air furnaces (except electric) 2, 404
Chemicals, not elsewhere classified 2, 043
Men's and boys' suits, coats, and overcoats (except work clothing) 1, 920
Cars and car equipment — railroad, street, and rapid-transit 1, 883
Newspapers ^ 1, 392
Alloying; and rolling and drawing of nonferrous metals, except aluminum . 1, 304
Gray iron and semisteel castings 1, 233
Men's and boys' shirts (except work shirts), collars and nightwear 1, 199
Source: Industrial Bureau, St. Louis Chamber of Commerce.
Exhibit B. — "Priorities Unemployment" in Industrial St. Louis
REPORT'^BT research bureau, ST. LOUIS CHAMBER OF COMMERCE
^ The St. Louis Chamber of Commerce was requested by investigators to prepare
for the St. Louis hearing of the House Committee Investigating National Defense
Migration a statement concerning present and anticipated unemployment
resulting from priorities and the allocations program.
Believing that unsupported opinions are a poor substitute for facts the president
of the Chamber of Commerce instructed the Research Bureau to survey the
manufacturing industries of the four-county St. Louis industrial area to determine,
if possible, what curtailment of employment had already taken place and what
curtailment is anticipated before February 1, 1942. Accordingly, a simple
questionnaire (see appendix I) was designed and on November 1, 1941, mailed
with an explanatory letter to 1,331 manufacturers in the area.
NATIONAL DEFENSE MIGRATION 8713
To date 685 replies have been received. As 52 of these were either incomplete
or arrived too late for inclusion in the tabulations the following summary deals
with only 033 manufacturers (see second footnote on table I). An effort has
been made to summarize the findings as completely as possible in a scries of
tables, thereby reducing explanatory comment to a minimum.
Tables I and II present the broad general findings of the survey. Subsequent
tables present more detailed analyses of the findings.
Table I shows that —
1. Almost half of the companies (311) have participated in the defense program
through direct contracts, subcontracts, or both.
2. Eighty-seven companies, including 43 that have had defense work, have
already curtailed employment; 70 of these companies laying off 2,415 workers;
the remaining 17 not reporting the number of workers laid otf.
3. Almost one-third of the companies (204\ including 78 of the 87 that have
already curtailed, expect to lay off workers within 90 days of November 1, 1941.
One hundred sixty-six of these companies report they will lay off 7,648 workers.
The remaining 38 companies are unable to estimate their total anticipated lay-off.
Some other companies indicated that, while they anticipated no curtailment
within 90 days, they would be forced to curtail later unless they obtained defense
work or could otherwise secure necessary materials.
4. Two-thirds of the companies are seeking defense work, but of those who
have already had such work 40 are not now seeking it, several commenting that
they alreadj' have all they could handle.
Table II, in effect a continuation of table I, analyzes the employment changes
between November 1, 1940, and November 1, 1941.
1. Total employment increased 26 percent in the year.
2. Proportion of female employees declined slightlv in the companies that had
participated in the defense program and increased slightly in the companies that
had not participated in the program.
3. Employiiient in companies that have participated in the defense program
increased 33 percent. Employment of nonparticipating companies increased by
only 7 percent.
4. More than half of the companies have increased employment, 152 have
remained stationary, and 124 have decreased employment within the year.
5. Seventy-four of the companies with lowered employment did not attribute
the decline to inability to obtain necessary materials.
Following this general examination the returns were classified by industry and
retabulated. The major industry groupings used by the United States Bureau of
the Census were followed in sorting the returns. The small number of replies in
certain groups, however, made it appear advisable to combine these with the most
closely related group (for example, the lumber and timber basic products group
was combined with furniture and finished lumber products), or to include them
with the miscellaneous industries.
Tables III and IV analyze the effects of the defense program and "priorities
unemployment" in terms of 14 major industrial groups. These tables show quite
clearly the industries least affected as well as the industries most seriously affected
by priorities.
To summarize:
1. Every major industry has participated in the defense program.
2. Every major industry has had some relatively small curtailment of employ-
ment.
3. Every major industry anticipates further curtailment, some slightly, some
to a much greater degree than they have experienced up to now.
4. As was to be expected, the greatest numerical curtailment to date, as well as
the greatest anticipated curtailment is found in the iron, steel, and their products
group. (Note: Because of the small number of companies reporting in some
industries it would not be wise to generalize from the information in table III on
the relative effect of priorities on the several major industry groups.)
5. Very little curtailment has taken place and very little is anticipated in the
food, apparel, paper products, and stone, clay, and glass products industries.
6. The majority of the companies in every industry, except the food and apparel
industries, are seeking defense work.
7. The greatest employment increases have been in the metal working, chemical,
and leather products industries.
8. In every major group the number of companies that increased employment
in the last year is considerably larger than the number that decreased employment.
9. In no industry did the majority of the companies with decreased employment
attribute such decrease to inability to obtain necessary materials.
8714 ^'''- I''»^^Ii^ HKA RINGS
HaviiiR rxainiiH'd the over-all |)ri(irilics niK'niplnymoiit piolun and tlic picture
by inajrir iiuiustry, attention was next turned particularly to l.ha.t. ^rouj) of 213
coinpani(>s feelinf;; tlie pinch of ijriorities. These companies ar«' exaininod at
some leuKtli in tal)les \' and VI.
1. Slif^htly more than half of those companies (109) have participatod in the
defense program.
2. More than three-fdurtlis of the all'ected companies ar<' seeking defense work.
Many of the remainch-r indicated lliat they were not eciuipjx'd to handle defense
work.
3. Seventy companies r(i)ort<(l actual curtailment of 2,41 ii workers, an average
of 35 workers per company.
4. Only H)() of the 204 com|)anies anticipating curtailment rej)orted the number
of workers to he laid off. If the additional companies lay off on the average just
as the 10(> anticipate, workers to he atfected will increase bv approximately 1,800
toatotalof 9.."i00.
5. The companies affected now employ 4,01.5 more persons than on November 1,
1940. Within 90 days, however, thev will be emploving from 3.000 to 5.400
fewer than in 1940.
Table \'I r(>v(>als that —
1. Fifty comj)anies will be forced to close within 90 days. It sliotild be noted
that although only 50 have indicated that their anticijjated curtailment will
force them to close, the practical effect on many other companies in this group
will be about the .same as closing. If these addil ional companies curtail as antici-
pated, they will be reduced to nothing mor(! than skeleton staffs.
2. Seventy-eight percent of th<' curtailnnrnt to date has been forced on com-
panies with more than lOOemjiloyees.
3. Seventy-five percent of the anticipated curtailment is in these same large
companies, eight of which indicate they will be forced to clo.se.
4. Forty-six of the affected companies have less than ten employees. Twenty-
six of this forty-six will be forced to close.
While the questionnaire did not call for comment, a number of manufacturers
took occasion to comment on the problems affecting them. Representative of
such comments are the following :
"Due to restriction on use of brass our company will be out of business on
January 1, 1942, unle.ss some provision is made that inventory of material (brass)
may be used."
"We have an inventory to last about 6 months; after that is u.sed we do not
know whether or not we w-ill be abl(> to get a supply of patterji paper. Brass
companies advised they could not sell us any more brass binding after November 1 ,
1941 , due to not having defense contracts."
"Inasmuch as w^e use a rather large amount of steel in our business, normally,
about 10,000 tons per year, and as it was apparent that we were not going to con-
tinue to receive steel for advertising signs, the writer went i.o Wa.shington and
called ujjon the Office of Production Management with pictures of our plant and
of our equipment.
"Our plant happens to be the second largest one-story, modern factory in St.
Louis. W^e have 9 acres of industrial property fenced in, with a side track, and
with 3 acres under one roof. Inasmuch as the United States is suppo.sed to be
involved in quite an emergency we thought our factory Avould be of value to the
Government. Our equipment, we realize, is not of any particular value for defense
purposes."
"Much of our l)usiness will also be lost due to the restriction on the use of copper,
both for as.sembly and for our copi^er i)lating."
"We urgently need work to avoid shut-down during second quarter of 1942."
"Half or more of our employees may be laid off if we cannot secure specially
denatured alcohol."
"Had to pass up 170,000 8-ounce bottles of lemon extract due to fact that a small
outfit like ours can't get alcohol. The priorities and Office of Production Manage-
ment are working for big outfits only."
"I might add that if we were to receive tlie brass parts we have ordered during
the past year from our suppliers, most of these parts being practically completed
and of no value to the Governnient or any one else except for its scrap value, we
would be able to reduce quite substantially the percentage of the number of
emj)loyces we will be forcecl to lay off about December 15."
"We are a small manufacturer, making a specialized product containing chlo-
rine — la.st month (October) 88 percent of our volume contained this element.
"We have been in bu.siness since 1930 aTid have a very satisfactory small busi-
ness. The verv nature of our business makes chlorine absolutely essential to our
NATIONAL DEFENSE MIGRATION 8715
existence, to have it curtailed even 10 i)ercent will make it impossible for us to
continue in business — as this 10 percent represents the difference between profit
and loss.
"If such should hapi)en- — not only will our 11 years of work be gone but our
entire investment of several thousands of dollars will be entirely wiped out,
because our equipment is set up for this one puri)ose only and will be valueless
for any other puri)ose; re the handling of cholorine in gas form.
"Through foresight — before priorities, we gained a little stock which will carry
us a month or two only beyond the QO-daj' ])eriod called for in your questionnaire."
While there has been much discussion of the effects of priorities on manu-
facturers, less attention has been paid to their effect on com]:)anies engaged pri-
marily in wholesale distribution. Accordingly, an effort was made to obtain from
St. Louis wholesalers information similar to that asked of manufacturers. Ques-
tionnaries were addressed to 235 wholesalers in all lines of distribution. A total
of 91 replies were received. These are summ.arized in table Vll.
1. While most of the wholesalers have not yet curtailed, 7 have already dis-
missed workers and 11 expect to within 90 days.
2. Employment of these wholesalers has increased 10 percent within the year.
(Only 87 companies reported employment figures. This accounts for the failure
of items V c, d, and e, to total 91.)
3. Half of the com.panies reporting have supplied materials for the defense
program either directly or as subcontractors.
8716
ST. LOUIS IIE.VRINGS
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8720
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NATIONAL DEFENSE MIGRATION 8721
Table V. — Companies that have curtailed and/or expect to curtail employment
because of inability to obtain necessary materials
I. Total companies curtailing 213
(a) Companies that have participated in the defense pro-
gram 109
(6) Companies that have had neither direct nor subcontracts- 104
II. Companies that have already curtailed employment from inabil-
ity to obtain materials ■;-.-- ^'^
Companies that expect to curtail employment because of inability
to obtain materials (this number includes 78 companies that
have already curtailed) 204
III. Number of workers already laid off 1 (70) 2,415 +
Number to be laid off in 90 days ^ (166) 7, 648 +
Total workers affected 10, 063 +
IV. Companies seeking defense work 169
Companies not seeking defense work 44
V. Number of workers employed:
(a) Nov. 1, 1941, total 25,649
Male 18,276
Female 7,373
(6) Nov. 1, 1940, total 21,634
Male 15, 812
Female 5, 822
(c) Number of companies whose employment increased from
1940 to 1941 110
Total increase 5, 408
(d) Number of companies whose employment has not
changed 41
(e) Number of companies whose employment decreased from
1940to 1941 62
Total decrease 1, 393
> Figures in parentheses are number of companies reporting number of workers affected.
Table VI. — Companies that have curtailed or expect to curtail employment from
inability to obtain necessary materials
Number
of com-
panies
Com-
panies
that
will be
forced
to close
Already
Within
90 days
Total
Employment
Nov. 1,
1941
Nov. 1,
1940
Companies employing—
More than 100 workers
50 to 99 workers ...
59
34
43
31
46
8
4
6
6
26
1,904
170
188
81
72
6,722
897
618
276
135
7,626
1,067
806
357
207
21, 052
2,354
1,479
517
247
17, 239
2, 119
25 to 49 workers
10 to 24 workers .. .
1,492
503
Less than 10 workers
281
Total
213
50
2,415
7,648
10, 063
25,649
21, 634
8722 S'J^'- L.l^UIS ILEAKINGS
Table VII. — The effect of priorities unemployment and the defense program on
St. Louis wholesalers
I. Total companies reporting 91
(o) Companies that have had direct defense contracts 25
(6) Companies that have had sul:)coritracts 35
(c) Companies that have not participated in defense work 45
II. (a) Companies that have curtailed employment because of inabihty
to obtain merchandise 7
(6) Companies that have not curtailed employment 84
III. (a) Companies expecting to curtail employment within 90 days 11
(6) Companies not expecting to curtail employment within 90 days_ 80
IV. (a) Number of workers already laid off (6) _ _ 60 +
(6) Number of workers to be laid off (8) 175 +
Total workers affected 235 +
V. Number of persons employed: '
(a) 1941, total (87 companies) 7,233
Male 5, 936
Female 1, 297
(b) 1940, total (87 companies) 6,553
Male -- 5, 460
Female 1, 093
(c) Companies that have increased employment from 1940 to
1941 47
Amount of increase 76 1
(d) Companies that have had no change in employment 26
(e) Companies that have curtailed employment 14
Amount of decrease 81
• 4 wholesalers did not supplj' information on employment.
Exhibit C. — Supplementary Statement on Employment of Large Defense
Contractors
EEPORT by H. O. WHITESIDE, DIRECTOR OF RESEARCH, ST. LOUIS CHAMBER OP
COMMERCE
Employment of 12 of the largest defense plants in industrial St. Louis on August
1, 1941, and anticipated peak employment of these same companies according to
present schedules:
Present em-
Maximum
ployment,
anticipated
Aug. 1, 1941
employment
22
1,583
2,533
2.533
3,000
3,000
5,247
11,382
2,950
6,450
594
1,863
490
1,330
2,775
2,973
2,183
2,183
500
23,976
4,100
4, 100
7,000
7,000
Atlas Powder Co
Carter Carburetor Co
Century Electric Co
Curtiss-Wright Corporation -..
Emerson IClectric A Manufacturing Co. (turret plant)
McDonnell Aircraft Corporation
McQuay-Norris Manufacturing Co
Monsanto Chemical Co .-
Scullin Steel Co
U. S. Cartridge Co
Wagner Electric Co
Western Cartridge Co
Total
31,394
3,373
Note.— This report does not include the General Steel Castings Co. plant, subsequently annoimced, for
Granite City, 111. This plant is not scheduled for completion within the year. When completed, it will
employ 1,500 additional workers.
NATIONAL DEFENSE MIGRATION 8723
STATEMENT SUBMITTED BY C. M. GWINNER, DIRECTOR OF RE-
SEARCH, SOCIAL PLANNING COUNCIL OF ST. LOUIS AND ST.
LOUIS COUNTY, ST. LOUIS, MO.
PREPARED BY E. G. STEGER, DIRECTOR, SOCIAL PLANNING COUNCIL OF ST. LOUIS
AND ST. LOUIS COUNTY, ST. LOUIS, MO.
The Social Planning Council of St. Louis and St. Louis County is concerned
solely with the social problems of the community. The council seeks by every
means possible to know and to devise methods of meeting the problems of human
relationships which fall roughly in the following areas:
1. Famil}'- and individual care.
2. Child care, both home and institutional.
3. Recreation and group work.
4. Health and hospital care.
The council, as its name implies, has an entity only in its widespread member-
ship which consists of approximately 135 agencies, departments of agencies, and
bureaus, each of which is actively engaged in social work either directly with
and for families, individuals, or groups, or with conditions which influence the
welfare of families, individuals, and groups.
The membership includes voluntary agencies supported by voluntary contribu-
tions and governmental agencies supported by tax funds. The council itself is
a voluntary body which has only that measure of authority imposed by the mem-
bership on itself. It in no sense assumes or desires to assume the character of a
superagenC3\ Its strength rests in its cooperative character which emphasizes
the individual responsibility of each member agency and the citizenship.
As a planning body, the council maintains a research department participated
in and at the service of its membership. Through this department factual data
are gathered routinely wherever that is indicated, and through special studies
whenever special studies are indicated. The research department cooperates
with all major research bodies in this area, of course, in related fields, so that
there is collaboration and supplementation so far as the gathering and use of
socially important facts are concerned, and little or no duplication.
The council membership is pledged to submit any and all significant changes in
activity programs to the whole partnership for critical appraisal before such
changes are effected. Through its department on social action, the council seeks
on the basis of sound planning to influence through legislative action, through
public opinion, and all possible legitimate means, social-welfare activities which
clearly fall within its sphere of activity. This means determining in as far as
this can be done trends of social prot)lems as indicated by known facts; it means
interpreting for the information of all concerned facts and trends; it means coun-
seling in respect to agency and departmental programs wherever and whenever
such counsel is sought and acceptable.
The statement submitted to your committee is, therefore, to be considered as
the statement of the combined council membership and by no means as the state-
ment of an individual agency staff. It has been prepared for planning purposes
at this time with special care because of the obvious fact that the Federal defense
program is so comprehensive and so far reaching that all social institutions of
whatever kind will to a greater or less degree be influenced by it. The council
offers its information to your committee as the contribution of the social agencies,
voluntary and governmental, of St. Louis and St. Louis County to national
planning.
EFFECTS OF THE DEFENSE PROGRAM IN THE ST. LOUIS AREA ON POPULATION,
MIGRATION, AND EMPLOYMENT
It became apparent several months ago that radical changes in population and
emploj-ment were in store for the St. Louis area as a residt of the defense program,
and that these changes were to have severe effects upon the health and welfare
structure and activities. We felt it necessary to be in a position to forecast, as
far as possible, the conditions to be expected and to be prepared to cope with
them when they arrive and wherever they are found.
We have, accordingly, collected all information bearing upon the question of
employment and population changes from all locatable sources. Facts upon which
to base any definite statement of the present condition or forecast for the future
are sadly lacking. It is possible, however, to collect piecemeal facts which, when
brought together, give us a fair picture of the condition. We were also able to
obtain estimates from those who should know conditions. Such estimates and
predictions, however, must be checked and analyzed according to their sources.
8724 ST. LOUIS HEARINGS
the methods of compiling the information, and comparability with similar
estimates.
These items can also be checked against the council's knowledge of previous
conditions and trends in employment and migration. The various divisions and
committees of the council liave for a number of years worked with problems that
are basic to and will furnish background for our present conditions. An example
of this is the conunittee on nonresidents, which for the past 15 years has studied
and advised on care for nonresident individuals and families by the local public
and private agencies. Also, the St. Louis Youth Commission, a subdivision of
the council ajipointed in 1938, has conducted a very extensive survey of conditions
among youth, and during this process has collected much information concerning
the migration of rural youth to the city and the effect of this migration upon the
urban youth problem. The work of this committee, for example, enables us to
estimate with a reasonable degree of accuracy the composition and characteristics
of the present migrants to the St. Louis area.
In the following presentation, we are in most cases discussing conditions as they
are found over the entire metroi)olitan area of St. Louis, which includes St. Louis
City, St. Louis Co\inty, and ])ortions of Madison and St. Clair Counties in Illinois,
including East St. Louis. The territory normally covered in council activities in-
cludes St. Louis City and County only, but we have foTuid that certain problems,
particularly those pertaining to the labor force and employment, are area wide and
cannot well be localized into the Misouri section of the area. The material per-
taining to the health and welfare structure itself, however, relates only to St.
Louis City and County.
We have considered all available facts and estimates against the background of
our experience and knowledge of conditions, and have reached the following con-
clusions regarding population and employment:
(1) The population of St. Louis City and St. Louis County has increased by ap-
proximately 40,000 persons in the past 18 7nonths, or since the census of 1940. — This
would make the combined population of the city and county approximately
1,130,000 persons. Estimates made by other individuals and organizations range
from a low figure of 125,000 by the city administration to a high of 200,000 by the
local office of the Public Works Administration and the St. Louis Coiuity Chamber
of Commerce. The St. Louis County Planning Commission a number of months
ago, and before the defense program had taken full form, estimated a total county
population of 325,000 by the end of 1943, which would represent a 50,000 growth
in 4 years.
The 1940 census reported a population of 816,048 for St. Louis City, and 274,230
for St. Louis County, or a total population of 1,090,278. This represented a loss
of 5,912 in the past 10 years for St. Louis City, and a growth of 62,637 for St. Louis
County, or a net increase for the city and county of 56,725. It can be seen from
this that over the past 10 years the normal increase in the population, city and
county, has been approximately 5,700 per year, and on this basis about 8,500 of our
estimated 40,000 increase would represent normal growth, and the other 31,500
an abnormal increase from migration due to defense employment.
Our estimate of 31,500 persons migrating into the city and county in the past 18
months is based upon consideration of a number of factors. One of these is the
number of dwelling units that have been taken up since April 1, 1940. The census
reported 16,300 vacant dwelling units in St. Louis City and over 4,500 in St. Louis
County, a total of 20,800. A check made by the Work Projects Administration
in January 1941 showed approximately 21,000 units for sale or for rent. In the
meantime, however, approximately 4,600 dwelling units had been constructed.
A vacancy census made by the St. Louis Post Ofhce in August 1941 reported
slightly more than 6,800 vacancies in the metropolitan delivery area, with about
3,500 additional units under construction, a total of approximately 10,300 shortly
available. Some of these reported as under construction must be discounted,
however, as this includes approximately 1,000 units in two housing projects which
replace demolitions and do not represent net gains. Neither is it possible to make
a direct comparison between the post-office count and that of the fnited States
Census or that of the Work Projects Administration, as the bases for counting
were different. We can be certain from this, however, that at least 10,000, and
probably about 12,000 to 13,000 dwelling units have been taken up by new families
in the past 18 months. Not all of these, of course, are directly chargeable to
migration. The marriage rate in th(> area has been nuich higher in the past year
than in any previous period, which means that an unusually large number of
couples are setting up housekeeping. We also know that during the depression
period many families had doubled up on housing and that with the increase in
employment opportunities, much "undoubling" has taken place.
NATIONAL DEFENSE MIGRATION
8725
The general employment situation also offers further evidence of considerable
increase in population. Indications arc that approximately 640,000 persons are
at work in the St. Louis area, including the Illinois portion, while the United States
Census of April 1940 reported a total labor force of 616,000. Many of these
additional workers have come from the ranks of those not previously coimted as
members of the labor force, but many others have undoubtedly come as a result of
migration into the area. This is discussed in greater detail in a later section, but
it does indicate beyond a doubt that population has increased.
Figures regarding the school enrollment of 1941 as compared to the opening of
school inl940 do not throw much light upon the population situation. The de-
crease in school enrollment in the city of St. Louis is approximately 3,500, with
most of the decrease occurring in the academic and technical high schools. School
enrollment in the county has increased about 2,500, a figure which could be ac-
counted for by the normal population increase. This does indicate, however,
something of the characteristics of the individuals and families who have come into
the area.
We do note that the migrants into the area are not of the usual nature. Mi-
grants to the St. Louis area are traditionally from the rural sections to the south,
southeast, and southwest. Information regarding the present group insofar as
they have arrived, shows that they come from widely scattered sections of the
country. One principal of a city school located in a rooming-house area, who
enrolled approximately 300 new students this year of a total enrollment of ap-
proximately 900, reports that these families have come from 21 different States,
with only a small proportion coming from out-State Missouri. As most of the
defense work in this area so far has been construction work, this report would fit
into the general pattern. We do not know, of course, whether these construction
workers will tend to stay in St. Louis for later defense jobs, or whether they will
attempt to move on to other construction projects and to be replaced by factory
and production workers.
Our estimate of the composition of the 40,000 population increase is as follows:
Group
Popula-
tion
increase
Persons
per
family
Number
of work-
ers
Homes
needed
8,500
16, 700
15, 000
3^^
1
13,825
1 7, 500
15,000
2,425
Migrant families - -
4,750
Migrant individuals - - -
(2)
Total
40, 200
26, 325
7.175
' At 45 percent of the total population group, a known figure for St. Louis.
2 No allowance is made for additional rooming houses opened up for individuals.
This indicates a ratio among the migrant workers of 15,000 individuals to 7,500
family members, or a ratio of 2 to 1. Past experience with the rural-urban
type of migration into the St. Louis area has shown us that well over one-half of
such migrants are normally lone persons. We believe that this ratio would run
much higher in the present type of migrant, as surveys have shown that many
of the family men who would normally bring their families with them have left
them at home under present circumstances, apparently on the theory that a
defense job may be temporary.' The fact that most defense jobs so far have been
construction jobs requiring skilled workers would also lead us to believe that
these migrants are older than the usual run. Such workers would most likely
be those who had established homes in other communities, and we doubt if they
would break up such homes unless they were sure of employment in the city.
Advance reports from the Work Projects Administration survey of defense migra-
tion just completed in St. Louis are that the proportion of lone persons to family
persons in migrant workers is running over 60 percent of the total. From all of
these factors, we do not believe that our estimate of 2 to 1 is very far out of line
with present conditions.
It could also be noted from the above break-down that this analysis would
account for approximately 7,175 homes. We have made no allowance here for
additional homes being taken up for use as boarding houses. We know that
many formerly vacant residences are being so used, but because of lack of informa-
tion as to the number or proportion, we have not attempted to estimate it.
1 See Community Problems in Defense Areas, by T. J. Woofter, Jr., Director of Research for the Federal
Security Agency. Also borne out by a study of Defense Housing in Louisville, Ky,, made by Real Estate
Analysts, Inc., of St. Louis.
8726 S'T- I^OUIS HEARINGS
(2) Employtnenl in the St. Louts area will ahortly level off at or near the present
figure of 640,000 employed. — Wo oxpcct tho toiidoiicy toward unornijloymrnt in
certain fields to soon offset the further increases to be expected from defense
employment.
The best available estimates we have been able to obtain of the number of
workers needed on defense projects during the coming year arc from the Research
Bureau of the St. Louis Chamber of Conmicrce. A recent survey made by them
(which will undoubtedly be reported in full to this committee) reveals that the
largest producers of defense materials here, and this includes all large contracts,
will employ a])proximately G8,400 workers when operating to scheduled capacity.
This point will not be reached, however, before midsummer of 1942. In the mean-
time, these y)lants are now employing 31,400 persons, exclusive of construction
workers, so that a net of 37,000 production workers will be added to the labor
force of these plants over the next 10 months.
There are certain factors that will tend to offset this net increase in defense
employment. Chief of these will be imemployment as a result of material short-
ages or priorities. No definite figures as to the size of this group in St. Louis are
currently available, but we can accept the national estimate of 2,.500,000 to
3,000,000 in the coming winter. As St. Louis has slightly more than 1 percent
of the national labor force, we would expect resulting unemploj'inent locally of
25,000 to 30,000 persons. This and other factors are discussed more fully in
later sections of the statement.
The currently employed group includes between 30,000 and 40,000 construction
workers as against a normal force of about 11,000 for this area. These 20,000 to
30,000 are working on temporary or defense construction which will shortly be
terminated. Some of them may go on to jobs in other centers, and many will
undoubtedly change to production jobs, but in any case, they will offset an equal
number of production workers yet to be hired.
The above estimate of emploj-ment need include only Avorkers on defense proj-
ects and makes no allowance for service workers. This group is often estimated
at 1 service worker for each 10 manufacturing or production workers, but we do
not believe that this ratio would hold for St. Louis. The service trades here were
estabhshed prior to the advent of the defense projects, and as such projects
represent only about a 15-percent increase in the general employment in the area,
we believe that these service trades will accommodate the increase without any
substantial change in their employment levels. It is also true that most such
service workers, if it was necessary to hire new ones, are already at work and are
represented in the total of 640,000 currently employed. Wo should also note
that priorities and allocations will undoubtedly affect many portions of the retail
sales trade, which will tend to offset any future employment increases there.
(3) The labor force of the St. Louis area as at present constituted can meet all de-
mands now in sight, and no further in-migration will he necessary to supply employ-
ment needs. — The only way to check this conclusion with an^' degree of accuracy
is to balance present employment and employment needs against the available
labor force of the area.
Here again for a picture of the production workers needed on defense projects,
we go back to reports of the Research Bureau of the St. Louis Chamber of Com-
merce. Their survey shows that the defense projects in this area will employ
approximately 68,400 workers when operating to scheduled capacity, a point
which will be reached about midsummer of 1942. In the meantime, these plants
are now emi)loying 31,400 workers, exclusive of construction workers, so that a
net of 37,000 additional will be needed.
While this need of 37,000 workers is anticipated, there are certain groups that
we know can bo supplied from the local labor force. At least 8,000 of thsee are
expected to be women. The 1940 census recorded an available supply of 15,400
unemployed women in St. Louis City alone. Many of these have probably ob-
tained work in the meantime, but against this we must also balance the fact that
increased employment opportunities can and will draw many additional women
into the labor market.
It is expected that at least 4,000 of the additional workers will be Negroes. In
view of the unemployment among Negroes, approximately 15,000 in St. Louis
City in 1940, there is no doubt that the labor force can supply any needs from this
group. If we take the 8,000 women and the 4,000 Negroes from 'the 37,000 needed,
we have 25,000 white men and boys to be supplied between now and next summer.
About one-fourth of these will be unskilled, and three-fourths skilled or semiskilled.
This gives us some picture of the needs yet to be supplied.
The last factual report upon the condition of the labor force m St. Louis comes
from the census of 1940. Reports for St. Louis City only are available. They
NATIONAL DEFENSE MIGRATION 8727
show that of a total labor force in the city of 381,000, 324,000, or 84.9 percent,
were employed; 3.7 percent were working on public emergency work and an addi-
tional 11.5 percent seeking work, making a total unemployed group of 14.1 per-
cent. Of the 57,000 unemployed, about three-fourths were men and one-fourth
women. Three-fourths were white and one-fourth Negro. At that time in St.
Louis City the following persons were available for employment:
Number
Percent
Group
percent
Total
67, 739
100.0
Male-- .
42, 338
73.3
100
White
31,617
10, 721
54.7
18.6
74 7
Negro _ .
25 3
Female. . .
15, 401
26.7
100
White
10, 921
4,480
19.0
7.7
71
Negro ....
29
While complete census reports are not available for other portions of the metro-
politan area, other information is available which enables us to build up a picture
of the labor force. For example, we know from census reports that 46.7 percent
of the population of the city is usually found in the labor force, and that approxi-
mately 40 percent of the population of St. Louis County is either working or look-
ing for work. From the general character of the populations, we can also conclude
that the Illinois portion of the metropolitan area would follow the same general
pattern as St. Louis City, so that we can build up the following composite labor
force for the entire area as of April 1, 1940:
St. Louis City
St. Louis County
East Side
Total in labor force
Employed
Unemployed
Number
381,502
109, 692
125, 316
616, 510
523, 417
93, 093
Percent
146.7
140.0
146.7
145.4
2 84.9
>15.1
> Percent of population.
' Percent of labor force.
The normal increase of the population, approximately 7,000 annually for the
area, would have increased this labor force by 4,700 by September of 1941, making
a total available labor force at that time under normal conditions of 621,190.
We previously estimated, however, that the population of St. Louis City and
County has increased in the past 18 months by 40,000, and that 26,325 of this
would represent additions to the labor force. A comparable population increase
on the Illinois side would represent 10,000 persons, with 4,500 workers, a total
addition of 30,825 to the labor force of the area.
A large number of persons who do not ordinarily consider themselves as candi-
dates for work are also known to have joined the labor force because of the
increased job opportunities. No accurate figures regarding the size of this group
are available. We know, however, that they come largely from three sources:
(1) From those who in recent years have been counted as part of the school group,
but who are now either looking for work or working. We know from previous
studies that high-school enrollment in St. Louis City practically doubled between
1930 and 1940, and it was the general conclusion that young people were going to
high school because they could not find work. This trend has been reversed.
High-school enrollment in St. Louis City at the beginning of this school year was
1,700, or 7 percent, less than last year. Enrollment in the technical high schools
decreased 20 percent from last year. (2) Women who, while not normally classed
as part of the labor force, have either accepted jobs or are looking for them.
This would include housewives, mothers, and single women who are attracted by
employment opportunities and a chance at what they believe to be big wages.
(3) Elderly or retired workers, particularly in the skilled trades, who have been
g728 ^T. LOUIS HEARINGS
drawn hack into the labor force by the need for their skills and the attraction of
hitili wanes and overt iine pay. We do not believe tlial tiiis group will include
many unskilled workers.
We grunt that any attempt to meastire the number of person.s so drawn in is a
risky procedure, l>ut if we are to have any picture of the i)resent lal)or force, some
estimate is necessary. We believe that this group will include approximately
35,000 persons. This will rej)resent slightly more than 5 jx^rcent of the original
labor force and, we do not beli(>ve, is very far out of line witii actual conditions.
The labor force of the metropolitan area would now ])res(!nt the following
picture:
Labor force as of Apr. 1, 1940._. CI 6, .510
Workers due to increased population 30, 825
New workers drawn into the labor force 35, 000
Labor force as of Sept. 30, 1941 682, 335
Reports from the Bureau of Labor Statistics give us a fairly accurate index of
employment in the St. Louis metropolitan area. We previously pointed out that
623,417 persons were employed on April 1, 1940. Monthly reports compiled since
that time indicate that the employed group had increased by approximately
80,000 up to July 1941. with a total working force of 618,904 at that time. If
employment continued at approximately the same rate, this group would have in-
creased to about 640,000 by September 1941. The employment situation would
then have been as follows:
Estimated labor force 682, 335
Employed __. 640,000
Unemployed 42,335
There are many indications that there is still a large backlog of unemployed
in the St. Louis area. The active file of the Missouri State Employment Service,
serving St. Louis City and County, throughout the summer numbered consistently
around 80,000 applications, and has never been below 70,000 for any month in
1941. The figure for September was 70,877. Work Projects Administration rolls
for St. Louis City and County have fallen only slightly below the July figure, and
now stand at ai)proximately 8,800. General relief rolls, which were cut in July
and August by the elimination of most employable single persons, still number
5,233 cases, of which approximately 820 are classed as employable. During the
month of September, over 23,000 persons in St. Louis and St. Louis County
received unemployment compensation checks. These account for a total of
over 32,000 employables receiving compensation or assistance in St. Louis City
and County alone.
From all of these indications, we are quite sure that our estimate of 42,335 un-
employed is certainly not too high, and may actually be too low.
An additional factor that will serve to check withdrawals from the labor force
within a few months will be the leveling off of Arm\^ service. At the present
time approximately 10,000 St. Louis City and County boys have been called
under the Selective Service Act or have enlisted. It is expected, however, that
by the first of the year discharges will equal inductions, so that there will be no
further net loss to this source.
All of these factors give us strong indications that the St. Louis labor force as at
present constituted can meet any future labor demands that are now in sight, and
that no further in-migration will be necessary. There may, of course, be a few
skilled occupations in which shortages will exist, and importations for this pur-
pose may be necessary, but the number involved will be small. It is also possible
that additional defense contracts or plants may be awarded in this area and
throw the whole picture as we now see it out of line. However, if employment
levels off, as we anticipate, the labor force will be able to fill all jobs, and there
will still be a large reserve of unemployed.
(4) Persons now in St. Louis will obtain the best jobs both in defense industries
and in regular private employment, which means that those migrating into the
city after this time, if they secure employment at all, will be forced to take the
lower-paid jobs.
Most of the defense plants have developed employment policies which will
make it almost impossible for recent arrivals in the St. Louis area to secure any
of the skilled or semiskilled jobs. The old policy of "gate hiring" has practically
passed out of existence. Most firms have set up training schools where produc-
tion employees are given several weeks training and paid a beginning wage during
NATIONAL DEFENSE MIGRATION 8729
the training period, in advance of the need in the plant. They are also building
up new eniplovnient files of current applications, so that when the need arises,
they will have the necessary employees lined up. Requisitions for training jobs
are being filled through the State employment oflace, which does not accept ap-
plications from persons in the city less than 30 daj-s.
All of this is evidence that the defense firms are planning their employment
needs prettv far in advance so that they will not be caught short when employees
are needed 'to begin operations. It also indicates that there will be little oppor-
tunity for an outsider coming into the St. Louis area to secure anything other
than an unskilled job in defense plants.
We have alreadv mentioned the fact that the active file of the Missouri State
Emplovment Service in this area numbered over 70,000 in September. This
file is "known to contain applications of many persons who are now employed
but who wish to change to better jobs. Much of this changing is a readjusting
process, as manv persons were undoubtedly employed below their occupational
skills. There are also other evidences of much shifting of employment. There
are reports, for example, of beauty operators leaving that employment and going
into factorv work because the hours and wages are better. There are also reports
of shortages in domestic service because persons normally employed there can
secure better wages on factory jobs.
Several labor pools have been set up in this area to facilitate the transfer of
skilled or semiskilled workers from jobs closed because of material shortages to
defense jobs.
Estimates recentlv made by the Office of Production Management and pre-
sented to this comrnittee at the time of its Washington hearings show that ap-
proximately 85 percent of the defense employment in the State of Missouri will
be professional, skilled, and semiskilled workers, and only 15 percent unskilled
jobs. We know that most migrants, particularly those who will be coming in
from now on, are unskilled workers so far as factory employment is concerned,
and that few of them will be eligible for defense jobs.
All of this indicates that migrants to the city, and particularly those coming
in this winter, will not be able to get into defense jobs, but will find it necessary,
if thev secure emplovment at all, to take private employment. We anticipate
that most of them will fall into the unskilled and domestic workers, the lowest-
paid groups.
(5) Migration to the St. Louis area will continue. — We base this conclusion
upon past experience, and rather largely upon our knowledge of human nature.
Present migrants to the city are getting jobs. The general publicity in news-
papers and other media is that of boom-town employment, and the general
public believes that there is no more unemployment. It is extremely difficult
to convince the average person of the facts about the employment situation; it
will be even more difficult to convince the marginal rural family that there is
little or no opportunity for it in the city.
Missouri State Employment Service in its radio publicity, and a number of
other agencies, have constantly attempted to discourage unplanned migration,
and have urged people to register at their local employment offices so that planned
transfers of needed labor could be made. We know, however, that as long as the
people at home receive word of employment being secured in the city, they will
continue to migrate, and this migration will continue until unemployment becomes
so large that there is no misunderstanding the condition.
We expect the real wave of this migration into the St. Louis area to begin about
midwinter. There are current reports of shortages of farm labor in the surround-
ing territorv, and current wages for farm labor are higher than in recent years.
This will tend to keep these persons at home until the harvest season is com-
pleted. How long the wave of migration will continue depends entirely upon the
emplovment situation and upon how rapidly the reserve of unemployed builds up.
We have pointed out in an earlier section of this statement that migration to
the citv during the past year has been of a different character than that usually
found. "^ Migrants to St. Louis in the past two decades have been largely from
southeast Missouri, Arkansas, southern Illinois, and western Kentucky, Tennessee,
and Mississippi. Migrants during the past year have been from points widely
scattered throughout the United States, with little centralization from any one
section. We believe this was because this migration has been largely one of
skilled and construction workers, rather than the usual unskilled, rural resident.
We anticipate that the migration in the winter of 1941-42 will return to some-
thing of its old character; that is, the migrants will come from contiguous rural
territory, will be largely unskilled in respect to urban employment, and will prob-
ably consist of a higher proportion of families than during the past year.
3730 S'^'- I'OUIS HEARINGS
It is this group of unnecessary migrants that will need the help of the social
agencies during the coining winter. We anticipate that most of them will fail to
secure employment, and that a large proportion will become stranded in St. Louis.
Under such circumstances, they will undoubtedly rely first upon the support of
relatives and friends in the city, and secondly upon the support of welfare agencies,
before they return to their marginal existence on the farm.
EFFECTS OF THESE EMPLOYMENT AND POPULATION CHANGES UPON THE HEALTH
AND WELFARE STRUCTURE AND ACTIVITIES
The chief interest of all this to us at the Social Planning Council lies in its
effect upon the welfare structure and activities of the agencies involved. The
shifting employment picture will have drastic effects upon the work of certain
agencies, particularly those in the public field, and the rapidly growing popula-
tion as a result of improved employment opportunities will result in tremendously
increased pressures in certain fields of welfare activity. These agencies look to
the Council for information and leadership which will enable them to meet these
increased pressures.
In dealing with the problems arising from defense activities, we have attempted
to maintain and to encourage our cooperating agencies to maintain a balance and
perspective in all considerations. This is sometimes difficult for agencies or organ-
izations who deal with only one segment of a field of service or with only i)artof
a particular problem, and do not have at hand the information as to over-all con-
ditions or what is happening in other parts of the field or in other sections of the
welfare structure. It is at that point that the coordinating machinery of the
Social Planning Council, equipped to make the entire picture available to all
agencies and all fields, is particularly valuable.
It is often difficult to distinguish between pressures with in-migration as the
underlying cause and those arising from some other source, just as it is some-
times difficult to make the distinction between pressures caused by increasing
employment and by increasing population. This seems to us, however, to be
more or less immaterial. It is the increased employment opportunities that have
caused the increased migration and population growth in the area. There is little
point in quibbling about where in this sequence our difficulties originated.
This becomes apparent, however, if we attempt to analyze the effects upon the
welfare structure and activities; most of the current problems and expected diffi-
culties reflect unmet needs of the past which are intensified by the pressures of
the emergency period, rather than new problems brought in with the incoming
population. The functioning agencies have experienced all of these in the past
in greater or less degree and, given careful planning and sufficient funds, can easily
be equipped to meet them as they arise.
Perhaps the best way to illustrate the effects of increased employment and
population on the welfare structure is to analyze the picture field by field.
Services to families and individvals.- — This field includes the various types of
public assistance (such as Work Projects Administration, general relief, aid to
dependent children), the private family- welfare agencies, private agencies dealing
with lone persons, and agencies and institutions serving aged persons.
It is in this field that the effects of applications by nonresidents of the area
are most likely to be felt. These would come in the public general-relief cate-
gory, cared for in St. Louis by the St. Louis city and county offices of the State
social-security commission, and in the private-family agencies. The current pol-
icy of the social-security commission is to accept applications from nonresident
families on a temporary basis only, pending the return of the family to its legal
residence. This is an administrative regulation of the social-security commission
caused in the main by a long-continuing shortage of sufficient funds for general
relief; it is not a part of the social-security law in Missouri.
Private agencies in the field have no such regulation. They accept nonresident
families according to the needs and problems of the family, and may keep them
in the community or may advise a return to the home community. In this respect
we notice a change that seems to bo taking place in the practice of the private
family agencies toward nonresident families. ITnder former employment condi-
tions a careful analysis of the condition of the family usually indicated that an
adjustment could be made much better with the family returning to their original
home. This was usually advised by the agencies. We note now, however, that
good employment conditions make agencies more optimistic regarding the secur-
ing of employment in St. Louis, and many of them are currently maintaining non-
resident families pending employment. This change illustrates the flexibility of
practice among the private agencies and the facility with which they can adjust
their practices to changed conditions or needs.
NATIONAL DEFENSE MIGRATION 8731
The case loads of the private agencies have changed very little in recent months.
There is a slight upward trend which has continued for several years and reflects
largely the increased service programs of the agencies and an increased number
of cases in that category, with the number of relief cases remaining approximately
the same.
We do, however, note a definite upward trend in applications from nonresident
families. This trend is unmistakable, but a slight one and does not at the present
time seem to be increasing at an alarming rate. Agencies report that these families
apply to them usually for one of three reasons, because they have lost a job re-
cently obtained, because the family needs advice on health matters and steering to
proper medical care, or because tliey desire help in getting a job. These families
have been in town varying lengths of time, some applying after being here only a
few weeks, and some after several months. At the present time the number is too
small to form any definite conclusion regarding this phase of the problem.
Interestingly enough, the agencies also report that a number of families are mov-
ing out of St. Louis to jobs that have been obtained in other cities. Here again
the number is not sufficiently large to enable us to draw a definite conclusion,
but in certain sections of the city there seem to be almost as many moving out
as there are nonresidents appl5'ing for assistance.
The effects of priorities upon employment are just beginning to be felt; a few
scattered cases have been reported by the agencies. One interesting case was
reported in this connection of a man who had lost two jobs because of material
shortages; his own small private business was forced to close, and a job which he
immediately obtained was soon closed out for the same reason.
One of the most serious problems facing the family welfare agencies at the pres-
ent time is that of housing for their families. All report that it is almost impossible
to obtain housing for an evicted family, probably because the landlord prefers
obtaining cash rent from an employed individual to taking a chance with one
receiving relief from either a public or a private agency. Many families are com-
ing to agencies asking steering to available homes. This condition is particularly
acute in those sections of the city where most newly arriving families attempt to
settle, and there are many indications that housing is becoming an acute problem
in all the low-rent sections of the city and county.
The local offices of the State social security commission report a general lessen-
ing of applications for general relief, largely in the employable group, which has
resulted in a considerable shift in the proportion of employables on general
relief. Six months ago from one-third to one-half of the general relief cases were
classed as "employable." At the present time only 15 to 20 percent are so
classed. The September report of the St. Louis City office has the following to
say regarding the current condition of its case loads, a condition which is matched
in the county office.
"There were 61 percent fewer applications received for public assistance in
September 1941 than in September 1940. Applications for old-age assistance
have decreased 68 percent, applications for aid to dependent children have de-
creased 6 percent, and for general relief 71 percent. The decrease in applications
disposed of each month, however, has not been so great because of the large
group of old-age assistance and aid to dependent children applications pending
from previous months. At the beginning of September 1940 there were 3,871
old-age assistance and 1,569 aid to dependent children applications pending.
By September 1941 these numbers had been reduced to 1,808 pending old-age
assistance applications and 356 pending aid to dependent children applications.
"The disposition of large numbers of pending old-age assistance and aid to
dependent children applications during the past year has had the eff'ect of increas-
ing the case loads in these assistance categories. Between September 1940 and
September 1941 the number of cases receiving old-age assistance increased 17.5
percent; the number receiving aid to dependent children increased 25 percent.
At the present time, the number of old-age assistance and aid to dependent
children cases closed each month about equals the number of applications approved
for assistance. Should this trend continue, the old-age assistance and aid to
dependent children case loads in St. Louis will reach stationary amounts soon
after the first of the year, when it is estimated that pending cases will be on a
current basis.
"The general relief case load reflects directly the decline in applications. The
number of general relief recipient cases decreased 30.5 percent between September
1940 and September 1941. Restrictions in funds, following the legislative appro-
priations in July, resulted in the closing of many general relief cases, but these
"forced" closings account for less than one-third of the total closings in the general
relief load. Increased employment and the general bettering of business conditions
8732 ST. LOUTS HEARINGS
are largely responsible for the decline in applications and load. The rate of decrease
per month lias been low, but stc^ady. Jt is still too earlif, however, to predict a con-
tinuation of such decrease over the next few months. The general relief case load
fluctuates widely with chaiiges in economic conditions, and any unfavorable swings in
the business tr(7ids of non dtfcnse industries or any slackening of the defense activity in
St. Louis is sure to be follmred by an irtcrease in a})plicntionsfor relief."^
Apjilications for assistanee by nonresident lon(> men have been showing a con-
sistent and steady decline in past months. This is particularly apparent when the
present period is compared with the same months of last year, and the condition
exists equally in those agencies otlering service and relief to nonresidcTit men and
in the shelters giving temi)orary care. We believe that this is due to the fact
that under present emj)lo3inent conditions in the St. Louis area, any able-bodied
lone man can soon finrl a job sufficiently remunerative to enable him to be self-
supporting. The fact that h^ss tiMuporary care is reciuested would also indicate
that there are fewer such men tra\ cling at the jjresent time. 1"lie only exception
to this downward trend is noted by the local organization for aid to veterans, which
reports a considerable increase in requests bj' tliose veterans who have migrated to
St. Louis and are asking assistance until they receive their first pay check, or are
requesting treatment or hospitalization due to sudden illness or an acute condition i
of a chronic illness.
Ajjplications by nonresident girls and women have increased. The local
Travelers Aid Society reports that they tend to congregate in centers of increasing!
population and in defense areas and also are following the concentrations of service!
men. Travelers Aid also re])orts that they have returned some nonresident]
families to their homes because they failed to secure employment in defense indus-
tries.
We anticipate a continuing increase in applications from nonresident families and^
we think this may well reach serious proportions by the early part of 1942. If oui
previous estimates as to the employment situation and continuing in-migratioi
prove to be accurate, there will be large numV:)ers of rural fainilies coming to thid
area through the winter months, and few of them will secure attractive, if any^
emploj^ment. Such families will attempt to get by on the assistance of frienc"
or to apply to family welfare and relief agencies before they are willing to give uj
and return to their former homes. The fact that the present trend of ajiplicationfi
from nonresidents is steadily upward indicates that the advent of cold weathe^
and the increasing migration will result in a more serious situation.
We also anticipate increasing applications from newly unemployed who are forcec
out of work by material shortages and priorities, and continually increasing
difficulties in securing housing for families in the lower economic levels. This'
latter problem, particularly, will undoubtedly reach serious proportions before
the winter is over. Those organizations or institutions caring for the aged have
felt few if any effects as a result of defense employment or migration. Institu-
tions particularly tend to continue on a fairly even keel, with practically no change
in population levels and none anticipated during the coming winter.
We previously noted in the report of the Social Security Commission the ten-
dency of old-age assistance rolls to level off. This agency also reports that so far
they do not notice any appreciable number of these recipients obtaining defense
employment. Most of them live as members of families rather than as lone
persons, and what few effects have been felt are those felt by the family groups.
We anticipate some slight decrease in old-age-assistance rolls arising through
two circumstances: (1) Those recipients of old-age assistance who possess certain
skills needed in defense industries but have been unable to secure employment in
the past will tend to obtain jobs under the present employment situation. A few
such cases have already been reported, but we doubt if the number will be large,
as there are few skilled workers among the recipients of old age assistance. (2)
Those living as members of families will be indirectly benefited by the improve-
ment of conditions in these families. This group will also l)c small.
Services to children. — This field inchides all of the various children's institutions
in St. Louis and St. Louis County and those public and private agencies dealing
with foster home care for children. We have also included in this group some ob-
servations upon the aid-to-dependent-children program administered by the State
social security commission. (The commission's statement as to the condition of
the caseloads" in this program was included in the previous section.)
The practices of the agencies in this field in regard to applications for care by
nonresidents vary widely. Most of the institutions for children accept children
from outside St. Louis City and County, but such acceptances are on the basis of
' Italics are ours.
NATIONAL DEFENSE MIGRATION 8733
applications from the home area of the child, so that while they might be nonresi-
dents of this area, they are actually not so considered by the institution. The
foster care agencies are not likely to receive or accept applications for placement
of children from nonresident families. Under most circumstances such families
would be referred to family welfare agencies. The Board of Children's Guardians,
a foster home agency financed l)y the city of St. Louis, is limited, of course, to
legal residents of St. Louis. Residence requirements for an aid-to-dependent-
children allowance are set by State statute. The day nurseries in most cases have
no restrictions uiion residence, and accept children from families who have just
arrived in this area if the familj- circumstances seem to merit day nursery care for
the children.
We believe it safe to say that none of the agencies in this field are feeling any
pressures directly chargeable to migration. Many of them are, however, feeling
such pressures as a result of improved employment conditions, largely due to the
fact that many mothers are apparently going to work to supplement family
incomes.
The day nurseries report a steady and rather constant increase in the number of
applications, beginning to be particularly noticeable in the spring of 1941. This
increase in aj^plications reflects directly the tendency for more mothers of young
children to obtain employment. Most of the nurseries are unable to accept the
bulk of these applications, although investigation shows that thej' would under
normal conditions merit day nursery care. The situation is complicated by the
fact that day nurseries in this area were already operating at full capacity and
facilities have not been expanded so far to allow for a like increase in load. Some
expansions are now being planned.
Applications for foster day-care of children are also reported to be increasing,
although slightly. Programs for foster day-care may offer a partial solution to the
day-nursery problem, but they can scarcely be expected to absorb the increased
demand in this field without setting up additional nurser.v facilities. Foster day-
care is still a comparativel.y new method of caring for children and its full possibil-
ities are not yet well known, particularly in the St. Louis area.
We anticipate a continued increase in applications for day-care of children of
working mothers at least as long as the employment situation continues to be
favorable. This tendency toward working mothers may also affect the aid to
dependent children load. Current grants in the city of St. Louis for aid to depend-
ent children average $25.05 per family and $10.54 per child. With employment
conditions what they are, it is easily possible for any woman who has worked
before and has a skill that is currently in demand to earn far more than this in
defense or in general private industry. When income from employment tends to
pass the allowance level, these mothers will prefer to work and place their children
during the day and forfeit their right to aid to dependent children grants. Infor-
mation currently at hand does not indicate that this is yet happening in appreciable
numbers.
We also anticipate an increased need for protective services for children. Such
services are now being rendered almost entirely by the private agencies, but a
recent survey by the United States Children's Bureau recommends that such a
program be set up by the city of St. Louis. There are some evidences that the
demand for such services is already increasing slightly. As more and more chil-
dren unaccustomed to city life are brought into the area, they will be needed still
more. We should note that, in our opinion, the demand up to the present time
represents more an unmet need of the past than increased pressures due to the
defense program.
One direct result of the defense program which is rapidly becoming acute with
child-placing agencies is the shortage of foster homes. Agencies have always had
difficulty in keeping a reserve supply of satisfactorj' foster homes available; under
present conditions, they are not able to keep up with current needs. This is caused
largely by two factors: (1) Families can receive a larger return for the unused
space in their homes by renting rooms to defense workers. This also means less
work and worry for the woman of the house than caring for foster children.
(2) Many women who formerly were willing to take foster children in their homes
now prefer to obtain jobs on the outside. It will be noted that both of these
reasons are more directly connected with the improvement of employment
conditions than they are with migration.
Group work and recreation services. — This field includes the settlement houses and
neighborhood group work centers operated by private agencies, and parks, play-
grounds, and community centers operated by city departments and boards of
education.
8734 ST. LOUIS HEARINGS
In this particular field there are no restrictions as to residence of adults or
chiUlri-n involved. Facilities of the neifj;hl)orhood settlements and tiie municipal
recreation centers and facilities may be used without question by residents and
nonresiilents alike.
So far, pressures upon this group of agencies have changed verj' little from trends
of recent years. We do note, however, slight increasing demands on those pro-
grams operated for the younger age groups. There are indications here that many
mothers are now working and are allowing the agencies to supervise their children
during out-of-school hours. A number of agencies report difTiculty in getting
younger children out of the buildings in the evening, presumably because their
parents are not at home to receive them. It has been the practice to have all
younger children out of the building by 9 p. m. so that programs after that time
could be concentrated on older age groups.
There are also evidences of slightly decreasing demands on those programs oper-
ated for the ujjper teen age and older groups. Members of these groups are many
of them working and have more money tlian they have experienced in the past,
and are more inclined to buy their recreation on the outside. The agencies also
report considerable difficult}' in planning programs that will continue to hold the
interest of these groups.
The division of ])arks and recreation of the city of St. Louis reports steadily
increasing attendance at parks, playgroimds and recreation centers. Pressures
upon recreational centers were exceedingly heavy during the summer season, and
a very heavy program is being planned for the winter season to take care of people
coming in. They report that their athletic leagues are overcrowded with teams
and that they have difficulty in finding enough play space for the leagues which
wish to participate. They have also been asked to provide space for daytime
leagues for groups working night shifts in defense plants.
Pressures on all types of recreational activities are also increasing. Attendance
at the zoo, art museum, parks, and other activities sponsored by municipal organi-
zations or departments has been very heavy all summer and shows a continuing
upward trend. This is particularly true of the various types of commercial recrea-
tion, such as movies, bowling alleys, taverns, and similar establishments. We
believe this reflects not only the increased number of people in the community,
but more directly the increased employment. As employment has increased over
20 percent in the past 18 months, there are also 20 percent more people with pay
checks in their pockets and ready to spend them.
Hospital and health services. — Included in this field of service are all clinics and
hospitals, public and private, and the various health agencies.
Practices of this group concerning care for nonresidents vary according to the
sponsorship of the service. Public clinics and hospitals, both city and county, do
not accept nonresident cases, either in the clinic or hospital, except as emergency
cases.
The privately operated clinics and hospitals also have varying practices on
applications by nonresidents for free care. A few accept them without question.
Some make a policy of not accepting any nonresidents for free care, and others
do not accept them unless they have been in town 6 months or more, with a few
extending the period to 1 year. These practices, of course, do not apply to emer-
gency cases. The practice is usually quite flexible, as most admitting is done
either through a medical social service department of the clinic or ho.spital or
through a regularly established admitting service, and allowances can be made
for any unusual situation by the professional workers on duty there.
Those patients who are able to pay their own way are, of course, accepted with-
out question in any of the private hospitals.
The general trend of visits to clinics is downward, with most of the decrease
being found in public clinics, and a less rapid decrease in the use of private clinics.
This decrease in clinic attendance has been particularly marked since April of 1941.
At the same time, most of the clinics report a slight but general increase in a])pli-
cations from nonresidents. It is our opinion that the decrease in the use of clinics
represents a generally improved financial condition in this group of people, as
with the large increase in employment more of them are able to purchase private
medical care.
Both clinics and hospitals report a general increase in auto and in industrial
accident cases, although no figures are available to show the extent of this. As
employment in the area has increased slightly more than 20 percent in the past
IS months, an increase of 20 percent in industrial accidents could be expected.
It is our opinion, and that of the clinics and hospitals, that the increase is more
than this, probably due to the employment of untrained personnel and possibly
also to a speed-up in industrial operations. Many of the clinics also report a
NATIONAL DEFENSE MIGRATION 8735
general improvement in patients' incomes, which means a general moving up in
the type of hospital care purchased, that is, patients who were formerly in the
"free" class are now moving up to "part pay", and former part-pay patients are
moving up to "full pay". Many clinic patients are also now able to purchase
their own medication and appliances. Clinics also report that some patients have
been able to secure defense jobs after rejection by the draft board and correction
of physical defects.
Perhaps the most serious situation in the health field in this area at the present
time is the matter of hospital facilities for the care of the acute sick. This condi-
tion is directly complicated by the in-migration of over 30,000 additional popula-
tion as a result of defense employment, and will become more serious if this
migration continues as we expect.
A study of the adequacy of hospital facilities for care of the acute sick in the
city and county made last month by the social planning council shows that there
are available in the community a total capacity of 6,266 beds. With our esti-
mated population of 1,130,000, we have a present rate of 5.5 beds per thousand
persons, compared to an accepted rate for industrial urban centers of 5 per
thousand.
St. Louis, however, is known as a medical center, and its hospital facilities serve
an area much wider than the city and county. Any measure of adequacy must
take this factor into account. The study shows that during the first 8 months of
1941 only 80 percent of the days' care were rendered to residents of the city and
county, a condition which has continued for many years. If the bed capacity is
discounted to this extent, we obtain an actual rate of 4.5 beds per thousand, and
have the following picture of facilities actually available to residents:
Beds necessary (at rate of 5 per 1,000) 5, 650
Beds available (80 percent of 6,266) 5, 040
Existing deficit - 610
At the present time, then, St. Louis city and county have an actual deficit of
610 beds. Some additions are planned in the next few months, but we also esti-
mate, as pointed out in previous sections of this statement, that the population of
this area will increase by an additional 40,000 by the end of 1942 due to additional
migration into the area. If this occurs, we will then have a deficit of approxi-
mately 775 beds.
It is also generally agreed by hospital authorities that a further test of the
adequacy of hospital facilities of a given community is the extent to which they
are used. The above-mentioned study further shows that during the first 6
months of 1941 the average occupancy in 20 private hospitals with a bed capacity
of 3,734 was 80 percent. The two major public hospitals, St. Louis City for
white persons, and Homer G. Phillips for Negroes, show occupancies respectively
of 84 and 82 percent.
The American Medical Association estimates that the optimal rate of occu-
pancy in general hospitals approximates 75 to 85 percent. It is clear from this
that St. Louis facilities, with occupancies of 80 percent in private hospitals and
84 and 82 percent in the two major public hospitals, the two groups representing
85 percent of the local capacity, are well within the danger zone.
Another indication of the crowded facilities is the fact that the hospitals are
actually turning away patients because of lack of room. One large hospital with
an average occupancy of 87 percent for the first 6 months of this year, reports
that it has actually turned away over 400 persons since the first of the year, in
addition to keeping a large waiting list. The increasing population and the fact
that more money is available with which to purchase hospital care is rapidly
making the situation more acute.
The real danger in this situation, of course, lies in the fact that there is little
current reserve available for use in case of emergencies. There are no available
beds in the general hospitals; approximately 100 beds are available in the municipal
isolation hospital, and approximately 250 beds in the industrial hospitals could be
made available for general use in case of a serious epidemic or disaster.
The hospital and health division of the Social Planning Council, with the full
cooperation of the Medical Association and other interested groups in the city, is
currently at work on this situation. The facilities of the community could be
expanded considerably if funds were available for the purchase of equipment
necessary to open up unequipped wings or sections in existing hospitals. It
does not seem necessary at the present time that additional buildings be con-
structed. The margin is so slight, however, that the entire picture may change
almost overnight.
60396— 42— pt. 23 4
^730 ^'^- I-<^>L'IS HEARINGS
City ami county health olhcials r('i)ort that thcro is real danger of serious
epidemic or disease during tlie cominn winter. Indications an; that this scictiou
of the country is due for a reoccurrence of the pericnlic tin epidemics. Then; are
also many danjiers inherent in the fact that large numbers of unvaccinated and
unacelimated families have moved into the area and are being crowded into
substandard housing.
There are also real dangers in the lack of projjer sanitation and sewage facilities,
particularly in certain sections of St. Louis County. Facilities there have long
ai)proached inadecpiacy, and are not built to accommodate the jiopulation increases
that are coming in certain areas. Many trailer camjjs and emergency housing
locations are si)riiiging up in unincorporated and unserved sections.
Another comjilication of the defense j)rogram and the shifting population is
found in the fields of food insi)ection and similar health measures in certain defense
areas. Unlicensed boarding houses in former jirivate homes, restaurants estab-
lished overnight in tents in defense areas, and similar conditions are ta.xing the
inspection facilities of municijml authorities to the utmost.
Municipal and county health authorities are, however, fully aware of the.se
dangers and arc taking all i)ossible steps to meet them. These conditions
will undoubtedly be reported to the committee in greater detail bj' the health
authorities.
THE POSTEMEEGENCY PERIOD
In the preceding sections, we have given the practices regarding nonresidents
in the various fields, and the conditions as we find them now, together with the
developments likely to result from the defense program. These statements have
been based on the assumption that the local aspects of the program will continue
with little change in size or character through 1942.
There is also the question, however, of what will happen if and when the defense
program is terminated, particularly as this will concern those individuals and
families requiring some form of assistance through some part of the health and
welfare structure. While this is a very difficult question to answer, because
obvioush' so much depends upon the timing of the termination, it is not one that
can be ignored.
We have pointed out the practices regarding nonresidents in the various fields.
In general, these take two forms: (1) Restrictions of the public agencies are in
most cases set by statute, although some have been added b}- administrative
regulation because of lack of funds, (2) private agencies show little discrimination
regarding nonresidents, and what practices are in effect are flexitjle and can
quickly be changed when the need arises.
The field of principal interest in considering the postemergency period is that of
family welfare and general relief. The public agency operating in this field, the
Social Security Commission of Missouri, has no legal limitations upon the granting
of relief to nonresidents. The current regulation which limits such relief to
emergency cases pending their return to legal residence is administrative only,
and was probabl}- caused by the extreme shortage of funds for general relief. If
additional funds were made available either by State appropriation or by Federal
grant, there would be no reason why tliis regulation could not be immediately
lifted, and full provision made for general relief to nonresident families and
individuals. The private agencies, which carrj' a comparatively small portion
of the general relief load of the community, have always been extremely flexible
in their regulations regarding care for nonresidents, and what regulations have
been in effect have in most cases also been dictated by a shortage of funds.
The seriousness of the i)ostemergency period for nonresident families and
individuals will depend upon when the emergency period ends. The St. Louis
area is extremely diversified in its industrial production, and with a normal
tapering off of defense orders and emergency production, could probably absorb
a reasonable number of defense employees. However, if the emcrgencj- period
should end soon, let us say within the next year, the situation will be extremely
bad. There will be large numbers of families and individuals in the city, many
of them unemployed or in groui)s most likely to be laid off innnediately, who will
not yet have established any kind of residence which would make them eligible
for relief or assistance. Migration would also still be gohig on, and transfers
between cities and between rural and urban sections would still be in i)rogrcss.
If, however, the emergency jx-riod should continue until 1943 or 1944, we do not
believe the effects would be quite so bad. Migrating grouj^s would then have
become more or less established in some connuunity, and the problem would be
the expected one of readjustment from defense production to normal peacetime
production. This problem in itself would he bad enough, but, as we see it in this
NATIONAL DEFENSE MIGRATION 8737
area, it is not likely to involve the additional question of nonresidence of large
groups.
So far as general relief and assistance in St. Louis is concerned, it will not require
any revision of local or State laws to make full benefits of the local programs avail-
able to nonresidents. Some uniform jjolicy between States would be of decided
advantage in adjusting interstate difficulties, difficulties which are already well
known to this committee. It is entirely possible that if the problem is anything
like as large as we all expect it to be, that Federal assistance in general relief for
both transients and resident employable persons will be needed, the amount of
assistance depending upon when and under what circumstances the emergency
period ends.
The legislative committee of thv Social Planning Council is already on record as
approving Federal matching of State funds for general relief to transients and
employables, provided these funds are administered by the same State agency
administering the balance of the general relief program.
As this problem of postemergency adjustment appears to us now, it is largely
one of early recognition, careful planning and organization, and sufficient funds.
The timing and speed of the readjustment which is sure to come will determine to
a large extent the seriousness of the problem.
THE EFFECT OF INCREASING PRICES AND PERSONNEL SHORTAGES
So far in this section we have been discussing needs of the families and individ-
uals and the caseloads of service agencies as they are affected by the defense pro-
gram. There are, however, two administrative problems which should be men-
tioned here, namely, increasing prices, principally on food, and the difficulties
of holding agency personnel. While not directly connected with migration, these
factors do condition the ability of the agencies to meet the demands made upon
them, and we believe are of interest to this committee.
Retail food prices in the St. Louis area have increased approximately 18 percent
in the past year. The Bureau of Labor Statistics index was 97 in September of
1940, and 114.6 in September of 1941. This increase has had two direct effects
upon the ability of agencies to meet demands. Institutional agencies, a large
part of w'hose expenditures are for food, have had these expenditures increased
accordingly, while their budgets, regardless of whether they come from public
funds, from the community chest, or are raised by the agency, have not been
increased proportionately to allow for it.
Those agencies granting direct assistance to individuals or families find them-
selves in a comparable situation. Figures compiled by the home economist and
dietitian employed by a grouj) of local family agencies indicate that the cost of
those foods used by families on relief has increased even more than the general
retail price index. The Bureau of Labor Statistics increase was 18 percent;
there was a comparable increase of 25 percent in relief food. Approximately 85
percent of the general relief grant to families is customarily expended for food,
so that a 25-percent increase in the cost of food would mean that the same grant
would purchase 20 percent less food. As most of the agencies have been unable
to increase their grants to families, and none of them have been able to increase
grants by a sufficient amount to balance the increased food cost, this price rise
has been borne to a large extent by the families on relief, in the form of decreased
food consumption.
Other prices in the St. Louis area, particularly those for fuel and clothing, have
also increased, but none so much as that of retail food.
There is a serious shortage of proper personnel in many of the agencies. This is
most serious in the hospitals, where large lumibers of nurses and other hospital
employees have gone into Army and Navy service. A Government grant has
been made to local nursing schools to provide for additional faculty and scholar-
.ships for the training of additional nurses. The full effects of this program,
however, will not be felt for almost 3 years. Under Red Cross auspices, a train-
ing program for emergency nurses is now being set up which will provide a short-
time course for practical nurses. Many former nurses now married arc also re-
turning to work, but most of these are already on the job, so that little further
improvement can be expected from this source. Here also the situation is similar
to that pointed out in our previous discussion of hospital facilities, that is, the
present situation is fairly well in hand, but the community possesses no reserve for
use in case of emergency.
Group work and recreation agencies have also felt the personnel shortage
through the loss of large numbers of their volunteer workers to the armed forces.
This type of work normallj' attracts the young, single man, who, of course, has
g738 ST. LOUIS HEARLNGS
been the first to enlist or the first to be drafted. This shortape was first felt last
6j)rinfi when the rocruitiiig of eiiinp counsellors for the summer camp program was
started, and has since become acute in the winter programs of many agencies.
lOmergency recruiting and training programs are being set up in the city to help
alleviate this shortage.
Many of the agencies have also lost much of (heir professional personnel to more
attractive positions in the defense set-up, and similar losses have occurred in
clerical personnel. Welfare positions are as a rule rather poorly paid, so that
present employment opportunities with their increasing salaries have attracted a
large number of agencj^ employees.
SOCIAL DETERIORATION OF AREAS AS A RESULT OF THE LOCATION OF PROJECTS
UNDER THE NATIONAL-DEFENSE PROGRAM
We should also like to bring to the attention of this committee another condi-
tion resulting from the backwash of the national-defense program, a condition
not often considered in an analysis of that program. This refers to the social
deterioration of certain geographical areas of the community as a result of the
location in or near them of defense projects. We can best illustrate this by
describing these results in relation to two areas, one in St. Louis City and one in
St. Louis County.
The first is the area northwest of the small-arms ammunition plant of the
United States Ordnance Department, located at Goodfellow and Bircher Boule-
vards. Construction on this plant is not complete, but the result of its location
is already apparent. As first planned, the plant occupied a tract of approximately
125 acres divided by Goodfellow Boulevard, all of the tract being zoned for in-
dustrial use. Later expansions have enlarged it to include an adjacent city park,
a tract owned by the board of education and held for a new high school, and ap-
proximately 20 adjacent city blocks already in use for residence purposes. Taking
over the residence area entailed the condemnation and WTecking of approximately
50 dwellings, man}- of which had just been completed. The total area of the plant
is now over 280 acres.
A description of the residence area Ij'ing immediately north and west of this
plant, most of it in St. Louis City, extending into the eastern portion of St. Louis
County, will serve to illustrate our point. Prior to the advent of the small arms
plant, this section ranked higher than the city average in proportion of land de-
voted to residential and industrial uses. All social indicators stamped it as a
solid, middle-class, residential section, bordering on industrial sections. Eighty-
six percent of the horiies in the area were one-family dwellings, and 62 percent
were owner-occupied. This compared to home ownership in St. Louis City
proper of only 31 percent. Many of these dwellings were frame, and many had
been constructed or improved by the owners themselves, who had lived there
for many years. Sixty-eight percent of the residents owned cars, compared to a
city figure of 50 percent. Fortj-nine percent had telephones, compared to a city
figure of 35 percent. The area was lower than the city figures on practically all
health rates.
Most of the residents are factory workers or white-collar workers within the
lower salary brackets. Families tend to run in general larger than the city aver-
age, and most of the section had the character of a middle-class neighborhood,
w^ell established, with a deal of pride in homes, gardens, and lawns. Certain sec-
tions, particularly those bordering on St. Louis County, were recently developed
as subdivisions with single-family homes selling at four to six thousand dollars.
Many of these new homes were taken over with the expansion of the small-arms
plant.
A short drive through the area will show what has happened to it. The estab-
lishment of this 280-acre plant, said to be the largest in the world, has made a
complete change in the character of the area. Aside from those residents who
were forced to move by the condemnation of their homes, many others have left
because of the dirt and turmoil of the plant construction. Many homes have
been turned into boarding houses and rooming houses. Front lawns that were
formerly well-kept and were the pride of the owners are now used for parking
lots. Ornamental fences have been torn down, and lawn decorations destroyed.
Tent restaurants, taverns, and cheap business enterprises are on practically every
corner. In short, the area now- has the character t)f a typical blighted residence
area in a factory section.
As a second example, we point out the conditions in the nort Invest section of
the county, in and surrounding the city of Ferguson. The situation here is
similar, but the community differs from that around the small arms plant. Fergu-
son lies at the center of a large triangle, with the small arms plant on one side,
NATIONAL DEFENSE MIGRATION 8739
the new turret plant of the Emerson Electric Co. on another, and the municipal
airport, including the new plants of Curtiss- Wright Corporation and the
McDonnell Aircraft Corporation on the third.
Ferguson is one of the oldest communities in St. Louis County. It is a well-
established, suburban city, with 5,700 inhabitants in April 1940. It lies about
5 miles out from the city limits, separated by an intervening strip of semi-rural
land. Ninety-seven and a half percent of the homes are one-family dwellings,
one of the highest figures for any city of the county, and 72 percent are owner-
occupied. Ferguson also is a community of families larger than the average.
It was typical of the older, well-established, suburban communities, of which there
are several around St. Louis.
The picture is now completely changed. The population has increased by an
estimated 1 ,000, and several thousand additional persons have moved into the
areas immediately surrounding the cit3^ Housing is extremely congested, and
former residences are being expanded into multi-family dwellings. Trailer
camps of 10 to 200 trailers have sprung up in surrounding unincorporated and
uncontrolled territories. Sewage facilities are over taxed, and the health hazards
in nearby areas are probably the worst in St. Louis County. A great number of
women are working without adequate protection and care for their children.
There are evidences of organized and commercialized prostitution.
This community, in addition to the problems of .social deterioration due to an
influx of new people and new conditions, is now faced with the problem of com-
munity planning and organization on a scale never before known to them.
As early as June of 1941, these problems were recognized in Ferguson, and com-
munity leadership was brought to bear upon them. Mass recreation has already
been instituted, and other committees are being started to deal with problems
of health, welfare, education, and similar ones.
It is possible that the community was frightened and over anxious in its first
recognition of these new problems, but, if so, this over anxiety was beneficial in
that it resulted in quicker organization of community forces to meet them.
We have presented here the direct effects of the defense projects upon two
different types of communities, one a section of the city and the other a suburban
community. We do not present these in any sense of criticism of the choice
of location for these projects, as we recognize that the immediate needs of the
defense program may over shadow the possible elfects of that program. We do
wish, however, to bring these effects before the committee, so that the social
results in terms of community deterioration can be recognized. The blighting
effects upon these and other similar communities will be felt long after the emer-
gency has been passed.
Exhibit A.^ — Defense Housing Needs in St. Louis County
report by e. g. steger, director, social planning council of st. louis and
st. louis county, st. louis, mo.
Housing needs. — In our previous statement to this committee, we emphasized
in several sections the serious housing situation both in St. Louis City and St.
Louis County and the health hazards in several sections of the county as a result
of the large number of families living in trailers and other emergency housing.
Since the completion of our main statement, additional information regarding
these conditions has become available; information which we believe will be of
value to this committee, and which may aid in the solution of the problem.
At least 700 families in St. Louis County are now living in emergency housing. —
This is the estimate of health authorities who have the job of inspecting trailer
camps and tourist camps. Approximately 500 of these families are living in
trailers. The largest camp in the county, which has received a great deal of
publicity, has approximately 125 trailers; this formerly was a picnic grove which
has been turned into a trailer camp. The second largest camp accommodates
from 75 to 100 trailers and the next largest from 50 to 60. There are also 5 or 6
other "legitimate" camps furnishing trailer facilities. In addition, there are an
estimated 200 trailer camps scattered throughout the county, in unlicensed and
more or less uncontrolled locations. Many of these are in groups of two or three,
located in back yards and similar places where they purchased facilities from the
home owner.
Obviously this is an exceedingly difficult situation to control. Many of the
smaller communities in the county have been forced to pass restrictive legislation
to keep the small camps from springing up in the community. In one city a
group of six or eight trailers immediately across the street from the business
3740 ^1' Lons hearinc.s
district, was forcod to move through legal i)roceedings b(!Cau«e of lack of proper
sanilation. Such camps offer many health hazards and are potential sources of
epidemics and disease.
We also wish to call to the committee's attention the effect of such living con-
ditions on the families involved. Practically all of these trailers are owner-oo-
cu]iied; nevertheless the location is at the whim of the landlord and they may
he forced to move on short notice. Many of these trailer families have children,
and, while trailers have been tremendously improved in recent years, we submit
that they are a very unsatisfactory e(|uii)ment for home life.
Many of the tourist camps in St. Louis County have also been turned into
])ermanent residences for d(>fense workers. Health authorities estimate that ap-
proximately 200 units of housing are so occu])ied at the present time. While
health and sanitary controls of tourist camps are much more easily administered
than tho.se of trailer cam])s, the hazards are still great. The families also have
an even more insecure tenure than those in trailer cam])s, for while these trailer-
camp occupants at least own their own trailers, tourist-camp occupants have
nothing to hold them to the snot.
In addition to the 700 families in St. Louis County, there are many others in
emcrqcnc]! housing in other portions of metropolitan St. Louis. — The Farm Security
Administration recently established a Government-operated trailer camp with
approximately 50 units in the outskirts of Wentzville, St. Charles County, next
to the Weldon S}:)rings TNT plant. Other privately operated groups are located
in the outskirts of St. Charles and similar ones on the east side. We estimate
that approximately 1,000 families are living in emergency housing in the metro-
politan areas of St. Louis.
Coo])erative housing may offer the sohition to this situation, with decided ad-
vantages to the Government in the cost of defense housing, many advantages to
the defense workers in terms of morale and home tenure, and with possil)ilities
for a more stable housing situation in the emergency ])eriod. Charles F. Palmer,
Federal Coordinator of Defense Housing, on November 14, announced that
a cooperative housing ])lan was available for defense workers; that groups of
such workers could organize and apply at the Federal Housing Administration
for mortgage insurance under Defense Housing Title VI, which permits insur-
ance up to 90 percent of the appraised value of the home. We understand that
a revolving fund is contemplated which would assist cooperative groups in
setting up such housing develoi^ments.
St. Louis County is ideally located for such a project. As pointed out in our
previous statement, many large projects, including the small arms plant, Emerson
Electric, Curtiss- Wright airplane plant, and others not so large are located in
the northwest section of the city-county area. Immediately' across the Missouri
River from the north section of the county is the Weldon Springs TNT plant,
directly accessible to the new superhighway into St. Louis County. A recent
check made at the TNT plant, when workers were going off duty, shows that 9
out of every 10 cars turn toward St. Louis County. These and other factors
make St. Louis County the logical location for a defense housing program.
Cooperative housing rather than direct Gov(!rnment control of defense homes
would save the Government millions of dollars of defense housing expenditures
and would meet a definite need not now met by any of the current programs.
It would offer quick relief from the ])ressure of inadequate housing in this area
and would hold temporary housing to a minimum. Adequate housing would
serve as a protection against labor discontent and undue labor turn-over in
defense industries.
It seems to us that a cooperative housing plan also offers additional advantages
to the defense worker and his family. It would keep morale of industrial workers
in defense plants at a high level and would offer the following among other
advantages:
(1) It would give the individual defense worker a chance of participating in
the building of his own home.
(2) It would safeguard the equity of the individual worker and his family and
would safeguard the security of home tenure.
(3) It would reduce construction cost through mass purchasing and po-ssibly
prefabrication, and through elimination of undue speculative profits of private
operators.
(4) It would make housing available to industrial workers on a sound basis
and within the ability of the worker to pay and at the same time improve housing
standards.
Such a plan tcould also have stabilizing advantages for both the community and
the individual during the post-emergency period. — As against a Government-owned
and operated project, a cooperative plan would offset some of the dangers of
large-scale Government operation of housing during the readjustments of the
NATIONAL DEFENSE IMIORATTON 8741
post-emergency period. As against privately financed and controlled housing,
such a plan would enable the individual to have a home within his at)ility to pay
and with his equity protected by his cooperative group instead of through his
own efforts as an individual owner.
If such a project were set up in a semirural section, with two or three acres of
land for each home there would also be a definite subsistence value during this
period. The owner, from his own land, would be able to meet part of his own
family's needs during a possible period of unemployment. Such a subsistence
homestead would also have the advantage of resale to old-age pensioners, recip-
ients of old-age and survivors insurance, and retired workers who could supple-
ment their cash income by the products from their own plot of ground and would
probablj' be enabled to live without additional supplementation.
STATEMENT BY F. J. JEFFREY, ASSISTANT SUPERINTENDENT, ST.
LOUIS PUBLIC SCHOOLS, ST LOUIS, MO.
REPORT OF THE NATIONAL DEFENSE TRAINING PROGRAM, ST. LOtJIS PUBLIC SCHOOLS
This report is made at the request of Mr. Jack B. Burke, field investigator.
House Committee on Defense Migration, on the points suggested in his letter of
October 31, 194L
(1) "General organization of the St. Louis National Defense Training Program."
An organization chart of the national defense training program is attached.'
(2) "Total placements of trainees, etc." The school's report on placements
to October 1, broken down into various areas of training, is attached. This
report is based on, (a) placements made by the school upon employer requests,
(6) reports of trainees to the school, and (c) upon reports from employers to the
school.
(3) "The working arrangements between your office and the Missouri State
Employment Service." The schools and the employment service cooperate
fully to the extent of the facilities of each. A "consultant" from the Missouri
State Employment Service attends all meetings of the school's advisory com-
mittees, and the Missouri State Employment Service and the school are repre-
sented on the "Council of Administrators" as required by the State department
for vocational education.
(a) In accord with the regulations issued by the United States Office of Edu-
cation, requisitions for enrollees are made \)y the school on the Missouri State
Employment Service for the pre-emploj'ment courses. It has been found neces-
sary to supplement these requisitions by enrollments at the school, with subse-
quent registration with the emploj^ment service.
(6) Enrollments in supplementary courses for upgrading men employed in de-
fense industries are made at the school through the advice and assistance of
employers and laljor organizations.
(c) The defense program reports to the employment service on the evaluation
of each trainee completing a pre-employment course.
(d) The defense program reports to the employment service all placements
from pre-emplo3'ment courses made by the school from requests of emjiloyers and
also reports to the employment service self-placement of individual students who
send this information to the teachers.
The employment service makes no report of placements to the defense program
office. Therefore, our records of placements are made solely from reports re-
ceived from the trainees by our follow-up system and from reports by employers
direct to the school.
(e) By direction of official circulars from the office of education, the Missouri
State Employment service is to furnish the school information concerning the
areas of training needs and the number of trainees required on calendar dates.
Only one such report has been received from the employment service in the 18
months of our program, and that report contained no information of use to the
school.
(4) "The relationship between your office and the Office of Production Man-
agement training-within-industry program." The training-within-industry pro-
gram has supplied the school with information leading to the introduction of new
classes in both supplementary and pre-employment training. Each of such classes
gives direct contact between the school and a specific defense industry. Plans
have been considered and are now ready to be put into operation for the training
of instructors for the training-within-industry program.
(5) "The need for instructors in the program." At the inauguration of defense
training in both pre-employment and supplementary classes, competent teachers
> See p. 8743.
8742 ST. LOUIS HEAR1^•GS
from the school force were available and competent mechanics could be found to
supplement the school force, on either full or part-time basis. All men taken from
industry were given teacher-training courses in service and supervised by the
trained teachers from technical high school. It has been increasingly difTicult to
obtain properly qualified men from industry to augment our teacher force or to
fill vacancies left l)y resignations.
(6) "Your opinion of the relationship between management, the Missouri State
Employment Service, and your office, in.sofar as employment statistics are con-
cerned." This topic has been largely covered in No. 3. Our experience has been
that the employment service has not reported to the school employment statistics
upon which either preemployment or supplementar\' courses of tiaining could be
based. This has not had a detrimental effect on the program as the technical
schools have for j^cars maintained close connections with employers' associations,
labor unions, and individual employers. The schools' connection with industry
has made possible preemployment training under national defense with a highly
satisfactory rate of placement. Supplementary classes, which far outnumber the
preemployment in registrations, are set up from information furnished by industry
to the schools' coordinators and heads of departments.
(7) "The above suggestions are not intended to limit the extent or scope of your
paper."
(a) The introduction in September of this year of a State and local "Council of
Administrators" consisting of one representative each of the school, the National
Youth Administration, and the employment service has in no way been helpful to
the national defense training program and has been detrimental in that it has
hampered the usefulness of our local "advisory committees."
(b) The St. Louis public schools are greatly encouraged in the conduct of the
national defense training program by the increasing support obtained from em-
ployers and labor organizations, especially for the supplementary program for
employed men. We are further encouraged by the prospects of having some part
to play in the training-within-industry program which can produce operators on
the machines and with the materials required in defense industries.
(c) We are further encouraged by the great increase in interest expressed by
employers and labor organizations in the development of apprenticeship programs.
During the past year the school has doubled the number enrolled as apprentices
with either an employer or a joint apprenticeship committee of industry and labor.
This increase is largely due to the cooperation between the school and the United
States Department of Labor Apprenticeship Bureau.
To: F. J. Jeffrey, Assistant Superintendent.
From: Alex M. Robson.
Subject: Report on Jack B. Burke's letter asking for (a) organization chart,
(h) placement record.
Date: November 17, 1941.
Part I: Organization chart is attached.
Part II: (a) Total placement record of trainees from July 24, 1940, to October
1, 1941:
1. National defense training program in St. Louis, Mo 1, 012
2. Regular day trade training Hadley Tech High 768
Total 1,780
Part II: (b) A break-dowm of the various types of training given: Welding,
gas and arc; machine shop; aircraft sheet metal; auto mechanics; electrical (U. S.
Navy); inspection (Army ordnance); aircraft wood forming; aircraft lay-out.
Trade training ofTered by the St. Louis board of education (September
1940 to October 1941):
(a) Total evening trade extension 1, 566
(b) Total day part-time trade extension 252
Total 1,818
Enrollment of trainees in all training given by the St. Louis board of edu-
cation (as of Oct. 1, 1941):
National defense training program 1, 052
Smith-Hughes trade extension 1, 818
Occupational trade training (above ninth grade at Hadley Tech) — 1, 678
Occupational trade training (above ninth grade at Washington Tech). 250
Evening school adult education for supplementary training 6, 800
Total 11,598
NATIONAL DEFENSE MIGRATION
8743
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8744 ST. LOUIS HEARINGS
Exhibit A. — Negro Enrollment in the National Defense Training]
Program of St. Louis, Mo.
November 28, 1941.
Col. Harry 1). McliuinE,
Director, Office of Civilinn Defense,
City Hall, St. Louis, Mo.
Mv Dear Colonel McHride: The following .supplementary report is sub-
initted in answer to a statement made by a representtaive of the St. Louis Urban
League at the hearing before the House Committee on National Defense Migra-
tion on November 20. This statement was to the effect that the national defense
training program in St. Louis did not enroll colored men for jjreemployment
training in i)rf)portion to enrollment of white men.
In answtT the following report of enrollment for the month of September and
October 1941 in civilian prcemployment courses is submitted:
Preemployment civilian enrollees, National Defense Training
■program.
»S7. Louis
September
October
Hadley Technical High School (white)
229
88
274
Washington Technical High School (colored).
79
Total -. -
317
27J-!o
353
Percentage of colored enrollees..
22Mo
It should be noted that the percent of colored in the enrollment for preemploy-
ment training classes is much larger than the percent of colored population in
this city.
Additional classes under the national defense training program are carried on
at the Hadley Technical High School for the white in the training of enlisted men
from the United States Naval Reserve, and the St. Louis program would be
pleased to include a similar course for the colored if the Navy so requested.
Other classes are carried on at the Hadley Technical High School for white,
under the national defense training program for supplementary instruction to
up-grade men employed in defense industries, and at the present time none for
the colored. The St. Louis schools will provide supplementary training classes
for colored whenever the defense employers in this region employ colored
mechanics.
Respectfully yours,
F. J. Jeffrey,
Assistant Superintendent.
STATEMENT BY LUTHER M. SLINKARD, SECRETARY, ST. LOUIS
INDUSTRIAL UNION COUNCIL, CONGRESS OF INDUSTRIAL
ORGANIZATIONS, ST. LOUIS, MO.
The issue of paramount importance today in the St. Louis area is no different
from the general situation confronting other industrial centers throughout the
United States, namely: Is it the intent and purpose of admhiistrators of the Federal
Government, particularly the Office of Production Management, to see that the
available local labor supply is definitely made an integral part of the national-
defense program in that locality, with certain basic assurances of protection, as
set forth in the statement of Office of Production Management labor policy
announced September 17, 1941?
If olitaining the maximum production of essential materials and equipment
within the shortest period of time is the fundamental problem confronting our
Nation today, is it to be expected that the fullest attainment can be acquired
merely by awaiting the voluntary cooperation of that portion of industry and
management who are rendering very little, if any, actual support to such objective
policies of the national-defense program?
Certai ily, if maximum results are accomplished without further delay, it will
definitely recpiire not only the fullest utilization of the available local labor
supply, but will likewise mean that aU available plant space, equipment, and
NATIONAL DEFENSE MIGRATION 8745
facilities must also be made a component part of this undertaking. Every
indication shows that in numerous cases management is still pursuing the policy
of "business as usual" and the most abusive of such hang-over practices is the
fact that certain defense contractors are stimulating in-migration of labor by
needless advertising for outside workers, despite the fact that all reports indicate
a sufficient supply of qualified resident workers, many of whom are already being
deprived of their regular employment by priority orders.
Organized labor has more reason than any other element in the population to
be concerned with the fullest use of its productive capacity', both for defense and
for the manufacture of essential consumers' goods. Experience has shown that
labor suffers first ajid most from lay-offs and from higher prices caused by short-
ages, and it has most to lose from any failure to defend our democracy. Therefore,
the fundamental problem which must receive the attention of industry, labor, and
government is to utilize the local labor supply affected by priorities unemploy-
ment in the defense program, where every such individual can make his contribu-
tion to victory in the battle of production.
The record will show that to the best of its ability organized labor has in the
past, and will in the future, render every possible support to the present einergency
program; however, hasn't it become quite obvious that affirmative action must
be taken so as to bring into alinement that portion of industry, primarily defense
contractors who have not as yet demonstrated their willingness to render full
cooperation, by adopting a policy to give first preference to the available local
labor supply?
As an observation in behalf of the Congress of Industrial Organizations in the
State of Missouri, and particularly in the St. Louis area, might I emphasize that
we firmly believe that industry holding defense contracts, both prime and sub,
should be required, not requested, to operate along the objective lines of giving
preference to the available local labor supply in every instance where either a
plant expansion program or a new plant is being utilized for defense production.
It is likewise our very definite contention that all defense contractors should be
required to procure their additional labor requirements through an authorized
local labor agency, such as the appropriate branch office of the Missouri State
Employment Office. Let me point out that both the Missouri State Industrial
Union Council and the St. Louis Industrial Union Council, central bodies of the
Congress of Industrial Organizations have by appropriate resolutions instructed
all component local unions to cooperate fully with the Missouri State Employ-
ment Service by participation in a complete registration program whereby aU
members, their respective skills and complete work experience record will be made
available.
Such procedure will result in the Federal-State Employment Service being pro-
vided with a complete listing and classification of the local labor supply, a sub-
stantial portion having already been deprived of their regular employment and
with every indication that an additional percentage will likewise be affected by
further priority curtailment during the coming winter months.
In-migration in the St. Louis area, with its attendant social problems, has
reached an alarming stage alreadj^ and will become much more serious when the
large defense plants actually get into production, imless some reasonable measures
of safeguard are applied. It is obvious that too much stimulation and encourage-
ment is being given to outside labor because of uncontrolled and unwarranted
advertising, gate hiring, and scouting beyond the commuting distance.
Those defense employers who advertise for tool and die makers or other similar
skills are pursuing an absurd practice because they simply gamble on getting such
mechanics to respond, and it serves to create the impression that St. Louis firms
must go outside of the community for the necessary labor. In fact the result is
that following every such burst of needless advertising there is an influx of all
types of workers, few of whom can be utilized, due to the lack of essential skil's,
and those who were hired have probably deprived a qualified resident worker of a
job to w^hich he is entitled.
The St. Louis Industrial LTnjon Council is, indeed, vitally concerned about the
evils of in-migration of labor since such practices tend to inflict additional and
unnecessary hardships on the members of our organization who are affected by
actual or anticipated priorities unemployment.
The present total membership represented by our organization is approxi-
mately 55,000, and includes a great variety of skilled, semiskilled and unskilled
workers who normally are employed as production or assembly operators in the
following general categories of mass-production employment:
8746 ST. LOUIS HKARINGS
CoNORKss OF Industrial Organizations Affiliates and Type op Industry
Represented
Anialgatnatcd Clothing Workers, manufacture and alterations of men's and
boys' wearing apparel.
United Automobile Workers, assembly of passenger automobiles and com-
mercial trucks.
United Construction Workers, construction and repairing of residential and
commercial buildings.
Electrical and Radio Workers, assembly of various electrical appliances for
home and commercial use.
Flat Glass Workers, manufacture of products used in assembly of passenger
automobiles, etc.
Leather and Luggage Workers, manufacture of varied items used for general
public consumption.
United Mine Workers, District No. 50 (involving several groups): (1) Genera,
maintenance and service occupations in connection with public utilities; (2/
manufacture and processing of drugs, cosmetics, and other related items for
consumer and commercial use; (3) manufacture of chemicals, pigment, and other
related items for both commercial and consumer use.
Retail and Wholesale Employees, manufacture, processing, storage and dis-
tribution of various essential commodities necessary for both consumer and
commercial uses.
United Shoe Workers, varied line of occupations in connection with the manu-
facture of products for all general uses.
Steel Workers Organizing Committee, production of boxcars, streetcars,
commercial auto bodies, and a wide variety of machine-shop work, including
processing of steel; also a diversified line of steel fabrication products, all of which
are used extensively by both the consumer and commercial buyer.
Textile Workers Organizing Committee, manufacture or processing of a varied
line of products utilized by other industries and for general public consumption.
Note. — This listing is merely a brief sketch of a portion of the industries and
occupations represented by the Congress of Industrial Organizations, through
the St. Louis Industrial Union Council, and is not intended to present a complete
analysis of such pertinent data.
Particular attention is directed to the fact that priority orders have already
had a definite effect on consumer production in the automotive, electrical appli-
ance, and steel fabrication industries and since the Congress of Industral Organi-|
zations in St. Louis represents a substantial portion of the total number of work-
ers engaged in such occupations, it should be readily understood that our organi-
zation is vitally concerned in having their skill, ability, and service made a part of
the local defense production program.
Additional priority orders in the future are likely to affect other basic industries,
such as clothing, chemicals, glass, retail and w^holesale, warehouse, shoe, and
textile.
Even though an industry is fortunate enough to obtain the essential materials
required to continue in regular production, there is no doubt that the curtailment
of production in certain other industries will tend to decrease the demand for
consumer products, since decreased earning power is definitely reflected in the
output of other industries within the community.
priority rights
All resident workers deprived of their regular employment by reason of priority
orders and those w'ho are subject to further priority curtailment should receive
priority rights on any defense job in the locality in accordance with the following
procedure:
(1) Those workers, who b.y their past work experience, are qualified to handle
a defense job, should be referred and hired immediatelj^
(2) Those W'Orkers who lack certain essential skills should be referred to the
national defense training program for a period of supplemental training, and then
to the job.
(3) All workers assigned to defense training for a limited period of time should
receive their unemployment benefits while serving in such preparatory capacity.
(4) All workers who have establi-shed seniority with their original employer
should be furnished with a certificate of hire by the defense empl )yer.
(5) Such certification to be handled by the defense contractor (new employer)
and copies of same furnished to —
NATIONAL DEFENSE MIGRATION 8747
(a) The worker involved, either for his own records or to be filed with his respec-
tive local union.
(6) The former employer where seniority was acquired.
(c) The local office of the State employment service.
(d) The new or certifying employer to retain a copy for his own records.
Our organization is convinced that every efTort should be made to have local
industry apply the Office of Production Management labor policy in its fullest
aspects, namely:
(1) Defense contractors agree to give first preference to the local labor supply
when hiring new employees for expansion of production.
(2) Management of nondefense industries, where production has been cur-
tailed and workers laid off due to priority orders, agree to recognize the certifica-
tion and maintenance of the seniority rights of those employees who are compelled,
or who elect to accept, to transfer to such defense employment.
Application of such labor policy, whereby defense contractors recruit their new
employees, primarily from the local community, throueh the Federal-State
Employment Service in cooperation with labor organization, will permit the
registration of all skills of "all available workers and provide for the fullest use of
the local labor supply. Likewise, it will make possible an orderly transition of local
labor to defense jobs during the present emergency, and later, orderly transition
of the same workers to their original jobs when the defense program is concluded.
Recognition of, and adherence to, such labor policies will likewise tend auto-
matically to minimize or eliminate the evils of gate-hiring, the use of fee-charging
agencies, unregulated labor recruitment by scouting or needless advertising, and
the creation of placement centers by defense contractors or other agencies.
Organized labor's view has always been that its offices know more about the
conditions incident to hire, welfare, and the movement of workers than any out-
side interests. However, it is convinced that the objective policies of the Office
of Production Management as they apply to labor market management represent
an opportunity of cooperating with the Federal and State governments to the
end that reliance can be placed upon such organizations not only to continue to
protect the best interest of the workers as the unions have but to make the
registration and placement of union workers more effective throughout a broader
industrial field.
If management, primarily defense contractors, does not cooperate with the
Federal-State Employment Service to the same full extent that organized labor is
now doing, labor has no alternative than to beheve that these objective policies
are mere window dressing and lack force or potency, and that "business as usual"
by organized labor might well be the best method of protecting its membership.
All affiliates of the Congress of Indu.strial Organizations in the State of Missouri,
and primarily in the St. Louis and Kansas City defense areas, are prepared to
cooperate 100 percent with the Missouri State Employment Service in both the
registration and placement of workers, and are in the process of rendering such
actual cooperation. However, without definite assurance from the Office of
Production Management and United States Employment Service that the local
labor agency, namely, the Missouri State Employment Service, can and will
continue to get all job openings in these important centers, it is useless for the
organized labor groups to hope for a great deal of assistance from the Employment
Service. Furthermore, without the essential cooperation from defense con-
tractors which will result in actual placement of workers, the present program of
all-out registration of the local labor supply is simply an extravagant waste of the
taxpayers' money, because it is expensive to accomplish such registration on a
scale broad enough to produce concrete and effective results.
It is the general opinion that the various affiliates of the Congress of Industrial
Organizations within the State would be very reluctant to withdraw from such
registration and employment program and resort to the policy that organized
labor can best attend to organized labor's needs, but rather, would insist that
holders of defense contracts demonstrate the same degree of genuine interest in
the national defense program by providing the final link to such chain, namely,
that the available local labor supply be given first preference to all defense job
openings in the respective area.
COMPETITION OF CONTRACTORS WITH EMPLOYMENT SERVICES
Isn't it absurd and extravagant for the Federal Government on fixed-fee and
cost-plus contracts to permit certain companies holding such defense contracts to
set up their own employment centers on a huge scale with the introduction of
practices which make them not only competitive and detrimental to other local
g748 ^'^'- I^UIS HEARINGS
industries, but competitive with the Federal-State Employment Service? There
is no sound or lofjical reason for the maintenance of separate employment centers
when an acco|)tal)le employment service, operated and regulated by P'ederal-
State statutes, already exists in the locality.
What will be the effects of the defense program in the St. Louis area, in terms
of increased employment, priorities unemployment and population increases,
with their attendant social problems and possible housing shortage? A common-
sense, nonhystcrical consideration of the defense program and its many involve-
ments is l)adly needed. Any tendency to accept the theory that unemployment
will be completely wijied out in this area, by reason of the defense program, should
be refuted immediately when full consideration is given to the facts in the case:
(a) While employment is expanding in various defense industries in the locality,
(6) employment in nondefense industries is being curtailed by reason of priority
orders on certain essential materials.
Various available estimates on the number of production workers needed on
defense projects during the coming year reveal that 12 of the largest producers of
defense materials in the St. Louis area — this includes all large contracts — will
eventually employ better than 68,000 workers when operating at their scheduled
capacity. It is estimated, however, that such employment figure will not be
reached before the middle of 1942, and at the present such plants are now employ-
ing approximately 31,500 workers, excluding construction workers; therefore it is
possible that an additional 37,000 employees will be added to the working force
during the coming 9 months.
POTENTIAL WORKING KOKCK
An analysis of this potential working force of 08,000 employees reveals some
very interesting facts; namely, approximately 10,000, or about one-seventh, will
be nonproductive and engaged in administrative, clerical, or service duties, while
the balance, or 58,000, will be engaged in productive occupations. It is likewise
estimated that about 13,000, or one-fifth of the total number of employees, will
be women, which would indicate that about 55,000 men will eventually be em-
ployed in various defense occupations, not all of which will be productive work.
Recent surveys conducted by the Social Planning Council of St. Louis, by the
St. Louis office of the Missouri State Employment Service, and by the organized
labor groups, indicate that the St. Louis labor supply, as presently constituted,
can furnish all the workers needed to meet the current demands of the local defense
program. A recent report of the Social Planning Council summarized the local
labor situation as follows:
"While a need of 37,000 workers is anticipated, there are certain groups that
we know can be supplied from the local force. At least 8,000 of these are expected
to be women. The 1940 census recorded an available supply of 15,400 unemployed
women in St. Louis City alone. Many of these have probably obtained work in
the meantime, but against this we must also balance the fact that increased
employment opportunities can and will draw many additional women into the
labor market.
"At least 4,000 of the additional workers will be Negroes. In view of the un-
employment among Negroes, which was approximately 15,000 in St. Louis City
in 1940, there is no doubt that the area can supply any needs in this group.
"If we subtract the 8,000 women and the 4,000 Negroes from the 37,000 needed,
we have 25,000 white men to be supplied between now and next summer. About
one-fourth of these will be unskilled, and three-fourths skilled or semiskilled.
"An analysis of the census reports as of April 1, 1940, .shows that the labor force
in the St. Louis area at that time was approximately 616,000 persons; 523,000,
or 85 percent, of these were employed, while 93,000 were unemployed or working
on emergency Government programs.
"Reports from the Bureau of Labor Statistics show an increase of approximately
86,000 in the employed group through June of 1941, the last month for which
reports are available. If this increase has continued at approximately the same
rate, by the end of September an additional 30,000 persons should have been
employed. This would make a total of 640,000 persons in this area working in
private employment at the end of September.
"This totaffigure of 640,000 workers includes from 30,000 to 40,000 construc-
tion workers. The local construction industry normally employs about 1],00(»
workers, so that from 20,000 to 30,000 of these are on temi)orary projects, and can
expect to be laid off during the next few months. Many of these temporary
workers will undoubtedly transfer to production jobs.
"From the present employment of 640,000 workers as compared to the labor
force of 616,000 18 months ago, it would seem that all of the unemployed had been
NATIONAL DEFENSE MIGRATION 8749
absorbed in this area. We know, however, that this is not the case, since Work
Projects Administration rolls for the city and county are still approximately at
the July level of 8,500 persons. The general relief rolls have decreased only
slightly. The active file at the State employment office still numbers around
80,000 applications, a figure which has been fairly consistent for many months,
"We are forced to conclude, therefore, that the labor force has been materially
increased during the past 18 months. Such an increase could come from only two
sources: (1) In-migration from surrounding territory into the metropolitan area;
(2) the drawing into the labor force of persons who have in the past considered
themselves as outside the force, but who are now seeking employment. Proof of
this is found in the decline in high school and vocational school enrollment in the
public schools this year. Also, many women may be expected to reenter the labor
market as employment opportunities multiply.
"The normal population increase for this area would also have added approxi-
mately 5,000 workers to the labor force during the past 18 months.
"Another drain on the labor force has been the drafting of young men for the
armed forces. There are at present between 9,000 and 10,000 local boys in this
group. Beginning within the next few months, discharges will probably offset
further draft calls, so that there will be little further drain upon the labor force
from this source.
PRIORITIES UNEMPLOYMENT
" 'Priorities unemployment,' a new term to the American vocabulary, will
have serious effects during the coming winter. It is difficult to forecast just
what these effects will be, as verv little is known as to when and where this con-
dition will strike. National estimates, however, are that from 2,500,000 to
3,000,000 persons will be thrown out of employment this winter from this cause.
As the St. Louis area accounts for slightly* more than 1 percent of the national
labor force, our share of this total would be at least 25,000 to 30,000.
"The effects of this are already being felt. Several smaller firms in the area
have been forced to close down because of a shortage of materials. The drastic
cuts in auto production are expected to throw between 3,000 and 4,000 men out
of work before the end of the year. Recent priority regulations on construction
materials may have other serious effects on that field of employment.
"These and other similar factors will tend to offset increases in employment
from defense and other causes, so that we may shortly expect a leveling off of
the employment curve."
Careful consideration of all factors as they relate to employment opportunities
and the resulting in-migration of labor can best be visualized by the fact that
30,000 to 40,000 persons have been added to the population of St. Louis and St.
Louis County during the past 18 months. Only about one-fourth of this number
is the normal population increase, therefore from 20,000 to 30,000 persons have
migrated to this area due to expanding defense employment,. Basically, it can
be assumed that employment trends in the St. Louis area will soon enter a leveling-
off stage since the effects of priority unemployment in certain industries are apt
to offset any indication of increased employment in the defense industries.
The present available local labor supply is sufficient to meet all expansion
demands that are known to date and no further in-migration is necessary to
supply the needed defense workers; in fact, if further in-migration is invited or
stimulated, it will simply mean that qualified resident workers with seniority in
local industry, who have been deprived of their regular employment by priority
orders, will be deprived of their opportunity to employment in the local defense
plants and consequently will be forced to join the vicious and endless movement
of migratory workers with the hope of obtaining work in some other community
faced with the same fundamental problems.
Exhibit A. — Labor Policy and Defense Unemployment
STATEMENT OF POLICY BY THE OFFICE OF PRODUCTION MANAGEMENT FOR HAN-
DLING OF LABOR PROBLEMS ARISING OUT OF CURTAILMENT OF AUTOMOBILE
PRODUCTION
Sidney Hillman, director of the Labor Division of the Office of Production Man-
agement on September 17, 1941, issued the following six statements of policy
which labor and management will be expected to follow in handling labor problems
arising out of the curtailment of production in the automobile industry.
The statements of policy were prepared at a series of conferences in Detroit,
Mich., participated in by representatives of the leading automobile manufacturers,
8750 ST. LOUIS HEARINGS
the United Automobile Workors-CoiiKrcss of IiuUistrial Organizations, the U. S.
Eniploynient Service, and the Labor Division of the Office of Production Manage-
ment. The text of the six statements follows:
Statement No. 1.
Where a man working on nondefense production is laid off and obtains defense
employment with another company, and that fact is certified to liis former com-
pany, he will not have to report back for civilian production work in order to
protect his seniority so long us he retains the defense emi)loyment to which he waa
certified. If he shifts from one defense employment to another, there must be
a recertification as to his new defense employment. Employers concerned with
the application of this policy will work out arrangements which will result in the
maximum possible acceleration of the defense program.
Statement No. 2.
Transfers of employees to defense work shall be by seniority in the following
order:
First, those fully qualified for skilled or semiskilled jobs on the basis of past
experience and training.
Second, those who can qualify within the period normally given to new
employees.
When management and representatives of the workers are agreed that no em-
ployees or an insufTicicnt number of employees with seniority are available in the
first group, new, fully qualified employees will be hired.
Statement No. S.
W^hen hiring new employees for defense work, qualified applicants working on
nondefense work with seniority in local industry will be hired before workers
coming from other localities. When so hiring, the qualified applicant with the
longest seniority record will receive preference.
The senior employees among those working in plants where employment is
decreasing who can be spared; who elect to accept such defense employment;
and who are found acceptable will be the first released with full protection of
their seniority rights.
Statement A^o. 4-
Skilled tradesmen laid off, partially employed, or employed at occupations other
than their trade or its equivalent in defense usefulness, will be released upon their
request, with protection of their seniority rights, for full time defense work (40
hours per week) at their trade. The need for these workers in defense employ-
ment wiU be certified to the worker's employer.
Statement A^o. 5.
The above policies are to be construed as a pattern for industry and labor to
follow and are not retroactive. It is understood that their application is a local
community problem and must be worked out on the basis of cooperation between
plants in a community and the workers involved.
The operating machinery to effect this point will be set up at an earlj' date.
Statement No. 6.
1. Kecall of employees: An employee loaned or laid off, whether unemployed
or currently emjiloyed on defense or nondefense work, must report back for defense
employment to the company with which he holds his original seniority, if and
when called, on notice of at least 1 week. Recall of employees to defense work
presupposes, and management will endeavor to provide, full-time employment,
contingent upon the availability of the essential tools, material and facilities.
Skilled tradesmen will be subject to recall only for full-time defense employment
at their trades or equivalent.
2. Defense training: For the purpose of these policies, defense training is to
be considered defense employment, provided there is an understanding between
the employer and the employee that tlie employee is being trained for a specific
pay-roll job.
NATIONAL DEFENSE MIGRATION 8751
Exhibit B. — Registration of Congress of Industrial Organizations
Members with State Employment Service Offices
ST. LOUIS industrial UNION COUNCIL, AFFILIATED WITH CONGRESS OF INDUSTRIAL
ORGANIZATIONS, ST. LOUIS, MO.
Officers, Representatives, and ttiembers of Congress of Industrial Organizations
Affiliates.
Greetings: Enclosed herewith for your benefit and guidance is copy of self-
explanatory resolution recently adopted by the annual convention of the Missouri
State Industrial Union Council and the last regular meeting of this organization;
likewise, a copy of industrj'-wide provisions for the handling of transfers and
placement of auto workers, such having resulted from a series of conferences
between representatives of United Automobile Workers, Congress of Industrial
Organizations, Office of Production Management, United States Employment
Service, and management of the automobile industry.
Serious study should be given to the details of both enclosures and your organiza-
tion is urged to render all possible cooperation in a speedy registration of your
members with the St. Louis office of the State Employment Service, in order that
a sufficient supply of experienced, qualified production workers will be available
for referral to various defense production plants located in St. Louis and vicinity.
It is obvious that the American Federation of Labor craft unions will make
every possible attempt to place their members on such jobs, even to the extent of
endeavoring to place construction workers on various production operations which
can only be construed as absurd and ridiculous. Such policy being fostered
solely for the purpose of perpetuating American Federation of Labor members
on the defense projects irregardless of whether they are actually qualified to
perform the essential operations required to produce the maximum amount of
results for the National Defense Program.
Certainly under the circumstances, it is imperative that all local unions render
the degree of cooperation that will be instrumental in providing the maximum
benefits to your membership.
Further information on such program will be made available upon request.
Fraternally yours,
Luther M. Slinkard, Secretary.
[The resolution referred to above is as follows:]
resolution
Whereas the national defense program of the United States Government calls
for complete utilization of manpower as well as materials and productive facilities;
and
Whereas the Office of Production Management has designated the United
States Employment Service as the official defense employment agency and has so
notified employers; and
Whereas the offices of the Missouri State Employment Service, a component
part of the United States Employment Service, does not have available complete
work history and data and skills of all workers in the city of St. Louis; and
Whereas this information is necessary to the Federal defense program in order
to utilize to the best advantage the available skills of all workers and to guarantee
success to the defense effort; and
Whereas such complete registration of members of local unions affiliated with
the St. Louis Industrial Union Council and the subsequent methods of referral of
such registered workers will work to the advantage of both organizations and
their members: Therefore be it
Resolved, That this organization go on record urging the immediate registration
of all Congress of Industrial Organizations memVjers at the employment service
office in such order and such manner that those members who may be first affected
by dislocation of employment through the defense program will be registered
first, those who may subsequenth' be affected registered next and finally those
60396— 42— pt. 23-
3752 '^'''- '•<"l^ UKAIMNCS
workers who arc now ciiiplo} rd in (icfcnsc occupations rcKistcM'cd in order that a
conii)k'to employment pattern may he availal)le; and he it furtlier
licsolvcd, 'riiat each U)cal union follow the pattern of re^isl ration of its members,
as laid down by the annual convention of the Missouri State Industrial Union
Cotmcil, through consultation with the regional lahor su})ply committee of the
Social Security Board and the Odice of Production Management; and be it finally
Rcsolvdl, That such program of registration he promoted and coordinated
through the St. Louis Industrial Union Council and each local iiiiion he instructed
to forward regular reports of their supporting activity in behalf of their member-
ship.
Exhibit C. — Program for Union Registration
UNION registration PROGRAM MUTUALLY AGREED UPON BY THE CONGRESS OF
INDUSTRIAL ORGANIZATIONS AND THE MISSOURI STATE EMPLOYMENT SERVICE,
INSTRUCTIONS, AND RELATED FORMS
Each local will furnish the employment office with nieml)ershi)) lists of its
members. This list should be in alj)habetical order and contain the full name
and street address of each member. These lists will be used in some very impor-
tant checking by the employment service as to previous registration, etc., and
will he used in making arrangements for the registration of the members of the
various locals.
A representative of the employment office will contact the head of each local
and make arrangements with the executive of the local as to the dates of registra-
tion and the number that can be handled on any designated date. The emi)loy-
ment service will furnish each l)usiness agent and shop steward with a letter,
copy of which is attached. Included with this letter will l)e a self-registration
form complete with an occupational check list and instructions on how it is to
be filled out. Each member will fill out the self-registration form before appearing
for his interview and this form will be checked l)y the officers of the local, or the
shop stewards, for completeness and legibility prior to the interview.
The employment service will have on hand at the place of registration, sufficient
interviewers to handle the number of members scheduled at the designated time
and those interviewers will cover very completely with the member, the informa-
tion he has put on his self-registration form.
As each work sheet is completed, the applicant will be given an employment
service identification card, containing his name, social security number, and date
of application. The work sheets will then be sent to the office of the employment
service where they will he transcribed on the regular application cards. Super-
visors will then classify each card, according to the work record and qualifications
of the applicant.
Upon completion of the program for eacn local, the local will receive from the
employment service a list showing classifications of each member. In this con-
nection, it is desirable that any questions asked by the membership relating to
the registration program be first taken up with the executive of the local who, in
turn, can get the required information by calling his employment-service repre-
sentative.
In the event of mass lay-offs, due to seasonal iiidustries or the curtailment of
activity in non-defense industries, the employment service should be notified of
such as soon as possible. Registrations of these workers can then be scheduled
and every provision made to help place these workers in other joVjs.
Any change of address should be forwarded to the employment service bj^ the
secretary of the local.
It is suggested for the convenience of the union memherslii]:) and to relieve
congestion in the employment office that the interviewing he done at the union
hall. However, this is not absolutely necessary and arrangements can he made
to interview in the employment office or at any place that is agreeable to both
the membership and the em])loyment office. The details on this can be worked
out with each local by its officers and the employment service representative.
INSTRUCTIONS FOR FILLING OUT REGISTRATION FORMS
Attached arc two forms: (1) A preliminary registration form and (2) an occu-
pational check list. These are needed by the St. Louis office of the Missouri
State P'.mployment Service to quickly and adequately register your skills in this
defense-registration program. If you have registered with the employment
office before, you should also fill this out, since your application already in file
NATIONAL DEFENSE MIGRATION
8753
may not be complete. Fill in all spaces, answering every question. Please
print all information requested on both forms.
Occupational check list.
The attached occupational check list should be checked first as it will be helpful
to you in filling out the registration form, which is also attached. Fill in all items
pertaining to yourself on the occupational check list which is attached, checking
all jobs which you can do or have done. This will be extremely helpful to the
interviewer and will be checked very carefully with you at the time of your
interview. This information may be used in placing you on some defense job.
In case you do not find listed some job you have done, circle the name of the
job on the list that is closest to the job you have performed and this will l)e
covered with you by the interviewer at the time of interview.
Preliminary registration form.
Most of the entries are self-explanatory. You will observe that on the lower
half of the face of the registration form there are four boxes. If you are a skilled
or unskilled worker, fill in only the top box as indicated, and ignore the rest.
This form is a universal form and is used for all types of workers. You may
ignore, of course, any questions concerning commercial workers, personal service
workers, or agricultural workers.
At the bottom of the page you will note a space "Use this space to show any
other kind of work experience you have had." In this space list such items as
your hobbies, special machines on which you have skill, or other work which you
can do or have done and have not listed elsewhere on this form.
On the reverse side, fill in all of the spaces and describe clearly, exactly what
you did on each job beginning with your last job or the one you have now, and
working back to your first job. On any of these jobs in which you used a machine,
indicate whether you merely operated it, or adjusted it and set it up. If you are
a construction worker, or if you have worked for a great many employers, list
the five most important jobs.
MOUC-ES-10267
Form ES-574
9-41
Federal Security Agenct
Social Security Board
Occupational Check List
(Inventory of Skills for National Defense)
1. Name 5. Present job
2. Address 6. Present employer
3. Telephone number 7. Address
4. Social Security number 8. Business or industry
This inventory is being taken to find out the skills of the working population
for purposes of national defense. In the space after the occupations listed below,
place a check mark (»/) only after the job or jobs in which you have had experi-
ence or for which you have completed training and which are different from your
present job.
Occupation
Absorberman. .-_
Airplane coverer.
Airplane machinic
Airplane woodworker
Architect
A rniorer
Asbestos worker
Assembler
Autoclave operator
Automobile-body repairman
Automobile-generator repairman.
A utomobile mechanic
Automobile radiator man
Babbitter
Bakelite mixer
Ball warper tender
Band sawyer _.
Barrel chanberer
Barrel driller
B arrel polisher
Check
Occupation
Barrel reamer
Barrel rifler
Barrel roller
Beamer
Bending-roll operator
Bessemer converter blower,
Bovoler, eye glasses
Blacksmith _.
Bleacher operator
Boilermaker
Boring-machine operator-..
Boring-mill operator
Bricklayer
Cabinetmaker
Cable splicer
Calker
Canvas worker .
Card grinder
Carman
Carpenter
Check
8754
ST. LOUIS HEARINGS
Occuimlion
Check
Occupation
Check
Cement finisher
Metallurgist
Clmmberinan
Milling-machine operator
Chemist
Millman
Cooper
Millwright
Coremaker
Model maker.
Crane operator
Molder
Cut-off-saw operator
M older operator
Cutter
Motor analyst
Detailcr
Motorcycle repairman ..
D ie asse mbler
Optician.. .
Die (iesigiier-
Ornaiiienlal-iron worker
Die nialier
Ordnanceman .
Die setter
Painter
Dishing-machine operator
Panel maker
Dope mixer
Pipefitter .
Draftsman
Planer operator
Drawer-in, hand
Plasterer
Dresser tender
Plater
Drifter
Plumber
Drill-press operator. _
Profiling-machine operator
Drop-haninier operator
Propeller mechanic
Dynamic balancer
Pulpit man
Electrician
Rad io-ch assis aliner
Electric-motor repairman
Radio repairman
Engraver
Refrigerating engineer
Rib-frame builder ...
Explosives operator
Rigger
Fabric worker
Riveter
Filer .
Roller .
Finisher, watch manufacturing
Sand-control man
Foreman
Scarfer
Shaper operator .. .. ..
Fuselage-frame builder
Sheet-metal worker.
Oas-producer man -
Ship fitter
Gear cutter . ..
Slubber tender .. .. ..
Spar builder
'Glazier
Spinner
Still operator . . .
Structural-steel worker
Hammersmith
Substation operator .
Tailor
Heat treater
Tail-surface-frame builder.
Tempernr.. __.
Template maker . .
Tester
Textile machine fixer
Time-study man
I'inner, automatic
Tool designer . .
Tool-grinder operator
Tracer. _
Trainer, watch manufacturing
Transformer rebuilder.
Tube bender ...
Tubing-machine operator
Underturner, watch manufacturing
Upholsterer
Varictv-saw operator
Watchmaker
Weaver .
Welder
Wheel cutter, watch manufacturing
Wire chief
Describe briefly your experience or training in the jobs you have checlced:
NATIONAL DEFENSE MIGRATION
Please do not write below this line.
Remarks (for use bj- State Emploj-ment Service):
8755
This form has been given to you to save your time and for your convenience.
Please answer all the questions you can and return the form as the interviewer
instructs you.
(Please print)
LAST NAME FIRST MIDDLE INITIAL
SOCIAL SECURITY NUMBER
DO NOT WHITE IN THIS
SPACE
P
ADDRESS STREET CITY
AGE
WHITE
NEGRO
OTHER
ARE YOU A
VETERAN?
S
COUNTY
PHONE NUMBER
DATE OF BIRTH
DAY MONTH YEAR
a
HEIGHT
WEIGHT
SINGLE
MARRIED
OWN CAR
DRIVER'S
LICENSE
PHYSICAL CONDITION
INDUSTRIAL CODE
remarks:
EDUCATION— CIRCLE HIGHEST GRADE COMPLETED:
GRAMMAR OR GRADE SCHOOL HIGH SCHOOL COLLEGE
12345678 1234 1234
NAME AND ADDRESS OF LAST SCHOOL ATTENDED DEGREES RECEIVED
SPECIAL SUBJECTS AND COURSES
OTHER TRAINING NOT SPECIFIED ABOVE
(SPEAK
ENGLISH -^READ
IWEITE
PHYSICAL HANDICAP, IF SO DESCRIBE
UNION MEMBER
WHAT LOCAL
If you have had experience in any of the following kinds of work, indicate same
in the proper space below.
Use the reverse side of this sheet to show your former employers and the kind
of work you have done for each employer.
For skilled and unskilled workers:
WHAT IS YOUR TRADE?
YEARS IN
TRADE?
DO YOU OWN
TOOLS?
YES NO
READ BLUEPRINTS —YES NO
READ MICROMETERS— YES NO '.
WHAT MACHINES CAN
YOU OPERATE?
WHAT MACHINES CAN YOU
SET UP?
ESTIMATING EXPERIENCE— YES NO ,
DRAFTING EXPERIENCE —YES NO
For commercial workers:
TYPING SPEED
STENOGRAPHIC
SPEED
WHAT OFFICE MACHINES CAN YOU
OPERATE?
STATE AMOUNT OF
EXPERIENCE
8756
For personal services:
sr. i.oris iii:aki.n(;s
COOKING EXrERIKNXE
FULL CHAROB ASSISTANT
YES NO VES NO
SERVINO
EXPERIENCE
LAUNDRY
EXPERIENCE
HAND MACHINE
CARE OF
CHILDREN
PRACTICAL
Nl'RSINQ
For agricultural workers:
CAN YOU OPERATE YES
MILKING MACHINE? NO
STATE OTHER FARMINO EXPERIENCE YOU HAVE HAD
Use this space to show any other kind of work experience you have had.
Employment Record
Answer the Questions Asked Below for Each PJmployer You Have Worked for
EMPLOYER — LAST REGULAR JOB
KIND OF BUSINESS
WHAT WERE YOUR DUTIES?
HOW LONG DID YOU WORK?
RATE OF PAY
EMPLOYER
WHAT WERE YOUR DUTIES?
HOW LONG DID YOU WORK?
ADDRESS
DATE LEFT
KIND OF BUSINESS
RATE OF PAY
Exhibit D. — Certification of Hire for Defense Work
EXPLANATORY COPY OF PROCEDURE IN REGARD TO "CERTIFICATION OF HIRE FOR
defense work" (form SES 326 WHICH IS BEING USED IN THE STATE OP
MICHIGAN AND IS UNDER CONSIDERATION FOR USE IN MISSOURI)
When an employer hires a worker for defense work who was fornierlv employed
by another firm with which he acquired seniority, that fact shall be promptly
certified to that employer with which original senioritv was acquired Certi-
fications shall be made on Form SES 326 (sample below) provided for this pur-
pose and shall be prepared in quadruplicate. The distribution of this form shall
be as below:
1. One copy to the worker involved (who will turn it over to his local union
or retain for his own record).
2. A copy for the certifying employer's file.
3. A copy to the former employer where senioritv was acquired.
4. A copy to the local office of the State Employment Service.
Note. — The responsibility for requesting certification rests with the individual
member affected.
NATIONAL DEFENSE MIGRATION
[Sample]
Re: ..
•Certification of hire for defense work.
8757
SES 326
Code classification
Seniority date
To Thia is to certify that as of we have
(Name of company or corporation) (Date)
employed on defense work as a formerly
(Name of person)
■employed by our firm as a
(Name of skill or classification)
By
(Name of company) (Title of person in charge of persoimel or employment)
NOTICE TO THE WORKER WHO ACCEPTS A DEFENSE JOB
To protect your seniority rights, it is necessary and to your advantage to see
to it that this card is made out by your defense employer and a copy sent to the
employer with which original seniority was acquired. You should also see to it
that your new employer furnishes you with a copy which you should turn over
to your union or keep for your own record.
Exhibit E. — The Glass Industry and the National Defense Program
report by r. j. reiser, president district no. 4, federation of glass, ceramic
and silica sand workers of america, representing crystal city local,
NO. 63
Crystal City Local, No. 63, of the Glass, Ceramic, and Silica Sand Workers
of America, represents the employees of the Pittsburgh Plate Glass Co. at all
•of its glass factories.
This supplementary report relates the relationship in the flat glass industry
in Jefferson County to employment in the automotive industry and the national
defense work.
The Pittsburgh Plate Glass Co. operates six flat glass factories, three producing
plate glass and three producing sheet (window) glass; both polished plate glass
and sheet glass are used to produce laminated safety glass for automotive vehicles.
Plate glass is used to produce tempered case-hardened glass also used in auto-
mobiles.
One of these six flat glass plants is located in Crystal City, Mo. being designated
as works No. 9, Pittsburgh Plate Glass Co. At this factory plate glass is manu-
factured, a portion of which is made into case-hardened glass for automobiles;
another portion is used along with flat (window) glass in laminating automobile
glass.
The Crystal City plant obtains its natural gas via pipe line from Louisiana,
and its electric power via transmission line. Silica sand, a major raw material
used in the glass is obtained from a sand mine operated as a part of the factory.
The extent to which this factory is adaptable to defense production, and the
■extent to which this factory has already undertaken defense work in terms of
employment on such work is as follows:
First. The following tabulation will indicate the extent to which facilities of
this company are now engaged in direct defense work.
Unit
Number of
employees
Percent
engaged in
direct de-
fense work
Percent
available
for direct
defense
work
Machine Shop No. 9, Crystal City, Mo
60
50
50
Second. We regard the flat glass industry as an essential industry. Glass
products are going directly and indirectly into the national defense program.
A partial list of the uses includes airplanes, naval vessels, military trucks, motor-
ized equipment, optical glass, gas masks, glazing for airports and hangars, glazing
8758
ST. TyOUIS IIKAIUNGS
for factories producing military supplies, glazing for Army cantonments and
defense housing, and glazing for transportation equipment, etc. Despite the
foregoing, the fact remains that a total curtailment of automotive production
will dislocate approximately 4,000 of this comimny's employees; a 50 percent
reduction would seriously disru|)t the local economy.
Concerning the extent to wiiich tiie glass industry in general, and this company
in particular is adaptable to defense ])roduction, and a forecast for the next 12
months in that regard, we regret to state that so far as we know, plant ec|uii)ment
for the production of flat glass is not convertible to other uses, either military
or nonmilitary. In modern production of flat glass a continuous tank oi)eration
is involved. The molten glass (lows from a contimiously operated tank onto
and through aiHu>aling lehrs designed, in the case of plate glass (which is manu-
factured at Works 9, Crystal City, Mo.) to produce a rough rolled glass, and in
the case of sheet (window) glass, to jiroduce a fire-finished product. To produce
polished jilate glass, the rolled glass is i)assed to grinding and polishing tables
where the fiiuil finished surface is produced by abrasive and polishing wheels.
There are inherent limitations in the equij)ment essential to the production of
flat glass which probably precludes any conversion of that equipment to other
defen.se purposes.
The following recapitulation of actual average employment for the 12 months'
period to August 31, 1941, of all flat glass plants of Pittsburgh Plate Glass Co.,
and the monthly break-down for Works No. 9 at Crystal City, was prepared by
the central office of the company to show the percentage of workers involved in
the ])roduction of a\itomotive glass, and the reduction that would be eflFected in
direct ratio to the reduction of automotive production.
Recapitulation — all flat glass plants
(I) number
of employees
(II) percent
engaged in
automotive
glass produc-
tion
(III) number
engaged in
automotive
glass produc-
tion
The employment shown in
column III will be reiluced
in direct ratio to the reduc-
tion of automotive produc-
tion
WorksNo. 1
Works No. 4
Works No. 9
2,123
1,760
2,202
492
452
810
87
12
61
22
36
23
1,847
211
1,343
108
163
186
Works No. 10 - _
WorksNo. 11
WorksNo. 12
Total
7,839
49
3,858
Note. — The employment figures above reflect full day continuous employment per man.
Works 9 — Plate glass-^ Crystal City, il/o. — lieccrd of actual employment for the 12
months' period ending Aug. SI, 1941
191,0
September
October
November
December
191,1
January
February
March
April
May
June
July
August...
Average..
(I)
Number of
employees
2,233
2,271
2,264
2,236
2.207
2,194
2,178
2,174
2,189
2,200
2,211
2,070
2,202
(11)
Percent en-
gaged in
automotive
glass pro-
duction
(HI)
Number en-
gaged in
automotive
glass pro-
duction
1,140
1,250
1,310
1,730
1, 6C0
945
l,6f0
l,2f0
1.440
1,450
1,080
1,035
1,343
(IV)
After 50-percrnt curtailment
of automotive production,
the employment shown in
column III will be reduced
50 percent
Note.— The employment figures above reflect full day continuous employment per man.
NATIONAL DEFENSE MIGRATION 8759
On the basis of the foregoing figures, a ready computation on the pending
69 percent curtailment of auto production can be made.
The union contract makes the following provisions which would be applied
when a reduction of the force or working hours is necessary:
"Should any department in a factory be partially or permanently discontinued
•due to the installation of new machinery or technological changes, then such
emplo3'ees who have been affected shall be given an opportunity to transfer to
the bottom of the promotion schedule in another department in the same plant
providing they are qualified and meet the following requirements:
"First. Any employee having 5 years' or more seniority in that department or
plant can displace an employee with less than 3 j^ears' plant seniority, or
"Second. Any employee having 10 years' or more seniority in that department
■can displace any emplo3-ee with less than 5 years' plant seniority."
The contract provides further:
"All available work will be equally divided among regular employees in any
department who have worked in excess of 6 months in that department. Should
equal distribution of work available result in such employees receiving less work
than 24 hours per week, a reduction of force will be made so that the remaining
employees will receive such minimum of hours of work per week."
At the present moment, the two departments to be most imminently affected,
the Duplate and Herculite departments, are engaged in the processing of safety
glass. The Duplate department has an average of 590 employees, and Herculite
an average of 114. Their working hours have fluctuated from 23 to 36 hours
per week in the past month. In order for employees to be laid off, work hours
would have to drop below 24 per week for the entire department. Then sufficient
w'orkers would be laid off so that the remaining ones would have 24 hours per
week. These lay-offs would be on a seniority basis. Of course, the present
workweek could be reduced materially by overnight cancelation of present
orders, or by failure to secure additional orders. Thus, the company is unable to
forecast future possibilities of steady employment or mass lay-offs with any
degree of accuracy.
In one report that w^as available to us the company made the following statement:
"We regard the flat-glass industry as an essential industry. Glass products
are going directly and indirectly into the national-defense program. A partial
list of the uses includes airplanes, naval vessels, glazing for airports and hangars,
glazing for factories producing military supplies, glazing for Army cantonments
and defense housing, glazing for transportation equipment, etc. Despite the
foregoing, the fact remains that a total curtailment of automotive production
would directly and indirectly dislocate approximately 4,000 of this company's
employees; a 50-percent reduction in automotive production will dislocate approxi-
mately 2,000 of this company's employees. The number dislocated at any inter-
mediate point can be readily determined. At a number of plant locations this
company provides practically the only source of employment with the result that
suspension of operations would seriously disrupt the local economy."
This statement, and principally the last sentence, is pertinent to this local plant
and Jefferson County. The twin cities of Crystal City and Festus are dependent
on the plant's operations for the major percentage of their income. It is on the
plant's continued full-time operations and resulting pay roll that many retail
establishments are depending and any major reduction would cause a spreading
dislocation of workers in these establishments. The balance of the county would
be affected to some degree by the same reduction as all workers are not residents
of the twin cities.
The company's annual pay roll was approximately $2,967,000 for the year 1939,
and $3,334,000 for the year 1940. This year's pay roll wall approximate 1940.
This sum removed from a county with a population of 32,000 would have serious
economic effect.
An additional factor that must be coupled with any reduction of working hours
would be the natural tendency of any workers faced with a reduced pay check to
migrate to other points. To some degree this is already happening. Workers
have left the plant to accept defense employment in the St. Louis area. Some of
them are going despite plant seniority of years because they fear that the plant's
shut-down might throw them out of work at a time when defense employment had
reached a peak, and thus they would be without employment. Securing St. Louis
employment would, in many instances, necessitate the worker moving to that
point, thus adding to the burden on St. Louis housing conditions and removing
any income from this locality.
The company expresses the belief that they doubt the conversional possibilities
of the plant would be suitable for defense production. No survej' of the plant
has been made by any Government agency.
8760 ST. Loiis ]ii:.\i{i.\r,s
As the local plant's output koos in a largo dogreo to tho Chrysler C^c, there
might be a cross check nmde with this organization that would reveal the future
trend of orders and thus be a means of estal)lishing some estimate of future pro-
duction. This could be made by comparing potential car-production figures
against stock on hand, and on order at the local jjlant.
RKPORT BY WILLIAM KLKIN, PRESIDE\T, FESTUS RETAIL MERCHANTS ASSOCIATION,
FESTUS, MO.
The twin cities consisting of Crystal City and Festus, Mo., with a population
of appro.ximately 10,000 are in a serious condition.
Located in practically the center of Jefferson County and center of trading;
and the most important contributor to the expenses of the State and the county,
can and may become a ghost town unless some type of Government help is
obtained.
Our leading industry — glass made by the Pittsburgh Plate Glass Co. in Crystal
City— is forced to go on a 3-day basis until the first of the vcar, and then may close
from time to time. This is one of the results of the curtailment of auto j/roduc-
tion which is supposed to be cut still more, and upon which the twin cities
practically exist.
In Jefferson County we have unemployed at the present time 1,336 men and
536 women according to the latest report of the Missouri unemployment records
of the twin cities. With 2,000 more laid off totally or part time, vou can readily
see our j^redicament.
Xow, then, there must be something the Government can do for us with all of
the following information:
1. Inasnnich as most all of these people that are unemployed, and those that
may be, are already housed (they either own their home or rent homes already
built) ; all live within a radius of 10 miles, housing and transportation problems
would not happen in Jefferson County.
2. We are located 38 miles from the city of St. Louis and are near the Weldon
Springs project. Also are conveniently located for another family plant to tie in
with the other two, saving excessive freight, time, etc.
3. We have natural gas.
4. We have four sources of electric power instead of one so that current is
available at all times, and electric power will not be a problem.
5. We have two railroads — the Missouri Pacific and the Frisco.
6. We have a four -lane highway extending all the way to St. Louis.
7. We have the Mississippi River all along the whole east side of Jefferson
County.
8. We have 230 acres of rough grounds we will give the Government for any
type of project; such as storing of and making ammunition.
9. We have the best silica sand deposits in the United States of America for
use in molding steel, etc.
10. We have approximately 400 homes on Federal Housing Administration
under titles I and II in which the Government has $600,000 or more at .stake.
11. We also have a factory building that occupies 30,000 square feet of space
consisting of three divided floors with a power elevator, and is equii)ped with the
latest type water sprinkler against fire.
(a) The above was used by Ely Walker as a shirt factory. This could be put
into use as the Government has given them much work. If a little persuasion
were used in awarding them contracts so that some of the work could be done in
Festus, the building we are referring to will, and can, take care of employing about
300 to 400 peoi)le, which would help a little.
12. Lead smelter within 4 miles.
Our commimity of 10,000 needs some type of project for defense to prevent a
ghost town, and with the above good requisites there is no reason why this com-
munity isn't given some type of a national defense project.
We have everj^thing that is needed, and the Government will encounter no
difficulties in housing, employment, transportation, electric power, natural gas,.
etc. We can and are able to deliver the goods easier, quicker, and better from
Our twin cities or surrounding county.
NATIONAL DEFENSE MIGRATION 8761
Exhibit F. — Jefferson County's Facilities for Defense Needs
inter-office communication to e. w. dwyer, district supervisor, from
ed. f. cummings, manager, crystal city office, missouri state employ-
ment service
December 1, 1941.
We would like to submit this report as a supplementary one to our report of
November 28, 1941, which concerned the effects of automobile production curtail-
ment to the Pittsburgh Plate Glass Co. of Crystal City and the area as a whole.
This report endeavors to outline the facilities and natural advantages the county
oflfers.
Transportation facilities are particularly good. Two railroads, the St. Louis-
San PVancisco (Frisco) and the Missouri-Pacific serve the county. Highways
provide easy access to St. Louis and vicinity. Highway 61 is four lane wide
north from Festus and Crystal City. Also situated on this highway are the towns
of Herculaneum, Kimmswick, Imperial, and Barnhart, as well as several smaller
communities. The recently completed Highway 25 provides a new two-lane
road to Ste. Genevieve and the South. Highway 21, now nearing completion,
will provide facilities for the central portion of the county.
The Mississippi River Fuel Co.'s pipe line passes through the county 1 mile
north of Festus and supplies the area with natural gas. The Union Electric Co.
brings power from four sources. Silica sand deposits are of the best in the coun-
try. A smelter operated by the St. Joe Lead Co. at Herculaneum is capable
of further expansion.
The county is located on the western bank of the Mississippi River, just south
of St. Louis County. Festus and Crystal City are 28 miles south of St. Louis
city limits with a combined population of 10,000, while De Soto is 14 miles farther
south with a population of 5,000.
Festus and Crystal City are dependent largely on the Pittsburgh Plate Glass
Co. for employment and income. It is estimated that 75 percent of the homes
are owned by the people who occupy them. Federal Housing Administration has
financed 400 homes involving an estimated $600,000. In addition to any of the
glass plant facilities that might be utilized, there is a building of 30,000 square
feet located in Festus. This building has three floors and was formerly used by
the Ely Walker Dry Goods Co. to manufacture clothing. Its contains a sprinkler
system and power elevator.
De Soto is dependent both on the car shop of the Missouri-Pacific Railroad
which employs some 400 men and the International Shoe Co. branch plant.
Both industries are subject to seasonal fluctuations. De Soto has a vacant
building, one-story high, which contains 1,400 square feet. This is a modern
building with steel sash windows forming a considerable portion of all four walls.
This plant formerly housed a hat factory.
Both the twin cities of Festus and Crystal City, and De Soto have a considerable
supply of skilled power sewing machine operators, mostly women, who are so
situated that they are available for local employment but not elsewhere. It has
been pointed out that the establishment of a defense industry along the lines of
garment manufacture would thus be assured of an ample supply of workers. A
survey made in July of this year showed 450 women skilled and available in this
line.
It has also been pointed out that the area is well situated for the establishment
of additional plants to tie into the munition making group in St. Louis and vicinity.
The storage dump of the U. S. Cartridge Co. on Highway 66 includes part of
Jefferson County in its acreage. The rolling and some hilly contours of the area
lends itself to this field when the safety factor is considered.
One factor that is causing considerable unrest is the possibility that lack of
employment in the area will cause a migration to St. Louis because of defense
employment there. This is already becoming noticeable. If further curtailment
of glass plant employment eventualizes, this migration might reach an alarming
peak, unless some other source of employment is available to the workers.
3762 ST. LOUIS HEARINGS
STATEMENT BY ARNOLD B. WALKER, INDUSTRIAL SECRETARY,
URBAN LEAGUE OF ST. LOUIS, ST. LOUIS, MO.
November 26, 1941.
Tho indisputable loyally of the Negro to his country and community i.s a well
ostablishotl fact. Ilis contribution in every major conflict is an enviable record
of many who deny him of his rights and jirivileges for which he has shed blood
to protect. No other group can rightfully say that it harbors no saboteurs, fifth
columnists, or responds to subversive propaganda which is contrary to our
American democratic way of life.
For this record of loyalty and service to our country, many of these citizens are
denied participation in the accepted advantages of a democracy, the right to work
at a livelihood of his own choosing — not because of their inability to perform, but
because of their color.
The Urban League, representing these loyal citizens, has virtually exhausted all
legitimate and peaceful means to gain racial inclusion. Appeals have been
made to all Federal governmental agencies, city administrative ofTicials, and each
segment of the community, including the various branches of the chamber of
commerce, as well as private and public contractors and union ofllcials.
Statistics
There are 108,000 Negroes in St. Louis, plus an additional 32.000 within the
metropolitan area (1940 census). Of this number, over 40,000 are employable
(Urban League estimate). According to the St. Louis Chamber of Commerce
there are 2, .^00 factories producing over 70,000 diflferent items for national defense.
Over $600,000,000 worth of contracts have been placed in St. Louis. It is esti-
mated by the Post-Dispatch (August 17, 1941) that over 200,000 people will be
attracted to St. Louis. We know that many of these will be Negroes, conse-
quently increasing economic and racial problems.
On January 23, 1941, the Urban League conducted a survey of plants receiving
large contracts. Out of 88 concerns, 56 were contacted. Excluding heavy industry
and the shoe industry, these plants did not average 3 Negro workmen per jilant.
Of the 38 industries with contracts for more than 8100,000, with the same exclu-
sions, no Negroes are hired in a skilled capacity and only a very few as menials.
To our knowledge, this condition has not been changed to any noticeable degree
by the President's ultimatum on no discrimination.
At present, discrimination against Negro workers falls into two principal cate-
gories: Construction and production.
C0N.STRUCT10X
Without doubt in this category the unions are the principal obstruction. Many
contractors prefer and seek Negro labor. While displaying democratic charters,
many American Federation of Labor locals openly discriminate against lilack
workers. Since the late twenties the Urban League has fought the lily-white
policies of the St. Louis American Federation of Labor building trades. Attached
to this statement is a request by a local contractor who wishes to respect his
contractual agreement with the Government to hire Negro workmen. This request
was flatly refused.
It is a matter of public record how the Hoisters' Union, headed by Buck Newell,
refused to let hoisters who were employed by local concerns join the union or
continue on their jobs as Negro engineers. This was in spite of the company's
willingness to pay the exorbitant union fees (1931 Urban League files).
Representatives of the contractor and Army (Weldon Springs) admitted to the
Urban League and Government officials that their hands were tied because of the
dictatorial policies of the local building trades, and it was over the latter's protest
that the three Negro painters, the only skilled local of the American Federation of
Labor were given work on this project (Februarj^ 28, 1941). These men were
•denied work cards by their own union organization to which dues were being paid.
The bricklaj^ers' membership (600 as of May 1941) was insufficient to cover
local and Government work. The membership was open to nonresidents, while
at the same time, two Negro members with "transferred cards in good standing"
were continuously denied work.
On June 9, 1941, at 10 a. m., three Negro craftsmen for each of thebrickmasons,
cement finishers, and carpenters local, followed John Church's advice (secretary
of building trades) and applied for membership only to be turned down in two
instances, and advised in the last instance that cards would be issued if work were
NATIONAL DEFENSE MIGRATION 8763
available. At the moment, copies of letters requesting Negro workmen were in
the hands of union officials.
In February 1911 a trip to the Western Cartridge Co., of Illinois, demonstrated
how vicious this discrimination has become. Union officials in control of national
defense housing refused to consider Negro craftsmen unless all white men of this
vicinity were working, and the St. Louis building trades would give consent. One
local of Wood River told of an incident of "tar and feathering" a contractor in
1921 because he wished to work a few Negroes in the construction of a high school,
ironically named Lincoln.
Our experience with the building trades and their "practices of exclusion" in
St. Louis causes us to question which is the stronger — the Government's expressed
policj- of nondiscrimination, or the union's undemocratic policy which denies jobs
and prevents Negroes from obtaining the quota of employment definitely set up
for them by the Government.
Production
In this category, the employer appears responsible in the majority of cases.
In the production of steel, Negroes share well in employment, but few are in the
skilled brackets. By being in the unskilled brackets, these workers are easily
replaced by technological improvements.
The U. S. Cartridge Co. is the only concern which has indicated plans for Negro
workers in production. Efforts to talk with holders of large contracts, either
individually or collectively through the chamber of commerce, have failed.
When the chamber of commerce presented a survey of plants for Government
consideration for granting national defense contracts, the Urban League sub-
mitted a list of 1,500 skilled and semiskilled men for labor supply. Repeated
efforts to be heard have been unsuccessful.
Negro women workers are an unknown entity in national defense jobs. The
needle trades of St. Louis enjoys many large contracts. The International
Ladies Garment Workers LTnion has concluded an agreement with Urban League
officials expressing fairness and the willingness to work with Negroes. It is now
the responsibility of the employers who have for years placed the exclusion on
the doorstep of the unions.
Carter Carburetor, holding over $1,335,535 in contracts, does not employ a
single Negro. This can be multiplied many times by the many other large
concerns.
As the Nation pushes its rearmament program with the avowed purpose of
defending democracy, it is ironic that democracy should be forgotten to permit
discrimination against our own minority race in selecting workers for defense
industries.
Again I repeat: Which is subordinate? The Government's expressed policy
of no discrimination or the unions' policy of discrimination in which many em-
ployers share?
Exhibit A. — St. Louis Employers, Unions and Negro Workers ^
MATERIAL CONTAINED IN ARTICLE APPEARING IN NOVEMBER 1941 ISSUE OF
OPPORTUNITY MAGAZINE
L'nfortunately, St. Louis is known as being one of the worst labor spots in the
country. Last month, high Army officials publicly announced that because of
apparent irregularities in labor leadership, resulting in undue labor stoppages,
parts of the remaining unfilled Army orders will be transferred to other cities and
plants. Labor leaders in other sections of the State have stated to Urban League
officials that their organizations do not wish to have anything to do with many
St. Louis labor leaders because of their ruthless and racketeering methods.
This, as a preclude to a factual account of a struggle for jobs in behalf of the Negro
worker, should explain many problems facing the St. Louis Urban League.
The struggle for defense employment in St. Louis has certain unique aspects.
With the exceptions of the shoe industry, steel industry, and textile industry, the-
job prospects are still in the construction stage. Even at this period we may
safely analyze the job opportunities for the Negro worker.
The St. Louis Chamber of Commerce, in a recent survey, estimated that the 12
major defense plants in the St. Louis area will require 68,400 workers when oper-
ating at scheduled capacity. Approximately 37,000 are now employed. Exclud-
ing construction workers, 31,400 are now working in these plants and in the next
' This is essentially the material which was contained in an article which appeared in the November
issue of Opportunity Magazine.
3764 S'''- i^uis iii:a HI NT. s
10 numlhs 37.000 will bo added. A survey of those .same plants indicated that
58,000 i)ro(luctic)n workers will l)e employed to 10,400 nonproduction workers.
Of this number, 5"), 400 will bo men and 13,000 will be women. Tho local labor
8upi)ly can meet this demand as there are 93,000 workers in this area available
for emjjloyment, in spite of selective service and risinu; employment figures. To
this number must be added technical workers and the normal immiffration which
should approximate 7'). 000 workers. Over $700,000,000 in defense; orders have
lioon allocated to metroi)olitan St. T,ouis. There are approximately 140,000
Nofiroes in this anvi, of which lOS.OOO live within the corporate; limits of St
Ivouis. Out of this number ()3,000 are employable and avaihiljle for national
defense work. Tho loajjue finds its jobs increasingly difficult as, like Kansas
City in tho western part of the State, St. Louis is socially and traditionally
southern without many of the labor advantages of cities in tho solid South.
To reiterate, jobs at present fall into two categories: Construction and produc-
tion. Let us examine the black workers' ])light in the construction field directly
related to national defense. At peak periods of construction the cost j)lus fixed-fee
job (small-arms plant) employed l,r)00 Negro laborers out of a crew of 4,500
laborers (9,000-man pay roll). Thirty miles from St. Louis the Government
built a TNT plant, employed 6,000 men, of which 000 wore Negro laborers.
Twenty miles from St. Louis, 100 Negro laborers worked on the construction of a
powder plant dumi).
The only skilled men em]iloyed in this immediate vicinity at present are the
throe Negro union painters working at $15 per day as the result of the persuasion
and coercion of the Urban League and Office of Production Management repre-
sentatives in joint conference with the contractors. In spite of the Negro union-
ists being in good standing with the white parent local, they were excluded from
this employment as these were "white union men's jobs." These are the only
skilled Negro craftsmen working in this area. The auxiliary local numbers
7 men, of which are active. The white parent local numbers 2,300 men and
refuses the Negro local more men.
Two months ago. 12 Negro union bricklayers were working on a private union
job. Only two of these men were St. Louisans (10 were from Kansas City)
and their memberships were received in Tennessee and forced u]ion the brick-
layers' local by the league during the time the national convention of brick-
layers met in St. Louis. The local refuses to admit more Negroes or to grant
work to these men whoso qualifications are beyond question.
Tho Urban League is continuing its 15-year fight against the exclusion of the
American Federation of Labor building trades in St. Louis which has received
national recognition for being one of the most entrenched and racket-ridden
groups in the country. In these years the league has been directly responsible
for or ])articiy)ated in the fight which has given the black craftsmen a painters'
auxiliary, plasterers' auxiliary, and two brickmasons with cards. Negroes par-
ticipate in over 36 locals and internationals in St. Louis, many holding responsible
positions. The Negro Building & Hod Carriers' Union has been organized for
years, but recently fell into the hands of the receivers and management of the
international vice president of the white local. The white local has been exposed
as racket-ridden and 4 leaders have been indicted by the grand jurv for the theft
of $6,000.
The building trades make no secret of their exclusion of the black craftsmen,
and 1 week ago defied a conference with the mayor and Government officials on
this matter. After many conferences and much persuasion, tho league. Govern-
ment officials, and Mr. E. J. Bradley, vice president of the Brotherhood of Sleeping
Car Porters, forced the car]ienters' local to give examinations to 15 Negro car-
penters on the strength of a proportional clause in a Negro housing jirojoct which
is now under construction, and which both unions and contractors are ignoring.
St. Louis proper has no defense housing; the closest being at Alton, 111., for the
Western Cartridge Co. When league representatives a])])roached those con-
tractors, they referred to a "gentlemen's closed shop" agreement with the Ameri-
can Federation of Labor unions which exclude Negroes. In conference with
these unions they were told of the contractors' willingness to employ Negro
craftsmen. The unions refused membership until all white craftsmen were
employed, which obviously meant nonresident as well as local, as union books
were open to these journeymen. Those unionists reminded the league reiirosen-
tatives that the community would not stand for Negro craftsmen, and referred
to 1921 when a white contractor, building a Wood River, 111., high school ironically
named "Lincoln," was tarred and feathered for employing Negroes. We wore
in Wood River, the closest town to this housing project, talking with the same
people.
NATIONAL DEFENSE MIGRATION 8765
The Negro housing project has a 3.2 percent Negro skilled craftsmen clause,
based on the 1930 census ])ercentage of Negro craftsmen within the total St.
Louis population. The Government officials, the mayor and the league have been
unable to force the local housing authority, contractor, or union to honor this
signed contract. Last week the industrial secretary prepared a list of eligible
complainants for a suit to be filed by the local N. A. A. C. P. against the contractor
and housing authority. If an injunction is granted it will force the employment
of cement finishers, carpenters, brickmasons, and other craftsmen of which the
contractor admits he is in need and which the union cannot or has not supplied.
Our experience indicates that this is purely a local matter, as in cooperation
with other groups and Government officials, the league made it possible for 150
Negro carpenters to work on the same job with white carpenters in the construc-
tion of Fort Leonard Wood, a distance of 140 miles from St. Louis, but outside
of the jurisdiction of the St. Louis building trades.
In the field of production the efforts are less complete in many details due to
the present stage of employment and the traditional prejudices of employers
and workers. One can safely say that in construction, the area of obstruction is
definitely on the union's part; in production — both unions and employers ar^
equally responsible.
When the St. Louis Chamber of Commerce received advance information that
the United States was to prepare for defense, it set a pace for the other large cities
by compiling data on all types of St. Louis production which could be utilized by
the Government for purposes of defense. Likewise the St. Louis Urban League
received "closed information" that the metropolitan committee on preparedness
of the chamber of commerce was conducting this cataloged survey. Conse-
quently, the league surprised and probably embarrassed the committee, and cer-
tainly the labor supply chairman wlio at that time was the head of the local
State employment service with certain convictions on Negro labor and agencies,
by placing in their hands a catalog of 1,500 Negro workers' names who could be
used to produce national-defense material, but who were in many instances
denied employment not because they lacked skill but because of their color.
The local Curtiss-W^right plant was increasing production and workers. Locally
this company has a long record of working Negroes only in the traditional jobs.
This has greater complications than earnings lost to the Negro community, as the
local board of education refuses training to Negro youth based on local industries'
employment categories and specifically Curtiss- Wright. Out of 3,000 workers
only 30 Negroes were employed and these as porters. After much persuasion
by the league and other groups, the Curtiss- Wright management agreed to use
Negroes in other categories providing the experiment of training and use of
Negro craftsmen in the Buffalo parent plant was a success. On October 1,
15 Negroes were called in for interviews, only 4 were employed and the reason
for the exclusion of the remaining 11 was that their formal training was so
superior to the presently employed whites that friction would certainly develop.
Confirmation was received from a high Government official that workers within
the plant have circulated and signed a petition stating that "we, the undersigned
white workers, do not wish to work with Negroes." The league has made certain
suggestions on this matter and the results are unknown to date. It should be
said that St. Louis is one of the few cities where the American Federation of
Labor aircraft locals control the Curtiss- Wright plant.
The previously mentioned 68,000 workers needed in national-defense production
will be working in 5 principal categories: Administrative and technical, clerical,
skil'ed, semiskilled, and untrained. Because of the traditional attitude of labor
and the board of education on training at this stage, Negroes can expect employ-
ment only in the latter 2 categories. This conclusion is based on a recent survey
by the league and the recent cataloging of 1,000 workers with training and experi-
ence which would qualify them for work as foremen, supervisors, and adjusters
for one of the local arms plants. There are many with the educational l^ackground
and aptitude for training which could qualify them if given short training courses.
Many could transfer skills. A fewer number were machinist helpers and still
fewer, machinists. College men and persons with mechanical backgrounds con-
stitute the majority of the men interviewed. There are unlimited numbers for
unskilled production work.
The most hopeful prospect in production work is with the small-arms plant with
which the league is working to absorb large numbers of skilled and unskilled
Negro workers, women as well as men. Approximately 3,000 will be employed,
of which 400 will be supervisors, foremen, and machine adjusters. A 6 to 8 weeks,
course of instruction will be given men in these catagories with pay while learning.
The league has interviewed over 1,000 who will receive preferential consideration.
8766 ST- I>OUIS HEAIUNdS
I'^inal selection and training will start as soon as labor disputes and slow construc-
tion permit thci)lantto be conijileted and as soon as the bullet machines are deliv-
ered — now 2 months late. Negroes will make .30 caliber rifle bullets, while .50
caliber machine-gun bullets will be madt; by whites. Our calculations are that
also over 500 Negro traditional jobs will be available.
WOMEX WOUKERS
Now what is to happen to the Negro women in this total defense picture?
The league has not overlooked this problem, yet our efforts have been less success-
ful. So far, greatest relief has come through national defense indirectly. As
white womanhood has left the formerly traditional Negro job for higher paying
and better working conditions in national defense, the job she leaves Ijehind has
returned to Negro women workers. In St. Louis, the Negro woman in national
defense is still an unknown entity. The needle trades of St. Louis enjoy huge
contracts. Prior to national defense, this industry received the league's arduous
attention. After 8 years of buck passing, months ago, a 4-point agreement
was made with the International Ladies' Garment Workers' Union and the
league. This agreement placed clearly the responsibility for Negro exclusion
on the doorstep of the employer. In St. Louis this industry is controlled by a
minority which has a history of persecution and to whom our arguments arc now
more vital and meaningful than they were 2 years ago. So far, only 1 plant
has employed Negro power-machine operators (24), and the league has now 2
very good prospects, 1 of which is a factory chain. According to plans, women
will be used in large numbers in the production or small arms. Women will
operate tempering machines, bullet-jacket trimming machines, packing and
gaging automatic machines, and be employed as inspectors.
The urban League is continuing to develop among employers a greater aware-
ness of the availability and capabihty of Negro workers for semiskilled and skilled
types of emjiloyment in nondefense as well as defense industries. Success in
replacing a white painter with a Negro union painter in our large Negro hospital
led to efforts to obtain employment for Negroes with the General Motors plant,
Southwestern Bell Telephone, as well as smaller plants and hotels.
Armed with the President's Executive order, a survey was made by the league
of 57 out of 87 plants holding contracts. When construction, heavy industry,
and the shoe industries were excluded, these plants contacted did not average
2 Negroes per plant. Out of 12 plants holding the largest contracts, only 4
employed Negroes and these were in the traditional jobs. This does not mean
that the Executive order has not been of service. Other than as an additional
tool of persuasion, its effects are not very apparent.
In talking with production employers all will admit good Intentions and
knowledge of such an order, but only two representatives of large concerns
have expressed concern over the President's order and how to be loyal in face of
local prejudice and tradition. The league anticipates greater compliance through
governmental projects rather than nondefense industries. One thing is certain,
the unions' leadership and membership are generally indifferent.
The league is quite concerned over the recent announcement that the building
trades and the local State employment office are planning a registration of union
membership which means the transfer of construction workers into production
workers. We are certain such a plan is not aimed primarily at the Negro workers,
but will certainly mitigate against them because of the traditional exclusions
existing in the building trades previously mentioned. Certain safeguards have
been promised. We shall continue to remind the obstructionists that democracy
demands full ])articipation.
Exhibit B. — Some Examples of Discrimination Against Negroes
statement of evin s. mathews and blyden a. steele, of st. louis, describing
instances of negro DISCRIMINATION
August 11, 1941.
We, the undersigned, were summoned Frida.y, August 8, 1941, by telegram
from Edward Donnell}', secretary of the Bricklayers, Masons, and Plasterers'
International Union No. 1, of Missouri, to report to bricklayers' headquarters at
once for work on a Federal project. After leaving our jobs and returning to
homes and to the home local, we were sent to work on National Youth Administra-
tion center at Leffingwell and Montgomery Avenues, for Saturday and Sunday,
NATIONAL DEFENSE MIGRATION 8767
August 9 and 10. After quitting time Saturday, we were told by the man in
charge of the work that we would not be needed next day, Sunday; that they
would finish up with the five white bricklayers, who also worked Saturday. We
left and later got our tools.
Reported to the secretary, Edward Donnelly, 4020 Page Boulevard, Monday
morning, August II, 8 o'clock. Inquired if we were summoned for only I day's
work on a Federal project. Donnelly stated that it was expected that the two
of us would do the entire masonry alone, approximately a week's work. However,
he had no explanation for the fact that five other bricklayers were used and our
services were dispensed with after 1 day's employment. Then we inquired for
employment at the small-arms plant. When this request was made, Donnelly
stated that he had canvassed several contractors and found only one who would
give us employment; some small contractor with bungalow work, for which the
union scale is only $1.25 per hour. This work we did not choose to accept, and
asked to be certified from No. I for w^ork at the small-arms plant. In answer to
this, he stated that he does not send bricklayers from the hall for employment at
the plant, that all hiring is done at the plant. While we were in this conversation
with Donnellj', several bricklayers came in and transacted business with him.
One was a bricklayer who made his final payment on his initiation fee and signed
his application blank for international union membership. Another was a
bricklayer from Iowa who paid for and secured a working privilege permit to
work in the jurisdiction of No. 1 of Missouri. After making continuous requests
for employment at the small-arms plant, Donnelly suggested that we go there, as
all bricklayers were hired at the plant.
We immediately left and went to the small-arms plant. As we approached the
employment gate which was open, we saw one-half dozen or more bricklayers
within the gate. Also inside the gate was Leo Havey, business agent of No. 1,
and Art Smith, the bricklayers' steward at the small-arms plant. Just ahead and
going into the gate was the bricklayer from Iowa who had received a working
privilege permit. We went inside the gate as several other bricklayers did, and
waited while Art Smith took the names of two bricklayers, including the brick-
layer from Iowa. Immediately we requested employment in the plant. He
turned and said, "Havey has something for you fellows"; that the hiring is done
at the hall, and suggested we go to the hall. He then went into the employment
office. Havey had disappeared into the employment office as we approached the
gate. Then Smith went into the office and called the two bricklayers, whose
names he had just taken, into the employment office. All of this took place
within the enclosure between the gate and office door. Two or three other
bricklayers, whose names had not yet been taken, came in the enclosure and
approached the door, then went in the door, and we went in also. One was the
bricklayer who had just paid his initiation fee. Inside the office some man of
the personnel department approached these two bricklayers and asked if they
were bricklayers. They said "yes," and he told them where to line up and wait
to be employed. He turned and asked us what we wanted. We told him we
were also bricklayers and were applying for employment in the plant. He told
us to wait outside the door and said he was not ready for us yet. We told him
we were merely seeking employment and wanted to see Havey or Smith, who
were hiring the bricklayers. He told us that it was too crowded inside, although
other prospective workmen continued to come in the door. When we again
stated our business there, he then turned and called a city police officer and told
him to put us out. We quietly complied with the officer's request and stepped
outside the door.
Outside the employment office we explained to the patrolman that we were not
trouble-makers — that we were trying to exercise our rights as citizens of a democ-
racy and were trying to participate in the defense program as was proclaimed and
ordered by President Roosevelt on June 25, I94I. Suddenly three or more
uniformed guards of the Burns Detective Agency appeared within the enclosure
to clear all to the outside of the gate. We explained our position to the head
guard who remembered that one of us (Steele) had applied through him for
permission to see Mr. Marshall, at the main gate, about a month previously in
regard to employment. While conversing with the guard. Art Smith passed by.
We again requested employment at the small-arms plant. In answer to this,
he told the guard we belonged outside the gate.
After discussing the matter with the guard, the patrolman, and gatekeeper,
they all informed us that the hiring as far as they see and know, is done through
the union local. We went out of the plant gate. We returned, as was suggested
by guards and gatekeeper, to our local office to again apply through the hall for
employment. Donnelly was emphatic in stating that he does not send brick-
60396 — 42 — pt. 23— — 6
5;768 ST. unis ukauincjs
layorji to tho plant, althoush we saw sovoral of tho l>rickla.vor< nvho woro at the
hrioklayors" offioo earlier that inoriiin^; at the same time we were there) po into
the ofiice and be hired. When he insisted that the hiring is all done out there,
we nv^uested that he call the employment office and state that we were in the
union hall and were desirous of empK)yment. He called atui s^Hike to Havey.
At the end of their conversation, he said that the job was Knuled up for the day.
I^ter. about 12 o'clock, we got authoritative information that Mr. Marshall,
pt^rsoi\nel manager for Kruco Const met ioi\ Co., stated that he needed 100 brick-
layers or mort\ but that he cai\not hire us unless No. 1 of Missouri says so.
We n^turiied again on Wednesday, .\ugust 13. about 9 a. m., to seek employment
at the small arms plant. When we approacheil the gate, there were about 12
bricklayers inside and the bricklayer steward was taking their names. One
bricklayer fn.Mii Virginia, who had not as yet received a working-privilege permit
from our local. w:is being hired. Several other bricklayers came inside the gate
with their plumlvrules wrapped as is frequently done by bricklayers when
traveling, which indicated they were from other cities or States. The bricklayer
.-teward took the names of all bricklayers within the gate and then asked aloud if
there were any mort^ bricklayers. We immediately stated that we were there for
employment and that we were bricklayers and asked to be employed. The brick-
layer stewarii turned away and said: "You fellows must think you are something
special.'" We then :u<ked Havey why were out-of-town bricklayers being hired
and we have paid-up vmion cards in this local and have applied for employment
since the job tirst started. Havey replied: "Go to the hall — there's work for you
there." The men whose names were taken, were taken into the employment office
where the fingerprinting and other routine of employment are completed. We
then left the site of the plant.
Later we went to the hall and had a lengthy conference with Mr. Fitzmaurice
and Mr. Donnelly. Mr. Fitzmaurice admitted that our nonemployment at the
small arms plant was due to discrimination. He also admitted that 100 brick-
layers were needed at the small arms plant. He stated that the international
union and the local would not raise any objection if we were given employment
there and he insinuated that it was the fault of the construction company and its
representatives. AVe then asked if he would go to the employment office while we
applied for work so that if we were refused, he could state that the international
union and the loc:U would have no objections to our employment. He stated that
he did not want to put anyone on the spot and declined to go with us to the plant.
I^ter the same day. we learned that the Office of Production Management
representative. Mr. E. R. Quick, was in the city investigating the matter. We
had a conference with Mr. Quick Thursday morning at 10 a. m. August 14. The
conference lasted a couple of hours and we placed the matter in detail before him.
At the end of this conference he asked us to give him the entire next day, Friday,
to arrange for our employment with Messrs. Havey. Marshall and Fitzmaurice
and told us to call him at 5 p. m. Friday. We asked if we should apply again for
employment Friday morning, but he suggested that we wait until we hear from
him at o p. ni.
Later Mr. Quick stated that he had failed to arrange the conference as he had
hoped but that he had talked individually to those involved but the result was that
he could not bring about our employment at the plant.
August Ui. 1941, we received a letter from the international union stating that
the matter of our employment at the small arms plant was entirely beyond their
control and that they were unable to be of any assistance.
Be it further understood that one of us (Steele') applied at the small arms plant
in writing the first week bricklaying began, to Mr. Marshall, personnel director
at the Fruco Construction Co., for employment. At a later date, we sent two
more letters of application, one to Mr. Marshall, and one to Mr. Voirol, dated
.luly 20. 1941.
We. the undersigned bricklayers, declare the above to be a true statement of our
t^fforts to obtain employment at the small arms plant. 4300 Goodfellow Avenue,
."^t. Louis. Mo., being built by the Fruco Construction Co. for the United States
Government on cost-plus-fee basis: said employmejit has been denied because of
race and color.
ElVIX S. ^L\THEWS,
^416 Xorth Whittier Avenue, St. Louis, Mo.
Blydex a. Steele,
4o96 Garfield Avenue, St. Louis, Mo,
NATIDNAL DEFENSK .MK;RATK)N 8769
Exhibit C. — Request by Contractok for Xegro Labor
June 10, 1941.
Re: No. 1-1, Carr Square Village, St. Louis, Mo.
Mr. .John L. Church,
President, Building and Construction Trades Council,
1220 North Grand, St. Louis, Mo.
Dear Sir: Our contract with the hou.sing authority states that we are to
employ 3.2 percent Negro skilled mechanics on this project. At the present
time we have no Xegro mechanics in our employ. It is imperative that we live
up to this part of our agreement.
We can use this percent of Negro labor at this time and would like to know if
the building trades are in position to furnish these men at this time.
Yours very truly,
J. E. Dunn Construction Co.,
A. .J. Tnis, Superintendent.
TESTIMONY OF PANEL REPRESENTING CITY OF ST. LOUIS—
Resumed
The Chairman. Various members of the committee will now ask
you questions. Afterwards, if some thought occurs to any of you
which has not been covered, you will be permitted to express your-
selves.
Now, Mr. Mayor, can you tell the committee how much migra-
tion, planned or unplanned, there has been into the St. Louis indus-
trial area since June 1940?
Mayor Becker. Mr. Chairman, it has been variously estimated.
I have seen statements in the press, varying between 80,000 and
200,000 for St. Louis and St. Louis County. However, there is no
accurate check that we can make. A real survey would show over
40,000, I should say. I can say to you that somewhere in the neigh-
borhood of 40,000 would be a better approximation of the migration
brought about by reason of our defense plants here. That is for St.
Louis and St. Louis County.
The Chairman. ^Miat is the population of St. Louis?
Mayor Becker. Over 800,000. There are over 1,000,000 between
St. Louis and St. Louis County.
DISTINCTION between COUNTY AND CITY
I hope the members of the committee will bear in mind that St.
Louis is a peculiarly situated city. It is not in any county. We have
St. Louis County and the city of St. Louis, distinct and separate.
St. Louis for itself has municipal functions as well as county functions,
but it lies in no county. So we are still in a section, so far as area is
concerned, that was given us in 1876, and we have never been able to
increase our area for the city of St. Louis. St. Louis County, immedi-
ately adjoining, embraces a section with a municipal area, just as in
St. Louis. You may drive into incorporated towns without knowing
you are passing from the city of St. Louis into a completely different
county. This should be kept in mind, for the reason that here you
are dealing with the city of St. Louis itself and with the county
separately. But they are, in point of fact, parts of one industrial
area. AMien we speak of the St. Louis industrial area, we speak of
8770 ^'l' J-<" I^ HKARINGS
tlu' section lyiiiji; innncdijitcly across the lino, going into Illinois, in
addition to St. Louis and St. Louis County.
The Chaiuman. The county of St. Louis has about 200,000?
Mayor Beckiou. About 275,000.
The Chairman. Wliat is the })oi)ulation of that part of Illinois
which lies just across the river and is included in the St. Louis defense
area?
Mayor Reckeh. East St. Louis has about 90,000, and the whole
ar(>a has about 250,000. You have over there the Tri-City area, so-
called — East St. Louis, Granite City, and Alton, in Madison County.
Contiguous to East St. Louis, directly north, that section includes a
quarter of a million ])(>rsons.
The CiiAiUiMAN. Is there any duplication of taxes between county
and city?
Mayor Becker. No; they are separate.
We have 114 comities in the State, and in addition to those we have
the city of St. Louis. So we have really 115 counties. St. Louis has
all the responsibilities of a county.
The Chairman. Wliat would you do if you wanted to make appli-
cation to the Federal Government for assistance in building a sewage-
disposal project?
Maj^or Becker. The county would proceed as an independent
entity. The comity has enjoyed many benefits by reason of its prox-
imity to St. Louis. It has grown in population. It has the advantage
of larger space. Half of the county is still an agricultural area, but
you might say the other half is really the same as our city here. It
has the same problems, largely. It is made up of incorporated cities.
The Chairman. When you campaign for mayor of St. Louis, do
you go out to the county of St. Louis?
Mayor Becker. No; we stay within our own confines. We make
the 28 wards here. Our city has no county judges or county court.
We have a city set-up, and take on, in addition to it, the iiecessaiy
State officers, who have their offices here.
Mr. Arnold. Mr. Gvvinncr, the mayor gave a figure of 40,000 in-
migrants. Has any survey been made to determine how many of these
migrants have secured jobs?
Mr. GwiNNER. As nearly as we can figure, the total number of un-
employed in the area has dropped from 90,000 to 45,500. Now, some
of those jobs undoubtedly went to residents. It is impossible to tell
how many of the migrants got jobs. The number of employed jumped
from about 525,000 to around 645,000.
Mr. Arnold. That is an increase of 120,000.
DEFENSE contract AWARDS
Mr. Curtis. In terms of dollar value, what is the volume of defense-
contracts in this area. Air. W^hiteside?
Mr. Whiteside. L^p until November 1, as far as we were able to
determine, it was about $591,000,000. I should say that in addition
to that there have been some contracts let here, particularly for defense
plant operations where the production order has not been stated.
They are orders of a more or less secret nature. There are other
orders for su])sistence items, which are not reported. Tliev would
raise that total, in our estimation, by $150,000,000 or $200,000,000;.
NATIONAL DEFENSE MIGRATION 8771
SO roughly, we would say that $750,000,000 in defense contracts have
been awarded here since the beginning of the defense program.
Mr. Curtis. In general, that money goes for what tj^pe of product?
Mr. Whiteside. It is probably as broad a spread as in any area.
It goes for the construction of aircraft and aircraft parts, ammunition,
ammunition components and supplies, clothing, machinery, ordnance
equipment, all types of equipment to go into camps and camp build-
ings, such as camp bakeries and the like. For instance, there are pack-
ing materials, transportation equipment, cables, photographic equip-
ment, and a miscellaneous category for hospitals and athletics.
Mr. Curtis. Would you give us a list of the major firms that have
these contracts and the number of workers employed?
Mr. Whiteside. I don't have that with me, but I will be very glad
to supply the committee with such a list.
Mr. Sparkman. Mr. Karches, could you give us .an estimate of
the peak employment required by these contracts?
Mr. Karches. Mr. Wliiteside would be better equipped to answer
that. There have been various estimates.
Mr. Whiteside. Referring to the mayor's statement, I would like
to call your attention to the fact that this area includes the east side
of the river. The 12 largest defense contractors will, at their peak, as
they now estimate, require approximately 70,000 workers. They
now are employmg more than 30,000, so there will be a net addition
of fewer than 40,000 to their present employment.
Mr. Sparkman. Have those figures been broken down accordmg to
skills and types of labor required?
Mr. Whiteside. I haven't broken them down. I imderstand the
plants have broken them down, and have been working with the
public employment service in such a break-down.
skilled labor
Mr. Karches. You might estimate 30 to 35 percent will have to
be skilled.
Mr. Whiteside. I want to be absolutely clear. I didn't say that
40,000 would have to be brought in from outside the area. I want to
make it clear that these plants, at their peak employment period,
will need probably 40,000 more workers, but many of these may be
residents rather than migrants.
Mr. OsMERS. I wonder if Mr. Slinkard coidd tell us if he knows
where these workers are to come from.
Mr. Slinkard. There are several channels through which those
38,000 or 40,000 employees needed by the expandmg defense pro-
gram might be requisitioned or procured.
Primarily, however, there is the problem of unemployment among
those people who have in the past been working on what today are
deemed nondefcnse items, and are rapidly being affected by priority
imemployment. What the ratio of that priority unemployment will
be, what the total number affected in that manner will be, remains to
be seen. It is expected by various organizations in the community
to be a large number. In fact, I would say that a greater portion if
not all of the needed 38,000 or 40,000 can be found available in one
capacity or another here in the St. Louis area.
§772 ^'''- '-'"■^ iii:akin(;s
Mr. OsMKRS. Ml', rivviniicr, lias your organization inado any
ostimalc of llic local labor supply?
Mr. (iwixxKU. Wr (jtrurc it at <S(), ()()() for the entire nietroi)olitan
area. That includes about ;iO,()()0 incoming migrant workers in the
past IS months — not normal ])opulation increase. It is estimated that
;K),0()0 to 35,000 have entered the labor market who would not
normally have been in it.
LABOR SUPPLY MEETS REQUIREMENTS
Mr. OsMERS. How many of those arc available to fill the need
mentioned here of 38,000 to 40,000 new workers?
Mr. G WINNER. We figure the present unemployed group is 43,000
to 45,000.
Mr. OsMEKS. i\Ir. Slinkard, in your opinion could these labor
needs have been filled in the community without migration?
Mr. Slinkard. Yes.
Mr. Karches. May I add that we circularized some 1,500 com-
panies in Missouri, asking various questions, one of which was:
"Ap])ioximately how many workers now in your employ may be
unemployed because of priority unemployment?"
Of the 1,200 or 1,500 questionnaires sent, we had about 20 percent
response. In the group covered, there were 5,546 workers to be imem-
ploycd on account of priorities. In St. Louis, 130 concerns answered
that questionnaire, which represents approximately 60 percent of the
replies. However, more defense contracts are concentrated here in
this area than elsewhere in the State.
I wish to add that I believe we have sufficient labor in this area to
take care of our needs. There may be some dislocations from the
effects of priorities, but diversified industry, with which we are
blessed here, may be the means of absorbing these; people.
Mr. OsMERS. In some other areas where they do not have the
diversification you have in the St. Louis area, thousands of people are
becoming unemployed due to priorities. In view of this fact, have you
noticed any constant flow of migration into St. Louis — needless migra-
tion we might call it — as a rcsidt of priority unemployment elsewhere?
Mr. Slinkard. I would reply to a portion of your question, leaving
off the latter part which refers to priority unemployment elsewhere,
because I don't think all the migrants might fall in that categoiy.
I might say they are attracted in many cases by needless advertising
on the part of some of the defense contractors. For instance, a
defense plant which may be in need of a particidar skilled worker, by
the mere insertion of an ad in out-of-city or out-of-State newspapers
requesting tool and die makers, may draw a few qualified tool and die
makers into St. Louis; but at the same time this advertisement is
likely to attract an even greater number of persons who are not tool
and die makers and who have no essential qualifications.
A more practical approach to the problem in case tool and die makers
are needed is through th(> accepted employment services, which can
first determine whether that type of worker is available in this area,
and second, if not available, can requisition such persons from some
area where priority unemployment may be having its effect.
Mr. Karches. I have headed the industrial relations office in St.
Louis and I know some of the employment procedures. Checking
NATIONAL DEFENSE MIGRATION 8773
them from time to time, I find that employment managers generally
make an effort to minimize the numbers of people whom they attract
from other areas, and try to hire men on the basis of their record in
local industry, except for jobs requiring higher skills, such as tool and
die makers.
REGULATION OF PRIVATE EMPLOYMENT AGENCIES AND LABOR CON-
TRACTORS
The ChaiRxMAN. Gentlemen, we have gone into that problem in
our investigation, and we have found that some private employment
agencies have been dealing in interstate commerce, in arranging for
people to go across State lines, through the advertisement of jobs.
We have also found that some labor contractors have been taking poor
people, 35 in a truck, and treating them worse than cattle, with no
stops at all, from Texas to Michigan, from Florida to New York.
This committee, therefore, introduced a bill for the regulation of private
employment agencies and labor contractors. I was unable to go to
Hastings, Nebr., to open our recent hearings there, for the reason that
all week we had in Washington people from all over the country testi-
fying regarding the committee's two bills.
Mayor Becker. Are those bills passed?
The Chairman. The hearings are now before the House Labor
Committee. This is the first time in the history of the United States,
as far as I laiow, that any reform of this nature has been undertaken.
We have been very busy in this country in the last 165 years. We
have made regulations concerning interstate commerce in iron and
coal and other resources, but we have done nothing concerning human
interstate commerce. That is why we are now trying to approach
this problem. We are not attacking the honest employment agency,
but w^e are after those fellows who cheat poor people in search of work.
From Nebraska, for example, 32,000 farmers have gone out in 8
years. They take to the road. They don't know where to go, and they
run into these private employment agencies. Many of them have
been victimized. It is a shame and a disgrace. They should have
been helped right at home, before they left; they should have been
provided with information as to job opportunities. When they take
the road they should be treated at least like human beings. These
farmers who pull up stakes and leave because the farm is gone do not
change overnight morally and spiritually. They are still good citizens
of the United States.
Mayor Becker. I have just glanced through this analysis of the
bill. It takes up the very questions we have been discussing.^
The Chairman. The same hazards await people coming to St.
Louis, Trenton, Hartford, Los Angeles, or Seattle. That analysis
says in plain language just what the bill means, and we may want
your support for it when the time comes.
Mayor Becker. I should like to bring to the committee's atten-
tion certain things I have observed — I am speaking primarily as
mayor — among the people that have come in and contacted the
mayor's office, and in the mail which goes over my desk.
I 11. K. 5510, a bill to regulate private employment agencie.^^ engaged in interstate commerce, now pending
before the U. S. Congress.
3774 S'A'- I^UIS HEARINGS
EFFECT OF ADVERTISING ON MKiKATION
There lias l)een a very lat«;e influx of labor to our city, and a good
portion of it has l)e(>n attracted seemingly hy newspajx'r articles with
reference to the hundreds of millions of dollars awarded in contracts
here. For e.\ami)le, you learn that we are having built here by the
Government the largest small-arms ])lant in the world, which ulti-
niati'ly will employ 30,000 or 40,000 people. The facts are correct,
but when that story is given out through the newspapers, tlic fact
should also be stated that here in St. Louis we still have, despite the
building of new plants and the expansion of others, a considerable
nund)er of nnem])loyed.
When they were building Fort Leonard Wood, we still had about
50,000 unemployed. At the present we have 43,000 unemi)l()yed.
At the same time, those men wdio are working on the building
of the TNT plant and on the small-arms plant — and there are
thousands of them, working three shifts a day — will some day come
back into the labor market. As those buildings are completed, that
group of men — and they are skilled workers too, because they are
working on fireproof buildings required skilled labor — will come
back into the class of unemployed. That is something that has not
been stressed. Li addition to the 43,000 unemployed people here in
St. Louis, with these Government emergency buildings being built,
we still have that group of potential unemployed.
When Fort Leonard Wood was completed, as fast as they were
through, the workers came right back into St. Louis. Those men
had the best opportunity and a far larger percentage of those men
got jobs than did our workmen resident here in St. Louis.
MOVEMENTS OF SKILLED LABOR
Mr. Sparkman. Mr. Mayor, may I interrupt to suggest that a m
large number of those skilled construction workers are not restricted f
to this local area for their operations? For example, in my home
town there is being built a large defense plant, and a great many of
the skilled structural steel workers on that plant are coming from
St. Louis.
Mayor Becker. And when you arc through with them, they come
back here.
Mr. Sparkman, Those highly skilled w^orkers are not restricted to
a small area. They operate pretty well all over the country.
Mayor Becker. Provided there is employment elsewhere for them.
You take your ow^n community. You see the same thing happen in
your community. You have skilled workers, and they will leave and
go back to the places they came from.
We are not worried as much about our skilled labor as we arc about
the 43,000 unemployed, with migration still coming in. They come
in every day, mostly in cars. Sometimes they are stranded upon the
street. Their gas runs out even before they get to a destination or
can put the car on a lot. That is happening every day, and it is going
to continue just as long as you have newspapers to carry the facts as
additional contracts are given out. That is our problem.
The Chairman. Mr. Mayor, w'c find comparable conditions in other
defense centers. My own opinion is that the Federal Government has
NATIONAL DEFENSE MIGRATION 8775
not been entirely successful with the Federal Employment Office, nor
have the State employment agencies.
Let me give you an example. Do you know, Mr. Mayor, and gentle-
men of this panel, that a couple of months ago in Washington evidence
was introckiced that there were at that time 5,000,000 unemployed
employables on the agencies' registers in the United States? '
Mayor Becker. May I ask you, Mr. Tolan, as of what date that
was?
The Chairman. About June. In mid-June the committee went to
San Diego and held a hearing there. San Diego has 1 housing project
of 3,000 units, which houses about 10,000 people. I asked them how
they were affected with regard to skilled and unskilled labor. They
said they had no trouble at all, excepting with the painters. Well, I
had in my office, I don't know how many letters from painters in the
San Francisco area who wanted jobs — good painters. So I had to go
back and write them all letters. In other words, there is some missing
link there.
Another problem we found in Baltimore and other places was that
the management or employers won't go to employment agencies.
They would rather have the men pile up at the plant gate and inter-
view them themselves.
I think we have to do something about it, to get the Federal Gov-
ernment on the job and create a more efficient clearing house for em-
ployment. If you employ your local people, skilled or unskilled, when
this war is over you will have averted excess migration.
Mayor Becker. Absolutely.
The Chairman. This committee has heard testimony in Detroit
and Washington concerning the increased problem of priority unem-
ployment. Priority unemployment in some parts of the country,
combined with so-called defense booms in others, inevitably leads to
heavy migration of workers. The committee would like to have the
opinion of the panel as to the degree to which the St. Louis area has
worked out methods of minimizing this migration.
Congressman Curtis will ask the questions.
MINIMIZING DEFENSE MIGRATION THROUGH SUBCONTRACTING
Mr. Curtis. Mr. Karches, one of the means which this committee
has advocated to minimize defense migi-ation is subcontracting. We
are interested in the full use of the labor supply for defense, and have
taken the position that subcontracting will help to avert major dis-
locations. What arrangements have been made by manufacturers
and other interested groups to secure their share of defense contracts
through subcontracting in St. Louis?
Mr. Karches. There are several means. One is to educate the
manufacturer to use the facilities provided by the Government, the
Contract Distribution Division of O. P. M. seeks to establish a closer
relationship with the manufacturer.
Another means of stimulating subcontracting is to encourage defense
clinics of a type that would be practical for the small manufacturer —
• See testimony of Arthur J. Altmever, chairman, Social Security Board, Washington hearings, pt. 17,
p. 6782.
,S77G ^'''- ''<»'i^ HKARiN(;s
that is, to <i:ivo liiin an opportunity to view small component parts
that mijj;ht lit into his particular operations.
Another would be — and they »i'c now attempting it — to make visits
to the prime contractor, to get contracts. A number of those meetings
have been ell'ected between sniull manufacturers and the prime con-
tractor. One (hfliculty here, however, as (U'scrib(>d by a large prime
<lcf(>nsc couti-actor in this locality, is that he has bid in at a certain unit
l)rice for a certain item, and to let it out to any small contractor or
small miuuifacturer would cause him to assume a loss. Th{>re is no
protection for that indivi(hial. He is very much interested, in this
particular instance, in participating in any constructive program of
that nature.
Another efl'ect — and this does not pertain to defense contracts as
much as to the operations, inventories, control orders, and priority
orders — is that individuals have found that their suppliers are unable
to supjily them because they are furnishing nuiterials to the various
or'dnance divisions for contracts to be completed as late as 1945.
They find the suppliers sympathetic with their problem but they
usually say, "We are feeding the inventories of the various ordnance
divisions."
Mayor Becker. Air. Tolan and gentlemen of the committee, as wc
look over and try to find the crux of our priorities situation, there has
constantly recurred to us in the investigation that I have made the fact
that our Government has not impressed sufficiently upon those who
get these tremendous contracts that they should not, in order to carry
out parts of that contract, go into the building of additional machinery,
when such machinery is existent in some other plant.
NEW PLANTS CONSTRUCTED WITHOUT REGARD TO EXISTING FACILITIES
Now, as one concrete illustration, we have here in St. Louis a con-
cern that has 11 machines of a general type that requires die makers,
tool makers, and other skilled labor to operate. These machines roll
out metal to the finest, thinnest dimensions. The Ford Co. got its
last big contract, for which the Ford people are now putting in addi-
tional plants and equipment. They will require lor this particular
Government contract 4 machines of the identical type of which there
arc 11 in St. Louis today. This concern, just as soon as the Ford
contract was made public, sent a member of its staff to see the Ford
man and to explain that they had 11 machines ready for use, of
the exact type that the Ford Co. needed. But they couldn't get
that subcontract. They were told that the entire plant would be
completed there in Detroit and that they would build 4 new machines
instead of using those that were already in vSt. Louis. That is one
specific instance to illustrate my point.
This committee before whom we ai"e appearing can be heard, and
any suggestion that you make is bound to be given notice and pub-
licity. There is this one angle to be stressed, namely, that any large
contracts which r(>quire additional machinery to be set up should be
re(^\amined, and if that machinery is available, no matter where,
the business ou"ht to be subcontracted.
NATIONAL DEFENSE MIGRATION 8777
UNNECESSARY PRIORITY DISLOCATIONS
One other note on priorities: Here in St. Louis we have a concern
that employs 160 people. The amount of brass that they need in
connection with their output is so small that you could not make a
brass cuspidor out of the metal that they use in a week's time. Yet
that little essential piece of brass they cannot get under priorities.
You are going to throw out of employ emnt 160 people for a little
amount of brass that can't make any appreciable difference in the
defense program.
You members of this committee are practical men, who have trav-
eled all over the country. You are men of experience. You get
information not from one community alone, but in its ramifications
and variations in each town you visit. You hear various versions of
it, but the underlying trouble is the same. I say that if you would see
to it that any decision under the priority rule is based upon the facts of
each individual case, gentlemen, you would do much to solve this ter-
rible priority situation, wliich every large community feels.
We have felt it more than any other, probably because we have 386
types of industry, out of some 480 that the Government lists. If you
could in some way have whoever is handling priorities consider how
much an individual manufacturer needs of a given material, as com-
pared Mdth the total number of men to be thrown out of w^ork for the
lack of such material, that would be most helpful. I have men come
in to me every day asking: ''Can you do this or that? We have to
shut dowTi this or that department, and if we shut down this depart-
ment, our overhead will be so high that we will have to stop the entire
plant." In many cases the complete set-up makes a imit whereby
the manufacturer can have a little profit; but if he closes down one of
the divisions of that unit, his overhead isn't cut in the same pro-
portion. These men are facing that situation. We in our community
are worried about what w^e are going to do with the plants as they shut
do\^^l.
The Chairman. This committee has been hammering at problems
of that kind. Unfortunately, the defense effort did not begin at the
beginning. We should have had an inventory, to start off with.
We should have asked: How much material have w^e in the United
States? How much machinery can be used for defense? How much
labor have we in the United States? The committee has hammered
on that, and recommended it in our report, and now I can say to you
that Washington is getting a complete inventory.
Chances are, Mr. Mayor, they didn't loiow about those 11 machines
that you mentioned. But you see, there is the problem — we have
never been provided wdth an inventory of what we had. For example,
let us say we have a hundred million tons of steel. The American
people are not going to object if we need 50,000,000 tons for the ships
and the Army and national defense. But if we have 50,000,000 tons
left after the defense needs are provided, the people of St. Louis have
a right to object if there is not an equitable distribution of that
50,000,000 tons. To that end there should be kept, in regional of-
fices, an inventory of the material and labor supply. You shouldn't
have to go to Washington. You should have the information right
here. The American people are willing to sacrifice in this war, but
they don't want to suffer unjustly.
§778 ST. Loris ni:A KINGS
ALLOCATION OF CRITICAL MATERIALS AND CONTRACTS
Mr. Karches. The maiuifacturers arc very much interested in tlie
recent cfTorts of Mr. Odhim in allocating critical materials for a certain
l)(>rio(l of thne to cover the needs of small firms, so that they may
remahi hi o])eration. There are <:;armcnt companies that can t get
needles. That is another case to add to the one that the mayor has
mentioned.
A move was made by the various procurement offices of the Quarter-
master Cori)s, to ]H'rmit them to allocate contracts with some discre-
tion in various localities, not accordmg to bid prices, but according
to what could best be done for a particular community, and even
allot the contracts to various industries within a community. Those
are two steps in the right direction, as agreed upon by a number of
manufacturers here,
Mr. Slinkard. Plans to do a comprehensive job of inventorying
the facilities of industry and the labor supply have been proposed
numerous times during the past year, not only by labor but by man-
agement and by communities. I am firmly convinced, as the record
will show, that those plans have not received conscientious considera-
tion. It is well and good to assume that an agency in Washington is
heading up the program. That is as it should be. But it is not
humanly possible for the personnel of such an agency to handle all the
ramifications of this program. Therefore by industries and by com-
munities there should be established "industry councils," W'ith equal
representation of labor and management, and with the Government
sitting in as coordinator, to analyze the plant facilities, the labor supply
in the community and the manner in which these can be put to the
best use in production for the defense program.
Speaking of St. Louis in particular, our organization is convinced
that every effort should be made to have local industry apply the
O. P. M. labor policy in its fullest aspects. One is that defense con-
tractors agree to give first preference to the local labor supply when
hiring new employees for their expansion of production.
Second, and right along with that, the defense contractor is to give
serious consideration to subcontracting, to use as much as possible
of the available plant facilities for the manufacture of parts that can
go into the completed item; because unless these plant facilities and
such W'Orking personnel are utilized in that fashion, the plant is going
to become idle and the employee personnel is going to be thrown into
the bracket of those deprived of employment by reason of priorities.
In addition to that, management of nondefense industries wiiere
production has been curtailed by reason of priority orders should
agree to recognize the certification and maintenance of seniority
rights of those employees wdio elect to accept transfer to defense
employment,
MAINTENANCE OF SENIORITY RIGHTS
The maintenance and certification of seniority rights while they are
working on defense — on a temporary job of a year or two — woidd
eliminate a second evil, namely, mass unemployment, with no orderly
transition, when the defense program starts bogging. For example,
if a nondefense employer finds it necessary to reduce production and
lay off 25 or 50 percent of the force, as is happenmg dailj" in St.
NATIONAL DEFENSE MIGRATION 8779
Louis, the first procedure should be to utiHze tliose people in the
defense expansion program. H they have the essential skills they
should be hired immediately; if not, they should be referred to a train-
ing program, and upgraded by supplemental trammg; and while in
such a "training period, they should receive unemployment benefits
in an even greater amoimt than our present State law provides.
Then, when upgraded to fill the job specifications, they should be
certified to specific defense jobs.
If that is done in the present emergency, you will have an orderly
transition of resident workers; you will obtain the fullest use of the
local labor supply. And it is extremely important that recognition of
seniority on the part of nondefense employers be established so that
when the defense program is completed and those same people are
again thrown out of work, they can revert to their original employ-
ment, with their regular seniority status. In this way you will elimi-
nate the second evil, of havmg migratory labor taking jobs of local
workers, or of local management supplying its employment needs on
a hit-or-miss basis with whomever they can get at whatever wage scale
they care to pay.
Mr. OsMERS. Mr. Chairman, I think that both Mayor Becker and
Mr. Slinkard have made very valuable contributions. Possibly, I be-
lieve that because their ideas so closely fit in with my own. I think
that the policy of the Government with respect to plant expansion
has been positively brutal. I represent a highly mdustrialized dis-
trict. We have plants closing 2 miles away from a huge plant under
construction. In addition to the stupidity of that policy, I would
lilve to pomt out its effect on national defense. Every time we erect a
new plant we take steel and copper and other supplies that are vitally
needed for the sinews of war, and we transfer labor and skills into the
construction of unnecessary new plants, which will be white elephants
after the war is over. I have industries in my district that are going
to throw 50 and 75 men out of work because they can't get a couple
of hundred pounds of lead, or some other material; and in the face of
that, we have huge plant expansions going on throughout the country.
We have just come from Nebraska. There are little factories in all
those communities out there, where farming is the backbone of the
economic life of the State. Those little factories are being choked
to death because they can't get the tiny amomit of materials that they
need to continue producing.
I think the Government should adopt some policy whereby ma-
terials will be allocated with some thought as to the percentage of
materials to the dollar value of the completed products and the amount
of labor employed. I don't think we will have an intelligent policy
unless we adopt a method such as that advocated by Mr. Slmkard, to
have committees of men and management, under the guidance of
Government, and to allocate these materials as equitably as is humanly
possible.
We have to go into the field of subcontracting. We are trying to
improve our efforts now, but so far our progress has been miserable.
I think the work of the Labor Division of O. P. M. has collapsed
completely. They have been unable to enlist the full support of
labor for the program.
Mr. Curtis. In asking this question, I am not challenging anyone's
patriotism or motives. In the case of this concern which had avail-
gySO ^'''- I-'^^'I^ HKAKINCS
able 1 1 niiicliincs very much like tli(> 4 new ones to be used in thc-
ncw Ford ])l)Uit, docs that type of company bavc any roprcscntatioii
amonj; (lie dollju-a-ycMi' men makin<i; policy in Washington?
COOPERATION I.\ DIOKENSE PUOGRAM
Mayor Beckku. That particular concorn which has those 11 nui-
chinos availal)l(> isn't large enough to give you a doUar-a-year man,
but every single request that has been made of it by the Govei'nment,
in any way, shape, or form, has been carried out completely. That
concern is 100 percent back of the defense effort. And I want to say
this before this committee. I wish that you could have been here on
Ai'inistice Day to have observed the parade that was given here, in
order to se(> the attitude of the public here in St. Louis. I have letters
in my files which say that nevei' anywhere has a turn-out en masse
been observed like that Armistice parade. We had 8,500 soldiers from
Fort Leonard Wood, and they bi'ought comph^te units heie, e.\ce])ting
tanks. And our public, a thousand miles from the coast, in this
emergency — which is a good distance which makes you feel that this
community is not going to be bombed — w^as 100 percent back of the
emergency plan. Now, whether or not individually they may have
been agreed on foreign policy or emergency plans was not evidenced,
but it showed that in this comnnmity the die is cast, and it is 100
percent back of national defense.
Mr. Curtis. Perhaps I didn't make my question clear. Without
a doubt many of these men who have been loaned by industry to the
Government, I would say all of them, are true patriots. But as long
as we follow that system, small industry does not have the men to
loan to the Government to help formulate policy.
Mayor Becker. The small plants are willing and ready to loan
their key men. They are ready and willing and able to serve; and
just as soon as the Government finds that it can use them, they are
ready to go. These men in the small ])lants, doing work in their own
communities for civilian defense, and working out methods of doing-
something the Government wants done, are showing as good citizen-
ship as those who have gone to Washington.
Mr. Curtis. I agree with you.
Mayor Becker. This is one of the largest cities in the United
States, and speaking as its executive head, I want to say that there
has been no request that has not been complied with by our small
industries or our citizens as a whole.
When the Government came in here and decided to increase the
small-arms plant from one able to produce 3,000,000 cartridges to one
with an output of 9,000,000 cartridges a day, as a result of changes
in th(> world, and when it needed acres anfl city blocks for additions
to that plant it might just as well have gone over the line and taken
adjoining i)roperty. But when the Government said, "This is what
we want," although it took a public park in that section, our citizens
in that area of the city got out of their homes overnight in order to
allow dredges and the other equipment for the work of (wpansion to
come in there.
Mr. Curtis. I know that is very true.
The Chairman. We are now about 15 minutes behind, and we
have to work undcn- schedule.
NATIONAL DEFENSE MIGRATION 8781
TRAINING PROGRAMS
jMr. Arnold. I have a question for \h'. Jeffrey. To what extent
ai'e local training programs geared to actual and prosjjective produc-
tion?
Mr. Jeffrey. They are adjusted as closely as we are able to make
them, based on the information we have. We feel always the lack
of accurate information as to the future labor needs. We feel also
the lack of information on how many men are now being thrown out
by priorities, men who can be transferred with the smallest amount
of retraining. We work through various organizations — labor, manu-
factmers, employers — getting as much information as possible.
]\lr. Arnold. You proceed on that information?
]Mr. Jeffrey. Yes. The small arms plant has its own training
program, for which the Government has made allowance in the
contract. They know what their needs are going to be. They have
set up their own trainmg schools for head men, foremen, straw bosses,
and maintenance men, which is just what they should do, because it
is a highly specialized operation. They have been paying those men
the prevailing wage while training them. Those men in turn will
give a few hours of training to their operatives as they get into pro-
duction. There is no problem with regard to the training through
the schools in connection with that particular plant.
Mr. Sparkman. Alay I ask you, Mr. Jeffrey, since you started the
vocational training program, how many persons have been placed
in defense work?
Mr. Jeffrey. Up to the 1st of October, the number of men given
preemployment training, training for new jobs, has been 1,012.
That is the figure that is determined by follow-up methods of the
school. As to out-training, there have been about 1,800. The
remaining 800 may or may not be placed. We do not know.
Mr. Arnold. Mr. Steger, to what degree had the defense program
succeeded m decreasing the volume of unemployment in St. Louis
before priorities began to make themselves felt?
Mr. Steger. As far as general relief is concerned, there has been
an all-around decrease. The percentage is very small, but it has been
steady. However, we expect an upturn on the basis of the priorities
now in effect.
Mr. Curtis. Mr. Walker, the committee understands that your
organization has made a survey of the total employment of members
of your race in St. Louis in defense plants. Can you supply us with
the results of your survey?
employment of negroes
Mr. Walker. I can to this extent. I can say that of the 108,000
Negroes in the city of St. Louis itself — we have about 140,000 in
the entire metropolitan area — at no time, even the peak construction
period of the small arms plant, were there more than 1,500 Negroes
employed, and all of these were employed as unskilled laborers.
On all national defense contracts, as such, at no time did the peak
rise over 2,500.
We estimate approximately 63,000 employable Negro workers in
St. Louis. I am unable to say definitely how many are employed or
3782 S'^- LOUIS HEARINGS
iineiiiployod. The last siirvoy made of iniciiiployinciit in St. Louis by
the W. r. A. study indicalt'd" bctwccu 1,',, ()()() and 18, ()()() uiicniployed
Nofjro workers. We do know that most of the Ne<2;n) workers in this
area are forced into the unskilled brackets because of certain exclusions
practiced by certain unions and many employers.
We have ordy three Ne^jroes workinj^ as skilled men with union
cards on national defense jobs and these are painters who were foiced
on the St. I^ouis Building Trades by the Government and Urban
League representatives.
I would like to add also that this is particularly important l)ecause
we are experiencing migration at the same time we have this ever-
increasing large number of residents who cannot find work, not be-
cause they are unskilled, but because th(\v are Negroes.
This ])roblem likewise concerns Mr. Slinkard, especially as to what
the policy shall be in the labor pool established for the transfer of
construction workers into production work, because Negroes are
excluded from the construction field, as such, with the exception of
painters.
Mr. Slinkard. Insofar as defense construction is concerned, the
C. L O. has been excluded ahnost entirely; and going further, I would
say that in the opinion of my organization it is assumed that the con-
struction worker will follow Ids particular trade and will therefore con-
tinue to be migratory to a certain extent. Certainly with thousands of
qualified production workers being thrown out of employment in
the St. Louis area by reason of priorities, we are going to object
strenuously to any qualified construction workers being permanently
located here for the purpose of becoming production workers at the
expense of resident qualified production workers who have followed
that occupation.
We feel that there is sufficient construction work to be done on the
national defense program to justify further migration of the qualified
construction worker.
Mr. Walker. May I add just this bit on priorities? We are
particularly concerned with the phght of the Negro worker as far as
priorities are concerned because the Negro worker has not been
permitted to participate in the defense program, and priorities have
dislocated a number of workers.
Mr. Curtis. What are some of the industries in which Negroes
are now working?
Mr. Walker. They work for the ordinary manufacturer, the small
manufacturer. They have been excluded from certain industries,
such as steel, and we only have 35 workers at Curtiss-Wright. In
all the remaining 386 industries in St. Louis, the Negroes are not
employed in any appreciable proportion to their number. They are
working in the traditional jobs in St. Louis, for the most part.
Mr. Curtis. What arrangements have you made with employers
and with the State employment service for the placement of your
men in industry?
POLICY OF UNIONS TOWARD NEGROES
Mr. Walker. We have had repi^ated conferences with the State
employment service and have approached the chamber of commerce
and the labor supply committee for the instruction of workers in every
capacity from manufacturing to transportation. We have discussed
NATIONAL DEFENSE MIGRATION 8783
the matter with the C. I. O. We have attempted to discuss the mat-
ter with the A. F. of L., which has been for the most part unkindly
disposed except witli reference to unsldlled labor, plasterers, and
painters.
Mr. Curtis. Are you having much success?
Mr. Walker. I am sorry to say we are not having much success
in the building trades.
Mr. Curtis. Are your people largely residents of tliis metropolitan
area, or have you had a lot of them come in here?
Mr. Walker. We can't get the residents to working. We are
concerned with the residents, but we are also noticing considerable
migration. I don't know the figures. The school board has pro-
duced certain figures, and coming across our employment desk we
have noticed letters from migrants. But for the most part we can
say that neither migrants nor the majority of our residents are getting
work.
Mr. Curtis. How are you getting along with the training programs?
Mr. Walker. I would prefer Mr. Jeffrey to answer that question.
Mr. Curtis. Is there any comment you wish to make, Mr. Jeffrey?
TRAINING PROGRAM FOR NEGROES
Mr. Jeffrey. I understand that insofar as the building industry
is concerned, which has been up to this time the largest employer in
defense, there is no training program for white or colored, as the
unions and contractors dealing with the direction of construction
workers have not felt the need of training for the people they employ.
There has been in this city, as compared with other large centers, such
as Milwaukee and the eastern cities, need of only a comparatively
small amount of training for the semiskilled operator. We have not
yet reached the point, except in the aircraft industry, where that need
has been a large factor. Our training program therefore has been
confined, so far as both white and colored are concerned, to the
training for those jobs in which there is some prospect of employment.
That is the condition that is laid down by the Government to control
that part of our system which is called defense training. At Govern-
ment expense we train white men in welding, machine operations, and
in the aircraft industry. We are training colored men in chipping
and welding because there are possibilities of employment in that
line so far. According to reports from industry and employment
services, there are no prospects of employment for the colored in the
machine line or the aircraft line. For the wliites we have good oppor-
tunities in the contiguous area around St. Louis.
Mr. Walker. May I add briefly that our experience is a little bit
different from that described by Mr. Jeffrey insofar as training is con-
cerned. We have found ourselves in a vicious circle. We are not
trained for the jobs when the jobs are available, and then it is too late
to train our men. Only one company so far with a large national
defense contract has indicated a willingness to accept Negroes as
machinists or in the skilled category.
Our board of education has not given us that training. So we are
virtually barred. We have been promised a training course for
production workers, but it was on an independent basis rather than
hj a publicly supported institution, such as the board of education.
60396— 42— pt. 23 7
8784 ST. LOUIS HEAKLNGS
The Chairman. Mr. Muyor, and Colonel McBride, I wish to say
that det'|) concern has hccn expicssod by witnesses appearing; before
this coniniittee in various parts of the country as to what is going to
happen after this spending has taken place and after your defense
plants shut down here in St. Louis and throughout the country.
VVhat is going to be the result here, Mayor?
POST-WAR PROGRAMS
Mayor Becker. We are expecting a depression after this emergency,
probably greater than we had after the World War, by reason of the
fact that this present emergency defense j)rogram is so nuich larger,
so much more extensive. It is so comprehensive and it reaclies into
so many fields that we never covered in the first ^\'ol•ld War.
We are perhaps in a little more difficult situation than other large
cities because we have here in our area so much of this defense work,
with the TNT plant and the Curtiss Wright plant and the small arms
plant in the St. Louis area alone.
When the emergency is over, with all these contracts that we have,
the cessation of production will cut through all this like a knife, and we
will be sitting here with all those people on om- hands. They have to
be taken care of. We have been working very hard in figuring out
and completing plans for various kinds of work which we hope the
Government will be able to start immediately when the defense
program ends. In other words we are doing our share of planning
constructive work — that is, work of a kind and character which
leaves a permanent structure, something that is worth while. In
other words, for every dollar that the Government puts into this plan
of action we suggest something that is beneficial to the State and com-
munity, and to the Nation as well.
We are planning on that and hoping that out of these various
programs we are setting up the Government will be able to finance
for our community its share in proportion to our needs resulting from
the number of emergency plants which the Government has placed
here.
The Chairman. We are very much interested in any plans that will
cushion the post-war shock. This committee will appreciate it very
much if you would send us the plans that you have already mentioned.
Mayor Becker. Would you like us to give you in detail the various
plans which we are working on?
The Chairman. Yes; everything you have; because we are about
the only ones who can do anything al)out ii.
Mayor Becker. You are the ones we want to contact, and we will
appreciate the opportunity to hand you a detailed description of these
various programs.
Mr. Steger. There is an immediate as well as a post-emergency
problem which has to do with housing. I w^ould like to add to our
written statement a supplement on that problem which was brought
out through Mr. Palmer's release on cooperative housing.
The Chairman. We would appreciate having that very much. If.
as a result of this hearing, something occurs to you gentlemen of the
panel, we will keep our record open for a week or 10 days, and we will
make your additional statements a part of the record.
We appreciate your coming here, and thank you very much.
NATIONAL DEFENSE MIGRATION 8785
TESTIMONY OF PANEL REPRESENTING HON. FORREST C.DONNELL,
GOVERNOR OF THE STATE OF MISSOURI
The Chairman. We will now hear from the Governor's panel.
This group consists of the following persons:
Mr. William W. Anderson, director, State Planning Board, State
Office Building, Jefferson City, Mo.; Mr. James Doarn, Missouri
State Employment Service, 1101 East Capitol Avenue, J(>fferson City,
Mo.; Mr. J.'^ W. Burch, director, extension service, college of agri-
culture, University of Missouri, Waters Hall, Columbia, Mo.; Mr.
Lloyd W. King, State superintendent, department of public schools,
Capitol Building, Jefl'erson City, Mo.; Mr. Proctor Carter, Missouri
State Social Security Commission, State Office Building, Je /person
City, Mo.; Captain W. J. Ramsey, State highway patrol. State Office
Building, Jefferson City, Mo.; Dr. James Stewart, commissioner,
Missouri State Board of Health, State Office Building, Jefferson City,
Mo
Gentlemen, we appreciate your coming here. Mr. Anderson, I have
been advised by the committee staff that Governor Donnell has
designated you and various others to represent him at this hearing
today. I wish you would present to the Governor our deep appreci-
ation for his assistance in havuig you gentlemen come here. Please
give him our very kindest regards.
Mr. Anderson. I will be glad to.
The Chairman. The prepared statements which have been handed
in by the members of this panel are much appreciated, and they will
be made a part of the record.
(The statements referred to above are as follows:)
STATEMENT BY WILLIAM ANDERSON, DIRECTOR, MISSOURI
STATE PLANNING BOARD, JEFFERSON CITY, MO.
The State agencies represented on the State panel have each prepared material
in detail concerning their respective interests. The panel consists of: James
Doarn, assistant director, State employment service; Dr. James Stewart, commis-
sioner, State board of health; Hon. Lloyd W. King, State superintendent of
schools, in charge of defense training; J. W. Burch, director, agricultural extension
service; Proctor Carter, assistant administrator, social securit}' commission;
Capt. W. J. Ramsey, State highway patrol; and William Anderson, director of
State planning board and executive secretary of State council of defense.
In order to give a bird's-eye view of the situation in Missouri, there are listed
some general State-wide observations in brief form.
Normally about 70 percent of the manufacturing of the State is located in the
St. Louis and Kansas City areas. About 99 percent of the defense production
contracts have been alloca'ted to firms in St. Louis and Kansas City. This does
not include cpntracts for construction nor does it include subcontracts. There-
fore, the bulk of migration due to production of goods is toward the two metro-
politan centers.
In addition to the production of defense goods there is considerable defense con-
struction. Much of this is located in the metropolitan centers for plant facilities,
but large defense construction projects such as cantonments and manufacturing
plants are being constructed in rural areas. To these projects there has been
considerable migration of construction labor. These projects, however, are of
relatively short duration and the migrant workers move on to other projects when
the work has been completed.
From reliable reports, there appears to be a decided (but not a measured)
migration from the smaller communities of the State to the industrial centers.
There also appears to be an excess of in-migration over out-migration from the
State as a whole, this excess going largely to the two metropolitan centers.
The problem of unemployment caused by material shortages due to priority
regulations is relatively unimportant at present but may become acute in certain
industries as the emergency continues.
g78G ^'^'- J-^i'i'"^ iii:akin(;s
There is 8<ill ft siiriilus of labor, mainly in the iinskiiicd classes. Shortages,
however, do exist in ecrtain skilled classes in Missouri as elsewhere.
There is an adeeniate sui)|)Iy of construction labor available to suj)ply the
demand for any anticipated construction project.
At the present time there are .SG.OOO workers engaged on Work Projects Admin-
istration jirojects, and there are 11.000 aj^jilicants who have beeu approver! but
are uiui-ssigned because of insuflicient funds. In addition, it is estimated Hint
there are apjiroximately 17.r)00 j)er.sons who, if they made application, would be
eligible on tlie basis of need for Work Projects AdiDinistrat ion assistance. Tlie
total is 04,000 ])er.sons, wliicli indicates tlic employment problem has not been
licpiidated becau.'^e of the defense program.
The problem of direct i)ublic assistance lias not presented itself in areas where
defen.se construction projects have been completed, as was anticipated. For the
most part the workers were migratory and as soon as the job was completed in
one place they moved on to anotiier defen.so construction i)roject. When the
construction work on defense jjrojects finally ceases, there is likely to be a .serious
problem of relief. It is tmticipated that there will be large numbers of migratory
workers stranded. The funds to care for the existing direct relief load in Missouri
are inadequate. Should there be any increa.se in the relief load the State authori-
ties will be unable to cope with it.
The constriiction of defense projects has created acute problems in rural areas
where local facilities arc inadequate and local authorities are unable to cope with
them. Some of the problems created are:
Because of rapid increase and relatively large concentrations of population, the
limited existing facilities for health protection are overtaxed. The.se comnmnities
are unable to finance the needed health facilities and there is considerable delay
in obtaining necessary outside a.ssistance, and it appears this assistance will be
inadequate to provide the urgently needed facilities.
With the concentration of population, settlements, small communities and shack
towns arc springing up outside of present towns. Because of this uneconomical
and improper distribution of population in newly developed areas, school and
health facilities have to be provided at excessive costs. Housing in a majority
of the cases in these newly developed areas is inadequate and of a veTy poor
character.
There are ways and means provided for controlling the distribution of popula-
tion through county zoning and planning. An enabling act pa.ssed by the last
session of the general assembly will permit counties in defense areas to do county
planning and zoning, but this is dependent upon local leadership and up to the
present time local authorities have not availed themselves of this procedure.
One of the most serious problems in connection with construction of defense
projects is the displacement of families because of large areas of land being taken
over by the Government for defense purposes. In three of the large areas there
were a total of about 1,143 families dispossessed of their farms of which approxi-
mately 307 were indigent and dependent upon public assistance. Slow payment
for the land taken over, loss of crops, inadequate payments, and the difficulty in
finding new farms constitute serious problems.
The construction of defense projects in rural areas has increased the traffic over
certain roads as high as 965 percent with a corresponding increase in accidents of
417 percent.
There are so many Federal, State, and local agencies dealing with the problems
in defense areas, some of which have conflicting authorities and cherished pre-
rogatives, that it is difficult if not impossible at times to develop an orderly plan
of procedure. Some way should be found to more efTectively coordinate the
efforts of the numerous agencies, all sincerely trying to do their part* in improving
local conditions caused by the disruption due to the defense effort.
Exhibit A.— Problem Area Analysis, Missoi ri Valley Region
BEPORT BY HAROLD HOWE, CONSULTANT, NATIONAL RESOURCES PLANNING BOARD,
ON THE TIFF MINING AREA, WASHINGTON COUNTY, MO., .JUNE 14, 1941
The study was conducted during a 2-week period, June 1 to 14, inclusive. The
first persons with whom contacts were made were WMlliam Anderson, director of
the Missouri State Planning Board, Jefferson City, and Ross J. Silkett, bureau of
agricultural economics, representative for Missouri, Columbia. Both of these
gentlemen were especially helpful in supplying files on the tiff problem, furnishing
stenographic service, and generallj- giving suggestions and assistance in many
NATIONAL DEFENSE MIGRATION 8787
different ways. The first day on the job was spent in conferring with Anderson
and Silkett and in getting oriented on the procedure to take in the short time that
could be spent on the study.
On June 3, much helpful information was secured in participating in a confer-
ence of the special tiff committee held in the conference room of State board of
health, Jefferson City. (The minutes of this meeting are attached.) The period
from June 4 to June 10, inclusive, was spent in Washington County getting, at
first hand, the picture of the problem in the area. The period from June 11 to
June 14, inclusive, was spent in Jefferson City, drawing together a brief tentative
report and getting the viewpoint of certain State agencies on the soundness of the
recommendations to be inserted in the report. Mr. C. Woody Thompson, senior
planning technician of the National Resources Planning Board, Omaha, was in
Jefferson Cit}^ during 2 days of this period, June 12 and 13, and rendered a real
service in offering advice and assistance in preparing the tentative draft of the
report. Not only did he help in this part of the work, but he also took the tenta-
tive draft of the report with him to Omaha and agreed to edit it and also to prepare
the very important, condensed, summary statement. Too much emphasis cannot
be placed on Mr. Thompson's part in this study; before the time it was undertaken,
while it was underway, and after the tentative draft of the report was turned over
to him on June 14.
In addition to the three men named above, the following persons were inter-
viewed during the period of study: Rt. Rev. William Scarlett, Bishop of St. Louis
(Episcopal) chairman of Gov. Forrest C. Donnell's five-member committee on the
tiff problem; James W. Cox of the unemployment compensation commission;
Paul D. Kelleter, forest supervisor, Clark National Forest; J. W. Burch, director,
agricultura? extension, University of Missouri, and a member of the Governor's
committee; D. Howard Doane, St. Louis, member of the Governor's committee;
R. W. Brown, president, Missouri Farm Bureau Federation; Dr. Harry F. Parker,
Commissioner of Health for Missouri; Dr. H. A. Buehler, State geologist; Miss
Charity Bye Schanks, home economics agent, Potosi; W. C. Wolfe, Superior
Mineral Co., Cadet; Paul Cornielson, Farm Security Administration supervisor,
Washington County, Potosi; Ernest Pearce, owner of tiff land and brick plant,
Potosi; Rev. John H. Cook, Catholic pastor at Tiff, Mo. (he has been there for
18 years); Bruce Miles, manager of the National Lead Co.'s holdings, Potosi;
Carl Ross, district supervisor, Farm Security Administration, Cape Girardeau,
Mo.; J. J. Riggle, Farm Security Administration special projects supervisor,
Washington, D. C; Richard G. Taylor, in charge of Missouri State Employment
Service, Flat River, Mo.; Walter Swearengen, deputy administrator of the Na-
tional Youth Administration for Missouri, Jefferson City; Conrad Hammar,
professor of agricultural economics, University of Missouri; John K. Brownell,
forest ranger in charge of station near Potosi; William Nice, forest ranger (in
charge of emergency program which is employing 325 Work Projects Administra-
tion workers in forest work until end of fiscal year) Potosi; and Mr. Neustadter,
superintendent, barite sales division plant, of National Lead Co., Potosi.
An especial effort was made throughout the study to get the viewpoint of
Federal and State supervisors on the recommendations that were to be made in
this report. As a consequence, the recommendations in part TV of this report
are in line with what at least one responsible administrator, in each of the agencies
affected, would recommend as the desirable activity for his agency in the area.
Much attention is being directed toward the tiff problem in Washington County
at the present time. The Governor's committee, previouslv referred to, will
make its report in July 1941. The function of the National Resources Planning
Board is to cooperate with this committee wherever possible and furthermore, the
National Resources Planning Board should check from time to time to see to what
degree the recommendations of this report are being carried out in the area. This
dual responsibility can be executed through Mr. William Anderson, director of the
State planning board, and secretary of the Governor's special five-man committee
studying the tiff problem.
L E.MPLOTMEXT BrEAK-DOWN AND STABILITY CHARACTERISTICS
The population trend in Washington County has been upward, the increase
being particularly large during the past decade. The total population in Wash-
ington County by census years has been as follows: 1910, 13,378; 1920, 13,803;
1930, 14,450; and 1940, 17,492. This is an increase of 21.1 percent between
1930 and 1940 as compared with a 4.7 increase between 1920 and 1930. During
the past decade, only seven counties in the State had a higher percentage in-
crease. One of these was St. Louis County, The other six — Butler, Dunklin,
8788 ST. LOUIS HEARLXGS
Mississippi, Now Madrid, Pemiscot, and Scott— are located in the extreme south-
east corner (if the Stati;. Mcasiinid against the population increases in coujities
bordcrinp Washington County, tlic increase in this county is not particularly
siKiiificanl. The increases in population in bordering counties between 1930 and
1940 were as follows: Crawford, 12.5 percent; Franklin, 11 percent; Iron, 8.3
percent; JetTcrson, 10.2 percent; and St. Francois, 0.3 percent.
The population of Washington County is definitely rural. There are four in-
corporated places in the county and their combined population in 1940 of 2,952
accounted for oidy 17 percent of the county's total. The figures for these towns
in 1930 and 1940 are as followtj:
Caledonia
Iroiidfilo ,
Mineral Point.
Potosi
1930
143
395
347
1,279
1940
139
446
350
2,017
The net gain in population of the towns of Washington County between 1930
and 1940 was 788, which fact shows that there were 2,254 more persons living
in outlying sections of the county in 1940 than in 1930.
The major employments of the county may be classed under three headings,
namely, tiff mining, farming, and timber work. Aside from the information
which is available from the Census of Agriculture on number of farms, the num-
bers in these employments will have to be estimates. The problem is complicated
in that many persons farm and also mine tiff; others farm and do some timber
work. In a prepared statement which he read at the conference before Gov.
Forrest C. Donnell on the Washington County tiff problem (April 14, 1941),
Mr. E. S. Richeson, secretary of the Potosi Chamber of Commerce, stated that
there were approximately 1,500 families whose chief occupation is that of hand
mining tiff. Those 1,500 families, he said, average 41^. persons per family, which
means that a total of 6,750 persons may be put in this category. According to
the 1940 census, there were 1,428 farms in the county. Statistics obtained in
1935 show that 57.8 percent of all farm operators in "^ the county have supple-
mentary nonfarm incomes, leaving only 42.2 percent full-time farmers. This
latter percentage would be equivalent to approximately 600 farms. Assuming
that there are the same number per family among the farmers as among the tiff
miners, that would mean a total of 2,700 persons in this category. It should be
noted here that this figure is based on the assumption that there are the same
number of persons employed full-time on farms as there are full-time farm op-
erators. This does not allow for hired laborers on farms (figures not available),
although their number is probably not large. The balance of the farm operators
in the county (that is 828, or the difference between 600 full-time farm operators
and the total figure of 1,428 for all farms) probably is, for the most part, engaged
in tiff mining or in timber work and is included in Mr. Richeson's figures for
those emplojments.
Mr. Richeson's report states that there are 650 families who have been, or are
now, sawmill workers, small farmers, or timber workers. This group may be
referred to as the timber workers of the county. Assuming the same number"
per family in this group as for tiff miners, there would be 2,925 persons in this
category.
A recapitulation for all 3 major employments, taking into account their over-
lapi)ing, and using thiS basis of estimate, would show approximately 2,750 families
engaged in tiff mining, farming, and timber work. A total of 12,375 persons
wou'd be dependent for their income on these 3 employments.
In dealing with the income of the tiff worker, Mr. Richeson's report shows that
the average production of tiff by all hand miners does not exceed 5,000 tons per
month. The price of tiff is from $5.75 to $6.50 per ton. Assuming that the
average price is $6 per ton, the landowner receives on an average 60 cents per ton
royalty and the hauler receives from $1 to $1.50, depending on the distance
hauled. This leaves for the miner from $3.30 to $4 per ton. The average ton-
nage per month per family, according to Mr. Richeson's figures, is about 3}^ tons,
or the e(|uivalent of $12 to $15 per month income per family. The same report
states that the cash income of those in the category of timber workers is far lower
than that of the tiff miners. Comparable data on the cash income from farming
are not available.
It is to be regretted that data on a complete labor survey of Washington County
cannot be incorporated in this report. This survey, now being conducted (June
NATIONAL DEFENSE MIGRATION 8789
1941) by the Missouri State Employment Service, would yield much more definite
information on the situation in the major employments than has been possible to
present above. The labor report will be available early in July 1941.
The general impression gained from observing conditions in the area, and from
conversation with persons in the area and elsewhere, is that hand mining of tiff
is a declining industry. It might also be added that the price of tiff fluctuates
widely. At the present time, because of general prosperity, there is an active
demand for tiff. The situation in the county now — bad as it is — probably is not
so bad as it would be in a period of inactive demand.
With cash incomes at the levels above described, it is hardly necessary to add
that the relief load is extremely heavy in Washington County. According to Mr.
Clarence Keathley, secretary-director of Social Security at Potosi, more than one-
third of the population of the county is receiving some form of Government aid.
Through the three programs of aid to dependent children, general relief, and old-
age assistance, the State of Missouri spent $57,650.12 in 1940. The Federal ex-
penditures in the above-named categories plus those of the National Youth Ad-
ministration, the Civilian Conservation Corps, and the Work Projects Adminis-
tration amounted to $505,684.22 in the same year. This would be a combined
total by Federal and State agencies for aid in the above-listed categories of
$623,334.34 in 1940. This figure does not give the whole picture because it does
not include the value of the services of the Farm Security Administration, the
State crippled children's commission, the State board of health, the expenditures
of the county for the care of the indigent, the amounts of local sponsor's contribu-
tion for Government programs, and the value of contributions by State and local
private organizations. Speaking of sponsor's contribution. Colonel Casteel, of
the State Work Projects Administration, reported that Washington County has
made a sponsor's contribution of onl.y about 9.2 percent of the work that has been
done there. During the history of the Work Projects Administration, the Work
Projects Administration and sponsors have spent $1,559,024 in W^ashington County.
In addition to this amount, approximately $66,000 has been spent in the sewing
room in the county,
II. Factors Affecting Employment and Income Stability
The major occupations in Washington County may be classified under three
headings: Tiff mining, farming, and timber work. Each will be discussed sepa-
rately and following that an attempt will be made to give a composite picture of
the general situation that now exists within the county.
Tiff mining. — Although tiff has been mined for many years in Washington
County, there is still an abundance of the mineral underlying the soils of the
county. Of course, the richer and more readily available deposits probably
have been exploited. Therefore, the problem in the occupation of tiff mining
does not result from the exhaustion of a resource as is the case of the timber
worker, and in a somewhat lesser extent, of the farmer. On the contrary, the
tiff miner is faced with a technological change in the mining of tiff which very
definitely affects all those engaged in the occupation of hand mining.
Not one but many factors probably account for the change from hand to
machine mining of tiff in the county. Mechanized mining is less expensive,
it makes possible more complete recovery of the mineral, and the extension of
mechanized mining in the county is only following the trends in mining found in
other sections of the United States where the mineral is produced. The problem
of hand mining versus mechanized mining was brought into sharp focus by the
National Labor Relations case.
This case originated in Washington County and is now before the National
Labor Relations Board. The National Labor Relations Act requires that em-
ployers bargain with the union which represents the majority of their employees.
Jack Sullivan, for the local Congress of Industrial Organizations union, filed
charges that a certain employer (Blount, et al) was not bargaining with the
union. A hearing was held in November 1940 and the trial examiner (Josef L.
Haktoen) in his intermediate report (dated February 10, 1941) made certain
recommendations but the National Labor Relations Board has not yet handed
down its decision. The question to be decided is whether the hand miners are
independent operators or employees of the landowners. If they are employees,
they will then come under the provisions of the Fair Labor Standards Act of 1940.
If the landowners are held as employers, they must limit the miner's working time
to 40 hours per week and see that each earns the minimum prescribed by the
Fair Labor Standards Act. It is estimated that a miner's earnings now are
approximately 20 cents per hour or less. The statute calls for 30 cents per hour.
The employer would not only be obliged to pay that amount but he would also
8790
ST. LOUIS HEARINGS
be held liable for the period since October 1938 when the Fair Labor Standards
Act went into elFect. As a consequence of this case and pending decision the
landowners are wary about hand mining. One landowner expresses the view-
poMil very well ni the following words: "In the face of that accruing liability
It would be cheaiKT to chop olT (he royalty (from each ton of tiff mined on his
land) and stop (he liability than to collect the royalty and let the liability accrue "
Ihat mechanized mining is coming into the county rapidly no one will deny
iLvcn the casual observer driving over the county is impressed by the number of
new w^ashers being erected.
Farming.— Census figures lend support to the general impression one gets in
viewing the agriculture of the county, namely, that the land is not farmed as
extensively or intensively as in the past. In the face of an increa.se in rural
population, (here has been a decrease in the acreage of land u.sed for crops in
the county between 192«» and 1939. On those farms reported by cen.sus enumera-
tor.s, o'i.OO.) acres were used for crops in 1929, 47,043 acres were used in 1934 and
44,331 were used in 1939. This is a reduction of about one-eighth in the 10-vear
period. Ihe census also shows that there were fewer milk cows and poultry on
farms in 1939 then there were 10 years earlier. In some categories there were in-
creases in production but in many the trend was the same as that for milk cows
and poultry. Between 1935 and 1940 there was a decrease in the number of
farms of the county from 1,539 to 1,428. This decrease occurred in the small
farms as mdicated by the following figures from the 1940 census:
Size of farms
Number
in 1935
Number
in 1940
Decrease
Increase
Under 10 acres
75
177
247
105
242
199
173
85
47
103
39
20
14
7
70
145
217
100
215
185
160
86
47
106
48
21
17
11
5
32
30
5
27
14
13
10 to 29 acres
30 to 49 acres
50 to 69 acres
70 to 99 acres
100 to i:i9 acres...
140 to 179 acres
180 to 219 acres
i
220 to 259 acres
260 to 379 acres
3-
1
3.
4
380 to 499 acres...
500 to 699 acres .
700 to 999 acres
1,000 acres and over
Another impression one gets in visiting the area is that, as a general rule farm-
ing IS not being earned on as effectively as it might. This statement apphes to
big farms as well as to little farms. A well managed farm— and there are a
number in the county — stands out as something unusual. With rather poor man-
agement as the rule, the farms have deteriorated although they are not yet beyond
recovery. Ihe soil, although not the best, is productive as is amply demon-
strated by the produce grown.
Bringing together these facts and general impressions, one can say that the
occupation of farming is being neglected for various reasons. Apparently, this is
true of the small garden plot as well as the larger general farm. Land ownership
and leasing is of a rather mixed and confusing pattern in Wa.shington County
Assurance of a more permanent tenure with a fixed and habitable place of resi-
dence, and the responsibility accompanying both, would undoubtedly raise the
prestige of farming as an occupation with some of the residents of the county
J lyyiber work.— The occupation of the timber worker differs from that of tiff
miner and farmer in that the resource from which he once earned a livelihood is
almost exhausted and the time when this resource can be rehabilitated is a good
many years in the future. What little timber remains is being used. These
timber workers are dependent upon what few ties they can make from the inade-
quate timber stand that is being used.
R^sinrie.—To present a composite picture of the general situation as it exista
within Washington County is to attempt the impossible. One alternative is tc
enumerate some of the factors in the picture. This obviates the necessity of
coming to one general conclusion. The following is a brief statement of some
of the factors that must be considered in planning any program for the county wi
1 It IS a county in which a large percentage of the people has a low standard!
ol living. Washington County is not unique in this respect. Probably manyl
other counties in the United States are as bad off. Many of the people are ofT
Irench descent but one must not get the impression that those of low standards^
NATIONAL DEFENSE MIGRATION 8791
are all of French descent or that all the French in the county are to be placed
in this category. Nothing could be further from the truth. But viewing those
of French descent for a moment one can get some insight into their background.
The French element is easier to study because one can go further back into its
historj^ than in the case of some of the later arrivals. Many of the French that
came to the county constituted the overflow — the misfits — from the French
settled counties — the better agricultural counties — to the east.
A large percentage of the people care little about whether their children attend
school, their dwellings are shacks, they are perfectly content with living as they
are, they have no sense of the value of money earned, and they are shiftless.
This statement makes one vulnerable to criticism, for someone might propose
that these people are creatures of their environment. Give them the oppor-
tunity to earn a decent wage, to build a livable home, and matters would l)e dif-
ferent with them. Although there would be some difference of opinion on this
point, the fact is that society does have a duty to make it possible for these
people's children to make the choice whether they shall go on living as their
parents do or improve their standard. While harsh things have been said about
these people, it should be said to their credit that they are not criminally inclined,
and residents of the community do not complain even of petty thievery.
The facts are that people who are weak — economically, intellectually, and
physically — are usually exploited. These people, generally speaking, are weak
in the first two categories and many of them, because of poor nutrition, are weak
in the third. They show the marks of exploitation — past and present — in their
faces. Exploitation breeds distrust, and distrust of everything new is a serious
obstacle in the way of bettering conditions in Washington County.
2. The peculiar land ownership pattern was referred to previously. Spanish
land grants preceded the rectangular land survey, and ribbon farms were carved
out of these square or rectangular blocks. Then there are large landholdings
of tiff land on which miners live. The following are some of the larger land-
holdings:
Acres
National Lead Co. (Barite sales division) 16, 000
Potosi Tie & Lumber Co 12, 000
Washington Land & Mining Co. (Shapleigh interests) 6,000
Payrole Mining Co 3,000
W. C. Wolff 1,500
H. L. White 1, 200
B. A. Blount et al 800
Lester Kerney 600
McGregor Brother 500
Approximately 1,000 families live on these 41,600 acres. In some cases, the
owner provides the houses. In other cases, the miners build their own houses.
Washington County is a county of wide diversity of land ownership. For example,
alongside the rows of huts that constitute the publicized Paw Paw Patch is a
large farm with an extraordinarily large complement of farm buildings. In
many parts of the county, the medium-sized farm, which is the bulwark of most
rural communities, does not exist.
3. Stores are particularly numerous over the countryside. One is located at
almost every crossroads. All seem to be doing a good business. One might
suggest that these stores are the symbols of present-day exploitation of the tiff
miner. In general, prices are high, goods are of inferior quality, the business is
done on a credit basis, and the miner has little "money sense." Such a combina-
tion means exploitation. Furthermore, it is reported that some storekeepers
encourage the miner in his disinclination to raise a garden. He is told — and he
probably wants to hear it — of how foolish it is to tend a garden wlien he can be
digging tiff and, with the money thus obtained, buy vegetables at the store.
4. Speaking advisedly, the present movement for "doing something for the
tiff miner" did not originate with him. (It is not to be inferred here that he does
not need help, for the fact has been proved beyond all doubt.) Those interested
in the movement were not altogether thinking of the tiff miner. The store-
keeper, for example, wants Government help so that he can sell more goods to
the miner. Those interested in the introduction of machine mining want to
prepare the way for that by having the Government ease the shock for the miner.
Those in business in Potosi and those charged with the responsibility of county
government have somewhat similar motives. Perhaps this is stating the case
too bluntly and it would be better to state that there was an element of self-
interest mixed in with the altruism of the citizens of Washington County in
attempting to "do something for the tiff miner."
g792 ST. LOUIS HKARI.XGS
5. Local loadorship tliat has the good will of a sizable block in the county
is sadly lackiiiK. Landholdtrs apparently have not demonstrated to the tiff
miner that they are working for the latter's best interests. Perhaps even if
the landholders were doing infinitely more than the small amount they are doing,
they would still not be able to get the workers' good will. The local leadership
that does exist, for the most part, is recruited from the ranks of landholders or
those closely associated with <hcm.
It is the quite general opinion that the tiff miners, as a group, are temperamental
in their reactions to public questions. They show inclination to reverse their
thinking on public questions on short notice. This, added to the fact that they
are a rather inarticulate group, makes the development of local leadership difficult.
IIL Directions of Readjustment
Before outlining the economic and physical readjustments for the area, a word
may be necessary to explain what might appear to be imdue emphasis on agri-
culture, forestry, and land use in the suggestions that follow. The emphasis is
so placed after careful consideration has indicated that stress should be laid on
these factors, for they are fundamental in the long-time economy of the area.
The fact must not be lost sight of that Washington County is a part of the Ozarks,
and in all consideration it is imperative that this county be treated in terms of
the broader area in which it belongs. Thus, Washington County possesses all
of the disadvantages and the advantages of Ozark agriculture. The main disad-
vantage may be summed up in the words "low farm income," which results in a
standard of living at or near the subsistence level. The advantages are that a
family in this region may make a low income go farther in providing the necessities
of life than in many other .sections of the United States. Nature has provided
a comparatively mild climate, wild fruits and berries, and a supply of trees that
may be used for a shelter and for fuel. Because low income is the rule rather
than the exception, the individual family enjoys a certain degree of peace of mind
in the knowledge that its position is about as good as that of its neighbor.
The emphasis purposely is placed on agriculture and forestry for the reason that
"tiff" mining appears to have reversed the normal order of "putting first things
first." Agriculture and forestry have been in partial, if not total, eclipse. The
contrary relationship should exist, however, thereby relegating tiff mining to
secondary position. Until the time comes that tiff mining is looked upon as a
source of supplementary income to the rank and file of agriculturists and timber
workers in Washington County, there can be no lasting solution to their problems.
Old residents of the county state that that was the situation of a generation or
more ago. Reverting to an order which has existed may be easier than striving
to attain a condition which is without precedent.
The first major adjustment is to put a large part of the area of Washington
County into the use for which it is best adapted. Prof. H. H. Krusekopf of the
soils department, University of Missouri, has prepared a general land map of
the county which, until such time as a soil survey is made, probably is the best
information available on the general land classes of the area. His report and map
show that although all of the county is very hilly, the soils in the western half of
the county are uniformly stony and of low productivity. According to Professor
Krusekopf "in this area very little of the upland is suited to farming although
some can be utilized for rough pasture. In general, it is a region of forest land.
The creek bottoms are successfully farmed, and include most of the arable land.
The agrfcultural possibilities in this section are very limited." The area to which
he refers comprises more than half of the area of Washington County. It should
be emphasized that the border lines are not exact and definite delineation is not
possible until information from a soil survey becomes available
A definite step toward the needed readjustment took place in 1934 when the
Clark National Forest was created to embrace an area comprising ajjproxinjately
the southwest quarter of the county. Approximately 132,000 acres of Washington
County are in this national forest. Of this total, the Federal Government owns
68,000 acres, or approximately one-half of the area within the national forest.
Probably the Forest Service can acquire eventually up to 75 percent of this area.
If additional funds were available and approval given, the forest area could be
extended to take in 147,000 additional acres in Washington County. This would
more than double the present area in national forest. Increasing the area to this
size would put to forest use the section of the county that Professor Krusekopf
designates as "a region of forest land." It could reasonably be assumed that the
Government might eventually purchase 75 percent of the extended area. Follow-
ing these assumptions, the Forest Service might eventually own, in round numbers.
NATIONAL DEFENSE MIGRATION 8793
200,000 acres of laud in the count3^ Such a program, in addition to insuring that
the soils of approximately the western half of the county would be in the use for
which they are best adapted, would create a labor market for many Washington
County people. Mr. Paul Kelleter, supervisor of the Clark National Forest,
stated that if funds were available for work on the 68,000 acres now owned in the
county, the Forest Service would be in position the first year to give 200 days
employment to a total of 892 men. Since certain of the work can be done only
once in about 10 years, the succeeding year the employment would drop to 200
days for 250 men. These latter figures probably would represent the amount of
labor required annually to care for the 68,000 acres. Increasing the acreage of
Government-owned land to 200,000 would triple the area thus owned, Vjut it
would not result in a three-fold increase in the amount of labor required. Certain
of the labor on the present area of national forest is of an overhead character
which would not be increased proportionally with the extension of the area in
forest. With the national forest in Washington County more than double its
present size, and with 75 percent of the land in the forest owned by the Govern-
ment, it is conservatively estimated that if funds were available, the Forest
Service would be in a position year after year to give 200 days employment for
500 men, or if preferred, 100 days employment annually for 1,000 men.
The second major adjustment is to develop a program for the eastern half
(actually less than half of the area of the county) of the county which will assure
the use of the resources of the area in such manner that the greatest benefit will
result to the residents of the region. In this description of the eastern half of
Washington County, Professor Krusekopf states that "the soils are not every-
where stony, although there are areas of rough land. The soils are dominately
brown in color and more productive than in the west half of the county." This
portion of the county is a combination of (1) mixed forest grazing and some crop
land, and (2) rotation crop land. For the purposes of this report, this division
need not be stressed since the suggested adjustments are for the entire eastern
half of the county. However, in putting into force anj' of the suggestions made
for this area, the delineation would be a most necessary guide. Again it may be
advisable to remark that a soil survey would make these delineations more definite.
The task of suggesting adjustments for the eastern half of the county cannot
be simplified in the sense of making one general readjustment as was the case of
forestation for the western half of the county. The problem calls for many, not
one, adjustments. However, one adjustment stands out as being fundamental.
It is for some plan of putting people on small tracts of agricultural land. This
can be brought about by public acquisition or leasing and subsequent lease or
resale. The characteristics of the people, their part-time employment, and the
peculiar characteristics of the land ownership in the area, as previously described,
all justify such a program. Furthermore, to prove effective, such a program must
be planned on a comparatively large scale. In this the Farm Security Adminis-
tration has the facilities for playing the major role. This organization could
begin its work with the subsistence units; e. g., cow, garden, etc., and work into
the development of cooperative landholding and leasing associations.
The suggestions so far may have indicated a cleavage between east and west
sections of the county. They were thus presented merely to bring in sharp focus
twomajor lines of action and not in anj^ sense is it the intention to make any dis-
tinction in the over-all suggestions for the area. The county should be considered
as a unit and all programs to be eff"ective must be well coordinated.
In discussing Washington County as a whole there are many pressing problems
but none more significant than that dealing with the educational facilities for
young people. The boys and girls do not have adequate facilities — and many
are not taking advantage of the facilities they have to equip themselves for service
as productive citizens. Training of a vocational character is inadequate and that
which exists is reaching only a comparatively small group of young people. The
finances of the county are being strained to provide even a modest school system.
Too much cannot be expected from the local schools in the development of voca-
tional training programs. This type of education is expensive to install and to
teach. Under such circumstances, it appears reasonable to urge that the National
Youth Administration give generously of its facilities to these underprivileged
youths. It would seem that the National Youth Administration offers the one
major opportunity for developing skills among many boys and girls who are in the
county now because they do not know the trades that would give them entree to
jobs elsewhere.
When all factors are considered, it is with the youth of the county that the
hope for better conditions rests. One cannot get too optimistic about changing
the ways of persons who have already lived most of their lives. Consequently,
g794 '^'''- I'OUIS HEARi:XGS
stress sliould be laid on lielpiiit; the boys and Kirls to readjust themselves. Acquir-
ing a skiii, as was ineiitioiied above, is one inii)ortant angle of the education
propnuns. Tlie National Youth Administration also can help in another way.
Tlirou>;li its residence centers, it can teach how to live better by accjuirinj? home
talents, and by taking advantage of even the modest means that may be at one's
disposal.
The suggested readjustments found in the preceding pages may be criticized
on the grt)unds that they stress, unduly, wluit governmental agencies, rather
than private initiative, can do for Washington County. For the immediate
future — unfortunate as it may be — Government activity seems the major alterna-
tive. Furthermore, it would appear that laying the base for a long-time remedial
program is also Govenunent's role. The jjosition of ])rivate industiry in the future
depends in large measure upon the degree of widsoni displayed by various govern-
mental agencies in making their long-time plans for the count}'. Consec(uently,
one of the most important recommendations that can be made is for research into
the possibilities for developing small industries within the area. The same state-
ment can be made concerning research into the best uses for agricultural land.
For example, the rehabilitation of forests will open up possibilities for industries
built ui)on the processing of wood products. The role of Government agencies is
to develop a specific program of research into the utilization of forestrj' products.
The role of private initiative is to take these findings and develop industries which
will give employment to people of the county.
IV. Recommendations
SPECIFIC ACTION PROPOSALS
1. Through Federal action.
(a) Extend the boundaries of the Clark National Forest to include an additional
147,000 acres of Washington County land. Continue the program of land accpiisi-
tion in the yiresent area of the National Forest, and the area within the extensiony
until the Government owns approximately 200,000 acres of forest land in the
county. This acreage would be approximately 75 percent of the area of the
extended national forest in the area. Make funds available so that the Forest
Service will be in a position to give emplojanent for 500 men for 200 days a year,
indefinitely. This employment figure is based on an estimate of the manpower
needed to care adequatel.y for the national forest in Washington County, after
the present area is extended to include an additional 147,000 acres.
(6) Inaugurate an extensive Farm Security Administration program of public
land acquisition, or leasing, of agricultural land in the county for the development
of cooperative landholding a;id land leasing associations.
(c) Develop a specific program of research into the utilization of agricultural,
forestry, and mineral resources of Washington County. In this program, the
facilities of the Regional Research Laboratory of the United States Department
of Agriculture, the Forest Products Laboratory, the Bureau of Mines, and other
Federal agencies should be made available. In particular, it is urged that the
Forest Products Laboratories should consider the establishment of pilot plants
for the production of wood products.
(d) Establish National Youth Administration residence facilities at Bonne
Terre and enlarge workshop opportunities at that point sufficient to accommodate
100 additional bo3^s from Washington County. Enlarge the present residence
center at Steelville to accommodate an additional 50 to 60 girls from Washington
County.
£. Through Slate action.
(a) Develop a county land-use planning program in the county. In view of
the proportions of present Government programs and the suggested new programs
in the county, it is imperative that the necessary machinery be set up for coordi-
nation of all activities. The county land-use planning program provides the
nucleus for this coordination and for the working out of cooperative relationships
between the three levels of government — Federal, State, and local — in the county.
An agreement for a unified effort for better land utilization and the rehabilitation
of rural families, patterned along lines of the agreement recently adopted in the
Pond Fork unit of the Mark Twain National Forest, is urgently needed. How-
ever, in Washington County this agreement should cover the whole county and
should provide a liroader approach and a membership of local as well as State
and Feclcral agencies. (This recommendation, although placed under the heading
of State action, really calls for action in all three levels of government.)
NATIONAL DEFENSE MIGRATION 8795
(6) Make a complete soil and land-use survey of the county. This survey
should precede (o) any extension of national forest area, and (6) any Government
program of acquisition or leasing of agricultural land.
(c) Periodically, there should be \a\wT surveys by the Missouri State Employ-
ment Service, similar to the one being made in June 1941 as a basis for regulating
the public labor load.
(d) Maintain a full-time complete health unit for Washington County for
curative as well as preventative work.
(e) Develop Washington Park. This park is about 50 miles from St. Louis
and only a short distance from the populous lead-belt area of St. Francois County,
(/) Make possible the creation of soil-conservation districts so that the services
of the Soil Conservation Service could be made available for Washington County.
S. Through local action.
(a) Established vocational education — vocational agriculture, vocational home
making, and possibly industrial trades and industrial education — in at least one
school in Washington County.
(b) Rigidly enforce the compulsory State school-attendance law.
(c) Cooperate in land-use-planning activity to insure program coordination.
SPECIFIC PROBLEMS ON WHICH ADDITIONAL RESEARCH AND INVESTIGATION ARE
NECESSARY
1. Revise the 1932 school ]3lan for Washington County to assure that school
facilities are meeting the needs of the area. The possibilities of school coiisoi-
dation, bus transportation for pupils, relocation of families, and vocational train-
ing should be especially emphasized.
2. Make an exhaustive study of the industrial utilization of the mining and
forestry resources of the county with the \iew in mind of finding jobs for Wash-
ington County people in industries now utilizing the products or in industries
which would be created because of new uses which might be found. To state
specific examples, further research might be conducted into the economic fcasil-ility
of establishing a charcoal plant, a brick plant, and an establishmeno for the manu-
facture of corrugated cardboard from Missouri oak.
3. Conduct an exhaustive survey of the adaptability of the area for truck
gardening and of the markets for such produce.
8796
ST. LOnS HEARINGS
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NATIONAL DEFENSE MIGRATION
8797
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8798 ST. LOUIS HKAIUNGS
RETOKT BY 11. D. BOSSERT, CONSULTANT, NATIONAL RESOURCES PLANNING BOARD,
ON APPANOOSE COUNTY, IOWA, JUNE 2S, 1941
Api)anoose Comity lias hoen the suhjVct of many a social analysis. I^ocause
of tliis, and more jiarticularly hocaiise of the factors which have prompted such
analysis, many local leaders are convinced that the time for action has been "now"
for s(>voral years.
Protilpins of the area center about the coal industry, whose development
broufiht in tiiousands of jjcot^Io l)ut whose decline has not l^eon accomianicd by
jiroportionate emigration. Without coal mining, Ai)]'anoose County might have
achieved its j)eak po])ulation as far back as 1870 instead of 1920.
The coal is still available in large reserve. Loss of railroad markets and com-
petition from better grades of coal, as well as other types of fuel, have curtailed
l)roduction. Increased knowledge of combustion, better pre] aration such as
(loaning, sizing, and waxing hold promise of retaining or ex]ianding present mar-
kets.
Eventual doT>letion of eastern coal reserves and more immediate reduction in
jietroleuin av.nilable for domestic civilian consumi)tion may increase considerably
the demand for Iowa coal and, proportionately, for A])))anoose County fuel. If
so, the miners are ready to do the job, although their average age is increasing
each year.
Local leaders, however, have come to the conclusion that in agriculture, rather
than mining, lies the hope of the county's excess miners for subsistence and, on a
modest standard of living, independence. Particular interest attaches to a sub-
sistence farming plan pre] ared in some detail by local peoi le and presented to
Farm Security Administration representatives in 193S. Action on this plan on a
trial 1 a>is seems warranted without delay. Local leadership will be supplied, but
Government loans ap])arfMitlv nre required
In the ideas and energies of the local people are many signs of hope. EstablLsh-
ment in past j'ears of the -Appanoose County Soil Conservation Association, active
partici])ation in the program of the Chariton Basin Planning Board, crea*^ion of an
areal iiublic health unit, and continued indications of personal nijlingness to con-
tribute toward the solution of common problems are strong evidence that morale
and l('ad(>rship have not been destroyed.
In 1930 the report An Approach to County Planning — Appanoose County, was
issued by the Iowa State Planning Board. A wealth ot factual material including
the results of some original study, plus preliminary plans for recreational, tran.s-
portation and other development, were incor])orated in the publication. Local
businessmen, public officers, engineers, farmers, and others contributed valuable
time and information.
From this rejiort has been obtained much of the background information for
the present areal analysis. The latter would be improved by the inclusion of
many illustrations, maps, and graphs from that source, but unfortunately these
are not readily available except through the dismemberment of several co])ies of
the TMiblication itself. Reference is hereby made to that report as being the most
productive single source of information about Appanoose Count}'.
I. Characteristics of Employment
The population of Appanoose County was higher in 1920 than in any other
census year before or since, although in 6 of its 17 townships, the peak was actually
reached in 1870. Except for 1917 and 1918, the year 1920 also saw the highest
production of coal in the county. From more than 30,000 people in 1920 the
population dropped to 24,835 in"l930 and 24,245 in 1940.
The United States Census of Occupations indicates that there were in the
county about 2,900 miners in 1920 and about 1,600 in 1930. The 1935 Census
of Business shows 1,564 employed in mines and quarries, the latter undoubtedly
accounting for only a small portion of the figure.
Thus in a period of two decades the county lost 20 percent of its population
(about 1,900 families) including about 1,400 or 48 percent of its miners. Annual
coal production, however, in the same period dropped from over l]4 million tons
to less than one-half million tons, while total man-days employment in the mines
fell from over 700,000 to less than 200,000. Decline of the railroad market has
been responsible for almost all this change. The 2 factors of decreased tonnage
and decreased man-days per ton combined to effect more than a two-thirds
decrease in employment while the actual number of miners decreased one-half.
The 1930 Census of Unemployment indicated a total of 1,075 unemployed
persons in Appanoose County. Of these, 543 were temporarily idle from their
jobs, and 532 were out of work but able to work and looking for it. Of the 1,200
relief families in 1935 the head of the family was listed as a miner in 40 percent
NATIONAL DEFENSE MIGRATION
8799
of the cases. Work Projects Administration project employment for the 24
months ending June 1941 showed a fairly uniform total of 400-500.
All these factors point toward the conclusion that Appanoose County has an
excess of some 400-500 miners.
The 1935 Census of Business gives the following employment and pay-roll
figures for the commercial industrial group:
Table I. — Appanoose County employment and payroll, 1936
Number of
employees
Percent
> 2, 572
100.0
1,564
GO. 8
503
19.6
200
7.8
112
4.4
55
2.1
44
1.7
19
.7
75
2.9
Pay roll
Average
incomo
County total
Mines and quarries
Retail
Ma nufacturing_
Wholesale
Service -
Insurance, real estate, and finance
Construction
Miscellaneous
$1,879,000
1,127,000
275, 000
187, 000
126. 000
29, 000
39, 000
16. 000
80, 000
.$730
720
546
935
1,125
528
887
843
1,067
1 Not including 488 active proprietors plus unenumerated proprietors in manufacturing, mining, and
quarrying.
Mining leads the commercial-industrial group in employment and is the No. 1
source of unemployment, yet agriculture is the leading industry with twice the
income and two-thirds more employment than mining.
The farm population rose from 8,927 in 1930 to 9,694 in 1935, an illustration
of the back-to-the-folks depression migration. In 1940 the total population on
farms and in unincorporated communities was down to 9,423. Farm employ-
ment in 1935 stood at 2,485, comprising 2,304 farm operators and 181 hired help.
From a census standpoint, only 8,413 people were in the urban group in 1940,
all towns except Centerville, the county seat, having less than 2,500 population.
From an Appanoose County viewpoint, however, there were 14,822 persons in
the 11 incorporated towns to 9,423 on farms and in unincorporated places. The
1930-40 ijopulation drop of 600 persons occurred almost entirely in the latter
group.
Early miners from England, Wales, and Scotland were followed by Swedish,
Italian, and Jugoslav workers. The latter two nationalities now predominate
among the foreign-born group and comprise about one-twentieth of the population.
An accelerating decrease in the percentage of young people and increase in the
proportion that are over 45 years of age explains the disinclination of the residual
population to follow the trail of economic opportunity.
II. Factors Affecting Employment and Income Stability
A. use capability of basic natural resources
Although practically all the land is in farms and almost 40 percent in crops,
only about one-fourth of the total area of the county is made up of highly produc-
tive soils. The topography is mainly rolling, characterized by many short, steep
slopes. This combined with the shallow surface and low absorption capacity of
the typical soils has resulted in widespread serious erosion. Limestone and in
most cases phosphate applications are needed for maximum production, especially
for legume crops.
Probably about one-fourth of the area was originally timbered with hardwoods.
Much of this has been entirely cleared. Practically all that remains is used as
woodland pasture, preventing the establishment of new growth. Less than
1 percent of the county is now used exclusively for timber, and little of this gets
the management needed for profitable timber production.
Much of the count}' is underlaid by a low grade of bituminous coal, easily ac-
cessible for .shaft and drift mining. High in moisture content, the local coal tends
to "slack down" or disintegrate and to heat in storage. Because it cannot be
stored for long periods, it cannot be mined uniformly throughout the year.
Washing decreases the ash content but does not materially reduce the high sulfur
content. An area about equal to that currently under lease has been worked
out. Coal reserves are estimated as adequate for many centuries at present
production levels.
There are considerable, fairly well distributed deposits of limestone suitable for
agricultural and road purposes. In view of the high acidity of the soil, the preva-
60396 — 42— pt. 23 8
8800
ST. LOmS HEAR1^^GS
lence of local limestone is particularly fortunate. Sizeable deposits of gypsum
are of doubtful economic value.
The climate is favorable to feed crop and livestock production. The growing
season averages 100 to 170 days. The animal rainfall averages about 35 inches
(it falls below 30 inches about 1 year in 3) and is usually well distributed through
the growing season.
Farm water supplies are mostly taken from cisterns, shallow wells, and artificial
ponds and are frcHiucntly ina(le(|u;ite. Natural springs furnish some water in the
rougher areas. Larger supi)lies of ground water r('(|uire drilling ()00 to 2,500 feet
ancl even at such levels are limitefl. The terrain and soil are adai)ted to surface
storage, but this is used only for the city supply at Centerville and for fire i)rotec-
tion at Moulton.
Opportimities for capitalizing on the local scenic and recreational advantages
have been only slightly realized. The Suggested Comity Park and Parkway
System which constitute figure 37 in the aforementioned A])])anoose County
report should be a stimulus in this direction. The count}- is rich in Mormon
history, and is crossed by two separate Mormon trails.
B. ESSENTIAL FEATURES OP REGIONAL ECONOMY
Farming covers over nine-tenths of the land, produces twice as much income as
mining and is predominantly made up of family sized commercial units raising
field crops and livestock. About one-fourth the farms are part-time subsistence
units under 50 acres and another one-fourth have from 50 to 109 acres. Re-
sources and income per farm are relativeh' low, especially for these smaller units.
About three-fourths of the part-time farms are operated by miners, whose average
cash income for the year 1935 was $270.
Tenancy historically has involved about one-third of the farms but since the
middle 20's has risen to 46 percent in 1930, reversing the trend to 44 percent in
1940. Insurance companies and other corporations owned 13 percent of the
farm land in 1937, 14 percent in 1939, a figure slightly above the average for the
State.
Technological changes including the adoption of hybrid corn, restricting corn
acreage to a smaller portion of the better land imder the Agricultural Adjustment
Administration program, and violent weather variations during the last 10 years
obscure any trend in yields of crops which may be associated with declining
productivity of the county as a whole.
Fifteen shipping mines, mostly unionized, produced about two-thirds of the
average annual county total of 400,000 tons of coal in 1938 and 1939, and employed
61 percent of the workers. Seventy local mines, mostly nonunion, accounted for
the rest of the production and employment. Although the basic union wage is in
the neighborhood of $5 per day for company men and $1 per ton for miners, it is
reported that the usual rate in local mines is about $2 per day. A significant trend
in the industry is the increase of local mine tonnage at the expense of shipping
mines.
Table II. — Employment and production in Appanoose County coal mines, 1938-39 '
Type of mine
Year
Tons pro-
duced
Miners and
loaders
Other under-
ground employ-
ees
Surface
employees
Total
Num-
ber
Average
days em-
ployed
Num-
ber
Average
days em-
ployed
Num-
ber
Average
days em-
ployed
Shipping
1938
1939
1938
1939
290, fi09
233,915
120, 550
138, 581
959
704
573
552
93.9
92.3
164.9
128.6
131
216
47
106
93.9
95.0
134.9
150.5
92
71
59
57
95.6
95.0
132.6
140.0
1,182
991
Local -
679
Do
715
« Report of the State mine inspectors.
The market for Appanoose County coal is limited largelj' to the western two-
thirds of the State, better grades of Illinois and other eastern coal controlling
the eastern Iowa market. Because of its chemical and physical properties, the
local coal is not economically adapted to certain industrial uses such as in the
manufacture of plastics. With proper burning, however, it gives good heat at
reasonable cost.
Ten incorporated towns in addition to the county seat serve the area. The
latter, Centerville, dominates the retail trade and farm marketing of the county.
NATIONAL DEFENSE MIGRATION
8801
Half the other towns lost and half gained population in the past decade. Several
communities probably are and should be doomed to extinction or relegation to the
rural cross-roads class as the result of curtailment of mining and proximity to
superior trade centers.
All incorporated communities are served by rail transportation. The major
rail traffic movements are northeast and southwest, with minor movements
north and southeast. The county is well situated to participate in transconti-
nental traffic.
The highway system is adequate as to mileage, but low tax resources and ex-
tremely rough topography in some areas have resulted in poorly maintained road-
beds. ' Half the mileage in county trunk roads, three-fourths the mileage in county
local roads, and practically all the mileage in local land service roads are yet unsur-
faced.
Farm buildings are poor in Quality and home conveniences are conspicuously
absent. According to the 1930 census, a lower percentage of farms in Appanoose
Countj' had automobiles, electricity, water systems, telephones, or radios than
in any other county in Iowa. Average annual per capita income for the entire
county is only three-fourths the State average. Annual per capita income from
the business industry employment group in 1935 was $730.
Formation in past years of a county soil conservation association, recent
increases in agricultural liming and a growth of erosion-control consciousness
indicate a realization of local problems upon which poverty and ineffective organi-
zation have hitherto prevented action.
C. CURRENT PROBLEMS
A major portion of the county's area is subject to serious sheet and gully erosion.
Almost one-third of the population is on relief. Total relief costs, which have run
as high as $30,000 per month, are still exorbitant, have yet to produce any improve-
ment in the ability of the clients to become self-reliant. In fact, the development
of a relief career philosophy is a real threat. Although about average among
Iowa's 99 counties as to population, Appanoose is exceeded by only 8 counties in
number of unemploj-ment benefit claims and payments.
Table III. — Percent of population receiving relief in Appanoose County,^ January
1937 through April 1941
Year
Jan.
Feb.
Mar.
Apr.
May
June
July
Aug.
Sept.
Oct.
Nov.
Dec.
1937 .. .
18.6
18.1
2.3.3
28.5
29.2
18.8
20.4
24.1
26.2
28.3
18.7
25.8
24.8
27.5
28.9
22.6
29.5
26.0
25.7
31.6
24.4
30.2
26.6
29.5
24.8
31.1
26.0
28.7
24.0
31.1
27.3
29.2
21.5
29.8
18.6
29.5
21.1
29.0
28.5
29.5
18.1
26.3
27.0
29.3
16.9
25.0
25.3
30.2
17.4
1938. _
1939
24.2
26.3
1940
1941
29.3
' Prepared by State Department of Social Welfare; includes persons on general relief, Work Projects
Administration, old-age assistance and aid to the blind minus duplication as represented by those receiving
general relief and Work Projects Administration or old-age asistance. Of particular interest is the apparent
trend toward a uniform month-to-mouth load, in contrast to the former situation in which mining activity
reduced the winter relief list.
Illiteracy is the highest in the State. Low property valuations and income
prevent adequate school support on the basis of present financing. In spite of
the fact that the people in city, town and consolidated school districts of Appanoose
County bear tax burdens half again as great, in proportion to the tax base, as the
State average, thev raise less than two-thirds as much school money per census
child.
Social institutions and programs are far less numerous and less active than in
the average Iowa county. Although soil depletion and erosion plus curtailment
of mining have forced emigration of one-fifth the population since 1920, unemploy-
ment is still a major problem.
Declining in total numbers, and more especially in the age groups under 45
j-ears, the people exhibit a weakened resistance to the palliative of direct relief,
and a dulled initiative in solving their problems. Despite greater unemploy-
ment, reportedly fewer people from Appanoose than from surrounding counties
have left home to seek work in the expanding defense program.
III. Direction of Readjustments
Needed adjustments in mining include: (a) Application of more uniformity in
wage standards between shipping and local mines, and (6) improvement in con-
8802 ST. LOUIS HEARINGS
suiiier appi-al and storiiiR qualities of the local coal tliroiiKli washiiig, waxing, or
oiling, and sizing. These treatments will be ccononiieally ju.stifiecl for certain
markets. Further utilization by local in(lu.stry, existing and potential, would
help not only in raising the total demand l)ut also in s[)reading employment
through the summer months. Encouragement of more local industry at the
I)resent time is an attitude considered with caution by many local people who fear
the after elfects in case strictly peacetime economics do nf)t warrant continuation.
In the field of agricultural adjustment the smaller commercial farmers need
increased resources through one or more of the following: (a) Increased acreage.
(b) Application of conservation materials and tcchnic|ucs. (c) Additional operat-
ing cajjital for which they may be unable to (lualify from commercial sources.
(d) More stable teimre relationships, including increased owner-operation.
.Adjustments in most of these directions are now occurring under the stimulus of
existing programs. The conservation features of Agricultural Adjustment
Administration, the standard loan and conservation works programs of Farm
Security Administration and education in farm and home management j)ractices
by the Extension Service could well be exj^anded, especially to provide more
service to the farmers on the smaller and poorer farms. The tenant purchase
program and a Soil Conservation district program (for which a petition is under-
stood to be in process of circulation) should be inaugurated. Many small soil-
conservation structures arc required, and farm water facilities should be improved,
including development of more farm ponds.
Certain lands which arc too severely depleted and eroded, such as all or most of
Union Townshij), should be retired by public purchase (either by the United
States Forest Service or the Land Utilization Section of the Soil Conservation
Service) and maintained in forest or permanent pasture. It is understood that a
start has been made toward purchase of land in Union Township, which is located
W'ithin the Chequest Forest purchase area.
The failure of either emigration and resettlement or development of new local
industries to take up the slack in mining employment means that some 500
families must be provided with new opportunities for self-support or else provided
with continued public support. Except for the alternatives of (a) no assistance
and (h) a national resettlement policy, we face the question of how to maximize
the self reliance of these families in their present locations.
Although depleted from its original status, the soil is yet the major continuing
resource of the area. Its utilization in solving or at least mitigating the problems
of the unemployed in Appanoose County has been proposed on two different
bases. One program would establish each family on approximately 80 acres,
with a modest amount of simple equipment and a budget providing for a maxi-
mum consumption of the products of home labor. Living standards would not
be high, but subsistence w'ould be possible without other employment. A detailed
"subsistence farming plan" was prepared by the Chariton Basin Planning Board
in 1938 and presented to representatives of the Farm Security Administration.
Tentative approval was indicated but no action has developed.
The other program would provide smaller tracts, probably up to 40 acres, for
part-time farming or gardening to supplement w^inter employment in the mines.
Both programs are already in effect on an individual basis, and probably there is
further need for both. Advocates of each favor a rather extensive program with
public assistance and expert guidance. They differ, however, in their views on
(a) the permanency of what is now a surplus population and (b) the effect of a
subsistence farm program on the present commercial farm economy of the area.
The downward trend in population, particularly among the younger age groups,
indicates a long-term natural solution to the problem of overpopulation. For
many years, however, its effects must be faced. A major present problem, there-
fore, is to help establish on the land those miners adapted by experience or capa-
bilities to subsistence farming, while at the same time protecting insofar as possible
the commercial farmers of the area.
IV. Program
A. OVER-ALL RECOMMENDATIONS
Federal,
1. Purchase a majority or all of the land in Union Township for forest and
related uses.
2. Inaugurate an extensive Farm Security Administration program for tenant
farm purchase, rehabilitation and improvement of the economic status of the small
commercial farmers.
3. Establish a Farm Security Administration program to make loans and pro-
vide guidance for subsistence farmers on a probationary basis leading to permanent
NATIONAL DEFENSE MIGRATION 8803
units of 80 acres or more for families which prove adaptable. It is suggested that
this program be started with development of about 25 units.
4. Through the Agricultural Adjustment Administration program encourage
further agricultural liming, permanent pasture and other approved practices on a
conservation rather than production control basis.
5. Through the Soil Conservation Extension Services and others educate the
farmers to follow conservation rather than exploitation principles, and assist
them in construction of small erosion control structures, farm ponds, Jetc, and in
following proper land use practices.
State.
1. Through the Agricultural Extension Service, extend home management and
farm management assistance to more of the smaller and poorer farms. More home
consumption of farm products is a special need where cash income is so low as in
this area.
2. Establish a State-aid program for schools and extend its benefits to Appa-
noose County.
3. Through the State department of health, extend the activities of the areal
health unit.
4. Through the State Conservation Commission, establish additional park
areas connected if practicable with trailways.
Local.
1. Establish a county soil conservation district to obtain the maximum services
of the Soil Conservation Service.
2. Cooperate with the State department of public instruction in studying and
effecting school consolidation.
3. Maintain vocational education programs, including the fields of agriculture,
home-making and industrial trades, in Centerville.
4. Maintain a realistic attitude toward relief, employment, and economic op-
portunity, and assume leadership in carrying into effect programs already pro-
posed for development of subsistence farms.
5. From the 1936 Approach to County Planning; Appanoose County, prepared
by the Iowa State Planning Board, and in the light of developments since then,
proceed to a county plan which takes into account: (1) Probable future popula-
tion distribution (including a flexible program for part-time farming to relieve
mining unemployment but not create an excess of capital investment in units
which ultimately may prove too small for complete agricultural independence),
(2) consolidation of schools, (3) readjustment of county and local roads to the
expected poi^ulation pattern, (4) development of the county's recreational po-
tentialities.
6. In connection with this county plan, prepare a series of definite projects
and establish budget-calendar status for each.
B. PUBLIC WORKS RECOMMENDATIONS
Public works should promote the conservation and improvement of basic natural
resources, the materials for self-reliance on the part of Appanoose County resi-
dents, instead of adding to their future financial burdens while aff"ording tem-
porary employment.
1. A Conservation works program to build small erosion-control structures,
terraces, farm ponds, etc., should accompany better land use practices by the
farmers themselves. Establishment of a coimty Soil Conservation district will
open the way for official sponsorship of Work Projects Administration projects
to perform much of this needed work.
2. Public water supplies should be provided for a few communities whose
economic prosjjects warrant the corresponding indebtedness. Moulton (with a
present supply only for fire protection), Mystic (whose star is fading but whose
capital investment justified protection) and Moravia (whose wide lots pose a
special assessment problem but whose property values and stable population
warrant such construction) should be considered for water supply systems in a
future public works program.
3. Road and school construction should be undertaken only if in accord with
the county plan for future development and the probable pattern of population
distribution.
4. Additional public improvements in the towns should be constructed only
after critical consideration of future population and income prospects. Projects
requiring considerable maintenance at public expense should be especially avoided.
8804
E
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NATIONAL DEFENSE MIGRATION
8805
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830G ST. IX)UIS IIEAUINCiS
REPOKT HV MAI.VIN C. HOFFMAN, CONSULTANT, NATIONAL UESOURCES PLANNING
HOAIll), ON THE CENTHAL KANSAS OIL AREA, JUNE 20, 1941
I. C'hauacteuistics of ICmI'LOYMENT
Hartoii Arch nrcji of central Kansas is an oil producinp; region but i)redoniinantly
an agricultural region. There is a small amount of salt mining and flour milling.
The population in 1935 was 157,131. Total employment is 33,380, divided 50
percent on farms and 50 percent in towns. The towns arc principally service,
sui)ply, transjjortation, and county seat centers.
Most of tiie oil workers are from outside areas and temporary in area. It is
diflieult to determine number of oil workers as they are rei)orte(i from town and
country. The suj^jjly and refining centers are in towns and most of drilling and
oil production on farms. Approximately 15 jiercent of the workers arc engaged
in oil work, 3 jiercent in salt industry, 1 i)crcent in flour milling, and 81 jiercent
in agriculture and service, supply, transportation, etc., principally for agriculture.
Over $40,000,000 have been paid in bonuses, rentals, and royalties to land and
royalty owners in the Oil Belt during the past 11 years. All th s money did not
go to the farmer because much of the royalty is now owned by investors living
outside the area. To determine how much would require detailed study.
Towns in oil area received much su])p(jrt by service to oil industry. A large
number of residents of the area have directly benefited by oil industry, although
local jiopulat'on obtained very little employment work, in oil industry. Public
assistance is about two-thirds average for the State. In 1939 about 11 percent
of the population of the area was dependent on public assistance.
The central Kansas oil area is located in the middle of a strip from North
Dakota to central Texas that lost population between 1930 and 1940, yet this
area gained. Population went from 147,500 in 1930 to 162,500 in 1940, an in-
crease of about 15 000 persons, which is a 10 jiercent growth over the 1930 figure.
The increase was undoubtedly due to oil development.
As petroleum development work ncars completion most of the oil workers w'ill
'eave the area. This may be within the next 5 or 10 years. Within the next 5
j'ears a very marked decline in oil workers should be apparent. The area will
again become predominantly an agricultural region.
Aside from national and international factors of market and jirices, all agri-
cultural and related employment and income is drastically and directly affected
by alternate ])criods of adequate precipitation and drought. A heavy emphasis
on cash grain crop, particularly wheat, has resulted in an unstable economy for
the area.
Development of marketing cooperatives indicates cooperative attitude of the
people in the area; also shown by willingness of majorities in some of the counties
to cooperate with Agricultural Adjustment Administration, soil erosion, and
forestry programs.
II. Factors Affecting Employment and Income Stability
BASIC natural resources
The land is the most important basic natural resource. Land types range
from good bottom land, some of which can be irrigated, to rough and hilly up-
lands with steep rocky slopes. Some of the land is pvit to its best use, but most
of it is not. The land has high productivity during years of sufficient rainfall.
In general, the use of fertilizer has not increased the productivity sufficiently to
warrant its use. Rainfall averages 26 inches a year in the southeastern part of
the area and 22 inches in the northwestern part of the area, but fluctuates widely
from year to year and within the year. Crops are usually good during years of
high precipitation and poor during years of low precipitation. Grasshop])ers and
rust also operate against crop successes. There is a large supply of salt in the
area at depths shallow enough to be mined economically. It is being taken out
slowly and will last a long time; estimated at several thousand years at present
rate of production. Eni])loyment does not fluctuate much. About 3 percent of
the i)opulation is supported by this industry.
Petroleum reserves in the area are estimated at about 600,000,000 barrels;
possibly 300,000,000 more may be discovered. Production should continue at a
declining rate for about 20 years, most of the oil being produced in the next 10.
Even though most of the oil workers will have left the area within the next 5
years the })avments to rovaltv owners will continue as long as oil is produced.
An estimated $115,000,000 will be paid to royalty owners during the life of the
oil production, a large i)aTt of it going to residents in the area. This income will
NATIONAI. DEFENSE MKlKATiON 8807
have a marked effect on the economy of the area. The money is Ix'lng paid to
the owners because they fortunately hap])encd to own some land that i)roduced
"oil. Farmers may refuse to recognize the importance of a stable agricultural
economy while oil is paying them an income without having to do any work for it.
ESSENTIALS OP REGIONAL ECONOMY
Tax and Federal bank loan delinquencies are not serious. Income to farmers
from oil has operated to relieve seriousness of bad years from 1930 on. This
helped many farmers to weather the period fairly well even though the value of
agricultural production fell — in bad years to as little as one-sixth that of good
years. Those farmers not aided bj^ oil suffered as severely as farmers in other
regions.
Wheat production declined during the drought years but production is rapidly
rising again. This year, 1941, a bumper wheat crop is expected. This may tend
to lessen the efforts on the part of the farmers for reorganization. The farmers
have demonstrated their ability and willingness to cooperate.
Employment in salt and flour milling industries has been small but fairly
constant.
The oil industry will be stimulated by recent increased demands for petroleum
which should tend to retard emigration of oil workers for a year or two. Royalty
payments for a time should increase. This will not affect the ultimate return from
oil, mainlv affects rate of return.
CURRENT PROBLEMS
Current problems are largely internal; land planning and farm planning.
Average size of farms large enough to make good working units. Most farm
units are not balanced; too much wheat on most farms and not enough pasture.
Not enough livestock, not enough gardening. Too little attention given to wind
and water erosion. Tenant operation too high.
Harvest labor peak, sore spot in employment stabilization. Recovery of
petroleum should be by most economic means to the Nation and to producers.
Proper disposal of salt water produced with the oil, so that it does not pollute
ground waters or contaminate oil-producing horizons.
Petroleum industry will have largely run its course in the next 5 or 10 years.
Area will then revert back to its original state of being almost entirely an agri-
cultural area. As oil resources are depleted land values should decline as part of
the land value on farm land in the Oil Belt is based on petroleum reserves.
III. Direction of Readjustments
Emphasis should be placed on proper utilization of land; soil conservation
against the forces of wind and water, crop diversification and crop rotation; proper
care of land to protect moisture such as contour plowing, terracing, strip cropping,
cloddy plowing, use of basin lister and chisel. Ground waters should be protected
against salt water pollution in oil fields, ponds and storage reservoirs should be
built. Control of grazing — prevention or overgrazing. Planting of shelterbelts
and windbreaks, afforestation and reforestation.
The area should ultimately be composed of well balanced, self-supporting farm
units. Crop diversification should markedly reduce harvest labor peak.
IV. Recommendations
over-all recommendations
Help families to become self-supporting through reorganization of farm operating
units, making suitable sizes w^here necessary, but in nearly all cases placing them
under systems of use adapted to the climate and the soil. Create a State agency
to manage, lease, and dispose of tax-reverted and other State lands to efi'ect
adjustments desired in size and types of farms.
Create some financing agency to aid farmer in securing the funds to buy the
machinery, put up buildings, and acquire additional land where necessary to effect
reorganization. Create more soil-conservation districts under the State law.
These districts, in addition to having authority to carry on soil-conservation work,
can work out land plan and farm-management plan for individual farm units —
this work being done with cooperation of Agricultural Adjustment Administration,
State colleges, experiment stations, and other such agencies now^ engaged in
agricultural studies.
SS08 ST. IX)UIS HEARINGS
Create State enabling acts to insure that adjustments effected are not undone by
a temporary return of good prowinu weather and good prices for cash crops.
Kit her Federal or State agency or both should conduct research into study of
petroleum reserves to determine how to obtain greatest amount of recovery and
by most economical means. Troblcms of saU-watiT jiolhition by poorly plugged
wells and salt-water-disposal methods .should be studied with aim toward correction.
Create authorities for tlood-control projects to prevent much of damage to
crops, roads, bridges, and towns in tlood-plain areas.
PUBLIC WORKS RECOM.MEND.'i^TrONS
Pviblic works can accelerate general program of readjustment.
1. Develop water resources fully and in ways to encourage shifts to suitable
tvpes of agriculture. Provide for construction of small individual and medium-
sized irrigation projects in the Arkansas River Valley.
2. Inaugurate a rural works program of conservation to provide needy farmers
with a source of income while transition to stable agriculture is going forward.
Such a program should include terracing, fencing, regrassing, planting of shelter-
belts and windbreaks, erection of stock tanks, reservoirs, flood-control projects,
etc.. road construction, particularly on second- and third-class roads; grading,
some surfacing and building of bridges so that they may not wash out during
flood stages.
3. Establish research agencies to gather hydrologic data, study oil and gas
resources, and study sociological and psychological problems of the agriculturalists.
4. With decline of oil development many of the rural towns in the Oil Belt will
undoubtedly decrease in population. Studies should be conducted with regard to
distribution of public works so that they may be properly applied to population
that will be more or less permanently affected by reorganization. Studies should
also be conducted to determine effects of the immigration and emigration of the
oil workers on farm and rural population, and town and public services.
Exhibit B. — Problems in Area Adjacent to Camp Crowdeb
report prepared by direction of gov. forrest c. donnell, state of missouri'
I. Introduction
(a) descriptive
Camp Crowder, new Army replacement center is located immediately south
and southeast of the city of Neosho, embracing a total of approximately 66.500
acres in the southern portion of Newtou County and northern portion of Mc-
Donald County. The cantonment proper consisting of the administrative
buildings, barracks and accessory buildings, is now under construction in the
northwestern section of the reservation about 2 miles south of Neosho. Present
plans provide for about 16,000 soldiers but it is understood that later extensions
may be constructed to increase the total to approximately 35,000. Many factors
combine to make the site selected for the camp a very superior one showing
evidence of careful consideration of all essentials required in such an establishment.
(b) TOPOGRAPHY
The topography of the northw-estern section on which the cantonment proper
is being constructed is comparatively level consisting mainly of prairie. The
southern, southeastern, and eastern sections are mainly rugged in character with
numerous streams and side hill slopes in excess of 10 to 15 percent in many cases.
The prairie areas are mainly open land, the rugged and side hill areas mainly in
woodlands. The area varies from about 1,000 feet to 1,300 feet above sea level.
' Contributions to this report were made for the various divisions of the State government by the follow-
ing persons: St;ite Board of Health, Dr. James Stewart. State Health Commissioner, and W. Scott Johnson,
Chief Public Health Engineer: State Highway Department. Carl Brown. Chief Engineer; State Depart-
ment of Educ-ation, I.loyd King. State Superintendent, and Dr. N. E. Viles, Director of School Building
Service: Agricultural Extension Service, J. W. Burch, Director; State Highway Patrol, Captain W. J.
Ramsey, .\.cting Superintendent: Public Service Commission, Fred Stuecfc, Commissioner; Missouri
State Employment Service, Will S. Denham, Director: Social Security Commission, and Parke M. Banta,
Administrator; supplemented, edited, and condensed by State Planning Board, William Anderson.direo-
tor, in collaboration with the National Resources Planning Board, John Noyes, consultant.
NATIONAL DEFENSE MIGRATION
(c) OTHER IMPORTANT FACTORS INFLUENCING LOCATION
8809
Many towns and cities are within 30 to 40 minutes drive of the camp by auto-
mobile. Nearby communities are Neosho (population 5,318), approximately
2 miles; Joplin (population 37,144), approximately 20 miles; Webb City (popula-
tion 7,035), approximately 25 miles; Carthage (population 10,585), approxi-
mately 23 miles; Granby (population about 1,500), approximately 11 miles;
Seneca (population 1,091), approximately 16 miles; Goodman (population 321),
approximately 6 miles; Anderson (population 900), approximately 13 miles;
Monett (population 4,395), approximately 28 miles.
The possibilities of ample labor supply for camp construction are excellent.
Three railroads, five truck lines, and three bus lines serve the area. Two major
United States highways, a major State route and several minor highways pass
through or adjoin the camp reservation. Adequate supply of electric power,
natural gas, and other similar facilities are available. Opportunities for recrea-
tional activities are excellent.
(D) Financial data of municipalities in area
Assessed
valuation,
1940
Bonded indebtedness
City
Water
Sewers
Other
$1, 788, 130
331,350
395,000
193,714
412, 200
2,201,200
158,000
158,000
125, 000
1,130,763
85, 000
20, 960, 605
4,716,010
. 2, 305, 470
349, 790
297, 680
232, 105
172, 290
$9,000
30,000
2,000
15, 550
None
None
11,660
None
3,550
None
2,500
None
None
None
1,500
None
None
1,300
$30,000
None
None
None
None
30, 500
None
None
None
20,000
None
48, 000
17, 000
None
None
2.000
None
None
$36,000
4.000
6,000
None
None
60,000
None
Noel
None
2,150
20,000
600
310, 000
122, 000
Webb City
52,000
12, 500
8,000
5,000
None
II. Existing Conditions in Area
(A) industry and labor
(1) Industries.
Industries in the area have been mainly agricultural and the income has been
derived almost entirely from agricultural and allied pursuits. Manufacturing of
food products, food containers, farm machinery, garments, and other articles are
important activities of Neosho. Mining is an important enterprise in certain
portions of the area, Joplin being an important industrial center for the vast tri-
State lead- and zinc-mining territory. Principal agricultural activities have been
dairying and the raising of sheep, hogs, beef cattle, strawberries, apples, and other
fruits, together with some wheat, hay, and feed.
Newton County as listed in a report of January 1941 had 4,225 farms averaging
92.7 acres in size, of which 47 acres was cropland. Land-tenancy records indicated
an increase of from 31.5 percent in 1920 to 40.2 percent in 1935, and records for
1940 show a slight increase above the 1935 figure. The 1939 census lists 7,300
horses and mules, 30,420 cattle, of which 17,890 are milk cows, 3,730 sheep,
13,800 hogs, and 142,620 chickens. Income per farm gave the operator and family
a fair standard of living, carrying with very few foreclosures, a 35 percent mortgage
indebtedness of land value.
Communities in the general area have been reasonably prosperous with con-
servative increase in population. Adjacent mining areas, Granby among them,
have been subject to slumps in activity in the past. Neosho increased in popula-
tion from about 4,800 in 1930 to 5,318 in 1940. Its industries were expanding
before the establishment of Camp Crowder. The Pet Milk Co., Carnation Milk
Co., Fred Kline Plow Factory, Price Box & Basket Co., the Cudahy Packing
8810 ST. IXIUIS HEARINCIS
Co., Smith lirothers Garment Factory, Neosho Nur.'^rry Co., and (jtlicr industrie.s^
last v<'ar employed approximately 800 persons with a yearly pay roll of about
$900,000.
(2) Labor.
Within a radius of af)proximately (\r^ miles of the camp, and embraeiiifj parts
of Missouri, Kan.sas, Oklahoma, anfl Arkansas, there is a population of well oyer
a half million people. Approximately fine-half of this number is in Missouri and
within the radius there are some 20 cities with more than 1,000 population and
oy(>r 1 10,000 persons in rural communities of less than 100 poi)ulation. Pre.sent
indic.it ions point to a sufTicient labor sujjply in most of the trades for camp con-
struction although other defen.se projects at Fort Smith, Ark., Muskopee, Tex-
arkana, and Chouteau, Okla., and in Parsons and Baxter Springs, Kans., may
draw on the supply materially.
(B) TRANSPORTATION FACILITIES
(/) Railroad, truck line, and bus facilities.
Main lines of three railroads .serye the area. The San Francisco & St. Louis
Railroad, the Missouri & Arkansas, and the Kansas City Southern all pass
through Xeosho immediately north of the cantonnu^nt area. The Kansas City
Southern passes through the northwest section of the camp. Fiye truck and
three bus lines serve Neosho and adjoining areas.
(2) Highwarjs.
United States Highway 71 from the Arkansas State line to Joplin and beyond,
adjoins the west portion of Camp Crowder. Alternate United States Highway
71 cniinects Neosho with Ca.rthage. U S CO connects Neosho with Seneca and
the Okl.ihoma State line on the west and Granby and Monett on the east. State
Route S(> connects Neosho with Fa.irview and Cassville on the east. Route A4
in McDonald County connects Anderson and Cassyille. Routes D and H
connecting Stella with Neo.sho and Granby, respectively, pass through the camp
reservation.
(C) UTILITIES
(/) Electric supply.
Ample electric supply for local requirements has been available, generated in
the steam plant of the Empire District Electric Co., located in Riverton, Kans.,
and the hydroelectric plant located at Ozark Beach on the White River near
Forsyth, Mo. These two generating plants are interconnected by transmission
lines carrying energy at 132,000 and 66,000 volts. They are supplemented with
two additional smaller hydro plants. A 33,000-yolt transmission line extends
through Neosho. Total production capacity of companies in southwest Missouri
connected to the Empire svstem is approximately 132,575 kilowatts. Total
peak load for the year 1940 for the combined system was 70,990 kilowatts.
(2) Natural gas.
Natural gas is the general fuel used for heating in Neosho. A 4-inch line now
serves Neosho, supplied from a 10-inch line extending from Kansas through
Aurora to Springfield. The gas system in Neosho is owned by the Cities Service
Gas Co.
(S) Telegraph and telephone.
Telegraph and telephone service to the Neosho area has been ample for local
needs up to commencement of camp construction.
(4) Water supply.
Nineteen municipalities within a radius of 25 miles of Camp Crowder are served
by public water supplies. With the exception of Joplin, which uses Shoal Creek
for supply, all of these municipalities use drilled wells. Private water supplies
in the area consist primarily of drilled wells although cisterns, dug wells, and
springs are also used to some extent. In most instances private water supplies
are not properly protected to exclude contamination and therefore cannot be
depended upon as sources of supply.
Neosho has three deep wells ranging in depth from 1,000 to 1,250 feet. There
is no emergency supply. The present .system is available to the entire popula-
tion within the city limits. Bacteriological record is reported as unsatisfactory.
Two springs which have furnished water for Neosho at intervals will be abandoned
since they are located in the area acquired for the camp reservation.
The municipal supplies in the area are under constant supervision of the State
board of health including regular inspections and bacteriological examinations,
NATIONAL DEFENSE iMIGRATION 8811
in order to maintain and assure water of safe quality. Private or semipublic
supplies obviously cannot receive the desired regular supervision without addi-
tional public health personnel.
(.5) Sewage disposal.
Eight municipalities within a 25-milo radius of Camp Crowder are provided
witli municipal sewerage systems. These cities are Carterville, Carthage, Carl
Junction, Joplin, Monett, Neosho, Sarcoxie, and Webb City. Of the above, the
systems at Carthage and Monett are the only ones providing complete treatment.
Primary treatment only is in effect in Joplin, Neosho, and Sarcoxie. The other
cities do not provide treatment of the sewerage.
The sewerage treatment of Neosho consists of primary settling, separate sludge
digestion, and sludge-drying l)eds. Due to the inclusion of industrial wastes in
the treatment, the efficiency of the plant is only about 45 percent.
Individual privies and septic tanks constitute the only means of sewage disposal
in other municipalities and in the rural areas. Such facilities in most instances
are not properly constructed and constitute an odor nuisance as well as a menace
to health.
(6') Garbage and refuse disposal.
Joplin is the only municipality in the area that exercises control over the collec-
tion and disposal of garbage and refuse. The other municipalities have no organ-
ized method of collection and disposal-
(D) HOUSING
Vacancies reported early in 1940 for Joplin, Carthage, and other adjacent
communities are now practically all occupied and there has been a definite firming
of rents m those areas. Granby has had a number of housing vacancies mostly
substandard in character. The more desirable homes in this locality are now
becoming occupied because of the renewal of minmg activities. Other commun-
ities closely adjacent to the camp, such as Seneca, Goodman, and Anderson have
had very few vacancies and practically all of these of suitable character are now
occupied.
Neosho which increased in population approximately 18)4 percent from 1930 to
1940 and which has absorbed an average of some 30 to 40 new homes per year for
the past several years is now fully occupied. Many single-family homes now
house two or more families and many homes are taking in roomers and boarders
due to construction activities at the camp.
Several tourist-camp cottages have been rented for the duration of the construc-
tion period and several trailer camps have been established in the area.
(B) SCHOOLS
The general area has several first-class high schools, one third-class high school
district, and a number of rural districts. This area is densely populated and a
number of the rural schools have two rooms each. Most of the rural schools and
many of the buildings in the high-school districts were crowded prior to the estab-
lishment of the camp. This was particularly true in Carthage, Joplin, Neosho,
Seneca, and Anderson. Some of the rural school districts have been or will be
absorbed into the camp area. In all except one or two districts teachers have
been employed and it is expected that school work wiU continue until about
January 1, 1942.
(F) HEALTH
Hospital facilities are available in the following communities: Joplin (218
beds); Carthage (59 beds); Webb City (25 beds); Neosho (37 beds); Stella (35
beds) ; Anderson (3 beds) ; Cassville (12 beds) ; Aurora (21 beds) ; Wheaton (8 beds).
With few exceptions all of the hospitals in the area are under private ownership.
In addition to the above the Jasper County Tuberculosis Sanitarium, a public
institution containing 115 beds, is located at Webb City.
Jasper County is the only one in the area that is provided with a county health
department. This consists of a health officer, two part-time assistants, one
public health engineer, three public health nurses, and two clerks.
The city of Joplin maintains a city health department consisting of a part-time
health officer, three sanitary inspectors, one laboratory technician, and one clerk.
The State board of health's district office serving this area, exclusive of Jasper
County, is located at Monett, the staff consisting of a health officer, 2 public
health engineers, and 3 nurses. Since the district covered includes 13 counties,
health service for any one county must necessarily be limited.
3312 ^'' •'<"I^ IIKAKINCJS
Most, of the counties and larp;e imiiiicipnillies are y)rovi(led with ])art-tiuie
health oHieers. liecause of the; limits on their time, but little imhlic health work
can be expected from them.
(G) SOCIAL WELFAKli AND IlELIEF NEKDS
Xo unusual problems were encountered in connection with old-a«e assistance
and aid to dei)endent children programs in the Neosho area prior to establishment
of the camp. The numbers of recipients were not out of proportion to those
receiving aid in other counties in that j>art of the State. Excei)t for the mining
area near Granby, the general relief problem has been mostly that of the sub-
sistence farnter, th<> farm laborer, anrl the unemployed and unemployable persons
in towns. Farn^ers and emi)loyal)le persons have received aid or work through
the Federal Security .\gency or Work Projects Administration. Those not
assisted by these programs or unable to work have been assisted through the
general relief and surjilus con^modity program. Of 70 families receiving general
relief in September 1941 only 8 had a member of the family able to work. Grants
have been sn\all and aid has been mainly in the form of food and clothing. Present
number of cases receiving recent assistance in Newton County under the public
assistance division of the State social security commission and the amounts
expended follows:
Program
Cases
Persons
Amount
Month
70
1, 189
205
672
206
1,189
'491
3.069
484.70
12, 696. 90
4, 458. 90
2 5, 772. 34
September 1941.
Do.
Old-flffp nssistancp
Do. '
Do.
Total...
2,136
4,955
23, 412. 84
> Children.
' This amount includes $I,].'i0.12 for food to schools and institutions and .$4,622.22 for food and clothins: to
families.
The county court also provides $1,500 a year for emergency assistance, and
$5,000 yearly for medical care.
A child welfare worker has been engaged in supervision of problems in Newton
County since 1936. At present, 48 families containing 89 children are receiving
attention.
Two private agencies, the Local Charities and the Neosho Charity Association
have rendered assistance on emergency cases in the past. Their funds are limited
and they can only take care of a small number of cases.
(h) recreation
Numerous facilities for amu.sement and recreation exist in the larger com-
munities of Joplin and Carthage. Neosho has a new municipal auditorium with
a seating capacity of 1,212. This building is used for dances, meetings, social
gatherings, amateur theatricals, and similar activities. A State armory in Neosho
is available for dances with a capacity of 400 couples, and the high school gym-
nasium may be used for indoor softbali, basketball, and dances, when not in u.se for
school purposes.
There are two moving picture theaters in Neosho and a third is being con-
structed, all under the same ownership and on the main square around the county
courthouse.
Although there are numerous large privately owned open areas in the city and
county where children could probably play, if they wished, there is a scarcity of
publicly owned park and play areas. Neosho has one park of approximately 3
acres opposite the Big Spring Inn, which contains some playground equipment
and a wading pool for small children. Most of this area is for passive recreation
only. School grounds, in area, are generally below recommended minimums.
Neosho has a high school stadium which, however, is a considerable distance from
the high school. The community also possesses a private nine-hole golf course.
Good fishing and hunting opportunities in season abound in the general area
particularly in the more rugged areas of Newton County and in McDonald County.
Many areas adjacent to streams offer excellent camp sites. Swimming and
canoeing are popular sports especially along the river at Noel and other similar
locations.
NATIONAL DEFENSE MIGRATION 8813
(I) LIBRARY SERVICE
In Newton Count}', Neosho supports the only librarj'. For its population of
5,318, there has been available $1,561.25 for library service. The 23,621 remaining
citizens of Newton County have no library service.
McDonald County has no library service and no expenditure has been made for
library service.
The combined counties of Newton, McDonald and Jasper are serving a popula-
tion of 60,080 with an expenditure of $21,855.58 and leave 86,924 persons unserved.
The combined counties of Newton, McDonald, Jasper, and Lawrence are
serving a population of 68,413 with an expenditure of $23,961.57 and leave 103,188
persons unserved.
The combined counties of Newton, McDonald, Jasper, Lawrence, and Barry
are serving a population of 73,022 with an expenditure of $24,374.98 and leave
132,343 persons unserved.
Although the combined libraries in these areas show a collection of 111,952
volumes, the expenditures of only $25,374.98 including all costs of running the
libraries argues against substantial Ijook collection.
(J) POLICE AND FIRE PROTECTION
Complete data on law enforcement staffs for Newton and McDonald Counties
has not yet been secured. It is reported, however, that prior to establishment of
the camp effective control has been administered. Neosho's police force up
until a few months ago, consisted of a chief and three men, two patrolmen serving
at night and one by day. Recently, two additional patrolmen have been appointed
and a patrol car placed in use.
Traffic control, formerly a very minor problem, has lately become quite serious
in the business section of Neosho and on the main highways. No fire protection
apparatus exists except in the larger communities. Neosho has 1 fire truck with
a supply of about 750 gallons , purchased in 1923. It has 1,100 feet of hose in
good condition, having been reconditioned in 1939. The force consists of 12
members, 1 full-time man on the fire truck, and volunteers paid for each trip.
(K) AIRPORTS
No airport at present, exists near the camp although there is an emergency
landing field on US 60 only a short distance west of the cantonment area.
III. Problems, Present or Anticipated, in Area and Facilities for Solving
Them
(A) industry and labor
(1) Industry.
Principal activitj' of the area around Neosho until completion will be the con-
struction of the camp. Shipment of materials will crowd existing facilities for the
next few months. Local industries will suffer some inconveniences for this period
and require adjustments to meet new^ demands. Retail trade in Neosho and
nearb}^ communities will suffer some loss from farmers moving from the locality
but will no doubt benefit considerably during the construction period and in fact
during the entire occupation of the camp, with the inevitable increase in population.
Local industries engaged in canning milk will probably experience a consider-
able loss in supply. Manufacture of containers for fruit and other products will
experience a loss in demand.
Increased need for vegetables and farm produce will require revisions in farm
operations and crop production.
{2) Labor.
Labor demands during the period of the camp construction including turn-over
are estimated to require over 30,000 construction and clerical workers to complete
the present program by January 15, 1942. Principal requirements anticipated
are 10,000 laborers, 7,500 carpenters, 2,500 truck drivers, 1,000 electricians, 600
painters, 500 bulldozer and tractor operators, 500 crane-derrick and trenching-
machine operators, and 500 watchman. Though peak employment of approxi-
mately 12,000 was originally anticipated, at the present time approximately
14,000 are employed on the project.
During the camp construction period especially, private industry, retail busi-
ness, and farmers will doubtless have difficulties in obtaining labor at wage scales
they can afford. With the construction workers have come the unions and a
much higher wage scale than formerly existed in the area.
8814
ST. LOUIS lIKAHlNiJS
(B) TnANSPORTATION I'ACI I.ITIKS
(/) Rnilnuid, truck line, and hiis fncilities.
l^ailroad, truck liiu', and bus facilities ai)pcar to have been readily expansible
and to have kept up with the construction ])ronrani to date. Their ample facilities
indicate that there will be no difliculty in solviiif!; any |)roblem.s that come up
during camp occupation.
{£) Highways.
Traffic on State and 'Federal liiKlnvuys has increased considerably since establish-
nuMit of the canii). It will continue to be ^reat in the jx'riod of occupation.
Many of the local roads in both counties and adjoining connnunities will receive
increased use.
Listed below is a comparison of the average traffic on certain highways adjacent
to Neosho for August 1940 and August 1941 and for a 24-hour average day.
Route 60 just east of Neosho
Route 71 south of route 60 at Neosho limits
Route 71 between Anderson and Goodman
Route 60 west of Oranby
Route 71 south of McEUiany--
August average,
week and day
1940
1,416
1,670
1,406
982
1,408
1941
3,138
4,355
2. 980
1,763
3,357
Percent of
increase
over 1940
124.82
160.78
111.95
79.53
138.42
Portions of routes D and H within the camp area will be closed to puV^lic use as
well as many minor county highways. Some communities, particularly Stella,
and many farmsteads outside of the reservation find themselves cut off from
former direct lines of travel. Many types of pavement adequate prior to camp
establishment are becoming inadequate with increased use.
(C) UTILITIES
{1) Electric supply.
The resources and available electric supply of the Empire District Electric Co.
and its interconnections with generating plants of other companies, appear to
promise ample supply for all future demands of Camp Crowder and adjacent areas.
The problem apparently giving most concern to representatives of the Empire Co.
is sufficient notice of the quantity of power that will be required for the camp, and
the time of delivery. It may be necessary to enlarge the transmission line capacitj'
to Joplin-Springfield circuit. This can be done rapidly if material can be secured
and sufficient time allowed for construction. Should much expansion V^e necessary.
Federal aid in the granting of priorities and purchase of equipment may be
requested.
(2) Natural gas.
No considerable problem is anticipated .so far as supply of natural gas is con-
cerned. From present indications there is a sufficient suppl.y of natural gas avail-
able in the .Joplin and Neosho areas to satisfy increased demands. A larger
extension than the existing 4-inch line can be extended south from the existing
10-inch gas line between Kansas and Springfield, if required.
The Shell Pipe Line Co. and the Ajax Pipe Line Co. have oil pipe line extending.
through tlie area near Neosho.
(S) Telegraph and telephone service.
Notice from the Federal Communications Commii3sion indicates that the Postal
Telegraph Cable Co. and tlie Western finion Telegrai)h Co. are both making
arrangements to extend service into the Neosho area, thereby taking care of the
Government's needs.
It is understood that the Southwestern Bell Telephone Co. has been making
large invesunents for taking care of the Government's requirements. The com-
pany is now preparing to install 2,500 additional telephone lines to be available
for new subscribers in Joplin, Neosho, and Webb City. Eighteen hundred of
these lines are for .Joplin, 500 for Neosho and 200 for Webb City. It is understood
that the conii)any is well prepared to take care of any necessary increases in use.
NATIONAL DEFENSE MIGRATION 8815
(4) Water supply.
The inevitable increase in population in certain sections of the area will empha-
size the need for protection of water supply. Inspections by the State board of
health are being furnished to various conununities l)ut isolated private and semi-
pul)lic supplies cannot he adecpiately safeguarded unless present i)ublic health
staffs are increased. Any considerable increase in population will recpiire addi-
tional sources of supply in many of the municipalities and an improvement in
many cases in the facilities for water treatment. In most cases additional supply
can best be secured by additional drilled wells.
Water supply for the camp is being provided by damming Shoal Creek at a
j)oint just north of Neosho city limits, raising the water level about Sleet. With
approximately 400,000 square miles of drainage area ample supply should be
available at all times.
Neosho water supply which was scarcely adeciuate for the city's needs prior to
camp construction will require considerable increase. Two possible sources are
(1) by means of additional deep wells and (2) by use of impounded water from
Shoal Creek. In connection with the latter source, the Armj- has granted per-
mission to the city of Neosho to construct an intake tower within the impounded
area for water supply. Plans prepared by the consulting engineer for the Neosho
City Council are based on the use of this source of supply and include several
miles of additional water line extensions, a pump at Shoal Creek, and a purifica-
tion plant north of the. city. The total estimated cost of this improvement as
planned amounts to $324,208.10. It is stated that the extensions and improve-
ments as planned would provide adequate water supply for a total population of
approximately 15,000 people. A thorough investigation should be made of the
first mentioned possible source of supply, namely, that from additional drilled
wells, before the city is committed to the use of the Army source at Shoal Creek,
and the considerable expense of new pipe installations and treatment plant.
One difficulty of a decision as to the type of source for additional water supply is
the lack of knowledge as to probable expansion of Neosho due to the establishment
of the camp. Should Neosho double or triple its present population, it is ques-
tionable whether adequate water supply could be obtained from additional deep
wells and it would seem that Shoal Creek as a source would be the logical solution.
Should Neosho's increase only amount to a few thousand in population, additional
deep wells would probably supply the anticipated needs.
Isolated housing developments which may spring up in rural areas will doubtless
be forced to drill wells for their su[)ply. Control of such developments by the
State board of health is urgent.
{5) Sewage disposal.
Problems of adequate sew'age disposal confront all of the communities in the
area. An increase in population will emphasize these problems. The Joplin
treatment plant has been greatly overloaded for some time and requires replace-
ment. The system in Neosho will require sewer extensions and additional treat-
ment plant facilities. The consulting engineer for Neosho has made recommenda-
tions for extension and improvement of the disposal facilities and extension of
approximately 43,000 lineal feet of sewer lines. As planned, the new" disposal
system will include both primary and secondary treatment. The design as sub-
mitted is a flexible one which would permit of future extensions in the event that
an unpredictable increase in population occurs. As now planned the system
w^ould provide disposal facilities and main sewer lines for a total population of
approximately 12,000 at an estimated cost for the extensions of $263,000.
Even with present populations, sewer extensions and additional treatment
plants are essential in many of the other communities in the area. A considerable
increase in population in any of these communities will increase the urgency of
these improvements.
(6) Garbage and refuse disposal.
Necessity for safeguarding health throughout the area makes desirable the
control of all methods for collection and disposal of garbage and refuse, particu-
larly in the more closely built up commvmities. AVhether collections are made
by "the city or by private individuals licensed by the city, control of collections
and disposal should be in the hands of public officers and according to methods
approved by the State board of health. Neosho is now considering possible
future construction of an incinerator for garbage and resfuse disposal.
gglg ST. LOl'IS HKAI{IN(;S
(D) HOUSING
Problems in housing will doubtless become among the most serious confronting
the area.
(i) Housing construction workers and families.
Many construction workers engaged at the camp from out of town localities
have left their families at home. Many of those who have brought families have
found accommodations of more or less satisfactory types in existing homes at
Neosho and other nearby communities, in tourist cabins and several trailer
camps that have sprung up in Neosho and in rural areas adjoining, especially
along Highway 71. Most of the new accommodations arc unsatisfactory in
character and of temporary construction. Unless considerable expansion in the
construction program takes place, the housing problem for construction employees
will be of short duration. However a program which would involve additional
construction at the camp for the next 2 or 3 years will make it necessary to pro-
vide housing for most of the workers engaged, since with the more prolonged
activity, they will want to bring their families to the area.
{2) Housing for new permanent residents.
With the inevitable increase in population following the establishment of
Army camps, such as for families of Army officers, civilian employees^ and addi-
tional employees of retail and business firms brought into the area as a result of
the camp activity, considerable additional housing may be required. It is
difficult to estimate with any degree of accuracy at this time the probable in-
crease in population and the locations of residence sites. Estimates of previous
influx of population in similar areas have varied from 50 to 137 percent of the
soldier population of the camp. The November 15 issue of the local newspaper
at Neosho contained a statement by the Camp Crowder Commandant that
there will be a need for 725 homes for families of officers and noncommissioned
oflScers by January or February 1942.
Since there are practically no vacancies in Neosho and adjoining communi-
ties housing for the new population will have to be provided by some means.
The three methods most applicable would he: (a) Housing by private enterprise
with perhaps Federal Housing Administration guaranteed loans, (b) permanent
housing by Government financing, and (c) temporary housing by Government
financing. Probably but a limited amount of housing may be expected by the
first method. The Federal Housing Administration office at Kansas City has
stated that loans for about 500 new homes could be insured by the Federal
Housing Administration in the entire defense area, which includes Joplin, Carth-
age, and Webb City as well as Neosho, and that the bulk of those insured would
have to be located at Carthage and Joplin.
(S) Housing evacuated families.
Within the Newton County portion of the 66,500 acres selected for Camp
Crowder there have been, or will be, approximately 547 farm families consisting
of some 1,717 individuals, removed from the area. While probably the greater
proportion of these evacuated families will locate on other farms if they can be
secured, some of them may prefer to live in the various communities, or in new
housing developments which may be constructed.
(E) SCHOOLS
Increased pupil population in general area, removal of pupils from certain
areas to new location, abandonment of elementary schools within the area, loss
of district property, loss of assessed valuation in districts not wholly absorbed,
outstanding debt obligations, and increased enrollments in various school districts
create many problems difficult of solution.
(1) Loss of school property and territory.
Five rural school districts in Newton County and three in McDonald County
are wholly absorbed in the camp reservation. Three in Newton County and
three in ]\IcDonald County are partially absorbed. Existing laws indefinite on
disposition of property or funds on hand in rural (three-director) districts ab-
sorbed by camp. Slany of those partiallj- absorbed may need additional school
facilities.
The following high school districts will also lose some nonresident or tuition
pupils now living in the camp area: Neosho, Stella, and Goodman. It is quite
likely that Neosho and Goodman will receive an increased enrollment, however,
from new residents.
NATIONAL DEFENSE MIGRATION 8817
(;?) Loss of assessed valuation and debt loads.
Some districts only partially absorbed will lose a considerable part of their
assessed valuation and tax income. This is more serious in districts having
a bonded indebtedness. The district of Stella, bonded to the limit, will lose
one-half to two-thirds of its assessed valuation.
(S) Location of housing projects.
If housing projects in the larger towns of Neosho, Joplin, and Carthage are
located on separate and segregated tracts of land, new school plants may be
needed. If located at points accessible to existing plants, facilities can in most
cases be provided with additions to existing school buildings.
(4) Increase in school popiilation.
School enrollment will probably be closely related to housing projects which will,
in turn, depend to some extent on the development of water and sanitary facilities,
and on road conditions. Several of these communities have sewerage and water
facilities. The contemplated improvement of the facilities in other communities
will become factors in the probable school population. There seem to be indica-
tions that Neosho and the surrounding territory may have the greatest enrollment
increases as a result of this particular camp. Since these schools are now crowded,
anv substantial increase in enrollment will make it necessary to provide additional
buildings. These may be temporary or permanent, depending on the need in
each particular area. "^ In most cases, added funds will be needed for school
operating expenses for the current year and for the next school year.
(f) health
Increased population in the area wiU add considerably to the problems of safe-
guarding health. All communities in the area should adopt the State board of
health standard milk ordinance and the standard ordinance regulating eating
and drinking establishments and should provide for proper enforcement of same.
The public health and sanitation needs and requirements of the area demand the
service of adequate trained public personnel to accomplish satisfactory results.
Existing sanitation ordinances in the communities of this area are not satis-
factorily enforced due to lack of personnel and additional ordinances and regula-
tions will be of Uttle value unless trained personnel are provided to enforce them.
Requirements indicate a shortage of 250 to 300 hospital beds before any defense
activities were started. An increased population will considerably increase the
desirable minimum.
Public comfort stations are necessary in manj^ of the communities, especially
in Neosho, and the need for them will be greater with the growth in population.
Adequate control and servicing of such establishments for prevention of ep. demies
is essential.
(G) SOCIAL WELFARE AND RELIEF NEEDS
Problems in social welfare and relief will undoubtedly become more acute.
Transients to the area will probably increase, and some workers and families
seeking emploj'ment and unable to find it, or stranded at the end of construction,
will have to be returned to their legal residence. Additional members to the
local social security office staffs will probably be necessary. The relocation of
evacuated families has brought out many problems requiring solution. Many
of the individuals, forced to move, are finding it impossible to obtain new housing
accommodations at rates they can pay from allotments previously granted.
Children's problems will become more acute, lack of proper housing causing
unrest, and many cases of delinquency and truancy. Illness of wage earners or
other members of the family bring requests for assistance. Because there are
few able-bodied or skilled persons in relief families, the increase in employment
has had little effect on the number of persons receiving a.ssistance, but because
of increased cost of living, it has caused a lowering of standards of living. All
these problems are likely to increase after termination of the construction period
and in the period after the closing of the camp, though this may be many years
in the future.
To meet the problem of moving families in the area the same general plan is
being followed that was used in relocating families iii the Fort Leonard Wood and
Weldon Springs areas. This is a cooperative plan worked out between the land-
use planning committee of the United States Department of Agriculture, Bureau
of Agriculture and Economics, the Farm Security Administration, the county
extension agent, and the State social security commission. Limited funds make
many of the problems difficult to work out. Doubtless Government aid will he
necessary to finance many of the solutions of the problem.
ggj^g ST. LOUIS IIKAUINGS
(11) UECREAIION
Prol)U'iii> of rt'crcatioii iiiclu(K' those for residents of the general area, both in
coiuniuiiities and in rural areas, and for soldiers wlien off tlie camp reservation.
Play areas in the locality are few. Mr. .John Giiyer, Federal Coordinator of
Service Oriiani/ations, and ('apt. J. H. Trout, Salvation Army representative of
the United Service Organizations, have sjient several days in the region consider-
iiig recreational problems and a citizens' advisory board has been formed in Neosho.
Consideration is being given to the possible leasing or purchase of a four-.story
brick building, owned by the Haas estate, within a block of the courthouse in
Neosho for United Service Organizations head(juarters. Ojjportunities for .social
contacts for soldier personnel of the camp sliould be included in any studies of the
recreational i)roblem.
Plans for solution of recreational problems cannot be made with any definiteness
until the future camp jjopulation is known and until information as to future
location and size of housing develo])ments is obtainable. Determination of these
factors may not be complete lor several months.
Neo.sho and other communities in the region need additional parks and play
areas. Adequate provision for these features should be made in any housing or
planning programs.
(1) LIBRARY SERVICE
Study of the data on library .service contained in division II reveals that facilities
are much below desired minimums. Whether considered from the educational or
recreational standpoint, increased and improved library facilities .should be pro-
vided to satisfy normal civilian demands with further expansion to serve, the
inevitable increases both for selectees in the camp and increased civilian population.
(K) POLICE AND FIRE PROTECTIOX
Increased population in the areas will undoubtedly bring a decided increase in
criminal activities. Police forces for both county and city will recpiire enlarge-
ment. Greater traffic How on the highways will also increase the problem. The
State highwav patrol has oppened an office at the closed Civilian Conservation
Corps camp at the west edge of Neosho with Sergeant Kahler in charge. A total
of 10 men will be on duty and service will be rendered for all 24 hours of the day.
Radio broadcastinja; equipment is soon to be installed and telephone service is
already in use. One patrolman has been assigned to do special duty with a
safety car working in tlie area.
Additional housing developments will of course require additional facilities
for fire protection. The water supi)ly extension plan for Neosho has been re-
ported as ample for anticipated incresacd fire protection needs. Quite likely if
Neosho expands to any great extent additional fire apparatus and fire stations
will be neces.sary. ^ ... . .
Within the camp area in Newton County alone some 547 families, consisting
of 1,717 individuals, have been or will be removed. The.se families operated
farm's averaging 80 acres in size. Approximately 2,431 dairy cattle were farmed
in the area. There were 410 farm owners and 137 renters in the area. The
number of families unable to move without financial assistance is 236. Tho.se
who have secured loans number 208. Figures for McDonald County are not yet
available. The majority of farmers evacuated would prefer to return to farms
though very few suitable farms in the State are for sale or rent. Most serious
problems encountered are: (1) Finding a farm in desirable location and within
price range, (2) funds to purchase farm and make move until he receives payment
from the Government; (3) if a tenant, where to find a farm to rent and the funds
to move, since he mav not receive any payments from the Government; (4) difli-
culty of moving feed and livestock long distances with the present great demand
for trucks; (.')) keei)ing high ])roducing livestock from going to markets; (G) for
farmers desiring to stop farming, difficulty in selling livestock and machinery at
fair prices because of low demand in area; (7) farmers desiring work from the
camp project until completion with later expectation of returning to farm, and
housing and maintaining his familv and livestock in the interim; (8) housing of
older people in towns when able to pay their own way; (9) securing farm help at
reasonable wages.
(L) TAXES AND TAX BASE
Acquisition of the (id, 500 acres reservation by the Government, with it^s nu-
merous homes and farms reduces consid(>rably the taxable personal and real
estate propertv in both Newton and McDonald Counties. It is understood that
^■ATIUNAL DEFENSE MIGRATION 8819
the Government's plan of acquisition provides for payment of real-(>state taxes
for botli 1941 and 1942. Newton County officials have stated that the loss in
personal property taxes would probably more than be made up by increased taxes
from merchants and new homes in the area. Although it is open to question, it
is quite likely that increased land values in the region would justify higher assess-
ments which would bring in additional taxes equal to or greater than the losses.
IV. Recommendations
(A) GENERAL
Information as to the future of the camp and probable number of soldiers is
incomplete. Quite likely the War Department has not made final decisions on
these matters, and possibly these decisions cannot be made at this time. Plans
for future extensions of existing facilities for housing and other requirements
should probably be on a minimum basis for the present, yet sufficiently flexible
to permit of expansion. Requirements likely to be most urgent for the next
year or more include additional housing, together with necessarj^ community
facilities: Schools, improved traffic facilities, adequate police and fire protection,
provisions for safeguarding health and social welfare, and adequate recreational
facilities. Careful planning is necessary to properly coordinate all of these
demands.
(B) HOUSING
(1) Increased population estiynates.
Based on a population of 16,000 soldiers at the camp, and using a ratio of 50
percent for probable increase in population, we may exi^ect a minimum increase
in the area of 8,000 persons. At a rate of 3 persons to the family the minimum
would amount to approximately 2,667 homes. Based on a population of 35,000
soldiers at the camp and a ratio of 137 percent we would have a probable maxi-
mum increased population in the area of 47,950 persons. Though it is difficult
to believe that any such increase in population is likely to occur the necessity for
a flexible plan becomes apparent.
Since the demand for additional housing facilities will soon become urgent, it
is recommended that steps be taken immediately tow'ard the completion of plans
and specifications for from 300 to 600 housing units. It is recommended that a
site be selected near Neosho and that all necessary preliminary arrangements be
completed so that bids could be called for on short notice and construction work
proceed very soon thereafter. Construction of additional housing projects
could foUow as necessitated by future demands.
(2) Locations for housing developments.
Important considerations influencing selection of sites for housing projects are:
(a) Convenience, (6) availability to utilities, (c) transportation facilities, (d)
•schools, (e) recreational facilities. Factors combining most of the essentials and
good economics indicate that most of the housing should be located in com-
munities which now have most of the required facilities, such as Joplin, Carthage,
Neosho, Seneca, Goodman, Granby, and Anderson. Probably Neosho will
receive the great proportion of new housing developments. It offers many
inducements. It is closest to the camp. It is an attractive and healthy com-
munity. Its w^ater-supply sj^stem could be expanded to serve a population
several times greater than its present population. Its proposed sewage-disposal
system is to be located at a point where it could serve an area of over 12 square
miles north of the camp, which would provide ample space for a total population
of 30,000 or more without crowding. Excellent transportation facilities are
available. Possible electric supply and natural gas supply is adequate. School
plant facilities could probably be expanded as easily and as economicallv as at
any other point. The topography, while hilly in manj- places, is suitable for
development with proper planning.
(3) Financing of hoiisirig developments.
Three tj^pes of possible financing are (a) by private enterprise with private
capital; (6) by private enterprise with Federal Housing Administration guaran-
teed loans; (r) by one or more of the Government defense housing agencies.
It is unlikely that any great amount of housing will be constructed under (a).
The designation of the region as a defense area by the President, making possible
the guaranteeing of loans by Federal Housing Administration under title IV will
no doubt stimulate construction especially of single family, permanent homes by
private enterprise. Present limitations imposed bj- Federal Housing Administra-
8820 ^'^'- ^•<^>ii^ nKAiuN<js
tion on the ontiiv (lefoiisc area call for insurance on a niaxiinuiu of 500 houses
with probably not more than 100 of tlu'-si- for Isoosho. It is probable that the
greater proportion of new homes will have to be provided directly by Govern-
ment housing agencies.
(4) Types of homes.
Types of homes that are recommended are (a) single family permanent homes
in communities, {b) single family permanent homes in rural areas (c) single family
and row houses of temporary nature of the demountable types (d) temporary
dormitories for unattached men.
Neosho and most of the cities near the camp are essentially single-family com-
munities. Permanent single-family homes in these places could be erected up
to the limit of possible future absorption.
Many single-family homes in rural areas on small subsistence farms of from 1 to
5 acres could be permanently absorbed by the region. Mr. Ralph Tennis, Farm
Security Administration supervisor in Newton County has been investigating
this phase of the housing program.
Temporary housing of the demountable types should be constructed on tracts
removed from permanent housing jirojects, for families who will reside in the
region only during the period of the emergency. Dormitories for unattached
men could also be of demountale types for eventual removal.
In Neosho several tracts adjoining existing water and sewage lines are immedi-
ately available for development. Several sites have recently been optioned for
home sites in the city limits or closely adjacent. One such tract with Federal
Housing Administration insured homes jwill soon be under construction on Ceme-
tery Road. Fifty-six homes on lots approximately CO by 135 feet are being
planned. In addition there are a great many vacant lots interspersed in the
residential sections to which water and sewage facilities are now available.
Private enterprise should be urged to use these lots for new homes wherever
practicable.
(C) HIGHWAYS
Lack of definite information as to requirements of Camp Crowder make it
difficult to anticipate needs. From information secured to date the following
improvements are recommended.
0) United States Highway 71.
It is recommended that the cut-off west of Neosho due north of the intersection
of U S 60 and U S 71 be constructed, as shown on the accompanying map between
points A and B. It is also recommended that U S 71 be widened to four lanes
from Neosho to Goodman, since this portion of the highway is receiving and will
continue to receive the brunt of increased traffic. U S 71 from Neosho north is
a high tj'pe portland cement concrete highwaj-. From Neosho south it is an inter-
mediate type of bituminous road and increased traffic in this section will undoubt-
edly make additional surfacing necessary, at least between Goodman and Neosho.
{2) Alternate United States Highivay 71.
It would be desirable to construct a bypass for this highway from U S 71, west
and north of Neosho, if it is possible. Study should proceed immediately on the
solution of this problem. The considerable increase in traffic on the narrow-
section through the city makes this bypass desirable. Alternate U S 71 north of
Neosho is a high type portland cement concrete highway.
(5) State Route 86.
This highway is gravel-surfaced. With the increased traffic, consideration
should be given to installing a higher type of surfacing, or applications of dust
palliatives.
U) State Route 44.
This route connects Anderson and Stella. The read is probably adequate for
present and future traffic, but the surfacing being of gravel, consideration should
be given to applications of dust palliatives.
(5) Routes D and H.
Considerable portions of these roads are being removed from use, since they
are located in the camp reservation. The portion of Route D south of Neosho
to the camp boundaries will doubtless receive increased use since it is likel\- to be
one of the access roads to the cantonment, and since housing developments will
eventually be constructed in nearby areas. This road may require widening,
and application of a higher type of surfacing would be desirable.
NATIONAL DEFENSE xMIGRATION 8821
(6) Other necessary road improvements.
Immediate studies should be made for a direct connection east and north of
Stella to Route 86. The town of Stella, because of the eventual abandonment of
portions of Roads D and H, will be cut off from direct connection with Neosho,
its principal trade center. This connection with Route 86 will offer the best
substitute for present connections.
Many local county roads serving farms adjoining the camp will require im-
provements, and consideration should be given to additional arterial highways
which will make these farms as easily accessible to main roads of travel as they
were prior to establishment of the camp. Studies should be made for a peri-
meter road aroimd Camp Crowdcr at the south and north and on the east by
connecting with the proposed highway from Stella to Route 86.
(D) CO.MMUNITY FACILITIES
(/) Water supply.
Until more definite knowledge is available as to anticipated population increases
in the various communities of the area, definite recommendations as to increased
water supply cannot be made. Joplin and adjoining communities are certain
to receive considerable increases because of proximity to defense activities at
Baxter Springs and Parsons, Kans., as well as from Camp Crowder. The principal
need for Joplin is the reconstruction of the water treatment plant to meet modern
requirements. Carthage and other communities adjoining the area, such as
Anderson, Granby, Goodman, and Seneca, could doubtless obtain sufficient
water to meet increased demands by drilling additional wells. Except for the
necessary improvements for Joplin, decisions for all of the above-mentioned
communities should be delayed until more is known about projected housing
developments for these areas.
At Neosho the problem of additional w-ater supply and improvements for
present supply are likely to become acute very soon. The city council, from
investigations bj' their consulting engineer, is convinced that the best method
for furnishing additional supply is by the use of the impounded water of Shoal
Creek, with construction of an intake tower and treatment plants. The State
board of health feels that further investigation should be made of the possibilities
of obtaining necessary additional supply be means of additional drilled wells.
Whichever of these methods is the proper one to follow^ should be determined
as soon as possible and funds obtained from local bond issues and by Govern-
ment grants which would permit of immediate installation of the necessary im-
provements. Since Neosho is quite likely to receive the greatest increase in
population, plans for additions to the water supply system should be sufficiently
flexible to take care of all possible future demands.
{2) Sewage disposal system.
Practically all of the communities in the area adjoining Camp Crowder need
additional and improved sewage-disposal facilities. As previously stated many
of these communities are entirely lacking in sewer systems and treatment plants,
other have sewer systems without treatment plants, and very few have complete
treatment plants. Communities which are most likely to receive increases in
population, such as Joplin, Carthage, Granby, Seneca, Anderson, and Goodman,
should plan immediately for necessary extensions and improvements. At
Neosho, construction of the additional sewage-disposal plants should proceed
immediately and also the extension of the necessary main sewer lines to serve
the areas most likely to be used for housing developments. Improvement of
service in the existing built-up sections, while doubtless important, is primarily
the responsibility of the citj- itself. Flexibility of plan to provide for unforeseen
but possible future maximum increase in population is essential.
(3) Electric and natural-gas supply.
Electric and natural-gas supply resources are reported as ample for all needs of
the region, including Camp Crowder, although increase in capacity of supply
lines may be necessary. The utility companies are prepared to make such
installation, as soon as they have been instructed as to the needs of Camp Crowder,
and probable locations of new housing developments.
(E) SCHOOLS
Definite recommendations for schools in the camp area cannot be made until
the locations of additional housing developments are determined. If new hosuing
units are provided within the present city limits or at the edges of the town of
Neosho, and the other towns, the increased school population probably could be
8822 ^''- •'<'i'^ iii:ai{i.\(;s
cared for by makiiifi additions lo existing buildings. Now segregated housing
developments might make it necessary to erect new school buildings.
Lack of early dehnite information on the anticipated life of the camj) and the
maximum camp population makes it essential to i)lan for the schools in the camp
area a tlexil)le i)rogram. liuilding i)lans should be so organized that exi)ansion is
feasii)le as needed. To this end, some of the following reconunendations arc set
up in steps. As school enrollment iiuTeases justify, the following improvements,
given in the order of prol)al)le need in each district should be considered. (More
detailed reconunendations for these various steps are on file in the office of the
State department of education.)
^[tiderson.- — A new elementary building. Remodel high school, add second
separate luiit as a vocational building.
AWZ. — No j)resent indication of new building needs. May need helj) to
comi)lete building now under construction.
Carthage.- — A new junior high school. Added elementary rooms.
Jnplin. — May need new rooms. (Effect of Spring River nitrate i)lant should
be felt here.)
Seneca. — Need a four-room addition. Separate vocational and music building.
Goodman. — Probably need new rooms. Development of other municipal
improvements a factor.
Neosho. — May need additions to three elementary buildings. New shop
buildings. If new poi)ulation is widely spread ma.y need new elementary buildings.
Large enrollment increases may make it necessary to plan new junior high-school
facilities.
Additional funds for operating expenses for the current year will probably be
needed in all of the above-mentioned districts, particularly in the districts of
Neosho, Goodman, Anderson, and Seneca. Most of these schools now have
crowded classes and can absorb only a few pupils.
Money paid for school property in the rural districts by the Government should
be paid through the county superintendent into the countrj- treasury to the credit
of these districts. The county superintendent should supervise the disposition
of school supi)lies and equipment.
Governmental purchasing agencies should provide funds to retire existing dis-
trict debts in proportion to the percentage of the total district assessed valuation
absorbed by the camp area. Districts losing revenue producing assessed valua-
tion should receive sufficient funds to recompense for such losses.
(F) HEALTH
At the present time there are a total of 418 beds available in the various hospitals
in the area, most of these in Joj)lin and adjacent cities, in addition to the 115 beds
of the Jasper County Tuberculosis Sanitarium. The State board of health esti-
mates a probable need of from 350 to 400 additional hospital beds for the area
based on a conservative anticipated population increase. A considerable num-
ber of the hosi:)ital bed increase should be in or near Neosho to properly serve the
population closely adjacent to Camp Crowder. It is reconnnended that immediate
steps be taken to construct the necessary hospital facilities to fulfill these
recjuirements.
Additions to staffs of public health organizations should keep pace with the
increased needs for enforcing sanitation ordinances and for pure milk and food
control. The State board of health reconunends for the Neosho area the follow-
ing: For Newton County, a city-county health department with l)oth the city
of Neosho and Newton County participating, and staffed by one full-time health
officer, one part-time assistant health officer, one i)ublic-health engineer, two pub-
lic-health mu'ses, and one clerk; for McDonald County, one public-health engineer,
assigned to this county under the direction of the district health officer, whose
services would supplement tliosc rendered to this county by the existing district
health unit; for Jasi)er County, in addition to the existing personnel, one full-time
assistant health officer, one public-health engineer, and one su])ervising jjublic
health nurse; for Lawrence County, one county health dei)artment staffed by one
full-time health officer, one part-time assistant health officer, one j)ublic-health
engineer, one public-health nurse, and one clerk; for Bany Country, a similar staff
as for Lawrence County.
County regulations should immediately be passed and enforced for controlling
proper sanitation for "nnishroom" housing developments, trailer and tourist
canijjs, dormitory developments, and eating and entertainment establishments
that are springing up in tlie rural areas adjacent to the camp, in order to control
these developments until effective planning and zoning legislation is put into
effect.
NATIONAL DP:FENSE MIGRATION 8823
Many of the communities in the area particularly those closely adjacent to the
camp should construct and properly maintain public comfort stations near the
business and amusement sections of their cities. Such establishments properly
controlled would greatly reduce spread of epidemics and relieve many of the
objectionable features of sudden population increases.
(G) SOCIAL WELFARE AND RELIEF
(1) Financial aid.
Local and State funds being limited, Government funds will probably be required
to work out satisfactorily many of the problems. The amount of these funds
should be determined and made available as soon as possible to the extent required.
Increases in personnel of local staffs will be necessary to handle the problems with
the increase in populations, especially for handling children's problems.
(2) Evacuated families.
It is recommended that more rapid payment be made by the Government on
farms vacated hx establishment of the camp, and that payment also be made for
removal of stock, and other possessions to new localities. Payment for moving
should be made to both owners and tenants. Loans or grants of assistance from
the Farm Security Administration are available to families who cannot make their
own financial arrangements for moving. This, however, places the family in a
position of asking for assistance through a welfare agency which they would not
have had to do under ordinary circumstances. Since thej' are being forced to
move, it seems only right that financial provision should be made for their moving.
(3) Probable increases in cases needing relief.
With the increased population in Neosho and other areas in the region will come
the inevitable increase in cases needing aid and guidance. Government agencies
should cooperate with local and State organizations in the solution of these prob-
lems. Many families, who ordinarily would not need assistance, may require
some type of help if new housing developments do not keep ahead of influx of
newcomers. Federal grants should be made to assist :'n solving the problems of
transient workers and their families who may need temporary assistance or aid in
moving to their legal places of residence and for other emergencies that are certain
to occur because of the establishment of defense projects in the area.
(H) RECREATION
Definite recommendations as to type and amount of recreational facilities
cannot be made until resuts of various studies bj- John Guyer and others are
completed, until more definite information as to probable soldier population in
the camp, and of the location, types, and sizes of housing deve opments, is known.
Comparative lack of park and play areas in the region close to the camp has
been previously noted. Considerable further study should be given to the inclu-
sion of adequate areas for these purposes within the various communities them-
selves, particularly Xeosho, and in any housing developments that will be con-
structed. It is the practice of various Government housing agencies to make
such provision and to include community buildings if necessary. It is recom-
mended, however, that Neosho and various other communities in the area give
immediate study to location and acquisition of desirable tracts within the city
limits or closely adjacent for such use.
(I) POLICE AND FIRE PROTECTION
It is recommended that the police officials of the various communities and
counties take steps toward the provision for additions to their staffs to take care
of the inevitable increase in criminal and traffic problems as the need arises.
Since construction of new housing units will increase the responsibilities of the
fire department, it is recommended that the officials of these departments give
immediate study to possible location of new headquarters, additional equipment
and increased staffs. Since locations of new housing developments will influence
the location of fire stations, advance information should be secured, if possible,
to anticipate the requirements. Approval of plans submitted by developers of
housing projects by fire departments should be required before any permit for
construction is issued, in order to reduce fire hazard to a minimum.
(J) PLANNING AND ZONING
Many of the communities in the area, and particularly Neosho, should give
immediate consideration to the preparation t)f planning and zoning studies and
g§24 ''^'' '■'>''•'" iiK.\KiN(;s
regulations fe)r control of land suixiivision. With the nni.sluoom growth that is
likely to occur under sponsorship of private speculators whose only interest is to
make money, there may be areas of considerable size developed which may be-
come contiinious trouble sources, difficult of correction. While a certain amount
of control can be exercised by communities who may furnish water supply or
sewage disposal for these developments, most effective control is obtainable by
passage of legislation adopting a definite city plan, and zoning and land subdivision
regulations. Such a plan and accompanying legislation should be prepared im-
mediatel}' so that developers may be informed as to locations in which they can
start construction. Planning is important in order to determine the locations of
major thoroughfares and proper coiniections with minor thoroughfares, location
of schools and other public structures, location of parks and play areas, widths,
types of pavements and gradients of streets, and other important factors. Zoning
is essential to control use of land, to prevent undue and indiscriminate location
of warehouses aiul industrial and retail store activities, to protect residential
values by prevention of multiple-family houses in single-family sections, to prevent
the location of nuisances in high-class residential neighborhoods and .similar un-
desirable practices. Land subdivision regulations are necessary to provide ade-
quate set-back lines, to govern the location of streets with regard to topographs
and adjacent city streets, to control types of pavements on streets which, if dedi-
cated, may become a source of constant expense, to limit the minimum size of
lots in certain areas, and to insure a development that is related to the city plan.
In addition to the communities, Newi;on and McDonald Counties should immed-
iately set up i)lanning and zoning commissions for the control of unincorporated
areas especially near the cantonments. Although many developments have
sprung up in the last month or two iu these areas, control of further developments
of these types can be exercised, if immediate steps are taken.
While it is not the desire of the State, Federal or local governments to limit
legitimate use of property in any way, some control of use of property where such
use results in injury to adjacent property, or to the public welfare, should be made
effective.
Neosho is taking immediate steps toward the preparation of planning and zoning
studies. Lieutenant Colonel Teachout. executive officer at the camp, is hopeful
that Newton County will take immediate steps in this direction. Doubtless
McDonald County and the various communities in the area will adopt similar
procedure as soon as the need is apparent.
Neosho itself, a citj' of considerable charm and natural beauty, suffers at present
in man}- of its areas, from a street plan which was laid out without relation to the
topography. The so-called gridiron system of street planning should never be
adopted in a locality where the topography is as varied as it is in many sections of
Neosho. In its extensions of new streets, Neosho should give particular consider-
ation to a well-planned .street system which wilLfit its topography. Such a plan
will result in a simplified and less expensive sewer system, a maximum use of prop-
erty for residential and other purposes, minimum possible gradients to roads and,
incidentally, a much more attractive city.
(K) POST-DEFENSE PLANNING
Studies toward aiding in the solution of the many problems that will arise in
the post-defense period should be started immediately. All possible steps should
be taken to relieve the shock of sudden transition from emergency period to
post-defense period and to prevent so far as possible extensive loss of employment,
the consequent immense reduction in national income, large migrations of popu-
lation, increased relief and social problems, and so far as possible, the inevitable
mental, moral and financial depressions which follow'. Not only the variou>
Government agencies, local. State, and Federal, but industrial and business organi-
zations are giving serious study to this vital problem. Proper planning and fore-
sight can go far in solving many of the problems that will arise in this post-defense
period. No general formula will solve the manv individual problems of each
special area. Planning for the areas adjacent to Camp Crowder, and its citizens,
should begin as soon as possible and the proper machinery set up for relieving the
shock.
NATIONAL DEFENSE MIGRATION 8825
Exhibit C.—Dkfense Problem Areas Adjoining Weldon Springs Ordnance
Works, Weldon Springs, Mo.
report prepared by john noyes, consultant, national resources planning
BOARD, field OFFICE, OMAHA. NEBR.
March 31, 1941.
I. Introduction
The War Department has acquired in part, and will soon complete acquisition
of a tract of approximately 17,900 acres in St. Charles Countj', Mo., for the pur-
pose of manufacturing TNT and DNT. The official designation of the plant is
the "Weldon Springs ordnance works." The purpose of this report is to present
various facts in connection with this plant, the problems arising from its location
in this area, and recommendations leading toward the solution of some of these
problems.
II. The Plant
(A) description
/. Factors influencing location.
The Weldon Springs ordnance works for the manufacture of TNT and DNT
to be made under the direction of the Atlas Powder Co. near Weldon Springs,
Mo., has been located on a tract of approximately 17,900 acres. The tract lies
southwest of and adjoins Highway 61 and adjoins the Missouri, Kansas, & Texas
Railway, which follows the shore line of the Missouri River. Important factors
in the location of the reservation at this point were: (1) Accessibility to ample
water supply, approximately 15,000,000 gallons per day being necessary for the
manufacture of TNT and DNT; (2) accessibility to railroad facilities; (3) acces-
sibility to a main defense highway; (4) sparsely built-up neighborhood at a con-
siderable distance from large population centers; (5) varied and relatively rugged
topography with considerable timber growth.
2. Lay-out of -plant.
According to present plans, 6 production lines for manufacture of TNT and 2
for manufacture of DNT are to be constructed and placed in operation by Sep-
tember 1, 1941. It is quite possible that enlargement of the plant to as many as
16 lines may take place later. The 8 lines now being constructed are located
several hundred feet apart, approximately in the center of the tract. The entire
tract is being enclosed with a high chain-link fence. It is intended that only 1
entrance to the tract be provided, located at the present Highway 94 entrance
near Highway 61 at Weldon Springs. AU employees and visitors will be required
to enter at this point.
A pumping plant will be erected adjoining the shore line of the Missouri River
near the present location of the town of Hamburg.
S. Construction.
At present over 1,200 men are employed in constructing the 8 production lines
and it is expected that this number will be graduallv increased to a peak of between
3,000 and 4,000 workers.
4. Operation.
It is expected that the plant, at least in part, will be in operation after Septem-
ber 1, 1941, and that operations will continue during the emergency, which from
present estimates should not be more than 5 years, possibly considerably less. It
is expected that the eight lines will be in operation 24 hours a day, in three shifts.
(B) necessities created
1. Housing.
A major consideration of the management of the ordnance works is adequate
housing for its employees.
(a) During construction. — During the construction stage there is not considered
to be a housing problem. It is estimated that approximately 75 percent of present
construction workers come from St. Louis and St. Louis County, 15 percent from
St. Charles, and 10 percent from other points in St. Charles County, especially
Wentzville. Several of the workers have found accommodations in homes in St.
Charles County and a comparatively small number are living in trailers at Wentz-
ville, Weldon Springs, and other points. With the increase of construction work-
ers, it is possible that more trailer camps may spring up in the area adjacent to
the reservation.
8826
ST. LOUIS HEARINGS
(b) During oprroliuit.' Maj. C. K. DuHon aixl officials of the Atlas Powder Co.
are of tlio opinion that a iiiininiimi of 100 new housing units would l)e needed for
employees at the TNT-DN'r plant. The opinion is based on the assumption that
from i,500 to 2,000 employees will he engaged in the work. It is expected that
necessity for the.se homes will ari.se on .starting of work about September 1, 1941.
There is a po.ssibility that if the plant is considerably increased in size that the
number of workers may be increased to 2,500.
Major Dutton considers it most imjiortant that 75 to 100 of the key workers
reside within 4 to 6 miles of the entrance to the plant, on good roads, and with
telephone connections. These men would be subject to immediate call to the
l)lant in case of emergency.
I'Mfteen homes for principal executives, seven or eight for Army oflRcials, and
seven or eight for Atlas Power ('o. officials, will be constructed on the reservation.
From best information available to date, employees for operation of the plant
after September 1, 1941, may be classed about as follows:
Classification
Annual salary
Percent
of total
employed
Helpers and general labor
Foremen, odice helpers, assistant supervisors of departments
Superintendents--
Executives
$1,500 to $2,000
$2,000 to $3,000
$2,500 to $3,000
Over $3,000...
Note.— Quoting from Major Button's letter of Mar. 18, 1941, he states: "It might be said at this time that
about 15 percent of the help needed could be obtained from the immediate area. It is reasonable to believe
that a great number will come from St. Louis City and County area."
S. Transportation.
Construction workers have made satisfactory arrangements as to transportation
from St. Charles, St. Louis, St. Louis County, and other points by grouping to-
gether for travel by automobile and by temporary bus service from St. Charles
and St. Louis County. It is expected that similar means of transportation will
be available from main residential locations after the plant is in operation.
III. Resultant Effects on Area
(A) LOSS TO AREA
1. Population and taxes.
Residents of two small communities, Howell and Hamburg, within the bounda-
ries of the tract, with a total population of approximately 200 and in addition a
rural population of over 500, have been forced to move from the site. Of the
approximately 247 parcels making up the tract, approximately 22 owners w-ere
nonresidents. Approximately 192 of the parcels were farms with approximately
6,000 crop-acres. It is known that at least 11 owners with families have left the
county to locate in other places, and i)robably there are more, though records are
not complete as to this.
The assessed valuation of real estate, personal property, etc., removed from
taxation because of the acquisition of the tract by the War Department amounts
to approximately $411,000.
£. Highways.
Approximately 33 miles of county highways and farm-to-market roads will be
removed from use, of which about 28 miles are gravel surfaced and in good con-
dition. Three steel bridges and numerous pipe and l)ox culverts form part of the
construction of these roads. Approximately 10}^ miles of State Highway 94
will be vacated. Closing of these roads will cause considerable inconvenience to,
communities to the west and southwest of the reservation.
3. Schools.
One public high school for approximately 150 students and 4 grade schools for
approximately 100 students will be closed to the i)ublic, requiring the construction
of a new consolidated high school and grade school and redistribution of school
population. Until the new school building is completed, a serious problem in
providing transportation to other school locations will exist.
4. Cemeteries.
There are 27 cemeteries included within the tract, requiring eventual possible
removal of over 700 bodies. It is jjossible, however, that many of these cemeteries
may be allowed to remain, with visiting days arranged for at various times.
NATIONAL DEFENSE MIGRATION 8827
(B) SANITATION AT ORDNANCE WORKS
Major Dutton states that there will be two types of waste resulting from the
operation of the plant. One will be the type ordinarily encountered in any com-
munity or residential development such as sewage, and the other type will be of
toxic material remaining after the process of manufacture of TNT-DNT. The
first type of waste will be adequately taken care of by means of sewage-disposal
systems and septic tanks; and the second type, the toxic wastes, will be piped from
the production lines to a central collection station where it will be treated to
neutralize any remaining acids and then put through a series of steam evaporators.
The residue, resembling heavy dark molasses, then will be burned in a rotating
kiln, leaving a resulting small amount of harmless ash, easily disposed of. Major
Dutton is certain that with the adequate means planned for disposal of waste
there will be no danger of contamination of the waters of the Missouri River, nor
nuisance to the general area.
(C) DANGER ZONE
Major Dutton states that due to the large size of the tract and the central
location of the plant buildings, there should be practically no structural danger
outside the boundaries of the tract in the event of explosion. He considers, how-
ever, that any new housing developments that might be constructed should be
located 4 or 5 miles away from the plant.
IV. Major Problems
(A) highways
/ . State highways and farm-to-market roads.
(a) Highivay 9/,. — The portion of Highway 94 passing through the reservation
and providing direct connection between towns in the southwest portion of the
county and the county seat at St. Charles will be closed to public use, thus requir-
ing a considerably greater distance by automobile from these points. For ex-
ample, the town of Defiance which is approximately 21 miles from St. Charles by
Highway 94, requires travel by existing county roads west and north of the plant
of approximately 36 miles. Residents of communities in the southwest portion
of the county, such as Defiance, Augusta, New Melle, and others adjacent are
protesting vigorously against the inconvenience caused by the additional mileage
necessary, much of it over narrow roads which have steep grades and many sharp
curves. There are approxunately 13 miles of roadway in Highwav 94 and Farm-
to- Market Road D within the reservation itself.
As a solution to this problem Mr. Carl Brown, chief engineer of the Missouri
State Highway Department, has requested that the War Department compensate
the State highway department to the amount of $310,000 for the construction of a
road along the shore line of the Missouri River and another closelv adjacent to the
west line and north line of the tract, both roads connecting with Highway 61.
Objection to the roadway along the river has been expressed bv Major Dutton
and other officials of the War Department on the ground that the prevention of
sabotage at the proposed pumping station would be made more difficult. It is
understood, however that the State highway department would be willing to
close the highway along the river during the emergency when the plant is in
operation, if the War Department requires this. It is expected that both roads
if constructed, will be gravel surfaced.
(6) State Highway 61. — This highway, which is one of the major highways of the
State connecting St. Louis with Wentzville, will receive considerable additional
traffic during construction of the plant and its operation until the end of the
emergency. The State highway department is, at the present time, constructing
a relief lane approximately 300 feet in length on either side of the entrance to the
plant. Construction of this additional lane will provide one-wav traffic for east-
bound and west-bound traffic with the present slab. It is quite likely that the
relief lane will later be extended to the Daniel Boone Bridge and to the western
boundary of the plant site, a total of approximately five miles, costing a total of
approximately $275,000, part of the expense of which it is expected will be borne
by the Government.
Originally it was proposed to construct a grade separation at the intersection of
Highway 61 and the entrance road to the plant, but because of the probable
delay in obtaining steel trusses for a bridge, an electric traffic signal will provide
control of traffic at this point. A connection is also being made between Highway
61 at a point southeast of the entrance with one of the county roads entering
^§28 ^'*''- i'"ii^ moAKiNiis
Wcldon Springs, which will roliovo a considerable anionnt of the traffic load at
this intersection.
(c) Highway K, Jarvi-to-markcl road. — From Highway 61 to the city of O' Fallon
it is projiosed to construct a direct connection between Highway 40 at O'Fallon
and Highway 01. Connection at Highway 61 would l)e approximately l}^ miles
northwest of the entrance of the plant. The distance between the entrance of
the plant and the city of O'Fallon would be reduced to appro.ximately 7 miles.
Part of the road has already l)ecn completed, using existing county road.s. This
entire roadway would be gra\'cl surfaced and possil)ly later may be black-topped.
This road would provide a direct connection with Farm-to- Market Road M,
passing through the town of O'Fallon and coTuiecting with State Highway 79.
(rf) Proposed road connecting relocated Highway 94 and Cottleville. — A new road
from relocated Highway 94 near north boundaries of plant site to present High-
way' 94 near Cottleville would be desirable in the event that this relocated High-
way 94 is the only connection that may be u.sed during the emergency between
communities in the southwest portions of the county and the county .seat at St.
Charles. This road would reduce the distance to St. Charles by approximately 2
miles. Such a connection would also be desirable in that it would reduce traffic
near the plant entrance and would connect directly with proposed Highway K
which would make a more direct route to the city of O'Fallon and HighAvay 79.
(e) Extension of Farm-to- Market Road T to Augusta. — Present county roads
connecting the area between Augusta and Cappeln are hilly and tortuous and
.should be improved. This extension of Road T would have been desirable even
if the ordnance works had not been located in this area, but its necessity is em-
phasized because of the closing of a portion of Highway 94. The distance by
roadwaj' from Augusta to Highway 61 is approximately 2 miles less by proceeding
through Defiance and present detours of Highway 94. This new farm-to-market
connection would reduce considerably the travel time between Augusta and
Wentzville, and since the only public high schools in the west portion of St.
Charles County are at these two points, improved roads between them would be
most desirable. Construction of this improved farm-to-market road would com-
plete the 100-mile farm-to-market road program started by the countj' highway
commission some years ago.
(/) Highway 94 to be black-topped. — The State highway department expects to
black-top Highway' 94 between the plant entrance and the end of the present
black-top surfacing at the intersection of Farm-to-Market Road N and Highway
94 through Weldon Springs, a distance of approximately 4K miles.
2. County highways.
The county highway engineer reports that there are approximately 33 miles of
county highways within the reservation which will be closed to public use. Ap-
proximately 28 miles are gravel surfaced. Three steel bridges and numerous box
and pipe culverts are included.
Mr. Earl C. Gray, county clerk of St. Charles County, states that the county
highway commission expects but little in the way of compensation for the roads
vacated except for constructing connecting links between existing county roads
and new roads replacing highway 94 around the reservation. They will also
request the right of removal of three steel bridges within the site and some of
the culverts, or compensation for the value of these items\
(B) HOUSING
1. Existing housing situation.
(a) St. Louis and St. Louis County. — From a conference with Mr. F. W. Pejj-
ping, chief underwriter of the Federal Housing Administration, St. Louis; Mr.
Rene Dusard, chief architect and Mr. J. A. Estes, executive assistant, informa-
tion was obtained that by date of April 1, 1940, there were 16,334 vacant dwelling
units in the city of St. Louis and 4,913 vacant dwelling units in St. Louis County.
These vacant dwelling units were either for sale or for rent. Other vacancies in
the city on which information was not obtainable as to whether for sale or rent,
were 1,601 for the city and 431 for the county, making for city and county a
total of 23,279 vacancies. Mr. Pepping is of the opinion that the figures on
vacancies have not been materially reduced since* the date when compiled. It
is probable that at least 50 percent of these dwelling units would be habitable,
a total of approximately 11,640.
Mr. Pepping stated that the Federal Housing Admini.stration at this date has
commitments to insure loans, when dwelling units now imder construction are
completed and sold, for 1,175 single familj' dwelling units and in a addition
commitments for 825 dwellings under construction, for whicli buyers have been
NATIONAI. DEFFINSE MIGRATION 8829
secured, a total of approximately 2,000. The total habitable dwelling units now-
available in St. Louis and St. Louis Countv, therefore, probaV>lv is in excess of
13,000.
Approximate distances between points in St. Louis and St. Louis County and
the entrance of the TNT plant by highway and approximate time necessary by
automobile are as follows:
St. Louis city limits (Skinker and Clayton Roads), 35 minutes, 23}4 miles.
North and South Road (Brentwood Boulevard) and Clayton Road, 30
minutes, 22 miles.
Manhassett Milage, 30 minutes, 22 miles.
Lindbergh Boulevard and intersection of highway 61, 21 minutes, 17}4
miles.
Bellefontaine, 11 minutes, OVo miles.
Chesterfield, 10 minutes, 9 miles.
Gumbo, 8 minutes, 6 miles.
St. Louis and St. Louis County, especially portions east of Lindbergh Boule-
vard, in general are well provided with schools, recreational facilities, public
utilities, and transportation. Planning and zoning of St. Louis County is now
in progress and has been in effect in the city for many years.
Note.— Time necessary for travel to the Ordnance Works entrance frcm many places in St. Louis County
would not exceed travel time to work of the majority of employed persons new living in the County. For
example, by street car from Clayton to downtown St. Louis requires approximately 40 to 45 minutes, and
W'ebster Groves frcm tO to 60 minutes. By automchile the time frcm Clayton and Webster Groves to
downtown -St. Louis is 30 to 35 minutes. Other points across town in the County by public conveyance
require even longer periods from distant points.
(6) St. Charles County and its communities. — It has been reported from several
sources that there are practically no housing vacancies anywhere in St. Charles
County.
2. Existing facilities in St. Charles County (population 25,562 in 1940 census).
(a) St. Charles, Mo. {population 10,810, 1940 census). — The city has an ade-
quate public water supph' and sewers for the major part of the area within the
city limits. There are a number of undeveloped tracts within the citj' limits
and immediately adjoining in the county, particularly in the area between Blan-
chett Park and Linden wood College, that may be serviced as to water supply and
sewers and which would be suitable for housing projects. While a considerable
amount of additional acreage in the county adjoining could be serviced as to water
supply, very little of it could be serviced by the sewer system, due to topography.
The city has one 4-year public high school and one 4-year parochial high school,
four public and three parochial grade schools, a junior high school for white
students and a grade and high school for the colored. In addition there is L'nden-
wood College for Girls, wdth a 4-year course leading to a degree.
St. Charles has two modern hospitals, capable fire and police departments, a
large public park with a modern swimming pool and a private golf course in con-
nection with the St. Charles County Club. It is well equipped with moving-
picture theaters and other means of entertainment.
St. Charles is approximately 14 miles by roadway from the entrance to the
TNT plant. Transportation by bus has been recently provided from St. Charles
to the TNT plant. Bus and railroad transportation to the city of St. Louis are
available, St. Charles being on the main bus line between St. Louis and Kansas
City and on two railroads, the Missouri, Kansas & Texas Railroad and the
Wabash Railroad.
There is a considerable housing shortage in St. Charles at the present time.
Several new homes have been built within the last few years within the city limits
and in the county closely adjacent to the city limits.
Additional w^orkers are being employed by the American Car & Foundry Co.
and by a new International Shoe Co. plant which expects to employ about 300.
The St. Mary's Oil Engine Co. has recently been sold to a new- syndicate and it is
expected that this plant will be reopened shortly. When at capacity, several
hundred people are employed at this plant. Many of the residents of St. Charles
are employed in St. Louis and St. Louis County.
Estimates of various residents of St. Charles contacted seem to indicate that
the city could absorb at least 100 homes after the emergency is over.
(6) St. Peters (population 305, 1940 censris). — St. Peters does not have public
water supph', but recently passed a bond issue for construction of sewers. This
city is approximately 10 miles from the entrance of the TNT plant by roadway.
There is a 2-year parochial (Catholic) high school in St. Peters, parochial grade
school and a pul>lic grade school.
^^^2 ^'''- '*" '^ iii:ai{in<;s
St. Peters is serviced by a injiiii bus line which operates between St. Louis and
Kansas City on highway 40 and also by the Wabash Railroad.
(r) O' Fallon {population 6 IS, WZ/O census). — O'Fallon is constructing a jjublic
water supply system which is almost completed and also sewers and sewage dis-
po.sal system. This city will i)e the closest iiicorporaterl community to the
entrance of the TNT plant, with the completion of roadway K, a total of approxi-
mately 7 miles.
There is an adecpiate public grade school, a parochial grade school and a
parochial 4-year high school in the city.
O'Fallon is serviced by bus lines operating on highway 40 and by the Wabash
Railroafl.
As part of the bond issue for water supply and sewage disposal, O'Fallon is
installing fire protection facilities for the community. The water supply is se-
cured from St. Peters' sand at a depth of 833 feet. .\n elevated storage tank has
been erected with a capacity of 75,000 gallons and a flow of 58 gallons per minute.
The cost of the water supply system, tank, etc., is approximately $50,000 and of
the .sewage disposal system approximately $40,000.
Mr. N. D. Schwendeman, c'ashier of the bank at O'Fallon is of the opinion that
25 or 30 homes could be absorbed by the community after the emergency is over.
There are several tracts of land between the main part of the town and highway
40 that would be very suitable for housing projects and which could be serviced
by the water and sewer systems.
(d) Wentzville (popidation 752, 1940 census). — The citj' is served by an ade-
quate water supply system, sewers and sewage disposal system. Water was ob-
tained from St. Peters' sand at a depth of 813 feet and stored in an elevated
tank holding 75,000 gallons.
There are approximately 100 vacant lots within the built-up section of the city
which would be available for homes on streets in which sewers and water supply
are available. Undeveloped tracts adjoining the city to which water and sewer
lines could be extended at reasonable expenses are available for housing projects.
There has been some building activity in Wentzville in the last few years and
several new homes have been constructed. The city has no funds for extension
of water and sewer lines to these undeveloped areas, so that the expense of such
extensions would have to be added to the cost of any development.
Wentzville has a 4-year combined high and grade school under construction
which it is expected is likely to be crowded with students from the city and con-
tiguous territory. The existing combined grade and high school will be torn
down upon completion of the new building, and rebuilt as a colored school.
Wentzville is located at the intersection of highway 40 and highway 61 and is
serviced by bus lines operating on both major highways. It is also serviced by
the Wabash Railroad.
Wentzville is equipped with a fire department and fire engine and numerous
fire hydrants located through the city.
There is a small moving-picture theatre, but no public parks or playgrounds.
(e) Cottleville. — Cottleville, which is unincorporated, with a population of ap-
proximately 150, is located approximately 4 miles from the entrance to the TNT
plant by roadway. It does not have water supply or sewage disposal.
A private promoter has secured options on considerable acreage adjoining
Cott'eville with the idea of developing a private housing project. It is understood
that difficulties in financing the project will be encountered and that lack of water
supply and sew^age facilities will be a serious obstacle to deve'opment. The town,
however, is well situated for such a development.
There is a public grade school in Cottleville and a parochial grade school. .\
consolidated 4-year public high school at or near Cottleville to replace the existing
high school at Howell, is contemplated. If this school is constructed, there
would be a dist'nct advantage to any housing project that might be developed in
this area.
According to a rural housing report for the Wcldon Springs TNT-DNT ord-
nance plant area prei)ared by Mr. Ross J. Silkett & Associates at the request of
the Secretary of Agriculture for the National Defense Commission, a tract of 67
acre-: near Cottleville has been optioned by the Farm Security Administration
for farm subsistence homesteads on tracts of from 5 to 10 acres each, and it is
understood that if constructed, these homes would be available for employees at
the ordnance works during the emergency.
Cottleville is not located on any of the railroad lines and is not served by trans-
l)ortation excejit by the temporary bus line from St. Charles to the entrance of
the ordnance Avorks to which it is ckxsely adjacent.
(/) Weldon Springs. — Weldon Springs, unincorporated, with a pojiulation of
approximately 80, is the nearest connnunity to the entrance of the ordnance works.
NATIONAL DEFENSE MIGRATION
8833
It is not serviced with water supply nor sewage disposal system. Tliere are two
grade schools in Weldon Springs area and doubtless it would be a location for
temporary trailer and tourist camps, at least during the emergency. A small
trailer camp is already in existence. The town is without facilities for fire
protection.
(g) Dardcnne.—DsLvdenne can hardly be dignified by the name of a town, since
it consists of a public school, a church building, and a few houses. It is located
approximately 5}2 miles by roadway from the entrance to the ordnance works.
In the neighborhood of Dardenne there is a tract of approximately 90 acres which
has been optioned by the Farm Security Administration for homesteads of 5 to
10 acres each for the possible construction of farm subsistence homesteads which
would be available to workers at the ordnance plant during the emergency.
Dardemie is not serviced with transportation facilities at the present time, nor
with public utilities.
(h) Other co7nmiimties. — Other communit'es closely adjacent to the TNT-
DNT ordnance works, but not as accessible to the main entrance, would be New
Melle, Defiance, Matson, Augusta, and others. Augusta is the largest of these
communities, is incorporated and has a population within the corporate limits of
252.
It is not considered that these communities would be as desirable for housing
workers of the ordnance works as the other communities previously listed, because
of the greater distance to travel, lack of water, and sewage disposal facilities. It
is possible, of course, that some of the workers at the plant after it goes into opera-
tion would live in this neighborhood, but they would be scattered and com-
paratively few in number.
(J) Rural section of county. — Much of the area of the county within 4 to 6 miles
of the entrance to the ordnance works would be suitable for rural homes, particu-
larly on existing hard-surfaced roadways. Telephone and electric service are
available on most of these roads. Water supply could be provided by cisterns,
dug wells, or shallow drilled wells. Information at hand indicates that drilled
wells provide approximately 10 gallons per minute at a depth of 90 to 100 feet.
Sewage disposal could be provided by means of small individual septic tanks and
disposal beds.
3. Preferred locations for new housing.
Considering existing facilities, the most advantageous locations for new housing
of ordnance workers in St. Charles County, whether sponsored by private enter-
prise or by the Government, are (1) for housing projects and individual house
units, selected tracts in St. Charles, O'Fallon, and Wentzville; (2) for farm sub-
sistence housing, grouped or individual, various locations near Dardenne and
Cottleville adjoining hard-surfaced roads, selected for fertility of soil, good dra n-
age, good water supply and sanitation possibilities, electric and telephone accessi-
bility, proximity to schools, and future salability after the emergency.
4. New housing requirements.
(a) Rent levels. — Based on Major Dutton's estimates in his letter of March 18,
1941, for a minimum of 1,500 employees, the following permissible monthly rents
result, assuming an allowance of not more than 25 percent of salary for that
purpose.
Number
Salary
Rents per
month
Number
Salary
Rents per
month
1,050
$1,500-$2,000 _
$30 to $40.
$40 to $50.
150 - .
$2,500 to $3,000
$3,000 and up
$50 to $60
225 _
$2,000 to $2,500
75
$60 to $75
1
(b) Estimated number of neiv units in incorporated communities. — If 150-house
units are built in incorporated communities in St. Charles County, it is recom-
mended that 80 units be constructed in the city of St. Charles, 40 units in the city
of Wentzville, and 30 units in the city of O'Fallon.
Probably these should be homes for the higher salaried groups and ke.v workers
who should live as close to the plant as possible. While this group could afford
rents of from $50 to $75 per month, houses constructed to rent at a lower rent
level would undoubtedly have greater sale value after the emergency. It is
reasonably certain that the number of imits mentioned above would be absorbed
by the communities after the emergency.
3834 ST. LOUIS HEARINGS
(c) Estiniolcd /lumber of new units in. rural areas. — It is recoiiiiiicndcd tliat
from 2'A) to SoO rural housiufi; units on farm subs'stence hornosteads, in groups
and t)n individual sites, be const rucird in areas adjacent to Cottleville and
Dardenne. Homes of this tyi)e slunild be construeted niain'v for the low income
groups, persons able to pay from $30 to $40 jier month, Ijut it is considered
preferable to i)uilfl homes that wou'd rent from $20 to $30 per month, since they
would undoubtedly have better sale vahie after the emergeney. Mr. Uoss
Silkett, n his report, indieat(s that a mininnim of 333 such homes cou!d jjrobably
be aljsorbed in these areas by farm owners now living in substandard dwell ngs
or l)y tenant farmers, and through future sales to persons in the larger communities
desiring such acccunmodations.
As an alternate for farm subsistence homesteads for lower salaried workers,
housing projects with a density of 10 or 15 families per acre, might be built in
conununities such as O'Fallon or \\'entzville and provide the necessary low rents
It is very questionable, however, as to whether this type of home wou'd have any
considerable amount of sale value after the emergency is over, and it would seem
pre erable to erect single family homes if possible.
(d) Housing other workers.- — Major Button has estimated that approximately
15 percent, or a probable minimum of 225, might be persons now residing in
areas adjacent to the tract. Very likely most of these would be in the lower
income group. The remaining 475 to 575 employees in this group, able to pay
rents of from $30 to $40 per month, would probably be required to find housing
accommodations in St. Louis or St. Louis County, as would the remaining 300
workers able to pay in excess of $40 p(!r month.
(e) Further studies necessary. — Further study of new housing requirements for
employees of the ordnance works should be made. It is unlikely that private
enterprise will be able to secure financial Vjacking for new housing except in the
incorporated communities such as St. Charles, St. Peters, O'Fallon, and Wentz-
ville.
If the Weldon Springs ordnance works were an organization for permanent
manufacture over a considerable period of time there would be no question but
that 100 percent housing for the employees of the ordnance works would be desir-
able. Because of the comparatively short time that the plant is expected to
operate, all precautions should be taken to keep new housing within limits of
future absorption by the region after the emergency, and thus prevent future
possibility of "ghost towns."
(C) PLANNING AND ZONING
St. Charles is in considerable need of a comprehensive city plan and zoning
study. This enterprise should be undertaken by the city itself and an outside
consultant should be employed to prepare necessary plans and ordinances.
Wentzville and O'Fallon should give consideration to planning and zoning.
Assistance on this work might be rendered by the Missouri State Planning Board,
since the city would probably not be in a position to engage a consultant for the
work. Mr. M. I. Parker, of the Missouri Inspection Bureau, who has been
advising these two cities on requirements for water supply to reduce insurance
costs, has urged the cities to adopt building codes, fire prevention, and fire limit
ordinances. He is hopeful that these cities will receive as much help as possible
from the Missouri State Planning Board in this work.
St. Charles County as a whole and including its numerous unincorporated
communities should liave the authority to control development through planning
and zoning, especially in the neighborhood of the entrance to the ordnance works
on Highway 61, where there is immediate likelihood of various roadside stands,
filling stations, and similar developments being constructed. Unless controlled
they will create a hazard to traffic, a sanitation prol)leni and offense to the eye.
Similar developments are gradually creeping in throughout the entire length of
Highway (U and trailer and tourist camj)s will doubtless be developed very
shortly. Immediate legislation is to be desired which would result in the control
of such establishments. At the present time the only control over such develop-
ments is that exercised by the State board of health as to sanitation and water
supply, and by the State highway department as to approaches.
V. Other Problems
(A) EDUCATIONAL
As has been stated, approximately 700 persons have been removed from the
area included within the ordnance works reservation. Most of these have
NATIONAL DEFENSE MIGRATION 8835
moved to other points in St. Charles County. Some redistribution of students
is necessary and the addition of many new students, children of plant employees
livinj? in the county, will doubtless require added facilities in various existing
schools and possibly new schools in some instances. Construction of a new
consolidated high school and grade school is being considered in the Cottleville
area.
(B) RECREATION
There are satisfactory recreational facilities in St. Charles, but Wentzville
and O' Fallon are lacking in parks and playgrounds and should undertake a
program for construction of such facilities. Housing projects in any of these
communities should be provided with play areas, especially for younger children.
Fort Zumwalt, a State park of approximately 60 acres, is located on Highway
40 Til near the city of O'Fallon. It is understood that this reservation will
soon be improved by CCC workers, but it is not anticipated that this area may
be used for active recreation.
Babler State Park is located approximately 15 miles from the main entrance
of the ordnance works reservation and the Cuivre River recreation area approxi-
mately 30 miles from this point.
A private recreational project is being considered near Wentzville, which
would include a large lake made by damming up Peruque Creek. Information
is lacking as to the certainty that this project will be undertaken.
For employees who will reside in St. Louis and in St. Louis County, especially
in the incorporated areas, there are numerous parks, playgrounds, public and
private swimming pools, and other recreational areas available.
VI. Summary
Principal problems and recommendations for their solution outlined above
resulting from the location of the Weldon Springs ordnance works in St. Charles
County, Mo., include the necessary construction of new roads to replace High-
way 94, new roads to O'Fallon and Cottleville; the construction of additional
housing accommodations at St. Charles, O'Fallon, Wentzville, and rural portions
of the county; control by planning, zoning, establishment of a building code
and subdivision regulations and including necessary legislation to effect such
control; and additional school and recreational facilities.
STATEMENT INTRODUCED BY JAMES DOARN, MISSOURI STATE
EMPLOYMENT SERVICE, UNEMPLOYMENT COMPENSATION COM-
MISSION OF MISSOURI, JEFFERSON CITY, MO.
prepared by will s. denham, director, state employment service division,
jefferson city, mo.
November 21, 1941.
We are enclosing a list of ]jrime defense contracts allocated to the State of
Missouri divided by cities and.by firms receiving them. However, we have never
received through any governmental agency any information regarding subcon-
tracts allocated to firms in the State of Missouri. Information in regard to sub-
contiacts has been secured from newspaper publicity, civic publications, and
individual employer contacts. In regard to this, this agency would appreciate
any information as to any source from which we could secure the amounts and
names of firms securing subcontracts.
In regard to the estimate of the number of workers displaced by material
shortages, our statement in the last Labor Market Report still remains true.
The numVjer of individuals so far displaced by material shortages is small, but
there is every indication that this number will be increased within the next sixty
daj's. However, there is a qualifying condition in practically all of the reports
we have secured from employers likely to be affected, and that is that these firms
will have to close down unless their facilities are utilized in the defense program.
One of the objectives of this service in securing the reports of material shortages
is to closel}' cooperate with the Contract Distribution Service so that whatever
facilities these plants have may be utilized in the manufacture of defense products.
Specific reference to the effect of priorities in the automotive industry in St. Louis
will be found in the Labor Market Report proper, as will the report in regard to
the glass industry in Crystal City.
8836
ST. LOUIS IIEAHIMIS
We are also attachiiifj; the proKram outlined by the Bureau of lOmployment
Security designed to i)r<)vi(ic defense training for workers. The reports proper
contain the [recommendations of the Employment Service as to the number of
individuals to be trained within the next six months, which proposals have been
approved by the State Council of .\dministrators for Defense Training, and also
in the latest reportthenumber of individuals who are being trained in accordance
with these proposals.'
In regard to employers' specifications with respect to age, color and nationality
which may aflfect the full utilization of the local labor supply it has been our
experience that, as a whole, these factors have not prevented the full utilization
of our local lalior supply. Employers, especially in the skilled occupations, are
up-grading workers, diluting jobs, and removing all age restrictions on workers.
We wish to bring to the attention of the Committee the remarkable cooperation
that the Missouri agency has secured from the metropolitan newspapers. These
newspapers, in order to i)revent useless migration of labor, have refused to accept
advertising from out-State firms where the advertising would tend to cause migra-
tion from the St. Louis and Kansas Cit}' areas of those individuals who are needed
in these areas. These newspapers voluntarily have done a splendid job in cooper-
ating with the Employment Service and with the Regional Labor Supply Com-
mittee to accomplish this purpose.
Exhibit A. — Labor Market Report, Unemployment Compensation Commis-
sion OF MissouKi, Jefferson City, Mo.
September 15-October 15, 1941
The impact of material shortages and priorities has as yet resulted only in small
displacements of labor in the State of Missouri. Complete surveys are now being
made and there is every indication that the labor displacements due to material
shortages and priorities wall become more widespread within the next 60 days.
The labor-market developments during the period of this report follow in general
the trend as indicated in previous reports. On the basis of present prime defense
production contracts in the sum of $390,000,000, approximately 60,000 production
workers, the number estimated in previous reports, will be required.
Construction
With the exception of Camp Crowder, located at Neosho, and the ammonia
plant located at Louisiana, defense construction has passed the peak of employ-
ment. A summary of developments in major construction projects is as follows:
Type of project
Location
Number of
men work-
ing Oct.
15, 1041
Peak em-
ployment
Ammunition plant..
TNT and DNT plant
Airplane company
Airplanc-gun-turret plant-.
Housing
Do
Barracks
Ammunition plant
Housing
Do
Auxiliary Army buildings.
Ammonia plant
Cantonment
St. Louis...-
do
do
do
do
do
do
Kansas City
Fort Leonard Wood.
do
do
Louisiana
Neosho
14, 600
6,301
056
244
196
269
41
2,865
400
422
480
> 182
1 10, 939
Passed
6,670
Passed
Passed
Passed
Passed
Passed
Passed
645
625
860
5,700
'30,000
' Approximate.
The supply of construction workers in the State of Missouri remains adequate
to meet present construction needs in the State.
' Copy of the report referred to is held in committee flies.
>ATIONAL DEFENSE MUiKATION
8837
PRODUCTION
Reports from 298 employers, 138 in St. Louis, 102 in Kansas City, and 58 out-
State, whose industrial activities are of significance to the progress of the national-
defense program indicate that within the next 6 months these employers expect to
hire 17,247 workers, 10,377 in St. Louis, '.6,817 in Kansas City and 53 out-State.
A summary of these expected hires by occupation is as follows:
September 1941 to February 194^
Occupation
Total
Current
1 to2
months
2 to 4
months
5 to 6
months
Total -
17,247
1,611
6,474
5,546
4,616
Chemist, inorganic _ -
1
1
8
11
2
1
70
10
1
3
1
6
29
430
30
8
10
8
12
8
1
1
2
6
1
70
2
Electrical engineer
Mechanical engineer
2
1
1
1
2
2
2
Draftsman, mechanical ... ...
2
Manager, production .
Roadmaster
Inventory clerk
Clerk, general office . . .
2
1
2
3
3
Yard clerk
Production clerk
..
3
2
130
30
2
1
1
1
Receiving clerk
Stenographer
1
9
100
1
9
100
1
Tool clerk
9
Watchman
100
Fireman III . .
Porter II .
3
3
4
12
8
3
3
3
Elevator operator, freight .
3
Grounds keeper I
Carver hand T
Millman
Nitroglycerin-nitrator operator
Still operator ... ... .
3,000
5
1,219
12
25
6
312
4
136
60
12
95
22
72
6
3
6
10
5
2
37
15
1,390
19
9
3
10
30
4
4
165
7
8
12
3
9
24
44
6
59
6
28
1
2
3
37
2
8
29
1,000
2
305
5
10
2
76
39"
15
4
35
7
22
1,000
3
311
1,000
Welder, acetylene
Machinist II . . . . .. .
312
7
291
Lay-out man
Job setter II .. ...
10
5
Tool maker.
4
130
2
46
19
Die maker II
53
1
31
15
4
20
53
Die setter I
1
Tool maker .• _. ..
20
Tool inspector
11
Tool hardener.
4
Engine-lathe operator . .
23
15
32
6
3
6
10
17
Turret-lathe operator
Milling-machine operator II ... . .
13
5
Boring-mUl operator
Shaper operator I..
Planer operator II
Cylindrical-grinder operator
Inspector (machine shop)
2
2
14
6
319
5
2
1
Sheet-metal worker II
Do.... . ..
15
8
Sheet-metal lay-out man
9
Sheet-metal worker, aircraft
571
4
500
Molder, bench ..
7
9
3
3
Molder, floor . .
Machine molder, squeeze.
Fit-up man . ...
3
30
2
2
83
5
8
3
3
3
6
• 16
2
20
6
2
3
4
Structural-steel worker
Ornamental-ironworker ... .
2
2
12
Template marker, structural steel
Welder, arc . . .
61
1
9
Do
1
Welder, acetylene
Welder, combination
3
3
3
Blacksmith II
Heat treater II
3
6
4
7
3
6
18
2
12
3
Hardness inspector
6
Electrician.. . .
6
Electrical repairman
2
Assemblers, electrical
20
Lens grinder
Painter, car
20
6
Patternmaker, metal
1
2
Patternmaker, wood
Bricklayer II
2
12
2
8
1
12
Carpenter I . ..
1
12
Carpenter, finish
Carpenter, rough II
22
Carcenter. streetcar
7
8838
ST. LOUIS IIKAKINGS
September 1941 to February 19^2 — Continued
Occupation
Painter I
Steam fitter .-
T.ocdiiiotivo engineer II
Slrtti()ii;iry engineer
Klcclric-bridpi' crane operator
Loc'oiiiotive-crane operator -
Millwrichl ,
Urakcnian, air 11 .,
AutDinohilc mt'dianic
AiitniiKiliilc-hody repairman, metal ,
.Mainlcnanci' iiuclianic II
Elfviilor n'i)airitian
IiistruitU'iit ri'pairman.- -
'rool-firiiuicr operator
Hatteryiiian II
Foreman (ammunition) ,
P'oreman (machine tools and accessories)...
Foreman (machine shop)
Box maker, wood, III
Stationary cnKineer . ,
Sini;le-spin(ile-(lrill-press operator
Floor assembler (machine sliop)
Grinder (automobile manufacturing) ,
1'iirret-lathe operator, automatic ..,
MilliiiL'-iuactiiiie operator, automatic
I)orint;-nuiehini' (jperator, automatic
Si'iLil -siur.dle-drill-press operator ,
.Miiltiple-siiiiidle drill press operator .-.
Kadial-drill-i)ress operator
Sin'.de-siiindle drill press operator
Internal keyseating-machine ojierator-
Screw-machine oi)erator, semiautomatic-,.
Lathe ojierator, automatic 1 _
Disk-LTiniier operator _-
Kli lor assembler
Sandblast x I
Chipper, foundry
Molder helper III -.
Boiler tester
Kivet catcher
Bucker-up II
Riveter, hydraulic
Riveter, pneumatic I
Rivet heater, electric
Chiinier, metal -
Welder, spot
Finislier
Punch-press operator I.
Punch-press operator, hand
Wire-screen weaver, machine
Sheet-metal worker helper
Sheet-metal fabricating machine operator..
Briike operator, h ird -
Refr it'i-rator-trim assembler
T>ib )rer, nrocess (machine manufacturing) .
Solderer I
Welder h Iper, acetylene
Final assembler I.
Riverter, aircraft
Car trinuner II
Painter, spray I ,
Painter, rough
Roofer, asphalt, tar, and gravel..
Pipe-fitter helper ■
ChaulTeur II
Truck driver, heavy..
Truck driver, light .
Packer ..
Fireman, stationary boiler
Beltman I
Machinist apprentice
Electrician apprentice
Boilermaker . ..
Sheet -metal worker apprentice
Ornamental iron-worlcer apprentice.
Laborer, process (wood w^jrking)
Laborer, process (furniture)
Laborer, process (anununition)
Laborer, process (machine shop)
Laborer, process (foundry)
Welder, acetvlene
Stock clerk II
Laborer, process (iron and steel)
Total
7
6
1
1
55
12
6
15
12
6
3
13
3
500
7
26
7
1
8
6
1
9
2
3
5
37
3
30
1
14
1
9
179
7
6
4
4
26
2
6
2
2
22
65
10
3
45
415
1
10
8
4
22
.500
52
16
6
5
4
12
6
10
6
2
18
17
15
2
5
1
6
1
3
5,527
86
2
1
37
Current
125
1
4
2
1
1 to 2 2 to 4
months months
15
2
3
15
5
3
1
4
1
125
2
8
1
""2
25
122
10
2
4
7
100
25
3
2,000
23
15
4
3
2
3
1
4
1
125
2
10
163
200
27
2,000
29
NATIONAL DEFENSE MIGRATION
September 1941 to Fehrxiary 194'2 — Continued
8839
Occupation
Laborer, process (boiler making)
Laborer, process (forging)
Laborer, process (machine tool and accessories)
Laborer, process (electrical equipment)
Laborer, process (automobile manufacturing)
Laborer, process (locomotive, car building and repairing)
Laborer, building
Laborer, railroad
Laborer (furniture)
Laborer (ammunition)
Laborer (iron and steel)
Laborer ( foundry)
Laborer (boiler making)
Laborer (forging)
Laborer (heat treating)
Laborer (locomotive, car building and repairing)
Laborer (automobile manufacturing)
Laborer (electric equipment)
Oiler I
Total
15
9
2
1,118
3
50
20
3
3
18
45
4
49
Current
250
1 to 2
months
25
23
35
24
6
8
3
2
308
3
19
5
1
1
12
15
2
10
2 to 4
months
308
5 to 6
months
AIRCRAFT
At the present time in St. Louis the aircraft industries are emplojnng approxi-
mately 6,000 workers and it is expected that this figure will be increased to approxi-
mately 14,000 when the peak of production is reached in July 1942. Previous
figures for production workers for the Airplane Gun Turret Plant, which should
be completed during January or February 1942, remain at 5,000.
MUNITIONS AND POWDER
At the present time, the munition and powder plants of St. Louis are employing
approximately 1,400 men and by September 1942, will employ 29,000.
In Kansas Citj^ at the present time there are 2,400 workers in the munition
plant with an estimated 6,000 to be emploj^ed within the next 6 months.
METAL TRADES
Reports from 298 employers covering industrial activities essential to the
national defense program indicate the following demand in selected metal- working
occupations and the supplj^ of qualified and available workers registered with the
Employment Service:
Demand and supply, selected metal working occupations, State-wide
Occupation
Anticipated
hires from
September 1941
to January 1942
Qualified and
available v,
registrants
Machinist II-
Lay-out man
Job setter II
Die maker II
Die setter I
Tool maker
Tool inspector
Tool hardener
Engine-lathe operator
Turret-lathe operator
Milling-machine operator II
Boring-mill operator
Shapcr operator I
Planer operator 11
Cylindrical-grinder operator
Sheet-metal worker II
Sheet-metal lay-out man
Sheet-metal worker, aircraft.
165
4
18
15
14
11
4
1
82
33
27
8
5
5
2
131
20
154
It is to be noted from these demands that shortages are very apparent in the
machinist, tool, and die makers and aircraft occupations.
3840 '^'^'^ ^''^^^'i^ iJEAUL\(;s
GARMENTS
The shortage of sewing-machine operators continues and during the month
permission was secured for the training of power sewing-machine operators, which
previous to this time was not on the approved Hst of occupations for defense
training.
AGRICCLTUEE
A subcommittee on farm labor has been organized in every county in the State
and the extension service has a list of committee members in all but 15 counties.
The report submitted by subcommittees indicates that no shortage of regular farm
labor exists. Apparently, the suppl}- of seasonal labor for harvest ing some crops
is rather scarce, due largely to the fact that wages paid farm labor are relatively
low in comparison with wages in other occupations. A rise in the wages paid
farm labor would insure the necessary supply of seasonal labor, according to sub-
committee reports from the counties. However, it is becoming increasingly ap-
parent that farm labor will become more difficult to secure and that it will be
almost impossible to secure hands at rates people have been accustomed to paying
in the last several years.
PROVISIONS FOR "ADEQUATE LABOR SUPPLY
The inventory of fully qualified and available workers in selected occupations
as of October 18, 1941, shows that in the State of Missouri there are 14,910. There
is further indication that employers are beginning to upgrade workers and dilute
jobs in order to meet the increasing stringencies in all of the metal craft and
machinist classifications.
TRAINING
Training within the State is progressing according to the schedule set up by
the council of administrators for defense' training. A summary of these training
classes is as follows:
VE-ND ' training plan, as of Oct. 15, 1941
1. Total number of training areas in State 18
2. Total enrollment' in all areas 3, 494
3. Total number of courses in all areas 165
4. Total number of above areas offering supplementary courses 10
5. Total number of above areas offering preemployment and refresher
courses 13
6. Total number enrollees in supplementary classes 1, 243
7. Total number enrollees in preemployment and refresher 2, 251
8. Total number of areas offering National Youth Administration defense
training 6
9. Total number of enrollees in National Youth Administration defense
training classes 651
Regular National Youth Administration training program, as of Oct. 15, 1.941
1. Total number of training areas in State 25
2. Total enrollment in all areas 5, 433
3. Total number of courses in all areas 139
OSY^ training program, as of Oct. 15, 1941
1. Total number of training areas in State - 42
2. Total enrollment in all areas 966
3. Total number of courses in all areas 88
4. Total number of above areas offering Civilian Conservation Corps training. 7
5. Total number of Civilian Conservation Corps courses 9
6. Total enrollment in Civilian Conservation Corps courses 120
' Vocational Education-Natioiinl Defense Training Program.
' Out-of-School Rural and Nonrural Youth Training Program.
NATIONAL DEFENSE MIGRATION 8841
Preemployment defense training by occupations {Oct. 15, 1941)
Occupation
Area
Num-
ber of
courses
Number
in train-
ing
Aircraft riveting-
Springfield.. ..-
2
1
2
1
45
Flat River
20
North Kansas City
55
St. Louis
80
Total
200
Flat River
2
1
9
3
3
6
2
3
1
Aircraft sheet metal .
40
St. Charles
20
Kansas City
188
Joplin . .
55
Hannibal ..
58
Clayton
172
Jefferson City..
40
St. Louis
68
Springfield
20
Total .. . .
661
St. Louis
3
1
1
Chipping (metal or air hammer)
30
Kansas City
Electric welding
10
St. Louis
16
Total
26
St. Louis
2
1
2
1
Oxyacctylene welding
30
Kansas City
4
North Kansas City
Fort Leonard Wood . ...
20
14
Total
68
St. Louis..
4
2
1
3
1
1
1
1
Gas welding
71
General welding (type not designated)
Kansas City
30
St. Louis ....
25
St. Charles
44
Hannibal
12
Springfield
15
Clayton .. .
16
Trenton
14
Total
156
Kansas City.
1
1
3
10
2
6
1
5
3
2
1
10
5
1
1
Foundry work..
15
Jefferson City.
Metal work (bench or general)..
13
Joplin...
45
Kansas City
199
Jefferson City
60
St. Louis
175
North Kansas City
13
St. Joseph
60
Clayton
37
Flat River
20
Hannibal
10
Louisiana
246
Trenton
60
Columbia
15
Mexico
15
053
Springfield
6
6
3
3
1
Sheet metal work (general)
135
St. Louis .- -
180
St. Joseph
36
Kansas City
Clayton .
65
13
Total -- . .
429
Jefferson City
1
1
Tool and die making or Jigs and fixtures
17
Joplin
12
Total
29
3842 ^'^^- '><»''i^ iii;auin(;s
VE-SIJ supplementary training in Missouri {Oct. lf>. 1941)
Ofpiipation
Number
in
traiiiine
Machine shop courses.
Total
WcMinj;. -
Total
Sheet metal work
Aircraft sheet metal.
Aircraft jia; building.
Teacher training _ ..
Typings
Explosives .
Drafting and hiymii -
Total
Aircraft foremanship.
Total
Chipi)iniJ (air hammer).
In plant training
Bonne Terre.
Clayton
Joplin..
Kansas City.
Mexico
St. Joseph
St. Louis
Fort Leonard Wood .
Clayton
.loplin
Kansas City
Mexico...
St. Louis.
Wood pattern making and machine shop Bonne Terre .
Fort Leonard Wood.
Total..
Bonne Terre
St. Louis -
Clayton
Ft. Leonard Wood
do
Joplin
North Kansas City
Kansas City
St. Louis
Overland
St. Louis
St. Louis...
Warrenton.
243
14
12
14
101
13
121
275
104
90
60
15
50
120
25
MIGRATION
While the e.xact figures are not available, there is a decided migration from the
smaller communities in the Stale of Missouri to the larger cities. Many small
communities report that due to higher wages local communities are being sapped
of their skilled workers. Kansas City especially reports a large in-migration at
the present time.
Labor Market Developments
area 1 (st. lotjis)
On October 1, 1941, there was submitted to the Bureau an exhaustive survey
of the labor market developments in the greater St. Louis area.
Section A
Decreases in employment due to material shortages.
No large lay-offs have as yet occurred because of material shortages or produc-
tion curiailnient. The only large lay-off reported was of 116 Avorkers at the
Chevrolet Motor Co. This lay-off occurred around September 15, but all of
those dismissed were recalled after a short period of time.
There are indications that production curtailment in the automotive industry
might be reflected in some lay-offs at the Fisher Body Co. and Coverolet Co. to
become effective to some extent in December and early next year. Some 200
men were laid off at Fisher Body in July 19-41 and possibly another 400 might be
affected around December 1941 and January 1942. Chevrolet might lay off
some 200 or 300 men again around the latter part of this year and January of
NATIONAL DEFENSE MIGRATION 8843
next year. At present Chevrolet is working at capacitj^ and is actually hiring.
The effect of the curtailment at Ford Motor Co. is not yet known. The plant
is now en)plo3ang its full force.
A few plants a^e beginning to lay off workers because of the curtailment of
production by industries as brought about by the Office of Production Manage-
ment in Washington. In St. Louis the industrial curtailment is being felt by
small lay-offs in plants within industry. A number of firms have applied to the
Division of Contract Distribution, Office of Production Management, asking for
consideration for materials or defense contracts.
Surve3's have already been made of the smaller plants mentioned" and of the
Curtis Manufacturing Co., the Medart Manufacturing Co., and the Wagner
Electric Co., as a first step in getting information on the numl^er of workers
likely to be laid off and the classification of work done by these men.
The Pittsburgh Plate Glass Co. located in Crystal City employing 2,200 workers
has been effected by the curtailment of automobile manufacturing. This firm's
production is primarily that of auto glass and reduction of auto production has
already been felt. Eighty-six production workers in one department of 430
have been definitely laid off and the balance are on a 3-day week. In another
department of 110 the entire department is not workuig but the workers are not
discharged. This latter group comprises electric furnace operators and helpers.
Training.
In the case of/public training, the courses have been arranged to meet the hiring
schedules of the various companies. As a result, about 80 percent of the gradu-
ates of aircraft and machine operating classes are finding work. It is difficult,
if not impossible, to indicate the reasons why the remaining 20 percent of these
graduates from the aircraft and machine operating classes are not obtaining
employment, as there are among them students with good as well as inferior
grades.
In the welding classes the percentage of the total number of graduates placed is
even higher. The chief reason for not getting a job in this trade seems to be an
unwillingness on the part of the graduates to accept a beginner's job at a low rate
of pay.
The percentage of auto mechanic graduates placed is low. All indications are
that there has been only a very small increase in the demand for auto mechanics.
All of the graduates from the chipping class, which is for colored persons, have
been placed.
The placement record of the private aircraft schools is entirely satisfactory,
although there is often a month or more lag between graduation and placement.
About one-fourth of their graduates leave town for jobs.
It is impossible to check on the graduates of the various private welding schools
because of the unreliable information given out.
There is no change contemplated in the set-up of training courses at the present
time, except that the Wellston school is attempting to secure equipment to give
a more diversified machine operation course, principally on grinders. The peak of
preemployment training will probably be reached this year and the trend will then
be to supplementary training.
In September there was announced a National Youth Administration defense
production training program for young women for men's jobs on defense machines.
Ten women, between 17 and 25 years of age, are being given training to familiarize
them with machine work and related training, as well as actual experience in
handling lathes, presses, and grinding machines. After preliminary tests for
manipulative dexterity and aptitude the trainees get introductory shop training
and then are admitted into the machine shop.
Fifty girls are now in training at Hadley Vocational School on double needle
and special sewing machine operations in classes sponsored by the Employment
Service.
The listings of public training (preemployment and supplementary), private
training (preemployment) and on-the-job training classes and enrollment follow
the report in appendix A.
Migration.
Some construction workers are leaving the St. Louis area for Neosho and
Louisiana, Mo., where there are large construction projects under way. Also,
there are some going to the State of Louisiana and to other Southern States where
construction projects are located. These are primarily skilled construction
workers, such as carpenters, bricklayers, etc., and also include construction
estimators, expediters, draftsmen, and foremen.
8844
ST. LOriS HEARINGS
A very few clerical workers, particularly legal stenographers and stenographic
typists, have been sent to Louisiana, Mo.
There is very little or no migration of machinists, tool makers, etc., to sections
outside the St. Louis area.
A survey of our intake activities shows for a 30-day period that over 344, or
5 porc(Mit, of our new applicants coming to our office were nonresidents of this city.
Of this influx the greatest portion, or about 90 percent, come from southeast
Missouri, Arkansas, and the towns along the Mississippi River and the eastern
counties of Illinois. These people are both men ancl women, having a wide
range in ages and are princij^ally looking for defense jobs. Newspaper and radio
accounts largely for their being here.
Tlie St. Louis metropolitan clearance area which includes St. Louis, Crystal
City, Washington, St. Charles in Missouri, and East St. Louis, Alton, Belleville,
Granite City, and Edwardsville in Illinois, has accounted for the orderly migra-
tion of about 127 workers from Crystal City, 20 from Alton, 100 from East St.
Louis, 25 from Edwardsville, and 20 from Belleville to serve as trainees for pro-
duction on ordnance or for guard jobs.
There appears to be no particular problem of migration in and out of workers
in this area.
Aircraft manufacturers have come to the employment service to recruit workers
from training classes, both from the St. Louis area and outside of the area, and
also to recruit workers from private schools in order to use the testing facilities of
our office to cull out ineffective workers.
Recruitment methods.
Scouting is still being carried on by industrial plants to secure highly trained
personnel such as engineers, designers, tool makers, and key personnel.
In order to keep in close touch with the needs of the United States Cartridge
Co., an employee of the State employment service has been assigned on a perma-
nent basis with responsibility for all relationships between this office and the
plant named. This individual has been given a company badge, picture, etc.,
and has free run of the employment office and the training plant, thus enabling
the employment service to know at all times the needs of the United States
Cartridge Co. and its employment problems.
At a recent meeting with the company officials of United States Cartridge Co.,
the policy of hiring at the gate was discussed and reasons given for its continu-
ance. They stated that if a qualified applicant applies to them for work and their
personnel department directs him to the employment service, he will go to
McQuay-Norris or some other plant and get a job instead of coming to the
service.
Arrangements have been made with the central officers of both the American
Federation of Labor and the Congress of Industrial Organizations unions for the
registration of their total membership. The object of tliis registration is to care-
fully interview all members in the two organizations in an attempt to determine
skills not used and to be ready to negotiate transfers into defense industries if
and when the time comes.
In St. Louis there are 14 American Federation of Labor labor councils and 212
locals, and also there are 20 union councils and 79 locals in the Congress of
Industrial Organizations.
The American Federation of T^abor program is included in the following trades:
Printing
Building trades
Brewery workers
Carpenters
Garment workers
Hotel and restaurant employees
In the Congress of Industrial Organizations program arc included the following:
Iron workers
Boot and shoe workers
Union labor trades
Machinists
Painters
Teamsters
Clothing workers
Communications workers
Barbers
Construction workers
Automobile workers
Electrical workers
Federal workers
Glass workers
Fur workers
Leather and luggage workers
Mine workers
Newspaper workers
Optical workers
Woodworking trades
Retail and wholesale employees
Plvwood and veneer workers
NATIONAL ])EFKNSK MIGRATION 8845
The secretaries of the central councils for these organizations have estimated
that there are approximately 50,000 individual Congress of Industrial Organiza-
tions rhemberships in this territory and 128,000 individual American Federation
of Labor memberships.
Pirating of workers.
Pirating of workers is still taking place between firms producing ordnance.
For example, screw-machine operators are being offered more money by one firm
to induce them to leave another. Efforts by Office of Production Management
representatives to effect promises of nonaggression are of no avail in one or two
places. Ordnance manufacturers indicated that they would effect a transfer of
workers from plants affected by priorities or curtailment of production only when
production jobs were available. There was an expressed readiness to discuss the
proposal when the time was ripe.
A newspaper article written in the Globe-Democrat and quoting N. B. Pollister
of Busch-Sulzer Bros. Diesel Engine Co. in September described a loss of skilled
mechanics to other defense industries. It made appeals to workmen on a basis
of more continuous work over a longer period, although at a lesser scale. It
insured workers' jobs until 1944. It appealed to the skilled workers 60 years
old or more, who knew their jobs and also to the Missouri State Employment
Service, the American Federation of Labor and the Office of Production Manage-
ment to scan the personnel of non-defense industries for firms threatened with
shut-downs by priorities.
This office is planning a comprehensive registration of high-school students
between 16 and 18 years of age. Discussions with the various school principals
are anticipated to make plans for the registration and to foster closer relationship
and understanding between school advisers and employment counselors and to
encourage school advisers to visit the employment office. This program should
place the employment service more firmly in the minds of these young people
who are registered and who are soon to become active participants in the labor
market.
The registration is to begin about November 1 and thus should assist in making
an additional supply of available applicants who might assist in the Christmas
rush, even though they are enrolled in school.
Other develoTpments.
Labor disputes in the St. Louis area are now at a minimum. The only contro-
versy of any note, which threatens to become of extreme importance, is a juris-
dictional dispute at the TNT plant involving machinists and hoisting engineers.
If an agreement is not reached soon, a general strike of 7,000 American Federation
of Labor machinists has been threatened. Of this 7,000 80 percent are working
on defense orders. The question in dispute is based upon who has the right to
bargain for 22 mechanics employed b}' Fraser-Brace Construction Co. Recently
60 machinists at the United States Cartridge Co. went on a sympathy strike.
Strikes are still in effect at three large hotels and cold storage companies. None
of these has as yet affected the labor supply for defense industries.
The strike of Local 1080 of the Congress of Industrial Organizations Steel
Workers Organization Committee, closing four automobile and truck-body
companies and involving some 350 welders, metal workers, assemblers, and press
and shear operators was settled on October 10. A general increase of 6 cents
per hour was allowed for the present and an additional 4 cents in January 1942.
Transportation offers no problems and evidence indicates that such will be true
for some time to come.
Housing for the present is adequate.
Section B
Labor developments in the construction industry.
From all indications there continues to be an adequate supply of building labor-
ers available for any construction activities in sight.
Edwin Meinert, secretary of the carpenters' union (American Federation of
Labor) states that the peak employment for carpenters was reached during the
months of June, July, and August, and that the level of employment for carpen-
ters will soon begin to decline rather rapidly. He estimated that at the peak of
employment about 5,500 American Federation of Labor carpenters were working
on defense and other large projects. About 4,000 men are members of the
St. Louis local and the 1.500 come from the outside. At the present, about 900
SS^Q ^''- J'*'ii^ iii;ai{i.\(JS
of tlicsc iiu'ii fidiii tlic outside, \\n\v nu)\<'(l into other ureahs or have .secured jobs
outside of the huildiiiK trades. The local has issued stop orders on further niijfra-
tion tg the area and has not experienced any difficulty in filling all orders for
carpenters.
Itesidential builders liave experienced difficulties in k('('i)iii>; llicir carpenters and
cement finishers because of the wages and hours difi'ereiit ial on defense and heavy
types of const ruction jobs. Also there has been a serious material shortage in
residential building. ])art icularly in plumbing sujjplies and fi.xtures, consec|uently
there has been an indirect curtailment of job opportunities for all of the l)uilding
trades in the residential field.
This fact makes a large supply of construction workers available for defense
projects and also makes them available for defense production if they possess the
requisite secondary skills.
Iron workers, electricians, and sheet-metal workers have been somewhat scarce
and there has been some tendency to grade down job specifications.
lOdward Donnelly, secretary of the bricklayers' union, reports tio sliortage of
bricklayers for defense projects. Tlie local has been able to meet practically all
needs and many extra have been availal^le to them from the outside areas. At the
present time a considerable number of Ijricklayers are experiencing lay-offs.
The American Can Co.'s new $2,000,000 plant is now in the first stages of con-
struction. This should develop considerable demand for carpenters and other
workers in the building trades, and should in turn counteract some of the lay-offs
on defense projt^cts which are nearing completion.
The following paragraplis will l)riefly describe the labor situation applied
spacifically to (lie various large defense construction projects in the 8t. Louis area:
Emerson Electric Co. — The Emerson l']lectric Co. is still in the early stages of
construction work on a gun turret plant which is to be completed somewhere near
March 15, 1942. At the present time, it is estimated that the plant is between
one-fourth and one-third completed and the peak of employment has been reached
for all occupations except that of carpenters and laborers. The peak of tftese
two classes will be in November of this year. It is not expected that there will
be any difficulty in filling these openings due to the layoffs on other projects.
Cnrliss-Wright Aircraft Corporiiliott. — The plant expansion for this concern has
readied about 90 percent comi)letion, l)ut recently a small, old factory building
has been emptied and removed, and in its place is being erected a new building
to become a i)art of the main factory. This is the last phase of the job, and a
small increase of workmen is expected temporarily in their respective trades. It
is anticipated that this project will be com])leted next month; consequently,
layoffs may be expected soon.
United States Cartridge Plant. — The construction of this plant has reached
approximately 40 percent completion and the peak emjjloyment for all trades
will be reached in November 1941, with emphasis probably on carpenters, brick-
layers, and painters. Cirading and foundation workers will soon graduallj'
decrease. All workers for this project are being supj^lied by the unions and there
has been no recruiting through the Missouri State Employment Service, except
a number of clerical and professional workers. There is still some hiring taking
place on this project, but no difficulty is anticipated in finding those iifH'ded.
Weldon Spring Ordnance Plant. — The coiistruciton of this ordnance plant has
reached somewhere near 55 percent ct)mpleti()n and is to l)e totally completed by
April 1942. Peak employment for all occupations except carpenters and cement
finishers was reached (his month. The pcnk for carpenters and cement finishers
will be reached in Novem])er. Mechanics and laborers are being furnished by
the American Federation of Labor union locals. Apparently there has been no
serious material difficulties. There is no layoff expected soon.
Jefferson Barracks. — This project, consisting of the construction of a (),000-man
cantonment, is practically completed and the lalH)r force is being rai)idly dismis.sed.
The job is now in the clean-up stages. The completion of this i)rojec( will release
ap{)roximately 3.000 construction workers, which includes ()0 carpenters, 100
laborers, 10 electricians, 12 sheet-metal workers, 5 i)lumbers, and G iron workers.
Clinton-Pedbody Terrace.- The construction of (his housing jiroject has reached
approximately 35 percent completion and the probable final conii)letion will be
in July 1942." All of (he labor is furnished by (he union locals wi(h no Missouri
State Employment Service participation. The employers s(a(e that the out-
standing diffiiculty which they are experiencing is a large labor turn-over due to
a feeling among the workers that they can get in more time on the various defense
projects. Peak employment has been reached and no more hiring is anticipated.
There are no expected lay-offs within (he nex( month.
Carr Square Village. — This housing i)n)jec(, as tha( above, is about 35 percent
completed with final completion abou( July 1942. All skilled labor is furni-sbpf^
NATIONAL DEFENSE MIGRATION 8847
by the American Federation of Labor locals and there is no Employment Service
participation. Peak employment was reached on this project in August and there
is no expected lay-off within the next month.
Labor developments in ordnance manufacturing.
United States Cartridge Co. — There are about 2,000 now employed, 850 of which
are in training and the remainder working at the tool and machine shop, in the
personnel department and in the downtown office.
There is an open request for machine adjustors for training. These men are
being hired as they can use them. At the present we are meeting their demands
through this office and the metropolitan clearance.
Supervisory workers are needed and are hard to locate. Clearance has gone
out to Illinois, Indiana, and Wisconsin, in an attempt to locate 80 men. Tool
inspectors, precision grinders, and cost accountants are scarce and have been
cleared through Illinois, Indiana, and Wisconsin. Women line inspectors are
being recrtiited here with testing a part of their specifications. Some 125 women
are being interviewed and given tests.
At the present, orders placed are predominantly for supervisors, inspectors,
foremen, clerical, production clerks, tool makers, tool crib clerks, etc.; that is,
those who will have key positions when production actually gets under way.
McQuay-Norris Ordnance Co. — This concern has been cooperating with the
Missouri State Employment Service to fill some key positions. At the same
time they have seen fit to advertise under their own name in some of the industrial
centers in the North and East.
Requisitions are now being filled for such jobs as tool grinders, gage makers,
heat treaters, centerless grinder operators, automatic screw-machine operators,
inspectors, tool makers, and screw-machine foremen. Clearance orders have
gone out for production superintendents, gage makers, centerless grinder operators
and set-up men, tool makers, tool designers, and tool grinders.
At the present time, there are some 640 persons employed, 150 of which are
office and clerical, and 490 are in training as screw-machine operators.
Atlas Powder Co. — The employment service is receiving 100 percent cooperation
from this firm, and while they are taking applications in their own office and filling
some of the jobs from these ajoplications, they have not as yet resorted to advertis-
ing or calling any of the fee agencies.
Production is just now getting under way and large orders have gone out for
foremen, guards, box makers, stenographers, firemen, acid men, pipe fitters, and
welders. Evidence indicates that the existing labor supply in this area will be
adequate to meet demands. Some key positions are still being filled from outside
the State. About 40 trainees were sent to Joplin to receive instruction so as to
act as supervisors and foremen when the St. Louis plant went into production.
Emerson Electric Co. — The turret division has some 600 on the pay roll at the
present. Of these, 400 are being trained as foremen, supervisors, and trainers.
Their schedules call for first production of turrets in November of this year
with a gradual stepping up to 100 in February, 200 in March and April, 300 in
May, and on to 1,000 per month within the next few months.
Equipment schedules call for lathe, drill press, milling machine, precision
grinder, shaper, hand screw machine, turret lathe, automatic screw-machine,
boring, tapping, vertical milling machine and gear-cutting machine operators to
a total of some 800 men as indicated in their present production planning. These
men are to be trained as indicated in the preceding paragraphs on training.
Labor developments in the machine tool industry.
The Landis Machine Co. has very quickly broken down its operations into
simple jobs. They have their own tool and die makers and no shortage of man-
power at present exists.
In the industry in general where skilled workers are needed they are very hard
to obtain, but no urgent demands are being made.
In general, there are shortages of machinists, die makers, tool makers, milling
machine operators and set-up men, engine lathe operators and set-up men, turret
lathe operators and set-up men, power brake men, shop foremen, automatic screw
machine set-up men and precision grinders.
Labor developments in the aircraft industry.
In the aircraft industry the current requirements for machinists and tool and
die makers is short by some 100 workers.
Experienced final assemblers and sheet-metal fabricating machine operators
are needed at Curtiss- Wright and are being recruited from outside of the area.
60396 — 12— pt. 23 11
8848 ST. I/OUIS IIKA KINGS
Sufficient sheet metal aircraft workers for present needs are available from the
training schools in St. I.ouis and outlying areas.
Labor developments in the clothing and shoe industry.
At the present time, the garment industry is slow, due to the fact that this is the
sample-making period. The power machine operators that were laid off for this
cause have been absorbed in other industries, such as the underwear, men's robes,
etc. In a period of 6 weeks, this area will be experiencing again the decided short-
age of trained power machine operators.
This is also true of the shoe industry. We have utilized all of the experienced
operators in this industry by transferring them to similar industries such as
leather novelties, women's belts, etc.
The Evr-Klean Seat Cover Co. experienced a severe curtailment of their ma-
terials which necessitated the closing of one of their shifts. This created a mass
lay-off of about 50 power machine operators, but these have been quickly absorbed
in other industries making barrack bags, army tents, etc.
Labor developments in the clerical and professional field.
In the professional field there has been a definite increase in the demand for
engineers, both civil and mechanical, but especially for mechanical. The supply
of qualified applicants in this field is so depleted that an acute shortage exists.
There is also a marked shortage of pharmacists with an age range of 30 tO'
40 years.
The demand for clerical workers continues to be very high. The majority of
calls are for stenographers, billers, and bookkeeping machine operators. The
supply of young men (jualified to fill these jobs seems to be almost exhausted.
This has been caused by the draft taking qualified people out of industry and an
effort to replace them by j'ounger boys, or those having definite draft deferment
ratings. Many employers are expressing a willingness to take young men w'ith
typing ability and train them on the jobs. This is especially true of billing
machine operators. The fact that many young men who previously would have
been interested in clerical work are now entering other fields which offer training
and much greater remuneration on the job causes the demand to much exceed
the supply.
Labor developments in the sales field.
There has been no appreciable change in the sales situation over the last 30
days and there is no indication of any change before Christmas. There is a
steady demand for retail sales help in neighborhood stores and a noticeable lack
of experienced qualified applicants. The outlying stores have begun to broaden
age restrictions and there is an upward trend in wage offers. No shortening of
hours is noticeable as yet. There are some stores, mostly chains, substituting
women for men whenever possible.
There has not as .yet been much change in the wholesale field, although there is
an increasing luunber of slow deliveries and curtailments due to priorities. There
are an increasing niunber of men available in the various manufacturing trades
who were earning from $1,800 to $3,600 annually as salesmen. For the most
part, these men have no special skills or training other than salesmanship. With
some exceptions, the tendency is to cut down the number of salesmen since dis-
tribution is no longer a problem.
Sales of intangibles, particularly insurance and investriients, have increa.sed
considerably. There has been a noticeable tendency to increase the number of
salesmen and to raise wages and commissions in these fields.
Retail sales of all kinds have increased considerably and there are numerous
openings for women although the wage level has remained about the same. The
number of women available for sales work has been restricted due to better job
opportunities in factories. This situation is expected to become more intense and
perhaps a serious shortage of qualified sales applicants will develop.
Labor developments for service and domestic workers.
The demand for .service workers has increased about 25 percent during the past
6 months while the supply has decreased drastically as they continue to accept
better paying jobs in other fields. Although there are still people available for
jobs, they prefer to remain unemployed and wait for better paying jobs than to
accept a jol) in this line.
The most acute shortages are in the following types of workers: Soda dis-
pensers, bus boys, bellhops, beauty operators, and elevator operators.
The domestic field is similar to that of the service workers. Demand for
domestics has increased about 42 percent during the last 6 months while from the
supply side, there is a noticeable tendency for those capable of domestic work tO'
"hold off" for factorv work.
NATIONAL DEFENSE MIGRATION
8849
Although the salaries paid domestic workers have increased nearly 100 percent
the work incentive in this line seems to be of diminished perspective as compared
to that of other lines.
The situation at this time does not look very hopeful; the supplj^ will certainly
continue to diminish and the demand to increase.
Restrictive employer specifications.
There appears to be no problem in this area at present due to restrictive em-
ployer specifications. Something might develop later as the supply diminishes
but for the present there is no problem.
Provision for effective utilization of the labor supply.
At Curtiss- Wright, plans are still in operation as described in the last report.
Training is being given in machine-tool operation as a break-down of machinist
and tool-maker classifications. A full-time supervisor of training has been hired
to guide foremen training, upgrading training and machine-tool and sheet-metal
training.
McDonnell Aircraft Corporation is still training within its own plant to upgrade
sheet-metal lay-out men, sheet-metal fabricating operators, machine-tool operators,
and others.
Busch-Sulzer Diesel Engine Co. has broken down its machinist assembly job
according to specifications for the job as set up by the Navy. As we understand
it, the Navy is supplying the jigs and fixtures, and the job specifications for
assembh'. However, up to the present time, the jigs and fixtures are not on the
job and Busch-Sulzer is using their Diesel engine assemblers for the Navy job of
hoists.
The Office of Production Management is working through Mr. Cardwell to get
this plant into a training production for production-line assembly. The Office
of Production Management is furnishing the training, the place, and is giving the
supplementary training courses.
Training will probably be given on lathes, drill presses, milling machines
grinders, shapers, hand screw machine, etc., as outlined under industries in ord-
nance production. Some of these trainees will come from the old plant and will
be upgraded.
Curtiss-Wright has lowered its .specifications on machinists so as to take on
less experienced men and those over the 65-year range.
A more general acceptance of the break-down of skills such as tool makers and
machinists is evidenced throughout the city.
In the production plants the 6-day week with two 10-hour shifts is coming into
being. Also the 9-hour day and the two-shift program is getting some recognition.
This may be in part to meet the high hourly wages paid in plants operated for the
Government.
The registration of all Congress of Industrial Organizations and American
Federation of Labor members with check lists for skills and the search for certain
classes of workers should greatly assist in the orderly transfer of workers to other
industries.
Four hundred and thirty firms used the employment service for the first time
during the 5-week period ending October 17.
Appendix A. Public training (preemployment)
School
Occupation
Number of
students
Hadley & Wellston
Machine operators, engine lathe, mill-
ing lathe, shaper, etc.
-do ..
143
National Youth Administration
Do .
Hadlev & Wellston
Woodworking ... .
Aircraft sheet metal riveting and as-
sembly, hand forming.
Hvelding
39
199
Hadley & Wellston
-
Hadlcv.-
Auto mechanic
127
40
30
Washington Tech
Chippers
AREA II (KANSAS CITY)
A. Labor market developments in the area.
1. Decreases in employment due to material shortages and priorities. — While
complete surveys and careful checks on all industries which might be afl'ected by
8850
ST. LOUIS HEARINGS
material or quota priorities are heiric: niade at the present time, only in scattered
instances so far have actual lay-olfs of workers occurred due to this factor. Check
sheets are heing obtained from all autouKjtive workers at Fisher liody, Chevrolet,
and Ford Motor Cos. pending information as to actual reduction of pay rolls
due to quota curtailment. Low stock i)iles within the metalcraft industry are
being watched almost daily as possibilities for lay-offs to enter the i>icture. Place-
ment statistics within the local office maintain about the same average as in the
last few months, with the nuijority of increased em])loyment occurring in i)lant8
processing defense contracts. Miscellaneous employment opportunities are in
general slightly better than a few months ago due to an increase in retail and
service business.
2. Training. — Training within the area is progressing nicely according to the
schedule set up by the council of administrators for defense training. At present
there are 340 trainees in school, with 92 others on the waiting list ready to go
into training when vacancies in the classes permit. Additional code C, or poten-
tial trainees, arc being interviewed each day, so that little difficulty is anticipated
in the near future in keeping the defense training classes properly supplied wi+h
trainees.
There are 338 workers who have completed training in 11 different occupational
groups and are considered partially ciualified anrl available for referral as a result
of this training either public or private. The number of workers made available
by public national defense training courses will be considerably accelerated
within the next month or so when the new training facilities outlined in last
month's re[)ort become available.
Under present needs and demand schedules, training is adequate to keep up
with current requirements, and plans for expansion indicate that this condition
will prevail in the future.
3. Migration into and out of the area. — In order to ascertain the extent of in-
migration into the Kansas City area, a com))lete check has been made on the
status of 2,518 ap])licants registering in the local office between September 15,
and October 1, 1941, as to their j^eriod of residence within this area. The results
of this check, as shown l^elow, indicate that 38.13 percent have lived within the
local area less than 1 year. A finer break-down shows that of this group 14.87
percent have lived within the area less than 1 month. A study on the basis of
3 months' residence found 26.83 percent of the new applicants falling within this
group. A study of new applications of persons residing in the area less than 6
months showed 32.27 percent of all new applicants falling within this group.
Only 61.87 percent of new applications taken in the local office within this period
have resided in the local office area over 1 year. As indicated in the chart, this
study was made in separate age groups and by sex. The results of the check
show that a majority of the in-migrants are men, and the largest percentage of
these are in the age group from 18 to 35.
1
2
3
4
5
6
7
In Kansas
City area
less than 1
month
In Kansas
City area
less than 3
months
In Kansas
City area
less than 6
months
In Kansas
City area
less than 1
year
In Kansas
City area
over 1 year
Total aU
periods
Com-
bined
totals
Male
Fe-
male
Male
Fe-
male
Male
Fe-
male
Male
Fe-
male
Male
Fe-
male
Male
Fe-
male
A ----
8.03
1.50
.54
10.07
3.72
1
.08
4.8
14.16
2.77
1
17.93
6.25
1.66
.99
8.9
16.93
3.4
1.03
21.36
9.02
1.86
.03
10.91
19.5
3.99
1.11
24.6
10.92
2.14
.47
13.53
20.45
8.07
3.33
31.85
22.11
6.68
1.23
30.02
38.95
15.01
4.58
58.54
31.83
8.32
1.31
41.46
70.78
B -.
23.33
C
5.89
D
100
E -
14 87
26 83
32 27
38 13
61 87
100
100
F
38
13
01
87
1
DO
100
Line A represents age group 18 to 35.
Line B represents age group 36 to 50.
Line C represents age group 51 and over.
Line D represents total of all age groups.
Line E represents total of sex groups.
Line F represents grand total of groups.
■Column 1 represents persons who have been in the area served by the Kansas City ofRce less than 1 month.
■Column 2, less than .3 months.
•Column 3, loss than 6 months.
Column 4, less than 1 year.
Column 5, over 1 year.
Column 6, totals for male and female.
Column 7, combined total of male and female.
NATIONAL DEFENSE MIGRATION
8851
While no detailed studies have been possible as to workers leaving the area,
clearance activities and results of talking to numbers of applicants within the
local office would indicate that a good many men are following defense construc-
tion jobs from this area, hence leaving the local labor market temporarily.
4. Changes in methods of recruiting labor. — In occupations of stress in the local
labor market, field calls have been made to industries employing such workers to
recruit through cooperation of the respective employers any migratory workers
appearing direct at the employers' gates who are not immediately needed for open
jobs within the employers' businesses. Continuing cooperation with labor unions
and civic organizations has stressed the necessity of complete registration of all
local workers at the employment office. Visits to all local draft boards and meet-
ings with employment committeemen have set up the basis for complete coopera-
tion in the handling of returning selectees.
Also, in addition to news items in the local papers, Kansas City has been selected
as an experimental office in the use of display advertising in the want ad sections
of the two metropolitan newspapers. Single-column seven-inch ads have been
inserted by the regional office of the Social Security Board instructing applicants
in ten occupations of stringency to report to the local employment office for inter-
view. Salaries in this ad have been listed at from 65 cents per hour to $350 per
month as starting wages. Occupations covered were tool designers, aircraft
sheet-metal workers, floor molders, wood-pattern makers, engine lathe operators,
all-around machinists, milling-machine operators, tool makers, and loftsmen.
In addition to these methods, check sheets have been distributed in the three
motor assembly plants, Fisher Body, Chevrolet, and Ford, and the local office
has put on a night shift until 10 o'clock each evening to reinterview all automobile
workers as scheduled from the respective plants and union organizations. Also
during the night shift, employed workers who cannot report during the day are
instructed to come in for interview, and within this group a few needed men are
being recruited from nondefense industry and from jobs where full skill is not
being utilized.
As a further check augmenting the items listed in the chart from 1 to 7, addi-
tional studies have been made during the current month within the local office
as to the number of workers currently in the labor market but unemployed and
currently in the labor market but employed. In the case of new applicants who
are unemployed, the break-down shows the percentage of those who were last
employed in the Kansas City area and those who were last employed outside the
Kansas City area, regular and temporary, by sex. Column 10 presents some
rather interesting figures as to the number of employed workers registering at
the local office during the current month, with a total in all age groups, male and
female, of 18.51 percent of new applicants falling in this category. Column II
shows the percentage of new applicants in the local office during the current
month who were entering the labor market for the first time, and column 12
shows the percentage of workers who were reentering the labor market.
Last employment in
Kansas City area
Keguiar Temporary
Male
Fe-
male
Male
Fe-
male
Last employment outside
Kansas City area
Eegular Temporary
Male
Fe-
male
Male
Fe-
male
10
Employed
at time of
registration
Male
Fe-
male
Entering
labor market
first time
Male
Fe-
male
Reentering
labor
market
Male
Fe-
male
A
B
C
D
E
F.
11.71
4.31
1.57
17.59
13.05
3.55
1.77
18.37
3.52
.43
.24
4.19
35.96
3.71
.63
.29
4.63
13.17
3.72
1.39
18.28
7.79
2.33
.36
10.48
4.82
.25
.07
5.14
54.78
8.82
28.76
2.33
.43
.05
2.81
8.15
3.16
1.31
12.62
4.43
1.18
.27
5.89
2.57
.25
.00
2.82
4.47
.75
.14
5.79
27.77
8.62
3.99
40.38
24.25
7.11
1.24
32.60
36.71
18.51
18.51
8.61
8.61
72.98
72.98
Line A represents age group 18 to 35.
Line B represents age group 36 to 50.
Line C represents age group 51 and over.
Line D represents total of all age groups.
Line E represents total of sex groups.
Line F represents grand total of groups.
gg52 ST. LonS IIKAKIN(;S
A further study of the applicants in the local office duriuR the current month,
columns 13 and 14, shows a break-down of percentages of ai)i)Hcants expressing
preference in placement within certain occupational groups following the lines of
their regular occupations. Column 14 indicates the percentage of these people
making apiilicalion in tlie local office who expres.sed no occupational preference
at the time of interview.
In many instances wliere aptitudes and some knowledge of the industry war-
ranted, ai)plicants expressing preference in occupations other than their regular
work were found to be candidates for defense training to make them qualified and
availal)le for the occupations of their i^refcrence.
13
14
Occupational preference
No preference
indicated
Regular occu-
pation
Other than regu-
lar occupation
Male
Female
Male
Female
Male
Female
A.
0.41
.16
.14
.71
0.87
.24
.24
1.35
1.31
.32
.07
1.70
2.06
.63
.12
2.81
38.13
11.11
5.94
55. 18
28.95
B -
7.95
c
1.35
D -
38.25
E ---
2.06
4.51
93 43
F
6.57
93.43
Line A represents age group 18 to 35.
Line B represents age group 36 to 50.
Line C represents age group 51 and over.
Line D represents total of all age groups.
Line E represents total of sex groups.
Line F represents grand total of groups.
B. Labor market developments in important industries in local office area.
The major industries affecting the labor market in the Kansas City area are the
food-processing industry, the garment industry, and the metalcraft industry.
1. The food-processing industry. — (a) Relation of demand to supply of labor:
Labor requirements within this industry call for no special training of the majority
of workers, so that new workers may be inducted into a great number of the jobs
from many diversified occupational groups. While demand for labor has shown
some increase within the current month, supply has proven entirely adequate and
no difficulties are anticipated in the near future.
(b) Restrictive employer specifications: There are no restrictive employer
specifications within this industry that would limit seriously the employability
of available applicants.
(c) Utilization of the local labor supply: Very largely throughout the food-
processing industry local labor supply is being utilized in both majority and
minoritv groups, with race, creed, or color having little effect on utilization. A
great number of female workers are used in the packing, wrapping, and boxing of
food items within this industry, which further adds to the flexibility in the handling
of orders from these firms.
2. The garment industry. — (a) Relation of demand to supply of labor: Nearly
all the major plants in tliis industry have Government contracts for the making
of Armv or Navy garments, hats, caps, and accessories. The heaviest demand
for labor within the industry is for powder sewing-machine operators, in which
occupation fluctuation in employment is so violent as to make any control or
check of the situation valid only momentarily. In general, so far it has been
possible to keep up with current demand except in a few instances where employers
have been unable to get the quality of operators required at the moment they
w6rG nGGciccl.
(b) Restrictive employer specifications: Employers within the area are reticent
to accept beginning w^orkers in many instances because of the expense involved m
the necessarv training for line production within the industry. Also, older workers
are frownedupon because in many instances they are "too slow" to keep up with
the line production pressure. A few employers are taking some trainees into their
plants at the present time, but very few of them will use any of the older workers
with Work Projects Administration training in sewing rooms who might otherwise
be available for power-machine jobs if the qualification requirements w^ere a little
less stringent.
>'AT10NAL DEFENSE MIGRATION 8853
(c) Other employment conditions: Employment within this industry is very
largely dependent upon experience in the handling of the types of materials and
products, as for instance, coat workers are not considered qualified by cotton
dress manufacturers, and vice versa.
3. The metalcraft industry.- — (a) Relation of demand to supply of labor:
Within this industry, supply would be lagging considerably behind demand if all
possible expansions were to be met in the four and five code skilled groups.
However, training, upgrading, job dilution, and extended recruitment are enabling
the local office to handle the situation so that as yet no major retarding of produc-
tion has entered the picture.
(6) Restrictive employer specifications: Many employers within this industry
-are still using skilled men on jobs which do not require their full skill, and every
effort is being made by the local employment office to rectify this situation as
rapidly as possible. In some instances, job changes are inherent in the situation
as better job opportunities requiring full skill of workers become available and
workmen change jobs to improve their employment status by the utilization of
their full skills.
(c) Utilization of the local labor supply : Every conceivable recruitment method
has been instigated by the local office to locate and register the entire available
labor supply for this industry so that there will be no lost skills locally.
(d) Other employment conditions: Material priorities have entered the picture
in this industry so that it is anticipated that a few curtailments or shut-downs may
occur in nondefense plants, making these workmen available to plants with high
priorities ratings on materials for defense production. While this factor has
not entered the local market sufficiently to occasion much change of employment
a,s yet, a number of smaller plants within the industry are expecting to experience
this difficulty within the next few months. Most of the major plants in the
industry are either producing or expecting momentarily to receive a sufficient
volume of defense contracts to keep them busy for some time.
4. The chemicals and allied products industry. — (a) Relation of demand to sup-
ply of labor: Within this group, the major plant is the new Remington Arms
Go's, small-arms-ammunition plant at Lake City to which a great deal of coverage
has been given in previous reports. With the exception of a few skilled cate-
gories in which clearance has been requested, the supplj' of workers is believed to
be entirely adequate to meet the demand both in this plant and in other plants
within the industry group. There are approximately 2400 workers on the
Remington Arms pay roll at the present moment, with an estimated maximum
of around 6,000 to be employed.
(6) Restrictive employer specifications: It is planned that most of the workers
in the Remington plant will be trained on the job, so that no difficulty is antici-
pated in finding the required number of people to fully staff this plant.
Approximately 1,500 women will be employed as machine operators, which will
further simplify the completing of the induction schedule as shown in last month's
report. In some instances, the requirement of proof of citizenship has retarded
the hiring of a few older workers born in States not maintaining these records at
the time of their birth, but in many of these cases, affidavits and other docu-
mentary evidence have been accepted so that this has not proven a major difficulty.
(c) Utilization of the local labor supply: As previously reported, nearly all the
workers in the Remington plant will be local people, with the possible exception of
a few highly skilled men who are being recruited from outside the area to meet
current demands.
(d) Other employment conditions: While other plants within this major group
are all minor parts of the local labor situation, a few smaller firms are expected to
experience difficulty due to a shortage of some chemicals required in their produc-
tion. This, however, is such a small factor in the local labor market that the
over-all effect will be negligible.
5. The trans-portation equipment industry. — (a) Relation of demand to supply of
labor: The major plant within this industrial group is the North American Avia-
tion Cprporation across the river in Kansas. Due to the artificial barrier of the
State line between the local office area and this plant, the entire metropolitan
area is affected by the staffing requirements of this plant.
So far no actual production has been started, but sheet-metal trainees are being
given their final week of training in the plant at the rate of 50 per week, 25 trainees
from Missouri and 25 from Kansas. The first group of 25 sent to the plant on
October 6 has resulted in 17 of the 25 being placed on the North American Aviation
pay roll. It is anticipated that this schedule will be continued for some time before
it can be increased to meet the requirements of actual production. It is our
understanding that the first main jigs in the plant are still in the process of building
and that it will be after the first of the year before the first plane is rolled off the
8854
ST. IX)UIS HEARINGS
lino. MiscollaiiooiKs workers arc bciiifi hired from holli sicies of the State Hue, but
as yet no diffieiiltios liave Ixcii experienced.
\\ith tlio necessity of training all sheet-metal workers through the national
defense training school before induction into the plant is possible, and with these
facilities bein^; aumnenled to produce an adequate supply of workers as needed, no
difliculties are anticipated in supplying the necessary workers to this j)lant.
(h) Restrictive employer specifications: Ho far no restrictive employer .specifi-
cations have entered the picture to retard the proper staffing of the plant.
(r) Utilization of the local labor su{)ply: The local employment odice is con-
tinuing to test for referral to the schools all candidates showing aptitudes and
physical qualifications for this work who express an interest in qualifu'ng them-
selves for aircraft production through training or w^ho have the training or funda-
mental ciualifieations for work in the plant. There is still a backlog of several
thousaiui tested candidates for training who will be called into training as rapidly
as facilities for training are avilable. Statistics as to the present status of this
training appear in the early part of this report.
fi. Anticipated hirings by firms reporting under ES-270 program. — Reports from
102 employers in Kansas City whose industrial activities are of significance to the
organization of the national defense program indicate that within the next 6
months these employers expect to hire 6,817 workers. Summary of these expected
hirings, by occupations, is as follows:
Summary of employer labor needs, September 1941 to February 19^2
Occupation
Total
Current
1 to 2
months
2 to 4
months
5 to 6
months
Total
6,817
200
2,523
2,349
1,745
Mechanical engineer
8
1
1
70
1
3
2
37
29
8
10
8
219
25
6
91
59
12
68
45
5
2
16
19
8
12
34
6
6
1
3
37
2
8
24
9
7
6
54
6
15
6
6
3
13
3
7
2
1
2
2
2
Draftsman, mechanical .
Roadmaster
1
Inventorv clerk
Yard clerk . .
1
2
1
11
9
3
3
4
78
10
2
30
15
4
29
22
2
2
6
17
8
3
12
2
6
Production clerk
Stenographer
\
4
2
2
1
1
31
12
18
1
Stock clerk II . ...
11
9
3
3
3
65
10
2
30
15
4
19
12
2
11
Tool clerk
9
Porter II
Elevator operator, freight . .
3
Grounds keeper I..
Machinist II
45
Job setter II . ......
5
Die maker II
Tool maker..
2
19
Tool inspector .
11
Tool hardener . _
4
Engine-lathe operator ..
4
7
16
Milling-machine operator II . .
4
Inspector _
Sheet-metal worker II
1
Sheet-metal worker . .
2
6
4
Welder, arc
Welder, acetylene
Welder, combination .
3
4
3
12
2
3
Electrician
Electrical repairman
6
2
Lens grinder ... .
i
Patternmaker, metal
Bricklayer II . .
2
12
2
8
8
4
2
2
15
3
15
2
3
1
4
1
2
1
12
Carpenter I .
12
Carpenter, finish
Painter I
8
3
2
1
15
3
8
Steam fitter
2
Locomotiye engineer II .. . .
1
3
10
2
Stationary engineer
Millwright
14
AtUomohile mechanic
2
3
1
4
1
2
2
Elevator repairman
1
Instrument repairman .
Tool-grinder operator
4
Battervman II
1
Foreman (machine tool and accessories)
2
NATIONAL DEFENSE MIGRATION 8855
In the revision of the labor marPcet areas of the State, this area comprising 51
counties and serviced by 16 offices of the employment service was made to cover
the north half of the State except those few counties within the St. Louis and
Kansas City metropolitan areas. This area includes most of the better grade
agricultural land wliere grain and stock raising predominate. The larger cities
in the area are normal trade centers with little industriahzation except in St,
Joseph, which has a population of approximately 100,000. Elsewhere the
scattered industries are small independent factories or branch plants of larger
concerns located in St. Louis. Since August 1940 this area has received approxi-
mately $1,500,000 in defense contracts. However, the greater portion of these
contract commitments have been for the manufacture of garments for the armed
forces.
Decrease in employment due to material shortages and priorities.
Decreases in employment due to material shortages and priorities have been
insignificant. A few small employers are complaining of material shortages but
resulting lay-offs represent only a small total. Private construction which has
been quite active is slowing down and some workers are being released. A candy
company in St. Joseph employing 350 workers announced it would discontinue
business because of failure to negotiate a satisfactory union agreement but there
is possibility of a change in attitude of the owners. Cereal manufacturers in
St. Joseph are contemplating seasonal lay-offs. A structural steel company in
St. Joseph engaged in the fabrication of structural steel is anticipating a lay-off of
a small number of workers caused by material shortages.
A shoe factory at Hannibal is shut down undergoing a changeover from ladies'
to men's shoes and all of its 800 employees will be reemployed about December 1,
A company manufacturing metal furniture in Hannibal expects to lay off approxi-
mately 115 employees due to material shortages.
Training of workers.
Although the area has not been affected materially by national defense con-
struction or production, defense training continues at several points. Recent
reports from the State Advisory Committee for Vocational Education show the
following enrollments in preemployment refresher and supplementary training
courses: Aircraft sheet metal, 98; welding, 26; bench metal working, 13; machine
shop, 24; tool and die making, 17; and specific machine operating, 466: total, 644.
National Youth Administration residential training centers have been established
in Louisiana and Fulton. Training in industry courses in sewing machine opera-
tion are being conducted in Marshall with 87 enrollments. Practically all trainees
completing these course have been placed. The University of Missouri at Colum-
bia is conducting classes in machine-shop practice and has liad no difficulty in
placing trainees. An airplane propeller plant in Columbia has had some difficulty
in securing workers in some skills and is now training gluers and whittlers in its
plant. Elsewhere very little in training is reported.
Migration.
Migration from all points in the area, except Louisiana, continues, particularly
construction workers, and some who have not left are waiting for orders from
defense areas. Louisiana recently received the first major defense project in this
area and is sharing with St. Louis, Neosho, and the other areas this immigration.
Many of the workers have left the State, notably to the west coast.
Other developments.
Stoppage of work because of labor disputes has not been noticeable. Few
strikes have been reported and they have been settled quickly. Labor pirating
has not become evident although some competition for workers is developing in
lower salary ranges in restaurants and retail stores.
Agriculture.
Throughout the area there are seasonal demands for agricultural workers.
The difficulty in obtaining workers has been due to low wages offered rather than
to unavailability of workers. Where wages have been reasonably comparable to
wages paid in other lines, the supply of seasonal as well as regular farm workers
has been adequate.
8856 ST. LOT'IS IIKAKINCJS
Construction.
Construction of the anhydrous-ammonia plant at Louisiana has been slowed
down by rains. The land has been acquired, contour survey completed, and the
survey crew is layinfj; out plans for buildings. Some grading has been done for
the erection of temporary ollJces. The construction quartermaster has been
recruiting office workers through the Employment Service but there are less than
100 workers on the contractor's pay roll. The peak employment on the project
is still indefinite but it is cjuite probable the previous estimate of 5,700 should
be reduced. Indications are that a large percent of workers will b(! laborers of
which there is an abundant suj)ply. Some skilled workers are inmiigrating and
these with those awaiting clearance orders through other oflices will be sufficient
for all contemplated needs.
Other industries.
Other industries in specific defense categories are not important in the area but
there is one that seems important to the defense ])rogram. The largest ceramic
clay deposits in the world are in this area. Firebrick and kindred products are
essential to construction of foundries and power i)lants in ships. The three com-
panies in this line at Mexico produce an important part of the world's supply.
They are working at capacity but have no difficulty in obtaining workers as they
hire unskilled laborers and train them in their plants.
Nondefense industries are having no difficulty in obtaining workers.
This area includes 10 counties in the southwest corner of the State served by
the Joplin, Monett, Nevada, Carthage, and Neosho offices of the employment
service. The northern half of the area is good farming land under which are
extensive soft-coal deposits. The principal crops in the southern half are straw-
berries, grapes, apples, and large acreages of beans and tomatoes which are
contracted to many small canneries. Joplin, the largest city and chief trade
center, is within the Tri-State lead and zinc mining field, largest in the country.
The major defense activity in this area is the construction of Camp Crowder at
Neosho.
Decrease in employment due to material shortages and priorities.
The general trend of employment is upward. Lay-ofTs, other than a few sea-
sonal workers, have been negligible. Only one employer has reported any
decrease in employment because of material shortages. Sixteen employees of
this company^have been reduced to part-time employment because of shortage
of spring wire and sheet metal.
Training.
Present enrollments in vocational education, national defense, training courses
include 55 aircraft sheet-metal workers, 60 machinists and machine operators,
12 wood and metal jig builders, and 14 welders. The National Youth Adminis-
tration is training about 100 in its radio and carpentry shops. The only private
school is training its students to pass Army and Navy tests in heavy welding.
Migration.
For the past 3 or 4 months, immigration in the area has been heavy due to
publicity concerning the large Army cantonment now under construction near
Neosho. Many of these moved into the area to establish residences so they might
have preference in employment on the project.. In the carjx'iitry line alone over
2,200 applicants are registered. A recent iKUising survey by the chambers of
commerce of Joplin, Webb City, and Carthage revealed that 1,700 i)ersons had
moved into these cities in 90 days. Smaller towns have had corresj)onding
increa.ses and tourist and trailer camps and farm houses are crowded.
Other developments.
There has been a noticeable increase in nvnnl)er of employers using the emi)loy-
ment service for the first time and a corres])onding decrease in advertising job
openings in the newspapers. There are no labor disputes and no competition
for labor although mine owners have had some difficulty in retaining adequate
forces because of voluntary quits, presumably for better paying jobs in other
industries.
Construction.
After a slow start because of rains and difficulty in moving farm residents from
the site, construction of Camp Crowder at Neosho is making headway. Over
^'ATIONAL DEFENSE MIGRATION 8857
7,000 workers have been hired since our last report bringing the total employed
on the project to nearlj' 10,000. It is anticipated a total of 30,000 workers will
be employed, including normal turn-over. Clearance is being used in order to
secure union workers although the supply of nonunion workers in the area would
be sufficient for the job. No difficulty exists or is anticipated in obtaining workers.
Completion date has been set back from January 15, to March I, 1942.
Other industries.
Nondefense industries are operating normally with some increase in retail
trade. There are no labor shortages.
This area covers 22 counties in the south-central part of the State served by
Springfield, Lebanon, West Plains, and Rolla offices and a branch office at Waynes-
ville. The northern part of the area is devoted primarily to general farming.
Fruit and vegetable raising, particularly apples and tomatoes, are important
activities in the southern part. Springfield is the largest shipping point for eggs
and poultry, live and dressed, in the Southwest. Dairying has been developed
extensively in this area. The major defense activity in this area centers around
Fort Leonard Wood located in Pulaski County. With the exception of Fort
Leonard Wood and the Army hospital at Springfield, this entire area has only
received defense contracts in the amount of approximately $700,000, all of the
contracts being for the manufacture of various items of clothing for the armed
forces.
Decrease in employment due to material shortages and priorities.
There have been no material changes in employment in this area during the
month. No firms have been seriously afi'ected by reason of material shortages.
Vegetable canning factories are closing for the season but the resulting lay-offs
constitute no problem as these workers are mostly farm people who live in the
vicinity. Since the completion of the Government hospital at Springfield there
are many unemployed carpenters and construction workers awaiting referral to
defense projects. Supplementary construction at Fort Leonard Wood is on the
decline but only a few workers have been released.
Training.
At Springfield, preemployment refresher courses are being conducted with
enrollments as follows: General sheet metal, 135; aircraft sheet metal, 20; aircraft
riveting, 20; welding, 15. Defense training courses in welding, machine shop,
and wood pattern making are conducted by the National Youth Administration
with present enrollment of 75 to SO. A school for sewing-machine operators is in
operation in Lebanon. There is practically no in-training in the area.
Migration.
There has been no migration into this area recently. A few construction
workers are leaving and many others are awaiting calls to other areas.
Other developments.
Due to lack of any great demand for workers there has been no development
of any importance in competition for labor or in the manner of obtaining em-
ployees.
Agriculture.
Agriculture with its processing and marketing facilities provide the principal
income of the area. The relation of demand to supply of labor at present is
practically in balance.
Construction.
The construction of auxiliary buildings and housing facilities at Fort Leonard
Wood comprise the main construction activities in the area. At present 1,300
workers are employed b}' 3 contractors in this vicinity but peak employment
has been passed and completion dates of all projects set for November and Decem-
ber. Public Works Administration construction projects amounting to $1,000,000
have been approved for the area and are expected to absorb construction workers
released from other projects.
AREA VI
This area covers 18 counties in the southeast corner of the State served bv
employment service offices at Flat River, Sikeston. Cape Girardeau, Poplar Bluff,
8858 S'^'- I'<Jl'I''^ IIKAIUNCIS
Kemictt aiul Cnruthersvillo and a l)raiich office at Picdiiioiit. Tlio six counties
in the southeast corner of the area are fine river jjottoni hinds reclaimed through
drainage canals. They an; used for raising vegetal)les and cotton. The balance
of the area is subniarginal farm land with cattle raising as the ijrincipal activity.
The largest single lead mine in t lie world is in St. Francois County employing 2,300
workers. Througliout most of tiie area are branch plants of shoe and garment
industries with headquarters in St. Louis. The ])rocessing of cotton crops is also
a major industry.
Decrease in employment due to material shortages and priorities.
Only two employers have reported decreased cmploj'ment as a result of material
shortages, felt and steel, and the number of employees affected in small. Since the
cotton picking is 85 percent complete a large number of agricultural workers are
being released but their releases will cause no problem as many of them are return-
ing to their homes in the hill country or in other States. Those who will remain
in the vicinity can be reemployed as service workers from which occui)atioiis they
were recruited. Cotton compressors and gins will shut down about November 15.
Private construction is declining and some workers are being released.
Training.
Sixty trainees are enrolled in aircraft courses at Flat River and O. S. Y. and
N. Y. A. training is being conducted at several points. Courses include welding,
carpentry, auto mechanics, electricity and office machine operation. Several shoe
and garment factories are conducting in-training.
Immigration.
As the cotton season draws to a close there is the usual emigration of agricultural
workers from the area. As elsewhere in the State, cari)enters and construction
workers leave as buildings are completed and a few other workers leave for defense
jobs in other States.
Other developments.
Some competition for w^orkers on service and sales groups has developed in
shorter hours and higher w^ages. One strike involving 230 garment workers is in
progress with a possibility of quick settlement although some of the workers are
applying for employment at other plants. Pa}- increases of 50 cents per day have
been granted to 2,300 workers of the largest lead mine in the world.
Agriculture.
Increased wages was the deciding factor in attracting sufficient migratory
workers for harvesting the cotton. From $1.25 to $2 per hundred was paid which
is from one-half to twice last year's rate. There is positive indication that share
cropping will be much more prevalent in cotton growing in 1942 than in the past, j
Other industries. I
This area has no major defense contracts but the numerous shoe and garment
factories are working at capacity. There is a shortage of sewing machine operators
so it has been necessary to hire inexperienced workers and train them on the job.
NATIONAL DEFENSE MIGRATION
8859
gggQ ST. LOUIS HEARINGS
Exhibit B.— Prime Defense Contracts Allocated to the State of Missouri
REPORT BY unemployment COMPENSATION COMMISSION OF MISSOURI
PRIME DEFENSE PRODUCTION CONTRACTS IN ST. LOUIS, MO.
Indxistry and attwunt of contracts awarded
Acme Uniform Cap Co —
Adams, S. G., Co
Adams Net Turne Co
Adjustable Engineers Cap
Co..
Airtherm Manufacturing
Co
Alligator Co
Alex Manufacturing Co..
Aloe, A. S., Co
American Car & Foundry
Manufacturing Co
American Foundry &
Manufacturing Co
American Manufacturing
Co
American Thermometer
Co
Atlas Powder Co
Axelson Manufacturing
Co
Baars, E. N., Manufactur-
ing Co
Beehler Steel Products...
Bemis Brothers Bag Co..
Benwood Linze Co
Broderick & Bascom Rope
Co
Brown Shoe Co
Buck-X-Ograph Co
Busch-Sulzer Bros
Canvas Products Co.. —
Carter Carburetor Co
Century Electric Co
Chevrolet Motors Corpo-
ration (Chevrolet divi-
sion)
Chicago Pneumatic Co —
City Ice & Fuel Co
Cohmibia Quarry Co
Continental Can Co
Correct Cap Co
Curtis Manufacturing Co.
Curtiss-Wright Corpora-
tion
Diagraph Bradley Stencil
Machine Manufactur-
ing Co
Duke Manufacturing Co.
Elder Manufacturing Co.
Emerson Electric Manu-
facturing Co
Evers, Henry, Manufac-
turing Co
Fairbanks, Morse & Co —
Frank & Meyer Neckwear
Co
Fritz, Geo. J., Foundry &
Machine Co
Funk Brothers Hat & Cap
Co
GafTncy-Kroese Electric
Supply Co
Gcneraf Cable Corpora-
tion
General Engineering &
Manufacturing
Glasner Brothers, Inc
Gomp Electric Co
Grady Manufacturing Co.
Gross & Janes Co
Guendler Crusher & Pul-
verizer
Hager, C, & Sons Hinge
Manufacturing Co
Hail Corporation
Heikert & Meisel Truck
Co
Hickman, William & Co. .
Hussman, Legonier Co
Independent Concrete
Pipe Corporation
Industrial Aid for the
Blind
International Hat Co
International Shoe Co
Jackes-Evans Manufac-
turing Co
Jasper Blackburn Prod-
ucts Corporation
Knickerbocker Clothing
Co
Knight.jW. B., Machinery
Co
Laclede -Christy Clay
Products Co
Lammert Furniture Co...
Landis Machine Co
Larkin Packer Co
Lehmann Machine Co
Lepshers, A., & Sons Rope
Co
Lincoln Engineering Co.__
McCabe-Powers Auto
Body Co
McQuay-Norris Manu-
facturing Co
Majestic Manufacturing
Co
Mallinckrodt Chemical Co.
Maloney Electric Co
Marks-ilass Korreckt Co.
Measuregraph Co
Medart, Fred Manufac-
turing Co
Metal Goods Corporation.
Mever Brothers Drug Co.
Midwest Piping & Supply
Co
Mines Equipment Co
Monsanto Chemical Co..
1 12, 375 Morose Cap Co
$112,507
118,086
1,922
150, 925
52, 640
1,008,476
39, 605
19, 343
58, 145
2,697
14, 632
980, 000
6, 390, 000
754, 900
6,468
599
11,210
37, 687
177, 243
6, 084, 735
297, 692
9, 611,471
281, 490
1, 335, 534
32, 736
23, 951
364, 919
4, 335
17, 760
14, 344
184, 484
241
126, 749, 616
21, 505
65, 032
103, 948
30, 565, 360
296, 670
19, 222
49, 090
40, 289
$707
7, 240
12, 819
8, 955
5, 696
11,999
160, 650
158, 862
135, 275
17
7,300
1, 247
95, 430
7,027
11, 137
112,014
10, 917, 590
1, 775, 054
354
NATIONAL DIOFENSE MIGRATION
8861
PRIME DEFENSE PRODUCTION CONTRACTS IN ST. LOUIS, MO. Continued
Industry and amount of contracts awarded — Continued
Mound City Cap Manu-
facturing Co., Inc $146, 190
Mound Tool Co 15,191
National Lead Co 1, 090
New Era Shirt Co 19, 800
Parks Air College 3, 630
Pet Milk Co 167,197
Phillips-Drucker IS, IGO
Pleetox Products Co 2,160
Premium Cap Co 1,013,723
Priesmeyer Brothers
Trunk Co 59,625
Pyramid Clothing Manu-
facturing Co 9, 450
Rawlings Manufacturing
Co 24,369
Rice-Stix Dry Goods Co _ _ 543,154
Roval Bedding Co 149,099
St. Louis Car Co 744, 600
St. Louis Cordage Mills,,. 107, 749
St. Louis Embroidery
Works 33,955
St. Louis Screw & Bolt
Co 8,568
St. Louis Steel Products, _ 223, 657
Schaeffer Brothers &
Powell Manufacturing
Co 62,656
Scullin Steel Co 1, 502, 560
Sefton Fibre Can Co 1,726,219
Shampaine Co 16,074
Shapely Cap Co 271,231
Shell Oil Co 576,146
Shillington Box & Lumber
Co.:
Singer Sewing Machine
Co
Smith & Davis Manufac-
turing Co
Society Brand Hat Co
Southern Equipment Co,.
Stix,Baer,& Fuller Co _..
Swift, John H., Co
Uniform Lettering Works,
Inc
Union Cap Co
United Drug Co
United States Cartridge
Co
Valley Electric Corpo-
ration
Vi-Jon Laboratories, Inc
Wackman Welded Ware
Co
Wagner Electric Corpora-
tion
Warner, Win. R., & Co.,
Inc
WenzelH., Duck Co
Western Cartridge Co
Western Last Co
Wcstinghouse Electric
Supply Co
Wrought Iron Range Co_ _
$13, 58]
5,225
301, 005
441, 211
105, 905
5,814
110, 250
5,348
165, 232
32, 404
87, 279, 790
23, 734
46, 203
90, 548
1, 555, 798
47, 041
9,448
18, 600, 000
56, 750
12, 853
3,439
Total 318,532,052
PRIME DEFENSE PRODUCTION CONTRACTS IN KANSAS CITY, MO.
Industry and amount of contracts awarded
Air Communications, Inc..
Aircraft Accessories Cor-
poration
American Scale Co
Baker-Lockwood Manufac-
turing
Battenfield Grease & Oil
Corporation
Bettinger Trunk Manufac-
turing Co
Burlington Overall Manu-
facturing Co
Butler Manufacturing Co__
Carnie-Goudie Manufactur-
ing Co
Columbian Steel Tank Co,
Continental Hat & Cap
Co
Cowden Manufacturing
Co
Crawford Manufacturing
Co
Dart Truck Co
Dewey Portland Cement
Co
Empire Cap Manufactur-
ing Co
$286,
041
286,
12,
207
713
760,
377
25,
845
30,
000
229,
542,
040
628
52,
355,
690
568
358,
640
356,
497
128,
28,
609
900
353,
580
29,
365
Empire Mattress Co
Frischer, Paul J
Fruehauff Trailer Co
A. Fromhold
Goodenow Textiles Co
Hardware & Supply Cor-
poration
Independent Awning Co__
International Harvester
Co
Ismert-Hincke Milling Co_
Kansas City Cap Manu-
facturing Co
Kansas Flour Mills Cor-
poration
Kanter Bedding Co
Keystone Trailer & Equip-
ment Co
Koch Butchers' Supply Co.
Lee, H. D., Mercantile
Co
Lerner Bros. Cap Co
Luce Manufacturing Co
National Cast Iron Pipe
Co
Neevel Manufacturing Co.
$94, 240
8, 291
4, 465, 040
1, 391
470, 367
4,503
25, 420
19, 400
127, 500
117,204
54, 627
29, 803
467, 729
24, 080
503, 546
51,988
239, 898
40, 197
455, 218
8862
ST. LOT IS lIKAItlNCS
P'.llMK DEFENSE I'HODUCTIOX COXTUACTS IN' KANSAS CITY, MO.- Continued
Inditslry anil aviount of conlracta awarded — Continued
New Mexico Airport Cor-
l)()ration $23, 2r)0
Roininpton Anns Co 73, 575, 2()1
Rodney Milling Co 29, 875
Soidlitz Paint & Varnish
Co
ShefTiold Steel Corjioration.
Snower Manufacturing Co_
Speas Co
Standard Asbestos Manu-
facturing & Insulating
Co
117,376
689, 083
2, 055
34, 916
437, 666
Transcontinental & West-
ern Air, Inc $36, 120
Turner Uni-Drive Co 3, 321
Unicon Co 430,699
Union Wire Kope Co 103, 342
Western Laundry Machine
Co 12,003
Wilde Drop P^'orge & Tool
Co 200,400
Wittc Engine Works 7, 443
Total 91,619,417
Standard Steel Works 4, 879, 465
PRIME DEFENSE PRODUCTION CONTRACTS OUTSIDE MISSOURI
Induslry and amount of contracts awarded
California:
California Manufactur-
ing Co $15,097
Moniteau Mills 247, 152
Chaffee: Chaflfee Manufac-
turing Co 8,068
Farmington: Rice-Stix Dry
Goods Co 222,000
Gideon: Gideon-Anderson
Lumber Co 202, 500
Holden: Hipsh. Inc 42, 175
Jefferson City: Oberman &
Co 477,627
Joplin: Miller Manufactur-
ing Co., Inc 223,593
Kennett: Ely Walker Dry
Goods Co 24,310
Mexico: A. P. Green Fire
Brick Co 78,569
St. Joseph: Sun Manufac-
turing Co 76, 000
Salem: Ely & Walker Dry
Goods Co $218,448
Sedalia: J. A. Lamy Manu-
facturing Co 1 99, 4 90
Slater: Rice-Stix Drv Goods
Co ". 266,812
Southeast Missouri: Gross
& Janes Co 6,962
Springfield:
Citizens Drug Co 4, 675
Oberman & Co 479, 382
Tipton: A. F. Martin Manu-
facturing Co 198, 997
Warrensburg: Brookfield-
Garrison Manufacturing
Co 77,910
Webb Citv: Atlas Powder
Co 1 683,230
Total 3,752,997
Exhibit C. — Report of Workers Displaced as a Result of Shortages of
Materials or Parts
Report by Missouri State Employment Service, Jeffersoyi City, Mo.
Industry
Number
employees
Number workers
to be laid off
Date of lay-off
Bt. Louis;
Nov. 13, 1941.— Manufacturing bedsprings
35r)
175 semiskilled
Dec. 15, 1941.
and spring products.
Nov. 1, 1941.— Manufacturing weather-strip
8
3 skilled
Shortly.
molding.
5 semiskilled
Do.
200
100 skilled
50 already off.
coin vending machines.
50 semiskilled
Remainder off.
.50 unskilled
Jan. 15, 1942.
Nov 1.3 1941 — Manufacturing pencils, ciga-
55
2 skilled
Dec. 15, 1941.
rette lighters, and pocltet knives.
23 semiskilled
Do.
2 unskilled
Do.
Nov. 13, 1941.— Manufacturing metal stanij)-
l.TO
20 .skilled
Jan. 15, 1942.
ings, tools, and repair machine shop.
80 semiskilled
Do.
25 unskilled
Do.
Nov. 12, 1941.— Manufacturing metal furni-
5ti7
2 skilled _.
Nov. 15, 1941.
ture.
32 sciiiiskilled
Do.
Nov. 12, 1941.— Manufacturing thermometers
244
35 uiiskilhHL
Nov. 7, 1941.
and thermostats; telescopic gun-sight
40,-;ciiiiskilled
Do.
mounts.
S5 unskilled.
Do.
NATIONAL DEFENSE MIGlJATIOXi 8863
Report by Missouri State Employment Service, Jefferson City, Mo. — Continued
Industry
Number
employees
Number workers
to be laid off
Date of lay-off
St. Louis — Continued.
Nov. 1, 1941.— Manufacturing commercial
display fireworks.
Nov. 6, 1941.— Steel rolling mill
Do
Nov. 13, 1941. — Manufacturing bedsprings,
cots, beds, etc.
Nov. 10, 1941.— Manufacturing sash and
counterweights.
9
344
580
276
65
600
460
1520
975
75
6 semiskilled
106 unskilled
121 unskilled
15 skilled
105 semiskilled
50unsk01ed
55
10
Sept. 13, 1941.
Oct. 15 to Nov. ], 1941.
Oct. 1, to Nov. 1, 1941.
Dec. 1, 1941, to Jan. 15,
1942.
Do.
Do.
Oct. 3, to Nov. 1, 1941.
Do.
Kansas City:
Nov. 13, 1941.— Manufacturing steel oil drums,
tanks, airplane parts.
Nov. 13, 1941.— Manufacturing steel tanks
Oct. 28, 1941.— Manufacturing, automobiles.. _
Oct. '28, 1941.— Manufacturing automobile
bodies.
Out-State; Manufacturing hats
50 skilled
150 unskilled _
100 unskilled
10 skilled
160 semiskilled
150 semiskilled
50 unskilled
75 skilled
Oct. 18, to Oct. 24, 1941.
Do.
Oct. 20, 1941.
Nov. 1, 1941.
Do.
Do.
Do.
Nov. 3, 1941.
Exhibit D. — Preemployment Defense Training by Occupations
Report by Unemployment Compensation Commission of St. Louis, Nov. IS, 1941
Occupation
Area
Number of
courses
Number in
training
Springfield
North Kansas City
St. Louis.-
St. Charles
2
1
1
1
52
25
80
22
Total
179
Flat River
2
1
9
3
2
4
2
Aircraft sheet metal
40
St. Charles
Kansas City ..
20
188
Joplin. . .
55
Hannibal
38
Clayton
St. Louis. - .
136
45
Total.
522
St. Louis
Kansas City .
2
1
1
1
Chipping (metal or air hammer)
20
Electric welding
10
North Kansas City...
St. Joseph
11
12
Total
33
St. Louis
Kansas City
1
1
2
1
Oxyacetylene welding. . ... ...
17
4
North Kansas City. . .
Fort Leonard Wood...
20
14
Total. _ ..
55
St. Louis
4
2
1
1
1
1
1
Gas welding
71
Kansas City.. .. ...
General welding (tvpe not designated) .
30
St. Louis
St. Charles
25
16
Hannibal
Springfield
Clayton .
12
21
16
Total..
120
Kansas City
1
1
Foundry work
15
Metal work (bench or general) ...
Jefferson City
13
60.396 — 42 — pt. 23-
-12
8864
ST. LOUIS HEARINGS
Report by Unemployment Compensation Commission of St. Louis, Nov. 13, 1941-
Continued
Occupation
Area
Number of
courses
Number In
training
Machine operation (for specific machine operations)
Joplin
4
10
6
6
4
3
4
1
10
4
1
1
2
61
Kansas City
211
Jefferson City
114
St. Louis
IGO
St. Joseph
48
riavton -.
37
Flat River
llannihal
40
10
Louisiana ..
246
Trenton
48
Columbia
Mexico
15
10
Springfield
32
Total
1,000
Springfield
6
8
2
4
1
1
135
St. Louis .. . ..
260
St. Joseph
24
Kansas City..
77
Clayton
13
Webster Groves
15
Total
509
Vocational education- — National defense supplementary training in Missouri
Machine shop courses:
Bonne Terre
Clayton
Joplin
Kansas City
Mexico
St. Joseph
St. Louis
Total -
Welding:
Fort Leonard Wood.
Clayton
Joplin
Kansas City
Mexico
St. Louis
St. Charles
Total
Wood pattern making and ma-
chine shop:
Bonne Terre
Fort Leonard Wood
Total
Sheet-metal i work: Bonne Terre.
30
12
15
45
40
24
134
300
14
12
14
101
13
166
44
364
54
50
104
90
Teacher training: Fort Leonard
Wood 50
Typing: Fort Leonard Wood 120
Army ordnance inspectors: St.
Louis 30
Explosives: Joplin 25
Drafting and lay-out:
North Kansas City.
Kansas City
St. Louis
20
11
125
Total.
156
Aircraft foremanship:
Overland
St. Louis
Total.
55
30
85
Chipping
Louis. _
(air hammer) : St.
10
Total:
Kansas City training 157
St. Louis training 495
Other training 682
Grand total 1,334
Exhibit E. — Migration in Missouri
report by walter erb, district supervisor in charge of farm placement,
missouri state employment service, .tefferson city, mo.
The problem of migration in Missouri i.s not so much one of immigration as it
is migration. This statement is made on the basis of observations both in the
field of farm labor and unemployment insurance benefit payments, particularly
of a multi-State nature.
I
NATIONAL DEFKNSE MIGRATION 8865
Southeast Missouri, or perhaps one would better say the seven counties in
the extreme southeast corner of Missouri, constitutes one of the largest farming
areas in the United States and, until recent years, has been an area in which corn
and cotton have been the principle crops, with cotton, of course, being the crop
requiring vast numbers of seasonal workers with two specific peaks during the
year, namely, the cotton chopping in the spring, and cotton picking in the fall.
In this area a certain amount of migration occurs annually and is usually from a
south to north direction. This is not the entire migration, however, but is further
supplemented by what we term mobile labor — that is to say, small farmers from
the hill section to the north and northwest of this area, plus small farmers from
Tennessee and Kentucky, who, during the peak seasons in this area, supplement
their farm income by the cash income that they can secure by moving into the
area to perform this day-labor work; and who, upon completion of the crop,
return immediately to their own farms. Such an arrangement, therefore, obvi-
ously reduces the problem of migration to a considerable extent. There is, how-
ever, some migration during the spring of people from the South and Southwest,
who have been following the strawberry crop through north central Arkansas into
Illinois in the vicinity of Anna and Murphysboro and thence on to Wisconsin and
Michigan for other early fruit harvests. Even in this group there is a certain
portion that, upon the completion of the cotton chopping in the southeast section
of Missouri, turn westward again to the bean fields and to other truck crop areas
in Arkansas and Louisiana.
In southwest Missouri, in a section of four counties consisting of Newton,
McDonald, Barry, and Lawrence County, which comprise one of the principal
berry areas in the Midwest, considerable immigration occurs with the progress of
the strawberry harvest from Louisiana northward. Many of these people move
on from this harvest to the potato harvest in the Kaw Valley and to small berry
crops farther north. Here again a goodly portion of the harvest workers is made
up of the mobile labor from the hill country to the east and northeast of the area.
There is one other area in Missouri that uses large numbers of temporary farm
labor, namely, the Orrick Bottoms located along the Missouri River from Lexing-
ton in Lafayette County westward to the eastern edge of Kansas City. This
area is a large potato-producing section and during the 4-week harvest period of
June through July has always used large numbers of extra harvest hands. In
this latter area, which lies at the border of one of the principal coal mining sections
of the State, much of the labor for the harvest period is composed of the miners
who are unemployed during the summer months which is a slack season for the
mining industry. There are, however, many migrant workers that come into
this section during the harvest season each year, who as a rule upon completion of
the harvest in that area, move northward to the Red River Valley. In conjunc-
tion with the southwest Missouri strawberry area, as an item of additional informa-
tion, I am submitting with this report a copy of a "Brief Study of Seasonal
Workers — Southwest Missouri," made from the registration records of workers
during the 1940 berry picking season and which, I believe, will give you additional
information as to the general direction and pattern of movement through the area.
In the initial paragraph of this report I mentioned multi-State payment of
unemployment insurance claims: If you will take a map of Missouri you will note
that in the area between the southwest and southeast corners, which are referred
to as principal crop areas, that there are a series of counties which, beginning
the Arkansas line and running north toward the central part of the State and the
Missouri River, are mountainous and represent the major portion of the Ozark
area in the State. The bulk of this land is marginal and in the early days of our
State was principally a lumbering area. There is still some lumbering activity,
such as tie and stave-bolt cutting, carried on to considerable degree. Due to the
marginal type of land and the background of the people who have settled this
section of Missouri, it is not surprising that we find large numbers of the people in
this area who migrate from their homes in the hills into the North and Northwest
part of the United States following the lumber industry found there, and in addi-
tion many who go into the Western States for the beet harvest, broomcorn
cutting, as well as the fruit picking and packing of the Pacific Northwest and who,
upon completion of this employment, return to their homes in Missouri in the off
seasons of such employment and there carry on the limited farming activities
suited to the area.
8366 S'^'- I^OUIS IIKAHINGS
Exhibit F. — Seasonal \\ Orkeus in the Strawbehuy Harvest of Southwest
Missouri
retort by WALTER ERB, DISTRICT SUPERVISOR IN CHARGE OF FARM PLACEMENT
MISSOURI STATE EMPLOYMENT SERVICE, JEFFERSON CITY, MO.
Tlio production of strawberries in Missouri is very largely confined to four
counties in southwest Missouri. Within this area the jirincipal berry growers'
associations are located in \eoslio — Newton County, in Anderson — McDonald
County, and at Butterfield, Jvxeter, Cassville, Monet t, and Purdy in Barry
County.
Usually the number of pickers moving into this area ran into the thousands.
Such workers, of course, have presented many problems to these small communi-
ties in the past.
The Missouri State Employment Service this year established a farm placement
service for the first time, and initial effort and emphasis has been pointed toward
being of service to the growers (employers) engaged in producing, harvesting, and
shipping of seasonal crops by taking over the task of handling the labor needed in
such crops, and through this effort to be of service to the worker by knowing where
harvest hands are needed and to route them with a minimum of effort and loss of
time on tlieir part.
Through registration of local farm workers and by close cooperation with the
growers through their respective associations, every effort was made to meet all of
their work requirements with local labor and to discourage in every way possible
the moving in of workers from other areas. This, to a rather large degree, was
accomplished through two methods.
1. Publicity. — Newspaper and radio publicity prepared by the department of
information stressed the fact that the local labor supply was sufficient to meet all
of the needs in the berry harvest.
2. Cooperation loith neighbor State farm -placement division. — Arkansas has a
highly developed farm placement service covering the entire State, and since their
berry crop precedes the one in Missouri, it is the general rule of the harvest worker
to move north with the crop.
By keeping the Arkansas Employment Service informed of our needs, their field
offices were in a position to advise people not to trek into Missouri since the crop
was small and there were sufficient local pickers to handle it.
There were, however, several hundred workers w'ho moved into the area during
the harvest, and the following data has been compiled from the registrations taken
by our interview^ers stationed in the various towns of the area during the season.
' Principal methods of travel are by car, car and trailer, truck, or hitchhiking.
The amount of camping and cooking equipment was very meager in most instances.
Most of these migrant workers camp wherever space will permit in or around the
town and as close to the berry sheds as possible in order to insure being close to
any work opportunities that might arise.
A review of these migrant workers' cards indicate that a majority come in for
the berry season only and upon its completion return directly to their homes, and
that still others follow one crop after another between the neighboring States.
It is also interesting to note that those workers coming from Kansas point
toward U S 66, which will place them at Joplin, northwest of the berry area;
those from north or east, U S 66 and U S 60; those from the southwest — Oklahoma
and Texas, U S 44 and U S 60, striking into Missouri at Seneca at the west edge
of the area; while those following the crops from the South through Louisiana and
Arkansas move into the area via 71 or 37, de])ending on whether they were work-
ing in the spinach crop at Fort Smith or in the berry crop at Bald Knob and
Springdale.
^'ATIONAL DEFENSE MIGRATION
8867
KANSAS
■Jo Springfield'
ABKAHSAS
Bed arrows indicate
poiais of eat^*
ggQg ST. Loris iii:akin(!S
Table indicating number of worker groups, by Stale, going on to other crops
From—
To-
Bean
fields,
Arkansas
Potato
harvest,
Kaw
Valley,
Kans.
Wheat
harvest
Cherry
harvest,
Michi-
gan
North
to no
definite
point
Don't
know
Arkansas -
5
1
1
2
Indiana . . .
1
1
.
i
2
Kansas - - .
2
1 1
Ohio
2
Oklahoma . . .
2
3
7
1 1
Texas
'2-
2
1
1 Rivet driver — "Trying to find place to follow trade."
' Machinist — "Trying to find place to follow trade."
3 Plumber and pipe fitter— "Trying to find place to follow trade."
Only one worker in the entire group indicated that he was registered at another-
employment ofhce. Four indicated trade skill and each of these was working along
at any job available as he moved on trying to find some place where he might find
stead}- employment at his trade.
Types of transportation
Total registered 173
Car
Car trailer.
50
3
Truck 13
Railroad side door 4
Bus 2
Hitchhike > 101
' For grouping, all persons who did not use any of the first 5 types of transportation have been classed
as hitchhikers. This will include those who have through arrangement arrived at the berry harvest by
riding with other worker groups coming to the harvest.
It is also interesting to note the small percentage of this group who indicate
occupations other than agricultural labor, and a break-down on this basis is shown
below.
Seasonal farm workers, by occupations
Barber 1
Blacksmith and tool sharpener 1
Carpenter 2
Construction labor 4
Machine oiler 1
Miner 4
Painter
Smelting hand
Students
NATIONAL DEFENSE MIGRATION
Seasonal workers — Strawberry picking, southivest Missouri
[Number registered by States)
8869
.2
a
Age group
a
<
'3
O
o
Xi
S3
'3
a
OS
a
.3
■a
a
h- 1
OS
o
s
03
a
a
.2
3
3
a
IS
be
2
1
3
o
J
o
o
a
B
o
3
o
03
>
a
a
a>
P-,
w
"3
"3
o
Under 16
1
n
n
1
1
3
1
1
16 to 17 -.
6
18 to 19
3
3
n
1
6
1
1
1
2
5
1
1
3
3
7
n
g
20
5
21 to 24 -.
?5
25 to 29
3
9
1
2
n
1
n
1
9.
3
6
1
3
12
30 to 34
?n
35 to 39
9
n
1
1
?.
1
6
n
7
n
1 ?s
40 to 44
8
4
1
4
4
3
n
5
?
n
2
9S
45 to 49
in
50 to 54
?.
1
1
?.
n
1
5
1
13
55 to 59
1
?
n
n
n
1
n
n
1
3
60 to 64
1 3
65 to 69
3
n
1
n
I 5
70 to 74
n
n
75 and over
1 Each of these figures includes one applicant who indicates that he is not from any particular State.
State, city, and color
Sex
Marital
status
Age
Number
of depend-
ents
Age range
of depend-
ents
TjTDe of trans-
portation used
ARKANSAS (132)
1 white
Male...-
-. do- ..
Married
Single
do
44
39
15
25
34
43
43
43
63
19
39
57
39
23
46
19
42
62
44
44
32
66
23
46
39
32
29
52
7
12 to 46....
Car.
Do
Hitchhike.
Do
...do- ..
Car.
Do
...do- .-
Married...-.
.... do
1
4
24
Do.
Do -
-- do-
10 to 33-...
Do.
Do
...do
Single
do.. ._
Hitchhike.
Do-_
...do
Bus.
Do
.- do
Married
-,---do
Single
Married
Single
do
6
7
12 to 39...-
12 to 38....
Truck.
Do
Do
-..do._..
...do
Car.
Hitchhike.
Do
-- do
3
8 to 38
Truck.
Do
.- do .
Hitchhike.
Do
.- do.-
Do.
Do.
...do_ ..
do.
Do.
Do.i
...do- ..
do.. ..
Car.
Do - - - -
.. do
do
Hitchhike.
Do - .-.
-. do--
Married
Do.
Do
--.do- ..
Do.
Do
. do
Single
Married
Single
Married
Single
Married
Single
.... do
Bus.
Do.i . . - .
-- do
5
14 to 41-...
Car.
Do
-- do--
Hitchhike.
Do
...do
Do.
Do
.. do
Do.
Do
. do
6
14 to 46..-
Car truck.
Do.
...do
Hitchhike.
Do
...do....
Do.
Do
...do
Married
do
1
22
Car.
Do - .
.. do
Do.
Do...
...do.. .
Hitchhike.
Do
- do
Married
Single
45
4
12 to 44....
Car.
Do
.. do
Hitchhike.
Do
...do.. -
Car.
Do
...do
do
38
Hitchhike.
Do
.. do
do
6
10 to 22..-
Do.
...do...
Single..
Married
do
33
38
42
"'"48'
40
31
33
66
70
33
19
30
54
37
Do
...do
2
5
6
16to38— -
16 to 42....
12 to 22....
Railroad.
Do... -
.. do
Car truck.
Do
Do . -
...do
- do
do
Single.
. - do
Car.
Hitchhike.
Do
.. do
Do.
Do
...do ....
.... do
Do.
Do
.. do
Married
Single
Married
Single
.... do
Do.
Do :
.- do
Do.
Do
...do
Do.
Do..
.- do
Do.
Do
...do
Do.
Do . .
. do
do
Do.
Do.i
-. do
Married
Single
8
14 to 52....
Truck.
Do
...do
Hitchhike.
Do
.- do
do
31
24
Car.
Do
...do
Married
1
29
Do.
3§7Q ST. LOT'IS HKARINaS
Seasonal workers — Strawberry picking, southwest Missouri — Continued
state, city, and color
Sex
Marital
status
Age
Number
of depend-
ents
Age range
of depend-
ents
Type of trans-
portation used
ARKANSAS ( 132)— Continued
1 white
Male....
do
Married
Single
do
■ "29"
37
50
29
21
4
14 to 26....
Truck.
Do
Hitchhike.
Do
do
Do.
CALIFORNIA (2)
Male
...do
Married
Single
Single
Single
Car.
Do
Do.
IDAHO (1)
Female
Male
...do
Pick-up truck.
ILLINOIS (7)
Truck.
Do
Married
Single
Single
.....do
36
S3
44
38
54
35
41
41
60
45
23
36
27
24
49
51
24
27
50
42
5
8to24
Do.
INDIANA (1)
1 white
Male
Male
...do....
Hitchhike.
IOWA (2)
Railroad.
Do
Do.
KANSAS (67)
1 white
Male
...do
...do
Married
do
do
6
12 to 44...
Truck.
Do
Car.
Do
2
2
14 to 29....
16 to 20....
Do.
Do
...do
do
Do.
.. do
Single
Married
do
Hitchhike.
Do
...do
7
1
4
1
12 to 45...
ITitchhike.
10 to 28....
22 - .
Truck.
Do
...do
Do -.
...do
do. -
Car trailer.
Do
...do.....
do
do
Single
Married
Single
....do
Car.
Do
Hitchhike.
Do
...do
6
9to45
Car.
Do
do
Hitchhike.
Do
-. do
Do.
Do
...do
...do
Married
do
1
9
6
22
Car.
Do -
12 to 46....
12 to 43.. -.
Truck.
Do
...do
do
Single
Car.
Do
do
Hitchhike.
Do
do
Married
Single
. do
24
22
48
21
42
24
39
22
29
17
20
37
23
24
38
24
27
20
23
33
24
38
51
38
43
40
16
19
Do.
...do
Do.
Do
do
Do.
Do
-. do --
.... do
Do.
Do
do
Married
Single.
Married
Married
Single
.... do
Car.
LOUISIANA (5)
Male
...do
Hitchhike.
Do
3
1
16 to 38-..-
20
Car.
MICHIOAN (2)
Male
Male
.. do
MISSISSIPPI (2)
Hitchhike.
Do
Do.
Clayton Hill' 1 white
Male
do
Single
do
Car.
Hitchhike.
do
Single
do
Do.
do
Do.
Osceola:
...do
. do
do
do
Car.
Do ...
Do.
Do
do
do
Do.
Do
Female
do
do
do ....
Do.
Do.
Poplar Bluft" 1 white
Male....
do
Married
Single
Married
Single
Married
do
1
29 -.-.
Do.
Kich Hill:
1 White
Hitchhike.
Do -
...do
5
10 to 37....
Car.
do
Hitchhike.
Springfield:
...do
2
2
10 to 38....
10 to 24....
Do.
...do
Do.
Do
do
Single
do
Do.
Van Huren:
do
Do.
Do -
...do
do
Do.
NATIONAL DEFENSE MIGRATIONi 8871
Seasonal workers — Strawberry picking, southwest Missouri — -Continued
State, city, and color
Sex
Marital
status
Number
Age ofdepend-
ents
Age range
of depend-
ents
Type of trans-
portation used
MISSOURI (3C)— continued
AVest Plains:
1 white
Male
do
Married
Single
Single
Married
Single
Single
do
41
34
67
23
19
34
Hitchhike.
Do
Do.
NEW JERSEY (1)
Male..-.
Male
...do ...
Do.
OHIO (2)
Do.
Do .
Do.
OKLAHOMA (80)
1 white - .
Male
do
Hitchhike.
Do
Do.
Do
do .
Married
Single
Married
Single
do
34
19
44
30
16
49
40
26
47
51
52
37
24
33
63
53
40
39
54
20
30
16
20
3
14 to 20....
Car.
Do ....
...do ...
Hitchhike.
Do
do
Do.
Do
do
Do.
Do
. do ..
Do.
Do
...do ....
do
Car.
Do
do
do
Hitchhike.
Do
do
do
Car.
Do
Female-
Male
do
do
Married
Single
Married
do
Hitchhike.
Do
1
14
Do.
Do
Do.
Do
. do
1
2
3
1
30
Do.
Do
.. do - ..
16 to 24....
12 to 26..-.
30
Car.
Do
...do
.... do
Truck.
Do -.
do
do
Car.
Do -
. do
Single
Married
do
Hitchhike.
Do .
do
2
18 to '38....
Car.
Do
...do
Do.
Do
do
do
Hitchhike.
Do
do
Single
... do
Do.
Do
...do ...
Do.
Do
do
do
Car.
Do
. do
do
Do.
Do
...do .
. do
Hitchhike.
Do
do
do
35
19
22
24
40
23
21
17
Do.
Do ...
do
do
Do.
Do
. do
do
Do.
Do . .
do
do
Do.
Do
do
do
Do.
Do
do
do
Car.
Do
. do
do
Do.
Do
do
Married
Single
1
16 ...
Hitchhike.
Do
do
Do
Do
...do..-..
.. do
Married
do
22
52
39
27
39
36
1
7
7
1
6
16
10 to 40....
6 to 28
14
Car.
Truck.
Do
do
do
Car.
Do
Female.
Male
do
Single
Married
Single -.
do
Hitchhike.
Do
14 to 37....
Truck.
Do
Hitchhike.
Do
do
Do.
Do
do
do
20
21
30
Car.
Do
do
Single
Married
Single
Do.
Do
do
Railroad.
Do
do
Do ^
. do
do
38
18
27
42
29
34
17
31
51
44
32
43
36
64
65
Do
do
do
Car.
Do
do
do
Do.
Do
do
Married
Single
Married
Single
Married
Single
do
Hitchhike.
PENNSYLVANIA (1)
1 white
Male
Male
do
Hitchhike.
TEXAS (9)
1 white ..
Hitchhike.
Do
Do
do
2
16 to 35....
Car.
Do
do
Hitchhike.
Do
. do
Do.
Do
...do
do
Do.
Do
do
do
Do.
NONE (3)
1 White
Male
do
Single..
Married
Single
Hitchhike.
Do. L
Do.
Do..
- do
Do.
§g72 S'A'- 1-(>1'1^ IlKAKINCS
MXHIHIT G. DeFENSK "rUAININO PhOGUAM
ME.MOHANDUM BY WILL S. DENHAM, DIUECTOK, MISSOURI STATE EMl'LOYMENT
SEHVICE
July 10, 1941.
For your advaiico iiifoniiiitioii wo arc attaching a copy of the official Instruc-
tions and Policies and Administrative Procc(hircs (iovcrning the Conduct of the
National Defense Training Programs of the I-'edcral Agency.'
A 3-day meeting was recently held in Chicago to give thorough stud}' and con-
sideration to this program. This conference was attended by directors of the
employment services, National Youth Administration, and tlie dej)artnient of
education administrators of the 48 States, also the regional and Washingtoii
officials of the Bureau of Employment Security, the National Youth Administra-
tion, and the rnited States Department of lOducation.
Tlie chairman of the conference at Chicago was Col. Ffank McSherry, the
newly ai)i)ointed National Director of Defense Training. Colonel McSherry i»
on the pay roll of the Federal Security Agency and serves as liaison officer betweer
the Federal Security Agency and the Office of Production Management.
Colonel McSherry, as Director of Defense Training, will direct and supervise
all national defense training programs carried on jointly through the coordinated
efforts of the State employment services, the State departments of education and
the National Youth Administration. He will have field agents to assist him and
the constituent State agencies in carrying out assigned duties and responsibilities.
As chairman of the conference, Colonel McSherry dwelt ujjon the extreme im-
portance and urgency of immediately initiating this defense training program to
serve the needs of employers who have contracts for defense production. Con-
gress has appropriated many millions of dollars for this defense training program.
The sums appropriated have been earmarked for defense training work projects
and training courses that must be geared to the specific needs of contractors for
defense production. It is estimated that approximately 4,000,000 skilled men
must be obtained for defense production in the coming year. All the training
possible will very likely fail to produce enough skilled men to meet anticipated
needs but training for defense industries must be pressed to the utmost and serve
as far as possible in the national emergency.
The responsibilities of the Employment Service have been tied down closely in
this program. We will be the designated agency to make the necessary employer
contacts and recommend the necessary and specific training courses to be given.
Y'ou will note from the attached procedures and instructions that a council of
State administrators, consisting of three members, is to be in active charge of the
defense training program in Missouri. This council will consist of one member
appointed from the administratiev office of the State employment service, one
member from the administrative office of the State department of education, and
one member from the State office of the National Y^oiith Administration. Y^ou
will also note that similar councils of like representation will be established in
each of the local communities operating defense training programs.
We would like for you to particularly note the following which we quote from
the attached instructions:
"The F^mployment Service shall make available currently to each member of
the council of administrators in each community and each State the labor demand
and supply data and information on labor market developments obtained from
its registration and placement activities and its employer and other community
contacts.
"On the basis of such information, the Employment Service shall make recom-
mendations to the council in each community as to the need for training for de-
fense occupations in that community, giving the number of workers needed, the
dates they are needed, and the occupational specifications that should be met by
the trainees in order that they may be placed in employment. Such recommenda-
tions shall be made promptly on the first of each month."
From the above alone it can be seen that the Employment Service has a very
large and urgent responsibility. Not later than August 1, we will be expected to
make the proper recommendations to the local and State councils of administra-
tors in regard to training needs. This means that we must obtain from employers
holding defense contracts the specific data for their training needs as outlined
above. It means that we need the production schedules of those employers, the
occupational specifications for each job in the production line for which trainees
will be needed, and the number of workers needed for such jobs and the date
svich workers are needed.
1 Held in committee flies. See Training Programs, Detroit hearings, pt. 18, p. 7498ff,
EXHIBIT ^-CHARACTERISTICS OF ST. LOUIS EMPLOYMENT SERVICE APPLICANTS
IMlOurift
1 1%
■ Ik
—
ASTUDr Of VMIOUS CHAfiACTEtlSfiCS OF
HEWAPPIKANTS IN IH( ST tOUIS OFFKE
OF THE MISSOUDI STATE EUI>LOTUEIIT
SEHVICt FOB THE FOU« OAV PEIIOO
II I8''l THUOUGH II-23-4I
6CI MALES
409 FEMALES J K aeiDEL
II-2S-4I
72 K
1
1
O *DO
mmiCR
jPlACt OF LAST EM«,OVUENJ 1 (FeM«LE)
13 «
CO
SS
so
i"
s„
JO
29
JO
C4
49
39
^ 2X
r— 7x-
k'..
■ IX
I.M
64 V.
^^
^ liiX
^^^^^
^^^
40 eo ijo reo joo ito 2
D 3«
>0 400
El*
">""" 1 j PLACE OF LAST EMPlOYMENr
(MALE)
12 >.
1
1
^^^™
16 X
i
HUMUa
i M «4 «0 •
1 Ul
1
1
■ '
■ ly.
"
1
—65
CO
M
69
C4
34
NUUBH
LENGTH of' ST. LOUIS
1 1
O 240 J
RESIDENCE (FEIULE
)
3*
-
x»
5*
K
1 6\
^ js"
^"^
■
9»
6 -J
■1 2 K
2»
20
39
1
9%
1
12 X
--I
;
"
^^
^ 2X
1^,^
^^
,
69
1
-
19 X
•
o »
.J
.«
3 »
O 1
« ,
io
— r
JO
O
■o
' 1.
— r
6C
tc
!i—
— i
LENGTH Of ST LOUIS BESIOENCE (MALE)
AGE Of NE* iPtllC«^'TS (WALE)
c'.nsflii- 42— rt. 2rt (Face p. 8872)
NATIONAL DKTKNSE MTHKATION 8873
It is of paramount iiiiijortancc that all olliccs in the .Service he prepared to re-
port oil such needs of employers as hold contracts for defense production. We
trust that our offices will leave nothing undone to collect this necessary informa-
tion.
We will shortly hold meetings with the necessary staff members of our admin-
istrative and local offices to give further study and training regarding our part of
tliis program. Likewise the proper local councils will sliortl}' be set up by the
State councils. At this particular moment you will not have to concern your-
selves with the operating mechanism that will be set up. You do need to con-
cern younselvcs, however, with getting the closest possible check on all defense
contracts and all dfeiise jjioduction in your community and with collecting all
the necessary information from the employers holding such contracts. This is
the only urgent action expected from you until such times as we hold meetings
with the necessary local statf members to further go into this program.
We would like to impress upon you that the attached information is for your
own office organization so that you can get set in advance for the work that must
be done. We ask that no publicity stories or newspaper or radio releases be given
out in regard to this program unless you receive specific instructions in regard to
them.
We are forwarding additional copies of the attached instructions in accordance
■with the recjuirements of our various offices.
STATEMENT BY J. W. BURCH, DIRECTOR, EXTENSION SERVICE,
COLLEGE OF AGRICULTURE, UNIVERSITY OF MISSOURI, JEFFER-
SON CITY, MO.
EFFECT OF DEFENSE ACTIVITY ON FARM LABOR AND FARM POPULATION MOVEMENT
IN MISSOURI
The interstate movement of farm labor created by defense industries and
selective training is of two types.
1. A general movement to industry from all over the State of farm boys,
small farmers, and hired farm labor.
2. A heav}' movement of these same people in areas where defense activities
are located such as Weldon Spring, Camp Leonard Wood, Camp Crowder,
St. Louis, and Kansas Cit}'.
The No. 1 type of movement is of a more permanent type while the No. 2
type creates a severe shortage for a few months but after general construction is
over many of them return to their homes and old jobs.
Labor movement and labor shortages are tied very closely to types of farming
areas, soil fertility, custom and defense activities.
As to the general labor situation in Missouri, I quote from a paper by Dr.
C. E. Lively on The Population of Missouri, Its Condition and Trends, as to
migratory labor.
"The State of Missouri is not characterized by a large volume of migratory
agricultural labor. Although the year-round hired man is disappearing and farm
operators rely largely upon seasonal labor, either regular or casual, a very large
proportion of such labor is of local origin. Map 2 shows the number of wage
laborers employed on the farms of Missouri during the week of Sei)tember 24
to 30, 1939, by counties, as enumerated by the 1940 Federal Census of Agriculture.
The number of laborers employed, as indicated by these figures, is probably near
the maximum for southeast Missouri because of cotton picking. The number is
probably much below the maximum for the small fruit area of the Southwest, the
corn-hog area of the Northwest and possibly for others. However, the general
picture of the State based upon these figures is accurate in emphasizing that most
wage labor in agriculture is employed in the Southeast cotton delta, the South-
west small fruit area, the Northwest corn-hog area and the truck and fruit areas
near St. Louis and Kansas Cit\'. Apparently there is less tendenc}- now than
formerly to use unskilled Ozark workers in the better farming sections of northern
Missouri, and reports are that Ozark laborers are little used in the cotton-pro-
ducing lowlands. On the other hand, considerable seasonable labor from Arkan-
sas and other points south has been reported working at the picking of cotton and
small fruits in southern Missouri. On the whole, it would appear that the agri-
cultural economy in Missouri is moving toward the employment of relatively less
migratory seasonal labor and more local mobile labor."
These labor conditions in 1939 and the trends so stated by Dr. Lively are now
undergoing some changes which have up to date shown as affecting agriculture.
8874
ST. LOT^IS HEARINGS
NATIONAL DEFENSE MIGRATION
8875
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8876 S''- I^OUIS IIEAUINGS
County labor suhconunitteos, laiul-use planning coininittccs rci)orts of October 15
and Noveiuln'r lo, Iflll, .sliowi'd sonic rather unusnal changes which I am going
to bring out by type of farming areas of the State in my report of the areas.
My reason for using these areas is to more nearly tie down our labor problem so
something can be done about it.
Area lA, made up by the counties of Atchison, Holt, Nodaway, Andrew,
Carroll, Clinton, Clay, Hay, Lafayette, and Saline, located in the Northwest
corn and meat producing area, normally employs at)Out 050 hired hands to the
county in addition to the young men who have remained at home and are thought
of as family labor. This area has a high investment in farm machinery per farm
and is mostly tractor operated. The land is fertile and very i)roductive. With
defense activities, many of the farmers' sons, and young farm laborers are going
to the Army and in emjiloyment of industry. This brings about two problems — •
one, a smaller supjjly of labor and, two, a shortage of farm labor homes on farms.
The reason for house shortage is that young single laborers and farmers' sons
lived in the operator's house, while the labor replacing these young men are married
men with families. To an agriculture that has not long enjoyed increased prices
this brings a fairly serious problem and one that is hard to say the exact outcome.
Possibilities are: 1. increased mechinization which is hard for this area to
go much further; 2. decrease production down to family labor; 3. build or repair
tenant houses.
The labor subcommittees of this area report:
1. Labor adequate until spring.
2. Anticipated farm machinery shortage may make labor situation more acute.
3. It is doubtful if farm income will be high enough to pay labor comparable
wages to industry.
4. Trend is to mechanized farming to offset labor requirements.
5. This area has some labor shortage the entire year.
6. Migratory labor that has in the past come in from south Missouri is going
on defense work this year.
7. Increased farm wages have failed to pull farm labor in because of more
money in defense and where factory jobs are obtainable labor seems to prefer
them.
In looking at these subcommittee reports, it should be kept .in mind that
farmers are used to a great deal of labor and when shifting begins and they liave
three or more regular hired hands in 1 year, it appears to them there is a shortage.
While industry would not notice this, the farmer has some training to dc with all
hired men to operate his equipment and care for his livestock. This changing
causes much inefficiency in operation and higher production cost.
Area IB, made up of the counties of Worth, Gentry, Harrison, Mercer, DeKalb,
Daviess, Grundy, Caldwell, Livingston, Linn, Chariton, and Howard with the
exception of Chariton, only hire about one-half as many farm hands as area I A
or an average of about 350 to the county. This area not so highly mechanized
and with a little lower production that lA generally is operated on a more extensive
basis with the operator's family labor and I think its problems are expressed in
its labor subcommittee's report.
1. Labor shortage anticipated in spring.
2. May be some shortage for corn gathering if weather remains unfavorable,
3. Railroad building in Mercer County causing some shortage.
4. Housing for farm labor not available.
5. Deferring farm boys from selective service would help farm labor and hous-
ing.
6. Farm units requiring some labor but not a full-time man are tending to
cut operations to be handled by family or increase to full-time man if additional
land can be .secured.
Area IC, made up of Putnam, Schuyler, Sullivan, Adair, Macon, and Ran-
dolph Counties is a more rolling and extensive type of farming counties. The
average county in this group hires about 267 farm laborers. .\t present, however,
they may have to hire more to fill in for family labor that has gone on defense
work in the future. Their trends and problems are well expres.sed in the sub-
committees reports and are what one would expect to find in the less productive
land with more extensive farming.
1. Labor adecjuate until spring.
2. Farm returns not sufficient to pay increased wages.
3. Tendency to cut farm operations to family size in less productive areas.
Area ID. for the sake of this report, is divided in a north and south part, the
counties of Scotland, Clark, Knox, Lewis, Marion, Shelby, Ralls, and Monroe
forming the north part and the counties of Audrian, Pike, Lincoln, Montgomery,
Callaway, and Boone forming the south part.
NATIONAL DEFENSE MIGRATION 8877
The north half of this area with the exception of the Mississippi River bottoms
is an extensive livestock and dairy farming area using mostly family labor for
farm operation. The average county of this group only has approximately 300
hired farm labprers. These laborers are largely regular hands on a monthly
or weekly paj' basis. They too, may face some of the increased employment of
area IC, if family labor moves to the Army and defense industries. The trend
of operators to meet this is to cut down operations or increase size of units using
machinery and some amount of labor.
The south part of this area hires twice as much labor per count}' with an
average of approximately 650 hired laborers to the county. I would attribute
this largely to custom set up by early settlers which were from the Southern
States and were used to large amounts of hired labor. The farming unit and
productivity has something to do with it also the bottom lands of the Missouri
and Mississippi Rivers. This area reports a serious labor shortage due to de-
fense activities in St. Louis and Louisiana, Mo. This is especially true in Pike
and Lincoln Counties, both hiring up to 750 and 900 farm laborers.
This movement is of both types, permanent and short-time duration. As to
the extent of the seriousness, it cannot be ascertained before spring of 1942.
The subcommittee from the area as a whole reflects mostly the south half of
the area and is as follows:
1. Defense activities in and near St. Louis, also ammonia plant at Louisiana,
Mo., have caused an acute shortage of farm labor in this area.
2. Farm income and production per acre in this area will not support rate per
day requested by farm labor.
3. South half of this area one of the most serious in the State.
Area IE, made up of the counties of Cass, Bates, Johnson, Henry, Pettis,
and Cooper hire an average of 523 farm laborers to the county with Pettis and
Cass Counties running up to approximately 700. The subcommittee reports
show this area up as to problems of farm labor. However, they do not show
that this area in the past has supplied much of northwestern Missouri's migrant
labor until this year when most of the surplus labor and small farm operators
went into the Kansas City, Camp Crowder, and Fort Leonard Wood defense
activities. The report of the committees is as follows:
L Cannot pay sufficient wage increase to get labor.
2. Work Projects Administration workers reluctant to take farm labor be-
cause of length of working day and no time off.
3. There are only a few full-time hands employed but need is increasing be-
cause small farmers are selling out and going in defense work and farm boys
are going into defense work and selective service.
4. Larger operators showing some tendency to cut operations to families'
ability.
5. Pettis County making close farm labor survey on a township basis.
Area II, composed of Buchanan, Platte, and Jackson Counties employ generally
1,200 farm laborers to the county. The statement of their problems by the sub-
committees brings out the migration that has taken place and the position of the
farmers in regard to hiring labor with industry of Kansas City increasing.
Committees' report :
1. Labor shortage apparent now.
2. Farm boys gone into industry.
3. Not sufficient housing for farm labor families.
4. Labor shortage mostly on dairy farms — fluid milk prices have not advanced
sufficiently to pay increase necessary to compete with industry.
Area III, composed of St. Charles and St. Louis Counties employs large amounts
of labor especially in St. Louis County where it is reported 1,798 farm laborers.
This county has had an increase of approximately^ 8 percent in population this
year and uses quite a bit of migratory labor. It is stated that available labor
will decide the truck crop acreage for 1942.
The committee reports are —
1. Acute labor shortage expected in spring of 1942.
2. Migratory labor moves on into industry .
3. Conditions similar to area IV.
Area IV, made up of the counties of Warren, Moniteau, Cole, Osage, Gasconade,
Franklin, Jefferson, St. Francois, Ste. Genevieve, Perry, Bollinger, and Cape
Girardeau on the average doesn't hire a large amount of farm labor. The average
county hiring about 390 per county with a high in Franklin Covuity of 975 and
the next in Cape Girardeau of 490. However, it has borne the brunt of a large
part of defense migration to St. Louis, Weldon Springs, and ('amp Leonard
Wood.
3878 S'^'- I'Ouis HEARINGS
Tlio coniinittee.s express it us follows:
1. Kiirin hihor shortafie of reffuiiir farm and dairy farm hands.
2. I.ahorcrs ^one to defense work as unskilled securing $62 per week — also
affect inji school teachers.
3. Migratory labor does not fill need.
4. Fanners are reducing operations due to anticiiKdcd labor shortage.
5. Dairy herds being sold down to family size.
G. Shortage of skilled labor as tractor operators and mechanics.
7. Small farm operators selling out.
Area V-A, composed of Morgan, I^Miton, Hickory, Camden, Miller, Laclede,
Pulaski, Maries, and Phelps are Ozark counties and hired oidy about 150 farm
laborers to the coiuity. This area and areas V-P and VI are surplus labor
counties and the defense activities have given them some ojiportunity to adjust
to better employment. However, in many cases it is the best emj)loyed of farm
labor and small operators from those areas that are moving to defense work
because of their adaptability.
The committees report it as follows:
1. Shortage of labor anticii)ated in spring.
2. Production would not paj' higher wages and farmers will let acreage go
unplanted.
3. Building of Camp Leonard Wood depleted this area.
4. Small farmers selling livestock on market going to work in industry leaving
farms idle.
5. Large operators tending to cut down to family lal)or because farm returns
do not justify farm wage necessary.
It is too early yet to say how defense activity is going to affect the agricultural
production in this area.
Area V-B, composed of the counties of Washington, Crawford, Dent, Iron
Madison, Reynolds, Shannon, Carter, Wayne, Oregon, Ripley, Stone, Taney,
and Ozark. These counties are commonly called Ozark counties, with a very
extensive type of farming, mostly pasture except in the bottom land. The
average county in this group employs ajoproximately 160 hired hands. This is
a surplus labor area generally. In the building of Fort Leonard Wood, this area
supplied much of the unskilled labor. In the past, many of these laborers in this
area have gone to the Kansas wheat fields and some of them into Iowa to shuck
corn. A few months ago Washington County reported a large surplus of labor.
That was at the time of the building of Fort Leonard Wood. Recently their
report shows that most of the employable young men of Washington County
have moved into defense work in St. Louis and into additional work created by
defense activities in the mining of lead and tiff in Washington County. The
subcommittees from these counties for the area report:
1. Part of this area affected as area V-A, because of Fort Leonard Wood.
2. Some labor swapping going on as usual.
3. Shortage of labor to cut fuel wood for town.
4. Some labor in the past has gone to Kansas wheat fields.
5. Use of Work Projects Administration labor on farms seems overrated.
Area VI, made up of the counties of Vernon, Barton, St. Clair, Cedar, and Dade,
lies in the western wheat production region with some corn and small grain.
This area employs approximately 300 farm laborers to the average county and
some additional labor generally through the year in the harvesting of prairie hay
and wheat. Numbers of laborers have gone from this area to the building of
Camp Crowder at Neosho. They also went to Fort Leonard Wood and some
have gone into Kansas City and the small arms plants for defense work. A
number of young men have also gone to the Army from this area. A large percent
of this area is heavily machine oi)erated. The increase in machinery to cut down
use of labor could not be exi)ected. The committees rej)()rt:
1. Shortage of carpenters and skilled men to repair farm buildings.
2. One coimty reported 175 men on Work Projects Administration not fit for
farm labor because of physical defects, age, training, and transportation.
3. Small operators are selling out, most of the large ones are cutting down their
own operations.
4. Prairie sections which are machine operated mostly by the operator not
much change is expected.
The cctnnnittee reports that an increase in wage to $3 per day and dinner will
not draw lalxjr required. This is probably true while the large construction is
going on in the Tri-State area from Neosho, Mo. and westward. No particular
labor shortage is anticipated at present, however, there may be some in the
spring. It might also l^e understood that we may be using on land as labor some
J^ATIONAL DEFENSE MIGRATION 8879
persons who we feel now are not fit for farm labor. If that should come about
this will show a large diflferential in wages paid on a basis of efficiency to produce
work on the farm.
Areas VII and VIII, made up of the counties of Jasper, Lawrence, Barry,
Newton, and McDonald, are located in the southwest corner of the State which
is a fruit and dairy area. Large dairy plants are located at Neosho and the towns
of Carthage and Joplin are supplied with fresh milk from this area. This area
normally hires about 400 farm hands per county, and is now placed at the dis-
advantage of the large amount of building going on in the Tri-State area around
Neosho, Mo., Oklahoma, and in Arkansas. The building of Camp Crowder, also
the increased activity of the lead mines will draw manv laborers from farms and
small operators from farm operations. This has been a labor surplus area in
recent years, but with the opening up of the lead mines, increased activity, farm-
ers are going to feel a shortage in berry picking, fruit harvesting ne.xt year. If
prices of these products will be sufficient, labor may not be so hard to secure.
The committee reports:
1. Regular farm help is short.
2. Building of Camp Crowder at Neosho, increased activity of lead mines
munitions plants, defense project, in Oklahoma and Arkansas make this area in
for a labor shortage ne.xt spring and probably this winter.
3. There will probably be some cutting of' dairy herds to family size.
4. Fruit harvest and strawberry picking is expected to suffer unless prices are
sunicient to pay high labor.
5. Small farmers selling out and going into defense work.
Area IX, made up of the counties of Polk, Dallas, Greene, Webster, Wright,
Texas, Christian, Douglas, and Howell, commonlv thought of as the Ozark pla-
teau area, produces quite a bit of dairy products with small herds in general.
However, there are a few large dairy herds through this area. It is also a sur-
plus labor area and there has been a migration of farm boys from this area to
central and northern Missouri, Iowa, and Kansas at times of peak labor load on
farms. This area has supplied quite a large number of workers for the camp
building of Fort Leonard Wood, Camp Crowder, and to St. Louis for defense
work, and Weldon Springs. There seems to be no immediate problem as to suf-
ficient labor to maintain this area, however, with smaller farmers closing out
which normally give some labor off of their own farms, it might cause a little
labor disturbance but not a complete shortage. This area hires on the average,
about 360 farm laborers per county, with Greene County as a high with 837
The next highest to that is Polk with 467 laborers, and a low in Dallas County
of 72 laborers. The committee reports for this area are:
1. The northern part of this area has been a surplus farm labor area where
farm boys and men went to central and northern Missouri, Iowa, and Kansas to
follow wheat harvesting and corn gathering. However, many of these men are
now in defense work.
2. Truckers, tradesmen, and skilled workers have followed the camp buildings.
3. Some small farmers are closing out and some of the larger farms tend toward
cutting down their operations.
4. A shortage of fuel wood cutters for this area.
Area X-A, made up of the counties of Butler, Stoddard, Scott, and Mississippi.
Ihis IS the second largest farm labor emplovment area in Missouri. These four
counties hire an average of about 2,000 men jper county, with a high in Mississippi
County of 5,400 laborers and a low in Butler County of 441, which is largely in
the south and eastern part of that countv. This is a cotton area of the boot
heel of Missouri, with some livestock in the north tier of counties of the area.
Ihis area and area X-B hire 49 percent of all the farm labor hired in Missouri.
Ihe committee reports for the area:
1. Labor enough to meet present demand except for skilled workers.
2. Definite increase in sharecropping to meet labor needs.
5. Wage hands and share croppers expected to move to defense work this
winter and not return.
4. Scarcity of year around farm hands that present farm income will permit
paying.
5. Labor housing in the area is still a problem. This area generally has a large
aniount of migrant labor in cotton picking and cotton topping.
I think there is a much fuller report to be given in regard to this area from
other sources.
Area X-B, composed of the counties of New Madrid, Pemiscot, and Dunklin
ihese three counties hire 38 percent of all the farm labor hired in Missouri with
an average of about 10,700 farm laborers per county. This is a strictly cotton
60396 — 42— pt. 23 13
g880 S'^'- I'f'UIS HEARINGS
country and larger farm ownership tracts using largo amount of farm labor.
The commit tec reports that some influx of farm labor from factories has started
from factories that have closed down. I^abor is not expected to stay after cotton
picking. Labor problems anticipated next spring of trained tractor men, ma-
chine operators, also a shortage in cotton gins. This area is attempting to sta-
bilize its labor situation by changing to sharecropping which creates smaller farms
and the use of more family lal)or and not so much employed labor. This area
has always been heavy in migration in and out in times of heavy cotton picking
and chopping. It is also starting in the production of some vegetables which re-
quire additional labor. A very productive area with fairly good farm income
per capita, also a very high population per county. As to exact labor conditions
for 1942, they cannot ho anticipated. It will depend on the amount of share-
cropping and defense work to draw people from the area.
STATEMENT BY LLOYD W. KING, STATE SUPERINTENDENT,
DEPARTMENT OF PUBLIC SCHOOLS, JEFFERSON CITY, MO.
Defense Training" in Missouhi
I. administrative organization
The national defense-training program is administered in Missouri by the State
board for vocational education, which has as its executive officer the State su-
perintendent of schools who also serves as State director of vocational education.
On a parallel with the other vocational divisions in the State dejjartment of edu-
cation, the division of national defense training was estalilished by the State
board to inaugurate, administer, and supervise the defense training for the
State.
The State board for vocational education consists of the following:
Forrest C. Donnell, Governor Member.
Dwight H. Brown, secretary of State Secretary.
Roy S. McKittrick, attorney general Member.
Lloyd W. King, State superintendent of schools President.
(The State board for vocational education is also the State board of education.)
The personnel of the division of national defense training in the State depart-
ment of education includes Mr. Hollis Dahlor, State director of defense training,
eight State supervisors, an auditing supervisor, an equipment supervisor, and a
supervisor responsible for finance. These men are responsible for the promotion,
administration, and supervision of the program on the State level. The defense-
training programs are administered on the local level by the local superintendent
of schools through the local director of vocational education, the local coordina-
tor, or a local director of defense training. In two centers of the State in which
industries are concentrated, supervisors have been emploj'ed to coordinate and
direct defense-training activities in the schools of these areas.
2. placement of trainees
It has been impossible to ascertain the exact number of persons who have
been placed in employment as a result of training received in defense classes.
Many have received jobs locally, in other cities of Missouri, or in other States,
who have not reported back to .the local supervisor of defense training or to the
local office of the Missouri State Employment Service. In many instances, local
plants employ all trainees who successfully complete certain defense courses.
A few plants have placed standing orders for all trainees who subsequently com-
plete defense coui-scs being conducted by given public schools.
The following table gives the cunnilative enrollments and placements in Mis-
souri's program of defense training as indicated by statistical reports from local
supervisors. It should be noted that trainees enrolled in VE-ND supplemen-
tary classes are employed workers. The figure ajjpearing in this column indi-
cates the number who changed jobs while enrolled in the supplementary classes.
Since these statistical reports are submitted at the conclusion of each course,
placement figures quoted are far below numbers actually placed.
'NATIONAL DEFENSE MIGKATION
8881
Statislical summary of national defense training program in Missouri — Julu 1 1940
to Oct. 31, 1941
Number of schools offering.
Number of classes
Number of different courses taught
Enrollments
Number of trainees placed 1
VE-ND
Supple-
mentary
14
178
25
,680
148
Preem
ploymcnt
refresher
22
409
30
14, 264
3,452
Out-of-school
youth
General
preem-
ployment
197
479
4
7,961
358
Specific
preem-
ployment
24
46
18
861
34
Training
for Na-
tional
Youth
Adminis-
tration
youth
63
477
26, 922
2,241
1 Includes only those trainees placed while enrolled in courses.
3. WORKING RELATIONSHIPS WITH THE MISSOURI STATE EMPLOYMENT SERVICE
The following outline of procedure indicates the working arrangements exist-
ing between the division of defense training of the State department of education
and the Missouri State Employment Service.
(o) From employers of the" State of Missouri State Employment Service se-
cures specifications which form the basis for defense training programs These
specifications include the special abilities, skills, and understandings required to
perform jobs within industry.
(6) The Missouri State Employment Service secures labor needs Reports
showing the number of types of skilled workers to be needed bv industry are
submitted regularly to the division of defense training.
(c) The Missouri State Employment Service registers persons eligible for
training and refers them to the schools in which training can be provided
(d) After the student has completed his training in defense classes, he is referred
bacli to the employment service for placement. A summarv of his training to-
gether with the recommendations of his instructor, is forwarded to the placement
service.
4. RELATIONSHIP WITH THE OFFICE OP PRODUCTION MANAGEMENT, TRAINING
WITHIN INDUSTRY PROGRAM
The State director of vocational training for defense workers received recently
from the United States Office of Education a special release in which was out-
lined a cooperative plan for the training within Industrv Branch of the Office of
i;roduction Management in the training of these kevmen. The following quota-
tion from the above-mentioned release indicates the working relationships which
are to exist between the division of defense training and the Office of Production
Management in the development of this program.
flu ^^J^^^^ future a representative of the Training Within Industrv Branch
of the Office of Production Management will probablv call on vou about a pro-
gram of intensive instructor training for first-line supervisors in defense indus-
tries. You will be asked to sponsor the program jointlv with the training within
industry district representative. This intensive training was developed by the
training withm industry branch and State departments of vocational education
together with this office, from long-accepted help training material. It contains
the minimum essentials designed to help the foremen start workers on new
]obs. Following is a brief outline of the suggested steps in the inauguration of
this program:
1. A training within industry district representative will contact the State
director for working out the program.
2. Training within industry will contact defense industries and make arrange-
ments for an organizational meeting of industry representatives to consider the
plan.
3. Following this meeting, if a plan is accepted by industry, a selected group
of not more than 20 men will attend an Office of Production Management train-
ing institute for 20 hours of intensive instruction in job instructor training methods.
Ihis institute will be conducted by training within industry.
8882 ST. LOUIS HEARINGS
4. Those who successfully complete the 20-hour training will conduct 10-hour
training sessions for sui)ervisors. ^^'llen the instructor holds these sessions on
his own time, he is entitled to additional pay and may be carried on the State
pay roll, paid from defense funds to be charged to supervision, or he may be
paid in any manner provided in the State plan. If the sessions are held on time
covered by the instructor's regular salary, he may not draw additional compen-
sation. The most successful of these trainers may be used to conduct training
institutes for the training of additional instructors.
5. First contacts and general arrangements for plant instructor training
sessions will be made by training within industry consultants.
G. The first contacts will be followed up and final arrangements will be made
by someone selected l)y the State director to act as local supervisor of the program
in cooperation with training within industry. This individual should be selected
in advance of the holding of the organizational meeting and the training institute
and should attend these in order to become thoroughly familiar with both the
content of the condensed job instructor training and the plan of operating the
program. First contacts with the plants and general arrangements for the
instructor training sessions will be made by training within industry consultants.
This program is being succes.sfully staged in a numljer of States and seems to
meet an urgent need of industry. It should not be considered a complete in-
structor training or foremanship training program but should be regarded as
supplying a most urgently needed first step. It should be followed up with
whatever training is indicated by the individual situation.
5. THE NEED FOR INSTRUCTORS
Securing competent instructors who have had recent industrial experience
has been and still is one of the greatest problems confronting those responsible
for the administration of the national defense training program. Insofar as it
has been possible to do so, part-time instructors for defense classes have been
drawn from the ranks of .skilled labor. A few skilled industrial workers are
employed as full-time instructors. Several industrial arts and day trade
teachers are now employed in the defense training program. Every possible
source has been exhausted in the search for teachers. Because of the shortage
of competent instructors, many planned and approved classes have been delayed.
Since instructors are not available in certain fields of work, it wiU be impossible
to conduct several classes that have been approved.
STATEMENT BY PROCTAR CARTER, MISSOURI STATE SOCIAL
SECURITY COMMISSION. JEFFERSON CITY, MO.
PREPARED BY PARKE M. BANTA, ADMINISTRATOR, MISSOURI STATE SOCIAL SECURITY
COMMISSION, JEFFERSON CITY, MO.
The State Social Security Commission was created by an act of the Fifty-
ninth General Assembly in June 1937, and has responsibility for administration
of the following programs:
Old-age assistance.
Aid to dependent children.
General relief.
Child welfare.
Distribution of Federal surplus commodities.
Certification service for Civilian Conservation Corps.
Certification service for Work Projects Administration.
The State law gives the Commission broad powers in establishment of rules
and regulations governing the assistance programs, and establishes certain basic
eligibility requirements for assistance payments in the different categories. The
State Commission fimctions under a comprehensive plan of administration,
which is in conformity with the Federal social security law. atid the requirements
of the Federal Social Security Board.
The Fede al Government participates with the State in the old-age assi.stance
and aid to dependent children programs to the extent of matching State funds
dollar for riollar, and also makes a Federal grant for child welfare services.
The State Social Security Commission has an office in every county in the
State and the city of St. Louis, and maintains a staff in each office for the purpose
of carrying out the manifold duties of the law in regard to the assistance pro-
^NATIONAL DEFENSE MIGRATION' 8883
grams. In each county there is established, under the law, a commission of four
members, appointed on a bipartisan basis, to serve in an advisory capacity to
the local ofhce of the Social ISecurit}' Commission.
The following are the requirements for public assistance in Missouri, including
residence requirements:
Old-Age Assistance
eligibility
Persons to be eligible must meet the following requirements:
1. Be 65 years of age or over.
2. Be incapacitated from earning a livelihood and not have sufficient income or
other resources, whether such income or resources is received from some other
person or persons, gifts or otherwise, to provide a reasonable subsistence, compat-
ible with decency and health, and is without adequate means of support.
3. Have resided in the State 5 j'ears or more within the 9 years immediately
preceding application for assistance, and for 1 year next preceding date of appli-
cation for assistance. (Sec. 9407, Revised Statutes 1939.)
The law further provides that benefits shall not be payable to any person who:
(1) Has made an assignment or transfer of property for the purpose of render-
ing himself eligible for benefits;
(2) Owns or possesses cash or negotiable security in the sum of $500 or more;
(3) Owns or possesses property of any kind or character in excess of $1,500 or
has an interest in property the value of which exceeds said amount;
(4) Is married and actually living with husband or wife, if the value of his or
her property, or the value of his or her interest in property together with that of
such husband or wife exceeds $2,000;
(5) Is an inmate of any public institution at the time of receiving benefits.
An inmate of such an institution may, however, make application for such bene-
fits, which if granted, shall not begin until after he or she ceases to be an inmate;
(6) Has earning capacity income, or resources, whether such income or re-
sources is received from some other person or persons, gifts or otherwise, sufficient
to meet his needs for a reasonable subsistence compatible with decency and health
(sec. 9406, Revised Statutes 1939).
BENEFITS
The maximum monthly assistance grant, under the law, shall not be in excess
of $30 for each person approved for old-age assistance, and is not to exceed $45
in the case of husband and wife living together, each of whom is drawing an
assistance check.
Aid to Dependent Children
eligibility
Children to be eligible must be —
1. Under the age of 14 years, or
2. Between the ages of 14 and 16, if the child is regularly attending school, or
is physically or mentally incapable of attending school.
3. Deprived of parental support or care by reason of death, continued absence
from the home, or physical or mental incapacity of a parent.
_ 4. Must be living with father, mother, grandfather, grandmother, brother,
sister, stepfather, stepmother, stepbrother, stepsister, uncle, or aunt.
5. Must have resided in the State for 1 year immediately preceding the appli-
cation for benefits, or who was born within the State within 1 year immediately
preceding the application and whose mother has resided in the State for 1 year
immediately preceding the birth. (Sec. 9408, Revised Statutes 1939.)
BENEFITS
The amount of assistance which is granted is based upon the need in each
individual case, but in no instance can it exceed $18 for one child, and $12 for
each additional child living in the same home, provided the maximum amount
does not exceed $60 for any single household.
General Relief
The general relief program, which is administered entirely from State funds
does not have specific eligibility requirements set up for it. The law defines
8884 ST. LOUIS HEARINGS
general relief aa aid or relief in cases of public calamity. (Sec. 9396, Revised
Statutes 1939.)
Before the general relief proRram was established, the responsibility for the
support of the poor rested on the fountv court for the inhabitants of each county.
(Sees. 12<)r)0 and 12953, Revised Statutes 1929.)
The following is a definition of an inhabitant as it relates to county support of
the poor: ''No j)erson shall be deemed an inhabitant within the meaning of this
article, who has not resided in the county for the space of 12 months next preced-
ing the time of any order being made respecting such poor person, or who shall
have removed from another county for the purpose of imposing the burden of
kee])ing such jwor person on the county where he or she last resided for the time
aforesaifl." (Sec. 12952, Revised Statutes 1929.) However, the county court
shall at all times use its discretion, and grant relief to all persons without re-
gard to residence, who may require its assistance. (Sec. 12954, Revised Statutes
1929.)
During and following the depression years, the county courts were unable to
meet the increasing requests for aid from persons in need and, therefore, it became
necessary to make appropriations from State funds for general relief. At the
present time general relief is provided largely from State appropriations rather
than county funds, although in some counties a part of the relief granted is
provided locally.
ELIGIBILITY
General relief, during the current bienniuni, has been almost wholly restricted
to unemployable y)ersons and some employable families in which there are chil-
dren, because of the Inadequacy of available funds.
The following residence requirement has been established as a policy of the
commission: "A person in making application for general relief must reside in the
State for 1 year immediately preceding application for assistance. Temporary
assistance may be granted to nonresidents during the period while verification of
their residence in another State is made, and authorization is obtained to return
them to their place of legal residence."
BENEFITS
No specific amount of assistance is set up by law to be granted for general
relief. Relief funds are allotted to the counties each month on the basis of
number of cases which local offices of the commission estimate will need help
during the month, and after taking into consideration funds available for the
biennial period.
Other Programs
Surplus commodities, furnished by the Federal Surplus Marketing Administra-
tion, are distributed to persons in need by the State social security commission.
The State social security commission also acts as the selecting agency in Missouri
for the Civilian Conservation Corps, and as a referral agency in designating
persons eligible for employment under the program of the Federal Work Projects
Administration.
Division op Child Welfare
The child welfare division of the State social security commission has re-
sponsibility for developing service and protection to those children who have
no parents or relatives who can care for them. There are four departments in
this division as follows: Supervision of child caring agencies and institutions,
supervision of juvenile probation, foster care department for State wards, and
child welfare services.
Policies Concerning Nonresidents
Since the Federal transient program was discontinued in 1935, the care of
transients has fallen almost entirely on local communities, due to the fact that
State relief funds have been very limited. Because there were no special appro-
priations for transients, and no definite organization set up to meet the problem,
the needs of this group have been met in varying degrees, dependent upon local
funds and attitudes. In general, aid to transients during the past few years
has been discouraged, and in many instances, poor practices have developed
in the counties, such as the purchase of gasoline to enable the person or family
to leave the locality, or temporary assistance with food.
In the old age assistance and aid to dependent children programs, the State
policy has been to allow recipients to visit out of State 6 months. This is extended
^^ATIONAL DEFENSE MIGRATION 8885
in individual cases where the health of the individual will not permit return
within this period.
In the general relief program, under State policy, State funds may be used to
grant assistance to transients for a temporary period while their legal residence
is being verified. However, limited State funds for relief has made the use of
this policy very restricted.
The main defense areas in Missouri which have attracted large numbers of
workers outside of the local areas are as follows:
Area: Defense projects
Pulaski and Texas Counties Fort Leonard Wood.
St. Charles County Weldon Springs ordnance plant.
St. Louis City Several projects with defense priority.
Jackson County Small arms munitions plant.
Newton and McDonald Counties Camp Crowder.
The problem of assistance to transients has as yet been small in these areas.
In the Fort Leonard Wood area, which has attracted the largest number of
outside workers, it was anticipated that there would be a residue of stranded
workers at the end of construction. However, this was not true, since almost
all of the workers were able to leave the area without any assistance, and moved
on to other points where employment opportunities had developed as a result
of other defense projects.
Caseload Statistics
The attached tables show the general relief, old age assistance, and aid to de-
pendent children caseloads, and amount of assistance granted in the State during
the past 12 months.
On the old age assistance and aid to dependent children tables it is to be noted
that there was a sharp decrease in the average old age assistance and aid to de-
pendent children grants in July, 1941. This is due to the fact that legislative
appropriations for these programs were insufficient to maintain payments on
their former basis. As a result, much difficulty is being experienced by old age
assistance and aid to dependent children recipients in all parts of the State, and
especially in those defense areas where rents have risen and costs of other neces-
sities of life have increased greatly.
The rise in rents is forcing public assistance clients to move to very inadequate
living quarters. Families are moving together and old age assistance clients
are being forced to move in with children. Such conditions cause crowding and
disturb family relationships. Newton County reports an Aid to Dependent
Children case of seven persons moving into a two-room house, in which another
family was already living. St. Charles County reports four families living in
chicken houses. Pulaski County reports instances of two and three families
living in houses which would ordinarily accommodate one family.
During the period from October 1940, to October 1941, there was a decrease
of 9,455 cases in the number of general relief cases making the present total case
load the lowest it has been since the beginning of State-wide general relief in 1932.
The current decrease has been almost entirely in the cases classified as "employ-
able," there being a decrease of 8,878 "employable" cases in that period. The
limited amount of State funds for relief during the past few years has placed
most of the emphasis on granting assistance, first, to the unemployable group,
and secondly, to those employable families in which there are minor children.
Relief funds for employables have been, of necessity, used sparingly and at no
time has sufficient money been available to care for all employable families in
need of relief.
A more limited State appropriation for the biennium 1941-42 necessitated
further restrictions on relief to employable familes which were effected during
the months of July and August 1941. These, in part, account for the present
reduced size of the general relief caseload. Reduction in caseload from June to
September 1941 amounted to approximately 5,200 cases, in comparison with an
average reduction of somewhat less than 1,000 cases during each of the earlier
months of the year as a result of seasonal decrease in need and increased employ-
ment opportunities.
It is not possible to determine exactly how many cases which were closed as a
result of administrative policy would not have been closed under previous policy.
It is clear that the number to which relief was discontinued due to administrative
policy was substantially in excess of the number which would have been closed
had the trend evidenced in previous months continued. It is equally true that
the number of families to which relief was discontinued, who have subsequently
obtained employment, is unknown.
8886 ST. LOUIS HEARINGS
Under the present policy of the Slalo social security commission, general relief
may be granted to unomployablo families, and to those employalile families who
have children under 18 years of age, if resources of such families are insufficient
to provide 70 percent of the budgetary needs. The fact that there has not been
more evidence of unmet needs called to the attention of the State commission by
clients and communities since the restrictions of July and August were placed into
effect, would seem to indicate a considerable absorption of persons no longer
receiving relief through employment resulting directly, or indirectly, from defense
activities.
Further evidence of increased employment with a resulting decrease in need
has been founri in:
1. The employment of certain older persons who have been previously con-
sidered unemjiloyable.
2. The smaller monthly rates of increase in old age assistance and aid to depend-
ent children recipients.
3. A greatly decreased number of applicants for Civilian Conservation Corps
enrollment.
While it is not possible to forecast the extent of the relief problem which would
be created by curtailment of present defense activities, it is almost certain that
there will be a substantial increase in need for public assistance if the present
activity decreases and no other employment is available.
At the present time, Missouri's public assistance programs are not meeting
budgetary needs of families under care, and an increase in the number of families
needing assistance would result in one of two alternatives; either a further decreased
level of care for all families, or, restriction of relief to substantially the group now
under rare and failure to meet the needs of persons applying as a result of increased
unemployment.
In October 1941 the average amount of relief was $14.48 for all cases, or an aver-
age of $17.57 per family case, and $9.67 per single person case. An increase in migra-
tory workers would have the same effect as an increased number of unemployed
resident persons. As present funds are insufficient to meet the needs of resident
families, it would seem clear that they could not be stretched to include migrants.
Local funds are also inadequate, constituting less than 4 percent of the total
expenditures for general relief. It would not appear that any substantial number
of migratory workers could be cared for from this source.
Removal of Families from Defense Areas
Other problems which have been brought about by defense developments have
occurred as a result of the displacement of families because of large areas of land
being taken over by the Government for Army location. The areas which were
taken over in Missouri were entirely rural. This relocation of families caused a
housing shortage, a shortage of available farms and many changes in the famiPes'
normal life. Some farm families were forced to move to town. Farm families
had to move to entirely new areas where they were imknown, and many were
forced to move over 100 miles to find other farms. There was insecurity due to
the slow payment for land and loss of crops. Many families had no cash with
which to move, and tenants had no way of obtaining credit for moving expenses.
The following tabulation gives the number of families who were forced to move as a
result of national defense developments, and shows the break-down of the number
of cases who were receiving public assistance from the Social Security Commission.
Total families displaced
Fort Leonard Wood area:
Pulaska County 310
Texas County.. 20
Total 330
Weldon Springs ordnance plant:
St. Charles County 184
Total _ 184
Camp Crowder:
Newton Countv 547
McDonald County ' 82
Total 629
> Estimated.
NATIONAL DEFENSE MIGRATION
8887
Public assistance families displaced
Fort Leonard Wood area:
Pulaska County 90
Texas County
Total 90
Weldon Springs ordnance plant:
St. Charles County 17
Total 17
Camp Crowder:
Newton County 118
McDonald County 82
Total 200
Displacement of Workers Due to Defense Priorities
The eflfect of displacement of workers due to defense priorities has not been
reflected to any considerable extent in increased applications for assistance at the
local offices of the State social security commission. Recent reports from the
St. Louis city office indicate that there has been no appreciable increase in applica-
tions which could be attributed to the fact that workers are losing their jobs
because of the closing of plants and industries due to priorities placed on materials.
The St. Louis County office of the commission reports that some workers have
been displaced in the sales division of the automotive industry because of the
decreased production of automobiles.
The Jackson County office of the commission, which area includes Kansas
City, estimates that approximately 10 applications for assistance are being
received each week from persons who had been working for firms that are now
unable to obtain supplies because of priorities. The director of the Jackson
County office predicts that unless some action is taken to protect small firms
as the defense program expands in Kansas City and the effect of priorities is
consequently felt more strongly, that the relief problem will become increasingly
serious.
Number of old age assistance recipients and amount of payments, October 1940-41
Year and month
Number of
recipients
Amount of assistance
Total
Average
per re- J
cipient
1941
October
September
August
July
June
May
April
March
February
January
1940
December
November
October
116,676
116, 192
115, 752
114,211
113,787
112,802
111,692
110,301
109, 238
109, 140
108, 349
106, 746
104, 370
503, 309. 60
490. 072. 10
477, 080. 30
452, 045. 30
0,39, 891. £0
018,397.50
997, 340. 00
969, 982. 00
950. 256. SO
949, 008. 50
1,619,994.40
1, 597, 335. 65
1, 564, 702. 63
$12. 88
12.82
12.76
12.71
17.93
17.89
17.88
17.86
17.85
17.86
14.95
14.96
14.90
8888
ST. LOUIS HEARINGS
Number of aid to dependent children recipients and amount of payments, October
1940-41
Year and month
1941
October
September
August
July
Jane
May -
April
March
February
January
1940
December
November...
October
Number of recipients
Families
14.299
14, 278
14, 206
14, 0,58
13, 937
13,711
13, .503
13,317
13. 230
13, 179
13, 181
12,350
11,949
Children
32, 9C9
32. 942
32,83
32, 485
32, 297
31,787
31,486
31,029
30, 945
30, 944
31, 078
29, 413
28,603
Amount of assistance
Total
$328, 438. 15
327, 354. 05
324,813.70
321,214.10
414.829.48
407. 9,54. 81
403, 293. 25
396, 465. 1 1
394, 336. 59
393, 563. 31
318, 165. 48
298, 199. 15
288,130.94
Average
Per
family
$22. 97
22.93
22.86
22.85
29.76
29.75
29.73
29.77
29.81
29.86
24.14
34.15
24.11
Per
child
$9.96
9.94
9.89
9.89
12.84
12.83
12.81
12.78
12.74
12.72
10.24
10 14
10.07
Number of cases receiving relief and amount of assistance, October 1940; October 1941
Year and month
Number of recipients
Total
Employ-
able
Unem-
ployable
Amount of assistance
Total
Average
Per
family
case
Per
.sincle
person
case
All
cases
1941
October
September
August
July
June
May
April...
March..
February.
January
1940
December
November
October
15, 439
15. 481
16. 825
18, 854
20. 708
22. 396
24, 102
25, 251
25, 787
26, 101
25, 923
25, 183
24, 894
2,474
2,625
3,779
5,347
6.861
8.260
9.501
10 212
10 819
11,372
12, 092
11,505
11,352
12, 965
12, 850
13,046
13.507
IS, 847
14, 136
14,601
15, 039
14, 968
14, 729
13,831
13, 678
13,542
$223,510.11
210 966.73
208. 729. 30
232.081.77
271.046. 11
281,549.20
316, 262. 60
350.796.12
3.58. 015. 46
371,931.97
330 204. 61
331,705.67
314, 485. 55
$17. 57
16.57
15.02
14.86
15.67
15.07
15.91
16.74
16.56
17.00
14.86
15. 04
14.86
$9.67
8.76
7.86
7.76
8.00
7.41
6.99
7.50
7.95
8.07
7.83
7.44
7.35
$14. 48
13.63
12.41
12.34
13. 09
12.57
13. 12
13. 89
13.91
14.25
12.74
13.17
12.63
STATEMENT BY CAPT. W. J. RAMSEY, STATE HIGHWAY PATROL,
JEFFERSON CITY, MO.
TRAFFIC PROBLEMS ARISING FROM NATIONAL DEFENSE MIGRATION,
NOVEMBER 26, 1941
With the advent of the national defense program, Mi.ssouri was confronted
with an unprecedented traffic problem. The demand for labor, especially of the
skilled type, caused a migration not only from the outlying sections of the State,
but also from the surrounding States to the defense project areas. The majority
of the laborers come in private automobiles and these combined with the many
trucks used to tran.sport material to the areas increased congestion and traffic
accidents with which the existing highway facilities have been unable to cope.
The function.'il design of the roadways permits the rapid, safe passage of only a
limited number of vehicles and there is little that the police or the drivers can
do to increase the capacity of these roadways. Whatever contributions can be
NATIONAL DEFENSE MIGRATION 8889
made toward improving the traffic situation can only be in regard to reducing
accidents. This is accomplished by the slowing up of traffic and is in no way
consistent with an adequate transportation system. Traffic accidents in this
case are a true barometer of our inadequate transportation system. Thus, the
problem reduces itself, not to accident reduction but to the fundamental problem
of efficient transportation.
Automotive transportation is essential to organized society and will continue
to be essential long after the defense projects have been eliminated. A critical
analysis of the present highway and traffic situation in Missouri proves that
engineering alone can solve the problem of congestion. This can be accomplished
by the reconstruction of existing roadways and by construction of new, modern
roads designed to carry modern traffic.
The following is a list of the defense-project areas and a short summary of
conditions around each:
I. Fort Leonard Wood
Fort Leonard Wood is located in the south central portion of the State and has
so far been the greatest problem connected with the defense projects. The high-
way's giving access to this area are U S 66, Missouri 17 and 28. Over these
roads there has been a 965-percent increase in traffic flow, resulting in a 417-per-
cent increase in accidents. This has been due to the migration of some 50,000
workers into the area and due to the fact that many of these workers commuted
up to 30 miles during the construction period; also to the fact that a majority of
the construction material was trucked into the area, since there was no railroad
transportation to the camp proper. At the present time, construction has almost
ended in the camp itself, but there is in contemplation construction of a new air-
port located near Vichy, Mo., which will bring in a large number of workers.
Although the construction period is almost ended, the traffic flow is still four
times greater than normal. With the increased traffic flow the accident rate rose
alarmingly and consequently made this area still more of a problem. The present
flow has appeared to stabilize itself, which means that this area will continue to
be a constant problem, due to tne strain on the capacity of the roads involved.
The above conditions are more readily understood when it is realized that this
camp was constructed in a county with a population of less than 11,000 people.
Into this county, with housing facilities for 11,000 people, moved the 50,000
workers and many thousand soldiers, and the work was concentrated in one small
section. It was necessary for these workers to scatter far and wide over three
counties to find homes and all had to be adjacent to the only main highway in
the area so they would have access to their work.
II. Camp Crowder
This camp is located in the southwestern part of Missouri. The access roads
are U S 71, U S 60, and the county roads in the vicinity. At the present time
there are about 16,000 workers from this camp and it is expected that the traffic
flow will increase from 300 to 500 percent over the preconstruction period. All
of these roads were built to carry ordinary traffic for a sparsely settled locality.
Much of the slow traffic has been eliminated, due to the fact that most of the
material is taken directly into the camp by rail.
The nitrate and loading plants just across the Missouri line in Galena, Kans.,
are other causes for the traffic increase, since many of the workers in these plants
commute from Carthage, Joplin, and Carl Junction. The problem here will not
be so great as that at Fort Wood, even though the roads are already overloaded.
Ill, Weldon Springs TNT Plant
This plant is located near the metropolitan district of St. Louis on U S 40 and
61. Approximately 15,000 workers are now employed, and in this instance there
has only been a 250-percent increase in traffic. Since the production personnel
is expected to be equal to, if not greater than the construction personnel, no
lessening of traffic can be expected here. The bomber plant now under construc-
tion at Lambert Airfield has added its share of traffic to U S 66. Almost all of
the workers at the TNT plant and the bomber plant commute from the city of
St. Louis and its suburbs.
IV. Small Arms Plant at Lake City
This plant is located near Missouri 7 just east of Kansas City, Mo. The access
roads are U S 24, U S 40, and Missouri 7. There has been a 1,670 percent in-
crease in traffic and very little increase in the number of accidents. Most of the
SSQO ST. LOUIS HKAUIN(;S
congestii)n here is caused by the fact that, traffic is bottlenecked
Kansas City, Mo., and i)y the Armoiir-Swift-Rurlington Bridge
Kan.sas City and Kansas City pro])er. The roads are heavily overioaaeci. i ne
contention has been lessened somewhat by staggering the working shifts of the
people employed at the plant.
both in North
between North
verloaded. The
V. Ammonia Plant Near Louisiana
This plant is located just south of Louisiana and its access roads are Missouri 79
and the many county routes. All of these roads are built to handle local traffic
in a farming community. The plant employs about 1,000 workers. The cars of
these workers have overloaded the roads, but the problem arises not from con-
gestion, but from possible accidents.
It can readily be seen from the problems resulting from construction in these
areas, both metropolitan and out-State, that in all instances road facilities have
been inadequate to handle the traffic increase adjacent to defense projects.
STATEMENT BY DR. JAMES STEWART, COMMISSIONER, MISSOURI
STATE BOARD OF HEALTH, JEFFERSON CITY, MO.
November 22, 1941.
The health problems created by national defense activities in Missouri have
been investigated and reported upon in detail by various State and national agen-
cies. Such reports by the State board of health and the United States Public
Health Service are available for the various areas concerned. It is a fact that no
area involved had entirely satisfactory health facilities before the emergency
existed, however, this varied all the way from practically nothing to reasonably
adequate, based on average prevailing conditions. Consequently, it is an ex-
tremely difficult, if not an indeterminable problem, to define the exact extent that
the present emergency has caused conditions detrimental to public health.
Further, the magnitude of the problem, even in the immediate future, has been
difficult to determine due to lack of definite information concerning the size and
demands of the defense projects and to what extent any particular locality will be
selected as recipient of the impact.
Purpose of This Report
It is the purpose of this report to,'in general, summarize the health problems
existing to date in Missouri due to national defense activities — their cause, nature,
need for control, and factors retarding satisfactory control. More detailed infor-
mation is available in above mentioned reports.
Areas Involved
1. Fort Leonard Wood, Seventh Corps Area Training Center, capable of hous"
ing a military population of 35,000 to 40,000, located in Pulaski County, having
a population of 10,772 (1940). There were no cities over 400 population (1940)
in Pulaski Countv before the emergencv and the two largest cities within a radius
of 45 miles of the" fort are Rolla, 5,141 (1940) and Lebanon, 5,025 (1940).
2. Camp Crowder under construction at present reported to be planned for a
military population of 18,000 located in Newton County, population 29,039 (1940),
about i mile south of Neosho, county seat, population 5,318 (1940). The largest
cities within a 25-mile radius are Joplin, population 37,144, and Carthaee, 10,585.
3. Lake City Small Arms Plant— Jackson County, population 477,828 (1940),
within 20 miles of Kansas City and Independence. Construction just completed —
employees estimated at 4,000 to 6,000.
4. Anhydrous ammonia plant located near Louisiana, population 4,669, Pike
County, under construction at present will require 1,000 to 1,500 workers; perma-
nent employees estimated at 450.
5. Weldon Springs Ordnance Works, practically completed, located in St.
Charles Countv, 14 miles from St. Charles, population 10,803, county seat; will
employ 2,000 to 3,000 persons.
6. St. Louis metropolitan area — Jefferson Barracks — located in this area and is
having a considerable increase in military population. In addition, the numerous
defense industries in St. Louis City and St. Louis County as well as East St. Louis
will increase the population of this area variously estimated from 25,000 to 200,000
persons.
NATIONAL DEFENSE MIGRATION 8891
Facilities Essential to Health Peotection
1. Safe, adequate water supply.
2. Adequate and efficient sewerage system.
3. Well controlled and supervised general sanitation including milk and food
sanitation, garbage and refuse disposal, mosquito control, etc.
4. Adequate housing facilities.
5. Sufficient hospital facilities, well operated.
6. Adequate, experienced health personnel constituting an organized health
unit.
Health Problems
Health problems in these defense areas are created due to (1) the rapid increase
in population, (2) limited existing facilities for health protection overtaxed due
to rapid population increase, (3) inability of these communities to finance needed
facilities, (4) delay in financial assistance from outside sources, and (5) recognized
danger of spreading epidemic diseases due to migrations of large numbers of people.
In practically all of these areas the facilities such as water supply, sewerage
systems, hospital beds, etc., either do not exist at all or are not adequate for
present increases in population. As an example, the city of Waynesville, nearest
city to Fort Leonard Wood, did not have, and still does not have, a public water
supply or sewerage system. The Fort Leonard Wood area had, and has at present
only 40 hospital beds available in priv^ate institutions, whereas, it is estimated
that at least 200 beds will be required to be distributed about equally at Rclla,
Waynesville, and Lebanon.
Housing in all areas is a problem although work has already started to remedy
this situation. From the health standpoint, the lack of water and sewage facili-
ties is one of the greatest drawbacks to satisfactory housing. General sanitation
control including milk sanitation, garbage and refuse disposal, mosquito control,
etc., are not effective in most of the defense areas due to insufficient local funds
and personnel.
Adequate organized health units including health centers, health physicians,
sanitary engineers and nurses were lacking in all of these areas except Jackson
and St. Louis Counties before the emergency existed. Since that time four full
time county health units have been established in the Fort Leonard Wood Area,
additions have been made to the personnel of Jackson and St. Louis County units
and also to the district health office having jurisdiction over the Neosho area.
These expansions in local health services have been possible through the loan of
limited personnel from the United States Public Health Service and Federal funds
from title V and VI of the social security law. However, there has been practically
no increase in these funds for Missouri since the emergency began, consequently,
sufficient personnel is not available to do a satisfactory job in any of these areas.
In addition to adequate full-time personnel, a satisfactory health and medical
care program cannot be maintained without the facilities indicated above as well
as local law enforcement personnel and local facilities for incarceration and
detention. The latter are particularly essential to control venereal disease which
is showing a rapid increase among the troops. Further, we are entering the second
winter of the emergency with no additional hospital facilities in any of the areas
and alread}' the threat of a serious influenza epidemic is indicated.
Local funds and local leadership are for the most part insufficient and lacking to
even attempt a solution or control of the many existing health problems. The
facilities of the State board of health are being strained to the limit to provide the
meager health organizations in existence. No additional funds for this board
will be available until the next legislature convenes in 1943 and the problem
continues to increase and become more acute.
Additional facilities, such as water and sewage works in certain defense areas
will be provided through Defense Public Works probably within the next 6 to 9
months or about 18 months after the emergency started. However, we are
informed that in the newer defense areas, such as Neosho, no funds will be available
from the present appropriation from the Lanham community facilities biU.
As previously indicated, limited loaned health personnel have been made
available from the LTnited States Public Health Service. This personnel is inade-
quate in number and the plan from an administration standpoint is not entirely
satisfactory. These .statements concerning Defense Public Works and the
United States Public Heatlh Service are no reflection on the sincerity and earnest-
ness of these Federal agencies to do the best possible under the legal restrictions
and deficiencies of the program as established by Federal statutes.
SH92 ST. LOUIS HEARINGS
Conclusions
1. 'i'liat to a grcalor or loss degree in all defense areas in Missouri, faeilities as
well as health organizations, are lacking or deficient to provide adcr|uatc public
lieaith protection from conditions created in whole or in part by the national
cniergi'iicv.
2. That local ability to cope with this added health problem is lacking, at least
in the inunediate future.
3. That a conscientious effort is being made to provide aid and assistance from
Federal and State sources within statutory limitations. However, the defense
created health emergency has been developed more rapidly and is far ahead of the
present program to provide for adequate healt h protection in defen.se areas.
TESTIMONY OF PANEL REPRESENTING HON. FORREST C.
DONNELL— Resumed
Tho Chairman. Mr. Anderson, one of the first things the committee
would Hke to learn from the panel is the degree to which the (h>fense
program has caused population movements within the State and at-
tracted persons from outside the State into Missouri in the hope of
getting defense work.
Mr. Anderson. I think Mr. Doarn is familiar with that.
Mr. Doarn. For some time in the various local offices of the
Employment Service, particularly in St. Louis and Kansas City, we
have been keeping a record with respect to the place of former resi-
dence of persons registering with our local office in Missouri. That
seems to indicate that in the two metropolitan areas of St. Louis and
Kansas City, 15 percent of our new applications each month are com-
ing from rural Missouri and from points outside of the State.
The Chairman. Can you give us an idea of the principal defense
projects in Missouri responsible for inducing this movement and
where they are located?
Mr. Doarn. The principal manufacturing projects in Missouri —
those engaged in production work — are located in Kansas City and
St. Louis. There are some manufacturing plants elsewhere in the
State and some cantonment projects under construction. There is the
Camp Crowder project at Neosho, a rural section of the State, and the
anhydrous-ammonia plant to be constructed at Louisiana, 100 miles
north of St. Louis.
The bulk of the production work, to the extent of $300,000,000, has
been allocated to St. Louis. There has been $100,000,000 allotted in
Kansas City.
Mr. Curtis. Are there any areas in tho State especially affected
by out-migration?
Mr. Doarn. I have some figures with respect to the break-down of
people registering, showing the percentage coming from rural Missouri
and those coming from other States.
Mr. Curtis. In addition to that, have you any locality where whole
families are picking up and moving and going outside of Missouri?
Mr. Doarn. No, sir.
Mr. Anderson. From newspaper reports there apparently is some
of tliat going on in Kansas City. People are leaving Kansas City,
particularly for the west coast, to work in the aircraft plants. There
are a number of schools in Kansas City training workers for the air-
craft industry, and the pupils are leaving as fast as they are trained.
Js^ATIONAT. DEFENSE MIGRATION 8893
Mr. Arnold. The committoe has noted that there is an increase in
traffic accidents since the defense program started, particularly in
rural areas, where the cantonments and ammunition plants are located.
I wonder if Captain Ramsey can tell us the facts on that.
Captain Ramsey. Yes, sir; there has been a decided increase in
those places because of the fact that these highways were not built to
handle the traffic they are now handling and because the workers,
when they come to these jobs, come in old, dilapidated jalopies,
Mr. Arnold. Under the bill recently signed by the President, I
assume that you expect to get additional road facilities in those
neighborhoods.
Captain Ramsey. That is right.
Mr. Arnold. And thereby greatly reduce traffic accidents?
Captain Ramsey. Yes, su*.
HEALTH HAZARDS IN DEFENSE AREAS
Mr, Sparkman. Dr. Stewart, I would like to ask you a question
with reference to the health conditions prevailing throughout the
State. We have found, going about, that there is great need for
increased facilities, including medical care, in these expanded areas.
Would you tell us something about the conditions that may prevail
here and the health problems growing out of them?
Dr. Stewart. Our first cantonment is Fort Leonard Wood, located
in Pulaski County, which is a very rural county.
Mr. Sparkman. How far is it from St. Louis?
Dr. Stewart. About 140 miles; and it is in a strictly rural section.
That is our first cantonment. Then, down in the southwest portion
of the State, we have now under construction Camp Crowder, another
cantonment, where we have, as I have said — ^and I may be just a
httle bit strong in my statement — no hospital facilities whatsoever.
Just referring to the question asked of Captain Ramsey a minute
ago, we had 781 deaths in ^Missouri from traffic accidents in 1940.
We have no Avay of taking care of those people. We have an influx
of people, as he has said, in all kinds of conveyances, and they are
living in shacks and tents and lean-to's, and even, in a few isolated
cases, in caves, if you please.
We have a venereal-disease problem to an extent that we might say
w^e have a "red light district" in Missouri from the city of St. Louis
all the way through on Highway 66, taking in Fort Leonard Wood,
and down into Camp Crowder, in the southwest part of the State.
There is a question and a problem of control. The increase of
venereal disease has been very great, as reported by the officials of
Camp Leonard Wood.
We are just at the present moment threatened with an epidemic of
influenza such as we experienced last winter, when we had to convert
our Trachoma Hospital into a hospital for hifectious diseases. We are
in dire need of hospitals through that section. It has been so reported
to the P. W. A. and the United States Public Health Service. We have
many public health units throughout the State and particularly through
that section, and we are douig all we can with the facilities we have
at hand. We feel that the need of constructing a hospital or two in
that area is most urgent for the safety of the civilian population. The
Army can take care of its people, of course, but there is nothing at all
8894 ST. LOUIS IIEAKINCS
lhrou<rh tliat soctioii to protect those peojjle who have been brought
in because of tlie construction work on the cantonments.
Mr. Si'ARK.MAN. Are appHcations being made for assistance under
the Lanham Act?
Dr. Stewart. Yes. We have received some assistance. For ex-
ample, the Government has been approached for a health center at
Waynesville, the nearest point to Fort Leonard Wood. We have a
temporary building there at the present moment. Our request has
been approved. We also have had a health center approved at
Lebanon, some 30 or 40 miles away.
A school has been approved for Waynesville, as well as a water and
sewerage project for that community.
Mr. Sparkman. So you feel that some relief is being obtained?
Dr. Stewart. Some relief in the very near future, and it is very,
very badly needed. But the greatest need at the present time — and
the Public Health Service has been made acquainted with that fact
as well as the P. W. A. — is the need for hospitals. I am sure that
would be a great relief. In fact, it is absolutely essential that we have
some relief of that sort, and very promptly.
AID FOR operation OF SCHOOL PLANTS
Mr. Sparkman. Mr. King, let me ask you a similar question with
reference to the school burden. Have you felt an increased demand
on the school system of Missouri from the increased population load?
Mr. King. We have made a number of surveys in the affected cen-
ters. Some of the need is being met through that first bill that was
passed for some additional building. One has already been approved
at Waynesville. But our immediate problem is the maintenance and
operation of the school plants that have increased enrollments due to
the influx of workers. In our State, as the State aid for education is
based on attendance estabhshed in the previous year, an increased
load coming in now would not be reflected in increased State aid for
this year. So our problem is to have sufficient maintenance and oper-
ation money in certain areas to permit tliem to operate their schools
until they have established their increased attendance, thereby
qualifying them for State aid.
Mr. Sparkman. I believe under the Lanham Act maintenance and
operation money is not let out, at least none of it has been let out yet.
Mr. Arnold. Captain Ramsey, I wonder if you would be able to
tell me for the record what places in the rural areas under your juris-
diction have been most afflicted with traffic accidents.
TRAFFIC ACCIDENTS IN DEFENSE AREAS
Captain Ramsey. The first one would, of course, be Fort Leonard
Wood, w^hich is located in the hills of Missouri. The roads were buOt
for the transportation of possibly not over a fourth of what they are
now carrying.
Mr. Arnold. The load has been mcreased fourfold?
Captain Ramsey. Yes. The second is Camp Crowder at Neosho.
The third one is the Weldon Springs Ordnance Works at St. Louis.
The fourth is the Lake City plant at Kansas City. And now there
is the ammonia plant at Louisiana, Mo., mider construction. So far
we have not had much of a problem at that place.
NATIONAL DEFENSE MIGRATION; 8895
Another factor that increases the accident rate materially is that
the men in service are given furloughs of short duration. They have
their own cars. They start home, and in order to have as much time
as possible, they ride at a rate of speed that is not in accordance with
the road conditions. The recommendation that I have to make is
that soldiers on furlough be required to use service trucks, with a
good service driver out of their own organization. I think we would
eliminate at least 50 percent of the accidents in the State if that
were done.
Mr. Arnold. But you are convinced that additional road facilities
are required?
Captain Ramsey. Very badly,
Mr. Curtis (to Mr. King). Have you noticed any community in
which the decline of population has been so large as to occasion the
closing of schools or the laying off of teachers?
Mr. King. The only place that has happened is where the Govern-
ment has bought land for a camp or a cantonment.
Mr. Curtis. And if a school happened to be located on such a site?
Mr. King. The families have moved out because of the purchase by
the Government of that property. I don't call to mind any example
of any local school district being depopulated by any other kind of
migration.
VENEREAL DISEASE AT ARMY CAMPS
Mr. OsMERS. Dr. Stewart, I was very much interested in your
remarks, and I am wondering if you are familiar with the contentions
and conclusions of Dr. Parran and Dr. Vonderlehr in their recent
book on the subject of venereal disease at Army camps. ^
Dr. Stewart. Yes, sir.
Mr. Osmers. From a review of that book, I gather that they
recommend that the Army itself, acting through its commanding
generals at various camps and defense points, exercise its authority
in stamping out the prostitution leading to this increase in venereal
disease.
Dr. Stewart. That is true. They are doing that. They are also
aiding, in conjunction with our health centers, in the maintenance of
venereal prophylactic clinics. The Army is doing that w^th the
assistance of the State health departments.
Mr. OsMERS. Have any results been noticed?
Dr. Stewart. No; I am very sorry to say that the report that I got
from Fort Leonard Wood just a few days ago was that as far as their
cantonment was concerned, venereal disease was increasing.
Mr. Osmers. It is a horrible commentary on our Army, because
they did not accept any boys who were infected.
Dr. Stewart. That is true, and the fact remains that nothing is
being done in a tangible way to control the infected prostitutes.
Mr. OsMERS. Cannot the State of Missouri exert its police power?
Dr. Stewart. We could exert our police power if we had a place to
incarcerate the prostitutes.
Mr. Osmers. It is a lack of facilities, you mean?
' Reference is to Plain Words About Venereal Disease, by Thomas Parran and R. A. Vonderlehr. New
York, 1941. Drs. Parran and \'onderlehr were witnesses before the committee in July 1941 and their testi-
mony on this subject appears in Washington hearings, pt. 17, pp. 670G-6707 and 6997H5999, respectively.
60396— 42— pt. 23 14
8896 ST. LOUIS HEARINGS
Dr. Stkwaht. Yos. Wc lack (lio f!K'iliti(>s to put them uiulcr obser-
vation and treat tlieni and (lisclmi.t^e tlieni with orders to get out of tlie
country.
Mr. OiSiMKUS. And liave tlieni <j:o to some other town?
Dr. Stewart. That is their business. But I say it is a serious
factor afl'ecting the health of our Army.
Mr. OsMERS. It is the greatest health factor facing the Army. It is
a concern to this committee because the migration of infected persons
from one ])}irt of the rnitcni States to another is a tremendous health
hazard.
Dr. Stewart. I don't thiidv it is the wise thing for any health
d(>partnient or healtii official to thinlv that these ])eople are going to
migrate to another community; but it is our duty to take these ])atients
and clean them up and possibly by so doing teach them the folly of
their w^ays and maybe send them on happy and in a condition in which
they cannot infect some of these other chaps.
Mr. OsMERS. You are extremely hopeful.
Dr. Stewart. I am only that way because of the situation, if you
please.
Mr. Osmers. In the Missouri law, does the State board of health
have ample authority?
Dr. Stewart. The State board of health has wide powers in the
control of infectious and contagious diseases.
LACK OF HOSPITAL FACILITIES
Mr. Osmers. Because of the lack of faci.ities it is impossible for
you to carry out those powers?
Dr. Stewart. Even our personnel is somewhat limited, but that is
to be taken care of if we get the facilities to handle these peoj)le. The
same goes for any other infectious disease. If we are afllicted with a
serious epidemic, we liave no place to care for the victims. The same
is true of accidents. When two or four people ai-e killed in an auto-
mobile accident and three or more are injured, where can wc take
them? They can't take them in the Army hosjjital. Thej'^ have to
depend on the community hospitals, and bed capacity is very limited.
Mr. Osmers. Do you think it would be possible or wise to have the
Army liospitals at some of these points open up to local civilians?
Dr. Stewart. That would be something if it could b(> done under
the rules of the Army. They would recpiire upsetting all of the Army's
regulations. This condition has b(MMi brought about by the defense
program and these cantonments. It has been wished on the State of
IVIissouri, and we'd like to have some lielp.
Mr. Osmers. I certainly think you are (entitled to it.
defense training courses
Mr. King, you have been in charge of all defense training?
Mr. King. It is administered by the State board of vocational
education, of which I am the director.
Mr. Osmers. What are the relations betwcu^n the various training
schools and em{)lovment services with respect to the referral of stu-
dents to industry on the completion of training?
Mr. King. We have a cooperative arrangement with the Employ-
ment Service. First we have a council of administrators that is made
INATIONAL DEFENSE MIGRATION 8897
up of roprosontatives from my office, a rcpresentativo from the em-
ployment office, and a representative from the National Youth Ad-
ministration. That council meets periodically and clears interdepart-
mental relationships.
We look to the Employment Service to indicate to us the t3'^pe of
framing that is needed and the number of men to be trained. Then,
upon the advices that are given to us by the Employment Service,
through an advisory committee on a State wide level we set up a policy
with reference to the approval of courses that come to us from the
local districts.
Mr. OsMERS. For the State as a whole, have you figures on the total
number trained and placed since the beginning of the training
program?
Mr. King. Yes; I have it broken down. Roughly, 50,000 have been
trained.
Mr. OsMERS. And placed?
Mr. King. Our records would indicate about 10,000 were actually
placed.
Mr. OsMERS. 10,000 of the 50,000 have been placed? Do you have
any break-down on the number of Negroes trained and placed during
the same period?
Mr. King. No; I don't have it here by wdiites and Negroes. I have
it by courses.
Mr. OsMERS. Are there any figures available on that subject?
Mr. King. Yes.
Mr. OsMERS. I think, Mr. Chairman, they might be of value if
supplied by Mr. King.
Mr. King. I will be glad to supply them.
JOB PLACEMENTS
Mr. Arnold. Mr. Doarn, what arrangements have you had for
placing workers enroUed \^ith you as available for employment?
Mr. Doarn. We operate our registration and placement offices in
38 areas in the State. All applicants applying at the offices are care-,
fully interviewed and classified as to occupational aptitudes, as based
upon education, experience, and other factors. We maintain in those
same offices a regular staff assigned to contact employers.
Our placement figures are running 20,000 to 35,000 a month. In
St. Louis we placed about 6,200 persons. The remanider w^ere placed
in the other parts of the State. About 50 percent of our placements
have run in Kansas City and St. Louis, and the balance is not in strictly
rural areas, but in smaller metropolitan areas throughout the State.
Mr. Arnold. Did you place workers in nondefense as well as defense
work? Have you any record of the workers placed in defense industry
since June 1940?
Mr. Doarn. Yes; I have. I can break that down by individual
pi'ojects. On the Fort Leonard Wood project, during 1940, 43,000
individuals were employed. Of that mimber 30,000 were placed
through the State employment service.
On the Camp Crowdor projc^ct at Neosho, there are now about
15,000 iiulividuals working, and 100 percent of them were cleared
through the local employment offices at Joplin and Neosho.
All the construction labor on the Remington Arms plant at Kansas
City was referred and cleared through the State employment service.
S89S ST. LOUIS he:arings
At tho anhydrous ftinmoiiia i)lant at Louisiana, Mo., both contrac-
tor and (luaitcnnastor cooperated 100 percent. While only 100 or
200 individuals are workinr;; there, 80 percent of them were chosen
thr(»usj;h the local einjiloynient olhce.
\N'ilh plants holding defense contiacts in St. Louis — not production
work — we have placed S,800 individuals in 1941 so far. The amount
of bushiess that wc arc doing with holders of defense contracts in St.
Louis varies from 30 percent upward, and I might say that that per-
centage ratio of placements through the employment service to indi-
viduals working is increasing steadily; and whereas 3 to 6 months ago
the percentage of workers being selected was very low, there is every
hulication that from this time out it will be 50 percent and upward.
Mr. Arnold. That is a very good percentage.
Mr. DoARN. I can give you that by mdividual firms for St. Louis
if you would like to have it.
Mr. Arnold. I think we should like to have it for the record if you
can do it. Is that included in your statement?
Mr. DoARN. Yes.
Mr. Arnold. We were told by Major Maloney, of the Connecticut
State Employment Service, that his office had placed men in one-third
of the jobs from June 1 940 to June 1941 . Can you give the committee
a comparable estimate in terms of percentage for the State of Missouri
for that period?
Mr. Doarn. Not on a State-wide basis. It would be almost impos-
sible to do it. It varies from locality to locality and depends on cer-
tain local situations. In Kansas City, when there was a close-working
relationship and understanding between the local office of the State
employment service and A. F. of L. unions w^ho had jurisdiction on
that particular job, all of those placements were cleared through our
office. In St. Louis, in the construction projects here, none of the
construction workers was cleared through the employment office, but
among the production workers the ratio is higher in St. Louis.
Mr. Arnold. You would say that the relationship is becoming
closer and your percentages are rising rapidly?
PERCENTAGE OF TOTAL PLACEMENTS
Mr. Doarn. On Camp Crowder it has been 100 percent through
the State employment service. At Fort Leonard AVood it was 75 per-
cent. On production w'orkers alone and production placements in St.
Louis at the present time it is 30 percent, and from the present time
on it will be 50 percent or greater, with every indication that it will
be much higher.
Mr. Sparkman. Mr. Doarn, let me ask you this. You mentioned
the job in the Kansas City area where there is very close cooperation
between the local employment office and the A. F. of L. How were
those requisitions made? Did the employer requisition the help
through your office, then you made the referral, and then they were
qualified by affiliating with the unions? Or w-as the requisition made
to the union and the union then requisitioned your office?
Mr. Doarx. They were made directly to the employment office in
Kansas Cit^^ We made the referrals and the arrangements had been
made for the registration of miion members to be employed. They
were registrants in our files.
NATIONAL DEFENSE MIGRATION 8899
Mr, Sparkman. Wliat about nonunion members? Do they have
any chance at all?
Mr, DoARN. No more on that type of project than on any project
where there is an understanding bet^veen employer and union with
respect to employment.
Mr. Sparkman, Suppose j'^ou have a nonmember of the building
trades. Could he qualify by joinmg and then registering with you?
Mr. Doarn. That is not a pomt, not on a construction project of
that kind. There is no point to it.
EMPLOYMENT OF UNION MEMBERS
Mr, Sparkman. Certainly. If the employer would ask only for
union mxcmbers, you would refer only union members to him. But
how would the individuals who are not union members qualify?
Mr. Doarn. By havmg an understandmg with the union.
Mr. Sparkman. Then such a worker would have to come back to
show you he had joined the union. Wasn't that true at Neosho?
Mr. Doarn. At Neosho it was worked pretty much both ways. In
other words, in certain crafts the workers were referred to the office
and we determined whether they were to be union or nonunion on
orders that we had. If we had available union people they were re-
ferred. In cases where we had orders for certain types of workers and
we did not have registered union members, we selected from our files
on the basis of qualifications, and these people were referred from
local employment offices to the union and then cleared to the con-
tractor.
Mr. Sparkman. When these requisitions are made of you, do you,
in making the referrals, pick out the names referred without any con-
trol or act on the part of the union? Do you pick out the individuals
to be referred, rather than the unions?
Mr. Doarn, I would say so; yes. You see, those projects are
pretty large, and in some cases you will find that certain organizations
will want a continuous clearance. That depends upon the relation-
ship and understanding that you might have. I would say that as
far as we are concerned, in Kansas City and Neosho and at Fort
Leonard Wood, the employment service was pretty free to make its
own selections with respect to those chosen from union groups.
Mr. Sparkman. You gave preference to those in the immediate
vicinity, and gradually widened and lengthened your registers as the
need arose?
Mr, Doarn. That is right. On the Fort Leonard Wood project
there were workers from all but one or two counties in the State of
Missouri. We didn't try to do it that way and we didn't keep a
tabulation on that until after the project was completed, but it was
rather interesting and significant to note. We found that the largest
number of workers came from the siuTOunding communities. There
were about 3,000 or more people referred from West Plains, Mo., 60
or 70 miles from the camp, and probably another 3,000 from Lebanon,
the first town of any size on the west, and probably 2,000 or 3,000
from Jefferson City immediately north of that. As you got farther
away from the cantonment site it became evident that the referrals
from those areas were progressively smaller.
S900 ST. LOUIS HEAHINGS
Mr. Curtis. Air. liurch, has the defonsc program had specific
cdVcts oil tlu^ rural pc'oph> of the Stai(^? Docs thorc appear to l)e any
teiuleiic^^ for tlie rural people (o move toward defense centers?
Mr. Jiuiicn. The farm help luis. The hired help.
Mr. Curtis. Has it been an individual migration, with farm men
and boys going to get these jobs, but with families not moving?
Mr. Bi;h('ii. Generally, that is true.
MOVEMENT OF RURAL YOUTH TO DEFENSE CENTERS
Afr. Curtis. Mr. King, I wonder if you eouhl estimate the extent to
wlueh rural youth is being attracted to defense centers?
Mr. KiNC. 1 could not venture an estimate. The reports are that
these rural youth are going to defense centers in great nimib(>rs, and
one reason for thinking that this is true is a decline in enrollments in
the National Youth Administration. However, it is sometimes pos-
sible for us to secure cnrollees on this out-of-school youth program out
in the rural areas.
Air. OsMERS. Air. Doarn, has the Alissouri State Employment Serv-
ice any estimate of the number of men displaced by priorities unem-
ployment?
Air. Doarn. Not of those actually displaced as of tiiis moment, but —
to broaden that group a little — those displaced iioav and likely to be
displaced within the next 80 days. In St. Louis there are firms upon
which \vc have reports. There are undoubtedly other individuals wdio
are out of w^ork as a result of priorities, particularly those in the smaller
establishments with whom we would not huve any contact. I would
say that Avithin the next 30 days, about 2,000 to 2,500 wall be displaced
because of priorities in St. Louis.
Air. OsMERs. How about the whole State? Are there any figures
on that?
Air. DoARN. In Kansas City there are about 850, and out-State
about 950.
Air. OsMERs. That w^ould make the figure around 4,000. Have
you any way of estimating w^hat percent that makes of the total?
You w^ould not know wdiat these small plants are going to do, or how^
much partial employment there wall be?
Air. DoARN. No, sir; I would not.
Mr. Carter. I w^ould like to make a statement for the record.
The Social Security Commission is responsible for the administra-
tion of general relief. I want to state that under present appropria-
tions of the State general assembly, it was necessary about midsummer
for us to remove under our administrative policy employable persons
on relief rolls in this State other than those families in which there
were minor children. We anticipate that if there is any stoppage of
defense activities with the resultant throwing out of work of persons,
and if to any great extent priority unemployment takes place in
Alissouri, we are going to have a very difficult situation, because funds
are so inadequate that w^e are very limited in what w^c can do for
employable peojde.
So any great increase in relief needs for residents ornonrcsidents is
going to carry with it grave consequences to the State. Nonresidents
are required to live in Alissouri for a year before they are eligible for
relief except on a temporary basis. I merely w-anted to point that
out. If there is anything the Federal Government might do in
assisting the States in the matter of general relief, it would be welcome.
NATIONAL DEFENSE MIGRATION 8901
Mr. Sparkman. You mean a fourth category?
Mr. Carter. That woukl have our whole-hearted approval.
The Chairman. We have made that recommendation to Congress.
Thank you very much, gentlemen, for commg here.
Our next witness is Mr. Davis.
TESTIMONY OF CHESTER C. DAVIS, PRESIDENT, FEDERAL RE-
SERVE BANK OF ST. LOUIS, ST. LOUIS, MO.
The Chairman. Mr. Davis, will you give us your full name and
address and occupation for the record?
Mr. Davis. Chester C. Davis, president, Federal Reserve Bank,
St. Louis, formerly of the National Defense Advisory Commission.
Mr. Sparkman. You might add a veteran before this committee.^
Mr. Davis. I am delighted to renew my acquaintance with the
members of the committee. I have filecl with the committee a
general statement which I will not repeat, with your permission, Mr.
Chairman.
(The statement referred to above is as follows:)
STATEMENT BY CHESTER C. DAVIS, PRESIDENT, FEDERAL RE-
SERVE BANK OF ST. LOUIS, ST. LOUIS, MO.
November 24, 1941.
My occupation since April 15 has provided little opportunity for direct observa-
tion of the effects upon labor supply of the expanding defense program. Yon
may recall that I discussed particularly with your committee the importance of
locating new Government defense plants outside of regions of heavy industrial
concentration. I also discussed the importance of spreading the load of defense
effort wideh' through subcontracting in order to make opportunity for the employ-
ment of labor in the defense effort without forcing long-distance migrations.
Complete statements have been made to your committee showing the location
of defense plants that have been provided for since my previous meeting with
your committee. It is unnecessary, therefore, to go into that, beyond expressing
my opinion that the defense authorities have done a good job in scattering those
later plants in areas that had not been directly reached by the earlier program.
I would prefer not to go into the question of subcontracting, for recent steps
have been taken in Washington which greatly enlarge the scope of activities in
that direction and it is too early to draw any conclusions as to the degree of
success that will be attained under the direction of the division of contract dis-
tribution.
As you know, I was particularly concerned to see that the defense program
provided an opportunity for the rural labor supply in areas where farm income
was low. Since my resignation from the National Defense Advisory Com-
mission, I have had no organization to study these questions, and my opportunity
for observation has been limited. Reports from Washington, however, indicate
that there has been a considerable increase in the volume of migration from rural
areas, in response to the opportunities for employment in defense industries.
But the reports which we have also indicate that the effect of this migration has
been very unevenly felt in the rural areas; some have had extensive movements
out, others have had very little. The rural areas which have been unable to
provide adequate school facilities and have a large rate of natural increase have
been less affected by this movement than other more favorably situated areas.
There is still a large reservoir of unemployed and underemployed population in
the rural areas of the Nation. This reservoir is located in areas where there is
no farm labor shortage, and little or no demand for additional workers in agri-
culture. Some steps have been taken to train these people for jobs in defense
industries, but much remains to be done if we are to utilize our full resources of
manpower in this defense effort.
I am told that the management at the powder plant in Radford, Va., found
that the workers whom they recruited from the nearby rural areas are an excep-
tionally capable group of employees. Thej" quickly learned the skills which are
' Chester C. Davis also appeared before the committee on December 11, 1940, at hearings held in Wash-
ington, D. C.
8902 ^'^- ^^oins hkakixcjs
noodod iiiul they liave shown remflrkable morale and ondmance. Experiences
like this make it clear that we oufj^ht to go much further than we have done in
looking to our rural jjroblem areas as jilaces from which to get workers who could
be trained for agricultural or industrial jobs.
The information about this movement is somewhat scattered and not at all
complete. The Farm .Security .\dnunistration has been asking its county super-
visors to report regularly on the number of families in the program who have
moved from farms to towns and cities. The latest report which is available is
for the 3 months — June, July, and .August, in 1941. For the entire country they
rejiort that 4 out of every 1,000 rural families on the program moved to a town
or city during that time. The rate of this movement was greatest in the New
England and northeastern industrial States and in the Pacific Coast States.
But in the Southern States, where the pressure of population on agricultural
resources is greatest, the migration was least. In the belt of States from South
Carolina across to Louisiana and Arkansas, only 1 family out of 1,000 was reported
as having moved.
It is, of course, true that this does not indicate all of the movement from the
farms of these low-income farm families to towns and cities; for in many instances
the family stays on the farm while one or more of the members, usually the grown
sons or daughters, move to a town or city. Again, the New England States and
the northeastern industrial States, as well as those on the Pacific coast, in this
Farm Security Administration survey, report rates somewhat above the average
for the United States as a whole. The region which includes Te.xas and Okla-
homa also has a rate well above that for the entire countr\'. But the other
Southern States as a whole had rates below the average for the country.
When one examines these figures somewhat closely, one is impressed by the
fact that the extent of this movement from the farms is very uneven. Some
counties seem to have much more of it than others, and in many there was little
or no movement reported among the Farm Security Administration borrower
families.
This unevenness in the distribution of the migration seems also to be one of
the findings of the surveys of migration into defense areas. The "Vtork Projects
Administration has made some surveys which show that the extent of the migra-
tion from farms into these areas differs considerably from one center to another.
In their study of recent migrants into Chicago, for example, they found that
nearly one-fourth of the workers had come from farming; but in Akron, Ohio,
only 12 percent came from farming; and in Fort Wayne, Ind., it was only 6 percent.
Migrants to defense areas, like migrants under other conditions, usually go only
short distances. The smaller centers generally have only a limited area wn'thin
which they recruit migrants and our industrial plant is not at all evenly distri-
buted over the Nation.
About a year ago, the Department of Agriculture, in cooperation with the
Purdue Agricultural Experiment Station carried on some studies of rural youth
in that State. Recently they checked up to find what had happened to the young
people who were present when the surveys were first made. They found, as
one would expect, that some of the young people had gone into the Army, others
had gone into nonfarm employment, and some of them in defense plants. But
it seems especially significant to me that they found that the rate of migration
from the farm was considerably greater in the sample area in northern Indiana,
which is nearer the centers of industrial employment than in southern Indiana,,
which is somewhat farther away. The young people in the southern Indians
area had had fewer educational and vocational training opportunities than those
in the areas in the northern part of the State, and in addition to the difference
in distance, they apparently were also less well able to compete with the younj
people from the more prosperous parts of the State.
Planning for Post- War Problems
Naturally, all of us in this district, as well as elsewhere in the United Statesj
are concerned over what is going to happen after the defense effort lessens. One
of the topics suggested for me to discuss was the extent of the work now beinj^
done by Government agencies to study these problems. Many Federal agenciesj
as well as a large number of private research organizations, are engaged in studies
along this line. I have been provided with an outline of the scope of study no\
being carried on by a number of Federal agencies, which I am glad to put ii
the record. It was supplied me by Mr. Ralph H. Danhof of the Office of
Defense Relations of the Department of Agriculture.
Your committee will undoubtedly go into these matters in greater detail ii
Washington. The wide diversity of this field of study and the number of agencic
NATIONAL DEFENSE MIGRATION 8903
involved suggests the importance of coordinating the studies under some central
leadership and direction. The National Resources Planning Board, which is
giving thought to the problem of coordination, is, I believe, wholly advisory in
its relationship to other governmental agencies.
Post-Defense Planning Activities of the Federal Government
I. National Resources Planning Board:
A. Coordinate and facilities post-defense planning work in all Government
agencies.
B. Prepare special plans with regard to the following:
(a) Demobilization (finding jobs for men in service, retaining, etc.).
(b) Public works and activities (prepare detailed, specific public
works proposals).
(c) Industrial production (conversion of defense industries, replace-
ment of obsolescent plant and equipment, etc. May be
handled by Production Planning Board of Office of Production
Management).
(d) Expanding service activities (medical care, schools, recreation,
etc.).
(e) Greater security (new forms of social security, programs for
relief and work relief, nutrition program, etc.).
(/) Financing post-defense measures (coordination of planning of
fiscal polic}-).
(g) International scene.
II. Department of Agriculture:
A. Rural public works (conservation, adjustment in land ownership and
occupancy, new land development, etc.).
(a) Cropland and pasture.
(b) Range land.
(c) Forest land.
B. Development of rural facilities and services.
(a) Facilities:
1. Rural electrification.
2. Rural housing.
3. Sanitation.
4. Rural roads.
5. Marketing facilities.
6. County agricultural office buildings, etc.
(6) Services:
1. Medical care.
2. Development of cooperatives.
3. Education.
4. Nutrition.
5. Rural cultural facilities.
C. Agricultural-industrial relations.
(a) Interest of farmers in industrial employment and foreign trade
after the war.
(6) Means of keeping full employment and high industrial produc-
tion after the war.
(c) Problems caused by changes in foreign farm production and
trade policies.
(d) Decentralization of industry.
(e) Problems in distribution of farm products.
III. Department of Commerce:
A. Bureau of Foreign and Domestic Commerce:
(a) International Economics:
1. Study of the international financial position of the United
States in terms of balance of payments by cyclical
periods.
2. Study of effects upon our foreign trade and finance of
complete British defeat.
(a) On our raw material supplies.
(b) On our trade with Europe.
(c) On our economic relations with Latin America.
(d) On our economic relations with Canada,
(fe) National economics:
1. Development of business data for more effective operation
of industrial policy and marketing.
2. Post-war industrial adjustments.
3904 /ST. IX)UIS HEARINGS
IV. Federal Rcsorvo Board:
A. Study of clTccts of our economy of enlarged defense program and
probable changes in American external trade resulting from war and
post-war developments.
B. Study of relations of taxation and of public expenditures to post-defense
employment and development of proposals in the fiscal and monetary
field.
C. Study of post-defense housing and urban rehabilitation.
D. Study of British Commonwealth-American relations, including an
analysis of the German organization of Europe.
V. Department of State:
A. Group discussion and analysis of various post-war problems as relief of
a prostrate Europe denuded of raw materials. Representatives of
other Government agencies are invited to attend the meetings.
VI. Treasury Department:
A. Studies of post-war taxation and debt policy.
B. Federal, State, local fiscal relationships.
VII. Department of Labor:
A. Bureau of Labor Statistics:
(a) Study of post-war shifts of industrial employment opportunity
and migration of laborers.
TESTIMONY OF CHESTER C. DAVIS— Resumed
The Chairman. When you appeared before our committee in
Washington, you devoted considerable attention to decentralization
in the defense program. The committee would like to have your
estimate as to what has been happening in the w^ay of plant decen-
tralization during the last year.
Mr. Davis. In the months leading up to my previous appearance
before your committee, I had taken, as a member of the Defense Com-
mission, the position that if this Nation is to mobilize its full man-
power for defense production it must make provision for tapping the
unemployed and unsatisfactorily employed people out on the farms
and in the small towns, as well as the enrolled unemployed in the
cities; that to do so it was important to locate new Government-
financed industry that could be operated outside the areas of present
industrial concentration; and that, in order to reach other areas where
skilled labor and labor supply is available, it was important to spread
the work both through prime contracts and subcontracts insofar as
possible. Now, in the plants that have been located and financed by
the Government since I appeared before the committee, I believe the
Government has done a very good job from the standpoint of the
principles which I favor. I have a feeling that the new plants, par-
ticularly the munitions plants, have been brought out into the country
in areas where there is a rural labor supply available. They have
done a very good job in the Plant Site Board, the O. P. M., and the
Army and the Navy in handling this problem. On the second ap-
proach, that is, spreading the work through new prime contracts with
new suppliers and developing subcontracting, I want to say that in
this district the Defense Contract Office has done an excellent job.
Particularly when you take into consideration the lack of support
which I felt they had from the Army and Navy, and when you con-
sider the inadequate finances they have had with which to carry on
their work out in the field. Now, as you know, a change has been
made. A new Division of Defense Contract Distribution has been
created in O. P. M. It is too early to say what the results are going
(NATIOMAL DEFENSE MIGRATION 8905
to be from this change. But I have hopes that they are going to do
even a better job in that hne than has been done heretofore because I
beUeve they are going to get better support from the Army and Navy
than they received in the earher effort. And I am sure they are going
to have a lot more money to work with than the men who worked in
the field before.
The Chairman. As president of the Federal Reserve bank here,
have you had many calls upon you from small businessmen for finan-
cial assistance in connection with the defense program?
DEFENSE BULLETIN DISTEIBUTION
Mr. Davis. Some, but not many. The Defense Contracts Office
of Contract Distribution has built up a mailing list of all of the men
in all of the firms in this area that are equipped to do any kind of
defense production. They send them, once a week or perhaps oftener,
a little defense bulletin which lists all information for prime contractors
and subcontractors which appears to fit the facilities of this area.
This bulletin also takes up the question of financing arrangements for
firms or individuals who want to tackle some of this defense work, but
may not have the working capital or financial backing to handle it.
We have stood ready, as the R. F. C. has stood ready, to back up any
prospective contractor or subcontractor who knows how to do a job
and has, or can get, the facilities with which to do the job — to assist
them in any financial arrangement they need. I believe the fact that
we haven't had many calls indicates that lack of financing has not
been the limiting factor in getting these industries going here.
Mr. Curtis. Do you read these weekly announcements of requests
for bids that these men get? You glance at them occasionally?
Mr. Davis. Yes.
Mr. Curtis. We discovered at our rural hearings in Nebraska that
sometimes they had only 3 days after receiving those bids in the mail
to have them back on the east coast, and at most they had 7 or 8 days.
And sometimes these bids call for some mmor changes in their plant
and for additional financing. Do you think this fact might be one
of the reasons why they aren't jumping in and coming to you for
financing?
Mr. Davis. Yes. I would say that the local offices do the very
best they can to get these bids out to local prospective bidders as
fast as they can, but unless the contracting authorities in Washington
make provision for that, you can't expect to get these bids in.
Mr. Curtis. In a further effort to get rural areas and small plants
to take part for the mutual good of everyone concerned, do you think
it would be well if production engineers could be made available with
sufl&cient authority to cut a few corners and get them adjusted and
started on a negotiated contract to see what they could do?
Mr. Davis. Yes, The plans of the local office wdiich will be dis-
cussed w^th the committee this afternoon, contemplate going just as
far in that direction as authorities in Washington will permit. We
found considerable reluctance in the Army and Navy to go into any
new channels in getting their supplies. I excuse them largely on the
grounds of the pressure for speed. As I stated to your committee
early last spring, they had to get the contracts out. It was easier
for them to go to firms they had previously dealt with, and the ten-
8906 ST. LOUIS HEARINGS
(loiu'v was to coiicontnitc the orders in that direction and not make
much provision for reaching out.
Mr. OsMERS. Do you anticipate any difficulty in financing the
sinaher subcontractors in tlie coming year by the use of the present
financial channels of the country?
Mr. Davis. I do not.
ARMY AND NAVY ARE CONTRACTING AUTHORITIES
Mr. Sparkman. Mr. Davis, getting back to the proposition of
getting these bids out on time, you referred to the contracting author-
ities back in Wasliington. Who are they?
Mr. Davis. The Army, the Navy,
Mr. Sparkman. Are they the ones we should go to in order to have
the tunc limitation corrected?
Mr. Davis. They are the final contracting authorities. They may
take advice from the civilian authorities like O. P. M. and you might
get modifications if O. P. M. brings enough pressure on them. Never-
theless, as Mr. Knudsen was continually reminding us on the old
Defense Commission, it is the Army and the Navy that are the
contracting authorities.
The Chairman. When you appeared before our committee in
Washington you advanced, as one of the possible cushions for the
post-war economic shock, a public works program. Has your view
changed in any way since that time or have you any new ideas?
Mr. Davis. I have some new ideas about it, but they all tend to
emphasize the necessity of being prepared with far-reaching public
works programs to cushion the effects, if and when this defense effort
slackens off. I have added to my statement, a report on what the
several Government departments and agencies in Washington are
doing in long-range studies relating to the post-war period,
POST-WAR DEFLATION CAN BE AVOIDED
The Chairman, Do j^ou feel that the economic shock of the post-war
period will be even greater after this present emergency than it was
after the first World War?
Mr, Davis, It doesn't need to be. This is going to demonstrate,
in my opinion, that you can bring about a larger utilization of our
manpower and our resources than w^e have ever done before, when
you go at it hard enough, I think it can be done after war is over and
you don't need to go into the deflationary course we experienced after
the last war. What happens in the future always depends on what
you do in the present, and if thinG:s are permitted to get too far out of
Ixand and if we have a serious inflationary situation now, it will make
the post-war period that much worse,
Mr, OsMERS. Wouldn't the natural consequence of your remarks
be that we must have very stringent price-control regulation in this
period?
Mr. Davis. I favor it, 3'es, sir.
Mr. Osmers, Would you favor it on agricultural commodities and
wages?
Air, Davis. By means appropriate to the respective ends.
NATIONAL DEFENSE MIGRATION 8907
Mr. OsMERS. Would 5^011 favor such a scheme as they have adopted
in Canada whereby wages are adjusted in accordance with the general
index of living costs? I believe that is their proposal.
Mr. Davis. That is right. Whether it is a completely adequate
adjustment or not, I wouldn't want to say. It is going to take action
on a great many fronts to hold things from going into an inflationary
spiral. No single thing can do it alone.
Mr. OsxMERs. Wouldn't .vou say the spiral is pretty well started?
Mr. Davis. I don't think it is out of hand yet. It has certainly
shown the tendency to start, particularly in prices and wages, where
the defense demand is greatest. Unjustified prices should be pre-
vented in agricultural products and you should move to prevent this
by means appropriate to the end. Wages also should be brought
under control; I don't know whether this price-control bill is planning
to do this or not.
Mr. OsMERS. We have had evidence in the Nebraska area that the
cost of producing a product next year is going to be higher than it is
this year because of the shortage of labor and also because of other
factors entering into it such as the rise in the cost of farm implements
and supplies.
You are much more optimistic on the post-war situation than I am.
I am thinking for the moment of the fiscal situation that will confront
us after the war is over. I am presuming that we may have a debt
of $150,000,000,000 or $200,000,000,000, and many of the remedies
that have been proposed for the post-war period hinge directly on the
expenditure of Federal funds. Do you anticipate any Government
financial diflficulties at that time?
Mr. Davis. Again that depends pretty much on the pohcy we
pursue at the present.
ADEQUATE TAX PROGRAM REQUIRED
Mr. OsMERS. How would you change our present policy to prepare
us for that period?
Mr. Davis. I would propose a courageous and adequate tax program
through this period. If we follow the policy of holding prices reason-
ably within bounds and then taxing additional national income that
results from the Federal war expenditures, we needn't end up with a
public debt as large as the one you mention. If we do those things
I don't anticipate any financial difficulties after the war is over.
Mr. OsMERS. Yes, but the point is we have not done those things.
In my judgment Congress thus far has not levied the taxes that are
required by the present situation. Our taxes are extremely heavy
based on our concept of the last 15 years, but based on the money we
are now spending our tax program is entirely inadequate. I feel
certain that, as a means of avoiding the awful truth of taxation, we
are going to have several proposals for forced savings. Forced savings
as a means of controlling inflation; forced savings as a means of financ-
ing the program; forced savings to do a great many things; but after
aU is said and done at the end of the war any forced-savings plan will
present a Government obligation. Would you favor a forced-savings
plan?
Mr. Davis. Not as a complete substitute for scientific taxation.
I would say, however, that forced savings represents curtailed con-
8908 ST. IvOUIS HEARINGS
sumor buying power, which, to the extent that it is made available
after the war, will lower the necessary contribution to the public
works program.
Mr. OsMERS. There is a good deal in that. It will conserve buy-
ing power now when we certainly don't need buying power and give
it to us after tlui war when we will need l)uying })ower to get going
again. It also pi-events consuiner competition from entering the
price field when a limited supply of goods is available. Do you have
any ideas about taxing income at the source rather than through the
methods we use today?
Mr. Davis. I am not advocating a 15 percent withholding tax at
the source now but it may become advisable somewhere along the line.
But I am not a tax expert. Has your connnittee invited Alvin
Hansen to appear before it?
The Chairman. No.
Mr. Davis. I just received a confidential preprint of a pamphlet he
is workhig on for the National Resources Planning Board, which
takes up this whole question extraordinarily well. I mention Hansen
as he may be employed by the Federal Reserve Board in Washington
to help organize a study in this field. I think you would find it
stimulathig to hear from Mr. Hansen.
Dr. Lamb. I think the committee would undoubtedly benefit by
hearing him.
Mr. Davis. Ho is probably the outstanding authority on this sub-
ject in the country at the present time.
The Chairman. Dr. Lamb, will you make contact with Mr. Hansen
when you get to Washington?
Mr. Sparkman. Mr. Davis, I would like to ask you a question
along this same line. You speak of the necessity of taxing part of
the excessive earnings by individuals, I presume?
Mr. Davis. No, corporations and individuals.
Mr. Sparkman. How are you going to levy a tax within the confines
of the Constitution that will not also hit that man who is on a steady
salary, whose salary has not been increased but has been badly
affected by the increased cost of livhig?
optimistic about post-war planning
Mr. Davis. I don't know. I imagine men who are experts in that
field could be able to throw some light on it. I don't thhik I can.
Mr. Sparkman. There is one other question. Discussing what is
going to happen wdien this emergency is over, you say that if it is
properly planned we ought not to have the same degree of shock we
had at the end of the last war. Is it your opinion that we have
approached it with more planning than we did m the other war?
Mr. Davis. Yes, definitely.
Mr. Sparkman. So you feel optimistic to that extent?
Mr. Davis. I believe it can be done. I believe it is important to
have a really high degree of coordination in all these defense plans
and programs. 1 doubt if that has been developed yet. But if we
do those things I think it is possible to avoid the mistakes of the
last war.
NATIONAL DEFENSE MIGRATION 8909
Mr. OsMERS. We always seem to be late on these proposals. We
are now starting to think of subcontracting. We are late on that.
We should have thought about that in the very earliest stages of the
program. I hope we won't be late on these proposals that have
been made to aid the situation after the war.
Mr. Davis. I do, too.
Mr. Curtis. Do you think we ought to plan something to follow
the post-war plans? We are talking about the defense program and
a work program to take care of things after it stops. What are you
going to have when that stops?
Mr. Davis. You are dead right. There never is any point where
things stop off clean-cut. These things stretch on in endless chains.
The Chairman. Thank you very much, Mr. Davis.
We will stand adjourned until 1:30 o'clock. (Whereupon at 12
o'clock the committee recessed until 1:30 p. m.)
NATIONAL DEFENSE MIGKATION
WEDNESDAY, NOVEMBER 26, 1941
afternoon session
House of Representatives,
Select Committee Investigating
National Defense Migration,
Washington, D. C.
The committee met at 2 p. m. in the city hall, St. Louis, Mo., Hon.
John IT. Tolan (chairman) presiding.
Present were: Representative John H. Tolan (chairman), of Cali-
fornia; Laurence F. Arnold, of Illinois; Carl T. Curtis, of Nebraska;
Frank C. Osmers, Jr., of New Jersey; and John J. Sparkman, of
Alabama.
Also present: Dr. Robert K. Lamb, staff director; John W. Abbott,
chief field investigator; Jack B. Burke, field investigator; and Ruth
Abrams, field secretary.
The Chairman. The committee will please come to order. Our
first witness will be Mr. Holland.
TESTIMONY OF LOU E. HOLLAND, PRESIDENT, MID-CENTRAL
ASSOCIATED DEFENSE INDUSTRIES, INC., KANSAS CITY, MO.
The Chairman. Mr. Holland, will you give the reporter your fuU
name and occupation?
Mr. Holland. Lou E. Holland, President of the Mid-Central
Associated Defense Industries, Inc., Kansas City, Mo.
The Chairman. Mr. Holland, I want to say to you, on behalf of
the committee, that we appreciate very much your coming here at
what we know to be something of a sacrifice.
Mr. Holland. I am glad to be here.
The Chairman. We are very grateful to you because we feel the
need of your testimony. The prepared statement you submitted will
be incorporated in the record.
(The statement referred to above is as follows:)
STATEMENT BY LOU E. HOLLAND, PRESIDENT, MID-CENTRAL
WAR RP:S0URCES board, KANSAS CITY, MO.
November 24, 1941.
The Mid-Central Associated Defense Industries, Inc., is the outgrowth of a
study by the Mid-Central War Resources Board of the problems confronting
small business.
In May 1940 Mayor Gage of Kansas City, Mo., called in for conference three
other mayors of this community: Mayor Sermon of Independence, Mo., Mayor
McCombs of Kansas City, Kans., and Mayor Hecker of North Kansas City, Mo.,
to determine what could be done in this area to aid in the defense program. As a
result of that conference, the Mid-Central War Resources Board, a nonprofit
8911
60::;96 — 12 — pt. 23 15
8912 ST. LOUIS HEARINGS
corporation, \vas organized. The mayors of Kansas and western Missouri were
made directors of the corporation and an operating committee of 11 were elected
to serve for 1 year. The names of this committee appear on our letterhead.
We proceeded to have 15,000 cjucstionnaires printed and distributed. From
these we obtained information on all kinds of business as represented in the cities
and towns throughout this area. The enclosed questionnaire shows the type of
information received from 142 towns, representing many lines of business.
As soon as the survey was comjileted, a break-down was made of each industry,
and this information was forwarded to Washington to give them an idea of our
potential production along given lines. We succeeded in obtaining several large
orders for cotton goods, and today we have about 19 companies busy on work
garments, uniforms, underwear, hats, caps, etc. The total volume runs into
millions of dollars.
In November, last 3'ear, I read in the papers that there was a shortage of
machine tools. I went to Washington, carrying with me a break-down of the
machine tools in this area. I talked to J. C. Nichols who represented this area
with the Advisory Commission on National Defense and to Dr. Isador Lubin. I
showed him the list of machine tools and told him that if a plan could be worked
out to use the tools where they were, there would be no housing problem involved,
no waiting on tools, and no shortage of mechanics and the economics structure of
the conmiunities would not be upset. Dr. Lubin was very much impressed and
later called and asked me to see Mr. Morris Cooke. Mr. Cooke advised me that
the plan I was working on was what Germany did, and that England did not
make much progress until she devised a way of using the smaller plants.
I talked with several men in the Army and Navy and was told that their regu-
lations would not allow them to place contracts with these small concerns; that
the thing for them to do was to associate themselves with a big company, allow
the big company to bid on a prime contract and, if successful, spread the work
out among the smaller plants. I advised them that I had gone to two of our
largest concerns with that sort of a proposal — their reply was that the Govern-
ment had surveyed their plants, chey were quite certain they intended to use
their facilities, and that they would have all they could do and that they would
not consider playing "wet nurse" to a lot of small plants. I can readily under-
stand their attitude and from their standpoint they were probably correct.
I was told repeatedly in Washington to get a large firm to bid on work and
have them farm it out to the smaller plants. I have just related how that works.
On December 17, 1940, I wrote a letter to the National Defense Commission,
sending the letter direct to Mr. J. C. Nichols for presentation to the committee.
I quote this letter in its entirety:
December 17, 1940.
National Defense Commission,
Washinglon, D. C.
Gentlemen: Many large manufacturing plants are being built in the United
States as factories for the production of articles which the Government urgently
needs in its extensive national defense program. Still more of these large plants
will have to be built in the near future if the program is to succeed. Generally
speaking, each of these extensive plants is being built with a single purpose in
mind. By this, I mean that each of the plants is being built to manufacture
some special item necessary to the rearming of our Armj' and Navy. These
plants will employ large numbers of people. Many of them are being built where
the housing of these workers presents a problem which will probably only be met
by building new housing facilities.
It is my belief that at lea^t a certain sizable percentage of the national
defense work can be done by a well organized utilization of existing plants, few
of which are being permitted participation in the program, because of their
inability to make complete the items necessary in this emergency.
The Mid-Centra! War Resources Board of Kansas City started last July to
oVjtain information on the various manufacturing plants in our area. Knowing
of the shortage of machine tools, we have assembled facts as to location, available
man power and machine power. From our observation, 90 percent of tlie smaller
plants will not be reached through the ordinary channels of defense contracting.
Most of these i)lants could not handle a Government contract m its entirety,
as they have neither the money nor the facilities for the completion of a much
needed article of defense.
In our opinion, a practical way of immediate utilization of both machines
and manpower in these small plants would be to set up a local coordinating
and technical agency to handle details of contract and assembly, farm out to the
IN'ATIOXAL DEFE2SSE MIGRATIUN 8913
cooperating plants the parts each is best equipped to manufacture; the completed
parts to be dehvered to the coordinating agency for assembly and delivery.
This arrangement carries the defense program to the smaller towns and
factories. It gives employment to idle men and idle machinery. There is no
housing problem concerned — immediate production would result. There is no
waiting on machine tools or plant construction and when the defense program is
over, the economic structure is less disturbed as the men are in their own com-
munit}'. These shops are all eager to do their part as evidenced by many letters
and personal contacts.
If this program can be worked out, we stand ready to immediately make
available the use of hundreds of shops, thousands of pieces of equipment, and the
necessary man power.
One day this preparation for war will be finished. If it continues to be the
policy of the Government to ignore small existing plants and to continue to build
large, single-purpose plants, the finish of the program will find us with a greatly
unbalanced industrial and economic picture. It will also find us ■with skilled
workers living in Go\ernment housing projects with no employment ahead of
them and probably with an inability to return to their former employment
because, imless these small plants are included in the rearmament program, they
will, when the program is finished, have disintegrated from forced idleness and
the removal of essential equipment. Already, attempts are being made daily
to purchase, from these small plants, machine equipment at highly inflated values,
for use in the larger plants which are under construction.
I have the detail of these shops right down to the last machine tool, size, type,
and all of the information necessary to apply it and its operator to do this needed
work. I firmly believe favorable consideration of this project by the Defense
Commission will greatly stimulate production in a practical, economical way.
Mid-Central War Resources Board,
Lou E. Holland, President.
Late in December a program was announced to open offices in the Federal
Reserve bank districts throughout the Nation, for the purpose of bringing the
smaller industries into the defense picture. Mr. Robert L. Mehornay headed up
that departnient. On January 24, 1941, I wrote a letter to Mr. Mehornay and
enclosed a chart which had been carefully worked out by engineers that would
show how the small manufacturers could be brought into production for the
defense program. I received no reply to this letter.
In February I had a long talk with Mr. Mehornay and told him that if they
would place a man in each of their contract service offices who had authoiity to
select items suitable to manufacture in the area and would use a form of organ-
ization similar to that suggested in my letter to him, they could immediately
get production and get all of the snail plants in the country busy. Mr. Mehernay
informed me they had another plan; that they were going to force prime contrac-
tors to subcontract. We had a quite lengthy discussion on that subject and I
advised him the plan would not work as successfully as he thought it would,
because it was unfair to a prime contractor who had a perfcrmance Loud up with
the Government to force him to subcontract a part of that work and he lesp nsible
for the subcontractor. »
I was not successful in convincing Mr. Mehornay as to our plan, but about 3 or
4 months later I talked with him and he said he should have listened to me; that
he had discovered I knew what it was all about and that he was having a great
deal of difficulty in getting prime contractors to willingly sul)contract any part of
their work. I knew the attitude of prime contractors because 1 had talked with
them.
In January this year, while in Detroit, I received a telegram from Mr. Pierce
Williams who was in the office of Mr. Morris Cooke, asking me to stop off in
Chicago to see a concern and that they had an order for tanks and were d sirous
of farming out or subcontracting a i art of the order. I immediately went to
Chicago, contacted this concern— they inquired whether or not we had any No. 4
milling machines or any Warner-Swasey lathes. I replied yes — they then said
they wanted to buy them. I explained that we did not want to disturb our
economic set-up by allowing machines to be taken out of the area, but that we
wanted to obtain work for those machines where they were. The man I was
talking with said to think twice about selling those machines; we are going lo make
all this work under our own roof and we are going to get the machines to do it.
I was told on one trip to Washington to contact a man in the Army who wanted
some work done. I contacted him over the '] hone and he said "you are the man
who has a large list of radial drills" and I replied yes. He then said "we want to
8914 'ST. LOUIS HEARINGS
buy them." I told him thoy were not for salo. I went down to the Mimitions
Building and had a talk with him, attcniDting to pet some work for our idle ma-
chines. He turned me over to a colonel — I showed him our list of cqui])ment,
asked him if there wasn't something we could do to hel)) out in this emergency and
his re])ly was "those farmers out there can't work to our tolerances."
Along about May of this year, I saw i)riorities coming and I heard testimony
before the Truman committee by a man from Office of Production Manag(;ment
who testified the further we got into the defense i)rogram the more idle machines
and the more idle men we were going to have.
I called a group together in our area and suggested to them they investigate the
])racticability of organizing a corjjoration to handle defense contracts. I told them
I could not assure them they would ever receive a dollar's worth of work, but I felt
it would strengthen their position if they were able to take a ccnitract in its entirety,
whereas as individual concerns they could not bid on a complete job. These men
thought well of the idea and the result was that we formed a corporation known as
the Mid-Central Associated Defense Industries, Inc.
We bid on a job of bore sights for the Navy and were awarded the contract on
September 2, 1 941. We have 30 concerns in the con^oration. Each concern owns
10 shares of stock, no more, no less, and 16 of these concerns will participate in
this order. The work is going forward in fine shape and I am firmly convinced
that the work turned out by this combination of shops will be entirely satisfactory.
While we are experiencing some trouble getting materials, they are starting to
come through. One of the problems confronting us is the fact that manufacturers
of precision instruments have withdrawn certain large sizes of micrometers from
the market and have issued a list of discontinued items to the dealers, which they
say is "in the interest of national emergency." They go on to state "we request
you do not call for any of these discontinued items; however, if you do, the orders
will be canceled l)y us." Due to the fact these large-size precision instruments
have been withdrawn from the market, we are asking the Government to loan us a
full set of items that we are to manufacture and from these we will make gages to
use in connection with the various parts which we manufacture.
I am greatly concerned about the small businessman. Our Government has
apparently set up two standards of procedure in the letting of defense contracts.
To the big fellows, they say "take it and make it on a cost-plus-a-fee basis. The
Government purchases land, erects buildings, fully equip them with new machin-
ery, give them educational orders and large contracts, with no possible chance for
the big concern to lose. The small manufacturer either cannot get work or else is
forced to bid and if successful, the chances are he will lose on the contract as he is
unfamiliar with the particular work he is doing.
Thousands of boys have left the Middle West to work in the airplane factories on
the east and west coasts. Many of the cities and towns throughout the Middle
West are suflfering because their skilled craftsmen could not find work at home and
have left for the congested centers where they can obtain much higher wages,
and the populations of our towns are on the decrease and in many instances only
common labor is left. The purchasing power of this class is not sufficient to allow
the stores to carry on in a profitable way and the income of the cities has dropped
to a point where they cannot render their customary service.
Exhibit A. — Articles of Incorporation and Bylaws of Mid-Central Asso-
ciated Defense Industries, Inc., Kansas City, Mo.
Know all men y:)y these presents that we, the undersigned, desirous of forming
a corporation under the laws of the State of Missouri and more specifically under
article 6, chapter 33, of the Revised Statutes of Missouri of 1939 and amendments,
relating to manufacturing and business companies do agree as follows:
First. The name of the company shall be
Second. The home office of the corporation shall be in Kansas City, Jackson
County, Mo.
Third, (a) The total capital of the corporation shall be and consist of 1,000
shares of conunon stock of no par value, fully paid and nonassessable.
(6) The amount of capital with which the corporation is to commence business
is $2,000 in lawful money of the United States; and the number of shares of the
corporation stock that will be issued fully paid therefor are 200.
(c) All of the shares of the corporation shall be voting shares and at all meeting
of the shareholders for any purpose and at all elections for directors, each holder
of shares in this corporation shall be entitled to cast one vote for each share of
fNATIOXAL DEFENSE MIGRATION 8915
stock held as bj' law provided, and shall be entitled to participate in all dividends
as shall be ordered by the Board of Directors.
(d) The capital shares of the corporation shall be issued only in units of 10
shares each, and no shareholder shall at any time own or vote more than 1 unit
(10 shares) of the common stock of this corporation. The Board of Directors,
pursuant to resolution, may offer or dispose of any authorized, unissued, units of
shares for such consideration and upon such terms as they shall, in the exercise
of their discretion, deem advisable.
(e) In the event of the dissolution of the corjioration, its balance of assets or
funds above its liabilities shall be distributed wholly and ratably among holders
of shares of stock in the corporation.
Fourth. The names and places and residences of shareholders and number of
shares subscribed by each are:
Name . Residence No. of shares
Fifth. That the Board of Directors shall consist of directors,
and may be increased at any annual elections of stockholders, but the total may
not at any time exceed 21. The directors agreed upon for the first year are:
Sixth. That the duration of the corporation shall be perpetual.
Seventh. That the corporation is formed for the following purposes:
(a) To promote and aid the national defense of the United States of America
and in connection therewith to cooperatively promote and utilize the resources
and facilities of the midcentral trade territory of the United States, as a trade
association, or otherwise.
(b) To aid in, supervise, or directly manufacture, assemble, purchase, sell,
barter and exchange, store, transport, distribute, brokerage, and otherwise acquire,
deal in or dispose of, manufactured articles, finished merchandise, raw materials,
machine tools, machinery, parts or appurtenances therefor, or any other essential
article, alone or in association with other corporations, firms, or individuals.
(c) To buy, sell, or otherwise acquire, hold, own, use, manage, improve, main-
tain, develop, rent, transfer or exchange real estate; to trade in and deal with
real property improved or unimproved; to rent or lease manufacturing, storage,
or transportation facilities separate and apart and independent of land, buildings,
or housing connected therewith, and to sublease or otherwise offer said facilities,
with or without profit, in the furtherance of the objects and powers of the corpo-
ration.
(d) To buy, sell, own, and hold stock, bonds, or obligations of other corpora-
tions, firms or individuals, for the purpose of investment or control, more specifi-
cally for the fulfillment of any of the purposes of this corporation, direct or through
partially or wholly owned subsidiaries, to borrow or loan money or other assets,
all as permitted by law.
(e) To enter into, make, perform, or carry out contracts of every sort and kind
which may be necessary to the business and purposes of the corporation with any
firm, person, or corporation (private, public, or municipal), the Government of
the United States, or any State, Territory, or Colony of the United States, or any
foreign government, so far as and to the extent that same may be done and per-
formed by corporations organized under the stock corporation laws of Missouri.
(/) To do all and everything permitted under the general powers of corpora-
tions, as conferred upon them by the stock corporation laws of the State of Mis-
souri, and to do any and all things that may be necessary to the business aforesaid
not otherwise provided for in these articles, which are not in conflict with the
laws and constitution of tho State of Missouri, or the laws, treaties, and Constitu-
tion of the United States.
In testimony whereof we have set our hands and seals this day of
, 1941.
Bylaws of
article i
Name and location
Section 1. The name of this corporation shall be
Sec. 2. Its general offices shall be located in Jackson County, State of Missouri.
The office of the secretary shall be at the same place and all books and records of
g9J(3 ST. rX)UIS HKAIUNGS
the corporation shall bo kept thereat. The office of the Treasurer shall be at the
same place and f^hall be kept within the State of Missouri; and all earnings,
income, profits, and moneys collected by the corporation shall be in charge of the
treasurer until same are disbursed or divided by the directors.
Sec. 3. Other oflices for the transaction of business may be located at such
other places as the board of directors shall from time to time determine.
ARTICLE II
Corporate seal
Section 1. The corporation shall have a seal, round in form, which shall have
inscribed around the outer edges the words and in its
(name)
center the words "corporate seal." Said seal may be used by causing it or a
facsimile thereof to be impressed or affixed or reproduced or otherwise.
ARTICLE III
Stockholders' meetings
Section 1. All meetings of the stockholders for the election of directors shall
be held at the principal office of the corporation. Special meetings of stockholders
for any other purpose maj' be held at such other place as shall be stated in the
notice of the meeting.
Sec. 2. The annual meeting of the stockholders after the year 1941 shall be
held on the first Monday of in each year at 10 a. m.,
when the.v shall elect, bj' a plurality vote, a board of directors and transact such
other business as maj^ properly be brought before the meeting.
Sec. 3. The holders of a majority of the stock issued and outstanding and
entitled to vote thereat, present in person or represented by proxy, shall be
requisite and shall consitute a quorum at all meetings of the stockholders for the
transaction of business, except as otherwise provided by law, by the articles of
incorporation, or by these bylaws. If, however, such quorum shall not be present
at any meeting of the stockholders, the stockholders entitled to vote thereat,
present in person or b,v proxy, shall have power to adjourn the meeting from time
to time, without notice other than announcement at the meeting, until a quorum
shall be present. At such adjourned meeting at which such a quorum shall be
present, any business may be transacted which might have been transacted at
the meeting originally notified.
Sec. 4. At each meeting of the stockholders every stockholder having the right
to vote shall be entitled to vote in person or bj^ proxy appointed by an instrument
in writing subscribed by such stockholder. Except in elections of directors, each
stockholder shall have one vote for each share of stock having voting power regis-
tered in his name on the books of the corporation. At all elections of directors,
each stockholder shall have the right to cast as many votes in the aggregate as
shall equal the number of shares of voting stock held by him, multiplied by the
number of directors to be elected, and he may cast the whole number of votes for
one candidate or may distribute his votes among one or more of the candidates,
as he sees fit.
Sec. 5. Written notice of the annual meeting shall be mailed to each stockholder
entitled to vote thereat at such address as appears on the stock book of the cor-
poration at least 30 days prior to the meeting.
Sec. 6. Special meetings of the stockholders for any purpose or purposes, unless
otherwise prescribed by statute, may be called by the president and sliall be
called by the president or secretary at the request in writing of a majority of the
board of directors or at the request in writing of stockholders holding 10 percent
or more of the entire capital stock of the corporation issued and outstanding and
entitled to vote. Such request shall state the purpose or jjurposes of the proposed
meeting. Business transacted at all special meetings shall be confined to the
objects stated in the call.
Sec. 7. Written notice of a special meeting of stockholders, stating the time,
place, and object thereof, shall be mailed postage prepaid, at least 30 days before
such meeting to each stockholder entitled to vote thereat at such address as
appears on the books of the corporation.
NATIONAL DEFE^'SE MIGKATIOM 8917
ARTICLE IV
Directors
Section 1. The property and business of the corporation shall be managed by
its board of directors, in number, one of whom shall be a citizen and
resident of the State of Missouri. Directors shall be stockholders and shall be
sworn to the faithful discharge of their duties. They shall be elected at the annual
meeting of the stockholders and each director shall be elected to serve until his
successor shall be elected and shall qualify, A transfer by a director of his stock
in the corporation shall operate as an automatic resignation of his office.
Sec. 2. If the office of any director becomes vacant by reason of death, resigna-
tion, retirement, disqualification, removal from office, or otherwise, the remaining
directors, providing they constitute a quorum, may choose a successor who shall
hold office for the unexpired term in respect of which such vacancy occurred, or
until the next election of directors.
Sec. 3. In addition to the powers and authorities by these bylaws expressly
conferred upon it, the board may exercise all such powers of the corporation and
do all such lawful acts and things as are not by statute or by the articles of incor-
poration or by these bylaws directed or required to be exercised and done by the
stockholders.
Sec. 4. Directors as such shall not receive any stated salary for their services
but by resolution of the board a fixed sum and expenses of attendance, if any, may
be allowed for attendance at each regular or special meeting of the board, provided
that nothing herein contained shall be construed to preclude any director from
serving the corporation in any other capacity and receiving compensation therefor.
Sec. 5. The first meeting of each newly elected board shall be held at the princi-
pal office of the corporation immediately following the adjournment of the annual
meeting of the stockholders in each year.
Sec. 6. Regular meetings of the board may be held without notice at such time
and place as shall from time to time be determined by the board.
Sec. 7. Special meetings of the board may be held at the principal office of the
corporation or at such other place or places, within or without the State of Mis-
souri, as shall from time to time be determined by the board. Special meetings of
the board may be called by the president on at least 10 days' notice to each director,
either personally or by mail or by telegram. Special meetings shall be called by
the president or secretary in like manner and on like notice on the written request
of directors.
Sec. 8. At all meetings of the board a majority of the directors shall be neces-
sary and sufficient to constitute a quorum for the transaction of business and the
act of a majority- of the directors present at any meeting at which there is a quorum
shall be the act of the board of directors, except as may be otherwise specifically
provided by statute or by the articles of incorporation or by these bylaws.
Sec. 9. The directors may bj^ resolution appoint members of the board as an
executive committee to manage the business of the corporation during the interim
between meetings of the board.
ARTICLE v
Officers
Section 1. The officers of the corporation shall be chosen by the directors and
shall be a president, one or more vice presidents, a secretary, and a treasurer.
The secretary and the treasurer may be the same person.
Sec. 2. The board of directors, at its first meeting, after each annual meeting
of stockholders, shall choose a president from its own number, and a secretary and
a treasurer, and any number of vice presidents who need not be members of the
board.
Sec. 3. The board may appoint such other officers and agents as it shall deem
necessary, who shall hold their offices for such terms and shall exercise such powers
and perform such duties as shall be determined from time to time by the board.
Sec. 4. The salaries of all officers and agents of the corporation shall be fixed by
the board of directors.
Sec. 5. The officers of the corporation shall hold office until their successors are
chosen and qualify in their stead. Any officer elected or appointed by the board of
directors may be removed at any time by the affirmative vote of two-thirds of the
whole board of directors. If the office of any officer becomes vacant for any
reason, the vacancy shall be filled bj' the board of directors.
8918 '^'^'- I^UL'KS IIKAKINOS
Sec. 0. The president. — Tho president shall be the chief executive ofTicer of the
corjjoration; he shall preside at all meetiiiffs of the stockholders and directors;
he shall have general and active manaKcnient of the business of the corporation,
and shall see that all orders and resolutions of the board are carried into effect.
He shall execute boiifls, mortgages, and other contracts requiring a seal, under the
seal of the corjjoration and shall have the general powers and dut ies of supervision
and management usually vested in the office of president of a corporation.
Sec. 7. The vice presideiil.- 'llie vice president siiail, in the absence or disability
of the president, perform tlie duties aiul exercise the jiowers of the i)resident, and
shall perform such other duties as the board of directors shall jjrescribe.
Sec. 8. The secretary.- — 'I'he secretary shall attend all sessions of the board and
all meetings of the stockholders and record all votes and the mimites of all pro-
ceedings in a book to be kept for that purjjose. He shall give, or cause to be given,
notice of all meetings of the stockholders and of special meetings of the board of
directors, and shall perform such other duties as may be prescribed by the board
of directors or jM-esidcnt, under whose suj)ervision he shall be. He shall be sworn
to the faithful discharge of his duty. He shall keep in safe custody the seal of the
corporation, and when authorized by the board, afhx the same to any instrument
requiring it, and when so affixed, it shall be attested by his signature or by the
signature of the treasurer or the assistant secretary.
Sec. 9. The treasurer. — The treasurer shall have the custody of the corporate
funds and securities and shall keep full and accurate accounts of receipts and
disbursements in books belonging to the corporation and shall deposit all moneys,
and other valuable effects in the name and to the credit of the corporation, in such
depositories as may be designated by the board of directors. He shall disburse
the funds of the corporation as may be ordered by (he board, taking proper
vouchers for such disbursements, and shall render to the president and directors,
at the regular meetings of the board, or whenever they may require it, an account
of all his transactions as treasurer and of the financial condition of the corporation.
If required by the board of directors he shall give the corporation a bond in such
sum, and with such surety or sureties as shall be satisfactory to the board, for
the faithful performance of the duties of his office, and for the restoration to the
corporation, in case of his death, resignation, retirement, or removal from office,
of all books, papers, vouchers, money, and other property of whatever kind in his
possession or under his control belonging to the cor])oration.
ARTICLE VI
Finances
Section 1. The funds of the corporation shall be deposited in such bank or
banks as the directors shall from time to time designate and shall be withdrawn
upon check or order over the signature of any of the officers of the
corporation duly empowered to sign checks.
Sec. 2. The board of directors shall have the power to authorize the borrowing
of money from banks, individuals, Federal agencies, or other sources, with or
without security, upon such terms as they, in their discretion, shall determine,
and may pledge therefor any asset, earnings, contract, subcontract, or other thing
of value of the cori)oration, alone or in conjunction with other corporations, firms,
or individuals.
Sec. 3. The permanent capital of the corporation having been planned merely
to cover the organization needs of the corporation, and it being intended that its
operations shall result in no profit to itself, and the corporation shall, from time to
time, have need of funds wherewith to defray administrative and other expenses,
the board of directors is empowered to authorize the establishment of an operating
fund and to determine how and on w-hat basis contributions to said fund shall be
made from time to time by the members (stockholders).
ARTICLE VII
Certificates of stock
Section 1. The certificates of stock of the corporation shall be numbered and
shall be entered in the books of the corporation as they are issued. They shall
exhibit on their face the name of the corporation, the State of its incorporation,
the name of the registered holder, the number of shares of each and every class
represented thereby, the par value of shares having a par value and the number
of shares without par value, the total nvimber of shares of each and all of the several
classes of stock which the corporation is now or hereafter authorized to issue, the
NATIONAL DEFENSE INIIG RATION 8919
par value of shares having a par vahie and any other provisions which may be
required, either by law or by the articles of incorporation. The certificate of stock
shall be signed by the president or a vice president and the treasurer or an assist-
ant treasurer or the secretary or an assistant secretary.
Sec. 2. The corporation shall have a first lien on any of the shares of its capital
stock and all dividends declared and accruing to said shares for any indebtedness
of the respective holders thereof to the corporation.
ARTICLE VIII
Transfers of stock
Section 1. It being the primary purpose of this corporation to function as a
trade association without pecuniary profit, devoting its efforts and powers to
furthering the collective affairs of its members (stockholders), and to that end
having restricted ownership to not inore than 1 unit of 10 shares of its capital
stock, shares of stock may only be transferred by the shareholder, in a complete
unit and only to a corporation, firm, or individual whose type of business and
interests are similar to, connected with, and congenial to those of the other share-
holders. The board of directors shall be the sole judge as to whether or not said
shares shall be transferred. Should the board of directors authorize the transfer
of said shares it shall be the duty of the corporation to issue a new certificate to
the person entitled thereto, cancel the old certificate and record the transfer
upon its books.
Sec. 2. The board of directors shall have power to close the stock transfer
books of the corporation for a period not exceeding 30 days preceding the date of
any meeting of stockholders or the date for the payment of any dividends, and
only such stockholders as shall be stockholders of record on the date so fixed shall
be entitled to notice of and to vote at such meetings, and any adjournment thereof,
or to receive payment of such dividend.
Sec. 3. The corporation shall be entitled to treat the holder of record of any
share or shares of stock as the holder in fact thereof and accordingly shall not be
bound to recognize any equitable or other claim to or interest in such share on the
part of any other person, whether or not it shall have express or other notice
thereof.
Sec. 4. The board of directors may direct a new certificate or certificates to be
issued in place of any certificate or certificates theretofore issued by the corpora-
tion alleged to have been destroyed or lost upon the making of an affidavit of that
fact by the person claiming the certificate of stock to be lost or destroyed and the
board of directors when authorizing such issue of a new certificate or certificates,
may, in its discretion and as a condition precedent to the issuance thereof, require
the owner of such lost or destroyed certificate or certificates, or his legal repre-
sentative to advertise the same in such manner as it shall require and/or give the
corporation a bond in such sum as it may direct as indemnity against any claim
that may be made against the corporation. Any such new certificate shall be
plainly marked "duplicate" upon its face.
article IX
Dividends
Section 1. Dividends upon the capital stock of the corporation may be declared
in such amount and payable at such time or times as the board of directors, in its
discretion, shall determine, but only out of such sources as shall at the time be,
under the laws of the State of Missouri, authorized sources for the declaration
and payment of dividends.
Sec. 2. Before payment of any dividend or making any distribution of profits,
there may be set aside out of the surplus or net profits of the corporation such sum
or sums as the directors from time to time, in their absolute discretion, think
proper as a reserve fund to meet contingencies, or for equalizing dividends, or
for repairing or maintaining any property of the corporation, or for such other
purpose as the directors shall think conducive to the interests of the corporation.
article X
Amendments
Section 1. Amendments to these bylaws may be made by a vote of the stock-
holders representing a majority of all the stock issued and outstanding at any
annual stockholders meeting; or at any special stockholders meeting when the
g920 ST. LOUIS HEARINGS
proposed anicndiiuMit lias lioon set out in tlio notice of such inoeting. At least
30 days' notice of any nieetin>< called for the ])uri)ose of ameiidiuK these bylaws
shall be given to the stockholders and such meeting, if not otherwise called, shall
be ordered by the directors on the written application of at least three stockholders.
ARTICLE XI
Miscellaneous
Section 1 . The fiscal year shall begin on the day of
in each year.
Sec. 2. The directors shall present a written report of the accounts and the
amount of business of the corporation to all the stockholders upon a written
request by one-third of the stockholders of the corporation.
Sec. 3. Whenever under the })rovisions of these bylaws notice is required to be
given to any director or stockholder, it sliall not be construed to mean personal
notice, but such notice may be given in writing, by mail, by dei)ositing the same
in the post office or letter box, in a post])aid sealed wrapper, addressed to such
director, or stockholder, at such address as appears on the books of the corpora-
tion, or, in default of other address, to such director or stockholder at the general
Eost office in the city of Kansas City, Mo., and such notice shall be deemed to
e given at the time when the same shall be thus mailed.
Sec. 4. Any stockholder or director may waive any notice required to be given
under these b3'laws.
Exhibit B. — Questions Asked in Manufacturer's Data Report
prepared by mid-central war resources board, city hall,
kansas city, mo.
1 . What do you manufacture? (State principal articles.)
(a) State volume and character of present business and general condition
of plant.
(b) Financial strength and possibilitj'^ of enlarging.
(c) Possible volume expansion with existing facilities.
(d) Have Government orders been handled heretofore?
(1) If so, state character of Government contracts, including descrip-
tion of products or equipment furnished.
(2) Were such orders for war purposes?
(e) Are you now furnishing to the Government products, equipment, or
materials? (State quantity, value.)
(/) Have you ever presented bids for Government contracts or are you
making an effort to secure orders?
(1) If so, where and what type?
2. Is your business a seasonal business? (If so, at what season is it best to
take on additional work?)
3. Give square footage of floor space. (State area now in use and area available
for expansion of present activity.)
4. Size, number, and stories of buildings; fire proof or not; location in city or
suburbs.
5. What percent of your plant capacity is available for new business?
6. Give square footage of ground area exclusive of ground occupied by buildings,
and how much expansion possible.
7. Is your plant on a railroad siding? (Give description of transportation
facilities.)
8. What power is used? (Steam, electricity, gas, water.)
9. Raw materials used, and source.
10. Source and cliaracter of water supply.
11. What is the average number of employees?
(a) How many of these are skilled? (1) Tool makers, (2) machinists,
(3) mechanics, (4) machine operators, (5) woodworkers, (6) miscellaneous.
(b) How many of these are semiskilled? (List bj' trade.)
(c) How many common labor?
{d) Availability of skilled and unskilled lal)or.
(e) Describe housing conditions and availability of housing for additional
emploj'ees.
12. List all machine tools, woodworking equipment and all classes of manu-
facturing and foundry equipment, giving number of each kind, size, and capacity.
NATIONAL DKP^ENSE MIGRATIOuS^ 8921
age, condition, and maker's name. (Example: 10 Warner-Swassey Turret Lathes —
up to 3J^-inch capacity — new 1939. Four Power Breaks — 6 to 12 feet >i-inch
capacity — new 1988.)
13. Do you work under union or nonunion labor conditions?
14. Do you completely finish products in your own plant? If not, what do
you buy, and what geographical sources do you ship to or receive from?
15. Do you produce products that are raw materials or semifinished materials
for other industries? If sO; name.
16. Do you want a war contract?
1 7. Would you work on other than cost-plus contracts?
IS. State in what way general representation of this area at Washington could,
in your judgment, be advantageous to you.
Exhibit C. — Industrial Conditions in 18 Towns in Kansas City Area
ANSWERS to questionnaires SENT OUT BY MID-CENTRAL WAR RESOURCES BOARD,
KANSAS CITY, MO.
Horio7i, Kans., J. S. Henderson, mayor.
Do you have industries in your town?
Chief industrial facility, Rock Island Railroad shops.
If so, are they working to capacity?
No; prior to 1930, 700 men; now, 25 men.
Is any of the work for national defense purposes?
No.
How many young men have been called in the draft?
None in draft, owing to county quota being filled by National Guard units and
Army and Nav}' enlistments.
How many skilled workers have left to work on defense projects in other com-
munities?
Estimated at 50.
What is 3'our increase, or decrease, in population due to the above reasons?
United States census 1930, 4,049; 1940, 2,855; 29-percent loss estimated in addi-
tional losSj military service and defense work, 10 percent.
What is the general outlook for the future of yoiu- community?
Without additional industrial activity Horton faces further sharp loss of
population, and the economic welfare of the remaining citizens will be seriously
further impaired. Whereas, Horton of 12 years ago with a population of about
4,000 had upward of 700 men employed in the railroad shops at good wages, the
period since has seen the loss of the best salaried class to the town, and a greatly
diminished earning power by the remainder. The loss of population has been
severe, but the loss of per family income has been much greater.
Among the most serious prosi^ects is the continued departure of the young men
and women from the town, manj^ of the most energetic and capable seeking loca-
tions elsewhere because of lack of opportunity here to earn a livelihood. Their
loss in future years of public and community service is a disaster to the long-term
outlook of Horton and vicinity. Very many families too, life-long residents here,
have Ijeen forced to leave their homes for new locations.
On the other hand, Horton has excellent facilities to provide ideal living condi-
tions for hundreds of additional people, providing the present nearly idle industrial
facilities of the Rock Island shops are put to use — and they are available for use
in the defense and the post-defense plan.
Splendid public and parochial schools are available with accommodations much
beyond their present use; likewise is this true of the churches, commercial loca-
tions, housing, utilities, governemental and recreational facilities.
Briefly, without additional industrial employment Horton faces a future of
diminishing living and economic standards and its unusual and valuable natural
advantages will be wasted.
Given a defense industry Horton will regain many of its old citizens and wel-
come new ones, and will resume and increase its usefulness as a typical American
agricultural and industrial city of self-reliant, home-owning, contented citizens.
What can we do to help the situation in your locality?
A recommendation for the use of the advantages offered for immediate useful-
ness in the defense program by the city of Horton would be helpful and greatly
appreciated.
g922 ^T. u^ris HKAiiiNcs
Yates Center, Kans., R. V. Stall, Mayor.
Do you have industries in your town?
Small repair shops.
If so, are thev working to capacity?
Yes.
Is any of the work for national defense purposes?
No.
How many young men have been called in the draft?
About 2o."
How many skilled workers have left to work on defense projects in other
communities?
None but students.
What is your increase, or decrease, in population due to the above reasons?
Very little either way.
What is the general outlook for the future of your community?
The immediate future looks prosperous or fairly so for our community, but I
am uneasy as to the distant future, say 2 or 3 years hence.
I think if strikes in industry could be halted and wages kept from pjramiding,
it would be a great help to our community, as the way things are going it creates
a spirit of dissatisfaction among our workers and places our farmers at a dis-
advantage, as the present trend will cause the price of all machinery which they
us? to rise to an unreasonable height.
In a nonunion town such as this is. common labor is getting from 30 to 50 cents
per hour; you can imagine what this means when the product which they buy is
produced by labor getting 90 to SI. 50 per hour.
Ottaica, Kans., L. C. Geiger, rjmyor.
Do you have industries in your town?
Yes.
If so, are they working to capacity?
No.
Is any of the work for national defense purposes?
A little of it.
How many young men have been called in the draft?
One hundred and seventy-five.
How many skilled workers have left to work on defense projects in other com-
munities?
Three hundred and twenty-five.
What is your increase, or decrease, in population due to the above reasons?
Decrease of 850.
TMiat is the general outlook for the future of your community?
Frankly, the immediate future of Ottawa and Franklin County is none too
bright. Our loss of population is in our workers of the county. Our relief load
remains virtually constant.
What can we do to help?
The Santa Fe shops at one time employed nearly 500 men. Their present
pay roll is approximately 30.
These shops might be used very satisfactorily for defense purposes if the Santa
Fe so desired. Your influence to get these shops transferred to a freight-car
manufacturer whose operations are expanding might put these shops to good
vise.
Coffeyville, Kans., J. D. Byers, mayor.
Do j-ou have industries in your town?
Yes.
If so, are thev working to capacitv?
No.
Is anv of the work for national defense purposes?
One. '
How many young men have been called in the draft?
About 225 including Troop B.
How many skilled workers have left to work on defense projects in other
communities^
Approximately 200.
What is your increase, or decrease, in population due to the above reasons?
NATIONAL DEFENSE MIGRATION 8923
Decrease about 800.
What is the outlook for the future of your community?
The future outlook for our connnunity is very good. We are doing consider-
able home building and city improvement work. However we desire very much
to see some of our machine shops and foundries get some direct or suborders
under the national defense program.
Barnes, Kans., P. E. Davis, mayor.
Do you have industries in vour town?
No.
How man}- joung men have been called in the draft?
One thousand five hundred registered from this county.
How many skilled workers have left to work on defense projects in other
communities?
Unknown, but many.
Wliat is your increase, or decrease, in population due to the above reasons?
Don't have exact figures but decrease in county to Fort Riley, Kans.
What is the general outlook for the future of your community?
I would say that in a general way the future is anything but promising. It
is an agricultural community, devoted largely to farming and livestock in normal
times.
This year, crops are going to be very short. There can be but little activity
in livestock when there is no feed or grain to fatten them for market. There
is but little emplo3'ment to be had for those who depend on wages or salary for
a livelihood.
The effects of such a situation obviously are very discourageing to the business-
men and merchants of the town. In fact, aid from somewhere is imperative.
What can we do to help the situation in your locality?
Barnes is located on the Missouri Pacific Railroad, is intersected by State
Highways No. 9 and No. 15, the latter intersecting National Highway No. 36,
10 miles north of the town. It is not only conveniently located but has a group
of very active citizens who will assure the success of any industry that may be
located here. There is available a nucleus of skilled men and women who are
industrious and that have proven their worth under proper supervision.
The vital need is sufficient capital to start them going in some way that will
make a real contribution to the Federal Government's program of defense.
Such assistance will in the judgment of practical businessmen serve a threefold
purpose. It would provide employment, save business, and aid in the defense
of America. The need is for immediate action.
Independence, Kans., F. M. Wilhelm, mayor.
Do vou have industries in vour town?
Yes.
If so, are they working to capacitv?
No.
Is any of the work for national defense purposes?
No.
How many young men have been called in the draft?
Seventy-three to date, 142 quota.
How many skilled workers have left to work on defense projects in other
communities?
One hundred, estimate.
What is your increase, or decrease, in population due to the above reasons?
Approximately 200.
What is the general outlook for the future of your community?
From an agriculture standpoint the outlook is good.
We will lose additional men to the draft and if current news reports are correct
we will lose our skilled workmen to defense industries. We have one plant
that has the space and desire to work on defense contracts but they have been
unable to secure contracts.
This plant is the Atchinson Revolving Door Co. and they have space to work
approximately 300 men and are willing and able to expand if necessary. Other
smaller plants are also willing to cooperate.
What can we do to help?
§924 ^'l'- I><^HMS HKAUIN(JS
Wo boliovo the futuro of the Midwost is at stako in tlio fiituro of tho towns
botwiHMi S.OOO ami oO.OOO. If thoso to\vi\s art> n>bhod of tlioir manpower ami
f)opulation tlio wholo sii-tion will go ilowii with tlu-ni. It stvins to us that the
argor corporations should not bo allowed to bid in additional defense coiitrarts
whon their eapaeitv h;\s been reached. These corporations can inulorbid the
smaller companies in the Midwest and therefore it is impossible for the smaller
companies to accept subcontracts froni the larger ci>rporations.
This is a bottleneck that can be adjusted by proper coopiMation.
Afacon, Mo., Chas. R. S/i(i/<', .\fnijor.
Do you have industries in your town?
Yes; see below.
If so, are they working to capacity?
Very few.
Is anv of the work for national dofen.'^e purposes?
Yes. "
How many young men have botMi called in the draft?
07, including volunteers.
How many skilled workers have left to work on defense projects in other
communities?
.\bout 100.
\Miat is vour increase, or decroase. in population duo to the above reasons?
Very little.
What is the general outlook for the futuro of vour comnuinitv?
Good.
Strip mine — approximate capacity 65 percent, will probably be increased 50
jx^rcent the coming year. Pit mines and drift mines, approximate capacity 50
percent, could be incrcjised 100 percent with a little more development.
Crojuiicry — manufactures butter, ice, and ice cream, approximately one-third
capacity being used.
Grain elevator — approximately one-half capacity being used.
Chicken hatcheries — approximately 50 percent. This is a seasonal business,
but could do more.
Laundry — full capacity, could use several more experienced employees.
Poultry houses, and farmer's exchanges, approximately 50 percent capacity.
Those businesses do very little processing of poultry products, mostly shipped out.
The coal business is the main defense project in this comnumity.
Macon is located at the crossing of the St. Louis-Des Moines line of the Wabash
Railway and the Kans:v> City-Chicago line of the Burlington Railway. Also on
the junction of U. S. Highways 30 and 63 making it available and of easy access
to all kinds of travel and shipping, both heavy and light.
There is opportunity for development iu the processing or agriculture products
in this community far beyond the point already reached, and also there is some
labor — nonskilled labor — available.
Anthony, Kans., E. I'ndcncoiyi, Mayor.
Do you have industries in^your town?
Two machine shops.
If, so, are they working to capacity?
No.
Is anv of the work for national defense purposes?
No.
How many young men have been cjilled in the draft?
Twenty.
How manv skilled workers have loft to work on defense projects in other
communities?^
Fifty.
WTiat is your increase, or decrojiso, in population due to the above reasons?
Two hundred.
What is the general outlook for the future of your community?
Verv gloomy outlook for future due to the fact that population is moving to
industrial centers, farm territory is getting smaller due to population thinning
out and what small industries the smaller communities have are moving to the
larger population centers.
NATIONAI. KKJ-KNSE MKilJATION 8925
What can we do to help?
Farm out national defen!so contractH to sinallor conirnunities equipped to handle
them and decentralize industries more.
Paola, Kans., A. A. Bryan, Mayor.
Do you have industries in your town?
Yes.
If so, are they working to capacity?
No.
Is any of the work for national defense purposes?
No.
How many young men have been called in the draft?
Two hundred and eight, including liattery F.
How many skilled workers have left to work on defense projects in other
communities?
J^stimated 25.
What is your increase, or decrease, in population due to the above reasons?
About 300.
What is the general outlook for the future of your community?
Poor.
What can we do to help the situation in your locality?
Get lactories.
We have application for shell-loading plant which would aid for area of 40 miles
around.
We have a coat factory which could make uniforms and would have done so
but for organized labor friction.
We have a good machine shop, could make small tools.
We have three main-line railroads and in good watershed, Bull Creek, Wea
Creek, and Marais Des Cygus River.
We could use an airport and have good locations at reasonable price.
We need labor for farms as farm labor has been depleted, no young men left in
vicinity.
We have State home guard unit to prevent strikes and sabotage.
We have two good mills, for flour and feed; oO acres of lake 2 miles or town.
We could hou.'^e peoplf at reasonable and nonwartime rates.
We are on U. S. Highway 109 and 1 mile of Kansas 68; very few dirt roads in
county and practically none in our city.
We are the county seat of Miami County.
Fort Scott, Kans., Harry C. Brooka, Mayor.
Do you have industries in your town?
Yes.
If so, are thev working to capacity?
Xo.
Is anv of the work for national defense purposes?
One.
How many young men have been called in the draft?
Thirty-nine and eighty-one in battery.
How many skilled workers have left to work on defense projects in other
conmiunities?
One hundred and fifty.
What is your decrease, in population due to the above reasons?
Your hundred.
What is the general outlook for the future of your community?
Average.
What can we do to help?
We are losing our skilled labor and young men to cities having defense orders.
^^'e need factories and defense orders for our small shops.
Osawatomie, Kans., W. H. Weber, Mayor.
Do you have industries in your town?
Several small machine shops.
8926 ST. DOUIS HEL\RINGS
If so, nre they working to capacity?
Nearly.
Is any of tlie work for national defense purposes?
No. "
How many skilled workers have left to work on defense projects in other coni-
muiiitios?
PerlKips as many as 20. A number have returned since to resume work as
machinists, etc., in the Missouri-Pacific shops in Osawatomie.
What is the general outlook for the future of your conununity?
Increased railroad business.
What can we do to help the situation in your locality?
You can get in touch with R. F. Colbert, E. A. Vest, H! E. Newhouse, all owners
of small machine shops in this city, Stith-Cassida Motor Co., Nichols Motor Co.,
and the McQucary Motor Co., of this city. All of those shops are equipped to
do certain tyi)es of machine work. The motor companies, could, with the neces-
sary special machinery, recondition ])lane and auto engines.
Osawatomie has a large number of advantages favoring the location of defense
industries here: (1) An almost unlimited water supply (two rivers and a lake);
(2) a municipally owned water and light plant, in a position to supply electricity
at lowest rates; (3) the center of rich oil and gas fields, with production which
might be used in the manufacture of munitions; (4) as the division point for the
Missouri Pacific Railroad, it is e.xcellent transportation facilities; (5) a good
supply of skilled workers, including machinists, locomotive mechanics, etc.
Warsaw, Mo., G. R. Bresee, Mayor.
Do you have industries in j^our town?
Have small gun stock factory.
If so, are they working to capacity?
Yes.
Is any of the work for national defense purposes?
No.
How many young men have been called in the draft?
Six.
How many skilled workers have left to work on defense projects in other
communities?
None, except carpenters.
What is your increase, or decrease, in population due to the above reasons?
None.
What is the general outlook for the future of your community?
There is nothing especially encouraging in the outlook so far as this community
is concerned. We have no industries of any consequence. The main business
is farming and considerable tourist and week-end fishing, with nothing to indi-
cate that it will be much different to what it has been in the past.
What can we do to help?
The thing that would help this community more than anything else would be
to have some small factories located here to provide a pay roll. The city of War-
saw has water and sewer facilities, electric lights and is located on the Lake of
the Ozarks on good concrete road and other good State highways so that it is
easily accessible from any direction and is also located on branch of Missouri
Pacific Railroad and is, we think, well located to be convenient for anv kind of
small factory. The Bishop Mill here is equipped to make all kinds of rifle stocks
and does make a large number of them that are sold to privare buyers, and their
plant could be enlarged to make larger numbers and different varieties.
Hamilton, Mo., Roy A. McCoy, Mayor.
Do you have industries in your town?
Two large mills and two hatcheries.
If so, are they working to capacity?
Yes.
Is any of the work for national defense purposes?
Not directly.
How many young men have been called in the draft?
Estimated 12.
How many skilled workers have left to work on defense projects in other
communities?
NATiuN^\L defexsp: migratiu:s' 8927
Possiljly a half dozen.
What is your increase, or decrease, in population due to the above reasons?
None, as families remain here.
What is the general outlook for the future of 3'our community?
Good from an agricultural and stock raising standpoint. (The J. C. Penney
farms are located here, which is his home town). W^e need, however, factories and
industries which will give us a pay roll. We have considerable unskilled and
some skilled labor in our community.
What can we do to help?
As noted above, we need factories and industries, to put our people to work.
Our location is excellent, being on the main line of the Burlington Railroad, with
National Highway 36 and State Highway 13 running through the town. We
are 45 miles east of St. Joseph and 70 miles northeast of Kansas City.
The city administration and chamber of commerce will be glad to cooperate
with anyone looking for a location of any kind.
Hamilton has a population of only 1,700, but we think it one of the best towns
of its size in the State and we surely would appreciate some help in getting lined
up for a defense industry.
Harrisonville, Mo., James D. Idol, Mayor.
Do 3'ou have industries in your town?
Foundry and brick plant.
If so, are they working to capacity?
No.
Is any of the work for national defense purposes?
No.
How man}- young men have been called in the draft?
Fifteen.
How many skilled workers have left to work on defense projects in other
communities?
Not over 25.
Wliat is your increase, or decrease, in population due to the above reasons?'
Very little.
What is the general outlook for the future of your community?
Since this is an agricultural community the future of course depends on crop'
production and the price.
W^hat can we do to help?
It it were possible to help get full production at the Gwathmey Foundry and
the United Brick & Tile Co. plant here it would mean a great deal. The brick
plant has just reopened this month but its continued operation is doubtful and
hinges entirely on future orders. Our community is naturally interested in any
industry we are capable of handling. However I believe it would be far better
to bring our present resources to full production before we attempt to move in
additional industry, unless the labor available could be used in the new industry.
Grandview, Mo., Garad Murray, Mayor.
Do you have industries in your town?
Yes.
If so, are they working to capacity?
No.
Is anv of the work for national defense purposes?
No.
How many young men have been called in the draft?
Sixteen.
How many skilled workers have left to work on defense projects in other
communities?
Twenty-one.
W^hat is your increase, or decrease, in popiUation due to the above reasons?
Decrease of 27.
W^hat is the general outlook for the future of your community?
It is feared that our laborers will be attracted to localities where defense projects
are in oj^eration and locate their families there and that the established businesses
of the town will suffer from this loss.
W^e also luiderstand that the new clause or article pertaining to defense hous-
ing via Federal Housing Administration does not include our community and
we believe that this will hinder this as a further development for homes.
60396—42 — pt. 23 16
8928 s'i'- i-oi'is iiKAUiNdS
What can we do to help?
Quite some time l)aek we suhmittefi a site for a projiosed auxiliary airport and
factory site. After due consideration of other sites to our knowledge submitted
to date, we contend that the one submitted l)y us is far the most practical and
has more possibilities for the mutual benefit of all concerned.
We feel that a concentrated effort in behalf of the above firoposition would
result in its early realization and a proven benefit to Kansas City, our town
and community, and a material link in the defense program.
Neosho, Mo., Glen Woods, Mayor.
Do you have industries in your town?
Yes.
If so, are thev working to capacity?
No.
I.S anj' of the work for national defense purposes?
I have sold small orders.
How many young men have been called in the draft?
Forty-five.
How many skilled workers have left to work on defense projects in other
communities?
Forty.
What is your increase, or decrease, in population due to the above reasons?
Five-percent decrease.
What is the general outlook for the future of your community?
We consider the future outlook, with some outside assistance, to be favorable.
What can we do to help?
We have several small industries, such ^s foundry and machine .shops, wood-
working plant, garment factory, all active but in need of more business, together
with several hundred available laborers looking for some profitable employment;
this would be of material assistance to our city and community.
Trenlon, Mo., M. L. Elledge, Mayor.
Are the industries of your town working to capacitv?
No.
Is any of the work for national defense purposes?
No.
How manv voung men have been called in the draft?
Sixty.
How many skilled workers have left to w^ork on defense projects in other
communities?
One hundred and fifty.
What is your increase, or decrease, in population due to the above reasons?
Two hundred and fifty decrease.
What is the general outlook for the future in your community?
Insufficient industries to furnish necessary employment.
What can we do to help the situation in ,vour locality?
Subcontract defense work.
Several industries here not working to ca]:)acity that could get in position to
handle subcontract work in connection with defense program.
Tractor Parts & Service Co. do welding and machine work of all kinds; also
the Trenton Machine Works.
Swift (fe Co. maintains a plant here, and we have good rail and truck service.
The Trenton Mining Co. operates a coal mine here during the winter months.
Have a municii)al light and water plant equipped to furnish an abundance of
both power and water at very reasonable rates.
Joplin, Mo., Dr. V. E. Kenney, Mayor.
Do you have industries in your town?
Yes.
If so, are they working to capacitv?
No.
Is any of the work for national defense purposes?
NATIONAL DEFENSE MIGKATION 8929
Yes; small orders at Rogers Iron Works, Miller Manufacturing Co., and
McNeal Machiner}' Co.
How many young men have been called in the draft?
Eighty-one.
How manj"- skilled workers have left to work on defense projects in other
communities?
Approximate^' 1,400 from Jasper County.
What is your increase, or decrease, in population due to the above reasons?
Approximately 1,500.
What is the general outlook for the future of your community?
The general outlook for the future of our community is extremely discouraging
at the present time for this reason: Joplin is faced with an acute unemployment
problem, due to the fact that Joplin is largely a mining town and our mines are
not operating at full capacity now.
What can we do to help?
To relieve this situation we need defense projects in our area. Joplin is justified
in requesting that we do have some sort of national defense project here, as we are
fully equipped, both from the standpoint of natural resources and manual labor,
to. handle this type project. Also, we have access to 7 railroads in our city, which
is a decided advantage for the location of any defense project,
TESTIMONY OF LOU E. HOLLAND— Resumed
Mr. Curtis. Will joii describe for the committee the fimctions of
the Mid-Central Associated Defense Industries, Lie?
Mr. Holland. It is an outgrowth of the Jvlid-Central War Re-
sources Board, of which I am president. That board was a fact-find-
ing organization. We made a survey of the State of Kansas and west-
em Missouri. We have the records of 142 cities and towns in there
and we laiow the type of work that those towns can do. After an
intensive study and after repeated trips to Washington I became
firmly convinced that these small communities had no place hi the
defense picture imder the present set-up. The Mid-Central Associ-
ated Defense Industries, Inc., is an organization which I set up, com-
posed of 30 small concerns that could handle a contract m its entirety
if given an opportunity.
Mr. Curtis. Mr. Holland, will you tell us a little about 3"our back-
groimd and experience?
Mr. Holland. I started ui as a boy and learned the machinist's
trade in a bicycle factory back in Rochester, N. Y. 1 worked at it
for 5 years and 3 months. I later took up photoengraving. At the
present time I am president of the Holland Engraving Co. m Kansas
City, and the Holland Corporation and the Double Rotary Sprinkler
Co. The Holland Corporation has been put out of busuiess by
priorities.
Mr. Curtis. What did vou make?
Mr. Holland. Electric etching machmes for the photoengravmg
industry.
Mr. Curtis. Wliat materials did you need that were shut off?
Mr. Holland. Electric generators.
Mr. Curtis. You have been a resident of Kansas City, Mo., for
*ome time?
Mr. Holland. Since 1902.
Mr. Curtis. You have also been active in the civic life of the city?
Mr. Holland. I served 2 years as president of the chamber of
commerce and 3 years as president of the Associated Advertising Clubs
of the World. I acted for 3 years as managing director of the cham-
ber of commerce of Kansas Cit\^ — from 1928 to 1931.
8930 ST. LoriS IIEAKIXCJS
Mr. Curtis. In reference to tho Mid-Conlral Associated Defense
Industries, Inc., where are your articles of incorporatioTi filed?
Mr. lIoLL.vxD. In tlie State of Missoui-i.
Mr. CuuTis. What is the nund^e:!- of shares?
Mr. Holland. I think there are 2,500 shares.
Mr. Curtis. And what is the vahie per sliare?
Mr. Holland. I don't know wh 'ther there is a i^ar vahie on them
or not. There is room in the corporation for 250 concerns if we care
to take th?m in. There are 30 in the corporation now. Each con-
ceiT owns 10 shar?s of stock and each concern has 1 vote, so a
harp' concern has the same voice as a small concern.
^Ir. Curtis. Does the concern maknic; some profiit distribute it to
them or is it a profit cor])oration as much as an organization for
mutual liel])?
small business pool
Mr. Holland. It is a mutual-help organization more than a profit
corporation. It was organized when I saw priorities coming and I
saw that these little concerns were going to be unable to carry on
and that as individual shops they couldn't take a job in its entirety.
Subcontracthig has not been any too successful and the thought
occurred to me that if 1 put a combination of shops together and
pooled their resources and got every type of machine in this pool,
they could then bid on and handle prime contracts.
Mr. Curtis. Have you received any contracts yet?
Mr. Holland. Yes; we have received a contract from the Navy
for bore sights to the extent of $268,000, and I have spread it out
among 16 of the member shops.
The Chairman. Do you know whether your plan has been adopted
in any other plants in the United States?
Mr. Holland. I don't think it has been adopted by, other plants
in exactly the same way. There is, of course, the York plan. And
there are some others where they have a big corporation that acts
as a niothei- hen, we might say, and takes in some smaller ones to
do some of the work that they didn't do m their own organization;
but insofar as I know, this is the first pool that is made up of small
industries.
Mr. Curtis. What, generally speaking, do you classify as a small
industry?
Mr. Holland. Well, of course, the entire Middle West is made
up of small industries. Even our largest industries are comparative!}'
small.
Mr. Curtis. What is the largest one in your corporation?
Mr. Holland. The largest that we have in our corporation are the
Locomotive Materials Co. of Atchison, Kans., and the Butler Manu-
facturing Co. of Kansas City, Mo.
Mr. Curtis. How many men will they employ?
Mr. Holland. I presume that they will employ from 400 to 600
men each.
Mr. Curtis. Will you be able to meet the delivery schedule imder
your contract with the Navy?
Mr. Holland. We will more than be able to meet it if we can
obtain the materials. We are just now getting materials, though we
have had the contract since September 2.
NATIONAL DEFENSE MIGRATION 8931
Mr. Curtis. Does the delay occur in securing priori ties or in
getting delivery after you get a rating?
DELAYS IN MATERIAL DELIVERY
Mr. Holland. We got a priority rating A-l-B which came with
the order. Just last week, we obtamed the aluminum on the order.
Some 2 weeks ago we got some of the steel. We have not secured the
brass yet.
Mr. Curtis. When did you make this contract with the Navy?
Mr. Holland. Bids opened on August 13, as I remember it, and
we were notified on September 2 that we had been awarded the con-
tract.
Mr. Curtis. Are the prices you paid for these materials, which are
bemg delivered to you at this belated time, the same you would have
paid if you had gotten them when you made your bid?
Mr. Holland. We haven't run into any serious difficulty there.
I believe in one mstance we did find that the price was a little higher
than it was when we made our bid.
Mr. Curtis. What has been your experience in relation to your
ability to bid on items offered by the Procurement Divisions of the
Army and the Navy? Have you found a variety of items within
the range of your resources?
bidding restricted by time limitations
Mr. Holland. I might explain that this way. If you would study
the Government Advertiser that comes out every Thursday — I receive
it on Thursday, because I pay for it to come air mail — and you look
down the list, you will find invitations to bid, numbers of them in
every issue. The bids are to be opened in 4 to 10 days from the
time you receive those advertisements. It is impossible to send to
Washington and get the blueprints and to bid intelligently on a job
and have it there in the time allotted.
Mr. Curtis. That has been the story that we have heard through-
out the entire Middle West.
Mr. Holland. It can't be done. I might elaborate on that just
a moment, if you care to hear it. Shortly after this corporation was
formed I received notice from the Bureau of Supplies and Accounts
that they were going to ask for bids for bore sights. I didn't know
what a bore sight was, but I sent for the blueprints and after looking
the blueprints over I saw that it was somethmg that our combination
of industries could make just as well as anybody could. However,
I don't think there is a single plant west of the Mississippi River that
could have handled this particular job. Not one plant. We had
about 8 days on that, 9 days, before the bids were to be opened. We
worked solidly for 8 days and on Sunday I had 8 men at my house
who worked from 10 o'clock in the morning until 5:30 in the after-
noon, and on Monday night, I took a plane for Washington, because
the bids opened at io o'clock Tuesday morning. That shows how
closely we are working on that particular job to get it in.
;Mr. Curtis. If you had broken the proverbial shoestring you
would never have made it.
Mr. Holland. Never in the world.
g932 •^'''- I^o'l^ HKA KINGS
Mr. C'l'inis. Coinniciit luis Ix'cii mndc fi-('(|U('iitly in tlic h(>Mriii<:;s
of this {■ominittcc thai, snuill iiijichiiic shops find it (lifliciilt to mod
{\\o close mjicliiiU' spcciticiilioiis for orchuiiicc work. Have you any
observation in r('<j;ai"(l to that (lucstion?
Mr. Holland. 1 have a lot of ohservatioiis. One of the paits
used oil this job for the Navy calls for 5,625/1 (),0()Oths of an inch
plus nothinti-, minus 2/10,00()ths. That is pretty close measure-
ments. Now, we put that particular part into the sliop of the Bnm-
son Instrument Co., who manufaclure siu-veyirii!; insti'uments, ami
are accustomed to precise work. They don't need the 2/lO.OOOths
leeway. Th(>y can make it e.xax't if necessary, l)Ut I wouldn't dare
to put it into some of the other shops. That is why I think that
in a pool such as we have, where you have (>very type (»f industry.
you can put into the ])arti<Mdar shoj), tht> thinu' they are l)(>st qualified
to do.
SHOirr.voK of gages
Mr. Curtis. Another statement ficquently heard is that a shoi'tage
of ^ii^os of all types prevents many i)rime contractors from sub-
contractine: their work. Can you furnish the committee with any
information along this line in terms of your own experience?
Mr. Holland. I am jz'lad you brouo:ht that (juestion up, because,
in this particular Navy job, some of the tolerances are very close.
I am particularly anxious that this ho as t2;ood a job as they can make
for the Navy, and it is g:ohig to be. We have to have micrometers
up to 13 inches m size to measm-e accurately some of the parts that
we are making. We needed about $400 worth of micrometers in
our own office for final inspection and for the Navy insp(^ctor to use
on these things, and some of the plants needed micrometers. So I
ordered about $400 worth of precision insti-uments from the Elfelt
Hardware Co. in Kansas City. They placed the order, I think,
with the L. S. Starrett Co. of Athol, ]\rass., who have b(>en making
precision instruments since 18S0. The next day the Elf(>lt Hardware
Co. called me on the telephone and quoted from a bulletin tliat they
had just received. It said, "a new list of discontinued items in certain
sizes m the interest of the national emergency." Now the metal
involved in the making of a micrometer is nil. It doesn't amount
to anything. It is a precision instrument, and if there was ever a
need for precision gages, it is at this time whcTi we are making so
many precision items. He went on to say, "We request you not
to call for any of these discontinued items. However, if you do,
the orders will be canceled by us." Now, I don't care how close a
small manufacturer could work; if he received a subcontract, or if
he is workhig on a prime conti'act aiid cannot obtain gages, he wouldn't
dare put a tool on a piece of metal, and the small bushiess would be
wiped out entirely. To offset this I had made a request of the
Navy that they send us a complete set of the items that we are to
manufacture, and we will have one firm make a gage for ovory one
of those items and use that gage because we caimot oi)tain precision
instruments to measure them by.
Mr. CuRTLs. Would you carc^ to state the degree to whicli your
corporation or pool plan can b(> adapted to the needs of other
communities?
Mr. Holland. I think it will work in practically every community
in the United Stat(>s. I think it is the practical way for small business
NATIONAL DEFENSE MIGRATION 8933
to haiullc (l(>tViiso contracts. I will tell you why. It is because,
ill eflect. every man who takes part in a coiitraet really becomes a
prime contractor. He is not a subcontractor. In this little pool
that we have with 16 concerns working now, each one of those con-
cerns is watching to see that the other fellow doesn't slip in any way,
because the job is going to be judged in its entirety, and any one man
can spoil the Avork for everybody connected with it. I think the
plan is thoroughly practical.
Air. Curtis. Coming back to the question of the control of your
corporation — 1 believe 3"ou said all firms have the same number of
shares of stock; that means equal voting strength, regardless of
whether they are a firm tliat employs 100 people or 500.
Mr. Holland. Yes, sh-.
Mr. Curtis. And you thiidv that is probably the best solution?
Mr. Holland. I think it is.
Mr. Curtis. I want to ask you this question. How would small
manufacturers, who have been making products that did not require
precision instruments and did not call for processes of fine tolerances,
fit into this sort of picture?
SMALL PLANTS COULD FOLLOW A TOLERANCE
Mr. Holland. They might fit in very well. I think England has
gone through that. About a month ago I had the pleasure of lunch-
ing with George Thompson who is one of the heads of the British
Labor movement. I lunched with him and William Green in Wash-
ington, and I asked Mr. Thompson that very question. He said,
"It has been our experience in the first place that we didn't need the
tolerances that our engineers were calling for. But we have been sur-
prised at the way these small plants could follow a tolerance if given
an opportunity." I think the best answer to that is that the boys in
the Midwest have been repairing tractors and old Ford cars and that
sort of stuff, and they have not been compelled to come down to
2/10,000tlis, but if given a gage they soon get the feel and they can do
it.
Mr. Curtis. As you may know, this committee has taken the posi-
tion that it is absolutely necessary to bring the small machine plants
into the defense program to get the production which this country
needs for defense work. The committee likewise wishes to see labor
dislocations and unnecessary migration held to a minimum. Have
you specific recommendation to help accomplish these objectives?
Mr. Holland. Yes, I made a suggestion to the Defense Commission
on December 17th of last year. At about Christmas time they came
out with the announcement of the contract service. I had a long talk
with Mr. Mehorney at that time, and I begged him to set up a plan
that would use the men and their machines in the communities where
they were, and not disturb the economic condition of those communi-
ties. I talked with Dr. Lubin about it. Dr. Lubin said that my plan
was very sound. I taU^ed with Morris Cooke and he said it was
very sound. I talked with the Army and Navy about it, and I was
told by them that the regulations would not allow them to use an
organization like that. And one "brass hat" in the Army informed
me that "those farmers out there couldn't work to our tolerances."
I think it is thoroughly practical to distribute this work out among
these shops. I think that they already have the organization that
g934 ST. LOUIS TIKAIUNnS
could liandlo it. I think Mr. Odium should he givon the power
throutrh his Contract Distrihution Ofliccs to plnce the whole contract
instead ol" he.i^iriuo; these fellows to suhcontract. As it now is, the
small manufacturer hids on somethinfj he has m^ver s(hmi before;
there is no time allowance for educational work; the low bidder o;ets
the contract and stands a jrood chance of losin<^ money on the job.
I don't care how complicated the machine is, if you take it apart and
you put one piece in this room and one piece in that room and scatter
it all over and look at the pieces individually, it ceases to be a com-
plicated piece of machinery. It is only complicated when all these
parts are put to<2;ether and the machine functions as an inteo;ral whole.
Many of these fellows can make these parts just as well as anybody
can, and 1 suggested that to Mr. Mehorney.
Mr. Curtis. You mean to carry this out along the line of authoriz-
ing someone to go to these places and negotiate a contract fitted to the
plant and the equipment and the labor supply that they have there?
Mr. Holland. Yes, sir. For instance, the Ordnance Department
of the Army has had men in the field for years making surveys of
plants. The Contract Service has made a survey. The Navy has
made a survey. All they could do until now is to go in and ask to see
that man's equipment and list it, and catalog it. They could advise
him that Pontiac or somebody else has a job and that he should write
to them to see if they want to farm out part of it to him. We would
save a lot of time and effort and get some place if what I suggest were
■done. Most of the ordnance men know their business and what is
required. He could walk into a plant and say, "Can you make that?"
and they would say, "I don't know, I think I can," and he would say,
"We will find out what you can do. Let us see you make 1 or 2
and find out your costs and I will be back here. We need 10,000
units of this part."
EFFECT OF WIDER CONTRACT DISTRIBUTION
Mr. Curtis. In so doing you would eliminate the cost of plant
-expansion a great deal.
Mr. Holland. Yes.
Mr. Curtis. And congestion with its needs for further housing and
schools and sanitary facilities.
Mr. Holland. Yes, sir. We are congesting these communities
like the city of Detroit and some of the cities on the east and the west
coasts. We are ])utting men in there by the thousands and giving them
mass instructions on how to upset America. You can't do that with
these boys in the Midwest. Distribute your work and you will solve
many of these ])roblems.
Mr. Curtis. In distributing these conti-acts to fit what the firm is
able to do, would you give leeway to local wage levels and freight lates?
Mr. Holland. I would.
Mr. Curtis. One other thing about your organization. How
many full-time employees do you have in your corporation?
Mr. Holland. So far I hav^e devoted all of my time for 15 months
with no pav whatever. I have a young lady whom I pay $25 a week,
who looks after my correspondence for the Mid-Central War Resources
Board — that is our original organization. The office of the Mid-
Oentral Associated Industries, Inc., is in the same oflTice on. the
NATIONAL DEFENSE MIGRATION 8935
Twenty-sixth floor of the city hall, and up to now I have had one man
on my pay roll whom I am j^aying $300 a month.
Mr. Curtis. Mr. Holland, we are most grateful to you for your
testimony here, and as I have just come from two hearings held in
areas where there are many small businesses I would say that you have
expressed the hopes of the small businessman in your recommendation
for more time in which to get bids in, and your recommendation that
contracts be negotiated to fit whatever the manufacturer can do.
The Chairman. Of course, Mr. Holland, we have to keep our minds
on the thought about our own committee. We are a Committee on
Defense Migration. We are trying to help in the solution of that
problem. I think the statement you made is the most interesting
thing I have heard. The more people that leave their homes and go
to Detroit and Concord or Trenton, N. J., and these other places, the
greater the problem is going to be of the migration in post-war years.
Mr. Holland. Yes, sir.
The Chairman. As to the corporation you speak of, I am no
mechanic but I can readily see how small plants which probably
couldn't do a job alone, by uniting and getting together can do an
excellent job.
Mr. Holland. That is right.
The Chairman. I wonder if it is possible for us to have a copy of
your articles of incorporation and bylaws.
Mr. Holland. I have them here.
The Chairman. Could you give us a copy? I will have them
incorporated in the record as an exhibit.^
Mr. Holland. Yes, sir; I can.
The Chairman. Speaking for myself only, I think it is the most
entrancing suggestion I have heard throughout the United States.
Mr. Holland. Mr. Tolan, we need capacity production by both
the large and the small plants if we are going to win this war, with
strikes outlawed. We have got to have that, and I think we have got
to take control immediately. I say "we." I am thinking of you
gentlemen in Congress. We must not allow the favored few to take
all of the business of this Government because if we do that we are
going to handicap ourselves and we are going to delay our output of
much-needed items.
UNEVEN distribution OF CONTRACTS
The Chairman. Before I left Washington on Monday I received
the following information from different offices in Washington: In
August of this year 48.4 percent of the Army orders went to 10 States.
In September the percentage rose to 70.8. In October it rose to 85.4
percent. With the Navy, 56 companies in the United States held
75 percent of the contracts. Now, Mr. Odium of the O. P. M. is in
favor of taking care of the small plant for at least a period of 6 months
to give them a chance to adjust themselves. Mr. Nelson of S. P. A. B.
doesn't agree with him, but you v.-ill agree with me when I say this:
We in Washington have got to get into our heads that after all is said
and done, civilian morale is just as important as Army and Navy-
morale. You can't separate them.
' See p. 8914 et. seq.
8936 ST. r/)iiis hrarixgs
Mr. Holland. Yes, sir.
The Chairman. And so as wo go into this (lofo.iis(> program full
speed ahead we must thiuk a litUe hit ahout our folks at home, and
wlien these small husinesses go down you are just hurting th' morale
of the Americiin peoj)le.
Mr. Holland. I feel tlu^ strength of our liherty lies in the iTule-
pendent small connnunity, in the independent merchant and the
indei)ende.nt small manufacturer, and we are trying to preserve our
liberty. If we are, then we must preserve these smaller communities
and small busniesses.
Coming on the train 1 read a statement in News We(^k that Donald
Nelson made, and I can get Donald Nelson's viewpoint because he is
the head of a big corporation — Sears, Roebuck. But I think if you
get out in these small communities and got out among small business-
man and ask tlumi what Sears, Roebuck ever did for them you will
get none too favorable an answcii-. Yet they arc outlining the program
for small business and big business alike. He made this stat(^ment
last Thursday in Boston: That employees of a big company thrown
out of a job get just as hungry as the worker in a 1-man plant. That
statement was in answer to JVIr. Odium's plea for the small plants.
Possibly that is so, but there is this difference. You take these
plants that employ 18,000 and 20,000 people, and if you lay off
2,000 or 3,000 men no doubt it will affect the economic life of that
community. But supposing you are laying off 2,000 or 3,000 men in
these smaller communities. You are destroying a hundred small
communities that are the backbone of America, and that is what we
are doing in that program right now.
Mr. OsMERs. Among other proposals, Mr. Holland, you made the
proposal that we outlaw' strikes, and however worthwhile the objective
sought might be, don't you believe that we must take into considera-
tion the rising cost of living that is affecting all of us, and that we
cannot settle one question without settlmg the others? We cannot
arbitrarily say to labor: You are forbidden from seeking wage in-
creases, but we as a Nation reserve the right to increase your cost of
livmg without any regard to wduit you are earning.
Mr. Holland. I am glad you brought that qu?stion up because I
am heartily in favor of union labor. I have employed it for 30 years
and have a card in the photoengravers' union myself. A^Tiat I say
about union labor I say about myself. I have nothing against union
labor but I am thhd<ing hi terms of America's being on an all-out
production schedule. We must not tie up our production by allow-
ing these strikes to shut up airplane factories or steel works, because
that throws eveiybody out of gear all the way down the line. I hope
we can do somethmg like the President suggests or that you men can
get up a way to keep these men at work and settle disputes by arbi-
tration.
Mr. OsMERS. I wanted to get your views particularly with respect
to price conti'ol and controlling the cost of living. I know you are
familiar enough with defense centers in the United States to know
that we ai'e re({uiring some of our deftmse workers to live in inhuman
conditions and ])ay excessive rents and other costs, and those things
have to be taken into consideration.
Mr. Holland. Yes; you bet they should, but a lot of that is very
unnecessary because W(^ have idle buildings all over the nation that
could have been used and saved the construction of new plants.
NATIONAL DEFENSE MIGRATION 8937
And we have thousands of idle machines that could have been used
where they are histead of takmg these men and congestmg them in
certain areas and makuig it necessary for them to hve in places not
fit for human beings to live in.
Mr. OsMERS. I agree with you.
MACHINE-TOOL PRODUCTION
Mr. Holland. I talked with Mason Britton, Chief of the Machine
Tool Department of O. P. M. Mason told me that 5 years ago the
volume of machine tools manufactured in this country was worth
$29,000,000; that last vear there were $500,000,000 worth; and this
year it will be $800,000,000 worth. And I asked why. He said:
"We have got to have them." I said: "We have thousands of machine
tools that are idle. Wliy not use them?" He answered: "They are
old machine tools. We have to have new machines." Now they found
in England that they didn't have to have new machines. They used
these plants where they were, and the small plant in England is
indispensable. First they tried liftmg the machines from the plants
and putting them in one big plant, and they found they were building
targets for Hitler, so they devised a plan of using the machines
where they were and having a truck go around and pick up the parts,
to be delivered to the central base. I was in the plant of one of the
leading machine tool manufacturers in this country. He has orders
on his books that will carry him for years, and I spent about 4 hours
there. I asked this man how many of his orders were for general-
purpose machines and what percent were for single-purpose machines.
By a single-purpose machine I mean for instance a huge machine
built for drilling an airplane crankcase. By an all-purpose machine
I mean one like a lathe or a drill press or a gear cutter or something
like that. So I said: "How many of your orders are for single-
purpose machines?" He said: "Less than 5 percent." So I said:
"Then over 95 percent of your orders are for all-purpose machines?"
He said: "That is correct." So it appears that w^e have tied up these
machine-tool industries and we are tying up our steel and we are
making new machines to replace machines that are already in existence.
The Chairman. Thank you very much, Mr. Holland.
Will Mr. Peter R. Nehemkis, Jr., please come forward?
TESTIMONY OF PETER R. NEHEMKIS, JR., SPECIAL ASSISTANT IN
THE DIVISION OF CONTRACT DISTRIBUTION. OFFICE OF
PRODUCTION MANAGEMENT
Mr. OsMERS. We are very sorry that Mr. Odium has been ill
and cannot appear before us today. I have gone over your statement
as well as time permitted. I must say that it is a very important
statement for the committee to have.
(The statement referred to above is as follows:)
STATEMENT BY PETER R. NEHEMKIS, JR., SPECIAL ASSISTANT,
DIVISION OF CONTRACT DISTRIBUTION, OFFICE OF PRODUCTION
MANAGEMENT, WASHINGTON, D. C.
This statement is submitted to the Committee Investigating National Defense
Migration in pursuance of its request. I appear for Mr. Floyd B. Odium, Director
8938 ^'l'- I^l^I« IIKA KINGS
i)f the Division of Contnict Distribution, who is unable to respond to the
coniinit tec's invitation because," of illness.
Jleforo beginninu; my testimony, may I say that the Division of Contract
Distribution welcomes this opportunity to acquaint the committee with its
work and the proj^ress which it is making since its establishment last September.
C'ons^ressional incpiiries such as this committee is conducting are inherent in our
democratic processes. The scholarly and objective studies which this com-
mittee has undertaken have sharpened our understandinu; of the defense effort.
British experience as well as the dictates of common sense make it plain that
avoidable migration of workers is inimical to national defense.
I
The Division of Contract Distribution was established pursuant to an Executive
order of the President issued on September 4, 1941. (See exhibit A.) It super-
seded the Defense Contract Service, a bureau of the Office of Production Manage-
ment.
The underlying reason for the promulgation of the Executive order was stated
succinctly in the White House statement accompanying the issuance of the order:
<<* * * -pjjg Executive order was issued in furtherance of a determined move
on the part of the Administration to help the smaller business units of the country
obtain a fair share of the defense orders, and to prevent, so far as possible, dis-
location of industry and unemployment of workers in plants where production
has been curtailed by priorities and material shortages." (See exhibit B.)
The major steps by which the foregoing objectives were to be achieved were
also set forth in the White House statement. They are:
1. The breaking down of larger orders of supplies into smaller units, and
sjjreading the purchases among more firms and in all localities possible.
2. Providing assistance through the Labor Division of Office of Production
Management in retraining and obtaining reemployment for workers who are
unemployed as a result of the shutting down of some plants or reduction
of their output.
3. The effective distribution of defense contracts to the smaller business
enterprises, as yet largely unused, through an expanded use of subcontract-
ing, contract distribution, and the pooling of plant facilities.
4. Bj^ providing a staff of industrial and production engineers to formulate
and execute specific plans for the conversion of nondefense industries and
plants to defense production.
ORGANIZATION OF THE DIVISION OF CONTRACT DISTRIBUTION
The operating sections of the Division have been divided into the following
departments:
1. Procurement Branch.
The functions of this unit are:
(a) To assist the procurement agencies in preparing their bids and specifica-
tions at their source in such a manner as will permit the taking of prime con-
tracts by smaller manufacturers, and pools of such mamifacturers.
(&) To secure from the procurement agencies as much advance information as
possible as to their requirements, so that the field organization may be advised in
ample time to bring such information to the attention of all potential sources of
supply.
(c) To find special facilities required by the procurement agencies. In this
connection the Procurement Branch will work closely with the Facilities Section
described later.
(d) To assist the procurement agencies in finding available facilities for sub-
contracting work for pending prime contracts so as to enable the procurement
agencies to negotiate prime contracts retjuiring a high percentage of subcontract-
ing in lieu of plant expansion.
(c) To assist the procurement agencies in speeding the defense program by
encouraging more subcontracting of existing prime contracts.
(/) To have investigated for the procurement agencies, where requested, causes
of delay, special engineering difficulties, etc.
(g) To assist in the maintenance of national morale by bringing to the atten-
tion of the procurement agencies industries which have been forced to release em-
ployees due to lack of materials.
In carrying out the foregoing work, arrangements have been completed with
the armed services for competent and qualified technicians of the Division to be
NATIOTVtAL DEFENSE MIGRATKVN 8939
represented in the various procurement establishments. This will enable the
Division to participate directly at the source of defense procurement.
2. Conversion Se-clion.
The work of Conversion Section relates to:
(a) Plants and industries in areas where sufficient distress has arisen to warrant
"certification" to the armed services and the recommendation of specific remedial
programs with respect thereto. (In a subsequent section there will be presented
the manner in which distressed areas are "certified" together with a statement
showing the communities which have been certified to date and the number of
distressed communities now under study.)
(h) The early conversion of plants and industries from civilian to defense
production.
3. Engineering and Planning Branch.
Engineering and Planning were grouped together in one branch since the fijinc-
tions of each are closely correlated. This branch is a service unit rather than an
executive unit. It includes a corps of skilled production, management, and in-
dustrial engineers (whose number is being increased daily) to be drawn upon for
advice and help by any other of the various branches, sections, and units as the
occasion arises.
4. Operations Branch.
Operating directly under the Deputy Director is the Chief of Operations.
Under this branch there are the following operating sections:
(a) Field Management Section.
This section deals with all administrative matters relating to field operations,
including budgets, persoimel, information, progress reports, and general super-
vision.
(b) Training Section.
This section deals with the training of new personnel. It will conduct train-
ing schools in various parts of the country in order to equip new personnel to
serve effectively in the work and activities of the Division.
(c) Finance Section.
This section furnishes to the field offices all information relating to financial
questions and procedures. It also assists the field organization in solving specific
financial problems affecting business enterprises, especially the smaller business
units. It furnishes financial advice to other Divisions of Office of Production
Management as well as to the other sections and units of the Division of Contract
Distribution. The section undertakes studies of the capital and credit needs of
subcontractors and the smaller business enterprises generally in order to formulate
appropriate remedial recommendations for presentation by the Director General
and Associate Director General of Office of Production Management.
(d) Educational Section.
This section directs and advises the field organization on matters relative to
exhibits, clinics, etc., and specificalh^ formulates and executes Nation-wide pro-
grams relative to exhibits of "bits and pieces" in pursuance of the directive of
the Executive order.
(e) Certification Section.
This section deals in the field investigation of areas reported as distressed by
the Labor Division of Office of Production Management or which in any other
manner comes to its attention.
(/) Contract Placement Section.
The Contract Placement Section carries the burden of the Division's traffic.
The bulk of the inquiries from the field offices and from individual concerns and
organizations are directed to this section. Under the Contract Placement Sec-
tion there are the following units: Pooling, Prime Contracting, Subcontracting;
and Procedure. Each unit is charged with the responsibility of furnishing to the
field organization all information helpful to the field under these several head-
ings. They also advise and counsel the field organization as to the handling of
specific cases.
ig) Facilities Section.
The Facilities Section locates by bulletin and correspondence to the field,
special facilities which the procurement agencies may require, as reported by the
3940 ^'^'- I^UIS HEARINGS
various sections of the Profiirciiienl liranch of the Division. This section also
locates facilities required Ijy prime contractors, sucii reciuests originating either in
Washington or in the field. Tiiis section also supervises the niuintenance of
facility cards in the field oflices. It endeavors to coordinate all information re-
lating to facilities which has been comjjiled by other agencies and department*
of the Government.
(h) Program and Procedure Section.
The Program and Procedure Section edits, indexes, correlates, and prepares all
information which is helpful to the functioning of the field organization.
(t) Progress and Reports Section.
The Progress and Reports Section secures from the field semimonthly reporte
and statistics as to progress.
6. Field offices.
Prior to the establishment of the Division of Contract Distribution, the prede-
cessor organization — the Defense Contract Service — had 39 field oflices. These
offices were set up along Federal Reserve district lines — a principal field office
being located in each Federal Reserve district and physically housed in the
Federal Reserve banks and their branches.
Under the Executive order creating the new division, the field organization
was required to be established along State lines. By establishing the State as the
unit of operation it was believed that the field organization would be drawn closer
to the industrial areas and to the sources of production — both actual and potential.
The division now has 67 field offices located in 39 States. (Exhibit C contains a
list of the principal offices and branch offices of the Division of Contract Dis-
tribution.)
Additional offices and branch offices will be opened in other cities as rapidly as
a competent persoiuiel can be trained
As of November 15, 1941, the total personnel of the Washington office was 279.
The field personnel constituted 734.
It is contemplated that in order to carrj' out effectively the functions and
duties of the division, a staff of approximately 3,800 persons — largely engineers —
will be required. To this end, the director has submitted to the Bureau of the
Budget a request for $23,470,725 to cover the cost of operating the division for a
12 month period.
6. Advisory committees.
The Executive order provides for tw'o advisory committees — one, a Small
Business Advisory Committee; the other, an Engineering Advisory Committee.
The Executive order states that "the committees shall, from time to time, upon
request by the director, make findings and submit recommendations to the
Director with respect to procurement practices and procedures; contract place-
ments and distribution; industry conversion problems; formation of local pro-
duction associations; subcontracting; and for silch other matters as the Director
may require advice and assistance."
Both advisory committees have been established and are functioning. The
Small Business Committee consists of manufacturers representing every region
of the Nation. Its chairman is Mr. Walter Finke, president of the United States
Junior Chamber of Commerce. The Engineering Committee includes among its
members some of the country's outstanding industrial, management, and produc-
tion engineers. Its chairman is Mr. George Armstrong, president of the Associa-
tion of Consulting Management Engineers, Inc.
II
The committee has requested an expression of opinion with respect to the
technical and financial facilities and resources of the small, mcdiiun- and large-
sized companies. An adequate response to this ()uestion is not possible within
the time available for the presentation of this statement. Data are available in
the hearings, reports, and special monographs of the Temjiorary National Economic
Committee and are, no doubt, familiar to the connnit tee's staff. However, cer-
tain general observations ma^' be made at this time insofar as they bear on the
work of the Division.
NATIONAL DEFENSE MIGRATlOiN 8941
NUMBER OF SMALL ENTERPRISES
The smaller units of business enterprise are, numerically overwhelmingly pre-
ponderant. In its study, the Problems of Small Business,' the Temporary
National Economic Committee stated: "Of the 2,400,000 business units in the
Nation, more than 92.5 percent are small (with less than $250,000 in total as.sets)
and about 6.5 percent are intermediate (with $250,000 to $5,000,000 in total
assets). Only about 1 percent of the business population, by almost any system
of measure, is large business."
CHARACTERISTICS OF THE SMALLER ENTERPRISES
While small business enterprises constitute the vast majority of all business
units, they do not appear in equal numerical preponderance in all groups or
subgroups of industry. Small business is to be found, in the main, wherever the
capital requirements for adequate operation are small. The smaller units will
be found "wherever small-unit machinery or other equipment is as efficient for
the given purpose as the large and costly plant. Also, the personally operated
type of enterprise is prevailingly to be found wherever the preference of consumers
favors a product marked by some distinct individuality, a service involving per-
sonal contact, or an especially intimate response in other respects to the varieties
of consumer demands. It is further found wherever the administrative advan-
tages of largeness are not conclusive in determining survival. "-
The trade (retail and wholesale) and service areas are by far the largest strong-
holds of the smaller enterprises. Although construction and manufacturing are
the focal point for the larger business units, they, nevertheless, each contain
numerous and important smaller business units. To quote again from the report
of the Temporary National Economic Committee:
"While the building supply industries, classed as manufacturing, include certain
heavy concentrations, the construction industry itself is the least concentrated of
business categories. Even among the 14,574 incorporated units, there were in
1936 but 31 construction corporations in the large business group (using total
assets as a measure of size). These were 0.2 percent of all the corporations in this
field, but they accounted for 10.5 percent of the gross receipts. The intermediate
size group, with 1,066, or 7.3 percent of the 14,574 construction corporations in
this field, accounted for 25.4 percent of the gross business.
"Of the 14,574 construction corporations, 13,477, or 92.5 percent, were small
units, each having le.ss than $250,000 in total assets. These reported 64.1 percent
of the total sales in this field. In 1938 the Social Security Board found that there
were 98,831 employing units in this industry, which, when compared with the
14,574 corporations, indicates an overwhelming preponderance of unincorporated
units in construction.
"This industrial division is obviously the focal point for many of the greatest
business corporations. Yet small manufacturing units are numerous and import-
ant. For manufacturing establishments, complete data for units with $5,000 or
more in annual value of product are available from the Census of Manufactures.
Using the vahie of the annual product as the measure of size, and assuming
$250,000 and $5,000,000 in product value to be the dividing lines of our size
groups, it is found that, of the total of 166,794 manufacturing establishments both
incorporated and unincorporated, in 1937, with a minimum product value of
$5,000, only 1,653, or 1 percent, were large, in that the product of each was valued
at $5,000,000 or more for the year. These few large establishments, however,
accounted for 42.8 percent of the total product value of all manufacturing in-
cluded in the Census of Manufactures. The intermediate size group comprised
29,899 establishments, or 17.9 percent, and turned out 45.3 percent of the total
value of product. Small manufacturing, with 135,242 establishments, or 8i;l
percent of the total, each producing less than $250,000 in product value, accounted
for 11.9 percent of the total product value of manufacturing tabulated. How
much the inclusion of the smallest manufacturing concerns (with less than $5,000
anruial production) would affect these percentages, is unknown."
From the foregoing discussion it is apparent that, although we know the general
business area in which our clients, so to speak, are to be found, we do not know
1 Monograph No. 17, Temporary National Economic Committee, 76th Cong., 3d sess., p. 248 ct seq.
2 Ibid., at 251.
,8942 ST. LOUIS HEARINGS
with any decree of particularity who they are. In the next few months we shall
in larfie part liave tlie answer to this cpiestion through the operation of our facili-
ties inventory.
FINANCIAL RESOURCES OF THE SMALLER ENTERPRISES
^^ itli respect to the capital and credit needs of the smaller business enterprises
■considerable data are available, including the hearings of the Senate Hanking and
Currency Committee (7Gth Cong., 1st sess., on S. 1482 and S. 2343), and the
liearings of the Temporary National I'X'ononu'c Committee, 'i'he summary of
the findhigs of the Temporary National l-iconomie Conunittee ' shows:
"With respt'd to equity capital.- ^nrdU Ijusiness bv and large lacks adequate
equity capital with which to finance its operations. Jn default of adequate ecpiity
capital, small business is compelled to rely largely upon mortgage and sliort-tcrm
-credit. One reason for the inability of small l)usiness to obtain ecpiity capital
'lies in tlie fact that it does not have the same access to the capital markets as does
large business, since that machinery is adapted largely to the needs of big busi-
ness.
"One difficulty which must be taken into consideration in supplying equity
capital to small business is its resistance to imj)airing its control or sharing its
■equity.
"With respect to credit. — (a) Long term: Small business faces the same difficul-
ties in obtaining long-term credit as it does in obtaining equity capital, since the
existing credit facilities are not geared to deal with the speciarand peculiar needs
•of the smaller enterprise.
"(6) Short term: Although sliort-term credit appears to be more available than
either equity capital or long-term credit, nevertheless, small business experiences
■difficulties in obtaining short-term credit from the regular commercial banking
sources. Short-term credit is, however, obtained through intermediary credit
agencies, and from trade creditors, at charges which are frequentlv high and upon
terms which tend to be onerous.
"The difficulties experienced by small business in obtaining adequate financing
result from two sets of circumstances: (1) the intrinsic operative characteristics
of small business which have been previously noted; (2) the risk involved in in-
dividual transactions."
The impact of national defense upon the smaller business enterprises has not
served materially to ease their credit and capital problems. Some months ago
the Financial Section of the Division of Contract Distribution made a study of
the financial position of several hundred subcontractors participating in various
phases of defense production. It was found that 40 percent of the subcontractors
had a submarginal credit rating, and would, therefore, experience difficulties in
obtaining credit from the normal banking channels. It has subsequently been
found that a considerable proportion of these subcontractors have, in fact, been
inadequately financed.
The Executive order states that the Division is to provide through the regular
•commercial banking channels, the Reconstruction Finance Corporation and the
Federal Reserve Banks and their branches, the necessary financing facilities for
prime contractors, subcontractors and local industrial defense production associa-
tions as well as to "recommend from time to time such additional financial pro-
cedures or machinery as shall be required to ensure maximum utilization of exist-
ing plant and tool facilities for defense purposes."
This policy is being carried out by the Financial Section of the Division. Be-
tween 400 and 500 inquiries arc l)eing received in the Washington and field offices
each month regarding the availability of working capital alone.
The maximum of cooperation has prevailed between the Division and the private
and governmental agencies of finance. The policy of the Division has been to
direct all possiVMe credit inquiries to the commercial banks in the first instance.
When these channels have been unable to meet the needs, recourse was had to the
Reconstruction Finance Corporation or the Federal Reserve banks or to the 30
percent advance payments made to prime contractors by the armed services.
A summary of the Division's experience with respect to the adequacy of the
■existing sources of financing follows:
1. Both governmental and private banking channels would appear to have
exercised to the limit of their authority and resjionsibility financing to the smaller
enterprises as prime contractors and subcontractors. However, neither the public
nor private agencies are able to justify the risking of the funds of their depositors,
' Ibid., at pp. 261-262.
ISATIOXAL DEFENSE MIGRATION 8943
noteholders, or appropriations by the Congress in the case of the submarginal
contractor.
With a vastly augmented production load schedu'ed for the coming year, the
financing of the submarginal enterprise whose facilities are required wiU present
a serious problem.
2. The 30 percent advances to prime contractors by the fighting services are
customarily made promptly and without undue delay. However, experience has
shown that it is extremely difficult to induce the prime contractor to permit these
moneys to percolate down to the subcontractor, where there is generally a pressing
need for working capital. It is the considered opinion of the financial section of
the Division of Contract Distribution that this indirect method of financing sub-
contractors by making advances through the prime contractor is not only cumber-
some but inadequate for existing needs.
The Division is now preparing a comprehensive report on the entire problem of
financing and conversations are now taking place between representatives of the
Division and governmental officials and private banking executives to the end
that a practical, remedial program may be evolved.
LEGISLATIVE PROPOSALS
In order to overcome certain of the disadvantages which confronted the smaller
business enterprises in their desire to participate in the defense effort, Mr. Odium
was early of the opinion that legislation was essential to overcome certain legal
impediments which stood in the way of the armed services carrying out the terms
of the Executive order. Experience has amply demonstrated that the average
business concern — especially the smaller unit — is generally unable to estimate the
cost of production for military items on the basis of competitive bidding. Exist-
ing legislation, for example, makes it impossible for the Navy to award a regional
contract if there is a responsible low bid from outside the region. Further,
bonding requirements have also served as a deterrent to the participation of the
smaller enterprises despite the fact that the armed services have endeavored to
the fullest extent possible to liberalize their requirements.
These and similar procurement practices it was believed, if eliminated, would
aid materially not only the smaller enterprises but the armed services as well.
Accordingly, Mr. Odium requested counsel to the Division to prepare a draft of
appropriate legislation. Several weeks have been spent in conferring with counsel
to the armed services and other interested governmental departments and agencies.
The draft bill is now before the Bureau of the Budget for approval prior to its
submission to the Congress.
FURTHER AIDS TO THE SMALLER ENTERPRISES
Shortly after Mr. Odium assumed his office he requested each of the 56 companies
which hold 75 percent of the defense orders to adopt as their individual policy the
President's policy of spreading defense work widely through subcontracting.
To the extent that these 56 concerns had not already adopted adequate arrange-
ments for subcontracting, Mr. Odium has requested them to do so. Moreover,
each company was requested to designate a top executive who would become the
liaison officer of his company to our Division, just as the Army, the Navy, the
Maritime Commission have delegated ranking officers for this purpose. Excellent
response from the 56 corporation has been received. Most of them have declared
their adherence to the policy of spreading defense work widely. Conferences have
been had during the past week with specific companies on the need for wider sub-
contracting. When the contract placement section of the Division completes its
organization and is adequately staffed, all phases of existing subcontracting, or the
absence thereof, by the large holders of defense contracts can be explored ade-
quately and programs effected to the end that defense production will be accelerated
and orders spread widely.
The armed services have cooperated with the Division in the carrying out of the
Executive order. Both the Army and Navy have established contract distribu-
tion divisions paralleling our own organization. Each of the services has caused
to be issued the necessary directives to their procurement establishments for the
implementation of the policy enunciated in the Executive order. As an example
of the manner in which the armed services have endeavored to cooperate in the
policy of spreading defense orders, the following experience of the Corps of En-
gneers may be cited. In July 1941, to procure a small lot of trailers, the Corps of
Engineers solicited bids from only four manufacturers. Following the promulgation
of the Executive order, in November 1941, to procure a small number of trailers,
60396— 42— pt. 23 17
8944 ^^'- I><^^H'IS HIiLVRINGS
tho Corps of I'^nginocrs submitted invitations to 80 possible sources of supply, all
field oflices of the Division of Contract Distribution and the 6 engineer procure-
ment districts. I'-ach of the invitations were accompanied by a copy of the speci-
fications and drawings. Under a directive from the Chief of Engineers, dated
October 20, 1911 , all division engineers, the 51 district engineers, and the 6 engineer
procurement districts were instructed, in conformity witli the policy of the Execu-
tive order, among other things, to discourage "all or none" bids; wherever feasible,
proposals issued or negotiations started were to contain an optional clause stating
the maximum award to any one bidder; awards were to be made on a regional
basis and to as many i)roducers within a region as was practicable.
This is but one of many similar instances where the services have endeavored to
carry out the new policy of spreading defense work.
ENGINEERING AND OTHER ASSISTANCE
We are endeavoring to staff our new field offices and add to the staffs of exist-
ing otfices practical businessmen and competent engineers so that any manu-
facturer or shop owner will be enabled to obtain at first hand — without the
necessity of coming to Washington — every type of technical a.ssistance — a.ssist-
ance with respect to subcontracting, production problems, conversion, procure-
ment practices, financial aid, etc. In short, no businessman should feel the need
of coming to Washington for assistance.
To overcome a frequent criticism by manufacturers that specifications fre-
quently require too close tolerances for certain types of work, Mr. Odium has
appointed an engineering committee which is now exploring this problem with
the armed services.
THE PLACING OF PRIME CONTRACTS AND SUBCONTRACTS
It is sometimes assumed or inferred that the Division of Contract Distribution
exercises authority with respect to contract letting. This is not the case. Con-
tracts for defense items are let solely by the armed services. The following para-
graphs of section 1 of the Executive order determine the scope of authority of
the Division with respect to procurement:
"(a) Formulate and promote specific programs for the purchase of supplies for
the Army and Navy in smaller units but among a greater number of firms and
in as many different localities as possible.
"(b) Formulate and promote modifications in Federal procurement practices
and procedures relating to negotiating contracts, bidding practice, performance
and bid bonds, and other practices and procedures, to the end that there shall be
a wider distribution of defense contracts and purchases."
"(e) Promote and stimulate subcontracting wherever feasible."
Section 2 of the Executive order is also relevant. It reads:
"2. To insure unity of policy and coordinated consideration of all relevant
factors involved in the formulation and execution of industry conversion pro-
grams, and contract distribution and subcontracting procedures, all such pro-
grams or procedures shall clear through the Division of Contract Distriljution."
Many persons, who have given careful study to the problem of subcontracting,
are of the opinion that subcontracting has not proved to be a success because,
among other factors, it has not been dealt with at the source. To state the
matter somewhat differently: The starting point for a subcontracting program
is in the planning stage rather than after a contract has been negotiated. Previous
efforts to stimulate subcontracting have resulted in inadequate results largely
because the problem was not attacked sufficiently early in the procurement
planning stage. Accordingly, to remedy this basic defect, Mr. Odium has ar-
ranged for technical members of the staff to be represented in the various procure-
ment branches of the services. In this way it is believed that subcontracting
programs can be worked out at the time of procurement initiation and thereafter
become consummated in the subsequent contract negotiations.
For the month of October the Division's branch offices were able to arrange a
total of 538 prime contracts and 1,615 subcontracts, totaling $178,658,529, as
compared with $139,700,000 for the month of September and $97,000,000 for
August.
SUBCONTRACTING AND PLANT EXPANSION
The committee has inquired with respect to the authority of the Division of
Contract Distribution in connection with the construction of new plants or addi-
tions to existing plants. As the committee is aware, all such applications are
presented to, and approved by, the Plant Site Board of the Office of Production
NATIONAL DEFENSE MIGRATION 8945
Management. The Division is represented on the Board. In addition, all appli-
cations for plant expansion are submitted to the Division for recommendations
with respect to the availability of existing facilities. Upon receipt of such appli-
cations, the Division, through its Subcontracting Section, endeavors to ascertain
through the Division's Engineering Section or the nearest branch office or offices-
to the applicant whether or not there are existing but unused facilities capable
of producing the item for which new or additional plant expansion is requested.
In the event such available facilities are discovered, the potential sources of
supply and the applicant for expansion are brought together and an effort made
to have the applicant utilize such facilities in lieu of its program for new con-
struction.
The foregoing procedure illustrates the disadvantage of initiating subcontracting
after the planning for a project has been completed. For one thing, there is
present an unfavorable time element; weeks and months of planning may have
entered into the conception of the particular project. Nevertheless, a decision
on the feasibility of a particular expansion program and the possibilities of sub-
stituting existing facilities must be reached in a matter of hours. Plainly, the
place for a determination of the feasibility of subcontracting is not at the Plant
Site Board but at the planning center of the particular procurement establish-
ment which requires the additional source of supply.
CERTIFICATION PROCEDURE
Recognizing that the impact of priorities and raw material shortages would
cause serious dislocations to labor and industry, Mr. Sidney Hillman early last
summer appointed a committee of staff members of Office of Production Manage-
ment to prepare recommendations for dealing with the problem of "priorities
unemployment." Among the recommendations of this committee was the pro-
gram of certification adopted by the Council of the Office of Production Manage-
ment on August 19 (and embodied in the directive of the Under Secretary of War
to the Chiefs of the Supply Arms and Services under date of September 5, 1941,
a copy of which has been spread in the records of the committee), by which com-
munities threatened with priority unemployment may be certified by the Division
of Contract Distribution to the armed services for special consideration in the
award of contracts.
The certification of communities or industries is the joint undertaking of the
Priorities Branch of the Labor Division (Office of Production Management) and
the Division of Contract Distribution. At the request of the Priorities Branch
of the Labor Division or upon its own initiative, community surveys are made
by the Bureau of Employment Security. The completed surveys are transmitted
to the Priorities Branch. If the community is certified, the Priorities Branch
transmits copies of the community survey to the Division of Contract Distribu-
tion together with a letter of certification. Through its engineering and technical
staff, the Division of Contract Distribution analyzes the defense potential of
the plants or industries involved and recommends a remedial program to the
armed services.
Ten areas, including more than 75 plants, have been certified by the Division
to the armed services. The total of such contracts amounts to $28,337,099.91.
(See exhibit D.)
Under study at the present time are some 100 areas which face potential distress
from priorities unemployment.
Ill
CONVERSION
The several functions of the Division are set forth in the Executive order.
Paramount among the Division's responsibilities is "the development of programs
for the conversion of plants and industries from civilian to defense production,
with the assistance of the Government if necessary."
Here, indeed, our American engineers may expect to find the greatest challenge
which has ever confronted their profession. If thej' do their job with dispatch
and intelligence the greatest industrial plant in the world will out-produce the
Axis powers. If they succeed in effecting an orderly transition from a peacetime-
economy to a wartime economy. Hitler will be defeated. If they fail democracy,
too, fails.
While the committee has heard testimony recently on the shifting of peacetime
facilities to wartime production, and is, therefore, familiar with the underlying
problems incident to conversion, it may not, perhaps, be amiss to restate by way
of preliminary discussion certain aspects of the larger problem.
8946 ST. LOUIS HEARINGS
American iiidustrj' is not unfamiliar with the complexities of conversion.
Indeed, the greatest tribute to the ability of American industry to shift its produc-
tive facilities from civilian to war production was paid us by Field Marshal Von
Hindeiil)urg when he said at the end of the other war that it was our industrial
mobilization which caused Germany's downfall.
Grosvenor Clarkson, author of the authoritative Industrial America in the
World War, has written of this earlier war effort by American industry as follows:
"The carpet manufacturer could not make shells, but he could make blankets
and ducks. The dredging contractor who was ambitious to make airplanes, but
could not, could excavate berths in shipyards. The makers of refrigerators could
turn to hos})itaI tables. Horseshoe makers could not make automobile tires, but
overnight they could take to making trench picks. The toy manufacturer thought
he could make surgical instruments, but came into his own in packing cases.
When curtailment hit the stove business, it w^as found that the idle plants could
be turned to making grenades and trench-mortar bombs, which are largely cast-
ing jobs. The corset maker found that he could easily master belts for the
Medical Corps. The piano factories and furniture men got their chance in the
fuselages and wings of airplanes. The makers of automobile motors took to the
Liberty engine like a duck to water. Even the talking-machine people landed
right side up with facilities adaptable for the making of seaplanes."
Today, I believe it can be said that American industry is doing an even more
remarkable job of adapting its facilities to wartime production. For one thing,
the strategy and tactics of the war of maneuver involving essentially a motorized
and mechanized army has confronted industry with technical problems which it was
not called upon to meet during the other war. For another thing, as I have had
occasion to say elsewhere: "The modern mechanized and motorized army is im-
potent unless it has adequately harnessed to it the workshops of a nation's indus-
try. For behind the highly mechanized fighting equipment and material of the
modern army lie the forges, the lathes, the drill presses, the machine tools, the
jigs, dies, and patterns, and the assembly lines of industrial production. The
technique of the war of movement requires not only a superb organization of
fighting men and material, but also the highest degree of coordination between
industry and the armed services. Indeed, the modern theater of war lies as much
along the transmission belts of industry as it does in the actual areas of combat.
Today, the fighting forces are but the cutting edge of a gigantic machine tool."
When you stop to consider the almost insuperable obstacles and difficulties
which have confronted the majority of American businessmen during the past
18 months in their endeavor to obtain defense work, in attempting to ascertain
what was w-anted and whom to see, it has been a heartening and encouraging
spectacle to observe industry's response to the call for mobilization.
Some confusion, however, appears to exist with respect to what is actually
involved in the processes of conversion.
I would not say that a conversion had taken place when a shoe manufacturer,
for example, enters into a contract for the supply of army shoes and in fulfilling
the contract shifts a part or all of his working force and equipment.
Nor would I say that a conversion had occurred when a shop, which normally
depends upon miscellaneous screw-machine contracts for automotive plants, takes
on a subcontract for some fuse components and produces them by resetting a few
of its automatics.
These two illustrations of adaption to wartime production are in reality merely
shifts of market, involving (it is true) appreciable, but relatively incidental,
changes in design of products.
Again. I should not say that we were talking about conversion when a manu-
facture of oil well pumps builds an entirely new plant and equips it with new
machinery for making a defense item which is altogether foreign to his commercial
experience, as for example, antiaircraft guns.
Similarly, we are not describing the process of conversion in the case of a manu-
facturer of soft drinks who enters into a contract with the Government for the
management of an ammunition-loading plant.
These processes — although they are of the utmost importance — are to be con-
sidered as the creation of additional plant capacity to be used exclusively for
defense production.
What, then, is conversion?
I regard conversion as a more narrow and inclusive process. Conversion, as I
see it, is the process of shifting existing tpols, equipment, facilities, man hours,
and floor space, to munitions, armament, and other defense production.
For example: Where the shop which has been repairing flour-mill equipment
turns to machining parts for naval antiaircraft guns, we have a case of conver-
sion in the true sense of the word.
NATIONAL DEFENSE MIGRATIOiN 8947
Or where the plant which has manufactured knitting goods machinery turns
to the production of recoil mechanisms for machine guns, we have an illustration
of conversion.
Or where the maker of internal gear-rotating pumps takes on an order for fire-
control instruments, we have a conversion.
In each of these illustrations, conversion has taken place because existing
equipment and facilities have been put to work on jobs which were foreign to
their original design and purpose.
Aside from the inherent engineering difficulties attendant upon the conversion
of civilian industries to war production, we are now faced with an additional
complicating factor. In his testimony before the House Banking and Currency
Committee recently, Mr. Bernard M. Baruch had occasion to say: "Because
the conversion of facilities from peace to war production was not begun soon
enough, we now face virtually overnight, widespread dislocations, temporary
unemployment, and possible business failures. What this postponement has cost
the country it is impossible to reckon."
The problem is, indeed, serious. Today, virtually the entire consumer dur-
able goods industry faces a critical shortage of raw materials. A list of the in-
dustries already subject to priorities and curtailment orders indicates the extent
to which American industry has already been affected or is likely to be affected
in the near future: Automobiles, silk manufacturers, refrigerators, vacuum
cleaners, furniture manufacturers, office appliances, cooking utensils, sewing ma-
chines, radios, metal fasteners, iron and steel foundries, brass foundries, clean-
ing establishments, producers of various textile products using silk, rayon, nylon,
and various scarce chemicals, building construction, rubber tires, other rubber
goods, washing machines, coin machines, jewelry and ornaments, electrical house-
hold appliances, stoves, tableware, incandescent lighting, manufacturers using
cork, electroplating establishments, die casting establishments, and agricultural
implements.
It is in this sector of the economy, moreover, that the smaller business enter-
prises — those which are less able to withstand any prolonged shrinkage in busi-
ness activity — are largely to be found. As Mr. Baruch has so well said: "The
huge industrial concerns have the technical skill, the management, the capital
resources to withstand shocks and to make necessary adjustments, even if given
short notice. The average small businessman has no such margin of safety
and may be forced into bankruptcy before he awakens to what has hit him.
Such bankruptcies impair production and have an adverse effect upon morale.
Under total defense civilian morale becomes as important as military morale."
I say our problem is serious because material shortages have already occurred;
plants have already been compelled to shut down; and workers have already
been thrown out of jobs.
No one can predict with any degree of accuracy the trend of "priorities unem-
ployment." Some estimates indicate an unemployment of 2,000,000; others
believe the figure will run even larger.
For a considerable sector of business there would appear to be no other alter-
native except to convert or perish.
Moreover, because we have been late in drawing our blueprints for the large-
scale conversion of heavy and light industry, there is bound to be a certain
amount of suffering. What must be done will now have to be undertaken under
far more adverse conditions and with greater hardships than if we had our master
blueprints ready.
Conversion cannot be undertaken in a vacuum. Whole industries cannot be
shifted over in the absence of a knowledge of (a) resources (what we have) and
(6) requirements (what we need). The preparation of a conversion program is,
therefore, in reality an end product. It is the meshing and gearing of the data
with respect to the available plant facilities and tools of every part of the Nation
(resources) with the material requirements of the Army, the Navy, the Maritime
Commission, and the Lend-Lease Administration (requirements).
We are only now beginning to undertake the enormous job of finding out what
our physical resources are and breaking down the vast material requirements of
the armed services. I shall have more to say on this subject in a subsequent
section.
It must also be borne in mind that we are compelled to approach our task
under a time handicap: To set up a program for the conversion of an industry
takes time — time, to make an organized study of the facilities; time, to ascer-
tain where a particular industry can fit into the over-all procurement needs of
the fighting services; time, for the industry to make the necessary production
and cost studies; time, for retooling; and finally, time, before a contract is
ultimately placed and f uU employment resumed.
8948 ^'^- T^OUIS HEARINGS
It is this interim period which is the critical one. For during this period plants
must be "fed" raw materials or cease their operations. It is duriiifj; this critical
period that there must prevail complete sj'nchronization of eflort between the
application of priorities, the allocation of supplies, and the drawing of the engi-
neering blueprints looking to ultimate conversion. Each must mesh and gear
into the other if an orderly and intelligent transition is to be eflfected.
I indicated previously that we have just begun the enormous task of ascertain-
ing what our physical plant resources are as well as the material needs of the
Mihtary Establishment. Each of these aspects of the problem of conversion
merits discussion.
FACILITIES
The so-called allocated facility lists of the armed services under the industrial
mobilization plan disclose as of August 1941 a survey of 25,000 plants. Of this
number 11,998 have been selected by the Army-Navy Munitions Board for
defense production and 6.GG2 have received either a prime contract or a subcon-
tract. These selected plants have been allocated to "problem items" in the
procurement schedules. Of the 184,000 establishments reported in the Census
■of ATanufactures of 1939, the 6,662 concerns which have received either prime or
subcontracts represent only 3 percent of this category of potential manufacturing
capacity.
In addition to the foregoing data, there is available in the field offices of the
Division facility records with respect to some 40,000 plants. It is probable
that these data to some extent duplicate the allocated facilities listing of the
Army-Navy Munitions Board. Even if it be assumed that in this figure there
is no duplication, it would at best represent only a fraction of the vast sea of
available but unused plant and tool capacity of America. We have yet to learn
the extent of our potential producing power.
Accordingly, we are undertaking in every part of the Nation an inventory of
facilities not being used for defense work. This inventory will include the facili-
ties and equipment of plants which are now idle or partially idle as well as those
■which are being employed on nondefense production. Such a census to be of
genuine significance must be dynamic, that is to say, it must be kept current.
In this respect we can profitably borrow^ from the experience of the British "area
boards" concerning whose functions and operations Mr. Morris L. Cooke has
testified.
As a corollary step to the foregoing, we are undertaking a systematic exami-
nation of the allocated facility lists of the armed services, making current correc-
tions to such lists so that we may know at any given interval of time what
proportion of the allocated capacity is being used on munitions production and
what proportion is still available for an expanded munitions program. !
Finally, w^e are also undertaking to catalog the machine and tool 'comple-
ments now being used in the production of the various munitions, ordnance, air
and naval equipment, with sufficient break-down to show the machine comple-
ments being used on the various components of these items. Only through such
a catalog will we know with clarity what we are looking for as we approach
the problem of finding additional capacity for a greatly augmented "victory
program."
REQUIREMENTS
Until we have available and readily accessible "shopping lists" for all of the
military items required but not yet ordered, no large-scale conversion program
can leave the paper stage and move over into reality. Until the requirements
of the Military Establishment are broken down into "bits and pieces" subcon-
tracting must operate on a "hit or miss" basis; and industrial pools must con-
tinue to exist as mere paper pools. Such lists are now in the course of preparation.
It cannot be reiterated too often that conversion is nothing more than a kit of
tools: On the one hand, a current facilities inventory and a catalog of machine
and tool complements; on the other hand, shopping lists of military requirements;
and "market place" exhibits of "bits and pieces."
Each of these tools, so to speak, must be built up around the other. It is
futile to talk about converting the manufacturers of refrigerators, for example,
until and unless you know what defeiise items are needed; what tools and machine
e(|uipment is required for the particular production; and, finally, whether the
refrigerator industry possesses the necessary complement of equipment to under-
take the job.
Again, it cannot be emphasized too strongly that it is essential for the small
machine shop owner and manufacturer to sec with his own eyes, to feel with his
NATIONu\L DEFENSE MIGRATION 8949
owTi hands — to bite with his teeth, if necessar}- — the part or component, the
production of which is desired.
A machine gun, or an antiaircraft gun in its entirety is a comphcated piece of
mechanism. So is a washing machine. But once you "explode" any of these
machines into their parts and components, the average shop mechanic will find
any number of "bits and pieces" which are no different from the type of work
he normally turns out.
We are prone to forget that an automobile is not produced by Ford or Chrysler
alone. It is the assembled product of himdreds of "feeder" plants — small, medi-
um and large — situated in every part of the country, feeding South Bend, Flint,
and Detroit, and other motor centers with a steady stream of parts ranging from
clutch springs to crankshafts and from grinding wheels to headlamp sockets.
A score of industries help keep the assembly lines of the automotive industry
moving. The same principle must also be applied in defense production.
The mechanics of little industry whose accumulated skills turned out refrigera-
tors, washing machines, vacuum cleaners, radio tubes, automotive parts, gas
ranges, stoves and the like, can and will apply those same skills to the produc-
tion of tanks, guns, and planes.
Defense production is by no means exclusively a "close tolerance" program.
The first step in making available "shopping lists" of defense items has been taken
by the Division. On November 10, three special exhibit trains — each loaded with
five cars of "bits and pieces" and a full complement of officer personnel from the
armed services and the Maritime Commission, together with representatives of the
Division and other departments of Office of Production Management — departed
one for the industrial Northeast, one to the Midwest, and one to the far West and
South.
A summary of the results of the first 5 days of operations — November 11 to
November 15 — during which period 9 cities were covered, shows that 7.490
manufacturers availed themselves of the opportunity to inspect the various mili-
tary items. During these first 5 days of operations, the Navy discovered sources
of supply which were assuming critical proportions. At Wilmington, Del., for
example, the Navy Bureau of Aeronautics found 17 sources of supplies for which
difficulties had developed. As a result of the visit to Providence, R. I., it ap-
peared likely that from 4.000 to 6,000 jewelry workers' Jobs might be saved by
employment on the fabrication of heavy needles and aircraft tie rods for the Navy.
In addition to the foregoing, the Division has sponsored defense clinics for the
exhibition of "bits and pieces" in New York, Chicago, Kansas City, and Los
Angeles. Additional clinics are being planned for other cities.
Plans are now under way to establish permanent exhibits of "bits and pieces"
in the various field offices. The first two such exhibits will be opened in St.
Louis and in Chicago.
In this connection, our technicians have already "exploded" a tank into its
component parts for the purpose of ascertaining which parts are susceptible to
farming out. Similarly, other items such as planes, antitank guns, antiaircraft
guns will be broken down, their parts labeled as to the quantities needed and the
machine tools and operations required for their production and placed on exhibit
where the small shop owner can determine if he is capable of producing a part or
component. As the "victory program" develops, the Division will endeavor to
anticipate urgently required items through providing, on the one hand, market-
place exhibits and shopping lists, and, on the other hand, potential facilities capable
of entering into their production.
TECHNIQUES FOR EFFECTUATING CONVERSION PROGRAM
For effectuating the conversion program the Division is utilizing three broad
basic techniques: (a) An expanded system of subcontracting; (h) the breaking
down of large orders of supplies into smaller units, and spreading such orders
among the smaller enterprises (still largely unused) as new prime contractors and
subcontractors; and (c) the pooling into single units, under unified managerial
direction, of scattered machine and tool shops, or units of an industry shut down as
a result of material shortages. Implementing these techniques there must also
prevail a constant search for new substitutes; conservation of existing materials;
and the standardization and simplification of design.
With the enormous requirements which have been imposed upon the nation's
production facilities by the hemisphere defense and lend-lease requirements, we
shall shortly be confronted with a battle on a front other than production — the
battle for capacity. The pooling of scattered machine shops and units of an
industry into a single aggregate under unified managerial direction is, therefore, the
8950 ^^'- I^OUIS IIKA KINGS
only practical answer. Moreover, as a result of the widespread dislocations of
industry and labor resulting; from material shortages, there is no other way of
aggregating individual plants and shops lacking the necessary complement of
machine tools and equipment than through a widespread systx^m of regional and
locality pools or cooperative production associations.
Accordingly the following devices contemplating some form of regional organiza-
tion are being emjjloyed by the Division to discover heretofore untapped sources of
supply and jilants for conversion to defense production:
1. All i^lants on the "allocated facility list" of the armed services which are not
now cnii)loycd at estimated capacity are being analyzed in order to ascertain how
they may be brought into defense production.
2. A search is being made of plants now engaged in civilian production whose
complement of machinery is comparable to those now employed on defense pro-
duction and who are, therefore, potentially equipped to produce defense items.
3. A careful scrutiny is being made of plants which, although they lack comple-
ments of machine tools and equipment matching those now utilized in armament
production, nevertheless, do possess a working nucleus of comparable equipment.
Wherever feasible, these plants arc being brought together into pools.
By approaching the problem of conversion on an industry and regional basis,
we can, I believe, implement total industrial mobilization far more effectively
than on an individual plant basis, althouhg the latter may be desirable in special
circumstances.
The industry or regional approach to conversion means, among other things,
that the better-established concerns can complement the tools and equipment of
the smaller concerns. They are also in a better position to finance the preliminary
engineering, production, and cost studies than are the smaller concerns. More-
over, by dealing with the j^roblem of conversion on an industry-wide basis we
embrace all of the communities which may be affected by individual plant shut-
downs as well as the entire labor supply of the industry. Again, the industry
approach presents a composite picture of the available man-hours, machinery,
tools, floor space, and related facilities of an entire industry. You have before you,
in short, the potential of a vast factory-in-space, the walls and ceiling of which may
extend over many States and embrace a large number of communities. Finally,
through pooling the individual units of an industry into a single aggregate, pro-
curement problems are simplified both for the industry and the armed services.
CONVERSION OF THE HOUSEHOLD WASHER AND IRONER INDUSTRY
The first instance of the conversion of an entire industry from civilian to
defense production undertaken by the Division is the household washer and ironer
industry. The patterns established in this conversion illustrate the various
techniques which have been heretofore discussed.
A committee representing the industry met with a representative of the Division
on August 1, 1941, for a preliminary exploration of its problems resulting from
a shortage of raw materials due to priority applications and a curtailment order
as announced by the then Office of Price Administration and Civilian Supply.
The industry is composed of relatively small manufacturing units, no one unit
employing as much as 10 percent of the total pay roll of the industry. Units
of the industry are located in 20 cities and in 11 States, principally in small
Middle West communities w^here the particular plant is in the main the principal
source of employment. Following this first exploratory meeting, the industry
was requested to appoint a technical committee of three of its most competent
engineers to begin the necessary engineering studies in cooperation with an en-
gineer assigned to the case from the Division of Contract Distribution.
This joint committee undertook a detailed analysis of the machinery, facilities,
manpower, engineering and tooling facilities of each of the plants in the industry.
A "shopping list" of defense items capable of being produced by the industry's
facilities was then prepared. The list consisted of 17 items, ranging from bomb
fuse assemblies to antiaircraft gun mounts.
In selecting these 17 military items careful consideration was given to striking
a balance between machine man-hours and assembly man-hours, so as to conform
as nearly as possible with the civilian manufacturing i)ractices of the industry.
The items on the list ranged from 10 to 500 components.
Having ascertained from the "shopping list" the possible range of items which
could be produced with the existing facilities and equipment of the industry,
the next step was to organize these facilities into a pool around one particular
item — an antiaircraft machine-gun mount.
NATIONAL DEFENSE MIGRATION 8951
The next step was to obtain specifications and drawings of the item for analysis
as well as an actual gun mount for inspection. Through the cooperation of the
Chicago Ordnance District a typical mount was made available from the Rock
Island Arsenal. The mount was then "exi)loded" into its constituent parta
and components, and the engineering and production staffs of the entire industry
were invited to be present for an inspection. After a careful scrutiny of the
blueprints, as well as the parts and components of the sample mount, it was the
consensus of opinion of the assembled engineering staffs that the job presented
no particular production or technical difficulties.
Three of the units of the industry agreed to aid as prime contractors and the
industry indicated its agreement to their serving in such capacity on any awards
which might be made by the War Department. A schedule was then prepared
of the man-hours which the three prime contractors agreed to subcontract parts,
components, and subassemblies to each plant in the industry.
Pursuant to an understanding between 0PM and the War and Navy Depart-
ments, the industry was "certified" to the Secretary of War by Mr. Odium
on September 29, and it was recommended that a contract be negotiated with the
three prime contractors acting in behalf of the industry. On October 21, the
War Department announced the award to the industry pool of a $12,500,000
contract.
In undertaking the production of this military item, the industry determined
that its pooled production operators would be aided materially by having each
of the prime contractors assume certain responsibilities in behalf of the entire
pool. Thus, one prime contractor will be in charge of all phases of tooling;
another will handle all aspects of production and inspection; and the third will
be in charge of the purchase of raw materials. Each of the three prime contrac-
tors will supply to the industry pool a complete staff to handle the respective
operations assigned to it. In addition, the pool has engaged an engineer from
outside the industry to serve as a coordinator who will be in charge of the entire
administration, and as such will make all decisions with respect to allocation of
work, tooling, purchasing of materials, inspection, and so on.
In addition to the washer and ironer industry pool, the Division has assisted
in the organization of a pool of automotive suppliers located in the Toledo area.
This pool consists of some 200 units. It is believed that this pool will shortly
be in a position to undertake the production of tanks. In Michigan, the Division
has assisted in the organization of a manufacturing pool consisting of 80 units.
A pool of the units of the stove industry is also being organized.
Our field organization has reported 116 instances of offers by individuals or
groups who desire to organize industrial pools. Our reports further indicate
100 cases where pools have been organized and 14 cases where pools have actually
entered into defense production.
In the Middle West, pools are engaged in defense production at Peoria, 111.;
Sturgis, Mich., and Kansas City, Mo. The Mid-Central Associated Defense
Industries, Inc. at Kansas City under the leadership of Mr. Lou E. Holland is
the largest cooperative production pool in existence and is working on a $288,000
contract for bore sights for the Navy.
With the recognition which has been accorded to the place of the industrial
pool in defense production under the President's Executive order, we have the
possibility of transforming our defense effort into a democratic defense. Indeed,
that is the only type of defense which is worthwhile. Through the organization
of cooperative pools and producton associations, the creative energies of thousands
of workers, small businessmen, technicians, labor leaders, the socially-minded
men and women of every American community, can be harnessed to the job of
forging the weapons for the defeat of Hitler and Nazi-ism. It is out of such
cooperative efforts that the common men and women in every land throughout
every great crisis in history have mobilized their morale and spirit for the preserva-
tion of their freedom.
Exhibit A. — Executive Order Establishing the Division op Contract
Distribution in the Office of Production Management and Defining
Its Functions and Duties
By virtue of the authority vested in me by the Constitution and the statutes
of the United States, and in order to define further the functions and duties of the
Office of Production Management with respect to the unlimited national emer-
gency as declared by the President on May 27, 1941, and to provide for the more
effective utilization of existing plant facilities for defense purposes; the conversion
3952 '"^'i'- i>oris heakings
into (lofiMise production of civilian industries afTccted by priorities and raw
material shortages; the alleviation of unemployment caused by the effects of such
priorities and shortages; the local pooling of facilities and equipment; subcontract-
ing; and the wider (liffusion of defense contracts among the smaller business en-
terprises in every part of the Nation, it is hereby ordered as follows:
1. There shall be within tin; Oflice of Production Management a Division of
Contract Distribution, at the head of which shall be a director apjiointed by the
Office of Production Management with the approval of the President. The
Director shall discharge and perform the following responsibilities and duties under
the direction and supervision of the Director General acting in association with the
Associate Director General:
(a) Formulate and promote specific programs for the purchase of supplies for
the Army and Navy in smaller units but among a greater number of firms and in
as many different localities as possible.
(b) P'ormulate and promote modifications in Federal procurement practices
and procedures relating to negotiating contracts, bidding practice, performance
and bid bonds, and other practices and procedures, to the end that there shall be
a wider distribution of defense contracts and purchases.
(c) Develop programs for the conversion of plants and industries from civilian
to defense production, with the assistance of the Government if necessary.
(d) Stimulate the organization and use of local industrial defense production
associations.
(e) Promote and stimulate subcontracting wherever feasible.
(/) In order to obtain maximum use of existing productive facilities and tools,
advise manufacturers and business enterprises the specific ways in which their
facilities and tools may be utilized in defense production; advise such manufac-
turers and businessmen with respect to the procedures and practices of the several
Federal procurement agencies.
(g) Facilitate through the regular commercial banking channels, the Recon-
struction Finance Corporation, and the Federal Reserve banks and their branches,
the necessary financing facilities for prime contractors, subcontractors, and local
industrial defense production associations, and recommend from time to time to
the Director General such additional financial procedures or machinery as shall
be required to ensure maximum utilization of existing plant and tool facilities for
defense purposes.
(h) Provide engineering and technical assistance to such prime contractors,
subcontractors, and local industrial defense production associations as may require
such assistance in order to participate in defense production.
(i) Perform such other duties and responsibilities as the Office of Production
Management may from time to time determine.
2. To ensure unity of policy and coordinated consideration of all relevant factors
involved in the fo'-mulation and execution of industry conversion programs, and
contract distribution and subcontracting procedures, all such programs or pro-
cedures shall clear through the Division of Contract Distribution.
3. To aid the Director in carrying out the aforesaid responsibilities, there shall
be assigned to the Division one or more officers of the Departments of War and the
Navy, respectively, and one or more representatives of the Maritime Commission,
whose duty shall be to assist as liaison in the speedy and successful carrying out
of the aforesaid program.
4. There shall be in the Division of Contract Distribution two advisory com-
mittees consisting of representatives to be designated by the Director of the
Division with the approval of the Office of Production Management. One shall
be representative of small-business organizations, and the other of industrial,
management, and production engineers. The committees shall, from time to
time, upon request by the Director, make findings and submit recommendations
to the Director with respect to procurement practices and procedures; contract
placements and distribution; industry conversion problems; formation of local
production associations; subcontracting; and for such other matters as the Director
may require advice and assistance.
5. Within the limits of such funds as may be made available to the Division of
Contract Distribution, the Director may appoint industrial and production
engineers, economists, statisticians, and such technical and other personnel as he
shall deem neces.sary to carry out the duties assigned to the Division herein.
6. The Director may establish branch offices throughout the United States
and its territories to carry out his duties. There shall be assigned to such branch
offices such officer personnel or other representatives of the Army, Navy, United
States Maritime Commission, and other Federal procurement agencies as may be
required by the Director for liaison purposes.
NATIONAL DEFENSE MIGRATION 8953
7. There shall be assigned to the main office and to each field office of the
Division a representative of the Labor Division of the Office of Production Man-
agement to cooperate with such offices in the Labor Division's efforts toward
reemployment of employees of plants whose production has been curtailed by
priorities and material shortages.
8. In the execution of the foregoing duties, the Director of the Division of
Contract Distribution shall consult and collaborate with the War Department,
the Navy Department, the United States Maritime Commission, and other
Government procurement agencies, which are hereby directed to cooperate with
and establish close liaison with such Division to accomplish the purposes of this
order.
9. The Defense Contract Service, established pursuant to regulation No. 9,
July 29, 1941, of the Office of Production Management, is hereby abolished.
The duties and responsibilities of said Defense Contract Service are hereby
assigned to the Division of Contract Distribution. All records, files, and equip-
ment of the Defense Contract Service shall be transferred to the Division of
Contract Distribution.
Franklin D. Roosevelt.
The White House,
September 4, 1941-
Exhibit B. — The White House Statement on Establishment of the
Division of Contract Distribution in the O, P. M.
September 4, 1941.
The President today, after conferring with Under Secretary of War Patterson,
Under Secretary of the Navy Forrestal, Mr. William S. Knudsen and Mr. Sidney
Hillman, acting as the Council of the Office of Production Management, and with
Rear Admiral Emory S. Land, Chairman of the United States Maritime Com-
mission, issued an Executive order establishing a new division in the Office of
Production Management.
This division is to be known as the Division of Contract Distribution and is-
to be coordinated with the existing Divisions — Procurement, Production, Pri-
orities, Labor, and Civilian Supply.
Floyd B. Odium, of New York, has been appointed Director of the new division.
The conference was held and the Executive order was issued in furtherance of
a determined move on the part of the administration to help the smaller business
units of the country obtain a fair share of the defense orders, and to prevent,
60 far as possible, dislocation of industry and unemployment of workers in plants
where production has been curtailed by priorities and material shortages.
The program devised was arrived at in consultation with representatives of
the Army, Navy, Maritime Commission, and Offi"ce of Production Management
and has the full support of these agencies.
The Labor Division and the Defense Contract Service of Office of Production
Management have already done a great deal in starting the machinery of sub-
contracting and in retraining and obtaining reemployment for discharged workers.
The program is now to be greatly expanded throughout each part of the United
States, as one of the most important functions of Office of Production Manage-
ment. The present personnel, records, etc., of the Defense Contract Service of
Office of Production Management will be transferred to this new division.
Through this Division, the Office of Production Management will be enabled
more effectively to adjust the dislocations and alleviate unemployment resulting
from priorities and material shortages and bring about maximum use of the
Nation's factories and industrial plants, especially the smaller ones throughout
the Nation. This will be done through four major steps:
1. The breaking down of large orders of supplies into smaller units, and
spreading the purchases among more firms and in all localities possible.
2. Providing assistance through the Labor Division of Office of Production
Management in retraining and obtaining reemployment for workers who are
unemployed as a result of the shutting down of some plants or reduction of their
output.
3. The effective distribution of defense contracts to the smaller business enter-
prises, as yet largely unused, through an expanded use of subcontracting, contract
distribution, and the pooling of plant facilities.
4. By providing a staff of industrial and production engineers to formulate
and execute specific plans for the conversion of nondefense industries and plants
to defense production.
8954 ST. LOUIS HEARINGS
The Division of Contract Distribution will have branch offices located in the
various States.
'J'he Division will formulate and promote plans and programs for the purchase
of supplies for the Army and Navy in smaller units, but among a greater number
of firms and in as many difTerent localities as possible. It will also formulate
and develop programs for the conversion of planis and industries from civilian
to defense production — with the assistance of the fJovernment wherever neces-
sary. It will formulate the organization and use of local industrial defense pro-
duction associations, and will i)romote and stimulate farming out of defense work
and subcontracting, wherever feasible.
The Division of Contract Distribution will provide an industrial engineering
staff whose responsibility it will be to obtain the maximum use of existing facilities
and tools by assisting manufacturers and business enterprises in making the
necessary changes in their tools and equipment for effective use in defense
production.
The field offices of the Division of Contract Distribution will be adequately
staffed to render needed assistance to businessmen. Procurement agencies of
the Government will assign representatives to the main office and field offices, as
required, for purposes of liaison.
In the various cities will be established exhibits or "market places" where there
will be displayed specific parts, "bits and pieces", the components needed for
defense production. These may be parts of a machine gun or an airplane or
tank, or any one of a thousand other items which are needed. These "bits and
pieces" will be labeled as to the quantities needed and the machine tools and
operations required for their production so that any machine-shop owner or
manufacturer can determine whether his facilities are capable of producing such
items.
Subcontracting arrangements can then be entered into on the basis of what
an individual sees he is capable of doing, receiving then and there the expert
industrial and engineering judgment of those whose a.ssistance he may desire.
The Division of Contract Distribution will also provide through the regular
commercial banking channels, the Reconstruction Finance Corporation, includ-
ing the Defense Supplies Corporation and the Defense Plant Corporation, and
the Federal Reserve banks and their branches, the necessary financing facilities
for local industrial production associations prime contractors and subcontractors,
and will recommend whenever necessary such additional financial procedures
and machinery as may be required to obtain the maximum utilization of existing
plant and tool facilities for defense purposes.
The Director of the Division is to appoint two advisory committees, one to
consist of representatives of small business organizations; the other, to consist
of industrial, management and production engineers.
It is intended, on the one hand, to face the responsibility of alleviating the
hardships which have resulted" from the defense program and, on the other, to
marshal our productive capacities to the objective that no plant or tool which
can be used for defense shall be allowed to remain idle.
NATIONAL DEFENSE MIGRATION
8955
Exhibit C. — Division of Contract Distribution Field Offices
(Noveinber 19, 1941)
Alabama, Birmingham. '
Arizona, Phoenix.'
Arkansas, Little Rock.i
California, San Francisco,^ Los Angeles
(Independent).
Colorado, Denver. i
Connecticut, Hartford.'
Delaware, Wilmington.'
J'lorida, Jacksonville,' Tampa.
Georgia, Atlanta.'
Idaho, no olfices.
lUinoirf, Chicago,' Springfield.
Indiana, Indianapolis.'
Iowa, Des Moines.'
Kansas, Wichita.'
Kentucky, Louisville.'
Louisiana, New Orleans.'
Maine, Portland.'
Maryland, Baltnnore.'
Massachusetts, Boston,' Fall River,
Springfield, Worcester.
Michigan, Detroit.'
Minnesota, Minneapolis.'
Mississippi, Jackson.'
Missouri, St. Louis,' Kansas City.
Montana, Helena.'
Nebraska, Omaha.'
Nevada. No offices.
New Hampshire. No offices.
1 Indicates State oflSces
New Jersey, Newark. *
New Mexico. No offices.
New York, New York City,' Albany,
Brooklyn, Buffalo, Rochester, Syra-
cuse.
North Carolina, Charlotte.
North Dakota. No offices.
Ohio, Cleveland,' Cincinnati, Columbus,
Dayton, "^'oungstown.
Oklahoma, Oklahoma City.'
Oregon, Portland.'
Pennsylvania, Philadelphia,' Cheste'",
Lancaster, Pittsburgh, Scranton,
Wilkes-Barre.
Rhode Island, Providence.'
South Carolina. No offices.
South Dakota. No offices.
Tennessee, Memphis,' Chattanooga,
Knoxville, Nashville.
Texas, Dallas,' El Paso, Houston,
San Antonio,
ntah. Salt Lake City.'
Vermont. No offices.
Virginia, Richmond.'
Washington, Seattle,' Spokane.
West Virginia, Wheeling (wiU not be
State office).
Wisconsin, Milwaukee.'
Wyoming, No offices.
8956
ST. LOUIS HEARINGS
Exhibit D. — Certifications to Armed Services by Division of CoNTRAcr
Distribution
REPORT submitted BY PETER R. NEHEMKIS, JR.
Plants
Evansvillo, Ind, certified Oct. 7, 1941:
Wm. R. Rootz Co -
Calvaleir Garment Co -
Sunbeam Electric Co --
Servel Co - --
R. Boots Stove Co- ---
American Fork & Hoe Co -
Sledges -- -- --
Kits --
Crescent Stove Works ---•
Greenville, Mich., certified Oct. 20, 1911: Gibson Electric Co
Eatonton, Qa. (under nepotiation) certified Oct. 20, 1941
Mansfield, Ohio, certified Oct. 20, 1941:
Westinghouse Electric Co
Do -- -
Do -- -
Ohio Brass Co --
Do ---
Hughes Kennan Co
Subcontracts.
Barnes Manufacturing Co
Hanilowoc, Wis., certified Sept. 29, 1941:
Manitowoc Shipbuilding Co --
Aluminum Goods Manufacturing Co
Kaufman Manufacturing Co
Aluminum Specialty Co
Keno<;ha- Racine, Wis., certified Oct. 4, 1941:
AllisChalmers Manufacturing Co
J. J. Case Co. (tractors) -.--
Nelson Bros. & Strom Sales Co
Do..
George Gorton Machine Co
Do..
Chicago Rubber Clothmg Co
Peter Pirsch & Sons Co
Jacobson Manufacturing Co -
Do
Do
Simmons Bed Co
Do.
Vincent McCall Co
Snap-On Tool Co
Nash Kelvinator Corporation
Webster Electric Co
Do
Frost Co v,----T-
Cooper Manufacturing Co., Inc
Walker Manufacturing Co ---
J. I. Case Co..
Meadville, Pa., Oct. 4, 1941: Talon. Inc---: y. -.y-vv-'-v
■Washer-Ironer Industry (composed of 34 mdividual firms),
certified Oct. 20, 1941: . r^ r^, , ^ r»hi„
Ape.v Electric Manufacturmg Co., Cleveland, Ohio
Easy Washer Co., Syracuse, N. Y
The 1900 Corporation, St. Joseph, Mich
One-third of contract awarded to each of the above as
prime contractor under agreement to subcontract
only among firms in the industry.
Appliance Manufacturing Co., Alliance, Ohio
Lovcl Manufacturing Co., Erie, Pa . .
One-half of contract awarded to each.
T^ipon, Wis., certified Oct. 20, 1941 ---
•Grand Rapids, Mich, certified Oct. 20, 1941:
Grand Rapids \ arni.sh Corporation.
American Seatina Co. - ---
Oliver Machine Co
Globe Knitting Works
Brocher & Hood Corporation
American Auto Felt Corporation
Gallmeyer & Livingston Co --
Do . .- - -
Plants unknown ---
Contracts awarded
Navy Ordnance reports plac-
ing award for bombs, ap-
proximately.
Army -- --
.-..do -
....do
do-..
....do
do.
do
do
do.
.do.
-do.
.do-
.do.
.do.
Subcontract by Navy.
Anny
do-.
Navy..
Army.,
.---do.
.-..do-
Navy
---do
---.do
-...do
Army ---
- -do --
Army Quartermaster Corps.
do
Army
do -
do
do
do
do
do
do
do
do
do
do
do
do
do
Amount
$557, 000. 00
34, 750. 00
360, 000. 00
48, 105. 00
148, 395. 00
560. 70
467. 00
1,022 28
184, 395. 00
539, 818. 00
2, 326, 450. 00
3, 673, 543. 00
2, 516. 92
340, 000. 00
120. 000. 00
45, 000. 00
380, OCO. 00
13, 442. 22
140, 000. 00
4. 800. 00
4, 923. 00
446, 750. 00
133,
57,
69.
36,
1,
81.
1,
4,
5,
60,
3,
80.
48,
241,
1,861,
678,
149,
97,
1,
261,
8,
l.-iS. 00
168. 54
600. 00
410.00
053. 00
358. 00
867. 42
762. 50
528. 00
852. 00
213.00
500. 00
300. 00
500. 00
357. 01
360. 00
000. 00
891.00
000. 00
850. 00
180. 38
562. 00
875.00
None.
Total of all the foregoing contracts awarded to certified
areas is.
Army-
-...do-
....do.
do.
do.
do-
do-
do-
Navy..
12, 966, 360. 00
819, 260. 00
1,053.94
2, 520. 00
850. 00
126. 000. 00
10, 428. 00
148, 500. 00
9,814.00
2, 306. 00
9, 724. 00
28, 337, 099. 91
J
NATIONAL DEFENSE MIGRATION
8957
Exhibit E. — Supply Contracts Awarded by the Army and Navy ' in the
North Central States, March Through September 1941
office of production management. bureau of research and statistics,
NOV. 21, 1941
[Thousands of dollars]
State
Cumulative through-
Mar. 31
Apr. 30
May 31
June 30
July 31
Aug. 31
Sept. 30
Indiana
Ohio
$225, 946
553, 896
227, 407
586, 567
149. 664
35, 173
44, 485
34, 563
283, 368
4,055
$234, 937
602, 616
239, 650
608, 368
155, 533
35, 659
44, 576
34,786
284, 583
4,129
$239, 924
619, 107
254, 203
697, 985
162. 634
35, 742
50, 913
36, 498
347, 864
4,129
$274, 199
674, 525
371, 984
799, 126
181, 970
37, 153
247, 435
37, 526
354, 027
170, 485
$286, 172
704. 184
405.912
903, 223
193,512
49, 771
247, 435
42. 157
354, 659
170, 485
$347, 259
764, 182
421, 469
938, 845
217, 537
50,811
259, 606
48,116
358. 693
171, 172
$373, 463
806, 746
Illinois
Michigan
Wisconsin
Iowa
Kansas
438. 257
1, 010, 883
227. 117
50, 803
474,516
49, 340
Missouri
371, 082
Nebraska
North Dakota .-.
171,507
Total-
2, 145, 124
2, 244, 837
2, 448, 999
3, 148, 430
3, 357, 510
3, 577, 690
3, 972, 779
Includes only contracts of $50,000 and over; based on reports received through Nov. 17, 1941.
Exhibit F. -^Commitments for Government-Financed Defense Industrial.
Facilities,' North Central States, by Months. March Through Sep-
tember 1941
office of production management, bureau of research and statistics
NOV. 21. 1941
state
Cumulative through-
Mar. 15
Apr. 30
May 31
June 30
July 31
Aug. 31
Sept. 30
Illinois
Indiana
Iowa
Kansas
Michigan
Minnesota
Missouri
Nebraska
$136,318,917
165, 880, 798
16. 068, 556
10,802,675
132, 816. 561
5, 393, 297
81, 828. 729
9, 102, 945
$141,022,530
168. 671, 258
20. 602, 955
10, 802, 675
150, 567, 849
5. 393, 297
84, 446. 513
10, 027, 533
$151,276,631
199, 254, 084
29, 509, 819
14, 396, 768
160, 754, 440
5, 393, 297
120, 705, 189
10, 207, 437
$175, 496, 292
200, 657, 808
29, 509, 819
32, 626. 719
207, 329, 554
5, 393, 297
135, 554, 249
9,849,047
$194, 554, 517
236, 573, 986
66, 858, 716
34, 422, 260
223, 583, 873
37, 859, 167
174, 788. 543
12, 403, 983
$222, 369, 037
236, 532, 288
67, 347, 938
62. 524, 568
232. 621, 658
39, 174, 889
196, 195, 985
12, 597, 184
$232, 719, 436
280, 788, 014
67, 974, 607
79, 920, 384
256, 094, 155
39, 792, 996
196, 591, 635
12, 597, 184
Ohio
South Dakota
170, 552, 935
176,567,019
203, 678, 675
213, 905, 489
261, 221, 604
303, 679, 250
322, 975, 882
Wisconsin
9, 584, 015
9, 584, 015
11,007,015
15, 207, 015
16, 591, 900
33.582,095
33, 981. 677
Total
737. 349, 428
777, 685, 644
906, 183. 355
1, 025, 529, 289
1, 258, 858, 549
1, 406, 624, 892
1, 523, 435, 970
• Includes only expansions estimated to cost $25,000 or more.
8958
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8959
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