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ORGANIZED EFFORTS

FOR THE IMPROVEMENT OF

METHODS OF ADMINISTRATION

IN THE UNITED STATES

PUBLICATIONS OF THE
INSTITUTE FOR GOVERNMENT RESEARCH

STUDIES IN ADMINISTRATION

The System of Financial Administration of Great Britain

By W. F. Willoughby, W. W. Willoughby and S. M. Lindsay

The Budget

By Ren6 Stourm
T. Plazinski. Translator, W. F. McCaleb, Editor

The Canadian Budgetary System
By H. G. Villard and W. W. Willoughby

The Problem of a National Budget

By W. F. Willoughby

The Movement for Budgetary Reform in the States

By W. F. Willoughby

Teachers' Pension Systems in the United States
By Paul Studensky

Organized Efforts for the Improvement of Methods of Ad-
ministration in the United States

By Gustavus A. Weber

The System of Financial Administration of the United
States (In preparation)

PRINCIPLES OF ADMINISTRATION

Principles Governing the Retirement of Public Employees

By Lewis Meriam

Principles of Government Purchasing
By A. G. Thomas

SERVICE MONOGRAPHS OF THE UNITED STATES GOVERN-
MENT

The United States Geological Survey
The Reclamation Service

D. APPLEtON AND COMPANY

PUBLISHERS NEW YORK

STUDIES IN ADMINISTRATION

THE INSTITUTE FOR G O VE RNiVf E1S T RESEARCH

ORGANIZED EFFORTS

FOR THE IMPROVEMENT OF

METHODS OF ADMINISTRATION

IN THE UNITED STATES

BY.

GUSTAVUS A. WEBER

D. APPLETON AND COMPANY

NEW YORK LONDON

1919

Printed in the United States of America

THE INSTITUTE FOR GOVERNMENT RESEARCH

Washington, D. C.

The Institute for Government Research is an association of citizens
for cooperating with public officials in the scientific study of adminis-
trative methods with a view to promoting efficiency in government
and advancing the science of administration. It aims to bring into
existence such information and materials as will aid in the formation
of public opinion, and will assist officials, particularly those of the national
government, in their efforts to put the public administration upon a
more efficient basis.

To this end, it seeks by the thoroughgoing study and examination of
the best administrative practice, public and private, American and
foreign, to formulate those principles which lie at the basis of all sound
administration, and to determine their proper adaptation to the specific
needs of our public administration.

The accomplishment of specific reforms the Institute recognizes to
be the task of those who are charged with the responsibility of legislation
and administration; but it seeks to assist, by scientific study and research,
in laying a solid foundation of information and experience upon which
such reforms may be successfully built.

While some of the Institute's studies find application only in the form
of practical cooperation with the administrative officers directly concerned
many are of interest to other administrators and of general educational
value. The results of such studies, the Institute purposes to publish
in such form as will insure for them the widest possible utilization.

Officers

Robert S. Brookings, Frank J. Goodnow, James F. Curtis,

Chairman Vice-Chairman Secretary

Frederick Strauss,
Treasurer

Trustees

Edwin A. Alderman Felix Frankfurter A. Lawrence Lowell

Robert S. Brookings Frank J. Goodnow Samuel Mather

James F. Curtis Jerome D. Greene Charles D. Norton

R. Fulton Cutting Arthur T. Hadley Martin A. Ryerson

Raymond B. Fosdick Cesar Lombard! Frederick Strauss
Theodore N. Vail Robert S. Woodward

Director

W. F. Willoughby

Editor

Lewis Mayers

EDITORIAL PREFACE

THE following volume is intended as one of reference. Its
purpose is not to discuss principles nor, primarily at least, to
describe what has been accomplished by organized efforts for the
improvement of methods of public administration in the United
States. Its principal aim is to furnish an account of the organ-
ized agencies that have been established in recent years for mak-
ing scientific studies of problems of organization and administra-
tion with a view to bringing about^more efficient methods in the
conduct of public business, and of making known the character
of the exceedingly valuable material that has resulted from these
studies. At the same time, it is hoped that, as an incidental
product, additional stimulus and encouragement will be given to
the general movement for introducing scientific methods not only
into public administration itself, but to the study of the princi-
ples which lie at the basis of good government.

To keep the volume within reasonable limits, it has been
thought best to restrict its scope to organizations and agencies
whose chief if not exclusive interest is in the technique of ad-
ministration, rather than in the larger problems of politics. The
interest of associations like the American Political Science Asso-
ciation, the American Academy of Political and Social Science,
and the New York Academy of Political Science, extends to the
whole field of scientific political thought, and only incidentally
and casually to the practical problems of public administration.
Other societies like the American Society of International Law
and the American and State Bar Associations, have a more lim-
ited field, but they also are able to devote but a partial interest to
questions of administration. The Short Ballot Association puts
forth a program which it is believed will at once improve the
average character of persons elected to public office, and tend
to improve administrative processes by securing a better inte-
gration of the administrative services; but its primary interest
is in the political machinery of elections. Again, the work of

vii

EDITORIAL PREFACE

not a few important scientific associations, which are not pri-
marily political, none the less often has a political character, and
their publications not infrequently include papers dealing with
problems of public administration. Such societies are the Ameri-
can Economic Association, the American Sociological Society, the
American Historical Association, not to mention many others.

Enough has been said to show that if an adequate account were
given of the incidental contributions of these scientific societies
to the movement for the improvement of methods of public ad-
ministration in this country, a separate volume would be required.
It has, therefore, been thought best, as has been said, to confine
this report to agencies whose work is not general or political,
but which have for their immediate aim the bringing about of
improved methods in public administration in the United States.

So various have been the forms assumed by these agencies for
the improvement of administrative methods that satisfactorily to
classify them is no easy task. Several broad lines of classifica-

\tion may however readily be discerned. Thus the agencies may
be classified as to whether they are official or unofficial, or, as in
the case of leagues of municipalities, what might be called semi-
official. Again, they may be classified as to their type of activity
— that is, whether they merely furnish opportunity for the ex-
change of information and ideas among persons interested, by
means of publications or conferences, or furnish information or
**? advice on request, or themselves originate inquiries and attempt
to secure the adoption of the views or principles developed, or,
as in the case of certain official agencies, have legal power to re-
quire their adoption/ Still another line of cleavage is between
'; agencies seeking reform in legislative methods and those seeking
it in judicial and administrative methods/

In determining what should be embraced in the limits of this
volume, agencies devoting themselves solely to questions of judi-
cial administration were regarded as representing too specialized
an interest to be appropriate for inclusion here. Again, in the
legislative field, agencies concerned chiefly with the content of
legislative measures or the records of individual legislators — as
voters* leagues, citizens' unions, etc. — have been excluded as hav-
ing no primary concern with the technique of legislative methods.
Within the field of administration proper, moreover, no ac-

viii

EDITORIAL PREFACE

count, but merely a listing, has been attempted of those organiza-
tions whose regular program embraces no more than the publica-
tion of papers contributed by the membership, or other interested
persons, or the holding of occasional conferences.

Primarily, therefore, the volume is devoted to those agencies
which seek the improvement of methods of public administration
(other than judicial) by the conduct of systematic inquiries,
through staffs specially employed for the work. In giving ac-
count of these agencies distinction has been drawn between those /
which merely furnish information on inquiry — that is, reference /
libraries and bureaus — and those which themselves project and
initiate investigations.. In the latter class, distinction is again
drawn between those agencies, both official and unofficial, whose
function exhausts itself in the making of recommendations — that
is, research agencies — and those' few official agencies which pos-
sess legal power to translate their findings into action, agencies
herein termed "central organs of administrative control."/Lastly,
among research agencies themselves, those which are interested J
only in one phase of administrative reform — as the civil service
reform association — are distinguished from those which take the
whole field of public administration for their province./

In addition to these agencies for administrative reform, which
occupy the bulk of the volume, account is given of the bill-
drafting services which have been established in a number of
states within recent years. While not strictly agencies for the
improvement of legislative methods so much as themselves agen-
cies employing improved methods in the framing of legislation,
their basic relation to the problem of improving administrative
methods has seeemd to warrant their inclusion.

In the case of all the research agencies treated the attempt
has been made to describe the history, organization and activities
and to list the publications of each agency separately. This has
not been feasible in the case of all the other agencies. In some
cases we have had to content ourselves with a consideration of
them as a class, though what is believed to be a substantially
complete list of such agencies has in all cases been given. Even
with respect to the accounts given the agencies for research in
government, it should be said that considerable difficulty was
encountered in securing all the data desirable, and it is quite

EDITORIAL PREFACE

likely that there are cases where the account given does not give
full credit for work done.

The account given of the Institute for Government Research
consists of a reproduction of a paper read by its Director at the
annual meeting of the American Political Science Association
in December, 1917, the use of which was kindly authorized by
that association.

W. F. WlLLOUGHBY.

CONTENTS

CHAPTER PAGE

INTRODUCTION: THE MODERN MOVEMENT FOR EFFICIENCY IN
THE ADMINISTRATION OF PUBLIC AFFAIRS . . i

PART I. AGENCIES FOR RESEARCH IN GOVERNMENT

I. AGENCIES FOR STUDYING PUBLIC ADMINISTRATION GENERALLY:
UNOFFICIAL (THE INSTITUTE FOR GOVERNMENT

RESEARCH) . . . . . 29

II. AGENCIES FOR INVESTIGATING THE NATIONAL ADMINISTRA-
TION: OFFICIAL ... -44

Bibliography of Congressional Inquiries, 1 789-191 1 . . 45

Select Committee on Methods of Business in the Execu-
tive Departments (Cockrell Committee), 1887-1889 57

Joint Commission on Executive Departments, Organiza-
tion, etc. (Dockery-Cockrell Commission), 1893-1895 66

Committee on Department Methods (Keep Committee),

1905-1909 .... -74

President's Commission on Economy and Efficiency,

1910-1913 ...... .84

United States Bureau of Efficiency, 1913 . . .104

III. AGENCIES FOR INVESTIGATING THE ADMINISTRATION OF

PARTICULAR STATES: OFFICIAL 114

New Jersey: Economy and Efficiency Commission . .115
Massachusetts: Commission on Economy and Efficiency 119
New York: Committee of Inquiry to Investigate the

Administration of the State Government . . .126
New York: Department of Efficiency and Economy . 128
Pennsylvania: Economy and Efficiency Commission . 133
Illinois: Efficiency and Economy Committee . . . 134
Minnesota: Efficiency and Economy Commission . 144

Minnesota: Commission on Reorganization of Civil

Administration .......

Iowa: Joint Committee on Retrenchment and Reform . 147
Connecticut: State Commission on the Consolidation of

State Commissions and the Reorganization of the

Public Health Laws 149

Kansas: Efficiency and Economy Committee . .15°
xi

CONTENTS

CHAPTEfc PAGE

Alabama: Legislative Investigating Committee . .151
Colorado: Survey Committee of State Affairs . .152
Virginia: Commission on Economy and Efficiency . .154
Louisiana: Board of State Affairs .... 157
Texas: Joint Legislative Investigating Committee . 158
Oregon: Consolidation Commission . . . 159

Other States 161

IV. AGENCIES FOR INVESTIGATING THE ADMINISTRATION OF

PARTICULAR STATES: UNOFFICIAL . . . . .162

New Jersey: Bureau of State Research, State Chamber of

Commerce ........ 162

Maryland: Commission on Economy and Efficiency . 166
Other States . . . . . . . .166

V. AGENCIES FOR INVESTIGATING THE* STATE AND LOCAL AD-
MINISTRATION OF PARTICULAR STATES: UNOFFICIAL . .167
Ohio: Institute for Public Efficiency . . . .167
Maryland: Bureau of State and Municipal Research . 171

VI. AGENCIES FOR STUDYING MUNICIPAL ADMINISTRATION

GENERALLY: UNOFFICIAL 173

New York: Bureau of Municipal Research . . .173

VII. AGENCIES FOR INVESTIGATING THE ADMINISTRATION OF

PARTICULAR CITIES: OFFICIAL 191

Boston, Mass. : Finance Commission of 1907-1909 . . 191

Boston, Mass. : Permanent Finance Commission . . 194

Chicago, 111. : Commission on City Expenditures . . 200
Chicago, 111.: Efficiency Division of the Civil Service

Commission ....... 201

Milwaukee, Wis.: Bureau of Economy and Efficiency

and Bureau of Municipal Research .... 204

New York, N. Y. : Commissioner of Accounts . . 206
Other Municipalities . . . . . . .210

VIII. AGENCIES FOR INVESTIGATING THE ADMINISTRATION OF

PARTICULAR CITIES: UNOFFICIAL 212

Philadelphia, Pa. : Bureau of Municipal Research . .213
Cincinnati, Ohio: Bureau of Municipal Research . .220
Chicago, 111.: Bureau of Public Efficiency . . .223
Dayton, Ohio: Bureau of Research .... 230
Milwaukee, Wis.: Citizens' Bureau of Municipal

Efficiency 238

Minneapolis, Minn.: Bureau of Municipal Research of

the Minneapolis Civic and Commerce Association . 242
Springfield, Mass.: Bureau of Municipal Research . . 247
Akron, Ohio: Bureau of Municipal Research . . 250
xii

CONTENTS

iPTER PAGE

Toronto, Canada: Bureau of Municipal Research . -255
.Denver, Colo.: Civic and Legislative Bureau of the

Denver Civic and Commercial Association . .258
Rochester, N. Y. : Bureau of Municipal Research . . 260
San Francisco, Cal.: Bureau of Government Research . 263
Detroit, Mich.: Bureau of Governmental Research . 265
Toledo, Ohio: Public Research Bureau: Toledo Com-
merce Club ........ 266

Yonkers, N. Y.: Bureau of Municipal Research . . 267
Indianapolis, Ind. : Bureau of Governmental Research of

the Indianapolis Chamber of Commerce . . .269
Columbus, Ohio: Bureau of Municipal Research . . 270
Memphis, Tenn.: Bureau of Municipal Research . . 270
Petersburg, Va. : Bureau of Governmental Research . 271

IX. AGENCIES TO INVESTIGATE THE ADMINISTRATION OF PAR-
TICULAR COUNTIES: UNOFFICIAL 272

Westchester County, N. Y. : Research Bureau . . 272
Alameda County, Calif.: Tax Association . . .276
Hudson County, N. J.: Citizens Federation . . .278

PART II. ORGANS OF CENTRAL ADMINISTRATIVE CONTROL

X. ORGANS OF ADMINISTRATIVE CONTROL IN THE STATES . .283
California: State Board of Control .... 284
Wisconsin: State Board of Public Affairs . . .288
Massachusetts: Supervisor of Administration . .291

Illinois: Department of Finance 296

Tennessee: State Budget Commission .... 298
Other States ........ 299

XL ORGANS OF ADMINISTRATIVE CONTROL IN CITIES . . . 301
New York, N. Y. : Board of Estimate and Apportionment 301

PART III. LEGISLATIVE REFERENCE AND BILL-DRAFTING

AGENCIES

XII. THE PROBLEM OF LEGISLATIVE REFERENCE AND BILL-
DRAFTING SERVICE 313

XIII. AGENCIES FURNISHING LEGISLATIVE REFERENCE AND BILL-
DRAFTING SERVICE . . . . . . .327

Alabama: Department of Archives and History . .327
Arizona: State Law and Legislative Reference Library . 328
California: Legislative Counsel Bureau . . .329
Illinois: Legislative Reference Bureau . . . . 330

xiii

[TS

CHAPTER PAGE

Indiana: Legislative and Statistical Bureau . . .332
Kansas: State Library: Legislative Reference Depart-
ment 333

Maryland: Department of Legislative Reference . . 333
Michigan: State Library: Legislative Reference Depart-
ment . . ... 334
Missouri: Library Commission: Legislative Reference

Department 336

Montana: State Library: Historical and Miscellaneous

Department: Legislative Reference Bureau . .337
Nebraska: Legislative Reference Bureau . . -337
New Hampshire: State Library: Legislative Reference

Bureau 339

North Carolina: Historical Commission: Legislative

Reference Department ...... 339

North Dakota: Public Library Commission: Legislative

Reference Bureau ...... 340

Ohio: State Board of Library Commissioners: Legisla-
tive Reference Department ..... 341

Pennsylvania: Legislative Reference Bureau . . . 343
Rhode Island: State Library: Legislative Reference

Bureau 345

South Dakota: State Library: Division of Legislative

Reference ........ 346

Vermont: State Library : Legislative Reference Bureau . 347
Virginia: Legislative Reference Bureau . . . 348
West Virginia: Department of Archives and History:

Legislative Reference Section .... 349

Wisconsin: Free Library Commission: Legislative

Reference Department . . . . . .350

XIV. LEGISLATIVE REFERENCE SERVICES 353

United States: Library of Congress: Legislative

Reference Division . . . . . -353

California: State Library: Legislative Reference

Department 357

Connecticut: State Library: Legislative Reference

Department ... . -357

Georgia: State Library: Legislative Reference Depart-
ment ....... . 358

Iowa: State Library: Law and Legislative Reference

Department . . . . . . -359

Maine: State Library: Legislative Reference Bureau . 359

Massachusetts: State Library: Legislative Reference

Department .... .360

New Jersey: State Library: Legislative Reference De-
partment ..... . 360

xiv

CONTENTS

IAPTER PAGE

New York: State Library: Legislative Reference

Section ........ 361

New -York: Legislative Library . . . . .363

Oregon: State Library . . : . . .363

Texas: State Library: Legislative Reference Section . 363

XV. BILL-DRAFTING SERVICES 365

Connecticut ........ 365

Massachusetts ........ 366

New York ......... 366

New York: Columbia University: Legislative Drafting

Bureau ........ 367

Wyoming 371

Other States 371

INTRODUCTION

THE MODERN MOVEMENT FOR EFFICIENCY IN
THE ADMINISTRATION OF PUBLIC AFFAIRS

W. F. WILLOUGHBY

ORGANIZED EFFORTS FOR THE

IMPROVEMENT OF METHODS

OF ADMINISTRATION

INTRODUCTION

At the time the federal constitution was adopted, more
than one hundred and twenty-five years ago, the one great
political problem which the men of that time felt called upon
to solve was to obtain a form of government which, on the
one hand, would have sufficient power and be so organized
that it could maintain domestic order and afford protection
against foreign aggression, and yet, on the other hand, sub-
ject the liberty and freedom of the individual to a minimum
of interference and control. The idea dominant was to keep
the sphere of governmental activities as limited as possible and
so to distribute the political powers that were granted that
they would check or balance one another, and thus tend to
prevent the assumption and exercise by any one official or
branch of the government of undue authority. Compara-
tively little emphasis was laid upon the problem of bringing
into existence an efficient system of government from the mod-
ern viewpoint since it was the expectation that the govern-
ment would in fact have but few positive duties to perform.

Such an ideal as this could remain satisfactory only so
long as the functions of government remained comparatively
few and simple and were, in fact, confined to what have been
called police duties, using that term in its technical sense.
Events, however, have entirely nullified this original concep-
tion. The performance of the so-called essential functions of
government now constitute but a relatively small part of its
total activities. No longer is there an a priori assumption j
that a widening of the sphere of public action is an evil. The
province of government is now held to embrace all forms of

EFFORTS FOR ADMINISTRATIVE REFORM

activities which contribute in any way to the promotion of
the public welfare*^ There is hardly a field of activity into
which our governments have not entered. Their operations
are now on a vast scale and require for their performance or-
ganizations and technical processes exceeding in size and com-
plexity those of any private undertakings. Gone also is the
early simple faith that there were intrinsic merits in demo-
cratic government which could be depended upon by their own
inherent force, as it were, to provide a satisfactory formula-
tion and execution of the popular will. Upon the contrary it
is now recognized that, if anything, a popularly controlled
? government is one which is peculiarly prone £0 financial ex-
travagance and administrative inefficiency, jltjis now seen
that our original conceptions regarding the benefits of the
separation of powers must be radically revised; that the rigid
application of this principle is no longer needed as a protec-
tion against a possible autocratic and oppressive exercise of
power; that within the administrative branch responsibility
and power must be more strongly centralized and a more in-
tegrated system of administrative services be built up./ And,
finally, it has been recognized that many of the adrninistra-
tive tasks which the present day government has to perform
are highly technical in character, technical as regards the in-
formation that must be at hand, and technical as to the meth-
ods of operation that must be employed, and that there are
no inherent reasons why officers of government cannot be held
to the same standards of efficiency and honesty which are ex-
acted in the general business world.

Due to an appreciation of these facts, the center of inter-
est and effort has shifted to the obtaining of an efficient and
economical performance by governments of the tasks which
are laid upon them. Thus it may be said that, in its present
phase, the movement for political reform is one that lies very
largely in the field of administration.

This change in interest is clearly reflected in the literature
of political science in all countries as well as our own. It is
well within the memory of many of us when works upon the
government of the United States consisted almost wholly of
commentaries upon the federal constitution. As a subject of
study, government was deemed to embrace little more than

INTRODUCTION

learning, usually by heart, the provisions of this document.
Of the study of our extra-constitutional and extra-legal po-
litical institutions — parties, their organization, procedure and
practices, and the part that they play in determining the man-
ner in which our governmental machinery actually works —
there was not a trace. Political science, properly speaking,
did not exist. Such questions as the nature of the state, sov-
ereignty, the essential differences between different types of
government, etc., if they received any attention at all, were
given only incidental consideration in legal treatises. Not the
first beginning was made of the study of problems of admin-
istration, of the manner in which Congress was organized
for the discharge of its duties, of its rules of procedure, of
the organization, practices and procedure of the executive de-
partments, of the procedure and -rules of the courts in admin-
istering justice, etc. This was the first stage in the study of
government in the United States — the stage in which legal
and political thought was dominated by the idea of natural
law, when our constitutional system was looked upon as al-
most flawless, and when the study of politics was confined to
the effort to learn in a colorless way the mere structure or
framework of government and the manner in which it was
put together.

In 1867 Walter Bagehot published his essay on The Eng-
lish Constitution. The appearance of this work constituted
a landmark in the history of the study of political science.
For the first time a thoroughly satisfactory attempt was made
to study a governmental system from the standpoint of its
practical operation, to search out the mainsprings of political
action, to make known the significance of political conven-
tions, practices and procedure, as distinguished from the for-
mal rules determining the organization of government, in a
word, tp_study a government as an_actually operatinj
instead of as an inert structure. It was not, however, until
after the lapse of a considerable number of years that any at-
tempt was made to do a like work for the United States. In
1885 President Wilson published his well-known work on
•Congressional Government, a work modeled on the plan
oFBagehot's essay and attempting, and with eminent success,
,to do for the United States what that work had done for

EFFORTS FOR ADMINISTRATIVE REFORM

the constitutional system of Great Britain. This was fol-
lowed a few years later by James Bryce's great work The
American Commonwealth, the first edition of which appeared

X in 1888. From this period also dates the inclusion in univer-
sity curricula of advanced courses on comparative government
and political institutions and the issue by universities of se-
rials and periodicals dedicated to the publication of serious
studies in the field of politics and the allied sciences. Among
the latter the Johns Hopkins University Studies in Historical
and Political Science, beginning in 1882, was the pioneer.
Without the aid of the material contained in these studies
James Bryce is reported to have said that a number of the
chapters of his American Commonwealth could not have been

^ written. In 1886 was begun the publication, under the aus-
pices of the Columbia University, of the Political Science
Quarterly, a periodical which from its establishment has had
the highest scientific character. Other serials, issued under
the auspices of universities and political science associations,
soon followed.

The appearance of these publications in the eighties marks
the beginning of the second stage in the study of government
in this country. This stage may be called the stage of in-
terpretive and critical study. Its predominant note was its
effort, not merely to describe, but to interpret and to criticize,
to compare governments and political institutions with each
other, to determine the significance of political practices. It
constitutes the period when students began to question whether
our constitutional system was in all respects the perfect one
which it had been held to be, whether there were not fea-
tures in other governmental systems that were not worthy of
\ incorporation in our own. For the first time our whole po-
litical system and scheme of government, national, state and
local, was subjected to critical examination in the light of
actual results.

Great as was the advance of this stage over the one that
had preceded it, it still fell short of meeting the demand that
can properly be put upon political science. Though govern-
mental systems here and abroad were subjected to the most
searching criticism, little or no attempt was made to follow
up such criticisms with definite suggestions regarding the ac-

INTRODUCTION

tion which should be taken to remove the evils that were re-
vealed. Students of political science were subjected to the
indictment that though fertile enough in criticism they were
barren in respect to the indication of means by which improve-
ments might be brought about. Especially did the field of ad-
ministration as a branch of political science remain wholly
uncultivated. The actual administrator of public affairs, the
legislator or the executive officer, though he found much of
interest and not a little of profit in the writings of students
of politics, was thrown upon his own resources when it came
to working out plans by which concrete changes were to be
effected.

This indictment of students of political science as a body
no longer holds good. We are to-day in the midst of a period
when the entire mechanism of our governmental system, fed-
eral, state, and local, is being subjected to a detailed examina-
tion for the purpose, not merely of criticizing, but of formulat-
ing definite proposals of reform. In contrast with the two
periods that preceded it, the descriptive and the critical, this
period may be designated as the period of constructive effort.
In entering upon this new phase the study of political science
may be said to have at last fully entered upon its own. Its
prime characteristic is that governmental institutions are be-
ing taken up and studied one by one in the most intensive man-
ner and that, on the basis of such study, concrete measures
of reform are being both formulated and urged for adoption.

How widely divergent is this type of research from the
traditional material of political science is apparent from the
most summary outline of its problems. The problem of
lie administration is resolvable into five fairly distinct parts:
problems of organization, problems of personnel, problems of
material, problems of business practice and procedure, and
problems of finance. Each of these, in turn, has its special
phases. For example, problems of personnel have to do with
the recruitment of the working force, how employees shall be
classified, the basis on which their compensation shall be fixed,
the manner of determining their efficiency through the estab-
lishment of efficiency records or otherwise, and the systems of
promotions based thereon, what shall be the working condi-
tions of employees in respect to such matters as permanency

EFFORTS FOR ADMINISTRATIVE REFORM

of tenure, hours of labor, leave privileges, etc., and finally,
the provision that shall be made in the way of retirement al-
lowances or pensions for those incapacitated while in the per-
formance of their duties or as the result of age. In like man-
ner, problems of finance include such questions as the system
of handling and disbursing funds, of accounting and report*
ing, of audit, and, most important of all, of determining and
making provision for the revenue and expenditure needs of
the several services and of the government as a whole, or, to
use the expression now commonly employed, of the budgetary
system that shall be adopted. With the great increase of the
operating functions of governments, especially as brought
about in the national government at least by the increase in
the military and naval establishments, the administrative prob-
lems connected with the acquirement, inspection, transporta-
tion, warehousing, distribution and accounting for supplies
have assumed a complexity that makes imperative the employ-
ment of more systematic methods than have in the past been
found, or at any rate, been deemed adequate.

These special problems have been mentioned as merely il-
lustrative of the complexity and importance of the many prob-
lems that must be solved before the practical operation of
government can be placed upon a satisfactory basis. For their
solution, it now is recognized that two things are necessary :
First, a greater fund of exact information than has heretofore
been available; second, the formulation and adoption of
1 scientifically determined principles of administrative organiza-
tion and procedure. The facts which are needed include not
merely a knowledge of foreign systems which may throw
light upon our own problems, but also a knowledge of exist-
ing conditions in the United States, that is, a knowledge based
upon exact and objective investigation and presented in a log-
ical and available form. The adoption of proper principles
of administrative organization and procedure means that
methods will be employed not merely because they have the
sanction of long-continued use, but because they are actually
efficient and are dictated by a scientific analysis of the nature
of the work to be done.

Much the most striking feature of this, the latest phase
of the study of government, is the extent to which this study

INTRODUCTION

is being carried on as the result of orglmizeid efJSfrt. The
past decade or decade and a half has 'witnessed the establish-
ment of a large number of organizations having for their
primary or sole purpose the study of problems of administra-
tion, and generally the organization and methods of admin-
istration of a particular government, with a view to the de-
vising and securing the adoption of means by which the or-
ganization and methods of administration of such government
might be put upon a more efficient and economical basis.
These organizations have been created under various auspices
and pursue quite varied methods in seeking to accomplish
their ends. Some have been established by the governments
themselves and are thus of an official character. Others have
been created and financed by private individuals. Others still
represent merely the formation of associations for the study
of problems of government in a particular field by those who
are actually engaged in work in such field, or have made such
field their special study. These organizations have now
reached such a number, are prosecuting their work under such
different circumstances, and are employing such diverse meth-
ods, that they furnish in themselves a problem of efficiency and
economy in organization and administration. Both for this -s
reason and because it is of interest to make a general presenta- (, ^
tion of work that has been, and is being, done in this field,
the preparation of the present work has been undertaken.

Organized effort for the study of problems of administra-
tion has concerned itself with all three of the great branches
of government, — the legislative, the judicial, and the execu-
tive. In the legislative field this effort has taken the fornTl
chiefly of the organization of what are known as legislative / * f
reference bureaus and bill-drafting services. These^wTafe/
quite distinct in character and aim. The first have for their'
purpose the assembling and rendering available of the data!;
that will permit of more intelligent legislation. The neces- \
sity for their establishment arises from the fact that legisla-
tors only rarely are either in possession of the knowledge \
which they should have if they are to frame their measures
intelligently, or have the knowledge, means, or time at their
disposal that will -enable them to secure such information.
Under modern conditions few subjects can be effectively leg-

EFFORTS FOR ADMINISTRATIVE REFORM

islated upon without full knowledge regarding not only the
past legislation of the state to be affected by the legislation
proposed, and of other states, but of the manner in which this
legislation has worked in actual practice. The securing of
such information is usually a matter of careful research which
is beyond the resources of the individual legislator. For the
most part it can be promptly and efficiently secured only by
specialists trained in the making of such inquiries, and hav-
ing at their disposal the facilities necessary for the prosecu-
tion of such work. It is thus a hopeful sign that this need is
being recognized and that in response to it organizations are
being created for meeting it.

A survey of work that has been done in this field shows
that organizations of this character have been established un-
der three auspices, the legislatures ^or whose use they are in-
tended, state and other libraries, and universities. Which of
these three represents the most desirable form of action de-
pends largely upon the particular conditions of each case. Gen-
erally speaking it would seem that a beginning can best be
made where there is a strong and well-organized library by
having this work undertaken by such library. Later, if it is
deemed expedient, the work can be given an independent status
and organization.

The creation .orf bill-drafting services is a tardy recogni-
tion of the fact that a high degree of technical skill is required
for the proper drafting of legislative measures. In no small
degree the great burden of litigation under which our courts
are staggering is due to the carelessness with which legisla-
tive acts are worded. When the language employed is not
absolutely obscure or inconsistent with itself, there is often a
failure to recognize the necessity for precision in defining
the scope or character of action called for by the act. An act
that is declared to apply to dangerous occupations and makes
no adequate definition of what occupations shall be deemed to
be dangerous, nor sets up any rule or machinery by which
such knowledge may be had is manifestly either unworkable
or one which throws a large amount of work upon the courts.
Yet legislation of this character is being constantly put upon
our statute books. Without enlarging further upon the errors
in draftsmanship that may and are constantly being made, it

INTRODUCTION

is sufficient to say that they are of a character that can be
avoided by trained bill drafters. If well-formulated laws are
to be had it is imperative, therefore, that the actual drafting
of acts shall be entrusted to persons of proved competence.
The most complete recognition of this fact is presented by the
practice of the British Parliament, where all measures are
either drawn by, or pass under, the scrutiny of the Office of
the Parliamentary Counsel. ^

As in the case of legislative reference bureaus, efforts to
establish bill-drafting services in this country have taken vari-
ous forms. In some cases legislatures have provided for the
establishment of a special committee whose duty it is to pass
upon the wording of all bills before they are put upon their
final passage. The committee may or may not be provided
with paid counsel to assist it in its labors. In other words,
they have established special services whose duty it is, not
merely to scrutinize bills prepared by members, but, at the re-
quest of the latter, to draft bills in the first instance. It is
quite feasible, and in many respects desirable, that the same
service should perform both the functions of a legislative ref-
erence and a bill-drafting organ. Where legislatures have
failed to act, bill-drafting services have been created under
private auspices, and particularly under that of universities,
the facilities of which have been placed at the disposition of
legislators and others desiring to frame measures of public
interest. Of services of this character that created by, or
under the auspices of, Columbia University is probably the
most important. Its aid in drafting important legislative
measures has frequently been acknowledged.

If we turn now to the field of administration of justice we
find a greatly aroused determination on the part of the pub-
lie to put this important branch of administration upon a more
efficient basis. It is true that for years our judicial organiza-
tion, procedure, rules of evidence and procedural law gener-
ally governing the adjudication of legal issues have been sub-
jected to a destructive criticism, and that important efforts
have been made by our national, state and local bar associa-
tions to secure reform in respect to particular features or
practices. It was not, however, until within comparatively
recent years that the general public may be said to have been

EFFORTS FOR ADMINISTRATIVE REFORM

thoroughly aroused to the importance of the issues here pre-
sented. From a questioning of particular practices, the move-
ment for reform has now taken the form of an examination
of the whole system of administering justice. The demand is
being made for a complete reorganization of our scheme of
courts, for a complete recasting of our rules of procedure.
Results of the utmost importance, moreover, are being ac-
complished. We need but cite the preparation by Congress
of revised judicial and criminal codes of the United States,
the elimination of the circuit courts from our federal judiciary,
the promulgation by the Supreme Court of the United States
of the revised rules of equity procedure, the establishment
of the new municipal court of Chicago, the changes in judicial
organization and procedure, and particularly in respect to the
operation of the jury systems, effected by the recent revision
of the constitution of Ohio, and finally the revolutionary
change in the attitude of the courts themselves in respect to
weight given to mere technicalities. From the standpoint of
the present study the most important feature of this movement
is the establishment of two national organizations having for
their primary purpose the promotion of judicial reform,—
The American Institute of Criminal Law and Criminology
and the American Judicature Society.

We have thought it advisable in the foregoing to make-
mention at least of the efforts now being made to effect im-
provements in legislative and judicial methods, since it is an
essential part of our purpose to bring out the extent to which
not only all branches of our government are being subjected
to critical study, but constructive measures of reform are
being both advocated and adopted. Our major interest, how-
ever, lies in the great movement which has come into exist-
ence during the past ten or fifteen years for the putting of

administrative branch of our governments, national, state
and local, upon a more efficient and economical basis.

>The pioneer in this movement was the Bureau of Munici-
pal Research of New York City, and the movement itself
may be said to date from its establishment in 1907. By this
statement there is no desire to detract from the great value
of the work accomplished by such organizations as the na-
tional, state and local civil service reform leagues, and the

INTRODUCTION

National Municipal League. These organizations, however,
differ radically in character, organization and methods of
work frorri those which it is our purpose to consider, and of , .
which the New York Bureau of Municipal Research is a lead-'
ing example. Their function has been primarily educational.
They have had no permanent staff, and no funds with which to
prosecute detailed investigations of conditions obtaining in \/
particular governments or particular branches of government.
It is greatly to their credit that, within the limits of their re-
sources, they have not only criticized existing conditions but
have pointed out the direction which reform should take.
Only in small degree, however, have they been able to formu-
late the specific means by which the reforms advocated were
to be put into execution.

The establishment of the Bureau of Municipal Research
of New York marks an epoch in the movement for govern-
mental reform in the United States. Organized originally
for the purpose of making a critical study of the administra-
tion of the public affairs of the city of New York with a view
to pointing out how that administration might be put upon
a more efficient, honest and economical basis, it became a
great center for the inauguration of similar undertakinj
throughout the country. To its direct influence may bs
traced not only the organization of similar bureaus in Phila-
delphia, Cincinnati, Pittsburgh, Baltimore and many other
cities, and the establishment of the Institute for Government
Research at Washington, D. C, but the creation of other pub-
lic and private agencies which have for their purpose the in-
vestigation of methods of administration of particular gov-
ernments or particular services, and, on the basis of such in-
vestigation, the formulation of concrete, constructive meas-
ures of reform.

So rapidly did the movement for citizen agencies extend
itself, and so numerous did these agencies become, that there
was formed in 1916 a National Federation of Governmental
Research Agencies — since called the Governmental Research
Conference of the United States and Canada — having for its
purpose "the better interchange of experience" and "the dis-
cussion of municipal and research problems" by such agen-

EFFORTS FOR ADMINISTRATIVE REFORM

cies. This organization has held annual meetings in 1917 and
I9I8.1

The principle underlying all of these undertakings is that
if results of importance are to be accomplished, the govern-
/ ment or service to be inquired into must be put upon the oper-
ating-table, dissected and studied in its minute^sl-detaij^ of struc-
ture; function and procedure. Not until a thorough knowl-
edge is had of existing conditions can effective proposals for
change be brought forward. Every such proposal must have
back of it a convincing showing of existing defects. Thoj-
- - ough investigation of existing conditions is thus the keynote
V V V Qf^the new meth°d- The making of such investigations re-
quires a definite organization, adequate funds and a trained
personnel.

Bureaus of municipal research are purely private under-
takings. Their success naturally raised the question as to the
desirability of governments, instead of waiting upon private
initiative, themselves bringing into existence services through
which their organization, activities and methods of business
might be subjected to searching criticism. This idea was first
taken up by certain cities. Boston established its Finance
Commission in 1907, Chicago, its Commission on City Ex-
penditures in 1909, and Milwaukee, its Bureau of Economy

1 At the 1917 meeting the Bureau of Government of the Depart-
ment of Political Science of the University of Michigan was desig-
nated to act as a central office or clearing house for the conference
and thus to furnish the means for putting into effect the several
measures for cooperative work that had been decided upon. This
office since April, 1918, has issued a monthly bulletin, intended solely
for circulation among the member agencies, giving the work in
progress by each of the member research agencies and the work com-
pleted since the preceding issue.

The proceedings of the conference have largely been of an in-
formal character, though a certain number of formal papers have
been presented. No published report of the proceedings has, how-
ever, been made.

The conference is supported by the annual membership fees of
$15 required of each member agency, of $10 required of academic
bureaus of government research, and $5 required of individuals
elected as associate members. Only member agencies, however, have
the right to vote and participate in the direction of the conference's
affairs.

The office of the Secretary and Treasurer is No. 25 Main Street,
East Rochester, New York; and that of the central office and library,
Law Building, University of Michigan, Ann Arbor, Michigan,

INTRODUCTION

and Efficiency in 1911. This phase of the movement received
its real impetus, however, through the establishment by the
national government in 1910 of what was known as "The
President's Commission on Economy and Efficiency." The
commission received this designation since funds for its es-
tablishment were voted by Congress at the request of Presi-
dent Taft, were placed at his complete disposal, and were by
him devoted to the establishment and support of a commission
to which the above name was given. This lead of the United
States government was speedily followed by the governments
of a number of states.

In the foregoing we have considered only the work of
services having for their specific object the investigation and
reform of particular governments. Important as is their work
they represent but one phase of the modern movement for gov-
ernmental efficiency. In many other directions the spirit of
this new movement is manifest. Many services of our gov-
ernment without waiting for the establishment of formal com-
missions or bureaus have entered upon the work of self-
analysis and improvement. In particular have great improve-
ments been effected in the offices of comptrollers and other
financial officers in the field of public accounting. Municipal
reference libraries have sprung into existence, the resources of
which are available both to the general student and to the of-
ficials of the cities in which they are located. Chambers of
commerce, boards of trade and like organizations have given
an attention to the improvement of governmental conditions
such as they have never displayed in the past. National as-
sociations have been created for the purpose of studying prob-
lems of administration in particular fields. Among these spe-
cial mention should be made of the National Association of
Comptrollers and Accounting Officers, and the Association of
American Government Accountants. The proceedings and
publications of these organizations are contributing greatly
both to the spread of knowledge regarding the technical prob-
lems of administration and the promotion of actual reforms.
Finally, the universities of the land have been quick to respond
to the new spirit. This has been manifested in a number
of ways. The fundamental courses on politics and govern-
ment have been given a much more practical character than

EFFORTS FOR ADMINISTRATIVE REFORM

they previously had. New courses dealing directly with prob-
lems of administration have been added, and graduate stu-
dents in politics have been encouraged to make their researches
in the field of administration. A significant feature of this
changed attitude is the willingness which universities have
shown to have the members of their faculties and their gradu-
ate students cooperate directly in governmental research en-
terprises. Perhaps the most extensive undertaking in this di-
rection is the creation of the Training School for Public Serv-
ice conducted under the auspices of the Bureau of Municipal
i Research of New York City, which began operations in 1911,
and the attempt to devise plans by which graduate students
in the departments of politics and economics of universities
generally may be attached to government services to the double
end that the government may receive the advantage of their
services and that the students themselves may receive a prac-
tical education in the administration of public affairs. The
whole movement has gone far enough in some instances as to
presage the conversion of graduate departments into depart-
ments of research analogous to those maintained by the de-
partment of the natural sciences. Whatever the outcome the
universities will certainly perform the function of training
schools for the public service to an extent never attempted by
them in the past.

Reverting from these varied expressions of the newer in-
terest in public administration to the agencies specifically or-
ganized for research, which it is our particular purpose to
consider, it may be of value to outline the various forms of
organization and method which may be employed by such-
agencies, both official and private.

A government desiring to improve its methods of admin^
istration may proceed in any one or more of the following
ways:

1. The whole work of investigation and reform may be
left to the individual services; or

2. The chief executive may, on his own initiative or im
pursuance of special authority conferred upon him by the
legislature, proceed to an investigation and reform of gov-
ernmental organization and methods generally; or

3. The legislature itself may undertake this work.,

INTRODUCTION

The first of these methods may be said to be one which,
in a certain sense, is always in operation. There are few
services which do not currently make more or less of an effort
to improve their methods of administration. What is here
meant is something different from this. We have in mind
the case where a government becomes persuaded that its or-
ganization and methods of business are faulty, and the sev-
eral services are charged with the duty of making a special
inquiry into their organization and administrative procedure,
with the view of making such improvements as lie within their
power and of recommending such action on the part of other
authorities as in their opinion is necessary in order to accom-
plish reforms, the taking of action in reference to which lies
outside of the scope of their authority.

The advantages of this method are that responsibility for
action is thrown directly upon the services involved, that the
work will be performed by persons thoroughly familiar with
the conditions, needs and problems to be met, and that the
work may be prosecuted at a minimum of expense. Opposed
to these obvious advantages are, however, certain disadvan-
tages which tend to set a definite limit to the good results that
may be expected from this method. First among these is
the psychological factor that it is difficult to secure from of-
ficers a frank acknowledgment of either their official short-
comings or those of the services for the conduct of which
they are responsible. In all such inquiries the services are
in a way put upon the defensive. There is a strong tendency
for officers and employees alike to defend the methods that
they have been employing. Officers are naturally reluctant to
criticize the acts of their associates and employees are still
more reluctant to criticize those of their superiors. Secondly,
though the persons making the investigation may be familiar
with the methods investigated, they are not likely to be fa-
miliar with other methods. An officer may be convinced that
the methods followed by his service are thoroughly satisfac-
tory because he is in ignorance of other methods by which
the same character of work can be more efficiently performed.

The task of improving governmental conditions is to too
great an extent looked upon as one of ferreting out imper-
fections. It is of equal importance to discover superior meth-

EFFORTS FOR ADMINISTRATIVE REFORM

ods with a view to having them generally adopted when ap-
plicable. This end cannot well be attained when each serv-
ice concerns itself with its own affairs only. Finally, there is
a great field of reform into which this method can penetrate
to but a slight extent. In no small degree existing defects in
administrative methods are due to a faulty organization of
the administrative branch of the government as a whole.
Services are not properly correlated. Instead of constitut-
ing parts of one highly integrated piece of administrative
mechanism, they occupy more or less independent positions.
Power is not logically distributed. There are too often over-
lapping of authority and duplication of organization, plant,
rsonnel and work. The remedying of these imperfections
s wholly beyond the power of the services acting inde-
endently and concerning themselves with their own methods
and problems only.

We have taken some pains to point out the limitations of
this method since the tendency has been so strong in the past
to rely upon it as a means for bringing about reforms. It
is not for a moment questioned that great good can be accom-
plished by its employment, and that a certain use should be
made of it. At the same time it is well to realize that really
important and fundamental reforms cannot be accomplished
through its utilization alone.

The other two methods of self-investigation and reform
by a government, that where the investigation is prosecuted
by the chief executive and that where it is made by the leg-
islature, are not open to the objections to which we have di-
rected attention. Both contemplate an entire survey of the
organization, activities and methods of the government. If
properly organized and conducted there is no reason why the
most far-reaching results in the way of reform may not be
accomplished by either of these methods. To secure such
results certain things, if not essential, are at. least of great
importance. If experience is to be any guide it may be as-
serted that valuable results may be expected only where a
special body, bureau, board or commission is created for the
undertaking- of the work, where adequate funds are placed
at its disposition for defraying the necessary expenses of the
undertaking, where the personnel and staff of this body are

INTRODUCTION

wholly or in large part composed of persons having no other
official connection with the government under investigation,
and where these persons are selected for their special compe-
tence in respect to the work entrusted to them. These re-
quirements are essential since the whole object of the inves- \
tigation is to secure expert, non-partisan criticism of exist-
ing- conditions and proposals for change. The men making
the investigation must tnus not only nave technical knowl-
edge and experience in reference to the matters inquired into
by them, but be in a position where they can make their criti-
cisms and suggestions with the utmost independence and
fearlessness. It is not contended that valuable results cannot
be accomplished by a board composed of members of the
legislature or administrative officials, but there is far less
likelihood of this being the case than where use is made of
any economy and efficiency bureau or commission composed
of persons holding no other official position and selected with
special reference to their qualifications for the work. Fur-
thermore, it is only by employing persons outside of the gov-
ernment that knowledge regarding approved methods in
force may be brought to bear upon the work in hand.

At this point the exceedingly important question is pre-
sented as to which of the two methods of investigation, that
under the auspices and general direction of the legislature or
that under the auspices and general direction of the chief ex-
ecutive, is the preferable one. Most, .of the official economy
and efficiency commissions that have been created during the
period under consideration have been of the latter character.
Though their establishment was authorized and the funds
for their support were voted by the legislature, provision was
in most cases made that their personnel should be selected by
the chief executive, and that they should work under the gen-
eral direction of and report to that officer. From a legal
standpoint the inquiry was thus one made by the chief execu-
tive, the commission being but the agency through which he
performed this duty. Generally, when the recommendations
made by the commission required no legislation, the chief
executive and his associates could put them into force or not
according as they commended themselves to their judgment.
When legislative action was required it was the duty of the

EFFORTS FOR ADMINISTRATIVE REFORM

chief executive to transmit the reports of the commission to
the legislature with such approval or disapproval of these
recommendations as he deemed proper. This was the char-
acter of the President's Commission on Economy and Effi-
ciency, and, as stated, the prevailing character of most of the
other official economy and efficiency commissions that have
been established during recent years.

Though the executive type of inquiry is the one which has
thus commended itself to most governments which have taken
any action at all, it is important to note that the legislative
type is much the most logical, and, in some respects, from the
theoretical standpoint at least, the most desirable form of
procedure. The legislature, under our form of government,
is the organ exercising the function of direction, supervision,
and control. From the standpoint of administration, the
chief executive and all administrative officers are but the
agents of the legislature through which the determinations of
the latter are carried out. Logically, therefore, it is the legis-
lature which, as principal, should from time to time institute
such investigations as are necessary in order to assure itself
that its agents are performing their duties in an efficient and
economical manner. Furthermore, as the source of all ad-
ministrative authority, upon it primarily falls the duty of de-
termining all large matters of organization and procedure, or
of insuring that all delegated authority is properly exercised.

To these theoretical considerations may be added the
practical one that, when an inquiry is prosecuted under leg-
islative auspices, the chances of having the reforms recom-
mended adopted are much enhanced. The unfortunate fric-
tion and strained relations between the legislature and the ex-
ecutive, which seems to be such a feature of our government,
makes it difficult for the executive to secure the adoption of
proposals_emanating from him. The most disheartening fea-
ure of the work of all official economy and efficiency commis-
sions is the extent to which their recommendations have not
only failed of adoption, but have failed of even receiving seri-
ous consideration. There must be some reason for this. In
the opinion of the writer, one explanation at least of this
phenomenon is to be found in the source from which the re-
quests for action emanate. Were the recommendations made

INTRODUCTION

by an organ of the legislature itself, it is but reasonable to
assume that they would be received more favorably and would
secure serious consideration and partial, if not full, adoption.

To these advantages of the legislative over the executive
inquiry, but one counter disadvantage can be opposed. This
disadvantage is the purely practical one of the difficulty of
securing a thoroughly non-partisan and independent inves-
tigation if conducted under legislative auspices. Aside from
any deliberate intent on the part of the legislature to use the
investigation for party purposes, there is presented the ques-
tion of the selection of the directing personnel and employees
of the investigative body with a reference solely to their qual-
ifications for the work. It is certain that any such body will
be subjected to constant pressure on the part of members of
the legislature to give employment to their proteges. It would
seem to the writer that it should be possible to provide ade-
quate safeguards against these evils. One device would be
that of appropriating the funds necessary for the entire in-
vestigation, instead of voting funds from session to session,
and of giving complete independence to the members of the
commission by providing that their tenure of office should be
that of the life of the commission, and that their compensa-
tion should not be changed during such time.

In this connection it is important to note that if results
of importance are to be expected a number of years will be
required for the prosecution of the work. Five years will
be none too long a period. If the work is worth doing at all
it is worth doing thoroughly. The investigation of existing
conditions should be pushed to the minutest details of organ-
ization and procedure, an undertaking involving the expendi-
ture of much time and labor. The real necessity for adequate
time, however, lies in the fact that it is much more desirable
that the work shall be prosecuted by a small, highly-paid, ex-
pert staff, which will take up one or two problems of ad-
ministration at a time for detailed study and report, than to
attempt to investigate all phases at the same time with a. large
and less efficient force. If this question of keeping politics
and personal considerations out of the work of the commis-
sion can be successfully met, there is more chance of posi-
tive reform being actually accomplished through a legisla-

EFFORTS FOR ADMINISTRATIVE REFORM

/ tive than through an executive investigation. If it cannot be,
then the latter type of inquiry should be preferred.

From a consideration of the official type of investigation,
we now turn to an examination of the alternative type, that
where the work of inquiry and the formulation of reform
proposals are undertaken by a purely private organization,
such as is best illustrated by the Institute for Government Re-
search and bureaus of municipal research. Here the organ-
ization problems of the official research agency, just discussed,
are of course absent. In their place there is found, however,
a problem perhaps more perplexing — the question of thfe at-
titude which the investigative bureau should take towards the
government to be investigated and its officers. In meeting
this delicate question two alternative lines of action lie open
to it, that of attack and that of cooperation. If it chooses
the first, it will devote itself to making an expose of exist-
ing bad conditions, and by a publicity campaign and the pres-
sure of public opinion seek to force the effecting of improve-
ments. If it elects the second, it will devote itself no less
actively to seeking to determine existing imperfections, but,
instead of using the information so obtained as a means of
formulating a public indictment of the government and its
administration, it will bring the facts so established to the
authorities interested, together with its suggestions regard-
ing the steps that are required in order to bring about a bet-
ter condition of affairs. Constructive proposals for reform
and actual lines of action will thus be worked out in the clos-
est possible cooperation with the authorities upon whom falls
the responsibility for recommending or taking action. Only
when the authorities stubbornly refuse to cooperate in the
work or give due consideration to the bureau's proposals is
resort had to power of public opinion by making a plain state-
ment of conditions as revealed by the investigations of the
bureau.

/f It cannot be too emphatically stated that the second of
|these two policies, that of working in the closest possible co-
operation with the officers of the government under investiga-/
tion, is the one that should, if possible, be followed. The
bureau should keep steadily in mind that its purpose is not
to indict but to improve. The first should be looked upon

INTRODUCTION

as but the means to the second, which is the end in view. This
means that in many cases it may be advisable to give no public-
ity to either the facts found to exist or to the suggestions as
formulated by the bureau. Often it is desirable to have it ap-
pear that the reforms have been put through, if not originated,
by the services affected. The bureau can well afford to forego
the pleasure of popular recognition of its work, if its end is
attained. In point of fact the services effecting the reform
are usually quite willing in their administrative reports to
give due recognition to the assistance that they have received
from the bureau in bringing about improved conditions, and
this recognition can be given publicity by the bureau if it de-
sires to do so.

If this policy is not only adopted by the bureau, but the
fact clearly brought home to the officers of the government
investigated that this is the policy, and that all statements of
facts and proposals will be brought to their attention and an
opportunity given to them to act upon them before any public-
ity is had, there will usually be little difficulty in establishing
cordial cooperative relations between the officers of the bureau
and the governments. It is very much to the credit of the
bureaus of municipal research that have been established that
this important consideration has been clearly seen and acted
upon, and to it must be attributed in no small degree the -suc-
cess that has followed their efforts.1

An important point in connection with the adoption of this
policy should here be mentioned. This is that it is desirable
that, as far as possible, the bureau shall be so financed that it
is not under the necessity of making a general appeal to the
public for funds with which to carry on its^work. If such
a necessity exists, it will be under a constant incentive to ex-
ploit its achievements, and this may be precisely what it is
desirable that it should not do. A very considerable <Mer\
ence of opinion has arisen between persons connected with,!
or interested in, the work of these organizations, regarding \
the attitude that the bureau should take towards the general [
public. There is a very strong tendency for these bureaus |
to look upon themselves as agencies for the education of the

1 For a fuller discussion of this question of policy see chapter on
The Institute for Government Research.

EFFORTS FOR ADMINISTRATIVE REFORM

public in respect to governmental matters, and for the stimu-
lation of popular interest in public affairs. The theory upon
which this action rests is that an aroused public appreciation
of the gravity of existing evils and of the efficacy of proposed
measures of reform will force action by those responsible for
the conduct of public affairs. No one can question the de-
sirability of the public having a knowledge of existing condi-
tions or of actively interesting itself in the work of reform.
At the same time it is very much a question whether bureaus
of governmental research should undertake this work. If
they do they should do so with great caution. In respect to
general principle may be laid down that they should
ake their efforts take the form of seeking popular support
for measures desired by the administration, rather than of
criticism and attack upon the latter. There are many desir-
able things which one administration would like to do, but
which it cannot accomplish as a result of popular indifference
to its work. In respect to these, bureaus of governmental re-
search can do much by aiding in the arousing of public opin-
ion. Here, as in its work proper, the bureau should thus
seek to work in cooperation with, rather than in antagonism
to, the authorities in power.

If a citizen agency adopts toward the official the attitude
recommended, it will not be likely to encounter much diffi-
culty in its endeavors to get from official sources the informa-
tion which it needs as the basis of its work. Few govern-
ments have been willing to take the position that they would
antagonize a public-spirited enterprise of this sort. In fact,
in the great majority of cases the authorities have indorsed,
if they have not actually participated in, the inauguration of
the undertaking and have cooperated cordially in its work.

Nevertheless it must be admitted that even with a co-
operative attitude on the part of officials, the unofficial agency
will rarely find itself quite as favorably situated as is the of-
ficial agency for securing the information which it must have
regarding existing conditions and practices if a firm basis for
criticism and constructive proposals is to be laid, and for the
taking of direct action toward the adoption of such /propos-
als. It remains, therefore, to consider for what reasons, if

INTRODUCTION

any, the creation of unofficial research agencies may be jus-
tified.

Resort to this method of action may be justified by two
considerations. The first, and most obvious, of these is that
governments generally have failed on their own initiative and
through their own efforts to bring about that reform of their
organization and methods which it is the right of their citi-
zens to demand of them. It is both the interest and the duty
of all persons to do all in their power to secure an improve-
ment in governmental conditions, and failing the display of
sufficient vigor by the official government in this direction,
it is logical for citizens to organize unofficial effort for the
purpose.

It is not necessary, however, for advocates of this method
to rely upon this justification. Examination will show that
the unofficial agency has certain important advantages which
fully warrant resort to it under almost any conditions.
Briefly stated, they consist in the facts: that the work can
be organized and conducted as an absolutely independent, non-
partisan, purely public-spirited and scientific undertaking; tnat
it can be placed upon a permanent basis or at least given such
a lease of life as will enable it to perform its work deliber-
ately and thoroughly; that nothing stands in the way of, but
on the contrary every inducement exists for, the selection
of the personnel to have charge of the work with sole refer-
ence to their technical and other qualifications for the work;
and that, if properly managed, its recommendations can get
a popular support not otherwise obtainable. Receiving its im-
pulse from the outside rather than from the inside of the
government investigated, the unofficial agency represents the
effort to bring to bear upon the government the adoption of
those principles of organization and administration which are
employed by the most efficient of other bodies, public and
private.

Of great interest in this connection are the following ex-
tracts from the resolutions adopted in 1916 by the National
Federation of Governmental Research Agencies (now the
Governmental Research Conference) which has been men-
tioned above:

EFFORTS FOR ADMINISTRATIVE REFORM

That, while appreciating the value of efficiency movements
which are a part of commercial organizations, educational in-
stitutions, and governmental units, we believe citizens' agen-
cies for public efficiency to be most effective when inde-
pendently organized and administered as regards finance,
methods, publicity and other fundamental policies.

That it is prejudicial to the best interests of citizens' agen-
cies for public efficiency for members of boards or trustees
to seek or hold public office or employment, to promote the
candidacy of political candidates, or to be vitally concerned
in city contracts or franchises.

Whether the unofficial research agency has a permanent
place in our public life, or whether it represents a passing
phase of the movement for the improvement of public ad-
ministration is a question which it is not yet possible to an-
swer; nor is it necessary to do so. No one who is familiar
with the current situation in the field of public administration
can doubt that for some years to come the unofficial agency
will find a large and growing sphere of usefulness.

PART I

AGENCIES FOR RESEARCH IN GOVERNMENT

CHAPTER I

AGENCIES FOR STUDYING PUBLIC ADMINISTRA-
TION GENERALLY: UNOFFICIAL

/Agencies for research in governmental administration
usually owe their creation to the desire to improve the ad-
ministration of a particular government , There has conse-
quently been established thus far but one agency for research
in public adminis1rajion_gen«r^Uy-=--the-Iiistitute for Govern- 6
ment Research, located at Washington, D. C. In fact even
this organization, as is set forth below, regards the national
government as more particularly within its sphere of inter-
est than are state and local governments, but as its program
also embraces the study of public administration generally, in-
cluding matters of state and local administration, it has been
deemed appropriate to treat it as falling under a different head
from those official agencies, of which account is given in the
following chapter, which have been or are concerned solely
with the national administration.

The following account of the Institute for Government
Research consists of a reproduction of a paper presented by
the Director of the Institute, Mr. W. F. Willoughby, at the
annual meeting of the American Political Science Association
in December, iqi?.1

The. Instituj£j:o^ is an institution

incorporated under the laws of the District of Columbia and
wholly supported by voluntary private donations. It re-
ceived its charter on March 13, 1916, and began active opera-
tions on October i of the same year. Its purpose as set forth
in its charter is :

\ To conduct scientific investigations into the theory and
practice of governmental administration, including inquiries

1 Printed in American Political Science Review, February, 1918,
vol. 12, p. 49.

EFFORTS FOR ADMINISTRATIVE REFORM

into the form of organization and the manner of operation
of federal, state and local governmental bodies and offices in
the United States of America ; the powers, duties, limitations
and qualifications of officers; the methods of administration
employed; the character and cost of results obtained and the
conditions affecting the efficiency and welfare of governmen-
tal officers and employees ; to carry on such inquiries, directly
or with the cooperation of governments, learned societies, in-
stitutions of learning or other agencies and individuals and to
make public the results of its investigations; to maintain a
library for the use of the society or its members and officers
and those affiliated with its work ; and to prosecute such other
inquiries and perform such other services as may tend to
the development and application of the principles of efficiency

There are certain features of this statement of the pur-
poses of the Institute to which it is desired to direct atten-
tion. The first of these is that the Institute is declared to be
an institution for scientific research. Its establishment rep-
resents the conviction on the part of its founders that the
rk of administration is, if not a science, a subject to the
study of which the scientific method should be rigidly ap-
plied. It recognizes that, though the problems of adminis-
tration are of great complexity and vary with the conditions
under which each operation of government is carried on, there
are certain fundamental principles and practices which must
obtain in all governmental undertakings, if efficiency and
economy in operation are to be secured.

Thus, for example, if we apply to the problem of admin-
istration the scientific method of analysis, it will be found
that it is resolvable into five fairly distinguishable parts : prob-
lems of organization, problems of personnel, problems of ma-
terial, problems of business practice and procedure, and prob-
lems of finance. Each of these, in turn, is resolvable into
more special phases. For example, problems of personnel
have to do with the recruitment of personnel, how employees
shall be classified, the basis on which their compensation shall
be fixed, the manner of determining their efficiency through
the establishment of efficiency records or otherwise, and the
system of promotions based thereon, what shall be the work-

PUBLIC ADMINISTRATION GENERALLY

ing conditions of employees in respect to such matters as per-
manency of tenure, hours of labor, leave privileges, etc., and
finally, the provision that shall be made in the way of retire-
ment allowances or pensions for those incapacitated while in
the performance of their duties or as the result of age. In
like manner, problems of finance include such questions as the
system of handling and disbursing funds, of accounting and
reporting, of audit and, most important of all, of determin-
ing and making provision for the revenue and expenditure
needs of the several services and of the government as a
whole, or, to use the expression now commonly used, of the
budgetary system that shall be employed.

One of the major activities of the Institute will thus be
that of subjecting this whole subject of public administration
to scientific analysis, and of seeking to determine and make
known the principles and practices that should be followed in
respect to each of these general and specific activities in order
to secure efficiency and economy in operation. In the per-
formance of this activity the Institute has already made sub-
stantial progress. It has inaugurated a series of volumes,
which is now in course of publication, under the general title
of "Principles of Administration." The first volumes of this
series, entitled Principles Governing the Retirement of Public
Employees and Principles of Government Purchasing have
already been published.

It is contemplated, through these and other projected vol-
umes, to cover in time the whole field of administration as out-
lined above.1

Emphasis has been laid at the outset upon this function
of the Institute, since it is important to show that, while the
Institute has, in many respects, the same field of operations
as bureaus of municipal research, economy and efficiency com-
missions, and like bodies, and like them aims to contribute

'It is only proper to state that the performance of this branch of
the Institute's work has been much facilitated by the generous grant
of something over $100,000 made by the Rockefeller Foundation, prior
to the establishment of the Institute, for the prosecution of studies
of this character. The expenditure of this fund was entrusted to a
committee of which the writer was a member. The committee re-
quested Dr. F. A. Cleveland to assume general editorial direction of
the studies. On the establishment of the Institute the results of these
studies were in great part turned over to it.

EFFORTS FOR ADMINISTRATIVE REFORM

directly to securing specific reforms in methods of govern-
mental organization and administration, its operations will
extend beyond those which such bodies usually undertake,
or which, indeed, it is feasible for them to attempt.

Correlative with this attempt to determine and make
known the most approved principles of administration, the
Institute plans to subject to detailed and critical study those
systems of administration, whether in this or foreign coun-
tries, the practices and experiences of which it believes will
be of most value to our own governments in seeking to put
their systems of administration upon a more efficient basis.
It is evident, for example, that it would be of value to the
United States government, in working out its problems of
income tax administration, or of customs or postal adminis-
tration, to have a knowledge of how these problems have been
handled in other countries. In like manner it is desirable, if
one service of the government has devised an especially ef-
ficient system for the performance of a particular category of
work, such for example as the purchase, custody and issue of
supplies, that this system should be described in published
form so that a knowledge of it may be available to other serv-
ices.

A second feature of the Institute's program will, there-
fore, be to make investigations with this end in view. The
results of these investigations will be published in a series of
volumes under the general title "Studies in Administration."
At the present time the most important problem of adminis-
tration confronting both our national and state governments
is that of devising and installing a proper budgetary system.
The Institute has accordingly selected this subject as the first
problem of administration for intensive study, and the first
three volumes in its "Studies in Administration" relate to
this subject. In the first is given a description of the sys-
tem of financial administration of Great Britain, the country
which has the oldest and foremost budgetary system in the
world. In the second is given a translation of Rene Stourm's
notable work on the budget, which gives an excellent and de-
tailed account of the French budgetary system. In the third
is given a study of the Canadian budgetary system, prepared
along the lines of the volume on the British system. This

PUBLIC ADMINISTRATION GENERALLY

volume has the special value of showing how the British sys-
tem works, and in important respects fails to work satisfac-
torily, under conditions different from those that prevail in
the mother country and somewhat analogous to those prevail-
ing in the United States.

The Institute has in preparation three other volumes,
which it is expected will appear shortly, entitled The System
of Financial Administration of the United States, The Move-
ment for Budgetary Reform in the States,1 and The Problem
of a National Budget.1 The last volume, in addition to giv-
ing an analysis of the problem as it presents itself to the na-
tional government, points out the steps that will have to be
taken by that government in putting itself upon a proper budg-
etary basis. These volumes, it is believed, will furnish in-
formation which cannot fail to b^ of value in the movement
now in full swing for the adoption of a budgetary system by
all of our governing bodies.

Here again it will be noted that the work of the Institute
goes beyond that of bureaus of municipal research and econ-
omy and efficiency commissions. These organizations nec-
essarily confine their attention almost wholly to the operations
of a particular government; and, in doing so, address them-
selves primarily to those features of administration which in
their opinion are most in need of reform. The Institute, in
this branch of its work, studies problems of administration
of any government whose system or experience is likely to
throw light upon problems confronting our own government,
and selects for study those systems which it believes to be most
efficient rather than the reverse.

A third feature of the work of the Institute that can be
of great value to the cause of administrative reform in the
United States is that of acting as a general clearing house, or
organ, through which the large number of agencies now en-
gaged in promoting administrative reform in the United
States may keep in touch with, and make use of, one another's
work. To this end the Institute now has in preparation a
volume which will appear in its series of "Studies in Admin-
istration," entitled Organised Efforts for the Improvement of
Methods of Administration in the United States. In this vol-
* Since published.

EFFORTS FOR ADMINISTRATIVE REFORM

ume the attempt will be made to give an account of the his-
tory, organization and work of such agencies as official econ-
omy and efficiency commissions, bureaus of municipal re-
search, legislative reference and bill-drafting services, munici-
pal reference libraries, and the like.

In this connection, it may also be stated, that the Institute
is seeking to build up at its headquarters in Washington as
complete a technical library of material bearing upon prob-
lems of administration in the United States as it is feasible
for it to secure. Especially is it making the effort to secure
complete sets of the publications of the agencies just men-
tioned, of the reports of special legislative and other inves-
tigations and other literature of a like character which it is
difficult to find in ordinary libraries. This library is in
charge of a trained librarian and no pains are being spared to
classify and index the material received in such a way that
it may be readily utilized. It is hardly necessary to say that
the facilities of this library are open to all students of political
science.

While the Institute will thus, as an institution for scien-
tific research, occupy the whole field of public administration,
it will have a special field which it plans to cultivate inten-
sively. One, if not the main, motive of the founders of the
Institute was to bring into existence an organization that
would do for the national government what bureaus of mu-
nicipal research and similar bodies were so effectively doing
for many of the municipalities and states of the country. It
was rightly felt that, just as the operations of this government
were of a magnitude and importance vastly greater than those
of any state or city, its activities of a far more varied char-
acter, and its problems of administration of an infinitely more
complex nature, so the need was greater that they should be
subjected to study with a view to making known the condi-
tions to be confronted and the means to be employed in meet-
ing them.

As President Taft expressed it in his message to Congress
of January 17, 1912, in referring to the inquiry being made
under his. direction into the efficiency and economy of the
methods of prosecuting public business, the activities of the
national government "are almost as varied as those of the

.34

PUBLIC ADMINISTRATION GENERALLY

entire business world. The operations of the government
affect the interest of every person living within the jurisdiction
of the United States. Its organization embraces stations and
centers of work located in every city and in many local sub-
divisions of the country. Its gross expenditures amount to
nearly $1,000,000,000 annually. Including the personnel of
the military and naval establishments, more than 400,000 per-
sons are required to do the work imposed by law upon the
executive branch of the government. This vast organization
has never been studied in detail as one piece of administrative
mechanism. Never have the foundations been laid for a thor-
ough consideration of the relations of all of its parts. No"
comprehensive effort has been made to list its multifarious
activities or to group them in such a way as to present a clear
picture of what the government is doing. Never has a com-
plete description been given of the agencies through which
these activities are performed. At no time has the attempt
been made to study all of these activities and agencies with a
view to the assignment of each activity to the agency best fitted
for its performance, to the avoidance of duplication of plant
and work, to the integration of all administrative agencies of
the government, so far as may be practicable, into a unified
organization for the most effective and economical dispatch of
public business."

If this was the condition prior to our entrance into the
present great world conflict, it needs no great powers of imag-
ination to conceive conditions as they exist at the present time,
and, in no small measure, will continue to exist after the war
is closed. Not only has it been necessary enormously to ex-
pand the operations of existing services and to throw upon
them work for which they were never intended, but scores of
new agencies have had to be hastily constructed with but in-
adequate consideration of the forms of organization that
should be given to them or the relations that they should bear
to one another. Unless administrative confusion is to reign
supreme after the war, it is imperative that the whole admin-
istrative machinery of the government shall, as it were, be
put upon the operating table for the purpose of determining
what changes should be made in it, with a view to so distrib-
uting the work to be done among the several agencies em-

EFFORTS FOR ADMINISTRATIVE REFORM

ployed, and of so correlating these several parts as to make
of them one unified system of administrative mechanism.

This is a work which cannot be done by the services them-
selves acting independently. It must be performed by some
agency which will approach the study from the objective
standpoint, and have in mind the welfare of the government as
a whole. The work moreover must be prosecuted sys-
tematically to the end that each service will be subjected to
the same character of examination and that, as far as pos-
sible, the proposals for reform will have consistency, will
look to the erection of the services into a logically integrated
piece of administrative machinery, and result in the unification
and standardization of business practices and procedure. For
the performance of such a work the Institute, granted that
it has adequate funds for the purpose, is admirably equipped ;
and has already vigorously entered upon its execution.

;The first step in an undertaking of this character is to ob-
ain a complete and thorough knowledge of existing condi-
ions. To this end the Institute has undertaken, as one of its
major activities, the preparation of a series of monographs
in which will be given a detailed description of eacrTTTF the
fifty or more distinct services of the government. These
monographs will all be prepared according to a uniform plan.
They will give : first, the history of the establishment and de-
velopment of the service; second, not merely its general func-
tions, but its specific activities; third, its organization for the
handling of these activities ; fourth, the character of its plant ;
fifth, a compilation of, or reference to, the laws and regula-
tions governing its operations; sixth, statistical statements
showing its appropriations, expenditures and other data for a
period of years ; and, finally, a full bibliography of the sources
of information, official and private, descriptive of the service
and its operations. These monographs, as completed, will be
published in a series of volumes under the general title "Serv-
ice Monographs of the United States Government." l

In the preparation of these monographs the Institute has
steadily in mind, and aims to produce, documents that will be

1 The first two numbers of this series, covering the U. S. Reclama-
tion Service and the U. S. Geological Survey, have since been pub-
lished.

PUBLIC ADMINISTRATION GENERALLY

not only of interest to the general public, but of direct value
and assistance in the administration of public affairs. To ex-
ecutive officials they will offer valuable tools of administra-
tion. Through them such officers can, with a minimum of
effort, inform themselves regarding the details, not only of
their own services, but of those with whose facilities, activi-
ties, and methods it is desirable that they should be familiar.
Under present conditions services frequently engage in activi-
ties in ignorance of the fact that the work projected has al-
ready been done, or is in process of execution, by others.
Many cases exist where one service can make effective use of
the organization, plant or results of other services if it has
knowledge that such facilities are in existence. With the
constant shifting of directing personnel that takes place in the
administrative branch of the national government, the exist-
ence of means by which incoming officials may thus readily
secure information regarding their own and other services is
a matter of prime importance.

To members of Congress these monographs should prove
of no less value. At present congressmen are called upon to
legislate and appropriate money for services concerning whose
needs and real problems they can secure but imperfect in-
formation. That the possession by each member of a set of
monographs, such as is here projected, prepared according to
a uniform plan, will be a great aid to intelligent legislation
and appropriation of funds, can hardly be questioned.

To the public, finally, these monographs will give that
knowledge of the organization and operations of their gov-
ernment which they must have if they are properly to exercise
their function of bringing to bear an enlightened public opin-
ion upon the conduct of governmental affairs.

One further fact regarding these studies should be noted.
While they will make no direct recommendations in the direc-
tion of reform, they will furnish the data which must be avail-
able if really important reforms are to be accomplished, and
they cannot fail greatly to stimulate efforts in this direction.
Prepared as they will be according to a uniform plan, and set-
ting forth, as they will, the activities, plant, organization,
personnel and laws governing the several services of the gov-
ernment, they will automatically reveal the manner in which

EFFORTS FOR ADMINISTRATIVE REFORM

the activities of the government are distributed among the
several services, the extent to which work in the same field
is being performed by different services, and thus furnish the
information that is essential to a consideration of the great
question of the better distribution and coordination of activi-
ties among the several departments, establishments and
bureaus, and the extent to which duplications of plant, organ-
ization and work may be eliminated. They will, in a word,
permit of that comprehensive and intensive study of the ad-
ministrative branch of the government as a whole which has
never before been possible. To recapitulate, they will serve
the double purpose of furnishing an essential tool for ef-
ficient legislation, administration and popular control, and of
laying the basis for critical and constructive work on the part
of those upon whom responsibility for action in this way
primarily rests.

Though emphasis has thus been placed upon the work of
the Institute in the way of making known conditions as a
basis for critical and constructive studies, the latter field will
by no means be neglected by the Institute. Progressively, as
it secures the data, it contemplates taking up, one after an-
other, the great problems of administration as they confront
the national government, and seeking, by their study, to indi-
cate ways in which they can be more efficiently and econom-
ically handled.

Its service monographs, for example, will make known
that the national government now possesses three distinct serv-
ices, located in different departments, having for their pur-
pose the making of hydrographic surveys and the prepara-
tion of sailing charts and directions : the coast and geodetic
survey, the hydrographic office in the Navy Department, and
the lakes survey service in the War Department. Manifestly
there is here raised the question whether it is not desirable that
the work of these three services should be done by a single
service.

This is but an illustration of the many questions regard-
ing the possible more effective grouping of services and dis-
tribution of duties that will arise. No one of them can be
properly answered without a detailed knowledge of the or-
ganization and duties of existing services. There is here pre-

PUBLIC ADMINISTRATION GENERALLY

sented a wide field of inquiry into which the Institute will, as
information is accumulated, enter.

In the foregoing we have sought to make known what
may be termed the fundamental or basic work program of the
Institute. The prosecution of this work, however, repre-
sents but one phase of its activities. \A second phase, and one
which at the present time is very prominent, lies in the direct /r
cooperation of the Institute with services of the national gov-
ernment in their efforts to work out the special problems of
administration now confronting them. \ This phase of the
Institute's work is excellently stated id the printed notice,
given to the public at the time of its establishment, when the
Institute was described to be "an association of citizens for co-
operating with public officials in the scientific study of busi-
ness methods with a view to promoting efficiency in govern-
ment and advancing the science of administration."

It is evident that, if the Institute is to serve its full meas-
ure of usefulness, it should not only work in close and cordial
relations with government officials, but be accepted by the
latter as an organization that can be of direct assistance to
them. No efforts have been spared by the Institute to estab-
lish its relations with the services of the government upon this
basis. That its efforts in this direction have been successful
is made evident both by the willingness on the part of such
services to furnish to the Institute the information needed by
it for the prosecution of its studies, and by the numerous re-
quests that have been made by them upon the Institute for
assistance.

In point of fact considerably more than half of the work
done by the Institute since its establishment has been' in meet-
ing calls of this character. On the entrance of our country
into the war, the Institute, in common with many other or-
ganizations, offered its services to the government. This of-
fer was accepted, and the Institute has done a large amount
of work for such organizations as the Council of National
Defense, the American National Red Cross, and various bu-
reaus and services of the War Department. Requests for its
assistance, however, have not come exclusively from the mili-
tary services. It has had no small number of requests for

EFFORTS FOR ADMINISTRATIVE REFORM

assistance from purely civil branches of the government.
These calls indeed have been greater than the financial re-
sources of the Institute have permitted it to meet. To such
an extent is this true that it may be stated that the opportunity
for the Institute to render assistance in this way, and thus to
contribute directly to making the administration of national
affairs more efficient, is only limited by the financial resources
that it can command.

The success of the Institute in establishing cordial work-
ing relations with the national government must be attributed
primarily to the fundamental policy adopted by it in respect
to all of its work. This policy consists in taking the position
that responsibility for effecting reforms rests primarily upon
government officials themselves, that all an outside organiza-
tion, such as the Institute, can do is to render such assistance
as it can to such officials, and that to the latter should ac-
crue the credit for improvements made.

This question of the policy to be pursued by the Institute
in performing its work was rightly considered by the trus-
tees as one of supreme importance and a matter that should
be definitely determined before any operations were begun.
The writer of the present paper, prior to his appointment as
director of the Institute, was accordingly requested to submit
his views regarding this matter. This he did in a memoran-
dum, which received the full endorsement of the trustees,
from which the following may be quoted :

An organization such as the Institute can proceed in two
ways in seeking the improvement of governmental condi-
tions. It can operate as a scientific body having for its pur-
pose to assist government officials in effecting reform, or it
can make of itself an agent for bringing public pressure to
bear upon officials for the purpose of compelling them to take
action believed to be desirable. In the opinion of the writer
it is of the utmost importance that the first of these two meth-
ods should be adopted. This means that the policy of the
Institute should be that of working in the closest and most
cordial relations with government officials that it is possible
to secure. No effort should be spared to make officials of
the government understand that what is sought is to aid them
to improve conditions; that the actual effecting of reforms

PUBLIC ADMINISTRATION GENERALLY

should be their work; and that to them should accrue official
and public credit for reforms accomplished. The_ Institute
itself should as far as possible keep in the background. . . .
As elsewhere stated, the Institute and the board of trustees
should be satisfied if as the result of their efforts, results are
being accomplished. The extent to which they get any pub-
lic credit for such results should be a matter of indifference
to them.

Action upon the foregoing policy does not of course pre-
clude the making and publication of scientific studies in the
field of administration, such as we have described above, nor
the preparation and publication of reports dealing with those
general problems of administration, such as the formulation
of a proper budgetary system, the better correlation of exist-
ing services departmentally, and the standardization of busi-
ness practices and procedure. It does not deny, moreover,,
the value of the work done by organizations having for their |
avowed purpose the public indictment of present conditions and
the conduct of a public propaganda for the introduction of spe-
cific measures of reform. It merely means that it is unwise
for the same organization to attempt to ride these two horses
at the same time.

The question is wholly one of method. The Institute, no
less than other organizations, will reach definite opinions re-
garding what changes should be made in methods of organiza-
tion and administration in order to make them more efficient
and economical, and will seek no less strenuously to have
these changes effected; but it will do so, as far as possible,
by seeking to convince those charged with the conduct of pub-
lic affairs of their desirability, and having them take the nec-
essary steps for their accomplishment. That greater results )

in the long run can be secured in this way than by seeking to
have reforms forced upon officials over their opposition, is \
the firm conviction of the officers of the Institute. Even where
seeming success follows the latter method the results are of tefT '
more apparent than real. Few administrative practices, no
matter what their theoretical merits, will give good results un-
less those responsible for their operation are persuaded of
their desirability and apply them in good faith. Many re-

EFFORTS FOR ADMINISTRATIVE REFORM

forms, such as the introduction of cost keeping systems, have
met with shipwreck for this reason.

For over thirty years the writer has been intimately con-
cerned in one capacity or another with the administrative work
of the national government. It is his experience that the di-
recting personnel att Washington — the heads of departments,
bureaus and divisions — are of a high order of ability and genu-
inely desirous of having their services efficiently organized and
conducted. If they have fallen short of achieving their aims
in many respects this is due to the fact that each officer is
concerned with the administration of but one service, that he
has not been in a position where he can consider problems of
administration from the standpoint of the government as a
whole, and that the demands upon him for the performance
of the current work of his service are such as to leave him lit-
tle or no time for the study of methods of administration prac-
ticed elsewhere, or to work out new principles and practices
for himself. The experience of the Institute but confirms past
experience that these officials are freely receptive to suggested
improvements and welcome assistance when given to them in
the proper way and spirit. With such a condition of affairs,
it would be the height of folly not to assume a like sympathetic
attitude and make the fullest possible use of this good will.

In concluding this account of the Institute for Govern-
ment Research, it is not out of place to point out how closely
its aims correspond to those of the American Political Sci-
ence Association, and how nearly it meets a desire formally
expressed by it. In 1908 this association addressed to the
Carnegie Institution a letter and memorial pointing out the
need for the establishment at Washington of a department of
research in political science and suggesting that that institution
take steps in that direction. In the establishment of the In-
stitute for Government Research the association sees its wishes
in great part accomplished. Though the Institute has appar-
ently as its field but one branch of political science, that of ad-
ministration, that field, properly construed, is of broad scope.
Efficient administration depends in no small degree upon the
existence of a proper political organization and the application
of proper political practices. It cannot be achieved without

PUBLIC ADMINISTRATION GENERALLY

due regard to these larger questions of political science. On the
other hand, the aim of all political science is a good adminis-
tration of public affairs. "The government best adminis-
tered," writes Alexander Pope, "is best." In a way, therefore, W
the study of administration means but the study of political
science or government from a certain standpoint, that of
adaptation of forms and means to an end, efficiency in opera-
tion.

PUBLICATIONS

Studies in Administration.

The system of financial administration of Great Britain, a report
by William F. Willoughby, Westel W. Willoughby, Samuel Mc-
Cune Lindsay. New York, D. Appleton and Company, 1917.
XVI, 362 p.

The budget, by Rene Stourm; a translation from the seventh edition
of Le budget . . . Thaddeus Plazinski, translator . . . New
York, D. Appleton and Company, 1917. XXVII, 619 p.

The Canadian budgetary system, by Harold G. Villard and W. W.
Willoughby. New York, D. Appleton and Company, 1918. XIII,

379 P-
The problem of a national budget, by William Franklin Willoughby.

New York, D. Appleton and Company, 1918. XIII, 220 p.
The movement for budgetary reform in the states, by William

Franklin Willoughby. New York, D. Appleton and Company,

1918. XI, 254 p.
Teachers' pension systems in the United States: a critical and

descriptive study, by Paul Studensky. New York, D. Appleton

and Company, 1919.

Organised efforts for the improvement of methods of administra-
tion in the United States, by Gustavus A. Weber. New York,

D. Appleton and Company, 1919. 371 p.
Principles of Administration.
Principles governing the retirement of public employees, by Lewis

Meriam. New York, D. Appleton and Company, 1918. XXX,

477. P-
Principles of government purchasing, by Arthur G. Thomas. New

York, D. Appleton and Company, 1919. XIII, 275 p.
Service Monographs of the United States.

1. The U. S. geological survey. New York, D. Appleton and Com-
pany, 1919. X, 163 j>.

2. The U. S. reclamation service. New York, D. Appleton and
Company, 1919. XI, 177 p.

CHAPTER II

AGENCIES FOR INVESTIGATING THE NATIONAL
ADMINISTRATION : OFFICIAL

Official inquiries into the conduct of business in the execu-
tive departments of the national government have been made
from time to time since the beginning of the government.
These inquiries have been made under various auspices, by
order of bureau chiefs, of heads of departments, of the Presi-
dent and of Congress itself. They range in scope from in-
quiries into special details of administrative practice to gen-
eral investigations of the organization and business practices
of the executive departments.

It is manifestly impracticable even to list, much less to de-
scribe in detail, all such inquiries, many of which indeed are
recorded only in manuscripts filed in the bureaus or depart-
ments to which they relate. Little useful purpose, moreover,
would be served by attempting to do so, since most of them
relate to conditions which have now passed away. There is
reproduced in the following section, however, a list of con-
gressional inquiries into the conduct of the business of the
executive departments, 1789 to 1911, which was prepared by
the late President's Commission on Economy and Efficiency
and published by it as a part of its report on The Need for a
National Budget} This list is by no means a complete
enumeration of official reports dealing with the organization
and methods of business of the administrative branch of the
government. It does serve to indicate, however, the leading
investigations of a general character that have been made dur-
ing this period at the special direction of Congress.

Of these, two are of such comparatively recent date and
of such general importance that it has been thought desirable

'"House Doc. No. 851, 62d Congress, 2d Session, 1912.

AGENCIES FOR NATIONAL ADMINISTRATION

to give a special account of them. Reference is had to the in-
vestigation of the methods of business and work in the execu-
tive departments made by a select committee of the Senate,
of which Mr. Cockrell was chairman, in 1887-1889, and to the
investigation into the status of the laws organizing the execu-
tive departments, their methods of business, etc., made by a
joint commission composed of members of the two Houses,
of which Mr. Cockrell and Mr. Dockery were the representa-
tives, in 1893-1895.

Following these two investigations two other inquiries of a
general character into the organization and business methods
of the departments were made under the direct control of the
President. The first of these, known as the Keep Commission
Inquiry, was undertaken by the President upon his own initia-
tive and without special sanction of Congress. The results
of its work which extended over the years 1905 to 1909 were
only in small part embodied in printed reports and even these
reports are almost unobtainable since they were not issued as
public documents. The second inquiry was also undertaken
at the instance of the President but was authorized by Congress
through the grant of funds for its prosecution. This inquiry
was conducted by a special body, known as the President's
Commission on Economy and Efficiency, which the President
created and whose activities covered the period 1910 to 1913.

Finally, in 1913, Congress made provision for a permanent
service, which later was given the designation of United States
Bureau of Efficiency, to have the duty of making inquiries into
the organization and business methods of the administrative
services with a view to their improvement.

The work of these five bodies is of such importance and
bears so directly upon present day problems, that it has been
thought desirable to give a separate description of each.

Bibliography of Congressional Inquiries into the Conduct
of the Business of Executive Departments Other Than by
Standing Committees of Congress, lySg-ign.1 The follow-

1 Reproduced from The Need for a National Budget. Report of
the President's Commission on Economy and Efficiency, H. Doc. 851,
62d Cong., 2d Sess., 1912.

EFFORTS FOR ADMINISTRATIVE REFORM

ing bibliography contains references to the reports of all com-
mittees, commissions, and individuals directed by congressional
act or resolution to inquire or report upon any phase of admin-
istration within the executive departments. The classification
is made according to inquiries of a general character and those
dealing with a specific department or bureau. Within these
divisions the arrangement is chronological. The period cov-
ered dates from 1789 to 1911.
The sources consulted were :

American State Papers.

Descriptive catalogue of Government Publications,

1789-1881.

Poore, Ben: Per ley, Wash., 1885.
Congressional documents —

Index compiled under L. C. Ferrell, 1789-1893.
Congressional Record —

House reports.

House documents.

Senate reports.

Senate documents.
United States statutes.
Estimates of appropriations.
Receipts and disbursements.

An effort has been made to include the cost of each inquiry
and where appropriation was made the amount has been noted.
Where the expenses were published in "Receipts and disburse-
ments" these, too, have been listed. Often there appears in
"Receipts and disbursements," for those inquiries whdse ex-
penses were to be paid out of money not otherwise appropri-
ated, no specific entry. Presumably the disbursement is in-
cluded in the item under Senate and House disbursements "Ex-
penses for special and select committees."

GENERAL

Expenditures of the executive departments. — (5th Cong., 2d sess.
H. Kept. 136. American State Papers, Finance: Vol. I, 590. Wash.,
1798.) Report of committee appointed to inquire and report on pos-
sible necessary changes in methods of distributing public moneys ap-
propriated for each department.

Conduct of clerks and officers in various departments. — (i5th

AGENCIES FOR NATIONAL ADMINISTRATION

Cong., ist sess. H. Kept. 182. Ser. No. n. Wash., 1818.) Inquiry
into conduct in office of clerks in several departments. Committee
appointed upon -House resolution.

Retrenchment in public expenditures. — (i7th Cong., ist sess. H.
Kept. 645. American State Papers, Finance : Vol. Ill, 800. Wash.,
1822.) Report of select committee appointed to inquire whether any
part of public expenditure may be retrenched.

Expenditures of public departments. — (20th Cong., ist sess. H.
Kept. 116. Ser. No. 177. Wash., 1828.) Committee on Public Ex-
penditures, through resolution of the House, reports on compatibility
with other work of special examination into appropriations, disburse-
ments, and vouchers received for public money.

Retrenching the expenses of the Government. — (20th Cong., ist
sess. H. Kept. 922. American State Papers, Finance: Vol. V, 1049.
Wash., 1828.) Report of select committee appointed under House
resolution to inquire into and report any possible retrenchment in
the expenses of the Government.

Reorganising the executive departments. — (2ist Cong., ist sess.
S. Rept. 109. Ser. No. 193. Wash.., 1830.) Report of select com-
mittee to whom was referred part of President's message respecting
reorganization of the departments.

Public expenditures. — (27th Cong., 2d sess. H. Rept. 458. Ser.
No. 408. Wash., 1842.) Report by Committee on Public Expendi-
tures, explaining impossibility of carrying on such detailed work
as examination of appropriations, disbursements, etc., would entail.

Retrenchment — Reorganisation of the executive departments. —
(27th Cong., 2d sess. H. Rept. 741. Ser. No. 410. Wash., 1842.)
Select committee of five Members to examine as to number of em-
ployees, expenditures, and mode of business in several departments
and possible curtailment in civil list.

Civil service. — (44th Cong., ist sess. S. Rept. 289. Ser. No. 1667.
Wash., 1876.) Report by select committee appointed by Senate to
examine several branches of civil service with a view to reorganiza-
tion. Report contains correspondence with heads of departments.

Expenses investigation. — (47th Cong., ist sess. S. Rept. 265.
Ser. No. 2005. Wash., 1882.) Report of Committee on Appropri-
ations authorized by Senate resolution to investigate expenditure,
methods, and costs of disbursing appropriations.

Methods of business in the executive departments. — (50th Cong.,
ist sess. S. Rept. 507. Ser. No. 2521. Wash., 1888.) Report from
select committee (Mr. Cockrell) in response to Senate resolution
creating same to inquire into methods of business in executive de-
partments. Allowance for clerk hire and other necessary expenses
from contingent fund of the Senate. (Expenses for special and se-
lect committees amounted in 1888 to $31,153.31.)

Executive departments, organization, etc. — (53d Cong., ist sess.
H. Rept. 49. Ser. No. 3158. Wash., 1893.) Report by Mr. Dockery
: from the joint commission to inquire into the status of the laws or-
ganizing the executive departments. Commission created under
legislative, executive, and judicial appropriation act March 3, 1893.
Organization and conduct of business were main lines of inquiry.
Expenses to be paid out of any money in Treasury not otherwise
accounted for. Disbursements were as fellows:

EFFORTS FOR ADMINISTRATIVE REFORM

1893 $1,200.00

1894 15,000.00

1895 25,063.99

Total $41,263.99

Annual settlement of public accounts. — (53d Cong., 2d sess. S.
Misc. Doc. 153. Ser. No. 3171. Wash., 1894.). Joint report from
Secretaries of departments in re annual settlements of public ac-
counts December 6, 1816 A departmental inquiry by each Secretary
was necessitated by this demand from the Senate for reports.

Government officers and employees. — (6ist Cong., 3d sess. S.
Doc. 836. Wash., 1911.) Message from President transmitting in
reply to Senate resolution information in re total number of ap-
pointments by President, with and without senatorial confirmation ;
total number of officers and employees under civil-service rules ; total
number of employees subject to removal by President without con-
gressional action; total number of officers and employees of the
United States exclusive of Army and Navy officers.

STATE

Expenditures in the State Department. — (25th Cong., 2d sess.
H. Kept. 931. Ser. No. 336. Wash., 1838.) Investigation by Com-
mittee on Expenditures in the State Department into legality of
method of accounting for, and proper disbursement of funds ap-
propriated to use of department.

Employees, etc., in the State Department. — (29th Cong., 1st sess.
H. Kept. 552. Ser. No. 490. Wash., 1846.) Committee of the
Judiciary inquire into the number and duties ' of employees and
growth of force comparative with that of 28 years previous to 1846.

Changes in the law of the State Department. — (46th Cong., 3d
sess. S. Ex. Doc. 53. Ser. No. 1943. Wash., 1881.) Response of
Secretary in answer to Senate resolution in re desirable changes in
laws regulating management of the department.

Methods of business in the executive departments. — (See "Gen-
eral." Wash., 1888.)

Executive departments, organisation, etc. — (See "General."
Wash., 1893.)

Consular Service. — (53d Cong., 3d sess. S. Kept. 886. Ser. No.
3289. Wash., 1895.) Report by Mr. Morgan, Committee on For-
eign Relations, submitting views on condition of service, reforms
necessary, and methods to bring them about.

Ages, etc., of employees in Department of State. — (57th Cong.,
ist sess. S. Doc. 65. Ser. No. 4226. Wash., 1901.) Response of
Secretary in answer to Senate resolution calling for information.

Fraud in public service, select committee on appropriations for
the employees engaged in detection and prevention of. — (6oth Cong.,
20* sess. H. Rept. 2320. Ser. No. 5387. Wash., 1909.) Report of
select committee in response to House resolution catling for an in-
vestigation.

TREASURY

Condition of the Treasury Department. — (3d Cong., 1st sess.
H. Rept 68. American State Papers, Finance, Vol. I, 281. Wash,,,

AGENCIES FOR NATIONAL ADMINISTRATION

1794.) Report of a committee appointed to examine the state of
the Treasury Department generally, and to report on methods of
accounting in the Department of the Treasury.

Condition of the Treasury. — (6th Cong., 2d sess. H. Rept. 157.
American State Papers, Finance, Vol. I, 690. Wash., 1801.) Re-
port of committee instructed by House to investigate conduct of
affairs in the department.

Unsettled balances. — (i4th Cong., 1st sess. H. Rept. 486. Amer-
ican State Papers, Finance, Vol. Ill, 123. Wash., 1816.) Report
of committee in response to House resolution calling for an investi-
gation into subject.

Reorganisation of the Treasury Department. — (25th Cong., 2d
sess. H. Rept. 81. Ser. No. 333. Wash., 1837.) Report of the
Committee on Commerce.

Treasury Department. — (38th Cong., 1st sess. H. Rept. 140.
Ser. No. 1207. Wash., 1864.) Report of select committee appointed
by the House to inquire into conduct of business in Treasury.

United States securities. — (4Oth Cong., 3d sess. S. Rept. 273.
Ser. No. 1362. Wash., 1869.) Report of joint select committee on
retrenchment on Treasury methods oi printing and guarding securi-
ties of United States. Expenditures, $3,948.84.

Contracts in the Treasury Department. — (41 st Cong., 3d sess.
H. Rept. 51, Ser. No. 1464. Wash., 1871.) Report of Committee
on Expenditures on Public Buildings upon House resolution
ordering an investigation of administration of Supervising
Architect.

Accounts of the Treasury Department. — (44th Cong., 1st sess.
S. Rept. 371. Ser. No. 1668. Wash., 1876.) Report by Committee
on Finance upon Senate resolution to investigate books and accounts
of Treasury.

Investigation of accounts of the Treasury Department. — (46th
Cong., 2d sess. S. Rept. 539. Ser. No. 1897. Wash., 1880.) On
Senate resolution, a committee of five were appointed to investigate
the finance reports, books, and accounts of the Treasury Depart-
ment. Two experts at $6 per diem paid from contingent fund of
Senate.

Bureau of Engraving and Printing. — (5ist Cong., 1st sess. S.
Ex. Doc. 175. Ser. No. 2688. Wash., 1890.) Response of Secre-
tary of Treasury in answer to Senate resolution calling for infor-
mation relative to expenditures and amount of work performed
in the Bureau of Engraving and Printing.

Methods of business in the executive departments. — (See "Gen-
eral." Wash., 1888.)

Conduct of the Office of the Supervising Architect. — (=;ist Cong.,
2d sess. S. Rept. 2615. Ser. No. 2828. Wash., 1891.) Inquiry by
Committee on Public Buildings and Grounds into conduct of Super-
vising Architect's Office.

Executive departments, organisation, etc. — (See "General."
Wash., 1893.)

Secret Service, inquiry into. — (6oth Cong., 2d sess. S. Rept.
970. Ser. No. 5383. Wash., 1909.) Report of Committee on Ap-
propriations in response to Senate resolution ordering an inquiry
into conduct of bureau.

EFFORTS FOR ADMINISTRATIVE REFORM

WAR

Reorganisation of the Quartermaster's Department. — (i8th Cong.,
2d sess. H. Kept. 4. Ser. No. 122. Wash., 1824.) Inquiry by
Committee on Military Affairs upon resolution of the House report
and bill on reorganization.

Coast Survey. — (27th Cong., 3d sess. H. Kept. 170. Ser. No.
427. Wash., 1843.) Report by Select Committee on Coast Survey
and of Weights and Measures, concluding with testimony. Opinions
of Mr. Ayerigg, who reported, are unfavorable to methods and
accomplishment of the survey. (See also Mr. Mallory's report, ^th
Cong., 3d sess. H. Rept. 43. Wash., 1843.)

Superintendent of national armories. — (33d Cong., 1st sess. H.
Misc. Doc. 76. Ser. No. 741. Wash., 1854.) Testimony before se-
lect committee of the Senate to inquire and report whether appoint-
ment of military officers to superintend construction of lighthouses,
works of river and harbor improvement, etc., is compatible with
public interest. General inquiry into management of business of
public works.

Expenditures in the War Department. — (42d Cong., 3d sess. H.
Rept. 87. Ser. No. 1576. Wash., 1873.) Committee on Expendi-
tures directed by House resolution to inquire whether expenditures
are justified by law, vouchers retained, necessary machinery for bet-
ter accountancy of public money, how best to retrench, what offices
and services may be discontinued.

Management of the War Department. — (44th Cong., ist sess.
H. Rept. 799. Ser. No. 1715. Wash., 1876.) Inquiry by commit-
tee into management of affairs.

Reorganisation of the Army. — (45th Cong., 30! sess. S. Rept.
555. Ser. No. 1837. Wash., 1878.) Report of joint committee on
reorganization. Created by act of Congress. Expenditures, $5,232.67.

Efficiency of the several departments. — (46th Cong., 3d sess.
S. Ex. Doc.' 20. Ser. No. 1941. Wash., 1881.) Letter from Secre-
tary of War in response to Senate resolution directing the Secre-
taries of State, War, Navy, and Interior Departments, Postmaster
General, and Attorney General to report necessary changes in legis-
lation to promote efficiency and economy.

Methods of business in the executive departments. — (See "Gen-
eral." Wash., 1888.)

Executive departments, organization, etc. — (See "General."
Wash., 1893.)

Buildings rented by the War Department. — (58th Cong., 2d sess.
S. Doc. 101. Ser. No. 4588.. Wash., 1904.) Reply of Secretary
to Senate resolution directing the transmission to the Senate of a
statement of quarters and buildings rented by War Department.

JUSTICE

Management of the Department of Justice. — (46th Cong., 3d
sess. S. Ex. Doc. i. Ser. No. 1941. Wash., 1880.) Letter from
Attorney General in response to resolution calling for recommenda-
tions from heads of departments concerning possible necessary
changes in laws regulating the management of the departments.

AGENCIES FOR NATIONAL ADMINISTRATION

Methods of business in the executive departments. — (See "Gen-
eral." Wash., 1888.)

Executive departments, organisation, etc. — (See "General."
Wash., 1893.)

POST OFFICE

Affairs of the Post Office Department. — (i6th Cong., 2d sess.
H. Kept. 65. Ser. No. 57. Wash., 1821.) Investigation by select
committee in re expenditure, contracts, and accounting methods.
Post Office affairs. — (i7th Cong., ist sess. H. Kept. 104. Ser.
No. 71. Wash., 1822.) Report of select committee on fiscal affairs
of the Post Office.

Post Office Department. — (2ist Cong., 2d sess. S. Kept. 73.
Ser. No. 204. Wash., 1831.) Report of committee appointed in pur-
suance of Senate resolution on administration, personnel, and gen-
eral management of the department. ,

Examination of the Post Office Department. — (23d Cong., 2d
sess. H. Rept. 103. Ser. No. 277. Wash., 1835.) Report of select
committee appointed under House resolution to examine condition
and proceedings of the department. Main inquiry was financial.

Post Office Department. — (24th Cong., ist sess. S. Doc. 289.
Ser. No. 282. Wash., 1836.) Report of the accountants engaged
to examine the accounts of the Post Office.

Changes of law affecting the Post Office Department. — (46th
Cong., 3d sess. S. Ex. Doc. 16. Ser. No. 1941. Wash., 1881.)
Response of Postmaster General to Senate resolution in re desir-
able changes in laws affecting management of the department.

Railway Mail Service. — (48th Cong., ist sess. H. Ex. Doc. 35.
Ser. No. 2196. Wash., 1884.) Report of commission appointed
by Postmaster General in compliance with act of Congress on a sys-
tem for gauging rates of pay for carrying the mails on railroad
routes.

Methods of business in the executive departments. — (See "Gen-
eral." Wash., 1888.)

Executive departments, organization, etc. — (See "General." Wash.,

18930

Postal service. — (56th Cong., 2d sess. S. Doc. 89. Ser. Nos.
4036, 4037, 4038. 3 vols. Wash., 1901.) Report of joint commission
appointed by congressional act to inquire into prices paid for mail
transportation and postal service generally. Appropriations:

1899 $10,000.00

1900 8,658.93

1901 3>I93-21

Total $21,852.14

Ocean mail service, accounts paid for. — (57th Con-?., ist sess. S.
Doc. 87. Ser. No. 4226. Wash., 1902.) Report of Postmaster Gen-
eral in response to Senate resolution calling for information in re
contracts for ocean mail service.

Business methods of the post office. — (6oth Cong., ist sess. S.
Rept. 201. Ser. No. 5221. Wash., 1908.) Preliminary report of the

EFFORTS FOR ADMINISTRATIVE REFORM

joint commission authorized by Congress to investigate business sys-
tem of the post office. For final report see Ser. No. 5381. Ex-
penditures :

1907 $15,000.00

1908 59,661.01

1909 3,545-98

Total $78,206.99

Original appropriation $75,000.00

NAVY

•M,

Military and naval expenditures. — (5th Cong., 2d sess. H. Kept.
123. American State Papers, Finance; Vol. I, 507. Wash., 1798.)
Report by Secretary of the Treasury in answer to House resolution
requiring information in re sums advanced for military matters, ac-
counts of quartermasters, etc.

Expenditures in the Navy Department. — (i6th Cong., 2d sess. H.
Kept. 67. Ser. No. 57. Wash., 1821.) An explanation of impossi-
bility of regular committee carrying on special investigation into
\ business of department.

Marine hospitals. — (26th Cong., ist sess. S. Rept. 8. Ser. No.
|54. Wash., 1839.) Reply of Secretary of Treasury in answer to
rlouse resolution in re expediency of a change in system of marine
hospitals.

Reorganisation — Navy. — (27th Cong., 2d sess. H. Doc. 167. Ser.
No. 404. Wash., 1842.) Report on reorganization by Secretary of
Navy in answer to House resolution calling for same. (See also
"Report of Secretary of Navy," 26th Cong., 1st sess. H. Doc. 39.
Ser. No. 364. Wash., 1839.)

Marine engines. — (38th Cong., 2d sess. H. Rept. 8. Ser. No.
1235. Wash., 1865.) By House resolution Committee on Naval
Affairs report on structure, inferior speed, and authorization of new
marine engines.

Charges against the Navy Department. — (42d Cong., 2d sess.
H. Misc. Doc. 201. Ser. No. 1527. Wash., 1872.) Select com-
mittee appointed by Speaker to report evidence and opinions as to
administration of affairs and business methods in the Navy Depart-
ment. (See also Mr. Sargent's Report, 42d Cong., 2d sess. H.
Rept. 80. Ser. No. 1542. Wash., 1872.)

Reduction of navy yards and navy hospitals. — (43d Cong., 2d
sess. S. Rept. 565. Ser. No. 1632. Wash., 1875.) Report of
Committee on Naval Affairs instructed to inquire into expediency
of reducing the number of navy yards and naval hospitals on
Atlantic coast.

Investigation of the Navy Department. — (44th Cong., ist sess.
H. Rept. 784. Ser. No. 1712. Wash., 1876.) By order of House
resolution, Committee on Naval Affairs reports on use and purchase
of material in the Navy Department.

Contracts of the Navy Department. — (45th Cong., 2d sess. H.
Rept. 787. Ser. No. 1825. Wash., 1878.) Inquiry by Committee
on Expenditures in the Navy Department in response to order of

AGENCIES FOR NATIONAL ADMINISTRATION

the House into expenditures, receipts, debt, and claims against the
department.

Investigation of the Navy Department. — (45th Cong., 3d sess.
H. Rept. 112. Ser, No. 1866. Wash., 1879.) By House resolution
Committee on Naval Affairs reports on condition of administra-
tion, presence of abuses or frauds, and proposes necessary changes.

Organisation of certain bureaus. — (49th Cong., 1st sess. S.
Rept. 1285. Ser. No. 2361. Wash., 1886.) Report of joint com-
mission on present organization of Signal Service, Geological Sur-
vey, Coast and Geodetic Survey, and the Hydrographic Office of the
Navy Department. Aimed to secure greater efficiency and economy
of administration.

Methods of business in the executive departments. — (See "Gen-
eral." Wash., 1888.)

Executive departments, organization, etc. — (See "General."
Wash., 1893.)

Personnel of the Navy. — (53d Cong., 1st sess. H. Rept. 122.
Ser. No. 3157. Wash., 1893.) Reports from Committee on Naval
Affairs. Report concerns possible improvement of personnel and
methods of promotion. (See alst) H. Rept. 1573, 53d Cong., 3d
sess. Ser. No. 3345. Wash., 1895.)

Total cost of personnel of Navy. — (55th Cong., 3d sess. S. Doc.
115. Ser. No. 3735. Wash., 1899.) Report of Secretary in re-
sponse to Senate resolution inquiring into cost of Navy personnel.

Ages, etc., of employees in Navy Department. — (57th Cong., 1st
sess. S. Doc. 66. Ser. No. 4226. Wash., 1901.) Response of
Secretary in answer to Senate resolution calling for information
in re employees.

Staff Corps increase. — (57th Cong., 1st sess. S. Doc. 395. Ser.
No. 4245. Wash., 1902.) At instance of several bureau heads Com-
mittee on Naval Affairs held hearings to inquire into need of ad-
ditional staff force.

Navy yards, board to investigate administration of (Recom-
mendation of passage of H. J. Res. 239 authorizing appointment of
such a board.) — (59th Cong. H. Rept. 8019, vol. 2.) Do not
find board was appointed.

Contracts for armor plate. — Letter from Secretary of Navy in
re cancelling of contract with Midvale Co. — (58th Cong., 3d sess.
H. Doc. 351, vol. 53. Ser. No. 4832. Wash., 1905.) Report of
Secretary in response to House Resolution calling for information.

Methods of business and expenditures in Navy Department, in-
quiry into. — (6oth Cong. S. Doc. 693, vol. 21. -Ser. No. 5408.
Wash., 1909.) Statement of Secretary before Committee on Naval
Affairs instructed by Senate resolution to inquire into business meth-
ods in department.

INTERIOR

Condition of the General Land Office. — (47th Cong., 1st sess.
S. Rept. 362. Ser. No. 2006. Wash., 1882.) Report from Commit-
tee on Public Lands in response to Senate resolution authorizing
an investigation into conditions under which employees are work-
ing, possible improvements, and correction of existing abuses in
administration.

EFFORTS FOR ADMINISTRATIVE REFORM

Geological Survey. — (49th Cong., ist sess. H. Rept. 2214. Ser.
No. 2441. Wash., 1886.) Report from Commission on Signal Ser-
vice, Geological Survey, etc., recommending the restriction of pub-
lications and work of the Geological Survey. Expenses, $1,490.50.

Pension Office investigation. — (52d Cong., ist sess. H. Rept. 1868.
Ser. No. 3049. Wash., 1892.) Report of select committee of House
under House resolution ordering an investigation and report on
business methods of Pension Office.

Methods of business in the executive departments. — (See "Gen-
eral." Wash., 1888.)

Executive departments, organisation, etc. — (See "General." Wash.,

1893.)

Employees, data in re employees of the Department of Interior.
— (57th Cong., ist sess. S. Doc. 66, vol. 8. Ser. No. 4226. Wash.,
1901.) Report of Secretary in response to Senate resolution order-
ing an inquiry into facts and data concerning personnel of several
departments.

Government Insane Hospital, administration and methods of
conduct of. — (59th Cong., 2d sess. H. Rept. 7644. Ser. No. 5066.
Wash., 1907.) Report in two volumes by special committee ap-
pointed under House resolution ordering inquiry. Expenses to
be paid from contingent fund of House.

Investigation of the Department of the Interior and of the
Bureau of Forestry. — (6ist Cong., 3d sess. S. Doc. 719. Ser. No.
5892. Wash., 1911.) Inquiry ordered by House joint resolution.
Expenditures, 1910, $20,000; 1911, $1,434.20; total, $21,434.20.

AGRICULTURE

Agriculture, report of the Commissioner of. — (4oth Cong., 2d
sess. H. Ex. Doc. 91. Ser. No. 1332. Wash., 1868.) Response
to House resolution instructing commissioner to report condition
of department and legislation necessary to render department, through
reorganization, efficient to carry on its work.

Agriculture, Department of. — (43d Cong., 2d sess. H. Rept. 135.
Ser. No. 1657. Wash., 1875.) Inquiry by Committee on Agriculture
into work and personnel of department.

Methods of business in the executive departments. — (See "Gen-
eral." Wash., 1888.)

Executive departments, organization, etc. — (See "General."
Wash., 1893.)

Forestry investigations and work of the Department of Agri-
culture.— (55th Cong., 3d sess. H. Doc. 181. Ser. No. 3813. Wash.,
1899.) In act appropriating for Department of Agriculture it was
ordered that the Secretary report on the investigations in forestry
and the progress of work in the Department of Agriculture.

Expenditures in the Department of Agriculture. — (59th Cong., 2d
sess. H. Rept. 8147. Ser. No. 5065. Wash., 1907.) Inquiry by the
Committee on Expenditures into business of accounting in the de-
partment.

Agriculture — Employees. — (57th Cong., ist sess. S. Doc. 24,
vol. 2. Ser. No. 4220. Wash., 1901.) Data in re employees of the
Department of Agriculture.

AGENCIES FOR NATIONAL ADMINISTRATION

Accounting system in the Department of Agriculture. — (59th
Cong., 2d sess. H. Kept. 8147, vol. 2. Wash., 1906.)

COMMERCE AND LABOR

Investigation of United States Fish Commission. — (5ist Cong.,
2d sess. S. Kept. 2361. Ser. No. 2828. Wash., 1891.) Report by
subcommittee of the Senate Committee on Fish and Fisheries, on
administration and morale of the commission.

Executive departments, organization, etc. — (See "General."
Wash., 1893.)

Permanent Census Bureau. — (52d Cong., 2d sess. H. Rept.
2393. Ser. No. 3141. Wash., 1893.) Report of select committee to
whom was referred the House resolution instructing them to inquire
into expediency of establishing a permanent bureau. See also Senate
Executive Document No. I, Fifty-second Congress, first session.

Immigration Service in San Francisco, investigation of. — (58th
Cong., 3d sess. H. Doc. 166. Ser. No. 4830. Wash., 1905.) Re-
port of Secretary in response to act of Congress (sundry civil act).

Employees — Data in re employees in Department of Commerce
and Labor. — (57th Cong., 1st sess. S. Doc. 23, vol. 2. Ser. No. 4220.
Wash., 1901.)

Bureau, of Manufactures. — (59th Cong., 1st sess. S. Rept. 2748.
Ser. No. 4905. Wash., 1906.) Report by Committee on Manufac-
tures upon amendment to House bill 16472, having to do with en-
largement of the force in bureau. The committee have inquired into
organization and needs of bureau and its needs for greater effi-
ciency.

GOVERNMENT PRINTING OFFICE

Public printing. — (23d Cong., 2d sess. S. Rept. 122. Ser. No. 268.
Wash., 1819.) Report of joint committee recommending a plan for
having the public printing done.

Public printing. — (i5th Cong., 2d sess. S. Doc. 99. Ser. No. 15.
Wash., 1819.) Report by joint committee on subject of public print-
ing and how it shall be carried on.

Public printing. — (26th Cong., 1st sess. H. Rept. 298. Ser. No.
370. Wash., 1840.) Report of committee elected by the House to
consider and investigate the subject of public printing as to just and
reasonable compensation, etc. Contains minority report and answers
to interrogations of the committee.

Public printing. — (27th Cong., 2d sess. S. Rept. 332. Ser. No.
398. W'ash., 1842.) Report by Committee on Printing. Summarizes
rather broadly previous investigations into costs, etc., connected with
public printing.

Public printing. — (3ist Cong., 1st sess. H. Misc. Doc. 55. Ser.
No. 582. Wash., 1850.) Report of select committee appointed by
House to inquire into combination to break up contract system as
regards public printing.

Public printing. — (36th Cong., ist sess. H. Rept. 249. Ser. No.
1068. Wash., 1860.) Inquiry by Committee on Public Expenditures
in response to House resolution instructing it to inquire into rates
and fix just limits.

Public printing. — (40th Cong., 3d sess. S. Rept. 247. Ser. No.

EFFORTS FOR ADMINISTRATIVE REFORM

1362. Wash., 1869.) Committee on Printing instructed by Senate
to report on cost of each document issued annually by Government,
possible curtailment of publications, and requisite changes in existing
laws in re publication of United States laws.

Printing investigation. — (4ist Cong., 2d sess. S. Kept. 264. Ser.
No. 1409. Wash., 1870.) Report from Committee on Printing, di-
rected by order of Senate to inquire into and report on certain charges
of maladministration in the Printing Office. (See also H. Kept. 2740,
49th Cong., ist sess. Ser. No. 2443. Wash., 1886.)

Investigation of the Government Printing Office. — (44th Cong.,
ist sess. H. Kept. 495. Ser. No. 1710. Wash., 1876.) In answer to
House resolution, Committee on Printing investigate costs, economy
in management, etc., in office.

Government Printing Office.— (45th Cong., 3d sess. H. Kept. 119,
Ser. No. 1867. Wash., 1879.) Upon House resolution, Committee
on Public Expenditures investigate and report on conduct of affairs ^in
the Government Printing Office. Evidence, majority and minority
reports included.

Public documents. — (47th Cong., 2d sess. H. Misc. Doc. 12. Ser.
No. 2115. Wash., 1882.) Report by committee comprising superin-
tendent of documents, Librarian of Congress, and Secretary of the
Smithsonian Institution, under House resolution, asking for compila-
tion of laws and regulations governing printing and distribution of
documents and suggestions for economy.

Administration of the Government Printing Office. — (soth Cong.,
ist sess. H. Rept. 3300. Ser. No. 2608. Wash., 1888.) By resolu-
tion of House Committee on Printing was instructed to investigate
administration of office, causes for delay, appointments and dismissals.

Methods of business in the executive departments. — (See "Gen-
eral." Wash., 1888.)

Public printing. — (52d Cong., ist sess. S. Rept. 18. Ser. No.
2911. Wash., 1892.) An elaborate report by special committee of
House on public printing and its management.
Executive departments, organisation, etc. — (See "General." Wash..

18930

Ages, etc., in Government Printing Office. — (57th Cong., ist sess.
S. Doc. 25. Ser. No. 4220. Wash., 1901.) Report of Public Printer in
response to Senate resolution requesting data in re employees of office.

Cost of printing special edition of Congressional Record, investi-
gation of. — (59th Cong., 2d sess. S. Doc. 108, vol. 3. Ser. No. 5070.
Wash., 1905;) Report of Public Printer in compliance with Senate
resolution calling for information.

Printing Investigation Commission. — (6oth Cong., and following
years. Wash., 1905.) Report of select committee to inquire into
condition of affairs in Printing Office and -to suggest possible econo-
mies. The reports are numerous. Expenditures:

1907 $2,000.00

1908 5335.16

1909 4,000.00

1910 4,664.84

1911 6,925.22

Total $23,425.22

Appropriated 1907 $12,000.00

AGENCIES FOR NATIONAL ADMINISTRATION

Select Committee on Methods of Business in the Exec-
utive Departments (Cockrell Committee) 1887-1889. On
March 3, 1887, the Senate, on motion of Mr. Cockrell, passed
the following resolution :

Resolved, That a select committee to consist of five Sen-
ators be, and the same is hereby, constituted and appointed,
whose duty it shall be to inquire into and examine the methods
of business and work in the Executive Departments of the
Government, the time and attention devoted to the operations
thereof by the persons employed therein, and generally to in-
quire into and report to the Senate the causes of the delays in
transacting the public business said to exist in some of said
Departments.

The committee was also authorized to employ a clerk and
a stenographer and to send for persons and papers.

Messrs. Cockrell, Harris, Jones of Arkansas, Platt and
Cullom were appointed as members of the select committee.

The passage of this resolution was the result of the wide-
spread criticism of the delay that existed in many of the serv-
ices of the government in the performance of their duties.
Not a few bureaus were months and even years behind in their
work. The feeling was very strong that this delay was only
partially due to an inadequate force ; that primarily it was due
to archaic business methods and especially to the performance
of much useless work.

The first step taken by the committee in the prosecution
of the inquiry consisted in the sending of two letters to the
heads of the departments, under date of March 18, 1887, call-
ing upon them to report regarding the condition of work with-
in their departments and to supply data regarding their or-
ganization and business methods.

The first of these letters called for a detailed statement
of the methods of transacting business in each division of each
bureau of the department, "including one or more items of the
principal business matters transacted in each of such divisions,
beginning with the receipt of the business matter in the De-

EFFORTS FOR ADMINISTRATIVE REFORM

partment, and then showing, in consecutive order, the various
steps taken by each of such business matters through the vari-
ous divisions" and the "employees through whose hands the
same passes and by whom it is considered and acted upon, and
the action thereon had and taken by each, till the same is fi-
nally disposed of and notice duly given to the proper party."

The other letter called for a detailed statement from each
department and service, showing the amount and character
of business in hand, pending and undisposed of, in each divi-
sion on January i, 1884, 1885, 1886, 1887, and on March I,
1887; the amount and character of business received, trans-
acted and disposed of in each division; the average number
of employees in each division during each month of the years
1884, 1885, 1886 and 1887 up to March i, 1887, and the maxi-
mum and minimum amount of business transacted and dis-
posed of by the employee doing the most and the employee
doing the least in each division during each month of the pe-
riod; the average number of days and the time and attention
devoted to the consideration and transaction of business by the
employees in each division and whether in person or by proxy,
during each of the calendar years 1884 to 1886 and up to
March, 1887; and also the maximum and minimum number of
days during each of those years so devoted to business by the
employee in each division present for the greatest number of
days and for the least number of days.

On March 23, 1887, a third letter was sent to the same of-
ficials, which was not identical, but the purport of which was
the same in each case, calling for a statement of the present
legal organization of each department and the number and
classes of officers and employees in, and the designation of,
each bureau, division, station or other unit in and outside of
Washington.

Finally, the committee caused certain items of business to
be traced in consecutive order through the various steps taken
from the beginning of action to the final consummation. These
studies covered business matters originating in the Treasury
Department and also in other departments and coming into the
Treasury Department. The transactions selected were: the
purchase of stationery for the use of the Treasury Depart-
ment; an account for salary and fees of a United States consul ;

AGENCIES FOR NATIONAL ADMINISTRATION

a requisition of a United States marshal for funds; an account
of a United States marshal for fees and expenses; a district
attorney's account for fees, etc. ; the accounts of a quartermas-
ter of the United States Army for the fiscal year 1885 ; an ac-
count of a receiver of public money at a local United States
land office; and the adjustment and payment of a claim for
quartermaster stores.

On the basis of the information secured by these means,
Mr. Cockrell, on behalf of the committee, submitted to the
Senate on March 8, 1888, in addition to two minor bills,1 a re-
port which was published as Senate Report No. 507, 5oth Con-
gress, ist Session. The report proper covered 272 pages, but
attached to it were supporting statements, consisting chiefly
of replies of the departments to letters of inquiry addressed
to them, which occupied an additional 1900 pages.

This report more than substantiated the criticism that had
been made against the administrative services in respect to
their failure promptly to perform their work. For example,
it was found that 39 employees, with salaries ranging from
$720 to $1,600 per annum, were engaged, more or less, in
copying, with pen and ink, the letter press copies of letters into
record books. Cases of employees furnishing proxies or su
stitutes to perform their work at their salaries or at reduced
compensations were found in three of the executive depart-
ments. On August 20, 1887, there were in the General Land
Office a total of 276,670 individual cases pending and undis-
posed of and 14,000 unanswered letters. There were 47,000
claims of soldiers, their widows and orphans, pending for ad-
justment before the Second Auditor. An engineer officer's re-
quest for approval of the employment of two pilots, one for
$25 and the other for $150, in its course from the officer
through the War Department, its return to that officer and its
return again by him to the War Department, was handled by
officers and clerks 76 times, and including messenger service,
94 times.

1 One provided .for continuing the work of classified abridgment of
letters patent granted by the United States ; the other authorized and
provided for the disposition of useless papers in the executive de-
partments. The latter was enacted February 16, 1889. Mr. Cockrell
also asked at the same time that the committee be continued the re-
mainder of the session, which was done.

EFFORTS FOR ADMINISTRATIVE REFORM

The following extracts from the report of the committee
show in brief the conditions found as a result of their in-
quiries :

In the Treasury Department, the War Department and the
Interior Department, and to a greater or less extent in other
Departments, there are more briefings, notations, and record
entries made, copying done, and record books kept than is
necessary or requisite in preserving proper records of the
transactions of the public business or as safeguards and checks
against error, mistakes or frauds.

The items of business matters are required to pass through
the hands of too many different officers and employees and
through the hands of the same persons too often, thus causing
the consumption of too much time in the disposition thereof
and dividing the responsibility therefor among too many dif-
ferent employees. Some one clerk or employee, too often of
the lower grades or classes as to salary, makes the examina-
tion and adjustment, and places his initials thereon, and all
the others through whose hands the item of business may pass
in its routine, act simply upon the faith of the initials so made
by the one clerk or employee.

The committee reported that it could not undertake the
labor and time necessary to investigate and determine all steps
taken in the transaction of the multitudinous items of busi-
ness matters coming before the various departments and to
point out the steps in the present system which could be left
out without detriment to accuracy and safety. It, therefore,
recommended as the most feasible and practical remedy that
the Secretaries of the Treasury and War Departments each
appoint a commission to consider and revise the methods of
business in his department.

In defining the duties of these proposed departmental com-
missions the select committee said :

This committee or commission in each Department should
personally trace from inception to final disposition the various
classes of public business therein transacted, and ascertain the
exact number of persons, officers, or employees through whose
hands the same passes, the time, attention and labor devoted
thereto, the kind of work done thereto, and the entries and
records made by each. With this data plainly and fully before

AGENCIES FOR NATIONAL ADMINISTRATION

them, and understood by them, they ought to be able to de-
termine with certainty, safety and accuracy exactly what can
be omitted, what is necessary to be added, and the safe and
proper changes to be made, and then devise and prepare judi-
cious, safe, and correct methods for the transaction of the
various classes of public business, so that they can be
finally disposed of with the greatest possible degree of cor-
rectness and promptness, and with the least possible labor,
briefing, notating, and copying, and with the smallest number
of record entries and record books, and by passing through as
few different hands as possible, etc.

When they have completed their work and prepared the
report thereof, they should then present the same to the Sec-
retary appointing them, and if approved by him, or when cor-
rected and approved by him, after full consultation, then the
Secretary should cause the methods of business so determined
upon to be strictly and rigidly carried out in every bureau and
division of his Department, and hold the chiefs of bureaus and
divisions to a strict accountability for the adoption and en-
forcement of such methods.

If it should be found that legislation is necessary to adopt
or carry out the proposed methods, the requisite legislation
should be proposed and submitted to Congress for consider-
ation and action.

Letters were accordingly written by the chairman of the
committee, on February 10, 1888, to the Secretaries of War
and of the Treasury. On March 20, 1888, the Secretary of
the Treasury appointed a commission consisting of the deputy
first auditor and four division chiefs, and on March 22, 1888,
the Secretary of War appointed a board consisting of the
chief clerk of the department, a division chief and a clerk to
carry out the recommendations of the select committee.

The Treasury Commission took up the following subjects
for investigation and report :

The Offices of the First, Second, Third and Fourth Audi-
tors and First and Second Comptrollers, Commissioner of Cus-
toms, Register of the Treasury, and the Miscellaneous Division
of the Secretary's Office ; the warrant system ; letter files ; bond
issues; files matter; fines, penalties, etc., placed in suit by col-
lectors of customs ; accounts of the Lighthouse Board ; moneys
appropriated for public building; sales of revenue-cutters and

EFFORTS FOR ADMINISTRATIVE REFORM

marine hospitals; settlement of the accounts of the Pacific
railroads; accounts current of aided railway companies;
overdue liabilities of quartermasters and paymasters; Indian
claims ; payment to employees in public buildings ; presentation
of duplicate vouchers ; destruction of Treasury notes, etc. ;
last-sickness and burial claims; and proxies.

As a result of the recommendations made by this Treasury
Commission, the Secretary of the Treasury caused the follow-
ing important changes to be made: An entire change of the
warrant system by which the number of warrants to be issued,
signed, entered and checked is but little more than one-tenth
the former number; a briefer and simpler method of recording
accounts in the offices of the Second Comptroller and First
Auditor, occupying about one-fourth of the time formerly
required; a considerable diminution of the number of ac-
counts by consolidating several of the same class into one
report; the reduction of the bulk of certain accounts to one-
half their former size by discontinuing duplicate vouchers ;
the reduction of the bulk of certain stationery accounts to
about one-third their size and greatly facilitating their settle-
ment by the introduction of new forms; a simplification of
some of the blanks used in the accounting offices and a discon-
tinuance of others; a discontinuance of certain books of rec-
ord by binding and preserving original papers which were
copied in books; the discontinuance of the writing, copying,
signing and transmitting of many thousand letters which were
merely formal in their nature; and many other changes of
matters of detail.

The Treasury Commission recommended among other
things : A system of accounts with officers of United States
courts ; a discontinuance of hand copying into record books of
letters written and the substitution therefor of press copies or
carbon duplicates; the destruction of useless files matter;
supervision of the Lighthouse Service and accounts by special
agents; the settlement of all the accounts of aided railroad
companies by one auditor and comptroller; the extension into
every branch of the public service of payments by disbursing
clerks instead of by settlement on separate accounts; and the
prohibition of clerical work by proxy.

AGENCIES FOR NATIONAL ADMINISTRATION

The report of the Treasury Commission was made to the
Secretary of the Treasury on January 4, 1889, and transmitted
by the latter to the chairman of the Senate Select Committee
on January 18, 1889.

The board appointed by the Secretary of War considered
and reported upon the following topics : Requests for requisi-
tions upon Treasury settlement certificates; rules and regu-
lations for the War Department ; certificates of deposit ; army
paymasters' collections; card-index records of rolls of volun-
teer army; credit requisitions for repayment of money into
the Treasury; requisitions on the Public Printer; administra-
tion ; messenger service ; supply division ; daily report of work
done; and correspondence.

In each case recommendations for changes and improve-
ments were made by the board, which in nearly all cases were
followed by orders of the Secretary of War directing the
carrying into effect of those recommendations.

The War Department Board made its report to the Secre-
tary of War on January 21, 1889, and the latter transmitted i*
to the chairman of the Select Committee of the Senate on Jan-
uary 23, 1889.

The results of these investigations of the Treasury and
War Department commissions were embodied in a second
report of the committee which was presented to the Senate
by Mr. Cockrell, on March 27, 1889, and ordered printed the
following day.

PUBLICATIONS

Report [of] the Select committee of the United States Senate, ap-
pointed under Senate resolution of March 3, 1887, to inquire into
and examine the methods of business and work of the executive
departments, etc., and the causes of delays in transacting the pub-
lic business, etc. March 8, 1888. 3 v. in 2. (50th Cong., 1st
sess. Senate. Report 507. Serial No. 2521-22.)
Contents.

Report (272 p.).

Detailed statement of methods of transacting of sundry items

of public business, p. 4-102.

Copying letter-press copies into records, p. 106-112.
Public and rented buildings, insufficiency of room, and delay

of business, p. 117-121.
Condition and arrears of business and efforts to remedy same,

p. 121-234.

Incumbrance and proper disposition of useless files of papers,
existing laws, and reports from War Department, p. 240-253.

EFFORTS FOR ADMINISTRATIVE REFORM

The Department of the Treasury (474 p.)

" Interior (493 p.)

State ( 37 PO

Justice ( 61 p.)

War (279 p.)

" Navy ( 81 p.)

Post Office Department (414 p.)

' Department of Agriculture (106 p.)

" Government Printing Office ( n p.)

These pages give
the replies made by
the several bureau
and division heads,
in each of the de-
partments, to the in-
quiries of the com-
mittee reg a r d i n g
condition of work,
organization, and
business methods.

Additional report of the Select committee of the United States Sen-
ate, . . . etc. March 28, 1889. 78 p., Ill, 3-220 p. (5ist Cong.,
special sess., 1889. Senate. Report 3. Serial No. 2619.)
On verso of t.p. : Treasury document No. 1218. Secretary.
Contents.
Report, p. 1-45.
Business methods of the Treasury department. Report of the

Commission appointed in compliance with the request of the

Senate Select committee, etc., p. 47-78.

The warrant system.

Report on the offices of the First Auditor, First Comptroller,
and Commissioner of customs.

Report on the offices of the Second, Third and Fourth Auditors
and Second Comptroller.

Report on letter files.

Report on bond issues.

Report on the office of the Register of the Treasury.

Fines, penalties, etc., placed in suit by collectors of customs.

Accounts of the Lighthouse board.

Moneys appropriated for public buildings.

Sales of revenue-cutters and marine hospitals.

Settlement of the accounts of the Pacific railroads.

Accounts current of aided railway companies.

Overdue liabilities of quartermasters and paymasters.

Indian claims.

Payment to employees in public buildings.

Presentation of duplicate vouchers.

Change of the quarters of the year.

Destruction of Treasury notes, etc.

Last sickness and burial claims.

The miscellaneous division of the Secretary's office.

Proxies.

A permanent commission recommended.
Business methods in the War department. Report of the Board

appointed in compliance with the request of the Senate Select

committee, etc. (220 p.)

Report of the Board, p. 9-12.

Appendixes, p. 13-121.

Request for requisitions on settlement certificates.

Rules and regulations of War department, June 4, 1888.

Certificates of deposit.

AGENCIES FOR NATIONAL ADMINISTRATION

Army paymaster's collections.

Card index record of rolls of Volunteer army.

Credit requisitions.

Requisitions on Public printing.

Administration.

Messenger service.

Supply division.

Daily reports of work.

Correspondence.

EFFORTS FOR ADMINISTRATIVE REFORM

Joint Commission on Executive Departments, Organiza-
tion, etc. (Dockery-Cockrell Commission) 1893-1895.

Though much good was accomplished by the Cockrell Com-
mittee, it was recognized that hardly a beginning had been
made by it towards putting the business methods of the depart-
ments upon an efficient basis. The work of that committee
demonstrated that if the best results were to be secured pro-
vision must be made for a more comprehensive investigation
and that means must be provided for the employment pf ex-
perts to make the detailed inquiries. Congress accordingly
inserted in the legislative, executive and judicial appropriation
bill for 1894, approved March 3, 1893, a clause providing for
the creation of a special joint commission of the two houses
to undertake such a work. This clause read :

That a joint commission, consisting of three Senators,
members of the Fifty-third Congress, to be appointed by the
present President of the Senate, and three members-elect to
the House of Representatives of the Fifty-third Congress, to
be appointed by the Speaker of the House of Representatives
of the Fifty-second Congress, shall, during the Fifty-third
Congress, inquire into and examine the status of the laws or-
ganizing the Executive Departments, bureaus, divisions, and
other Government establishments at the National Capital; the
rules, regulations, and methods for the conduct of the same;
the time and attention devoted to the operations thereof by
the persons employed therein, and the degree of efficiency of
all such employees; whether any modification of these laws can
be made to secure greater efficiency and economy, and whether
a reduction in the number or compensation of the persons
authorized to be employed in said Executive Departments or
bureaus can be made without injury to the public service:
Provided, That the commission herein authorized shall have
no jurisdiction to inquire into and report on pension legisla-
tion. Said commission is authorized to employ not exceeding
three experts, who shall render such assistance as the com-
mission may require in the prosecution of the investigation
herein required, and shall receive such compensation as the

AGENCIES FOR NATIONAL ADMINISTRATION

commission shall determine to be just and reasonable. The
heads of the respective Executive Departments shall detail
from time to time such officers and employees as may be re-
quested by said commission in their investigations. Said com-
mission or any subcommittee thereof shall have power to send
for persons and papers, and to administer oaths, and such pro-
cess shall be issued and such oaths administered by the chair-
man of the commission or subcommittee, and the commission
may report, by bill or otherwise, to their respective Houses of
the Fifty-third Congress. All necessary expenses of said
commission shall be paid out of any money in the Treasury not
otherwise appropriated upon vouchers approved jointly by
the chairman of said commission.

The powers and duties thus conferred were subsequently
broadened and made more specific by the reference to the
commission of certain bills and the passage of resolutions
calling upon the commission to make other inquiries and re-
ports.

The commission was constituted on the day the act became
law through the appointment of the following as its members :
House representatives, Alexander M. Dockery, chairman;
James D. Richardson and Nelson Dingley. Senate repre-
sentatives, Francis M. Cockrell, chairman; James K. Jones
and Shelby M. Cullom. Mr. Dockery was made chairman of
the joint committee. The clerks of the House and Senate
Committees on Appropriations were appointed clerks of the
commission. On May 24, 1893, the commission appointed
Messrs. J. W. Reinhart, C. W. Haskins, and E. W. Sells,
experts, to assist in the commission's work.

On June 6, 1893, the active work of the experts began with
an investigation of the accounting methods in the Treasury
Department, and continued until the close of the 53d Congress,
on March 4, 1895, when the commission terminated.

The first work of the commission which obtained publicity
was a compilation entitled : "References to laws organizing
executive departments and other government establishments
at the National Capital." This was presented on September
30, 1893, and published as House Report No. 49 and Senate
Report No. 41, 53d Congress, ist session. It was the first
work of its character since the organization of the govern-

EFFORTS FOR ADMINISTRATIVE REFORM

ment and was prepared primarily for the use and information
of Congress. This report presented the references to statutes
in tabular form, showing for each governmental unit the title
of the statute, its date, and the volume, page and section of
the statute books.

The next report published was entitled : "Organization of
the executive departments and other government establish-
ments at the National Capital, and information concerning the
persons employed therein," and was presented to both houses
of Congress on October 9, 1893, and printed as House Report
No. 88 and Senate Report No. 47, 53d Congress, ist Session.
It shows in tabular form the number and title of each of the
eight executive departments and the twelve other government
establishments at the National Capital; the offices, bureaus
and divisions of each; the number of persons authorized to
be employed therein; their sex, age, and number of years
employed, and other information concerning them.

The commission also made an inquiry into the condition
of business in the several departments of the government at
Washington, which inquiry disclosed that in but a small pro-
portion of divisions was public business in arrears.

The commission's work, however, consisted mainly in
studying the systems of administration, and recommending
changes in the law for the improvement of existing methods
and the abolition of useless work. A large number of im-
portant bills were reported by the commission, many of which
were enacted into law.

The following laws were enacted as a direct result of the
commission's work :

Enrollment of bills. A concurrent resolution providing for
dispensing with the existing form of engrossing and enrolling
bills and joint resolutions, and directing the use of printed
copies of the same, agreed to in the House, October 26, and
concurred in by the Senate, March i, 1893.

Purchase of supplies. Amendment of Section 3709 of the
Revised Statutes concerning contracts for fuel, ice, stationery
and other miscellaneous supplies for the executive departments
and other government establishments in Washington, approved
January 27, 1894.

Accounts of the Treasurer. Repeal of Section 311 of the

AGENCIES FOR NATIONAL ADMINISTRATION

Revised Statutes thereby abolishing a useless voluminous re-
port, approved March 19, 1894.

Deposits of Postmasters. Amendment of Section 407 of
the Revised Statutes so as to require original receipts for
deposits of postmasters to be sent to the Auditor of the Treas-
ury for the Post Office Department, approved January 22,
1894.

Methods of Accounting in the Post Office Department, etc.
An act to improve the methods of accounting in the Post
Office Department and substituting the money-order system
for the postal note, approved January 27, 1894.

Property Returns. An act to regulate the making of
property returns by officers of the government, approved
March 19, 1894.

Destruction of Old Money* Orders. An act authorizing
the Secretary of the Treasury and the Postmaster General to
destroy all money orders and postal notes more than ten years
old and papers relating thereto, approved July 16, 1894.

Methods of Accounting in the Treasury. An act to im-
prove the methods of accounting in the Treasury Department,
introducing a more efficient system of accounting, and abolish-
ing the offices of Commissioner of Customs and Second Comp-
troller. One provision of this act resulted in the consolidating
of the draft and the warrant into one piece of paper in the
office of the Secretary of the Treasury. Approved July 31,
1894.

Reports of Purchases of Military Supplies. Repeal of
Section 229 of the Revised Statutes thereby dispensing with
unnecessary reports, approved March 2, 1895.

Bonds of Government Officials. An act requiring that all
bonds of certain government officials shall be transmitted to
the Secretary of the Treasury and filed as he may direct, etc.,
approved March 2, 1895.

Names of Employees in Departments. Repeal of Section
194 of the Revised Statutes requiring the head of each depart-
ment to make an annual report to Congress of the names of
the clerks and other persons employed in each department, the
offices thereof, etc., approved, March 2, 1895.

Purchase of Coal and Wood. Amendment of Section 371 1
of the Revised Statutes so as to prohibit payment of fees for

EFFORTS FOR ADMINISTRATIVE REFORM

inspecting coal and wood purchased for the use of the govern-
ment, approved March 2, 1895.

In addition to the above changes in the law, the following
improvements were made, through the work of the joint com-
mission, without legislation:

Statistics of International Money Orders. Dispensing with
a considerable amount of valueless statistics formerly prepared
by the Auditor for the Post Office.

General Land Office. Consolidation of certain divisions of
the General Land Office and the preparation of patents in
the Office of the Recorder.

Customs Service. A change in the method of collecting
the customs and rendering accounts of the same to the Auditor
for the Treasury.

Books, Stationery, Rent, etc. Economies effected in books,
stationery, furniture, printing and room rent in government
offices on account of changes, consolidations and improve-
ment in methods.

A considerable number of recommendations were made and
much information was furnished by the joint commission to
Congress concerning matters which, at its termination, had
not resulted in the enactment of laws or had not been put into
effect by departmental regulation. These recommendations
related to: A reorganization of the Office of Supervising
Architect of the Treasury Department; methods of hearing
contested land cases; repeal of the "Contest" Act of 1880;
receivers of local land offices; public surveys; abolition of the
Office of Solicitor of Internal Revenue ; further recommenda-
tions concerning bonds of government officials; checking of
money orders; abolition of the Office of Naval Officer in the
Customs Service, and system of writing and recording letters
sent.

The commission estimated that the adoption of its recom-
mendations above outlined effected a reduction in personnel
of 251 clerks earning salaries aggregating $360,610 per
annum, and an annual saving of $246,981 in miscellaneous
expenses, or a total saving of $607,591.

The other recommendations which had failed of adoption
at the termination of the commission, would, it was claimed,
have effected a total additional saving of $449,928, of which

AGENCIES FOR NATIONAL ADMINISTRATION

$336,928 represented the aggregate salaries of 252 clerks and
$113,000 miscellaneous expenditures which could have been
dispensed with.

The total expense of the commission amounted to $41,264,
of which $35,614 was paid to the experts; the balance was
expended for clerical service, room rent, supplies, etc.

PUBLICATIONS

References to laws organizing executive departments and other
government establishments at the national capital. Sept. 30, 1893.
II> 17S P- (53d Cong., ist sess. House. Rept. No. 49.)

Issued also as Senate Rept. No. 41, 53d Cong., ist sess.

Contains in addition to references to and extracts from all the
laws organizing executive departments and other establishments,
references to laws regulating compensation and employment of clerks,
copyists, messengers, watchmen, and laborers; leaves of absence; and
hours of service in the executive departments, p. 162-165.

Organization of the executive departments and other government
establishments at the national capital, and information concerning
the persons employed therein. October 9, 1893. 2O7 P- J fold. tab.
(53d Cong., ist sess. House. Rept. No. 88.)

Issued also as Senate Rept. No. 47, 53d Cong., ist sess.

Dispensing with the present form of engrossing and enrolling bills
and joint resolutions and directing the use of printed copies of the
same. October 26, 1893. 2 p. (53d Cong., ist sess. House. Rept.
No. 145.)

Issued also as Senate Rept. No. 58, 53d Cong., ist sess.

Contracts for fuel and other supplies for the departments. October
' 30, 1893. Report [to accompany H. R. 4292] 2 p. (53d Cong., 1st
sess. House. Rept. No. 152.)

Issued also as Senate Rept. No. 61, 53d Cong., ist sess.

Deposits of postmasters. December 12, 1893. Report [to accom-
pany H. R. 4340] i p. (53d Cong., 2d sess. House. Rept. No. 208.)

Issued also as Senate Rept. No. 116, 530! Cong., 2d sess.

Methods of accounting in the Post Office department, etc. Decem-
ber 13, 1893. Report [to accompany H. R. 4610]. 18 p. 2 forms.
(53d Cong., 2d sess. Flouse. Rept. No. 210.)

Issued also as Senate Rept. No. 93, 53d Cong., 2d sess.

Accounts of the Treasurer. February 3, 1894. Report [to accom-
pany H. R. 5529]. 2 p. (53d Cong., 2d sess. Flouse. Rept. No.

3490

Issued also as Senate Rept. No. 200, 53d Cong., 2d sess.

Making of property returns by officers of the government. Febru-
ary 4, 1894. Report [to accompany H. R. 5530]. 6 p. (53d Cong.,
2d sess. House. Rept. No. 392.)

Issued also as Senate Rept. No. 201, S3d Cong., 2d sess.

Methods of accounting in the Treasury. March 6, 1894. Report
to accompany H. R. 5750]. 6 p. (53d Cong., 2d sess. House. Rept.
Jo. 409.)

Issued also as Senate Rept. No. 240, 53d Cong., 2d sess.

EFFORTS FOR ADMINISTRATIVE REFORM

Methods of accounting in the Treasury. March 29, 1894. Report
to accompany H. R. 6478]. 35 p. (53d Cong., 2d sess. House. Rept.

• 637-)

Issued also as Senate Rept. No. 293, 53d Cong., 2d sess.

Methods of accounting in the Treasury. May I, 1894. Report [to
accompany H. R. 6948]. i p. (53d Cong., 2d sess. House. Rept.
No. 822.)

This was not issued as a Senate report.

Proposed change in form of Treasury warrants. May 26, 1894.
Report. 3 p. (53d Cong., 2d sess. House. Rept. No. 970.)

Issued also as Senate Rept. No. 447, 53d Cong., 2d sess.

Disposition of old money orders. May 26, 1894. Report. 2 p.
(53d Cong., 2d sess. House. Rept. No. 971.)

Issued also as Senate Rept. No. 448, 53d Cong., 2d sess.

International, money order statistics. May 26, 1894. Report. 3 p.
(53d Cong., 2d sess. House. Rept. No. 972.)

Issued also as Senate Rept. No. 449, 53d Cong., 2d sess.

Contested land cases. January 15, 1895. Report [to accompany
H. R. 8491], 7 p. (53d Cong., 3d sess. House. Rept. No. 1584.)

Issued also as Senate Rept. No. 769, 53d Cong., 3d sess.

Engrossing and recording of land patents. January 23, 1895. RC"
port [to accompany H. R. 8490]. 12 p. (53d Cong., 3d sess. House.
Rept. No. 1652.)

Issued also as Senate Rept. No. 808, 53d Cong., 3d sess.

Purchases of coal and wood. January 31, 1895. Report [to ac-
company H. R. 8716]. 6 p. (53d Cong., 3d sess. House. Rept. No.

1736.)

Issued also as Senate Rept. No. 865, 53d Cong., 3d sess.

Repeal of section 194. Revised statutes of the United States.
[Annual reports of government employees.] February 4, 1895. RC"
port [to accompany H. R. 8754]. 2 p. 53d Cong., 30! sess. House.
Rept. No. 1759.)

Issued also as Senate Rept. No. 875, 53d Cong., 3d sess.

Section 229 of the Revised statutes of the United States. Reports
of purchases of military supplies. February 15, 1895. Report [to
accompany H. R. 8879]. 5 p. (53d Cong., 3d sess. House. Rept.
No. 1839.)

Issued also as Senate Rept. No. 932, 53d Cong., 3d sess.

Condition of business in the departments of the government at
Washington. February 18, 1895. Report. 41 p. (53d Cong., 3d
sess. House. Rept. No. 1851.)

Issued also as Senate Rept. No. 952, 53d Cong., 3d sess.

Registers and receivers of land offices. February 22, 1895. Re-
port. 6 p. (53d Cong., 3d sess. House. Rept. No. 1908.)

Issued also as Senate Rept. No. 1023, 53d Cong., 3d sess.

To abolish office of Solicitor of internal revenue. February 22,
1895. Report [to accompany H. R. 8939]. 3 p. (53d Cong., 3d sess.
House. Rept. No. 1909.)

Issued also as Senate Rept. No. 1024, 53d Cong., 3d sess.

Bonds of officers of the United States. February 22, 1895. Re-
port [to accompany H. R. 8704]. 12 p. (53d Cong., 3d sess. House.
Rept. No. 1910.)

Issued also as Senate Rept. No. 1022, 53d Cong., 3d sess.

AGENCIES FOR NATIONAL ADMINISTRATION

To improve the public surveys. February 28, 1895. Report [to
accompany H. R. 8504]. 29 p. (53d Cong., 3d sess. House. Rept.

No. I954-)

Issued also as Senate Rept. No. 1021, 53d Cong., 3d sess.

Checking money orders. March 2, 1895. Report. 4 p. (53d Cong.,
3d sess. House. Rept. No. 1973.)

Issued also as Senate Rept., No. 1035, 53d Cong., 3d sess.

Reorganization of Supervising architect's office. March 2, 1895.
Report. 10 p. (530! Cong., 3d sess. House. Rept. No. 1974.)

This was not issued as a Senate report.

Collecting customs and rendering accounts therefor. March 2,
1895. Report. 37 p. (53d Cong., 3d sess. House. Rept. No. 1975.)

Issued also as Senate Rept. No. 1033, 53d Cong., 3d sess.

Preserving copies of letters written in the departments. March
2, 1895. Report. 3 p. (53d Cong., 3d sess. House. Rept. No. 1976.)

Issued also as Senate Rept. No. 1034, 53d Cong., 3d sess.

A review of the work done by the Joint commission — reorganisa-
tion of the accounting system and business methods in the executive
departments. March 2, 1895. Report. 30 p. (53d Cong., 3d sess.
House. Rept. No. 2000.)

This was not issued as a Senate Report.

The above House Reports are bound together in 'The Reports
of Committees of the House of Representatives for the First Session
of the Fifty-third Congress, 1893," volume 2, 1895. Serial No. 3158.

The above Senate Reports are bound together in "The Reports of
Committees of the Senate of the United States for the First Session
of the Fifty-third Congress, 1893," volume 2, 1895. Serial No. 3148.

EFFORTS FOR ADMINISTRATIVE REFORM

Committee on Department Methods (Keep Committee)
1905-1909. On June 2, 1905, President Roosevelt, upon his
own initiative and without congressional direction, appointed
the following committee "to investigate the business methods
and practice of the Executive Departments and to report plans
for their improvement :" C. H. Keep, Assistant Secretary of
the Treasury; Lawrence O. Murray, Assistant Secretary of
Commerce and Labor ; James Rudolph Garfield, Commissioner
of Corporations, Department of Commerce and Labor, and
Cifford Pinchot, Chief of the Forest Service, Department of
Agriculture. Frank H. liitchcock, First Assistant Postmaster
General, was originally appointed but his name appears only
on the first two reports.

Soon after its appointment the committee brought about
the organization of assistant committees to take up certain
lines of its work for special detail investigation. Through
the activities of these various assistant committees and the
cooperation of the department, bureau and division chiefs in
the government service, much valuable information was
gathered, and some important recommendations were made.
There being no funds available for the employment of experts
or for other services, the work of the committee was done
most entirely by employees of the government service. On
June 30, 1906 (34 Stat., 635), a small appropriation of $5,000
was made, instead of $25,000 as requested by the President,
"for salaries or compensation of persons not otherwise em-
ployed by the United States, and needed in the service of the
Committee on Department Methods."

The investigations of the committee covered a large
variety of subjects, and while eighteen reports on as many
different topics were made to the President a very considerable
part of the committee's work never reached publicity. Brief
accounts of the published reports follow in chronological
order.

Purchase of Typesetting Machines. The first report of

AGENCIES FOR NATIONAL ADMINISTRATION

the committee, made on August 4, 1905, was the result of an
investigation of certain charges made against the Public
Printer by one manufacturer on account of a contract made
with a rival concern. The report was based upon evidence
presented at hearings and personal investigations made by
the committee.

Public Printing. On September 30, 1905, a statement on
the cost of public printing and binding was made to the Presi-
dent by the Acting Public Printer, which statement was re-
ferred to the committee with the query, "How much too much
is printed?" The committee in its report made on January 2,
1906, found upon investigation that there was (i) excessive
cost in executing work at the Government Printing Office;
(2) unnecessary size and variety of documents originating in
the departments and the printing of unimportant departmental
documents; (3) excessive editions of documents originating
in the departments, and waste by duplicate distribution; (4)
unnecessary printing originating in and done for Congress.

Government Crop Reports. This report issued January
30, 1906, was the result of a resolution of the New England
Cotton Manufacturers' Association requesting the President
to appoint a commission to investigate the best methods of
issuing government crop reports. In this report the committee
recommended changes in the methods of making estimates,
avoidance of duplicate estimates of crop acreage and yield by*,
the Census Bureau and the Bureau of Statistics, greater co-
operation with the Weather Bureau and a change in the title
of the Bureau of Statistics. This report was also published
as Senate Document No. 464, 59th Congress, ist Session.

Interdepartmental Telephone Service. The committee,*
through a subcommittee, made a study of the telephone service,
and as a result obtained an agreement whereby a saving of
$1,500 a year on the cost of rented wires in the District of
Columbia was effected. In its report of March 19, 1906, it
also recommended that most of the private branch exchanges
be mutually connected by a system of tie lines consisting of
wires rented from the telephone company. By this means the
committee expected that a considerable saving could be effected
and much better service obtained. An estimate of an appro-
priation for an improved telephone service between executive

EFFORTS FOR ADMINISTRATIVE REFORM

departments appears in H. R. Document No. 390, 59th Con-
gress, 2d Session.

Investigation of the Twelfth Census Report on Agriculture.
As a result of the difference in estimates of the Bureau of Sta-
tistics and the Census Bureau for the year 1899, disclosed in
the committee's report of January 6, 1906, the committee was
instructed by the President to investigate the accuracy of the
census statistics of agriculture. In its report of May i, 1906,
the committee stated that in its opinion "the agricultural re-
turns of the Twelfth Census are substantially accurate, that
they are more accurate than the agricultural returns of any
previous Census, and that they did at the time they were
published furnish an accurate basis upon which the estimates
of the Division of Statistics could be based and could be
judged." This report was also published as a part of Senate
Document No. 464, mentioned above.

Methods of Rendering and Stating Accounts. A subcom-
mittee of the Committee on Department Methods, selected to
consider questions of bookkeeping and accounting, undertook
an investigation of the methods followed by disbursing and
collecting officers of the United States in rendering and stat-
ing for the various auditors their accounts current with the
government. There was want of uniformity in the practice
of disbursing officers, two systems — the "Separate" and the
"Consolidated" being in use, and the effort of the subcommit-
tee was to determine which was the better of the two methods
in use and to bring about the uniform use of the superior
system. After investigation, including hearings, the subcom-
mittee recommended that "all accounts of disbursing and
collecting agents of the government be stated in consolidated
form, to be prescribed by the Comptroller under the direction
of the Secretary of the Treasury, except such accounts as may
be shown to the satisfaction of such officers to be impracti-
cable of consolidation." This recommendation met with the
approval of the committee and the officers concerned, and on
May 24, 1906, the Comptroller issued a circular putting it into
effect. The committee's report of June 8, 1906, on this subject
is a detailed statement of the above facts.

Purchase of Department Supplies. This subject was
studied by a subcommittee, at the head of which was the Direc-

AGENCIES FOR NATIONAL ADMINISTRATION

tor of the Bureau of Standards. It had already received much
attention from the Dockery Commission in 1893, resulting at
that time in an amendment to Section 3709, Revised Statutes,
providing that contracts for purchase of department supplies
should go before a Board of Award composed of Assistant
Secretaries of the Treasury and Interior Departments and an
Assistant Postmaster General. While that amendment accom-
plished something in securing uniformity of price since 1893,
it did not accomplish the purpose intended by the Dockery
Commission. The plan suggested by the subcommittee pro-
posed that: "Provision be made by which the preparation of
schedules, advertising for proposals, and making of contracts
for the purchase of Department supplies, are placed in the
hands of a board to be known as the General Supply Commit-
tee." This committee, which was to replace the existing Board
of Award, was to be composed of one expert employee from
each department to be designated by the head thereof. This
committee was to prepare annually a schedule of miscellaneous
supplies in use in the government service, prepare the necessary
advertisements, open all bids submitted pursuant to such ad-
vertisement, and recommend awards to the secretary author-
ized to make the contracts. The Committee on Department
Methods in its report of December 6, 1906, and the President
in a subsequent message to Congress, recommended the amend-
ment of Section 3709 in accordance with this suggestion. No^.
action was then taken by Congress, but on June 17, 1910, an
act was approved creating a General Supply Committee in the
Treasury Department which has probably accomplished the
same object. This report was also published as Senate Docu-
ment No. 106, 59th Congress, 2d. Session.

The Use of Committees in Department Work. A report,
dated December 6, 1906, recommends the establishment of de-
partment committees, points out their value to heads of de-
partments and bureaus and to subordinates, how and for what
purposes they should be created, and some of the dangers to
be avoided in their creation.

Transportation of Government Employees and Property.
A comprehensive report was made by the assistant committees
on accounting and supplies through a special joint committee,
which the Committee on Department Methods presented with

EFFORTS FOR ADMINISTRATIVE REFORM

its recommendations in its report to the President dated De-
cember 6, 1906. This report deals with the "failure to follow
the best usages" and the "lack of uniformity in handling ship-
ments and settling transportation accounts" in the government
service. Among the recommendations made by the committee
are : ( i ) That "all single shipments of freight and continuous
journeys of Government employees be made on through bills
of lading or transportation requests; (2) that standard forms
of bills of lading (following commercial practices) and trans-
portation vouchers be prepared and prescribed; (3) that a
manual of instructions for Government transportation be com-
piled by a special committee, and that after approval by the
President it be followed by all Departments and services; (4)
that clerks in the offices of the various auditors now engaged
in the examination of transportation accounts be assembled
in one place and that they be there provided with, for their
use, a complete common file of tariffs, schedules and division
sheets; (5) that the officers of the Quartermaster's Depart-
ment be instructed, when requested, to advise disbursing offi-
cers and other officers O'f the government, to the extent of
their facilities, upon questions of classification, rates and
division of rates."

Annual Leave, Sick Leave and Hours of Labor. A report
submitted December 24, 1906, gives a history of the law and
practice of the government departments with regard to leaves
of absence and hours of labor, calls attention to lack of uni-
formity in the methods of carrying out the provisions of law
concerning leaves of absence, and presents a set of proposed
regulations to govern all departments and independent bureaus
and offices in the District of Columbia.

Costkeeping in the Government Service. A study was
made of costkeeping in the government service by a subcom-
mittee, and its findings were embodied in a report dealing with
the theory of costkeeping, in the form of a "Primer on Cost-
keeping in Government Work," and with conditions in certain
important branches of the service.

Classification of Positions and Gradation of Salaries.
The committee with the assistance of a subcommittee worked
out an elaborate schedule of classification of positions and
gradation of salaries for employees of the government in

AGtENCIES FOR NATIONAL ADMINISTRATION

Was hington with recommendations for its adoption. The
main features of this schedule are (i) to fix the lower salaries
suffi< :iently high to attract competent persons to the service,
and the higher salaries sufficiently high to retain the best
expe.rt service; (2) to grade salaries sufficiently to assure f re-
quo at promotion as a stimulus to the best efforts; (3) to grade
and equalize salaries according to the character and the re-
sponsibility of the work performed. The President sent two
me usages to Congress giving estimates for salaries in accor-
dance with this schedule, prepared by a special committee (H.
R. Doc. No. 648, 6oth Cong., 1st Sess., and S. Doc. No. 638,
6o|ih Cong., 2d Sess.), and a bill was introduced providing
f o r its adoption, but no legislation resulted.

Official Bonds. An investigation made by an assistant
coimmittee on accounting, the results of which were submitted
in a report of the committee dated January 7, 1907, disclosed
a ?reat variety in the form of official bonds, that is, a diversity
"j)i the statement of conditions, in the order in which the sev-
jeral parts of the bond are printed, in the substance, character
and relation of the instructions for execution to other parts
of the bond, and in the fact that in some bonds the laws
ujnder which they are executed are set out, while in others no
siich information is given." The committee recommended
tpat the various kinds of official bonds be classified and a
standard form adopted for each class, these standard forms
to be prepared in the office of the Comptroller of the Treas-
ury after consultation with the solicitors of the various ex-
ecutive departments and the disbursing and collecting officers
affected. Recommendations are also made concerning cumu-
lative bonds and the custody of bonds.

Assembling of Disbursing Officers' Checks and Vouchers,
etc. Another report of the accounting committee transmitted
by the Committee on Department Methods, January 9, 1907,
makes recommendations intended to remedy several of the
more serious defects in the existing system of accounting. The
assistant committee took up three subjects relating to accounts
of disbursing officers for consideration, namely: (i) the as-
sembling of disbursing officers' paid checks with their vouchers
in the auditors' offices; (2) the "draft voucher" or "check
voucher"; (3) the taking of vouchers in duplicate by disburs-

EFFORTS FOR ADMINISTRATIVE REFORM

ing officers. After pointing out the defects in the pn tsent
system, the assistant committee suggests a plan which it con-
siders suited to government needs.

Treasury Bookkeeping. A special committee of the as sist-
ant committee on accounting made a study of the exis '.ing
system of Treasury bookkeeping. In a report embodying • its
conclusions, dated January 19, 1907, the Committee on De-
partment Methods points out the incompleteness of the ex ist-
ing system which is a consolidation of a number of syste ms
assembled upon the passage of the Dockery Act (28 Stat,
205), and suggests in lieu thereof a comprehensive system
of double-entry bookkeeping which is outlined. This propos ed
system was submitted to and approved by a committee of cer-
tified accountants appointed by the American Association of
Public Accountants. The adoption of the proposed system
required no new legislation.

Government Contracts. The committee in a report, dat< d
April 30, 1907, calls attention to the defects in the forms ct
many government contracts, the onerous and unreasonable
conditions sometimes unnecessarily imposed upon contractors,
the waste involved in preparing too many copies, and the diver-
sity of practice in the examination bonds and in the require-
ment of bonds from contractors. The committee recom-
mended the appointment of a special committee by the Presi-
dent to study the subject of government contracts and "to
prepare and prescribe, subject to the approval of the legal
officer of each Department, such forms for contracts as may
be deemed necessary for such Department, bureau, or office."

Superannuation of Civil Service Employees. In a report
dated February 18, 1908, the committee presented a bill for the
retirement of employees in the classified service of the gov-
ernment. This proposed plan, the central idea of which
originated with Herbert D. Brown, provided for an annuity
(or an equivalent cash sum) to be paid each employee upon
his reaching the age of 70 years, equal to 1.5 per cent of his
pay for every year of service. The funds necessary for the
payment of the annuity, according to this plan, were to be
furnished by the employees without expense to the government
other than the payment of allowances to those employees now
in the service whose contributions would not be sufficient to

AGENCIES FOR NATIONAL ADMINISTRATION

provide for their own retirement, each employee to contribute
the amount necessary to create his own annuity without regard
to payments of others. Statistics are given in the report illus-
trating the working of the proposed plan and indicating the
probable expense to the government on account of those
already in the service. This report was also published as
Senate Document No. 308, 6oth Congress, 1st Session.

Documentary Historical Publications of the United States
Government. On January n, 1909, the Committee on De-
partment Methods presented the results of an inquiry made
by an assistant committee of experts, selected mostly from
the faculties of leading universities, to study the method of
dealing with the problem of documentary historical publi-
cations of the United States government. The report of this
assistant committee reviews the course hitherto pursued by
the government in the matter of historical publications, in-
dicating the cost and criticising the want of method ; gives a
general survey of the field of United States history, showing
what has been done to cover it by government documentary
publications, what gaps exist in the record needed to be filled in
by government action, and general considerations as to the
proper policy to be pursued by the government with respect
to historical publications; reviews the systems pursued by
other governments ; and makes suggestions and presents a draft
of a bill for a permanent commission on national historical
publications. This report was also published as Senate Docu-
ment 714, 6oth Congress, 2d Session, dated February n, 1909.

It is much to be regretted that, with the exceptions named,
these reports of the Keep Commission were never published
as public documents. The result is that they are exceedingly
difficult to obtain. The set possessed by the Institute for
Government Research is, in fact, the only complete set of
which the author of the present volume has knowledge.

PUBLICATIONS

Purchase of typesetting machines for the government printing office.

August 4, 1905. 26 p.
Public printing. January 2, 1906. 12 p.
Government crop reports. [Report on the work of the Bureau of

statistics of the Department of agriculture.] January 6, 1906.

63 P-

Issued also in Senate Doc. 464, 59th Cong., ist sess.

EFFORTS FOR ADMINISTRATIVE REFORM

Interdepartmental telephone service. March 19, 1906. 6 p.
Investigation of the Twelfth census report on agriculture. May I,
1906. 8 p.

Issued also in Senate Doc. 464, 59th Cong., ist sess.
Method of rendering and stating accounts. [Methods followed by dis-
bursing and collecting officers of the United States in rendering
and stating for the various auditors their accounts current with
the government.] June 8, 1906. 3 p.

"Method of rendering and stating accounts. Treasury depart-
ment. Circular No. 46," p. 7-9.
Purchase of department supplies. December 6, 1906. 17 p.

Issued also as Senate Doc. 106, 59th Cong., 2d sess. Serial No.
5070.

Contents Report on the standardization and method of purchase of
department supplies.

Proposed amendment to section 3709, Revised Statutes.
Report of subcommittee.
Contracts for fuel and other supplies for the Departments.

[Report of the Dockery commission, Oct. 30, 1893.]
Opinion of the Attorney-General.

The use of Committees in department work. December 6, 1906. 7 p.
Transportation of government employees and property. December 6,

1906. 12 p.
Annual leave, sick leave, and hours of labor. December 24, 1906.

10 p.

Costkeeping in the government service. December 29, 1906. 22 p.
"Primer on costkeeping in government work," prepared by Nor-
man E. Webster, Jr. [and others], p. 9-22.

Classification of positions and gradation of salaries for employees of
the Executive departments and independent establishments in
Washington. January 4, 1907. 16 p.
Official bonds. January 7, 1907. up.

"Appendix" [containing a copy of the proposed amendment to the

law and the Attorney-General's opinion on the same], p. 8-n.

Assembling disbursing officers' checks and vouchers and verification of

disbursing officers' balances. January 9, 1907. 16 p.
Treasury bookkeeping. January 19, 1907. 10 p.

"Report of the Committee of the American association of public

accountants on Treasury bookkeeping," p. 10.
Government contracts. ApriJ 30, 1907. 7 p.

Superannuation of civil-service employees of the government [to-
gether with draft of a proposed bill providing for the payment
of annuities to employees upon retirement]. February 18, 1908.
Issue.d also as Senate Doc. No. 308, 6oth Cong., ist sess. Serial

No. 5265.

Documentary historical publications of the United States government.
January n, 1909. 41 p.
Contents.

Review of the course hitherto pursued by the government in the

matter of historical publications.

General survey of the field of United States history showing
what has been done to cover it by government documentary
publications.

AGENCIES FOR NATIONAL ADMINISTRATION

Recapitulation of the recommendations made in the course of

this survey.
General considerations as to the proper policy to be pursued

by the government in respect to historical publications.
Statement of the system pursued by other governments.
Suggestions for a permanent commission on national historical

publications.
Draft of a bill to create a permanent commission on national

historical publications.

Same, with title : Report on documentary historical publica-
tions of United States government, with draft of bill providing
for creation of permanent commission on national historical pub-
lications. February n, 1909. 45 p. (6oth Cong., 2d sess. Sen-
ate Doc. 714. Serial No. 5408.)

PUBLICATIONS OF THE GRADES AND SALARIES COMMITTEE OF THE
COMMITTEE ON DEPARTMENT METHODS

Executive order (authorizing formation of Grades and salaries com-
mittee, personnel of same, with extracts from report of Depart-
ment methods committee on classification of positions and grada-
tion of salaries for employees of executive departments and in-
dependent establishments in Washington.) 1907. 4 p.

Estimates for salaries in executive departments and establishments.
(1909, in conformity with schedules and recommendations of
Committee on department methods of January 4, 1907.) 1908.
123 p.

Same [with estimates for salaries for arsenals and navy-
yards]. February n, 1908. 175 p. (6oth Cong., ist sess. House
Doc. 648. Serial No. 5370.)

Estimates for salaries in executive departments and [independent]
establishments, 1910. January 6, 1909. 126 p. (6oth Cong., 2d
sess. Senate Doc. 638. Serial No. 5395.)

HEARING BEFORE CONGRESSIONAL COMMITTEE

Proposed reclassification of clerical force in the executive depart-
ments. Supplement to hearings before subcommittee of House
Committee on appropriations in charge of deficiency appropria-
tions for 1907 and prior years on General deficiency bill. State-
ment of Hon. Charles H. Keep, chairman of the Committee on
department methods. January 15, 1907. 9 p.

EFFORTS FOR ADMINISTRATIVE REFORM

President's Commission on Economy and Efficiency, 1910-
1913. Much the most comprehensive and systematic investi-
gation that has ever been made of the administrative branch
of the national government, if not, indeed, of any government,
was that made by a special commission known as the "Presi-
dent's Commission on Economy and Efficiency." Though the
prosecution of this inquiry was authorized by Congress, such
authorization was made at the direct request of President
Taft. In response to his request, Congress inserted in the
sundry civil appropriation act for 1911, approved June 25,
1910, the following clause :

To enable the President, by the employment of accountants
and experts from official and private life, to more effectively
inquire into the methods of transacting the public business of
the government in the several executive departments and other
government establishments, with the view of inaugurating new
or changing old methods of transacting such public business
so as to attain greater efficiency and economy therein, and to
ascertain and recommend to Congress what changes in law
may be necessary to carry into effect such results of his inquiry
as cannot be carried into effect by executive action alone, and
for each and every purpose necessary hereunder, including the
employment of personal services at Washington, District of
Columbia, or elsewhere, one hundred thousand dollars.

The appropriation of $100,000 here made for the conduct
of this inquiry was supplemented by one for $75,000 contained
in the sundry civil appropriation act for 1912, approved March
4, 1911, one for $10,000 to meet the expenses of a special
investigation of the Patent Office which Congress, by joint
resolution of August 21, 1912, directed the President to have
made, and one for $75,000 contained in the sundry civil ap-
propriation act for 1913, approved August 24, 1912. The
total appropriation for defraying the expenses of the inquiry
was thus $260,000, and its life extended over the three fiscal
years, July i, 1910, to June 30, 1913.

AGENCIES FOR NATIONAL ADMINISTRATION

It will be noted that, though Congress authorized the in-
vestigation and appropriated money for its support, full dis-
cretion was left to the President to determine the character
of organization that should be created for its prosecution and
the methods that should be employed. As a first step the
President placed his secretary, Mr. Charles D. Norton, in full
charge of the work. The latter called upon Dr. F. A. Cleve-
land, then Director of the Bureau of Municipal Research of
the City of New York, to assist him in the organization and
conduct of the work. Active work began on September 27.
JQip. when Dr. CieYfland^epQrted" Tor' duty.

The next step consisted in the President's requesting the
head of each department and certain independent establish-
ments to appoint from among the officers of his department
or establishment a "committee on economy and efficiency,"
which should have as its duty the making of inquiries into the
organization and methods of business of the department or
establishment, and of formulating proposals looking to the
improvement of existing conditions. Such committees were
duly appointed and began work.

In the meantime steps were taken looking to the building
up of a central organization to have general charge of the
inquiry. This was done by the creation of what was known
as "The President's Inquiry in re Economy and Efficiency,"
with Dr. Cleveland as its directing head. The latter, as a
preliminary step, caused to be sent out, with the approval of
Mr. Norton and the President, a circular letter addressed to
the heads of all departments and establishments calling for
detailed information regarding their organization,, personnel,
legal status and powers and many features of their adminis-
tration. Numerous conferences were also held with the de-
partmental committees on economy and efficiency.

It soon became evident, however, that if the work was
to be efficiently prosecuted a more formal central organization
had to be established. In compliance with the recommenda-
tion of Dr. Cleveland and Mr. Norton, the President, on March
8., T()TT, created a body to which he gave the name of "Presi-
dent's LmTiTru?] p i ^inTon Economy and Efficiency," to have full
e inquiry. M.1ie commission was made to consis

of the following five members : Dr. Frederick A. Cleveland,

EFFORTS FOR ADMINISTRATIVE REFORM

chairman; ]\fr. William F. Willoughby, then Assistant Direc-
tor of the Census; Judge Walter^Wr Warwick, Associate Jus-
tice of the Supreme Court of the Canal Zone, and formerly
examiner of accounts of the Isthmian Canal Commission and
auditor of the government of the Canal Zone; Mr. Frank J.
A X\ A | Goodnow, P^fesof^o-^^dministra^ive Law. CoTumEia . tTni-
\I\f versjfcy^and Mr. Harvey S. Chase, a certified public accountant
S oTBoston, Mass. Mr? MerritFO. Chance, then Auditor for
the Post Office Department, was made secretary and later a
member of the commission.

Provision was also made for two other bodies to assist in
. the undertaking — a Board of Referees and a Board of Con-
sulting Experts — both of which were created to act in an
advisory capacity. The Board of Referees was composed of
government officials selected by the President, who conferred
upon it the function of considering such technical questions
as interdepartmental disputes, conflicts of jurisdiction and the
like which might be referred to it for special consideration and
report.

V A\ t\ I The Board of Consulting Experts was composed of mem-
\y bers of accounting firms which had been connected with pre-

* vious inquiries into the affairs of the government. The duty
imposed upon this board consisted of giving its opinion re-
garding technical questions of accounting and all business
practices and procedure that were referred to it.

Due to unavoidable delay in all the members of the com-
mission reporting for work, and in assembling an adequate
technical and clerical staff, the commission as such did not
begin active operatic^ until about July, 1911. It resulted,
therefore, that the inquiry as a whole was made under two
auspices and covered two periods, that of the "President's
Inquiry in re Economy and Efficiency," under the immediate
direction of Dr. F. A. Cleveland during the first year, and
that of the "President's Commission on Economy and Effi-
ciency" during the last two years of the three-year period.

The work done during the first period necessarily consisted
largely in assembling documents and data regarding the or-
ganization and operations of the government, though a distinct
beginning was made in the prosecution of certain technical
studies such as standardization of expenditure documents and

AGENCIES FOR NATIONAL ADMINISTRATION

procedure, the classification of objects of expenditure, classi-
fication of estimates of appropriation, and regulations gov-
erning expenditures for travel.

Upon the organization of the commission a more formal
work program was adopted. In general terms this program
comprehended the prosecution of studies under the follow-
ing five heads :

1. The problem of a national budget

2. Problems of organization

3. Problems of personnel

4. Problems of financial procedure

5. Problems of business practice and procedure
Though reference to the publications of the coi

as given hereafter will indicate in terms of published products
the work done in each of these fields, some description of the
methods pursued and the objects sought will not be out of
place.

The Problem of a National Budget. From the start of
the inquiry, every effort was made to develop information
showing the need for the adoption by the national govern-
ment of a budget system and the steps that had to be taken in
order to accomplish this reform. As has been pointed out, a
study of the classification of estimates of appropriation had
been begun by the President's Inquiry in re Economy and
Efficiency. This work was continued by the commission,
which, in conference with representatives of the departments,
worked out a reclassification of expenditures, appropriations
and estimates which would show these data in the form de-
sired for budgetary purposes. This done, the departments
and other services of the government were, in July, 1911,
requested to submit to the commission statements of their
expenditures for 1911, appropriations for 1912, and estimates
for 1913 in accordance with such classification. This classi-
fication was devised with a view to making known expendi-
tures, appropriations and estimates in terms of organization
units, character, that is, capital outlay, fixed charges, current
expenses, etc., functions, objects, that is, things purchased,
personal services, supplies, etc., and appropriation bills.

On June 27, 1912, the information thus secured, together
with other data bearing upon the problem of a budget, was

EFFORTS FOR ADMINISTRATIVE REFORM

submitted to Congress in the form of a report entitled "The
Need for a National Budget." This report, which covered
568 pages, consisted of three parts and appendices. In Part I
was given the history and description of existing practices of
the Executive and Congress in respect to the preparation of
estimates and the enactment of appropriation bills ; in Part II,
a discussion of the constructive recommendations of the com-
mission; and in Part III, a pro forma budget and supporting
documents. The appendices gave a digest of existing laws
governing estimates and appropriations, a bibliography of
congressional inquiries into the conduct of the business of the
executive departments, and a statement of budget methods
and procedure in foreign countries. The report also included
a letter of transmittal by the President in which the proposal
that provision be made for the adoption of a budget system
was strongly indorsed. In this letter the President called at-
tention "to the fact that the Government is without an accurate
statement of resources and liabilities ; that it is being financed
without a prospectus which shows expenditures in relation
to revenues or the effect of past financial policy; that the re-
ports of expenditures and the estimates required by law are
unsystematic, lack uniformity of classification, and are in-
capable of being summarized in such a manner as to give to
the Congress, to the President, or to the people a picture of
what has been done or what is proposed."

These defects he pointed out could only be adequately met
by the adoption of a scientifically worked out budget system.

This first report was intended merely as a means of rais-
ing the whole question of budgetary reform. To push the
matter still further, it was decided to attempt to prepare an
actual budget for the next fiscal year in conformity with the
principles that had been developed by the commission. Such
a budget of course would not take the place of the estimates
which had to be submitted in compliance with legal require-
ments in their established forms, but would be an alternative
or supplemental method of getting before Congress appro-
priation data.

On July 10, 1912, the President accordingly addressed a
letter to the heads of the executive departments and other
government establishments informing them that it was his

AGENCIES FOR NATIONAL ADMINISTRATION

desire to send to Congress, at the same time that the Book of
Estimates was presented by the Secretary of the Treasury,
a budget prepared along the lines set forth in his message to
Congress of June 27, and directing them to prepare two sets
of estimates and summaries of estimates, one in accordance
with the existing practice and one substantially in accordance
with the forms contained in the report of the Commission on
Economy and Efficiency.

This proposal of the President to submit estimates of ex-
penditure needs in a form different from that employed in
the past was strongly resented by Congress, which saw in it
an attempt on the part of the President to increase his influence
in the matter of making provision for the financial needs of
the government. It accordingly sought to prevent it by in-
serting in one of the appropriation bills the following section :

Section 9. That until otherwise provided by law, the regu-
lar annual estimates of appropriations for expenses of the
Government of the United States shall be prepared and sub-
mitted to Congress, by those charged with the duty of such
preparation and submission, only in the form and at the time
now required by law, and in no other form and at no other
time.

The chairman of the Committee on Appropriations, in a
speech defending this action, explained that "Congress knew
best the character and extent of the information it desired in
responding to the demands of the Executive for appropriations
. . . that it would not be wise for Congress to abdicate,
even by implication, its prerogative in this matter/' and -that
"until it could be determined by careful and deliberate study
of the scheme, whether it should be accepted and adopted, it
was not deemed wise or provident to have . . . the
time and energies of large numbers of the most capable persons
in the several branches of the public service diverted to trans-
forming the entire estimates for the next fiscal year into this
new and unauthorized plan of a so-called national budget."1

The President, however, believing that Congress had no
power under the Constitution to prevent him from obtaining
from administrative officers such information as he might

"Cong. Rec. Aug. 27, 1912, p. 13 and 142.

EFFORTS FOR ADMINISTRATIVE REFORM

desire, on September 19, 1912, sent a letter to the Secretary of
the Treasury and copies to all the department heads, calling
attention to his instructions of July 10, and denning his atti-
tude with regard to the above-mentioned Section 9, as follows :

Under the Constitution the President is intrusted with the
executive power and is responsible for the acts of heads of
departments and their subordinates as his agents, and can use
them to assist him in his constitutional duties, one of which
is to recommend measures to Congress and to advise it as to
the existing conditions and their betterment. . . .

If the President is to assume any responsibility for either
the manner in which business of the Government is trans-
acted or results obtained, it is evident that he cannot be limited
by Congress to such information as that branch may think
sufficient for his purpose. In my opinion, it is entirely compe-
tent for the President to submit a budget, and Congress can-
not forbid or prevent it. It is quite within his duty and
power to have prepared and to submit to Congress and to the
country a statement of resources, obligations, revenues, expen-
ditures, and estimates in the form he deems advisable. And
this power I propose to exercise.

He, therefore, instructed the heads of departments to print
and send to Congress 'the forms of estimates required by it
of officers, without delay ; also to have sent to him the infor-
mation asked for in his letter of July 10, 1912, the latter to be
made the basis for review, revision, and summary statement
in the form of a budget with supporting documents which he
intended to send to Congress by special message.

•These instructions were followed, and on February 26,
1913, the President sent to Congress a report prepared by
the commission under the title of "A Budget for the Fiscal
Year 1914."

This report consisted of four budget statements showing
financial condition and operating results, submitted as a basis
for considering the present and prospective fiscal condition;
eleven summaries of estimates submitted as a basis for con-
sidering revenues and expenditures in relation to questions of
government policy; and a summary of proposed changes of
law, setting forth what legislation it was thought should be
enacted in order to enable the administration to transact public

AGENCIES FOR NATIONAL ADMINISTRATION

business with greater economy and efficiency. The report con-
tained, furthermore, in the form of appendices, schedules sup-
porting budget statements; a memorandum on the need for
the organization £f a bureaiToFceTitraradministrative control ;
reports containing recommendations of officers of the several
departments for changes in law affecting the organization,
work, personnel, and business methods of the government, pre-
pared in response to special inquiry of the President; a sum-
mary of constructive recommendations contained in the annual
reports of the executive departments and other establishments;
and a list of positions to which appointments are made by the
President with the advice and consent of the Senate.

No action was taken by Congress on this report. The
effect of the two reports of the commission was thus limited
to that of raising in a very "concrete form the problem of a
national budget and of laying the basis for further consider-
ation of this subject.

Problems of Organisation. For years it had been known
that conditions in respect to the grouping of services depart-
mentally and the allotment of duties among the services were
extremely unsatisfactory, that there was much duplication of
organization, plant and work, and that the loss resulting there-
from reached large proportions. The commission accordingly
undertook as one of its distinct activities to make a thorough
study of the organization and activities of the government,
with a view to the formulation of proposals by which condi-
tions might be improved. As an initial step it caused to be
prepared a report setting forth in detail the organization of
the government as it existed on July i, 1911. This report,
which is entitled "Outline of Organization of the United
States Government, July i, 1911," was sent to Congress by
the President, accompanied by a letter of transmittal, January
17, 1912.

This report is noteworthy as representing the first attempt
that had ever been made to show in full detail how the govern-
ment was organized for the performance of its work. Of it
the President in his letter of transmittal said:

From these outlines it is possible to determine not only how
each department, bureau, and operating unit, such as a

EFFORTS FOR ADMINISTRATIVE REFORM

navy yard, is organized, but also, by classifying these units by
character and geographical location, the number of units of
a like character that exist at Washington, and the number and
character of services of the government in each city or other
point in the United States. With this information available,
it is possible to study any particular activity or the problem
of maintaining services at any given city or point.

Information of this character has never before been avail-
able. Administrative officials have been called upon to dis-
charge their duties without that full knowledge of the
machinery under their direction which is so necessary to the
exercise of effective control; much less have they had infor-
mation regarding agencies in other services that might be
made use of. Under such circumstances each service is com-
pelled to rely upon itself to build up its own organization and
to provide its own facilities regardless of those in existence
elsewhere.

As a next step in the development of the information
needed in order to bring about a better distribution and cor-
relation of the activities and organization units of the govern-
ment, the commission undertook the preparation of a series
of monographs descriptive of the history, activities and or-
ganization of the several services of the government. A con-
siderable number of such monographs were completed and
published in the reports of the commission as will appear in
the list of publications of the commission appended to this
chapter.

Thirdly, on the basis of the information thus secured the
commission prepared a number of reports recommending the
abolition of certain services and the consolidation of certain
others. It thus recommended the abolition of the Revenue
Cutter Service of the Treasury Department, and the Returns
Office of the Department of the Interior, the consolidation of
the Bureau of Lighthouses of the Department of Commerce
and Labor and the Life Saving Service of the Treasury De-
partment, and the consolidation of the six auditors' offices of
the Treasury Department. A special report was also prepared
recommending the establishment of an independent health
service, by the transfer to that service of the Public Health
and Marine Hospital Service of the Treasury Department, the
divisions having to do with the protection of public health in

AGENCIES FOR NATIONAL ADMINISTRATION

the Bureau of Chemistry of the Department of Agriculture,
the Division of Vital Statistics of the Bureau of the Census
in the Department of Commerce and Labor, and such other
services as have to do purely with public health work.

These reports were transmitted to Congress by the Presi-
dent with his approval, but no action was taken upon them.
They represented but a beginning of the work to be done
in this field, the abolition of the commission through the fail-/yj
ure of Congress to make provision for its support preventing!/ I
the work, however, from being carried further.

Problems of Personnel. In this field the commission made
studies regarding methods of appointment of officers and em-
ployees, ^methochj^ records, and the general f/^\
problem ot the establishment, of a~proper system for the re-
tirement of superannuated employees. The results of these
studies were transmitted to Congress and published as public
documents.

Problems of Financial Procedure. A very large amount
of work was done by the commission in the way of studying
the accounting and reporting systems, not only of the govern-
ment as a whole, as represented by the system of Treasury
accounts, reports and audit, but of the individual services.
These studies were of two kinds ; one, descriptive, having for
its purpose to make known existing practices, the other, con-
structive, having for its purpose to outline new practices con-
forming to modern principles of public accounting. Especially
was the effort made to bring about a greater standardization in
expenditure documents, and in accounting and reporting pro-
cedure. Not a little work was also done in working out a
classification of objects of expenditures. This classification
was intended to serve as a basis for the detailed consideration
of questions of standardization of purchases, the development
of uniform specifications, the establishment of uniform tests
as to quality of articles delivered and for the uniform classi-
fication and codification of data contained in documents of
expenditures which must be used as a basis for accounting.

Only in small part were the results of these studies pub-
lished in reports transmitted to Congress and printed as public
documents. A considerable number of the constructive studies,
having- for their purpose to suggest improved methods for the

EFFORTS FOR ADMINISTRATIVE REFORM

handling of expenditures and the rendering of accounts, were,
however, published in the series of circulars issued by the
commission. The titles of these studies can be seen by ref-
erence to the list of publications of the commission appended
to this chapter. The descriptive studies, though carefully done,
were still in manuscript form when the commission went out
of existence.

Not a little work was done in the way of putting into effect
the recommendations of the commission for the improvement
of accounting methods. This took the form partly of the
issue by the Comptroller of the Treasury of circulars addressed
to accounting officers of the government, directing them to
make use of the changed methods suggested by the commis-
sion;1 and partly of the adoption by the accounting officers of
the several services of improvements suggested to them by
the commission.

Problems of Business Practice and Procedure. In this
field especial attention was paid to the subjects of the handling
and filing of correspondence, the methods employed in dis-
tributing government documents, the use of photographic pro-
cesses for the copying of documents, the use of labor-saving
devices and certain other features of business management.
In respect to the first, detailed investigations were made re-
garding not only the handling and filing of correspondence
but of methods of business generally of a number of the
bureaus of the War Department. The results of all these
studies were embodied in reports which were transmitted to
Congress and published by that body as public documents.
In a considerable number of cases the recommendations of the
commission were acted upon.

PUBLICATIONS

i. Messages of the President and Official Reports of the Commis-
sion Submitted to Congress and Printed as Public Documents.

i. Special message of the President of the United States on the

President's inquiry into economy and efficiency. 1911. 6 p.
Same, with title: Message asking appropriation to con-
tinue investigation of business methods employed in Executive
departments. March 3, 1911. 4 p. (6ist Cong., 3d sess.
Senate. Doc. 859. Serial No. 5943-)

'Treasury Circulars, 1911, Nos. 34 and 35; 1912, No. 36.

AGENCIES FOR NATIONAL ADMINISTRATION

2. Message of the President of the United States on economy and

efficiency in the government service. Communicated to the
two houses of Congress January 17, 1912. 28 p.

Same, January 17, 1912. 2 v. (62d Cong., 2d sess. House.

Doc. 458. Serial No. 6296-7.)
Contents :

Message of the President . . . January 17, 1912, p. 1-20.
Appendix: Report to the President on the organization of
the government of the United States as it existed July I,
1911, shown by an outline of organization with recommen-
dation regarding its use in the administration of public af-
fairs. . . . Submitted by the Commission on economy and
efficiency. November, 1911, p. 21-1533.

3. Commission on economy and efficiency. Message from the Pres-

ident of the United States transmitting information in response
to Senate resolution of January 25, 1912, giving the names of
the members of the Commission on economy and efficiency in
the Government service. February 5, 1912. 2 p. (62d Cong.,
2d. sess. Senate. Doc. No. 294. Serial No. 6180.)

4. Report of the Commission on economy and efficiency. Message

from the President of the United States transmitting reports of
the Commission . . . relative to centralization of the distribu-
tion of government publications, and so forth. February 5,
1912. 37 p. 3 fold. pi. (62d Cong., 2d sess. Senate. Doc. No.
293. Serial No. 6175.)
Contents :
Report on the centralization of the distribution of government

publications.
Report on the use of window envelopes in the government

service.
Report on the use of a photographic process for copying

printed and written documents, maps, drawings, etc.
5. Message of the President of the United States on economy and
efficiency in the government service, communicated to the two
houses of Congress, April 4, 1912. 12 p.

Same, with title : Economy and efficiency in the govern-
ment service. Message of the President of the United States
transmitting reports of the Commission on economy and effi-
ciency. April 4, 1912. 565 p. (62d Cong., 2d sess. House.
Doc. 670. Serial No. 6298.)
Contents.

Message of the President, p. 1-14.
Methods of appointment, p. 15-42.

Regulations governing appointments and promotions in

the Consular service.
Extract from regulations governing the Public health and

marine-hospital service.

y> Consolidation of Bureau of lighthouses, Department of com-
merce and labor, and Life-saving service, Department of
the Treasury, p. 43-265.
Partial Contents.

Report of the Joint committee on the Life-saving service
and the Bureau of lighthouses, 1911.

EFFORTS FOR ADMINISTRATIVE REFORM

Statement showing location of life-saving stations in re-
lation to nearest lighthouse.
History, organization, and activities of the Life-saving

service.

History, organization, and activities of the Bureau of
Lighthouses.

Revenue-cutter service of the Department of the Treasury,
p. 267-397. (Contains bibliography.)

Accounting offices of the Treasury, with recommendations
for the consolidation of the six auditors' offices into one
office, p. 399-420.
Partial Contents.

History of accounting system of Government, 1789 to 1894.

Law reorganizing the accounting offices of the Treasury.

Returns office of the Department of the Interior, p. 421-460.

Travel expenditures, p. 461-514.

Memorandum of conclusions concerning the principles that
should govern in the matter of handling and filing corre-
spondence and preparing and mailing communications in
connection with the work of the several departments of the
government, together with suggestions for the use of labor-
saving devices in preparing and mailing letters, etc., p.

5 i 5-554-

Vertical flat filing.

Briefing.

Subjective classification of correspondence.

Registers of correspondence.

The press copy versus the carbon copy.

The dictation machine.

Mailing machinery.

The window envelope.

Rearrangement of form blanks.

Elimination of salutation and complimentary close.

Report of test of dictation machine in Post Office depart-
ment.

Report of Navy department committee.

Report of Treasury department committee.

Report of Department of Agriculture committee.

Report of Post Office department committee.

Report of Department of the Interior committee.

Report of Department of Commerce and labor committee.
Centralization of the distribution of government publications.
The use of the outline of organization of the government

prepared by the Commission as a means for showing cur-
rently organization conditions of the government.
6. Retirement from the classified civil service of superannuated
employees. Message from the President of the United States
transmitting report of the Commission on economy and effi-
ciency on the subject of retirement from the classified civil
service of superannuated employees. May 6, 1912. 4, 59, 225,
264, 49, 8, 5 p. incl. diagrs. (62d Cong., 2d sess. House. Doc.
732. Serial No. 6299.)
Contents.

AGENCIES FOR NATIONAL ADMINISTRATION

Message of the President, 4 p.

Report to the President on retirement allowances. April,
1912. 59 p.

Savings and annuity plan proposed for retirement of super-
annuated civil service employees, by Herbert D. Brown,
1911. 225 p. (Senate document No. 745. 6ist Cong.,
3d sess.)

Civil service retirement — Great Britain and New Zealand,
by Herbert D. Brown. Prepared under the direction of
Chas. P. Neill, commissioner of labor. 1910. 264 p.
(Senate. Doc. No. 290, 6ist Congress, 2d sess.)

Civil service retirement — New South Wales, Australia. By
Herbert D. Brown. Prepared under the direction of Chas.
P. Neill, commissioner of labor. 1910. 49 p. (Senate.
Doc. No. 420, 6ist Congress, 2d sess.)

The Hamill, Maher, and Cummins bills. 8 p.

Schedule calling for information with regard to employees.

5 P.

7. The need for a national budget. Message from the President of

the United States transmitting report of the Commission . . .
on the subject of the need for a national budget. June 27, 1912.
568 p. (62d Cong., 2d sess. House. Doc. No. 854. Serial
No. 6300.)
Contents.

Message of the President, p. 1-5.
The need for a national budget.

Historical and descriptive, p. 13-128.

Discussion of constructive recommendations by the Com-
mission, p. 129-224.

Pro forma budget and supporting documents, p. 225-385.
Digest of laws governing the preparation and submission of

estimates, p. 389-407.
Digest of laws pertaining to appropriations and allotments,

p. 409-38.
Description of reports at present submitted to Congress by

the several departments and establishments, p. 439-75.
Bibliography of Congressional inquiries into the conduct of
the business of executive departments, other than by stand-
ing committees of Congress, 1789-1911, p. 477-85.
Answers to questionnaire on budget methods and procedure
in [38] foreign countries, prepared by the Commission and
returned by foreign representatives, p. 487-568.

8. Report of the investigation of the United States Patent Office,

made by the President's commission on economy and effi-
ciency. December 9, 1912. 624 p. (62d Cong., 3d sess. House.
Doc. No. i no. Serial No. 6469.)
Contents.

Message of the President, p. 7.
Report and recommendations, p. 9-210.
Administration.

Methods of examining applications.
Interference procedure.
Classification division.

EFFORTS FOR ADMINISTRATIVE REFORM

The scientific library and the search room.
Personnel of the Patent Office.
Building accommodations and office equipment.
Publications.

Term of patent and delays.
Fees, revenues, and expenditures.
Miscellaneous.
Views of patent attorneys.
Subjects not reported on.

History of the United States patent system, p. 211-40.
United States laws and rules of practice relating to patents,

trade-mark, and print and labels, p. 241-320.
The German patent law, p. 321-31.
The English patent law, p. 333-67.
Discussion of the German patent law and patent procedure,

p. 369-410.
A comparison of the patent laws and procedure in Germany,

England, and the United States, p. 411-43.
Methods of examining applications, p. 445-73.
Publications of the Patent Office, p. 475-95.
Statement of the business of the Patent Office, p. 497-518.
Bibliography of the United States Patent Office, p. 519-35.
Classification of patents and printed publications, p. 537-624.
Message of the President of the United States transmitting the
reports of the Commission on economy and efficiency, January
8, 1913. X, 923 p. (62d Cong., 3d sess. House. Doc. No.
1252. Serial No. 6470.)
The Message of the President was published also in Circular

No. 31, of the Commission.
Contents.

Message of the President, p. 1-6.

Letter of the Secretary of War, p. 7-9.

Report to the President on the work of the Commission,

p. 11-38.
Business methods of the office of the Adjutant General,

War Department, p. 39-480.
Contents :

A brief on the legal aspect of the carbon copy as compared

with the press copy, p. 476-480.

The handling and filing of correspondence in the Mail and
record division of the Office of the Chief of engineers, p.
481-502.

The handling and filing of correspondence and the doing of

statistical work in the Bureau of insular affairs, p. 503-64.

The handling and filing of correspondence in the Office of

the Surgeon general, p. 565-97.
The handling and filing of correspondence in the Office of

the Signal corps, p. 599-621.
The handling and filing of correspondence in the Office of

the Chief of ordnance, p. 623-30.

The handling and filing of correspondence in the Mail and
record division of the Department of Justice, p. 631-753,

AGENCIES FOR NATIONAL ADMINISTRATION

Methods of keeping efficiency records of employees in the
National bank redemption agency of the Department o
the Treasury, p. 755-98.

Report on the electric lighting of federal buildings of the

Department of the Treasury, p. 799-908.

S On the establishment of an independent public health serv-
ice, p. 909-15-

The recovery of fiber stock of canceled paper money, p.
917-23.

10. Underground pneumatic tube system. Hearing before the Com-

mittee on public buildings and grounds, United States Senate,
Sixty-second Congress, third session . . . Report of the Presi-
dent's Commission on economy and efficiency, January 9, 1913.
6 p.

This is Part II of the Hearings on Underground pneumatic

tube system. Part I consists of the Hearing of June 7,

1912.

11. Recovery of government waste-paper. Message from the Pres-

ident of the United States, submitting in response to Senate
resolution of February 21, 1913, additional information rela-
tive to the saving in recovery of government waste-paper. Feb-
ruary 24, 1913. 1 8 p. (62d Cong., 3d sess. Senate. Doc. No,
1105. Serial No. 6365.)

12. Message of the President of the United States submitting for the

consideration of the Congress a budget, with supporting memo-
randa and reports. February 26, 1913. 433 p. (620* Cong.,
3d sess. Senate. Doc. No. 1113. Serial No. 6353.)
Partial Contents,

-7 Memorandum on the need for the organization of a Bureau
of. central administrative control, p. 187-205.

Reports containing

eral departments for changes in law affecting the organi-

zation, work, personnel, and business methods of the gov-

ernment, p. 207-335.
Summary of constructive recommendations contained in the

annual reports of the executive departments and other

establishments, p. 337-90.
List of positions to which appointments are made by the

President with the advice and consent of the Senate, p.

391-433-

2. CtrcwZar,? Printed by the Commission

No. i. Outline for the reclassification of estimates of government
expenditures on a uniform basis. 1910. 13 p.

No. 2. Tentative outline for the reclassification of objects of gov-
ernment expenditures on a uniform basis with a detail
classification and codification of war equipment. 1910.
22 p.

No. 3. Tentative outline and numbering of the several bureaus
and division of the Navy, prepared by the Committee
on economy and efficiency of the Department of the
Navy. 1911. 16 p.

EFFORTS FOR ADMINISTRATIVE REFORM

No. 4. Interim report on plan of inquiry and progress of work
from September 27 to December 31, 1910. 1911. 33 p.

No. 5. Questions to be answered and memorandum of instructions
to be followed in the preparation of report (form 6)
asked for on the subject of the handling and filing of cor-
respondence. 1911. 13 p.

No. 6. Description of expenditure documents and procedure for
the purchase of supplies, materials, equipment, and serv-
ices other than personal and for the distribution of sup-
plies and materials from stores. 1911. 50 p. incl. forms.

No. 7. (Not printed.)

No. 8. Definition and classification of expenditures for services
other than personal-transportation of persons. 1911. 33 p.

No. 9. Definition and classification of expenditures for services
other than personal-subsistence and support of persons.
1911. 21 p.

No. 10. Revised outline for the reclassification of objects of gov-
ernment expenditures on a uniform basis. 1911. 20 p.
(Revision of Circular 2.)

No. n. Outline illustrating the use of a uniform classification of
stationery, drafting, scientific and educational supplies for
the purpose of correlating specification numbers with a
code for common analysis of accounts. 1911. 30 p.

No. 12. Catalogue and price list of supplies for use in the Bureau
of the Census. Department of Commerce and Labor.
1911. 13 p.

No. 13. Description of accounting forms suggested as a means of
. obtaining the information needed about appropriations
and funds, stores, expenses, capital outlays, etc. 1911.
14 p. 13 fold, forms.

No. 14. Proposed business and accounting procedure of the United
States Indian Service, Department of the Interior, sub-
mitted through the Committee on economy and efficiency
of the Department of the Interior. 1911. 17 p. 20 forms.

No. 15. Questions to be answered and instructions to be followed in
the preparation of report asked for on the subject of the
collection of cost data, the keeping of cost accounts, and
the making of cost reports. 1911. 22 p.

No. 16. Circular in re reports to be prepared by committees on
economy and efficiency of the executive deartments and
independent establishments regarding (i) Action taken
during the present administration looking to the effecting
of economies and increased efficiency, (2) Publications
being issued by the executive departments and establish-
ments, (3) Departmental and bureau libraries. 1911.
20 p.

No. 17. Organization charts of the Department of the Navy. Pre-
pared as part of a report on the organization of the gov-
ernment of the United States as shown by outlines of
organization, charts and maps. 1911. 3 p. 36 charts.

No. 1 8. Suggestions as to schedules of documents and registers of
documents and schedules for use in developing a uniform
IOO

AGENCIES FOR NATIONAL ADMINISTRATION-

system of controlling accounts and summary reports.
1911. 16 p. incl. forms.

No. 19. Outline of classification of objects of government expendi-
ture on a uniform basis, with symbols for convenient ref-
erence to price lists and catalogues. 1911. 131 p.

No. 20. Suggested forms for reporting assets and liabilities, reve-
nues and expenses, funds and appropriations together
with definitions of governmental accounting and report-
ing terms. 1911. 21 p. incl. forms.

No. 21. Memorandum of conclusions reached by the Commission
concerning the principles that should govern in the mat-
ter of handling and filing correspondence and preparing
and mailing communications in connection with the work
of the several departments of the government, together
with suggestions for the use of labor-saving devices in
preparing and mailing letters, etc. 1912. 36 p.
— Same. Revised edition. 1912. 42 p.

No. 22. Report to the President on the use of the outline of organi-
zation of the government, prepared by the Commission as
a means for showing currently organization conditions of
the government. 1912. 8 p.

No. 23. Memorandum concerning the work completed and in prog-
ress by the President's Commission . . . submitted for
the information of the Committee on appropriations of
the House of Representatives. 1912. 18 p.

No. 24. Questions to be answered and memorandum of instructions
to be followed in the preparation of report (Form 6)
asked for on the subject of the keeping of service records
and the preparation and payment of pay rolls, etc. up.
(Manuscript.)

No. 25. Instructions to be followed in the preparation of analyses
of estimates and expenditures called for by the President,
July 10, 1912. 1912. 9 p.

No. 26. Report to the President recommending the preparation of
alphabetical lists or catalogues to be used in the several
branches of the service in the preparation of requisitions,
orders and other expenditure documents. 1912. 22 p.

No. 27. Instructions to be followed in the analysis of salaries and
wages by classes of employees and other compensation for
personal services paid by the government of the United
States. 1912. 24 p.

No. 28. Questions to be answered and instructions to be followed
. in the preparation of report asked for on the subject of
telegraph and cable business and cipher coding systems.
1913. 8 p.

No. 29. Report on the preliminary inquiry made under authority of
the Sundry civil appropriation act of June 25, 1910, prior
to the organization of the President's Commission on
economy and efficiency. [September 27, 1910, to March
8, 1911.] 1913. 18 p.

No. 30. Report to the President by the Commission on economy and
efficiency. [Oct. 30, 1911.] 1913. 32 p.

No. 31. Message of the President transmitting reports of the Com-

101

EFFORTS FOR ADMINISTRATIVE REFORM

mission on economy and efficiency, January 8, 1913, to-
gether with a brief memorandum descriptive of the work
of the Commission since its organization. 1913. 19 p.
Published also in House Doc. No. 1252, 62d Cong., 3d
sess. Serial No. 6470.

No. 32. The administrative purpose of the accounting methods and
procedures which have been installed in the departments.

1913- 13 P-

No. 33. Conclusions reached with respect to expenditure accounting
and reporting. A discussion of the information needed
and of the methods recommended as a means of pro-
ducing it. 1913. 53 p. illus.

No. 34. Report by the Commission on economy and efficiency sub-
mitted to the President, December 18, 1912, and sent to
Congress with the message of the President, January 8,
1913. 1913. 28 p.

Published also in House Doc. No. 1252, 62d Cong., 3d
sess. Serial No. 6470.

No. 35. Report on methods of keeping efficiency records of em-
ployees in the National Bank Redemption Agency of the
Department of the Treasury. 1913. 44 p.

J. Miscellaneous Documents bearing upon the Work of the
Commission

e Hearings before Committees of Congress.
Statement of [Charles D. Norton] the Secretary to the Presi-
dent, concerning the President's Inquiry in re Economy and
Efficiency, before the subcommittee of the House Committee
on Appropriations . . . Feb. 6, 1911. 16 p.
Hearings before subcommittee of House Committee on Ap-
propriations ... in charge of Sundry Civil Appropriation
Bill for 1913, relating to the President's Commission on Econ-
omy and Efficiency. 1912. 35-175 p.

Hearings before subcommittee of House Committee on Ap-
propriations in charge of Sundry Civil Appropriations Bill
for 1914, relating to the President's Commission on Econ-
omy and Efficiency, and before sub-committee of Senate
Committee on Appropriations, relating to certain reports of
the Commission affecting items in the legislative, executive
and judicial appropriation bill for 1914. January 10 and 13,

*9ll>> 75 P-

Underground pneumatic tube system. Hearing before the
Committee on Public Buildings and Grounds, United States
Senate, Sixty-second Congress, third session . . . Report of
the President's Commission on Economy and Efficiency.
January 9, 1913. 6 p.

This is Part II of the Hearings on Underground pneumatic
tube system. Part I consists of the Hearing of June 7, 1912.
2. Letter of the President to the Secretary of the Treasury.

Copy of letter by the President to the Secretary of the Treas-
ury, relative to the submission of a budget to Congress. Sept.
19, 1912. 8 p.

102

AGENCIES FOR NATIONAL ADMINISTRATION

Treasury Circulars.

Department Circular No. 34. 1911. The principles which
should govern expenditure accounting and reporting in the
several departments after July I, 1911. June 20, 1911. 3 p.

Department Circular No. 35. 1911. Principles governing the
forms of expenditure documents and the character of evi-
dence to be prepared and kept pertaining to transactions
involving the expenditure of public money. May 20, 1911.
2 p.

Department Circular No. 36. 1911. Definitions of classes of
expenditures outlined in Circular No. 34 (revised), govern-
ing expenditure accounting and reporting. June 21, 1911.
ii p.

Department Circular No. 27. 1912. Transportation of gov-
ernment employees and property. June 15, 1912. 38 p.

103

EFFORTS FOR ADMINISTRATIVE REFORM

United States Bureau of Efficiency, 1913. The United

States Bureau of Efficiency may be looked upon, in a measure,
as a successor of the President's Commission on Economy and
Efficiency. At the time the commission went out of existence
it had under investigaHbn^ffie subject of the establishment in
the government services of systems for the determination of
the efficiency with which employees performed their duties.
Though declining to continue the commission, Congress was
desirous that this work should be proceeded with. It accord-
ingly inserted in the legislative, executive and judicial ap-
propriation act for 1913, approved August 23, 1912, the fol-
lowing clause providing for the continuance of this work under
the auspices of the Civil Service Commission.

The Civil Service Commission shall, subject to the approv-
al of the President, establish a system of efficiency ratings for
the classified service in the several executive departments in
the District of Columbia based upon records kept in each de-
partment and independent establishment with such frequency
as to make them as nearly as possible records of fact. Such
system shall provide a minimum rating of efficiency which
must be attained by an employee before he may be promoted;
it shall also provide a rating below which no employee may fall
without being demoted ; it shall further provide for a rating
below which no employee may fall without being dismissed for
inefficiency. All promotions, demotions, or dismissals shall
be governed by provisions of the civil service rules. Copies
of all records of efficiency shall be furnished by the depart-
ments and independent establishments to the Civil Service
Commission for record in accordance with the provisions of
this section : PROVIDED, That in the event of reductions being
made in the force in any of the executive departments no hon-
orably discharged soldier or sailor whose record in said depart-
ment is rated good shall be discharged or dropped, or reduced
in rank or salary.

Due to the fact that no appropriation was made for this
work, the Civil Service Commission was unable to take any
active steps looking to the carrying out of this direction.

AGENCIES FOR NATIONAL ADMINISTRATION

This omission was corrected by the legislative, executive
and judicial appropriation act for 1914, approved March 4,
1913, the clause carrying the appropriation reading as follows :

Establishment and maintenance of system of efficiency
ratings for initial year: For the establishment and mainte-
nance of system of efficiency ratings for initial year, $15,000,
to be immediately available. The Civil Service Commission
shall investigate and report to the President, with its recom-
mendations, as to the administrative needs of the service re-
lating to personnel in the several executive departments and
independent establishments in the District of Columbia, and
report to Congress details of expenditure and of progress of
work hereunder at the beginning of each regular session:
PROVIDED, That no person shall be employed hereunder at a
compensation in excess of $4,000 per annum.

This appropriation being immediately available the Civil
Service Commission at once, i.e., March 25, 1913, established
a Division of Efficiency to have charge of the work and
placed at its head MrT Herbert P, Frown, who, as a member
of the staff of the President's Commission on, .Ec^njariiy^^uid...
Efficiency, had had the direction uf work in this field by that
body.

The continuance of this work was authorized by the leg-
islative, executive and judicial appropriation bill for 1915,
approved July 16, 1914, which made an additional grant of
$30,000 for this purpose. Since the clause making this appro-
priation reads substantially as that for the previous year, it
is not here reproduced.

The legislative, executive and judicial appropriation act
for 1916, approved March 4, 1915, likewise appropriated $30,-
ooo for the work, but in doing so made two innovations which
are of importance. The first is that the appropriation was
made in the form of a grant for the maintenance of a service
instead of the mere prosecution of a piece of work, and thus,
in effect, established a permanent service. The second is that
the duties of this service were enlarged so as to cover not only
the establishment of efficiency ratings, but "investigation of
the needs of the several executive departments and independ-
ent establishments with respect to personnel; and for in-

105

EFFORTS FOR ADMINISTRATIVE REFORM

vestigation of duplication of statistical and other work and
methods of business in the various branches of the govern-
ment service." It will be seen, therefore, that the service
was in effect given the broad functions of an efficiency service.
Following is the clause making this provision :

Division of Efficiency : For establishment and maintenance
of system of efficiency ratings, pursuant to section four of the
legislative, executive, and judicial appropriation Act for the
fiscal year nineteen hundred and thirteen, for investigation of
the needs of the several executive departments and independent
establishments with respect to personnel ; and for investigation
of duplication of statistical and other work and methods of
business in the various branches of the Government service; in-
cluding not more than $2,500 for equipment, supplies, sta-
tionery, books, and printing; and not more than $50 for street
car fare, $30,000; the chief of the Division of Efficiency herein
provided for shall be appointed by the President and shall re-
port to Congress at the beginning of each regular session,
through the President, the nature and progress of work under-
taken by the division together with a detailed statement of
expenditures showing the persons employed, their duties, and
the compensation paid to each: PROVIDED, That no person
shall be employed hereunder at a compensation in excess of
$4,000 per annum.

The urgent deficiency act for 1916, approved February 28,
1916, besides making a further appropriation of $1,200 for
the division, made the additional important change of taking
the division from under the Civil Service Commission and
erecting it into an independent establishment under the name
of "Bureau of Efficiency." This was done by the following
clause :

Bureau of Efficiency : For investigating duplication of sta-
tistical and other work in the various branches of the Govern-
ment service, $1,200: PROVIDED, That hereafter the Divi-
sion of Efficiency of the Civil Service Commission shall be an
independent establishment and shall be known as the Bureau
of Efficiency; and the officers and employees of the said
division shall be transferred to the Bureau of Efficiency with-
out reappointment, and the records and papers pertaining to
the work of the said division and the furniture, equipment,

106

AGENCIES FOR NATIONAL ADMINISTRATION

and supplies that have been purchased for it shall be trans-
ferred to the said bureau: AND PROVIDED FURTHER, That
the duties relating to efficiency ratings imposed upon the
Civil Service Commission by section four of the legislative,
executive, and judicial appropriation act approved August
twenty-third, nineteen hundred and twelve, and the duty of in-
vestigating the administrative needs of the service relating
to personnel in the several executive departments and inde-
pendent establishments, imposed on the Civil Service Commis-
sion by the legislative, executive, and judicial appropriation
Act approved March fourth, nineteen hundred and thirteen,
are transferred to the Bureau of Efficiency.

The legislative, executive and judicial appropriation act
for 1917, approved May 10, 1916, raised the annual appro-
priation of the bureau to $40,000 and expressed its powers and
duties as an efficiency service in still broader terms. The
clause providing for the bureau reads :

Bureau of Efficiency : To enable the Bureau of Efficiency,
authorized by the urgent deficiency appropriation Act ap-
proved February twenty-eighth, nineteen hundred and six-
teen, to establish and maintain a system of efficiency ratings,
to investigate administrative needs of the service relating to
personnel in the several executive departments and independent
establishments, required by the legislative, executive and judi-
cial appropriation Acts for the fiscal years nineteen hundred
and thirteen and nineteen hundred and fourteen, respectively,
and to investigate duplication of statistical and other work
and methods of business in the various branches of the Gov-
ernment service; for purchase or exchange of equipment, sup-
plies, stationery, books and periodicals, printing and binding,
traveling expenses not exceeding $100, and street car fare not
exceeding $50; in all, $40,000: PROVIDED, That no person
shall be employed hereunder at a compensation exceeding
$4,000 per annum.

By Senate resolution of May 16, 1916, the bureau was
directed to prepare and submit to the Senate estimates of the
immediate and ultimate cost of pensioning the civil employees
of the government.

By act of Congress, approved May 18, 1916, making ap-
propriations for the support of the Bureau of Indian Affairs

107

EFFORTS FOR ADMINISTRATIVE REFORM

for 1917, the Bureau of Efficiency was directed to prepare
and submit to the Secretary of the Interior a system of book-
keeping and accounting for the bureau. This was done by the
following clause:

Section 38. On or before the thirty-first day of December,
nineteen hundred and sixteen, the Bureau of Efficiency shall
prepare and submit to the Secretary of the Interior a system
of bookkeeping and accounting for the Bureau of Indian Af-
fairs that will enable the said Secretary, on or before July first,
nineteen hundred and seventeen, to meet the requirements of
section twenty-six of the Indian Appropriation Act approved
June thirtieth, nineteen hundred and thirteen (Thirty-eighth
Statutes at Large, page one hundred and three).1

In the same year Congress, by the act of September 8, 1916,
making provision for deficiencies for the year 1916, reappro-
priated the sum of $4,000, which had been granted by the
deficiency act of March 4, 1915, for the development of me-
chanical means for writing and auditing checks in payment
of pensions, and directed the Bureau of Efficiency to make

1 The act of June 30, 1913, provides as follows :

Section 26. On or before the first day of July, nineteen hundred
and fourteen, the Secretary of the Interior shall cause a system of
bookkeeping to be installed in the Bureau of Indian Affairs, which
will afford a ready analysis of expenditures by appropriations and
allotments and by units of the service, showing for each class of work
or activity carried on, the expenditures for the operation of the
service, for repairs and preservation of- property, for new and addi-
tional property, salaries and wages of employees, and for other ex-
penditures. Provision shall be made by the Secretary of the Interior
for further analysis of each of the foregoing classes of expenditures,
if, in his judgment, he shall deem it advisable.

Annually, after July first, nineteen hundred and fourteen, a de-
tailed statement of expenditures, as hereinbefore described, shall be
incorporated in the annual report of the Commissioner of Indian
Affairs and transmitted by the Secretary of the Interior to Congress
on or before the first Monday in December.

Before any appropriation for the Indian Service is obligated or
expended, the Secretary of the Interior shall make allotments thereof
in conformity with the intent and purpose of this Act, and such al-
lotments shall not be altered or modified except with his approval.

After July first, nineteen hundred and fourteen, the estimates for
appropriations for the Indian Service, submitted by the Secretary of
the Interior, shall be accompanied by a detailed statement, classified
in the manner prescribed in the first paragraph of this section, show-
ing the purposes for which the appropriations are required.

108

AGENCIES FOR NATIONAL ADMINISTRATION

a general investigation of the business methods of the Bureau
of Pensions, and also directed that the bureau should investi-
gate the methods of transacting business in the Bureau of
Internal Revenue. The sections of the act covering these
points read :

Bureau of Efficiency : The sum of $4,000 appropriated by
the deficiency appropriation Act, approved March fourth,
nineteen hundred and fifteen, for the purchase, rental, ex-
change, and remodeling of labor-saving machinery, equipment,
and supplies necessary to enable the Bureau of Efficiency to
demonstrate an improved system of paying pensions is reap-
propriated and made available for expenditure during the fiscal
year nineteen hundred and seventeen; PROVIDED, That the
equipment purchased hereunder shall become the property
of the Bureau of Pensions when the demonstration is com-
pleted; PROVIDED FURTHER, That the Bureau of Efficiency
shall investigate the business methods of the Bureau of Pen-
sions and prepare recommendations for the improvement
thereof and submit the same to the Secretary of the Interior
as early as practicable for his approval.

Not exceeding $3,000 of the appropriation for the Bureau
of Efficiency made in the legislative, executive, and judicial
appropriation Act for the fiscal year nineteen hundred and
seventeen may be used by the bureau for necessary traveling
expenses incurred and to be incurred in carrying out section
twenty-eight of the Indian appropriation Act for the fiscal
year nineteen hundred and seventeen and performing other
duties imposed upon it by law.

The Bureau of Efficiency shall investigate the methods of
transacting the public business in the Bureau of Internal Rev-
enue and prepare recommendations for the improvement
thereof and submit the same to the Secretary of the Treasury
as early as practicable for his approval and to Congress at its
next session.

The legislative, executive and judicial appropriation act
for 1918, approved March 3, 1917, not only raised the annual
grant for the support of the bureau to $60,000 and confirmed
its general powers, but imposed upon the bureau the perform-
ance of a number of highly important tasks. These sections
of the act read :

109

EFFORTS FOR ADMINISTRATIVE REFORM

To enable the Bureau of Efficiency, authorized by the
urgent deficiency appropriation Act, approved February
twenty-eighth, nineteen hundred and sixteen, to establish and
maintain a system of efficiency ratings, to investigate ad-
ministrative needs of the service relating to personnel in the
several executive departments and independent establishments,
required by the legislative, executive, and judicial appropria-
tion Acts for the fiscal years nineteen hundred and thirteen
and nineteen hundred and fourteen, respectively, and to in-
vestigate duplication of statistical and other work and methods
of business in the various branches of the Government serv-
ice; for purchase or exchange of equipment, supplies, sta-
tionery, books and periodicals, printing and binding, traveling
expenses not exceeding $3,000, and street car fare not ex-
ceeding $50 ; in all, $60,000 : PROVIDED, That no person shall
be employed hereunder at a compensation exceeding $4,000
per annum.

The Bureau of Efficiency shall investigate the methods of
examining and auditing claims against the United States
and accounts of disbursing officers, and of accounting
for receipts and disbursements and shall submit a report to
the Secretary of the Treasury and to Congress, with recom-
mendations, at its next regular session.

The Bureau of Efficiency shall investigate the work per-
formed by the Subtreasuries and report to the Secretary of
the Treasury and to Congress at the beginning of the next
regular session what part of the work of the Subtreasuries may
be transferred to other offices of the government, banks of
the Federal Reserve System or Farm Loan Banks, and for
the purpose of this investigation the representatives of the
Bureau of Efficiency shall have access to all necessary books
and other records of the government.

The Bureau of Efficiency shall investigate the methods of
transacting the public business in the Civil Service Commis-
sion and report to Congress through the President at the next
regular session of Congress. The officers and employees of
the Civil Service Commission are hereby directed to furnish
said bureau with such information as it may require to carry
out this provision.

The Bureau of Efficiency shall ascertain the rates of pay
of employees of various State and municipal .governments and
commercial institutions in different parts of the United States
and shall submit to Congress at its next regular session a re-

IIO

AGENCIES FOR NATIONAL ADMINISTRATION

port showing how such rates compare with the rates of pay
of employees of the Federal Government performing similar
services.

Officers and employees of the executive departments and
other establishments shall furnish authorized representatives
of the Bureau of Efficiency with all information that the
bureau may require for the performance of the duties imposed
on it by law, and shall give such representatives access to all
records and papers that may be needed for that purpose.

The Bureau of Efficiency shall investigate the classifica-
tion, salary, and efficiency of the employees of the Depart-
ments and Independent Establishments of the government in
the District of Columbia and report fully or partially to
Congress by January first, nineteen hundred and eighteen, as
to needed equalization or reclassification, and if a partial re-
port be submitted then a full report shall be submitted as soon
thereafter as possible with such recommendations as the
bureau may deem proper.1

The importance of this bureau is such that we have thought
it worth while to give its legislative history in detail. From
it, it will be seen that not only has the bureau been given ex-
ceedingly broad powers in respect to the making of investi-
gations having for their purpose the effecting of economy and
efficiency in the administration of the national government,
but that Congress made free use of the service as an agent
to undertake specific lines of work which it believed should be
done. In fact, thus the bureau, notwithstanding that its
legal status is that of a part of the administrative branch of
the government, is functioning largely as a direct agent of
the legislative branch.

It is not feasible for us to attempt anything like a detailed
statement of the work that has actually been done by the
bureau. The bureau has published two administrative reports,
one covering the period from March 25, 1913, to October 31,
1916, and the other from the latter date to October 31, 1917.
From these reports it is possible for the persons interested to
learn the extent to which the bureau has been able to complete
its program. It is of course evident that the general duties
of the bureau are of a character that will require years of

'39 Stat., 1080,

III

EFFORTS FOR ADMINISTRATIVE REFORM

work for their adequate performance, if, indeed, they can
ever be definitely concluded.

In addition there was conferred upon the bureau a sweep-
ing general power to "investigate duplication of service"
throughout the government, and the President was authorized,
but only after report of such duplication should have been
made by the bureau, "to abolish the same." This section
reads : 1

The Bureau of Efficiency shall investigate duplication of
service in the various executive departments and establish-
ments of the Government, including bureaus and divisions,
and make a report to the President thereon, and the President
is hereby authorized, after such report shall have been made
to him, wherever he finds such duplications to exist to abolish
the same. Report of the action taken hereunder shall be made
to Congress at its next regular session.

PUBLICATIONS

Accounting system for the United States Indian service, by Victor
G. Croissant . . . James A. Councilor . . . James V. Brownell
. . . 1917. 190 p. incl. tables, diagrs., forms.
At head of title : Department of the interior. Office of Indian
affairs.

Report of the United States Bureau of efficiency for the period from
March 25, 1913, to October 31, 1916. 1917. 27 p.
Issued also as House Doc. 1793, 64th Cong., 2d sess.

Report of the United States Bureau of efficiency for the period from
November I, 1916, to October 31, 1917. 1918. 17 p.
Issued also as House Doc. 901, 65th Cong., 2d sess.

Work performed by the subtreasuries. Letter from the Chief, Bureau
of efficiency, transmitting report of the U. S. Bureau of efficiency
covering the work performed by the subtreasuries. 1918. 39 p.
(65th Cong., 2d sess. House. Doc. No. 867.)
Partial Contents.

Plan to consolidate subtreasuries of the United States with

federal reserve banks.
History [of the Subtreasury system].

Deficiency appropriation — Bureau of efficiency ... a supplemental
estimate of appropriation for the fiscal year 1918. Jan. 3, 1918.
i p. (65th Cong., 2d sess. House. Doc. No. 735.)

Bureau of efficiency employees. Letter from the Chief, Bureau of
efficiency, transmitting statement showing in detail the number
of employees of the Bureau . . . whose compensation was in-
creased by section 7, appropriation act approved March 3, 1917.
Jan. 26, 1918. i p. (65th Cong., 2d sess. House. Doc. No. 870.)

'39 Stat, 1 122.

112

AGENCIES FOR NATIONAL ADMINISTRATION

Travel expense, Bureau of efficiency. Letter from the Chief, Bureau
of efficiency, transmitting statement showing in detail what offi-
cers and employees of the United States Bureau of efficiency
have traveled on official business from Washington to points
outside the District of Columbia during the fiscal year ended
June 30, 1917. 2 p. (65th Cong., 2d sess. House. Doc. No. 869.)

CHAPTER III

AGENCIES FOR INVESTIGATING THE ADMINIS-
TRATION OF PARTICULAR STATES : OFFICIAL

As in the case of the national government, spasmodic
efforts have always been made by our state governments to im-
prove particular features of their administration. It was
not until the last decade, however, that these governments have
attempted anything like a general inquiry into the character
of their administrative organizations and methods with a
view to the introduction of changes of a general or funda-
mental character. This action has taken the form of the
establishment by law of bodies to which have been generally
given the name of economy and efficiency commissions with
the broad duty of investigating existing administrative con-
ditions and recommending to the legislature changes in them
which in their opinion would lead to greater administrative
efficiency and economy.

The creation of these bodies was undoubtedly suggested
by the establishment and work of the President's Commission
on Economy and Efficiency and the general movement for
efficient administration so effectively promoted by the privately
established and maintained bureaus of municipal research.
These commissions have naturally varied somewhat in their
character. Some consisted simply of members of the two
houses of the legislature ; others provided for the appointment
of private individuals who were believed to have special com-
petence in administrative matters. The value of their work
has correspondingly varied. Some have been able to do little
more than formulate general recommendations. Others have
been in a position to make detailed studies, not only of organ-
ization conditions, but of technical processes, and to suggest
changes of a far-reaching character.

Due to the fact that these commissions in most cases have

114

AGENCIES OF PARTICULAR STATES, OFFICIAL

been temporary bodies, and have had only limited funds at
their disposal, they have been able to prepare only general
reports giving the results of their inquiries and findings. In
regard to most of them, little is, therefore, to be noted beyond
the fact of their establishment, their purpose as declared by
the statutes creating them, and the citations of the report and
recommendations made by them.

New Jersey: Economy and Efficiency Commission. The
first state to provide for the establishment of a special com-
mission to consider the putting of the administrative system
of the state upon a more efficient and economical basis was
New Jersey. By a joint resolution, approved April i, 19 121
provision was made for the creation of a commission of seven
members, two of whom were to be members of the Senate,
appointed by the President of the Senate; two members of
the House of Assembly, appointed by the Speaker of the
House ; and three citizens of the state of New Jersey, appointed
by the Governor, which should have the duty "of considering
the best means to consolidate various boards and to broaden
the powers in one central board or boards." The full title of
this commission was "Commission upon the Reorganization
and Consolidation of Different Departments of the State
Government whose Functions are Interrelated." It is usually
known, however, and is in fact so designated in official com-
munications by the shorter title of "Commission on Economy
and Efficiency."

At the close of the session of 1913, an appropriation was
made by the legislature for the continuance of the work of the
commission and subsequent appropriations have enabled the
commission to continue its work. A clerk to the commission
and a stenographer devote a portion of their time to the com-
mission's work. At times efficiency engineers have been em-
ployed to study methods and practices in the state and to
make recommendations to the commission.

Since the organization of the commission in 1912 the
members have devoted much of their time to an examination
and study of the powers and duties of the various state de-
partments, boards, commissions and officials, and charts of
1 Joint Resolution No. 6, New Jersey, Acts, 1912, p. 945-946.

EFFORTS FOR ADMINISTRATIVE REFORM

organization have been prepared showing graphically the pres-
ent state government and its various ramifications and setting
forth what consolidations can be effected. For a time a sec-
retary devoted his entire time to the collection and tabulation
of data about each state agency, and to the preparation for
the members of the commission of comparisons between the
New Jersey and other state governments. The commission
also keeps in touch with similar organizations in other states.

In accordance with the terms of the resolution creating it,
the commission has devoted its chief attention to the matter
of the reorganization of the administrative services of the
state. Constitutionally, New Jersey has the great advantage
of an administrative system of the integrated type. The
benefits of this system had, however, in large part been lost
by the creation of an excessive number of separate agencies.
"It has been the practice in this state to organize a separate
commission for each new phase of work. It has been carried
to such an extent that we venture to say that if in the opinion
of the Legislature it was advisable to have a state park in
each county, instead of organizing one department to acquire
the land and to develop and care for the parks, twenty-one
commissions would be organized, twenty-one secretaries would
be secured and twenty-one staffs of engineers and clerks would
be employed."1

The commission accordingly applied itself to the task of
studying each of these bureaus, boards and commissions with
a view to determining the extent to which they could be con-
solidated or logically grouped in departments.

Early in 1913, it submitted a report to the legislature
recommending: (i) the consolidation of the State Board of
Assessors and the Board of Equalization; (2) the abolition of
the separate shell-fish commissions and their consolidation
under a central bureau of game and fisheries; (3) the re-
organization of the Department of Labor, the Bureau of Labor
Statistics and the Employees Liability Commission; (4) the
consolidation of the offices of Comptroller of the Treasury
and the Department of Accounts; and (5) the union of the

1 Second Report of the Commission upon the Reorganization and
Consolidation of Different Departments of the State Government
whose Functions are Interrelated, 1914, p. 13.

116

AGENCIES OF PARTICULAR STATES, OFFICIAL

Department of Inland Waterways and the New Jersey Canal
Commission.. Following these recommendations various bills
were introduced, but only one was enacted, that providing
that the Department of Accounts be consolidated with the
office of the Comptroller of the Treasury. This resulted in
greater efficiency and an audit before, instead of after, the
disbursement of state moneys.

In 1914, the commission proposed a more comprehensive
plan for reconstructing certain branches of the state admin-
istration. It recommended the creation of seven new depart-
ments, each to be formed by the reorganization and consolida-
tion of boards and commissions, which were at the time per-
forming functions of a similar nature largely independent of
one another. The new departments recommended and the
estimated annual net economies to be effected in each case were
as follows : Department of Health, $24,224 ; Department of
Shell Fisheries, $3,800; Department of Taxation, $40,500;
Department of Conservation and Development, $28,823.50;
Department of Commerce and Navigation, $10,800; Depart-
ment of Prison Control, $22,663.59; Board of Public Utili-
ties, $6,000. The total net annual economies to be effected
by the adoption of these recommendations were thus estimated
to be nearly $147,000. The reorganization of the Department
of Labor was also recommended in a special report.

These recommendations were in large part approved by
the legislature.

The reorganization of the State Board of Health, the con-
solidation of the various oyster commissions, the consolidation
of the State Board of Taxation and the State Board for the
Equalization of Taxes, the creation of the Department of Con-
servation and Development, superseding the Forest Park Res-
ervation Commission, the Geological Survey, several park
commissions and the State Water Supply Commission after
July i, 1916, the establishment of the Department of Com-
merce and Navigation, which takes over the duties of the for-
mer Department of Inland Waterways, the New Jersey Ship
Canal Commission, the Commission on Port Conditions, Ob-
structions to Navigation and Inspection of Power Vessels, the
consolidation of the Bureau of Labor Statistics with the

117

EFFORTS FOR ADMINISTRATIVE REFORM

Department of Labor — these represent in part the work of this
commission during the past year.1

The fourth annual report of the commission made to the
General Assembly, in 1916, dealt with the State Tenement
House Commission and the concentration of purchases for
the use of the state and state institutions. With regard to
the Tenement House Commission it was recommended that
the cost of the commission to the state "be limited to those
expenses necessarily incident to the maintenance of the re-
quired organization, viz., salaries and expenses of commis-
sioners, secretary and clerks, office rent and the like, and that
the balance be apportioned among the municipalities in which
the commissioner's work is done, each municipality to pay that
part of the cost of the field work, which the time devoted to
it bears to the whole time spent in such work."

With regard to the concentration of purchases the com-
mission recommended the establishment of a purchasing board
to consist of the Governor, the state treasurer and the state
comptroller, the board to employ a purchasing agent, and
that all discretion as to purchases and standardization of
supplies should be vested entirely in this board. At the time
of the recommendation the purchasing power was exercised
generally by each commission or department or institution in-
dependently, subject only to the terms of the appropriation
bill. Drafts of bills embodying these recommendations were
submitted by the commission.

PUBLICATIONS

Message of the Governor transmitting [first] report of the commis-
sion to consider best means to consolidate state agencies. To
the Legislature — session of 1913. Trenton, MacCrellish & Quig-
ley, state printers, 1913. 31 p. 2 fold, charts (in envelope).
Recommendations.

Consolidation of state board of assessors and the board of

equalization.

Abolition of the separate shell fish commission, and consoli-
dation under a central bureau of game and fisheries.
Combination of the department of labor, bureau of labor sta-
tistics and employers liability commission.

1 Fourth Report of the Commission upon the Reorganization and
Consolidation of Different Departments of the State Government
whose Functions are Interrelated (The Economy and Efficiency
Commission), 1916. p. 5.

AGENCIES OF PARTICULAR STATES, OFFICIAL

Consolidation of the offices of comptroller of the treasury and
the department of accounts.

Union of the department of inland waterways and the New

Jersey canal commission.

Message of James F. Fielder, governor of New Jersey, transmitting
to the Legislature the second report of the Commission upon the
reorganization and consolidation of different departments of the
state government whose functions are interrelated. Feb. 16, 1914.
Trenton, 1914. 94 p. tables (part. fold.).
Contents.

Introduction.

State board of health.

Department of shell fisheries.

Department of taxation.

Department of conservation and development.

Department of commerce and navigation.

The state prison.

Department of labor.

Third report of the Economy and efficiency commission (commission
upon the reorganization and consolidation of different depart-
ments of the state government whose functions are interrelated.)
Likewise incorporating as a supplemental report a report of
Price, Waterhouse & co., expert chartered accountants, as sus-
taining the Economy and efficiency commission in a survey of
specific conclusions and recommendations. Trenton, 1915. 15 p.
Contents.

Report of the Commission.

Report on proposed department of conservation and develop-
ment, by Price, Waterhouse & co.

Fourth report of the Commission upon the reorganization and con-
solidation of the different departments of the state government
(the Efficiency and economy commission) to the Governor and
Legislature of the state of New Jersey. January 4, 1916. Tren-
ton, 1916. 26 p. fold, chart.
Contents.

Recommendation concerning enforcement of tenement house
act.

Concentration of purchases.

ARTICLES

Hanford, C. A. The New Jersey Economy and efficiency commis-
sion. (In Illinois. General assembly. Efficiency and economy
committee. Report. Chicago, 1915. p. 981-85.)

Massachusetts: Commission on Economy and Efficiency.

The Massachusetts Commission on Economy and Efficiency
was created by an act of the legislature approved June 6,
I9I2.1 Prior to this the Governor, at his request, had been
authorized by the legislature to investigate the organization

1 Massachusetts, Acts, 1912, p. 800.

119

EFFORTS FOR ADMINISTRATIVE REFORM

and work of the administrative departments and services in
order that he might more intelligently prepare the budget
which he was directed to submit to the legislature, and for
this purpose temporarily to employ public accountants, engi-
neers and other investigators. This provision did not give
the results that were expected of it, due to the fact that the
work of investigation was not carried on in a sufficiently
systematic and continuous manner. To correct these defects
the legislature in 1912 repealed the act under which the Gov-
ernor was acting and provided for the creation of the Com-
mission on Economy and Efficiency which has been mentioned.

This commission was reorganized by act of June 25, 1915.
By that statute it was provided that the commission should
consist of three members appointed by the Governor with the
consent of the Council, a chairman holding office at the pleas-
ure of the Governor and receiving a salary of $5,000 per
annum, and two members holding office for a term of three
years and receiving a salary each of $4,500 per annum. The
commission was empowered to employ expert and clerical
assistance, and appropriations were made for its support.

This commission was directed :

To inquire into the laws governing the financial trans-
actions of the Commonwalth and to study into the possibility
of promoting greater economy and efficiency and utility in
the transaction of the business of the Commonwealth by any
changes in such laws, by the reorganization, consolidation or
coordination of departments and institutions, by different
methods. of administration, by classification of employees, by
fixing maximum and minimum salaries, by standardizing vaca-
tions, by organizing a central purchasing agency or depart-
ment, by the substitution of the budget method of appropriat-
ing money or by any other means, and it shall report thereon
from time to time to the Governor and Council and to the
General Court, if it is in session.

The commission thus established was of a somewhat differ-
ent character from the commissions similarly designated
created by other states, in that, in addition to being given the
general duty of investigating the organization and methods
of business of the administrative services of the government, it

120

AGENCIES OF PARTICULAR STATES, OFFICIAL

was made an operating department with specific duties with
reference to the preparation and submission of estimates. It
thus provided that the auditor should continue to make his
compilation of the estimates of the departments, but that, in
addition to furnishing the Governor with a copy of such
compilation, he should also furnish to the commission a copy,
and that the latter body :

Shall examine the statements submitted to it by the Audi-
tor, showing the general and special appropriations asked for
by those in charge of the various departments, institutions,
boards and undertakings mentioned in sections three and four,
and shall report thereon to the General Court annually on or
before the first Thursday in January, and at such other times
as it may see fit, together with such facts, suggestions or rec-
ommendations as to any or all of the appropriations requested
or the methods of raising money for the same as it may deem
expedient.

It will be noted that by the foregoing the Commission or
Economy and Efficiency was directed to make its recommen-
dations direct to the legislature and not to the Governor.
Furthermore, the provision of law directing that the Governor
should make recommendations regarding estimates was re-
pealed. Though the act thus made a distinct advance in
providing for a budgetary organ, it made this organ an agent
of the legislature rather than of the Executive, and thus was
in no sense a movement towards an executive budget.

That the legislature was not of the opinion that, in making
provision for this body, it had solved the budgetary problem,
is evident from the fact that this body was specifically in-
structed by the act to investigate and report regarding the
steps that would be required to put the administration of the
government upon a budgetary basis.

The commission was also empowered to make investi-
gations as to the financial administration of state services or
state-aided institutions, and was required so to do when re-
quested by the Governor, or either branch of the legislature
or by the committee on finance of the Governor's Council.

The commission was given the usual powers to compel tes-

121

EFFORTS FOR ADMINISTRATIVE REFORM

timony and the production of papers and was required to make
an annual administrative report.

On June i, 1916, the legislature passed an act abolishing
the commission and creating in its place the office of Super-
visor of Administration.1 Practically all of the powers and
duties of the commission were transferred to its successor, the
Supervisor of Administration, but in addition he was vested
with certain administrative functions which make it proper to
regard his office as an organ of central administrative control
rather than as a research agency. Account of that office is,
therefore, reserved for the second part of this volume.2
Here we will confine ourselves to a brief characterization of
the work of the commission.

The first important task of the commission was to under-
take a thorough investigation into the organization, methods
of operation and activities of the various services of the state.

On February 7, 1914, the commission submitted a report
of some fifty pages on the " Reorganization of Boards and
Commissions Having Supervision and Control of State In-
stitutions," in which a centralization and unification of con-
trol is advocated ; and in November of the same year, a report
of more than five hundred pages dealing descriptively with
"The Functions, Organization and Administration of the De-
partments in the Executive Branch of the State Government."

The annual reports of the commission, besides giving in-
formation regarding the work of the commission in general,
present the results of a large number of special investigations.
In addition, the commission submitted a considerable number
of special reports. The character of these reports can be seen
from the appended list of the published reports of the com-
mission.

PUBLICATIONS

Annual report of the Commission on economy and efficiency. [No-
vember 21, 1912, to] December 31, 1912. Boston, Wright and
Potter Printing Co., state printers, 1913. 9 p. (Public Doc.
No. 96.)

1An Act to Abolish the Commission on Economy and Efficiency
and the State Board of Publications and to Establish the Office of
Supervisor of Administration. Approved June I, 1916. Act of 1916,
Ch. 296.

a See p. 291 ff.

122

AGENCIES OF PARTICULAR STATES, OFFICIAL

Annual report of the Commission on economy and efficiency for the
year ending December 31, 1913. Boston, 1914. 145 p. (Public
Doc. No. 96.)
Contents.

Salaries of state officials and employees.

Educational matters.

Care of public records.

Ballot law commission.

Labor.

Fisheries and game.

Forestry and moth suppression.

Business administration in county institutions.

Pending investigation and recommendations.
Annual report of the Commission on economy and efficiency for

1914. Boston, 1915. 319 p. fold, tables. (Public Doc. No. 96.)
Contents.

Summary of work performed during the year.

Report on reorganization of boards and commissions having
supervision and control of "state institutions.

Report on functions, organization and administration of the
departments in the executive branch of the state gov-
ernment.

Salaries of state officials and employees.

Vacation allowances.

Appropriations and state revenue.

Conversion of state sinking fund bond into serial bonds.

Report on the expenditure and accounts of the Board of regis-
tration in dentistry.

Report on expense accounts of officials and employees in the
service of the Commonwealth.

Report on bills for services and expenses of space expert em-
ployed in the State House building commission.

Report on state armory loans and on Armory commission's ad-
ministration of its finances.

Report on the business administration of the state militia.

Published records of the Massachusetts militia who served
in the War of 1812-14.

Report on alleged selling methods used by the Massachusetts
Commission for the blind.

Report on number of alien immigrants admitted to state in-
stitutions within three years of their entrance into the
United States.

Report on administration of state normal schools.

Appendix A. Acts establishing and reorganizing the Com-
mission on economy and efficiency.

Appendix B. List of state officials and employees whose sal-
aries are fixed by statute, are subject to approval of Gov-
ernor and Council, or are specified in appropriation acts.
Annual report of the Commission on economy and efficiency [for]

1915. Boston, 1916. 304 p. (Public Doc. No. 96.)
Contents.

Summary of work performed during the year.
Appropriations: Reports [on various House and Senate bills].

I23

EFFORTS FOR ADMINISTRATIVE REFORM

Report on non-registered physicians employed at state insti-
tutions.

Report on the shoe industry at the Massachusetts reformatory.
Report on the work and administration of the Department of

the State forester.

Organization, salaries and leaves of absence.

Reorganization of boards and commissions having supervision and
control of state institutions. Report submitted by Commission on
economy and efficiency. Feb. 7, 1914. Boston, 1914. 63 p. fold,
tab. (House. Doc. No. 2137.)
Contents.

Plan I. Centralized control under a board of five commission-
ers empowered to vest in one director the duties of admin-
istration.

Plan II. Supervision and control by a Board of five com-
missioners ; to give all their time to the duties of their offices,
and to be chosen with particular reference to the several
different problems involved from an administrative and cor-
rectional standpoint.

[Report of Commission on economy and efficiency] Argument sub-
mitted by the chairman of the Commission to the joint commit-
tees of Ways and means and Public institutions [relative to
the work of the Commission and its recommendations for re-
organization of boards and commissions having supervision and
control of state institutions]. April 15, 1914. 35 p. (House.
Doc. No. 2473.)

This report supplements House Doc. No. 2137.
Functions, organization and administration of the departments in the
executive branch of the state government. Prepared by the
Commission on economy and efficiency. November [25], 1914.
Boston, 1914. 513 p. fold, chart.
Contents.

Definition of terms.

Summary of the present organization of the executive branch

of the state government, with chart.
Central control and supervision of state departments.
Types of departmental organization and methods of administration.
Departments engaged in work of a similar character or hav-
ing a similar object.
Detailed description of the functions, organization, etc., of

each state department, board, commission and institution.
City officials and other non-state officials appointed by the Gov-
ernor.

State aided institutions and organizations.
Appendix. Geographical location of state offices, institutions,

armories, stations, etc.

Report on proposed conversion of state sinking fund bonds by issue
of serial bonds. Submitted to the General court ... by the
Commission on economy and efficiency, Jan. 15, 1915. Boston,
1915. 24 p. (House. Doc. No. 1650.)

Documents and papers submitted by the Massachusetts Commission
on economy and efficiency to the Honorable Senate and House
of representatives of the commonwealth of Massachusetts in

124

AGENCIES OF PARTICULAR STATES, OFFICIAL

General court assembled. February 15, 1915. Boston, 1915.
64 p. (House. Doc. No. 1751.)
Contents.

Report on the action taken by the Department of animal in-
dustry to extirpate the foot-and-mouth disease in Massa-
chusetts submitted to his excellency the Governor and the
Honorable Council by the Commission on economy and effi-
ciency, Dec. 23, 1914.

Transcript of notes taken at the hearing given by the Com-
mission on economy and efficiency to Mr. Fred L. Walker,
Commissioner of animal industry, at Room no, State House,
Boston, on Monday, December 14, 1914, at 2:30 P. M.
Miscellaneous letters, etc.

Laws relating to contagious diseases of domestic animals.
Report on the work and administration of the Board of commis-
sioners on fisheries and game, submitted to Governor and Coun-
cil and General court by the Commission on economy and effi-
ciency. April 26, 1915. Boston, 1915. 58 p. (House. Doc.
No. 2133.)
Contents.

Letter of transmittal, with summary of recommendations.
Description of work, finances and organization.
Criticisms and recommendations.
Appendices.

Report of the Commission on economy and efficiency concerning the
standardization of grades and compensation in the civil engi-
neering service of the Commonwealth as proposed in House
bill No. 349 of 1915. January 12, 1916. Boston, 1916. 28 p.
(House. Doc. No. 1673.)

Report of the Commission on economy and efficiency relative to the
hours of labor of public employees and to Saturday half holidays.
Jan. 12, 1916. Boston, 1916. 58 p. (House. Doc. No. 1672.)
Report of the Commission on economy and efficiency on statements
submitted to it by the State auditor. Jan. 6, 1916. 3 p. (House.
Doc. No. ii.)

Report on the administration of state revenues and loans, submitted
to the Governor and Council and General court by the Commis-
sion on economy and efficiency. April 29, 1916. Boston, 1916.
102 p. (House. Doc. No. 2225.)

Special report of the Commission on economy and efficiency relative

to state printing. May i, 1916. 23 p. (House. Doc. No. 2175.)

Report on budget procedure, submitting to the Governor, Council,

and General court by the Commission on economy and efficiency.

May 27, 1916. Boston, 1916. 32 p. (House. Doc. No. 2288.)

[Report on appropriations asked for by those in charge of the various

departments, institutions, boards, and undertakings for the year

1915.] Jan. 7, 1915. 2 p. (House. Doc. No. 53.)

- Same [for 1916]. Jan. 6, 1916. 3 p. (House. Doc. No. n.)

ARTICLES

Hanford, A. C. The Massachusetts commission of economy and
efficiency. (In Illinois. General assembly. Efficiency and econ-
omy committee. Report. Chicago. 1915, p. 975-81.)

125

EFFORTS FOR ADMINISTRATIVE REFORM

New York: Committee of Inquiry to Investigate the Ad-
ministration of the State Government. Early in 1913 Gov-
ernor Sulzer of New York, in the exercise of his general ex-
ecutive authority, appointed three citizens as a Committee of
Inquiry to make an investigation into the expenditures of the
state. On March 21 of the same year the committee sub-
mitted a report to the Governor, analyzing the appropriations
of the state for the current year as well as the estimates for
the ensuing year and suggesting the reduction of certain esti-
mates.

In its investigation of the financial administration of the
various departments and commissions, information was
secured as to their respective appropriations for the current
year, the amounts required for the ensuing year, and a state-
ment of any increases or decreases in the same. From these
data the committee presented a report containing: (i) its
findings and recommendations in regard to each separate de-
partment, with particular attention to the demands for in-
creased appropriations, and (2) a revision of the estimates
for which appropriations were requested. Also a new appro-
priation and supply bill for the entire state was prepared, set-
ting forth the items recommended by the Committee of In-
quiry and involving a new reduction of $772,000 as compared
with the actual appropriations of the preceding year.

The Committee of Inquiry also made an analysis of the
financial methods employed by the various state agencies, in
order to devise means for securing economy and efficiency in
the public service. As a result of this general study of state
administration, the committee found that the business methods
of the state were not efficient, and that there was immediate
need for a complete change in the existing system of making
appropriations and in the administrative machinery for con-
trolling and safeguarding the expenditure of such appropri-
ations after they have been made. With this end in view, the
Committee of Inquiry recommended: (i) that the fiscal year
be altered so as to correspond more closely to the legislative
session; (2) that general appropriations be made available
only during the year for which they are made; (3) that all
unexpended balances lapse at the close of each year; (4) that

126

AGENCIES OF PARTICULAR STATES, OFFICIAL

it should be unlawful for departmental officers to incur liabili-
ties in excess pf appropriations, and that they should not be
empowered to make such expenditures; and (5) that supply
bills should be discontinued.

These various recommendations made by the Committee
of Inquiry to the Governor were transmitted to the legislature,
but nothing definite was accomplished in the way of con-
structive legislation for carrying the same into effect.

Finally the committee made three general recommen-
dations : that a state board of estimates be created, composed
of state officials, to have the duty of formulating appropri-
ation bills; that provision be made for a commissioner of
economy and efficiency, who should have the duty of making
investigation of administrative services and recommending
action to be taken to put this management upon a more effi-
cient basis; and that the system of making appropriations be
changed in certain respects.

The first two of these recommendations were accepted by
the legislature. By acts passed in 1913 provision was made
for a State Board of Estimates and a Department of Econ-
omy and Efficiency, with the provision that the head of
the latter should be secretary of the former.1 The work of
this latter department will be considered in the following sec-
tion.

PUBLICATIONS

Report of the Committee of inquiry to Governor Sulzer . . . Trans-
mitted to the Legislature March 24, 1913. Albany, J. B. Lyon
Company, printers, 1913. 7, 119 p. fold, tables.
Contents.

Message from the Governor transmitting report.
Report.

Business methods of the state and its system of finance.

Unexpended balances.

Printing.

Stationery and office supplies.

Sinking fund.

Canal claims and board of claims.

Statement of appropriations recommended by Committee

of inquiry.

Departments, commissions and bureaus of the state.
State institutions and special bills and appropriations con-
nected therewith.
Legislation recommended.

1 New York, Acts, 1913, Ch. 280 and 281.

127

EFFORTS FOR ADMINISTRATIVE REFORM

Appendices of Hon. John T. Norton, counsel to Committee of
inquiry, upon sinking funds.

An act to ... create a department of efficiency and econ-
omy, etc.

An act to establish a state board of estimate, etc.

An act to establish a state board of contract and supply, etc.

ARTICLES

Hanford, C. A. The New York Committee of inquiry and Depart-
ment of efficiency and economy. (In Illinois. General assembly.
Efficiency and economy committee. Report. Chicago, 1915. p.
985-880

New York: Department of Efficiency and Economy. As
has been pointed out in the preceding section, the legislature of
New York, acting upon the recommendation of the Committee
of Inquiry, passed an act providing for the creation of a
Department of Efficiency and Economy, which it was intended
should be a permanent feature of the administrative system of
the state.1

This act provided for a Department of Efficiency and
Economy at the head of which should be a "Commissioner of
Efficiency and Economy." At the time it was in full operation
the department consisted of the office of the commissioner, a
secretarial division, an accounting division and a legal division,
all of which were included under the general administration.
In addition there was an advisory board, a bureau of finance
and budget, a bureau of curative, charitable and penal insti-
tutions, a bureau of public works department, and a bureau
of miscellaneous departments comprising a miscellaneous
division, an -education division and a printing division.

The duties of the department were stated in the following
terms :

"The Commissioner of efficiency and economy shall make
a careful and thorough study of each office, institution and
department maintained by the state and shall from time to
time make recommendations to the governor and to the officer,
board or commission in charge of said office, institution or de-
partment touching the efficiency and economy of the work,
business and service therein. He is hereby empowered, and
it shall be his duty to examine the accounts, and the methods

1 New York, Acts, 1913, Ch. 280.

128

AGENCIES OF PARTICULAR STATES, OFFICIAL

of business, accounting and administration of the several
offices, institutions and departments supported by the state,
for the conduct and maintenance of which any appropriation
of moneys is made by law."

The act further provided that the commissioner should
have power to compel testimony and production of papers,
that all officers of administrative services and state institutions
should annually submit to him, on forms prescribed by him,
detailed statements of their estimates for appropriations and
that the commissioner should examine said statement and
make such recommendations thereon as, in his opinion, would
contribute to promote efficiency and economy in the conduct
of the business of the state. fc

The Department of Efficiency and Enonomy upon its or-
ganization as a department devoted its first attention to the
matter of state appropriations and expenditures, and on March
1 6, 1914, the commissioner submitted a comprehensive budget
report of 1035 pages to the Governor, setting forth his recom-
mendations in regard to the financial needs of the state for
the fiscal year beginning October i, 1914. The items of ap-
propriation recommended in this report were determined after
a careful examination of the requests for appropriations as
filed by the various department officers, and every item was
presented in comparison with the amounts appropriated the
previous year, thus bringing into relief each new position in
the state service, every increase in salary and every proposed
addition to miscellaneous expense. With these data as a
basis, the commissioner of efficiency and economy prepared a
completely segregated form of appropriation bill or budget,
presenting all positions under their proper departmental titles,
and subdividing every large item of miscellaneous expense
into smaller units so as to prevent the concealment of unneces-
sary positions and expense accounts under the heading of
office expense and other deceptive titles. Nearly every estimate
submitted by the heads of departments was revised and ma-
terially decreased, and the amounts recommended by the com-
missioner of efficiency and economy were set forth in itemized
form and in parallel columns alongside of the appropriation
requests submitted by the departmental heads in the usual

129

EFFORTS FOR ADMINISTRATIVE REFORM

unitemized form, while the whole report was supplemented by
explanatory notes from the departments concerned and from
the commissioner of efficiency and economy. The amount of
appropriation recommended by the commissioner was about
one-seventh less than that recommended by the departmental
heads.

This report was transmitted to the legislature January 21,
1915. It, however, received no serious attention at the hands
of that body and the annual appropriation act was passed in
the usual form.

Under date of January i, 1915, the department in co-
operation with the New York Bureau of Municipal Research
published a detailed report of 768 pages on the organization
and functions of the government of the state of New York,
prepared for the use of the constitutional convention held in
1915. This report was descriptive and was accompanied by
a large number of charts of organization and other data. It
was also published as one of the series of reports of the New
York State Constitutional Convention Commission.

Under date of January 21, 1915, the commissioner of effi-
ciency and economy transmitted a report of 445 pages giving
the result of an investigation of the cost of providing text
books for the schools of the state, including both those sup-
ported by the state and those supported by the several cities,
towns, villages- and school districts.

An annual report of 1,019 pages submitted by the com-
missioner gave the results of an investigation of state hos-
pitals for the insane, state prisons and state reformatory and
correctional institutions and recommendations relative to the
improvement of the efficiency of their administration.

Under date of February i, 1915, the department trans-
mitted an annual report of 385 pages relating to the construc-
tion and maintenance of public highways and the administra-
tion of the State Highway Department, with recommendations
as to statutory amendments. The investigations of the de-
partment and the numerous suggestions that were transmitted
from time to time provided the commissioner of highways
with information about organization and methods which re-
sulted in better discipline and better quality of work.

Notwithstanding the activity of this department, its work

130

AGENCIES OF PARTICULAR STATES, OFFICIAL

did not seem to meet with the approval of the legislature and
it was abolished in 191 5. * The reason for this action was
undoubtedly in part due to political considerations.

PUBLICATIONS

State budget report by Department of efficiency and economy. Ap-
propriations recommended for fiscal year beginning October I,
1914. Explanatory notes by heads of departments, critical notes
and analytical tables by Department of efficiency and economy.
Transmitted to the Governor, March 16, 1914. [Albany, 1914.]
VII, 262 p.

Budget report of the New York Department of efficiency and econ-
omy concerning appropriations requested by the state depart-
ments, institutions, boards and commissions. Transmitted to the
Legislature January 21, 1915. Albany, 1915. XXXVI, 995 p.
incl. tables. [Annual report, 1914, v. I.]

Government of the state of New Yorjc. A description of its organi-
zation and functions. Prepared for the New York State con-
stitutional convention commission by the New York State de-
partment of efficiency and economy and New York Bureau of
municipal research. January i, 1915. Albany, 1915. XXXII,
768 p. diagrs. (part, fold.) [Annual report, 1914, v. 2.]
Report of investigation of the cost of providing free text-books in
the public schools of the state of New York, by the State depart-
ment of efficiency and economy. 1914. Albany, 1915. 445 p.
incl. map. [Annual report, 1914, v. 3.]
Partial Contents.

Bibliography of the school text-book question.
Digest of the text-book laws of the states of the Union.
Annual report of the New York Department of efficiency and econ-
omy concerning investigations of accounting, administration and
construction of state hospitals for the insane, state prisons and
state reformatory and correctional institutions. Transmitted to
the legislature February I, 1915. Albany, 1915. XXII, 993
p. plates, fold, diagrs. [Annual report, 1914, v. 4.]
Contents.
Introduction.

Review of examinations of accounting methods in state hos-
pitals for the insane, by Wood Drake Loudoun. p. 1-28.
Detailed reports of investigations of state hospitals for the

insane, by the staff of the Department, p. 29-294.
Organization and administration of state hospitals for the in-
sane, by M. E. McCalmont. p. 401-612.
Problems of construction of buildings for the state hospitals

for the insane, by Albert L. Brockway. p. 613-665.
Examination of state prisons and correctional institutions, by

Charles H. Jackson, p. 697-682.
State charitable institutions, p. 983-993.

Annual report of the New York Department of efficiency and econ-
omy concerning matters relating to the construction and main-

1 New York, Acts, 1915, Ch. 17.

EFFORTS FOR ADMINISTRATIVE REFORM

tenance of public highways. Transmitted to the Legislature
February I, 1915. Albany, 1915. XVIII, 365 p. plates, fold,
diagrs. [Annual report, 1914, v. 5.]
Contents.

Pt. I. Report of Advisory board of New York Department
of efficiency and economy by Arthur H. Blanchard.
Apportionment of state funds for construction of highways.
Financing the maintenance of the public highways.
Organization of the New York State highway department.
Preliminary investigations to determine suitable types of

highways.
Specifications under which New York highways have been

constructed.

Complete and accurate surveys required for correct de-
signing.

Comprehensive advertisements necessary to secure competi-
tion in bidding.

Defective contracts principal cause of poor construction.
Maintenance contracts inadequate in regard to work and

materials.

Reorganization of Bureau of tests necessary to secure effi-
ciency.

Revision of traffic regulations to protect state highways.
Valuable data for highway commission in other state de-
partments.

Protection of sources of trap rock supply.
Pt. II. Review of the work of the Department of efficiency
and economy in relation to public highways, by the Com-
missioner of efficiency and economy.

The constitution and government of the state of New York : an ap-
praisal. Transmitted to the New York state constitutional con-
vention by the New York state constitutional convention com-
mission. Prepared ... by the Bureau of municipal research
and the New York state department of efficiency and economy.
[Albany] Bureau of municipal research, 1915. XII, 250 p. incl.
diagrs.
Contents.

Introduction and summary.

Standards for the appraisement of the present constitution

and government.
The electorate.
The official personnel.

The structure of government and the powers, duties and limi-
tations of officers.

Organization and procedure of the Legislature.
Constitutional provisions defining the relations of Legislature

and Executive.
The independent auditor.
The governor and the administration.
Organization for the administration of the states' proprietary

and other general functions.

Organization for the administration of military functions of
Ahe state government.

I32

AGENCIES OF PARTICULAR STATES, OFFICIAL

Organization for the administration of public service functions.
The content and form of the Constitution.

ARTICLES

Hanford, A. C. The New York Committee of inquiry and Depart-
ment of efficiency and economy. (In Illinois. General assembly.
Efficiency and economy committee. Report. Chicago, 1915. p.

985-88.) '

Pennsylvania: Economy and Efficiency Commission. By

a joint resolution, approved July 25, 1913, the legislature of
Pennsylvania provided for the creation of a body to be known
as the Economy and Efficiency Commission which should have
the duty "to investigate the number, character of duties and
compensation of all persons in the employ of the State; and
to ascertain and recommend what changes, if any, may be
necessary to secure greater uniformity, economy and effi-
ciency in the work of the various departments, branches,,
bureaus, and commissions of the government." The reso-
lution provided that the commission should be composed of
three persons "well versed in business and governmental
affairs and in systems of economy and efficiency in adminis-
tration," to be appointed by the Governor and to receive a com-
pensation of $3,000; and that this commission should make its
report not later than November i, 1914, when it should become
functus officio. An appropriation of $25,000 was made to
defray the expenses of the commission, which amount, how-
ever, was reduced by the Governor to $10,000.

This commission made its report under date of December
24, 1914. It is devoted to an enumeration and description
of the administrative services and institutions of the state
with recommendations of action that should be taken in ref-
erence to each to make the organization and work more effi-
cient.

By a concurrent resolution, approved June 17, 1915, pro-
vision was made for the appointment of a new Economy and
Efficiency Commission, to consist of the Governor, the auditor
general and the attorney general, which should continue the
work of the old commission besides undertaking new lines
of work which were specified in the resolution. Provision
was made that the expenses of this commission should be met
from moneys carried in the general appropriation act.

133

EFFORTS FOR ADMINISTRATIVE REFORM

This commission made its report on March 28, 1917, in the
form of a report by its solicitor, which covers much the same
ground as the report of its predecessor though devoting more
attention to general problems of administration, such as the
introduction of a budget system, the equalization of salaries,
etc.

PUBLICATIONS

Report of the Economy and efficiency commission of the common-
wealth of Pennsylvania. Harrisburg, W. S. Ray, state printer,
1915. VI, 64 p.
Contents.
Report.

Appendix: Tables giving reference to the Acts of Assembly
creating and relating to each department; name, compensa-
tion received and position held by each officer and employee ;
act regulating each position and indicating method of its
creation, by statute, appropriation or contingent fund.
Report of Harry S. McDevitt, the Solicitor of the Economy and
efficiency commission of the commonwealth of Pennsylvania [to-
gether with conclusions and recommendations]. March 28, 1917.
Harrisburg, 1917. 72 p.

ARTICLES

Hanford, A. C. The Pennsylvania Economy and efficiency commis-
sion. (In Illinois. General Assembly. Efficiency and economy
committee. Report. Chicago, 1915. p. 988-990.)
in «•.

Illinois: Efficiency and Economy Committee. Easily the
most important commission on economy and efficiency that
has been established by any state, whether judged from the
standpoint of the comprehensive and scientific character of
its work, or from that of actual results accomplished, is the
body known as the Illinois Efficiency and Economy Committee.
In his inaugural address, in 1913, Governor Dunne recom-
mended "the appointment of a joint committee of both houses
of the legislature to examine into the condition of the public
institutions of the state and to confer with the Board of Ad-
ministration to ascertain if it is not possible to reduce the
expenditures of the same without impairing the efficiency of
these institutions." In pursuance of this recommendation the
legislature in the same year passed a joint resolution providing
for the creation of such a body,1 and subsequently appropri-
ated the sum of $40,000 for its support.

1 Senate Joint Resolution No. 22, 48th General Assembly, 1913.

134

AGENCIES OF PARTICULAR STATES, OFFICIAL

This resolution provided for the constitution of a joint
committee composed of four senators and four representatives
which should have full power and authority:

To investigate all departments of the state government in-
cluding all boards, bureaus and commissions which have been
created by the General Assembly, such investigations to be
made with a view of securing a more perfect system of ac-
counting, combining and centralizing the duties of the various
departments, abolishing such as are useless and securing for
the state of Illinois such reorganization that will promote
greater efficiency and greater economy in her various branches
of government.

This committee, as its most important work, made an ex-
ceedingly thorough and detailed study of the entire adminis-
trative machinery of the government, the results of which
were published in a report submitted in 1915. This report is
an exceptionally able document. In addition to containing the
report proper of the committee it includes twelve special
reports on particular topics prepared by specialists appointed
for the purpose and performing their work under the general
direction of Mr. John A. Fairlie, Professor of Political
Science at the University of Illinois. Although we have not
attempted in the present volume to summarize the conclusions
reached by the other investigating bodies considered, the pres-
ent report is such an exceptionally able document, presents
such a convincing indictment of existing administrative con-
ditions, not only in Illinois but in almost all of our states, and
points out so clearly the steps that should be taken to relieve
these conditions, that we feel justified in making an exception
in its case. The findings and recommendations of the com-
mittee, as summarized in its report, were as follows:

There is unnecessary duplication of positions and salaries ;
not only in the chief officers of each separate bureau or board,
but still more in their staffs of clerks and employees. But this
is the smallest part of the loss. The work that is undertaken
is not well done ; and costs much more for the results obtained
than with a more efficient organization. Supplies in many
cases are purchased in small quantities for each office or insti-
tution, which could be secured at lower prices if purchased in

135

EFFORTS FOR ADMINISTRATIVE REFORM

larger quantities on contracts based on competitive bids, as is
done by the Board of Administration for the charitable insti-
tutions. The absence of definite correlation and cooperation
between the most closely related offices, necessarily leads to
loss and inefficient work. The only supervision provided by
law over most of the executive offices, boards and commis-
sions, burdens the Governor with a mass of unnecessary detail
which no single individual can effectively handle, and at the
same time does not afford him either the time or the facilities
for the proper determination of the more important questions
of administrative and legislative policy. The present arrange-
ments also fail to provide the General Assembly with adequate
information or advice to enable it to perform its work wisely,
either in making appropriations or in enacting substantive leg-
islation. And while reports are made and published, they are
so numerous and poorly organized that the general public
fails to receive satisfactory information of the work that is
done, and has no satisfactory means for fixing responsibility,
or of discriminating between those officials who perform their
work well and those who perform it poorly or not at all.

Lack of Correlation. Under the existing arrangements in-
efficiency and waste necessarily arise from the lack of correla-
tion and cooperation in the work of different offices and insti-
tutions which are carrying out similar or closely related func-
tions. There are separate boards for each of the State peni-
tentiaries and reformatory and for each of the State normal
schools. There are half a dozen boards dealing with agricul-
tural interests; and about a score of separate labor agencies,
including four boards dealing with mining problems and eight
free employment offices, each substantially independent of
each other. State finance administration is distributed be-
tween a number of elective and appointive officials and boards
without concentrated responsibility. The supervision of cor-
porations, and of banks, insurance companies and public utili-
ties is exercised by a series of distinct departments. State
control of public health is divided between various boards with
no effective means of coordination. Nor is there any official
authority for harmonizing the work of the numerous educa-
tional agencies.

The division of the public service in some fields has even
affected the authority of the State officials, provided by the
constitution, where in some cases unrelated functions are
placed under the same official. The title of the Auditor of

AGENCIES OF PARTICULAR STATES, OFFICIAL

Public Accounts indicates that he should control the auditing
of all public accounts in the State; but his authority in this
field is limited; on the other hand, he has supervision over
banks and building and loan associations, a function quite
distinct from the audit of public accounts. So, too, the At-
torney General should be the chief legal officer for all State
offices and departments ; but special counsel and attorneys have
been provided for various departments, independent of the
Attorney General and not subject to his control; while this
officer has been given supervision over inheritance tax admin-
istration, which should be primarily a financial rather than a
legal matter.

Scattered Offices. The lack of correlation between differ-
ent State offices is further indicated and emphasized by the
physical location of their offices. Thirty State officials and
commissions have offices in Chicago, at a cost for rent and
other expenses of $72,000 a year. These offices are scattered
in different buildings, even in the case of departments whose
functions are most closely related to each other. The present
arrangements cause an unnecessary expenditure of funds for
offices, reduce the efficiency of the State service in their deal-
ings with each other, and add greatly to the inconvenience of
the general public in transacting business with these offices.

No Standards of Compensation. Under existing legislation
the compensation of State officers lacks any approach to uni-
formity on the basis of work done. Not only are there
boards and officials who receive no salary, others paid on a
per diem basis, and still others paid a fixed salary; but within
each of these classes there is no attempt to adjust the compen-
sation to the time given to the public service or to the duties
performed. The State Food Commissioner and the Chief
Inspector of Private Employment Agencies each receive
$3,600 a year; while the more important offices of Secretary
of the State Board of Health and Chief Factory Inspector re-
ceive only $3,500 and $3,000. The Commissioners of Labor
each receive $150 a year; while the members of the Board
of Arbitration each receive $1,500 a year, and the members
of the State Board of Pardons $3,500 a year. Inspectors in
different departments doing a similar type of work receive
salaries ranging from $1,200 in one department to $1,800 in
another. The same variations in compensation for similar
work exist for subordinate positions, where the salaries are
specified in the appropriation acts.

137

EFFORTS FOR ADMINISTRATIVE REFORM

Overlapping Functions. Even where there is no direct
duplication of work, the present laws frequently give powers
to several departments under which each employs agents for
purposes which could be more efficiently and economically
performed by one agent at the same time. Thus the inspec-
tors of the State Board of Health, the State Food Commis-
sioner and the Chief Factory Inspector may each visit the
same place for different purposes and perhaps give conflicting
orders; while a single thorough inspection for all of these
offices would be more effective and less expensive.

Irregularity of Reports. One source of confusion in the
operation of the numerous State offices, boards and commis-
sions is the complete absence of uniformity or regularity as to
their reports. Most officers are required to report to the Gover-
nor ; but in several cases reports are made directly to the Gen-
eral Assembly, and in some cases no authority is specified.
There seems to be no rule followed in requiring reports to be
made annually or biennially or at other intervals. Reports are
required to be made by some authority in every month in the
year except April ; and cover widely varying periods of time.

The separate publication of reports for each minor office
and the lack of central control over the printing of such re-
ports add much to the expense of printing, which now amounts
to over $500,000 for the biennium. A large proportion of
this could be saved by a more concentrated organization and
control over the official reports.

Ineffective Supervision. As a result of the absence of any
systematic organization of related services, there is no effec-
tive supervision and control over the various State offices,
boards and commissions. It is true that the greater number
of these are under the nominal supervision of the Governor,
through his power of appointment and removal. But the very
number of separate offices makes impossible the exercise of
any adequate control. To a very large extent each authority
is left to determine its own action; conflict of authority be-
tween two or more offices is often possible; and if harmony
and cooperation is secured it is by voluntary compromise rather
than by the advice or decision of a superior authority. Under
the present arrangements too many independent authorities
have power to make expenditures subject to no effective cen-
tralized control or responsibility. This situation necessarily
leads to waste and extravagance.

At the same time, the number of matters necessarily

138

AGENCIES OF PARTICULAR STATES, OFFICIAL

brought to the attention of the Governor — owing to the ab-
sence of intermediate supervising officers — has burdened him
with such a mass of details that he has been unable to exercise
adequate supervision over such matters, while the very volume
of such business brought to his attention takes time from
more important questions of general policy.

Moreover, a number of the important departments and
services are not even under this limited supervision of the
Governor. This is true of the officers provided for by the
constitution; and also of a number of boards chosen by elec-
tion or by other methods, as the State Board of Equalization,
the Trustees of the University of Illinois, and the State Board
of Agriculture. In the case of the constitutional officers this
lack of control extends not only to their primary functions, but
also to other unrelated powers and duties imposed on them
by statute.

No Budget System. One of the most serious defects aris-
ing from the lack of correlation and effective supervision over
the subordinate authorities is the absence of any satisfactory
budget of estimates as a basis for appropriations. The need
for improvement in this respect was indicated in the act of the
last General Assembly creating the Legislative Reference
Bureau, which imposed on that Bureau the duty of compiling
estimates of appropriations. Under the procedure which has
hitherto been followed, appropriations have been based in the
main upon estimates and requests made by the head of each
office, bureau or board, most of which officials have not been
charged with a sufficient degree of responsibility to make them
careful and sparing in their requests. The General Assembly
has been compelled to act upon these requests without sufficient
time, means or opportunity for adequate investigation. The
result has been that unnecessary appropriations have been made
in some cases while in other cases needed funds for important
public services have not been provided.

The State Constitution, in Article V, paragraph 7, pro-
vides that the Governor at the commencement of each regular
session of the General Assembly shall "present estimates of
the amount of money required to be raised by taxation for
all purposes." So far as your Committee is aware, no Gov-
ernor has heretofore ever complied with this important con-
stitutional duty. The failure to do so has undoubtedly been
due in the main to the fact that the executive authorities as
organized have not afforded the Governor the facilities needed

139

EFFORTS FOR ADMINISTRATIVE REFORM

to perform this duty. Just as the number of minor offices
and boards under his nominal supervision prevents any effec-
tive control over their action ; so too it prevents any adequate
examination of their requests for appropriations on which the
Governor can base his recommendations.

The compilation of estimates for appropriations requested
to be prepared by the Legislative Reference Bureau is a step in
the right direction; but this can hardly be considered an
entirely satisfactory budget system.

In the opinion of the Committee, the constitutional pro-
vision referred to above contemplates that the -Governor shall
present to the General Assembly a detailed budget of appro-
priations recommended by him for the ensuing biennium, to-
gether with an estimate of the revenues of the State from
sources other than direct taxation during the biennium, and
a statement as to the amount to be met by taxation. The
careful preparation of such a budget would be a potent factor
in securing economy and efficiency throughout the executive
departments. But to make this possible requires not only new
methods of preparing and analyzing estimates, but also exten-
sive reorganization and consolidation of the executive depart-
ments, so that the estimates from each group of related serv-
ices may be based on adequate consideration by competent
officials. A new Governor will not be able to present such a
budget at the beginning of the regular session of the General
Assembly, but he could do so probably by March i.

Imperfect Accounts. As a result largely of the absence of
a proper budgetary system, the accounts of most of the vari-
ous State authorities are entirely inadequate. The accounts
kept by the Auditor of Public Accounts cover all that is re-
quired by law, and appear to be carefully administered; but
they are limited to records of cash transactions and to keep-
ing disbursements within the authorized appropriations. There
is no record for the State as a whole or for most of the State
offices of estimated revenues or outstanding obligations, and
no attempt at preparing a balance sheet of assets and liabilities.
Accounts and financial statements even for similar institutions
and offices (such as the penitentiaries) are so radically differ-
ent that comparison and deductions are impossible. Without
an adequate system of accounting along similar lines there can
be no effective control over appropriations or expenditures.

Inadequate Advice on Legislation. With the existing lack
of efficient executive organization, both the Governor and the

140

AGENCIES OF PARTICULAR STATES, OFFICIAL

General Assembly fail to receive proper information and ad-
vice as to needed legislation. The constitution provides that
the Governor shall recommend to the General Assembly such
measures as he shall deem expedient. But no machinery has
been provided by which the recommendations and proposals
for legislation from the numerous lists of officers, boards and
commissions can be carefully weighed and sifted by officials
charged with responsibility over a large field of administration.
Conflicting measures are often proposed by different State
authorities ; and many proposals are presented from outside
sources both on subjects within and without the jurisdiction
of existing executive officials. As a result there is no har-
monious legislative policy even formulated ; and the measures
enacted not only lack coherence, but at times acts are passed
at the same session which contain directly contradictory pro-
visions. There is clear need for an executive organization
which will make possible a well-defined administrative pro-
gram of legislation.

Another result of the present methods of legislation has
been the creation of many new and independent authorities,
at an increased expense to the State, where in many cases the
work might have been more efficiently and economically or-
ganized in connection with some existing agency. For ex-
ample, a Fish Commission was established in 1879, and a
separate office of Game Commissioner in 1889. In 1913,
these two authorities were consolidated under the Game and
Fish Conservation Commission; and the appropriations for
this body were $50,000 less than those made two years before
for the two separate authorities.

Irresponsible Government. Finally under the present ar-
rangements while the general public is deluged with printed
reports, it fails to receive reliable information in digestible
form as to the conduct of the State administration, and is
unable to locate definite responsibility for negligence or mis-
conduct in public business. Public opinion usually considers
the Governor responsible for the conduct of the State govern-
ment; but with the lack of effective executive control over the
subordinate officials this opinion is not fully justified. At the
same time, the popular conception of the Governor's responsi-
bility, in the opinion of this Committee, is based on a sound
and just principle; and the machinery of state administration
should be so organized as to enable this conception to be ade-
quately realized.

141

EFFORTS FOR ADMINISTRATIVE REFORM

To correct these conditions the committee made a large
number of very important recommendations. Among these
chief mention should be made that the entire administrative
system of the state be reorganized so as to bring into exist-
ence an integrated system of administration corresponding to
that of the national government, that provision be made for
a strong organ of central financial and administrative control
and that the state definitely adopt a scientific budget system.
These far-reaching recommendations were for the most part
accepted and acted upon by the next General Assembly. By
an act approved March 7, 1917, entitled "An Act in Relation
to the Civil Administration of the State Government," pro-
vision was made for a thorough reorganization of the admin-
istrative branch of the government along the lines recom-
mended by the committee and the adoption of many of the
other recommendations of that body. Specific provision was
also made for the adoption of a budgetary system and a
strong budgetary organ was created for its administration,
under the name of the Department of Finance. As this body
is decidedly an organ of central administrative control and
not merely a research agency, it has been treated under the
part of this volume devoted to such organs.1

PUBLICATIONS

Preliminary report of the Efficiency and economy committee . . .

[Chicago, 1914.] 15 p.

Report of the Efficiency and economy committee created under the
authority of the forty-eighth General assembly, state, Illinois
. . . [December i, 1914.] [Chicago, The Windermere press,
1914.] 80 p. 2 fold, diagrs.

Report of the Economy and efficiency committee . . . [with appen-
dices]. [Chicago, The Windermere press], 1915. 1051 p. 2 fold,
diagrs.
Partial Contents.

Present organization of state government.

Defects of the present arrangement.

Tendencies toward concentration.

Finance administration.

Charitable and correctional institutions.

Educational agencies.

Administration of labor laws.

Agricultural agencies.

Public health administration.

Public works, parks and buildings.

1 See p. 296 ff.

142

AGENCIES OF PARTICULAR STATES, OFFICIAL

State supervision of corporations.

Appendix [No. i]. A report on revenue and finance adminis-
tration, by John A. Fairlie, p. 83-183.
Revenue administration in Illinois.
Finance administration in other states and counties.
State contracts, printing and supplies. (Includes section on

public printing in other states.)
Appendix [No. 2]. A report on the accounts of the state of

Illinois, by George E. Frazer, p. 185-248.
Appendix [No. 3]. A report on accounting administration for

correctional institutions, by Spurgeon Bell, p. 249-339.
Appendix [No. 4], A report on charitable and correctional
institutions, by James W. Garner, p. 341-402. (Includes
section on charitable and penal administration in other
states and countries.)
Appendix [No. 5]. A report on educational administration, by

John M. Mathews, p. 403-485.
Educational administration^ in Illinois.
Educational administration in other states and countries.
State library administration.
Scientific surveys.
Examining boards.

Appendix [No. 6]. A report on the administration of labor
and mining legislation, by W. F. Dodd, p. 487-590. (In-
cludes section on recent legislation in other states.)
Appendix [No. 7]. A report on public administration in rela-
tion to agriculture and allied interests, by James W. Gar-
ner, p. 591-641. (Includes section on agricultural admin-
istration in other states and countries.)

Appendix [No. 8]. A report on public health administration,
by John M. Mathews, p. 643-696. (Includes sections on
relation between state and local authorities, and on state
health administration in New York and Wisconsin.)
Appendix [No. 9]. A report on supervision of corporations
and related business, by Maurice H. Robinson, p. 697-752.
(Includes section on corporation commissions in other
states.)

Appendix [No. 10]. A report on state administration of pub-
lic works, parks and buildings, by C. O. Gardner, p. 753-
865.

Highways.
Water resources.

Fish and game conservation commission.
State control of natural resources.
State parks.

Public buildings and monuments.
Appendix [No. u]. A report on the military department of

the state of Illinois, by Quincy Wright, p. 867-906.
Appendix [No. 12], A report on civil service laws, by A. C.
Hanford, p. 907-938. (Includes section on civil service
laws of the United States and other states.)
Appendix [No. 13]. A report on the Secretary of state and
law officers, p. 939-970.

143

EFFORTS FOR ADMINISTRATIVE REFORM

Appendix [No. 14]. A report on economy and efficiency com-
missions in other states, by A. C. Hanford, p. 971-998.
(Relates to commissions of Massachusetts, New Jersey,
New York, Pennsylvania, Minnesota, and Iowa.)

Appendix [No. 15]. A report on fire insurance rates in Illi-
nois, by Maurice H. Robinson, p. 999-1028.

Appendix [No. 16]. Comparative statement of Appropria-
tions, made by the General assembly, state of Illinois,
compiled by Thomas P. Waters, p. 1029-1051.

Charts.

State executive organization in Illinois, p. 18.
Proposed state executive organization in Illinois, p. 30.

Minnesota: Efficiency and Economy Commission. In 1913
the Governor of Minnesota appointed a commission of thirty
men, so selected as to represent all parts of the state and the
different political and industrial interests, to make a study and
report of the changes that should be made in the administra-
tive system of the state with a view to making such system
more efficient. The commission had no appropriation from
the state. Its members served without compensation and paid
all of their traveling expenses. The funds necessary to meet
general expenses were raised by private subscription.

This commission made two very able reports : one, a pre-
liminary report submitted May 25, 1914; and the other, a
final report submitted in November of the same year. The
recommendations of the commission centered around three
fundamental reforms : ( i ) the thorough reorganization of the
civil administration so as to. provide for the establishment of
a relatively few departments in substitution for the existing
multiplicity of separate agencies; (2) the adoption of a scien-
tific budget system; and (3) the definite establishment of a
merit system to cover all appointments and promotions in the
executive branch of the government.

Regarding the first point, the commission in its prelimi-
nary report said :

The worst faults in the present organization of the state
government — the same is true of practically every state in the
Union — are lack of unity and lack of responsibility. The
government is incoherent. There are a multitude of dis-
connected, unaffiliated departments and bureaus, over which
neither the governor nor the legislature nor the people have
effective control. For want of coordination there is duplica-

144

AGENCIES OF PARTICULAR STATES, OFFICIAL

tion of work and an unnecessary number of employees. The
Commission's plan will assure cooperation between related
offices, fix 'responsibility, and centralize control. Related
bureaus will be grouped under a few executive departments.
Each department will be headed by a single director. The
directors, with two exceptions, will be appointed by the gov-
ernor with the consent of the senate. The governor, the direct
representative of the people, will thus be responsible for the
entire administration. Instead of fifty or sixty independent
governments, there will be one state administration.

Regarding the second, the report said :

The budget system means the substitution of method for
what is little better than madness. It means careful consider-
ation of the expenditures as a whole. It means study of the
relative needs instead of guesswork. This consideration will
begin with the executive, acting as a unit. The governor will
submit to the legislature complete estimates. The legislature
will no longer be assailed by the clamor of individual and even
subordinate officers. It will be in a position to consider the
state's expenditures as one unit made up of related parts.
Haphazard extravagance will give place to systematic con-
sideration of appropriations.

Regarding the third, the report presents the well-known
arguments against the widely prevalent spoils system, and
the advantages of a system under which employees have a
permanency of tenure dependent only upon faithful discharge
of duties, and appointments and promotions are made for
merit alone. It especially brings out the necessity for a merit
system under a regime of centralized responsibility such as
was proposed by the commission in order to provide protec-
tion against a possible abuse of power by the Governor and the
heads of the departments. >

The final report has the especial value in that it contains
the draft of a civil administrative code by which the reforms
recommended might be put into effect.

PUBLICATIONS

Preliminary report of the Efficiency and economy commission; a plan
for reorganizing the executive branch of the state government
in Minnesota. The merit system in civil service, the budget sys-

145

EFFORTS FOR ADMINISTRATIVE REFORM

tern in appropriations. Submitted to the Governor of Minnesota,
A. O. Eberhart, May 25, 1914. St. Paul, 1914. 30 p.
Final report of the Efficiency and economy commission: a proposed
bill for reorganizing the civil administration of the state of
Minnesota, the merit system in civil service, the budget system
in appropriations, with prefatory statement, annotations, and ex-
planatory notes. November, 1914. St. Paul [1914] VII, 89 p.
diagrs.

ARTICLES

Hanford, A. C. The Minnesota Economy and efficiency commission.
(In Illinois. General assembly. Efficiency and economy • com-
mittee. Report. Chicago, 1915. p. 990-93.)

Minnesota: Commission on Reorganization of Civil Ad-
ministration. The reports of the Efficiency and Economy
Commission submitted in 1914 made such a convincing show-
ing of the defects in the existing administrative system of the
state that the legislature, by resolution approved April 21,
1915, provided for the creation of a commission "for the
purpose of investigating the advisability of making changes
in the civil administration of the state, and for the further
purpose of promoting more efficiency and economy in the
various activities of the state." The resolution provided that
the commission should be composed of eleven members : three
to be appointed by the Governor, four by the Lieutenant Gov-
ernor, and four by the Speaker of the House ; and that it should
make its report not later than November 15, 1916.

The report of the commission was in fact submitted at
a later date, and was transmitted to the legislature by the
Governor as an appendix to his inaugural message in 1917.
The report was a very brief one. In the main it contented
itself with an indorsement of the recommendations of the
Efficiency and Economy Commission, though it modifies and
adds to these recommendations in certain respects. Probably
its most important recommendation was that the legislature
provide for the holding of a constitutional convention to the
end that changes might be made in the existing constitution
that would provide for or make possible a thorough reorgani-
zation of the administrative branch of the government On
this point the report reads :

It is further proposed and recommended that the coming
session of the Legislature provide by law, as required by the

146

AGENCIES OF PARTICULAR STATES, OFFICIAL

constitution, for the holding of a constitutional convention.
We in our Work constantly have found that systematic revision
of the departments of state on strictly business principles
cannot well be done under the present constitution, and in
order to accomplish a complete revision and coordination, it is
absolutely essential that the constitution be changed. When
the present constitution was adopted the activities of the state
were limited. Since its adoption the state has increased its
activities more than four- fold and it seems to us to be highly
necessary that a complete revision of the constitution be made
and this we believe best can be accomplished through a consti-
tutional convention.

PUBLICATIONS

Report of Commission on reorganization of civil administration, ap-
pointed by the Governor, Lieutenant Governor and Speaker of
the House. [Nov. 15, 1916?] (In Minnesota. Governor. In-
augural message of Gov. J. A. A. Burnquist to the Legislature,
1917. p. 21-27.)

The report, containing specific recommendations, was published
as a supplement to the Governor's message.

Iowa: Joint Committee on Retrenchment and Reform.

On February 6, 1913, the legislature of Iowa, by joint resolu-
tion, provided for the creation of a Joint Committee on Re-
trenchment and Reform, to be composed of the chairmen of
the committees on ways and means, judiciary and appropria-
tions of the two houses, to investigate the government of the
state with a view to the introduction of reform that would
bring about a more economical and efficient administration of
public affairs. This committee employed the accounting firm
of Quail, Parker & Co. to assist it in its work. Later, by act
of March 17, 1913, the committee was specifically empowered
to employ "expert accountants and efficiency engineers" and
to "institute such changes in the administration of public
affairs as will promote the efficiency and economical admin-
istration of the affairs of the state in its various departments."
LTnder this latter authorization the firm of Quail, Parker &
Co. was employed to make further and more extensive in-
vestigations for the committee.

This firm submitted its final report on December 21, 1913.
Unfortunately this report has never been printed. It consists

EFFORTS FOR ADMINISTRATIVE REFORM

of a closely typewritten manuscript of 841 pages. Previous
reports had been submitted on the Department of Agriculture,
March 25, 1913, and on the heating plant, May 21, 1913.

On November 12, 1914, the committee made a brief pre-
liminary report and announced that a fuller report would be
submitted later. It does not appear, however, that this was
ever done.

The work of this committee and its recommendations as
well as those of the expert accountants are excellently sum-
marized by Professor Frank E. Horack in his "Reorganization
of State Government in Iowa/' which appears as a chapter in
Iowa Applied History Series, Vol. II. The more important
recommendations were for: the introduction of a scientific
budget system; the reorganization of the executive branch of
the government; the creation of the office of state purchasing
agent; provision for an official known as chief accountant;
and the establishment of a civil service commission or bureau
to administer a merit system in respect to the appointment of
all administrative employees.

PUBLICATIONS

Recommendations of the Committee on retrenchment and reform
of the thirty-fifth General assembly to the members of the thirty-
sixth General assembly and the general public. [Nov. 12, 1914.]
Des Moines, R. Henderson, state printer, 1914. 16 p.
This "preliminary report" was published also in the Des Moines

Departments of the state's business.
Department of social progress.
Department of industries.
Department of public safety.
Budget.

Printing and binding.
Legislative.
Automobiles.
Purchasing agent.

Report [and resolution on the Department of agriculture and state
fairs]. (In Iowa. Journal of the Senate, April 4, 1913, p.
1646-48.)

The interim report of Quail, Parker and company, chartered
accountants and efficiency engineers, on the investigation of
the Department of Agriculture is appended to the report. See
p. 1649-67.

148

AGENCIES OF PARTICULAR STATES, OFFICIAL

ARTICLES

Hanford, A. C. The Iowa Committee on retrenchment and reform.
(In Illinois. General assembly. Efficiency and economy commit-
tee. Report. Chicago, 1915. p. 993-97.)

Horack, Frank E. Reorganization of state government in Iowa.
Iowa City, la., state historical society of Iowa, 1914. 88 p.
(Iowa applied history series, ed. by B. F. Shambaugh. [Vol.
II, No. 2.])

Connecticut: State Commission on the Consolidation of
State Commissions and the Reorganization of the Public
Health Laws. On February 9, 1915, Connecticut passed an
act providing for the appointment by the Governor of a com-
mission of nine members, a majority of whom should be mem-
bers of the General Assembly or of existing state or county
commissions, which was directed on or before April I, of the
same year, to submit to the General Assembly a report with
recommendations relative to:

The reorganization and consolidation of the various state
and county boards and commissions with a view to greater
economy and efficiency ; the revision of the public health laws
with the purpose of fixing more definitely the responsibility of
officials, and of eliminating waste and duplication of authority
and of preventive laws, with the purpose of ascertaining
whether the constructive work of medicine and science may
not be more efficient than is possible under present law.

This commission was duly constituted by the Governor,
held numerous hearings at which officials of the several ad-
ministrative services of the state were heard and submitted
a report of something over a hundred pages giving the results
of its findings and the recommendations for action. These
recommendations called for the consolidation or reorganiza-
tion of various services. In most all cases drafts of bills
were submitted to carry out their recommendations.

As a result of the commission's report an act was passed
establishing a State Department of Labor and Factory In-
spection, and legislative action on the other recommendations
is being considered.

PUBLICATIONS

Report of a commission to investigate the advisability of consolidat-
ing certain state boards and commissions and to investigate the

149

EFFORTS FOR ADMINISTRATIVE REFORM

public health laws . . . Hartford, Pub. by the state, 1915. 108

p. fold. tab.

Contents.

Agricultural boards and commissions.

Industrial boards and commissions.

Workmen's compensation commission.

State boards of examiners.

Department of public health and the public health laws.

State tuberculosis commission.

State board of charities.

State board of fisheries and game.

State police.

Shell-fish commissioners.

Appendix : Exhibits.

Kansas: Efficiency and Economy Committee. By a joint
resolution of March 20, 1915, the Kansas legislature made
provision for a committee of three, one to be elected by the
Senate, one by the House, and one appointed by the Governor,
"to investigate in the most searching way the business man-
agement of every institution and department in Kansas. "

In a so-called "partial" report, made in December, 1916,
this committee recommended a scientific budgetary procedure
for the state, and various other changes of the state's admin-
istrative system, including the creation of a commission on
administration dealing with educational, charitable and cor-
rectional institutions; a uniform system of accounting; a cen-
tral store and purchasing agent; and the consolidation of all
agencies pertaining to agriculture into a department of agri-
culture.

In 1917 it made a special report on the educational insti-
tutions of Kansas.

In the same year, Mr. J. O. Joseph, Senate member of
the committee, printed a special report giving the results of
his personal examination of state institutions and depart-
ments and his recommendations for reform. Appended to his
report were drafts of bills prepared by him having for their
purpose the putting into effect of his recommendations. They
related to such matters as a budget system, a central stores
system, uniform accounts, appointments for fitness and re-
moval for incompetence and procedure in the offices of the
state treasurer and auditor.

150

AGENCIES OF PARTICULAR STATES, OFFICIAL

PUBLICATIONS

Partial report of the Efficiency and economy committee of Kansas.
Dec. 16, 1916. Topeka, Kansas state printing plant, 1916. 12 p.

Report of the Efficiency and economy committee on the educational
institutions of Kansas. [Topeka? 1917?] 12 p.

Report of the Efficiency and economy committee on the penal, char-
itable and other institutions of Kansas. [Topeka? 1917?] 10 p.

Economy and efficiency report of Senator J. D. Joseph, senate mem-
ber of Efficiency and economy commission. [Topeka, 1917.] 76
p. fold, map, fold, charts.

Alabama: Legislative Investigating Committee. In 1915
the legislature of Alabama provided by joint resolution for
the creation of a "Legislative Investigating Committee," with
the duty of investigating and ^reporting the steps that should
be taken to put the administration of governmental affairs
upon a more efficient and economical basis. This committee,
after examining over twelve hundred witnesses and making
special inquiries regarding the conduct of public affairs, sub-
mitted its report on July 13, 1915.

Upon the fiscal side the committee found conditions to
be exceedingly unsatisfactory. The report reads :

An examiner of accounts, as he goes from department to
department, is confronted with different conditions and differ-
ent systems. A lack of uniformity results in a loss of effi-
ciency. Embezzlement of public funds, unauthorized expendi-
tures of public moneys, gross extravagances, misuse of official
trust, and graft, large and petty, to which we shall hereafter
call attention, can for the most part be traced to a total lack
of system. A business corporation or man, following sim-
ilar methods, would meet certain bankruptcy. . . . Our
first recommendation, therefore, is that there be employed,
through a commission provided for in a bill herewith sub-
mitted, the most competent certified public accountant that
can be obtained ; that this accountant be authorized to put the
State of Alabama on a systematic basis at once, that the book-
keeping, the payment of funds, the record of receipts and
disbursements be modernized, simplified-, and made uniform
throughout all the departments of the state and throughout
such offices of the counties as handle state funds, and as are
subject to state supervision.

EFFORTS FOR ADMINISTRATIVE REFORM

The report then goes on to recommend the establishment
of a state budget system, submitting a draft of a bill for the
purpose.

Other recommendations deal with fidelity bonds, codifi-
cation of the laws, public printing, convict labor, immigration,
state purchasing, confederate pensions, and some other mat-
ters. Especially unsatisfactory were the conditions found \n
the Department of Agriculture and Industries. "In this De-
partment," the committee says, "we have found evidence of
spoil, graft and corruption. The department of pure food
and drugs during the past four years, instead of being used
for the purpose of protecting the public from impure foods
and drugs, has served as a means for a systematic scheme of
robbery and thievery."

In conclusion the committee asks that it be continued in
order to complete its investigations.

PUBLICATIONS

Report of the Legislative investigating committee to the Legislature
of 1915. July 13, 1915. Montgomery, Brown printing company,
state printers, 1915. 58 p. (Legislative document No. 13.)
A summary of the report was printed in the Montgomery Adver-
tiser, July 14, 1915.
Contents.

General conditions.

State budget system.

Legislative.

Code commissioner.

Convict department.

Department of agriculture and industries.

Immigration department.

State game and fish commissioner.

Attorney General's office.

Educational department.

Military department.

Railroad commission.

Archives and history department.

Expenditures for printing.

State purchasing department.

Miscellaneous.

Colorado: Survey Committee of State Affairs. In 1915

the legislature of Colorado provided for the establishment of
a committee with the function of making a survey of the or-
ganization and methods of business of the state government

152

AGENCIES OF PARTICULAR STATES, OFFICIAL

with a view to the formulation of suggestions having for their
purpose the improvement of the manner in which public affairs
were being conducted.1 This committee called to its assist-
ance experts in administration in various fields and undertook
a very systematic survey of the state government and its
methods of administration. In addition to submitting certain
special reports it submitted in December, 1916, a "Summary
of Findings and Recommendations relating to the Executive
Branch of the State Government of Colorado/' which, though
brief, was a very able diagnosis of the ills of that branch of
the government and contained excellent recommendations for
their correction.

Among the latter the most important were for the integra-
tion of the administrative services, the increase in the powers
of the Governor as head of the administration, and the intro-
duction of a scientifically devised budget system.

Recommendations were also made with regard to account-
ing, auditing, and reporting of public revenues and disburse-
ments, and the custody of public funds; with regard to the
regulation and supervision of labor, the control of corpora-
tions, public works, purchasing methods, care of dependents,
delinquents and defectives, the protection of game and fish,
and with regard to a number of other services and activities
of the state.

The Survey Committee also issued in 1916 a report on
"The Work of the Colorado Tax Commission," prepared for
it by Professor R. M. Haig, of Columbia University, with a
letter of comment by Professor E. R. A. Seligman. The aboli-
tion of the Tax Commission was then under consideration in
the Colorado legislature, which action Professor Haig deemed
would be unwise, the accomplishments of the commission fully
justifying its continuation. In this conclusion Professor
Seligman concurred.

For the purposes of discussion, but without any recom-
mendation, the Survey Committee issued in 1917 the draft
of a highway law for the state.

1 Colorada, Acts, 1915, Ch. 161.

153

EFFORTS FOR ADMINISTRATIVE REFORM

PUBLICATIONS

Reports. [Prepared for the Survey committee of state affairs of

Colorado.] [Denver, Brook-Haffner press.] 1916.

No. i. Report on a survey of the Office of governor of the
state of Colorado.

No. 2. Report on a survey of the Office of secretary of state
and on public control of corporations, including Pub-
lic utilities commission, state bank Commissioner,
Department of insurance, Bureau of building and
loan associations, General corporation licensing and
control, commission merchant inspectors . . .

No. 3. Report on a survey of the Office of auditor of state
and of the Office of public examiner.

No. 4. Report on a survey of the Office of state treasurer.

No. 5. Report on a survey of the State auditing board.

No. 6. Report on a study of state finances and budget pro-
cedure.

No. 8. Report on a survey of the administration of public
service functions relating to regulation and super-
vision of labor.

No. 9. Report on a survey of the Department of game and
fish.

No. ii. Report on a survey of the Office of the state inspector
of oils.

No. 13. Report on the revenue system of the state of Colorado ;
criticism and suggestions [by R. M. Haig].

No. 16. Report on care of dependents, delinquents and defec-
tives including reports on The care and treatment
of the insane of Colorado, by S. W. Hamilton;
A study of the mental condition of the four Colo-
rado institutions for minors, by W. S. Treadway;
The management of three Colorado institutions for
minors, by Alexander Johnson; The State board of
charities and corrections, by Alexander Johnson.

No. 18. Summary of findings and recommendation relating to
the executive branch of the state government of
Colorado as submitted to the Survey committee of
state affairs of Colorado by its staff. Dec., 1916.
48 p.
Draft of a proposed highway law for Colorado prepared under

the direction of the Survey committee . . . [Denver, 1916?]

23 P-

The work of the Colorado tax commission. A report prepared for
the Survey committee of state affairs, state of Colorado, by
Robert Murray Haig . . . with letter of comment by Edwin R.
A. Seligman . . . n. p., 1916. 54 p.

Virginia: Commission on Economy and Efficiency. An
act approved March 16, 1916, provided for the appointment
of a commission to be composed of a member of the Senate,

154

AGENCIES OF PARTICULAR STATES, OFFICIAL

two members of the House of Delegates and two citizens to
be appointed by the Governor, which should be charged with
"the duty of making a careful and detailed study of the or-
ganization and methods of the State and local governments
of the Commonwealth of Virginia and with reporting to the
next General Assembly of Virginia in what way the state and
local governments can be more efficiently and economically
administered."

This commission, though it had but a short time in which
to make its investigations and had at its disposal only the
small sum of $1,000, submitted to the legislature on January
9, 1918, an unusually able report. This report does two
things : it furnishes, through the use of outlines and charts,
a comprehensive picture of the organization of the state gov-
ernment, and sets forth in succinct form its recommendations
of the steps to be taken to improve the administration of public
affairs.

The first of these, the report points out, reveals at a glance
"the administrative weaknesses of our constitutional form of
government. Authority and responsibility are diffused instead
of being placed where a definite official can be held to account
for the administration of the state's affairs. The people elect
a group of purely administrative officers who are responsible
in actual practice to no one, these officials being accountable
in the same way the Governor is, but are not of sufficient im-
portance to the average citizen for him even to remember the
name of the official two weeks after the elections. Another
group of similar officials are elected by the General Assembly.
There are next a vast variety of offices, some of a purely local
character, that are filled by the Governor. Numerous special
boards, commissions, bureaus and other agencies, some exer-
cising large powers, are tacked on here and there to our gov-
ernmental structure, and duplication of functions and over-
lapping of work and powers occur in many instances."

Centering its attention on the more important causes of
the unsatisfactory condition of affairs which it found, the com-
mission adverted first of all to the manner or method by
which the administrative system had been built up. "A large
number of departments, bureaus, or other agencies have been

155

EFFORTS FOR ADMINISTRATIVE REFORM

added to the constitutional structure from time to time with-
out regard to functional relation to existing agencies. No at-
tempt has been made to coordinate functions, make adjust-
ments, nor establish proper executive control."

The commission, therefore, strongly urged an increase in
the controlling powers of the Governor, making him in fact
the effective head of the administrative service.

A better supervision and standardization of accounts, the
abolition of fees, collective purchasing, self-insurance of state
buildings, and centralization of educational control were
among the other recommendations of the commission.

As in the case of most of the state commissions of economy
and efficiency, first place, however, was given to the recommen-
dation for the adoption by the state of a proper budget sys-
tem. After a study of the budgetary legislation of all the
other states, the commission prepared the draft of a bill pro-
viding for such a system and had the satisfaction of seeing it
unanimously adopted by the legislature without change. This
result was in no small degree due to the strong support given
to the bill by the Governor, Hon. Westmoreland Davis, who,
indeed, had made his campaign for election on this issue.

PUBLICATIONS

Report of the Commission on economy and efficiency to the General
assembly, January 9, 1918. [Richmond, Richmond press, inc.,
printers. 1918.] 67 p. 3 fold, diagrs.
Contents.

General plan of work.

Outline of the functional organization of the state government.

Organization of the legislative department [with chart].

Organization of the judiciary department [with chart].

General outline of the organization of the executive depart-
ment [with chart].

Budget system.

Supervision of accounts.

Standardization of expense accounts.

Uniform fiscal year.

Abolition of fees.

Uniform office hours.

Leave of absence.

Special attorneys and inspectors.

Location of offices.

Public buildings and grounds.

Collective purchasing.

State insurance.

156

AGENCIES OF PARTICULAR STATES, OFFICIAL

Civil service.

Study of the public school system of Virginia.

Commission on economy and efficiency.

Louisiana: Board of State Affairs. On July 5, 1916, Louisi-
ana passed an act providing for the creation of a body to be
known as the Board of State Affairs. Though this board was
created in the first instance to take over the duties of the State
Board of Appraisers and the State Board of Equalization,
which were abolished, it had conferred upon it new powers
which, in effect, made of it an official economy and efficiency
board with the duty of investigating and submitting recom-
mendations regarding the organization and administration of
all government departments vand institutions, and also a
budgetary organ with the duty of preparing the budget of
revenues and expenditures for consideration by the legislature.
It is composed of three members appointed by the Governor,
by and with the advice and consent of the Senate, for a term
of six years.

The statute creating this board, in addition, as above stated,
to making it the organ for formulating the budget, declares
that it shall be the duty of this board :

(1) To investigate duplication of work of public bodies,
the efficiency of the organization and administration of such
public bodies and to formulate and recommend to the General
Assembly plans for the greater coordination of such public
bodies and the improvement of state administration in general.

(2) To investigate the feasibility of a central Board of
Control for all public educational institutions, the same for all
public charitable and eleemosynary institutions ; with particular
respect to the business administration of such institutions.

(3) To investigate the efficiency and cost of state
printing.

(4) To investigate and report upon the feasibility of
establishing a central purchasing, sales and exchange bureau,
under the control and direction of this Board, for the purpose
of purchasing all supplies and materials for and selling or
exchanging all the products of, such public bodies.

(5) To investigate other matters for the purpose of
bringing about greater efficiency and economy in every public

157

EFFORTS FOR ADMINISTRATIVE REFORM

body advancing the economic betterment of the state, and of
promoting the public welfare.

The results of the investigations herein required shall be
printed and placed in the hands of the members of the Gen-
eral Assembly and the heads of all public departments and
public institutions at least sixty (60) days before the meeting
of said General Assembly in 1918; and, at the discretion of
the Board, such reports shall be biennially made thereafter.

PUBLICATIONS

First annual report of the Board of state affairs . . . for the year
1917. April 15, 1918. Baton Rouge, 1918. 366 p.
Bound with this: Legislative recommendations made by the
Board of state affairs to the General assembly of Louisiana
for the regular session of 1918. Baton Rouge, 1918. 37 p.

Texas: Joint Legislative Investigating Committee. In
1917 the two houses of the legislature of Texas, by separate
resolutions, provided for the creation of committees of three
members each to make a thorough investigation of all the
departments of the government and state institutions and to
report their findings with recommendations. These two com-
mittees, which met as a joint legislative committee, made
their inquiries in conjunction with each other and sub-
mitted on February i, 1918, a joint report to the two houses.
In this report each department and state institution is con-
sidered in turn. In the case of practically all they found
room for great improvement, and radical measures of reform
were submitted. The report estimated that if its recommen-
dations were adopted a saving of nearly a million dollars an-
nually would be secured.

In prosecuting its inquiries the legislative committee made
use of ten subcommittees. It is reported that the reports of
these subcommittees, which make a more detailed showing of
conditions than does the report of the parent committee, are
in process of being printed and will shortly be available for
distribution.

PUBLICATIONS

Report of the Committee of the Senate and the Central executive
committee of the House of representatives, composing a legisla-
tive committee to investigate the departments of the state gov-

158

AGENCIES OF PARTICULAR STATES, OFFICIAL

ernment and the state institutions . . . Feb. i, 1918. [Austin,

1918.] 58 p.

Published also in [Texas] House journal, March n, 1918, p.
261-91, with title: Joint report of central investigating com-
mittee appointed by the Senate and House of representatives
of the Thirty-fifth legislature.

Oregon: Consolidation Commission. Under a resolution
enacted by the legislature of Oregon in 1917 there was ap-
pointed by the Governor a Consolidation Commission com-
posed of seven business men for the purpose of conducting
''thorough investigation of the several offices, boards, commis-
sions and departments of the state as to the scope, nature and
importance of the different branches of the work performed
by each, and that the above mentioned commission be required
to make a complete and comprehensive report of its findings,
together with such recommendations as to consolidation, econ-
omy and efficiency, as they may find feasible, to the next reg-
ular session of the legislative assembly." The commission
employed an expert to make the actual investigation of the
administrative departments and to formulate its report. The
commission found that no efficient and businesslike adminis-
tration of state affairs in Oregon could be expected unless some
one officer, who should be fully responsible to the people, could
control all the important departments of the administration.
It was held that the Governor was the logical officer to fill this
position, but he did not do so under existing conditions be-
cause, in the first place, the administration was split up into
too many departments for the Governor to exercise adequate
control over them, and, in the second place, there were too
many elective officers, with the result that there were in reality
many governors in the state instead of one. In order to rem-
edy the first of these difficulties, the commission recommended
that the separate administrative agencies, of which there were
about seventy which had been created by the legislature from
time to time without system or coordination, should be con-
solidated into eleven main departments, which should include
all such agencies with the exception of the proposed state
civil service commission and the state police. In order to
remedy the second of these difficulties, the commission recom-
mended that, in so far as feasible within the limits of the con-

159

EFFORTS FOR ADMINISTRATIVE REFORM

stitution, the short ballot should be introduced through the
elimination of unnecessary elective officers.

One of the most pressing problems in Oregon for some
time has been that of the proper organization of state control
over its institutions of higher education. The State Univer-
sity, the State Agricultural College and the State Normal
School are located at different places in the state, the situation
in this respect being similar to that in Iowa. The question has
been whether to continue the separate boards or to consolidate
the institutions under the control of a single board. The
report of the commission, as formulated by its expert, recom-
mended that what was called the ' 'three-in-one plan" should
be introduced as a compromise, whereby there should be a
state board of education of nine members, to be composed
of three institutional committees of three members each, one
committee for each of the three institutions. These commit-
tees were to appoint the presidents and faculties of their re-
spective institutions and to attend to local and special matters,
while the three committees together, composing the whole
state board of education, were to attend to matters affecting
more than one of the institutions, such as formulating requests
for any appropriations needed above the proceeds of the mill-
age tax and taking over the functions of the Board of Higher
Curricula in eliminating, so far as possible, duplication of
work among the several higher educational institutions.

The commission also recommended the adoption of an
executive budget system. Its recommendations on this head
were as follows :

There should be concentrated responsibility for the esti-
mates, and this can properly be assumed only by the governor,
as the head of the administration. It is, therefore, recom-
mended that the preparation of the budget and its transmission
to the legislature be placed in the hands of the governor, or in
those of some officer appointed by him, and subject to his
supervision and control. If the governor is to be required to
assume the responsibility for the estimates in the budget, it
follows as a logical corollary, that he must be provided with
adequate means for scrutinizing the estimates as they come to
him from the heads of departments, and for giving them study
and criticism, so as to prune them to the proper proportions

1 60

AGENCIES OF PARTICULAR STATES, OFFICIAL

in view of the general financial condition of the state. It is
recommended that the state tax commissioner, who is an ap-
pointee of the governor and subject to his control, should be
entrusted with the preparation of the budget under the super-
vision of the governor. The tax commissioner should be fur-
nished with the necessary clerical assistance in compiling the
estimates. When finished, however, the budget should be
transmitted to the legislature with the authority of the gov-
ernor behind it.

Other States. As has already been stated, the legislatures of
the several states are all the time creating special committees
to investigate and report upon the work of particular depart-
ments of the government and state institutions. It is mani-
festly impracticable, even to Hst, and much less to describe,
the work of all of such committees. Mention might, however,
be made of the following committees, the appointment of
which has come to the attention of the author in the prepara-
tion of this report.

The legislature of South Dakota provided for the ap-
pointment of a Joint Committee on Investigation of State Ex-
penditures and the System of Accounting and Reporting. The
report of this committee was made in 1915 and was published
in the Journal of the House, February 25, 1915.

Mississippi provided for a joint committee of the two
houses of the legislature to investigate its several adminis-
trative departments and state institutions, the report of which
was published in 1913 in a pamphlet of 132 pages.

The Ohio legislature in 1915 provided for a similar com-
mittee to investigate state departments and institutions, the
report of which was published in Volume V of the Senate
Journal, 1915.

161

CHAPTER IV

AGENCIES FOR INVESTIGATING THE ADMINIS-
TRATION OF PARTICULAR STATES : UNOFFICIAL

Comparatively little progress has been made in the way of
the establishment under unofficial auspices of institutions hav-
ing for their sole purpose the promotion of efficient state ad-
ministration. There is, in fact, no institution coming properly
under this head. The two agencies described in the subse-
quent paragraphs of this chapter are included merely be-
cause of their close relation to the problem of state adminis-
tration. One concerns itself chiefly with matters of legislation ;
the other was a temporary body created to investigate the
problem of budget reform.

In the succeeding chapter, however, account is given of
two agencies which attempt to occupy the field of state and
municipal administration simultaneously. In addition, note
should be taken of the fact that some bureaus of municipal
research, in spite of the fact that they have been established
primarily for the purpose of improving methods of adminis-
tration of particular cities, have concerned themselves to a
greater or less extent with matters of state administration.
This is particularly true of the New York Bureau of Munici-
pal Research, whose activities in this field have been very im-
portant.

New Jersey : Bureau of State Research, State Chamber of
Commerce. The State Chamber of Commerce, organized
in 1912, has for its primary object to provide its members and
the citizens of New Jersey with facts affecting the public wel-
fare.

The membership consists of two classes of individual mem-
bers, sustaining and associate, limited in number, and dis-

162

AGENCIES OF PARTICULAR STATES : UNOFFICIAL

tributed over the state according to population as apportioned
by the congressional district. The number eligible to each
class of membership is determined by the fixed ratio of one
member to five thousand population. Civic, commercial or
agricultural associations of New Jersey may become affiliated
in the chamber as federated members. The annual dues of
sustaining members are $100 and of associate members $25.
Its headquarters are at Newark.

In 1915 the Bureau of State Research was organized as a
separate department of the chamber and given primary charge
of investigations and the collection of information. It has
a director, an advisory committee, a secretary, and a staff
of trained investigators.

The work of the bureau has consisted, in the main, of pub-
lishing a weekly Legislative Index during the annual session
of the legislature, supplying special legislative service, analyz-
ing bills, and conducting legislative investigations throughout
the year.

In the preparation of the Legislative Index, expert inves-
tigators are in attendance at Trenton and report the proced-
ure of all sessions of the legislature. The reports of these
investigators are published each week in the form of brief
digests of the contents of each bill introduced, and a record
of each step of its progress, and a current subject index of
these bills are kept. The Legislative Index also contains each
week an analysis of some one or more of the important meas-
ures before the legislators. The Legislative Index thus serves
as a medium by which citizens can watch legislation.

In addition to the information contained in the weekly
Legislative Index, a daily service is furnished to a number of
civic organizations and individuals throughout the state,
whereby information is given on form cards from day to day
of the progress of measures in which the recipients are par-
ticularly interested. These cards are marked and mailed to
the recipients direct from Trenton by the bureau's investiga-
tors in attendance at the meetings of the legislature. In some
instances this information is conveyed by telephone.

Investigations are made by the bureau from time to time
of as many subjects awaiting study as can be handled. These

163 '

EFFORTS FOR ADMINISTRATIVE REFORM

investigations are intended to bring out such facts as will es-
tablish bases upon which the Chamber of Commerce can
make recommendations to the legislature. The regular pro-
gram of investigations of the bureau is determined each year
by the trustees of the Chamber of Commerce.

Since its organization the subjects of investigation by the
bureau have been : the state rural police patrol, corporation
audits, the state budget, the Torrens system, workmen's com-
pensation, the "full-crew" law, and good roads.

A bill designed to create a state police in New Jersey sim-
ilar in character to that which has existed in Pennsylvania
since 1905 was introducted at the legislative session in 1914
and again in 1915. To supply the information necessary to
act intelligently upon this proposed legislation, statistical data
were tabulated by the bureau, showing the prevalent crimes
in each county and the number of unapprehended criminals,
the opinions of the prosecutors of the pleas, the sheriffs and
the granges, and a record was made of the causes and extent
of forest fires, so that a complete analysis for the entire state
could be made of the existing need, if any, for a rural patrol.

In view of proposed legislation designed to protect in-
vestors in the securities of New Jersey corporations by re-
quiring the regular examination of the books of all corpora-
tions by certified public accountants, to be elected by the
stockholders, a study was made by the bureau of this entire
subject, and it was found that any legislation of this charac-
ter would conflict at so many points with the existing stat-
utes that it would be advisable to make a complete investiga-
tion of the present control and regulation of New Jersey cor-
porations before introducing any new elements of uncertainty
into an already complicated situation.

To facilitate the practical operation of the budget system
which was provided for by law in 1915,' and to eliminate many
evils of the old system, the bureau has tabulated the itemized
appropriations of 1914, 1915, and 1916 in order to show the
variations which occur from year to year in the distribution
of the state's revenue. The State Chamber, by calling at-
tention to New Jersey's antiquated fiscal procedure through
its publications and the daily press, has been instrumental in

164

AGENCIES OF PARTICULAR STATES : UNOFFICIAL

creating a state-wide sentiment for this advanced piece of
financial legislation.

At the request of the Real Estate Board and the Building-
Loan League the bureau made an analysis of a bill which
would allow any New Jersey owner the option of register-
ing his title under a Torrens law. This analysis was ac-
companied by a brief history of the Torrens Acts and a
resume of the decisions of the courts on their constitutional-
ity in the several states.

The matter of workmen's compensation had the attention
of the state of New Jersey for several years, and the State
Chamber gathered facts pertinent to a complete and unbiased
consideration of the question.

The State Chamber has conducted a thorough investiga-
tion of the operation of the "full-crew" legislation, with par-
ticular reference to the law in New Jersey.

The State Chamber is endeavoring to find out the exact
road conditions brought about by modern conditions in order
to recommend to the legislature an efficient road policy.

The New Jersey Chamber of Commerce issues a weekly
bulletin, a feature of which is the Legislative Index above
mentioned. It has issued several printed reports of investi-
gations and pamphlets and folders explaining its work.

PUBLICATIONS

State research . . . Consecutive numbers.
Contents
No. i. The administration of the full-crew law, etc., 1917.

I31?-

No. 2. The state police problem in America. 1917. 210 p.

No. 3. The New York state troopers. Oct. 1917.

No. 4. The operation of the New Jersey budget law. Oct.
1917.

No. 5. [State officials.] Nov. 1917.

No. 6. The Pennsylvania state police. Nov. 1917.

No. 7. Unknown.

No. 8. Report of the pension and retirement fund commission.
Dec. 1917.

No. 9. Why New Jersey needs a state police. Dec. 1917.

No. 10. Teachers' retirement systems in New Jersey, their fal-
lacies and evolution. Introduction and part I. Feb.
1918.

No. ii. Police, firemen's and other local employees' pension
systems in New Jersey. Feb. 1918.

165

EFFORTS FOR ADMINISTRATIVE REFORM

Legislative and investigative work completed and planned, 1916.
A state highway system versus old laws and good roads. July, 1916.
16 p.

Maryland : Commission on Economy and Efficiency. The
Maryland Commission on Economy and Efficiency was of a
unique character due to the unusual circumstances under
which it was created. Both the Democratic and Republican
parties in their campaign of 1915 pledged themselves to sup-
port the introduction of a budget system for the state. The
Democratic Convention, however, went further than this, and
provided for the creation of a Commission on Economy and
Efficiency which should have as its special work the devising
of a specific proposal for the accomplishment of this reform.
This commission was duly constituted with President Frank
J..Goodnow of the Johns Hopkins University as its chairman.
This commission made a brief but exceptionally able re-
port which the Democratic Governor, Emerson C. Harring-
ton, transmitted to the Senate, recommending favorable ac-
tion upon its recommendations. The report though emanat-
ing from a private body was thus published as a public docu-
ment. This report led to the adoption by Maryland of an
amendment to the state constitution providing for the intro-
duction of a budget system.

PUBLICATIONS

Report of the Commission on economy and efficiency on a budget
system. Jan. 28, 1916. (In Baltimore. Dept. of legislative ref-
erence. The Maryland budget amendment. 1917. p. 7-13.)
Reprinted from the Maryland Senate Journal, Jan. 28, 1916, p.
129-34.

Other States. The foregoing it is believed represent all agen-
cies which have been created by private effort having for their
principal purpose the study of the problem of state admin-
istration with a view to the promotion of measures of reform.
Other privately organized bodies, however, give more or less
attention to this subject. Among these special mention, by
way of illustration, might be made of the Taxpayers Associa-
tions of California and New Mexico.

166

CHAPTER V

AGENCIES FOR INVESTIGATING THE STATE AND

LOCAL ADMINISTRATION OF PARTICULAR

STATES : UNOFFICIAL

In two states — Ohio and Maryland — unofficial agencies
have been created for the study of both the administration
of state and local affairs in those states. This type of unof-
ficial organization is of especial interest in that no official
agency of the same scope has been established by any .state;
although as will be set forth in a subsequent section official
reference services covering both the state and municipal field
have been established in several states.

Ohio: Institute for Public Efficiency. The Ohio Institute
for Public Efficiency was incorporated in 1913 and began
operations in January, 1914. The governing body of the in-
stitute is a board of nine trustees. Its headquarters are at
Columbus.

The work done for state administration and legislation is
supported by contributions of public-spirited citizens and or-
ganizations ; work done for counties, municipalities and school
districts is paid for by local authorities, organizations or in-
dividuals. The purpose of the organization, as stated in
its articles of incorporation, is : "To advance public welfare
( i ) by promoting the efficiency and adequacy of government,
through the ascertainment and application of scientific stand-
ards and principles and otherwise; (2) by continually and
systematically informing public opinion upon public affairs;
(3) by promoting the cooperation, coordination and efficiency
of civil, social, and charitable organizations; (4) by educat-
ing persons in the theory and practice of public efficiency and
preparing them for efficient public service; and by any other
means that may be deemed proper and necessary."

EFFORTS FOR ADMINISTRATIVE REFORM

Two departments have been organized, namely, the Ac-
counting and the Social Service Departments, eaeh in charge
of a director.

The Accounting Department devotes its principal efforts
to perfecting and installing efficient accounting, budget, pur-
chasing methods, etc.

The object of the Social Service Department is the "pro-
motion of a program for Ohio leading to : ( i ) ultimate elim-
ination, as far as possible, of dependency and delinquency as
forms of social waste; and (2) the establishment of progres-
sively higher standards of living." This is done by "investi-
gation of conditions underlying and causing dependency, de-
linquency, and low standards of living; framing and promot-
ing measures for the removal of such causes; and promoting
efficiency of administration in public and private institutions,
departments, and agencies which affect social conditions."

The most important items of work done by the institute
since its organization, either under engagement for local civic
and social organizations, or directly upon its own responsibil-
ity, have been as follows:

With the cooperation of the county auditor and treasurer,
a study was made of the Cuyahoga County accounting methods
for the Cleveland Civic League, and recommendations for an
improved system were presented.

An analysis of the financial conditions and a review of
the general organization and methods of the Cleveland As-
sociated Charities were made for that organization and the
Cleveland Federation for Charity and Philanthropy. Recom-
mendations relating to accounting and reporting methods were
approved and adopted.

An improved general municipal accounting system was
outlined for Akron, Columbus and Toledo. Based on this
outline, a procedure using recent labor-saving devices was in-
stalled by the institute in Akron in behalf of the Akron Bu-
reau of Municipal Research. A longhand procedure worked
out by the State Bureau of Accounting was installed by it in
Columbus and Toledo.

New budget estimate methods were prepared for Columbus
and Toledo, which were substantially adopted.

168

AGENCIES OF PARTICULAR STATES, UNOFFICIAL

Extensive cooperation was afforded the State Bureau of
Accounting in the preparation of a new standardized clas-
sification of expenditures, adapted for use by state depart-
ments, cities, counties, school districts and townships. The
elasticity of this classification enables it to be contracted or
expanded according to the needs of the governmental unit
classifying it. The new classification is now in use in three
cities and one school district and is to be promulgated for
all Ohio cities.

The principal features of centralized purchasing proced-
ure were outlined and submitted to the new central purchas-
ing departments created by charter in Columbus and Toledo.

An analysis of the financial condition of the city of Toledo
was prepared for, and published by, the Toledo Commerce
Club. A similar analysis for Columbus was published by the
Columbus Bureau of Municipal Research.

A recommendation for a more definite policy in munici-
pal electric light plant expenditures in Columbus was sup-
ported by the Chamber of Commerce and acted upon favor-
ably by the city council.

A recommendation was made to, and approved by, the
Columbus City Council, for doing away with unnecessary
surety bonds.

A study of certain phases of public school policy was made
for the Columbus Chamber of Commerce.

City charter studies were made for the Cincinnati Bureau
of Municipal Research.

An analysis was made for the Marion Township Manu-
facturers Association of the causes for the marked increase
in the tax rate in that township.

With the cooperation of the state librarian and his staff,
a study was made and submitted of the functions, organiza-
tion, and procedure of the state library.

A clearing house has been organized for information con-
cerning current civic and social activities in Ohio.

As indicated above, the services of the institute have been
employed by the following organizations : The Civic League
of Cleveland, the Cleveland Federation for Charities and
Philanthropy, the Cleveland Associated Charities, the Toledo

169

EFFORTS FOR ADMINISTRATIVE REFORM

Commerce Club, the Columbus Chamber of Commerce, the
Columbus Bureau of Municipal Research, the Cincinnati Bu-
reau of Municipal Research, the Marion Township Manufac-
turers Association, and the Akron Bureau of Municipal Re-
search.

The institute in the course of its work has met with the co-
operation of most of the public officials with whom it has
had to do, and a number of its recommendations have been
approved and acted upon.

Through the Department of Social Service, whose opera-
tions began July i, 1916, the institute initiated a campaign
for the more adequate care of the feeble-minded and pre-
ventive control of f eeble-mindedness ; conducted a study of
the local conditions of Portsmouth, Ohio, and made recom-
mendations with respect to charitable relief, delinquency,
housing and health; and, in cooperation with the Industrial
Commission, prepared bills and urged legislation to regulate
more satisfactorily the private labor agencies and prohibit
job selling in industrial establishments.

PUBLICATIONS

First annual report of the Ohio institute for public efficiency for the

year ending October 31, 1914. (typewritten). 6 p.
Second annual report . . . for the year ending October 31, 1915.

. [5l P-

Third annual report . . . for the year ending October 31, 1916. 14 p.
Fourth annual report . . . for the year ending October 31, 1917. 15 p.
Financial statement as at October 31, 1916. Folder.
Social legislation enacted by the eighty-second General assembly

of Ohio. April, 1917. [5] p.
Accounting program.
Social service program.
Toledo city finance.

[Leaflets relating to mental defect as cause of dependency and de-
linquency.]

For example.

Mental disorders.

Ohio's 80 per cent deficit.

Speaking of economy — look at Anne's board bill.

Three generations.

Too many husbands to remember.

ARTICLES

Croxton, Fred C. The Ohio institute for public efficiency, its rela-
tion to health departments. Other public health journal, Feb.,
1917, v. 8: 73-75.

170

AGENCIES OF PARTICULAR STATES, UNOFFICIAL

Miles, Rufus E. The Ohio institute for public efficiency. 1916.
12 p.

Reprinted from "Citizen agencies for research in government,"
the issue of Municipal research, No. 77, for Sept., 1916.

Social community planning for Ohio. Survey, July 15,

1916, v. 36: 413.

Maryland : Bureau of State and Municipal Research. The
Bureau of State and Municipal Research, located in Balti-
more, Maryland, was organized in the fall of 1912. It was
never incorporated but has conducted its work under the im-
mediate direction of the principal contributors. The organ-
ization has followed the usual bureau methods and has at-
tempted efficiency studies in connection with city departments
and state institutions. It has also done considerable work
in connection with investigations for local social bodies.

The scope of the bureau's activities is indicated by the
following list of its reports.

PUBLICATIONS

Report No. I — Baltimore, 1916 —

No. i. The inspection of weights and measures in Baltimore

city. 1916. 30 p.
No. 2. The Baltimore budget.

Part I. A study of the ordinances of estimates from

1900 to 1913. [13] p.
No. 3. The Business organization and methods of Springfield

state hospital for the insane. 1913.
No. 4. City of Baltimore, balance sheets 1911, 1912; General

accounts 1912, 1913. 13 p.
No. 5. Institutional supplies. 1913. 64 p.
No. 6. Accounting in the appeal tax court and collector's

office. 1913.
No. 7. Business methods of the Baltimore police department.

1917. 31 p.
No. 8. Organization and work of the Office of the inspector

of buildings. 1913-1914. 2 parts, ms.
No. 9. Accounting methods of Baltimore city as illustrated in

the report of the Comptroller. 113. ms.
No. 10. The purchase of coal by institutions. 1914. 66 p.
No. ii. (No report issued having this number.)
No. 12. Notes on duties of a municipal purchasing agent. 1915.
No. 13. Baltimore police department. Additional criticisms and

recommendations with proposed changes in forms,

records and clerical procedure. 1916. ms.
No. 14. Present and proposed methods of handling records of

arrests. 1916. ms.
171

EFFORTS FOR ADMINISTRATIVE REFORM

No. 15. Part I. Districting of Baltimore for the work of

charitable institutions.

Part II. The enumeration districts. 1917. 19 p. plates.
Bureau of state and municipal research; an organization devoted to
the promotion of efficiency in public business. Baltimore [1913].
14 p., ii.
Four years of prosperity. Baltimore [1917]. [4] p.

172

CHAPTER VI

AGENCIES FOR STUDYING MUNICIPAL ADMINIS-
TRATION GENERALLY: UNOFFICIAL

It is a striking fact that despite the interest which has
long obtained in the problem of improving municipal admin-
istration in this country, no organization has yet been created
which has for its sole purpose -the study of that problem gen-
erally, without special emphasis on the problems of any par-
ticular city. The agency of which account is given below —
the New York Bureau of Municipal Research — comes very
nearly within this description; but it has hitherto devoted so
much of its attention to the government of New York City,
that the propriety of its inclusion under this head is perhaps
open to a measure of doubt.

New York: Bureau of Municipal Research. So important
is the part which has been played by the New York Bureau
of Municipal Research in the development of the govern-
mental research movement in this country, of which it was
the pioneer, that a somewhat full account of its origin and
history seems justified.

The facts regarding the origin of the bureau were set
forth in a statement prepared by the bureau and filed with the
late U. S. Commission on Industrial Relations that was pre-
sided over by Mr. Frank Walsh. This statement in part
reads :

In its issue of March u, 1901, this [the idea of establish-
ing a citizens' agency to cooperate with city officials in im-
proving methods of administration] was the subject of an
editorial in the New York Tribune which was clipped by Mr.
Frank Tucker and sent to Mr. R. Fulton Cutting as some-
thing to which he should lend his support. Soon after this a
formal proposal to create a bureau or department of civic

173

EFFORTS FOR ADMINISTRATIVE REFORM

affairs of the Chamber of Commerce was prepared by Mr.
Tucker, and taken up by Mr. Cutting with Mr. Charles
Stewart Smith, a prominent member of that body. When
Mr. William H. Allen came to New York his assistance was
invited. While engaged professionally on work of this kind,
Mr. Frederick A. Cleveland became impressed with the need
for an independent agency supported by citizens, which would
be equipped to obtain information about the management of
public affairs, and follow up and support the constructive
measures of public offices. And when Mr. Cleveland became
a member of the Mayor's advisory commission on finance and
taxation in January, 1905, he actually employed an outside
staff in this manner.

In February, 1905, Mr. Cleveland prepared a written pros-
pectus for the organization of a permanent "Bureau of
Municipal Research," at the suggestion of Mr. Tucker, and
placed it in Mr. Allen's hands, with the understanding that
he would undertake to raise money for it. This brief was
used for some time by Mr. Allen, and several conferences
were arranged with professional and business men. Later in
November with the help of Mr. Tucker, Mr. Allen prepared
a revised statement and circulated it under the title of "Brief
for the Establishment of an Institute .for Municipal Re-
search." In the latter part of 1905 Mr. Cutting decided to
support the effort at the rate of $1,000 per month for a year,
to make an actual demonstration of what could be done, and
with this fund Mr. Henry Bruere was employed to take
charge of it, tafemg^ver 6nTns staff some of the men who
had been working with Mr. Cleveland. The work was
financed by Mr. Cutting and conducted by Mr. Bruere as the
"Bureau of City Betterment," a branch of the Citizens' Union,
of which Mr. Cutting was president.

The success achieved led to the decision to incorporate the
service as an independent institution. The cooperation and
financial assistance of other men were secured and the serv-
ice was incorporated in May, 1907, under its present title of
Bureau of Municipal Research. The membership of the cor-
poration was limited to fifty persons, members to be elected
by a majority vote of the board or of the members at any
annual meeting or at a special meeting called for that pur-
pose. The management of the business affairs of the cor-

AGENCIES FOR MUNICIPAL ADMINISTRATION

poration was entrusted to a board of fifteen trustees, elected
from the members of the corporation at annual meetings.

Mr. Henry Bruere was selected as the first director of the
bureau with Mr. Cleveland and Mr. Allen as co-directors.

In the articles of incorporation the purpose of the bureau
was set forth as follows :

To promote efficient and economical municipal govern-
ment; to promote the adoption of scientific methods of ac-
counting and of reporting the details of municipal business,
with a view to facilitating the work of public officials; to
secure constructive publicity in matters pertaining to municipal
problems ; and to these ends, to collect, to classify, to analyze,
to correlate, to interpret, and to publish facts as to the admin-
istration of municipal government.

In 1911 the activities of the bureau were broadened, at
least indirectly, by the affiliation with it of the Training School
for Public Service. This school, according to the historical
note appearing in its announcement for 1917, was founded
by Mrs. E. H. Harriman in the spring of 1911. The note
reads :

Seeing the immediate and future need for trained execu-
tives to serve governmental agencies and private organizations
interested in better government, Mrs. Harriman contributed
the sum of $40,000 to initiate the preliminary work. Soon
she was joined by thirty-five other contributors, men of broad
vision and large experience, and a fund of $200,000 to carry
on the work of the school was guaranteed. The Bureau of
Municipal Research was asked to organize and conduct the
work, and on October i, 1911, the Training School for Public
Service formally began its existence.

Since then the school has been conducted in close affilia-
tion with, if not directly by, the Bureau of Municipal Re-
search. It has its own funds and officers, but occupies the
same quarters as the bureau, and the students get a large part
of their practical training in administration through the work
done by them on assignments given to them by the bureau
and performed under its direction.

175

EFFORTS FOR ADMINISTRATIVE REFORM

The purposes of the school as expressed in its announce-
ments are:

To give to its students a firm grasp upon all the leading
problems of modern public administration; to train men and
women in modern administrative methods, especially in their
relation to public business ; to supply public and private bodies
with administrators competent to test and improve methods
and to produce results ; to give graduates of technical and pro-
fessional schools an opportunity to secure practical experience
in the application of their specialties to municipal problems;
to furnish a connecting link between schools and colleges and
public departments for practical field work; to afford oppor-
• trinities for advanced students in economics and political
science to prepare doctors' dissertations and treatises on specific
problems of practical administration; to enable high school,
college and university instructors in civics, political science
and economics to obtain a first-hand contact with the work
of public administration; to publish the results of research in
administration ; to secure an open discussion of public business
which will emphasize the need of training public officials and
employees ; tp^ help make the public service a professioo^pf
***-£Sua^ standing wTfinaw^

The school is under the direction of a committee of the
trustees of the Bureau of Municipal Research. The work of
instruction and guidance is in the hands of the supervisory
staff of the school, the members of the Bureau of Municipal
Research and a staff of special instructors.

The training given to students consists of systematic in-
struction at the Training School, Columbia University, New
York University, and other educational institutions in New
York City; and field work with the Bureau of Municipal Re-
search and with various public and private institutions, of-
fices, and associations under supervision.

While the charter of the bureau does not in any way re-
strict its activities to the city of New York, and indeed ex-
pressly authorizes it to establish branches in any state or ter-
ritory of the Union, the bureau has naturally devoted more at-
tention to the improvement of the administration of New
York City than to that of any other single city. Particularly
was this true in the earlier days of the bureau. It is impos-

AGENCIES FOR MUNICIPAL ADMINISTRATION

sible, however, to attempt, in the space at disposal, any de-
tailed account of its activities in respect to the municipal gov-
ernment of New York City. All that can be said is that, for
a period of over ten years, it has been working with the offi-
cials of that city ; that in doing so it has examined into almost
all branches of the municipal government; made many con-
crete suggestions for improvement ; and that the value of this
work has been repeatedly testified to by the officers of that
government.1

At the time the bureau was established there were but
few persons who had made any special study of the technical
problems of public administration. The bureau had to train
a special staff of experts in this field. It resulted from this
that when the success achieved by the New York bureau led
to movements in other cities for the creation of similar bu-
reaus, the persons responsible for such movements have to
turn to the New York bureau for assistance. This assistance
has been rendered in two ways : in the sending of members of
its staff to make what are known as "municipal surveys,"
that is, investigations and reports having for their purpose to
make known existing conditions and the lines along which
efforts for reform should proceed; and in furnishing men to
take charge of the new bureau when established. This work
increased to such an extent that the bureau became a general
agency for the furnishing of expert assistance to organiza-
tions desiring to make studies of municipal conditions and to
formulate plans for their improvement. The work thus done
for outside agencies is performed upon a cost basis, that is,
the actual cost of the salaries and expenses of the men as-
signed to the work plus an overhead charge representing a
proper proportion of the general expenses of running the
bureau.

The charter of the bureau apparently restricts its activi-
ties to matters of municipal administration. In point of fact,
due either to the extent to which municipal affairs in New
York are subject to state control or to other reasons, the
bureau has gone beyond the field of municipal affairs and has

1 For an impressive account of the accomplishments of the bureau
since its organization see, A National Program to Improve Methods
of Government, Municipal Research, No. 71, March, 1916.

177

EFFORTS FOR ADMINISTRATIVE REFORM

played an important part in promoting administrative reform
in the government of the state of New York, and through its
publications and the personal efforts of its officers, adminis-
trative reforrrl generally in the United States. Thus in the
field of state administration, the bureau cooperated with the
former Department of Efficiency and Economy in the prep-
aration of an elaborate descriptive study of the organization,
functions, personnel and responsibility of each department,
bureau and office of the state government. This re-
port was prepared for the use of and was submitted to the
State Constitutional Convention of 1915. Later, the bureau
submitted to the Constitutional Convention a report giving a
critical and constructive appraisal of the state government,
including a discussion of the need for responsible government
and the development of executive leadership, a plan for re-
organization and reclassification of the state departments and
a subjective revision of the state constitution. Two amend-
ments were also prepared, one reclassifying the departments
and reducing the number of elective officers, the other pro-
viding for a state budget. The bureau thus placed before the
convention much material made available for the first time
concerning the problems, facts and actual conditions of state
government.

The bureau has cooperated with the Senate Committee
on Civil Service of the state legislature in an elaborate study
of standardization of salaries in the civil service of the state.
This resulted in the submission of a report consisting of com-
plete standard specifications, an administrative code for the
guidance of the Civil Service Commission, an appraisal to
standard grade of every salaried position in the state govern-
ment, critical reviews of defective organizations in the prin-
cipal departments, a detailed description of working methods
used in reaching the conclusions stated in the report and a
pro forma bill authorizing the establishment of the standard
titles and rates of pay.

The bureau cooperated with both the Governor and the
legislature in attempting to secure executive budget proced-
ure, and assisted in the preparation of bills embodying the
principles of budget reform. The bureau also conducted

178

AGENCIES FOR MUNICIPAL ADMINISTRATION

prison surveys at Sing Sing, Clinton, Auburn and Great
Meadow, the items of special interest covered being prison
industry, prison plants and methods of discipline, and made
other special studies in state administration.

It will be seen from the foregoing that the activities of
the bureau have been in four fields. It has, in the first place,
sought to bring about an improvement of administrative con-
ditions in the government of the city of New York through
the prosecution of studies in close cooperation with city offi-
cials and the formulation of proposals for improved methods.
Secondly, it has cooperated with other organizations in seek-
ing to bring about a better system of administration of state
affairs. Thirdly, it has met requests from all parts of the
Union for assistance in the organization of local bureaus of
municipal research or the prosecution of particular inquiries
having for their purpose the improvement of the conduct of
public affairs. And, finally, it has cooperated in the mainte-
nance of a school for training men in the principles of public
administration.

The printed publications of the bureau consist of a series
of weekly or semi- weekly leaflets entitled Efficient Citizenship,
of which, it is reported, some 655 have been issued; another
scries of leaflets entitled Municipal Research, the publication
of which was begun in 1913, of which 56 issues were made
up to December, 1914; a journal bearing the same title, Mu-
nicipal Research, which was begun in January, 1915, the is-
sues of which were given serial numbers beginning with the
number 57 as a continuation of serial numbers of the leaflets
similarly entitled; and miscellaneous reports. The periodical
Municipal Research was discontinued as a monthly at the end
of 1917, but will continue to appear at irregular intervals.

Following is a list of the publications of the bureau as
given on the cover sheets of the last issue of Municipal Re-
search, with the exception that certain titles representing the
work of officers of the bureau, but not published by the bureau
itself, have been eliminated.

179

EFFORTS FOR ADMINISTRATIVE REFORM

PUBLICATIONS

Books and Pamphlets

1907

A department of municipal audit and examination ; report of an
investigation of the office of Commissioners of accounts New
York city. [New York, 1907.] 35 p. incl. tables.

Making a municipal budget, functional accounts and operative sta-
tistics for the Department of health of Greater New York. [New
York, 1907.] 171 p. incl. forms.

Purposes and methods of the Bureau of municipal research. [New
York, 1907.] 28 p.

1908

Memorandum of matters relating to New York city's debt that sug-
gest the necessity either for judicial ruling or for legislation,
submitted by the Bureau of municipal research to the referee
and counsel in the suit of Jefferson M. Levy versus Board of
estimate and apportionment; to the sub-committee on finance,
accounting, etc., of the New York charter revision commission;
and to counsel to the joint legislative committee appointed to
investigate the finances of the city of New York. [New York],
1908. 31 p. incl. tables, fold. tab.

New York city's Department of finance. Pt. I — Submitted to the
Hon. Herman A. Metz, comptroller, by the Bureau of municipal
research . . . New York. 1908.
Contents.

Part. I. Report on present methods, with suggestions for re-
organization. 254 p.

The park question . . . New York. 1908. 2 v. front, (v. 2) plates,
tables, fold, diagrs.
Contents.

Pt. I. Critical study and constructive suggestions pertain-
ing to administrative and accounting methods of
the Department of parks: Manhattan and Rich-
mond. 152 p.

Pt. II. Critical study and constructive suggestions pertain-
ing to revenue and deposits of the Department of
parks: Manhattan and Richmond. 124 p.

1909

Business methods of New York city's Police department; summary
of critical study and constructive suggestions pertaining to ad-
ministrative and accounting methods of the Bureau of repairs
and supplies. Based upon inquiry requested by Police commis-
sioner Bingham, July, 1908, and pursued from August, 1908, to
April, 1909, with the cooperation of William F. Baker, now
police commissioner and then first deputy . . . [New York,
1909.] 35 p. IV fold, diagr.

Collecting water revenues, methods of the Bureau of water register,
Manhattan, with suggestions for reorganization, submitted in

180

AGENCIES FOR MUNICIPAL ADMINISTRATION

November, 1908, to the Commissioner of water supply, gas and
electricity. New York, 1909. 223, [6] p. fold, plan, facsims.,
2 fold, diagr.

How should public budgets be made? How budgets have been
made, how budgets are made, how budgets should be made, four-
teen stages in budget making. [New York], 1909. 19 [i] p.
incl. facsims.

New York city's debt; facts and law relating to the constitutional
limitations of New York's indebtedness; a brief of the evidence
taken by Hon. Benjamin F. Tracy, referee in Levy vs. the Board
of estimate and apportionment; submitted by Bureau of munici-
pal research . . . New York, 1909. 3 p. I., 3-83 p. fold, tables.
School progress and school facts . . . [New York], 1909. 73 p.
Contents.

Foreword: Trustees, Bureau of municipal research. — School
reports as they are: a rejoinder: John L. Tildsley, principal
De Witt Clinton high school, New York city, answered point
for point from official records by Mr. Allen. — School reports
as they are: William H. Allen. [Reprinted from the Edu-
cational review, New York, Feb., 1909, written in collabo-
ration with Dr. Elizabeth K. Adams] — Questions answered
by school reports as they are : Bureau of municipal research
[with special t.-p.].

School stories; illustrated guide to school subjects of interest . . .
New York. 1909. 88 p. illus., diagrs.
Contents.

Foreword. — Topical index to school subjects of interest, tenth
annual report for New York city schools . . . issued by the
city superintendent in March, 1909, for the school year end-
ing July 31, 1908.

Steps taken to locate and to solve problems of enforcing tenement
house laws.

["Summary of report by the Bureau of municipal research in
New York city's tenement house department, being based upon
examinations made in 1908 and 1909 in cooperation with the
department."] [New York, 1909.] 16 p.

Tenement house administration, steps taken to locate and to solve
problems of enforcing the tenement house law. [New York],
1909. 175 p. illus., fold. tab.

What should New York's next comptroller do? "The business issue
of the next administration." [New York, 1909.] 15 [i] p.

1910

Business methods of New York city's Police department; critical
study and constructive suggestions pertaining to administrative
and accounting methods of the Bureau of repairs and supplies
. . . [New York], 1910. 212 p. fold, tables, fold, diagrs.
"Based upon inquiry requested by Police commissioner Bing-
ham, July, 1908, and pursued from August, 1908, to April,
1909, with the cooperation of William F. Baker, now police
commissioner and then first deputy."

Municipal reform through revision of business methods, New York
city. [New York], 1910. 58 p.

181

EFFORTS FOR ADMINISTRATIVE REFORM

Resolutions providing for inquiries into education, health, hospital
and charitable activities of the city of New York and for stan-
dardizing salaries and service requirements among city em-
ployees. New York, 1910. up.

St. Louis, a preliminary survey of certain departments of the gov-
ernment of the city of St. Louis, with constructive suggestions
for changes in organization and method. St. Louis, City council
1910. 416 p. plans, forms, diagrs.

''The Bureau of municipal research undertook to make a pre-
liminary survey of the government of St. Louis at the re-
quest of the Executive committee of the municipal voters'
league." — Introduction.

1911

Does your accounting system give you all the information you need?
May, 1911. 16 p.

A report on the Division of child hygiene, Department of health,
with constructive suggestions. Prepared for the committee of
the Board of estimate and apportionment on health, hospitals
and charities inquiries, by the Bureau of municipal research,
New York city. [New York], 1911. 75 p. incl. forms (2 fold).

1912

Report of survey of the Department of health and the Department
of education, city of Atlanta, Georgia, made for the Atlanta
chamber of commerce committee on municipal research. By
S. G. Lindholm for the New York bureau of municipal research.
December, 1912. 44 p. fold, tab., diagrs.
Each report has special t.-p.

Six years of municipal research for New York city; record for
1906-1911. [New York] [1912]. 80 p.

1913

Administrative methods of the city government of Los Angeles,
California. Report of a preliminary survey of certain city
departments made for the Municipal league of Los Angeles
. . . Los Angeles, Municipal league of Los Angeles, 1913. 27 p.

Efficiency and next needs of St. Paul's health department, report
submitted by the New York bureau of municipal research and
Training school for public service, March, 1913. [New York,
1913]. 48 p.

At head of title: St. Paul anti-tuberculosis committee, St. Paul,
Minnesota.

Organization and administration of the city government of Atlanta,
Ga. (Exclusive of Health and Educational departments.) Re-
port of a general survey made for the Atlanta chamber of com-
merce committee on municipal research, by Herbert R. Sands,
for the New York bureau of municipal research, November, 1912.
Atlanta, Ga., Appeal pub. co. [1913?] 64 p.

Organization and administration of the city government of Spring-
field, Massachusetts. Report of a survey made by the New

182

AGENCIES FOR MUNICIPAL ADMINISTRATION

York Bureau of municipal research, Jan., 1913. New York,

I9I3- . 93 P-

Organization and business methods of the city government of Port-
land, Oregon, report by Bureau of municipal research, New
York city. [New York? 1913.] 119 p.

Reports on various subjects relating to the Police department. (In
New York (City) Board of aldermen. Special committee to
investigate the Police dept. Stenographer minutes [hearings
of Sept. 9, 1912, to March 27, 1913], etc. 1913. v. 6, p. 4445-
4821).

1914

City and county of Denver; report on a survey of certain depart-
ments . . . prepared for the Colorado taxpayers protective
league. [Denver, The Great western printing and publishing
co., printers, 1914?] 583 p. plates, fold, plan, fold, diagrs.

Next steps in the development of a budget procedure for the city
of New York. [New York, 1914.] 132 p. incl. tables, forms.

A report on the police pension fund of the city of New York, sub-
mitted to the Aldermanic committee on police investigation by
the Bureau of Municipal research . . . [New York, 1914.] 212
p. incl. tables, charts.

1915

Business and accounting methods, Indian bureau. Report to the
Joint commission of the Congress of the United States, Sixty-
third Congress, third session, to investigate Indian affairs, rela-
tive to business and accounting methods employed in the ad-
ministration of the Office of Indian affairs. Prepared by the
Bureau of municipal research, New York. Washington, Govt.
print, off., 1915. 86 p.

Government of Monroe County, N. Y. (including town government),
description of organization and functions, transmitted to the
New York state constitutional convention by the New York
state constitutional convention commission, prepared for the
Rochester bureau of municipal research. [Albany, J. B. Lyon
company, printers, 1915.] 60 p. fold, diagrs. (In New York
state constitutional convention commission. City and county
government. [No. 3.] Albany, 1915.)

Government of Nassau County, N. Y., description of organization
and functions. Transmitted to the New York state constitutional
convention by the New York state constitutional convention com-
mission. Prepared for the Commission on the government of
Nassau County. [Albany, J. B. Lyon company, printers, 1915.]
108 p. fold, diagrs.

(In New York state constitutional convention commission "City
and county government." [No. 4.] Albany, 1915.)
Includes a report on the government of Nassau County, the
towns of Hempstead, North Hempstead and Oyster Bay, and
the village of Hempstead.

Government of the city of Rochester, N. Y., description of organiza-
tion and functions transmitted to the New York state constitu-

183

EFFORTS FOR ADMINISTRATIVE REFORM

tional convention by the New York state constitutional conven-
tion commission, prepared for the Rochester bureau of munici-
pal research. Albany, J. B. Lyon company, printers, 1915. 104
p. fold, diagrs.

(In New York state constitutional convention commission. City
and county government. [No. 2.] Albany, 1915.)

Government of the city of Rochester, N. Y. General survey, critical
appraisal and constructive suggestions, prepared for the Roches-
ter bureau of municipal research. [Rochester? 1915?] 546 p.
plates, plan, fold, tab., diagrs.

Preliminary report outlining a proposed reorganization of the state
government submitted as a basis of discussion to the "Commit-
tee on the Governor and other state officers," New York State
constitutional convention . . . New York, 1915- 23 P-

Reading, Pennsylvania. Report on a survey of the municipal depart-
ments and the school district. Prepared for the Chamber of
commerce of Reading. [Reading, Pa., Weiler's printing house,
19*5?] 368 p. diagrs.

1916

Hall of records power plant. Report and discussion of physical test
and costs of operation and maintenance. Test conducted for
a full year, 1913, under the auspices of a board of engineers
composed of representatives of the city of New York, the New
York Edison company and the New York Bureau of municipal
research. New York, 1916. x, 673 p. plates, plans (part, fold.),
tables (part, fold.), diagrs. (part, fold.), forms.

Memorial to the Senate and Assembly by the Bureau of municipal
research, asking consideration in Committee of the whole of the
Appropriation bill submitted by the governor with his annual
message, January 5, 1916. Transmitted to the Legislature Jan-
uary 25, 1916. Albany, J. B. Lyons company, printers, 1916. 40 p.

Report on a survey of the government of the city and county of
San Francisco. Prepared for the San Francisco Real estate
board by the Bureau of municipal research, New York, 1916.
San Francisco, Rincon publishing company, printers [1916].
xxvi, 681 p. front., fold, charts, fold, tables, forms (i fold.).

Torrens registration system in New York: memorandum relative to
proposed amendments to the real property law governing regis-
tation of real property titles known as the Torrens law. Pre-
pared by the Bureau of municipal research, New York, February,
1916, with letter of transmission to the Board of estimate and
apportionment of the city of New York by John J. Hopper, reg-
ister of the county of New York. [New York, 1916.] 29 p.

1917

The citizen and the government. New York, 1917. 20 p.

Columbus, Ohio ; report on a survey of the city government. Colum-
bus, O., The Stoneman press [1917]. 257 p. diagrs.

A general administrative survey of the city of Jamestown, New
York; a study of the methods in use in the various departments
of the city, together wth recommendations for improvement based

184

AGENCIES FOR MUNICIPAL ADMINISTRATION

upon long study and wide experience. Prepared for the James-
town Board of commerce. [Jamestown, N. Y., Journal press,
inc., printers, 1917.] 421, ii p. incl. diagrs., forms.
Cover title: Government of the city of Jamestown, New York,
general municipal survey and constructive recommendations.

Report on a survey of the city government of Indianapolis, Indiana.
Prepared for the Indianapolis chamber of commerce. Indian-
apolis, Wm. B. Burford, printer [1917]. x, 568 p. illus., fold,
charts.

Summary of recommendations from report of a survey of the city
government of Richmond, Va. New York, 1917. 80 p.

Ten years of municipal research . . . [New York, 1917?] 22 p. fold,
chart.

PERIODICALS

Efficient citizenship, (weekly and semi-weekly bulletins) New

York (about 655 issued to date).

Municipal research, to promote the application of scientific princi-
ples to government. Issued ... by the Bureau of municipal
research. No. i — July, 1913. New York [1913.]
Contents. (Subheadings are listed only where of special signifi-
cance.)

No. 1-56, July i3-Dec., 1914 (leaflets).

No. 57, Jan., 1915. Announcement [of the first issue of

Municipal research as a monthly].

The citizen and the government — a

statement of policy and method, p.

1-4.

Next step in the development of a
budget procedure for the city of
Greater New York. (A report.) p.
5-T42.

No. 58, Feb., 1915. "A state budget" — constructive propo-
sals to be submitted to the State con-
stitutional convention, by Frederick
A. Cleveland, p. 147-68.
The practical side of budget procedure,

by Charles D. Norton, p. 169-72.
No. 59, Mar., 1915. Financial problems of the city of New

York, p. 199-210.
New York City's need for a financial

program, p. 211-39.
The "pay-as-you-go" agreement, p. 240-

52-
No. 60, April, 1915. The condition of the New York State

sinking funds, p. 273-308.
No. 61, May, 1915. The constitution and government of the

state of New York. 246 p.
No. 62, June, 1915. Budget systems, a discussion before the* — -\

New York Constitutional convention.

447 p.

Administration and financial methods, by
Dr. Frank J. Goodnow.

185

EFFORTS FOR ADMINISTRATIVE REFORM

No. 63, July, 1915

No. 64, Aug.,
[Extra No. i,
No. 65, Sept.,

1912.

Financial administration with special
reference to English experience, by
Dr. A. Lawrence Lowell.

State administration; discussions of
proposed amendments for the reor-
ganization of the executive branch
before the New York Constitutional
convention. 630 p.

The federal government as an example,
by Hon. W. H. Taft.

State government from the point of
view of administrative law, by Dr.
Frank J. Goodnow.

State finances; a report on the financial
procedure of the state of New York,
with special reference to the direct
tax, 1911-1916. 19 p.

Aug., 1915.] Annual report of the Training
school for public service, conducted by
the Bureau of municipal research,
1914-1915. 30 p.
1915. Administration of the Indian Office. 117

Supplement : Public opinion and national
economy, by Mr. R. Fulton Cutting.

» • 13 P-

No. 66, Oct., 1915. Legal rights of civil servants in the city
of New York [by George H. Stover].
202 p.

No. 67, Nov., 1915. Standardization of public employments.
Prepared under supervision of Arthur
W. Procter. Pt. I. An interpretation
of the standardization movement. 117
P-

Training for municipal service. 51 p.
tables (part. fold.).

The problem of training for the public
service, by Charles A. Beard.

Report of the Committee of the College
of the city of New York on Municipal
service survey, by Frederick E. Breit-
hut. — .
No. 69, Jan., 1916. Responsible government. 135 p. J

The budget idea in the United States.

Memorial to the Legislature of the
state of New York, recommending
amendment of law, to provide for bud-
get procedure, and correspondence
with the Governor.

Budget legislation in two states. 102 p.

Part I — Financial legislation in New
Jersey.

186

No. 68, Dec., 1915.

No. 70, Feb., 1916.

AGENCIES FOR MUNICIPAL ADMINISTRATION

Part II — Financial legislation in New

York. -_p.~

No. 71, Mar., 1916. A national program to improve methods

of government. 88 p. plates.

No. 72, April, 1916. The history of appropriations in the leg-
islative session of 1916, New York
State [by Birl E. Schultz]. 134 p.

No. 73, May, 1916. Three proposed constitutional amend-
ments for control of the purse. 86 p.
The Maryland proposed constitutional

amendment for an executive budget.
The New York proposed constitutional

amendments.

No. 74, June, 1916. The accounting and reporting methods of
the state of New York [by Fred F.
Blachly]. 212 p.

No. 75, July, 1916. The purposes of the indebtedness of
American cities, 1880-1912 [by Fred
Emerson Clark]. 72 p.

No. 76, Aug., 1916. Standardization of public employments.
Part II. The practical side of stand-
ardization in American governments,
prepared under the supervision of Ar-
thur W. Procter. 148 p. (Contains
sections on standardization in Chicago,
Pittsburgh, New York City, and New
York State.) (Part I was published
in the November, 1915, issue, No. 67
of Municipal research.}
No. 77, Sept., 1916. Citizen agencies for research in

ment. Part I. 114 p.
The organization and work of the Fi-
nance commission of the city of Bos-
ton.

.The bureau in Philadelphia, the first mu-
nicipal venture outside New York.
The Chicago bureau of public efficiency.
The Dayton bureau of research.
The Ohio institute for public efficiency.
The Milwaukee Citizens bureau of mu-
nicipal efficiency.

The Bureau of municipal research of the
Minneapolis civic and commerce asso-
ciation.

The Akron bureau of municipal research. (
The Bureau of state research of the New \

Jersey state chamber of commerce.

No. 78, Oct., 1916. The engineer in public service, by Fred-
erick E. Breithut. Part I. 71 p.
The engineer in the service of the

United States government.

No. 79, Nov., 1916. The engineer in public service, by Fred-
erick E. Breithut. Part II. 176 p.

187

EFFORTS FOR ADMINISTRATIVE REFORM

The engineer in the service of New York
state.

The engineer in the service of New York
city.

List of official registers and directories,
published by the United States gov-
ernment.

List of civil service commissions in the

United States.
No. 80, Dec., 1916. The elements of state budget making.

63 P-

"Maryland's executive budget," by Gov-
ernor Harrington of Maryland.

No. 81, Jan., 1917. Some results and limitations of central
financial control as shown by nine
years' experience in New York city.

63 P-

No. 82, Feb., 1917. Highway laws of the United States, a
topical discussion, by A. N. Johnson.

topical
163 p.

No. 83, Mar., 1917. Japanese administration and finance. 72

P-

No. 84, April, 1917. Problems of highway administration [by

William A. Bassett]. 269 p.
No. 85, May, 1917. Widows' pension legislation [by Chester

Jacob Teller]. 125 p.
A year of widows' pensions in New

York state.
No. 86, June, 1917. The New York state legislative budget

for 1917 [by John L. Keddy and

Charles F. Kerrigan]. 140 p.
No. 87, July, 1917. Canadian provincial budget system and

financial history, by Harold G. Vil-

lard. 60 p.
No. 88, Aug., 1917. The New York city budget [by Arnold

W. Lahee]. 154 p.
No. 89, Sept., 1917. Instruction in civics in New York city

high schools; a statistical survey. 39

P-

No. 90, Oct., 1917. The state movement for efficiency and
economy [by Raymond Mgjey]. 163 p.

Cooperative Investigations

The Bureau of municipal research assisted in the preparation
of the following reports:

A bureau of child hygiene; cooperative studies and experiments by
the Department of health of the city of New York and the
Bureau of municipal research . . . [New York] Bureau of mu-
nicipal research, 1908. 40 p., I 1. incl. tables, front., plates,
forms.

The constitution and government of the state of New York: an

188

AGENCIES FOR MUNICIPAL ADMINISTRATION

appraisal. Transmitted to the New York state constitutional
convention commission. [Prepared for the Constitutional con-
vention commission by the Bureau of municipal research and the
New York state department of efficiency and economy.]
[Albany] Bureau of municipal research, 1915. 250 p. incl.
diagrs.

Efficiency and next needs of St. Paul's health department, report
submitted by the New York bureau of municipal research and
Training school for public service, March, 1913. [New York,
1913.] 48 p.

At head of title : St. Paul anti-tuberculosis committee, St. Paul,
Minnesota.

Government of the city of New York ; a survey of its organization
and functions, prepared for the Constitutional convention, 1915,
by the office of the commissioners of accounts, New York city,

and New York Bureau of municipal research. New York, J. J. ^

Little & Ives company, 1915. xxxi, 1343 p.

Government of the state of New York. A description of its organi-
zation and functions. Prepared for the New York State consti-
tutional convention commission by the New York State depart-
ment of efficiency and economy and New York Bureau of mu-
nicipal research. January i, 1915 . . . [Albany, J. B. Lyon
company, printers, 1915.] xxxii, 768 p. diagrs. (part fold.).

Municipal year book of the city of New York. [New York], 1913. )

PUBLICATIONS OF THE METZ FUND

Publication No. I — New York, 1911 —
Contents.

No. 4. To Mayors, comptrollers and auditors. 1911.
No. 14. Would a budget exhibit help your city? 1911.
No. 19. Unit costs in municipal reports. 1911.
No. 35. Plan for establishing a model government in the Dis-
trict of Columbia.

No. — . Short talks on municipal accounting and reporting.
National fund for promoting efficient municipal ac-
counting and reporting. 1911.

Handbook of municipal accounting, prepared by the Metz fund from
descriptive and critical data collected, and constructive recom-
mendations made by the Bureau of municipal research. New
York, D. Appleton and company, 1913. xxx, 318 p. fold, forms,
fold, tables. (Half-title: Metz fund handbooks of city business
methods . . .)

PUBLICATIONS OF TRAINING SCHOOL FOR PUBLIC SERVICE

Training school for public service; announcement — 1911, conducted
by the Bureau of municipal research . . . [New York, 1911.]

he same, 1916-1917. 12 p.

Preliminary report on conditions and needs of rural schools in Wis-
consin. Results of field study reported to the Wisconsin state
board of public affairs by the Training school for public service.

189

EFFORTS FOR ADMINISTRATIVE REFORM

August, 1912. [New York, 1912.] 92 p. (Efficient citizenship

bulletin, No. 587.)
[First] annual report. 1911-1912.
[Second] annual report for 1912-1913. (Efficient citizenship bulletin,

No. 670.)

[Third] annual report for 1913-1914.
[Fourth] annual report for 1914-1915. 30 p. (Municipal research

[No. 64]. Extra No. i, August, 1915.)

ARTICLES

Allen, W. H. Better-business methods for cities. American Review

of Reviews, Feb., 1908. v. 37: 195-200.
Allen, William H. Training men and women for public service.

American academy of political and .social science. Annals, May,

1912. v. 41 : 307-12.

[The National training school for public service conducted by

the New York Bureau of municipal research.]
Beard, C. A. Reconstructing state government. New Republic, Aug.

21, 1915. v. 4: sup. 1-16.

[Deals largely with the Bureau of municipal research and its
work in connection with the New York state constitutional
convention.]
Bruere, Henry. Bureau of municipal research. What it has done

for better government in New York city. World's Work, April,

1912. v. 23 : 683-6.
Bruere, Henry. Government and publicity. Independent, Dec. 12,

1907. v. 63: 1422-6.
Cleveland, Frederick A. An agency of citizen inquiry. (In his

Chapters on municipal administration and accounting.) New

York, 1909. p. 346-61.
Heaton, J. P. Municipal research; ten years of the pioneer New

York bureau. Survey, Dec. 4, 1915. v. 35 : 230.
/ -^ Hopkins, George B. New York bureau of municipal research. Amer-
ican academy of political and social science. Annals, May, 1912.

v. 41 : 235-44.

[Accomplishments of the Bureau.]

Prendergast, William A. The work of the Bureau of municipal re-
search in relation to the administration of the city's finances.

1915. 8 p.

Reprinted from the Real Estate Magazine, November, 1915.
Report of the division of field work of the New York bureau of

municipal research for the year ended Dec. 31, 1916. Record

and Guide, Feb. 7, 1917. v. 99: 218.
_, Wickersham, George W. The new constitution and the work of

the Bureau of municipal research. 1915. 6 p.

Reprinted from the Real Estate Magazine, October, 1915.

;

190

CHAPTER VII

AGENCIES FOR INVESTIGATING THE ADMINIS-
TRATION OF PARTICULAR CITIES : OFFICIAL

There are but few instances where an official body has
been created by a municipality for the purpose of making a
study of its system of administration with a view to effecting
improvements in it. The explanation of the slight extent to
which efforts to improve methods of municipal administra-
tion of this character have been made is probably to be found
in the difficulty that is experienced in giving to such bodies and
their work a non-political character and the extent to which
this field has been occupied by privately organized and sup-
ported bureaus of municipal research.

Boston, Mass.: Finance Commission of 1907-1909. In re-
sponse to a public demand, voiced especially by the Good
Government Association, for an investigation of the finan-
cial condition and fiscal administrative methods of the city,
the mayor of Boston, in January, 1907, sent a message to the
city council in which he recommended the appointment of a
finance commission empowered and directed to make this in-
vestigation. The council complied with this request, and
authorized the mayor to appoint a commission which should
include one representative from each of the following organi-
zations: The Associated Board of Trade, Chamber of Com-
merce, Boston Merchants' Association, Clearing House Com-
mittee, Real Estate Exchange and Central Labor Union. The
following functions and powers were given to this body:

Such finance commission shall examine into all matters
pertaining to the finances of the city, including debt, taxation
and expenditures, shall give public hearings, and shall in par-
ticular inquire:

191

EFFORTS FOR ADMINISTRATIVE REFORM

1. Whether under the present practice of the city its ob-
jects of expenditure are rightly divided between those which
may properly be provided for by loan and those which should
be met by taxation, and whether its loans are now issued for
proper periods.

2. Whether the present distinctions between loans inside
and outside the debt limit are based upon sound financial
principles.

3. Whether any change should be made in the present
system of accumulating sinking funds and issuing new loans
annually.

4. Whether debt, taxation or assessments upon property
are now excessive, and, if so, in what manner the same can
be reduced.

5. Whether present systems of bookkeeping, auditing and
administration afford sufficient protection to the city treasury.

6. Whether the cost of any municipal works or services
now paid for from the city treasury should be raised by spe-
cial assessment, or whether any changes should be made in
existing provisions for the laying and collecting of special
assessments.

7. Whether the financial burden imposed upon the city in
connection with the expenditures for the construction and
maintenance of metropolitan works is excessive or unfair,
and, if so, how the same can be reduced or made equitable.

8. Whether any changes should be made in the present dis-
tribution of powers relative to appropriations, loans and ex-
penditures.

9. Whether the general taxation laws of the state, and
particularly those relating to the taxation of the property of
corporations, operate fairly in respect to the interests of Bos-
ton, and, if not, what changes should be made in them.

10. Whether appropriations and loans for the several de-
partments of the city are larger than necessary.

11. Whether the limit of municipal indebtedness should
be fixed by constitutional amendment, or the present statute,
fixing the limit, should be repealed or amended.

It was further ordered that the Finance Commission in-
quire—

i. Whether it is advisable to create new sources of reve-
nue, and, if so, to suggest the sources and for what purpose
the proceeds should be applied.

192

AGENCIES OF PARTICULAR CITIES: OFFICIAL

2. To inquire into the present general plan of sewer con-
struction and report whether or not it is the one best adapted
to the city, and, if not, to investigate and report a compre-
hensive scheme for future development of the sewer system,
with special reference as to the amount of money the city
can annually afford to spend for the completion of work al-
ready begun.

Fifty thousand dollars was appropriated for the expenses
of the commission.

To facilitate the work of the commission, the legislature,
on petition, granted the commission the power to compel the
attendance of witnesses, the production of books and papers,
and to administer oaths.1

The commission organized .itself for active work on July
30, 1907, and from that date until January 29, 1909, when
the final report was issued, interim reports were made on the
investigations which were being conducted. Technical ex-
perts were employed as needed and their findings were pub-
lished by the commission. The final report stated the con-
clusions reached and contained an account of the changes
recommended by the commission as to administration and as
to the fundamental structure of the city government.

The legislative measures which the commission regarded
as essential to enable the people of Boston to redeem their
government were summarized as follows :

1. A simplified ballot, with as few names thereon as
possible.

2. The abolition of party nominations.

3. A city council consisting of a single small body elected
at large.

4. The concentration of executive power and responsibil-
ity in the mayor.

5. The administration of the departments by trained
experts, or persons with special qualifications for the office.

6. Full publicity secured through a permanent finance
commission.

'The paragraphs which follow are from the report of the chair-
man of the commission, Hon. John R. Murphy, as published in
Municipal Research, No. 77 (Sept., 1916).

193

EFFORTS FOR ADMINISTRATIVE REFORM
The commission closed its report with these words:

These measures will enable a good mayor and city coun-
cil to give the citizens a really good administration, will en-
courage indifferent men to keep a fairly straight course by
freeing them from the partisan fetters of the present system,
and will deter bad men, if elected, from demoralizing the
public service and using the public money for their own ad-
vantage.

The task set before the commission was to devise a prac-
tical working form of government for the city of Boston; not
a charter for some other city; much less a charter good for
all cities. It is under no illusion that the changes recom-
mended will of and by themselves secure good government.
No municipal charter can be a self -executing instrument of
righteousness. If the people want the kind of government
they have had during the past few years, no charter revision
will prevent it. If, as the commission believes, they desire
good government, the plan suggested should enable them to
obtain and keep it.

Appended thereto was a draft for a new city charter;
one of the provisions of this proposed charter was the estab-
lishment of a permanent finance commission, which, in order
that it might be independent of city politics, should be ap-
pointed by the Governor.

Four volumes of reports were published by the commis-
sion. These are listed as the first items in the joint list of
publications of the commission and of the permanent commis-
sion which succeeded it, given after the account of the latter
body immediately following.

Boston, Mass. : Permanent Finance Commission.1 In
1909, a bill was passed by the Senate and House of Represen-
tatives relating "to the 'administration of the city of Boston
and to amend the charter of the said city," and became chapter
486 of the acts of 1909. This bill was substantially the new
charter proposed by the Finance Commission, although a
number of minor changes were made. The sections relating

JThis account is taken from the report of the chairman of the
commission, Hon. John R. Murphy, as published in Municipal Re-
search, No. 77 (Sept., 1916).

194

AGENCIES OF PARTICULAR CITIES: OFFICIAL

to the appointment of the Finance Commission were as fol-
lows :

Within sixty days after the passage of this act, the gov-
ernor with the advice and consent of the council shall appoint
a finance commission to consist of five persons, inhabitants
of and qualified voters in the city of Boston, who shall have
been such for at least three years prior to the date of their
appointment, one for the term of five years, one for four
years, one for three years, one for two years, and one for one
year, and thereafter as the terms of office expire in each year
one member for a term of five years. Vacancies in the com-
mission shall be filled for the unexplred term by the governor
with the advice and consent of the council. The members of
said commission may be removed by the governor with the
advice and consent of the council for such cause as he shall
deem sufficient. The chairman shall be designated by the
governor. His annual salary shall be five thousand dollars,
which shall be paid in monthly instalments by the city of Bos-
ton. The other members shall serve without pay.

It shall be the duty of the Finance Commission from time
to time to investigate any and all matters relating to appropri-
ations, loans, expenditures, accounts, and methods of admin-
istration affecting the city of Boston or the County of Suffolk,
or any department thereof, that may appear to the commis-
sion to require investigation, and to report thereon from time
to time to the mayor, the city council, the governor or the
general court. The commission shall make an annual report
in January of each year to the general court.

Whenever any pay roll, bill, or other claim against the
city is presented to the mayor, city auditor, or the city treas-
urer, he shall, if the same seems to him to be of doubtful
validity, excessive in amount, or otherwise contrary to the
city's interest, refer it to the finance commission, which shall
immediately investigate the facts and report thereon; and
pending said report payment shall be withheld.

The said commission is authorized to employ such ex-
perts, counsel and other assistants, and to incur such other
expenses as it may deem necessary, and the same shall be
paid by said city upon^requisition by the commission, not ex-
ceeding in the aggregate in any year the sum of twenty-five
thousand dollars, or such additional sums as may be appropri-
ated for the purpose by the city council and approved by the

195

EFFORTS FOR ADMINISTRATIVE REFORM

mayor. A sum sufficient to cover the salary of the chair-
man of the commission and the further sum of at least twen-
ty-five thousand dollars to meet the expenses as aforesaid
shall be appropriated each year by said city. The commission
shall have the same right to incur expenses in anticipation
of its appropriation as if it were a regular department of said
city.

For the purpose of enabling the said commission to per-
form the duties and carry out the objects herein contem-
plated, and to enable the mayor, the city council, -the gov-
ernor, or the general court to receive the reports and findings
of said commission as a basis for such laws, ordinances or
administrative orders as may be deemed meet, the commis-
sion shall have all the powers and duties enumerated in Chap-
ter 562 of the acts of the year 1908 and therein conferred
upon the commission designated in said act; but counsel for
any witness at any public hearing may ask him any perti-
nent question and may offer pertinent evidence through other
witnesses subject to cross-examination by the commission and
its counsel.

The new commission authorized by the above act, organ-
ized itself on June 24, 1909, and prepared to continue the work
of its predecessor. It was realized, however, that the new
commission would not be obliged to investigate past methods
and practices; its duties would consist chiefly of keeping cur-
rent watch over the administration of the city's business.

Since 1909 the work of the commission has divided itself
into three classes :

1. Reports to the Governor, to the General Court and
to the committees thereof on legislative bills affecting the
financial interests of Boston.

2. Constructive reports to the mayor, city council, and the
school committee recommending economical improvements in
the departments of the city so as to reduce the administrative
cost thereof.

3. Critical reports to the city government on particular
acts of maladministration in various municipal departments.

The scope of the work of the commission is so broad and
the lines of studies so varied that to give an exact description
of them would involve a list of the reports which have ap-

AGENCIES OF PARTICULAR CITIES: OFFICIAL

peared in its annual volumes from 1910. It is sufficient com-
mentary on tKe work of the commission to state that the net
debt of the city has actually decreased in the last eight years
and the borrowing of money outside of the debt limit has
practically ceased. Furthermore, the old and ancient custom
of an annual "pork barrel" loan bill has passed away and not
once has an attempt been made to revive it.

Among some of the large achievements of the commission
are its report on the survey made on the Boston school sys-
tem in 1911 and the report recommending the adoption by the
city of Boston of the segregated budget system. The latter
system was adopted in 1918 and has thus far demonstrated
its usefulness for the city.

The school department has- cooperated cordially in the
commission's investigation of its departments and recently
a new survey has been made of the school system, the results
of which will shortly be published by the commission.

The annual appropriation of the commission amounts to
approximately $30,000 and the commission has on its staff a
permanent force of eight employees.

PUBLICATIONS

The Finance Commission of the city of Boston. Appointments, or-
ganization and communications. [Reports] vol. I. Boston,
Municipal printing office, 1908. 560 p.

Reports and communications, vol. II. Boston, 1909. 304 p.
Contents.

Test run of the Chestnut Hill stone crusher.

Municipal printing plant.

System of publishing city documents and the necessity of

establishing a new statistics department.
History of the city waterworks and the management of the

Water department.

Health department [and] report of the special committee.
New city hall.
Sanitary department [and] report of Mr. X. Henry Good-

nough.

Sinking funds.
City debt.
Final report of the Finance commission [on the condition of

the city government], Jan. 29, 1909, p. 175-258.
[Reports] vol. III. Reports of Metcalf & Eddy, consulting civil en-

fineers, upon the Water department, the Sewer division of the
treet department, and miscellaneous matters. Boston, 1909.
1226 p. tables (part, fold.), diagrs. (part. fold.).

I97

EFFORTS FOR ADMINISTRATIVE REFORM

[Reports] vol. IV. Report of Samuel Whinery, consulting civil en-
gineer, upon the Street department. Boston, 1909. 333 p. tables,
(part. fold.).

Appointments, organization and communications. [Reports] vol. V.
Boston, 1910. 143 p.

[This is the first volume of the new Finance commission, ap-
pointed June 23, 1909. "It has been numbered five, so as to
present all the reports of both commissions in a single continu-
ous series."]
Contents.

Report to the General court, p. 5-42.

Official communications to the city government, p. 43-94.
(Contains sections on political activity of city employees and
on penal institutions department.)

Summary of specific recommendations made by the former
Finance commission with a record of the action taken there-
on, p. 95-I39;

Reports and communications, vol. VI. Boston, 1911. 252 p.
Partial Contents.

Increase in city's pay roll and decrease in efficiency of day

labor force.

Soldier's relief department.
Elementary school accommodations.
Contract for gas lighting.
Street lighting situation.
Influence of politics in appointments.
Department of public works.
Taxing unearned increment of land.
Cost of water bridges.
Proposed consolidation of the bath, music, public grounds and

park departments.

Abolition of the Registry department.
Rejection of the civil pension act.

Reports and communications, vol. VII. Boston, 1912. 320, 256 p.
Partial Contents.

Children's institutions department.
Consumptive's hospital department.
Indebtedness of the city of Boston.
Protection against fire.
Lighting the streets with gas.
Bids for supplying coal to the city of Boston.
Licenses for private uses of the public streets.
High pressure water service.
Pensions in the Fire department.
Cost of minor's licenses.

General pension act for city employees and laborers.
Central power and heating plant.
Contract for disposal of city refuse.
Land court.

Report of the Boston school system. Boston, 1911. 256 p.
Reports and communications, vol. VIII. Boston, 1913. 205 p.
Contents.

Appointments to the Collecting department.

198

AGENCIES OF PARTICULAR CITIES: OFFICIAL

Collection of money on bail bonds, etc.

Administration of the Bath department.

The Ferry service.

Street lighting situation.

Automobile apparatus for the fire department.

A municipal garage.

Building department.

Payments for overtime.

Reports and communications, vol. IX. Boston, 1914. 240 p.
Partial Contents.

Licenses for stands for sight-seeing automobiles.

Pensioning of veterans who had ceased to be employees of the
city.

Participation by members of the City council in the executive
and administrative business of the city.

Reforms in the Ferry division by the Public works department.
Reports and communications, vol. X. Boston, 1915. 294 p.
Contents.

Vacations for city laborers.

Concession privileges.

Standardization of salaries of city and county employees.

Purchase of clothing for city employees.

Payments for overtime.

System of purchasing supplies in Boston.

Automatic lighting devices for street lamps.
Reports and communications, vol. XL Boston, 1916. 394 p.
Contents.

Reorganization of the Health department.

The city budget.

Increase in the tax limit of Boston.

Condition of streets in Boston.

High pressure water service installation.

Street construction in Boston.

Cost of city passenger automobiles.

Adoption of check paying system for city employees.
Reports and communications, vol. XII. Boston, 1917. 486 p.
Contents.

Floor preservatives.

Granting one day off in three to firemen.

Segregated budget.

Payment of city employees by check.

The Boston school department, p. 159-222.

Letter to the Boston Finance commission from James H. Van
Sickle, chairman of the Survey committee [presenting a re-
port of a study of certain phases of the public school system
of Boston, made under the auspices of the Boston Finance
commission], p. 223-443.
[Published also as Document 87-1916, in a volume of 219

pages.]

The reorganization of the administration of schools.
Reorganization of District supervision.
The High School situation.
Special departments.

199

EFFORTS FOR ADMINISTRATIVE REFORM

Vocational education.

Vocational needs of Boston children.

Expenditures for school purposes in Boston compared with

expenditures in other large American cities.
Construction of school buildings.

Annual reports, 1910 — date (Public Doc. No. 88). [First annual
report is for the period ending Jan. 31, 1910.]

Chicago, 111. : Commission on City Expenditures. In 1909
provision was made by the city government of Chicago for a
special commission to make a thorough study of city expen-
ditures with a view to making recommendations looking to
the more economic and efficient expenditure of the city's
money. This commission was duly appointed August 19,
1909, and was popularly known as the "Merriam Commission"
after its chairman, Professor C. E. Merriam, of the Univer-
sity of Chicago.

This commission proved to be a very energetic body.
During the balance of the year 1909 and 1910 it made an
investigation of the expenditures of nearly all the city de-
partments, the results of which were embodied in twenty-one
reports. Seventeen of these reports were at once published in
pamphlet form. The remaining four reports were subse-
quently published by the Chicago Bureau of Public Efficiency.
In April, 1911, the commission was deemed to have been
abolished as a result of the change which then took place in
the city administration. The work of the commission, how-
ever, was continued by the Efficiency Division of the Chicago
Civil Service Commission and the Chicago Bureau of Public
Efficiency, both of which organizations owed their creation
directly to the impetus given to the work of governmental
research by that commission.

PUBLICATIONS

Preliminary report ... on the purchase of castings from the Cum-
mings foundry company by the business agent on requisitions
from the Department of public works, 1907-1909. Chicago, 1910.
19 p.

Preliminary report on Southwest land and lake tunnel system. 1910.

43. P-

Preliminary report on street paving. 1910. 34 p.

Preliminary report on the building department. 1910. 23 p.

Preliminary report on the Business agent's office of the city of Chi-
cago. 1910. 16 p.

200

AGENCIES OF PARTICULAR CITIES: OFFICIAL

Preliminary report on the Department of electricity. 1910. 40 p.

Preliminary report on the Division of bridges and harbors. Dept.
of public works. 1910. 32 p.

Preliminary report on the House of correction. 1910. 40 p.

Preliminary report on the McGovern street repair contract of 1908.
1910. 31 p.

Preliminary report on the Police department. 1910. 18 p.

Preliminary reports on purchase of lumber, budget making, Law-
rence avenue sewer, Bureau of sewers, City clerk's office, pur-
chase of coal. 1910. 90 p.

Preliminary report on the Fire department. 1910. 53 p.

The water works systems of the city of Chicago. Report of Dabney
H. Maury to the Chicago Commission on city expenditures.
Pub. by the Chicago bureau of public efficiency. Dec., 1911.
52 p. fold, tables. .

Bureau of streets of the city of Chicago. Report of Richard T. Fox
to the Chicago Commission on city expenditures. Pub. by Chi-
cago bureau of public efficiency. Dec., 1911. p. 7-36.

The Civil service commission of the city of Chicago. Report of
Russell Whitman [and others] to the Chicago Commission on
city expenditures. (In its Bureau of streets, etc. Pub. by Chi-
cago bureau of public efficiency, Dec., 1911. p. 37-78.)

Special assessment accounting system of the city of Chicago. Re-
port of T. W. Betak to the Chicago Commission on city expendi-
tures. (In its Bureau of streets, etc. Pub. by Chicago bureau
of public efficiency, Dec., 1911. p. 79-112.)

Chicago, 111.: Efficiency Division of the Civil Service
Commission. The Civil Service Commission of Chicago at
the time of the creation of the Commission on City Expendi-
tures, an account of which has just been given, had established
an enviable record for public-spirited and energetic action for
municipal reform. In 1909, as the result of the disclosure of
conditions in the city government by that commission, pro-
vision was made by the city council for the creation of a per-
manent efficiency division that should be a part of the organ-
ization of the Civil Service Commission. This division was
organized under the direction of Mr. J. L. Jacobs. In the
neighborhood of $30,000 a year was appropriated for a num-
ber of years for the support of this division. Under the
energetic and capable direction of Mr. Jacobs a large amount
of research work of the highest order was done. Regarding
this work a writer in the National Municipal Review had the
following to say i1

1 National Municipal Review, Vol. IV, No. 14. Oct., 1915, p. 662.

2OI

EFFORTS FOR ADMINISTRATIVE REFORM

The permanent staff of experts and investigators which
were recruited from the civil service eligible registers has, at
the request of the council, the finance and other committees
thereof, and of department heads, investigated and reported
on the organization activities and methods of practically every
department of the city government.

During this period, in cooperation with the council and
the department heads, civil service administration has been
raised to a high business standard, conditions of employment
improved, both as to service rendered and opportunities of
employees, and various measures adopted look toward effec-
tive and responsible government administration.

In such inquiries it was found that the information thus
obtained, beyond the specific result in view, has been vital,
first, to the finance committee and the council in determining
judicious apportionment of the $40,000,000 appropriated
each year; second, to the departments and bureaus in secur-
ing and maintaining efficient administration; and third, to
the civil service commission in the proper selection and con-
trol of the service and the promotion and separation of em-
ployees. The efficiency division had become an integral part
of the municipal government, acting as a coordinating force
as between departments and council committees. With a
broad and general view of the entire activities of the city ad-
ministration, it was in a position to aid the different branches
of the service in the preparation of estimates and the annual
budget, to solving problems of employment, management
and methods.

Notwithstanding the general recognition of the value of
this work, and of the work of the Civil Service Commission
generally, the new administration which came into office in
1915, adopted the policy of destroying the work of the com-
mission as far as possible. New members were appointed to
the commission who were willing to carry out this policy.
One of its first acts was the abolition of the Efficiency Di-
vision. The reason assigned was "lack of work and funds."
This, despite the fact that appropriations in the 1915 budget
were available, that five investigations were under way, and
a request for the beginning of six other surveys had been made
by the city council finance committee. The real reasons were
undoubtedly of a purely political character.

202

AGENCIES OF PARTICULAR CITIES: OFFICIAL

Later the work of the Efficiency Division was transferred
to the committee on finance of the council, which has organ-
ized a staff for its performance.

PUBLICATIONS

Final report of the Municipal efficiency commission, city of Chicago —

1909-1911. [Chicago, 1911?] 41 p.

Report on the Department of buildings, city of Chicago. Inquiry
conducted at request of Mr. Henry Ericsson, commissioner of
buildings, December 28, 1911, to May 6, 1912. Conditions, meth-
ods and systems in use — organization — conclusions and recom-
mendation. [Chicago, Western newspaper union, 1912.] 59 p.
charts.

Final report police investigation. Inquiry conducted by authority
of His honor, Carter H. Harrison, Mayor, Sept. 5, 1911, to
March 7, 1912. Details of vice investigation — departmental
analysis — reorganization plan- — conclusions and recommenda-
tions. [Chicago, Western newspaper union, 1912.] 54 p. 3 i.
Analysis of employment and charts showing departmental organiza-
tions and distribution of employees, city of Chicago, March,
1913. Outline report of work of the Efficiency division, Civil
service commission, 1909-1912. [Chicago, Western newspaper
union, 1913.] 99 p. incl. charts (part. fold.).
Contents.

Analysis of employment — 1913.
Outline report of work of the Efficiency division.
Departmental organization and distribution charts.
Reports on the Department of electricity, city of Chicago. Inquiries
conducted at request of Mr. Ray Palmer, city electrician, May
24 to November 29, 1912. Conditions, methods and systems in
use and organization of the Department of electricity. [Chicago,
Barnard and Miller, 1913.] 40 p. incl. charts (part fold.).
Contents.

Report on investigation of the organization of the Depart-
ment of electricity.

Report on investigation of the Interior wiring bureau.
Report on investigation of police powers of employees in elec-
trical department.
Report on investigation of storehouse and yard — construction

and maintenance division.
Report on the gas meter testing division.

Report on the investigation of engineer and janitor service, Board
of education, city of Chicago. Inquiry conducted at the request
of the Board of education, May I, 1913, to September 5, 1913.
Compensation, conditions, organization, administrative and effi-
ciency control — conclusions and recommendations. [Chicago,
J9i3-] 71 P- tables.

Reports on the Bureau of streets, Department of public works, city
of Chicago. Investigations conducted at the order of the City
council and at the request of the commissioner of public works,
April 21, 1913 — October 15, 1913. Methods, systems, standards

203

EFFORTS FOR ADMINISTRATIVE REFORM

and schedules of service — bases of estimates and appropriations —
administrative questions, organization of the Bureau of streets
and of other departments having similar activities . . . [Chicago,
H. G. Adair, 1913.] 113 p. plans, tables, diagrs.
Reports on the budget of educational estimates and expenditures,
Board of education, city of Chicago. Educational budget pre-
pared by the Efficiency division . . . February 27, 1914, to May
2, 1914. [Chicago, J. F. Higgins, printer, 1914.] 49 p. incl.
tables.

Partial Contents.

Classification of standard accounts.
Report on procedure in preparation of budgets and accounting

control.

Rules governing compensation of civil service employees.
Report on the budget of educational estimates and expenditures,
Board of education, city of Chicago. Educational budget pre-
pared by the Efficiency division . . . February 27, 1914, to May
2, 1914 . . . [Chicago, J. F. Higgins, printer, 1914.] 558 p.
Contents [same as in edition above, except that detailed esti-
mates are given for each organization unit].

Report on the investigation of prison labor and management, House
of correction, city of Chicago. Inquiry conducted at the request
of the Committee on finance, December u, 1913, to March 24,
1914. Statutory provisions, organization, management, record
system, inmates and prisoners, contract labor, extension of in-
dustries, present industries — conclusions and recommendations.
[Chicago, Cameron, Amberg & co., printers, 1914.] 66 p. incl.
illus., plan, tables.

Report on the investigation into organization and administration,
Department of health, city of Chicago. Inquiry conducted at
the request of Dr. George B. Young, Commissioner of health —
May 26, 1914, to April 19, 1915. Statutory and ordinance pro-
visions, organization, administration, methods of procedure,
equipment conditions, records and systems — conclusions and rec-
ommendations. [Chicago, W. J. Hartman co., printers, 1915.]
160 p. charts, tables.

Milwaukee, Wis. : Bureau of Economy and Efficiency and
Bureau of Municipal Research. In 1910 the Social Demo-
cratic Party succeeded in gaining control of the government
of Milwaukee. A leading feature of its program was that of
subjecting the government of the city to study with a view
to perfecting its organization and methods of business. By
a resolution of June 14, 1910, the Committee on Finance of the
Common Council of the City of Milwaukee was directed "to
investigate the system of accounts of all departments of the
City of Milwaukee and the operations and activities of all de-
partments and powers granted to the city," and to submit to

204

AGENCIES OF PARTICULAR CITIES: OFFICIAL

the council for adoption "a complete system of uniform ac-
counts, vouchers and other forms that may be necessary or
convenient for carrying out such system and recommendations
for rendering more efficient and economical the administra-
tion of the city." For expenses connected with the preparation
of this report $5,000 was appropriated.

To carry out the purposes of this resolution and appro-
priation there was created an organization with the title "Mil-
waukee Bureau of Economy and Efficiency." This body in
May, 1911, issued a bulletin in which it discussed proposed
plans of work, and indicated the studies and researches which
it intended to make.

In 1912 a change of government took place. The idea
of subjecting the government to a thorough overhauling had
such a strong popular support that the new administration
declared its intention to continue the work projected by the
bureau. Though it abolished the bureau it created in. its place
a new bureau under the title of "Bureau of Municipal Re-
search."

Following is a list of the publications of these two bureaus :

PUBLICATIONS

Bulletin, No. 1-19. Milwaukee, Wis., 1911-1912.
Contents.

No. I. Plan and methods in municipal efficiency, by B. M.

Rastall. 1911. 29 p.

No. 2. Proposed consolidation of fire and police alarm tele-
graph system, by J. E. Treleven. 1911. 23 p.
No. 3. Garnishment of wages. 1911. 27 p. Pub. by the Wis-
consin Consumer's league.

No. 4. Proposed minimum wage law for Wisconsin . . . Pre-
pared for the Wisconsin consumer's league under the
direction of J. R. Commons, 1911. 18 p.
(This bulletin was not published by the Bureau, but

simply included in its series.)
No. 5. The refuse incinerator, by M. Cerf [and others]. 1911.

75 P-
No. 6. Citizens' free employment bureau, by F. A. King. 1911.

J5 P-

No. 7. Free legal aid, by F. A. King. 1911. 16 p.
No. 8. The newsboys of Milwaukee. 1911. 96 p.
No. 9. Guide to exhibit and a review of the Bureau's work.

Loan exhibit of the Census bureau. Milwaukee

budget exhibit, Auditorium. Nov. 27~Dec. 3, 1911.

12 p. .

205

EFFORTS FOR ADMINISTRATIVE REFORM

No. 10. Plumbing and house drain inspection, by F. H. Elwell.

19". 33 P-
No. II. Water works efficiency i. Water works survey, by

Ray Palmer [and others]. 1911. 39 p.
No. 12. Reorganization of the system of garbage collection, by

R. E. Goodell, 1912. 24 p.
No. 13. Health department, i. Milk supply, by S. M. Gunn.

1912. 45 p.
No. 14. Water works efficiency. 2. Present capacity and future

requirements, by F. E. Turneaure. 1912. 30 p.
No. 15. Health department. 2. Education and publications, by

S. M. Gunn, and F. W. Luening. 1912.
No. 16. Water works efficiency. 3. Operating efficiency, by

Ray Palmer. 1912. 30 p.

No. 17. Recreation survey, by Rowland Haynes. 1912. 31 p.
No. 18. Health department. 3. Communicable diseases, by S.

M. Gunn. 1912. 37 p.
No. 19. Eighteen months' work of the Milwaukee Bureau of

economy and efficiency, by J. R. Commons. 1912.

44 P-

Standardization of salaries of the city of Milwaukee. Report of the
Bureau of municipal research, November 4, 1913. [Milwaukee,
Wetzel bros. printing co., 1913.] 96 p. incl. tables, forms, fold,
charts.

Efficiency and economy in municipal work by modern type of equip-
ment. Milwaukee, Wis., Bureau of municipal research, 1915.

37 P-

Milwaukee's ash problem, by the Bureau of municipal research . . .

Milwaukee, C. H. Kronenberger & Co., 1915]. 45 p. incl. plans.
Annual report, 1914 — 15. Milwaukee, 1915 —

Full title of report for 1914-15: Annual report, Bureau of mu-
nicipal research, Milwaukee, Wisconsin.

New York, N. Y. : Commissioner of Accounts. The large
powers of central administrative control over the government
of the city of New York actually exercised by the Board of
Estimate and Apportionment and by the comptroller through
special agencies, as set forth in a subsequent section of this
volume, doubtless make less necessary in this city than in
others, where a less degree of central control obtains, a purely
investigative agency. The city charter nevertheless makes
provision for the Commissioners of Accounts, appointed by the
mayor, who have wide powers of investigation and report.
While the charter makes provision for two commissioners, it
has been the custom since 1909 for the mayor to appoint but
one.

Regarding the interpretation placed upon these provisions,

206

AGENCIES OF PARTICULAR CITIES: OFFICIAL

a report1 prepared by the Commissioner of Accounts' office
has this to say :

The work of the Commissioner of Accounts' Office is not
limited to ferreting out irregularities and obtaining evidence
of inefficiency or dishonesty; it includes also budget inves-
tigation, the study of important administrative problems and
assisting in reorganizing bureaus or departments to secure
greater economy and efficiency. The efficiency staff formerly
under the Board of Estimate and Apportionment has recently
been transferred to the Commissioner of Accounts. The
staff is conducting efficiency studies looking toward the
standardization of work processes in the various departments.

The foregoing may be supplemented by the following ap-
preciation of its work contained in a report on New York
City's Administrative Progress,

Continuously through the past two years, the commis-
sioner of accounts, in addition to carrying on his own work,
has supplied several members of his staff to assist in con-
structive work under the direction of the chamberlain and
to investigate and report on current administrative matters
referred to the chamberlain by the mayor. He has also as-
sisted the various heads of departments in their work of re-
organization. Especially noteworthy assistance has been ren-
dered to the commission on pensions in its investigation of
the city's pension funds, and to the temporary central pur-
chase committee organized to purchase supplies on contract
for all departments under the jurisdiction of the mayor. The
commissioner of accounts has cooperated in the preparation
of the annual budget by detailing examiners to analyze de-
partmental requests prior to their approval by the mayor for
submission to the board of estimate and apportionment. The
volume of constructive work done by the office is greater
than that done at any previous period and indicates the neces-
sity for continuing as a branch of the executive force an ad-
ministrative staff to deal with general questions of a con-
structive nature.

1 Government of the City of New York : A Survey of its Organi-
zation and Functions, 1915.
a P. 203.

207

EFFORTS FOR ADMINISTRATIVE REFORM

Probably the most important report made by this office
is the one prepared, in collaboration with the New York
Bureau of Municipal Research, for the Constitutional Con-
vention of 1915 on the Government of the City of New York:
A Survey of its Organization and Functions.

In 1915 the office, in cooperation with the chamberlain,
made a critical study of the county government within the city
of New York and recommended the consolidation of county
offices and the merger of certain of them with offices of the
city government. It was estimated that the adoption of these
recommendations would result in a saving of over $2,000,000
annually.

""During the administration of Mayor Mitchel, 1913-1917,
an additional agency for investigation existed in the office
of the city chamberlain. That office had for years been rec-
ognized as a sinecure, to be filled by a purely political appoint-
l\ ment. Mayor Mitchel took advantage of the existence of
this office, required by the charter, to appoint to it Mr. Henry
Bruere, then one of the directors of the Bureau of Municipal
Research, and designating him as a sort of assistant to the
mayor in matters of administrative reform. Under Mr.
Bruere's direction, and in large measure in collaboration with
/ the office of the Commissioner of Accounts, a number of in-
vestigations in various branches of the city's administration
were made, and many important changes effected. Account
of these is given in a report issued by the chamberlain in 1916,
entitled New York City Administrative Progress, 1914-16.

In practically all of the work above outlined the city offi-
cials have had the cooperation and assistance of the New
York Bureau of Municipal Research.

PUBLICATIONS

Report of the commissioners of accounts transmitting to His Honor
the mayor a report of a special examination of the "Bureau for
the collection of city revenue and of markets" of the Finance
department to determine the correctness of the returns made,
by corporations operating street surface and elevated railroads,
to the Finance department, for car license and franchise tax in all
of the boroughs of Greater New York, from October i, 1889,
to October i, 1899. New York, M. B. Brown co., printers,
1901. i p. I., viii, 277 p. incl. fold, tables.

A report on a special examination of the accounts and methods oi

208

AGENCIES OF PARTICULAR CITIES: OFFICIAL

the office of the president of the borough of Manhattan, directed
by Hon. George B. McClellan, mayor. Commissioners of ac-
counts of the city of New York, July 16, 1907. [New York, M.
B. Brown press, 1907.] 158 p. tables (partly fold.).

A report on a special examination of the accounts and methods of
the night court 9th district city magistrates' court, boroughs of
Manhattan and the Bronx. Directed by Hon. George B. McClel-
lan, mayor. Commissioners of accounts of the city of New York,
September 3, 1909. [New York, M. B. Brown press, 1909.] 117
p. incl. tables (partly fold.) 7 facsim.

A report on a special examination of the accounts and methods of
the office of the president of the borough of Brooklyn, directed
by Hon. George B. McClellan, mayor . . . November 23d, 1909.
[With testimony.] [New York, 1909.] 6 v. in 5. pi., 2 fold,
tab., facsims.

The mayor's eye. An investigating commission by the use of which
the mayor obtains independent information as to the records and
workings of all departments of the city and county government,
officially known as Commissioners of accounts . . . New York,
Commissioners of accounts, 1910. 28 p. I 1.

A report on the progress of efficiency work in the borough of Queens
during the year 1912. [New York, E. D. St. George co., 1913.]

[37] P-

Report made to the mayor.

Government of the city of New York; a survey of its organization
and functions, prepared for the Constitutional convention, 1915,
by the office of the commissioners of accounts, New York city,
and New York Bureau of municipal research. New York, J. J.
Little & Ives company, 1915. i p. 1., v-xxxi, 1343 p.
Introduction signed: Leonard M. Wallstein, commissioner of ac-
counts.

A report on office of city clerk and Board of aldermen. Examination
and audit for the period from January I, 1910, to September 30,
1914, by Leonard M. Wallstein, commissioner of accounts. [New
York, 1915.] 12 p. incl. tables.

Report on a study of the effect of mandatory legislation upon the
budget for the year 1915. June 15, 1915. Office of the commis-
sioner of accounts, city of New York, Leonard M. Wallstein,
commissioner. [New York, M. B. Brown printing & binding-
co., 1915.] i p. 1., ii-xxii numb. I., I 1., 77 numb., I. incl.
tables, diagrs.

Report on special examination of the accounts and methods of the
Board of elections of the city of New York directed by Hon.
John Purroy Mitchel, mayor. Office of the commissioner of ac-
counts city of New York . . . [New York, M. B. Brown printing
& binding co., 1915.] 47 p.
Leonard M. Wallstein, commissioner of accounts.

Report on special examination of the accounts and methods of the
office of the coroner in the city of New York, directed by Hon.
John Purroy Mitchel, mayor. Office of the commissioner of ac-
counts, city of New York. Leonard M. Wallstein, commissioner
of accounts. [New York, M. B. Brown printing and binding
co., 1915.] 82 p.

209

EFFORTS FOR ADMINISTRATIVE REFORM

Study of county government within the city of New York and a
plan for its reorganization. Prepared for the Constitutional
convention, 1915, by the commissioner of accounts and the city
chamberlain, New York City . . . [New York, M. B. Brown,
printing and binding co., 1915.] v p., I I., 43 p. charts., fold,
tables, diagrs. (i fold.).

Henry Bruere, city chamberlain, Leonard M. Wallstein, com-
missioner of accounts.

The work of the police surgeons and the retirement of policemen for
disability. Leonard M. Wallstein, commissioner of accounts.
[New York, J. J. Little & Ives co., printers, 1915.] 26 p.
A report transmitted to the mayor, November 24, 1915.

City printing. Economics proposed in the printing incident to the
preparation and adoption of the annual city budget. Leonard
M. Wallstein, commissioner of accounts. [New York, 1916.]

31 P: .

The Division of combustibles, Bureau of fire prevention, Fire de-
partment, city of New York. An examination of its accounts
and methods. Leonard M. Wallstein, commissioner of accounts.
[New York, M. B. Brown printing & binding co.], 1916. 24 p.

The office of coroner in New York City. Summary of the findings
of the commissioner of accounts in an investigation of the office
and text of an act abolishing the same and creating the office of
chief medical examiner. New York, New York short ballot as-
sociation, 1916. 10 p. (Documents on county government.)

Bureau of supplies, Department of education, city of New York;
examination of its accounts and methods. [New York, Press of
C. S. Nathan, inc.], 1917. 47 numb. i.

PUBLICATIONS OF BUREAU OF CITY CHAMBERLAIN

Administrative reorganization and constructive work in the gov-
ernment of the city of New York, 1914. Henry Bruere, cham-
berlain. [New York, Press of C. S. Nathan, inc.] 1915. 50 p.

The reorganization of the office of chamberlain, 1914, by Henry
Bruere, chamberlain of the city of New York. [New York, C. S.
Nathan, inc., 1915.] 39 p. chart, fold. tab.

New York city's administrative progress, 1914-16. A survey of
various departments under the jurisdiction of the mayor, con-
ducted under the direction of Henry Bruere, chamberlain, city
of New York, May, 1916. [New York, M. B. Brown printing
& binding co., 1916.] 3, 3a-f, 5-351 p. plates, fold. tab.

Other Municipalities. Undoubtedly other municipalities
have created agencies of one kind or another having for
their function the taking of action looking to the improvement
of their methods of administration. The city of Los Angeles,
California, thus created an efficiency department in 1914. The
work of this department seems to have encountered strong
opposition almost from the start, and it was finally abolished

210

AGENCIES OF PARTICULAR CITIES: OFFICIAL

in 1917. During this period it published the following three
reports :

1. The City Government of Los Angeles, Cal. Organiza-
tion Charts, July i, 1914, 48 charts.

2. First Annual Report Los Angeles County Civil Serv-
ice Commission and Bureau of Efficiency for the year ending
June 30, 1914.

3. City of Los Angeles, Summary of Budget Estimate for
the Fiscal Year 1915-1916. May 2, 1915. 19 p.

Much of course is also done by city comptrollers and other
financial officers in the way of working out and installing im-
proved systems of accounting and reporting. Among such
cities special mention should be made of Philadelphia, Penn-
sylvania, the comptroller of which has not only devised and
put into operation a modern system of accounting and re-
porting, but has published an excellent manual of accounting
procedure describing the new system.

211

CHAPTER VIII

AGENCIES FOR INVESTIGATING THE ADMIN-
ISTRATION OF PARTICULAR CITIES:
UNOFFICIAL

As has been pointed out in our introductory chapter, in
which is traced the development of the modern movement for
efficiency in the administration of public affairs, the origin of
this movement is to be found in the rise of the conviction that
good municipal government was not to be secured as a perma-
nent possession by purely political action; that the problem
of securing such a government was as much administrative as
political, and that efforts should be more largely directed to-
wards the improvement of the actual machinery and methods
of administration, rather than to the selection of the persons
who were to operate such machinery. It was logical that this
feeling should first develop in respect to municipal government ;
since it has long been recognized that the duties of such gov-
ernment are primarily of a purely business character and as
such should be conducted upon a business basis.

This conviction that the line of attack lay along the im-
provement of the purely business, or non-political side, of
municipal government has led to the creation in a large num-
ber of our more important cities of institutions specially or-
ganized and equipped for this work. These institutions are
generally known as bureaus of municipal research, though
some of them are differently designated. Some have been
established by and are conducted under the auspices of exist-
ing social agencies, such as chambers of commerce. Most,
however, are independent bodies created by a group of citizens
and supported wholly by voluntary donations.

In the following paragraphs is given an account of the
establishment, work and publications of each of these bureaus
in so far as it was possible to secure information regarding

212

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

them. In respect to the matter of their publications, two things
should be noted. The first is that only in small part do the
results of the work of these bureaus appear in printed form.
In many cases the work is done by direct conferences be-
tween officers of the bureaus and city officials, or by the for-
mer participating in the devising and installing of improved
accounting and other business methods. In still others the
results of the inquiries made by the bureaus are embodied in
manuscript reports which have served their purpose when
presented to the officers of the municipality interested. Only
in a relatively few cases are these reports of a character that
would warrant their publication in printed form. The sec-
ond is that a considerable part of the material that is printed
is issued for general propaganda purposes or to direct the
attention to particular municipal happenings, and thus has no
great permanent value. Material of this character appears in
the form of leaflets or folders issued at regular or irregular
intervals of time. No attempt has, therefore, been made to
list in detail publications of this character.

The foregoing remarks regarding the publication activities
of these bureaus have been given in order to make clear that
the value of the work of these bodies is not to be judged by
the amount and character of their printed publications.

In a sense the oldest and most important of the class of
agencies treated in this chapter is the New York Bureau of
Municipal Research. For reasons there set forth, however,
this agency has been treated in a preceding chapter as an
agency for studying the problem of municipal administration
generally.

Philadelphia, Pa.: Bureau of Municipal Research, The

first city to follow the example of New York and create a
bureau of municipal research was Philadelphia. The estab-
lishment of this bureau was the direct result of the appreci-
ation on the part of a group of citizens of that city of the
value of the work done in New York. In 1908 the New York
bureau was requested to lend its assistance in the establish-
ment of a similar bureau in Philadelphia. After a prelimi-
nary visit by one of the directors of the New York bureau, a

213

EFFORTS FOR ADMINISTRATIVE REFORM

number of Philadelphia citizens visited the New York office
to discuss plans. This was followed by a number of confer-
ences, resulting in the pledging of a sum of $12,500 for an ex-
perimental period of six months. The Philadelphia bureau
was formally opened on November 9, 1908, by a staff detailed
from the New York bureau under one of the directors of
that organization.

Although some difficulty was experienced in the beginning
in getting the confidence and cooperation of the mayor, the
supporters of the movement were convinced, at the expira-
tion of the six-month experimental period, that the institution
was worth while, and accordingly decided to incorporate a
local body separate from the New York bureau, which was
done in the autumn of 1909.

The purpose of the bureau, as stated in its charter, is :

To serve Philadelphia as a non-partisan and scientific
agency of citizen inquiry, which shall collect, classify, and in-
terpret the facts regarding the powers, duties, limitations, and
administrative problems of each department of the city gov-
ernment; to make such information available to public of-
ficials and to citizens, in order that inefficient methods of ad-
ministration may be eliminated, and efficient methods en-
couraged; and to promote the development of a constructive
program for the city that shall be based upon adequate knowl-
edge and consideration of community needs.

According to a statement issued by the bureau, it accom-
plishes this purpose "by advancing sound methods of admin-
istration and securing constructive publicity concerning
municipal problems." Its scope comprehends finance and ac-
counts, public works, safety, health, education and charities.
It "provides a clearing house of information concerning pub-
lic questions and government, maintains a trained staff to
study community needs and community acts, submits unbiased,
impersonal scientific criticism to officials and citizens, without
regard to politics and personal favor," and "supplements
criticism with positive proposals and constructive work." It
prepares descriptive statements for the officials responsible
for the governmental units surveyed, gets the officials' verifi-
cation of the facts as found, prepares critical and constructive

214

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

reports, and cooperates in installing the improvements recom-
mended.

The governing body of the bureau is a board of twenty-
three trustees, including the chairman, vice-chairman and
treasurer. The work of the bureau is conducted by a director,
an assistant director, a secretary, an accountant, a public
employment specialist, a civil engineer, a librarian, a trained
investigator and statistical expert.

The bureau usually has, in addition, a number of volunteer
staff members and office assistants who are students at col-
leges in the vicinity. Heretofore, these volunteers were
usually engaged on general assignments under the direction of
a staff member and with opportunities for but little original
work, but a new departure was recently made whereby vol-
unteer students were given special original work for their
theses. The topics for these theses were selected by the
bureau and the theses must be approved by the bureau before
they will be accepted by the college authorities. Volunteer
staff members are accepted only on condition that they give at
least fourteen hours per week to this work. The results
of their work, if deemed sufficiently valuable, will be published
at the expense of a special fund.

The work of the bureau since its organization covers a
large range of civic activity, the principal studies being in the
fields of education, weights and measures, accounting and
finance, public health, civil service, public safety, public works,
etc.

The first important work undertaken by the bureau was in
the field of public education. In 1909 a study was made of
the Municipal Bureau of Compulsory Education, which bureau
is charged with the enforcement of the compulsory school at-
tendance and the child labor laws. The result of the study
was a complete reorganization of that bureau from an ineffi-
cient service to a model of its kind.

An exhaustive study of negro education was undertaken
by the bureau. The results of the study, which were pedagog-
ical and psychological rather than administrative, were pub-
lished by the United States Bureau of Education, and the
recommendations made were influential in shaping the poli-

215

EFFORTS FOR ADMINISTRATIVE REFORM

cies of the Philadelphia school authorities in the matter of
negro education.

Ten other educational studies were made by the Philadel-
phia bureau resulting in pieces of work of varying lengths
and of widely different degrees of importance. Principal
among these was a study of special schools, resulting in a
complete reorganization and a study of the Department of
Supplies of the Board of Education, which study furnished
the basis for a radical change in the organization and methods
of that department. The bureau also prepared a complete
digest of all the laws, ordinances and regulations pertaining
to the schools.

A study of the weights and measures situation in Phila-
delphia resulted in the enactment of state legislation for the
creation of a bureau of weights and measures in Philadelphia.

The field of accounting and finance claimed a large part
of the money and energy of the bureau. Prior to 1909 the
accounts of every city department were, in effect, merely memo-
randa of cash transactions, and there was no systematic record
or control of other assets. The bureau in cooperation with
the comptroller brought about the installation of modern fund
and expense accounts in the latter's office and modern systems
of accounting in a number of other departments, notably the
bureaus of charities and water and the electrical bureau. This
was facilitated by the preparation of a manual of accounting
by the comptroller's office, in cooperation with the bureau,
which was printed and distributed to the various departments.

The bureau, in cooperation with the comptroller's depart-
ment, prepared a uniform classification and budget program
for the city government which was accepted by the mayor,
but adopted only in part by the councils. This subject of
budget making has been the most costly single study under-
taken by the bureau.

Numerous other accounting and financial studies have
been undertaken by the bureau, at least one member of the
staff, and usually more, being always engaged on some study
in this field. These studies include a calculation of the ex-
pected borrowing capacity of the city for the next ten years,
cooperation with city bureaus in solving their accounting

216

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

problems, a survey of the Board of Revision of Taxes, work
with the mayor's committee on new sources of revenue, and
a number "of others.

Among the earliest effective studies of the bureau were
those made in the City Department of Health and Charities.
In this field the bureau prepared a digest of all the laws and
ordinances pertaining to public health which was printed as
a public document and is in constant use by the department.

A survey of the Division of School Medical Inspection
made by the bureau resulted in a complete reorganization and
standardization of methods.

An exhaustive study of the Milk Inspection Service made
by the bureau resulted in the appointment, by the mayor, of
a commission of six experts, which adopted the bureau's pro-
posals, bringing about a complete revision of the milk regu-
lations and a reorganization of the inspection procedure. The
bureau also cooperated in the conduct of the "Milk Show" in
1911.

The bureau made surveys of the contagious disease hos-
pital and the Philadelphia General Hospital, bringing about
a modernization of business procedure such as introduction
of stores control, standardization of specifications for sup-
plies, etc.

In 1914, the bureau, in cooperation with the Henry Phipps
Institution and the University of Pennsylvania, made a joint
survey of the conditions under which foodstuffs were sold
in Philadelphia. The bureau's part of the survey included
the city's inspection service and general control over the
handling of foods. Attention was called to many defects due
chiefly to inadequate appropriations.

Studies were also made by the bureau in the Division of
Vital Statistics and in the fields of housing and sanitation,
tenement house inspection and child hygiene.

The municipal civil service obtained considerable of the
bureau's attention. In November, 1914, a program of sal-
ary standardization was begun and much progress has been
made, the Civil Service Commission enthusiastically coop-
erating. A large amount of preliminary work has been done
and a compilation of comparative salary data has been printed.

217

EFFORTS FOR ADMINISTRATIVE REFORM

The bureau has entered upon several lines of work in the
Department of Public Safety. It prepared a new patrolmen's
manual, the first to be published in seventeen years, a copy of
which was given to every member of the police force, and
it organized a school of instruction in the City Bureau of
Police. Constructive suggestions were made in matters of
procedure in the police bureau, resulting in the printing of
general orders instead of giving oral instructions, the intro-
duction of efficiency records as a basis for promotion and
discipline, and the establishment of more effective control
over police property.

The bureau brought about the establishment of a school
of instruction in the Bureau of Fires. Officers of the bureau
were members of a commission on fire prevention, appointed
by the mayor, which worked out a systematic and effective
program of fire prevention work. In cooperation with the
chief of the electrical bureau, a thorough reorganization of
the administration, personnel and accounting methods of that
service was effected.

In the Public Works Department, the bureau did effective
work in bringing about the establishment of modern systems
for handling and filing correspondence and reorganizing the
inspection service of the highway bureau; reorganizing the
janitor service, resulting in an annual saving of $30,000 with
better service ; assisting in the solution of administrative prob-
lems in the director's office; studying the conditions attend-
ing the lease of the citizens' gas works to a private company ;
and preparing a digest of the laws governing the Public Works
Department.

With the assistance of the bureau the director of the De-
partment of Supplies was enabled to bring about a much
greater centralization of purchasing. The bureau formulated
standard specifications for a large part of the supplies bought
by the city which were adopted by the department.

At the invitation of the presiding judge of the Municipal
Court, the bureau made a study of the organization, methods
and procedure of the domestic relations division of that court.
As a result, it devised a new system for keeping case records
and installed a complete system of mechanical tabulation of

218

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

the social and other data pertaining to domestic relations
cases.

The bureau cooperated in the preparation of a draft of
a new charter for the city, providing for home rule powers,
especially with respect to finance. The director of the bu-
reau acted as secretary of a committee appointed for that
purpose.

Other activities of the bureau include an inquiry into the
use of mandamuses in Philadelphia, an investigation of city
control of billboards, a study of fire insurance on city prop-
erty, a study of licenses and new sources of revenue in co-
operation with the Mayor's Advisory Committee on Finance,
a survey of the heating and ventilation of school buildings, a
brief survey of the sheriff's office, an examination of the com-
mittee system of the city councils, etc.

The bureau's publicity work consists mainly of the pub-
lication of a weekly bulletin entitled Citizens' Business, usually
a folder, in each copy of which, as a rule, but one topic is
discussed. Reports of studies and surveys have also been
printed in book and pamphlet form.

PUBLICATIONS

Citizens' business, No. 2-299.

A few numbers are in pamphlet form, octavo size.
Budget estimates, 1912, city of Philadelphia. Philadelphia, Bureau

of municipal research, 1911. 30, 162 p.

A digest of the statutes and ordinances relating to public health gov-
erning the Department of public health and charities ; with index
and organization charts. Philadelphia, Dept. of public health
and charities, 1911. 10, 246 p. 18 plates.

Editorial response to disclosure of a public emergency. Comment
of Philadelphia newspapers on the weights and measures situ-
ation in Philadelphia. As shown by the report of the Bureau of
municipal research. One week: March 6th to I3th, 1911. [Phil-
adelphia, Bureau of municipal research, 1911] cover-title, 15 p.
Report No. I — Philadelphia, 1911 —
Contents.

No. I. The weights and measures situation in Philadelphia; a
report setting forth the results of the lack of a sys-
tem of official inspection and regulation, together with
a digest of existing laws and ordinances on the sub-
ject and a suggested legislative program. Submitted
to the mayor March 3, 1911. 1911. 153 p. incl.
tables, plates, facsim., diagrs.

Specifications for supplies, "Groceries, canned goods, fresh fruits

219

EFFORTS FOR ADMINISTRATIVE REFORM

and vegetables and flour." Schedules printed by Department
of supplies, 1912.

Organization and administrative methods of the Board of revision
of taxes of Philadelphia county. A descriptive statement . . .
[Philadelphia, Board of revision of taxes, 1913.] 63 p.

Patrolman's manual. Printed under supervision and at expense of
the Philadelphia Bureau of police. 1913. 220 p.

Food inspection service in Philadelphia. April 14, 1915. (In Henry
Phipps institute . . . Twelfth report . . . Philadelphia, 1916. p.
57-94-)

Comparative salary data, obtained from the payrolls of fourteen
cities in the United States, forty-eight private establishments
in Philadelphia and salary standardizations of seven American
cities for one hundred and twenty-eight positions in municipal
service, by the Bureau of muncipal research of Philadelphia;
staff member in charge of this study, William C. Beyer. [Phila-
delphia, Bureau of municipal reseach], 1916. i p. 1., 76 p.
incl. tables.

ARTICLES

Burks, J. D. Outlook for municipal efficiency in Philadelphia. Amer-
ican academy of political and social science. Annals, May, 1912.
v. 41 : 245-61.

Cooperation of the Bureau of municipal research with city offi-
cials.

Burnham, George. Philadelphia bureau of municipal research. Na-
tional municipal review, July, 1916. v. 5 : 465-9.

Gruenberg, Frederick P. The Bureau in Philadelphia. The first
municipal research venture outside New York. (In Municipal
research, New York, Sept., 1916, No. 77, p. 8-27.)

Cincinnati, Ohio : Bureau of Municipal Research. The Cin-
cinnati Bureau of Municipal Research was established in
1909. The organization is a committee of citizens brought
together as an unofficial agency of the people. It is sustained
by voluntary contributions. The governing body is a board
of six trustees, and the chief executive officer the director.
The purpose of the bureau, as stated in its reports, is :

To conduct a non-partisan study of the methods of work
of the city and county governments with a view to recom-
mending such modifications and improvements as it believes
will promote the efficiency and economy of municipal admin-
istration, and through reports, to keep the people informed
as to the results of its findings and recommendations.

The first work undertaken by the bureau was the prepara-
tion of an exhaustive technical report on street and commer-
cial lighting which was submitted with recommendations to

220

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

the director of public service. The adoption of a number of
these recommendations effected a reduction in the cost to the
city.

The bureau was instrumental in bringing out facts whereby
two paving contracts were enjoined, preventing a futile ex-
penditure of about thirty thousand dollars. It inspected pav-
ing contract work on certain streets thereby securing a more
thorough compliance with specifications and better pavement;
made a study of relative costs of various types of pavement;
and effected a complete revision of the paving specifications
resulting in free and open competition in bidding.

The bureau cooperated with city officials in the prepara-
tion of an ordinance regulating the deposit of city funds.

It assisted in organizing the Mayor's Bureau of Efficiency
to make efficiency studies in the various departments of the
city government, but this bureau was abolished when the ad-
ministration changed.

It cooperated with city officials in planning the partial
reorganization of the city government on January i, 1912,
resulting in the consolidation of a number of the departments,
and the centralization of the telephone and garage services.

It devised and cooperated in the installation of systems of
accounting for the entire city government and of adminis-
trative methods in a number of the city departments; co-
operated with the Mayor's Efficiency Bureau in the prepara-
tion of a uniform expense classification applicable to all city
departments and a report on the standardization of salaries ;
cooperated with the city purchasing agent and auditor in the
reorganization and standardization of the purchasing meth-
ods of the city.

With the cooperation of the city officials, the bureau de-
vised the form and prepared five semi-annual appropriation
ordinances; it drafted the 1913 budget and cooperated with
the Mayor's Efficiency Bureau in drafting the budget for
1914, and with the assistance of the mayor, conducted two
municipal budget exhibits in 1912 and 1913.

The bureau cooperated with the State Educational Com-
mission of Ohio in conducting an over-age survey of the Cin-
cinnati schools ; and with the Juvenile Protective Association

221

EFFORTS FOR ADMINISTRATIVE REFORM

in an examination of the Truancy Department of the Board
of Education, devising a new system of administrative rec-
ords which was installed.

The bureau was represented at all the meetings of the City
Charter Commission and cooperated with all of its commit-
tees in the framing of a proposed new charter.

At the request of the City Club, the bureau investigated the
administration of the Municipal Court and made recommenda-
tions which, if adopted, would result in considerable saving
of expense.

Organization charts have been prepared showing in detail
departmental functions, with the duty and salary of each em-
ployee both of the city and the county governments.

The bureau has advocated the close scrutiny of all bonds
issued and of all programs for public improvements, and has
collected data on city indebtedness which will serve as evi-
dence of the necessity for and the value of an improvement
on bond budget.

The bureau publishes biennial reports of its operations
and special reports of the various studies which it undertakes.
These are shown in the following list :

PUBLICATIONS

The Cincinnati Bureau of municipal research : its first year's work,

1910-1911 ( ?).

Second annual report, 1910-1911. 16 p.
Report for the two years ending June 30, 1913. 30 p.
Report ... for the two years ending June 30, 1915. 16 p.
Budget report No. i. The city's annual budget. March 31, 1911.

15 P-

Paving reports, Nos. 1-6.
Contents.

No. i. Wood block paving contracts. A brief submitted to

the Board of control . . . Feb. 12, 1910. 22 p.
No. 2. Wood block paving: the Reading Road contract.
No. 3. Wood block paving. Is high-priced oil a business prop-
osition? June 23, 1910. 4 p.

No. 4. Wood block paving: Is high-priced oil a commercial
proposition? What manufacturers, dealers and ex-
perts say about the Cincinnati specifications.
No. 5. What is being done on the Reading Road. Oct. 7, 1910.

12 p.

Reply of Director of Public service to Paving report No. i of
Bureau of municipal research. Rejoinder of Bureau of munic-
ipal research to Director of Public Service, Feb., 1910. 7 p.

222

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

Reply to Chief engineer's communication to Director of Public
service in re the Bureau's Paving report No. 5. Nov., 1910.
14 p.

Street lighting report No. i. Feb. 18, 1911. 13 p.

The Board of health. April, 1911. 15 p.

Deposit of city funds; the results of an investigation into the pro-
tection and rates of interest for city funds on deposit. June,

ipll. 22 p.

Extracts from report of the Bureau of municipal research on the
business department of the Cincinnati Board of education. 1913.
8 p.

Information for citizens, No. 1-2.
Contents.

No. i. Extracts from report of the Bureau of municipal re-
search on the business department of the Cincinnati
Board of education . . . May 2, 1913. 8 p.
No. 2. Suggestions for an improved system of budget making
and a more systematic control over school expendi-
tures. Extracts from a report submitted to the Com-
mittee on funds and claims of the Cincinnati Board
of education. May 23, 1913. 7 p.

Over-age in the Cincinnati elementary day schools. A preliminary
analysis by the Ohio State school survey commission and the
Cincinnati Bureau of municipal research. Cincinnati, 1913. 10
p. tables.

Schools as social centers. 1913. 6 p.
Bond issues to be voted on November 2, 1915 . . . Cincinnati [1915].

[9] P-
Report on the Municipal court of Cincinnati . . . [Cincinnati, 1915?]

16 p.

Reports to the City club of Cincinnati by its Committee on public
utilities in matters relating to pending valuation of street rail-
roads, gas and electric systems. 1915. 6 p.
The House of refuge.
Juvenile court of Hamilton County.
Report on the Truancy department of the Board of education.

(abridged.)

Report on the traction ordinance submitted to the trustees of the
Cincinnati Bureau of municipal research by Mr. Alfred Bettman,
special counsel of the Bureau on traction matters, Cincinnati
[1917]. 12 p.

ARTICLES

Miles, R. E. Cincinnati bureau of municipal research. American
academy of political and social science. Annals, May, 1912, v.
41 : 262-9.

Chicago, 111.: Bureau of Public Efficiency.1 When the
"Merriam Commission," after about one and onerhalf years

1 The following is taken almost wholly from the account of the
bureau given by its director in Municipal Research, No. 77, Sept.,

223

EFFORTS FOR ADMINISTRATIVE REFORM

of successful activity, was about to terminate its labors in
19 1 o,1 it was thought by a number of public-spirited citizens
that it would be beneficial to have an unofficial body which
would continue the same general lines of work and which
would carry on continuously analytical and constructive stud-
ies of the organization, activities, and expenditures of the city
government and of the other local governments, at the same
time suggesting plans for the betterment of the public serv-
ice. This desire found expression in the creation in 1910
of the organization known as the Chicago Bureau of Public
Efficiency.

The bureau is governed by a board of trustees appointed
by the directors of the City Club of Chicago, the president of
which is ex-officio a trustee of the bureau. There is, how-
ever, it is stated, no other connection between the two organ-
izations. The bureau started with pledges to the amount of
$100,000 for its support. Subsequently new subscriptions at
the rate of $30,000 a year for a five-year period were se-
cured.

At the outset it was planned to carry on inquiries into the
affairs of practically all the different Chicago governments
simultaneously. The territory comprising Chicago has a mul-
tiplicity of governing bodies, most of which escape the light
of publicity that is directed upon the city government. There
are the county government, the sanitary district, and several
independent park boards. The Board of Education, the Li-
brary Board, and the Municipal Tuberculosis Sanitarium also
have separate taxing powers, though their trustees are named
by the mayor.

The difficulty in maintaining rigid scrutiny over so many
diverse and complicated schemes of local government were
found, however, to be almost insurmountable, and it was,
therefore, decided to restrict the range of the bureau's activi-
ties- It was thought that better results would be obtained by
concentrating from time to time upon a more limited number
of specific problems. In pursuance of this policy consider-

1916, Citizen Agencies for Research in Government. The language
of the author has been largely followed though the account is much
condensed.

1 See p. 200, supra.

224

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

able work has been done in connection with the affairs of the
county government. This accounts in part for the fact that
so many of the reports of the bureau relate to that subject
and that more reports have not been put out recently, since
during the past two years considerable work has been done
in the county fee offices, the results of which were presented
orally to the judges of the Circuit Court but were not em-
bodied in published reports.

Following is a summary of some of the accomplishments
of the bureau as listed in a booklet published in 1915:

1. Timely action on the part of the Bureau has so far
prevented the payment by the City of Chicago of three quar-
ters of a million dollars in the disgraceful voting machine
deal. Litigation is now under way which, there is reason
to believe, will be successful in saving this entire amount for
the taxpayers.

2. The Bureau exposed the practices in the County Treas-
urer's Office which have resulted in the loss of large amounts
of interest to the County. During the four-year term of the
last County Treasurer this loss amounted to considerably
more than $500,000. As a result of the disclosures made by
the Bureau, the newly-elected County Treasurer pledged him-
self before election to account for every dollar of interest
earned on funds handled by him ; also to keep books and rec-
ords which shall be open to public inspection and which shall
show his deposits of public moneys with the banks and the
interest earnings thereon. Heretofore, the public has been
denied information on these matters.

3. For three successive years the Bureau has submitted
to the Judges of the Circuit Court data which have enabled
them to effect a large saving in expense to the County by ma-
terially reducing the number of employes in the County fee
offices over which the Judges have jurisdiction. The amount
of this saving has been estimated at not less than $100,000
a year. Acting upon such data, the Judges have also been
able to induce several of the officials whose offices were af-
fected to adopt changes in organization and methods which
have resulted in increasing the efficiency of the offices. These
changes in organization and methods are important also be-
cause -they insure permanently the annual saving in salary
expenditures above referred to.

EFFORTS FOR ADMINISTRATIVE REFORM

4. The inquiry of the Bureau into the organization and
methods of administration of the several park governments
of Chicago emphasized the need for consolidating the park
governments with the City of Chicago, and the large saving
to the taxpayers — estimated at $500,000 a year — which could
be effected by such consolidation.

5. The way in which the Bureau serves a very useful pur-
pose as a center of exact information on matters affecting
local governing bodies is well illustrated by the part it has
played in explaining the effect of tax rates in connection with
bills for proposed park consolidation. There are very few
persons in the community who understand the process of tax
levying in such a way that they can explain the effect of pro-
posed changes in rates. The Bureau was responsible for
calling the attention of civic organizations and of legislative
and council committees to the fact that, as first proposed,
park consolidation bills — meant to be measures of economy —
in reality carried tax levy provisions that would operate to
bring about heavy tax increases.

6. When occasion requires, the Bureau offers informa-
tion and recommendations to the voters upon propositions re-
lating to expenditures coming before them. The Bureau first
directed public attention to the provisions for salary "grabs"
contained in the proposed amendments to the Municipal Court
act which were submitted to the voters and defeated at the
election of November, 1911. These amendments proposed
uncalled-for increases in the salaries of officials of the Mu-
nicipal Court amounting in the aggregate to about $165,000
a year. Through their defeat, the City has already saved this
amount for three years, a total of $495,000. This illustrates
how, in many cases, when a useless expenditure is once pre-
vented, the saving effected accumulates from year to year
thereafter, especially when there is an organization like the
Bureau in the field looking out for a recurrence of the ob-
jectionable measure or expenditure.

7. Prior to the election of April 7, 1914, at which pro-
posed bond issues of the City of Chicago and of the County
of Cook totaling $8,700,000 were submitted to a referendum,
the Bureau issued a statement to the voters advising the ap-
proval of two of the propositions, amounting together to
$820,000, and the rejection of the others, amounting to $7,-
880,000. The vote at the election accorded precisely with
the recommendations of the Bureau. The two propositions

226

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

recommended were carried; the other four were singled out
for defeat.

8. In 1911 the Bureau criticised certain restrictions con-
tained in the coal specifications of the Board of Education
for 1910. As a result of this criticism, the restrictive clause
was taken out, and in 1911 twenty-nine bids were received as
against six bids in 1910. The price of coal at the mines and
freight rates were both higher in 1911 than they were in
1910. Notwithstanding these facts, the bids were about 75
cents a ton less in 1911 than they had been in 1910, and the
aggregate saving to the Board of Education on that one year's
purchase of coal was about $90,000.

9. The publication entitled The Nineteen Local Govern-
ments in Chicago is perhaps the most broadly educational in
scope of any of the reports of the Bureau. It shows the com-
plexity of our local government due to the "multiplicity of
overlapping taxing bodies with many elective officials." Uni-
fication of local governments and a short ballot are pointed
out as the greatest needs of Chicago. So great was the de-
mand for this report that an edition of 10,000 copies was ex-
hausted within a year from the date of publication. The re-
port has been extensively used as a text book in the public
schools of Chicago.

The foregoing are only a few of the many important mat-
ters upon which the Bureau has been engaged. Not all of
the results obtained can be measured in dollars and cents.
The moral influence which an organization of this sort exer-
cises in deterring the useless expenditure and waste of public
funds is very great and should not be overlooked. Moreover,
the publicity which the Bureau investigations have given to
many defects in governmental organization and administration
should ultimately bring about fundamental changes in con-
ditions which will result in enormous savings and much bet-
ter service to the public.

The latest report of the bureau, issued in January, 1917,
is entitled Unification of Local Governments in Chicago. It
presents a plan for the consolidation into one municipal en-
tity of all the governing agencies (including the county)
within the territory comprising what is termed the metro-
politan community of Chicago. The bureau recommends
that the governing body for this unified government should

227

EFFORTS FOR ADMINISTRATIVE REFORM

be a city council of thirty-five members, one from each ward,
serving for four-year terms, subject to recall. Under the
plan proposed, Chicago would have a modification of the city
manager system, though the chief executive officer of the city
would be called mayor rather than city manager. The mayor
would be chosen by the council and would be its agent for
administrative purposes. He would name the heads of all
administrative departments, except the comptroller and the
city clerk, who would be chosen by the council.

PUBLICATIONS

No. I. Methods of preparing and administering the budget of
Cook County, Illinois. Report submitted to the commis-
sioners of Cook County, January, 1911. 53 p.

No. 2. Proposed purchase of voting machines by the Board of
election commissioners of the city of Chicago. May,
1911. 14 p.

No. 3. Street pavement laid in the city of Chicago. An inquiry
into paving materials, methods and results. June, 1911.
41 p.

No. 4. Electrolysis of water pipes in the city of Chicago, July,
1911. 71 p. incl. plates, plans.

No. 5. Administration of the office of recorder of Cook County,
Illinois. Report prepared for the judges of the Circuit
court, Sept., 1911. 63 p. diagrs., fold. plan.

No. 6. A plea for publicity in the office of county treasurer. Sub-
mitted to the judges of the Circuit court by the Chicago
bureau of public efficiency, October 9, 1911. up.

No. 7. Repairing asphalt pavement. Work done for the city of
Chicago under contract in 1911. October, 1911. 20 p.

No. 8. The municipal court acts, two related propositions upon
which the voters of Chicago will be asked to pass judg-
ment at the election of November 7. Oct. 30, 1911. 6 p.

No. 9. The water works system of the city of Chicago. Report
of Dabney H. Maury, to the Chicago commission on
city expenditures. December, 1911. 52 p. fold, tables.

No. 10. Bureau of streets, Civil service commission and special as-
sessment accounting system of the city of Chicago. Re-
ports submitted to the Chicago Commission on city
expenditures. December, 1911. 112 p.

No. ii. Administration of the office of coroner of Cook County,
Illinois; report prepared for the judges of the Circuit
court. 68 p. fold, diagr.

No. 12. Administration of the office of sheriff of Cook County,
Illinois; report prepared for the judges of the Circuit
court, Dec., 1911. 26 p. fold. tab.

No. 13. Administration of the office of clerk of the Circuit court
and of the office of clerk of the Superior court of Cook
228

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

County, Illinois; report prepared for the judges of the
Circuit Court. Dec., 1911. 50 p.

No. 14. The judges and the county fee offices; statement to the
taxpayers of Cook County. Dec., 1911. 15 p.

No. 15. The park governments of Chicago; general summary and
conclusions of a report prepared by the Chicago bureau
of public efficiency. Dec., 1911. 16 p. fold, plan, fold,
chart.

No. 16. The park governments of Chicago; an inquiry into their
organization and methods of administration. Dec., 1911.
182 p. plan, tables, diagrs.

No. 17. The office of clerk of the Circuit court and the office of
clerk of the Superior court of Cook County, Illinois, a
supplemental inquiry into their organization and meth-
ods of administration ; report prepared for the judges
of the Circuit court. Nov., 1912. 27 p. diagrs.

No. 18. Administration of the office of clerk of the County court
of Cook County, Illinois. Report prepared for the judges
of the Circuit court. Nov., 1912. 43 p. diagrs.

No. 19. The office of sheriff of Cook County, Illinois, a supple-
mental inquiry into its organization and methods of ad-
ministration; report prepared for the judges of the Cir-
cuit court. Nov., 1912. 26 p. incl. tab.

No. 20. Growing cost of elections in Chicago and Cook County;
Dec., 1912. 16, [3] p. incl. tables.

No. 21. The voting machine contract, a protest against its recog-
nition in any form by the City council of the city of
Chicago. Jan. I, 1913. 12 p.

No. 22. The office of county treasurer of Cook County, Illinois.
An inquiry into the administration of its finances with
special reference to the question of interest on public
funds. Nov., 1913. 67 p.

No. 23. The nineteen local governments in Chicago, a multiplicity
of overlapping taxing bodies with many elective officials;
Chicago's greatest needs are the unification of its local
government and a short ballot. Dec., 1913. 28 p., 3 1.,
[5] p. incl. tables, maps, plan, diagrs.

No. 24. The bond issues to be voted upon April 7, 1914, a state-
ment to the voters of Chicago and of Cook county.
March, 1914. 13 p.

No. 25. A second plea for publicity in the office of the county treas-
urer. A statement to the voters of Cook county. July,
1914. 10 p.

No. 26. The nineteen local governments in Chicago, a multiplicity
of overlapping taxing bodies with many elective officials;
Chicago's greatest needs are the unification of its local
governments and a short ballot. 2d ed. March, 1915.
32 p., 2 1., [5] p. incl. tables, diagrs.

No. 27. Unification of local governments in Chicago, Jan., 1917.
98 p. incl. tables, map, diagrs.

No. 28. The city manager plan for Chicago. Draft of a bill for
the reorganization of the municipal government, with
explanatory statement. October, 1917. 60 p.

229

EFFORTS FOR ADMINISTRATIVE REFORM

No. 29. The county bond issues to be voted upon November 6, 1917.
Statement to the voters of Cook County. Oct. 30, 1917.
6 p.

No. 30. Primary days and election days as holidays ... An in-
stance of governmental absurdity and waste. Nov. 5,
1917. ii p.

No. 31. Chicago's financial dilemma. Reply of the Chicago bureau
of public efficiency to a letter from the chairman of the
Committee on finance and the City comptroller asking
civic organizations to cooperate in urging a special ses-
sion of the Legislature to provide financial relief for the
city. December, 1917. 23 p.

No. 32. The water works system of the city of Chicago. Dec.,
1917. 207 p. illus. charts, (part, fold.)

No. 33. Universal metering of Chicago's water supply. The need
for it. What it would accomplish. July, 1918. 20 p.

No. 34. Excess condemnation, why the city of Chicago should have
the power, in making improvements, to take property in
excess of actual requirements. Lessons to be drawn
from certain unfortunate aspects of the Twelfth Street
and Michigan Avenue widenings projects and the pro-
posed Ogden Avenue extension. Sept., 1918. 58 p.

ARTICLES

The Chicago bureau of public efficiency. June, 1910. 13 p.

The Chicago bureau of public efficiency. Some opinions of its work.

1915. 24 p.
The Chicago bureau of public efficiency. What it has accomplished.

1915. 8 p.
The Chicago bureau of public efficiency. Municipal research, New

York. Sept., 1916, No. 77, p. 28-36.

Dayton, Ohio. : Bureau of Research.1 The Dayton Bureau
of Research was organized in October, 1912, under the name
of Bureau of Municipal Research, which name was in 1916
changed to Bureau of Research. The bureau was discon-
tinued in 1918 on account of lack of funds. The declara-
tion announcing the establishment of this bureau stated that
it was "a non-political civic organization, supported by vol-
untary contributions of citizens," and that its purpose was
"to give to the public accurate, complete data relative to the
condition of the city government; and to cooperate with city

1 The following account of the Dayton bureau is based almost
wholly on the account of that bureau given by its director in Munic-
ipal Research, No. 77, Sept., 1916, Citizen Agencies for Research
in Government. To a considerable extent the language of the author
has been followed though the account is much condensed.

230

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

officials in the installation of the most modern system of con-
ducting public business."

During the first years of its existence the bureau was sup-
ported almost solely by its founder, Mr. John H. Patterson,
of Dayton, but it was thought that better results could be
obtained by widening the managing board and extending the
number of contributors. In May, 1916, therefore, a new
plan by which a greater number of citizens could participate
by giving both moral and financial support to the movement
was carried out, and as a result contributions were secured
from about 150 contributors. At the same time a board
fifteen trustees was elected.

The first activity of the bureau was to urge upon the city
the value of an itemized budget in place of the partial lump
plan then employed. With the cooperation of the mayor, the
board of control and other city officials and through the ap-
pointment of a local budget commission of which the director
of the bureau was a member, steps were gradually taken
toward the perfecting of a scientific budget. In September,
1914, the budget classifications were revised and new forms
were prepared by the bureau for the budget of 1915 and this
revised procedure was adopted and has since been followed,
the bureau assisting each year in its compilation. The de-
tailed work and compilation of the 1916 budget, as well as of
all the previous budgets, was done by the bureau. The clas-
sification of accounts, which was devised by the bureau, is
based upon the nature of the goods and services rather than
the objects of expenditure.

Much assistance was rendered by the bureau in the work
of cutting down the estimates for expenditures so as to bring
them within the actual anticipated income. At the request
of the bureau public hearings on the appropriation ordinance
were held for the first time in 1913.

In November, 1912, the bureau began a campaign for a
new charter by sending out a representative to study a num-
ber of commission-governed cities. The bureau's staff mem-
bers then spent nearly half their time during the campaign
period in speaking and other publicity work, preparing data,
reporting speeches, writing circular letters, and assisting the

231

EFFORTS FOR ADMINISTRATIVE REFORM

Citizens' Committee in general. After the election of the
charter commission, the bureau suggested an outline for a
complete charter and recommended the appointment of five
committees to consider as many divisions of the document.
The director of the bureau worked on the drafting of the pro-
posed sections, all but one of which were accepted with minor
changes.

With the inception of the commission-manager form of
government on January i, 1914, the bureau assisted the offi-
cials in their duties. After the charter election, data were
secured and prepared in book form covering the organiza-
tion of each department of the city government. A tentative
outline for the new government was prepared, and a hand-
book containing the civil list, a statement of bond issues out-
standing, digest of the city budget and a summary of the
charter and rules of the commission was issued.

In November, 1912, at the request of the codifying com-
mission of the council, the bureau collected and correlated
data relative to fees for permits, resulting in an increase of
approximately $14,000 annually in the income from such
sources. In the summer of 1914 the bureau undertook a
study of new sources of revenue for the city commission.

The bureau, in 1912, reorganized the accounting method
in the Bureau of Revenue Collection of the City Water Serv-
ice, which, with more efficient and economical management
and added service, placed the water service on a self-sustain-
ing basis.

In November, 1912, the bureau made a comprehensive
study of the method of garbage collection and disposal, called
attention to its unsatisfactory character, and brought about
an improvement in this service. The bureau also secured
the redistribution of street lights throughout the city.

A study of the public markets, outlining existing condi-
tions, the character of vendors and the revenues received, was
made by the bureau at the request of the Greater Dayton
Association, resulting in increased revenues from this source
and the establishment of additional markets, including a chil-
dren's market.

The bureau, in 1912 and 1913, investigated the methods

232

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

employed in the division of streets and called attention to
inefficiencies and wastes in street paving, repair and cleaning
services. Better methods and economies resulted from this
study.

In July, 1913, the city issued $119,000 in bonds for the
complete motorization of the fire department. Later the
bureau, through a survey of the fire department, made recom-
mendations for the purchase and distribution of approxi-
mately $69,000 worth of fire apparatus, resulting in the turn-
ing back into the sinking fund of $50,000 of the original bond
issue.

A survey made of the Division of Fires and the Division
of Police by a member of the staff of the New York Bureau
of Municipal Research resulted in the drawing up and adop-
tion of a complete set of records, including a consolidated
daily report for each division to go to the desk of the direc-
tor of the Department of Safety each morning. A training
school for members of the police force was suggested by the
bureau. A member of the bureau staff accompanied 17 mem-
bers of the Safety Department on an educational trip to New
York City and other eastern points, and arranged with the
Fire and Police Department in New York for placing these
men so that they might receive valuable practical experience.

Many of the recommendations contained in the Safety
Department survey were put into effect in the Division of
Weights and Measures, records and forms were devised and
installed, and the inspector was given a clearer idea of his
duties.

The bureau financed the entire cost of preparing a com-
plete modern city building code and outlined the records for
the establishment of a division of building inspection.

At the request of the trustees of the police and fire pen-
sion funds, the bureau made a study of the pension funds
with a view to the better protection of the present uniformed
force.

Early in 1913 the bureau cooperated with the Board of
Health in the installation of a new system of filing and re-
cording sanitary reports, the establishment of a pin-chart
on contagious diseases, a revival of milk analysis after a

233

EFFORTS FOR ADMINISTRATIVE REFORM

lapse of two years, and the preparation of a score card sys-
tem and more adequate inspection of dairies.

In May, 1913, the bureau, through a staff member of the
New York Bureau of Municipal Research, undertook a com-
plete study of the administration of the Board of Health, re-
sulting in the preparation of an outline of constructive sug-
gestions for extending the service and increasing the effi-
ciency of the department. The bureau assisted in installing
the records recommended and in reorganizing the depart-
ment. Eight bulletins consisting of the survey report and
follow-ups were issued on this subject. Early in 1914, at
the request of the chief health officer, the bureau assisted in
the installation and revision of a complete system of record
keeping, and it continued to keep in touch with this service.

In February, 1914, as a result of a statement prepared by
the bureau, setting forth the needs of a city laboratory, a
Bureau of Bacteriology and Chemistry was established.

An examination of the purchasing activities at the city
workhouse in February, 1913, was followed a year later by
the installation of a system of cost and accounting records
covering the maintenance of prisoners.

At the recommendation of the bureau an appropriation
was made in January, 1914, for the establishment of a City
Bureau of Legal Aid where free legal assistance is given to
those otherwise unable to obtain it. The activities of this
new bureau resulted in driving loan-sharks out of the city.

The bureau, cooperating with the supervisor of recreation,
brought about an enlargement of the plans of the Division
of Recreation and recommended the establishment of addi-
tional social centers.

Upon the installation of the new government, the bureau,
at the request of the Department of Finance, undertook a com-
plete revision of the accounting system and the installation
of a new method of procedure, in which work the aid of the
Cincinnati Bureau of Municipal Research was had.

In November, 1912, the bureau undertook to collect in-
formation in support of a proposal for the establishment of
a centralized city purchasing department. In September, 1913,
blanks and procedure for the office of the purchasing agent

234

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

were prepared ready for installation when the new govern-
ment was placed in operation.

Early in 1913 a study was undertaken by the bureau of
the requirements of the sinking fund with a view to present-
ing a more equitable scheme of liquidating the funded lia-
bilities of the city, and in January, 1914, a complete statement
of the city's bonded debt, classified by actual maturity, in-
terest, etc., was submitted to the sinking fund trustees, and
the annual interest and sinking fund requirements on all out-
standing bond issues of the city were calculated by the bu-
reau and submitted to the Finance Department.

The bureau prepared a series of charts showing the inter-
locking of social agencies within the city and the activities
of the Department of Public Welfare. Later, by the use of
a special fund raised for the purpose, the bureau made a sur-
vey of the nine private charities of the Federation for Char-
ity and Philanthropy. As a result of this survey many con-
structive recommendations were put into effect by these or-
ganizations.

At the request of the Civil Service Board, the bureau pre-
pared a complete list of city employees, with titles and grades
of pay and considerable work was done with the board in
outlining the general plan of activity of the board and in
standardizing the positions and salaries of the civil list.

The bureau also made a study of paving and sewer con-
ditions and calculations for two bond issues for improving
and enlarging school activities in Oakwood, Ohio, and a sur-
vey of Jackson, Michigan, with constructive recommenda-
tions.

For several months in 1913, at the request of the Gover-
nor of Ohio, the director of the bureau was loaned to the
state to work on a program for the state budget in coopera-
tion with the director of the Legislative Reference Library,
the state auditor and other officials. As a result of this work
budgeting procedure recommended by this board was adopted
by the legislature and a budget commission was appointed by
the Governor.

The director of the bureau participated in securing the
passage of a bill providing for a state rural school survey.

235

EFFORTS FOR ADMINISTRATIVE REFORM

The survey was directed by a member of the Training School
for Public Service and resulted in the enactment of a com-
plete revision of the rural school laws.

Other activities of the bureau have included the secur-
ing of better returns from lessees of public property, services
rendered in flood relief work, studying the matter of grade
crossings, securing information for the location of a bi-county
tuberculosis sanitarium, etc.

The bureau has issued a number of folders and booklets,
and has prepared matter for magazines and the daily press,
dealing with subjects of municipal health, such as public
safety, public welfare, finance, taxation, accounting, schools,
and other public problems. A list of the more important pub-
lications follows.

PUBLICATIONS

Appropriation ordinances; first [and second] half year of 1913. 2

pts.

The budget of the city of Dayton, 1914. 42 p.
The budget of the city of Dayton, 1915. 52 p.
The budget of the city of Dayton, 1916. 60 p.

Organization and administration of the Department of health of
Dayton, Ohio. Report prepared for the Department of health.
[1913] 97 p. incl. tables, diagrs.

"A report of the activities of the Board of health for 1912 . . .
The investigation was made ... by Dr. Carl E. McCombs of
the Training school for public service of the New York Bureau
of municipal research."

A plan to place the water works upon a self-sustaining basis and
to complete the proposed additional water supply and betterment
of the distribution mains for Dayton by providing that the water
department pay from income all interest and principal of the
water debt now outstanding and hereafter created, thus exclud-
ing all water issues from limitations of the bonded debt. 1913?
28 p.
Shall we change our city government? A statement of three types

of municipal administration . . . [1913?] 16 p.
Survey of over-age and progress in the Dayton schools. 1913? 46 p.
Budget classification. 1914? 16 p.
A charter primer. 1914? 24 p.

Over-age and progress in the public schools of Dayton, 1913-1914.
1914. 20 p.

"A second study of 'Over-age and progress' [supplementing the
report for 1912-1913] . . . tabulation of material, and the
writing of the entire report was done by Mr. Arch M. Mandel,
assisted by Miss A. Irene Dilks and Mrs. Paul Illman of the
Bureau staff."

236

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

Shade trees in Dayton, results of a brief investigation of Dayton's

trees . . . 1914. [4] P-
Water improvement plans . . . 1914. 8 p.
One year of city management in Dayton. 1915? 12 p.
Some facts about the tax rate, by C. E. Rightor. Sept., 1915. [12] p.
Some types of city government. 1915? 12 p.
Why the Bureau of municipal research should be continued in Dayton

. . . March, 1916. 8 p.

Reports on Dayton's school administration. No. I — April, 1917 —
Contents.

No. i. Building new schools for Dayton's children. April, 1917.

[19 P-]

Research progress facts; a year of governmental research with cer-
tain facts about our city, county and schools, and their progress
during 1916-1917. 1917. 39 p.

Miscellaneous Folders

The city manager and the baby. (Bolder)

A complaint suggestion bureau, (folder)

Diphtheria epidemic versus diphtheria prevention, (folder)

Government by deficit, No. 1-3. folders.

Health bulletins. 8 folders.

Infant death rate, (folder)

Motor-driven fire apparatus bids, (folder)

The municipal exhibit. 1915. (folder)

Organization of the Bureau of municipal research, (folder)

Some acid tests of city manager government, (folder)

Swat the fly. (folder)

Reprints

Annual report of the City commission for 1915. 36 p.
Budget making for small cities, by Lent D. Upson [director of the
Dayton bureau of research]. 1915. 14 p.

Reprinted from The Annals of the American academy of politi-
cal and social science, November, 1915.

Budgetary procedure under the manager form of city government,
by Arch M. Mandel. 13 p.

Reprinted from The Annals of the American academy of politi-
cal and social science, November, 1915.
The city manager and social justice, by Dr. D. F. Garland. 1916. 5 p.

Reprinted from the Rotarian, v. 8, No. 4, April, 1916.
The city manager at work, by Lent D. Upson. 1916. 4 p.
Reprinted from the Rotarian, v. 8, No. 2, Feb., 1916.
The city-manager plan of government for Dayton, by L. D. Upson,
director, bureau of municipal research. Reprinted by permission
from the National municipal review, October, 1913. [8] p.
Reprinted in response to requests for a digest of the Dayton

charter.
Comment on the Dayton charter, by Lent D. Upson. 10 p.

Reprinted from National municipal review, v. 4, No. 2, April,,
19*5-

237

EFFORTS FOR ADMINISTRATIVE REFORM

The law and public welfare, by Dr. D. Frank Garland. 7 p.
Reprint of the city charter. 32 p.
Reprint of the Dayton charter. 64 p.

ARTICLES

Cooperation between city officials and private efficiency organizations.
Modern city, Sept., 1917. v. 2:26-7.
Describes the work of the Dayton bureau of research.
The Dayton bureau of research. [Prepared for Municipal research
by Mr. C. E. Rightor, director of the Dayton bureau of research.
n. p., 1916. 27 p.

Reprinted from Citizen agencies for research in government,
the issue of Municipal research, No. 77, Sept., 1916.

Milwaukee, Wis. : Citizens* Bureau of Municipal Effi-
ciency. In the chapter on official municipal government re-
search agencies account has been given of the establishment,
in 1910, by the city government of Milwaukee, of a Bureau
of Economy and Efficiency and the reorganization of this
bureau in 1912 under the name of Bureau of Municipal Re-
search.

Considerable delay occurred in the organization of this
second service and in the appointment of its director. Un-
willing to wait longer for action by the city authorities, and
believing that there was need for an independent research
agency, certain citizens of the city called in the assistance of
the New York Bureau of Municipal Research, first, to make
a preliminary survey of the various departments of the city
and then to aid in the creating of a purely private research
agency. Funds for a number of years were secured or
pledged, and on May 27, 1913, there was incorporated the
Citizens' Bureau of Municipal Efficiency.

The purposes of this bureau as set forth in a bulletin
issued by it were:

To promote efficient, economical municipal government;
to promote the adoption of scientific methods of managing
and supervising municipal affairs and accounting and report
on details of municipal business, with a view to facilitate the
work of public officials ; to secure constructive publicity in
matters pertaining to municipal problems ; to collect, classify,
analyze, correlate, interpret, and publish facts as to the ad-
ministration of municipal government, and generally to do

238

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

all and everything lawful and proper which may be neces-
sary or expedient for the accomplishment of these purposes.

Since its organization, the bureau, working on a coopera-
tive basis with the city departments, has furnished assistance
to the city comptroller, the Commission of Public Works, the
Bureau of Bridges and Buildings, the Bureau of Sewers, the
Bureau of Purchases and Stores, the Bureau of Street Sani-
tation, the Bureau of Illumination Service and the Fire De-
partment, and it has aided in installing a system of pay-roll
control for the city service and in the revision of the rules
and methods of the Civil Service Commission.

It has made surveys of the Department of Public Works,
the purchasing methods of the entire city government, the
Fire Department, and the asphalt situation; preliminary sur-
veys of school buildings and building sites and the street
lighting question; and a preliminary report on city finance.

It has advised with various department heads and offi-
cials relative to the perfecting of budget-making methods, the
control of the common council contingent fund, the control
of the transfer of budget appropriations, the perfecting of
methods of levying and billing taxes and special assessments,
and the improvement of office procedure and methods. It has
publicly advocated measures which, in its opinion, would be
beneficial for the city, such as the ward reorganization pro-
posed by the City Bureau of Municipal Research.

Through the installation of improved accounting systems
and the perfection of office methods and procedure by the
comptroller, with the assistance of the bureau, overdrafts of
funds have been eliminated and daily appropriation balances
made available, and the comptroller's office has been placed
upon a more efficient basis.

A member of the staff of the New York Bureau of Munici-
pal Research designed a uniform cost system for the Depart-
ment of Public Works which has been installed in the Bu-
reau of Bridges and Buildings and the Bureau of Sewers of
this department. As a result these bureaus are in a position
to keep close control over their service costs and the cost of
materials and supplies. This system is now being installed

EFFORTS FOR ADMINISTRATIVE REFORM

by the Citizens' Bureau in other bureaus of the Department
of Public Works.

In order to effect a more efficient system of city purchas-
ing, a plan of organization and procedure was adopted
whereby a central purchasing committee was formed, con-
sisting of the mayor, commissioner of public works, secretary
of the school board, public librarian, director of the museum
and secretary of the park board; and a member of the staff
of the Citizens' Bureau was appointed executive secretary of
the committee. This central purchasing committee is not a
legally constituted body, and the bureau is endeavoring to
secure the passage of a proposed purchasing law legalizing
centralized purchasing. It is estimated that a minimum an-
nual saving of $200,000 could be effected by this plan.

A survey of the Fire Department's methods resulted in
the city's Bureau of Municipal Research being requested to
make a study and report upon the motorization of the de-
partment and the organization of a central repair shop for
all city departments.

As a result of a survey of the asphalt pavement situation
a training school for pavement inspectors was organized and
much helpful information was collected for the Bureau of
Street Construction.

A survey of Milwaukee's school buildings made by the
Citizens' Bureau at the request of the school board, resulted
in the outlining of a definite building program.

In order to throw light upon the street lighting situation,
the bureau prepared a resume and compilation of all avail-
able data relating to that subject.

The bureau was requested to direct the work of a citizen
committee appointed by the mayor to study the problem of
framing a financial program for Milwaukee. An expert was
employed to make a preliminary study, and the report was
submitted to the mayor and members of the committee. An-
other report was prepared by the bureau and submitted to
the Wisconsin League of Municipalities. Bills embodying
some of these recommendations have been introduced in the
legislature.

The bureau has been endeavoring for several years to se-

240

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

cure the adoption of a plan of standardization of public
employment and engaged an expert who prepared a report
giving a review of the movement for standardization of pub-
lic employment and an appraisal of the proposed salary stand-
ardization plan for the Milwaukee city service. This re-
sulted in the rejection of the faulty plan proposed to the coun-
cil and in the adoption of a policy-determining ordinance
setting forth the principles of standardization, and in the
City Service Commission being requested to submit a report
upon the classification and standardization of the present
service. The commission has engaged a specialist to do this
work. An early report is expected.

The bureau has had very few of its reports printed, most
of the reports being submitted in memorandum form. A
folder entitled Cooperative Citizenship is issued at irregular
intervals. Following is a list of the publications and other
reports issued by the bureau.

PUBLICATIONS

A report to the public. March, 1915. 19 p.
Concerning the Fire department. 1915. 18 p.
Helping Milwaukee. 1915. 12 p.

Review of movement for standardization of public employments and
appraisal of the proposed salary standardization plan . . . Re-
port made . . . by J. L. Jacobs . . . Milwaukee, 1916. 45 p.
The street lighting question, a summary. Citizens' bureau of munici-
pal efficiency, Milwaukee, March, 1916. [Milwaukee, 1916.] 2
p. 1., 14 p.

Cooperative citizenship. Bulletin, No. I — Nov. 15, 1916 —
Contents.

No. i. Standardization of public employment. Nov. 15, 1916.

2 p.
No. 2. Central purchasing No. i. The central purchasing

committee. Feb. i, 1917. folder.

No. 3. Central purchasing No. 2. The purchase of coal by
the Central purchasing committee. Feb. 12, 1917.
folder.

No. 5. What the Milwaukee Citizens' bureau of municipal effi-
ciency is doing for the city and some of its plans for
future work. Sept., 1917. [7] p.

No. 6. What city officials think of the work of the Milwaukee
Citizens' bureau of municipal efficiency. Oct., 1917.
10 p.

No. 7. What Milwaukee has done and what it needs to do
adequately to control its expenditure of $2,500,000
for salaries. Dec., 1917. 14 p.
241

EFFORTS FOR ADMINISTRATIVE REFORM

No. 8. A discussion of the referendums relating to the re-organ-
ization of the Common council. Feb., 1918. 7 p.

No. 9. The work of the Citizens' bureau and its plans for fu-
ture work. March, 1918. 12 p.

ARTICLES

The Milwaukee citizens' bureau of municipal efficiency. Prepared

for Municipal research, by Mr. John F. Putnam, director . . .

n. p., 1916. 9 p.

Reprinted from Citizen agencies for research in government,

the issue of Municipal research, No. 77. Sept., 1916.
Milwaukee bureau of economy and efficiency, by J. E. Treleven.

American academy of political and social science, Annals, May,

1912. v. 41 : 270-8.

Minneapolis, Minn. : Bureau of Municipal Research of the
Minneapolis Civic and Commerce Association.1 In 1913, a
proposition for a home rule charter of the commission type
had been voted down by the people of Minneapolis, where-
upon the Minneapolis Civic and Commerce Association de-
cided that the wisest policy would be to develop the best pos-
sible administration under the existing charter. Accordingly,
a Bureau of Municipal Research was organized in December,
1913, by a committee of the association and an experienced
expert accountant placed in charge.

The functions of the bureau are set forth in the follow-
ing statement issued at the time of its organization:

The purpose of the Bureau of Municipal Research of the
Minneapolis Civic and Commerce Association shall be to pro-
mote efficient and economical government in the City of Min-
neapolis and in the County of Hennepin.

To this end the Bureau shall endeavor, through coopera-
tion with public officials, to secure the adoption of scientific
methods of accounting and administration and to collect, clas-
sify, analyze, correlate and interpret data with reference to
the conduct of public affairs.

In cooperation with and in behalf of the public, the Bureau
shall attempt to secure constructive publicity in matters per-

1 The following account of the Minneapolis bureau is based almost
wholly on the account of that bureau given by its director in Munici-
pal Research, No. 77, Sept., 1916. Citizen Agencies for Research in
Government. To a considerable extent the language of the author
has been followed though the account is much condensed.

242

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

taining to municipal problems and so to interpret the facts
as to secure an increased confidence on the part of the public
in the activities of its officials and a more intelligent support
for legitimate municipal projects and administration.

To act as a clearing house and point of contact between
the citizens of Minneapolis and their public servants for the
purpose of securing a better understanding and cooperation
between them.

The first work undertaken by the bureau after its organ-
ization was an examination of the newly-organized civil serv-
ice office of the Minneapolis city administration. By giving
service and advice to the Civil Service Commission, it enabled
that body to complete its records of the city employees, to
secure uniformity in returns from the departments and to
effect other economies.

The bureau has made surveys of the City Health De-
partment, garbage and ash collection and disposal, the city
hospitals, the business administration of the public schools,
the comptroller's office, business procedure of the Institute of
Arts, the Park Board and the Police Department. Special
assistance has been given to the city purchasing agent, the
Water Department, the Board of Tax Levy, the city assessor,
the Fire Department, the administration of municipal baths,
and to various committees of the city council and to the state
legislature. A community survey was made of one city ward
for the benefit of the social agencies at work there and the
administration of one settlement house in the ward was stud-
ied.

At the request of the University of Minnesota a survey
was made of the business administration of the medical school,
and on its completion the bureau was asked to detail a mem-
ber of its staff for a four months' study of the general busi-
ness administration of the university.

Following are some of the more important constructive re-
sults of the bureau's work :

The bureau prepared a uniform expense classification
which, for two years, has been used by the city departments
in presenting their budget estimates, and it has given assist-
ance to several of the departments in their work of analyzing

243

EFFORTS FOR ADMINISTRATIVE REFORM

their expenditures and preparing their estimates. This clas-
sification is to be used in the accounting systems of all the
city departments as soon as they can be reorganized.

The bureau has assisted the comptroller in the installa-
tion of a new system of appropriation control which keeps
the heads of departments informed of disbursements and
encumbrances under their appropriations. This system en-
abled the departments operating under the current expense
fund to decrease the over-expenditures at the close of the year
from $35,578 in 1914 to $14,422 in 1915.

The entire accounting system and business procedure of
the comptroller's office has been modernized in so far as
changes could be made without legislative enactment, and the
process of reorganization has so awakened the interest of
the employees of this department that they organized a class
to study under the instruction of a member of the bureau
staff the problems of modern municipal accounting.

In 1915, a legislative act was approved providing for the
complete centralization of the purchasing for the city gov-
ernment. In the drafting of an ordinance prescribing the pro-
cedure under which the city purchasing agent should handle
the purchasing for all the city boards and departments, a com-
mittee of city officials was appointed of which the director
of the Bureau of Municipal Research was a member.

In March, 1915, the bureau was asked by the special coun-
cil committee on finance to investigate a charge made by the
newspapers, that the city clerk was unlawfully retaining fees
taken in by his office. The bureau found that no records
were kept of fees charged for acknowledgments, drawing
papers, satisfactions, etc., fees which the city ordinances did
not specially state should be turned in to the city treasury,
The council immediately passed an ordinance requiring that
all fees taken in by any city employee be turned over to the
citv treasurer.

In 1914, the bureau made a survey of the Health Depart-
ment, and it was found that 68 per cent, of the so-called
health appropriation was being spent for garbage and ash
collection and disposal. On recommendation of the bureau,
the city council transferred the administrative supervision of

244

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

this function from the commissioner of health to the city en-
gineer.

Numerous other changes in administrative methods for
the reorganization of the complaint system and of the sys-
tem of accounting, etc., were made at the suggestion of the
bureau.

At the request of the city hospital, the bureau assisted in
preparing a system of daily and monthly reports from the
heads of divisions to keep the head of the hospital currently
informed of the work done and the occurrences which re-
quired his attention. The bureau cooperated with the hos-
pital in the installation of a disease index and a new disease
nomenclature. It also assisted in effecting economies in the
hospital.

As a result of the bureau's report on the business admin-
istration of the Minneapolis public schools, the Board of Edu-
cation consolidated its two business divisions, placing the au-
ditor under the business superintendent. A system of job
costs was installed to show the complete cost of each piece of
work performed, also a system of stores accounting which in-
creased the storehouse facilities and enabled the business su-
perintendent to inspect more carefully goods received and
to maintain a closer control over goods issued. The purchas-
ing system was revised and a new accounting system con-
forming to the uniform accounts in the comptroller's office
was installed. The bureau's assistance was used both in plan-
ning the reorganization and in putting the plans into effect.
The surveying of the business administration of the Uni-
versity Medical School resulted in the transfer of the depart-
mental stores to the central university storehouse and in re-
ducing the size of the machine shop force.

The Board of Park Commissioners accepted the recom-
mendations as to its business procedure contained in the sur-
vey report of the bureau and asked that a member of the bu-
reau staff take charge of the office during the process of re-
organization. As a result, a complete new accounting sys-
tem, a stores system and a central filing system were installed
and other changes of administration were made.

A ward survey, the first of a series of sectional studies,

245

EFFORTS FOR ADMINISTRATIVE REFORM

was made for the purpose of determining what sort of con-
ditions, socially and governmentally, the city of Minneapolis
provides for its citizens. This survey included a study of the
park, school and library facilities, a provision of sewer and
water, fire and police protection, housing conditions, the work
of social agencies, and suggestions for needed changes were
given to those concerned.

A police survey was begun in the fall of 1915, resulting
in the reorganization of a number of departments, changes
in methods, and a revision of the entire system of police rec-
ords.

In 1916, the bureau engaged upon a comparative study of
the cost of building inspection at the request of the building
inspector; it assisted an officer of the United States Public
Health Service in a survey which he made of the public health
situation in Minneapolis ; and it assisted the superintendent of
the city hospital in the organization of the city physician serv-
ice. The bureau keeps in close touch with departments already
surveyed and gives them special service when called upon.
Several requests for surveys have also been received by it from
social and charitable agencies.

While the original purpose of the bureau included the same
type of service for the county that has been rendered to the
city, the pressure of municipal work has, as yet, prevented
work with the county officials except some assistance ren-
dered in preparing budget estimates for the County Board
of Tax Levy. There is also an increasing demand that the
state departments shall be given the opportunity to make use
of the bureau's facilities for improving government admin-
istration.

The bureau has issued but one printed report and that is
a reprint from Citizen Agencies for Research in Government,
the issue of Municipal Research, No. 77, September, 1916.
All the other reports of the bureau are in manuscript form.

PUBLICATIONS

Budget bulletin No. I — August 5, 1916 —

Comparison of force employed on building inspection and the salaries
paid in various cities. Comp. by the Bureau of municipal re-
search of the Minneapolis civic and commerce association.
[Minneapolis, 1916] 2 charts on 8 sheets.

246

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

Report on analysis of five year building program of Board of edu-
cation; proposed two and three year school building programs
by the Committee on municipal research. [Minneapolis, 1917]
24 p.

The Bureau of municipal research of the Minneapolis civic and com-
merce association, n. p., 1916. up.

Reprinted from Citizen agencies for research in government.
the issue of Municipal research, No. 77, Sept., 1916.

Springfield, Mass. : Bureau of Municipal Research. Under
date of December 26, 1913, an offer was made by public-spir-
ited citizens to the mayor and city council of Springfield to
bear the expense of an expert survey of the city with a view
to determining the advisability of establishing a permanent
bureau for the introduction of efficient and economical meth-
ods of municipal administration. The offer was accepted and
the services of experts from the New York Bureau of Mu-
nicipal Research obtained, who made a report of 93 pages
entitled Organization and Administration of the City Govern-
ment of Springfield, Massachusetts.

As a result of this survey the Springfield bureau was es-
tablished in January, 1914. It is supported by the contri-
butions of fifty or more persons designated as members and
supporters. The manager is the only salaried officer. The
functions of the bureau as defined in its articles of incorpora-
tion are :

To collect, classify, analyze, and publish facts as to the
administration of municipal governments, to study scientific
methods of municipal accounting and methods of efficient and
economical municipal administration, to hold meetings for the
discussion of such subjects and the education therein of the
members of this corporation and to publish such information
and discussions and such other matter as may be deemed to
be conducive to the education of the public on such subjects,
and generally to do everything necessary, suitable, and proper
for the accomplishment of any of the above purposes and the
attainment of any of the above objects provided the same be
not inconsistent with the laws under which this corporation
is organized.

These functions are further defined in the following state-
ment issued by the bureau :

247

EFFORTS FOR ADMINISTRATIVE REFORM

The Springfield Bureau of Municipal Research is a non-
partisan, non-political civic organization supported by the con-
tributions of 52 civic spirited taxpayers for the purpose of :
Gathering and publishing facts about city government; pro-
moting efficiency in the city's business by cooperating with
officials ; securing desirable information for taxpayers through
the installation of modern methods of accounting and budget
making; assisting city officials in the solution of technical
problems; advancing impartial constructive recommendations
for increasing the usefulness and efficiency of government; it
assumes that the .citizen is or wants to be part of the govern-
ment and if given the opportunity will be. It therefore advo-
cates : Public budget making ; public budget hearings and the
issuance of adequate budget information in advance thereof;
supplying citizens through periodical pamphlets and regular
reports with information about government presented in an
interesting and easily assimilated manner; widest publicity in
all public affairs.

The Bureau is at the service of any official, city employee,
or citizen and will endeavor to procure for anybody free of
charge any information about civic affairs that it can. It
earnestly solicits inquiries, suggestions, and criticisms. Liter-
ature will be mailed to any address upon request.

The activities of the bureau since its establishment are
largely indicated by the list of publications which is appended.
In addition, however, there has of course been work of an
investigating and advisory character that does not appear in
print.

The bureau's first work in Springfield was directed toward
budget reform. A study was made of the city's existing
budget system and as a result of this study certain recom-
mendations were made by the bureau.

After numerous conferences in which state, city and bu-
reau officials participated, it was agreed at a conference on
May 24, 1915, that the city should adopt the general budget
plan advocated by the bureau, the details being left to be
worked out by the city auditor with the assistance of the bu-
reau. It was decided that the departments in submitting es-
timates should use standard forms, drawn by the bureau ; that
in making requests, a standard classification of commodities

248

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

or objects of expenditure be used; that estimates for gov-
ernmental services be submitted according to a standard clas-
sification of organization units; that code designations be
used for all classifications; that standard uniform printed di-
rections for preparing estimate sheets be furnished; and that
estimates be submitted early enough for careful consideration
before passage of the appropriation acts.

It was further agreed that the city would make certain
changes in its departmental and general accounting along lines
suggested by the bureau, the details of which were later
worked out by the auditor with the assistance of the bureau.

In connection with the actual installation of the changes
adopted, the bureau, at the auditor's request, performed prac-
tically all of the labor that was entailed.

In connection with the installation work, the bureau pre-
pared descriptive articles and editorials for the daily papers,
and the manager made addresses from time to time before
citizens' organizations describing the work of the bureau.

The bureau also aided the charter commission by furnish-
ing material and data to the drafting committees.

The present activities of the bureau consist in assisting the
departments with their work under the new budget and ac-
counting systems ; obtaining the figures for setting up the cen-
tral books according to the new plan ; and taking up the adop-
tion of additional forms and procedure for completing the
revenue and fund control.

The bureau is at present endeavoring to secure the estab-
lishment of a central purchasing department, and a more sim-
plified municipal register.

PUBLICATIONS

Public affairs, No. I — Springfield, 1913? —

Report on the proposed charter for the city of Springfield, Dec.,

1913. 16 p.

The organization and administration of the Health department of
Springfield, Mass. Report of a survey made by the Springfield
bureau of municipal research, April, 1914. [Springfield, Mass.]

1914. 48 p.

Report on accounts of the city of Springfield with constructive rec-
ommendations . . . Nov., 1914. [Springfield, Mass.] 1914. 39 p.

Report on present methods of budget making with recommendations
for revision of procedure . . . Oct., 1914. [Springfield, Mass.]
1914. 49 p.

249

EFFORTS FOR ADMINISTRATIVE REFORM

Report on the organization and administration of the Department
of charities, Springfield, Mass. April, 1914. 32 p.

(1915) budget for the city . . . with charts and statistics. March,
1915. 112 p.

(1916) budget for the city with diagrams. March, 1916. 78 p.
1917 budget. Reprint with diagrams. 57 p.

Comparative diagrams of standard charter forms and Springfield's
organizations. 4 charts.

General semi-annual financial statement for city of Springfield under
new system of accounts. Aug., 1916. 18 p.

List of library books on charters and allied subjects.

Proposed city manager charter for the city of Springfield. 31 p.

Sample standard budget sheets. 4 sheets.

Directions for operating expenditure and expense accounts. Issued
by the Mayor and Auditor. Nov., 1915. 23 p. (Reprint)

Directions for preparing the budget. Issued by the Mayor. Novem-
ber, 1915. 32 p. (Reprint)

General financial statement for the fiscal year ending Nov. 30, 1916.
93 P. (Reprint)

Akron, Ohio : Bureau of Municipal Research.1 The Bureau
of Municipal Research of Akron was formally organized in
November, 1914, and began active work on January i, 1915.
It is an independent body both in its organization and work,
but is affiliated with the Chamber of Commerce, and was or-
ganized through the efforts of a former president of the
chamber and of one of the committees. It was established
for a period of five years. The governing body consists of
the officers and a board of seven trustees.

Among the first studies made by the bureau was a survey
of the accounting system of the city government, with the re-
sult that the general principles of the accounting scheme in-
stalled by the city auditor were made to agree with those laid
down by the state. It spent much of the first six months of
its work in studying in detail the financial condition of the
city of Akron, resulting in the publication of a report on
August 15, 1915, giving a brief description of the reasons
leading up to the annual deficits, and suggesting remedies.
As an outgrowth of this study the bureau came to the assist-
ance of the auditor in preparing his annual report so as to

1 The following account of the Akron bureau is based almost
wholly on the account of that bureau given by its director in Munici-
pal Research No. 77, Sept., 1916, Citizen Agencies for Research in
Government. To a considerable extent the language of the author
has been followed though the account is much condensed.

250

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

make that document reflect more truly the condition of the
city.

The bureau has advocated the use of modern budget meth-
ods, and to that end analyzed the expenditures of each divi-
sion and department for the year 1914. Forms were drawn
up and submitted to the city auditor and the mayor, who
adopted them as official and requested department heads to
submit their 1916 budgets on those forms.

The bureau made a study and submitted recommendations
concerning the civil service. It called attention to the lack
of means to carry out the simplest features of the civil serv-
ice law of Ohio. Attention was also directed to the need for
higher standards in examinations, higher standards of service,
more expert help to operate civil service, more and better
records of examinations, candidates, etc., introduction of ef-
ficient ratings of employees, etc. While these recommenda-
tions have not been adopted, the bureau has, by request, as-
sisted in preparing examination questions and has frequently
been able to provide material for the Civil Service Commission.

Among the first investigations of the bureau was that of
the new water-works system. The demand for an additional
bond issue to be voted on seemed to warrant a complete state-
ment of the project — legislation, bond issues, construction,
contracts, etc., in order that the public might have proper in-
formation as a basis for voting.

Another of the early studies concerned a proposed sew-
age disposal plant. The particular question studied was that
of the means by which the city could get a plant able to pro-
vide ample sewage facilities for Akron for some years at a
total cost not to exceed the original bond issue of $446",ooo.
Facts placed before a special committee of the chamber led to
a series of conferences with the city and state officials, the
director and the engineer, resulting in a final reduction of
$107,000, thereby making unnecessary any additional bond
issue to complete the plant.

The bureau aided the council and the Service Department
in establishing the contract system for the collection of gar-
bage. The advocacy of contract rather than municipal col-
lection was based on the thought that the city might avoid

251

EFFORTS FOR ADMINISTRATIVE REFORM

many mistakes and gain much valuable experience through
the five years' life of the contract; also on the fact that the city
was at the same time embarking on two other new municipal
projects which could not be let privately, viz., a water plant
and a sewage disposal plant. The bureau also assisted in
preparing the specifications and the contract for bidders.

The bureau assisted in the preparation of a revised sys-
tem of water rates.

During the winter of 1914-15 the bureau, by request, un-
dertook a study of the unemployment situation in Akron
through an analysis of the records of the Free Employment
Bureau.

The bureau rendered assistance to the city government by
gathering information from other cities concerning the cost
of constructing and operating workhouses. As a result of
this study a project for the construction of a workhouse for
Akron was abandoned.

During the first year of its operation the bureau made six
surveys in three departments as follows : Accounting in
the auditor's department; organizations and records in the
council clerk's office; Bureau of Street Repairs; Bureau of
Street Cleaning; Division of Streets in the Service Depart-
ment, and a general reorganization survey of the same depart-
ment. The cooperative plan of training for public service
was begun shortly after the bureau was organized. Students
of the Municipal University of Akron were given assignments
dealing with real city problems, that is, preparing a report on
a comparison of city budgets for the past five years ; analyz-
ing the bond issues and preparing a statement of the city's
bonded indebtedness; comparative study of charters in com-
missioned cities; study of water-main extension; and study of
school statistics. Credit toward graduation is being given by
the university faculty for this work.

The following excerpts, taken from the annual report of
the director submitted January i, 1918, show the nature of
the more recent activities of the bureau.

The Bureau followed closely the work of the Finance
Committee in its apportionment of the city's fund to the vari-
ous departments and devoted a large part of January and

252

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

July to this work. . . . The Bureau furnished the Finance
Committee considerable information relative to estimat-
ed revenues and past expenditures as a basis for its work
in apportioning funds. When the work of the Finance Com-
mittee was completed the Bureau prepared and mimeographed
the final drafts of the appropriation ordinances and distributed
copies to each councilman, department head, newspapers and
civic organizations. . . .

In response to a resolution (5358) passed by the Council
inviting the Bureau to recommend rules and regulations gov-
erning the office of the Clerk of the Council, the Bureau made
a survey of this office and issued a report containing suggested
rules and regulations with certain suggestions for improving
the service. . . .

The Bureau followed closely the action of the city when it
was considering the question of reletting the contract for
garbage collection or of beginning collection by the city and
furnished information to its officials relative to the advantages
and disadvantages of various methods and the experience of
other cities. . . .

The City Council had for some time the need for a just and
reasonable schedule of salaries throughout the city service
which would serve as a guide to it in fixing the salaries of
the various municipal employees. On January 22, a resolution
was passed requesting the Bureau to cooperate with a commit-
tee of the Council appointed for that purpose, and on July 23
another resolution was passed authorizing the Bureau to obtain
the necessary information from city officials and employees.
An intensive study was made of every position in the cky
service and a description prepared outlining the duties of each
position, the necessary qualifications an employee should
have to successfully fill the position and the minimum and
maximum salary which should attach thereto. Annual salary
increases were also specified for each position. Studies were
also made of the duties, qualifications and salaries paid similar
positions in other cities and in the local industries in
Akron. . . .

During the year another advance step was taken in the
establishment of a central purchasing department. The
Bureau prepared a set of rules and regulations governing the
purchasing department as a means of smoothing out some of
the purchasing and accounting difficulties. . . .

The necessity for a public dump being apparent for some

253

4 EFFORTS FOR ADMINISTRATIVE REFORM

time, the engineer of the Bureau suggested to the Service
Director the possibility of making a dump along the line of
the main outlet sewer. . . . The Bureau's engineer and
the Service Director made a survey of the paved streets of
the city to determine the extent and location of repairs needed
and an estimate of the probable cost. ... At the re-
quest of the City Solicitor, the Bureau's engineer checked up
the estimates and plans of the city for the Wolf Ledge Run
Sewer. . . .

The Bureau prepared a series of five articles at the request
of the new charter association outlining the need for a new
charter. These appeared in the Akron Evening Times.
Facts were also furnished this association for use in the
preparation of a voters' pamphlet which was published and
distributed by the association. Information has been collected,
charts and tables prepared so as to have this available for the
use of the charter commission which has been elected by the
people and is now at work writing a new charter. . . .

At the request of the Mayor, the Bureau prepared a state-
ment explaining the increases of the 1918 City Budget request
over 1917. . . .

The Bureau prepared a report for the Taxation Committee
of the Chamber of Commerce on the effect on the City of
Akron of certain taxation bills which were before the Legis-
lature. . . .

A report on the schools of Akron made at the request of
the Educational Committee of the Chamber of Commerce
gives a complete description of the Akron schools and af-
fords a working program for the betterment of the school
system.

The bureau's policy with regard to publicity has been to
get the facts and submit them for correction to the official
involved, and to give out the facts either through the official
or, if through the bureau only, at a time when the publication
will not jeopardize progress.

The bureau issues a weekly official bulletin entitled Pub-
lic Information, consisting of folders, usually of four pages
each.

PUBLICATIONS

Annual report to the Board of trustees and to members of the Bureau

of municipal research. Jan. i, 1916. 18 1. (typewritten)
Same. Jan. I, 1917. 46 1. (typewritten)

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AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

Public information. Bulletin No. I — Aug. 17, 1915 — (weekly)
Contents.

No. i. A report on a study of some aspects of the financial con-
dition of Akron, Ohio. 31 p. [Later bulletins are
in the form of small folders. The last one issued was

under date of .]

Digest of departmental city reports. 1915.
Report of a study on improved water supply. 1915.
Fundamental facts about Akron's proposed charter. 1917. 12 p.
The Bureau of municipal research of Akron. 1916. 16 p. Reprinted
from Citizen agencies for research in government, the issue of
Municipal research No. 77, for Sept., 1916.

Toronto, Canada: Bureau of Municipal Research. The

Toronto Bureau of Municipal Research was organized on
June 5, 1914. It is a private non-partisan organization sup-
ported by membership dues and subscriptions.

The permanent staff, which is charged with the practical
work of the bureau, is headed by the managing director, who
has had extended training and experience in public adminis-
tration and in research in the fields of public education, pub-
lic health and municipal government.

The field of accounting is taken care of by a consulting
accountant, a staff accountant, and accounting specialists em-
ployed from time to time. The bureau employs a civil en-
gineer with special training in sanitary engineering, and ex-
perienced in public health administration and municipal re-
search. Another member of the staff specializes in render-
ing cooperative assistance to citizen organizations for the so-
cial service. When a special opportunity for public service
offers, demanding particular and unusual experience and
training, the bureau employs a specialist with the necessary
qualifications for the time required to perform the specific
work.

The program of the bureau, as outlined in one of the pub-
lications, is:

1. The establishment of a modern budget-making procedure.

2. The establishment of a training school for firemen in the
fire department.

3. The immediate organization of a complete system of fire
prevention inspection by the uniformed forces, and the
obtaining of any provincial legislation necessary to render
this inspection immediately effective.

255

EFFORTS FOR ADMINISTRATIVE REFORM

4. The making of a thorough study of the civil service of
the city as a basis of recommendations looking towards
the establishment of standard grades of work, and corre-
sponding rates of remuneration, the elimination of dupli-
cation of work, the abolition of unnecessary positions, the
creation of necessary positions, increasing the rates of
pay for underpaid work, and decreasing the rates of pay
for relatively overpaid work. In general, the setting up
of adequate civil service regulation and control in all
departments of the city.

5. The informal constitution of an administrative board
made up of the heads of city departments, meeting weekly
or bi-weekly with the Mayor as chairman, the city clerk
being secretary. In the absence of provincial legislation
this informal committee could only meet for purposes
of discussion, interdepartmental cooperation, and the
formulation of policies to be referred to the board of con-
trol and city council. The minutes of the meetings of
the administrative board should be published with the
minutes of the council and board of control.

6. A thorough study of the assessment methods of the city
with special reference to (a) business assessments, (b)
assessment of improvements, (c) local improvement
assessments, (d) equalization of assessments and (e)
appropriations.

7. The providing of the city auditor's department with the
necessary staff to strengthen the auditing control of the
city's expenditures.

8. The provision of the necessary facilities for an energetic
following up of the city's report on centralized account-
ing control and uniform departmental accounting to
strengthen administrative control of the city's expendi-
tures.

9. A thorough study of the educational resources and needs
of the city.

Since its establishment in 1914, the bureau has assisted in
the establishment of the scientific form of budget for the
city. It has studied the accounting and estimate-making of
two organization units of the city government, and has made
recommendations concerning them. It has interested itself
in the reorganization of the Fire Department; made a field
survey of the City Street Cleaning and Garbage Disposal

256

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

Service; conducted a help-your-city campaign; studied recrea-
tion facilities of the city, and wage conditions; has made in-
quiries into school problems; and has made studies of the
assessments and of the Toronto city organization.

The bureau maintains a reference library in which copies
of all completed working papers of every study made by the
bureau are carefully preserved. It maintains a reference li-
brary of books, reports, and monographs, without duplicat-
ing unnecessarily the material on the shelves of the public
library. This library and reference service are open to the
public, and a desk is kept free for such use. The bureau
has also responded to many requests for speakers on civic
topics.

The bureau's publications are issued in the form of
pamphlets containing reports of important investigations and
studies, folders and pamphlets known as White Papers,
and occasional folders known as Bulletins, which contain
brief statements of information of current interest.

PUBLICATIONS

Annual report, ist-4th, 1915-1918. Toronto, 1915 —
Report year ends Feb. 28.

Citizen control of the citizen's business. White paper, No. I (3, 6,
13-16, 18-19). Toronto, 1915 —

Effective citizen cooperation. Bulletin No. I (65). March 6, 1914-
(Jan. 29, 1918). Toronto, 1914 —

Toronto's budget for 1915, 1916, 1917. Toronto, 1915-1917. (3) v.

The citizen and the city's business. Toronto, Ontario press limited,
n.d. 7 p.

Why a Bureau of municipal research was needed two years ago.
Why it is needed this year. Why it will be needed twenty years
from now. Toronto, n.d. cover title, 16 p.

Administrative study of the Toronto Department of public health
as of March ist, 1915, by the Bureau of municipal research,
Toronto, Ont. . . . [Toronto, 1915] 53 p. illus., port., diagrs.
Reprinted from The Public health journal, issues of July,
August, September and October, 1915.

Health survey. Report of administrative study of the Health de-
partment. November, 1915.

An analysis of Toronto's budget for 1917, based upon the official
estimates, rearranged by the Bureau of municipal research so
as to show costs of services rendered and of things purchased.
Toronto, 1917. 24 p. illus.

Can a community plan its giving for community purposes, or must
individuals continue to give without a knowledge of the commu-
nity's needs and what resources exist to meet these needs? A

257

EFFORTS FOR ADMINISTRATIVE REFORM

discussion of haphazard versus planned philanthropy based on
a study of the facts. Toronto, Issued by the Toronto Bureau of
municipal research, 1917. 47, [i] p. incl. illus., diagrs., forms.
Report on the schools of Akron, made for the Education committee
of the Akron chamber of commerce, by Horace L. Brittain, di-
rector of the Toronto Bureau of municipal research . . . [Akron,
1917] 234 p. illus.

Denver, Colo.: Civic and Legislative Bureau of the Den-
ver Civic and Commercial Association. The Civic and Leg-
islative Bureau of the Denver Civic and Commercial Associa-
tion of Denver, Colorado, created in 1916, is the successor
in its activities of the Colorado Taxpayers Protective League
which was established in 1914. The bureau is presided over
by a chairman and a secretary, the latter being a paid offi-
cer. The present secretary is also secretary of the Survey
Committee of State Affairs of Colorado.

The first important work undertaken by the Colorado Tax-
payers Protective League, soon after its creation, had been
the employment in 1914 of the Bureau of Municipal Research
of New York City to make a survey of certain departments
of the city and county of Denver. This survey covered the
Departments of Social Welfare, Safety, Property, Improve-
ments, Finance, and Accounts and Auditing; the budget, in-
debtedness, the Civil Service Commission, the offices of the
jury commissioner, of the election commission and of the
public administrator, and the Juvenile Court. A critical ex-
amination was also made of the Denver charter. The report
of the survey contains criticisms of organization, methods
and conditions as found, and constructive suggestions.

Much attention was also given by the league to the sub-
ject of a budget for Denver; and monthly general balance
sheets and other financial statements for each of the last six
months of 1915 as well as budget estimates for 1916 were
prepared and issued.

In 1916, a school survey committee consisting of one rep-
resentative each of the Denver Board of Education, and the
Colorado Taxpayers Protective League, made an extensive
survey of the Denver public schools. The services of special
experts were engaged, and reports made on the general or-
ganization and management and the work of the schools, vo-

258

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

cational education, and the business management, school
buildings and grounds and health work in the schools. Fol-
lowing this survey, a special committee was appointed by the
Civic and Legislative Bureau in collaboration with educators,
school officials and business men, which drew up a tentative
outline of a proposed educational code for the state of Colo-
rado.

During the same year the Institute for Public Service of
New York City made a field survey of the Denver Federation
for Charity and Philanthropy for the Colorado Taxpayers
Protective League at the request of the federation. The
survey covered twenty-six charitable agencies represented in
the federation. A long list of constructive suggestions was
presented in the report of the survey, and at a general meet-
ing of the officers and trustees of all the institutions com-
prising the federation a resolution was unanimously adopted
pledging the separate institutions "to unite their efforts in co-
operating for the purpose of carrying out the plans and recom-
mendations of this report as rapidly as possible."

On January n, 1917, the bureau began to issue, as a sup-
plement to the weekly issue of The Commercial, the organ of
the parent association, a Legislative Index for the use of
members of the legislature and the public generally which con-
tains notations of the progress each week of all bills before
the legislature and other information of interest in connec-
tion with the progress of legislation that is pending or has
been enacted.

The bureau is supplying field work for students of the
Denver University. A number of these students have been
engaged upon the school code draft and other work, for which
they obtain credits in their university courses. Students have
also been stationed in the state legislature for the purpose of
recording the progress of every bill and resolution in that
body, this information being used for the Legislative Index.

Following is a list of the publications of the Colorado
Taxpayers Protective League and the Civic and Legislative
Bureau of the Denver Civic and Commercial Association and
of reports made under their auspices and with their coop-
eration.

259

EFFORTS FOR ADMINISTRATIVE REFORM

PUBLICATIONS OF THE COLORADO TAXPAYERS PROTECTIVE LEAGUE

Denver-budget estimates for 1916. November, 1915. 84 p.

Denver-general balance sheet and other financial statements, July,
I9i5-Dec., 1915. 6 v.

Procedure for the office of the Commissioner of supplies, n.d. 17 p.

Standard classification of accounts for the use of the city and
county of Denver, with explanatory statements and ready ref-
erence index. By Thomas R. Lill for the Colorado taxpayers
protective league. Denver, 1915. 57 p.

Denver federation for charity and philanthropy. Summary report
of field survey for the Colorado taxpayers protective league . . .
Denver, 1916. 30 [2] p.

Uniform system of accounts for . . . Denver, 1916. 81 p.

City and county of Denver; report on a survey of certain depart-
ments . . . prepared for the Colorado taxpayers protective
league, by the Bureau of municipal research, New York, 1914.
[Denver, 1914?] 583 p. plates, fold, plan, fold, diagrs.

PUBLICATIONS OF THE CIVIC AND LEGISLATIVE BUREAU OF THE DENVER
CIVIC AND COMMERCIAL ASSOCIATION

Tentative outline of proposed educational code for the state of
Colorado, (revised to December I, 1916) . . . [Denver, 1917?]

30 P-

A proposed educational code for Colorado, prepared by committee
appointed under the Civic and legislative bureau of the Denver
civic and commercial association in collaboration with educa-
tors, school officials and business men from all parts of Colo-
rado; and based upon the most progressive educational organiza-
tion and legislation in other states viewed in the light of Colo-
rado's needs. [Denver] 1917. 90 [2] p.

Legislative index of the twenty-first General assembly. Prepared
under the direction of the Civic and legislative bureau. Jan. n,
1917—

Supplement to The Commercial, the weekly publication of the Den-
ver civic and commercial association.

Rochester, N. Y.: Bureau of Municipal Research, The

Rochester Bureau of Municipal Research was incorporated
April 20, 1915. The governing body is a board of eleven
trustees of which the president of the Rochester Chamber of
Commerce is ex-officio a member. The executive head of the
bureau is the director who is also the secretary of the cor-
poration.

The purposes for which the corporation was formed, as
expressed in the certificate of incorporation, are :

i. To serve the City of Rochester, New York, as a non-
partisan and scientific agency of citizen inquiry; to promote

260

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

efficient and economical municipal government, scientific
methods of accounting and of reporting the details of
municipal business in said city, with a view to facilitating the
work of public officials ; and for the above purposes, to collect,
classify, analyze, correlate, and interpret facts as to the ad-
ministration of municipal government, and to make such in-
formation available to public officials and citizens, in order
that inefficient methods of administration may be eliminated
and efficient methods introduced and encouraged ; and to pro-
mote the development of a constructive program for the said
City of Rochester that shall be based upon adequate knowl-
edge and consideration of community needs.

2. To do all and everything necessary, 'suitable and
proper for the accomplishment of any of the purposes or the
attainment of any of the objects or the furtherance of any of
the powers herein set forth, provided that the same are not
inconsistent with the laws under which the corporation is
organized.

The activities of the bureau have been two- fold, namely,
cooperating with public officials in securing greater efficiency,
and informing the public of what the government is doing,
how it is being done and what it costs.

Among the first of the bureau's activities was an arrange-
ment with the New York Bureau of Municipal Research
whereby the latter made a general study of the local city and
county governments, resulting in the publication of an elab-
orate report of a general survey of the government of the
city of Rochester with critical appraisal and constructive sug-
gestions, and reports describing the organization and func-
tions of the city of Rochester and of the county of Monroe.

Studies were made of the Street Cleaning Service, the
Department of Public Works and the Department of Chari-
ties, and on the inspection of asphalt repairs, and reports
were submitted to the commissioner of public works propos-
ing reorganization of these services; likewise studies were
made and reports submitted to the mayor concerning the safety
conditions of the Convention Hall gallery, the methods of let-
ting contracts for local improvements, the collection and dis-
posal of garbage, and the proposed specifications for fire hose
for the city of Rochester. A study was also made of the

261

EFFORTS FOR ADMINISTRATIVE REFORM

Engineering Department and a report submitted to the city
engineer.

The bureau has cooperated since its beginning with the city
comptroller, and while it has made no formal reports or writ-
ten recommendations concerning city accounting, such mat-
ters were informally discussed with the comptroller. In this
way the bureau assisted the comptroller in the preparation of
the 1916 budget and in the arrangement of a rather elaborate
classification of objects of expenditures, which was published
in May, 1916.

Most of the work done by the bureau resulted in the prep-
aration of reports which were not published but submitted in
manuscript form to the city officials concerned. Following
is a list of the publications and manuscript reports which
have been issued either by or through the instrumentality of
the bureau.

PUBLICATIONS

Government of Monroe County, N. Y. (including town government),
description of organization and functions, transmitted to the
New York state constitutional convention by the New York
state constitutional convention commission, prepared for the
Rochester bureau of municipal research, by the New York bu-
reau of municipal research, 1915. [Albany, J. B. Lyon com-
pany, printers, 1915.] 60 p. fold, diagrs.

(In New York state constitutional convention commission. City
and county government. [No. 3] Albany, 1915.)

Government of the city of Rochester, N. Y., description of organiza-
tion and functions, transmitted to the New York state consti-
tutional convention by the New York state constitutional conven-
tion commission, prepared for the Rochester bureau of munici-
pal research, by the New York bureau of municipal research,
1915. Albany, J. B. Lyon company, printers, 1915. 104 p. fold,
diagrs.

(In New York state constitutional convention commission. City
and county government. [No. 2] Albany, 1915.)

Government of the city of Rochester, N. Y. General survey, critical
appraisal and constructive suggestions, prepared for the Roches-
ter bureau of municipal research, by the New York bureau of
municipal research, May-July, 1915. [Rochester? 1915?] 2 p.
1., 546 p. plates, plan, fold, tab., diagrs.

Average costs of asphalt pavements. 1916. fold, table.

Average costs of brick pavements. 1916. fold, table.

The purposes and organization of the Rochester bureau of munici-
pal research, inc. Rochester, N. Y., Democrat and chronicle
print. [1916] 20 p.

Proposed specifications for fire hose in the city of Rochester and

262

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

report thereon; submitted to the mayor, to the commissioner of
public safety and to the Board of contract and supply. [Roches-
ter] Rochester Bureau of municipal research, inc. [1917] 22
p., i 1. incl. tab.

Report on the problem of snow removal in the city of Rochester,
N. Y. . . . Rochester, 1917. 44 p. pi., charts.

Abstract of a report on the Department of charities of the city of
Rochester, N. Y. Rochester, Rochester bureau of municipal
research, inc., 1918. 37 p.

San Francisco, Cal.: Bureau of Government Research.
In April, 1916, the San Francisco Real Estate Board, as a
result of the rapidly rising taxes in that city, appointed a tax
committee. The first work undertaken by this committee was
the examination of the 1916-17 budget estimates which had
been transmitted to the finance committee of the Board of
Supervisors. The committee found, however, that the field
of its work was so broad and the problem so complex that
a staff of trained experts was needed to accomplish the de-
sired results. It was, therefore, decided to raise a fund to
finance a general survey of the city and county government.
In less than six weeks a fund of over $11,000 was subscribed
in $100 subscriptions.

With this fund available, the Bureau of Municipal Re-
search in New York City was employed to make an unbiased,
analytical and constructive survey of the principal depart-
ments of the city government, $8,500 being set aside for this
purpose. This survey was begun early in June, 1916, and the
report submitted in September. The results were published
in a volume of over seven hundred pages entitled, The Gov-
ernment of the City and County of San Francisco Survey Re-
port.

In order that the program which the survey inaugurated
might be followed up it was decided to organize a local bu-
reau of research in San Francisco, and on October 19, 1916,
the new organization was incorporated under the title, "San
Francisco Bureau of Government Research."

The bureau is declared to be "an incorporated, non-par-
tisan citizens' agency to study public business, cooperate with
officials and specifically work for economy and efficiency in
municipal affairs." It is financed for five years with an an-
nual income of $20,000.

263

EFFORTS FOR ADMINISTRATIVE REFORM

The present governing body is a board of ten trustees in-
cluding the chairman, vice-chairman, treasurer and secretary.
All officers, including the director, are elected by the trustees.
The constitution, however, provides for sixteen trustees. The
director is the paid executive of the bureau. The present
director participated in the above mentioned survey as an ex-
pert of the New York Bureau of Municipal Research. He is
assisted by a staff of five experts. There is also an executive
committee appointed by the chairman with the approval of
the trustees.

Membership in the organization may be obtained by a
two-thirds vote of the board of trustees or by a two-thirds
vote of the existing members of the association, but no per-
son holding a salaried position in the city or state govern-
ment may be a member.

The functions of the bureau, as defined in the constitution
of the organization, are:

To act as an incorporated, non-political, non-profit-making
citizens' agency for securing the highest obtainable degree
of efficiency and economy in the transaction of public business,
particularly in the municipality of San Francisco, through in-
vestigating, collecting, classifying, studying and interpreting
facts concerning the powers, duties, actions, limitations and
problems of the several departments of government, and mak-
ing such information available to public officials and citizens,
and promoting the development of a constructive program for
the City of San Francisco that shall be based upon adequate
knowledge and consideration of community needs, thereby
encouraging economy in the conduct of public business in
order that the taxpayers may be assured full return value in
services rendered for taxes paid and money spent in govern-
mental cost payments; and further, to do any and all lawful
things that may be necessary for or conducive toward the
attainment of any and all of the objects and ends hereinbefore
expressed.

The bureau upon its organization took over the active
work of the tax committee of the San Francisco Real Estate
Board, although the latter continued to exist. The activities
of the bureau during the year of its existence have been very
largely in the field of finance, and promoting the adoption of

264

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

improved forms of estimates and better budgetary procedure.
Since February 21, 1917, the bureau issues a bi-weekly folder
entitled, The City.

PUBLICATIONS

The City ... No. 1(10), Feb. 21, 1917 (Sept. 5, 1917)- San Fran-
cisco, 1917 —

Uniform classification of expenditures for use in preparing 1917-18
budget estimates, together with revised budget estimate forms
and instructions for their use, by Klink, Bean & Co. [with the
cooperation of the Bureau].

Detroit, Mich.: Bureau of Governmental Research. The

Detroit Bureau of Governmental Research was incorporated
March 22, 1916, and began operations the following month.
It is a private organization with a governing body of ten trus-
tees who were its original incorporators and are responsible
for its policies and financing. In order that the bureau may
be assured freedom from partisan politics, it is provided in
the by-laws that : "Every trustee who shall hold office or be
a candidate for public office or accept any public employment
shall automatically cease to be such trustee."

The working force consists of a director and a staff of
three experts, all of whom have had previous training in mu-
nicipal research work.

The bureau has. an annual budget of $25,000, the funds
being raised by subscription.

The purpose of the bureau is declared to be "to secure ef-
ficiency and economy in government, whether national, state
or municipal, by all lawful means other than promoting or de-
feating the election, or appointment to public office, or the
employment of any person or persons in a public position."
The bureau cooperates with persons in office by increasing
efficiency and eliminating waste, and it serves as an inde-
pendent non-partisan agency for keeping citizens informed
about the city's business; and its director says that "it pro-
poses to deal with the matter of securing clean, well paved
streets, adequate sewers, a low death rate, reduced sickness,
proper disposal of refuse, efficient police and fire protection,
centralized purchasing, standardized supplies, reasonable sal-
aries, equitable assessments, and the thoughtful expenditure
of public funds."

265

EFFORTS FOR ADMINISTRATIVE REFORM

While the bureau has existed but a short time, it has made
an extensive survey of the Sewer Department of Detroit, and
has issued a report on the same with criticisms and recom-
mendations regarding existing conditions, all of which have
been taken up favorably by the commissioner of public works.
It has also made an intensive study of the organization and
administration of the local school board, with the full co-
operation of all its members; an intensive study of the city's
financial methods, with the end in view of systematizing ac-
counting and budget procedure; and a report on the status
of the work of separation of grade crossings in the city of
Detroit, the purpose of which was to summarize briefly the
present status o.f the work of separating the grade crossings
of the streets and steam railways of the city of Detroit, and
to suggest measures which, if adopted, will secure a more rapid
transaction of this work, and at the same time will make pos-
sible adequate protection of the interests of the city.

At the instance of the Detroit bureau the New York Bu-
reau of Municipal Research made a report on the Department
of Buildings of the City of Detroit. This report is a state-
ment made by the New York bureau to suggest lines of fur-
ther study.

The bureau has undertaken to furnish constant, reliable
and unbiased information to the public' so that when the peo-
ple of Detroit consider the municipal, county and state gov-
ernments and discuss their merits or demerits, they may have
access to these facts.

PUBLICATIONS

Report on city budget. 1916.

The Detroit bureau of governmental research . . . [Prospectus]

May, 1916. Detroit, 1916. 8 p.
The citizen and the city government . . . July, 1917. Detroit, 1917.

ii p.
A year of municipal progress. An inventory July I, 1916, to June

30, 1917. Detroit, Mich. 15 p.
The public's business . . . No. 1-16. March 23, 1917 — Detroit, 1917 —

A bulletin in folder form issued at irregular intervals.

Toledo, Ohio : Public Research Bureau, Toledo Commerce
Club. In May, 1915, the Toledo Commerce Club appointed
a committee under the name of Public Efficiency and Econ-

266

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

omy Committee, to concern itself with matters of municipal
administration. This committee employed the Ohio Insti-
tute for Public Efficiency to make a thorough study of the
financial status and governmental organization of Toledo.
The committee cooperated, through the institute, with the
Bureaus of Municipal Research of Columbus and Akron, in
working out, with the State Bureau of Inspection and Super-
vision of Public Offices, a new system of accounting for the
cities of Ohio. This system was adopted by the Toledo city
government under its new charter which went into effect Jan-
uary i, 1916. In 1916 the committee changed its name to the
Public Research Committee, and gave the title of Public Re-
search Bureau to the department of the Toledo Commerce
Club handling its work. The .director of the bureau in a let-
ter to the author of the present work states that, since the
change of name, the bureau has undertaken to work out a
complete detailed analysis of the expenditures of the city in
1916. This was intended for use as a basis for budget mak-
ing in 1917 and 1918. The bureau has also undertaken an
investigation of the cost of garbage collection.

The bureau has issued no publications of its own, but
plans to use a part of the Commerce Club News, the organ
of the Commerce Club, for the purpose of giving publicity
to its work.

Yonkers, N. Y.: Bureau of Municipal Research. The

Bureau of Municipal Research of Yonkers, New York, is a
non-partisan incorporated citizens' organization, established
in September, 1916. The governing body is a board of fif-
teen trustees, the officers being a president, a vice-president,
a treasurer and a secretary. The latter is the paid executive
head of the bureau. The bureau is entirely supported by
voluntary contributions, its estimated cost of operation being
about $5,000 per annum.

The purposes of the bureau as set forth in its charter are :

(a) To promote efficient and economical municipal gov-
ernment ; to promote the adoption of scientific methods of ac-
counting and of reporting the details of municipal business,
with a view to facilitating the work of public officials ; to secure

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EFFORTS FOR ADMINISTRATIVE REFORM

constructive publicity in matters pertaining to municipal prob-
lems; and to these ends to collect, to classify, to analyze, to
correlate, to interpret, and to publish facts as to the admin-
istration of municipal government.

(b) To do all and everything necessary, suitable and
proper for the accomplishment of any of the purposes or the
attainment of any of the objects or the furtherance of any
of the powers herein set forth, provided the same be not in-
consistent with the laws under which this corporation is
organized.

(c) In securing the attainment of the above purposes, an
effort will be made to cooperate with such public officials of
the city as desire to utilize the data, investigations and reports
of the Bureau.

Immediately upon its organization the bureau began a
study of the accounting system of the city and as a result
recommended improved methods of preparing the city budget.
These recommendations have been adopted by the Common
Council and the Board of Estimate and Apportionment, and
forms and instructions prepared by the bureau have been is-
sued by the mayor to put them into effect. By this means de-
tailed information has been given to city officials for the con-
sideration of the budget, and departmental requisitions have
been presented in November instead of, as in some cases, as
late as March.

The next study was with reference to the cost of laying
water-mains, a subject over which there had been some con-
troversy. The work had been done by the city through the
employment of day labor. The bureau found that by laying
the water-mains by contract, work for which the city paid
approximately $100,000 could have been done for $20,000.
Since the issue of this report no extensions of water-mains
by day labor, chargeable to the city, have been authorized by
the Common Council.

Another study was of the salaries of city employees in
Yonkers and a comparison with those in other cities. The
bureau found that Yonkers is paying 'more for certain serv-
ices than it should pay, and recommended that all proposed
salary increases be carefully Considered, and that no increases

268

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

he made unless it is shown to the Board of Estimates that the
services performed will be worth the increased rate.

Numerous informal suggestions have been made to vari-
ous city departments regarding the details of administrative
procedure.

All the reports issued by the bureau have appeared in
printed form. They are as follows :

PUBLICATIONS

Report No. I — Yonkers, 1916 —
Contents.

No. [i] Suggested improvements in the budget methods of

the city of Yonkers. 1916. 8 p.
No. 2. The cost of laying water-mains by the city of Yonkers.

1916. 8 p.

No. 3. Comparisons of the salaries of city employees in Yonkers

and other cities. 1917. 4 p.

No. 4. What will the 1917 budget be? 1917. 8 p.
No. 5. Suggested improvements in the audit of claims by the

Comptroller's office. 1917. 8 p.
No. 6. Suggested improvements in the collection of revenue.

1917. 8 p.

No. 7. The purchase of fire department equipment in Yonkers.

1917. 8 p.

No. 8. Memorandum to the Common council, the Board of es-
timate and the public on the proposed extension of
the water supply system. 1917. 18 p.

No. 9. Financial facts which should be of interest to the citi-
zens of Yonkers. 1918. 24 p.
City of Yonkers, New York. Directions for preparing the budget.

Prepared by the Yonkers bureau of municipal research. 12 p.
To the taxpayers and others interested in the welfare of the city of
Yonkers. The Yonkers bureau of municipal research, inc. The
reason for its formation, its purposes, plan and scope . . . Yon-
kers [I9I61 [2] p.

What should the next mayor of Yonkers do? . . . October, 1917-
Yonkers, 1917. 8 p.

Indianapolis, Ind. : Bureau of Governmental Research of
the Indianapolis Chamber of Commerce. In March, 1918.
announcement was made by the Chamber of Commerce of
Indianapolis that it had created a Bureau of Governmental
Research and had selected Mr. Robert S. Tracy of the Phila-
delphia Bureau of Municipal Research as its director. Re-
garding the work contemplated for this bureau the announce-
ment said :

269

EFFORTS FOR ADMINISTRATIVE REFORM

One of the first tasks Mr. Tracy will have to take up as
head of the new Bureau of Municipal Research will be to
create and develop a muncipal, statistical and information
bureau, in order that all city officials may have access to the
latest, most comprehensive information available about their
own work, and city problems in general.

Sufficient money has been appropriated by the Board of
Directors, for this Bureau, to enable Mr. Tracy to call in
experts in various lines of municipal endeavor to assist him
in solving city problems calling for special consideration.

Mr. Tracy's work will be that of helpful cooperation with
city officials, and it is hoped and believed that the work this
Bureau can give will be of material assistance to the city
administration in giving to Indianapolis a government that
will be as effective as any to be found in the United States.

Columbus, Ohio: Bureau of Municipal Research. In the
spring of 1915 a Bureau of Municipal Research was created
at Columbus, Ohio, for the purpose of undertaking certain
investigations preliminary to the inauguration of the new
city charter. When these investigations were completed it
was not found feasible to continue the work of the bureau
permanently and the trustees, therefore, disbanded in the win-
ter of 1916. The bureau never employed a staff of its own
but conducted all of its work through the staff of the Ohio
Institute for Public Efficiency. All of its reports are listed
among the reports of the latter institution.

Memphis, Tenn. : Bureau of Municipal Research. A Bureau
of Municipal Research was created in Memphis, Tennessee,
in 1909, but only continued in operation for a short time,
being abolished in 1910 or 1911. During this time it pre-
pared and published the following reports :

PUBLICATIONS

Memphis: a critical study of some phases of its municipal govern-
ment with constructive suggestions for betterment in organiza-
tion and administrative methods. Bureau of Municipal Research,
Memphis, October, 1909. (Memphis, Press of S. C. Toof & Co.,
1909.) 202 p. tables (partly fold).

Budget, city of Memphis, 1910. Prepared for the Memphis Bureau
of Municipal Research . . . (Memphis, E. H. Clarke and Bro.
1910?) 25 p. i 1.

270

AGENCIES OF PARTICULAR CITIES : UNOFFICIAL

Story of the Memphis Bureau of Municipal Research.. May, 1910.
(Memphis, S. C. Toof & Co., 1910.) 16 p.

Petersburg, Va. : Bureau of Governmental Research. In
1917 a Bureau of Governmental Research was established in
Petersburg, Virginia. Due to lack of financial support and
other reasons it does not appear that much work was accom-
plished by it. Its only publication is the one listed below.

PUBLICATION

Bulletin, No. I— July 16, 1917— Petersburg, Va., 1917—
Contents :

No. I. Graphic argument for city manager government, by
Leroy Hodges. 1917. (folder)

271

CHAPTER IX

AGENCIES TO INVESTIGATE THE ADMINISTRA-
TION OF PARTICULAR COUNTIES :
UNOFFICIAL

There are no official and but few unofficial agencies for
research in county government. This is due to the fact that
the operations of few counties are on a sufficient scale to war-
rant the maintenance of a special agency for the inves-
tigation of their organization and methods of business. This
is not saying that it is not extremely desirable that the work
of these bodies should not be subjected to scientific study.
Any one who has had any familiarity with the conduct of
county affairs in the United States knows how great is the
room for improvement in their organization and methods of
business. In view of the fact that the form of organization
and in general the scope of the work of all counties in a state
are so nearly identical, it would seem that a study of their
administration could most effectively be made by a body hav-
ing state-wide powers. Notwithstanding this, special county
research agencies have been established in the few cases de-
scribed below.

Westchester County, N. Y.: Research Bureau. In 1910
something over one hundred citizens and taxpayers of West-
Chester County, New York, established what is known as
the Westchester County Research Bureau with the objects as
stated in the report of its director:

I. To Promote Efficient, Economical Government :

1. By the collection and presentation of exact in-
formation concerning the details of adminis-
tration.

2. By cooperation with the administrative authori-
ties in efforts to improve the public service.

272

AGENCIES OF COUNTIES : UNOFFICIAL

3. By demonstrating to such authorities the use
and advantage of

1 i ) Standardized records of public business.

(2) Standardized purchase and distribution
of supplies.

(3) Standardized units of public service and
of remuneration therefor.

(4) In general, standardized methods of
conducting public business.

II. To Promote the Adoption of Scientific Methods of
Accounting :

1. For the county.

2. For the cities, where such methods are not already

in use.

3. For each village — a uniform system for the county.

4. For each township— a uniform system for the
county.

III. To Secure Full Publicity of the Details of Public

Business Through Complete and Scientific Reports :

1. As to the condition of the public estate.

2. As to the efficiency of the public employees.

3. As to the cost, to the taxpayer, of any department,
function, particular operation, or detail of county
or local municipal administration.

IV. To Prevent Loss of Lives or of Health from Pre-

ventable Diseases :

1. By showing the exact statistics of such losses.

2. By demonstrating the economic loss to the com-
munities from such causes.

3. By cooperation with health authorities to secure
such sanitation and correct health administration as
to prevent such losses.

V. To Devise Remedial Measures for Faults Clearly Re-
vealed.

VI. To Promote Efficient and Economical School Admin-
istration and to Secure Full Publicity for School
Work and Achievements :

1. As regards the sanitary conditions of the schools
and their equipment, and sanitary inspection of
pupils.

2. As to compliance with the Education Law, and as
to the character of such law.

3. As to the retardation or advancement of pupils.

273

EFFORTS FOR ADMINISTRATIVE REFORM

4. As to the elimination or continuation of pupils.
5. As to economy in financial outlay.

VII. To Supply Exact, Full, Verifiable Information and
Data to Agencies Organized for the Betterment of
Civic Conditions in any Legitimate and Wholesome
Way.

The bureau is incorporated as a non-stock membership
corporation. Its officers are a president, a vice-president, a
treasurer, a secretary and seven directors. The secretary is
the only paid officer. Among the results accomplished by the
bureau the following may be enumerated :

In 1911 it published the results of a study of the conditions
governing the collecting of taxes in Westchester County, the
methods employed in making such collections and the result-
ant cost to the taxpayers. The report also contained sugges-
tions for changes in the law intended to increase the effi-
ciency and reduce the cost of tax administration. This re-
port has been an important factor in bringing about a better
tax law, which it is alleged saves the county about $50,000
per year.

In 1912 the bureau published two bulletins on budget mak-
ing, namely, a comparison of county budgets for a period of
five years and pointing out what a budget should reveal, and
a report on Making the County Budget, which was designed
to show how a scientific budget may be prepared, the form
in which it may be made public, and the methods by which
the opinions of the people may be placed before the Board of
Supervisors for its guidance in the adoption of its annual
program of community service.

This report it is claimed resulted in the adoption of a bet-
ter budget system, effecting a saving estimated at about $125,-
ooo per year.

In 1912 a study was made of "the purchase of county sup-
plies and the audit of county claims." The report of this
study was made to the Board of County Supervisors of West-
Chester County and pointed out the wastefulness of the pres-
ent system. This resulted in the establishment of a new pur-
chasing department which it is stated effected an estimated
saving of about $10,000 per year.

274

AGENCIES OF COUNTIES: UNOFFICIAL

In 1914 certain facts were prepared by the bureau con-
cerning the county printing expenses, which were presented
as evidence before the Grand Jury. As a result of the sub-
sequent action of the Grand Jury the special laws on public
printing were repealed resulting in an estimated saving of
$25,000 per year to the county.

As a further result of the bureau's activities, the office of
county comptroller was created, and this officer, it is esti-
mated, saves the county about $30,000 per year.

A more recent report of the bureau (September i, 1916)
deals with the Westchester County Building Commission and
its work and points out the advantage, of the present system,
that is, a commission of three members as compared with the
work as formerly handled by the larger board of supervisors.

Many local investigations have led to better methods and
economies. Such studies have been made in eight localities
in the county.

The bureau has been called upon from time to time to
cooperate in the preparation of schedules for investigation by
various committees and to aid fiscal officers of some of the
municipal corporations of the county in the installation of
modern accounting systems and the improvement of existing
methods.

The bureau has made many recommendations to the heads
of departments of county and local governments, both as to
the location and elimination of governmental waste, and as
to the establishment of efficiency and the installation of sci-
entific methods. Many of its recommendations have been
adopted. It has aimed whenever possible to criticise not work
but methods, and has endeavored never to find fault without
providing a constructive remedy. It has endeavored to place
at the service of officials the work of skilled experts, and its
guiding principle has been to cooperate with organized gov-
ernment.

PUBLICATIONS

The Westchester County research bureau . . . [I9IO1 [4] P-
Method and cost of collecting taxes in Westchester County. 1911.
71 p. [Document on county government collected by the Na-
tional short ballot organization.]
The purchase of county supplies and the audit of county claims.

275

EFFORTS FOR ADMINISTRATIVE REFORM

Report made to the Board of supervisors of Westchester county

. . . 1912. 16 p.

Efficiency series, Bulletin No. I — I9i2(?) —
Contents.

No. 2. Making the county budget. 1912. 20 p.
A brief report on the organization, activities, and achievements of

the Westchester County research bureau, 1910-1913. [1914] 15 p.
County printing expenses . . . 1914. 23 p.
The Westchester County research bureau. A record of service

and an extraordinary opportunity. 1915? 8 p.
The Westchester County research bureau. What is its work? For

whom does it work? Why is it needed? 1916 (folder).
Westchester County building commission. Report of its work as

at September i, 1916.

Alameda County, Cal. Tax Association. The Tax Asso-
ciation of Alameda County is an association of taxpayers of
Oakland, Alameda, Berkeley, Piedmont, Emeryville, Niles,
San Leandro and Livermore, in Alameda County, Califor-
nia, the object of which is declared to be: "To correct ex-
isting evils and inequalities in taxation; promote economy in
public expenditures, both state and local; and to formulate
and announce the most progressive economic thought and ad-
ministrative experience available for the correct guidance of
public opinion, legislative and administrative action on all
questions pertaining to state and local taxation."

Its governing body consists of its officers and an executive
committee of twenty-two members, with standing committees
on law, campaign, finance and organization and membership.

Among the recent activities reported by the association are :
A survey of the organization, business management, revenues
and expenditures of the school department of Oakland; and
a survey of the auditor's office of Oakland with reference
to its operation under a new accounting system recently in-
stalled on its recommendation. The association is now en-
gaged in an effort to secure the adoption of a proposed char-
ter under which the cities of the county may federate, and
under which it is expected that unnecessary duplicating of of-
ficials may be eliminated and the people provided with better
and more service at a lower cost. The system contemplates
a system of boroughs whereby each city retains its present
identity and independence, fixes its own tax rates and also
controls borough expenditures. An idea of the other activi-

276

AGENCIES OF COUNTIES : UNOFFICIAL

ties of the association may be obtained from an examination
of the appended list of its publications.

PUBLICATIONS

Bulletin No. 1-8. Oakland, 1911-1913.

No. i. Organization and objects of tax association.

No. 2. Office of county recorder.

No. 3. Emergency hospital and detention home and care of
indigents.

No. 4. County infirmary and infirmary hospital.

No. 5. Registration as conducted by the County clerk of Ala-
meda County.

No. 6. Analysis of recall petition. Standardizing the account-
ing system.

No. 7. Suggestions for consideration in preparing a charter
for Alameda County.

No. 8. Coroner's Office; and the creation of an extra depart-
ment of the Supreme Court.

Continued by its Report No. 9 —

No. 9. The Alameda County plan.

No. 10. Section A. Cost of elections in 1910.
Section B. Cost of elections in 1912.
Section C. Cost of city elections.

No. ii. The Municipal auditorium of the City of Oakland, Cal.

No. 12. Efficiency in municipal and county government.

No. 13. Central purchasing agency for Alameda County and
its cities.

No. 14. Facts which justify the existence of the Tax Asso-
sociation.

No. 15. How the supervisors and the Tax association saved
$36,310.85 on the 1914 primary.

No. 16. Increasing per capita cost of state, county and munici-
pal government.

No. 17. Not printed ( ?)

No. 18. Summary of proposed amendments to Oakland charter.

No. 19. School department of Oakland.

No. 20. Survey of the auditor's office, city of Oakland.

No. 21. Some of the benefits that would accrue under a city
and county charter.

No. 22. Sharpening the instruments of government. (A plea
for the appointment of a general manager for pub-
lic business.)

No. 23. Clipping the wings of extravagance. (A tabular state-
ment of the cost of a special election in each county
of California, illustrating savings effected through
efficiency.)

No. 24. As others see us.

Tax association bulletin Jan., 1913, No. i — Oakland, 1913.
Centralized government for Alameda County and its cities.

277

EFFORTS FOR ADMINISTRATIVE REFORM

City and county — centralized government for Alameda County and

its cities. 1916. 10 p.
City and county — summary of a charter for a federated city and

county government for Alameda County and its cities. 1916.

20 p.
City and county — organization chart — city and county government

set up. I p.

Hudson County, N. J. : Citizens Federation. The Citizens
Federation of Hudson County is an organization of citizens,
taxpayers and business men of Hudson County, New Jersey.
It is supported by the dues of its members. Its governing
body is a board of twenty-five trustees.

The objects of the federation as shown in a printed state-
ment are: "To examine into public affairs and the conduct
of officials throughout the County, making known the result of
such examinations when deemed necessary for the public good ;
to endeavor to the extent of its power to effect the betterment
of governmental conditions throughout the County by co-
operation with officials or otherwise ; to promote and endeavor
to secure the selection of properly qualified individuals as
public officials ; to aid in the prosecution of officials and others
taking part in frauds upon the public, and to urge the enact-
ment of laws which shall prevent fraud and tend to economi-
cal, simple and efficient administration; to endeavor to secure
equal taxation upon the basis of the true value of ratables;
to urge needed public improvements when the financial con-
dition of the County warrants the same; and to watch legis-
lation whereby anything inimical to the objects above ex-
pressed may be defeated, and to suggest and aid in the se-
curing of such legislation as will best promote such objects."

PUBLICATIONS

[Circular] . . . October, 1912. [Jersey City? 1912] [8] p.
Comparisons of appropriations and salaries . . . January, 1913. 24

p. diagrs.
Citizens bulletin. [Jersey City, 19 — ]

Issued monthly. No. 6, July 25, 1913, issued by Jersey City com-
mittee, Citizens federation of Hudson County.

278

PART II

ORGANS OF CENTRAL ADMINISTRATIVE
CONTROL

PART II

ORGANS OF CENTRAL ADMINISTRATIVE
CONTROL

In the preceding part we have considered the work of
official bodies which have been created by the national gov-
ernment and by various states and cities for the purpose of
investigating governmental conditions with a view \to formu-
lating recommendations for their improvement. \The dis-
tinguishing feature of these bodies is the fact that they have
had only investigatory and recommendatory powers./ It is
now our purpose to consider the organization and work of
another class of official agencies which, while having for their
end the same purpose as those already treated, namely, the
improvement of methods of public administration, differ radi-
cally from these bodies in that, in addition to having large
investigatory and recommendatory powers, they possess direct
administrative authority of an important character.

In not a few of our governmental organizations there
exists but little administrative authority for the accomplish-
ment of major changes of organization and procedure. Stat-
ute, constitution, charter and ordinance render impotent the
judgment of the chief executive authority. But even where
these limitations do not exist and where the right of the execu-
tive to mold organization and procedure receives full recogni-
tion, there is seldom provided any specific organ through which
the executive may effectively make use of his power. The
need for such an organ is not satisfied by the creation of re-
search agencies, having powers of recommendation only, of
the type described in the preceding part of this volume. Use-
ful as such agencies are, the necessity under which they labor,
of appearing before the executive in the role of plaintiff with
the department under investigation as defendant, and of over-
bearing the opposition which that department is so likely to

281

EFFORTS FOR ADMINISTRATIVE REFORM

set up against any proposals for change, has been and must
continue to be a serious limitation upon their effectiveness.
Only by the creation of an agency possessing a status superior
to that of the several departments, can the full possibili-
ties of the central control over administration be realized.
\Such an agency must either itself have the legal power of
giving effect to its own recommendations, or its moral position
in the administration, so to speak, must be such that its recom-
mendations have the effect of orders in the ordinary course of
events. \

It goes without saying that the need for this type of organ
of administrative control varies directly with the magnitude
of the organization. The outstanding need for such an organ
in the national government has been set forth in full in an-
other place.1 Here there is given an account of the agencies
which have already been created by some of the states and
cities.

'Chapter II of The Problem of a National Budget, by W. F.
Willoughby, published by the Institute for Government Research,
1918.

282

CHAPTER X

ORGANS OF ADMINISTRATIVE CONTROL IN
THE STATES

The services and institutions for whose administration
state governments are responsible fall into three main classes :
(i) subordinate political divisions such as municipalities,
counties and the like; (2) state institutions; that is, institu-
tions of a charitable or educational character, which, while
more or less under private management, yet receive large
sums for their support from the public treasury and are sub-
ject to special laws; and (3) services proper of the state
government.

For the administration of all three of these classes of in-
stitutions the state is responsible. For years, however, the
states possessed no organs through which they might effec-
tively exercise that direction, supervision and control over
these institutions which was imperative if efficiency in opera-
tion was to be secured. One of the most encouraging features
of the modern movement for improving methods of public
administration is the extent to which this lack has, in recent
years, been recognized and central organs of administrative
control have been created by the states. These organs have
been of three kinds, corresponding to the three classes of serv-
ices and institutions mentioned. Special services have been
created or existing state officers have been empowered to
prescribe uniform systems of accounting and reporting and
otherwise to exercise control over subordinate political sub-
divisions. Boards of control have been established to exercise
a general direction, supervision and control over state
charitable and other institutions. And, finally, central serv-
ices have been created to exercise a general control and super-
vision over the administrative departments, properly speak-
ing, of the state government.

283

EFFORTS FOR ADMINISTRATIVE REFORM

The special character of the organs of the first two kinds
does not bring them within the scope of the present work.
The third, that of organs of general administration, rep-
resents, however, one of the most important examples of or-
ganized efforts for the improvement of methods of public
administration with which we have to deal. These organs
are variously designated. In California, the designation,
"State Board of Control" is employed; but this should not
lead to the confusion of this organ with similarly designated
boards in other states having for their purpose the control of
state institutions.

The movement for the establishment of state organs of
this character is of very recent date, and is intimately related
to the movement for budgetary reform. Experience has dem-
onstrated that if an efficient budgetary system is to be estab-
lished it is imperative that the state shall have a central organ
for the performance of the work of receiving estimates,
making investigations regarding the organization, work,
methods and needs of the several services and institutions
submitting them, and, on the basis of the information so
obtained, of formulating the budget to be submitted by the
Governor to the legislature. The two reforms of the estab-
lishment of a budget system and the creation of a central
organ of general administration have thus had to go hand in
hand. Due to this close relation between the two, the or-
ganization and work of organs of general administration have
necessarily been treated at some length in the volume on
The Movement for Budgetary Reform in the States, pub-
lished by the Institute for Government Research. In the
account of these organs that follows, we will, therefore, draw
largely upon the data there presented.

California: State Board of Control. In his message to the
legislature on January 8, 1911, Governor Hiram Johnson, of
California, called attention to the absence of any adequate
means for the exercise of effective control over the manner in
which the services and institutions of the state were being ad-
ministered. Impressed by this showing the legislature, by
an act approved April 3, 1911, provided for the creation of

284

ORGANS OF ADMINISTRATIVE CONTROL

a body known as State Board of Control that is in many re-
spects the most important and interesting organ of general
administration that has been established by any state.1

This act provides that the State Board of Control created?
by it shall consist of three salaried members, to be appointed
by the Governor and to hold office at his pleasure, who shall
devote their entire time to the duties of their office. As de-
fined by the act, the duties of this board are : ( i ) to examine
annually and report upon the books of state hospitals, reform-
atories and other institutions, commissions, bureaus and offices
of the state; (2) to visit all public institutions maintained in
whole or in part by state appropriations, to ascertain their
condition and needs, and to visit public buildings in course
of construction to see that 'they are being erected in con-
formity with the provisions of law; (3) to scrutinize and
report upon claims against the state; (4) to count the money
in the state treasury at least once a month; (5) to supervise
the issuance of bonds by local governing bodies of the state;
(6) with consent of the Governor, to authorize the creation
of deficiencies in appropriations made by law, in cases of actual
necessity; (7) to exercise general "powers of supervision over
all matters concerning the financial and business policies of
the State," and when it deems proper, or at the instance of
the Governor, to institute investigations into the same; (8) to
approve contracts entered into by state officials or organs,
which before being entered into must be submitted to it for
approval.

In connection with and under the supervision of the Board
of Control the act also provided for a Department of Public
Accounting whose function is defined to be to "devise, install
and supervise a uniform system of accounting and reporting
for any and all officers or persons in this State permitted or
charged by law with the keeping of public accounts and records,
and the custody, control and handling of public money or its
equivalent, to the end that there shall be obtained similar
and comparable data for every public office and every public
account of the same class, and that there shall be a general,

California, Acts, 1911, Ch. 349.

285

EFFORTS FOR ADMINISTRATIVE REFORM

systematic and uniform check upon the receipt and disburse-
ment of all public revenue."

This department, as well as the Board of Control, is
granted adequate authority to take testimony, compel the
production of papers, and other inquisitorial powers. The
board is directed to report biennially to the legislature "a his-
tory of its transactions and investigations."

The important function of the board, thus established, in
making possible the preparation of a proper budgetary docu-
ment for submission by the Governor to the legislature is de-
scribed in the volume entitled The Movement for Budgetary
Reform in the States, and need not be here rehearsed. The
following statement taken from that volume, regarding the
general status and functions of the board, however, deserve
quotation :

In its State Board of Control, created in 1911, California
has an organ, which, as stated by the Governor of the State,
has plenary powers over the business and financial affairs of
the State. It moreover has a status and personnel independent
of, and, as regards the powers to prescribe methods of business
procedure, superior to, the administrative or operating de-
partments properly speaking. . . . This body thus con-
stitutes an organ of general administration comparable in
character to the British Treasury. Its function as an organ
for preparing the budget to be submitted to the legislature is
thus but an integral part of the general function as a service
of overhead administration.

Testifying to the results obtained after six years of oper-
ation, the Governor in his 1917 message said:

During the past six years,' California has demonstrated
that public business can be conducted as honestly and as effi-
ciently as private business. ... It seems incredible now,
that prior to 1911 there had not been for many, many
years a state audit ; that there was no centralized control over
the business conducted by the state, no mode of accurately
determining the necessity and amount of appropriations, and
no supervision which would preclude favoritism in bidding.
. . . The legislature of 1911, therefore, passed the law
creating the State Board of Control and gave to that board

286

ORGANS OF ADMINISTRATIVE CONTROL

plenary powers over the business and financial affairs of the
state. . . . Investigations at once were held by the board,
and corruption and fraud in the business of the state un-
covered. Ruthlessly the old methods were destroyed and
the individuals who were guilty were removed from the
service of the state. But the great work of the board was to
systematize the business of California in such way that it
might challenge comparison with the system in vogue in those
great business concerns that are models of commercial enter-
prise. . . . The old log-rolling methods, inefficiency, fraud,
corruption and political control have been displaced by
a budget system, a searching financial supervision, modern
business methods, economy and efficiency. . . . The business
of the State of California is now conducted upon approved
modern lines and conducted as efficiently and as economically
as any systematic and scientifically managed private enterprise.

The appended list of publications of the Board of Control
sufficiently indicates the extent and character of its activities.
In its biennial reports, the board, as directed by law, gives an
account of the various investigations undertaken by it.

PUBLICATIONS

First biennial report of the State board of control of California
covering period from Dec. 3, 1910, to Dec. 6, 1912. Sacramento,
1913. 138 p.

Budget covering appropriations. 1914. 57 p.

Classification instructions for making property returns on inventory
forms. Nos. I, 2 and 3. Effective Dec. I, 1915. [Annual].

Financial statement of the government of the state of California for
the sixty-seventh and sixty-eighth fiscal years (July I, 1915,
to June 30, 1917), showing all sources of state taxes and all
appropriations and fixed charges for the support of the state
government and its institutions . . . [Sacramento? 1915?] 9 p.

Report of the State board of control covering appropriations needed
by state departments and institutions for the sixty-fifth and
sixty-sixth fiscal years [1913-1915] with supplemental recom-
mendations . . . Sacramento, 1912. 43 p.

for the sixty-seventh and sixty-eighth fiscal years [1915-1917].

Sacramento, 1914. 51 p.

for the sixty-ninth and seventieth fiscal years [1917-1919].

Sacramento, 1916. 63 p.

Pamphlet of procedure governing the preparation and presentation
of estimates and the presentation and audit of claims. 1916. 14 p.

Rules governing: the presentation and audit of demands against state
funds and appropriations. 1917. 16 p.

287

EFFORTS FOR ADMINISTRATIVE REFORM

Statement of John Francis Neylan, chairman, State board of con-
trol, to Finance committee of Senate and Ways and means com-
mittee of Assembly, on condition of Treasury of state of Cali-
fornia. 1917. 8 p.

Accounting procedure for uniform system of county accounts. De-
partment of public accounting, State board of control. [1918?]
various paging, forms.

Wisconsin: State Board of Public Affairs. In the same
year, 1911, that California provided for its State Board of
Control, Wisconsin provided for a somewhat similar body
under the name of State Board of Public Affairs. This body,
however, was given quite a different composition from that
of the California board. The latter, it will be remembered, is
composed of three appointees of the Governor having no other
official duties. The Wisconsin board was made to consist of
the Governor as chairman, the secretary of state, the chairman
of finance committees of the two houses of the legislature and
two other members to be appointed by the Governor by and
with the advice and consent of the Senate. That the activities
of the University of Wisconsin, or at least of certain of the
members of its faculty, in respect to governmental matters
were resented by the legislature is shown by the odd provision
that the appointed members should not be members of the
faculty of that institution. By a statute passed in 1913, the
membership of the board was increased by adding to it the
President pro tern, of the Senate, the Speaker of the As-
sembly, and a third appointed member, and certain other
changes were introduced. Since then the act has been
amended on several occasions.1

According to this act, as originally passed and as amended
in 1913, the board had the powers only of taking steps looking
to the formulation of the estimates according to a uniform
plan and of compiling and submitting the estimates as re-
ceived by it. In 1915 the act was so amended, however, as
not only to confer upon the board the duty of submitting its
recommendations in respect to appropriations needed but of
acting as a general administrative board to prescribe methods
looking to the efficient conduct of public affairs. Thus, after

JFor a copy of the act as amended see, The Movement for
Budgetary Reform in the States.

288

ORGANS OF ADMINISTRATIVE CONTROL

conferring full powers upon the board to make inquiries re-
garding the organization and methods of work of all state
departments and institutions, the act provides that:

1 i ) The board shall have such supervision of every public
body as is necessary to secure uniformity and accuracy of
accounts. It may inquire into the methods of conducting the
affairs of any public body ; it may prescribe and direct the use
of such forms of accounts as may be necessary to carry out the
purposes of this chapter; it may prescribe and direct the use
of standards and records of efficiency of employees; it shall
inaugurate, supervise and conduct adequate systems of ex-
amination and inspection of accounts of every such public
body, it may cause to be prepared suitable blanks, books and
records for carrying out the purposes of this chapter; and
shall, when necessary, furnish such blanks and records to any
such public body, provided, that when the expense of such
blanks, books or records has been charged against the appro-
priation for the board of public affairs the secretary of state
shall charge the cost of supplies so furnished against the gen-
eral appropriation account of the public body receiving the
same and shall credit the appropriation of the board of public
affairs with a like amount.

(2) The board shall devise for all public bodies uniform
systems of accounts and uniform accounting procedures ade-
quate to record in detail all transactions affecting the acquisi-
tion, custodianship and disposition of values, including cash
receipts and disbursements, and every such public body shall
keep its accounts and maintain its accounting procedure accu-
rately and faithfully as prescribed and directed by the board.

Following this the board is specifically entrusted with the
duty of formulating and submitting to the legislature a budget
with supporting documents.

Among the reports of this board special mention might
be made of the volume on The Budget, prepared for the
board by S. Gale Lowrie, since it represents one of the earliest
comprehensive studies of this important subject

289

EFFORTS FOR ADMINISTRATIVE REFORM

PUBLICATIONS

The budget, by S. Gale Lowrie. Madison, Wis. Democrat printing
company, state printer, 1912. 259 p.

At head of title: Wisconsin State board of public affairs.
A plan for a cooperative neighborhood; prepared and presented to
the State board of public affairs, by Albert L. Williams. Madi-
son, 1912. 18 p.

Report on agricultural settlement and farm ownership. Pt. I — Madi-
son (Democrat printing company, state printer). 1912 —
Contents.

Pt. I. State loans to farmers, by W. M. Duffus. 1912.
Report upon cooperation and marketing. Madison, Wis., Democrat
printing company, state printer, 1912 —
Contents.

Pt. I. Agricultural cooperation, by J. F. Sinclair. 1912.
Pt. III. Municipal markets, by J. F. Sinclair [and] C. Hallam.

1912.
Pt. IV. Distributive or store cooperation, by J. F. Sinclair.

1912.

The public money, where it comes from, where it goes. A statement
of the receipts and disbursements of the state and local govern-
ments, prepared by the Wisconsin tax commission and issued by
the State board of public affairs . . . Madison, Wis., 1914. 51 p.
incl. tables, charts.

Conditions and needs of Wisconsin's normal schools. Report of co-
operative survey, by A. N. Farmer, director . . . [1915] 653 p.
front., fold, maps, fold, tab., diagrs.

Survey summary re University of Wisconsin, containing the portion
thus far released by the State board of public affairs as sub-
mitted December i 1914, by William H. Allen, director. Madi-
son, Wis., Wisconsin efficiency bureau, 1915. 107 p.
Contents.

I. Scope and method of the survey.
II. What its university means to Wisconsin.
III. Earmarks of efficiency and progress.
IV. Opportunities for increasing efficiency.

Report upon the survey of the University of Wisconsin; findings of
the State board of public affairs and its report to the Legislature
. . . Madison, Wis. [1915] xi, 957 p. forms, tables, chart,

maps.

Appendices: W. H. Allen's report to the board, E. C. Branson's
report to the board, comment by committee of University fac-
ulty upon report of investigators.

Wisconsin state budget, showing actual receipts and disbursements

for 1913-1914, 1914-1915, and 1915-1916, and estimated receipts

and disbursements for 1916-1917, 1917-1918, and 1918-1919. Comp.

for the use of the Legislature, 1917, by the Wisconsin State

board of public affairs, December I, 1916. 344 p.

In pocket: "Recommendations of the Board of public affairs

on the budgets of the boards, departments, and commissions,

as submitted for the consideration of the 1917 Legislature."

(22 P.)

29O

ORGANS OF ADMINISTRATIVE CONTROL

Miscellaneous

(Complete titles unknown: Not known whether printed or type-
written)

Investigation of efficiency and cost of state printing.

Investigation of feasibility of a central board of control for all public

educational institutions.
Report submitted to the Civil service commission on departmental

organization and efficiency of state employees.
State receipts and expenditures, 1903-1914.
Survey of the High schools.

Massachusetts: Supervisor of Administration. Elsewhere
in this volume an account has been given of the Massachu-
setts Economy and Efficiency Commission, created in 1912.
By act of June i, 19 16,1 this commission was abolished and
its powers and duties transferred together with those of the
Board of Publication, a body created in 1902, to a new office
created by the act known as office of Supervisor of Adminis-
tration. The statute authorizes the Governor, with the advice
and consent of the council, to appoint the supervisor at a
salary of $5,000 for a term of three years. The supervisor is
authorized to appoint a deputy or deputies, with the consent
of the Governor and council and to appoint a secretary, ex-
perts, clerks and other assistants, subject to the approval of
the committee on finance of the council, which is made "a
board of advisers of the supervisor."

Due to the fact that this office took over the powers and
duties of prior existing authorities, it is necessary to refer
to a number of acts to determine the scope of its functions.
Fortunately, however, the supervisor in his first annual report
has made an exceptionally clear statement of both the general
functions of his office and the specific duties with which he
is charged. His statement follows:

The office of Supervisor of Administration is a staff
agency for exercising supervision over certain activities of
State departments, and for conducting investigations and
studies into the organization and business methods of the
State government. The work is to be performed for, and all
reports and recommendations are to be rendered to, the Gov-

'Massachusetts, Acts, 1916, Ch. 296.

291

EFFORTS FOR ADMINISTRATIVE REFORM

ernor, Council and General Court. Some of the activities
are undertaken on request of the Governor, Council or Legis-
lature, and other activities are conducted on the initiative of
the Supervisor, acting under authority vested in him by statute.
The authority of the office to conduct investigations and
studies extends to 'every officer or board having charge of any
department, institution or undertaking which receives an an-
nual appropriation of money from the treasury of the com-
monwealth, including annual appropriations to be met by as-
sessments/ Under this provision, it appears that the Super-
visor may be authorized to make studies into the work of the
Legislature and judiciary. In view, however, of the constitu-
tional and statutory powers of those two branches of gov-
ernment, and of their functions being wholly distinct from
those of the executive division of government, the work of
the Supervisor's office must be in practice limited to the con-
sideration of the various departments, boards and institutions
in the executive branch of the State government, unless a
specific request were made by the General Court for an ex-
amination into some matter under its control or that of the
courts.

The activities prescribed for this office by statute comprise
four more or less distinct classes, namely, supervision over
certain departmental activities, investigations into the manage-
ment of individual departments, publication of a list of State
officials and employees, and the making of constructive stud-
ies. The law does not group the department's activities into
separate classes, but such an arrangement is here given in or-
der to show clearly the nature of the different duties which
this office must perform.

Supervisory Duties. The Supervisor's office is vested with
certain supervisory authority in connection with the follow-
ing departmental activities :

I. Purchasing Methods. The statute establishing the
Supervisor's office provides that he may, with the approval of
the Council committee on finance, 'designate a deputy to act
as investigator of purchases who shall, under the direction of
the supervisor investigate the method of purchasing all stores,
supplies and materials used by the commonwealth or by any
officer, board, bureau, commission, institution or department
maintained or employed by the commonwealth. Such deputy
shall report the results of his investigation with his recom-
mendations to the Supervisor who may, after a hearing before

292

ORGANS OF ADMINISTRATIVE CONTROL

the governor and council given to the officials concerned, and
with the approval of the governor and council, order changes
made in the methods used in, and makes rules and regulations,
not inconsistent with law, governing the purchase of stores,
supplies and materials in any or all of the offices, boards,
bureaus, commissions, institutions and departments of the
commonwealth. Copies of orders or rules and regulations so
made shall be transmitted to the officials concerned. Any
appointed official who fails to comply with an order, rule or
regulation duly made under authority hereof may be removed
by the governor with the advice and consent of the council/

Formerly the supervisor of accounts in the Auditor's office
was authorized by law to inquire into the methods used by
State departments and institutions in purchasing and handling
stores, supplies and materials, and to report to the Auditor
such changes as the supervisor deemed wise. These powers
and duties were transferred to the Supervisor of Administra-
tion by the statute creating his office. .

2. Examination of Departmental Publications. It is the
duty of the Supervisor 'to examine the annual reports and all
special reports and other documents issued by or on behalf of
the commonwealth by any public officer, board or commission/
excepting the reports of the officers of either branch of the
General Court and of elected officials. The law authorizes
this office to 'define the form and extent' of the reports, 'to
determine the number of pages to which any such report may
extend, and to determine whether it shall include maps, plans,
photogravures, woodcuts or other illustrations/ The ex-
amination of reports was formerly the duty of the Board of
Publication, and was transferred to the Supervisor upon the
establishment of his office and the abolition of the Board of
Publication by chapter 296, General Acts of 1916. An appeal
from the Supervisor's decision regarding any proposed publi-
cation may be taken to the Council committee on finance,
whose decision shall be final.

The principal classes of printing which do not come within
the scope of this office's examination are the statute books,
manual of the General Court, journals and all other legislative
printing, ballots, and other election printing, printed forms
used by departments as work sheets in the conduct of their
routine business, and the annual reports of elected officials.
Expenditures for these classes constitute nearly two-thirds of
the State's printing bill.

293

EFFORTS FOR ADMINISTRATIVE REFORM

3. Approval of Measures for Preservation of State Rec-
ords. Proposed measures for safeguarding the records of
the Commonwealth must be approved by the Supervisor, before
such measures shall be put into effect by the Commissioner of
Public Records.

Departmental Investigations. The statutes provide that
the Supervisor's office shall make certain investigations and
reports which have to do with routine departmental adminis-
tration and which may be briefly described as follows :

1. Special examinations of any matter affecting the man-
agement of finances of any department or institution are made
upon request of the Governor, the Council committee on
finance, the Legislature or the ways and means committee of
either branch. Similar examinations may be undertaken on
the initiative of the Supervisor, under authority vested in him
by statute. This class of work was required of the former
Commission on Economy and Efficiency. The examinations
here referred to have to do with the details of management in
a single department, in contrast to those investigations or
studies relating to broad and important subjects of adminis-
tration, such as standardization of salaries, budget procedure,
etc., which are described with the constructive studies pre-
scribed for this department.

2. Reports on estimates for appropriations are made
upon request of the General Court, the ways and means com-
mittee of either branch, the Governor, the Council or the
Council committee on finance. This duty is a modification
of that imposed upon the former Commission on Economy and
Efficiency, which was required by statute to report on all
appropriation estimates without being specifically requested.

Annual Publication of List of State Officials and Em-
ployees. The publication annually on or before October 15 of
a list of the officials and employees in the State service on July
I (Public Document No. 90) has been transferred to the
office of the Supervisor. Formerly this duty was imposed on
the Governor and Council, and the list for 1916 was pub-
lished under their jurisdiction, as the Supervisor's department
was established too late to perform the work for this year.

Constructive Studies. The study of certain administra-
tive problems which are met with generally throughout the
State service was transferred to the Supervisor's office upon
the abolition of the Commission on Economy and Efficiency.
The statute enumerates the following subjects for study:

294

ORGANS OF ADMINISTRATIVE CONTROL

1. The laws governing the financial transactions of the
commonwealth.

2. Reorganization, consolidation or coordination of de-
partments and institutions.

3. New methods of administration.

4. Classification of employees, and fixing maximum and
minimum salaries.

5. Standardization of vacations.

6. Budget method of appropriating money.

The desirability of establishing a central purchasing
agency or department is enumerated among the studies trans-
ferred from the Commission on Economy and Efficiency.
The provision for such a study, however, has been practically
superseded by the specific authorization for an investigation
of purchasing methods set forth in the act creating this office.

Further provision for study of salaries was made by the
General Court of 1916, which requested the Governor and
Council 'to undertake an examination of the salaries and com-
pensations paid to officers and employees of the commonwealth
and of the several counties thereof, exclusive of the depart-
ment of legislation and persons in its immediate service.* By
a vote of the Council a special committee of three of its mem-
bers was appointed to conduct the investigation requested
by the General Court, and the Council also voted 'that the
Supervisor of Administration be authorized and requested to
give the assistance of his department to the investigation as
planned by this committee.'

Special Investigations authorised by the General Court
of 1916. The following special investigations and duties
were transferred from the Commission on Economy and Effi-
ciency to the Supervisor's department:

1. To report, with any recommendations deemed expedi-
ent, relative to the advisability of providing pensions for the
needy blind (chapter 139, Resolves of 1916).

2. The Supervisor, as successor to the Commission on
Economy and Efficiency, is a member, ex-officio, of the special
commission established by the General Court (chapter 106,
Resolves of 1916) to investigate the subject of agricultural
education as conducted at the Massachusetts Agricultural Col-
lege, and the development of the agricultural resources of the
Commonwealth. This investigation has consumed a material
amount of the Supervisor's time, but has not otherwise in-
creased the work of his department.

295

EFFORTS FOR ADMINISTRATIVE REFORM

PUBLICATIONS

[First] annual report of the Supervisor of administration. 1916.
Boston, Wright & Potter Printing Co., state printers, 1917. 22 p.
(Public doc. No. 119.)

Continues the report of the Commission on economy and effi-
ciency.
Contents.

Nature and scope of powers and duties.

Work performed.

Recommendations.

[Second] annual report of the Supervisor of administration. 1917.
Boston, 1918. 18 p.
Contents.

Financial summary.

Reports.

Additional legislation of the year 1917 directly affecting the
department of the Supervisor of administration.

Examination of departmental publications.

Budget.

Standardization of salaries.

Purchasing control.

Consolidations.

Illinois: Department of Finance. The establishment of
boards of control, as has been done by Wisconsin and Califor-
nia and other states, represents one form of action on the
part of states in seeking to bring into existence central organs
of administrative control. Another form is where general ad-
ministrative powers have been conferred upon the financial
department of the state government. The best example of
action in this way is furnished by the state of Illinois. That
state, as has been pointed out in our account of the work of
its Efficiency and Economy Committee, is the one American
commonwealth which has courageously reorganized her admin-
istrative system upon an integrated system. In doing so she
appreciated the necessity for vesting power in some authority
to secure a proper correlation of existing services and work
and a unification and standardization of financial practice and
procedure. To obtain this, end she made of the Department
of Finance what is practically a bureau of overhead admin-
istration in respect to financial matters.1 The powers con-
ferred upon this department illustrate so clearly the specific

1 An act in relation to the civil administration of the state govern-
ment. Approved March 7, 1917, acts of 1917, p. 2.

296

ORGANS OF ADMINISTRATIVE CONTROL

functions or duties of a bureau of general administration that
it is well to enumerate them as set forth in the act:

Section 36. The Department of Finance shall have power :

1. To prescribe and require the installation of a uniform
system of bookkeeping, accounting and reporting for the
several departments;

2. To prescribe forms for accounts and financial reports
and statements for the several departments;

3. To supervise and examine the accounts and expen-
ditures of the several departments ;

4. To examine, at any and all times, into the accuracy
and legality of the accounts, receipts and expenditures of the
public moneys and the disposition and use of the public prop-
erty by the several departments;

5. To keep such summary and controlling accounts as
may be necessary to determine the accuracy of the detail ac-
counts and reports from the several departments, and to pre-
scribe the manner and method of certifying that funds are
available and adequate to meet all contracts and obligations;

6. To prescribe uniform rules governing specifications
for purchases of supplies, the advertisement for proposals, the
opening of bids and the making of awards, to keep a catalogue
of prices current and to analyze and tabulate prices paid and
quantities purchased ;

7. To examine, at any and all times, the accounts of
every private corporation, institution, association or board
receiving appropriations from the General Assembly;

8. To report to the Attorney General for such action,
civil or criminal, as the Attorney General may deem neces-
sary, all facts showing illegal expenditures of the public money
or misappropriation of the public property;

9. To examine and approve, or disapprove, vouchers,
bills and claims of the several departments, and such as are by
law made subject to the approval of the governor and referred
to it by the governor, and no voucher, bill or claim of any
department shall be allowed without its approval and certifi-
cate;

10. To prescribe the form of receipt, voucher, bill or
claim to be filed by the several departments with it ;

n. In settling the accounts of the several departments, to
inquire into and make an inspection of articles and materials
furnished or work and labor performed, for the purpose of

297

EFFORTS FOR ADMINISTRATIVE REFORM

ascertaining that the prices, quality and amount of such arti-
cles or labor are fair, just and reasonable, and that all the re-
quirements, express and implied, pertaining thereto have been
complied with, and to reject and disallow any excess;

12. To prepare and report to the governor, when re-
quested, estimates of the income and revenues of the state;

13. To prepare and submit to the governor biennially,
not later than the first day of January preceding the conven-
ing of the General Assembly, a state budget;

14. To publish, from time to time, for the information of
the several departments and of the general public, bulletins
of the work of the government;

15. To investigate duplication of work of departments
and the efficiency of the organization and administration of
departments, and to formulate plans for the better coordina-
tion of departments.1

A reading of the foregoing provisions shows how important
an agency this department can be for bringing about an im-
provement in the organization and methods of business of
the government of which it is a part. It is to be hoped that
its administrative reports will be of such a character as to
make available to other states the results of its work.

Tennessee: State Budget Commission. On April 6, 1917,
Tennessee passed an act providing for the adoption of a
budget system and the establishment of a body known as the
State Budget Commission, which should have charge of the
preparation of the budget for submission to the legislature.
This commission is composed of the Governor, as chairman,
the secretary of state, and the comptroller, treasurer and
auditor of the state. In order that this body might efficiently
perform its duties as a budget organ, it is also given the duty
and power to make investigations into the organization and
methods of work of the services and institutions of the state.
The act thus provides that :

At any time the Budget Commission, or their duly ac-
credited representatives acting under their instructions, may

1 The sections of the act which follow, and which relate to the
preparation of the budget, are discussed in the volume on The Move-
ment for Budgetary Reform in the States.

298

ORGANS OF ADMINISTRATIVE CONTROL

examine without notice the affairs of any department, insti-
tution, public work, commission or office of the State for the
purpose of ascertaining facts and making findings and recom-
mendations relative to increasing the efficiency of and cur-
tailing the expense therein.

In the making of such examinations it is given power to
administer oaths and to compel the attendance of witnesses
and the production of records and papers.

In addition to this purely investigative power, however,
the board is vested with the power of administrative control
in two important respects. In the first place it is provided
that "all bills introduced in either house carrying appropria-
tions should be itemized according to the classifications and
in such form as the Budget ^Commission shall prescribe;" and
by a subsequent section it is provided that "no transfer of
funds appropriated for any item in the appropriation for any
state office, department, commission, board or institution,
shall be made except upon the written request of the chief
officer or officers of such state office, department, commission,
board or institution, to the Budget Commission, which request
shall be granted in writing by the Budget Commission if, in its
judgment, such a transfer of funds is deemed necessary or
expedient."

The possession of complete control in these two matters
places the commission in so strategic a position in the admin-
istration of the state that it may readily develop into a genuine
organ of central administrative control.

Other States. In the foregoing we have given an account of
those state organs which have as their primary or direct func-
tion the exercise of supervision and control over the admin-
istrative services of the state with a view to increasing the
efficiency and economy with which they are managed. A
large number of other states have, however, made a beginning
in this direction by vesting in certain state officers, such as
the auditor or comptroller, the power to prescribe systems of
accounting and reporting, or in certain boards the power to
make such examination into the organization and methods of
work of the state services as is necessary to enable them

299

EFFORTS FOR ADMINISTRATIVE REFORM

properly to perform their primary duties. Thus, the acts
providing for the Vermont Board of Control and the North
Dakota and South Dakota Budget Boards, which act as the
budget-formulating organs for those states, provide that they
shall have power to visit and examine into the affairs of any
state service or institution for the purpose of securing the in-
formation needed by them in preparing the budget. Acting
under this authority it would be quite possible for these bodies
to become effective organs of general administration.

Special mention has already been made of the Indiana
State Board of Accounts, since, according to its annual report,
that service has made of itself an organ for securing efficiency
in the administration of public affairs generally. A very
similar organ is the State Bureau of Inspection and Super-
vision of Public Office, created by the state of Washington
in 1910, to prescribe, install and supervise the operation of
a system of accounting and reporting by state officers.

Finally, there are undoubtedly a considerable number of
cases where state legislatures have standing committees or
have appointed special committees to consider and report upon
the conduct of public affairs by the services of the state. An
example of such a body is furnished by the Iowa Committee on
Retrenchment and Reform which in 1914 made a brief but
interesting report to the legislature relative to the adminis-
trative branch of the government.1

1 Recommendations of the Committee on Retrenchment and Re-
form of the 35th General Assembly and the members of the 36th
General Assembly and the General Public. Des Moines, 1914.

300

CHAPTER XI

ORGANS OF ADMINISTRATIVE CONTROL IN
CITIES

American city governments like those of the states have
in the past few decades assumed a variety of new functions
and developed administrative organizations of greatly in-
creased complexity. Even more generally than the states
they have failed to appreciate the need for creating organs of
central administrative control.

A fuller development toward such agencies has undoubt-
edly taken place in New York than in any other American city
of importance, though at the moment the situation in that city
represents a retrogression from the conditions existing in this
respect prior to 1918. In the following pages the history of
New York's development in this matter is set forth. No other
city which has come to notice has developed organs which are
so unequivocably entitled to be regarded as organs of central
administrative control; but in the larger cities generally the
tendency toward such development is clearly marked.

New York, N. Y. : Board of Estimate and Apportionment.

The growth of central administrative control in New York
is closely bound up with the development of the segregated
budget. The charter of the city provides (Sec. 226) that the
budget "shall be prepared in such detail as to the titles of
appropriations, the terms and conditions, not inconsistent with
law, under which the same may be expended, the aggregate
sum and the items thereof allowed to each department, bureau,
office, board, or commission, as the said . . . board of estimate
and apportionment shall deem advisable." Within recent
years there has been an increasing exercise by the Board of
Estimate and Apportionment of the power here granted, so
that in most cases the budget now specifies the exact title

301

EFFORTS FOR ADMINISTRATIVE REFORM

and salary of each and every employee who may be employed
under the appropriation granted; and this determination may
be modified during the fiscal year only by the action of the
Board of Estimate and Apportionment.

To frame the personal service items of the budget in the
degree of detail here indicated, and to pass upon the requests
currently made by the operating departments for changes in
the budget lines as thus prescribed, the Board of Estimate
and Apportionment created in 1914 a so-called Bureau of
Standards (the name of which was in 1917 changed to Bureau
of Personal Service) while for the purpose of framing the
items of the budget covering the purchase of supplies or the
performance of work or service under contract, and for the
current investigation of the contracts proposed to be let by
the departments, it created at the same time a Bureau of Con-
tract Supervision. These two bureaus, though no longer in
existence as independent organizations, possess such unique
interest as marking the highest development of central agency
control yet reached in municipal, and indeed in state and
national, government in this country, that a somewhat detailed
account of them seems warranted.1

Before proceeding to that account it should be pointed out
that budget examination by an administrative agency existed
for some years before the creation of these bureaus in 1914,
having been carried on by a bureau of the Department of
Finance, known as the Bureau of Municipal Investigation and
Statistics; and indeed that bureau continued to participate in
the work of budget examination even after the creation of the
two bureaus of the Board of Estimate here under discussion.
Budget examination was not, however, the express function
for which that bureau was created, nor was the bureau under
the control and jurisdiction of the Board of Estimate, but
under that of the comptroller, one of the members of the board.
The creation of the two bureaus mentioned marks, therefore,
the first definite recognition by the board that it could no
longer itself give proper consideration to the examination of
the details of the budget and to the supervision of the day-to-

1 For a fuller exposition of the budgetary procedure of New York
City and of the general subject matter of this chapter see, The New
York City Budget, Municipal Research, No. 88, August, 1917.

302

ORGANS OF ADMINISTRATIVE CONTROL

day actions of the departments taken under authority of the
budget and that it must create special agencies to perform
those functions.

Again, the emphasis placed upon these two bureaus should
not obscure the fact that they were not technically themselves
agencies of administrative control, but merely advisory
agencies to the Board of Estimate, which itself was the agency
of control. The bureaus were given, and could be given, no
power of final determination in the matters coming before
them, such power being vested by the charter in the Board of
Estimate itself.

The recommendations of the bureaus' examiners as to
allowances to be made in the annual budget were reviewed in
the first instance by a subcommittee, composed of administra-
tive officers representing members of the board's budget com-
mittee. The determinations of the subcommittee were in turn
reviewed by the board's budget committee itself, and then by
the board in full session. Owing to the enormous amount of
detail involved in the examination of the budget, and the
pressure of other duties, the examination given by the board's
budget committee and still more by the board itself was neces-
sarily of the most perfunctory kind. In effect, therefore, the
budget was determined by a committee of administrative
officers, sitting as umpire between the department on the one
hand and the bureau examiner on the other.

In the case of requests for budget modifications arising
during the course of the year, the recommendations of the
bureaus of the board went directly to the appropriate com-
mittees of the board without the intervention of a subcom-
mittee. In these cases the recommendation of the bureau was
almost invariably accepted without change.

While the central control was thus exercised nominally by
the Board of Estimate, the real organ of central control was
thus, in the matter of annual budget, the subcommittee, and
in other matters the bureau of the board.

Bureau of Standards (later Bureau of Personal Service).
The history of the Bureau of Standards runs back to 1910,
when there was created by the Board of Estimate and Appor-
tionment a committee to standardize the salaries of municipal

303

EFFORTS FOR ADMINISTRATIVE REFORM

employees. It was not until the late fall of 1912, however,
that the necessary funds for this work became available. In
January and February, 1913, a staff of examiners was or-
ganized to record and study salaries, grades and duties of em-
ployees in practically all city departments. This staff devoted
itself to the compilation of definite facts relative to the char-
acter of employment of substantially every employee in the
competitive and exempt classes. Records were prepared show-
ing the essential facts theretofore unavailable relative to each
position, and work commenced on drawing up definitions and
specifications of employment.

At the time of the creation of this committee its work was
regarded as of a terminable character. The Board of Esti-
mate and Apportionment which came into office on January
i, 1914, however, took the view that even after a standard
schedule of duties and salaries had been prepared it would be
necessary to maintain a staff which should see that this sched-
ule was currently adhered to. It created, therefore, a so-called
Bureau of Standards to which was entrusted the function not
merely of completing the work of drawing up standard speci-
fications of work and compensation rates but of examining*
on behalf of the board all requests from departments for cur-
rent changes in compensation rates of employees or for the
creation of new positions, and the annual requests of depart-
ments for appropriations for personal service as contained
in thfe budget estimates.

Upon its creation, the bureau took over all the material
gathered by the Committee on Standardization and continued
the studies begun by that committee. The first phase of the
bureau's work, the preparation of standard work specifica-
tions and compensation rates for substantially all classes of
city employees except school teachers, was brought to a ten-
tative conclusion by the publication in 1915 of a volume
entitled Standard Specifications for Personal Service, in
which the various positions in the city service were classified
by "services," "groups," "positions," and "grades," the duties
appertaining to each of these classifications defined, and a
salary rate or scale proposed for each. A revised edition of
these specifications was published in the following year.

304

ORGANS OF ADMINISTRATIVE CONTROL

Partly owing to the civil service difficulties encountered
in attempting to readjust the titles and compensation rates of
employees already in service to the new scale, and partly
owing to unwillingness of the members of the Board of Esti-
mate and Apportionment to take, at one stroke, an action
affecting so materially the personal interests of great numbers
of employees, it proved impossible to secure the adoption of
the proposed specifications and classification as a whole, prior
to January i, 1918. On that date a new administration, com-
posed largely of elements which had during the previous ad-
ministration strongly opposed the proposed specifications and
revised classification, took office, so that the adoption of these
specifications, in the preparation of which many tens of thou-
sands of dollars were expended, is for the present at least,
out of the question.

Despite their failure to receive formal adoption, the speci-
fications received wide practical application during the years
1915-1917 in the preparation of the annual budgets and in
the current adjustments of budget items, the examiners of the
Bureau of Standards being under instruction to be guided by
the specifications in their recommendations of salary rates.
In addition, the Civil Service Commission, which possesses
large powers of classification, though not of fixation of salaries,
adopted in a number of cases the proposals as to title and
classification made by the bureau.

In 1917, the work of standardizing specifications for the
purchase of supplies, which had also been carried on by the
Bureau of Standards, was transferred to the Bureau of Con-
tract Supervision of which account is given below ; and the
name of the bureau was changed to the Bureau of Personal
Service.

Early in 1918, the new city administration abolished the
bureau as a separate organization, placing the staff of the
bureau directly under the control of the secretary.

PUBLICATIONS

Clerical service . . . [New York, 1915?] 68 p.

Custodial service. Tentative specifications submitted by the Bureau
of standards to the Committee on salaries and grades of the
Board of estimate and apportionment. [New York, M. B. Brown
printing & binding co., 1915?] 50 p.

305

EFFORTS FOR ADMINISTRATIVE REFORM

Executive service and sub-professional service. Tentative specifica-
tions submitted by the Bureau of standards to the Committee on
salaries and grades of the Board of estimate and apportionment/
November, 1915. [New York, M. B. Brown printing & binding
co., 1915] 45, 66 p.

Inspectional service. Tentative specifications submitted by the Bu-
reau of standards to the Committee on salaries and grades of the
Board of estimate and apportionment. [New York, M. B. Brown
printing & binding co., 1915] 103, [i] p.

Institutional service . . . [New York, 1915?] 61, 26 p.

Investigational and educational service . . . [New York, 1915?] 85,
14 p.

Report on the cost of living for an unskilled laborer's family in New
York city. Submitted by the Bureau of standards to the Com-
mittee on salaries and grades of the Board of estimate and ap-
portionment, supporting the salary recommendations for posi-
tions in the lowest grades of the street cleaning specifications
and for other positions as unskilled laborers throughout the city
service. [New York, M. B. Brown printing & binding co., 1915]

57 P-

Skilled trades service and labor service. Tentative specifications sub-
mitted by the Bureau of standards to the Committee on salaries
and grades of the Board of estimate and apportionment of the
city of New York, December, 1915. [New York, M. B. Brown
printing & binding co., 1915] 235, [i] p.

Standard specifications for personal service. [New York, 1916]

931 P-

Street cleaning service . . . [New York, 1915?] 50 p.

Report on the increased cost of living for an unskilled laborer's fam-
ily in New York city. Prepared by the Bureau of personal
service of the Board of estimate and apportionment. [New
York, M. B. Brown printing & binding co.] 1917. 32 p.

Bureau of Contract Supervision. Simultaneously with
the creation of the Bureau of Standards, the Board of Esti-
mate created a so-called Bureau of Contract Supervision. To
this bureau were entrusted functions cognate to those per-
formed by the Bureau of Standards, but having reference to
the purchase of supplies and materials and to the performance
of work by contract. In 1916 the functions of this bureau
were thus described in an official publication.1

i. Review and report upon the specifications, estimates
of cost and forms of contract for construction work done by
the city, for the purchase of equipment and other contractual
service where such plans, specifications and estimates of cost

1 Government of the City of New York, 1915, p. 20.

306

ORGANS OF ADMINISTRATIVE CONTROL

and forms of contract require the approval of the Board of
Estimate and Apportionment.

2. Report upon requested appropriations for purposes
involving physical construction, alteration, repair or main-
tenance and the operation of mechanical plants.

3. To make tests of deliveries on contract or open market
order and make such other laboratory tests as may be requested
by heads of departments or required by the Board of Esti-
mate and Apportionment.

4. To prepare plans and specifications for work of physi-
cal construction or alteration when requested by the heads of
departments or required by the Board of Estimate and Ap-
portionment.

5. To report on progress of construction contracts when
requested by heads of departments or required by the Board
of Estimate and Apportionment.

6. To accumulate cost data on contract work.

7. To make examinations, analyses and reports in con-
nection with the preparation of tax and corporate stock bud-
gets, and in connection with the transfers, modifications and
revenue bond issues and current expenditures from funds
by the various departments, boards, bureaus and offices of the
city and county government.

8. The establishment of standard contract practices in
the various departments having charge of the construction
work.

As the work is used as a basis for appropriations and cur-
rent financial control of appropriations, it involves an analysis
of work methods and a study of the organization of forces
engaged on the work of physical construction, alteration, re-
pair or maintenance and the operation of mechanical plants,
and the needs of the various departments, boards, bureaus
and offices of the city and county government for supplies,
materials and equipment in connection with such work.

In addition, in 1917, there was transferred to this bureau
the work of preparing standard specifications for the purchase
of supplies, which had formerly been conducted by a division
of the Bureau of Standards. While the standardization of
supply specifications would not ordinarily be regarded as a
form of central administrative control, it may properly be so

307

EFFORTS FOR ADMINISTRATIVE REFORM

regarded in this case. By the city charter complete freedom in
the purchase of supplies was vested in the heads of the several
departments. By means of conditions inserted in the budget,
however, in connection with all appropriations for the pur-
chase of supplies or materials, the Board of Estimate has
made mandatory upon the several department heads the use
of the standard specifications prepared under its control.

PART III

LEGISLATIVE REFERENCE AND BILL-DRAFTING

AGENCIES

PART III

LEGISLATIVE REFERENCE AND BILL-DRAFTING

AGENCIES

A characteristic of public administration, distinguishing it
sharply from that of private undertakings, is that it must rest
upon a foundation of law. It is of the utmost importance
therefore, if efficient administration is to be had, that this
legal basis shall be of a proper character, both as regards the
nature of its provisions and the technical manner of their
expression. Efficient legislation must thus be deemed to be
one of the prime factors of efficient administration. A serv-
ice that rests upon a properly drawn body of administrative
law has made a big step towards securing efficiency in oper-
ation. One which does not enjoy this advantage finds its
problem of securing efficiency correspondingly more difficult,
if not, indeed, impossible of solution.

It is a matter of congratulation, therefore, that recent
years have witnessed a very important movement in the United
States in the direction of bringing into existence agencies
having for their purpose the promotion of efficient legislation.
These agencies may render to the legislator services of two
.distinct ends. On the one hand they may furnish him with
information bearing on the substantive matter of the legis-
lation which he has in mind. This is the function of legis-
lative reference libraries, so-called. On the other hand, they
may provide the legislator with expert assistance in drafting
the text of the proposed legislation. It need hardly be pointed
out that the best results are to be obtained when both these
services are furnished to the legislator. Nevertheless, not a
few of our states have made provision for one of the two with-
out the other.

In the following chapters account is given, first of those
agencies which furnish both these types of service to the leg-

EFFORTS FOR ADMINISTRATIVE REFORM

islator; second, of those which furnish only bill-drafting serv-
ice; and finally, of those which furnish only information.

In the case of agencies engaged in bill drafting, the aim is
not to supply information as the result of scientific investiga-
tion but simply to make available the services of persons tech-
nically trained in the drawing up of projects of law. In the
case of legislative reference bureaus, the element of scientific
investigation plays a part since their aim is not simply to col-
lect and classify, and thus render readily available information
needed by the legislature, but upon request, or in anticipation
of a request, to go afield and collect all possible information
upon pending or probable subjects of legislation — the texts
of bills, and official and unofficial accounts of the manner in
which laws in other jurisdictions have operated. In most
cases, it has not been thought necessary to publish the results
of inquiries thus undertaken, but, in other cases, valuable
series of publications, which will be later mentioned, have
been issued.

It may, however, be observed at this point that while in
most cases the legislative reference departments limit the as-
sistance which they give to providing pertinent data, in some
cases they also venture opinions as to the argumentative weight
to be attached to the information which they supply. An in-
stance of this practice is found in the legislative reference
department of the Library Commission of Wisconsin. While
the value of the opinions rendered by reference services may
be considerable, it is clear that there is danger in this practice,
since it necessarily draws the department into the arena of
politics and policy with the inevitable result of bringing it into
discredit, or at least into disfavor, with those who do not hap-
pen to agree with the judgments it expresses.

Before proceeding to the account of the three types of
services above mentioned, it seems desirable to reproduce the
very excellent discussion of the general principles which have
been outlined above, and of related matters, made in 1913 by
a committee of the American Bar Association appointed to
investigate the subject. This report is reproduced in the
following chapter.

312

CHAPTER XII

THE PROBLEM OF LEGISLATIVE REFERENCE
AND BILL-DRAFTING SERVICE

A REPORT OF A COMMITTEE OF THE AMERICAN
BAR ASSOCIATION, 1913

Your committee was appointed ( i ) "To consider whether
some efficient agency can not be devised to provide the sev-
eral State legislatures with scientific and expert assistance
in the framing of legislation" and (2) report on "the existing
methods of furnishing such assistance in the preparation of
legislative enactments, together with a recommendation as to
the part, if any, which this association should take in the mat-
ter."

The most important existing permanent public agencies for
funishing information and rendering expert assistance in
the preparation of legislative enactments are the State legis-
lative reference bureaus and drafting departments,
i

Assistance in the framing of legislation given by existing
agencies falls under two heads, legislative reference service,
or the work of collecting material throwing light on the sub-
ject matter of legislation, and drafting service.

The legislative reference service, now actually carried on
in several States, demonstrates that it is entirely practicable
to collect, classify, digest, and index, prior to a session of a
legislature, all kinds of material bearing on practically all sub-
jects likely to become subjects of actual legislation at the
session. This material, where the bureau is well run, includes
not only books and pamphlets, such as might be found in an
ordinary library, but also copies of bills introduced into the

1 Paragraph omitted relates to composition of the committee and
its method of work.

313

EFFORTS FOR ADMINISTRATIVE REFORM

various State legislatures and laws which have been enacted
in this and foreign countries, and other printed materials re-
lating to the operation of such laws or the conditions creating
a need for them. Indeed, on most subjects of possible legis-
lation, the difficulty is not to find material, but to arrange the
large mass of available material so as to make its efficient use
practical. That such service has great possibilities of useful-
ness is evident, especially where the service is directly con-
tributory to the drafting service, a matter to be presently
explained. The increasing complication of our industrial,
social and governmental administrative problems renders it
necessary, if the discussion of matters pertaining to legislation
is to proceed in a reasonably intelligent manner, that system-
atic effort be expended on the collection and arrangement of
material bearing on current matters of public discussion likely
to become the subject of legislative enactment. A central
agency to furnish such service does not take the place of
special commissions or committees created to investigate par-
ticular subjects and recommend legislation. The object of
the central reference service should be to assist such bodies,
as well as individual members of the legislature and others de-
siring information pertaining to subjects of legislation.

Existing agencies also demonstrate that it is possible to
provide expert drafting service for the more important
measures and some assistance in the drafting of all bills intro-
duced. The number of bills, for which expert drafting as-
sistance can be furnished, would appear to be merely a question
of the size of the force and the amount of the appropriation
for its support. Your committee, therefore, believes that it is
entirely practical to establish, in connection with any legis-
lature, a permanent agency capable of giving expert drafting
assistance for all bills introduced, and they urge the Associa-
tion to place itself on record as favoring such an agency as
the most practical means of bringing about scientific methods
of legislation, that is to say, methods of drafting statutes
which will secure:

1. Conformity to constitutional requirements.

2. Adequacy of the provisions of the law to its purpose.

3. Coordination with the existing law. And

THE PROBLEM OF LEGISLATIVE REFERENCE

4. The utmost simplicity of form consistent with cer-
tainty.

The technical shortcomings of our statutes are chiefly
due to the fact that they come from so many hands working
without supervision and without a concerted plan. Each
statute is apt to create, to some extent, an administrative ma-
chinery of its own, to have its own peculiar provisions for
sanction and enforcement, and to frame new rules and prin-
ciples applicable to already existing acts in part materia. The
multiplicity of separate provisions for separate statutes pro-
duces confusion, and unnecessarily encumbers our law.

A distinct drafting service will produce the one thing in-
dispensable to scientific legislation : a professional attitude of
mind, which means training, for the work, devotion to it, and
a reputation at stake in its proper execution, without which a
high quality of workmanship is as unlikely in legislation as
in any other work.

The organization of the two services, legislative reference
and legislative drafting, and their relation to each other, are
important factors in the usefulness of the results obtained from
the establishment of the service. The agencies now existing,
considered from the point of view of organization, fall into
two classes; those in which the legislative reference work and
the bill drafting are provided for in a single permanent bureau,
as in Wisconsin, Indiana, and Pennsylvania, and those in
which the legislative reference work is carried on by the State
library or one of its divisions, the drafting work being done
by persons appointed by and operating under the direct con-
trol of the legislature, as in New York, Connecticut, and
Massachusetts. Your committee does not feel that they are
as yet in a position to express an opinion on the relative merits
of either form of organization. They are, however, of the
opinion that the reference service should be so organized and
operated as to be directly contributory to the drafting service,
and that all questions of organization of the two services,
their physical location and the relation of the reference work
to the other ends than the drafting of bills, as, for instance,
supplying to legislators and others material for the discussion
of pending or possible legislation, should be decided with this

315

EFFORTS FOR ADMINISTRATIVE REFORM

fundamental principle in mind. Where, as in New York, the
reference service is not used by the drafting department, com-
paratively little use of the reference service is made by mem-
bers of the legislature. Again, if the drafting service makes
no use of the reference service, the drafting service is neces-
sarily confined to minor matters of form.

It is, of course, essential that the member, administrative
officer, committee, or commission, employing the drafting
service shall be the final judge of the policy to be expressed
in legislative form. Any one entitled to use the service shall
be entitled to it without regard to the effect of the bill which
he desires to have drawn. It is, however, not only proper but
vital if the drafting service is to do more than correct obvious
clerical and formal errors, .for those in charge of the work to
be able, through their access to the reference material, to in-
dicate, if desired, to the sponsors of the legislation the statutes
of other States or countries dealing with the same subject, or
direct their attention to any other material collected by the
reference service. Theoretically, the member of a legislature
desiring assistance in the preparation of bills, if there is no co-
operation between the reference and the drafting service, can
go first to the reference service for material and then to the
drafting service. Practically, however, in the great majority
of cases, the member seeks the aid not of the reference but of
the drafting service. That service should be in a position to
place the member in possession of all pertinent matter in re-
lation to the subject. Furthermore, the draftsman himself
should be in a position to ask the person, commission, or com-
mittee intelligent questions as to the details of the measure
desired. This he cannot do unless he himself has some famil-
iarity of the subject matter. Where the draftsman is not in
a position to refer the person or persons desiring the legis-
lation to material bearing on the subject, and where he is not
in a position to ask intelligent questions as to details, his as-
sistance is necessarily confined to minor questions of
form and, consequently, the effectiveness of the drafting
service is reduced to a minimum. The valuable results ob-
tained in Wisconsin are due to a combination of causes, not
the least of which is the personality and ability of Dr. Charles

THE PROBLEM OF LEGISLATIVE REFERENCE

McCarthy, the well-known head of the service. Another con-
tributory cause, however, is the fact that that service has gone
beyond mere form, without any attempt to control matters of
policy, and this would have been impossible if the reference
work had not been organized so as to be contributory to the
drafting service.

Your committee also believes that another essential requi-
site is that both services shall be so organized as to secure per-
manency of tenure. To be of real value the service must be
used and this cannot be unless there is confidence both in the
competency and the impartiality of the personnel of the serv-
ice. Under the most favorable conditions such confidence is a
matter of slow growth. There is a great difference in the value
of the service in different states, where either a reference or
a drafting service or both have been organized. There is also
even more difference in the use which is made of the services
established. We are glad to report that the reappointment of
directors and chief assistants, regardless of party consider-
ations, is almost universal. It is to this fact, as well as to the
inherent necessity for both branches of this service, in view of
existing conditions, that the growing confidence in the work
of the respective organization in the several states where the
service exists may be traced.

As stated, the present force available in any state which has
established a central drafting service, is not sufficient to fur-
nish efficient expert assistance in the drafting of all bills in-
troduced. Your committee recognizes that this condition is
likely, in most states, to persist for some time. All that can
be clone, even by such an organization as that maintained in
Wisconsin, is to give as much time as possible to the demands
of each member, reserving special men for what are recog-
nized as the big important measures of the session. While it
is important that all bills introduced should be well drawn,
the drawing of the bills that become law is of first importance.
In nearly every state the more important bills enacted into law
fall under one of the following heads : Administration bills,
that is, bills dealing with matters referred to in the governor's
message and probably prepared under his direction; Commis-
sion Bills, that is, bills prepared by special commissions ap-

3*7

EFFORTS FOR ADMINISTRATIVE REFORM

pointed for the purpose ; Committee Bills, that is, bills prepared
by some special or joint committee of one or both houses; and
Department Bills, or bills which have been prepared under the
direction of one of the executive departments. In view of
this fact, your committee is of the opinion that where full
and adequate service cannot be given to all bills, preference
should be given: First, to Administration Bills; second, to
Commission Bills; third, to Committee Bills; fourth, to De-
partment Bills ; and fifth, to Members' Bills. Your committee
believes that the recognition of this principle is of great im-
portance to the efficient operation of the drafting service.

Again, it is not only important that bills such as Adminis-
tration and Commission Bills be given preference, but it is also
perhaps vital to the permanent usefulness of the service and
even its continuance, that the administration, the executive de-
partments, commissions and committees, shall recognize their
obligation to at least avail themselves of the drafting service.
The present tendency in this country is to have important leg-
islation prepared by special committees, or by commissions, or
under the direction of the administration. A drafting serv-
ice, whose operations are practically confined to the preparation
of Members' Bills, is, therefore, a service confined to preparing
bills not likely to become law, or pertaining to matters of com-
paratively slight significance. Such a service can never have
an important influence on actual legislation and will never re-
ceive either from the legislature or the public that attention
and consequent support which is essential to efficient work.
The tendency to have legislation on important subjects, pre-
pared for submission to the legislature by persons especially
designated for that purpose, is one which is on the whole pro-
ducing excellent results. A commission charged with the prep-
aration of a bill on a particular subject, is usually composed,
in part at least, of experts on the subject, and it is customary
for them to secure as secretary or special draftsman some one
learned in the law. But the average lawyer of experience is
very far from being a trained draftsman, and bills prepared
by commissions, while usually a great improvement on bills
introduced by members on their own initiative, are by no
means free from faults of form and graver faults of confusion

THE PROBLEM OF LEGISLATIVE REFERENCE

and obscurity of expression, all of which could have been eas-
ily avoided, if, in addition to special expert service, the body
responsible for the bill had at their disposal the services of a
trained draftsman and had availed themselves of such services.

The efficiency of the drafting service depends not only
on the personnel, and on the recognition of certain fundamental
principles of organization and operation, but also, your com-
mittee believes, on the existence of a harmonious body of
principles to be observed, in the drafting of legislation. It is,
however, obvious that some systematic plan and effort will be
needed to produce a harmonious body of principles which can
be used by drafting bureaus.

As we look to constructive work in economic and social
science to furnish principles of legislation on its substantive
side, so we have to look to legarscience to furnish such prin-
ciples for the formal or technical side of legislation. Thus
the history of liquor legislation in this country furnishes much
valuable data in the matter of law enforcement which should
be made available in the drafting of other classes of statutes ;
the same is true of factory and labor legislation for the prob-
lem of meeting the most obvious contrivances for evading stat-
utory requirements.

Unfortunately there is no book written in the English lan-
guage discussing, in the light of administrative and judicial
experience, the legal ways and means by which a given legis-
lative policy can best be rendered effective, or the arrange-
ments and institutions which at present serve that end. The
reason for this must be found in the large commercial demand
for legal works available for the business of litigation, which
has absorbed the attention of jurists to the utter neglect of
scholarly or literary service to the no less important business
of legislation.

I/ The lawyer's treatment of the law is analytical, the legis-
lator's constructive. To the lawyer it is a fixed quantity to
which he must adjust himself, to the legislator a potential
force which he may fashion for his purpose. Obviously, the
two points of view are entirely different. The material that
the lawyer needs has been collected and digested with a de-
gree of completeness that leaves hardly anything to be desired.

319

EFFORTS FOR ADMINISTRATIVE REFORM

But while the legal material that the legislator needs, the his-
tory of statutes and of their construction by the courts may
also be found, to a considerable extent at least, scattered
through the law reports, there is no key to it through digests
or treatises adapted for his purposes. In many cases the at-
torneys of private interests alone possess the knowledge that
is needed for intelligent legislation and the public does not
always profit by that knowledge.

Your committee, therefore, submits that the Association
should lend its influence and aid toward the work that needs
to be done in this field. The object to be aimed at ultimately
would be the production of something like a legislative man-
ual or code, a collection of directions or suggestions to drafts-
men, and of model clauses for constantly recurring statutory
provisions and problems. Carefully worked out, and having
the sanction of the approval of representative bodies of law-
yers and of students of legislation, such a guide could not fail
of having considerable effect of drafting all over the coun-
try, and the establishment of drafting bureaus would be ap-
propriately supplemented by giving their work from the very
start a scientific and uniform direction.

As a preliminary part of the work, some systematic plan
of topics should be agreed upon for further elaboration. The
committee, in Appendix C of this report, presents a tentative
draft of such a plan. It is undersood that a committee of the
American Political Science Association will recommend a
similar arrangement of topics, and it is very probable that
directors of existing bureaus and others will aid in working
out such a plan. If the Association sees fit to continue this
committee, we believe that it should be directed to formulate
and report to the Association a legislative manual or code as
above described, if further investigation shows such prepa-
ration to be practical. The committee should also have per-
mission to cooperate in the preparation of the manual with
other public bodies interested.

Your committee believe that the establishment of perma-
nent reference and drafting services and the general use of a
harmonious body of principles relating to the science of leg-
islative drafting will do much to prevent the enactment by

320

THE PROBLEM OF LEGISLATIVE REFERENCE

legislatures of unconstitutional, obscure and otherwise de-
fective legislation. At the same time, your committee realizes
that legislation effective to its purpose can only be normally
produced when legislative procedure tends to insure that all
bills of moment shall be carefully prepared, and, being so
prepared, also insures for them thorough consideration. Eng-
land has apparently evolved a legislative procedure which,
in the great majority of cases, produces this result. This has
been accomplished through the rules of the House of Com-
mons, which practically confine the attention of Parliament to
bills introduced by the Government. Though any member has
the right to introduce a bill on any subject, the rules have
assigned the largest part of the time of Parliament to Govern-
ment Bills. The executive or cabinet is part of the legislature
and primarily responsible for^ the initiation of all important
legislation. Thus Mr. Bryce informs us that: "Four-fifths
of all the bills that are passed, nineteen-twentieths of those
that are of high significance are passed at the instance of the
executive government."

Our conditions are not those of England. The separation
of the legislative from the executive has been too long a part
of our constitutional system to make the consideration of the
adoption of the English system now practical. Our efforts,
therefore, should be devoted to evolving from our own con-
ditions a legislative procedure which will normally produce
what the English procedure produces, namely, the careful
preparation and consideration of all legislative enactments of
importance.

Several plans with this object in view have been suggested,
or are in actual operation, in some one state. Your commit-
tee has given such consideration to these plans as time per-
mitted, though in respect to two only do we feel that we can
express at present even a qualified opinion.

First, it is suggested that the right of the member of the
legislature to introduce bills should be curtailed. Your com-
mittee does not believe that this is practical or, if practical,
desirable. To require the consent of a certain number of
members to the introduction of a measure, which is the form

321

EFFORTS FOR ADMINISTRATIVE REFORM

which the suggestion usually takes, would probably be ineffec-
tive, as out of courtesy the permission could practically al-
ways be obtained from the requisite number. If effective, it
may well be urged that the free right of introducing bills —
even the custom of members introducing bills at the request
of a constituent, though out of sympathy with its provisions
— through the consequent publication and publicity, has often
distinct educational value. The effect of the introduction of
a large number of bills in producing ill considered and inade-
quate legislation is probably exaggerated. In most cases a
considerable portion of the bills introduced deal with matters
of local and special concern, while the great majority even of
bills of general import are not introduced with any idea of
their present consideration by the legislature. If we take from
the statutes passed the local and special acts and the appro-
priation acts, the criticism which can be usually made as to
the residue is not so much its volume, but that much of it
shows, entirely apart from the wisdom of the policy which it
is desired to express, the haste with which the statute was
prepared and the lack of consideration given to the adequacy
of its provisions to effectuate its purpose.

A plan worthy, we believe, of careful consideration is
that recently adopted in California, By constitutional enact-
ment the legislature meets bi-annually on a given Monday in
January next succeeding the election of members, and con-
tinues in session for a period not exceeding thirty days.
Thereupon a recess must be taken for a period of not less
than thirty days, and it is provided that on the reassembling
of the legislature no bill shall be introduced in either house
without the consent of three-quarters of its members. This
constitutional provision was adopted in October, 1911. The
plan, therefore, has only been in operation during the existence
of the present legislature. In the Senate 1717 bills were in-
troduced during the first session, 60 at the second session. In
the House 2021 bills were introduced at the first session, 105
at the second. The information received by your committee
would indicate that there is considerable difference of opinion
among the members of the legislature as to the result of the

322

THE PROBLEM OF LEGISLATIVE REFERENCE

operation of the plan. Where the opinion is favorable, it
seems to be admitted that the experience so far is not con-
clusive.

Another plan designed to create an opportunity for due
consideration of the measures of first importance is that re-
cently put in force in Illinois, where the House, at the present
session, established a rule favoring Administration Bills (made
such by a message of the governor), which, under the rule, go
at once to the Committee of the Whole, and for the consider-
ation of which one day each week is set apart.

In general accord with this last plan, more especially, how-
ever, to the end that the legislature, on its assembling, should
have before it bills of significance carefully prepared, it has
been suggested that constitutional provision should be made
requiring the executive to submit bills dealing with any matter
recommended in his message to the legislature as a proper sub-
ject for legislation, or, at least, that this Association should
specially commend the practice.

Finally, there was presented to the committee the plan em-
bodied in a bill recently introduced into the Illinois legislature.
This bill provides for the establishment of a joint legislative
commission composed of the Governor, Lieutenant-Gover-
nor, Speaker of the House, chairman of the Committees on
Appropriation of the Senate and the House, chairman of the
Committees on Judiciary of the Senate and the House, together
with five other Senators and five other members of the House.
The purpose of the commission in general is to prepare in ad-
vance of legislative sessions a program of legislation with
drafts of bills on subjects investigated by the commission.
To this end the commission is given power to appoint special
committees of its own members or others to study particular
problems and draft bills.

Though your committee does not feel that it is in a position
to express any opinion on the details of this bill, they do be-
lieve that it is worthy of general commendation, as the first
serious attempt to evolve from our existing conditions a leg-
islative procedure which will tend to insure the adequate prepa-
ration and consideration of important legislation. The per-

323

EFFORTS FOR ADMINISTRATIVE REFORM

sonnel of the commission suggested, including as it does the
chief executive and legislative officers, recognizes actual con-
ditions, which make our legislation the joint act of two inde-
pendent bodies, the legislature and the executive.

Your committee is of the opinion that improvement in our
state statutory law would result by reducing the number of
local and special bills, but the investigation that they have
been able to make of this subject leads them to believe that
this result should be accomplished by custom and legislative
action rather than by additional constitutional inhibition. The
committee believes that the method of providing for local and
special legislation should, if the committee is continued, be
given further consideration.

Your committee has not considered what method, if any,
can be devised to insure the proper preparation of acts which
become law through the operation of what is known as the
"initiative" without action by the legislature. Not only the
time at our disposal, but the terms of the resolution appointing
us, have confined our investigations to conditions pertaining
to acts passing a representative assembly before becoming
law. As, however, in several states, acts may now be placed
on the statute book without the action of the legislature, your
committee believes that if the committee is to be continued,
they should be given power and direction to inquire what, if
any, scientific assistance and what, if any, rules of procedure
may be given or adopted which will normally tend to improve
this class of statutory law.

Your committee believes that the Association, in providing
for our appointment and especially in charging us with the
duty of ascertaining whether an efficient agency cannot be de-
vised to provide the state legislatures with scientific and expert
assistance in the framing of legislation, recognized the im-
portance of improving the character of our statutory law, and
the possibility of the Association lending its aid to constructive
work having this end in view. Your committee has come to
the conclusion that such expert assistance can be and should
be provided. They are also of the opinion that the Association
can do no more useful and constructive work than to assist in

324

THE PROBLEM OF LEGISLATIVE REFERENCE

the creation of a harmonious body of principles relating to the
drafting of statutes, and, finally, that the Association may, with
reasonable hope of profitable results, investigate methods of
providing for local and special legislation, and also investigate
the rules of legislative procedure and rules pertaining to the
operation of the initiative, with a view of ascertaining whether
there are any principles or practices the adoption of which will
tend to render our statutory law more in accordance with
constitutional requirements, more consistent with itself, and,
finally, more simple and certain in its form. To carry out
these conclusions your committee has prepared and submits
herewith two resolutions, one commending the establishment of
permanent central agencies in ^ the several states and at Wash-
ington, to furnish expert legislative drafting and reference
service, and the other, continuing the committee and imposing
upon it the duty of preparing a report on the other matters
herein suggested.

Your committee recommends the adoption of the follow-
ing resolutions :

Resolved, That in the opinion of the Association, an official
legislative drafting and reference service, when properly organ-
ized and directed, forms an efficient agency tending to prevent
the enactment of unconstitutional, obscure and otherwise de-
fective statutes and to secure the utmost brevity and simplicity
consistent with accuracy in the language of statutes, and we
hereby recommend the establishment and generous support of
such service at Washington and in those states not now having
such service.

Resolved, That the Committee on Legislative Drafting be
continued, with instructions to prepare for submission to the
Association, if further investigation shows such preparation
to be practical, a legislative manual or code containing a col-
lection of directions or suggestions for drafting laws, and
model clauses for constantly recurring statutory provisions
and problems, and that the committee be further directed to
report what, if any, changes in existing legislative procedure,
or procedure in connection with the operation of the initiative,
will tend to the improvement of our statutory law, and that

325

EFFORTS FOR ADMINISTRATIVE REFORM

for these purposes the committee be authorized to cooperate
with -other organizations or individuals.

Respectfully submitted,

WM. DRAPER LEWIS, Chairman,
ERNST FREUND,
SAMUEL T. UNTERMEYER,
Louis D. BRANDEIS,
THOMAS I. PARKINSON,
HENRY C. HALL.

I concur in recommending the adoption of the resolutions
submitted by the report. F. W. LEHMANN.

326

CHAPTER XIII

AGENCIES FURNISHING LEGISLATIVE REFER-
ENCE AND BILL-DRAFTING SERVICE

The present chapter relates to agencies which furnish both
reference and bill-drafting service.

Alabama: Department of Archives and History. While
in Alabama an agency has existed since February 27, 1901,
for the centralizing of official state records and the organizing
of the historical resources of the state, namely, the Depart-
ment of Archives and History, it was not until March 5,
iQoy,1 that that department was given the additional function
of a legislative reference bureau. This was done by the enact-
ment of the following provision of law :

In addition to the duties now required by law, the depart-
ment of archives and history shall do and perform the fol-
lowing. * * * It shall bring together and arrange for
ready consultation a reference collection of materials for the
use of the members of the legislature, state officers, and others
on all subjects which may, from time to time, be deemed of
public interest and importance to the people of the state.

Previous to the enactment of this law and since the cre-
ation of the Department of Archives and History, February
27, 1901, the department had been active in meeting the ref-
erence and other needs of state legislators, officials and the
general public.

The legislature has not made any provision bearing upon
the organization of this service nor has it made any specific
appropriation therefor since the original act, this service being

1 Alabama, Acts, 1907, No. 255, p. 318.

327

EFFORTS FOR ADMINISTRATIVE REFORM

paid for out of the general appropriations for the depart-
ment.

Although no provision is made for bill drafting, both leg-
islative reference and bill-drafting services were rendered by
the department at a number of regular and special sessions of
the legislature.

PUBLICATIONS

Alabama official and statistical register. 1903 Montgomery, 1903 —
Bulletin No. 1-5. Montgomery, 1904-1911.
Contents.

No. i. The establishment, organization, activities and aspira-
tions of the Department of archives and history of
the state of Alabama. 1904. 48 p.

No. 2. McMorries, E. Y. History of the First regiment, Ala-
bama volunteer infantry, C. S. A. 1904. 142 p.
No. 3. Check list of newspaper and periodical files in the De-
partment of archives and history. 1904.
No. 4. Laws governing the Department of archives and history.

1907. 20 p.

No. 5. Revolutionary soldiers in Alabama. 1911. 131 p.
Legislative bulletin, No. I Montgomery, 1914 —
Contents.

No. i. Preliminary index to the legislative reference collec-
tion of the Department . . . Comp. by Thomas M.
Owen. 1914. 41 p.

Arizona: State Law and Legislative Reference Library.

The legislative reference work in Arizona was begun in 1915,
as the result of an act approved March 24, 191 5, l concerning
the organization of the state library. This act makes provi-
sion for the establishment of a Law and Legislative Reference
Library and the appointment of a legislative reference libra-
rian, prescribing the usual duties for the latter. In addition,
the legislative reference librarian is required, upon request, to
"aid and assist the members of the legislature, the governor,
and the heads of departments by advising as to bills and reso-
lutions and drafting the same into proper form." The libra-
rian is prohibited from opposing or urging legislation. Since
its establishment the Legislative Reference Library has
drafted about fifty per cent of the bills, memorials and reso-
lutions presented in the legislature.

Arizona, Acts, 1915. Ch. 62, p. 132.

328

LEGISLATIVE REFERENCE AND BILL-DRAFTING

PUBLICATIONS

Report of the Arizona state law and legislative reference librarian.

1915-1916 —
Check list of annual reports. 1916-1917. Phoenix, 1917—

Prepared by Con P. Cronin, state law and legislative reference

librarian, 1916-1917 —
Constitution of the state of Arizona [with amendments]. Comp. by

Con. P. Cronin ... and S. P. Osborn]. 1917. 63 p.

California: Legislative Counsel Bureau. The Legislative
Counsel Bureau of California was originally created by an
act approved May 26, 191 3,1 which act was amended by the
act of May 31, 1917. 2 As amended, the law provides for
a Legislative Counsel Bureau, which shall be in charge of
a chief, to be known as the legislative counsel of California.
The duty of the legislative counsel as prescribed by law is:
"To prepare and assist in the preparation, amendment and
consideration of legislative bills when requested or upon sug-
gestion as herein provided. Upon request he shall advise any
state officer, commissioner or bureau as to the preparation of
bills to be submitted to the legislature; and when requested so
to do, he shall advise as to their work with any legislative com-
mittee appointed to carry on investigations between sessions
of the legislature. He shall advise the legislature from time
to time as to needed revision of the statutes."

Whenever there is a probability that an initiative measure
will be submitted to the voters of the state and when requested
in writing by twenty-five or more electors proposing it, it is
his duty to cooperate with the proponents in its preparation.

The legislative counsel is also required to prepare or assist
in the preparation or amendment of legislative bills at the sug-
gestion of the Governor or of any judge of the Supreme Court
or of the District Courts of Appeal or of the Superior Court
of the State, or of any committee of the Senate or Assem-
bly of the legislature of the state. During legislative ses-
sions the bureau is required to "give such consideration to and
service concerning any bill before the legislature, as circum-
stances will permit" on the request of the Governor or either

1 California, Acts, 1913, Ch. 322, p. 626.
"California, Acts, 1917, Ch. 727, p. 1398.

329

EFFORTS FOR ADMINISTRATIVE REFORM

house of the legislature or any committee having such bills
before it for consideration. After adjournment the bureau is
required to assist the Governor, on his request, in disposing
of any bills in his hands for rejection or approval or other
action.

The act provides that neither the legislative counsel nor
any employee of the bureau shall oppose or urge legislation;
but the bureau, when requested, must aid and assist any mem-
ber of the legislature, so far as it may be in its power, in
the preparation of bills, resolutions and measures, drafting the
same into proper form and furnishing the fullest information
upon all matters in the scope of the bureau.

The legislative counsel is required to be in attendance upon
all sessions of the legislature. He is appointed by the Gover-
nor and he appoints all the employees of the bureau.

The state also maintains, as a part of the state library, a
legislative reference service. This service is organized entirely
independently of the legislative counsel's office and will be
treated in the chapter dealing with reference services.1

PUBLICATIONS

General election laws, supplement of 1916. Comp. by the Legislative
counsel bureau. [Sacramento] California state printing office,
1916. 62 p.

Laws of California relative to production and standard of dairy prod-
ucts. State dairy bureau . . . Prepared by Legislative counsel
bureau. 1917. 51 p.

Provisions of the constitution and statutes of California governing
the submission of measures to the whole people by the initiative
and referendum. Comp. by the Legislative counsel bureau. [Sac-
ramento] California state printing office. 1916. 12 p.

Constitution of the state of California and summary of amendments
. . . Prepared by the Legislative counsel bureau. 1917. 376 p.

Illinois: Legislative Reference Bureau. The Illinois Legis-
lative Reference Bureau is governed by a special commission
consisting of the Governor, and the chairmen of the commit-
tees on appropriation of the Senate and of the House of Rep-
resentatives, provided for by an act approved June 26, 19 13*
This commission, or bureau, appoints a secretary who is re-

1 See p. 357.

2 Illinois, Acts, 1913, p. 391.

330

LEGISLATIVE REFERENCE AND BILL-DRAFTING

quired to devote his entire time to the duties of his office.
Provision is also made, in the act creating the bureau, for the
appointment by the bureau of such other agents and employees
as may be necessary.

The bureau is required to collect and make available the
usual legislative reference materials; to prepare a budget of
state appropriations; and "to afford to any member of the
General Assembly upon his request, such legal assistance and
information as may be practicable in the preparation of bills,
memorials, resolutions, orders and amendments, alterations,
changes thereto, and revisions and substitutes thereof, pro-
posed to be introduced into the General Assembly by said
member." This bureau has made the first attempts in the state
along the lines of scientific budget making. It issues a weekly
Legislative Digest.

PUBLICATIONS

Digest of legislation enacted and proposed, 48th General assembly.
[Springfield, 111., The E. F. Hartmann co., 1913] 112 p.
Continued by Legislative digest [for succeeding sessions of
the General Assembly].

Detailed budget of the appropriations requested for the biennium
1915-1916 filed with the Legislative reference bureau, state of
Illinois. Springfield, 111., Jeffersons printing company [1914].
vii, 236 numb. I .
1917-18. 1917.

Illinois party platforms, 1914, with select bibliographies of available
material on file in the Legislative reference bureau, relating to
the subjects enumerated therein. [Springfield, 111., Schnepp &
Barnes, state printers, 1914] 43 p.

Workmen's compensation act and rules of procedure. Issued by the
Industrial board of the state of Illinois . . . Prepared by the
Legislative reference bureau. [Springfield, 111., Schnepp &
Barnes, state printers, 1914] 51 p.

Budget classification and rules of procedure for the officers of the
several state departments for filing estimates of the appropria-
tion which their departments may require for the fiscal period
1917-18. [Springfield, Schnepp & Barnes, state printers, 1916]
23 p. incl. forms.

Lawmaking, an outline of the successive steps in the preparation and
enactment of laws with notes and citations, by Joseph James
Thompson. [Springfield, Schnepp & Barnes, state printers, 1916]
36 P-

The Legislative reference bureau, its work and functions. Legisla-
tive reference bureau, Springfield, Illinois . . . [Springfield,
Schnepp & Barnes, state printers, 1916] 8 p. |

331

EFFORTS FOR ADMINISTRATIVE REFORM

"Compilations of the Illinois legislative reference bureau," p. 5-7.
Cost of state government. Comp. by Finley F. Bell, secretary. 1916.
46 numb. i. incl. tables.

ARTICLES

Bell, Finley F. A legislative aid: the work and functions of the
Legislative reference bureau of Illinois. Case and comment,
Jan., 1917, v. 23: 625-29.

Indiana: Legislative and Statistical Bureau. A legislative
reference department was created in the state library of In-
diana as the result of an act approved on March 9, 1907. l In
1913 this department was made a separate bureau by an act
approved March 14, 1913, 2 the bureau being under the direc-
tion of a board consisting of the Governor, the state librarian,
the presidents of the two state universities and one additional
member appointed by the Governor. This act also enlarged
the functions of this service to include both legislative refer-
ence and bill-drafting work. In 1917, however, a provision
was inserted in the annual appropriation act abolishing this
bureau. At the same time, by another act, this department
was authorized to prepare the Year Book. The Governor has
continued the bureau, paying for it out of an emergency fund.

PUBLICATIONS

Bulletin [of the Legislative reference department of the State library]

No. 1-6. Indianapolis, 1908-1912.
Contents.

No. i. Local option by election. 1908. 2 p.

No. 2. Index to governors' messages, 1816-1851. 1908. 13 p.

No. 3. Guarantee of bank deposits, 1908. 12 p.

No. 4. Hints on bill drafting by J. A. Lapp. 1910. 9 p.

No. 5. Digest of the laws of Indiana of special application to

women and children. 1912. 27 p.
No. 6. Inheritance taxation, 1912. 9 p.

Bulletin [of the Bureau of legislative information.] No. i — Indian-
apolis, I9i3-date.
Contents.

No. i. Constitution of the United States and of Indiana, 1913.

52 P-

No. 2. Drainage and reclamation of swamp and overflowed
lands, by Charles Kettleborough, 1914. 68 p.

1 Indiana, Acts, 1907, Ch. 147, p. 236.
''Indiana, Acts, 1913, Ch. 255, p. 694.

332

LEGISLATIVE REFERENCE AND BILL-DRAFTING

No. 3. Legislative bill drafting, 1914. 36 p.

No. 4. Flood protection in Indiana, by W. K. Hatt, 1914. 51 p.

No. 5. Forms of city government, by Frank G. Bates, 1916.

25 P-

No. 6. The budget, by W. T. Donaldson, 1916. 30 p.
No. 7. Control and supervision of state institutions, 1916. 40 p.
No. 8. City planning, by Frank G. Bates, 1916. 31 p.
No. 9. The trend of legislation for public health, by Arthur

Connors, 1916. 38 p.
No. 10. Control of corporate finance, by Louie J. Oberreich,

1917. 66 p.

Kansas : State Library : Legislative Reference Department.

The Legislative Reference Department of the State Library
maintains both a legislative reference and a bill-drafting serv-
ice. It has classified and arranged the economic and legisla-
tive matter in the state library, for the use of members of
the legislature, state officers and other citizens interested in
state legislation. It offers trained legal assistance concern-
ing new proposed legislation, and, when desired, places it in
the proper technical bill form for introduction.

PUBLICATIONS

Bulletin No. I — Jan., 1914 — Topeka, 1914-date.
Contents.

No. i. Legislative systems. Part i. The unicameral system.
Part 2. The bicameral system. Part 3. Bibliography
. . . Topeka, 1914. 144 p.

Maryland : Department of Legislative Reference. The De-
partment of Legislative Reference is both a state service for
Maryland and a municipal service for the city of Baltimore.
By an act approved April 9, 1906, * it was originally created
as a municipal department of the city administration of Bal-
timore. From the beginning, however, it has rendered serv-
ices to the state legislators, and on April 18, 1916 2 an act
was approved imposing on its executive officer the additional
duty of investigating and reporting upon the laws of Maryland
and other states "any subject upon which he may be requested
so to report by the Governor of Maryland, any committee or
member of the General Assembly, or the head of any State

1 Maryland, Acts, 1906, Ch. 565.

a Maryland, Acts, 1916, Ch. 474, p. 953.

333

EFFORTS FOR ADMINISTRATIVE REFORM

department;" of accumulating "all data obtainable in relation
to the practical operation and effect of such laws;" of inves-
tigating and collecting "all available information relating to
any matter which is the subject of proposed legislation by the
General Assembly ;" and of preparing or aiding in the prepara-
tion of "any bill or resolution when requested so to do by
any member of the General Assembly." The bureau main-
tains a branch office at Annapolis, the state capital, during
the sessions of the legislature, the permanent main office be-
ing in Baltimore.

PUBLICATIONS

Annual report, ist-ioth, 1907-1916.

Round table, February 26, 1907. 43 p.

Remarks of Theodore Marburg, Horace E. Flack, Ira Remsen,
Westel W. Willoughby and Jacob H. Hollander, on the new
Department of legislative reference.

Legislative expenditures. Legislative apportionment. Baltimore, Md.
1909. 8 p. incl. tables.

Synopsis of laws enacted by the state of Maryland, legislative ses-
sion, 1916. Comp. by Horace E. Flack, Department of legisla-
tive reference, Baltimore, Md. 1916. 56 p.

Synopsis of laws enacted by the state of Maryland, legislative ses-
sion, 1918. Comp. by Horace E. Flack, Department of legisla-
tive reference, Baltimore, Md. 1918. 56 p.

The Maryland budget amendment. [Feb. 5, 1917] Baltimore [1917]
56 p.

ARTICLES

Flack, Horace E. The Department of legislative reference in Balti-
more, Md. Municipal engineering, Sept., 1908, v. 35: 156-62.

Michigan: State Library: Legislative Reference Depart-
ment. The original act of June 28, 1907^ creating the Legis-
lative Reference Department of the Michigan State Library,
made no provision for a bill-drafting service. Such a pro-
vision, however, was inserted in the act of April 25, 1917 2
which amends the earlier act. As amended, the law pro-
vides that there is created in connection with the state li-
brary "a department known as the legislative reference and
information department for the use and information espe-
cially of members of the Senate and House of Representa-

1 Michigan, Acts, 1907. No. 306, p. 405.
a Michigan, Acts, 1917. No. 120, p. 196.

334

LEGISLATIVE REFERENCE AND BILL-DRAFTING

tives, the several state departments and such other persons
as may desire to consult the same." It further provides that
the state librarian shall, appoint an assistant who shall "make
available for ready reference and use, suitable indexes to all
such information as is contained in the various public docu-
ments of this state and other states, including Senate and
House documents and legislative journals, and shall keep a
complete file of all bills printed by order of either house of
the Legislature. He shall procure and compile in suitable
and convenient form for ready reference and access, informa-
tion as to proposed and pending legislation in other states, and
shall also investigate the operation and effect of new legisla-
tion in other states and countries. ... He shall also give
such advice and assistance to the members of the Legislature
as they may require in the preparation of bills and resolutions,
and shall draft bills upon such subjects as they may require."

PUBLICATIONS

Bulletin No. i— Sept., i9O7-date(?)
Contents.

No. i. Constitution of the state of Michigan, 1850. Sept, 1907.

78 p.

No. 2. First state constitution, 1835. Proposed constitution
of 1867. Proposed constitution of 1873. Sept., 1907.
69 p.

No. 3. Local, special and private legislation, municipal charters,
gubernatorial veto, initiative and referendum as pro-
vided for and regulated by the constitutions of the
several states. Sept., 1907. 24 p.

No. 4. Legislative reference list. Employers' liability and work-
men's compensation. Feb., 1911. 17 p.
No. 5. Laws of the various states relating to a minimum wage

for women and minors. Nov., 1913. 37 p.

Documents compiled for the Committee on printing of the Consti-
tutional convention of 1907. 22 v.

Pamphlets with caption titles containing constitutional provisions
of other states, on various topics, compared with those of Mich-
igan.
Contents.

[No. i] Amendment and revisions. 30 p.

[No. 2] Boundaries, seat of government and departments.

22 p.

"No. 3] Bribery and corruption. 16 p.
^No. 4] Education and public schools. 80 p.
No. 5] Elections. 70 p.
No. 6] Eminent domain. 13 p.

335

EFFORTS FOR ADMINISTRATIVE REFORM

No. 7
No. 8
No. 9
No. 10
No. ii
No. 12
No. 13"
No. 14
No. 15
No. 16
No. 17'
No. i8_
No. 19"
No. 20
No. 21

No. 22

Executive department. 103 p.

Exemptions [from taxation], 13 p.

Finance and taxation. 81 p.

Impeachment and removal from office. 31 p.

Judicial department. 252 p.

Legislative department. 284 p.

Miscellaneous provisions and addenda. 60 p.

Labor interests. 10 p.

Liquor traffic. 5 p.

Military affairs. 28 p.

Municipal corporations. 119 p.

Preambles and bills of rights. 37 p.

Private corporations. 114 p.

Public lands and forest protection. 16 p.

Rights of women. 4 p.

State officers; salaries; state boards and institutions.

101 p.

Laws of the various states relating to vagrancy (with bibliography),
June, 1910. 29 p.

Mortgage taxation and commission government; reprinted articles
by M. A. Schaffner for the Grand Rapids (Mich.) Evening press.
1908. 18 p.

The history of railroad taxation in Michigan ... by Wilbur O.
Hedrick . . . 1912. 70 p.

Laws of the various states relating to presidential primaries. Feb-
ruary, 1912. 25 p.

Digest of the laws of the various states relating to motor vehicles.
1914. 8 p.

Local legislation. Opinion of Attorney-general Grant Fellows upon
what constitutes a local or special act under the Michigan con-
stitution . . . Jan. 25, 1915. 2 p.

Laws of Michigan relating to women. Comp. by Charles W. Brad-
rick. 1916. 105 p.

Laws of the various states relating to vagrancy. Prepared by Olive
C. Lathrop. Rev. ed. Lansing, Mich., State printer, 1916. 61 p.
"Supplementary list of selected references on vagrancy and juve-
nile delinquency," p. 59-61.

Legislative circular, No. 1-2 [Lansing, 19- to 1915].

Missouri : Library Commission : Legislative Reference De-
partment. No specific provision of law has ever been made in
Missouri for the creation of a legislative reference or a bill-
drafting service. An act approved April 7, 1909, * provided
for the establishment of a library of the General Assembly
to be located at the Capitol under the control of the House
or Senate during sessions of the General Assembly and under
the charge of the secretary of the Missouri Library Commis-
sion at other times. No special appropriation has been made

1 Missouri, Acts, 1909, p. 653.

336

LEGISLATIVE REFERENCE AND BILL-DRAFTING

for this service. The library is for the exclusive use of the
members of the General Assembly. Bill drafting was done to
a limited extent in the legislative session of 1917.

PUBLICATIONS

Classified index of bills prepared for 47th General Assembly, Mis-
souri. March 17, 1913. 34 p.

Digest of the laws of other states on prison labor, bearing on House
bill 543, 49th General assembly of Missouri, 1917. Jan., 1917.
17 p.

Montana : State Library : Historical and Miscellaneous De-
partment: Legislative Reference Bureau. In Montana, the
Legislative Reference Bureau is a section of the Historical
and Miscellaneous Department of the State Library. It was
organized in 1909 in accordance with an act approved March
4, I9O9.1 The object of the bureau as specified in the act
is "to gather and make available, such information as shall
aid the members of the Legislature in the discharge of their
duties, and to render assistance in the drafting of bills." The
act makes the usual provision for the collection of the legis-
lative reference material.

Nebraska : Legislative Reference Bureau. The first mention
of legislative reference work in Nebraska is made in an ap-
propriation act approved April 10, 1907,2 which had the fol-
lowing item in the appropriation for the State Historical So-
ciety : "For labor and supplies in legislative reference depart-
ment." In 1909 this appropriation was repeated, but no other
mention was made, in either year, of a legislative reference
service. An act specifically creating a Legislative Reference
Bureau was approved April 7, 191 1,3 which provided that
the bureau shall "gather, arrange, catalogue, compile, edit,
index, and publish information upon subjects of legislation
and administration;" that it shall "maintain a compact library
of books, pamphlets, maps, clippings, and other material use-
ful for its purposes;" that it shall "prepare check lists and
catalogues of Nebraska legislative bills, and public docu-

1 Montana, Acts, 1909, Ch. 65, p. 79.

2 Nebraska, Acts, 1907, Ch. 198, p. 552.
"Nebraska, Acts, 1911, Ch. 72, p. 310.

337

EFFORTS FOR ADMINISTRATIVE REFORM

ments ;" that it shall "carry on research in other subjects of
special public interest and publish the same in convenient
form;" and that it shall "maintain a special service upon
municipal subjects for use of city and village officials." The
bureau is affiliated with the Department of Political Science
and Sociology and with the College of Law of the University
of Nebraska. The act provides that the director and his as-
sistant, who are appointed by the board of regents of the State
University, "shall neither oppose nor urge legislation, but
may, upon request, aid and assist members of the legislature
and the executive departments as to bills, resolutions and
measures, drafting the same into proper form and furnish-
ing to them the fullest information upon matters in the scope
of the bureau."

PUBLICATIONS

Bulletin No. I — Lincoln, 1912 —
Contents.

No. I. Nebraska legislative reference bureau. 1912 (folder).

No. 2. Preliminary report, Nebraska Employer's liability and
workmen's compensation commission. 1912. 48 p.

No. 3. Legislative procedure in the forty-eight states, by A. E.
Sheldon and Myrtle Keegan. 1914.

No. 4. Reform of legislative procedure and budget in Ne-
braska. A report by Joint committee of Senate and
House. 1914. 47 p.

No. 5. Nebraska municipalities, by A. E. Sheldon and W. E.
Hannan, 1914. 74 p.

No. 6. Bank deposit guaranty in Nebraska, by Z. C. Dickin-
son [I9M?] 38 p.

No. 7. The direct primary in Nebraska, by N. H. Debel.
1914. 112 p.

No. 8. Local and Nebraska history in Nebraska public schools,
by C. N. Anderson. 1915. 15 p.

No. 9. State supported library activities in the United States,
by Edna B. Bullock. 1915. 71 p.

No. 10. The Torrens land transfer act of Nebraska, by Thorne
A. Browne. 1916. 60 p.

No. ii. Legislative procedure, by M. K. Mason. Revision of
Bulletin No. 3.

No. 12. The exercise of the veto power in Nebraska, by K. E.

Carlson. 1917. 104 p.
Manual of Nebraska legislative procedure. Senate rules. House

rules. Joint rules. Legislative history. Comp. by C. A. Soren-

sen and Myrtle Keegan. Addison E. Sheldon, editor. [Lincoln?]

Nebraska Legislative reference bureau, 1917. 124 p.

"Act establishing the Nebraska legislative reference bureau,"
p. 112-4.

338

LEGISLATIVE REFERENCE AND BILL-DRAFTING

Subject index of Senate and House bills and list of bills introduced
by each member. Also members of Senate and House, their
addresses and telephones, Senate and House committees, sched-
ules of committee meetings. Comp. by Edna D. Bullock. Pre-
pared and pub. by the Nebraska Legislative reference bureau,
with the cooperation of the secretary of the Senate and chief
clerk of the House. [Lincoln? 1915] 126 p.
At head of title: Nebraska Legislature. Thirty-fourth session,

1915. 4th ed.

Subject index of Senate and House bills with other legislative in-
formation. Final ed., April i, 1917. Comp. by Edna D. Bullock.
Pub. by the Nebraska Legislative reference bureau. Lincoln,
Neb. [1917]. 120 p.
At head of title: Nebraska Legislature. Thirty-fifth session,

1917.

New Hampshire: State Library: Legislative Reference
Bureau. The Legislative Reference Bureau in the State
Library of New Hampshire was created by an act approved
May 21, I9I3,1 which provided for the establishment of a
legislative reference bureau under the direction of the state
librarian, whose duties in addition to the usual legislative ref-
erence requirements are to prepare abstracts of laws in other
states and countries, to supply such other information as
may be of service to the members of the legislature, or the
executive departments in the performance of their duties, and
to furnish to members of the legislature such assistance as
may be demanded in the preparation and formulation of leg-
islative bills. An amendment relating to state and other pub-
lic libraries, enacted March 7, 19 1/,2 provides that "the trus-
tees shall establish within the state library such catalogues and
collections as in their judgment will make it most serviceable
in matters of legislation."

North Carolina: Historical Commission: Legislative Ref-
erence Department. The Legislative Reference Service is a
department of the North Carolina Historical Commission cre-
ated by an act approved March 9, IQI5.3 This act author-
izes and requires the commission "to appoint a properly quali-
fied person to be known as a Legislative Reference Librarian,

1 New Hampshire, Acts, 1913, Ch. 206, p. 761.

a New Hampshire, Acts, 1917, Ch. 59, Sec. 18, p. 511.

"North Carolina, Acts, 1915, Ch. 262, p. 277.

339

EFFORTS FOR ADMINISTRATIVE REFORM

whose duty it shall be to collect, tabulate, annotate, and di-
gest information for the use of the members and committees
of the General Assembly, and other officials of the state, and
of the various counties and cities included therein, upon all
questions of state, county and municipal legislation." Other
duties incident to a legislative reference service are also pre-
scribed. In addition, the legislative reference librarian is re-
quired to keep the Revisal of 1905 revised to date.

While there is no specific provision in the laws requiring
the Historical Commission or the legislative reference libra-
rian to perform bill-drafting service, the Legislative Reference
Department, at the only session of the legislature that has
taken place since the department's creation, drew up about
500 bills for members of the General Assembly, besides fur-
nishing data and information relating to as many more.

PUBLICATIONS

Bulletin No. I — Raleigh, 1915 —

Bulletin No. I. Amendments to revisal of 1905 enacted by the Gen-
eral assembly of North Carolina. 1907-1915. Comp. by W. S.
Wilson, legislative reference librarian. (Publications of the
North Carolina Historical commission. Legislative reference
dept.)

First biennial report of the legislative reference librarian 1915-1916.
Reprinted from the sixth biennial report of the North Carolina
Historical commission, 1915-1916.

North Dakota: Public Library Commission: Legislative
Reference Bureau. Both legislative reference and bill-draft-
ing services are rendered by the Legislative Reference Bureau
of North Dakota. This JDureau is one of the departments
of the Public Library Commission. It was created in accord-
ance with an act approved March 2, 1907,* which was
amended by an act approved March 3, 1909^ to read as fol-
lows:

The State Library Commission shall have power and it
shall be its duty to establish a legislative reference bureau for
the information and assistance of the members of the legis-
lative assembly in the work of legislation. The legislation of

1 North Dakota, Acts, 1907, Ch. 243, p. 382.

2 North Dakota, Acts, 1909, Ch. 156, p. 191.

340

LEGISLATIVE REFERENCE AND BILL-DRAFTING

other states and information upon legal and economic ques-
tions shall be classified and catalogued in such a way as to
render the same easy of access to members, thereby enabling
them better to prepare their work. It shall be the duty of the
legislative librarian to assist in every way possible the members
of the legislative assembly in obtaining information and in
the preparation of bills.

The legislative reference librarian collects information on
subjects that are likely to come up for consideration when the
legislature convenes. This information consists of pamphlets
prepared by students of and specialists in each subject; of re-
ports of commissions, of investigating committees, bureaus
and other bodies that have conducted inquiries in specialized
fields; of reports of departments of state and municipal gov-
ernments that have had charge of the enforcement and ad-
ministration of laws dealing with specified subjects; and of
discussions from current newspapers. This material is clas-
sified and condensed for use by the legislator.

Much of the time of the legislative reference librarian is
also given to bill drafting.

PUBLICATIONS

Bulletin No. i. — Bismarck, N. D., 1910 —
Contents.

No. i. Permanent state tax commissions, a comparative digest

of state legislation ; comp. by S. Johnson. 1910. 96 p.

No. 2. Good roads: an outline of state road systems; comp. by

S. Johnson. 1910. 96 p.

No. 3. Budgetary laws; comp. by I. A. Acker. 1912. 20 p.
No. 4. Widows' pension laws; comp. by I. A. Acker. 1914.
29 p.

Ohio : State Board of Library Commissioners : Legislative
Reference Department. The Legislative Reference Depart-
ment of Ohio was organized in 1910 as a part of the state
library, in accordance with an act approved May 13, iQio.1
The act of January 31, I9I3,2 amending the original act,
made it a separate department with a director in charge, but
under the direction and supervision of the State Board of Li-

1 Ohio, Acts, 1910. No. 384, p. 221.
'Ohio, Acts, 1913. No. 173, p. 8.

341

EFFORTS FOR ADMINISTRATIVE REFORM

brary Commissioners. The director is appointed by this
board and is required to be an expert in political science, eco-
nomics and public law. His duty is "to collect and compare
the laws of this and other states pertaining to any subject
upon which he may be requested to report by the governor
or any committee or member of the general assembly ; to col-
lect all available information relating to any matter which
shall be the subject of proposed legislation of the general as-
sembly; to prepare or advise in the preparation of any bill
or resolution when requested to do so by the governor or by
any member of the general assembly; to preserve and collate
all information obtained ... ; to collect such books, pam-
phlets, periodicals, documents and other literature as may be
of use to the general assembly or other state officials." He
is also required to keep a file, with index, of documents and
reports of all of the states, bills and resolutions, etc. He is
authorized to employ the necessary clerks and draftsmen.

PUBLICATIONS

Ohio canals, by C. B. Galbreath. 1911.

Initiative and referendum by C. B. Galbreath. 1911. 79 p.

Nomination and election of United States senators, by C. B. Gal-
breath. 1911. 15 p.

Ohio constitutional conventions, by C. B. Galbreath. 1911.

Public service commission laws; a comparison of the laws of New
York, Wisconsin, Massachusetts, New Jersey and Maryland, by
John A. Lapp. 1911. 18 p.

Record of bills and resolutions introduced in the 79th General as-
sembly of Ohio. 1911.

Regulation of public utilities; a comparison of the New York and the
Wisconsin public utilities bills. 1911. 36 p.

Workmen's compensation or insurance against loss of wages arising
out of industrial accidents, by J. H. Boyd. 1911. 49 p.

Organic law of Ohio and proposed amendments. 1913.

Compulsory voting and absent voting, with bibliographies by W. T.
Donaldson. 1914.

Civil service laws of Ohio. Comp. by Legislative reference depart-
ment. Published by direction of Board of library commissioners.
1915. 70 p.

Report of the Committee for an investigation of finances of munici-
palities. Bulletin of the Ohio Legislative reference department.
Feb. 3, 1915. 41 p. incl. tables.

Road laws of Ohio, comp. by Legislative reference department.
Published by direction of Board of library commissioners of
Ohio. 1915. xxxix, 335 p.

Laws of Ohio relative to legal advertising. 1916.

342

LEGISLATIVE REFERENCE AND BILL-DRAFTING

Finances of Ohio cities, debt and taxation. Bulletin of the Ohio Legis-
lative reference department. Columbus, 1917. 81 p. incl. tables.

Pennsylvania: Legislative Reference Bureau. The Leg-
islative Reference Bureau of Pennsylvania, as at present con-
stituted, was authorized by an act of April 27, 1909, 1 as
amended by the acts of April 21, 191 1,2 and May 14, IQIS-3
The bureau was established primarily for the use and informa-
tion of the members of the General Assembly, the heads of
the several departments of the state government, and such
other citizens of the commonwealth as may desire to consult
the same.

Under the act creating the bureau it becomes the duty of
the director and his assistants, -upon request, to aid and assist
the members of the General Assembly, the Governor, and the
heads of the departments by advising as to bills and resolu-
tions, and also to draft the same into proper form for pres-
entation to the legislature. The bureau is also required to
furnish to the members of the General Assembly, the Gov-
ernor and the heads of the departments, full information upon
all matters of public interest. It may neither urge nor op-
pose legislation nor suggest any bills for introduction. The
purpose and aim of the bureau in the drafting of bills is to
pay particular attention to the form, to make them readable
and easily understood, to look into their constitutionality, both
as to form and substance and their effect upon existing leg-
islation. The bureau keeps a file and index of the bills in-
troduced at each session.

The bureau prepares from time to time and publishes bul-
letins, pamphlets and circulars containing information col-
lected by the bureau and such compilations of the laws of the
state and of other states as are deemed of service to the state
government.

An act approved May 20, 1913,* directed the bureau to
examine the entire statute law of the commonwealth and to
ascertain what laws and parts of laws have been repealed or

1 Pennsylvania, Acts, 1909, p. 208.

^Pennsylvania, Acts, 1911, p. 76.

3 Pennsylvania, Acts, 1915, p. 474.

4 Pennsylvania, Acts, 1913, p. 250.

343

EFFORTS FOR ADMINISTRATIVE REFORM

which have become obsolete; and to prepare, for adoption or
rejection by the General Assembly, compilations, by topics,
of the existing general statutes. Subsequent acts approved
May 14, 1915 [Public Laws, 194] and May 3, 1917 [Public
Laws, 87] authorized the bureau to continue this work.

PUBLICATIONS

Bill drafting, by James McKirdy, assistant director. Harrisburg.

1912. 22 p.

"A paper read at the annual meeting of the National association
of state libraries, held at Ottawa, June, 1912," p. 5.

"List of works," p. 17-23.
Constitution of Pennsylvania, analytically indexed, and with index

of prohibited legislation. 1912. 118 p.
Liquor laws of Pennsylvania. Comp. by James McKirdy, assistant

director. Harrisburg, C. E. Aughinbaugh, printer to the state,

1912. i p. 1., 46 p.

Comprises only the general laws relating to the sale of liquors.
Special legislation in Pennsylvania, by James McKirdy, assistant

director. Harrisburg, C. E. Aughinbaugh, printer to the state

of Pennsylvania, 1912. 12 p.

Preliminary draft of a bill codifying the existing general laws re-
lating to boroughs. 1914. 286 p.

- Revised draft. 1915. 288 p.

Preliminary draft of a bill codifying the existing general laws relat-
ing to corporations. 1914. 382 p.

- Revised draft. 1914. 380 p.

Preliminary draft of a bill consolidating the existing general laws
relating to boroughs. 1914. 242 p.

Preliminary draft of a bill consolidating the existing general laws
relating to taxation. 1914. 252 p.

Report on the codification of the statutes. John N. Moore, director.
Harrisburg, W. S. Ray, state printer, 1915. 12 p.

A compilation of the laws relating to the Board of public charities,
with important provisions of the laws relating to the several
state institutions and the rules and regulations of the Committee
on lunacy, indexed. Prepared by John H. Fertig, esq., and
Frank M. Hunter, esq., under the direction of James N. Moore,
director. 1916. 260 p.

A compilation of the laws relating to juvenile courts and dependent,
neglected, incorrigible and delinquent children. Prepared by
John H. Fertig and S. Edward Hannestad, under the direction
of James N. Moore, director. Harrisburg, Pa., W. S. Ray, state
printer, 1916. 112 p.

Compilation of the general laws relating to townships. Legislative
reference bureau. Prepared by John H. Fertig, esq., and Frank
M. Hunter, esq., under the direction of James N. Moore, director.
Harrisburg, Pa., W. S. Ray, state printer, 1916. 322 p.

Constitutions of Pennsylvania. Constitution of the United States,
analytically indexed and with index of legislation prohibited in

344

LEGISLATIVE REFERENCE AND BILL-DRAFTING

Pennsylvania. Prepared by John H. Fertig, esq., and Frank M.
Hunter, esq,, under the direction of James N. Moore, director.
Harrisburg, Pa., W. S. Ray, state printer, 1916. 302 p.

ARTICLE

Watts, I. A. Work in the Pennsylvania legislative reference bureau.
Law library journal, Jan., 1917, v. 9: 139-46.

Rhode Island: State Library: Legislative Reference
Bureau. This bureau is a branch of the Rhode Island State
Library. It has its origin in an act approved April 23, iQO/,1
which was amended by an act of April 30, igoS.2 As
amended, the law provides that "there shall be in the state li-
brary, under the direction of the state librarian, a legislative
reference bureau, which shall collect, arrange, and place on
file, books, pamphlets, and other material relating to legis-
lation, which shall prepare abstracts of laws in other states,
and which shall present such other information as may be
useful and necessary to the general assembly in the perform-
ance of its legislative duties."

The state library is operated primarily as a legislative
library while the legislature is in session. There have been
segregated from the main collection, for quick reference, the
important books and pamphlets bearing on legislative ques-
tions and to these have been added other legislative refer-
ence material, all classified and indexed according to approved
legislative reference bureau methods. The appropriations of
the bureau have been increased from time to time to meet
the needs of the service.

No provision has been made for the employment of drafts-
men either under the legislature or under the legislative ref-
erence department of the state library. The state librarian
and his assistants, however, render in an unofficial way, such
assistance as they can in preparing bills for introduction.
While there has never been authority granted for this pur-
pose, the burden of this work has been placed upon the state
library. During 1917, the library prepared for the legis-
lature 547 acts, resolutions, petitions and memorials.

1 Rhode Island, Acts, 1907, No. 1471, p. 93.
a Rhode Island, Acts, 1908, No. 1554, p. 128.

345

EFFORTS FOR ADMINISTRATIVE REFORM

PUBLICATIONS

Legislative reference bulletin [No. i] — Providence, 1907 —
Contents.

No. i. The veto power in the several states. Comp. and an-
notated by Arthur C. Wyman and Grace M. Sher-
wood. 1907. 57 p.

No. 2. Automobile laws of the New England states, New York,
New Jersey, and Pennsylvania. Comp. by Arthur C.
Wyman. 1908. 106 p.

No. 3. Summary of the general banking laws of the commer-
cial states. Comp. by Grace M. Sherwood. 1908. 334 p.

No. 4. Officers, boards and commissions of Rhode Island.
Comp. by Henry E. Fowler and Grace M. Sherwood.
1911. 67 p.

No. 5. Employer's liability and workmen's compensation. By
Edward A. Adams and William E. Sprackling. 1912.
69 p.

No. 6. General constitutional and statutory provisions relative
to suffrage. Comp. by Lowell Kendrick and Harold
P. Salisbury. 1912. 99 p.

No. 7. State commissions on economy and efficiency. Comp. by
Chester C. Waters. 1915. 15 p.

No. 8. Exercise of sanitary police powers in Rhode Island.

By Lester Burrell Shippee. 1916. 36 p.
Circular No. i. Rhode Island towns and cities. Expenditures for

highways and bridges, 1898-1909. 1911. 6 p.

South Dakota: State Library: Division of Legislative
Reference. The Legislative Reference Division of the South
Dakota State Library was created by an act approved Feb-
ruary 1 8, 1 907.* The state library with all its divisions,
was placed under the supervision of the Free Library Com-
mission by an act of February 19, I9I3,2 creating that com-
mission. The act of 1907 directs the state librarian "to es-
tablish a division of legislative reference, in which he shall
provide the reports of the various officers and boards of this
state and as far as may be of other states, and such other ma-
terial upon economic and sociological subjects as he may be
able to provide, and shall index and classify the same and
make the information therein available for the use of the
state legislature, and shall, as required, provide for the use
of members of the legislature, such information and assist in
drafting bills and in every reasonable way make the division

1 South Dakota, Acts, 1907, Ch. 185, p. 395.
* South Dakota, Acts, 1913, Ch. 217, p. 300.

346

LEGISLATIVE REFERENCE AND BILL-DRAFTING

useful in the preparation of legislation." A librarian has been
actively in charge of this work since the enactment of this
law. He shelves all the documentary material from other
states of the Union, and adds such reference material as can
be obtained without purchase. Between legislative sessions
the librarian compiles digests on subjects of interest to legis-
lators concerning laws of other states; secures material from
other legislative reference agencies; and makes indexes of
bills introduced and of other material.

The library drafts about one-half of the bills that are in-
troduced into each session of the legislature.

PUBLICATIONS

Bulletin No. i. Digest of governors' messages of [South Dakota]
ed. by Thomas Askin, 1910? 74, 6 p.

Bulletin No. 2. Parallel references, the Constitution — the constitu-
tional debates, with digest to supreme court reports. 1910. 79 p.

Bulletin No. 3. History of the initiative and referendum in South
Dakota. Pierre? 1916. 5 p.

Bulletin No. 4. Titles of laws. 1916. 3 p.

Bulletin No. 5. Prisoners on public highways?

Vermont: State Library: Legislative Reference Bureau.

The Legislative Reference Bureau was originally established
by the act of January 12, 191 1,1 under the supervision of the
state library. No 'provision was then made for a bill-draft-
ing service, but the rules of the legislature provided for a joint
committee known as the "Revision Committee" to whom all
bills were referred previous to their introduction, for cor-
rection as to phraseology, form, etc. An act of February 21,
I9I3,2 amending the act of 1910, provided for two officers
known as "revisers of bills" to be appointed by the Governor
and confirmed by the Senate. An act of February 3, I9I5,3
placed the power of appointment in the hands of the Presi-
dent of the Senate and the Speaker of the House with the
deciding vote in the Chief Justice, when necessary, and
changed the title to "legislative draftsmen." This amend-
ment also provided that "the legislative draftsmen shall per-

1 Vermont, Acts, 1910, No. 9, p. 7.
''Vermont, Acts, 1912, No. 14, p. 14.
'Vermont, Acts, 1915, No. 10, p. 74.

347

EFFORTS FOR ADMINISTRATIVE REFORM

form their duties in the office of, and in connection with, the
Legislative Reference Bureau in the State Library," and pre-
scribed their duties to be to "give assistance to members and
committees in the drafting of bills, resolutions and amend-
ments, if so requested," and prohibited them from opposing
or urging legislation or the election of any officer by the Gen-
eral Assembly. It further provided that "the legislative
draftsmen shall perform for the Senate and House of Rep-
resentatives all the duties of a Committee on Revision of
Bills, except when the joint rules of the Senate and House of
Representatives provide that such Committee be otherwise
constituted."

An act approved March 21, 19 17,1 makes it a duty of the
legislative reference librarian to make and publish condensed
statements of the monthly reports which all state departments
and other state institutions are required to make to the Board
of Control.

PUBLICATIONS

Finding list, Legislative reference department. 1912. in p.

Direct primaries. Montpelier, Vt, 1914. 8 p., i fold. 1

The state's work. Pt. I. An analysis of the state boards, officers,

commissions and institutions Pt. II. A brief digest of the state

department reports for the biennial period ending June 30, 1916.

Comp. by the Legislative reference bureau. [Montpelier] 1916.

60 p.

For publications before February, 1913, sec Vermont. State
library. Legislative reference department.

Virginia: Legislative Reference Bureau. The Legislative
Reference Bureau of Virginia was created by an act ap-
proved March 21, I9I4.2 It is in charge of a director who
is appointed by the Governor with the approval of the Sen-
ate. The organic act makes the usual provision for the col-
lection and classification of material and the employment of
the necessary force of assistants, draftsmen and clerks. The
act further provides that upon the request of the Governor
or any member of the General Assembly, the bureau shall :

Draft or aid in drafting legislative bills or resolutions and
amendments thereto ; advise as to the constitutionality or prob-

1 Vermont, Acts, 1917, No. 32, p. 27.
a Virginia, Acts, 1914, Ch. 194, p. 314.

348

LEGISLATIVE REFERENCE AND BILL-DRAFTING

able legal effect of proposed legislation ; prepare summaries
of existing laws affected by proposed legislation, compilations
of laws in other states or countries relating to the subject mat-
ter of such legislation, and statements of the operation and
effect of such laws; make researches and examinations as to
any subject of proposed legislation.

PUBLICATIONS

Legislative reference lists.

1910. Bank examiners. City charters. Municipal home rule.
Fee system. Juvenile courts. Oyster industry. Primaries.
Liquor question. Protection of birds. Taxation. Tubercu-
losis.

A brief history of taxation in Virginia, by Edgar Sydenstricker . . .
Richmond, 1915. 66 p.

Legislation in Virginia, 1914. Comp. by Lewis Machen, director.
Richmond, 1915. 13 p.

A summary of tax systems, boards, and methods of equalization of
the several states. Comp. by Lewis H. Machen, director. Rich-
mond, 1915. 29 p.

A condensation of portions of a bulletin recently issued by the U. S.
Bureau of the census, supplemented by reference to bulletins of
the New York tax reform association and, in some instances, by
inspection of the statutes, cf. Explanation, p. [2]

Extracts from liquor laws of prohibition states. Comp. under the
direction of Lewis Machen, director. 1916. 264 p.

Department of archives and history. Legislative reference library.
Charleston, W. Va., Lovett printing co., n.d. [2] p.

West Virginia: Department of Archives and History:
Legislative Reference Section. While there is no law in
West Virginia creating a legislative reference or bill-drafting
service, and no specific appropriation has been made for one,
the Governor in 1913 requested the state historian and archi-
vist to organize a Legislative Reference Section in the
library of the Department of Archives and History. The
material of the library has been specially arranged and made
available for purposes of legislative reference. The section
is gathering all information that is likely to be of use to the
legislative and administrative branches of the state govern-
ment. This material is at the command of members of the
legislature, administrative officers and other citizens.

The Department of Archives has undertaken, to a limited
extent, the preparation of tentative drafts of legislative meas-

349

EFFORTS FOR ADMINISTRATIVE REFORM

ures in accordance with specifications submitted, but it is not
the intention of the present librarian to continue this service.

Wisconsin: Free Library Commission: Legislative Refer-
ence Department. The Legislative Reference Department of
the Wisconsin Library Commission was established in a small
way in 1901 under authority of an act approved April 13,
1901. 1 Subsequent laws were enacted2 on May 13, 1903,
May 8, 1905, July 9, 1907, August 9, 1913 and June 14, 1917,
further defining the duties of the commission with respect to
the legislative reference and bill-drafting work and making
specific appropriation therefor. Provision for the employ-
ment of a corps of draftsmen for the bill-drafting service was
first made in the act of 1917. This service is maintained dis-
tinct from, but in close cooperation with, the legislative ref-
erence work, the two services being coordinate. No legal
provision has been made for any particular form of organiza-
tion, for a director, or for the tenure of office of those em-
ployed in the service, all this being left to the discretion of the
Free Library Commission.

At present the duties of the Free Library Commission with
reference to the Legislative Reference Department as de-
fined by law are as follows :

To maintain in the state capital, for the use and infor-
mation of the legislature, the several state departments, and
such other citizens as may desire to consult the same, a legis-
lative reference room and a small working library ... of
the several public documents of this and other states, and
to purchase for said library standard works of use and ref-
erence. The said commission may also collect, summarize and
index information of a legislative nature relating to legislation
of foreign countries, of states of this country, the federal gov-
ernment and municipalities, [and] make such investigations
into statute law, legislative and governmental institutions as,
will aid the legislature to perform its duties in the most efrP
cient and economical manner.

^Wisconsin, Acts, 1901. Sec. 373f, Ch. 168, p. 213.

"Wisconsin, Acts, 1903, Ch. 177, p. 384; Wisconsin, Acts, 1905,
Ch. 177, p. 263; Wisconsin, Acts, 1907, Ch. 508, p. 70; Wisconsin,
Acts, 1913, Ch. 772, p. 1269; Wisconsin, Acts, 1917, Ch. 425, p. 690.

350

LEGISLATIVE REFERENCE AND BILL-DRAFTING

With regard to bill drafting, the law provides that "the
free library commission shall employ, during each legislative
session and the two months next preceding each session,
draftsmen and such help as may be necessary for the draft-
ing of bills." An annual appropriation of $21,800 is made
"for carrying out the powers, duties and functions provided
by law for the legislative reference department." The act
of 1917 appropriated $6,000 as "an emergency fund for the
execution of the functions of the legislative reference library
in preparing for special and regular sessions of the legislature
and during the continuance of such sessions."

PUBLICATIONS

Comparative legislation bulletin, No. I — Madison, 1906 —
Contents.

No. I. Railway coemployment, by M. A. Schaffner. 1905.

27 p.

No. 2. Lobbying, by M. A. Schaffner. 1909. 31 p.
No. 3. Corrupt practices at elections: contributions and ex-
penditures. 1906. 35 p.

No. 4. Exemption of wages, by M. A. Schaffner. 1906. 39 p.
No. 5. Municipal electric lighting, by E. B. Smith. 1906.

22 p.
No. 6. Trust company reserves, by M. A. Schaffner. 1906.

24 p.
No. 7. Taxation of trust companies, by M. A. Schaffner. 1906.

19 p.

No. 8. Municipal gas lighting, by E. S. Bradford. 1906. 18 p.
No. 9. Boycotting, by G. G. Huebner. 1906. 26 p.
No. 10. Blacklisting, by G. G. Huebner. 1906. 22 p.
No. ii. The initiative and referendum: state legislation, by M.

A. Schaffner. 1907.

No. 12. The recall, by M. A. Schaffner. 1906. 21 p.
No. 13. Primary elections. The test of party affiliation, by

M. A. Schaffner. 1908. 37 p.
No. 14. Proportional representation, by R. E. Curtis. 1908.

29 p.

No. 15. Juvenile courts, by S. K. Hornbeck. 1908. 41 p.
No. 16. Telephone Interchange of service, by Laura Scott.

1908. 20 p.

No. 17. Mortgage taxation, by R. A. Campbell. 1908. 60 p.
No. 18. Municipal home rule charters, by M. A. Schaffner.

1908. 38 p.
No. 19. Tenement house legislation, state and local, by F. H.

MacGregor. 1909. 70 p.
No. 20. Accident insurance for working men, by Reuben Mc-

Kitrik. 1909. 70 p.

351

•

EFFORTS FOR ADMINISTRATIVE REFORM

No. 21. The initiative and referendum (No. n, rev.), by C. H.

Talbot. 1910. 43 p.

No. 22. Certified public accountant, by Laura Scott. 1910. 44 p.
No. 23. Corrupt practices at elections, No. 3, revised by S. G.

Lowrie. 1911. 86 p.
No. 24. State legislation concerning tuberculosis, by L. F. Tief-

enthaler. 1911.
No. 25. The initiative and referendum: state legislation, by

C. H. Talbot. 1913.
Legislative reference list No. i. State regulation.

No. 2. State aid for roads.
No. 3. State civil service.

ARTICLES

Dodgeon, M. S. The Wisconsin legislative library. Yale review,
•^ Nov., 1907, v. 16 : 288-95.

Flower, E. Sounding the retreat, illus. Harper's Weekly, May I,
1915, v. 60: 417-8.

Massachusetts. Committee to examine the Legislative reference
bureau and bill drafting department of Wisconsin. Report to
the governor of the commonwealth and the Board of trustees of
the State library, of the committee which recently visited Madi-
son, Wisconsin, to examine the Legislative reference bureau and
bill drafting department. [Boston, 1915] [4] p.

Wisconsin. Free library commission. Legislative reference depart-
ment. [2d ed.] Madison, Wis., 1911. 30 p. (Wisconsin free
library commission, Madison . . . Circular of information, No. 6.)
"References," p. 27-28.
"Publications of the Commission," p. 29-30.

Published also in Massachusetts. State library. Sixth annual report
for 1915. Boston, 1915, p. 19-23.

352

CHAPTER XIV
LEGISLATIVE REFERENCE SERVICES

United States: Library of Congress: Legislative Refer-
ence Division. After efforts extending over several years
there was secured from Congress in 1914 an appropriation:
"To enable the Librarian of Congress to employ competent
persons to prepare such indexes, digests, and compilations of
law as may be required for Congress and other official use
pursuant to the Act approved June 30, 1906, $25,000."

This item has been repeated in the appropriation acts for
subsequent years, the language in subsequent years being
changed to read as follows :

Legislative Reference: To enable the Librarian of
Congress to employ competent persons to gather, classify and
make available in translations, indexes, digests, compilations
and bulletins, and otherwise data for or bearing upon legis-
lation and to render such data serviceable to Congress and
committees and members thereof, $25,000.

In his annual report for the year ending June 30, 1915,
the Librarian of Congress, describing the actual demands made,
upon the Legislative Reference Division which he had estab-
lished, said that they might be grouped as follows : "For
digests or compilations of federal or state statute or consti-
tutional law on various subjects; for comparative studies,
compilations, abstracts or translations of foreign law or de-
crees on various subjects ; for compilations on certain ques-

1 Legislative, executive and judicial appropriation act for fiscal;
year ending June 30, 1915, approved July 16, 1914.

The provision of law referred to was the original authorization,
contained in the sundry civil appropriation act, for the preparation
by the Law Librarian under direction of the Librarian of Congress,
of a new index to the Statutes at Large, and such other indexes,
digests and compilations of law as might be required for Congress.,

EFFORTS FOR ADMINISTRATIVE REFORM

tions of legislative procedure — domestic and foreign; for
translations and compilations on certain subjects in interna-
tional law; for digests and compilations on powers of the ex-
ecutive— in Canada, France, and Germany — over the tariff;
for statistical information on some nineteen subjects, foreign
and domestic; for extracts (furnished in the form of photo-
stat reproductions) of various articles in newspapers or pe-
riodicals; for lists of bills introduced on certain subjects;
for memoranda on bills pending, e. g., the construction of
certain words or phrases, the history of previous legislation on
the same subject, precedents from other jurisdictions, or the
record of subjects within the field of two or more commit-
tees; for bibliographic memoranda on certain subjects; and
for reports or memoranda involving miscellaneous reference
work in cooperation with other Divisions of the Library."

The Librarian comments on the fact that though the serv-
ice as legalized contained no provision for bill drafting, some
requests for aid in this respect were received and informally
given.

To this division was turned over the task of continuing
the preparation on cards of an index to the federal statutes
which had been brought down through the year 1907 in the
two volumes published in 1908 and 1911.

In his report for the year ending June 30, 1916, the Li-
brarian of Congress calls attention to the fact that the pur-
pose for which the appropriation for the year had been granted
had been broadened and made to read: "To gather, classify,
and make available, in translations, indexes, digests, compila-
tions, and bulletins, and otherwise, data for or bearing upon
legislation, and to render such data serviceable to Congress
and committees and Members thereof." For these purposes
$25,000 was made available.

With the extension of its work, it became necessary to
organize a special legal section of the division to which were
referred —

i. The preparation of digests and compilations of stat-
utes, statutory rules and orders, constitutional provisions and
court decisions in any jurisdiction, United States, state or for-
eign, including comparative legislative studies.

354

LEGISLATIVE REFERENCE SERVICES

2. The preparation of briefs on the constitutionality of
proposed legislation and on the judicial construction of words
and phrases and other technical matters in the text of bills
and resolutions, introduced or intended to be introduced in
Congress.

3. Any indexing of the United States, state and foreign
legislation which might be undertaken from time to time.

4. The preparation of digests and compilations on inter-
national law topics from treaties, conventions, proceedings of
conferences, and from American and foreign international
law writers.

In his report for the year ending June 30, 1916, the Li-
brarian of Congress gives a detailed statement of the many
manuscript reports made under the foregoing heads upon
request of Members of Congress. An account is also given
of the compilation of United States public land laws which
had been ordered made during the session of 1914-1915 by
the House Committee on Public Lands, and which was re-
ported as ready for publication.1

In his report for the year ending June 30, 1917, the Li-
brarian of Congress states that during the eighteen months
of its existence some twenty-three hundred inquiries for in-
formation by Members of Congress had been received and
answered. He notes, however, that "in relatively few cases
are the results of legislative reference made available in their
original form to a wider public. Some instances of publica-
tion in the Congressional Record and committee hearings, or
separately as Senate documents and committee prints, have
been noted above. The latter method presents the compila-
tion or digest in a form much more convenient for use than
the former plan, which buries it in a mass of other material
in which it is difficult to find when wanted without an exact
reference to the page where it occurs. A more satisfactory
arrangement than either of these would be publication by the
Library of Congress as separate legislative reference bulle-

1 Independently of this compilation is one prepared by Mr. J. W.
Keener of the General Land Office at the order of the Senate Com-
mittee on Public Lands, — a work, however, less complete and less
ambitious in scope than that prepared by the Legislative Reference
Division.

355

EFFORTS FOR ADMINISTRATIVE REFORM

tins. To enable this to be done, however, an addition to the
printing allotment would be required."

PUBLICATIONS

Note: The Legislative reference division has issued no publications.
The annual reports of its work are to be found in the reports
of the Librarian of Congress for the years 1915 to date. A num-
ber of its compilations have been ordered printed by Congress as
Senate or House documents, and others have been incorporated
in the Congressional record. A few titles are listed below.

Foreign legislation on the merchant marine. Letter before the Com-
mittee on commerce, United States Senate, Sixty-third Congress,
third session, transmitting certain material which the Legisla-
tive reference division of the Library of Congress has gathered
relating to foreign legislation on the merchant marine. Printed
for the use of the Committee on commerce. Washington, Govt.
print, off., 1915. 31 p.

Limitations on campaign expenditures by the political party commit-
tees; also of candidates for the offices of United States senator
and representative in Congress, under state laws in effect 1916.
Prepared in the Legislative reference division, Library of Con-
gress . . . Washington, Govt. print, off., 1916. 14 p. incl. tables.
(64th Cong., 2d sess. Senate Doc. 640.)

Absent voting. Summary of statutes and constitutional provisions
in force in the various states, November, 1916. Prepared in the
Legislative reference division, Library of Congress . . . Wash-
ington, Govt. print, off., 1917. 16 p. (64th Cong., 2d sess. Sen-
ate Doc. 659.)

Exemption from military service in Great Britain. Statutory provi-
sions and regulations relative to tribunals and certificates of
exemption under the military service acts, with a digest of^ap-
pealed cases. Comp. in the Legislative reference division, 'Li-
brary of Congress . . . Washington, Govt. print, off., 1917. 45
p. ([U. S.] 65th Cong., ist sess. Senate Doc. 62.)

Restriction on aliens in Great Britain, France, Italy, Germany, Aus-
tria-Hungary, since the beginning of the European war [comp.
by the Legislative reference bureau, Library of Congress. (In
U. S. Congress. House Committee on immigration and natural-
ization. Registration of aliens. Hearings . . . on H. R. 20936
. . . Feb. 28, 1917. Washington, 1917. p. 4-18.)

Trading with the enemy: an article upon the measures adopted by
Germany in retaliation for those promulgated by other nations,
by Theo. H. Thiesing [Legislative reference division. Library
of Congress] . . . Washington, Govt. print., 1917. 7 p. ([U.
S.] 65th Cong., ist sess. Senate Doc. 107.)

Transfer of flag. Extracts from the proceedings of the International
naval conference, London, 1908, and of the Institute of interna-
tional law, 1882 and 1913. Tr. by the Legislative reference bu-
reau, Library of Congress. Printed for the use of the Commit-
tee on foreign relations. Washington, Govt. print, off., 1915.
23 P-

356

LEGISLATIVE REFERENCE SERVICES

Government control of railways in Great Britain. Memoranda sub-
mitted to the Committee on interstate commerce, United States
Senate. Sixty-fifth Congress, Second session relative to the
government control of railways in Great Britain in its financial
aspects and in relation to railway employees. Washington, Govt.
print, off., 1918. 56 p.

California: State Library: Legislative Reference Depart-
ment. The Legislative Reference Department of the State
Library was created in December, 1904. There is no spe-
cific provision of law creating this department, its creation
being effected under general powers given the state library
to create subordinate departments. It does not duplicate the
work of the Legislative Counsel Bureau,1 which, while it per-
forms some of the duties of a legislative reference bureau,
is primarily a bill-drafting service.

PUBLICATIONS

Bulletin No. i. Hints on drawing legislative bills. Dec. I, 1908.
12 p.

Bulletin No. 2. River improvement laws in other states and coun-
tries. Dec. 29, 1908. 29 p.

Connecticut: State Library: Legislative Reference De-
partment. The legislative reference work of the Connecticut
State Library is one of the functions of the state librarian.
There has been no special act creating a legislative refer-
ence department other than by making a special appropria-
tion of $5,000 biennially since 1907, at which time the state
library work was especially increased along this line. The
legislative reference work has been conducted since that time
by the state librarian and a number of trained assistants. It
is a reference library not only for legislators but also for the
Supreme Court, state officers and the several state depart-
ments.

The special work done in the Legislative Reference De-
partment consists of maintaining a well-classified and very
full collection of official reports and treatises upon the vari-
ous topics before the several General Assemblies, made ac-
cessible through a complete card catalogue. In addition to

1 See p. 329.

357

EFFORTS FOR ADMINISTRATIVE REFORM

the printed material which is secured from all sections of the
country and from foreign countries, the department main-
tains a file of the printed bills from about twenty-five states,
showing the proposed legislation in those states.

The department makes and maintains a photostat copy
of every bill, resolution and petition introduced into the Gen-
eral Assembly. As no bills are printed in Connecticut until
favorably reported by the committees to which they have been
referred, the photostat copies, made almost immediately when
introduced, are invaluable. The library maintains a series of
cards covering each such bill, resolution and petition, show-
ing its number, when and by whom introduced, to what com-
mittee referred, when hearings were advertised, when and
what report was made upon it, action in each house and, if
passed, when signed by the Governor and its position in the
public or special laws. Another set of cards shows the several
sections of the Connecticut revised statutes. Whenever these
sections are amended or repealed, this additional information
is entered on a card which is filed with the main card. Thus
the material for a revision of the statutes is always at hand.

Transcripts of the stenographers' notes at the hearings
held before the several committees are kept on file. These
transcripts, after each session, are thoroughly indexed and are
bound, thus making accessible to future General Assemblies
and to judges of the courts, the intention and purpose of each
bill as advocated at these hearings.

Special reference lists upon various topics and special in-
vestigations along definite lines are made from time to time
when requested by state officials.

PUBLICATIONS

Bulletin No. I. List of references to material on employer's lia-
bility and workmen's compensation. 1913. 27 p.

Report's

Report on legislative reference work. (In Connecticut state library.
Report of the state librarian to the Governor, 1909. Hartford,
I9i3-date.)

Georgia: State Library: Legislative Reference Depart-
ment. A Legislative Reference Department in connection

358

LEGISLATIVE REFERENCE SERVICES

with the State Library, was created by an act approved August
12, 1914. * Its object, as expressed in the act, is : "To gather
and make available such information as shall aid the members
of the legislature and the several state departments in the dis-
charge of their duties and to serve such other citizens as may
desire to consult them." The duties prescribed are to "col-
lect, arrange, classify and index books, pamphlets and other
material relating to legislation; . . . prepare abstracts of
laws of other states and countries, and . . . make such in-
dexes of the legislative and administrative records of this
state both current and past, as to make access and reference
thereto easy and sure."

Reports

Reports for I9i5-date. (In Georgia. State library. Annual report,
I9i5-date.)

Iowa: State Library: Law and Legislative Reference
Department. A Legislative Reference Department is in
operation in connection with the State Library. Section 288 ic,
chapter 17, of the supplement to the code 1913 has the follow-
ing provision : "There shall be annually appropriated . . .
the sum of six thousand dollars for the use of the law depart-
ment and legislative reference bureau." Provision is also
made for "one legislative and general reference assistant who
shall be under the direction of the assistant to the State Libra-

rian."

PUBLICATIONS

Selected list of references on the valuation of public service cor-
porations.

Maine: State Library: Legislative Reference Bureau.

Early in 1916 the state librarian was authorized by the Gov-
ernor and council to employ a legislative reference clerk, but
no special appropriation or authorization was made therefor.
On March 29, 1917, however, an act was approved 2 au-
thorizing the state librarian "to establish in the state library a

1 Georgia, Acts, 1914, No. 397, p. 137.
a Maine, Acts, 1917, p. 97.

359

EFFORTS FOR ADMINISTRATIVE REFORM

legislative reference bureau which shall collect, arrange and
place on file books, pamphlets and other material relating to
legislation, shall prepare abstracts of laws in other states and
present such other information as may be useful and necessary
to the legislature." It authorizes the state librarian to employ
such assistance and incur such expense as may be necessary
for the proper administration of the bureau.

Massachusetts: State Library: Legislative Reference De-
partment. Since 1892 provision has been made in the appro-
priation acts for the State Library "for preparing an index
to current events and such other matters contained in the
newspapers of the day, as may be deemed important by the
trustees and librarian." In an appropriation act of 19 IO,1 pro-
vision was made for a "card index of comparative legislation."
By this provision and the initiative of the state librarian a Leg-
islative Reference Department has been built up in the State
Library, although no specific legislative provision has been
made for such an agency. In the reference department,
which is under the immediate direction of a reference assistant,
the activities are such that in the course of legislative ses-
sions it is not infrequently the case that all members of the
regular state library staff are busy in research work and in
answering questions of a legislative character. The depart-
ment keeps up to date a current periodical card index, a cur-
rent events index to the newspapers, an index to the Gover-
nors' messages and a card catalogue of Massachusetts leg-
islators. These are in constant use. The library is rich in its
collections of material in the field of legislation. A recata-
loging of the State Library is now in progress.

New Jersey : State Library : Legislative Reference Depart-
ment. The legislative reference service in New Jersey is fur-
nished by a department of the State Library. An act approved
March 18, I9H,2 provides that: "It shall be the duty of the
State Librarian to collect and keep constantly up to date
. . . such information and material as will furnish the full-
est information practicable upon all matters pertaining to cur-

1 Massachusetts, Acts, 1910, Ch. 75.
* New Jersey, Acts, 1914, Ch. 29, p. 44.

360

LEGISLATIVE REFERENCE SERVICES

rent or proposed legislation or any legislative or administra-
tive problems, and to prepare and submit digests of such in-
formation and material upon request of any legislative com-
mittee or any member of the Legislature. "

PUBLICATIONS

Descriptive list of laws and joint resolutions enacted by the state of
New Jersey, legislative session, 1917. Comp. by John P. Dullard,
state librarian. Union Hill, N. J., Hudson printing company,
1917. 16 p.

Prepared by the Legislative reference department of the New Jer-
sey state library, cf. p. [2].

New York : State Library : Legislative Reference Section.

In New York State there is a Legislative Reference Section
of the State Library, and a legislative library in the Capitol.
The Legislative Reference Section of the State Library was
established in 1890 by an order of the director of the State
Library, and is, therefore, the oldest legislative reference
service in the United States. Its work is conducted as a part
of the activities of the State Library, and it has a staff subject
to the supervision of the director of the State Library. It
performs legislative reference work for legislators, state and
government departments, officers and students. Among its
activities are the indexing and editing of the official edition
of the New York session laws; the preparation of legis-
lative bulletins; the receiving, checking, cataloging and shelv-
ing or filing of state, municipal, federal and foreign docu-
ments and other material. A very considerable part of the
activities of the section consists of research work and the
preparation of special memoranda for legislators, state offi-
cers and other important organizations.

In addition to this library the state maintains, as a dis-
trict organization, a bill-drafting service, account of which
is given in the following chapter.1

1 See p. 366.

361

EFFORTS FOR ADMINISTRATIVE REFORM

PUBLICATIONS

Legislative bulletins.1 Albany, 1891 —

While these bulletins bear a single series of serial numbers ac-
cording to date of publication, most of them fall into several distinct
series, as follows:

Comparative summary and index of state legislation

No. i, 1890, p. 1-84 No. 15, 1901, p. 813-1232

No. 2, 1891, p. 85-226 No. 1 8, 1902, p. 413-696

No. 3, 1892, p. 227-294 No. 21, 1903, p. 267-774

No. 4, 1893, p. 295-452 No. 24, 1904, p.

No. 5, 1894, p. 453-550

Legislation by states

No. 6, 1895, P- I-3I2 No. 10, 1898, p. 739-912

No. 7, 1896, p. 313-426 No. 11, 1899, p. 1-398

No. 9, 1897, p. 485-738 No. 13, 1900, p. 439-614

Review of legislation

No. 16, 1901, p. 1-250 No. 29, 1905, 334 p.

No. 19, 1902, p. 697-912 No. 33, 1906, 249 p.

No. 22, 1903, No. 39, 1907-8, 475 p.

No. 25, 1904,

Index of legislation

No. 28, 1905 No. 36, 1907

No. 32, 1906 No. 38, 1908, 264 p.

Digest of governors' messages

No. 17, 1902, p. 251-412 No. 31, 1906, 79 p.

No. 20, 1903, p. 1-266 No. 35, 1907

No. 23, 1904 No. 37, 1908

No. 27, 1905

The following numbers do not fall within any of the above series :

No. 8. State finance statistics, 1890 and 1895. p. 427-82.

No. 12. Trend of legislation in the United States, by R. H. Whit-
ten. 1900. p. 399-438-

No. 14. Taxation of corporations in New York, Massachusetts,
Pennsylvania and New Jersey, by R. H. Whitten. 1901.
p. 615-812.

No. 26. Index of Governors' messages, 1777-1901, by M. G. Wyer
and C. E. Grover.

No. 30. Legislative reference lists. 1906. 39 p. [Lists on life in-
surance, direct nominations, employment of blind and
inheritance tax.]

No. 34. A summary of the compulsory attendance and child labor
laws of the states and territories of the United States.
1907. 112 p.

1 Beginning with No. 20 (1903) the three or more bulletins of
each year are also issued in one volume under title Yearbook of
Legislation.

362

LEGISLATIVE REFERENCE SERVICES

No. 40. American ballot laws, i888-iqio, by A. C. Luddington.

1911. 220 p.
No. 41. Mothers' pension legislation in New York and other states,

by W. E. Hannan. 1916. 41 p. fold, table.
No. 42. Property exempt from taxation in the forty-eight states,

by W. E. Hannan. 1916. 239 p.

Partial list of questions that were submitted to the Legislative ref-
erence section of the State library and upon which investiga-
tions were conducted and data prepared for various members of
the legislative session of 1917. [Albany] 1918. 8 p.
Licensing and regulation of bill board or outdoor advertising. Al-
bany, 1918. 19 p.

Ordinances regulating the dimming of headlights in cities of the
United States. 1918. 37 p.

New York: Legislative Library. The Legislative Library
at the Capitol is organized by virtue of an act approved May
3, 19 is,1 as amended by an act approved June i, 19 17-2 Its
principal function is the collection of documents and laws of
New York State. It does no research work.

Oregon: State Library. In Oregon no specific provision
has been made for a legislative reference bureau, but since
1913 the state librarian is required by law to render such
service. The Oregon State Library, however, had been per-
forming legislative reference work since 1905 without special
authorization. An act approved February 25, I9I3,3 relating
to the State Library provides, among other duties of the state
librarian, that he shall "collect and index those public docu-
ments which shall be of service to state boards, officials, and
commissioners, and for reference work for the members of
the legislature for investigation of public questions." No
specific mention is made of a legislative reference bureau.
The Oregon State Library has done legislative reference
work since 1905, although it has no separate department for
this purpose.

Texas State Library : Legislative Reference Section. An

act of March 19, 1909,* creating the Texas Library and His-

1 New York, Acts, 1915, Ch. 483, p. 1447.

2 New York, Acts, 1917, Ch. 715, p. 2309.
'Oregon, Acts, 1913, Ch. 149, p. 263.

4 Texas, Acts, 1909, Ch. 70, p. 126.

363

• EFFORTS FOR ADMINISTRATIVE REFORM

tory Commission provided for a Legislative Reference Section,
making the usual provisions respecting the materials to be
collected, indexed and classified and providing for the ap-
pointment of an assistant librarian to conduct the work of
the section. It also provided that this assistant librarian "shall
give the members of the legislature such aid and assistance in
the drafting of bills and resolutions as may be asked."

The legislature of 1911 cut out the appropriation for the
salary of this assistant librarian, and until the session of 1915
no such appropriation was made. The work was continued
nevertheless. In 1913 a representative of the University of
Texas took charge of the work, and in 1915 the library used
a stenographer's salary to pay for an assistant to do the leg-
islative reference work. The legislature of 1915 made appro-
priations for the salary of a legislative reference librarian
and for conducting the work. The legislature of 1917 cut out
the latter but made a salary appropriation.

Owing to lack of funds very little bill drafting has been
attempted and none will be undertaken for the legislature of
1919.

PUBLICATIONS

Bulletin No. i. Finding list of books prepared by J. B. Kaiser. 1911.

5i P-

Bulletin No. 2. Subject index to the bills and resolutions of the reg-
ular session of the thirty-fourth Legislature, prepared by J. F.
Marron. [1915]

The legislative reference bureau as a bill revising agency, by J. F.
Marron, . . . [Austin? 1916] [10] p.
Prepared for the Conference on bill drafting at Washington,

December 31, 1915.
Reprinted from Special libraries, March, 1916.

364

CHAPTER XV
BILL-DRAFTING SERVICES

Connecticut. In Connecticut the bill-drafting service is per-
formed by the clerk of bills, an officer of the General As-
sembly. An act approved January 22, iQOi,1 provides that
"the clerk of bills shall assist members of the General As-
sembly in drafting bills for public acts and resolutions of a
public nature, and prepare amendments to or substitutes for
bills or resolutions at the request of committees. Every bill
or resolution favorably acted upon by any committee of the
General Assembly shall, before being reported to either
branch thereof, be first submitted to the clerk of bills, who
shall examine such bill or resolution, in respect to its form,
for the purpose of avoiding repetitions and unconstitutional
provisions, and insuring accuracy in text and references,
clearness and conciseness in the phraseology and to the con-
sistency of statutes. He shall return to the committee sub-
mitting it any bill or resolution that is not in correct form
with such corrections as he may propose in the form of a
substitute or as amendments."

The clerk of bills, and the engrossing clerk, who super-
vises the printing and engrossing of bills and advises the Com-
mittee on Engrossed Bills of needed corrections, are elected
at the beginning of each session by the Joint Committee on
Judiciary and on Engrossed Bills acting jointly. In practice,
a regular succession has been established as the normal arrange-
ment. The assistant clerk of the House is promoted to be
clerk of the House at the next session, and becomes clerk of
the Senate two years later. At the following session he is
elected clerk of bills, and two years later, engrossing clerk.
This succession may be interrupted by political changes. In
the last four biennial messages the governors have strongly

1 Connecticut, Acts, 1901, Ch. i, Sec. 2, 3, 4.

365

EFFORTS FOR ADMINISTRATIVE REFORM

urged that the position of clerk of bills be made permanent,
and that the best available draftsmen should be procured for
the position, but the legislature has not yet taken such action.

Massachusetts. Assistance in the drafting of bills to mem-
bers and others is provided for by the Committee on Rules of
each branch of the General Court. In the Senate, rules 20
,'ind 21 provide that the committee shall examine all bills, etc.,
intended for introduction for the purpose of ascertaining:
( i ) whether the legislation proposed is plainly and specifi-
cally stated or already provided for; (2) whether such bills,
etc., are in proper form; and (3) that compliance has been
had with the rules of the Senate and the joint rules of the
two branches. But the committee ''shall make no change in
the substance or form of any matter referred to them with-
out the consent of the member depositing the same." Rule
33 provides that "bills and resolves when ordered to a third
reading, shall be referred to the Committee on Bills in the
Third Reading, whose duty it shall be to examine and correct
them, for the purpose of avoiding repetitions and unconsti-
tutional provisions, and of insuring accuracy in the text and
references and consistency with the languag'e of existing
statutes ; but in any change in the sense or legal effect, or any
material change in construction, shall be reported to the Sen-
ate as an amendment." At the beginning of each session an
order is adopted : "That the Committee on Rules be authorized
to employ clerical assistance." A similar arrangement exists
in the House of Representatives with the difference that the
duties assigned to the Committee on Rules are specified in the
order adopted at the beginning of each session and not in the
rules of the House.

New York. The bill-drafting service in New York State is
in the hands of the Legislative Bill Drafting Commission con-
sisting of three commissioners appointed by the temporary
President of the Senate and the Speaker of the General As-
sembly. The office of the commission is at the State Capitol
and is required to be open from September i to the close of
the session. The duties prescribed in the legislative act of

366

BILL-DRAFTING SERVICES

February 17, 1909,* as amended by acts approved December
12, IQI3,2 and March 9, I9i6,3 are: "i. To maintain an office
in the state capitol . . . which shall be open from Sep-
tember i to the close of the annual legislative session, and
for such further time as the temporary president of the Sen-
ate and the speaker of the assembly shall direct. 2. Draft or
aid in drafting legislative bills and resolutions and amend-
ments thereto upon the request of a member or committee of
the legislature or of a state department, commission, board
or officer. 3. Advise as to constitutionality, consistency or
effect of proposed legislation, upon request of a member or
committee of the legislature. 4. Make researches and ex-
aminations as to any subjects or proposed legislation upon re-
quest of either house or of a committee of the legislature.
5. Examine the general laws and report to the legislature
such amendments to the consolidated lawrs as the commission
deems advisable for the purpose of including therein indepen-
dent general statutes."

An act approved May 3, 1917,* provides for the prepara-
tion, by the Bill Drafting Commission, of an index of statutes
and makes appropriation therefor.

Account has already been given of the legislative reference
libraries maintained by New York State.5

New York: Columbia University: Legislative Drafting
Bureau.8 The Legislative Drafting Research Fund was or-
ganized at Columbia University in the spring of 1911 follow-
ing the acceptance by the board of trustees of the university
of a proposal to donate not less than $15,000 annually for
five years for research work in legislation and public adminis-

1 New York, Consolidated Laws, 1909, Ch. 37, Sec. 24.
a New York, Acts, 1913, Ch. 812, p. 2273.
* New York, Acts, 1916, Ch. 32, p. 55.

4 New York, Acts, 1917, Ch. 332, p. 1114.

5 See p. 361.

6 This is a reproduction of an article published in Columbia Alumni
News, November 26, 1915, by Dr. Thomas I. Parkinson, Director
of the Legislative Drafting Bureau. Since this article was written
the fund has continued the preparation for the American Bar Asso-
ciation of its annual review of legislation and has been active in
aiding public and private organizations in the preparation- and draft-
ing of legislation.

367

EFFORTS FOR ADMINISTRATIVE REFORM

tration.1 Seven men, all law school graduates, are devoting
their entire time to the work, which is conducted under the
supervision of an administrative board consisting of John
Bassett Moore, chairman; Harlan F. Stone, Dean of the Law
School, and Joseph P. Chamberlain.

The primary purpose of the fund is research in legislation
and administration. This involves the study of technical legal
problems such as constitutional limitations on legislative
power, the rules for construction of statutes and the force
and effect of the existing statute or common law which it is
proposed to limit or extend by new legislation. It involves
also the study of administrative organization and procedure as
a basis for determining the best means of providing for the
enforcement of a proposed statute and the extent to which
provision for its enforcement should be written into the
statute rather than left to the discretion of administrative
officials. In order that its research work might be kept close
to practical problems, the officers of the fund have been glad of
opportunities to render technical assistance in the preparation
of legislative bills for legislators, other public agencies, or pri-
vate organizations seeking reforms through legislation.

The determination of the wisdom of the policies under-
lying proposed legislation and propaganda for its enactment
are left entirely to its proponents. The particular work of
the fund consists solely in trying to translate propositions of
legislation into effective statutes. This is not so narrow a
field as one might assume. The drafting of legislation in-
volves much more than matters of form, such as style, ar-
rangement and choice of words. It involves appreciation of
the conditions which it is desired to regulate, the means by
which the purpose of the regulation can be best accomplished,
the administrative organization, powers, duties and pro-
cedures which are best suited to the effective enforcement of
the proposed regulation; and the adjustment of the pro-
posed legislative' and' administrative scheme to existing
constitutions, statutes and administrative organizations. In.

1Wli*en the five years expired, the donation was extended for
another period of five years. In the summer of 1917 a chair of legis-
lation was created and the income of the fund, was reduced' by the.
amcaant at the endowment ai the chair.

368

BILL-DRAFTING SERVICES

addition to the legal research which this work naturally sug-
gests, there is also involved the hardly less important research
in administration to discover processes and devices likely to
result in economical and efficient enforcement of proposed
statutory provisions, and the investigation of economic and
social conditions to discover the essential characteristics and
scope of the evil requiring legislative remedy, and the precise
nature and extent of the remedy needed.

A few examples will indicate the general nature of the
work being done and the way in which its results have been
utilized by public officials and semi-public organizations.

A complete revision of the substantive and enforcement
provisions of the New York labor laws was prepared at the
request of a legislative investigating commission. This re-
vision was published with annotations explaining in minute
detail proposed changes and the reasons therefor.

An index digest of the provisions of all the state constitu-
tions as in force January i, 1915, was prepared at the request
of the commission to prepare for the recent constitutional
convention. The work was done under great pressure in
order to have it ready for the use of the convention. A limited
number of copies were printed by the state, which, after the
needs of the delegates had been supplied, were distributed to
libraries and educational institutions. It is copyrighted in the
name of Columbia University.

In cooperation with committees of the American Bar
Association members of the staff have prepared ( i ) a review
of all general legislation enacted by Congress and the several
state legislatures at the 1915 sessions, and (2) memoranda
for the guidance of draftsmen of legislation which will ulti-
mately form part of a proposed manual of instructions to
draftsmen and model clauses for the solution of constantly
recurring legislative problems. They have cooperated simi-
larly with the committees of the conference of commissioners
on uniform state laws with the result that these bodies have
had the advantage of more detailed legal work than they
could otherwise have secured, and the fund's staff has had the
benefit of the experience involved in this work.

Among the bills dealing with particular problems which the

369

EFFORTS FOR ADMINISTRATIVE REFORM

fund has been called upon to draft or revise are ( i ) bills to
carry out the recommendations of the Senate committee which
investigated the Titanic disaster, (2) the workmen's compen-
sation bill recommended to Congress by the Sutherland Com-
mission, President Taft's executive order putting into force
a workman's compensation system for government employees
on the Isthmus of Panama, and the existing New York con-
stitutional amendment authorizing workmen's compensation
laws, (3) the bill reorganizing the New York State tax de-
partment adopted this year, (4) the bill creating a New York
industrial commission and merging in it the administration
of the labor laws and the workmen's compensation laws.

In numerous instances it has rendered technical assistance
on legal and administrative problems involved in the program
of various semi-public organizations engaged in reform work
requiring remedial legislation. In this work the effort is not
to secure the desired reform, but to see that the legislation
providing for it accomplishes its purpose effectively with-
out necessarily disturbing related principles of law or admin-
istrative organizations. Drafting work has not been limited
either to New York legislation or to Congressional legislation.
Not only have bills been drafted for other states, but the
fund is constantly cooperating with public drafting agencies
throughout the country in an effort to increase the effective-
ness of their work for the improvement of the statute law.
A plan is now being considered under which the material and
experience of the fund may be put at the service of members
or committees of the Congress of the United States.

In conducting their research work, as well as in dealing
with practical problems, the members of the staff have not
only gained valuable experience, but have also gathered a
store of material dealing with problems of political science
which should in future be useful to the university. Much is
being said and written about university training for the public
service. The first requisite of more practical training in
political science, so far as a university can give such training,
is accurate and detailed data on the organization, powers and
procedure of public agencies entrusted with the administra-
tion of public functions, whether federal, state or municipal.

370

BILL-DRAFTING SERVICES

Materials of this sort are being gradually accumulated and
indexed in the expectation that the work of the fund will
substantially contribute to the effectiveness of instruction in
the subjects with which its activities are concerned.

PUBLICATIONS

Index digest of state constitutions, prepared for the New York state
constitutional convention commission, by the Legislative drafting
research fund of Columbia university. [Albany?] New York
state constitutional convention commission, 1915.. vii, 1546 p.

Wyoming. In Wyoming, a Bill Drafting Committee was
created as the result of an appropriation act approved Feb-
ruary 24, I9I7,1 which contained the item entitled "Compen-
sation, Bill Drafting Committee," and made appropriation
"for services rendered to members of both branches of the Leg-
islature, and its committees, during the session, in the prepa-
ration of bills, resolutions and amendments thereto, examining
and revising proposed bills, advising as to the effect thereof
on existing laws and pending measures/' The amount of the
appropriation indicates that the members of the Bill Draft-
ing Committee are expected to devote but a small part of their
time to this service.

Other States. It will be seen from the foregoing that but
few states have made provision for separate services to per-
form the functions of assisting members of the legislature in
drafting bills. A very considerable number, however, have, as
has been pointed out, entrusted this duty to their legislative
reference department. In a number of states, moreover, such
as Oregon and Washington, the office of the attorney general
renders assistance of this kind. New Jersey, by an act passed
in 1914, provided for the appointment of an assistant attorney
general to act as a legislative advisor and bill examiner, but
this act was repealed in 1917.

s act was repealed m 1917.

1 Wyoming, Acts, 1917, Sec. 55, Ch. 125, p. 232.

371

INDEX

Accident insurance, 351.

Accounting (county), Alameda
Co., Cal., 277; Westchester
Co., N. Y., 275; improved sys-
tem of for Cuyahoga County,
O., 1 68.

Accounting (municipal), 189;
Akron, 168, 250, 252; Balti-
more, 171; Chicago, 204; Cin-
cinnati, 221; Columbus, 168;
Dayton, 234; Milwaukee, 239;
Minneapolis, 244; New York
City, 1 80; Philadelphia, 216;
Rochester, 262 ; Springfield,
Mass., 249, 312; Toledo, 168,
267; Toronto, 256; Yonkers,
268; improved system of, for
Cleveland Associated Chari-
ties, 168; for Cleveland Feder-
ation for Charity and Philan-
thropy, 168; borough presi-
dent's office, New York City,
208; police courts, New York
City, 209; office of coroner,
New York City, 209; bureau
of school supplies, New York
City, 210.

Accounting (state), California,
288; Illinois, 137, 140, 143;
Kansas, 150; New York, 187;
in appeal tax court and collec-
tor's office, Maryland, 171.

Accounting department, Denver,
258, 260; New Jersey, 116, 119;
Ohio, 168, 170; U. S. Treasury,
92, 96.

Accounting (U. S. Government),
history, 96; purpose, 102; Bu-
reau of Indian Affairs, 107-
108, 112; Post Office Depart-
ment, 69, 71 ; Treasury, 69, 71,
72; by disbursing and collect-
ing officers of U. S., 76, 82.

Accounts, analysis of, 100; sug-

gestions for developing uni-
form system of controlling,
100; disbursing officers, meth-
ods of examining and auditing,
no.

Adjutant General's Office, busi-
ness methods of, 98.

Administrative control, organs
of, in states, 283-300; in cities,
301-308.

Agricultural agencies, Illinois,
136, 142, 143; Kansas, 150;
other states and countries,

143.

Agricultural settlement, Wiscon-
sin, 290.

Agriculture, Department of, Ala-
bama, 152; Connecticut, 150;
Iowa, 148.

Akron Bureau of Municipal Re-
search, 187; history and work,
25°-253; publications, 254.

Alabama Department of Ar-
chives and History, history
and work, 327; publications,
328.

Alabama Legislative Investigat-
ing Committee, history and
work, 151; publications, 152.

Alameda County, Cal., Tax As-
sociation, history and work,
276; publications, 277.

Aldermen, Board of, New York
City, 209.

Aliens, restriction on, in war-
time, 356.

Appointments, in Consular Serv-
ice, 95; influence of politics in
Boston, 198.

Appropriations, California, 287;
Hudson County, N. J., 278;
New York State, in legislative
session of 1916, 187; account-
ing forms needed for, 100.

373

INDEX

Appropriations and state reve-
nue, Massachusetts, 123.

Archives and history department,
Alabama, 152.

Arizona State Law and Legisla-
tive Reference Library, his-
tory and work, 328; publica-
tions, 329.

Armory Commission finances,
Massachusetts, 123.

Armory loans, Massachusetts,
123.

Arrests, record of, Baltimore,
171.

Ash problem, Milwaukee, 206.

Asphalt pavement, Chicago, 228;
Milwaukee, 240; Rochester, N.
Y., 261, 262.

Assessments, Toronto, 257.

Assessors, Board of, New Jersey,
consolidation of, with Board of
Equalization, 116, 118.

Attorney General's Office, Ala-
bama, 152.

Auditing board, Colorado, 154.

Auditor, independent, New York
State, 132.

Auditorium, Oakland, California,
277.

Auditor's office, Alameda Coun-
ty, Cal., 276, 277; Colorado,

154.
Australia, civil service retirement

in, 1 06.
Automobile laws, New England

states, New York, New Jersey

and Pennsylvania, 346.

Bacteriology bureau, Dayton, 234.

Bail bonds, collection of money
on, Boston, 199.

Ballot law commission, Massa-
chusetts, 123.

Ballot system, simplification of,
Boston, 193.

Bank commissioner, office of,
Colorado, 154.

Bank deposits, guarantee of, In-
diana, 332; Nebraska, 338.

Bank examiners, 349.

Banking laws, of commercial
states, 346.

Bath department, Boston, 199.

Billboards, regulation of, Phila-
delphia, 219.
Bill drafting, hints on, Indiana,

332-

Bill drafting services, 365-371.

Blacklisting, 351.

Board of claims, New York
State, 127.

Board of Consulting Experts,
appointed to aid in investigat-
ing government business meth-
ods, 86.

Board of examiners, Connecticut,

ISO-
Board of Referees, appointed, to
aid in investigating govern-
ment business methods, 86.

Bonds, government officials', 69,
72, 79, 82.

Bookkeeping, U. S. Treasury, 80,
82.

Boston Finance Commission of
1907-1909, history and work,
191-193; publications, 197-199.

Boston Permanent Finance Com-
mission, history and work, 194-
196; publications, 197-199.

Boycotting, 351.

Bribery and corruption, Michi-
gan, 335.

Brick pavements, Rochester, N.
Y., 262.

Bridges, Boston, 198.

Bridges and Harbors, Depart-
ment of, Chicago, 201.

Briefing, 96.

Brown, Herbert D., 80.

Bruere, Henry, Administrative
Reorganisation in the Govern-
ment of the City of New York,
210; Reorganisation of the Of-
fice of the Chamberlain, 210;
survey of departments under
direction of (New York City),
210.

Budget, in Canadian provinces,
1 88.

Budget (county), Cook County,
111., 228; Westchester County,
N. Y., 274, 276.

Budget (municipal), Akron, O.,
251, 254; Baltimore, 171; Bos-
ton, 197, 199; Chicago, 201,

374

INDEX

204; Cincinnati, 221, 222; Co-
lumbus, O., 168; Dayton, 231,
235, 236 ; Denver, 258, 260 ; De-
troit, 266; Memphis, 270; Mil-
waukee, 239; New York City,
183, 1 88, 302; Philadelphia,
216, 219; San Francisco, 265;
Springfield, Mass., 248, 249,
250; Toledo, O., 168; Toronto,
25°> 257; Yonkers, 268, 269;
effect of mandatory legisla-
tion upon, New York City,
209.

Budget (national) inquiry into
need for, 87-91 ; need for
(1912), 97, 99.

Budget (state), 188; Alabama,
152; California, 287; Colorado,
154; Illinois, 142, 331; Indiana,
333; Iowa, 148; Kansas, 150;
Louisiana, 157; Maryland, 166,
187; Massachusetts, 125, 296;
Minnesota, 145, 146; Nebraska,
338; New Jersey, 164, 165, 186;
New York, 129, 131, 178, 188;
North Dakota, 341 ; Oregon,
160; Pennsylvania, 134; Vir-
ginia, 156; Wisconsin, 290;
constructive proposals to be
submitted to the state consti-
tutional convention, New York,

185.

Budget idea in the United States,
The, 186.

Budget procedure, development
of, for Greater New York,
185; practical side of, 185.

Budget systems, a discussion be-
fore the New York Constitu-
tional Convention, 185.

Budget, The, by Rene Stourm,

43- .

Building and loan association, de-
partment of, Colorado, 154.

Building code, Dayton, 233.

Building Commission, Westches-
ter County, N. Y., 275, 276.

Building department, Boston,
199; Chicago, 200.

Building Inspection, Baltimore,
171 ; Minneapolis, 246.

Buildings, Chicago, 203; Detroit,
266; Illinois, 137, 142, 143.

Business agent's office, Chicago,
200.

Business methods, Bureau of In-
ternal Revenue, 109; Bureau of
Pensions, 109; Civil Service
Commission, no; U. S. De-
partments, 107.

California Legislative Counsel
Bureau, history and work, 329;
publications, 330.

California Legislative Reference
Department, history and work,
357; publications, 357.

California State Board of Con-
trol, history and work, 284-
286; publications, 287.

California Taxpayers' Associa-
tion, work of, 166.

Campaign expenditures, limita-
tions on, 356.

Canada, provincial budget sys-
tem of, 1 88.

Canadian Budgetary System,
The, By Harold G. Villard
and W. W. Willoughby, 43-

Canal claims, New York State,
127.

Canal Commission, New Jersey,
consolidation of, with depart-
ment of inland waterways, 117,
119.

Canals, Ohio, 342.

Castings, purchase of, Chicago
200.

Census, Bureau of, catalogue and
price list of supplies used in,
100.

Central administrative control,
need for organization of, 99.

Central power and heating plant,
Boston, 198.

Central stores system, Kansas,

ISO-
Certified public accountants, 352.

Chamberlain, office of, New
York City, 210.

Chance, Merrit O., member,
President's Commission on
Economy and Efficiency, 86.

Charitable activities, inquiry re-
garding, New York City,
182.

375

INDEX

Charities and corrections, Board

of, Colorado, 154.
Charities, Board of, Connecticut,

ISO-
Charities Department, Philadel-
phia, 217, 219; Rochester, N.

Y., 261, 263;
250.

Springfield,

Charities, public, Pennsylvania,

344-
Charter (county), Alameda

County, Calif., 276, 277.
Charter (municipal), 349, Akron,

254, 255; Cincinnati, 169, 222;

Columbus, O., 270; Dayton,

231, 237, 238; Denver, 258;

Philadelphia, 219; Springfield,

Mass., 249, 250.
Charters, municipal home rule,

351-

Chase, Harvey S., member, Pres-
ident's Commission on Econ-
omy and Efficiency, 86.

Check-paying system, for em-
ployees, Boston, 199.

Checks and vouchers, assembling
of, 79, 82.

Chemistry bureau, Dayton, 234.

Chicago Bureau of Efficiency,
187.

Chicago Bureau of Public Effi-
ciency, history and work, 223-
227; publications, 228-229.

Chicago Commission on City Ex-
penditures, history and work,
200; publications, 200.

Chicago Efficiency Division of
the Civil Service Commission,
history and work, 201-202;
publications, 203.

Chief medical examiner, office of,
(New York City), 210.

Chief of Engineers, office of,
mail and record division, 98.

Chief of Ordnance, office of,
handling correspondence in,
98.

Child hygiene, New York City,
182, 188; Philadelphia, 217.

Cincinnati Bureau of Municipal
Research, history and work,
220-22 1 ; publications, 222.

Cipher coding systems, instruc-

376

tions for preparing report on,
101.

Citizen agencies for research in
government, 187.

Citizen and the government, The,
185.

City clerk's office, Chicago, 201;
New York City, 209.

City council, election of, Boston,
193; participation of members
of, in executive and adminis-
trative business, Boston, 199.

City debt, Boston, 197, 198.

City government, unofficial
agencies for investigating, 212-
271.

City government, Atlanta, 182;
Boston, 197; Chicago, 203;
Cincinnati, 221, 222; Colum-
bus, O., 184; Dayton, 232, 236;
plan for establishing model in
District of Columbia, 189; In-
diana, 333; Indianapolis, 185;
Jamestown, N. Y., 184; Los
Angeles, 182; Memphis, 270;
New York, 189, 209, 210; Port-
land, Ore., 183; Reading, Pa.,
184; Richmond, 185; Roches-
ter, N. Y., 183, 261, 262; St.
Louis, 182; San Francisco,
184, 263; Springfield, Mass.,
182; Toledo, 267.

City manager plan, Chicago, 229 ;
Dayton, 237; Petersburg, Va.,
271.

Civics, instruction in, in New
York City high schools, 188.

Civil engineering service, stan-
dardization of salaries in,
Massachusetts, 125.

Civil list, Dayton, 235.

Civil servants, legal rights of,
New York City, 186.

Civil service, Akron, O., 251 ;
Virginia, 157.

Civil Service Commission, 104-
106; Chicago, 201; Denver,
258; Milwaukee, 239; Minne-
apolis, 243; business methods
of, no.

Civil service commissions, in the
United States, list of, 188.

Civil service laws, Illinois, 143;

INDEX

Ohio, 342; in United States

and other states, 143.
Claims, audit of, Westchester

County, N. Y., 274, 275;

Yonkers, 269; California, 287;

United States, no.
Classification of Employments.

See Salary Standardization

and Public Employments,

Standardization of.
Clearing house, Ohio, 169.
Clerical force, executive depart-
ments, proposed reclassifica-

tion of (1907), 83.
Clerk of Circuit Court's Office,

Cook County, 111., 228, 229.
Clerk of Council's Office, Akron,

253-
Clerk of County Court's Office,

Cook County, 111., 229.
Clerk of Superior Court's Office,

Cook County, 111., 228, 229.
Cleveland, Ohio, Associated

Charities, organization and

methods of, 168.
Cleveland, Ohio, Federation for

Charity and Philanthropy, or-
ganization and methods of, 168.
Cleveland, Frederick A., Chair-
man, Commission on Economy

and Efficiency, 85.
Clothing, for city employees,

purchase of, Boston, 199.
Coal, purchase of, Boston, 198,

Chicago, 201; by institutions,

Maryland, 171.

Coal specifications, Chicago, 227.
Cockrell Committee, history and

work of, 57-63; publications

of, 63-65.
Code commissioner, Alabama,

152.
Colorado Survey Committee of

State Affairs, history and

work of, 152; publications of,

154.
Columbia University Legislative

Drafting Bureau, history and

work, 367-370; publications,

371-
Columbus Bureau of Municipal

Research, history and work of,

270.

Combustibles, department of,

New York City, 210.
Commerce and Labor, Depart-

ment of, see Bureau of Light-

houses.
Commerce and Navigation, De-

partment of, New Jersey, 117,

Commercial lighting, Cincinnati,

220.
Commission merchant inspectors,

Colorado, 154.
Committees in department work,

use of, 77, 82.
Compensation and employment,

laws regulating United States,

(1893), 7i.
Complaint system, Minneapolis,

245.
Comptroller's office, Milwaukee,

239.
Comptroller of the Treasury,

New Jersey, consolidation of

office with department of ac-

counts, 116, 119.
Compulsory attendance bureau,

Cincinnati, 222, 223.
Compulsory education bureau,

Philadelphia, 215.
Concession privileges, Boston,

r. 199-

Congress, inquiries by, regarding
national administration, 45-
56.

Connecticut Bill Drafting Serv-
ice, history and work of, 365.

Connecticut Legislative Refer-
ence Department, history and
work, 357; publications, 358.

Connecticut State Commission
on the Consolidation of State
Commissions and the Reorgan-
ization of the Public Health
Laws, history and work, 149;
publications, 149.

Conservation and Development,
Department of, New Jersey,

„ 117, 119-

Constitutional conventions, Ohio,
342.

Consular Service, regulations
governing appointments and
promotions in (1912), 95.

377

INDEX

Contagious diseases of domestic

animals, laws relating to,

Massachusetts, 125.
Contracts, Illinois, 143; for local

improvements, Rochester, N.

Y., 261 ; U. S. government,

80, 82.
Convict department, Alabama,

'S2-

Cooperation, store, Wisconsin,
290.

Coroner's office, Cook County,
111., 228; New York City,
210.

Corporation audits, New Jersey,
164.

Corporations, Michigan, 336 ;
Pennsylvania, 344; state su-
pervision of, Colorado, 154,
Illinois, 143.

Correspondence, filing of, in U.
S. departments, 70, 73, 94, 96;
U. S. Departments, subjective
classification of, 96; registers
of, 96; elimination of saluta-
tion and complimentary close
in, 96; handling of, in mail
and record division, Office of
Chief of Engineers, 98; in
Bureau of Insular Affairs, 98,
in office of Surgeon General,
98, in office of Signal Corps,
98, in office of Chief of Ord-
nance, 98, in Department of
Justice, 98, in executive de-
partments, 101 ; instructions to
be followed in handling, 100.

Corrupt practices, 351.

Cost data, collection of, loo.

Costkeeping, in U. S. govern-
ment, 78, 82; Milwaukee, 239.

Cost of living, New York City,
306.

County bond issues, Chicago,
229.

County fee offices, Cook County,
111., 225, 229.

County government, unofficial
agencies to investigate, 272-
278; Alameda County, Calif.,
277; Monroe County, N. Y.,
183, 261, 262; Nassau County,
N. Y., 183.

378

Customs, method of collecting,
(1895), 7<>, 73-

Cutting, R. Fulton, Public Opin-
ion and National Economy,
1 86.

Dairy products, production and
standards of, California, 330.

Day laborers, efficiency of, Bos-
ton, 198.

Dayton Bureau of Research,
187; history and work of, 230-
235; publications of, 236-237.

Debt, Denver, 258; New York
City, 180, 181.

Denver Civic and Legislative
Bureau of the Denver Civic
and Commercial Association,
history and work of, 258-259;
publications of, 260.

Dependents, delinquents and de-
fectives, care of, Colorado,

153, 154.

Deposits of postmasters, dispo-
sition of, 69, 71.

Detention home, Alameda
County, Calif., 277.

Detroit Bureau of Governmental
Research, history and work of,
265 ; publications of, 266.

Dictation machine, 96; in Post
Office Department, 96.

Direct primary, Nebraska, 338.

Districting, for work of char-
itable institutions, Baltimore,
172.

Dockery-Cockrell Commission,
history and work, 66-71 ; pub-
lication, 71-73.

Documents, schedules and regis-
ters of, 100 ; U. S. Govern-
ment, distribution of, 94; pho-
tographic processes for copy-
ing, 94, 95-

Duplication of service, in U. S.
government, 112.

Education, Department of, Ala-
bama, 152, Atlanta, 182, Min-
neapolis, 245.

Educational agencies, admin-
istration of, Illinois, 142, 143;
other states and countries, 143.

INDEX

Educational code, Denver, 259,
260.

Efficiency, Bureau of, history
and work, 106-112; publica-
tions, 112-113.

Efficiency, Division of, 116-117;
see also Bureau of Efficiency.

Efficiency ratings, U. S. Govern-
ment, 104-108; in National
Bank Redemption Agency
(1913), 99, 102.

Efficient Citizenship, 185.

Election Commission, Denver,
258.

Election days as holidays, Chica-
go, 230.

Elections, Alameda County,
Calif., 277; Chicago, 229; New
York City, 209; Michigan,

335-. ,

Electricity, department of, Chi-
cago, 201, 203.

Electric lighting, federal build-
ings, 99; municipal, 351.

Electric light plant, expenditures
of, Columbus, O., 169.

Employees, efficiency of, Wis-
consin, 291.

Employer's liability, Rhode
Island, 346.

Employers' Liability Commis-
sion, New Jersey, consolida-
tion of, with other agencies,
116, 118.

Employment bureaus, Milwau-
kee, 205.

Engineer, in Public Service, The,
187.

Engineering department, Roches-
ter, N. Y., 262.

Engineer service, Chicago, 203.

Enrollment of bills, (1893), 68>

Enumeration districts, Baltimore,

172.
Equalization, Board of, New

Jersey, consolidation of, with

Board of Assessors, 116, 117,

118.
Estimates, California, 287;

Maryland, 171; preparation of

analyses of, 101.
Examining Board, Illinois, 143.

Excess condemnation, Chicago,
230,

Executive, relations to legisla-
ture, New York State, 132.

Executive organization, pro-
posed in Illinois, 144.

Exemptions from taxation,
Michigan, 336.

Expenditure accounting and re-
porting, 102, 103.

Expenditure documents, cata-
logues used in preparation of,
101 ; forms of, 103.

Expenditures, San Francisco,
263, 265; Toledo, 267; U. S.
government, classification of,
99-101 ; standardized classifica-
tion of, for use by state de-
partments, cities, etc., Ohio,
169.

Expense accounts, Springfield,
Mass., 250 ; Massachusetts,
123; Virginia, 156.

Expense classification, Cincin-
nati, 221 ; Minneapolis, 243.

Farm ownership, Wisconsin,
290.

Federal buildings, electric light-
ing of (1913), 99.

Federal Government as an Ex-
ample, The, by William H.
Taft, 186.

Federation for charity and phil-
anthropy, Dayton, 235.

Fees, retention of, Minneapolis,
244; abolition of, Virginia,
156.

Fee system, 349.

Ferry department, Boston, 199.

Filing, vertical flat, 96.

Finance Commission^ Boston,
organization and work of,
187.

Finance Department, Denver,
258.

Finances, Akron, 250, 255 ; Chi-
cago, 230; California, 288;
Ohio cities, 342.

Financial Administration with
Special reference to English
Experience, by A. Lawrence
Lowell, 1 86.

379

INDEX

Financial administration, Bos-
ton, 191-192; Columbus, 169;
Detroit, 266; Michigan, 336;
New York City, 180; Toledo,
169; Illinois, 136, 142; New
York State, 186; Great
Britain, 43; Japan, 188; cen-
tral control of, in New York
City, 188.

Fire and police alarm telegraph
system, Milwaukee, 205.

Fire apparatus, automobile, Bos-
ton, 199; motorization of,
Dayton, 233.

Fire department, Chicago, 201 ;
Dayton, 233; Milwaukee, 240,
241; Philadelphia, 218; Toron-
to, 256; purchase of equip-
ment, Yonkers, 269.

Fire hose specifications, Roches-
ter, N. Y., 261, 262.

Fire insurance, Illinois, 144; on
city property, Philadelphia,
219.

Firemen, granting time off to,
Boston, 199.

Fire protection, Boston, 198.

Fiscal year, Virginia, 156.

Fish and Game Conservation
Commission, Illinois, 143.

Fisheries and Game, Board of,
Connecticut, 150.

Fisheries and Game Commis-
sioners, Massachusetts, 123,

I25-

Flood protection, Indiana, 333.

Floor preservatives, Boston,
199.

Foodstuffs, control over hand-
ling of, Philadelphia, 217, 220.

Forest protection, Michigan, 336.

Forestry, Massachusetts, 123.

Full crew law, New Jersey, 164,
165.

Game and fish, protection of,

Colorado, 153, 154.
Game and fish commissioner,

Alabama, 152.
Garage service, Boston, 199;

Cincinnati, 221.
Garbage collection, Akron, O.,

251, 253; Dayton, 289; Mil-

380

waukee, 206; Rochester, N.
Y., 261; Toledo, 267.

Garbage disposal, Dayton, 232;
Rochester, N. Y., 261; Toron-
to, 256; see also Refuse dis-
posal.

Garnishment of wages, Milwau-
kee, 205.

Gas and electric systems, valua-
tion of, Cincinnati, 223.

Gas lighting, municipal, 351.

General Land Office, consolida-
tion of, 70.

General Supply Committee, cre-
ation of, 77.

Geological Survey, The, 43.

Georgia Legislative Reference
Department, history and work,
358; publications, 359.

Goodnow, Frank J., member,
President's Commission on
Economy and Efficiency, 86;
Administration and Financial
Methods, 186; State Govern-
ment from the point of view
of Administrative" Law, 186.

Government crop reports (1906),
75, 81.

Governor, office of, Colorado,

153, 154. .

Grade crossings, Dayton, 236;
Detroit, 266.

Great Britain, financial admin-
istration of, 43; civil service
retirement in, 97.

Hall of Records power plant,
New York City, cost of oper-
ation and maintenance, 184.

Health department, Atlanta,
182; Boston, 197, 199; Chi-
cago, 204; Dayton, 234, 236;
Milwaukee, 206; Minneapolis,
244; New York City, 180;
Philadelphia, 217, 219; St.
Paul, 182, 189; Springfield,
Mass., 249; Toronto, 257;
New Jersey, 117, 119.

High schools, Boston, 199; Wis-
consin, 291.

Highway administration, prob-
lems of, 1 88.

Highway laws, Colorado, 154;

INDEX

Ohio, 342; of the United
States, 188.

Highways, North Dakota, 341 ;
administration of, Illinois,
143; construction and main-
tenance of, New York State,
130, 132.

Highway system, New Jersey,
165, 166.

Hospital, emergency, Alameda
County, Calif., 277.

Hospital for contagious dis-
eases, Philadelphia, 217.

Hospital, general, Minneapolis,
245; Philadelphia, 217.

Hospitals for consumptives, Bos-
ton, 198.

Hospitals, inquiry regarding,
New York City, 182.

Hospitals for insane, New York
State, 130, 131; Springfield,
Md., 171.

Hours of labor, in U. S. Gov-
ernment (1906), 78, 82; of
public employees, Massachu-
setts, 125.

House of Correction, Chicago,
204.

House of Refuge, Cincinnati,
223.

Housing and health, Ohio, 170;
Philadelphia, 217.

Hudson County (N. J.) Citi-
zens' Federation, history and
work, 278; publications, 278.

Illinois Department of Finance,
history and work of, 296-297.

Illinois Efficiency and Economy
Committee, history and work,
134-141 ; publications, 142-143.

Illinois Legislative Reference
Bureau, history and work,
330; publications, 331.

Immigration Department, Ala-
bama, 152.

Improvements Department, Den-
ver, 258.

Indebtedness of American cities,
purposes of, 187.

Indiana Legislative and Statis-
tical Bureau, history and
work, 332; publications, 332.

381

Indianapolis Bureau of Govern-
mental Research of the In-
dianapolis Chamber of Com-
merce, history and work of,
269.

Indian Office, bookkeeping sys-
tem for, 107-108; administra-
tion of, 183, 186.

Indian Service, proposed busi-
ness procedure of (1911), 100.

Industries, Alabama, 152; Con-
necticut, 150; Iowa, 148.

Infirmary, Alameda County,
Calif., 277.

Inheritance taxation, Indiana,

T 332..

Initiative, 342, 351, 352.

Inland Waterways, Department
of, New Jersey, consolidation
of, with Canal Commission,
117, 119.

Insane, care and treatment of,
Colorado, 154.

Inspector of oils, office of,
Colorado, 154.

Institute for Government Re-
search, 31-43-

Institutions, children's, Boston,
198; charitable, Denver, 259,
260, Illinois, 142, 143, Kansas,
150, 151, New York State,
131 ; correctional, Boston, 198,
Chicago, 201, Illinois, 142,
143, Kansas, 150, 151, New
York State, 131 ; county, busi-
ness administration of, Massa-
chusetts, 123 ; educational,
Kansas, 150, 151; state, alien
immigrants admitted to, Mass-
achusetts, 123 ; non-registered
physicians employed at, Mass-
achusetts, 124; reorganization
of commissions having control
of, Massachusetts, 122, 123,
124, bills and appropriations
connected with, New York
State, 127, control and super-
vision of, Indiana, 333, organ-
ization of state control, Ore-
gon, 160; state-aided, Massa-
chusetts, 124.

Institutions for minors, Colo-
rado, 154.

INDEX

Insular Affairs, Bureau of, cor-
respondence and statistical
work in (1913), 98.

Insurance department, Colorado,

154.

Internal Revenue, Bureau of,
business methods of, 109.

International money orders, sta-
tistics of (1894), 70, 72.

Iowa Joint Committee on Re-
trenchment and Reform, his-
tory and work, 147; publica-
tions, 148.

Iowa Law and Legislative Ref-
erence Department, history
and work, 359; publications,

359-
Janitor service, Chicago, 203.

Japan, administration and fi-
nance in, 1 88.

Job selling in industrial estab-
lishments, Ohio, 170.

Judiciary department, Virginia,
156.

Jury commissioner's office, Den-
ver, 258.

Justice, Department of, handling
correspondence in, 98.

Juvenile courts, 349, 351 ; Cincin-
nati, 223; Denver, 258.

Juvenile court laws, Pennsyl-
vania, 344.

Kansas Efficiency and Economy
Committee, history and work,
150; publications, 151.

Kansas Legislative Reference
Department, history and work,
3335 publications, 333.

Keep Committee, history and
work, 74-81 ; publications, 81-

83.'
\

Labor regulation, Colorado, 154.

Labor, Department of, New Jer-
sey, consolidation of, with
other agencies, 116, 117,^118.

Labor agencies, administration
of, Illinois, 136, 143; Ohio,
170.

Labor and Factory Inspection
Department, Connecticut, 149.

382

Laborers, vacations for, Boston,
199.

Labor-saving devices, sugges-
tions for use of, 94, 96; in
executive departments U. S.
government, 101 ; in payment
of pensions, 108-109.

Labor Statistics, Bureau of, New
Jersey, consolidation of, with
other agencies, 116, 117, 118.

Lake tunnel system, Chicago,
200.

Land, taxation of unearned in-
crement of, Boston, 198.

Land cases, contested, 70, 72.

Land court, Boston, 198.

Land offices, registers and re-
ceivers of, 70, 72.

Land patents, engrossing and re-
cording (1895), 70, 72.

Lawmaking, procedure in, Illi-
nois, 331.

Laws, codification of, Alabama,

T52.

Leaves of absence, in U. S.
Government, 78, 82; Virginia,
156.

Legal advertising, laws relative
to, Ohio, 342.

Legal aid, Milwaukee, 205.

Legal aid bureau, Dayton, 234.

'Legislative index, New Jersey,
163.

Legislative reference and bill-
drafting service, report of
committee of American Bar
Association, 313-326; agencies
furnishing, 327-352.

Legislative reference services,

T 353-364.

Legislature, relation to execu-
tive, New York State, 132;
organization of, New York,
132, Virginia, 156; procedure
i of, New York, 132.
,Library activities, state sup-
ji ported, 338.

: jLibrary of Congress, Legislative
Reference Division, history
and work, 353-355; publica-
tions, 356.
Jcenses, Dayton, 232; Philadel-
phia, 219; for private uses of

INDEX

public streets, Boston, 198; for
minors, Boston, 198; for
stands for sight-seeing auto-
mobiles, Boston, 199.

Life Saving Service, recommen-
dation for consolidation with
Bureau of Lighthouses, 92, 95 ;
history, organization and ac-
tivities of, 96.

Life saving stations, location of
(1912), 96.

Lighthouses, Bureau of, recom-
mendation for consolidation of
with Life Saving Service, 92,
95; history, organization and
activities of, 96.

Liquor laws, Pennsylvania, 344.

Liquor question, 349.

Liquor traffic, Michigan, 336.

Lobbying, 351.

Local governments, unification
of, Chicago, 227, 229.

Los Angeles Bureau of Effi-
ciency, 210.

Louisiana Board of State Af-
fairs, history and work, 157;
publications, 158.

Lowell, A. Lawrence, Financial
Administration with Special
Reference to English Experi-
ence, 1 86.

Lumber, purchase of, Chicago,
201.

Mailing machinery, 96.
Maine Legislative Reference
Bureau, history and work of,

359-

Mandamus, use of, Philadelphia,
219.

Marine Hospital Service, regu-
lations governing (1912), 95.

Markets, Dayton, 232; Wiscon-
sin, 290.

Maryland Bureau of State and
Municipal Research, history
and work, 171 ; publications,
171.

Maryland Commission on Econ-
omy and Efficiency, history
and work, 166; publications,
166.

Maryland Department of Legis-

383

lative Reference, history and
work, 333; publications, 334.
Massachusetts Bill Drafting
Service, history and work of,
366.

Massachusetts Commission for
the Blind, selling methods
used by, 123.

Massachusetts Commission on
Economy and Efficiency, his-
tory and work, 119-121; pub-
lications, 122-125.
Massachusetts Legislative Ref-
erence Department, history
and work of, 360.
Massachusetts Supervisor of Ad-
ministration, history and
work of, 291-295; publications
of, 296.

Mayor, concentration of execu-
tive power and responsibility
in, Boston, 193.
Medical school, Minneapolis,

243, 245.

Memphis Bureau of Municipal
Research, history and work,
270; publications, 270.
Merchant marine, foreign legis-
lation on, 356.

Merit system, Minnesota, 144.
Metz Fund, publications of,

189.

Michigan Legislative Reference

Department, history and work,

334; publications, 335.

Military affairs, Michigan, 336.

Military Department, Alabama,

152; Illinois, 143.
Military functions, organization

for, New York State, 132.
Military service, exemption,

Great Britain, 356.
Milk inspection, Philadelphia,

217.

Milwaukee Bureau of Economy
and Efficiency and Bureau of
Municipal Research, history
and work, 204; publications,
205.

Milwaukee Citizens Bureau of
Municipal Efficiency, 187; his-
tory and work of, 238-240;
publications of, 241.

INDEX

Minimum wage law, Wisconsin,

205.
Mining legislation, Illinois, 136,

143.

Minneapolis Bureau of Munici-
pal Research, 187.

Minneapolis Bureau of Munici-
pal Research of the Minne-
apolis Civic and Commerce
Association, history and work,
242-245; publications, 246.

Minnesota Commission on Reor-
ganization of Civil Adminis-
tration, history and work, 146;
publications, 147.

Minnesota Efficiency and Econ-
omy Commission, history and
work, 144; publications, 145.

Mississippi Joint Investigating
Committee, work of, 161.

Missouri Legislative Reference
Department, history and work,
336; publications, 337.

Money orders, destruction of
old, 69, 72; checking of, 70,

73-
Montana Legislative Reference

Bureau, history and work, 337.
Mortgage taxation, 351.
Moth suppression, Massachu-

setts, 123.

Motor vehicles, laws, 336.
Movement for Budgetary Re-

form in the States, The, by

William F. Willoughby, 43.
Municipal administration, unoffi-

cial agencies for studying,

173-190.
Municipal Court, Cincinnati, 222,

223; Philadelphia, 218.
Municipal Court Act, Chicago,

226, 228.
Municipal government, see City

government.

Municipal home rule, 349.
Municipal reports, unit costs in,

189.
Municipal Research, 185.

National administration, official
agencies for investigating, 44-

National Bank Redemption

384

Agency, efficiency records in,
99, 102.

Naval Officer, Customs Service,
abolition of office of, 70.

Navy Department, organization
of, 99-100.

Nebraska Legislative Reference
Bureau, history and work,
337; publications, 338.

Negro education, Philadelphia,
215.

New England Cotton Manufac-
turers' Association, resolution
of, regarding government crop
reports, 75.

New Hampshire Legislative Ref-
erence Bureau, history and
work, 339.

New Jersey Bureau of State Re-
search, history and work, 163-
164; publications, 165.

New Jersey Economy and Effi-
ciency Commission, history
and work, 115-118; publica-
tions, 118-119.

New Jersey Legislative Refer-
ence Department, history and
work, 360; publications, 361.

New Jersey State Chamber of
Commerce, history and work,
162-164; publications, 165.

New Mexico Taxpayers Associa-
tion, work of, 1 66.

New South Wales, civil service
retirement in (1910), 97.

New York Board of Estimate
and Apportionment, history
and work, 301-304; publica-
tions, 305.

New York Bureau of Municipal
Research, history and work,
173-179; publications, 180-190.

New York Department of Effi-
ciency and Economy, history
and work, 128-130; publica-
tions, 131.

New York State Bill Drafting
Commission, history and work
of, 366.

New York State Commissioner
of Accounts, history and work,
206-207; publications, 208-209.

New York (State) Committee

INDEX

of Inquiry to Investigate the
Administration of the State
Government, history and work
of, 126, 127.

New York State Legislative Li-
brary, history and work of,

363-

New York State Legislative Ref-
erence Section, history and
work, 361 ; publications, 362.

New Zealand, civil service re-
tirement in (1910), 97.

North Carolina Legislative Ref-
erence Department, history
and work, 339; publications,
340.

North Dakota Legislative Refer-
ence Bureau, history and
work, 340; publications, 341.

Normal schools, Massachusetts,
123; Wisconsin, 290.

Office hours, uniform, Virginia,
156.

Ohio Institute for Public Effi-
ciency, 187; history and work
of, 167-169; publications of,
170.

Ohio Joint Investigating Com-
mittee, work of, 161.

Ohio Legislative Reference De-
partment, history and work,
341 ; publications, 342.

Oregon Consolidation Commis-
sion, history and work of, 159.

Oregon State Library, history
and work of, 363.

Organic law, Ohio, 342.

Organised Efforts for the Im-
provement of Methods of Ad-
ministration in the United
States, by Gustavus A. Weber,
43-

Over-age, in schools, Cincinnati,
221, 223; Dayton, 236.

Overtime, payment for, Boston,
199.

Oyster industry, 349.

Paper money, recovery of fiber

stock of cancelled, 99.
Park administration, New York

City, 1 80.

Park board, Minneapolis, 245.

Park governments, consolidation
of, Chicago, 226, 229.

Party nominations, abolition of,
Boston, 193.

Patent Law and Procedure of
Germany, England and United
States, 98.

Patent Office, investigation of,
97; publications of, 98.

Patrolman's manual, Philadel-
phia, 218, 220.

Paving, Dayton, 235 ; see also
Asphalt pavements, Brick
pavements.

"Pay-as-you-go" agreement, New
York City, 185.

Payroll control, Milwaukee, 239.

Payrolls, preparation and pay-
ment of, loi.

Pennsylvania Economy and Effi-
ciency Commission, history
and work of, 133; publications
of, 134.

Pennsylvania Legislative Refer-
ence Bureau, history and work
of, 343; publications of, 344.

Pension and retirement fund
commission, New Jersey, 165.

Pension systems, police, New
Jersey, 165; firemen's, New
Jersey, 165.

Pensions, Bureau of, business
methods of, 109.

Pensions, establishment of im-
proved system for payment of,
108-109; U. S. employees, es-
timates of immediate and ulti-
mate cost of, 107.

Petersburg (Va.) Bureau of
Governmental Research, his-
tory and work, 271 ; publica-
tions, 271.

Philadelphia Bureau of Munici-
pal Research, 187; history and
work, 213-218; publications,
219.

Plumbing inspection, Milwaukee,
206.

Pneumatic tube system, under-
ground, 99, 102.

Police department, Baltimore,

385

171; Chicago, 201, 203; Day-

INDEX

ton, 233; Minneapolis, 246;
New York City, 180, 181, 183;
Philadelphia, 218.

Police pension fund, New York
City, 183.

Police power, sanitary, Rhode
Island, 346.

Police surgeons, New York City,
210.

Positions, appointment to, made
by President with advice and
consent of Senate, 99; crea-
tion of, Pennsylvania, 134.

Presidential primaries, laws re-
lating to, 336.

President's Commission on
Economy and Efficiency, his-
tory and work of, 84-94; pub-
lications of, 94-103.

Press copy versus carbon copy,
96; legal aspect of, 98.

Primaries, 349.

Primary elections, 351.

Principles Governing the Retire-
ment of Public Employees, by
Lewis Meriam, 43.

Principles of Government Pur-
chasing, by Arthur G. Thomas,

43-

Printing, Westchester County,
N. Y., 275, 276; Boston, 197;
New York City, 210; Ala-
bama, 152; Illinois, 143; Iowa,
148; Massachusetts, 125; New
York State, 127; Wisconsin,
291; in other states, ,143.

Prison Control, Department of,
New Jersey, 117, 119.

Prisons, New York State, 131,
179.

Problem of a National Budget,
The, by William F. Willough-
by, 43-

Procter, Arthur W., ed. Stan-
dardisation of Public Employ-
ments, 1 86.

Promotions in consular service
(1912), 95.

Property department, Denver,
258.

Property returns, California,
287; U. S. government, 69, 71.

Proportional representation, 351.

Protection of birds, 349.

Public administrator, Denver,
258.

Publications, U. S. historical, 81,
82; of U. S. government, cen-
tralization of distribution of,

95, 96.

Public buildings and grounds;
Virginia, 156.

Public documents, Boston, 197,
Massachusetts, 296.

Public employees, political ac-
tivity of, Boston, 198.

Public employment, standardiza-
tion of, 1 86, 187; Milwaukee,
241 ; See also Salary standard-
ization.

Public examiner, office of, Colo-
rado, 154.

Public funds, custody of, Colo-
rado, 153.

Public health, Connecticut, 150;
inquiry regarding, New York
City, 182; administration of,
Illinois, 136, 142, 143; rela-
tion between state and local
authorities, Illinois, 143; ad-
ministration of, New York
and Wisconsin, 143.

Public Health Service, regula-
tions governing, 95 ; establish-
ment of as independent serv-
ice, 99.

Public lands, Michigan, 336.

Public Opinion and National
Economy, by R. Fulton Cut-
ting, 1 86.

Public printing, cost of, 75, 81.

Public property, returns from
lessees of, Dayton, 236.

Public records, care of, Massa-
chusetts, 123.

Public safety, Iowa, 148.

Public schools, see Schools.

Public service commission laws,
342.

Public surveys, improvement of,
70, 73-

Public utilities, control of, Colo-
rado, 154; New York and
Wisconsin, 342.

Public Welfare Department,
Dayton, 235.

INDEX

Public Works Department, Bos-
ton, 198; Philadelphia, 218;
Rochester, N. Y., 261 ; Illinois,

142, 143.
Purchases,

centralization of,

Philadelphia, 218, New Jersey,

118, 119.
Purchases of coal and wood, for

use by government, 69, 72.
Purchasing, Columbus, O., 169;

Minneapolis, 244; Toledo, 169;

Virginia, 156.
Purchasing agency, Alameda

County, Calif., 277.
Purchasing agent, municipal,

Baltimore, 171 ; creation of

office of, Iowa, 148.
Purchasing control, Massachu-
setts, 296.
Purchasing Department, Akron,

253; Alabama, 152; Dayton,

234; Milwaukee, 240, 241;

Springfield, 249.

Railroad Commission, Alabama,

152.

Railway co-employment, 351.
Railways, government control

of, in Great Britain, 357.
Rates of pay, no.
Recall, 351.
Receipts and disbursements,

methods of accounting for,

no.

Receipts and expenditures, Wis-
consin, 291.

Reclamation Service, The, 43.
Recorder's Office, Alameda

County, Calif., 277; Cook

County, 111., 228.
Recreation department, Boston,

198; Dayton, 234.
Recreation facilities, Toronto,

257.
Recreation survey, Milwaukee,

206.

Referendum, 342, 351, 352.
Reformatory, New York State,

131-
Refuse disposal, Boston, 198; by

incineration, Milwaukee, 205.
Registers and directories of U. S.

Government, 188.

387

Registry Department, Boston,
198.

Removal from office, Michigan,
336.

Reports, uniform system of sum-
mary, 100; of state depart-
ments, Illinois, 138.

Responsible Government, 186.

Retirement of superannuated
government employees (1912),
96.

Retirement system, Boston, 198;
firemen, Boston, 198, Dayton,
233; policemen, Dayton, 233,
New York City, 210.

Returns Office, Interior Depart-
ment, abolition recommended,
92, 96.

Revenue, sources of, Dayton,
232, Philadelphia, 219; collec-
tion of, Yonkers, 269.

Revenue administration, Illinois,

143.

Revenue Cutter Service, aboli-
tion recommended, 92, 96.

Revenues and disbursements, ac-
counting, auditing and report-
ing of, Colorado, 153, 154.

Revenues and loans, Massachu-
setts, 125.

Rhode Island Legislative Refer-
ence Bureau, history and work,
345; publications, 346.

Rochester Bureau of Municipal
Research, history and work,
260-261 ; publications, 262.

Roosevelt, President, 74.

Rural schools, Ohio, 235.

Safety Department, Denver,
258.

Salaries, executive departments,
83; arsenals and navy yards,
83; U. S. employees, in; Chi-
cago, 204; Yonkers, 268, 269;
Hudson County, N. J., 278;
Illinois, 135 ; Massachusetts,
120, 123; Pennsylvania, 134.

Salary standardization, 187; Ak-
ron, 253; Boston, 199; Chica-
go, 187; Cincinnati, 221; Mil-
waukee, 206; New York City,
182, 187, 303, 306; Philadel-

INDEX

phia, 217, 220; Pittsburgh, 187;
Massachusetts, 125, 296; New
York State, 178, 187; U. S.
Government, 78, 83, 101, in;
see also Public Employment,
standardization of.

San Francisco Bureau of Gov-
ernment Research, history and
work, 263-264 ; publications,
265.

Sanitary department, Boston,
197.

School district, Reading, Pa., 184.

School of medical inspection,
Philadelphia, 217.

Schools, Alameda County, Cal.,
276, 277; Akron, 254, 258; Bos-
ton, 197, 198, 200; Cincinnati,
223; Columbus, 169; Dayton,
237 ; Denver, 258 ; Detroit, 266 ;
Milwaukee, 240; New York
City, 181 ; Philadelphia, 216,
219; Toronto, 257; Michigan,
335; Nebraska, 338; Virginia,
157; district supervision of,
Boston, 199; expenditures for,
compared with other Ameri-
can cities, Boston, 200; spe-
cial departments in, Boston,
199; budget for, Chicago, 204;
rural, Wisconsin, 189.

Secretary of State, office of, Col-
orado, 154.

Senators, (U. S.) nomination
and election of, 342,

Service records, 101.

Service requirements, standardi-
zation of, New York City, 182.

Sewage disposal, Akron, 251.

Sewers, Chicago, 201 ; Dayton,
235 ; Detroit, 266.

Shell-fish commission, Connecti-
cut, 150; abolition of, New Jer-
sey, 116, 117, 118.

Shell fisheries, New Jersey, 117,
119.

Sheriff's Office, Cook County,
111., 228, 229; Philadelphia, 219.

Signal Corps, office of, handling
correspondence in, 98.

Sinking fund bonds, conversion
of, Massachusetts, 124.

Sinking funds, Boston, 197; Day-

388

ton, 235 ; New York State, 127,
185.

Snow removal, Rochester, N. Y.,
263.

Social service department, Ohio,
1 68, 170.

Social welfare department, Den-
ver, 258.

Soldiers' relief department, Bos-
ton, 198.

Solicitor of Internal Revenue,
office of, 70, 72.

South Dakota Division of Leg-
islative Reference, history and
work, 346; publications, 347.

South Dakota Joint Committee
on Investigation of State Ex-
penditures and the System of
Accounting and Reporting,
work of, 161.

Special assessments, accounting
system for, Chicago, 201.

Springfield Bureau of Municipal
Research, history and work,
247-248; publications, 249.

State administration, agencies
for investigating, official, 114-
161 ; unofficial, 162-166.

State and local administration,
unofficial agencies for investi-
gating, 167-172.

State Board of Contract and
Supply, New York State, 128.

State Board of Estimates, New
York State, 128.

State Constitution, New York,
187, 188.

State fairs, Iowa, 148.

State Forester, Department of,
Massachusetts, 124.

State Government from Point of
View of Administrative Law,
by Frank J. Goodnow, 186.

State government, organization
of, Alabama, 151 ; Connecticut,
149; Iowa, 147, 149; Kansas,
150; Louisiana, 157; Massa-
chusetts, 296; Minnesota, 144,
145, 146, 147; New York, 126,
127, 130, 131, 132, 177, 184-189;
Oregon, 159; Virginia, 155,
156; administration of, Colo-
rado, 152, 154, Texas, 158;

INDEX

work and financial administra-
tion of departments, Illinois,
135-138, 142, Massachusetts,
119, 123, Pennsylvania, 133;
cost of, Illinois, 332; consoli-
dation of departments, New
Jersey, 116, 118, 119.

State Highway Department, or-
ganization of, New York, 132.

State insurance, Virginia, 156.

State library, Illinois, 143; Ohio,
169.

State militia, business adminis-
tration of, Massachusetts, 123.

State police, Connecticut, 150;
New Jersey, 164, 165; New
York, 165; Pennsylvania, 164,
165; problem of, in America,
165.

Stationery, New York State, 127.

Statistical work, Bureau of In-
sular Affairs (1913), 98.

Statistics Department, Boston,
197.

Street railroads, valuation of,
Cincinnati, 223.

Streets, Akron, 252; Boston, 197,
198, 199; Chicago, 200, 201,
203, 228; Cincinnati, 220, 221,
223; Dayton, 232; Milwaukee,
240, 241 ; New York, N. Y.,
306; Rochester, N. Y., 261 ; To-
ronto, 256.

Subtreasuries, work performed
by, no, 112; plan to consoli-
date with federal reserve
banks, 112.

Subtreasury system, history of,
112.

Suffrage laws, Rhode Island, 346.

Superannuation of civil service
employees, U. S. Government
(1908), 80, 82.

Supervising Architect's Office,
reorganization of (1895), 70,

73-

Supervisor of Administration,
Massachusetts, creation of of-
fice of, 122.

Supplies, purchase of, U. S. Gov-
ernment, 68, 71, 76, 82, 100;
Westchester County, N. Y.,
274, 275, Boston, 199, for

389

schools. New York City, 210,
institutional, Maryland, 171,
office, New York State, 127;
standardization of, Cincinnati,
221, New York City, 305, Illi-
nois, 135, 143.

Surety Bonds, elimination of, Co-
lumbus, O., 169.

Surgeon General, Office of, hand-
ling correspondence in, (1913),
98.

Surveys, scientific, Illinois, 143.

Swamp lands, drainage and recla-
mation of, Indiana, 332.

System of Financial Administra-
tion of Great Britain, The, by
Wm. F. Willoughby, Westel
W. Willoughby, Samuel Mc-
Cune Lindsay, 43.

Taft, William H., President's
Commission on Economy and
Efficiency created by, 84-85;
The Federal Government as an
Example, 186.

Taxation, Westchester Co., N.
Y., 274, 275; Akron, 254; Bos-
ton, 199; Dayton, 237; Marion,
169; Milwaukee, 239; Michi-
gan, 336; New Jersey, 117, 119;
Pennsylvania, 344 ; Virginia,
349; of trust companies, 351.

Tax commission, Colorado, 154.

Tax revision board, 217, 220.

Teachers' Pension Systems in
the United States, by Paul Stu-
densky, 43.

Teachers' retirement systems,
New Jersey, 165.

Telephone service, Cincinnati,
221 ; interdepartmental, 75, 82.

Tenement house inspection, Phil-
adelphia, 217.

Tenement house legislation, 351;
New Jersey, 118, 119; New
York City, 181.

Tennessee State Budget Commis-
sion, history and work of, 298.

Texas Joint Legislative Inves-
tigating Committee, history
and work, 158; publications,
158.

Texas Legislative Reference Sec-

INDEX

tion, history and work, 363;
publications, 364.
Text-book laws, state, digest of,

Text-books, cost of providing,
New York State, 130, 131.

Titles, standardization of, New
York State, 178.

Toledo Public Research Bureau;
Toledo Commerce Club, his-
tory and work of, 266.

Toronto Bureau of Municipal
Research, history and work,
255-256; publications, 257.

Torrens system, New York City,
184; Nebraska, 338.

Town government, organization
of Hempstead, No. Hempstead
and Oyster Bay, N. Y., 183.

Township laws, Pennsylvania,

Traction ordinance, Cincinnati,
223.

Trading with the enemy, 356.

Training for municipal service,
1 86.

Training for public service, 186,
189; Akron, 252.

Training School for Public Serv-
ice, 175.

Transfer of flag, 356.

Transportation accounts, govern-
ment employees, 77, 82.

Travel expenditures, government
employees, 96.

Treasurer, office of, Colorado,
154; Cook Co., 111., 225, 228,
229.

Treasury Department, commis-
sion on business methods in,
61, 64.

Trees, Dayton, 237.

Tuberculosis, 349, 352.

Tuberculosis Commission, Con-
necticut, 150.

Twelfth census report on agricul-
ture, 76, 82.

Typesetting machines, purchase
of, 74, 81.

Unemployment, Akron, 252.
Unexpended balances, New York
State, 127.

University of Wisconsin, 290.

U. S. executive departments, bus-
iness methods of, 107.

U. S. executive departments and
other government establish-
ments, laws organizing and
regulating compensation and
employment, etc., 71.

U. S. government, business con-
ditions in executive depart-
ments, 72; organization of, 95,
96, 1 01 ; methods of appoint-
ment in, 95; accounting sys-
tem, 96; business methods, 99,
107.

U. S. Treasury, law organizing
accounting offices, 96.

Vacation allowances, Massachu-
setts, 123.

Vacations, laborers, Boston, 199.

Vagrancy, laws relating to,
33<5.

Vermont Legislative Reference
Bureau, history and work, 347;
publications, 348.

Veto power, Nebraska, 338; in
the states, 346.

Virginia Commission on Econo-
my and Efficiency, history and
work, 154; publications, 156.

Virginia Legislative Reference
Bureau, history and work, 348 ;
publications, 349.

Vital statistics, Philadelphia, 217.

Vocational education, Boston,
200.

Voting, compulsory, 342; absent,
342, 356.

Voting machines, Chicago, 228,
283.

Wages, exemption of, 351.

War Department, business meth-
ods, 61, 64.

War equipment, outline for clas-
sification and codification of,
99.

Ward organization, Milwaukee,
239; Minneapolis, 245.

Warrants, U. S. Treasury, pro*
posed change in form of, 72.

Warwick, Walter W., mem-

390

INDEX

ber, President's Commission on
Economy and Efficiency, 86.

Waste paper, recovery of in U. S.
government, 99.

Water mains, Yonkers, 268, 269.

Water pipes, electrolysis of, Chi-
cago, 228.

Water rates, Akron, 252.

Water resources, administration
of, Illinois, 143.

Water revenues, collection of,
New York City, 180.

Water supply, Akron, 251, 255;
Boston, 197, 198, 199; Chicago,
201, 228, 230; Dayton, 232, 236;
Milwaukee, 206; Yonkers, 269.

Weights and measures, Balti-
more, 171; Dayton, 233; Phil-
adelphia, 216.

Westchester Co., N. Y., Research
Bureau, history and work, 272-
274; publications, 275.

West Virginia Legislative Refer-
ence Section, history and
work of, 349.

Widows' pensions, New York
State, 188; North Dakota, 341.

Willoughby, William F., member,

President's Commission on
Economy and Efficiency, 86;
System of Financial Adminis-
tration of Great Britain, 43;
Problem of National Budget,
43; Movement for Budgetary
Reform in States, 43.

Window envelopes, use of, 95, 96.

Wisconsin Legislative Reference
Department, history and work
of» 35° J publications of, 351.

Wisconsin State Board of Public
Affairs, history and work of,
288, 289; publications of,
290.

Workhouse, Akron, 252; Dayton,

234-

Workmen's compensation, 342 ;
Illinois, 331; New Jersey, 164;
Rhode Island, 346.

Workmen Compensation Com-
mission, Connecticut, 150.

Wyoming Bill Drafting Commit-
tee, history and work of, 371.

Yonkers Bureau of Municipal
Research, history and work,
267-268; publications, 269.

(1)

391

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