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ADMINISTRATIVE REORGANIZATION
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1228
.A15
1915
ADMINISTRATIVE REORGANIZATION
AND CONSTRUCTIVE WORK IN
THE GOVERNMENT OF THE
CITY OF NEW YORK (City) Bureau of cetery
chamillain
22 cora
1914
HENRY BRUÈRE, Chamberlain
MAY, 1915
CONTENTS
..''
.........
......................................
............
.........
Letter of Transmittal ............
Reorganization of the Chamberlain's Office............
Reorganization of the Office of the Commissioners of Accounts.....
Reorganization of the Board of Estimate and Apportionment........
General Survey of Departments.....
Studies in the Department of Public Charities............................
Administrative Changes Effected in the Tenement House Department.......
Futhering the Completion of the Departmental Accounting Reorganization..
Preparation of the 1915 Budget.....................
Centralization of Administrative Services............................
Centralizing the Preparation of Payrolls.
Centralizing the Purchasing Service for the Mayor's Departments.......
Centralizing Building Inspection........
Centralizing Automobile Service......
Centralizing Telephone Service.........
Coal Economies ........
School Studies ............
Lighting Bureau-Department of Water Supply, Gas and Electricity.
Study of Municipal Employees' Pension Systems..
Welfare Program for City Employees.......
Employees' Conference Committee .........
Educational Courses for Employees..........
Lunch Room for Women...
Distribution of Space in the Municipal Building.......
Publicity of City Facts.
Municipal Reference Library...........
Standardizing Departmental Reports........
Vacation and Absence Rules............
Study of County Government. ........
Program for Public Recreation.......
Study of Park Privileges....
Program for City Legislation.................
Study of Gary Plan and Vocational Education.........
Study of East Side Evictions..........
Study of the Unemployment Problem.......
New York City's Exhibit at the Panama-Pacific Exposition......
Charter Revision .....
Conclusion .........
...........
...
...
....
..............
...........................................
................................
..................................
33
chaps more Iministrative administrati
Gero
HON. JOHN PURROY MITCHEL,
Mayor of the City of New York.
Sir:
This report relates to work done under my supervision in 1914, ,
assisting you in respect of various administrative problems in the city
government. Perhaps more than three-quarters of my time has been
devoted to these general administrative undertakings. It was the
opportunity to assist in improving the administrative practices of
the city government that was the occasion of my appoinment to the
office of chamberlain. Your purpose has been to make the chamber-
lain a general administrative assistant to the mayor, inasmuch as
under proper organization the statutory duties of the chamberlain's
office require comparatively little of the incumbent's time.
I am making this report not so much to record completed under-
takings as to advise you of the progress being made on the work that
you have committed to me, and to emphasize some of the general ad-
ministrative problems with which we are dealing.
Above everything else, American city government needs con-
structive and continuous attention to the program and method of
administration. It is only recently that administration and service
have taken the place of politics and spoils as the prinicpal concern
of the average American municipality. New York is no exception in
this regard though notable improvements have been made in re-
cent years in the methods of government in New York City.
The least progress, perhaps, has taken place in those general
features of government which may be described not in terms of
service such as health or educational activities, but in terms of
management. In New York, general administrative responsibility
has been vested in elective officers whose principal functions,
heretofore, have been of a political character. These political
duties, consisting of interpreting the public will and repre-
senting the government in its relation to citizens, are of greatest
importance, but they do not directly affect the economy and efficiency
of administration. Brevity of terms in office, lack of professional
assistance and defective charter organization have made it less the
part of the mayor to plan and to organize the processes of city gov-
ernment than is usually expected of the executive head of a great
corporation.
Traditionally, the mayor of the city of New York is held re-
sponsible for the character of city government. Notoriously, he has
been without contact with the details of city administration and with-
out equipment to advise him of the current progress of their per-
282955
nIT
formance or information to enable him to direct intelligently the
course of government activities.
Administrative responsibility has been departmentalized and hence
responsibility for results and the method of accomplishing them has
been delegated to heads of departments. This has been the case
despite the fact that many of the problems of administration are not
restricted to specific departments, but relate to all or to groups of
them. Upon the solution of these problems, moreover, depends in.
large degree the effectiveness of service and economy of operation.
From your extensive experience in city affairs you have long
appreciated this defect in the structure and method of the city gov-
ernment. It was clear to you that so great an institution as the
government of New York could not be efficiently managed under a
plan of executive organization practically unchanged since colonial days.
From my own daily contact of ten years with problems of municipal
administration, and in particular with the government of this
city, I have long believed that the lack of executive organiza-
tion and equipment was the chief cause of ineffective city government
in New York City, for no great enterprise can be efficiently conducted
without an efficient co-ordinating head.
For upbuilding an efficient government there was no more im-
portant requirement, when you took office, than the development of
genuine administrative leadership and effective control in the
mayoralty.
The structure of New York City's government and the distribu-
tion of its functions and responsibilities do not make easy the working
out of a plan of efficient central management. The mayor is bur-
dened with a variety of tasks and responsibilities other than those
relating intimately to the management of city business, and while he
is expected to be the dominant and controlling influence in the admin-
istration of the city, the mayor's office has heretofore been completely
devoid of organization to accomplish this purpose. The single excep-
tion is the office of the commissioners of accounts, which until now
had been used almost exclusively for purposes of investigation, in-
terrogation and chastisement, and not as a means of directive and
constructive planning of administrative work.
I have attempted in this first year, by utilizing the staff of the
commissioners of accounts and such special temporary staffs as have
been made available for particular pieces of work, to build up a
method and program of administrative leadership. One of my early
recommendations that a division of administration be established in
the mayor's office, in substitution for the commissioners of
accounts, could not be put into effect without the approval
of the legislature, and this has been twice denied. There still re-
mains, therefore, a lack of organic identification of the mayor's office
with the work that has been performed under the program committed
to me. Ultimately, such work as I have done should be carried on
either by a city manager or a reconstructed office of mayor. No
delusion is more persistent than the general superstition that an exec-
utive can guide a great institution such as the city of New York
merely by the force of personality and by the authority of official
position. To plan intelligently and to guide wisely and constructively
the program of service carried on by the city of New York require the
same kind of facility for executive intelligence and control as is pro-
vided the chief working officer of a comparably great private cor-
poration.
The departments of the city government are each great business
institutions, and the means by which they carry on their services are
in many respects similar. All must obtain and organize employees,
all must purchase supplies, maintain equipment, plan methods of
control over work, and many of the departments require the same
technical and expert services, notably engineering service. A simple
illustration of the similarity of business responsibility in the several
departments is the fact that ten departments under your con-
trol have buildings to maintain and are themselves responsible for
the construction of new buildings for their own purposes. In one or
two respects the wisdom and economy of centralizing such services
has long been recognized, as in the selection of employees through
a single civil service commission serving all departments. But there
had never been provided for the city government any central means
of business planning and organization apart from the supervision of
accounting processes, which is the function of the comptroller.
Accordingly, the first vigorous steps taken to introduce modern
business methods in New York City's government were taken in
the department of finance with regard to the financial and accounting
reorganization of the city. In many respects the department of
finance has served to stimulate to better practices other branches of
the city government through budget-making and otherwise. But it
to serve as the business and administrative aid to the departments
charged with the management of the city's affairs. In a limited
sense, I have attempted to supply this need. It must ultimately be
supplied by a thoroughly well-organized agency of central admin-
istration, in which should be brought together a number of the special
divisions already organized for advisory service.
This first year's work was very largely preparatory and much
of it experimental, though many of the problems dealt with are prob-
lems for which solutions have already been found in private manage-
ment. No attempt has been made to organize along permanent lines
a general department of administration. The chamberlain's office
has no authority to exercise these functions, and it would not be
feasible for it to do so. This, however, is what the government of
New York needs, and the lack of an adequate and authoritative
organization has naturally retarded the execution of constructive
work.
The present city government, pledged as it is to a business admin-
istration, recognizes what taxpayers and citizens generally must come
to recognize,—that an enlightened business administration cannot be
achieved by any arbitrary exercise of superior judgment, virtue or
intelligence, but can only be brought about in a general sense by the
slow upbuilding of new habits and methods of carrying on city busi-
ness, much of which still bears the impress of slovenly political
practices.
In this first year I have dealt with five general groups of prob-
lems in addition to reorganizing and administering the chamberlain's
office.
The first group consists of detailed surveys of the existing or-
ganization and methods of city government heretofore unrecorded and
perpetuated from administration to administration in most part in the
minds and habits of the permanent working staff of the city govern-
ment. The object of these surveys was not only to obtain the facts for
purposes of information, but to lay the basis for constructive re-
organization and improvement of methods.
The second group consists of studies of special departmental prob-
lems as a means of assisting the mayor or the head of a department
in carrying out reorganization plans and executing efficiently new
programs established at the beginning of the administration. The
studies of the tenement house department and the department of
public charities problems, and the plan for reorganizing the board of
estimate, are illustrations of work done under this heading.
The third group of problems relates to the organization of
central agencies to perform, under central control, services required
by a number or all of the city departments. Examples of these are
the organization of central bureaus for purchasing and payroll prepa-
ration.
The fourth group relates to the investigation of special matters
and the performance of advisory services in respect of the preparation
of the budget, requests for revenue bonds and to incidental depart-
mental matters of various kinds in which I have acted as the agent
of the mayor.
The fifth group relates to general, social and community ques-
tions such as municipal pensions, unemployment, recreation, and the
preparation of the city's exhibit for the Panama-Pacific Exposition.
Many of the tasks performed by me do not fall in any of these
groups, but are of an advisory or confidential character in response
to specific requests from you.
Since, in reporting to you on the reorganization of my office I
recommended merging the office of chamberlain with the department
TO
of finance, the impression has no doubt prevailed in some quarters
that the office of Chamberlain does not provide adequate opportunities
for service. I hope the following report will serve to remove such an
impression in part, at least, should it exist.
Respectfully submitted,
HENRY BRUÈRE,
Chamberlain.
New York, May 15, 1915.
ADMINISTRATIVE REORGANIZATION AND CONSTRUCTIVE
WORK
Reorganization of the Chamberlain's Office
I have already reported to you in detail on the reorganization of
the chamberlain's office, a matter which received my first attention.*
In this work, as in all other administrative changes, I was greatly
helped by the cordial co-operation of the department of finance under
the comptroller's direction. This working together of the administra-
tive departments with the department of finance illustrates the advan-
tages of applying a business principle to municipal administration in-
stead of the political principle of independent and mutually exclusive
jurisdiction of departments under separate elective officers.
Historically, the department of finance, having jurisdiction over
financial matters, had developed into an investigative and corrective
agency rather than as an advisory and co-operative agency. With the
whole government committed to the adoption of business methods,
the way was opened to establishing harmony of action between the
finance department and the departments under the jurisdiction of
the mayor, with mutual observance of a common business program.
Reorganization of the Office of the Commissioners of Accounts
From your own experience in the office of the commissioners of
accounts, and in conformance with the policy adopted by Mayor Gay-
nor, you determined to substitute a single commissioner for the dual
headship of this office. During the first month of your administra-
tion I made a survey of the office and submitted to you a report which
was then published, recommending the establishment, in place of the
office of commissioners of accounts, of a division of administration to
be a part of the office of the mayor. The purpose of this recommen-
dation was to make available to the mayor an agency for maintaining
day by day contact with the great multitude of administrative matters
committed to the departments under his jurisdiction and for which,
in the last analysis, as chief executive of the city, he is responsible.
It was sought to transform the office of the commissioners of ac-
counts from merely an agency of investigation, bringing to light ir-
regularities and mismanagement, into an instrument for preventing
*See report "The Reorganization of the Office of Chamberlain," 1914.
irregularities and for assisting in establishing proper methods of man-
agement. In other words, in addition to continuing the office as the
"mayor's eye" we undertook to make it an instrument in his hands for
rebuilding the structure and reordering the practices of the depart-
ments responsible to him. The personnel of the office was changed in
part, and men with special qualifications for administrative investiga-
tion and constructive work were appointed in place of incumbents
unfitted for work of this character.
The legislature refused to pass the bill creating a division of ad-
ministration. You accordingly appointed, on June 8, 1914, a commis-
sioner who has since then been in charge of the office, and who has
generously made members of his staff available to me, as required.
est volume of work in its history. It submitted 193 reports to the
mayor, and 217 reports to the chamberlain on specific studies or
investigations made at his request.
Reorganization of the Board of Estimate and Apportionment
During Mayor Gaynor's administration, the board of estimate
and apportionment for the first time undertook to exercise adequately
its powers of appropriation. Theretofore, in all financial matters, the
board acted almost exclusively on the recommendation of the comp-
troller. The first fusion board of estimate, which took office in 1910,
established a committee of its members on the budget and instituted
several inquiries into the administrative problems of the city gov-
ernment in order to secure information for intelligent appropriation.
To control the vast appropriations for supplies,* the board
prescribed as a condition to every expenditure that the purchase of
supplies should be made under standard specifications, as such spec-
ifications were formulated and promulgated by the board. Similarly,
to provide the basis for intelligent fixation of salaries, which is pre-
eminently a function of the board of estimate, there was instituted
an inquiry into the salaries and wages paid by the city government
and the character of work done by employees, with a view to providing
a standard plan of compensation.
Another considerable item of expenditure over which the board
began to assume some control during the first fusion administration
was that for public improvements payable out of corporate stock.
It was the first board to establish a corporate stock budget in which
* About $15,000,000 in 1914.
† These undertakings were instituted by the board in 1910 pursuant to recom-
mendations made by the Bureau of Municipal Research, of which I was then
director. During the four years of the so-called fusion board's work, it had been
my privilege to keep in close touch with this work and to be advised of its
were brought together the various corporate stock authorizations.
During 1911 the practice was instituted of authorizing corporate
stock with the proviso that plans, specifications and estimates of
cost must be approved by the board of estimate before bids were
advertised for, in order that the board might check requests for
authorizations in the light of actual proposals to expend them. In
all of these matters you, the comptroller, and the president of the
board of aldermen had taken an active part.
At the beginning of 1914, at your request, I submitted to
you a plan for the establishment of agencies under the jurisdiction
of the board of estimate to continue this work in a systematic man-
ner. My recommendations were submitted by you to the committee
on organization of the board consisting of the mayor, the comptroller,
and the president of the board of aldermen, and after review were
recommended by them to the board as a whole and were subsequently
adopted. They entailed the continuance of the three old bureaus of
the board (records and minutes, public improvements, and fran-
chises), the establishment of new bureaus of contract supervision,
and of standards, and a plan for the permanent organization of the
board into standing committees to have charge of the principal rou-
tine and special work committed to it.
A committee on city plan was included among the standing com-
mittees of the board to systematize the authorizations of public im-
provements which constitute a large part of the board's work, and to
correlate them to a definite plan for the development of the city.
To make more efficient the relationship of the board of estimate
and apportionment to the board of education, and to utilize the results
of the school inquiry conducted in 1913, a standing committee on
education was provided.
. Similarly, a committee on social welfare was organized to continue
the work of the health and hospital inquiry committee and to deal with
questions relating to the social welfare departments coming before the
board of estimate and apportionment.
The bureau of standards, during the past year, has pushed for-
ward the work of salary standardization, and the results of its in-
vestigations were applied in the 1915 budget to several depart-
ments under your jurisdiction. The bureau of contract supervision
has been of notable service in regulating expenditures under con-
tracts and in the preparation of the 1915 budget.
This committee reorganization, by which sixteen standing com-
mittees were substituted for the approximately fifty major com-
mittees, and innumerable sub-committees on routine matters, ap-
pointed from 1910 to 1913, inclusive, has resulted in the simplifica-
tion and consequently in the more orderly performance of the board's
work, and has made the members a virtual board of directors of the
municipal corporation.
7
NY
DEPARTMENT OF HEALTH.

Promoting
Public Health.
(Sect./167-1325)
Charter
BOARD OF HEALTH
COMMISSIONER COMMISSIONER HEALTH OFFICER
POLICE DEPARTMENT PORT OF
DEPARTMENT OF HEALTH NEW YORK
Executive
Control
of
Department
Activities
COMMISSIONER
DEPUTY COMMISSIONER
Correspondence
Records, Payrolls
Audit and Accounts,
Legal Prosecution
Purchase of Stores
Supplies Store heco
Registration,
Diagnosis, Super
Vision, Care and
Prevention of all
Vnfectious Diseases
vi mend animals,
Laboratory Work
Research Diagnosis
Chemical & Vaccine.
Wing, Care of Bahn
Extermination
etc..
ERREAU OF
BUREAU OF
INFECTIOUS DISEASES
(599)
ENERAL ADMINISTRATION
(192)
SANITARY BUREAU
(132)
18240 0
LABORATORIES
(156)
Inspecting oras
Recording and
Reduction of
Supervision of Midwives
Infant Mortollit
<Care and
Treatment of
patients
Contagious Diseases
and Pulmonary
Tuberculosis
Cases.
Conditions where
Foodis Manufactured
(Certificates.
of physicians, Nurses,
Mid vives, undertakers
etc. Searches and Tran
scripts of Records
Distributing
Information through
Literature, Lectureset.
The Public Htatthi Hugina
for Popular Education:
Organizing Public
Privalt Cooperation
with Department
Harboring Dependent
Children Vaccination &
Medical Examination of
School Children./ssum
Ving of Employment
Certificates.
.
BUREAU OF HOSPIT ALS
(1103)
BUREAU OF FOOD
INSPECTION
" 7150)
BUREAU OF RECORDS
(50)
BUREAU OF PUBLIC
HEALTH AND EDUCATION
(8)
BUREAU OF CHILD
HYGIENE
1664)
Total Force 3054
Personal Service 2372320,50
#3423492.22
Numbers denote employees in divisions.
Appropriation 1915
| Jan./1915
CHARTN05
Prepared by
COMMISSIONERS OF ACCOUNTS.
O
General Survey of Departments
There was not available to you, or to the various department
heads when you took office, accurate knowledge of the internal or-
ganization of the departments, of the exact duties they were required
to perform or were actually performing, of the procedure followed by
them in the performance of their work, of the distribution of per-
sonnel, or of the duties performed by the various employees. Diagram-
matic organization charts had been prepared for certain departments
by the committee on salary standardization, but these were not com-
plete, comprehensive, nor generally available to department heads.
Accordingly, in pursuance of your general plan of reorganization,
I began early in the year to have prepared by the commissioners of
accounts for every department under your jurisdiction complete, de-
tailed charts showing the organization, distribution of functions,
personnel, and a description of the duties performed by each member
of the working force. This analysis was intended to serve a two-fold
purpose: First, to put into the hands of department heads information
to assist them in their organization studies, and second, to have
available for your use a record of existing organization upon which to
base all subsequent changes and to work out recommendations for
improvement. These charts are being systematically revised and kept
up-to-date so that they at all times reflect the organization of depart-
ments. They furnish information regarding the structure and duties
of the various departments of the city government more compre-
hensively than has ever before been available to administrative of-
jicials.
As a part of this survey you instructed your department heads
early in March, 1914, to make a thorough study of their departments
and to submit to you their recommendations for economies to be ef-
fected by reorganization. Pending these studies, no detailed inves-
tigations were made by me of the procedures of the various depart-
ments, except in special instances. Since that time, however, nu-
merous studies have been made of specific administrative questions
with a view to remedying known defects and reporting to you sug-
gestions for improvement. These studies were made through the
office of the commissioners of accounts, and up to January 1, 1915,
covered over 100 administrative subjects.
Studies in the Department of Public Charities
More detailed studies have been made of several departments.
Thus, on the invitation of the commissioner of public charities, a
thorough investigation was undertaken of the business methods of
that department. The results of these studies are currently placed
in the hands of the commissioner, and plans for correcting defects
are worked out in conference with him. This work of reorganization
11
is in every case performed by the commissioner himself, my work
consisting merely in supervising the investigation and conferring
upon the recommendations predicated on it.
Administrative Changes Effected in the Tenement House Department
At the request of the commissioner an investigation of the
office practices of the tenement house department was made and
recommendations submitted which effected a reduction in the budget
of 1915 of $54,560.60 below the 1914 appropriation. As a result
of this study it was found that there was needed in this depart-
ment a man skilled in office administration to have charge of the
voluminous clerical and statistical work which the business of this
department requires. Accordingly, the investigator assigned by me
to make the preliminary studies has been added to the staff of the
tenement house department to complete the work of reorganization
under the supervision of the commissioner.
Furthering the Completion of the Departmental Accounting Reorgan-
ization
Prior to my coming into office, I had intimate contact as director
of the Bureau of Municipal Research with the reorganization of the
city's accounting methods. One part of this reorganization provided
for the establishment of uniform accounting methods in the various
operating departments, the installation of expense and cost records
which would reflect the cost of specific functions or activities, and the
installation of modern accounting devices to control departmental
stores and equipment.
This most important task had never been completed, owing to
the lack of effective co-operation between the mayor's departments
and the department of finance. Great sums of money had been ex-
pended by the department of finance and by the Bureau of Municipal
Research in effecting partial installations; but in respect of cost, ex-
pense and stores records, no considerable progress had been made.
These records, which are so essential to efficient administration, re-
ceived our early attention.
In February of last year I began an examination into the status
of this installation in the departments under your jurisdiction, and
took steps to obtain from them the fullest co-operation with the comp-
troller in completing this work. Conferences were held between the
accountants of the departments and representatives of the depart-
ment of finance and the way prepared for effective co-operation.
Wherever necessary, special assistance was given to the departments
to complete the installation, with the result that on January 1, 1915,
expense accounting was in operation in the following departments:
12
Health
Public charities
Correction
Fire
Street cleaning
Docks and ferries
Bridges
Water supply, gas and electricity
Parks—Manhattan and Richmond, Brooklyn, The Bronx, Queens
Bellevue and allied hospitals
Armory board, national guard, and naval militia
The accounting reorganization is not, however, completed. The
problem is a very difficult one, because of the number of offices and
the vast scope of their operations. As now constituted, each depart-
ment maintains its separate accounts, these being reconciled with the
central accounts maintained by the comptroller by means of monthly
reports. The purpose of these departmental accounts is two-fold:
First, to maintain an exact record of the appropriations and liabilities
of the department in order that appropriations may not be exceeded,
and second, to reflect the cost of operation as a guide to administra-
tive judgment.
All of the information contained in the financial accounts kept
by departments is also contained in the financial accounts kept by the
comptroller. Originally, the comptroller's accounts were designed as
a check upon the departmental accounts, both systems being con-
ducted along single entry lines. Under the present double entry sys-
tem it is unnecessary for the accuracy of either the departments' or
the comptroller's accounts to maintain them separately. Now that
the majority of the departments are housed in the same building with
the department of finance, it will be feasible to discontinue the finan-
cial accounts maintained by departments and to keep only those main-
tained by the department of finance, necessary financial information
being reported periodically to the departments from the comptroller's
office as requirements determine.
Accordingly, after receiving an opinion from the corporation coun-
sel that the procedure would be in conformance with the charter, I
recommended to the comptroller that the purely financial accounts
maintained by the departments under the jurisdiction of the mayor
now housed in the Municipal Building be discontinued, and that
the comptroller's office be made the source of accounting infor-
mation. This recommendation the comptroller approved in principle,
and has given instructions to his deputy to execute. When the change
is accomplished, material economies will result and a more business-
like condition prevail. Moreover, there will no longer exist the diffi-
culty of keeping all the departmental accounting practices up to the
standard established by the department of finance.
13.
Preparation of the 1915 Budget
My budget work during 1914 was along two lines: First, as your
representative in the preparation of the executive budget, and second,
as a member of the board of estimate and apportionment's sub-com-
mittee on the tax budget.
As a means of aiding the departments in preparing their esti-
mates for 1915, we analyzed the recommendations made by the
examiners of the finance department in reference to departmental
estimates in the year 1913 for the 1914 budget, together with a
summary of the reasons for the disallowance of requests. These
analyses were submitted to department heads in order that in fram-
ing their estimates for the new year they might build upon the ex-
perience of the previous year of which most of them had no personal
information.
In July, you directed the departments under your jurisdiction
to submit for your review all budget estimates prior to their submis-
sion to the board of estimate. This was a new step in the history of
budget-making in New York City. Formerly, each department had
submitted an estimate of its requirements to the board of estimate
irrespective of the demands of other departments. The result of this
practice was confusion and extravagance. There was no co-ordinated
financial program for the executive departments. There was an ex-
cessive demand for funds, both in the aggregate and in respect of
particular functions, out of proportion to the city's financial ability
and without regard to the relative needs of one department as against
another. Under this free-lance plan of budget preparation it was
obviously impossible for the mayor, as chief administrator, to present
a definite program of expenditure and to maintain control over the
proposed activities of his departments.
In 1914, as each departmental estimate was received,
it was reviewed by me as carefully as the staff and time at my dis-
posal permitted. Where requests were made for increases, specially
thorough examinations were conducted. In cases where departments
asked for less money for 1915 than they were allowed for 1914, no
examination was made, the theory being that further economies could
be brought to light only by such systematic investigation as would
later be conducted by the budget agencies of the board of estimate,
and for which I had neither time nor assistants available.
The aggregate requests of the mayor's departments, as received
by you, totalled $63,441,322.37. As finally submitted by you to the
board of estimate after my review, they aggregated $60,924,057.69.
Subsequently, further marked reductions were made in the estimates
of several departments as a result of the studies of the board of esti-
mate's agents and through further attention to the details of requests
by department heads themselves. It must be borne in mind that in
14
most cases the commissioners in submitting their requests in July
did so on only six months' acquaintance with their departments, a
period which had necessarily been devoted in large degree to prelim-
inary reorganization and to the formulation of programs. The subse-
quent reductions made by the board of estimate staff were based not
only upon the examination of this year's 'budget, but upon detailed
experience with departmental business acquired through successive
years of study. I say this not in any way to detract from the credit
which is due to the staff of the board of estimate for its excellent
work on the 1915 budget, but to make clear that the disposition of
the mayor's departments, as well as of the mayor himself and his rep-
resentatives, was to bring the budget requests for 1915 within the
lowest limits compatible with efficient service.
This preliminary budget study required practically my entire
time for the months of July and August. In the latter part of August
hearings on the budget were begun by the sub-committee of which
I was a member, and these continued during the months of Sep-
tember and October. The result was that the budget for the mayor's
departments in 1915 aggregated about $1,500,000 less than for 1914.
Centralization of Administrative Services
From an administrative standpoint some of the most important
studies which I have conducted during the past year relate to the
centralization of certain services which are required generally by de-
partments under the mayor's jurisdiction. The functions of payroll
preparation, purchasing, building inspection, the city's automobile ser-
vice and the telephone service, all needed close and careful study with a
view to placing their operation upon a basis more compatible with
good business practice. The common housing of the mayor's depart-
ments in the Municipal Building has brought into sharp relief the
duplication of certain administrative and clerical functions which
may feasibly be provided through a common agency for all depart-
ments.
The following is a report of progress made in these studies. Even
though the work which is here reported on is still in the experimental
stage, it has already fully justified itself in results achieved and the
promise of evolution from decentralized, individual departmental ac-
tivity into co-ordinated, centrally controlled service for the entire
government.
Centralizing the Preparation of Payrolls
Conspicuous among services required in all departments and
feasibly performed by one agency for all is the preparation
of payrolls.
15
During 1910, Borough President McAneny in reorganizing his
office, with the co-operation of a staff of the Bureau of Municipal
Research, had established a central payroll division for his entire
department in place of the existing five separate payroll offices. In
the department of water supply, gas and electricity the payroll
procedures had been greatly simplified by the installation of mechan-
ical appliances.
Therefore, in June, 1914, I assigned an examiner to determine
to what extent economies could be effected by a similar centralization
of payroll preparation in the departments under your control, as well
as to learn the feasibility of the general substitution of mechanical
appliances for handwriting in the preparation of the payrolls them-
selves.
As a result of this study we began, on January 2, 1915, the cen-
tralization of payroll preparation for the departments of finance,
water supply, bridges, commissioners of accounts, chamberlain, and
the board of city record. On request, I obtained the services of Mr.
J. H. Clowes of the Bureau of Municipal Research, who is unusually
able as an organizing accountant, to supervise this work for us.
Shortly afterwards it became apparent that the whole problem
of payroll preparation was closely allied to the actual payment of
salaries and wages by the paymaster, and that the department of
finance would be the proper place to centralize this work, following
the suggestion previously made for centralizing in that department
all accounting processes. This has therefore been done, and clerks
expert in payroll work have been detailed from certain of your de-
partments to this central division now located in the department of
finance. Mr. Shepard Morgan, secretary of the department of finance,
has worked with Mr. Clowes in effecting the changes involved in es-
tablishing a central payroll division. The results accomplished are
the product of co-operation between the several departments under
the mayor and the department of finance, and the Bureau of Municipal
Research.
This work has progressed rapidly and the following departments
are now served by the central payroll division:
Finance
Water supply, gas and electricity
Tenement house
Bridges
Correction
Health
Law
Parks—Manhattan, Richmond, Brooklyn, The Bronx
*Public charities
Docks and ferries
* The payroll work of this department has not yet been centralized completely.
16
*Street cleaning
Licenses
Bureau of weights and measures
Municipal civil service commission
Board of assessors
Board of city record
Board of parole
Office of commissioners of accounts
Office of the chamberlain
Office of the mayor
Retired city employees
The economies effected to-date are as follows:
The cost of payroll work in all of the above departments, based
upon the percentage of time formerly devoted to such work, was
approximately $48,500 per annum. The cost of doing this work after
centralization, calculated upon the same basis, is approximately
$13,000 per annum. This saving of over $35,000 or 73 per cent. is
at present represented by surplus time of clerks formerly engaged
on payroll preparation.
The constructive work in the central payroll division is absorb-
ing, temporarily, a part of this saving. The present cost of this con-
structive work is at the rate of $10,000 per annum, but this will
cease entirely as soon as all departments are taken over. The balance
of $25,000 still remains as "slack” in the departments. This "slack"
should be eliminated in the preparation of the budget for 1916 by the
transfer of the employees made available for other work.
As an instance of the saving which can be effected, the simplifi-
cation of payroll records and the elimination of numerous 'unnecessary
time records in the street cleaning department, which is merely the
preliminary work to payroll centralization, will result in an annual
saving of approximately $10,000 in clerical salaries and about $2,500
in the cost of stationery and supplies. Savings aggregating at
least $10,000 per annum can be made on printing and books in the
other departments.
All employees in the departments of bridges, docks and ferries
and parks are now being paid by check. This will save in time, now
lost by paying employees in cash, several thousand dollars a week
in these three departments alone.
The central payroll division is now equipped with all necessary
mechanical devices for the most efficient handling of payroll work.
The cost of providing such equipment for the individual departments,
in any but the larger departments, would have been prohibitive.
Not only is the payroll work being performed more economically
than heretofore, but several frequent sources of error have been en-
tirely eliminated by the adoption of mechanical devices. The new
system of reporting changes in personnel provides complete control
"
* The payroll work of this department has not yet been centralized completely.
over appointments, transfers and dismissals, which has not been pos-
sible until now. Incidentally, this new system of control entails
less work than was necessary under the old system. As a result of
the new installation, it may be possible to perform the greater part
of the payroll auditing work automatically.
Centralizing the Purchasing Service for the Mayor's Departments
A second field in which there has for a long time been a conspicu-
ous opportunity for consolidation of service is in purchasing. A
central purchasing department was recommended by the state legis-
lative committee investigating city finances in 1908. For several
years bills to this end were introduced in the legislature, but failed
of passage.
For four years there has been under way in New York City im-
provement of purchasing methods in individual departments through
better systems of purchasing and through the standardization of speci-
fications for supplies by the bureau of standards of the board of
estimate and apportionment. There existed, however, wide diversity
in the methods and efficiency of purchasing in the several depart-
ments under the mayor's control.
In the spring of last year you appointed a committee of heads
of departments to consider the feasibility of establishing, through co-
operation between your departments, a central purchasing plan in
lieu of a central department of purchases which the legislature had
twice in succession refused to sanction.
To work out a method for central purchasing you later appointed
a committee of which I was made chairman, consisting of Mr. James
McGinley, chief examiner of the commissioners of accounts, Mr.
David Ferguson, supervisor of the City Record, who has wide ex-
perience in purchasing, Mr. George L. Tirrell, chief of the bureau of
standards, and Mr. F. R. Leach. Mr. Leach, a New York certified
public accountant, has been especially retained to take executive
charge of this work, having personally had valuable experience in the
organization of a central purchasing agency. This committee has en-
listed the co-operation of all the purchasing agents in the depart-
ments under your control. Beginning its work in November 1914, it
is taking up item after item of the supplies generally required by your
departments.
The following is a brief summary of the steps taken to date and
the results accomplished.
1. Organized and placed in operation as assistant directors of
the work, an associate.central purchasing committee com-
posed of nineteen of the best purchasing, storing and sell-
ing experts now employed by the interested departments.
18

CENTRAL PURCHASING COMMITTEE
5 MEMBERS
Purchases made to May 15, aggregated*),156,540& included 12 departmts.
EXECUTIVE STAFF
EXECUTIVE SECRETARY
Assust. Exec. Secy. Assigned by Bureau
Assistant of Municipal Research
6 Assistants - Assigned by Comrs.of Accounts
OPEN MARKET ORDER
DIVISION
CONTRACT
DIVISION


ASSOCIATE COMMITTEES
19 Departmental Purchasing Experts
CO-OPERATING
DEPARTMENTS
I MEATS, POULTRY & FISH
1111CLEANING MATERIALS & COMPOUNDS, ETC.
2 CANNÉD GOODS & GROCERIES 112 ELECTRICAL & PLUMBER'S SUPPLIES, ETC.
3 STOCK FRUITS & VEGETABLES 13 STABLE EQUIPMENT & SUPPLIES, ETC.
41 DAIRY PRODUCE, BREAD & EGGS 114 OFFICE FURNITURE & SUPPLIES, ETC.
5 FORAGE
15 ATHLETIC GOODS: SEEDS, PLANTS, ETC.
0 FUEL
16 PAINTS & PAINTER'S SUPPLIES, ETC.
7 HOSPITAL SUPPLIES EQUIPMENT, ETC |17| MATERIALS OF CONSTRUCTION, ETC.
8 DRUGS & CHEMICALS
118 DRAFTING & ENGINEERING SUPPLIES, ETC.
9 CLOTHING, DRY GOODS & NOTIONS 119 KITCHEN UTENSILS & HOUSEHOLD EQUIPMENT .
OLARMS, AMMUNITION, EXPLOSIVES, ETC
BELLEVUE & ALLIED HOSPITALS
DEPARTMENT OF BRIDGES
DEPARTMENT OF CORRECTION.
DEPT. OF DOCKS & FERRIES
FIRE DEPARTMENT
DEPARTMENT OF HEALTH
POLICE DEPARTMENT
DEPT. OF PUBLIC CHARITIES
DEPT. OF PARKS, MANH. & RICHMD
DEPT. OF PARKS, BROOKLYN
DEPT. OF PARKS, BRONX
DEPT. OF PARKS, QUEENS
DEPT. OF STREET CLEANING
DEPT.OF WATER SUPPLY, GAS & ELECT.
BOARD OF CITY RECORD
BUREAU OF WEIGHTS & MEASURES
CITY CHAMBERLAIN
COMMISSIONERS OF ACCOUNTS
LAW DEPARTMENT
TENEMENT HOUSE DEPARTMENT
2. Established a legal procedure for preparing and awarding
joint consolidated contracts involving two or more depart-
ments.
3. Prepared plans for and installed a consolidated contract
division of the central purchasing committee, which has
undertaken, with every prospect of success, to issue con-
tracts for all departments for:
a. Meat and poultry, for the entire year of 1915.
b. All food products, forage and fuel for the last nine
C. All otonths of 1916, forage andre year of 191
S
C. All other supplies, material and equipment for the last
six months of 1915.
Prepared and awarded consolidated contracts for meat, poul-
try and coffee involving five departments, with the follow-
ing results:
a. In spite of the war and restricted market conditions
and specifications, in comparison with the same
period last year, the cost in the case of the meat and
poultry is lower in one department, and only slightly
higher in the others (average 2.3 per cent.), and in
the case of the coffee materially lower in all depart-
ments. In the department of correction, for ex-
ample, a very good grade of coffee was obtained
for the prisoners, in place of the very inferior grade
in use for years, at a saving of over $1,800 or 20
per cent.
b. Three departments joined in buying at one delivery
point, making the proposal more attractive to
dealers and tending to reduce cost.
C. Departmental inspectors met with the central com-
mittee and obtained a common understanding of
the meaning of specifications, thus inviting greater
confidence of dealers through more uniform in-
spection.
d. In four weeks ending April 10, 1915, proposals were
advertised and bids obtained for fuel, forage, milk
and cream, butter and eggs, canned goods and gro-
ceries. The prices obtained on the five sets of bids
opened during the period were very favorable.
e. A number of departments, after they had conferred
together, decided to take cheaper grades of various
items, with the knowledge that the new kinds
would fully meet their needs.
f. The departments were made to see that while one de-
partment might be put to a little extra cost by rea-
son of some change proposed, the result in other
departments would be a material saving.
5. Prepared and advertised proposals for food products, forage
and fuel for from five to fifteen departments. This
work was done by representatives of the various inter-
ested departments meeting together and determining what
their common interests were. Real co-operation and stand-
ardization was the result. Ten common items of forage
were selected, all odd kinds not used by more than one de-
partment being abandoned. Uniform samples were
Unitby mores of forand
19
adopted, existing specifications were improved, and new
ones written where none existed. As a result of the large
number of departments taking part, bids on larger quan-
tities were offered to dealers to be delivered in smaller
zones or districts, thus inviting wider competition and
better prices.
6. Relieved departments of much of the clerical work on con-
tracts and of the expert work in preparing proposals.
This will tend to lower clerical costs in the departments.
7. Planned a clearing house and central exchange for the dis-
posal of overstock not needed by the departments having
it on hand, so that nothing will be sold until it is deter-
mined that none of the mayor's departments has use for it.
8. Planned to develop the natural productive resources of the
departments that own farms, timber land, etc., so that
any production in excess of the needs of that depart-
ment will be used to advantage in reducing the quantities
which other departments have to buy from outside dealers.
These items will include ice, food products, lumber, brick,
broken stone, etc.
It must be borne in mind that this work is being done experi-
mentally with only delegated authority, and was begun with the idea
that it would serve merely as a practical preparation for a perma-
nently established central purchasing agency. Its chief significance
is that it represents the actual putting into effect of an administra-
tive improvement that has been conceded for years to be demanded by
good business practice. By January 1, 1916, we shall have worked
out the method of central purchasing and be prepared to frame a per-
manent plan on proved experience. In this work as in other matters
we have the helpful co-operation of the comptroller.
All this work has been accomplished without an additional dollar
of appropriation for employees or supplies and has progressed so far
without the slightest sign of friction between any of the departments
co-operating, and the various committee chairmen are taking great
pride and interest in their work.
Centralizing Building Inspection
Early last year I made a study of alleged duplications and over-'.
lapping of inspection with respect to buildings, and as a result
recommended to you the establishment of a department of buildings
in which would be located all control over new building construction
in the city of New York, and to which would be assigned the approval
of plans in respect of fire prevention, the tenement house law, the
state factory law and the health code. In my recommendations I
suggested that there be left in the tenement house department control
over completed tenement structures, and in the bureau of fire pre-
vention control over the maintenance of standard fire conditions in
buildings other than tenements, but that the control over lighting
20
installations now exercised by the department of water supply, gas
and electricity be transferred to a central department.
The results of this study were placed before the state factory
commission in its investigation of duplications of inspection service
and were also submitted to various real estate bodies. To the recom-
mendations, however, there arose the objection that the proposed
plan would remove from the borough authorities control over build-
ing construction. A counter-proposal was made, in which I have not
been able to concur, that all supervision of buildings other than that
exercised over completed tenements be vested in the five separate
building bureaus of the boroughs, each to have jurisdiction only
over its respective borough.
In the investigation of alleged inspection duplications it was
found that the existing duplications resulted in unnecessarily frequent
inspections rather than in conflicting or duplicating orders, inasmuch
as the purposes of the inspections were entirely distinct. The fact
remains, however, that the following authorities have jurisdiction
over buildings in the course of construction:
Bureau of buildings—all buildings
Tenement house department—all tenements
Fire department=fire exits and fire hazards of all buildings
Health department—bakeries, slaughter houses, etc.
Department of water supply, gas and electricity-wiring, etc., of
all buildings
Department of licenses—area and light of theatres, dance halls,
etc.
State department of labor-all factories, department stores, etc.
And the following over buildings completed:
Bureau of buildings—the safety of all buildings (except as men-
tioned)
Tenement house department—all tenement houses
Fire department-all fire exits, etc.
Health department—all nuisances and sanitation.
Department of licenses-moving picture shows, dance halls, etc.
Department of water supply, gas and electricity—water waste
and non-metered buildings
Police department-boiler inspection
State department of labor-factory and department store con-
ditions
In my judgment there is no reason why all of this work
should not be performed by a single department. Weighed against
the objection that one department could not maintain suitable facili-
ties for the convenience of the various boroughs, in regard particu-
larly to promptness in rendering decisions, is what seems to me to be
the more serious objection of scattering in five jurisdictions respon-
sibility for the enforcement of laws which so intimately affect the
welfare of the people of the city of New York as laws in reference
to tenement house construction and fire prevention. These laws
21
have been enforced scrupulously in the past, due largely to the par-
ticular interest of special citizen agencies devoted to their enforce-
ment. It is unfair to expect citizens to provide means for watching
the enforcement of these laws in five jurisdictions. The city is not
prepared for a backward step in regard to the protection of life and
property in buildings. It demands, however, more effective admin-
istrative organization of this work. To this the owners of property
are entitled.
Centralizing Automobile Service
Working with a committee of commissioners appointed for this
purpose, the efficiency staff of the commissioners of accounts under
my direction gathered information relative to the automobile ser-
vice utilized by the mayor's departments. Our intention was imme-
diately to organize a central garage service. Preliminary inquiry
showed, however, that there were serious objections to removing from
the jurisdiction of the fire and police departments the complete control
which they now have over the automobiles used in their service. With-
out these automobiles, a central motor service plant did not seem
feasible or economical. We have not, however, abandoned the pro-
ject, and have now installed records in the various departments to
record the extent and character of use of all city cars in order that we
may learn whether they are properly and economically used, and to
what extent motor service may be combined for a group or all of the
mayor's departments.
I am not prepared to make definite recommendations in this
regard until the facts obtained by these records are accumulated.
We expect to be in a position to take definite action in this matter
in a few months. We should then settle with some finality the much
discussed question of city automobile service.
Centralizing Telephone Service
When the departments moved into the Municipal Building, they
took with them their independent telephone switchboards and oper-
ators. I made an examination of the possibility of effecting econo-
mies in telephone service through the consolidation of departmental
switchboards. During the planning of the building the bridge de-
partment had also studied the question of economy in telephone
service. On the basis of these examinations a conference was ar-
ranged with the borough president and recommendations submitted
to him. As a result a consolidation has been effected whereby the
expense of telephoning between departments located in the Municipal
Building has been practically eliminated. A switchboard has been
22
installed which not only handles all interdepartmental calls, but also
supplies general telephone service for the following departments:
Department of taxes and assessments
Public recreation commission
Office of the building
Commissioners of estimate and appraisal in condemnation pro-
ceedings
Examining board of plumbers
Board of examiners (building)
U. S. Volunteer Life Saving Corps
Charter revision commission.
This switchboard was placed in operation on August 19, 1914, and
from that date up to and including December 31, 1914, has supplied
service as follows:
Incoming calls ......................... 16,425
Outgoing calls ..
....... 15,921
Interdepartmental calls ................. 59,621
Total .......... 91,967
The present saving on the interdepartmental service alone is
approximately $300 a month.
An additional switchboard has also been installed to take over
the service of the department of public works, the department of
water supply, gas and electricity, and the board of city record.
This consolidation is being made to determine the advisability of
centralizing the telephone service of all the city departments located
in the Municipal Building. This arrangement would undoubtedly
greatly reduce the cost of telephone service and practically at no
extra cost to the city a continuous service could be maintained.
This work was executed by the office of the president of the
borough of Manhattan, my power being limited to making the neces-
sary investigations and recommendations.
Coal Economies
One of the most striking economies effected in the reorganization
of the borough of Manhattan under President McAneny was in the
matter of coal. For this work President McAneny had engaged a
special engineer to give attention to a large item of city expense
theretofore practically neglected. By changing the size of coal,
altering grates, and introducing better methods of stoking, reductions
were made in labor charges and coal bills cuts practically in half.
No similar work had been done in the mayor's departments so far
as I knew, except in the department of water supply, gas and elec-
tricity. In charities and correction, where large quantities of coal
are consumed, old practices still prevailed. I employed a mechanical
engineer with special training in engine room practice and fuel econ-
23
omy, formerly attached to the water department. This engineer
was assigned to the study of conditions in the department of cor-
rection. At the conclusion of his study, in order that the necessary
changes might be properly made, he was employed on the staff of
that department. As the commissioner of correction will report
to you, most emphatic economies are already resulting from this
change.
My plan was to maintain a central staff in the commissioners of
accounts' office for the reorganization and supervision of engine room
practice. In order to assist the department of correction to obtain
results this plan was deferred. We have again taken up this question
with a view ultimately to organizing a central division for building
plant and equipment maintenance, and for standardizing throughout
the city departments, methods of operation. This is a crying need
and is one of the administrative changes that we now have in definite
contemplation.
School Studies
Under my supervision studies are being made of the methods
employed in cleaning school buildings. Attempts have been made at
various times to work out economies in this field of city expenditures.
But superficiality of investigation plus the organized opposition of
the school janitors and the acquiesence of the board of education
have always defeated action. We are now receiving the co-operation
of the department of education and shall submit recommendations
when their feasibility is conclusively demonstrated by actual test
operations.
Lighting Bureau-Department of Water Supply, Gas and Electricity
In reviewing the requests of the departments under the mayor's
control in the preparation of the executive budget estimate, special
attention was given to the requests for lighting. The allowances for
street, park and public building lighting aggregated for 1914
$4,664,126.64. I had been convinced for some time that in the
lighting of the city there was room for very great economy. This
judgment was based upon the belief that there had never been made
a proper study of the lighting requirements of the different sections
of the city, and that additional street lights had too often been in-
stalled as a result of purely local demand. Furthermore, from per-
sonal inspections I learned that in many sections of the city the
lighting was excessive.
Accordingly, a special study was made of the possibilities for
economy in the 1915 appropriations for street and park lighting and
the lighting of public buildings, for it was also clear that
adequate control had never been exercised over the lighting of
24
public buildings. My first consideration of this question was
in connection with the reorganization of the department of public
works under Borough President McAneny in 1910, when econo-
mies were effected in lighting public buildings in City Hall Park
by utilizing the lighting plant in the Hall of Records, not only for
that building, but for the County Court House and the Brownstone
Building. Accordingly, I had an analysis made, and had prepared
for the first time in the history of the lighting bureau a record of the
cost of lighting public buildings, for a series of years. This tabu-
lation showed an excessive cost in many instances and was the basis
of a thorough investigation by the water commissioner.
In connection with the street lighting study I directed attention
primarily to the following points:
1. Rates paid by the city for each type of lighting unit.
2. Whether the types of unit used were suited to the needs of
the districts served.
3. Whether the cheapest and most efficient units were being
used.
4. Necessity for the extensions of service requested by the chief
engineer.
5. Use to which former appropriations for extensions of service
had been put.
6. Whether the illumination of certain sections of the city was
WALAUD.
ON
The conclusions reached as a result of this study were that in
many cases the choice of lighting units had not been made with
regard to the needs of the districts served, that many of the exten-
sions of service proposed for 1915 were unnecessary, that certain
sections of the city were extravagantly lighted, and that the sub-
stitution of the new nitrogen filled tungsten lamp for the old type of
enclosed arc lamps would save the city many hundred thousand
dollars.
During the course of this investigation attention was called to the
wasteful use of electric current in the Municipal Building, which led
to the issuance of orders by the borough president and the comptroller
with a view to checking waste. This whole subject is now under the
thorough control of the water commissioner, and very material
economies are being effected. In all this work we had the hearty co-
operation of Commissioner Williams and his staff. Many of the
specific suggestions made were immediately adopted by the com-
missioner, with the result that his preliminary requests for public
lighting were reduced by about $270,000.
The budget estimates, however, had to be transmitted to the
board of estimate before all the economies indicated by this study
could be reflected therein. This was especially true in the case of
25
the recommended substitution of the nitrogen filled lamp for the arc.
The examination was continued and extended by the bureau of
contract supervision in the course of its budget work as well as by
the commissioner of water supply, with the result that the 1915
appropriation for public lighting was less by about $600,000 than the
corresponding 1914 appropriation.
During this study the chief engineer of light and power resigned,
an engineer drawn from the federal service was put in charge of the
bureau by the water commissioner, and the reorganization of the
bureau was begun.
Study of Municipal Employees' Pension Systems
One of the largest undertakings that have been under my direction
during the past year is the work of the mayor's pension commis-
sion, of which Mr. George W. Perkins is chairman and I vice-chair-
man and executive secretary. The pension commission was originally
appointed by Mayor Gaynor in the summer of 1913. The work
began under Mayor Kline, a series of hearings being held after
preliminary information had been gathered regarding the city's exist-
ing pension funds. More extensive investigation was not inaugurated
until March, 1914, when an appropriation of $31,839.73 was made
available for the balance of that year, by the board of estimate and
apportionment, and a staff engaged for the work.
No pension study so comprehensive and thorough-going as that
now under way has ever been made in this or any other city. The
problem is made doubly difficult, first, by its extensiveness and com-
plexity, and second, by the lack of precedents to follow.
New York was the first American city to pension its employees,
and is apparently the first city in this country which has undertaken
a scientific investigation of pensions looking toward the establish-
ment, on an actuarial basis, of a pension system which will handle
annuity and insurance benefits in the manner in which the law
requires insurance companies to handle them.
There are established at present one general and seven depart-
mental pension systems. In four cases funds have been established
through contributions by the city and by employees. The condition
of all these funds is precarious, several of them being actually de-
pleted. The eight existing systems, including the so-called Grady
Law, affect practically the entire classified service, or about 80,000
active employees, in addition to 8,100 persons who are now receiving
pensions.
In order properly to study both the probable operation and
future financial condition of existing pension funds and to plan for a
properly financed new fund, either for individual departments or the
city as a whole, it was necessary to consider, in addition to the above
88,100, all persons who were in the service at any time during the
26

MAYOR'S PENSION COMMISSION
CHAIRMAN
VICE-CHAIRMAN & SEGRETARY
14 MEMBERS
.
ADVISORY ACTUARIAL COMMITTEE
CONSULTING ON ACTUARIAL PROCEDURE
BUREAU OF MUNICIPAL RESEARCH
STUDY OF FOREIGN PENSION PRECEDENTS
EXECUTIVE STAFF
S
•
-
-
-
--
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
- VICE-CHAIRMAN & SECRETARY-IN CHARGE
.
vin.' *
.
.
!
ANALYSIS OF N.Y.CITY PENSION
FUNDS & CONSTRUCTIVE PLANS
PENSION EXPERT - IN CHARGE
ACTUARIAL INVESTIGATIONS
AND CALCULATIONS
ACTUARY-IN CHARGE
.
Analysis of N.Y.City
Pension Funds and
Constructive Plans
Pension Expert
Classification of
Pension Precedents in
United States & Abroad
Librarian
Accounts & Statistics
on Operation of
N.Y. City Pension Funds
5 Accountants assigned
by Commrs of Accts.
Punching & Tabulating
Actuarial Clerk
Section Chief
8 Tabulating
Machine Operators
Graduating& Adjusting
Actuarial Clerk
Section Chief
8Graduation Clerks
Computing
Actuarial Clerk
Computer
Section Chief
8 Computing Clenkos
Stenographer
Administrative & Special
2 Stenographers
Draftsman
Messenger
STUDY OF V.S. MUNICIPAL &
INDUSTRIAL PENSION FUNDS
six-year period covered by the investigation, or who were then on
pension. As there are approximately 40,700 persons who left the
service from January, 1908 to June, 1914, and 2,200 persons whose
pensions terminated during that period, the total number of persons
to be considered for the purpose of making computations was approxi-
mately 131,000.
The scope of this study and the distribution of employees among
departments is indicated in the following table:

Active
Sery-
ice
Out of
Sery-
Fund
Live
Pen-
sioners
Ter-
minated
Pensions
Total
ice
218
312
30
10
1. College of the City of
New York..........
2. Court, Supreme, First
Department.........
3. Department of Education
4. Fire Department......
5. Health Department.....
6. Police Department.. ...
7. Street Cleaning Depart-
ment........
8. "Grady Law," all De-
partments. .......
245
20,000
5,009
1,601
10,780
3,967
433
1,531
1,654
262
501
11
1,322
288
25,760
7,597
2,903
17,843
93
1,198
1,463
4,278
5,434
2,690
437
8,641
36,548
30,902
104
67,567
Total........
79,835
40,772
8,111
2,193
130,911*
The financial scope of the problem is shown in the following table:
No. of
Pensioners
Amount of Amount Con-
Average | Annual Pension tributed Directly
Pension Charge as of and Indirectly
Dec. 31, 1913 by the City
Fund
$1,081.25
$4,325.00
$10,000.00
1. College of the City of
New York........
2. Court, Supreme, First
Department........
3. Departmentof Education
4. Fire Department........
5. Health Department.....
6. Police Department......
7. Street Cleaning Depart-
ment...........
8. "Grady Law," all De-
partments...........
1,515
1,636
76
4,201
1,143.75
779.85
633.53
793.81
583.28
9,150.00
1,181,471.67
1,036,456.40
60,330.00
2,450,365.51
6,698.10
724,336.23
961,189.50
66,042.10
1,989,738.03
356
395.38
140,753.50
168,023.39
63
839.64
52,897.48
30,980.05
Total........
7,859
$628.04
$4,935,749.56
$3,957,007.40
* These are not final figures owing to the fact that census reports must be edited
and duplicate cards removed.
The mere fact that $4,935,749.56, (of which $3,957,007.40 comes
directly or indirectly from the city treasury), is paid out each year
in pension benefits indicates the magnitude of the problem involved
in putting in order the present pension systems, irrespective of the
working out of a new pension plan.
The following summary of requirements of several funds will
still further indicate the importance of this study to the city.
employees and to the taxpayers:
1. Police Pension Fund-Established in 1857.
Membership-Uniformed force, compulsory.
Contributions—2 per cent. of salary.
Benefits—to members because of service or disability based
upon final salary, generally one-half.
to widows, children and dependent parents on death of
active members and pensioners in amounts not exceeding
$600 at the discretion of the commissioner.
Financial Condition-No reserve; regular income from miscel-
laneous sources insufficient to cover annual demands since
1904. Deficiencies covered by budgetary appropriations.
2. Fire Department Relief Fund-Established in 1871.
Membership-Uniformed force.
Contributions—None.
Benefits to members because of service or disability based
upon final salary, generally one-half. Law allows pen-
sions of more than half the salary at discretion of commis-
sioner.
to widows, children and dependent parents on death
of active members and pensioners one-half of the final
salary up to a maximum of $1,000 if death resulted from
active performance of duty. In all other cases in amounts
not exceeding $300 at the discretion of the commissioner.
Financial Condition–Reserve of about $800,000 not applicable
to deficiencies. Regular income from miscellaneous sources
insufficient to cover annual demands since 1912. Deficien-
cies covered by sale of special revenue bonds.
3.
School Teachers' Retirement Fund—Established in 1894.
Membership—All regular teachers, compulsory.
Contributions—1 per cent. of salary.
Benefits-After thirty years of service upon application and
after twenty years of service in case of disability. Fif-
teen years of such service in schools of N. Y. City. Pen-
sion of one-half final salary, with maximum of $2,000
and minimum of $600 in case of regular pension. One-
sixtieth of final salary for each year of service in case of
disability pension.
TYPE OF STATISTICAL CARD USED IN PENSION CENSUS OF EMPLOYEES
DOO
3165-14 (B) 450,000
COMMISSION ON PENSIONS
ACTIVE SERVICE CARD
I hereby certify that the answers to the following questions are true and
correct to the best of my knowledge and belief.
NOTICE
Name in full
Family name.
Given name or names.
Date of Birth
Bureau, office or branch
Department or
Independent Institution
Please exercise great care in answering the inquiries
on this schedule. If in doubt as to proper answer to any
question, consult the immediate superior officer or person
designated by the head of the department to answer such
Inquiries. The purpose of these questions is to secure
for the benefit of the Commission on Pensions the neces-
sary statistical basis for proposed pension laws for city
employees. Incorrect or careless statements will seriously
affect the accuracy of the entire result. In the interest
of a sound pension system your hearty co-operation is urged
in making this census as accurate as possible. Your
answers will be used collectively and no individual records
will be published.
Borough
-
N. 141022
N. 141022
Bureau, office
Section or
Department
or Branch
Division
1. Mark below with a CFOBS (x) the pension fund from which you may be pensioned now or at a later time
Police Department
Fire Department
Street Cleaning Department Health Department College of the City of New York
Normal College
School Teachers
Supreme Court I Grady Law, or not covered by pension
2. Active Employee (make no entry)
Check below by a cross (x) whether
employed mostly indoors or out
3. State title of your position as it
Indoors
Outdoors
appeared on the pay roll June 30, 1914
Month
Day Year
0. What was your rate of compensation on June 30.
If on per dlem basis
4. Give the date you were born
If on annual salary
Year
| Number of days per
5. Glve date of beginning your
sive rate per annum Give rate per day |
annum in budget
present service in this department


1910
1911
UN
6. Give date of wife's birth
7. Give date of wife's death, if dead, and
employee has remained unmarried
E. Give name and age of each of your children. If you have no children write
in words "No Children." List according to age, eldest first.
Age June 30, 1914
Name
Years. 1 Months
1912
1913
1914
&
10. What is the amount of your present annual pension
11. From what pension fund_
12. Check by a cross (x) marital: Single Married
condition
Widowed
| Female
sex (x)
14. If you are a veteran, check (x) Civil Spanish
war in which you became such War | War
vorced
-
-
-
13. Check | Male
Male! | Female |
(9).
Regular Army |
or Navy Service
(10).
.
15. State your entire service in order of time in this or other departments or branches of the city or county governments or in the courts. Give present service last.
Name of Department or Institution in
From Date of Appointment To Date of Termination | Length of Service
which you have been employed
Month Day Year Month Day Year Years | Months
Total Service
.
.
Glve total service below und
and (b) as follows:
é a case o
Years
Months
(a) Up to begin-
ning of present
service
.
(9)
(b) Entire ser-
vice
-
(10)
Card reviewed by.
Omclal Address
Telephone Number
Financial Condition_Reserve of $800,000 not applicable to de-
ficiencies. Regular income from miscellaneous sources in-
sufficient to cover annual demands since 1913. No pro-
vision in law as to deficiencies, which until now have been
covered by city advancing part of next year's income; in
this way deficiency has been pyramided.
An analysis of the financial condition of the existing funds shows
that in no case had provision been made for an adequate reserve
for the liabilities assumed by them, that increasing charges will be
heaped upon the taxpayers to meet the needs of the police and fire
funds, and that the teachers' pension fund is confronted with
inability to pay its current demands, and is, commercially speaking,
bankrupt. These are the three largest funds in operation in the city.
The city has no liability for the teachers' pension fund. It con-
tributes indirectly through excise taxes and deductions from teachers'
salaries for absences, etc., approximately $550,000 a year. The
teachers contributed in 1913, $270,000. In 1913 the income from this
fund was insufficient to meet the current demands on the fund by
upwards of $275,000. The major part of this deficit was supplied
by advancing excise taxes due the fund for the following year.
The teachers' pension fund is in radical need of reorganization,
but the reorganization of a fund providing pensions for 20,000 or
25,000 employees cannot be done by any off-hand adjustment. An
actuarial study of this fund, such as the pension commission is now
making, is essential to a determination of present values and com-
putation of the cost of whatsoever plan is adopted.
The street cleaning fund which exacts 3 per cent. contributions
from that moderately paid body of employees, provides also for a
variety of benefits which will necessitate the upbuilding of a great
reserve fund, if fairly early bankruptcy is to be avoided.
The Grady Law, under which the board of estimate and appor-
tionment may retire city employees after thirty years of service
(in the case of Civil War veterans, after twenty years of service),
who are mentally or physically unable to perform their duties, will
entail on the city no one knows what future liabilities, unless retire-
ments are arbitrarily denied.
No pension plan will justify itself as a measure of economy and
good administration unless it is based upon the theory of removing
from the service superannuated or disabled employees whose presence
is a greater detriment than a benefit, and unless provision is made to
accomplish this retirement on a just basis, just both to employees and
to taxpayers. Humane considerations are important, but they should
not, of course, be the governing considerations in the formulation of
a pension plan, for they cannot be governed by fixed rules and do.
not run directly to the efficiency of service. Pension rights, more-
over, should be definite and not vague as under the Grady law. It
29
is almost the universal judgment that they should be based upon a
joint contribution of the beneficiary and the employer. Under the
Grady law the entire pension is paid out of the city treasury, and no
contributions are made by the city employees.
The pension systems of New York are in the greatest possible
confusion; they lack uniformity, soundness of financial provision,
and in some cases are uncertain with respect to future benefits to
participants. In nearly every case where the city is required to meet
deficiencies, they will prove a great burden on taxpayers unless some
financial provision is made to build up reserves against future lia-
bilities. The financial condition of some of these funds, particularly
the police and teachers' retirement funds, are analogous to condi-
tions that would prevail if the city issued long term bonds falling due
in varying amounts in different years, and made no sinking fund pro-
vision for them. As the outstanding bonds matured the annual
burden on taxpayers would become insufferable.
If it were not for the fact that pension systems generally are
now going through the same experience that life insurance underwent
half a century ago, due to miscalculation, lack of experience and
almost childish optimism regarding the future by those who planned
the systems, the condition of the New York City funds would be
justly termed scandalous. There is no more urgent problem con-
fronting the city than the reorganization of these funds. It is only
a part of the general disregard of the financial problems of the city
in past times that these funds have been so long neglected. One of
the city's pension funds is nearly sixty years old, but the present pen-
sion commission is the first to prepare tables on which to base calcula-
tions of pension cost. Without tables it is impossible for any-
one to make an estimate of the cost of any of the pension provisions
in the various laws effecting the municipality.
If the city expects to provide pensions for its employees in return
for contributions of salary or contributions of service it stands in
need of a mortality investigation before it can do business properly.
As a part of its actuarial work the commission's experts are prepar-
ing mortality and service tables for each department having a pen-
sion fund, and tables for the departments covered under the Grady
Law, these departments being grouped according to similarity of
service and classes of employees. The tables will show the mor-
tality among persons in different branches of the city service, the
mortality due to service accidents, the rate of disability and invalidity,
the rate of resignation and dismissal, and the rate of retirement on
pension. The mortality among past pensioners or annuitants of the
city will also be shown as far as practicable. Tables are being pre-
pared showing the marital condition and the size, age and sex of
families of employees. This information is necessary in order to
value the liability under the pension provisions for widows and chil-
30
COMMISSION ON PENSIONS
ACTUARIAL DIVISION
PROGRESS CHART I
Showing by Departments each Classification and Total Estimated Work to be done and the Proportion of such Work Completed up
to the indicated Date of Correction in the Preparation of the Actuarial Valuation of the Assets and Liabilities of
ALL PENSION FUNDS OF THE CITY OF NEW YORK
CORRECTED TO
APRIL 30, 1915

COLLECTION OF CARDS
& EDITING
RE-EDITING &
CORRECTION OF
DEFECTIVE CARDS
REMOVAL OF
DUPLICATE CARDS
REMOVING CARDS FOR
EMPLOYEES NOT COVERED
BY PENSIONS
PUNCHING K
VERIFYING
TABULATING
GRADUATING RATES
COMPUTATIONS ON
ORDINARY VALUATION
ADMINISTRATIVE
MISCELLANEOUS &
UNDISTRIBUTABLE WORK
FINAL TABLES
FOR REPORT
REPORT
GRAND TOTAL
PERCENTAGE
OF WORK
POLICE
TEACHERS
HEALTH
C.C.N.Y.
FIRE
SUPREME COURT
GRADY
NORMAL COLLEGE
TOTAL
D.S.C
POLICE
TEACHERS
HEALTH
C.C.N.Y.
SUPREME COURT
GRADY
FIRE
NORMAL COLLEGE
TOTAL
D.S.C.
POLICE
.Y.
TEACHERS
HEALTH
SUPREME COURT
C.C.NY.
NORMAL COLLEGE
GRADY
TOTAL
FIRE
POLICE
D.S.C.
TEACHERS
SUPREME COURT
HEALTH
FIRE
NORMAL COLLEGE
GRADY
TOTAL
D.S.C.
C.C.N
POLICE
TEACHER
HEALTH
FIRE
C.C.N.Y.
SUPREME COURT
GRADY
NORMAL COLLEGE
D.S.c.
TOTAL
POLICE
TEACHERS
HEALTH
C.C.N.Y.
FIRE
GRADY
SUPREME COURT
D.S.C.
NORMAL COLLEGE
TOTAL
POLICE
TEACHERS
HEALTH
C.C.N.Y.
GRADY
FIRE
SUPREME COURT
D.S.C.
NORMAL COLLEGE
TOTAL
POLICE
TEACHERS
HEALTH
C.C.N.Y.
GRADY
FIRE
SUPREME COURT
D.6.c.
NORMAL COLLEGE
TOTAL
POLICE
TEACHERS
HEALTH
C.C.N.Y.
GRADY
FIRE
SUPREME COURT
D.S.C.
NORMAL COLLEGE
TOTAL
POLICE
TEACHERS
HEALTH
C.C.N.Y.
FIRE
GRADY
SUPREME COURT
D.S.C.
NORMAL COLLEGE
TOTAL
POLICE
TEACHERS
HEALTH
C.C.N.Y.
GRADY
FIRE
SUPREME COURT
D.S.C.
NORMAL COLLEGE
TOTAL
COMPLETED
-
100.
-
-
U
.
.
!
:
TD
yo
Is HI.
:
LITT
ID
I.
NUO
I.
.
50
T
LL
.
-
1
II.
1
1
I
.
..
2.0
U
...
W
173) 30%. 100 TT-T-1--9-151-00 - 20.157|2|2e gut zum L... sound max 90349179.0/160 16509164 yas at buvo 790).|15 16 17 pax/nslus 19 a 19 05190 | 196078 2045burn asqual as
1/6479) 2015/2016, 1957 7 0 0 | 21 745 15:30 157 158 1.260.269. 36
12-14 7.15 15.53 4.57 1.58 48.47.64 2.69 -100.0
le out
WEIGHTS USED AS BASIS FOR GRAPHICAL PRESENTATION
Estimated Percentage
Distribet.com of more than 11357/5801975|200.2551.36673.38) 17|100-01358 580|19:4|2001 2451.346721 38 18100.0 || 1625 6.41 650| 578] - 17.397.50.56· 1000 ||
in each Clossification
Estimated
:Percentage. Distribution 14.38 18663766-07|16542371.0532.21 | 144 1475.00 501.06|1304 1.71.01.05|25.38|23.08.09.08- 01.11.2011 - 1141 -1-1-1142 - 03 - 1145 11:05 471.14.151.0Z 382 54 03.01 17:23 1.961021.91.96 36 367.96.61.0 9.75 -57.53.73.49.303.09 49 371.01 6.58.63 -82 48.76.181.86.69 26.055.73.771.77.70.85.51 392.8511-02.088.97-01.11.01.12.48.49 12.15.05 | 1.29
of oll Work
The Cemens Schedule One Coupon matched to one with One Brempts Appointue or Elective Post One Punch card prepared from One Punch Candi tabulated one unadjusted rate as One working table used in
Item Considered one census
e same name withdrawn from ator connected with incunxents name data on census schedule,
Jedited first time, numbered, carefully reviewed, talled,
or every Table in which it is prepared from data, completed the preparation of the valuation No unit. Estimate based on Nounit. Estimate based on
UNIT
file, schodule with drawn from Mouring siis year period by means of|information codled before punch tl .
and included and the card's
filed numerically and coupon with missing information numerical file duplicatas Directory, cards with drawn and King and punched' cand verified |
graduated, checked and completely prepared and similar work for other funds. similar work for other funds.
of Work
filed alphabetically supplied on defective cards, compared and cards adjusted. handled for same back to original schedule. assorted and filed away. I compared.
Trenified as to compitations.
TOTAL
131680
131680
2A 825
5847
182 895
182895
226
1,050
Units of Work
as
-
6344
5000
Totol Days
for One Clerk
277
1425
285
1920
1296
1130
1766
255
19700
to Complete
Total Units
_
_
dren. In short, the most complete set of tables ever constructed for
any pension or annuity fund are being prepared for the city's pension
funds.
After the tables are constructed, mathematical tables will be
based upon them, and the liabilities of the city as regards pensions
can be computed from year to year until the mortality and service
experience of the departments has sufficiently changed to justify their
correction or the establishment of a new set of tables based on a
broader experience than is available at the present time.
A diagrammatic progress report is prepared, by which the
progress of the work is controlled. These reports are submitted
to me semi-monthly.
The commission has gathered exceptionally complete information
regarding existing municipal and industrial pension funds in the
United States for the purpose of considering the advisability of adopt-
ing any one of them as a model for New York City's new plan, in
view of their true merit. Through the co-operation of the Bureau of
Municipal Research, the commission is making a study of European
pension plans, many of which will furnish valuable suggestions.
To assist us in our actuarial work a request was made of the
Actuarial Society of America to appoint a committee to co-operate
with the commission. The following very able committee was ap-
pointed, and is rendering most valuable services:
Mr. William A. Hutcheson, actuary of the Mutual Life Insurance
Company, chairman.
Mr. Robert B. Henderson, actuary of the Equitable Life Assur-
ance Society.
Mr. Henry Moir, actuary of the Home Life Insurance Company.
The pension commission which is responsible for this work con-
sists of the following members: George W. Perkins, chairman;
Henry Bruère, vice-chairman and secretary; Frank H. Bethell, Raynal
C. Bolling, John H. Boschen, Frank L. Dowling, Albert De Roode,
August Ferrand, Joseph Haag, Louis H. Hahlo, Francis D. Pollak,
Arthur Williams, S. Herbert Wolfe, John A. Bolles, William H.
Chorosh, Mrs. F. H. Cothren.
My work has been to plan and supervise the investigative work
of the staff, to formulate suggestions for the consideration of the
commission, and to confer with employees interested in pension prob-
lems, leading to the final preparation of a plan by the commission for
the consideration of the mayor and the board of estimate and appor-
tionment.
The commission has not decided whether to recommend a con-
solidation of the pension plans or to continue the existing separate
pension funds. It has not formulated any conclusions with regard
to the nature of the pension plans. All of these conclusions will be
reached after the completion of the investigation, when with the facts
31
before it the commission can sit down to consider various alterna-
tives from which finally a system or series of systems can be built up.
The views regarding pension principles expressed in this report are
mine, and in no way represent the conclusions of the commission, for
officially it has reached none.
Welfare Program for City Employees
D
Several undertakings have been inaugurated during the present
year to improve the esprit de corps of city employees and to establish
better relationships between the administrative authorities and the
operating forces of the departments. I shall refer to these briefly,
for they have all been discussed in the press.
Employees' Conference Committee
Representatives of departments under your control were called
together at my suggestion to consider questions relating to the wel-
fare of employees and the administrative practices of departments.
The thought underlying this conference was that employees, through
co-operation with department heads, may assist in improving admin-
istrative methods by making available to the responsible officials, who
frequently change, the results of their experience and special knowl-
edge in their respective fields. Questions such as those previously dis-
cussed in this report with reference to office administration, the infin-
ite variety of technical matters involved in carrying on the business
of the city departments,--all are proper subject matters for a confer-
ence committee of this character. On the other hand, an employees'
conference committee will concern itself with the organization of
activities which will affect the welfare of the employees themselves.
Thus, there has been suggested the organization of credit unions for
loan purposes, the establishment of departmental lecture courses, the
organization of entertainment and recreation activities, etc. The
committee which you called together is now planning its preliminary
work under officers selected by the temporary representatives.
Perhaps a word as to the ultimate aim of this step may obviate
misunderstanding. It is now generally recognized in large industries
and corporate enterprises that successful management depends quite
as much on the spirit of employees, their concern for the welfare of
the enterprise, their confidence in the justice and co-operative spirit
of the management, as it does on the ability of the executive officers.
Indeed, employees' relationships, character and treatment of personnel
and similar matters relating to the rank and file of employees, are now
regarded as perhaps, collectively, the most important phase of in-
dustrial management.
32
In city government this phase of administration has been con-
spicuously neglected. Employees have been kept at arm's length
from administrators, except where an accidental, personal, or an or-
ganized political relationship existed. It may truthfully be said that
95 per cent. of the success of city management depends on the
interest and quality of service of employees. In recognition of this
fact your administration and the board of estimate and apportion-
ment have given unprecedented attention to matters affecting city
employees. Conspicuous parts of this program are the standardiza-
tion of salaries, of genuine advantage to efficient employees as well
as to the city and taxpayers, the reorganization of civil service
methods, steps taken to establish pension systems on a sound basis,
and the closer contact between the executive branch of the depart-
ments under your control and the rank and file of subordinates. In
my judgment this phase of your administration's policy is of the
greatest promise for the efficient and spirited conduct of the city's
business.
In many departments progress in this direction has already been
notable. The development of the conference committee must be grad-
ual until mutual confidence is developed and the habit of co-operative
consideration of administrative and employment questions formed.
Educational Courses for Employees
Some months before taking office you suggested to Chancellor
Brown, of the New York University, closer alliance between the
University and the city government. As the upshot of this sug-
gestion I worked out, in conference with the civil service commission,
and with Professor Jeremiah W. Jenks, Professor James E. Lough,
and Mr. M. E. Loomis representing the University, a group of courses
which would be useful to city employees. These courses included
advanced stenography, secretarial work, accounting, bookkeeping,
and business English, and were inaugurated in the Municipal
Building on October 5, 1914. On the opening day there was a
registration of 231, the students being addressed by yourself, Chan-
cellor Brown and Professor Jenks, at a meeting held in the City Hall.
For these courses the students pay $10 for 30 hours' work, and $20
for 60 hours' work, which represents the actual cost to the University.
The maximum registration for the first semester was 276, and the
average attendance 227. The courses are given in the Municipal
Building and in the Washington Irving High School, from four to six
o'clock in the afternoon, from five to seven, and from eight to ten
o'clock in the evening, according to the character of work and the
convenience of the departments.
A second set of courses along engineering lines was worked
out, and inaugurated on January 13, 1915. These courses were
framed with the advice of a very efficient and highly interested
group of city and outside engineers, and relate particularly to the
technical work of city government. This committee has shown the
most helpful and active interest in this undertaking and to them in
very full measure the success of the courses is attributable.
The City College proposes next year to furnish similar facilities
to city employees. The legislature passed a bill on March 31, authoriz-
ing the college to charge a fee for courses of this character. Recently,
at your request, I called a conference between representatives of the
City College, New York University, and the advisory committee of
engineers to plan for the continuance of this educational work.
The institution of the educational courses in the Municipal Build-
ing has been attended with remarkable success. It shows that there
exists a very marked need for the special training of employees in
the various lines of municipal service. The work this year is only a
beginning, and should lead to a carefully planned scheme of instruc-
tion to be correlated with civil service promotion plans. There has
been no paternalism in this undertaking, the arrangement being a
business one under which the University furnishes the courses at
cost.
SC
Lunch Room for Women
There are about 600 women in the city's service employed in
the Municipal Building, in the Hall of Records, and in the City Hall.
In apportioning the space in the Municipal Building, it was found
that the space provided for the Central Testing Laboratories in the
tower would not be suitable for their use, because of the vibration
in the building at this altitude. No provision had been made in the
building for a meeting room for employees, nor had any facilities
been provided for women, except rest rooms in connection with
toilets.
It occurred to me that it might prove a profitable investment to
provide for women employees a lunch room and a properly controlled
rest room where the noon hour might be spent with comfort. Every
one knows that downtown lunch facilities are not convenient or ade-
quate for women workers. Women who are engaged all day in exact-
ing work, such as stenography and clerical work, are in need of whole-
some and refreshing surroundings in the noon hour. The plan met
with the cordial approval of the comptroller, the president of the
board of aldermen and the bridge commissioner, individually and as
members of the committee of the sinking fund commission on assign-
ment of space in the Municipal Building.
The proposal was, therefore, made that a lunch room be estab-
lished on the 26th floor. The assistance of the welfare department
of the National Civic Federation was obtained, and a meeting ar-
int of space in
as therefore, thence of the wel
34
ranged at which members of the board of estimate and apportionment
were shown, through the courtesy of Mr. Haley Fiske, the facilities
provided for women in the Metropolitan Life Insurance Company
building. The conclusion of all this was the approval by the sinking
fund commission of the assignment of space in the Municipal Build-
ing for a women's lunch room, and the organization of a club among
the women employees to have control and responsibility for its opera-
tion. This organization, with a membership of 370, has now been
completed, and will be responsible for all expenses involved, the city
merely providing the space and initial equipment.
I believe the city will find this step highly profitable, as it will
increase the satisfaction and content of its women employees and
promote their efficiency. The women's organization is self-governing,
has chosen its own officers, and has shown remarkable interest and
capability in the development of the plan.
Distribution of Space in the Municipal Building
As secretary of the committee on assignment of space of the
sinking fund commission, which consists of the comptroller, the
president of the board of aldermen, the bridge commissioner, and the
chamberlain, I devoted considerable time during the early part of
the year to planning the allotment of space so as to accommodate
departments for which provision had not originally been made. As
a result of the work of the committee the Municipal Building now
houses all of the mayor's departments, with headquarters in the
borough of Manhattan, except the departments of police, health,
docks and ferries, and licenses.
The removal of the fire department to the Municipal Building
involved the release of fire headquarters. This was not done until
arrangements were made with the department of education for the
economical use of this space. The removal of the department of
parks, Manhattan, relieved the department from the very considerable
inconvenience of conducting its business in the ill-suited arsenal in
Central Park, which had for many years served as its headquarters.
This building will presently be removed from the park, thus increas-
ing the park space available to the public.
The detailed work of relocating the offices in the Municipal Build-
ing was supervised by the bridge commissioner, and to him and the
engineer in charge is due the credit for its efficient performance.
Publicity of City Facts
At the outset of the administration I made an effort to formulate
a plan for better control over publicity regarding the day by day
work of city departments. It was not intended in any way to re-
strict the access of the press to the departments, nor to curtail the
news obtained in regard to the work of the city government. On
the contrary, it seemed that there was an opportunity, by systematic-
ally bringing to the attention of a central office the happenings of
public interest in departments, both in reference to their regular
work and in respect of plans and results of reorganization, to keep
the public better informed about the business of the city. A similar
plan had recently been instituted in Cleveland, a bureau of informa-
tion and publicity having been established under its new and ex-
cellent charter. The suggestion was discussed in several confer-
ences with representatives of newspapers assigned to City Hall, and
a definite proposition finally worked out for consideration by Mr. Shep-
ard Morgan, now secretary of the department of finance and then at-
tached to the staff of a morning paper. Mr. Morgan's plan looked
to the creation of a central clearing house for news regarding city
business, as a means of educational publicity. The plan, however,
did not generally seem feasible to the representatives of the press,
the impression prevailing that it might lead to the suppression or
deadening of news.
For purposes of experiment an alternative plan was adopted.
There was appointed in the office of the commissioners of accounts a
special examiner whose duty it is to review and, where necessary,
clearly and briefly to restate for publication the current reports of
departments, and to prepare for the magazine sections of the Sunday
newspapers educational stories regarding the city government's
activities. This work in no way interferes with the regular report-
ing work of press reporters assigned to City Hall, but supplements
it. It does not deal with current news, but only with recorded hap-
penings, and is an efficient and very valuable adjunct to the day by
day publication of city news through the usual reporting methods.
Since the institution of this plan upwards of 1,291 columns of
newspaper material have been printed as special stories, all of which
have been devoted to the discussion and description of city business,
stated in a form to interest the newspaper reader and hence to
broaden popular acquaintance with the details of city government.
The purpose underlying this plan is to widen, so far as possible,
citizen interest in the detailed business of city government, much of
which though of an absorbing character would rarely if ever be
brought to public attention through ordinary news channels.
T
Municipal Reference Library
With the comptroller I have given attention to the development
of the Municipal Reference Library, located in the Municipal Build-
ing for the use of city departments and employees. Investigation
of the operation of the library early in the administration showed it
2
to be unsatisfactory. The comptroller, who had originally undertaken
to organize the library in the department of finance, invited my co-
operation in arranging for its more effective administration. In
conference with the director of the New York Public Library, it was
arranged to transfer the Municipal Reference Library to the control
of the Public Library, and to place the economic librarian of the Public
Library in charge. Since this was done the library has increased in
usefulness and is now probably the best equipped municipal library
in the country. To promote the usefulness of the library to depart-
ments through closer co-operation, an advisory committee of city
officials was appointed as follows:
Henry Bruère, chairman; Leo Arnstein, assistant to president,
board of aldermen; Burdette G. Lewis, deputy commissioner of cor-
rection; Shepard A. Morgan, secretary, department of finance; Nel-
son P. Lewis, chief engineer, board of estimate; Robert B. McIntyre,
chief, bureau of municipal investigation and statistics.
Standardizing Departmental Reports
During the latter part of Mayor Gaynor's administration, Mr.
Robert Adamson, then secretary to the mayor, began the preparation
of standard forms for the reports submitted by the departments
under the mayor pursuant to charter requirements. The Bureau of
Municipal Research assisted Mr. Adamson in this work. A series of
report forms was prepared, but no actual installations had been
effected at the beginning of the present administration, though Mr.
Adamson performed valuable work in cutting out the sur-
plusage in reports and reducing them to readable and economical
proportions. This work has been resumed, and a member of the staff
of the commissioners of accounts has under my direction been as-
signed to complete the preparation of standard forms and to effect
their installation, in co-operation with the research bureau.
The charter requires the publication of departmental reports
quarterly, and in certain cases annually. These reports have here-
tofore contained miscellaneous information, some valuable, some
worthless. They contained no information which would show
the relation between work done and expenditures, nor did they pro-
vide adequate tables comparing the results of one quarter or year
with another. Our purpose is to simplify as much as we can the
statement of departmental results along the lines of important
functions and activities, and to make it possible for the mayor and
citizens to obtain precise, comparable and concise information regard-
ing departmental work. It is also our purpose to facilitate the prompt
publication of departmental reports so that these important publica-
tions may become current instead of historical.
In the preparation of these forms the comptroller's co-operation
has been obtained, inasmuch as his department has to do in part
with the statement of accounting results.
This step is of great importance in effecting better administration
and closer contact between government and public, and every effort
will be made to press it to a conclusion during the present admin-
istration.
Vacation and Absence Rules
Rules for vacations and leaves of absence varied in every depart-
ment at the beginning of this administration. This condition was
only another instance of the general inattention to the administrative
practices of the departments.
To establish uniform rules on a proper basis inquiry was made
of existing practices in city departments and in private corporations.
From these practices rules were evolved which seemed to be the
most just and businesslike, and submitted to the departments for
their guidance. This, however, did not lead to complete uniformity,
for in several departments old practices were adhered to. Accord-
ingly, for the year 1915, a general rule has been promulgated by the
mayor affecting per annum employees of all departments under his
control. Vacation rules for per diem employees were laid down by the
board of aldermen in 1914.
Study of County Government
I have under way, in co-operation with the commissioner of ac-
counts, a thorough study of the organization, methods and expendi-
tures of the county offices of the city of New York. As a first
step I had prepared for use in the preparation of the 1915 budget,
a complete analysis of the mandatory county salaries which the
city is required to pay. These were found to aggregate for the
five counties $4,458,777.25 per annum, or 76 per cent. of the total
appropriations for personal service. Discretionary salaries amount
to only $1,350,704.50.
For each office there are being prepared charts of organization,
an analysis of its statutory duties, a record of the work performed
and compensation received by each employee, and a functional analysis
of the volume of work done. On this basis we shall be able to
formulate definite recommendations for administrative consolidation
or reorganization as the facts may warrant. One condition to which
attention is frequently called, but which warrants repeated emphasis
is the continuance of the fee system in the sheriff's office. Thus, in
the county of New York fees paid to past and present sheriffs, in
addition to $12,000 salary, for the years from January 1, 1910, to Jan-
uary 1, 1915, were as follows:
38
...
Year
Fees
1910.
$48,924.72
1911 ..
44,224.52
1912
53,184.88
1913 ...
51,505.85
1914 ....................... 59,703.71
There is no justification for this. These sums, which represent
50 per cent. of fees received, the other 50 per cent. being paid into
the treasury, should all come to the city treasury. The results of
this study with constructive suggestions are now being incorporated
in a joint report to be submitted by the commissioner of accounts and
myself in time for consideration by the Constitutional Convention
which, no doubt, will give considerable thought to questions of county
organization.
Program for Public Recreation
One of the matters to which you asked me to give consideration
was the recreation program of the city. You wished to have a pro-
gram formulated for the harmonious development of the recreation
facilities under the jurisdiction of the departments of parks and
the public recreation commission. Accordingly, I called a confer-
ence of representatives of the various agencies of the government
concerned with recreation. In this conference there was discussed
the feasibility of establishing central, responsible control over the
recreational facilities of the park departments, public baths, gymna-
siums, and recreation piers.
It did not seem feasible to include in this plan the recreation cen-
ters and other recreation activities of the department of education.
My own conclusion after the conference was that it would not be
wise to transfer to any central authority control over public baths,
because the borough presidents were especially equipped to maintain
and operate the buildings, and it therefore seemed generally more prac-
tical that they maintain control over the use of the buildings.
The public recreation commission had previously attempted to
assume control over the use of several of the public baths in which
gymnasiums were provided, but this had not resulted in a successful
method of operation. The park commissioners felt that because of dis-
similarity of conditions in their boroughs, local control over recreation
facilities was preferable to centralized control. The consensus of opin-
ion was, however, that there should be some means of standardizing
the recreation work in the various parts of the city, and of providing
in one place expert advice for its development, available to all parts
of the city government, and closely connected with the social welfare
committee charged with recommending to the board of estimate and
apportionment appropriations for this and similar purposes. It
39
R
was therefore determined to recommend to the board of estimate
and to the mayor that the public recreation commission be consoli-
dated with the social welfare committee, and that a special secretary
of recreation be provided for the committee. A temporary consoli-
dation of functions has taken place pending the passage of a bill
abolishing the public recreation commission. Provision for the secre-
tary is made in the budget for 1915, and a civil service examination
will presently be held for the selection of the incumbent.
Much remains to be done in developing a recreation program for
the city. Considerable progress has been made during your adminis- ·
tration, notably by Park Commissioner Ingersoll in the borough of
Brooklyn, which has heretofore been deficient in playground facilities.
I am from time to time giving attention to recreation matters as they
present themselves, and hope to be able to submit to you further rec-
ommendations of a concrete character.
1
Study of Park Privileges
At my request the commissioners of accounts on April 23, 1914,
prepared and submitted to you a report on Manhattan park privi-
leges. This was a subject to which I had given considerable attention
during my connection with the Bureau of Municipal Research, and
which was jointly investigated by your office and the Bureau when
you were commissioner of accounts. The results of the study were
submitted to Commissioner Ward, and a number of recommendations
contained in the report have already been carried out. The report
indicated the need for considerable administrative tightening up.
Among the suggestions made were the following:
1. That rental value for privileges in the parks be determined
by public letting as against private negotiations.
2. That an efficient method of supervision of concessions and
privileges be instituted, providing that:
a. Unlicensed stands and peddling be discontinued through
more vigorous enforcement of regulations.
b. Trading in permits be discontinued whereby persons other
than the original permittee benefited by them, and
that all permittees be required personally to operate
under their permits.
C. Privileges granted without compensation be authorized
by the use of a permit form having the word "free"
stamped in red ink across its face.
3. That the practice of permitting employees to occupy resi-
dences in the parks without charge be discontinued.
4. That bootblack stands along the east side of City Hall Park
obstructing traffic to the bridge elevated and subway en-
trances be placed under the bridge approach, where there
is ample room for them, (and where they are now located).
There were other recommendations with reference to accounts
and records.
This report will furnish the basis for subsequent checking up of
park privileges in all boroughs in order that a consistent policy may
be maintained in reference thereto.
Program for City Legislation
19
As a result of your experience in dealing with the legislative bills
submitted for your approval during the 1914 session of the legislature,
you requested me to prepare for your consideration a preliminary
statement of legislation desired by the various departments from the
legislative session in 1915. It has been found in other years that
some bills requested by departments and passed by the legislature on
the basis of those requests were subsequently vetoed by the mayor
because they did not meet with his approval or were not in conform-
ance with the general policy of the city government.
To obviate this, you wished to have before you early in the fall
a comprehensive statement of legislation that seemed necessary and
desirable, for conference and the formulation of an administrative
legislative program. This matter has received your personal atten-
tion. At your request, I prepared an analysis of proposed legislation
suggested by the various department heads in their memoranda to
you, and formulated a tentative program for its public consideration.
The step that you took in preparing an administrative program
for legislation affecting the city government is, in my judgment,
equal in importance to the earlier step which you took in establishing
executive budget estimates. The legislature is generally blamed for
mandatory legislation entailing expense upon the city of New York.
Much of this legislation, however, has been asked for by New York
City officials or concurred in by representatives of the city. This year,
legislation which departments desired was first submitted to you, re-
viewed by you and by the corporation counsel, and subsequently pre-
sented to the board of estimate and apportionment for its approval.
In this way a substantial measure of home rule may be achieved under
the limitations of the present charter, provided the legislature does its
part and gives special heed to the program submitted by the city au-
thorities, discouraging the introduction, at the suggestion of irrespon-
sible agencies or individuals, of legislation affecting the city's busi-
ness.
Contrary to the usual practice, no department, so far as I know,
has requested legislation this year which has not formally been passed
upon by yourself and the board of estimate and apportionment, except
in one or two instances where you expressly authorized a direct appli-
cation by a department head. In the future therefore, there should
be less confusion in the legislature, fewer ill-considered acts passed,
41
and more assurance that the city will receive at the hands of the
legislature the laws that it requires.
This step in the direction of home rule is the most important step
taken in relation to the legislation of the city since the mayor was
given power to veto bills exclusively affecting the city of New York.
Study of Gary Plan and Vocational Education
From May 31 to June 5, 1914, I accompanied you, the president
of the board of education, the commissioner of public charities and rep-
resentatives of the department of education to the public schools of
Gary, Indiana, and Chicago, and to Cincinnati to inspect the co-opera-
tive plan of instruction pursued in the University of Cincinnati En-
gineering School.
As a result of this visit it was arranged to have Dean Herman
Schneider of the University of Cincinnati and Superintendent William
Wirt of Gary assist the school officials of New York City in develop-
ing plans for practical vocational education and for the more inten-
sive utilization of the school plant along the lines of schools
in successful operation in Cincinnati and Gary. To this work you have
given your personal attention, and my connection with it has been
merely in conference when requested.
Study of East Side Evictions
Last spring, in discussing before an east side audience our desire
to bring the city government more intimately in touch with the social
needs of the people, a suggestion was made that a great problem
existed in New York in respect of the eviction of tenants for non-
payment of rent. Judge Gustave Hartmann of the municipal court
of the second district called on me several times, urging that some
effort be made to provide assistance to the unfortunate tenants who
were deprived of homes through inability to pay rent.
In order to obtain information regarding the extent and char-
acter of this problem, I made an investigation of eviction cases oc-
curring in the borough of Manhattan in 1913, particularly of the re-
sults of processes for eviction brought to the second municipal court
district in which the greatest number of evictions occurred. Reports
from thirty-three of the thirty-five city marshals to whom I directed
inquiries showed the following:
Number of summary proceedings handled
during 1913 ........................ 40,366
Number of actual evictions resulting....... 1,298
Number of evictions of undesirable tenants
and evictions from places of business.. 270
Number of evictions for non-payment of rent,
presumably involving homes .......... 1,028
42
LY
The problem seemed, therefore, to be one of relief of cases of
distress and not one requiring administrative or legislative action. I
sent an examiner to observe the action taken on cases in the magis-
trates' courts, and instructed him to refer to the organized charitable
associations cases which in his judgment needed and merited assist-
ance.
After a week's trial of this procedure, I requested the United
Hebrew Charities to install permanently in this court a representa-
tive who would deal with all cases of eviction. This organization gladly
co-operated. This has now become an established practice, and ac-
cording to Judge Hartmann and confirmed by my own investigation,
a great many cases of distress to whom eviction was threatened have
been relieved by the prompt action of the society.
The result, therefore, of this action has been to institute in the
municipal court, which deals with minor questions affecting property
and property rights, a more humane contact to aid the administration
of justice. There is opened up by this experiment a number of pos-
sibilities of broadening the social usefulness of the lesser civil
courts. I shall not at this time enlarge upon this aspect of the ex-
periment, but I do wish to call attention to the need for better control
over the work of city marshals who execute the writs of eviction.
The city marshals are subordinate to the mayor, being appointed
by him and subject to removal by him on charges. At the time of
my investigation, I found that the marshals made to the court no
adequate report of action taken by them on the service of writs, and
that no information as to their conduct was available to the mayor or to
any representative of the mayor. To remedy this condition, I have in-
stituted a form of report on action taken in the service of writs of evic-
tion to be submitted periodically by marshals to the commissioners of
accounts. These reports will gradually develop information of a suffi-
ciently comprehensive character to enable us to determine whether
additional action needs to be taken to prevent the eviction of indigent
persons for inability to pay rent.
As a by-product of the agitation of the eviction question, one of
the newspapers in the city for some time conducted a "save a home"
campaign.
Several conferences have been held in my office with landlords
and representatives of tenants to see whether any plan could be
worked out by which landlords might give to a central organization
notice of tenant delinquents, thus affording an opportunity for pos-
sible relief before action for eviction was instituted. Up to date, no
feasible scheme for safeguarding a practice of this kind against ex-
ploitation, either by landlords or by tenants, has been devised.
Study of the Unemployment Problem
The establishment in 1914 of the municipal and state public em-
ployment bureaus, together with the increased accommodations for
homeless men provided by Commissioner Kingsbury at the municipal
lodging house, put the city in a much better position to deal this winter
with the problems arising from unemployment than in the winter of
1913-1914. But the outbreak of the war, coming as it did on top of
a depressed industrial condition, so augmented the number of unem-
ployed that it became necessary to take further steps.
When industrial conditions seemed to be growing worse instead
of better, and there appeared on every hand isolated attempts to deal
with the unemployment problem in a fragmentary way, I recom-
mended to you the appointment of a committee on unemployment,
similar to committees appointed in Chicago and other cities to deal
with this question. I emphasized particularly the importance of
bringing into this committee representatives of both labor and cap-
ital as well as philanthropists and public-spirited citizens generally.
You appointed an exceptionally representative committee
under the chairmanship of Ex-Judge Elbert H. Gary of the
United States Steel Corporation. I have served as the general sec-
retary of the committee, and in consequence have been obliged to
devote a considerable amount of time to the unemployment question
during the winter.
The work done by the committee has already been reported to
you by the chairman. Apart from relief measures instituted this
winter, to supplement the work of the organized relief agencies, the
trade unions, neighborhood societies, etc., the committee brought to-
gether in a common program all the elements of the community con-
cerned with unemployment. Churches, labor organizations, settle-
ments, business organizations, relief societies, and representatives of
the government worked with one another, not only to meet present
needs, but to prepare against a recurrence of similar conditions in the
future. This committee divided itself into groups to deal with the
problems of distress and poverty due to unemployment, and with such
measures as the organization, on some permanent basis, of loan funds,
the shipping of labor to the country, the temporary housing of home-
less men, the timing of public works so as to fill in the periods of least
employment in private enterprise, the provision of emergency work
through relief workrooms, the question of vocational help to minors
through the co-operation of employment managers, and the develop-
ment of the public employment bureau.
Not of the least significance was the effort made to determine
for the first time with some accuracy the actual number of the un-
employed. The statistical department of the American Telephone and
Telegraph Company made a canvass of employers in all lines of
trade and industry to compare employment conditions during the
44
week ending December 19, 1914, with those prevailing in the same
establishments during a corresponding week in 1913. Later, at our
request, the Metropolitan Life Insurance Company, through its
agents, made a canvass of about 650,000 of its New York policy-
holders. On the basis of the conditions of employment found among
these fairly well circumstanced workers and the total number of in-
dustrial workers normally employed in the city we estimated that ap-
proximately 385,000 people normally at work were unemployed. The
United States bureau of labor statistics later made a careful check
in representative sections of the city, involving 229,428 people, and
reached practically the same conclusions. The United States survey
was made with the aid of city inspectors whom we arranged to have
placed at the government's disposal.
I cannot at this time deal comprehensively with what was done
or with the lessons learned during the winter as to the limitations
of methods employed by the committee in meeting the problem. A
further and special report will be submitted to you on this subject.
It is, of course, impossible for either the municipality or a vol-
untary committee to deal effectively with the great and complex
problem of unemployment. The problem is an industrial one and its
solution rests primarily on business and industry. Governmental as-
sistance may be given by state and national governments, through
the provision of a genuinely adequate system of labor exchanges, and
ultimately, I hope, through the provision of a system of unemployment
insurance which now operates so successfully in England and in various
places on the continent. Your committee accomplished many results of
value, but none of greater benefit than by emphasizing the fundamen-
tal nature of this great question and the inadequacy of mere meas-
ures of relief in dealing with it.
Judge Gary has given generously of his time, funds and energy
to the problem. In addition, many specific contributions have been
made to the relief fund for workrooms, making possible the em-
ployment of 5,000 men and women during the period of greatest
stress. For raising this fund, aggregating $160,000 despite the se-
vere demands made on New York givers during the past winter by
local relief societies and war relief committees, credit is due to Mr.
George W. Perkins, chairman of the sub-committee on ways and
means. Work for the relief of unemployed women was effectively
carried on by a sub-committee of women under the chairmanship of
Mrs. James Speyer. Exceptional service was rendered by Deaconess
Charlotte M. Boyd and by Mr. William Hamlin Childs in managing
the work-rooms for men. The co-operation of the Salvation Army,
under the supervision of Col. Parker, aided materially.
The effective work done by the police in aiding cases of distress
and in finding employment for those out of work supplemented
the efforts of the mayor's committee. The police rendered splen-
:
45
did service and themselves subscribed a substantial sum of money to
relieve cases of need coming to their notice.
All in all, infinitely more was done during the past year in facing
the problem of unemployment in New York City than ever before.
Despite the obvious limitations of results accomplished, I feel that
foundations have been laid for future effective work. The commit-
tee is continuing the services of a secretary of experience, Mr. John
R. Shillady, so that next fall will find us, we hope, more adequately
prepared than ever before to deal with unemployment in New York.
New York City's Exhibit at the Panama-Pacific Exposition
I devoted a great deal of time and attention to planning and
supervising the preparation of New York City's exhibit for the
Panama-Pacific Exposition after you named me, on May 18, 1914,
chairman of the sub-committee charged with the preparation of this
exhibit. The major and sub-committees consist of the following:
Major Comittee-John Purroy Mitchel, chairman, George Mc-
Aneny, Lewis H. Pounds, Frederick H. Stevenson, Frank L. Dowling.
Sub-Committee-Henry Bruère, chairman; Albert E. Hull, secre-
tary; Robert Adamson, R. A. C. Smith, Louis Graves, Merritt H.
Smith, F. J. H. Kracke, John A. Kingsbury, Robert B. McIntyre, Dr.
G. F. Kunz, Burdette G. Lewis, Mrs. Mathilde C. Ford, E. A. Za-
briskie, Travis H. Whitney.
To organize the exhibit in detail we secured the services of
Mr. Morton L. Fouquet, assistant engineer in the borough of Brook-
lyn. His work has been exceptionally efficient.
In July, 1914, the board of aldermen and the board of estimate
appropriated $100,000 for the preparation of the city's exhibit.
Early in our conferences with the representatives of the exposi-
tion, we learned that no suitable space could be found for the
city's exhibit in the main exhibition buildings. Moreover, it seemed
to us that there would be advantage and distinction in providing a
special New York City building as had been done for the Chicago and
St. Louis expositions, if that could be done economically.
After negotiations with the exposition authorities, we obtained
an assignment of space on the so-called Marina on the exposition
grounds and where all of the state buildings are located, adjoining
the New York state building.
The state buildings, we found, were in the main to be expensive
structures, that of the state of New York costing about $200,000.
No such sum, of course, was available for the New York City build-
ing. I was authorized by the sub-committee to proceed to make ar-
rangements for the building, and after the adoption of a plan for the
exhibit, to supervise its execution.
46

EN YORX
THE CITY'S BUILDING. Cost, INCLUDING LANDSCAPING, $33,880.
B. G. GOODHUE, Architect

THE CITY OF REN YORIC
BI
MANHATTAN
WIRES
WILLIAMSBURG
BROOKLYN
CABLE SECTIONS EAST RIVER BRIL
9472
7696
WIRES
S296
WIRES
AN EXAMPLE OF THE MODEL BENCH. THIS IS A MODEL OF THE WILLIAMSBURG BRIDGE. ABOVE IS ONE OF THE WATERFRONT
PAINTINGS (1715) BY B. B. LONG.


YOFHD
BE
KE
ER
LIQ
This Is THE GREAT MODEL OF THE CITY. IT IS MOVED INTO THE SIDE AISLE WHEN THE CENTRAL SPACE IS CONVERTER. I
A MOTION PICTURE THEATRE.

KKKKKKKK
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KKBRIE
SKIN
RE
TH ARRANGEMENT
ONE OF THE LATERAL VISTAS, INDICATING TYPICAL TREATMENT OF THE WALLS AND BOOTH ARRANGEMENT.
It did not seem feasible, nor was there time to arrange for com-
petition in selecting the architect, as it was not determined to under-
take the construction of a building until the middle of the summer.
Our problem was to have it planned and completed in time for the
opening of the exposition on February 15, 1915. The sub-committee
authorized the expenditure of $50,000 on the building. I communi-
cated with the president of the Architectural League and the presi-
dent of the New York chapter of the American Institute of Archi-
tects, asking them if they would suggest architects from whom a
selection might be made. They called together the members of the
executive committees of the two organizations who in conference sub-
mitted three names. · After conferring with each of the nominees, I
selected Mr. Bertram G. Goodhue to do the work. Mr. Goodhue was
exceptionally qualified, because having designed and constructed a
number of buildings at the San Diego exposition he had an organi-
zation available on the Pacific coast to assist in the prompt construc-
tion of the city's building.
A building was designed 150 feet long by 105 feet wide, single
story, along simple, classic lines. It is constructed of travertine and
costs $27,630, a price obtained in competition among seven bidders.
In addition, an expenditure of $2,500 for landscape planting and
gardening, and $3,750 for the architects services bring the total
cost of the building under $35,000, or approximately 7c per cubic
foot. The building contains no windows, light being obtained en-
tirely from overhead. The internal layout provides a promenade
around the inside perimeter and a longitudinal promenade through
the center. There is also a cross space through the center which
is designed both as a promenade and an auditorium. This
arrangement leaves four rectangular spaces in the center of the
room. These are divided into groups of three booths each, and are
used for the exhibition of the official activities of the city.
In the center of the exhibit there is an elaborate model of the
city of New York, on the scale of 600 feet to the inch, consisting of
fifty-two thousand pieces. In addition, three large paintings show
authentically the waterfront of the city in 1715, 1815, and 1915.
These paintings are the work of Mr. B. B. Long and are available for
use in one of the city's public buildings at the close of the exposition.
The back wall of the building is divided into panels, six of which
are 13 feet wide, six 10 feet wide, and four 6 feet wide. In these
panels are shown facts relating to the great life features of the city,
the railroads, manufacturing, and mercantile enterprises, commerce,
hotels and theatres, together with a descriptive exhibit of the city's
population. We selected these as a background suggestive of the mag-
nitude, scope and variety of life in a city which is served by the activ-
ities of the city government exhibited in the booths and galleries.
The municipal exhibits are as complete as the space permitted.
V
47
They consist of models and photographs and statistical information
contained in specially designed racks. It was sought to make the
departmental exhibits as attractive as possible, not only to the visitor,
but to newspaper and magazine writers as well. The activities of the
departments are shown in cabinets, and there are presented in bulletin
form precise statements and statistics of departmental work together
with diagrams of organization. In addition to this information, one
sub-gallery has been devoted entirely to financial statistics and to a
branch of the Municipal Reference Library. It is here that visitors
to the exhibit desiring more detailed information come. Here they
find departmental reports and other official publications so arranged
that the average person interested in civic affairs will find it
easy to consult them. A variety of models has been selected to
show the conspicuously interesting features of municipal service, such
as the construction of the new subway, maritime and river traffic,
bridges, underground conduit and pipe construction, fireboats, police
stations, signal systems, Bellevue Hospital, public baths, illustrations
of tenement houses, etc.
Supplementing all of the exhibits, we have prepared the most
comprehensive series of moving pictures of city government work
and municipal life ever collected for the city of New York. Twelve
thousand feet of film have been prepared to exhibit in narrative form
the work of the police department, the fire department, the depart-
ment of correction, and the department of public charities; the story of
subway building, street lighting, parks, public schools and other educa-
tional institutions, and the city's recreation and amusement facili-
ties. These films themselves constitute a complete portrayal of New
York City's life and government, and will be a future valuable adjunct
to the city's educational work.
In my judgment, the money cost of this exhibit is well invested
in making known to the entire country the scope, variety and ef-
fectiveness of New York City's governmental service. The exhibit,
which is largely attended, is doing much to overcome the impression
that still lingers in many quarters of the United States that New
York City is governed extravagantly and inefficiently, except for oc-
casional spasms of reform, and is backward in the work of civic ad-
ministration. The exhibit will show, on the contrary, that New York
is in the forefront of civic progress in the United States, and will
make available to people the country over a vast amount of valuable
and suggestive information on the government of a great city.*
At your direction, I visited San Francisco at the end of March
to inspect the completed installation of the exhibit and to open the
city building to visitors. A special report was made to you on this
inspection.
*Word has just been received, as this report is going to press, that our exhibit was
awarded the Grand Prix and twenty separate medals and honorable mentions.
48
En route to and return from San Francisco I visited eight cities
and the University of Colorado on the invitation of civic and commer-
cial organizations to make addresses on the constructive work of the
city government and to discuss modern municipal problems. I under-
took to make these addresses because I regard it of the highest im-
portance that other progressive cities in the country should know that
New York is not bankrupt, ill-governed, or under the thrall of time-
serving politicians; but is alert, in sound condition, and leading the
way in the administrative reorganization of the vast and complex
activities of modern municipalities.
Charter Revision
On January 23, 1914, a charter revision committee was named
by the board of estimate and apportionment, consisting of the fol-
lowing:
John Purroy Mitchel, mayor; George McAneny, president, board
of aldermen; William A. Prendergast, comptroller; Frank L. Polk,
corporation counsel; Henry Bruère, chamberlain ;0. Grant Esterbrook,
Henry H. Curran, Frank L. Dowling, aldermen.
As yet the committee has only taken up in a preliminary way
the task assigned to it. I am now preparing for its consideration a
suggestion for the reorganization of the city government and for
the simplification of the charter, which will be submitted to you at
an early date in the form of a separate report.
Conclusion
You will appreciate that this report is by no means compre-
hensive. It touches only in a general way on the administrative prob-
lems with which it deals. I have made no mention of numerous
minor assignments that have occupied my time, nor of the many con-
ferences and public meetings for the discussion of city business to
which, in common with other city officials, many of my evenings, Sun-
days and holidays have been devoted. My part in all this work has
been that of an assistant to you and has been ancillary to the re-
constructive work carried on by department heads and systemati-
cally conducted by the department of finance and the agencies of
the board of estimate and apportionment. My work merely suggests,
and by no means fulfills, the possibilities of continuous and central-
ized attention to the multitude of general business and social ques-
tions upon which the efficiency of government in the last analysis
depends. While I claim no great achievement, I am gratified at
having been of service to you in carrying out your plans for pro-
moting the efficiency, economy and greater social serviceability of
the city government.
49
The conspicuous fact in this first year of administrative reor-
ganization, which is, after all, only preparatory to the complete re-
organization of the city government along modern lines, is the zeal
and devotion of department heads and the splendid spirit of team
work and co-operation that has prevailed throughout the city govern-
ment.
AUG 1 5 1915
50
PRESS OF
CLARENCE S. NATHAN, INC.,
NEW YORK.
2870-15-750 (N)

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