GIFT or 
 
„m1f«« 
 
 The Extension of Municipal Activities 
 
 and its Effect on Municipal 
 
 Expenditures 
 
 INCLUDING A REVIEW OF THE 
 BUDGETS OF NEW YORK CITY 
 SINCE CONSOLIDATION, 1898-1917 
 
 LECTURE 
 
 BY 
 
 WILLIAM A. PRENDERGAST, Comptroller 
 
 OFTKIJ ^l 
 
 UNIVERSITY 
 
 Delivered at The College of The City of New York 
 on February 14, 1917 
 
• ' • 
 
The Extension of Municipal Activities 
 
 and its Effect on Municipal 
 
 Expenditures 
 
 INCLUDING A REVIEW OF THE 
 BUDGETS OF NEW YORK CITY 
 SINCE CONSOLIDATION, 1898-1917 
 
 LECTURE 
 
 BY 
 
 WILLIAM A. PRENDERGAST, Comptroller 
 
 Delivered at The College of The City of New York 
 on February 14, 1917 
 
• • f ( 
 
 ■ : i ; 
 
 Wires* 
 
 COPYRIGHT, 1B17 
 
 WILLIAM A. PRENDERGAST 
 
THE EXTENSION OF MUNICIPAL 
 ACTIVITIES AND ITS EFFECT 
 ON MUNICIPAL EXPENDITURES 
 
 Including a Review of the Budgets 
 
 of New York City Since 
 
 Consolidation, 1898-1917 
 
 A few years ago many people were expressing impatience 
 with the advancing cost of government, especially municipal 
 government. It probably had not occurred to them that the ad- 
 vances in budgets and tax rates were only the precursors of gen- 
 eral increases in the cost of personal living, of which at the 
 present time there are such abundant evidences. It is not the 
 purpose of this argument to show the relation of the increased 
 cost of government to the increased cost of living. It is true, 
 however, that this relation is direct and far-reaching. The latter 
 subject is one which calls for separate treatment. Further, I 
 think it is important first to display the causes which have neces- 
 sitated larger municipal expenditures, because I am convinced 
 that they are among the potent causes for the progressively in- 
 creasing cost of living. 
 
 As an example of municipal expenditure I have selected the 
 annual outlays of the City of New York because I have a better 
 understanding of them than of those of any other city and be- 
 cause they are the largest of any American municipality and 
 cover the widest field of municipal activity. In using the City 
 of New York, however, I do so understanding that there are 
 other cities in the country which have introduced activities and 
 financial policies which have not as yet found favor here; but in 
 the large, there is no city which has done so much or so gener- 
 ously in actual outlay as the greatest city on the continent. Con- 
 sequently, it has seemed to me that New York furnishes the best 
 example. 
 
 Including the year 1917, the Greater New York will have 
 been in existence twenty years. This period covers four admin- 
 istrations of four years each and two administrations of two 
 years each. For the purposes of more compact analysis I have 
 
 493654 
 
decided to regard the two two-year administrations as a single 
 four-year period. There were two different Mayors in these 
 four years, but the same Comptroller and the same President of 
 the Board of Aldermen and the same President of one borough. 
 As these officials represented a voting strength in the Board of 
 Estimate and Apportionment of seven votes out of a total of 
 sixteen, it is fair to assume that the general attitude of these two 
 administrations toward expenditures was very much the same. 
 We therefore have the great advantage in estimating the growth 
 of expenditure during the entire existence of the Greater City 
 (five four-year periods) and for a total of years sufficiently long 
 to enable us to judge with reasonable accuracy of the general 
 policy underlying the authorization of our annual appropriations. 
 Throughout this discussion I will refer to these periods as 
 the first, second, third, fourth and fifth periods. For your com- 
 pleter information I will say that the first period embraces the 
 years 1898-1901, the administration of Mr. Van Wyck; the sec- 
 ond period, the years 1902-1905, the administration of Mr. Low 
 and the first term of Mr. McClellan; the third period, the years 
 1906-1909, the second term of Mr. McClellan; the fourth period, 
 the years 1910-1913, the administration of Mr. Gaynor, and the 
 fifth period, the years 1914-1917, the administration of Mr. 
 Mitchel. 
 
 The figures which I shall use will represent budget appro- 
 priations and not actual expenditures. This course is necessary 
 if deductions are to be drawn on the basis of the very latest 
 years and also to include the full twenty years of the life of the 
 Greater City. In addition to this, the expenditure basis of 1916 
 cannot be definitely determined until well into this year, and 
 1917 until the year 1918. The reason is that many obligations 
 incurred against the budget of a given year are not liquidated 
 during the calendar year. While it would be preferable to use 
 expenditure figures, the conclusions to be drawn from a budget- 
 ary or expenditure basis will be very much the same. 
 
 Since January 1, 1898, there has been returned to the Gen- 
 eral Fund as savings from budgetary appropriations (1898- 
 1915) the large sum of $33,004,623.10. The total appropriations 
 for departmental expenditures and debt service of that period 
 were $2,384,689,363.17, plus $51,640,320.22 provided for defi- 
 ciencies in taxes, or a grand aggregate of $2,436,329,683.39. The 
 savings were 1.34 per cent, of the appropriations. Approxi- 
 mately 60 per cent, of this saving has been effected since the insti- 
 
 2 
 
tution, in 1909, of the segregated or intensively itemized budget, 
 strictly controlled during its operation by the action of the Board 
 of Estimate and Apportionment. The effectiveness of this con- 
 trol is shown in the fact that 60 per cent, of the savings has been 
 made in seven years, while 40 per cent, only resulted in the previ- 
 ous eleven years of the city's life. Against this saving, however, 
 there must be reckoned the special revenue bonds issued by the 
 city in the year 1915, amounting to $9,367,075.34, and which are 
 a charge against the budget of 1916. These bonds are issued for 
 special and emergent purposes which cannot be foreseen or pro- 
 vided for when the annual budget is being prepared. The net 
 savings, therefore, upon the budgets of 1898-1915 were the differ- 
 ence between $33,004,623.10 and $9,367,075.34, or $23,637,547.76, 
 or 1 per cent, of the total budgets of the years mentioned. It 
 will, therefore, be apparent that the budgetary basis is an entirely 
 reliable one for this discussion. 
 
 The appropriations for all purposes during the first four 
 years of the city's life were $359,872,552.71 and $5,988,641.00 for 
 deficiencies in taxes, making a total of $365,861,193.71. For the 
 last four years $815,535,637.44, an increase of $449,674,443.73, 
 or 122.91 per cent. The total allowances for city purposes in- 
 creased 111.77 per cent., and for county purposes 118.84 per cent. 
 The population increased from an average of 3,407,315 in the first 
 period to 5,535,515 in the current period, or 62.46 per cent. The 
 disparity in the increase in appropriations, compared with the in- 
 crease in population, is about 100 per cent. In other words, the 
 costs of government increased approximately twice as fast as the 
 population. The average per capita appropriations in our 
 
 First period were $26 . 84 
 
 Second period were 27 . 24 
 
 Third period were 31 . 23 
 
 Fourth period were 35 . 55 
 
 Fifth period were 36 . 83 
 
 It will be seen that the greatest per capita increase ($4.32) 
 took place in the fourth period, and the next largest ($3.99) in 
 the third period. The most significant feature of the foregoing 
 table is that the per capita increase of the fifth period, the era 
 of highest prices, is only $1.28. Equally striking is the fact that 
 this increase is more than accounted for by the increases in the 
 per capita cost of carrying the city's debt service, which was 91 
 cents, and education, which was 79 cents. There were increases 
 
 3 
 
in per capita costs in six divisions of the budget, amounting to 
 $2.08, and decreases in seven, of $0.80, or a net increase of $1.28. 
 
 Why should there be a difference of nearly 100 per cent, 
 between the increase in appropriations and the increase in popu- 
 lation? It could be deduced in part from the very great increase 
 in the cost of supplies, but the latter represents an inconsiderable 
 share of the budgets of the periods under consideration. It was 
 not caused by an increase in the average size of salaries and wages, 
 for the standard has not been raised, but, on the contrary, it has 
 been stabilized. 
 
 The principal reason for the difference under discussion is 
 the greatly enhanced service of all kinds which the public has 
 demanded and received, and the necessary extension of the ex- 
 pense basis in order to meet public demand. The same dis- 
 parity in the percentage of the costs of government, compared 
 with the percentage of increase in population, is manifest in all 
 divisions of the public service — national, state and municipal. 
 
 The analysis of the respective elements of our municipal ap- 
 propriations which will now be offered will, I trust, help to cast 
 some degree of light upon the increased cost of our government. 
 This increased cost will represent the advances which have taken 
 place in the cost of those activities which are of a normal char- 
 acter and those which may be denominated as new activities or 
 extensions of the municipal service. 
 
 The educational and recreational outlays combined represent 
 the largest element of cost of all the departmental activities of 
 the city government. The appropriations I will discuss under 
 this classification include those for elementary and high school 
 education, the permanent census board, Hunter College and 
 the College of The City of New York, the library systems in all 
 the boroughs, the parks and museums and the Brooklyn Disci- 
 plinary Training School for Boys, now abandoned, but the cost 
 of which appears in the tabulations of prior years' expenses. 
 
 In our first four-year period the appropriations for all the 
 foregoing purposes were $67,645,127.96, and in the present four- 
 year period $183,636,538.63, an increase of $115,991,410.67, or 
 171.47 per cent. It is well to contrast this percentage of increase 
 for educational and recreational purposes with the percentage 
 of increase for all purposes, city and county, during the same 
 periods, which was 122.91 per cent., and the increase in popula- 
 tion 62.46 per cent. The appropriations for the entire municipal 
 service have been double the increase in population, and for edu- 
 
 4 
 
cational and recreational purposes alone three times as great. 
 Attention should also be called to the fact that there are not in- 
 cluded in the educational appropriations the sum of $400,000 
 which is charged annually to the Department of Health for 
 medical inspection of school children and $500,000 charged to 
 the Department of Water Supply, Gas and Electricity for 
 water, power and lighting services in school buildings. Con- 
 sideration of the Department of Education alone suggests the fol- 
 lowing observations: The appropriations of our first period 
 were $58,150,663.57 and for the fifth period $159,429,572.34, an 
 increase of $101,278,908.77, or 174.2 per cent. The appropria- 
 tions for the first year of the Greater City were $12,003,681.84 
 and for 1917 $41,430,447.49, an increase of $29,426,765.65, or 
 245.1 per cent. How is this great increase accounted for? In 
 great part by the following causes : 
 
 1. The increase in school attendance. 
 
 2. Smaller classes, or a decrease in the number of pupils 
 taught by one teacher. 
 
 3. Additions to the curriculum and new special activities. 
 
 4. Increases in the compensation of teachers. 
 
 In the first period the average attendance was 369,937 and 
 for the fifth period (estimated for 1917) 711,931, an increase 
 of 341,994, or 92.4 per cent. As the school attendance has almost 
 doubled, it is safe to assume that on the basis of the appropria- 
 tions of 1898, $12,003,681.84, and considering the advances in 
 compensation of teachers and the supervising force which have 
 taken place, we can account for at least $11,000,000 of the in- 
 creased cost of 1917 over 1898. 
 
 The difference in the percentage of increase in school attend- 
 ance of 92.4 per cent., compared with the increase in population, 
 62.46 per cent., may be explained as follows : 
 
 At the time of consolidation the age of compulsory educa- 
 tion was from eight to twelve years, but has been changed to 
 from six to fourteen years. This has produced an increase of 75.1 
 per cent, in the elementary school attendance, excluding kinder- 
 gartens, as against a 62.46 per cent, increase in population. 
 
 In the second place the revised charter, which (for the school 
 system) took effect February 3, 1902, provides that no child 
 under six years of age shall be received except in kindergarten 
 classes. The result has been that the attendance in kindergartens, 
 which now costs approximately $900,000 a year for salaries of 
 
teachers, has increased at the extraordinary rate of 1014.0 per 
 cent. 
 
 Finally, the development of high schools has caused an in- 
 crease of 455.2 per cent, in their attendance. 
 
 Through the reduction of over-sized classes and the forma- 
 tion of special classes for the instruction of over-age, backward, 
 non-English speaking and mentally or physically defective chil- 
 dren, the average number of pupils in attendance per class has 
 been substantially decreased. At the time of consolidation 
 (1898) the classes in the elementary schools, especially in the 
 Borough of Brooklyn, were over-crowded. No official statistics 
 on this point for the period prior to 1902 are available. Since 
 that time, however, the average number of pupils in attendance 
 per class has been decreased from 39.6 pupils to 38.2 pupils in 
 1916. This difference of 1.4 pupils per class means an annual 
 additional cost of approximately $600,000. 
 
 The revised educational chapter of the Charter, which took 
 effect February 3, 1902, provided for the establishment of local 
 school boards, for the organization of a Board of Superintendents 
 and a corps of district superintendents. As a result of the cen- 
 tralization of the educational system there followed a standard- 
 ization of the courses of study, and additional studies were intro- 
 duced in the elementary and high schools. A uniform system 
 for all the boroughs had the effect of extending the elementary 
 school course in the Boroughs of Manhattan and The Bronx 
 from seven to eight years, and the institution of instruction in 
 shopwork and cooking in the upper grades in all boroughs. This 
 period also saw an extension throughout the city of the vacation 
 school and playground activities, and recreation centers and 
 evening playgrounds were organized. The per capita cost of 
 education and recreation, based upon total population, increased 
 from $4,963 for the first period to $6,142 for the second period, 
 an increase of $1.18, although the per capita increase was only 
 $0.73 for the third period, $0,626 for the fourth period and $0,796 
 for the fifth period. 
 
 The first vocational school for boys was opened in 1909. The 
 appropriation for 1917 for vocational schools is approximately 
 $250,000. Evening trade schools were organized in 1905 and 
 received an appropriation of over $100,000 for 1917. Classes 
 in prevocational training for seventh and eighth grade pupils and 
 in continuation and co-operative work were inaugurated in 1914 
 and received appropriations of approximately $100,000 for 1917. 
 
 6 
 
While the increase in attendance, the reduction in the size 
 of classes, the inauguration of new activities, and the extension 
 of the supervising staff, represent the bulk of the advances in the 
 cost of educational maintenance, another and very considerable 
 factor has been the increments in the compensation of the teach- 
 ing force. There are three notable enactments affecting teachers' 
 salaries: The Ahearn Law, which took effect April 25, 1899, 
 and imposed an immediate increased cost of $1,200,000 per an- 
 num; the Davis Law, which took effect May 3, 1900, just one 
 year after, and required an issue of special revenue bonds in the 
 sum of $1,124,275.86; the Equal Pay Law, which went into effect 
 January 1, 1912. and obliged the inclusion of an additional $3,- 
 850,000 to the budget of that year, and now produces an esti- 
 mated enhanced per annum cost of $5,000,000. When we con- 
 sider that the number of teachers must annually be increased to 
 keep pace with the growth of school population, the total addi- 
 tional expense caused by the laws mentioned may be conserva- 
 tively estimated at $9,000,000 a year: 
 
 The appropriations for the College of The City of New 
 York and Hunter College for the first period were $1,490,000; 
 for the fifth period $5,002,417.62, an increase of $3,512,417.62, 
 or 235.7 per cent. A comparison of the registration and appro- 
 priation figures shows that while the latter have increased by 
 235.7 per cent., the registration has increased in Hunter College 
 by 3.1 per cent., in City College by 116.3 per cent., and in the 
 colleges as a whole by 40.1 per cent. Again we have a great 
 disparity in the percentage of increases between appropriations, 
 registration and population noticeable in the figures reflecting the 
 operations of the educational department of the city. 
 
 The city colleges have undergone revolutionary changes in 
 their general character and work since consolidation. The very 
 great increase in their cost, therefore, is due more to these changes 
 than the ordinary increases that would naturally result from 
 augmented attendance or the introduction of new activities, as 
 in the case of our secondary educational system. At the time of 
 consolidation the city colleges were in reality only academies. 
 They accepted the graduates of our elementary schools, the City 
 College requiring a five-year course, and Hunter College a four- 
 year course. Degrees were conferred. Since 1898, however, both 
 institutions have lengthened their courses, calling for a full four- 
 year college term with the usual entrance requirements. Stu- 
 dents of Townsend Harris Hall of the College of The City of 
 
 7 
 
New York are permitted to enter the college after three years of 
 study. Hunter College also includes in its equipment a model 
 elementary school. While the number of courses and the regis- 
 tration in the collegiate departments of both institutions have 
 increased, the registration in the high school and model depart- 
 ments has decreased. A part of the advance in the cost of these 
 colleges is accounted for by the reduction in the size of classes and 
 the application of the Equal Pay Law to the teachers in the high 
 school and model elementary school in Hunter College; also the 
 removal of the College of The City of New York to its present 
 dignified buildings, requiring additional allowances for main- 
 tenance and operation. A small fraction of increased cost is due 
 to the initiation of extension courses for teachers in 1908 and 
 evening courses in 1909 in the College of The City of New York. 
 
 Allowances for public circulating libraries have increased 
 from $922,506.60 for the first period to $5,499,467.51 for the 
 fifth period, an increase of $4,576,960.91, or nearly five times. 
 The per capita appropriation for -public libraries was $.068 for 
 the first period, as against $.248 for the current period. In 
 1898 the city provided for twelve different libraries on the basis 
 of an allowance which could not exceed ten cents per volume 
 lent for home use, but soon afterwards, when the three existing 
 library systems were incorporated, the policy was changed so 
 that the city recognized only the New York Public Library, the 
 Brooklyn Public Library and the Queens Borough Public 
 Library systems as its agents in the administration of library 
 funds. Appropriations for the Brooklyn Public Library ap- 
 peared in the budget for the first time in 1899, for the Queens 
 Borough Public Library in 1901 ( and for the New York Public 
 Library in 1902. The increase in library appropriations is 
 largely due to the establishment of the Carnegie branch libraries 
 and the general extension of library service. In 1898 the annual 
 circulation in the twelve libraries to which the city contributed 
 was 1,947,448, while in 1916 the circulation in the ninety-five 
 branches in the New York, Brooklyn and the Queens Borough 
 Public Libraries combined was 16,293,203, an increase of 836 
 per cent. 
 
 Let me now call to your attention the growth in expendi- 
 ture which the increased facilities for recreation have caused. 
 We find that the allowances for parks and museums during the 
 first period were $6,889,957.79. During the fifth period, $13,- 
 646,762.81, an increase of $6,756,805.02. Of this increase $3,453,- 
 
182.42, or 51.1 per cent., is due to increases for ordinary park 
 maintenance, and $3,303,622.60, or 48.9 per cent., to increases 
 for other than ordinary items, such as art and natural history 
 museums, zoological and botanical gardens, music, playgrounds, 
 bath and comfort stations and school farms. 
 
 Appropriations for ordinary park maintenance have in- 
 creased 67.65 per cent, between the first and fifth periods, or a 
 little more than the rate of increase in population. Allowances 
 for the extraordinary items just noted have increased 184.99 
 per cent., or nearly three times as fast as allowances for ordinary 
 park items, and nearly three times as fast as the rate of increase 
 in population. 
 
 The allowances for ordinary park maintenance items in the 
 first period were $.3745 for each person in the city's population, 
 while in the fifth period it had risen a cent and one-fifth, an in- 
 crease of only 3.2 per cent. Nevertheless, the average yearly 
 per capita allowances for other than ordinary items, which in 
 the first period were $.1305, in the fifth period were $.2295, an 
 increase of 75.8 per cent. The per capita allowances for new 
 or other than ordinary items show a rate of increase over twenty- 
 four times as great as the rate of increases for ordinary park 
 items. Comparing the first period with the fifth period, it is 
 found that the total increase for other than the ordinary pur- 
 poses is as follows: 
 
 Museums $1,193,831 . 00 
 
 Zoological Gardens and Menageries 651,656.85 
 
 Botanical Gardens 452,207 . 77 
 
 Playgrounds, School Farms, Baths and Comfort 
 
 Stations and Band Concerts 1,005,926.98 
 
 $3,303,622 . 60 
 The next important element of our municipal activity to be 
 considered is "health, sanitation and the care of dependents." 
 In this group is comprised the social services which the city 
 renders to the community. It includes the Departments of 
 Health, Street Cleaning, Water Supply, Gas and Electricity; 
 Tenement House, Public Charities, Bellevue and Allied Hos- 
 pitals, Charitable Institutions and the Board of Child Welfare. 
 This list includes certain activities which were not a part at all 
 of the group in our first period, during which the appropriations 
 were $47,455,898.77. In the fifth period the appropriations had 
 risen to $119,567,369.00, an increase of $72,111,470.23, or 151.95 
 
per cent., another instance in which the increase in appropria- 
 tions has been much greater than the increase in population. The 
 per capita increase in the fifth period over the first period was 
 $1.92. The per capita cost of this group reached, in the fourth 
 period (1910-1913), its highest level, $5.55, but has fallen to 
 $5.40 in the fifth period, despite the fact that during this period 
 there has been added the Board of Child Welfare, with appro- 
 priations for 1916 and 1917 of $1,291,020.00. This indicates a 
 very considerable saving in other divisions of this group, notably 
 in the lighting service under the Department of Water Supply, 
 Gas and Electricity. 
 
 In the first period the appropriations for the Department of 
 Health were $4,209,466.66; in the fifth period $13,596,335.82, 
 an increase of $9,386,869.16, or 223.01 per cent. During these 
 periods there have been added to the Department functions which 
 in 1917 represent a cost of over $1,692,000. These are a Bureau 
 of Child Hygiene, $630,000 ; Division of Communicable Diseases, 
 $475,000; Food and Drug Inspection, $222,000; a Bureau for 
 Health Education, $40,000 ; inspection of Charitable Institutions 
 receiving city aid, $25,000; the Otisville Sanitarium for tuber- 
 culosis cases, $250,000, and the Queensboro Hospital for Con- 
 tagious Diseases, $70,000. In 1911 fifteen milk stations which 
 had been maintained entirely by private generosity were taken 
 over by the city. The number of these stations has now been 
 increased to 57. The foregoing list shows the broadened social 
 influence of the department and explains much of the great per- 
 centage of increase, 223.01 per cent., in the cost of administering 
 its work. It is not out of place here to mention the decrease of 
 the city's death rate, from 20.26 in 1898 to 13.93 in 1915. 
 
 The appropriations for the Department of Street Cleaning 
 in the first period were $18,600,166.95, and in the fifth period $30,- 
 528,986.77, an increase of $11,928,819.82, or 64.13 per cent., a per 
 capita increase of $0.02. The highest level of per capita ap- 
 propriations for this department was in the third (1906-1909) 
 and fourth (1910-1913) periods, $1.49 (in both), and in the 
 fifth period (1914-1917) it fell to $1.39. It will be noticed with 
 interest that the increase (64.13 per cent.) in the appropriations 
 for the department in the span of twenty years closely approx- 
 imated the increase in population, of 62.46 per cent. The growth 
 of the city and the installation of modern machinery and methods 
 account for the very reasonable advance in appropriations for 
 this department. 
 
 10 
 
The appropriations for the Department of Water Supply, 
 Gas and Electricity in the first period (1898-19C1) were $5,741,- 
 044.01, and in the fifth period (1914-1917) $27,027,110.33, an 
 apparent increase of $21,286,066.32, or 370.77 per cent., and a 
 per capita increase of $0.81. The per capita allowances for this 
 department reached their highest level in the fourth period (1910- 
 1913), $1.45, but in the fifth period (1914-1917) have fallen to 
 $1.23. I have used the words "apparent increase" in describing 
 the advance in appropriations from the first period to the fifth 
 period because the increase is more apparent than real. In the 
 first period the sum of $6,000,000.00 was charged to the cost of 
 borough government, which under our present procedure would 
 be charged to this department. The substitution of electric 
 power, the extension of the water supply, especially on Long 
 Island, the institution of the high pressure fire service and the 
 very great addition of water facilities for bathing and sanitary 
 purposes in private dwellings, public schools and public baths 
 indicate some of the reasons for the increases in cost. The col- 
 lections of water rates have increased from the first period (1898- 
 1901), $28,195,994.86, to $53,739,586.54 (estimated as to 1917) 
 in the fifth period, or 90.59 per cent. 
 
 The Tenement House Department represents appropria- 
 tions in the first period of $2,091,780.00, and in the fifth period 
 $2,789,440.12, an increase of $697,660.12, or 33.35 per cent., and 
 a per capita decrease of $0.02. The per capita costs of this de- 
 partment during all the different periods have been very uniform 
 — $0.15 in the first period, $0.16 in the three succeeding periods 
 and $0.13 in the fifth period. The work of this department has 
 been practically unchanged. Many worthy people advocate its 
 continuance, but were it not for the sentimental interest attaching 
 to the work itself there would be a more determined effort made 
 to consolidate its functions with those of the other supervising 
 and inspectional agencies of the city government. 
 
 The Department of Public Charities received appropriations 
 in the first period of $7,521,731.98, and in the fifth period $16,- 
 379,495.46, an increase of $8,857,763.48, or 117.76 per cent., a 
 rate again twice as great as the increase of population. The per 
 capita increase in this department in the twenty-year period was 
 $0.19, the per capita cost reaching its highest level at $0.74 in the 
 fifth period. The principal extensions in the work of this de- 
 partment have been a system of social investigations covering 
 the necessary inquiry into the circumstances of those for whom 
 
 ll 
 
admission has been sought into the different institutions con- 
 trolled by the city and private institutions to which commitments 
 are made, and the after-care which is now properly regarded as 
 an essential feature of public aid. These services represent an 
 appropriation of $330,000 in the 1917 budget. 
 
 Three new hospitals have been opened within the last three 
 years : Sea View, for tuberculosis cases only ; Coney Island, for 
 general service, and Greenpoint, in which the care of children is 
 the leading activity. The maintenance of these hospitals amounts 
 to $432,000 in the 1917 budget. 
 
 A centralized ambulance service for general calls was estab- 
 lished in 1910 and received an appropriation of $89,125 in 1917. 
 A Farm Colony on Staten Island for the indigent aged was 
 started in 1904, 13 years ago, and requires an appropriation of 
 about $180,000 in 1917. A system for placing children in private 
 families, just started, calls for an appropriation of $125,000 in 
 1917. The scope of many of the old institutions has been ex- 
 tended, and it must be admitted that, considering the very great 
 additional demands upon the service of this department, it was 
 not until the fourth and fifth periods (1910-1917) that its in- 
 terests seem to have had the attention their urgency justified. 
 A notable instance of what might be called neglect has been the 
 condition of the Randall's Island institutions for the feeble- 
 minded, which for many years never had the attention it deserved. 
 
 The institutions known as Bellevue and Allied Hospitals 
 were organized as a separate department in 1902. It is impossible, 
 therefore, to use the same basis of comparison in appropriations 
 employed in the cases of the other departments. The appro- 
 priations for this department in the fifth period (1914-1917) 
 were $5,864,981.50. The per capita appropriations for the work 
 have been fairly normal, being $0.15 in the second period (1902- 
 1905), $0.20 in the third period (1906-1909), $0.25 in the fourth 
 period (1910-1913) and $0.27 in the fifth period (1914-1917). 
 
 The accommodations of the existing institutions have been 
 largely increased and a number of new pavilions have been added 
 to the original Bellevue Hospital. The out-patient department 
 is one of the newer features of the work and received an appro- 
 priation in 1917 of $48,000. The new Neponsit Hospital at 
 Rockaway, built by private generosity at a cost of $250,000, for 
 the special care of children suffering with tuberculosis of the 
 bones, joints and glands, is now a part of the Bellevue and Allied 
 Hospitals group and requires for maintenance in 1917, $50,000. 
 
 12 
 
Here, as in the case of the Department of Public Charities, the 
 improvements in structural facilities have not been made with 
 the generosity which has characterized other public works. 
 
 The Charitable Institutions included in the city budget are 
 private institutions, to which the municipality makes payments 
 on the basis of the per capita service rendered. They consist of 
 child-caring homes, hospitals and homes for delinquent children. 
 For generations the city has been using these institutions to 
 look after its neglected, diseased and disabled. In the first period 
 the appropriations for the service anticipated to be rendered 
 by these institutions amounted to $9,291,709.17; in the fifth 
 period, $21,755,242, an increase of $12,463,532.83, or 134.13 
 per cent., and a per capita increase of $0.26. The per capita rate 
 of appropriations was $0.68 in the first period, $0.74 in the second 
 period, $0.92 in the third period, $0.95 in the fourth period and 
 $0.99 in the fifth period. The sharp advance in the per capita 
 rate in the third period is occasioned principally by an increase 
 in the rates paid for service. Additional advances were made 
 in the present period for child-care and hospital service. In 
 1910 special rates were accorded to those child-caring homes 
 which had established or would establish homes on the cottage 
 plan, the nearest possible approach to the individual home at- 
 mosphere. These rates were again advanced for the 1917 bud- 
 get to $3.50 per child. That one item represents an increase in 
 the budget of $55,000. Many of the institutions have largely 
 increased their accommodations and erected new and substantial 
 buildings. The number of dependents cared for as city charges 
 has also greatly increased, from 15,232 in 1903 to 20,992 in 
 1916. This increased register of dependents may be directly 
 attributed to an extension of municipal activity, as it is due in 
 part to the following causes: (1) a more intensive service in 
 helping the disabled and diseased, due to a riper appreciation 
 of the municipality's function as a social agency, and (2) a 
 deeper inquiry into home surroundings through the medium of 
 the courts and the vigilance of the humanitarian societies, thus 
 rescuing many children from improper guardianship. 
 
 The Board of Child Welfare is the latest addition to the 
 methods employed for rendering civic aid. It is really a widowed 
 mothers' pension system and was provided for by a law passed 
 by the New York State Legislature of 1915. The law is per- 
 missive and the first financial provision was an item of $100,000. 
 included in the appropriations for Charitable Institutions in 
 
 13 
 
the budget of 1916. This sum was afterward augmented during 
 the year by a special appropriation of $300,000. The budget of 
 1917 contains an item for this work of $1,291,000. It was main- 
 tained, at the time the Widows' Pension Act was adopted, that 
 it would reduce the number of children committed by the city 
 to the child-caring institutions, by enabling their return to the 
 care of their own mothers, and in this way the necessary costs 
 for charitable institutions would be reduced. This argument was 
 fallacious, because it failed to take into account the big fact that 
 most of the children in the institutions, for which the city was mak- 
 ing payments, were orphans or those committed on the ground 
 of improper guardianship. So far there has been no indication 
 of any appreciable reduction in the number of children to be 
 cared for in the institutions, and the cost of the Board of Child 
 Welfare must be regarded as an additional outlay, due to this 
 very material extension of municipal activity. 
 
 Protection of Life and Property constitutes another, and 
 one of the most important, groups of municipal expenditure. 
 Under this title are included police and fire protection. The 
 appropriations for this branch of the service were $62,837,666.01 
 in the first period and $108,122,821.05 in the fifth period, an in- 
 crease of $45,285,155.04, or 72.08 per cent. In all these analyses 
 we are impressed by the fact that in some divisions of the city's 
 work the per centum increases in appropriations are much 
 greater than the increase in population, while in others the in- 
 creases are almost the same as population. The per capita in- 
 crease in the 20-year period mentioned was only $0.28 and the 
 per capita appropriation almost the same in all the periods. The 
 per capita cost of police and fire .protection was: 
 
 $4 . 61 in the first period 
 4 . 59 in the second period 
 4 . 83 in the third period 
 4.91 in the fourth period 
 4 . 89 in the fifth period 
 
 This very normal degree of appropriation is no doubt ex- 
 plainable by the fact that in the two departments, police and 
 fire, included in this group, there has not been much occasion 
 for many changes in the nature of the service. The only import- 
 ant changes have been the use of motor power instead of horse 
 power, but this, rightly controlled, would mean not an increase, 
 but a decrease, in the required appropriations. The one dis- 
 
 14 
 
tinctive innovation in this branch has been the establishment 
 of the Fire Prevention Bureau in 1912. The annual appro- 
 priation for this purpose has averaged $200,000. The work of 
 factory inspection has been transferred to the Fire Department 
 under the new buildings law passed in 1916, and the cost of this 
 work is placed in the budget of 1917 at $75,000. While this 
 will increase Fire Department costs, it ought to mean a net 
 decrease in the whole budget, as much of the work is to be done 
 by employees transferred from other departments and whose 
 places it will not be necessary to fill. 
 
 The appropriations for the Police Department in the first 
 period were $44,334,818.09, and in the fifth period $70,585,389.76, 
 an increase of $26,250,571.67, or 59.29 per cent. This repre- 
 sented a per capita decrease in the two decades. This is the 
 second occasion in this discussion where we have encountered a 
 per capita decrease. The singular thing is that contrary to al- 
 most all other experience in city expenditure, the highest level of 
 per capita appropriation for this department was in the first 
 period (1898-1901). 
 
 The appropriations for the Fire Department in the first 
 period were $18,502,847.92, and in the fifth period $36,752,301.34, 
 an increase of $18,249,453.42, or 98.63 per cent. This depart- 
 ment shows a, per capita increase in the five periods of $0.31, the 
 highest level of per capita appropriation being in the fourth 
 period (1910-1913) $1.69. 
 
 Borough Government as now constituted was started in 1902. 
 The appropriations for the first period (1898-1901), which I 
 will use for illustrative purposes, comprise the same items since 
 charged to Borough Government, except that water service, 
 which during the first period (1898-1901) was considered a bor- 
 ough charge, although not under the borough government, is 
 included in these figures. I have previously referred to this 
 charge of $6,000,000 in my discussion of the Department of 
 Water Supply, Gas and Electricity. The first period's appro- 
 priations were $28,560,845.13, and those of the fifth period, 
 $35,454,377.12, an increase of $6,893,531.99, or 24.14 per cent. 
 If I were to deduct the charge of $6,000,000 for water service in 
 the first period, this increase would be a great deal more, and the 
 per capita cost in the first period would be $1.65 compared with 
 $1.60 in the last period. On this latter basis the highest level of 
 per capita appropriations in this division of the city's service was 
 $1.74 in the third period (1906-1909), the era of Presidents 
 
 15 
 
Ahearn, in Manhattan, Coler, in Brooklyn, Haffen in The Bronx 
 and Bermel and Gresser in Queens. 
 
 One striking feature of the appropriation record of Borough 
 Government is that the second lowest level of per capita appro- 
 priations, $1.60, takes place in the present period, the time of 
 largest population, greatest amount of general service and highest 
 prices for labor and materials. 
 
 The only new and important activities which have been added 
 to Borough Government in recent years are the care and main- 
 tenance of public baths and comfort stations, representing a cost 
 of $100,000 per annum, and new public buildings, notably the 
 new Municipal Building and the new Halls of Records in Man- 
 hattan and Brooklyn. 
 
 Central administration under our present budget procedure 
 is a classification which comprises the Department of Finance, 
 Board of Elections, Law Department or office of the Corpora- 
 tion Counsel, Department of Taxes and Assessments and the 
 Board of Estimate and Apportionment. The appropriations 
 for central administration in the first period were $10,435,146.74 
 and in the fifth period $22,427,539.93, an increase of $11,992,- 
 393.19, or 114.92 per cent., or twice the percentage of the in- 
 crease in population. The per capita increase was $0.24. The 
 appropriations per capita of this class have steadily increased 
 from $0.77 in the first period to $0.81 in the second period, $0.96 
 in the third period, $0.99 in the fourth period and $1.01 in the 
 fifth period. A separate analysis of the departments constituting 
 central administration will be helpful. 
 
 The Department of Finance is the clearing house of all the 
 financial transactions of all the city and county offices, including 
 the courts. Consequently, as the business of the city grows the 
 work of the Department of Finance increases. It follows that 
 the service to be performed under the budget of 1916, $212,- 
 956,177.54, must be much greater than the work required under 
 the budget of 1899, $95,209,959.84. 
 
 Outside of added duties due to the general volume of the 
 city's business, there has not been what might be called any gen- 
 eral extension of activities in this department. Changes and 
 improvements have been made from time to time in its methods 
 of doing business, but these have all had a tendency to reduce 
 expenses. The appropriations for this department in the first 
 period were $3,047,774.75 and in the fifth period $5,803,840.00, 
 an increase of $2,756,065.25, or 90.42 per cent. The per capita 
 
 16 
 
increase in appropriations was $0.04. The per capita of appro- 
 priations during the different periods were : First period, $0.22 ; 
 second, $0.24; third, $0.28; fourth, $0.29, and fifth, $0.26. This 
 shows that during the period of the largest budgets the per capita 
 basis of appropriations is less than during the third period (1906- 
 1909) and the fourth period (1910-1913). 
 
 The Law Department of the city is generally known as the 
 Corporation Counsel's office. This office is the law adviser to 
 the Mayor and all the city departments. Its functions, there- 
 fore, are of a stable character and in their very nature do not 
 admit of the introduction of new activities. It is true of this 
 department, as it is of the Department of Finance, that the 
 greatly increased business of the city produces a larger amount 
 of business for the city's law adviser. The appropriations for 
 this department in the first period were $1,599,032 and in the 
 fifth period, $3,424,570, an increase of $1,825,538, or 114.17 
 per cent., or a per capita increase in appropriations in the twenty- 
 year period of $0.03. The per capita appropriations for this de- 
 partment during the different periods were: 
 
 First period $0.12 
 
 Second period .12 
 
 Third period .17 
 
 Fourth period .17 
 
 Fifth period .15 
 
 — showing a per capita decrease in the period when the city has 
 had the largest amount of business to transact. 
 
 The Board of Elections has been charged with very great 
 additional work during the general period under review. Very 
 soon after consolidation, primary elections for the selection of 
 representatives to nominatory conventions were taken under the 
 jurisdiction of the state. The primary system has now been 
 extended to the selection of party officials and candidates for 
 the elective offices. Primary elections were formerly exclusively 
 in the charge of the party organizations and outside of official 
 control. While this is not literally an extension of municipal 
 activity, but rather an extension of state control of party affairs, 
 the effect has been to increase the city's expenses, because all 
 the cost of these primary elections within the city limits has to 
 be borne by the city treasury. The appropriations for the Board 
 of Elections in the first period were $2,761,171 and in the fifth 
 period $5,373,906, an increase of $2,612,735, or 94.63 per cent.. 
 
 17 
 
and a per capita increase of $0.04. The per capita appropriations 
 during the different periods were : 
 
 First period $0.20 
 
 Second period .23 
 
 Third period .24 
 
 Fourth period .23 
 
 Fifth period .24 
 
 - — showing a very uniform rate of appropriations after the first 
 period, when the first great change in our primary system was 
 instituted. 
 
 The Department of Taxes and Assessments has maintained 
 the same general duties during the history of the greater city. 
 Its work has naturally greatly increased. The appropriations 
 during the first period were $1,320,700 and in the fifth period 
 $2,296,602.50, an increase of $975,902.50, or 73.90 per cent., and 
 no per capita increase. The per capita appropriations have been: 
 
 First period $0 . 10 
 
 Second period .09 
 
 Third period .10 
 
 Fourth period .11 
 
 Fifth period 10 
 
 — indicating an almost unchanged basis of appropriations dur- 
 ing the entire twenty-year period. 
 
 The Board of Estimate and Apportionment is one of the 
 divisions of the city government for which the appropriations 
 have undergone very decided increases since consolidation. The 
 appropriations in the first period were $25,561.29 and in the 
 fifth period $2,078,388, an increase of $2,052,826.71, or eight 
 times, and a per capita increase 'of $0,088. It will be apparent 
 that this very large percentage of increase must be due to some 
 special cause. 
 
 The explanation is that in the early part of the consolidated 
 city's history the Board of Estimate and Apportionment was a 
 very small agency of municipal activity. Under the revised 
 charter of 1901 the duties of the Board were much increased, 
 and the whole tendency of charter legislation has been to add to 
 the Board's duties and power. One of the most significant in- 
 stances was the withdrawal from the Board of Aldermen of the 
 power to grant franchises and the vesting of it in the Board of 
 Estimate and Apportionment. But there is another very strong 
 reason for the Board's enhanced duties and activities. As years 
 went on it created for its own use bureaus to look after its work. 
 
 18 
 
In the first and second periods the Board depended almost entirely 
 upon the Comptroller to indicate to it the work to be done and the 
 preparation of its calendar. It is not too much to say that the 
 Board of Estimate and Apportionment was in a sense an ap- 
 panage of the Department of Finance. In the second and third 
 periods the Board, under the stress of its increasing work and 
 responsibilities, organized the Secretary's office, the Chief En- 
 gineer's office and the Bureau of Franchises. Even at this pe- 
 riod, however, most of its routine work and all of the budget 
 work was referred to the Department of Finance. At the com- 
 mencement of the fourth period (1910-1913) the Board made 
 another and very significant assumption of its own work by 
 creating many standing committees, the most important being 
 the Committees on Tax Budget and Corporate Stock Budget. 
 During the fourth period the Department of Finance continued 
 to do practically all of the Board's financial work. At the begin- 
 ning of the present period (1914-1917) the Board created addi- 
 tional bureaus and committees to take charge of the different 
 branches of its work. The consequence has been that the neces- 
 sary appropriations have been made directly to the Board. While 
 some of the Board's new activities are really assumptions of work 
 heretofore done by other departments, even in these cases, the 
 work is being done on a more comprehensive scale. The new 
 activities are the Bureaus of Personal Service and Contract Su- 
 pervision, and the committees are Education, Port and Terminal 
 Facilities, City Planning and Pensions. The per capita appro- 
 priations for the Board of Estimate and Apportionment were 
 in the first period $0,002, second period (1902-1905), $0.01, 
 third period ( 1906-1909) , $0.03; fourth period ( 1910-1913) , $0.04, 
 and in the fifth period (1914-1917), $0.09. It is interesting to 
 note that while the appropriations for the Board of Estimate and 
 Apportionment have increased in the fifth or present period at 
 a per capita rate of $0.05, this does not mean that there has 
 been any such increase in the city's expenses. The fact is that 
 this increase is entirely represented by appropriations now car- 
 ried by the Board itself that were formerly charged to other de- 
 partments. This is explained by the following table showing 
 the approximate cost to the city of the Board's new activities in 
 1913, the last year of the preceding period and 1917, the last of 
 the present period: 
 
 The 1917 appropriations, which should be used as a basis for 
 comparison, are as follows: 
 
 19 
 
Entire Personal Service, Board of Estimate and 
 
 Apportionment $463,850 . 00 
 
 Portion of the Personal Service appropriations 
 (estimated), Bureau of Municipal Investiga- 
 tion and Statistics 17,000 . 00 
 
 Efficiency force in the office of the Commissioner 
 
 of Accounts 46,020 . 00 
 
 $526,870.00 
 
 These agencies will perform in 1917, for approximately 
 $526,870.00, work that in 1913 was done at a cost of $643,339, 
 as follows: 
 
 Entire personal service appropriations for Board of 
 
 Estimate and Apportionment $270,110.00 
 
 Board of Estimate payrolls charged to the con- 
 tingency fund of the Board of Estimate and 
 Apportionment 98,990 . 00 
 
 Standardization of Salaries and Grades, charged to 
 
 contingency fund, Department of Finance. . . 71,479.00 
 
 Half time of Finance Department employees en- 
 gaged in salary and grade work 7,950 . 00 
 
 Entire schedule of Bureau of Municipal Investiga- 
 tion and Statistics in Department of Finance. 144,810.00 
 
 Portion of the cost of the Division of Expert Ac- 
 counting in the Department of Finance 50,000 . 00 
 
 $643,339 . 00 
 
 The fact is that the Board is now transacting all its neces- 
 sary work for $116,469 less than was required to do this same 
 work in 1913. 
 
 The next division of city activity to be considered is "Facili- 
 tating Commerce and Transportation," which includes the cost 
 of maintaining the Department of Bridges, the Department of 
 Docks and Ferries and the Municipal Garage. In the case of 
 this division comparisons on a twenty-year basis are not possible 
 for the reason that they would be distinctly misleading, as up to 
 1910 the cost of the Department of Docks and Ferries was en- 
 tirely defrayed from corporate stock or bonds. The Department 
 of Bridges has charge of the construction and maintenance of 42 
 bridges, crossing navigable streams. Up to 1903 the Brooklyn 
 Bridge, built by contributions from the old cities of New York 
 and Brooklyn, was the only large bridge owned by the city. 
 
 20 
 
Although the new subway system was started in 1900, the idea 
 of using subways as the principal means of travel, where the 
 different boroughs were separated by rivers, had not gained 
 very much headway. Consequently the period from 1896 to 
 1910 saw three great new bridges started and finished. These 
 are the Williamsburg (1896-1903), Queensborough (1901-1909) 
 and the Manhattan (1901-1910). It should be said that these 
 bridges were intended to be links in a general transit system. 
 They have been made so under the terms of the Dual Subway 
 contracts. In the first period the appropriations for the Bridge 
 Department were $1,664,344.13 and in the fifth period $3,395,- 
 671.94, an increase of $1,731,327.81, or 104.01 per cent. The net 
 cost of maintaining the three new bridges is $162,000 per annum. 
 The title of the Bridge Department was changed in 1916 to the 
 Department of Plant and Structures. It was designed to trans- 
 fer to the new department all the repair work done in the city 
 departments, such as Police, Fire, Charities, etc. In the bud- 
 get for this year there was included in the appropriations to 
 this department the sum of $258,570 with which to carry on this 
 repair work. To this extent the appropriations of the Fire and 
 Police Departments were reduced. This would explain some 
 of the apparent cost of this department for the fifth period, but as 
 the budget has been approved on that basis it is not necessary in 
 this discussion to re-segregate the items transferred. The trans- 
 fer of these activities will not be carried through at this particular 
 time as legal obstacles have intervened. The latter will probably 
 be removed by new legislation. 
 
 The Department of Docks and Ferries appeared in the 
 annual budget for the first time in 1910. Previous to this date, 
 as indicated above, all the expenses of maintenance and operation, 
 as well as the cost of land and construction, were met out of the 
 proceeds of long term bonds. This utterly unsound method of 
 municipal financing was abolished in 1909 as a result of a legis- 
 lative investigation into the city's finances. Because of the non- 
 inclusion in the budget prior to 1910 of operation and mainte- 
 nance charges we can make comparisons for only the fourth and 
 fifth periods. In the fourth period (1910-1913) the appropria- 
 tions were $11,437,948.94 and in the present period (1914-1917) 
 $7,757,287.82, a decrease of $3,680,661.12, or 32.17 per cent. 
 This decrease is accounted for by the discontinuance of the prac- 
 tice of doing much of the current repair and construction work by 
 departmental labor and also the discontinuance of the Stapleton 
 
 21 
 
Ferry. The work of the department is practically the same as it 
 has been since consolidation, except that its policy has been a much 
 more energetic one in meeting the present and preparing for the 
 future needs of the port. 
 
 The Municipal Garage is a new activity. It is the result of 
 pressure first exerted in the years 1910 and 1911 by the Depart- 
 ment of Finance to secui-e a more legitimate and economical use 
 of the automobiles used by city departments. The first appro- 
 priation, $137,500.50, was in the year 1916 and the figures for 
 this year are $106,375.50. There is no means of stating just 
 what reduction, if any, this may represent in automobile cost and 
 maintenance, but the new system is certainly inducing a better 
 control of the use of city machines. 
 
 We have two systems of courts, one comprising the state 
 and county courts and the other the city courts. In the latter 
 are included the City, Municipal, Special Sessions, Magistrates' 
 and Coroners' Courts. The City and Municipal Courts are 
 strictly civil tribunals. The Special Sessions and Magistrates' 
 Courts deal exclusively with offenses of a criminal character. The 
 appropriations for the city courts in the first period were $5,637,- 
 547.53 and in the fifth period $10,545,219.02, an increase of 
 $4,907,671.49, or 87.05 per cent., and a per capita increase of 
 $0.06. The average per capita allowances for the different 
 periods were : 
 
 First period (1898-1901) $0.41 
 
 Second period (1902-1905) ... .32 
 
 Third period (1906-1909) .38 
 
 Fourth period (1910-1913) .46 
 
 Fifth period (1914-1917) .47 
 
 The heavy per capita increase of $0.08 in the appropriations 
 from the third to the fourth periods is accounted for by the reor- 
 ganization of our minor courts system which took place in 1909 
 and 1910. The number of the courts was increased and a separa- 
 tion of functions instituted which aimed principally to save chil- 
 dren and adult first offenders from the blighting influence of 
 association with confirmed criminals and the introduction of a 
 more advanced probation system. The new activities in the 
 courts of the city are the creation of night, traffic and children's 
 courts, and probation and finger print systems. These repre- 
 sent a charge in our present budget of $424,000. Carried through 
 the eight years (1910-1917), they account in great part for the 
 heavy increase in the cost of conducting these courts. 
 
 22 
 
In the classification entitled "Correction," there are included 
 the Department of Correction, the Board of Inebriety and the 
 Parole Commission. 
 
 The Department of Correction is the penological branch of 
 the city government. Its name would indicate that its function 
 is to correct and remedy. It used to be managed on the prin- 
 ciple that incarceration, work and the wearing of degrading 
 uniforms were corrective measures. It is now conducted on the 
 enlightened principle that, while imprisonment is necessary, it 
 should be accompanied by a character of discipline which will 
 prove a deterrent to the commission of crime. The appropria- 
 tions for this department in the first period were $2,906,858.49 
 and in the fifth period, $5,824,188.81, an increase of $2,917,- 
 330.32, or 100.36 per cent., and a per capita increase of $0.05. 
 The average per capita appropriations during the different peri- 
 ods were : 
 
 First period $0.21 
 
 Second period .21 
 
 Third period .25 
 
 Fourth period .26 
 
 Fifth period .26 
 
 The facilities of the department have been expanded and 
 certain new activities introduced during the past ten years. 
 Among the important changes are the following, the figures 
 given being the maintenance cost for 1916: 
 New Wing of Work Shops, Penitentiary, B. I. ... $2,000. 00 
 
 Administration Building, Hart's Island 5,000 . 00 
 
 Industrial Building, Hart's Island 7,500 . 00 
 
 Isolation Building, Hart's Island 2,500 . 00 
 
 Power and Ice Plant, Hart's Island 40,000 . 00 
 
 Women's Prison, City Prison, Brooklyn 10,000 . 00 
 
 Workhouse, Medical and Surgical Service 15,000.00 
 
 City Prison, Queens 52,000.00 
 
 New Hampton Farms 162,000.00 
 
 The Board of Inebriety was organized in 1912. An act of 
 the Legislature had authorized the Board of Estimate and Ap- 
 portionment to create this board. It constitutes the first city- 
 wide attempt to cure and minimize the drink evil through scien- 
 tific treatment. It also expresses the policy that this is a munici- 
 pal and not exclusively a private duty. The appropriations for 
 this board in the two years of the fourth period (1910-1913) that 
 it was in existence amounted to $17,452.00. It is evident, there- 
 fore, that the beginning of this work was of a very modest char- 
 
 23 
 
aeter. A farm at Warwick, in Orange County, consisting of 610 
 acres, was purchased in 1913, but it was not until 191.5 that the 
 work was commenced in a thoroughly energetic way. The total 
 budget appropriations for the fifth period were $122,008.65. This 
 attempt at municipal treatment of a social evil is being watched 
 with much interest and anxiety by people who believe that the 
 humanitarian side of a city's life is an inherent part of its public 
 service and not a side issue, as some imagine. The success of the 
 Inebriety Farm will do much to establish the wisdom of such 
 adventures on the part of city governments. If it should prove a 
 failure the failure cannot help adversely affecting the extension 
 of municipal activities in similar directions. 
 
 The Parole Commission is the latest effort on the part of the 
 city to exercise a watchful care over those who have been sen- 
 tenced for minor offences and, if advisable, to ameliorate their 
 condition in accordance with the merits of their respective cases, 
 with this also in view that dependents of such unfortunate persons 
 shall not be deprived any longer than the absolute needs of justice 
 require of the support which should be theirs. 
 
 A Board of Parole was first provided for by appropriations 
 in 1907. In the third period (19C6-1909) the total allowances 
 were $8,400. In the fourth period (1910-1913) $2C,825 and in 
 the first two years of the fifth period $17,320. Those who 
 studied the work of this Board were satisfied that its organization 
 was not sufficiently complete and its powers too narrow ever to 
 permit it to be an actively useful force in treatment of prisoners. 
 Consequently, in 1915, the law was revised, broadened and 
 strengthened and penitentiary and workhouse prisoners brought 
 within its scope, with the effect tha ( t definite results are obtain- 
 able. Seven hundred and seventy-eight prisoners have been re- 
 leased and only 14.8 per cent, of these have violated their paroles. 
 In addition to this 400 families of prisoners have been aided. The 
 appropriations for the two years 1916-1917 amount to $121,092, 
 showing that the financial support extended to this work by the 
 city has been nearly $75,000 more in these two years than in the 
 nine years preceding. 
 
 The next classification to be considered is "Printing and 
 Publicity." This comprises the city printing, stationery supplies 
 and advertising. There has also been included in the total of 
 appropriations for the fifth period the cost of the Central Pur- 
 chase Committee, an entirely new activity, which amounts to only 
 $43,128.00 for the last two years. Efforts have been made since 
 
 24 
 
1913 to secure legislation which would enable the city to or- 
 ganize a Department of Purchase, to have charge of purchasing 
 supplies of all*kinds for the city and county offices, excluding, 
 however, the Department of Education. Various estimates have 
 been made of the possible savings through concentration of the 
 authority to make purchases, and figures deemed to be reliable 
 have indicated that savings to the amount of $3,000,000 annually 
 are possible. 
 
 The Central Purchase Committee is only a substitute for 
 such a department, and while the provisions of the Charter re- 
 main unchanged in the diversity of authority over purchases, the 
 Central Purchase Committee cannot do very much effective work. 
 The appropriations for the Board of City Record during 
 the first period were $2,163,400; in the fifth period $4,247,585.08, 
 an increase of $2,C84,185.08, or 96.34 per cent., and a per capita 
 increase of $0.03. A consideration of the per capita appropriations 
 for the five periods is very enlightening as showing the economies 
 that have been effected during the last two periods, although the 
 population of the city and the demands upon it have been greatest 
 during those periods. In the first period the per capita appro- 
 priations were $0.16; in the second $0.24; in the third $0.32; in 
 the fourth $0.27, and in the present $0.19. 
 
 There are certain general expenses which are classified as 
 "Miscellaneous." In the early years of the greater city these ap- 
 propriations were chiefly for the purpose of replenishing the 
 Fund for Street and Park Openings. The practice of using 
 Special Revenue Bonds to support this fund has been discon- 
 tinued and the "Miscellaneous" appropriations are now almost 
 entirely for the Board of Aldermen, the City Clerk and to pay 
 the City's rent charges when it hires private premises for public 
 uses. A comparison of the appropriations for the first and fifth 
 periods is not very helpful, as they represent different purposes 
 to a great extent. The figures are as follows: For the first 
 period, $9,567,999.69; for the fifth period, $4,610,174.03, a de- 
 crease of $4,957,825.66, or 51.81 per cent, and a per capita de- 
 crease of $0.48. The per capita appropriations for the five 
 periods are : 
 
 First period $0.70 
 
 Second period 0.28 
 
 Third period 0.20 
 
 Fourth period 0.29 
 
 Fifth period 0.22 
 
 25 
 
The Debt Service is the amount carried in the annual bud- 
 get to discharge the following obligations: 
 
 1. The amount necessary to pay off the special revenue 
 bonds issued in the preceding year. Special revenue bonds are 
 issued to take care of emergent expenses, the purposes of which 
 cannot be foreseen at the time the budget is being prepared. 
 
 2. Interest on the city debt. By this is meant the interest 
 on outstanding bonds and notes of all kinds, the interest on notes 
 to be issued during the year in anticipation of the collection of 
 taxes, also the interest on bonds issued for subway 'purposes on 
 account of lines which have been put into operation, but the rev- 
 enues from which operation are not sufficient to pay the city's 
 interest charges, and also the interest on special revenue bonds, 
 the principal of which will be discharged from the succeeding 
 year's tax levy. 
 
 3. The amortization installments to be paid into the sink- 
 ing funds. These are the annual payments the city must lay 
 aside in order that the payments and the interest earned by them 
 will be sufficient to meet bonds at their maturity. 
 
 4. The sums necessary to pay in full bonds for which no 
 sinking funds have been provided. These are almost entirely 
 bonds issued by the smaller municipalities and the towns and 
 villages which were merged in the Greater New York. Also 
 bonds issued prior to consolidation by the different counties 
 which are within the boundaries of New York City. 
 
 The Debt Service is the most misunderstood term in bud- 
 getary procedure. It is generally regarded as meaning only the 
 interest charges the city has to pay. Very few people know that 
 it also includes redemption of special revenue bonds, amortiza- 
 tion installments and provision for the payment of the maturing 
 bonds referred to in the preceding paragraph. Special revenue 
 bonds represent only about 14 per cent, of our present debt 
 service, so we will discard them for the time being in our discus- 
 sion of the reasons for the debt service. This service is the largest 
 single item in the budget and still it does not discharge directly 
 any municipal function. It is indirectly the sustaining power 
 of the entire municipal service, as it is the cost of carrying and 
 paying for the municipal plant. It is the cost of the city's 
 bonded debt. It would have been a financial impossibility for 
 the city to have possessed itself of its present plant if it had not 
 been able to pay for this plant through a term of years by issuing 
 bonds. I have said it would have been a financial impossibility 
 
 26 
 
for the city to have procured this plant, and by this I mean that 
 the city would never have been able to raise and spend the same 
 amount of money through twenty annual budgets as it has been 
 able to borrow upon its credit during that same period. 
 
 Since consolidation the city has issued $1,106,631,189.89 of 
 corporate stock and serial bonds. On the basis of the issues of 
 1914, 1915 and 1916, this total, including the issues during 1917, 
 will probably be increased to $1,158,299,128.08. Most of these 
 bonds are still outstanding, being held either by the public or 
 the sinking funds. Interest must be paid semi-annually upon 
 this great sum and provision must be made every year to retire it 
 at maturity. This is what necessitates a debt service and accounts 
 for the fact that it constitutes the largest element of the budget. 
 
 The corporate stock issues for the first and fifth periods are 
 as follows, the estimates for 1917 being based on the totals of 
 1914, 1915 and 1916: 
 
 1898-1901. 1914-1917. 
 
 Educational and Recreational . $32,574,299.99 $20,312,617.35 
 
 Health, Sanitation and Care 
 
 of Dependents 14,306,298.02 39,108,973.85 
 
 Protection of Life and Prop- 
 erty 1,852,389.71 2,558,737.11 
 
 Borough Government 29,614,177.19 46,653,850.47 
 
 Facilitating Commerce and 
 
 Transportation 40,701,668.49 117,366,377.70 
 
 Corrections 237,354 . 95 
 
 M iscellaneous 2,1 90,800 . 73 13,587,020 . 45 
 
 $121,239,634.13 $239,824,931.88 
 
 This represents an increase of $118,585,297-75, or 97.81 per 
 cent., and a per capita increase of $1.93. 
 
 The average per capita of corporate stock issues presents 
 the interesting fact that the first and fifth periods are the lowest. 
 These are the periodic averages: 
 
 First period $8.90 
 
 Second period 13.05 
 
 Third period 16.04 
 
 Fourth period 15.73 
 
 Fifth period 10.83 
 
 27 
 
This is interesting because the weight of the great outlays 
 for water supply extension and the new subway system has fallen 
 upon the last period. The explanation is, of course, a halting 
 in the activity which was most noticeable in the different branches 
 of construction work in the earlier periods. For instance, while 
 the outlays for the maintenance of the school system have greatly 
 increased, the corporate stock outlays for construction are not as 
 large as in the earlier periods of the city's history. Of the entire 
 per capita outlay ($10.83) for corporate stock during the present 
 period $5.30, or 49.05 per cent., is for the facilitation of commerce 
 and transit or docks, subways and bridges. 
 
 Having explained the reason for the debt service, I will now 
 present an analysis of its different elements already described. 
 
 The amount included in the budget for the redemption of 
 special revenue bonds in the first period was $18,445,349.41 ; in 
 the fifth period, $34,067,825, an increase of $15,622,475.59, or 
 84.69 per cent. " With the growth of the city it is natural that 
 unforeseen expenses should increase in about the same relative 
 proportion as other expenses. Another explanation is that many 
 judgments and claims are settled by special revenue bond issues, 
 and there have been more of these in the later than in the earlier 
 years of the city's existence. 
 
 The Interest on the City Debt in the first period was $44,- 
 867,912.13 and in the fifth period $165,479,927.39, an increase of 
 $120,612,015.26, or 268.81 per cent., and a per capita increase 
 of $4.18. The average per capita appropriation for interest in 
 the different periods was : 
 
 First period $3.29 
 
 Second period » 3.80 
 
 Third period 5.32 
 
 Fourth period 7.02 
 
 Fifth period 7.47 
 
 It is almost impossible to apportion the administrative re- 
 sponsibility for these interest charges. A great public improve- 
 ment may be authorized by one administration but no work com- 
 menced or bonds issued for it during the life of that administra- 
 tion. The interest charges follow the issuance of the bonds and 
 an administration will have to bear the responsibility of the in- 
 terest costs of the bonds, although it had nothing to do with the 
 initiation of the improvement and might not have authorized it, 
 if action on the particular proposition had been deferred. As an 
 example, the greater part of the new Catskill water supply 
 
 28 
 
system was authorized during the administration of Mayor 
 McClellan, but the work has been done and the costs incurred 
 during the administrations of Mayors Gaynor and Mitchel. The 
 new subway work was authorized during the administration of 
 Mayor Gaynor, but most of the costs are being incurred during 
 the administration of Mayor Mitchel. These great public under- 
 takings are essential to the life of the city and their very vastness 
 makes it impossible to do all the work within the life of any ad- 
 ministration. The question of responsibility for the cost of bear- 
 ing public improvements is, in my judgment, not a very material 
 one. The city is a great going concern. Its business and its 
 progress cannot be timed to the prejudices of any set of officials. 
 In addition there has been very little of our public improvement 
 work of all kinds which has not had general popular approval. 
 
 The Amortization Installment appropriations in the first 
 period were $12,138,449.52, and in the fifth period $31,751,- 
 778.88, an increase of $19,613,329.36, or 161.58 per cent., and a 
 per capita increase of $0.54. The average per capita allowances 
 have been : 
 
 First period $0.89 
 
 Second period 1.24 
 
 Third period . 1.34 
 
 Fourth period 1.60 
 
 Fifth period 1.43 
 
 As the amount of our outstanding bond issue increases the 
 amount of amortization charges must increase. This condition 
 will continue until Ave reach the time when the annual reduction 
 or redemption of our debt is in excess of the annual output of 
 corporate stock. 
 
 The appropriations for the Redemption of the City Debt 
 (which, as I have explained, cover the liquidation of those bonds 
 for which no sinking funds have been established) were, in the 
 first period, $4,270,337.93, and in the fifth period $14,102,146.48. 
 an increase of $9,831,808.55, or 230.23 per cent., and a per capita 
 increase of $0.32. The city has no power and has had none to 
 regulate these redemptions as they are for bonds issued before 
 consolidation. Consequently their maturities become annual 
 charges which the present city can in no way disturb or minimize. 
 
 The total debt service called for appropriations in the first 
 period of $79,722,048.99, and in the fifth period $245,401,677.75, 
 
 29 
 
an increase of $165,679,628.76, or 207.83 per cent., and a per 
 capita increase of $5.23. 
 
 The average per capita allowances increased in the second 
 period over the first period $1.03, in the third period over the 
 second period $1.88, in the fourth period over the third period 
 $1.41, and in the fifth period over the fourth period $0.91. This 
 is one of the most significant features of our financial experience, 
 that in this period of the greatest public undertakings and the 
 highest range of prices, both for labor and materials, in the 
 world's history, the increase in our per capita of debt service is 
 the lowest of any quadrennium since consolidation. 
 
 Deficiencies in taxes. Provision for the funding or payment 
 of "Deficiencies in Taxes" is an important part of the city's 
 annual budget. What are deficiencies in taxes? They consti- 
 tute the amount of the tax levy which is not collectible. Why 
 should any part of the tax levy prove uncollectible? For the 
 following reasons: 
 
 1. There are losses from discounts allowed for prepayment 
 of taxes. 
 
 2. Certain taxes are declared void because it is found that 
 the property assessed was not liable. 
 
 3. Assessments are reduced by the courts on the ground 
 that they are excessive, thus creating a reduction or loss in the 
 amount of the tax to be collected. 
 
 4. Personal taxes must be cancelled because it is found 
 that the people against whom they have been levied have no 
 property and in other cases people are able to show that some 
 of their property taxed is not liable to taxation. 
 
 The amount of general fund and the tax levy equals the 
 amount of the budget. Consequently, if some of the taxes can- 
 not be collected there is a deficit in the amount necessary to liqui- 
 date the outlays of the budget, and this deficit is known as the 
 "deficiencies in taxes" item. 
 
 How should these deficits be made up? The rational way 
 would be to determine at the time when each budget is being 
 prepared what is the amount of the deficiency to the end of the 
 year immediately preceding, and to include that amount in the 
 budget. This would be simple and good financing, but it takes 
 a city a long time to understand that good financing is the only 
 right policy. It must also be remembered that the city, in order 
 to pay its budgetary charges, has had to borrow money, and these 
 borrowings are finally liquidated as these deficiencies are made 
 
 30 
 
good. The practice of the city until the year 1910 was to conceal 
 these deficiencies from the public by including in the annual tax 
 levies or budgets amounts to cover deficiencies which in no way 
 approximated those deficiencies. This as a policy was doubly 
 wrong. First, because it was unwise financing, and, second, it 
 could have no other effect than to cast upon subsequent adminis- 
 trations the burden of discharging these deficiencies. 
 
 The deficiencies in the period 1899-1904, inclusive, as now 
 determined, were $40,475,778.94. The administrations in office 
 during that period retired only $9,978,142.07 of this great total, 
 or less than one-quarter of the amount for which they were liable. 
 The deficiencies in the period 1905-1909, inclusive, as now deter- 
 mined, were $33,506,429.48. The administrations in office dur- 
 ing that period retired only $15,522,445.94, or less than half 
 of the total for which they were liable. The deficiencies in the 
 period 1910-1915, inclusive, as now determined, were $17,759,- 
 379.86, and the administrations in office in that period have 
 retired $67,414,068.82 of deficiencies, showing that they have 
 cancelled not only all the deficiencies arising during this period, 
 but approximately $50,000,000, left to them by prior admin- 
 istrations. 
 
 There is another type of deficiency not included in the fore- 
 going analysis. This is the deficiency arising under Section 48 
 of the tax law, which permits a corporation to set off against 
 its franchise tax other payments made by it to the city in the 
 nature of a tax. Of this class of deficiency there developed in 
 the period 1899-1904, inclusive, the sum of $2,491,397.08, in the 
 period 1905-1909, inclusive, $3,867,659.09, in the period 1910- 
 1915, inclusive, $5,466,244.89, a total of $11,825,301.06. These 
 have all been discharged by the city during the last four years 
 by debiting them against the general fund, according to law. 
 
 The cost of County Government is included under the law 
 in the city's annual budget. This is unfortunate because the tax- 
 payer invariably thinks in terms of the gross amount of the city 
 budget, including county charges, and pays little attention to the 
 division of the rates for city and county levies which appear upon 
 his tax bills. For this reason he loses sight of the fact that he is 
 supporting two systems of government within the same municipal 
 and geographical jurisdiction, the functions of which in their 
 essence are absolutely the same, and for which distinction there 
 is not the slightest administrative excuse. 
 
 The appropriations for county government in the first pe- 
 
 31 
 
riod were $12,838,297.10; in the fifth period $28,094,765.66, an 
 increase of $15,256,468.56, or 118.84 per cent. This is a per 
 capita increase of $0.33. The lowest level of per capita appro- 
 priation was in the first period, $0.94. It ascended to $0.98, and 
 then continued to $1.09, $1.15 and $1,127 in the several periods. 
 
 Nearly all the county offices are now conducted upon a 
 salary basis, the only one remaining upon a fee basis being that 
 of Sheriff of New York, which will be changed to the salary basis 
 on January 1, 1918. When these offices were on a fee basis they 
 were conducted by their holders at a profit, the incumbents nearly 
 all retiring with moderate fortunes. The late Register Howe of 
 Kings County refused to use the profits of the office for his 
 private purposes and devoted them to public uses. He also 
 urged to the end the measure putting the office on a salary basis. 
 
 We have here presented another manifestation of the ineffi- 
 cacy of public versus private management. The functions of 
 these offices have not been changed, but instead of being profitable 
 under elected holders, as they were under the fee system, they are 
 now in a financial sense a burden to the community. The fees for 
 three years, 1913, 1914 and 1915, were $1,760,528. The cost of 
 maintenance was $8,714,246. It will be claimed that there have 
 been some material improvements in the nature of the services ren- 
 dered, and this is true, but the cost of them could all have been met 
 under the old fee system and still have left a very large annual 
 profit for the holders of the offices. The improvements measure 
 only a slight element of the present cost, which the figures quoted 
 will show is wholly disproportionate to the receipts. 
 
 The last budgetary item to be discussed is "State Taxes," 
 or, as it is commonly known, "the direct state tax." When the 
 annual revenues of the state are not sufficient to meet the antici 
 pated outlays, it levies a direct tax upon all the counties of the 
 state according to the assessable value of their taxable property. 
 A method, called an "equalization system," is used to bring the 
 proportion paid by all the counties on a parity, this or some 
 system being necessary in order to overcome the disparity in the 
 basis of assessing property in the different counties outside of 
 the Greater New York. The system followed is wholly unsci- 
 entific and unfair to the City of New York, which makes its 
 assessments on the basis of full value. 
 
 In our first period the city paid to the state for direct taxes 
 $28,437,372.17, in the fifth period, $18,551,325.16, a decrease of 
 $9,886,047.01, or 34.76 per cent., and a per capita decrease of 
 
 32 
 
$1.25. The average per capita allowances for direct state taxes 
 were, in the : 
 
 First period $2.09 
 
 Second period .41 
 
 Third period .05 
 
 Fourth period .61 
 
 Fifth period .84 
 
 These figures, which show reductions in the amounts the 
 city has had to pay for this purpose require explanation. In 1902 
 the state discontinued the practice of making a direct state tax, 
 except for certain judicial and military purposes. It did this 
 on the assumption that the new indirect sources of revenue it had 
 developed, such as the inheritance and corporation taxes, would 
 with its regular revenues be ample to meet the cost of govern- 
 ment. This was the case for a few years, but as the state's busi- 
 ness increased, the revenues did not meet it. Therefore, in 1911 
 the state again imposed a direct state tax. It repeated this in 
 1912, 1913 and 1915. Unless other sources of revenue are tapped 
 by the state, a direct state tax will be an annual occurrence and 
 a formidable item of the budget. The city has no legal control 
 over the amount to be levied. 
 
 The foregoing analyses cover all branches of our municipal 
 expenditures and explain in detail the present cost of the exten- 
 sion of our different civic activities. The total present annual 
 cost of the new activities introduced since consolidation is approx- 
 imately $16,700,000, or 7.9 per cent, of this year's budget. The 
 effect of this extension cannot be measured by the exact cost of 
 the new functions or agencies that have become a part of our 
 system of government. Its full effect is also reflected in the 
 further development of many of the old or normal activities. I 
 mean by this that with the introduction of new and more advanced 
 ideas there is created a demand for better services in all the ele- 
 ments of government. This produces a general stimulation of 
 activity, and such activity invariably means increased expenses. 
 The principal purpose of this study is to suggest a deeper ap- 
 preciation of our municipal problems and the great financial 
 responsibilities they impose upon citizens and public officials. 
 
 The statistics quoted herein are all taken from comprehensive 
 tables which set forth in great detail the financial operations of 
 the City Government since consolidation. It has seemed to me 
 important to display these tables as appendices so that everyone 
 interested could study them to his own satisfaction and extract 
 
 33 
 
from them many facts and conclusions which time and space 
 would not permit me to submit in the text of this address. These 
 appendices are as follows: 
 
 Appendix No. 1 — A comparison of the Budget Allowances made 
 by the City of New York for the four-year periods, 1898- 
 1901 and 1914-1917, for various classes of municipal service 
 and the average per capita allowance per annum for such 
 service for 1898-1901, 1902-1905, 1906-1909, .1910-1913 and 
 1914-1917. The population of the city increased from an 
 average of 3,407,315 in the first period to an average of 
 5,535,515 in the last period, or 62.46 per cent. 
 
 Appendix No. 2— A summary of the Tax Budget Allowances, 
 1898 to 1917, inclusive, by four-year periods, in accordance 
 with the classifications of the 1917 Tax Budget. 
 
 Appendix No. 3— A statement of the Tax Budget Allowances, 
 1898-1917, inclusive, by four-year periods, in accordance 
 with the classifications of the 1917 Tax Budget. 
 
 Appendix No. 4 — A comparison of the Corporate Stock, Cor- 
 porate Stock Notes and Assessment Bond Issues made by 
 the City of New York for the four-year periods, 1898-1901, 
 1914-1917, for various classes of municipal service and the 
 average per capita issues per annum for such service for 
 1898-1901, 1902-1905, 1906-1909, 1910-1913 and 1914-1917. 
 The population of the city increased from an average of 
 3,407,315 in the first period to an average of 5,535,515 in the 
 last period, or 62.46 per cent. 
 
 Appendix No. 5 — A statement by four year periods of the Cor- 
 porate Stock, Corporate Stock Notes and Assessment Bonds 
 issued by the City of New York from 1898 to 1917, inclusive, 
 in accordance with the classifications of the 1917 Tax Bud- 
 get. For the purposes of this statement the issues for 1917 
 are estimated on the basis of the issues of 1914, 1915 and 
 1916. 
 
 Appendix No. 6 — A summary of the Corporate Stock and Cor- 
 porate Stock Notes and Assessment Bonds Issued, 1898 to 
 1917, inclusive, in accordance with the classifications of the 
 1917 Tax Budget. 
 
 34 
 
Appendix No. 7 — A comparison of the receipts and the Budget 
 Allowances, 1898-1917, by four year periods, of all of the 
 county offices. Included therein are the Supreme Court, the 
 Appellate Division of the Supreme Court, the County 
 Courts, the Court of General Sessions, the National Guard 
 and Naval Militia, etc., besides the offices enumerated in 
 Appendix No. 8. 
 
 Appendix No. 8 — A comparison of the receipts and the Budget 
 Allowances, 1898-1917, by four year periods of the following 
 county offices: County Clerk, Surrogate's Court, District 
 Attorney, Commissioners of Jurors, Public Administrator, 
 Commissioner of Records, Register, Sheriff. 
 
 35 
 

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The City of New York — 
 
 APPENDIX 
 
 A Summary of the Tax-Budget Allowances, 1898 to 1917, Inclusive, by Four-Year 
 
 1898-1901, 1902-1905, 
 
 Average Pop. Average Pop. 
 
 3,407,315. 3,843,503. 
 
 Increase or 
 *Decrease 
 Over Preced- 
 ing Period. 
 
 Legislation 
 
 Percentage of Increase in Population... 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Central Administration 
 
 Percentage of Increase in Population . . . 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Borough Government 
 
 Percentage of Increase in Population... 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Educational and Recreational 
 
 Percentage of Increase in Population. . . 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Protection of Life and Property 
 
 Percentage of Increase in Population... 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Health, Sanitation and Care of Dependents. 
 
 Percentage of Increase in Population... 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Correction 
 
 Percentage of Increase in Population . . . 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Facilitating Commerce and Transportation . . 
 
 Percentage of Increase in Population... 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Courts 
 
 Percentage of Increase in Population... 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Central Purchase, Printing and Publicity.... 
 
 Percentage of Increase in Population... 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Debt Service and Tax Deficiencies 
 
 Percentage of Increase in Population... 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 Rent 
 
 Percentage of Increase in Population.., 
 
 Percentage of Increase in Allowances.. 
 
 Per Capita Cost Per Annum 
 
 $792,708 00 $614,416 00 
 
 .06 .04 
 
 10,435,146 74 12,499,261 20 
 
 .21 
 
 1,664,344 13 
 
 .12 
 
 5,637,547 53 
 
 .77 .81 
 
 28,560,845 13 21,842,794 81 
 
 2.10 1.42 
 67,645,127 96 94,428,745 08 
 
 4.96 6.14 
 62,837,666 01 70,493,772 86 
 
 4.61 4.59 
 47,455,898 77 67,855,779 07 
 
 3.48 4.41 
 
 2,906,858 49 3,170,845 00 
 
 .21 
 
 1,690,358 52 
 
 .11 
 
 4,893,150 00 
 
 .41 .32 
 
 2,163,400 00 3,668,023 07 
 
 .16 .24 
 
 85,710,689 99 112,489,035 88 
 
 6.29 
 1,208,802 91 
 
 7.32 
 1,397,569 64 
 
 ♦$178,292 00 
 
 12.80 
 
 *22.49 
 
 *.02 
 
 2,064,114 46 
 
 12.80 
 
 19.80 
 
 .04 
 
 *6,718,050 32 
 
 12.80 
 
 ♦23.52 
 
 ♦.68 
 
 26,783,617 12 
 
 12.80 
 
 39.59 
 
 1.18 
 
 7,656,106 85 
 
 12.80 
 
 12.18 
 
 ♦.02 
 
 20,399,880 30 
 
 12.80 
 
 42.99 
 
 .93 
 
 263,986 51 
 
 12.80 
 
 8.89 
 
 .08 
 
 .09 
 
 26,014 39 
 
 12.80 
 
 1.56 
 
 ♦.01 
 
 ♦744,397 53 
 
 12.80 
 
 ♦13.20 
 
 ♦.09 
 
 1,504,623 07 
 
 12.80 
 
 69.55 
 
 .08 
 
 26,778,345 89 
 
 12.80 
 
 31.24 
 
 1.03 
 
 188,766 73 
 
 12.80 
 
 15.61 
 
 .01 
 
 38 
 
Department of Finance. 
 
 NO. 2. 
 
 Periods, in Accordance with the Classifications of the 1917 Tax Budget. 
 
 
 
 
 
 
 
 Increase or 
 
 
 Increase or 
 
 
 Increase or 
 
 
 Increase or 
 
 •Decrease 
 
 1906-1909. 
 
 •Decrease 
 
 1910-1913, 
 
 ♦Decrease 
 
 1914-1917, 
 
 •Decrease 
 
 1914-1917 
 
 Average Pop. 
 
 Over Preced- 
 
 Average Pop. 
 
 Over Preced- 
 
 Average Pop. 
 
 Over Preced- 
 
 Over 
 
 4,395,530. 
 
 ing Period. 
 
 4,996,911. 
 
 ing Period. 
 
 5,535,515. 
 
 ing Period. 
 
 1898-1901. 
 
 $896,516 00 
 
 $282,100 00 
 
 $1,138,676 84 
 
 $242,160 84 
 
 $1,183,622 14 
 
 $44,945 30 
 
 $390,914 14 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 45.91 
 
 
 27.01 
 
 
 3.95 
 
 49.31 
 
 .05 
 
 .01 
 
 .06 
 
 .01 
 
 .06 
 
 
 
 16,888,212 90 
 
 4,388,951 70 
 
 19,795,073 90 
 
 2,906,861 00 
 
 22,427,539 93 
 
 2,632,466 03 
 
 11,992,393 19 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 35.11 
 
 
 17.21 
 
 
 13.30 
 
 114.92 
 
 .96 
 
 .15 
 
 .99 
 
 .03 
 
 1.01 
 
 .02 
 
 .24 
 
 30,693,364 39 
 
 8,850,569 58 
 
 33,658,550 82 
 
 2,965,186 43 . 
 
 35,454,377 12 
 
 1,795,826 30 
 
 6,893,531 99 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 40.52 
 
 
 9.66 
 
 
 5.34 
 
 24.14 
 
 1.74 
 
 .32 
 
 1.68 
 
 *.06 
 
 1.60 
 
 ♦.08 
 
 •.50 
 
 120,822,142 26 
 
 26,393,397 18 
 
 149,873,873 15 
 
 29,051,730 89 
 
 183,636,538 63 
 
 33,762,665 48 
 
 115,991,410 67 
 
 
 14.36 
 
 
 13.68 
 
 
 
 10.78 
 
 62.46 
 
 
 27.95 
 
 
 24.04 
 
 
 22.53 
 
 171.47 
 
 6.87 
 
 .73 
 
 7.50 
 
 .63 
 
 8.29 
 
 .79 
 
 3.33 
 
 84,939,715 25 
 
 14,445,942 39 
 
 98,165,706 15 
 
 13,225,990 90 
 
 108,122,821 05 
 
 9,957,114 90 
 
 45,285,155 04 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 20.49 
 
 
 15.57 
 
 
 10.14 
 
 72.08 
 
 4.83 
 
 .24 
 
 4.91 
 
 .08 
 
 4.89 
 
 *.02 
 
 .28 
 
 88,434,154 76 
 
 20,578,375 69 
 
 110,852,969 24 
 
 22,418,814 48 
 
 119,567,369 00 
 
 8,714,399 76 
 
 72,111,470 23 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 30.33 
 
 
 25.35 
 
 
 7.86 
 
 151.95 
 
 5.03 
 
 .62 
 
 5.55 
 
 .52 
 
 5.40 
 
 •.15 
 
 1.92 
 
 4,364,249 50 
 
 1,193,404 50 
 
 5,145,026 37 
 
 780,776 87 
 
 5,824,188 81 
 
 679,162 44 
 
 2,917,330 32 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 37.64 
 
 
 17.89 
 
 
 13.20 
 
 100.36 
 
 .25 
 
 .04 
 
 .26 
 
 .01 
 
 .26 
 
 
 .05 
 
 2,393,508 22 
 
 703,149 70 
 
 14,859,811 64 
 
 12,466,303 42 
 
 11,396,835 76 
 
 •3,462,975 88 
 
 9,732,491 63 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 41.59 
 
 
 520.84 
 
 
 •23.30 
 
 584.75 
 
 .14 
 
 .03 
 
 .74 
 
 .60 
 
 .51 
 
 ♦.23 
 
 .39 
 
 6,689,290 00 
 
 1,796,140 00 
 
 9,230,877 09 
 
 2,541,587 09 
 
 10,545,219 02 
 
 1,314,341 93 
 
 4,907,671 49 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 36.71 
 
 
 37.99 
 
 
 14.24 
 
 87.05 
 
 .38 
 
 .06 
 
 .46 
 
 .08 
 
 .47 
 
 .01 
 
 .06 
 
 5,562,734 05 
 
 1,894,710 98 
 
 5,512,956 75 
 
 •49,777 30 
 
 4,290,713 08 
 
 ♦1,222,243 67 
 
 2,127,313 08 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 51.65 
 
 
 *.89 
 
 
 .22.17 
 
 98.33 
 
 .32 
 
 .08 
 
 .27 
 
 *.05 
 
 .19 
 
 *.08 
 
 .03 
 
 164,820,012 56 
 
 52,330,976 68 
 
 222,924,793 96 
 
 58,104,781 40 
 
 263,013,770 19 
 
 40,088,976 23 
 
 177,303,080 20 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 46.52 
 
 
 35.25 
 
 
 17.98 
 
 206.86 
 
 9.37 
 
 2.05 
 
 11.14 
 
 1.77 
 
 11.88 
 
 .74 
 
 5.59 
 
 2,484,095 68 
 
 1,086,526 04 
 
 4,387,820 63 
 
 1,903,724 95 
 
 3,251,086 67 
 
 ♦1,136,733 96 
 
 2,042,283 76 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 77.74 
 
 
 76.63 
 
 
 •27.04 
 
 168.95 
 
 .14 
 
 .05 
 
 .22 
 
 .08 
 
 .15 
 
 •.07 
 
 • .07 
 
 39 
 
APPENDIX 
 
 Increase or 
 1898-1901, 1902-1905, *Decrease 
 
 Average Pop. Average Pop. Over Preced- 
 3,407,315. 3,843,503. ing Period. 
 
 Miscellaneous 
 
 Percentage of Increase in Population.. 
 
 Percentage of Increase in Allowances. 
 
 Per Capita Cost Per Annum 
 
 State Taxes 
 
 Percentage of Increase in Population.. 
 
 Percentage of Increase in Allowances. 
 
 Per Capita Cost Per Annum 
 
 Total City 
 
 Percentage of Increase in Population.. 
 
 Percentage of Increase in Allowances. 
 
 Per Capita Cost Per Annum 
 
 County Government 
 
 Percentage of Increase in Population.. 
 
 Percentage of Increase in Allowances. 
 
 Per Capita Cost Per Annum 
 
 Total City and County Government 
 
 Percentage of Increase in Population.. 
 
 Percentage of Increase in Allowances. 
 
 Per Capita Cost Per Annum 
 
 7,566,488 78 2,357,072 41 *5,209,416 33 
 
 12.80 
 
 *68.85 
 
 .56 .15 *.41 
 
 28,437,372 17 6,339,233 09 *22,098,139 08 
 
 12.80 
 
 ........ *77.71 
 
 2.09 .41 *1.68 
 
 353,022,896 61 403,740,056 63 50,717,160 02 
 
 12.80 
 
 14.36 
 
 25.90 26.26 .36 
 
 12,838,297 10 15,175,834 72 2,337,537 62 
 
 • 12.80 
 
 18.21 
 
 .94 .98 .04 
 
 365,861,193 71 418,915,891 35 53,054,697 64 
 
 12.80 
 
 14.50 
 
 26.84 27.24 .40 
 
 t Does not include Borough Assessments in 1914 of $520,015.06. 
 
NO. 2 — Continued. 
 
 Increase or 
 
 1906-1909, *Decrease 
 
 Average Pop. Over Preced- 
 
 4,395,530. ing Period. 
 
 114,281 15 *2,242,791 26 
 
 14.36 
 
 »95.15 
 
 .01 *.14 
 
 903,632 69 *5,435,600 40 
 
 14.36 
 
 *85.75 
 
 .05 *.36 
 
 530,005,909 41 126,265,852 78 
 
 14.36 
 
 31.27 
 
 30.14 3.88 
 
 19,183,562 64 4,007,727 92 
 
 14.36 
 
 26.41 
 
 1.09 .11 
 
 549,189,472 05 130,273,580 70 
 
 14.36 
 
 31.10 
 
 31.23 3.99 
 
 1910-1913. 
 
 Average Pop. 
 
 4,996,911. 
 
 Increase or Increase or 
 ♦Decrease 1914-1917, *Decrease 
 Over Preced- Average Pop. Over Preced- 
 ing Period. 5,535,515. ing Period. 
 
 *9,592 48 175,465 22 70,776 55 
 
 13.68 10.78 
 
 8.39 6.76 
 
 .' .01 
 
 11,344,744 92 18,551,325 16 6,302,947 55 
 
 13.68 10.78 
 
 1,253.46 51.45 
 
 .56 .84 .23 
 
 157,893,293 41 787,440,871 78 99,541,668 96 
 
 13.68 10.78 
 
 29.79 14.47 
 
 4.26 35.56 1.16 
 
 3,815,037 74 28,094,765 66 5,096,165 28 
 
 13.68 10.78 
 
 19.89 22.16 
 
 .06 1.27 .12 
 
 161,708,331 IS t815,535,637 44 104,637,834 24 
 
 13.68 10.78 
 
 29.44 14.72 
 
 4.32 36.83 1.28 
 
 Increase or 
 •Decrease 
 
 1914-1917. 
 
 Over 
 1898-1901. 
 
 104.688 67 
 
 .01 
 
 12,248,377 61 
 
 .61 
 
 687,899,202 82 
 
 34.40 
 22,998,600 38 
 
 1.15 
 710,897,803 20 
 
 35.55 
 
 ♦7,391,023 56 
 
 62.46 
 
 ♦97.68 
 
 *.55 
 
 ♦9,886,047 01 
 
 62.46 
 
 ♦34.76 
 
 ♦1.25 
 
 434,417,975 17 
 
 62.46 
 
 123.06 
 
 9.66 
 
 15,256,468 56 
 
 62.46 
 
 118.84 
 
 .33 
 
 449,674,443 73 
 
 62.46 
 
 122.91 
 
 9.99 
 
 41 
 
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The City of New York 
 
 APPENDIX 
 
 A Summary of the Corporate Stodk and Corporate Stock Notes and Assessment Bonds Issued, 
 
 
 
 Increase or 
 
 1898-1901, 
 
 1902-1905, 
 
 ♦Decrease 
 
 Average Pop. 
 
 Average Pop. 
 
 Over Preced 
 
 3,407,315. 
 
 3,843,503. 
 
 ing Period. 
 
 $29,614,177.19 
 
 $61,929,651.43 
 
 $32,315,474.24 
 
 12.80 
 
 109.12 
 
 2.17 
 
 4.03 
 
 1.86 
 
 32,574,299.99 
 
 37,598,817.05 
 
 5,024,517.06 
 12.80 
 15.42 
 
 2.39 
 
 2.45 
 
 .06 
 
 1,852,389.71 
 
 2,344,200.00 
 
 491,810.29 
 12.80 
 26.55 
 
 .14 
 
 .15 
 
 .01 
 
 14,306,298.02 
 
 21,313,478.92 
 
 7,007,180.90 
 12.80 
 48.98 
 
 1.05 
 
 1.39 
 
 .34 
 
 
 28,000.00 
 
 28,000.00 
 12.80 
 
 40,701,668.49 
 
 76,471,357.31 
 
 35,769,688.82 
 12.80 
 87.88 
 
 2.99 
 
 4.97 
 
 1.98 
 
 2,190,800.73 
 
 976,050.00 
 
 ♦1,214,750.73 
 12.80 
 
 ♦55.45 
 
 .16 
 
 .06 
 
 ♦.10 
 
 $121,239,634.13 
 
 $200,661,554.71 
 
 $79,421,920.58 
 12.80 
 65.51 
 
 8.90 
 
 13.05 
 
 4.15 
 
 1. Borough Government 
 
 Percentage of Increase in Population 
 
 Percentage of Increase or ♦Decrease in Issues. 
 Per Capita Issued Per Annum 
 
 2. Educational and Recreational 
 
 Percentage of Increase in Population 
 
 Percentage of Increase or ♦Decrease in Issues. 
 Per Capita Issued Per Annum 
 
 3. Protection of Life and Property 
 
 Percentage of Increase in Population 
 
 Percentage of Increase or ♦Decrease in Issues. 
 Per Capita Issued Per Annum 
 
 4. Health, Sanitation and Care of Dependents 
 
 Percentage of Increase in Population 
 
 Percentage of Increase or ♦Decrease in Issues. 
 Per Capita Issued Per Annum 
 
 5. Correctional 
 
 Percentage of Increase in Population 
 
 Percentage of Increase or ♦Decrease in Issues. 
 Per Capita Issued Per Annum 
 
 6. Facilitating Commerce and Transportation 
 
 Percentage of Increase in Population 
 
 Percentage of Increase or ♦Decrease in Issues. 
 Per Capita Issued Per Annum 
 
 7. Miscellaneous 
 
 Percentage of Increase in Population 
 
 Percentage of Increase or ♦Decrease in Issues. 
 Per Capita Issued Per Annum 
 
 Totals $121,239,634. 13 
 
 Percentage of Increase in Population 
 
 Percentage of Increase or ♦Decrease in Issues 
 
 Per Capita Issued Per Annum 
 
 60 
 
— Department of Finance. 
 
 NO. 6. 
 
 1898 to 1917, Inclusive, in Accordance with the Classifications of the 1917 Tax Budget. 
 
 
 
 
 
 
 
 Increase or 
 
 
 Increase or 
 
 
 Increase or 
 
 
 Increase or 
 
 ♦Decrease 
 
 1906-1909, 
 
 *Decrease 
 
 1910-1913, 
 
 ♦Decrease 
 
 1914-1917, 
 
 ♦Decrease 
 
 1914-1917 
 
 Average Pop. 
 
 Over Preced- 
 
 Average Pop. 
 
 Over Preced- 
 
 Average Pop. 
 
 Over Preced- 
 
 Over 
 
 4,395,530. 
 
 ing Period. 
 
 4,996,911. 
 
 ing Period. 
 
 5,535,515. 
 
 ing Period. 
 
 1898-1901. 
 
 $76,071,496.74 
 
 $14,141,845.31 
 
 $71,262,107.44 
 
 •4,809,389.30 
 
 $46,653,850.47 
 
 ♦$24,608,256.97 
 
 $17,039,673.28 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 22.84 
 
 
 *6.32 
 
 
 ♦34.53 
 
 57.54 
 
 4.33 
 
 .30 
 
 3.57 
 
 *.76 
 
 2.10 
 
 ♦1.47 
 
 ♦.07 
 
 53,852,023.35 
 
 16,253,206.30 
 
 24,233,907.33 
 
 ♦29,618,116.02 
 
 20,312,617.35 
 
 ♦3,921,289.98 
 
 ♦12,261,682.64 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 43.23 
 
 
 ♦55. 
 
 
 ♦16.18 
 
 ♦37.64 
 
 3.06 
 
 .61 
 
 1.21 
 
 •1.85 
 
 .92 
 
 ♦.29 
 
 ♦1.47 
 
 4,354,570.00 
 
 2,010,370.00 
 
 4,846,443.33 
 
 491,873.33 
 
 2,558,737.11 
 
 ♦2,287,706.22 
 
 706,347.40 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 85.76 
 
 
 11.30 
 
 
 ♦47.20 
 
 38.13 
 
 .25 
 
 .10 
 
 .24 
 
 ♦.01 
 
 .12 
 
 ♦.12 
 
 ♦.02 
 
 56,752,468.91 
 
 35,438,989.99 
 
 113,923,464.61 
 
 57,170,995.70 
 
 39,108,973.85 
 
 ♦74,814,490.76 
 
 24,802,675.83 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 166.28 
 
 
 100.74 
 
 
 ♦65.67 
 
 173.37 
 
 3.23 
 
 1.84 
 
 5.69 
 
 2.46 
 
 1.77 
 
 ♦3.92 
 
 .72 
 
 309,000.00 
 
 281,000.00 
 
 564,913.07 
 
 255,913.07 
 
 237,354.95 
 
 ♦327,558.12 
 
 237.354.95 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 1,003.57 
 
 
 82.82 
 
 
 •57.98 
 
 
 .02 
 
 .02 
 
 .03 
 
 .01 
 
 .01 
 
 ♦.02 
 
 .01 
 
 85.349,514.40 
 
 8,878,157.09 
 
 75,451,035.91 
 
 ♦9,898,478.49 
 
 117,366,377.70 
 
 41,915,341.79 
 
 76,664,709.21 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 11.61 
 
 
 •11.60 
 
 
 55.55 
 
 188.36 
 
 4.85 
 
 *.12 
 
 3.78 
 
 ♦1.07 
 
 5.30 
 
 1.52 
 
 2.31 
 
 5,370,230.04 
 
 4,394,180.04 
 
 24,231,832.23 
 
 18,861,602.19 
 
 13,587,020.45 
 
 •10,644,811.78 
 
 11,396,219.72 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 450.20 
 
 
 351.23 
 
 
 ♦43.93 
 
 520.18 
 
 .30 
 
 .24 
 
 1.21 
 
 .91 
 
 .61 
 
 ♦.60 
 
 .45 
 
 $282,059,303.44 
 
 $81,397,748.73 
 
 $314,513,703.92 
 
 $32,454,400.48 
 
 $239,824,931.88 
 
 ♦$74,688,772.04 
 
 $118,585,297.75 
 
 
 14.36 
 
 
 13.68 
 
 
 10.78 
 
 62.46 
 
 
 40.56 
 
 
 11.51 
 
 
 ♦23.75 
 
 97.81 
 
 16.04 
 
 2.99 
 
 15.73 
 
 ♦.31 
 
 10,83 
 
 ♦4.90 
 
 1.93 
 
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